shipping interests can not fail to command your attention. He emphatically
recommends that as an incentive to the investment of American capital in
American steamships the Government shall, by liberal payments for mail
transportation or otherwise, lend its active assistance to individual
enterprise, and declares his belief that unless that course be pursued our
foreign carrying trade must remain, as it is to-day, almost exclusively in
the hands of foreigners.
One phase of this subject is now especially prominent in view of the repeal
by the act of June 26, 1884, of all statutory provisions arbitrarily
compelling American vessels to carry the mails to and from the United
States. As it is necessary to make provision to compensate the owners of
such vessels for performing that service after April, 1885, it is hoped
that the whole subject will receive early consideration that will lead to
the enactment of such measures for the revival of our merchant marine as
the wisdom of Congress may devise.
The 3 per cent bonds of the Government to the amount of more than
$100,000,000 have since my last annual message been redeemed by the
Treasury. The bonds of that issue still outstanding amount to little over
$200,000,000, about one-fourth of which will be retired through the
operations of the sinking fund during the coming year. As these bonds still
constitute the chief basis for the circulation of the national banks, the
question how to avert the contraction of the currency caused by their
retirement is one of constantly increasing importance.
It seems to be generally conceded that the law governing this matter exacts
from the banks excessive security, and that upon their present bond
deposits a larger circulation than is now allowed may be granted with
safety. I hope that the bill which passed the Senate at the last session,
permitting the issue of notes equal to the face value of the deposited
bonds, will commend itself to the approval of the House of
Representatives.
In the expenses of the War Department the Secretary reports a decrease of
more than $9,000,000. Of this reduction $5,600,000 was effected in the
expenditures for rivers and harbors and $2,700,000 in expenditures for the
Quartermaster's Department.
Outside of that Department the annual expenses of all the Army bureaus
proper (except possibly the Ordnance Bureau) are substantially fixed
charges, which can not be materially diminished without a change in the
numerical strength of the Army. The expenditures in the Quartermaster's
Department can readily be subjected to administrative discretion, and it is
reported by the Secretary of War that as a result of exercising such
discretion in reducing the number of draft and pack animals in the Army the
annual cost of supplying and caring for such animals is now $1,108,085.90
less than it was in 1881.
The reports of military commanders show that the last year has been notable
for its entire freedom from Indian outbreaks.
In defiance of the President's proclamation of July 1, 1884, certain
intruders sought to make settlements in the Indian Territory. They were
promptly removed by a detachment of troops.
During the past session of Congress a bill to provide a suitable fire-proof
building for the Army Medical Museum and the library of the
Surgeon-General's Office received the approval of the Senate. A similar
bill, reported favorably to the House of Representatives by one of its
committees, is still pending before that body. It is hoped that during the
coming session the measure may become a law, and that thereafter immediate
steps may be taken to secure a place of safe deposit for these valuable
collections, now in a state of insecurity.
The funds with which the works for the improvement of rivers and harbors
were prosecuted during the past year were derived from the appropriations
of the act of August 2, 1882, together with such few balances as were on
hand from previous appropriations. The balance in the Treasury subject to
requisition July 1, 1883, was $10,021,649.55. The amount appropriated
during the fiscal year 1884 was $1,319,634.62 and the amount drawn from the
Treasury during the fiscal year was $8,228,703.54, leaving a balance of
$3,112,580.63 in the Treasury subject to requisition July 1, 1884.
The Secretary of War submits the report of the Chief of Engineers as to the
practicability of protecting our important cities on the seaboard by
fortifications and other defenses able to repel modern methods of attack.
The time has now come when such defenses can be prepared with confidence
that they will not prove abortive, and when the possible result of delay in
making such preparation is seriously considered delay seems inexcusable.
For the most important cities--those whose destruction or capture would be
a national humiliation--adequate defenses, inclusive of guns, may be made
by the gradual expenditure of $60,000,000--a sum much less than a
victorious enemy could levy as a contribution. An appropriation of about
one-tenth of that amount is asked to begin the work, and I concur with the
Secretary of War in urging that it be granted.
The War Department is proceeding with the conversion of 10-inch smoothbore
guns into 8-inch rifles by lining the former with tubes of forged steel or
of coil wrought iron. Fifty guns will be thus converted within the year.
This, however, does not obviate the necessity of providing means for the
construction of guns of the highest power both for the purposes of coast
defense and for the armament of war vessels.
The report of the Gun Foundry Board, appointed April 2, 1883, in pursuance
of the act of March 3, 1883, was transmitted to Congress in a special
message of February 18, 1884. In my message of March 26, 1884, I called
attention to the recommendation of the board that the Government should
encourage the production at private steel works of the required material
for heavy cannon, and that two Government factories, one for the Army and
one for the Navy, should be established for the fabrication of guns from
such material. No action having been taken, the board was subsequently
reconvened to determine more fully the plans and estimates necessary for
carrying out its recommendation. It has received information which
indicates that there are responsible steel manufacturers in this country
who, although not provided at present with the necessary plant, are willing
to construct the same and to make bids for contracts with the Government
for the supply of the requisite material for the heaviest guns adapted to
modern warfare if a guaranteed order of sufficient magnitude, accompanied
by a positive appropriation extending over a series of years, shall be made
by Congress. All doubts as to the feasibility of the plan being thus
removed, I renew my recommendation that such action be taken by Congress as
will enable the Government to construct its own ordnance upon its own
territory, and so to provide the armaments demanded by considerations of
national safety and honor.
The report of the Secretary of the Navy exhibits the progress which has
been made on the new steel cruisers authorized by the acts of August 5,
1882, and March 3, 1883. Of the four vessels under contract, one, the
Chicago, of 4,500 tons, is more than half finished; the Atlanta, of 3,000
tons, has been successfully launched, and her machinery is now fitting; the
Boston, also of 3,000 tons, is ready for launching, and the Dolphin, a
dispatch steamer of 1,500 tons, is ready for delivery.
Certain adverse criticisms upon the designs of these cruisers are discussed
by the Secretary, who insists that the correctness of the conclusions
reached by the Advisory Board and by the Department has been demonstrated
by recent developments in shipbuilding abroad.
The machinery of the double-turreted monitors Puritan, Terror, and
Amphitrite, contracted for under the act of March 3, 1883, is in process of
construction. No work has been done during the past year on their armor for
lack of the necessary appropriations. A fourth monitor, the Monadnock,
still remains unfinished at the navy-yard in California. It is recommended
that early steps be taken to complete these vessels and to provide also an
armament for the monitor Miantonomoh.
The recommendations of the Naval Advisory Board, approved by the
Department, comprise the construction of one steel cruiser of 4,500 tons,
one cruiser of 3,000 tons, two heavily armed gunboats, one light cruising
gunboat, one dispatch vessel armed with Hotchkiss cannon, one armored ram,
and three torpedo boats. The general designs, all of which are calculated
to meet the existing wants of the service, are now well advanced, and the
construction of the vessels can be undertaken as soon as you shall grant
the necessary authority.
The act of Congress approved August 7, 1882, authorized the removal to the
United States of the bodies of Lieutenant-Commander George W. De Long and
his companions of the Jeannette expedition. This removal has been
successfully accomplished by Lieutenants Harber and Schuetze. The remains
were taken from their grave in the Lena Delta in March, 1883, and were
retained at Yakutsk until the following winter, the season being too far
advanced to admit of their immediate transportation. They arrived at New
York February 20, 1884, where they were received with suitable honors.
In pursuance of the joint resolution of Congress approved February 13,
1884, a naval expedition was fitted out for the relief of Lieutenant A. W.
Greely, United States Army, and of the party who had been engaged under his
command in scientific observations at Lady Franklin Bay. The fleet
consisted of the steam sealer Thetis, purchased in England; the Bear,
purchased at St. Johns, Newfoundland, and the Alert, which was generously
provided by the British Government. Preparations for the expedition were
promptly made by the Secretary of the Navy, with the active cooperation of
the Secretary of War. Commander George W. Coffin was placed in command of
the Alert and Lieutenant William H. Emory in command of the Bear. The
Thetis was intrusted to Commander Winfield S. Schley, to whom also was
assigned the superintendence of the entire expedition.
Immediately upon its arrival at Upernavik the fleet began the dangerous
navigation of Melville Bay, and in spite of every obstacle reached
Littleton Island on June 22, a fortnight earlier than any vessel had before
attained that point. On the same day it crossed over to Cape Sabine, where
Lieutenant Greely and the other survivors of his party were discovered.
After taking on board the living and the bodies of the dead, the relief
ships sailed for St. Johns, where they arrived on July 17. They were
appropriately received at Portsmouth, N. H., on August 1 and at New York on
August 8. One of the bodies was landed at the former place. The others were
put on shore at Governors Island, and, with the exception of one, which was
interred in the national cemetery, were forwarded thence to the
destinations indicated by friends. The organization and conduct of this
relief expedition reflects great credit upon all who contributed to its
success.
In this the last of the stated messages that I shall have the honor to
transmit to the Congress of the United States I can not too strongly urge
upon its attention the duty of restoring our Navy as rapidly as possible to
the high state of efficiency which formerly characterized it. As the long
peace that has lulled us into a sense of fancied security may at any time
be disturbed, it is plain that the policy of strengthening this arm of the
service is dictated by considerations of wise economy, of just regard for
our future tranquillity, and of true appreciation of the dignity and honor
of the Republic.
The report of the Postmaster-General acquaints you with the present
condition and needs of the postal service.
It discloses the gratifying fact that the loss of revenue from the
reduction in the rate of letter postage recommended in my message of
December 4, 1882, and effected by the act of March 3, 1883, has been much
less than was generally anticipated. My recommendation of this reduction
was based upon the belief that the actual falling off in receipts from
letter postages for the year immediately succeeding the change of rate
would be $3,000,000. It has proved to be only $2,275,000.
This is a trustworthy indication that the revenue will soon be restored to
its former volume by the natural increase of sealed correspondence.
I confidently repeat, therefore, the recommendation of my last annual
message that the single-rate postage upon drop letters be reduced to 1 cent
wherever the payment of 2 cents is now required by law. The double rate is
only exacted at offices where the carrier system is in operation, and it
appears that at those offices the increase in the tax upon local letters
defrays the cost not only of its own collection and delivery, but of the
collection and delivery of all other mail matter. This is an inequality
that ought no longer to exist.
I approve the recommendation of the Postmaster-General that the unit of
weight in the rating of first-class matter should be 1 ounce instead of
one-half ounce, as it now is. In view of the statistics furnished by the
Department, it may well be doubted whether the change would result in any
loss of revenue. That it would greatly promote the convenience of the
public is beyond dispute.
The free-delivery system has been lately applied to five cities, and the
total number of offices in which it is now in operation is 159. Experience
shows that its adoption, under proper conditions, is equally an
accommodation to the public and an advantage to the postal service. It is
more than self-sustaining, and for the reasons urged by the
Postmaster-General may properly be extended.
In the opinion of that officer it is important to provide means whereby
exceptional dispatch in dealing with letters in free-delivery offices may
be secured by payment of extraordinary postage. This scheme might be made
effective by employment of a special stamp whose cost should be
commensurate with the expense of the extra service.
In some of the large cities private express companies have undertaken to
outstrip the Government mail carriers by affording for the prompt
transmission of letters better facilities than have hitherto been at the
command of the Post-Office.
It has always been the policy of the Government to discourage such
enterprises, and in no better mode can that policy be maintained than in
supplying the public with the most efficient mail service that, with due
regard to its own best interests, can be furnished for its accommodation.
The Attorney-General renews the recommendation contained in his report of
last year touching the fees of witnesses and jurors.
He favors radical changes in the fee bill, the adoption of a system by
which attorneys and marshals of the United States shall be compensated
solely by salaries, and the erection by the Government of a penitentiary
for the confinement of offenders against its laws.
Of the varied governmental concerns in charge of the Interior Department
the report of its Secretary presents an interesting summary. Among the
topics deserving particular attention I refer you to his observations
respecting our Indian affairs, the preemption and timber-culture acts, the
failure of railroad companies to take title to lands granted by the
Government, and the operations of the Pension Office, the Patent Office,
the Census Bureau, and the Bureau of Education.
Allusion has been made already to the circumstance that, both as between
the different Indian tribes and as between the Indians and the whites, the
past year has been one of unbroken peace.
In this circumstance the President is glad to find justification for the
policy of the Government in its dealing with the Indian question and
confirmation of the views which were fully expressed in his first
communication to the Forty-seventh Congress.
The Secretary urges anew the enactment of a statute for the punishment of
crimes committed on the Indian reservations, and recommends the passage of
the bill now pending in the House of Representatives for the purchase of a
tract of 18,000 square miles from the Sioux Reservation. Both these
measures are worthy of approval.
I concur with him also in advising the repeal of the preemption law, the
enactment of statutes resolving the present legal complications touching
lapsed grants to railroad companies, and the funding of the debt of the
several Pacific railroads under such guaranty as shall effectually secure
its ultimate payment.
The report of the Utah Commission will be read with interest.
It discloses the results of recent legislation looking to the prevention
and punishment of polygamy in that Territory. I still believe that if that
abominable practice can be suppressed by law it can only be by the most
radical legislation consistent with the restraints of the Constitution.
I again recommend, therefore, that Congress assume absolute political
control of the Territory of Utah and provide for the appointment of
commissioners with such governmental powers as in its judgment may justly
and wisely be put into their hands.
In the course of this communication reference has more than once been made
to the policy of this Government as regards the extension of our foreign
trade. It seems proper to declare the general principles that should, in my
opinion, underlie our national efforts in this direction.
The main conditions of the problem may be thus stated:
We are a people apt in mechanical pursuits and fertile in invention. We
cover a vast extent of territory rich in agricultural products and in
nearly all the raw materials necessary for successful manufacture. We have
a system of productive establishments more than sufficient to supply our
own demands. The wages of labor are nowhere else so great. The scale of
living of our artisan classes is such as tends to secure their personal
comfort and the development of those higher moral and intellectual
qualities that go to the making of good citizens. Our system of tax and
tariff legislation is yielding a revenue which is in excess of the present
needs of the Government.
These are the elements from which it is sought to devise a scheme by which,
without unfavorably changing the condition of the workingman, our merchant
marine shall be raised from its enfeebled condition and new markets
provided for the sale beyond our borders of the manifold fruits of our
industrial enterprises.
The problem is complex and can be solved by no single measure of innovation
or reform.
The countries of the American continent and the adjacent islands are for
the United States the natural marts of supply and demand. It is from them
that we should obtain what we do not produce or do not produce in
sufficiency, and it is to them that the surplus productions of our fields,
our mills, and our workshops should flow, under conditions that will
equalize or favor them in comparison with foreign competition.
Four paths of policy seem to point to this end:
First. A series of reciprocal commercial treaties with the countries of
America which shall foster between us and them an unhampered movement of
trade. The conditions of these treaties should be the free admission of
such merchandise as this country does not produce, in return for the
admission free or under a favored scheme of duties of our own products, the
benefits of such exchange to apply only to goods carried under the flag of
the parties to the contract; the removal on both sides from the vessels so
privileged of all tonnage dues and national imposts, so that those vessels
may ply unhindered between our ports and those of the other contracting
parties, though without infringing on the reserved home coasting trade; the
removal or reduction of burdens on the exported products of those countries
coming within the benefits of the treaties, and the avoidance of the
technical restrictions and penalties by which our intercourse with those
countries is at present hampered.
Secondly. The establishment of the consular service of the United States on
a salaried footing, thus permitting the relinquishment of consular fees not
only as respects vessels under the national flag, but also as respects
vessels of the treaty nations carrying goods entitled to the benefits of
the treaties.
Thirdly. The enactment of measures to favor the construction and
maintenance of a steam carrying marine under the flag of the United
States.
Fourthly. The establishment of an uniform currency basis for the countries
of America, so that the coined products of our mines may circulate on equal
terms throughout the whole system of commonwealths. This would require a
monetary union of America, whereby the output of the bullion-producing
countries and the circulation of those which yield neither gold nor silver
could be adjusted in conformity with the population, wealth, and commercial
needs of each. As many of the countries furnish no bullion to the common
stock, the surplus production of our mines and mints might thus be utilized
and a step taken toward the general remonetization of silver.
To the accomplishment of these ends, so far as they can be attained by
separate treaties, the negotiations already concluded and now in progress
have been directed; and the favor which this enlarged policy has thus far
received warrants the belief that its operations will ere long embrace all,
or nearly all, the countries of this hemisphere.
It is by no means desirable, however, that the policy under consideration
should be applied to these countries alone. The healthful enlargement of
our trade with Europe, Asia, and Africa should be sought by reducing tariff
burdens on such of their wares as neither we nor the other American States
are fitted to produce, and thus enabling ourselves to obtain in return a
better market for our supplies of food, of raw materials, and of the
manufactures in which we excel.
It seems to me that many of the embarrassing elements in the great national
conflict between protection and free trade may thus be turned to good
account; that the revenue may be reduced so as no longer to overtax the
people; that protective duties may be retained without becoming burdensome;
that our shipping interests may be judiciously encouraged, the currency
fixed on firm bases, and, above all, such an unity of interests established
among the States of the American system as will be of great and
ever-increasing advantage to them all.
All treaties in the line of this policy which have been negotiated or are
in process of negotiation contain a provision deemed to be requisite under
the clause of the Constitution limiting to the House of Representatives the
authority to originate bills for raising revenue.
On the 29th of February last I transmitted to the Congress the first annual
report of the Civil Service Commission, together with communications from
the heads of the several Executive Departments of the Government respecting
the practical workings of the law under which the Commission had been
acting. The good results therein foreshadowed have been more than
realized.
The system has fully answered the expectations of its friends in securing
competent and faithful public servants and in protecting the appointing
officers of the Government from the pressure of personal importunity and
from the labor of examining the claims and pretensions of rival candidates
for public employment.
The law has had the unqualified support of the President and of the heads
of the several Departments, and the members of the Commission have
performed their duties with zeal and fidelity. Their report will shortly be
submitted, and will be accompanied by such recommendations for enlarging
the scope of the existing statute as shall commend themselves to the
Executive and the Commissioners charged with its administration.
In view of the general and persistent demand throughout the commercial
community for a national bankrupt law, I hope that the differences of
sentiment which have hitherto prevented its enactment may not outlast the
present session.