THE MESSAGE
lOfOESS
President Roosevelt's Annual
Communication to the
National Legislators
The Isthmian Canal and the Pan«
ama Revolution Are Given
Lengthy Consideration
Say» the Department of Commerce and
Labor Will Go Far Towards Solv
ing the Trust Problem.
Calif Attention to Undesirable Immigration—
Asks for More Stringent Naturaliza
tion Laws and Enforcement
Wnnta ('•mmUsloii to Investigate
.Needs »112 Merchant Marin*—l'ont
Office a>«l I'nbllc I. and I'ruuifa
—Our I<'oreit;u Helatioua.
To the Senate and House of Representa
tives:
The country is to be congratulated
on the amount of substantial achieve
ment which has marked the past year both
as regards our foreign anl as regards our
domestic policy.
With a nation as with a man the most
Important things are those of the house
hold. and therefore the country is espe
cially to be congratulated on what has
been accomplished in the direction of pro
viding tor the exercise of supervision over
the great corporations and combinations
of corporations engaged in interstate com
merce. The congress has created the de
partment of commerce and lnbor, includ
ing the bureau of corporations, with for the
first time authority to secure proper pub
licity of such proceedings of these great
corporations the public has the right
to know it has provided for the expedit
ing of suits for the enforcement of tlie fed
eral anti-trust law; and by another law-
It has si-cured equal treatment to all pro
ducers in the transportation of their goods,
thus taking a long stride forward in milk
ing effective the work of the interstate
commerce commission.
Iftircau of Corporation*.
The preliminary work of the bureau
of corporations in the department has
shown the wisdom of its creation. Pub
licity in corporate affairs will tend to do
away with ignorance, and will afford
tacts upon which intelligent action may
be taken. Systematic, intelligent inves
tigation is already developing fuels tho
knowledge of which is essential to a right
understanding of the needs and duties
ol the business world. The corporation
•which is honestly and fairly organized,
whose managers In the conduct of its
business recognize their obligation to
deal squarely with their stockholders,
their competitors, and the public, has
nothing to fear from such supervision.
The purpose of this bureau is not to em
barrass or assail legitimate business, but
to aid in bringing about a better indus
trial condition—a condition under which
there shall be obedience to law and rec
ognition of public obligation by ail cor
porations, great or small. The depart
ment of commerce ant! labor will be not
only the clearing house for information
regarding the business transactions of the
nation, but tiie executive arm of the
government to aid in strengthening our
domestic and foreign markets, in perfect
ing our transportation facilities, in build
ing up our merchant marine, In prevent
ing the entrance of undesirable immi
grants, in improving commercial and in
dustrial conditions, and in bringing together
on common ground those necessary part
ners in industrial progress—capital and
labor. Commerce between the nations
is steadily growing in volume, and the
tendency of tho times is toward closer
trade relations. Constant watchfulness
Ss needed to secure to Americans the
chance to participate to the best advan
tage in foreign trade: and we may confi
dently expect that the new department
•will justify the expectation of its cre
ators by the exercise of this watchful
ness. as well as by the businesslike ad
ministration of such laws relating to our
Internal affairs sis are intrusted to Its
care.
Capital and Labor.
The consistent policy of tlie national gov
ernment, so far as It has the power, is to
hold in check the unscrupulous man,
•whether employer or emp.oje; but to re
fuse to weaken individual initiative or to
hamper or cramp tho industrial develop
ment of tlie country. We recognize that
this is an era of federation and combina
tion. in which great capitalistic corpora
tions and labor unions have become lactors
of tremendous importance in ail industrial
Centers. Hearty recognition is given tlie
far-reaching, beneficent work which has
been accomplished through both corpora
tions and unions, and the line as between
different corporations, as between different
unions, is drawn a.sit is between different
individuals; that is, it is drawn on con
duct, the effort being to treat both organ
ized capital and organized labor alike; ask
ing nothing iave tl.at the interests of each
shall be brought into harmony with the
Interests of the general public, and that
the conduct of each S>".AII conform to the
fundamental rules of ibedience to law, of
individual freedom, and of justice and
fair dealing towards all. Whenever either
corporation, labor union or individual dis
regards the law or acts in a spirit of ar
bitrary and tyrannous Interference with
the rights of others, whether corporations
or individuals, then where the ftdetai gov
ernment has Jurisdiction, it will see to it
that the misconduct is stopped, paying not
the slightest heed to the position or power
of the corporation, the union or the indi
vidual, but only to oi>e vital fait—that is,
th* ejuestion whether or not the conduct
ol ».h«! individual or aggregate of individ
uals Is fn accordance with the law of the
land. Every man must be guaranteed
liis liberty and his right to do as he' likes
with his property or his labor, so long as
does not Infringe the rights of others.
Ko man is above the law and no man lis be
low- it; nor do we ask any man's permis
sion when we require him to obey it. obe
dience to the law Is demanded as a right;
not asked as a lavor.
tteeeipiN and I3xi»eiirilturei».
From all sources, exclusive of the post
al service, the receipts of the government
for the last fiscal year aggregated $56u,35ti,67i.
The expenditures for tlie sam.- period
were $5(>ii,099,0U7 1 the surplus for the fiscal
year being $51,297,667. The indications
are that the surplus for the present fiscal
year will be very small, if. Indeed, there
fee any surplus. From July to Novem
ber the receipts from customs were ap
proximately, $3,000,000 less than the re
ceipts from the same source for a corre
sponding portion of last year. Should
this decrease continue at the sam" ratio
throughout the fiscal year, the surplus
•would be reduced by, approximately
:$30,000,MX). Should the revenue fre>m cus
toms suffer much further decrease dur
ing the fiscal year, the surplus would
•vanish,
I'i it ane In 1 I. eg I win 11 <• a Not Needed.
The integrity of our currency is be
yond question, and under present condi
tions it would be unwise and unnecessary
to attempt a reconstruction of our en
tire monetary system. The same lib
erty should be granteil the secretary of
the treasury to deposit euctoms re
ceipts as is granted him in the deposit of
receipts from other sources. In my mes-
sage of December 2. 1902, I called atten
tion to certain needs of the financial .sit
uation, and I again ask the considera
tion of the congress for these questions.
The Merchant Murine.
A majority of our people desire that
steps be taken in the Interests of Amer
! lean shipping, so that we may once more
| resume our former position in the ocean
I carrying trade. Hut hitherto the differ
! ences of opinion as to the proper method
j of reaching this end have been so wide
that it has proved Impossible to secure the
adoption of any particular scheme. Hav
ing in view these tacts, 1 recommend that
the congress direct the secretary of the
navy, the postmaster general and the sec
retary of commerce and labor, associated
with such a representation from the sen
ate and house of representatives as the
congress in its wisdom may designate, to
serve as a commission for the purpose of
investigating and reporting to the congress
at its next session what legislation Is de
sirable or necessary for the development
of the American merchant marine and
American commerce, and Incidentally of a
national ocean mail service of adequate
auxiliary naval cruisers and naval reserves.
While such a measure is desirable in any
| event, it Is especially desirable at this time,
in view of the fact that our present gov
ernmental contract for ocean mail with the
American line will expire in ISOS. Ourocoan
mull act was passed In lh'.tl. In 1595 our
2u-knot transatlantic mail line was equal
to any foreign line. Since then the Ger
mans have put on 23-knot steamers, and
the British have contracted for 24-knot
steamers. Our service should equal the
I best. If it doos not. the commercial pub
-1 lie w ill abandon It. If we are to stay in the
business it ought to be with a full under
standing of the advantages to the country
on one hand, and on the other with exact
knowledge of the cost and proper methods
of carrying it on. Moreover, lines of cargo
ships are of even more importance than
fast mail lines; save so far us the latter
can be depended upon to furnish swift
auxiliary cruisers in time of war. The es
tablishment of new lines of cargo ships to
South America, to Asia, and elsewhere
j would be much in the interest of our com-
I cierc'.al expansion,
I winlKratloß.
I We cannot have too much immigration
' of the right kind, and we should have
1 none at all of the wrong kind. The need
Is to devise some system by which unde
sirable immigrants shall be kept out en
i tirely. while desirable Immigrants are
| properly distributed throughout the coun
try. At present some districts which
i need immigrants have none; and In oth
! ers, where the population is already eon
j (jested, immigrants come in such numbers
| as to depress the conditions of life for
those already there. During the last
two years the immigration service at New
York has been greatly improved, and the
] corruption and inefficiency which former
ly obtained there have been eradicated,
j This service has just been investigated
| by a committee of New York citizens of
nigh standing, Messrs. Arthur V. Hrlesen,
Lee K Prankel, Eugene A. Philbin,
Thomas W. Hynos and Kalph Trautman.
Their report deals with the whole situ
ation at length, and concludes with cer
, tain recommendations for administrative
and legislative action. It is now recelv
j ing the attention of the secretary of
j commerce and labor.
Naturalization Fraud*,
j The special Investigation of the subject
! of naturalization under the direction of
i the attorney general, and the consequent
■ prosecutions, reveal a condition of af
| fairs calling for the immediate attention
of congress. Forgeries and perjuries ot
shameless and flagrant character have
I perpetrated, not only in the dense
centers of population, but ihroughout the
| country; and it is established beyond
doubt that very many so-called citizens
I of the L'nlted States have tio title what
i ever to that right, and are asserting and
I enjoying the benefits of the same through
the grossest frauds. It is never to be
forgotten that citizenship is. to quote the
words recently used by the supreme
court ot tlie United States, an "ines
timable heritage," whether it proceeds
! from birth within the country, or is ob
tained by naturalization; and we poison
tlie sources of our national character and
i strength at tlie fountain, if tlie privilege
is claimed and exercised without right,
j and by means of fraud and corruption.
The body politic cannot be sound and
healthy if many ot its constituent mem
i bers claim thoir standing through the
; prostitution of the high right and calling
of citizenship. It should mean something
! to become a citizen of the United States;
i and in the process no loophole whatever
I should be left open to fraud.
The federal grand Jury lately in session
in New York city dealt with this subject
i and made a presentment which states the
j situation briefly and forcibly and contains
; important suggestions for the considera
! tlon of* the congress. This presentment is
j included as an appendix to the report of the
attorney general.
Uovernmeut Department Fraud*.
I In my last annual message, in connection
! with the subject of the due regulation of
I combinations of capital which are or may
become injurious to the public. I recom
mended a special appropriation for tie
I better entorcement of the anti-trust law
j as it now stands, to be expended under
' the direction of the- attorney general. Ac
j cordingly (by the legislative, executive and
judicial appropriation act of Feb rum y 25.
| 1 '..Ho, H2 Stat., &54, IW4), tho congress appro
i priated, lor the purpose of enforcing the
I various federal trust and interstate com
! fntrce laws, the sum of sjoo.oou, to be ex
pefiued under the direction ot the attorney
| general in the employment of special coun
sel and agents in the department of Justice
to conduct proceedings and prosecutions
under said laws In the courts of the L'nlted
'States, 1 now recommend, as a matter of
I the utmost importance and urgency, the
extension of the purposes of this appro
| priation. so that it may be available, under
the direction of the attorney general, and
! until used, for tho due enforcement of the
; laws or the United States in general and
especially of the civil and criminal laws
I relating to public lands and the law.- relat
: lng to postal crimes and offens.s and the
; subject of naturalization. Hecent investi
-1 gations have shown a deplorable state of
I affairs iti these three matters of vital con
i cern. By various frauds and bv forgeries
.and perjuries, thousands of acres of the
public domain, embracing lands of differ
ent character amf extending through vari
( ous sections of tlie country, have been dis
honestly acquired. It Is hardly necessary
I to urge the importance of recovering these
dishonest acquisitions, stolen from the peo
i pie, and of promptly and duly punishing
i the offenders. 1 speak in another part of
this message of the widespread crim> s by
which the sacred right of citizenship is
falsely asserted and that "Inestimable
heritage" perverted to base ends. By sim
ilar means—that Is. through frauds, forger
ies and perjuries, and by shameless briber
ies—the laws relating to the proper con
duct of the pubitc service in general and
: to the due administration of the post office
department have been notoriously violated
and many Indictments have been found!
and tho consequent prosecutions are iri
' course of hearing or on the eve thereof.
For the reasons thus Indicated, and so that
j the government may be prepared to en
> force promptly and with the greatest effect
i the due penalties for such violations of law,
and to this end may be furnished with
| sufficient instrumentalities and competent
> legal assistance for the investigations and
trials which will bo necessary at many
; different points of the country, I urge upon
j the congress the necesiflty o'f making the
i said appropriation available for immediate
use for all such purposes, to be expended
I under the direction of the attorney general.
New Kitraelltion TrentieN Needed.
I Steps have been taken by the state de
] partment looking to the making of
| bribery an extraditable offense with for
eign powers. The need of more effective
| treaties covering this crime Is manifest.
| The exposures and prosecutions of offi
cial corruption in St. Louis, Mo., and
uther cities and states have resulted in
a number of givers and takers of brlbts
becoming fugitives in foreign lands.
Bribery has not been Included In e xtra
dltion treaties heretofore, as the neces
sity for it has not arisen. While there
may have been as much official corrup
tion In former years, there has b'-en more
developed and brought to light in tha
Immediate p.-.it than in the preceding
c«ntury of our country's history. it
jfw-jld be the policy of the L'nlted States
to have nei place on earth where a cor
rupt man fleeing from this country can
rest in peace. There is no reason why
bribery ahould not be Included in all
treaties as extraditable. The- recent
amended treaty with Mexico, whereby
this crime was putin the list of extra
ditable offenses, has established a salu
tary precedent in this regard. Under tills
treaty the state department has asked,
and Mexico has granted, the extradition
of one of the St. Louis bribe givers.
The Alaskan Ronndary.
For several years past the rapid fleveiop
ment of Alaska and the establishment of
CAMERON COUNTY PRESS. THURSDAY, DECEMBER 17, 1903.
growing American interests In regions
theretofore unsurveyed and Imperfectly
known brought Into prominence tiie urgent
necessity of a practical demarcation of the
boundaries between the jurisdictions of
the United! States and Great Britain. Al
though the treaty of 1825 between Great
Britain and Russia, the provisions of w hich
were copied In the treaty of I.SC7, whereby
Russia conveyed Alaska to the United
States, was positive as to tho control, lirst
by Russia and later by the United States,
of a strip of territory along the continental
mainland from the western shore of Port
land canal to Mount St. Klias, following
and surrounding the indentations of the
coast and including the islands to t!T* west
ward. its description of the landward mar
gin of the strip was indefinite, resting on
tho supposed existence of a continuous
ridge or range of mountains skirting the
coast, as figured In the charts of the early
navigators. It had at no time been possible
for either party In Interest to lay down,
under the authority of the treaty, a line
so obvlot sly exact "according to its provi
sions as to command the assent of the
other.
After unavailing attempts to reach an
understanding through a Joint high com
mission, followed by prolonged negotia
tions, conducted in an amicable spirit, a
convention between the United Stati sand
Great Britain was signed. January 24. 1903,
providing for an examination of the sub
ject by a mixed tribunal of six members,
three on a side with a vleW to its final dis
position. Ratifications were exchanged on
March 3 last, whereupon the two govern
ments appointed tlielr respective members.
Those on behalf of the United States were
Klihu Root, secretary of War; Henry
Cabot Lodge, a senator of the United
States, and George Turner, an ex-Senator
of the United States, while Or at Britain
named the Right Honorable Lord Aiver
stone, lord chief justice of England; Sir
Louis Amable Jette, K. C. M G . retired
judge of the supreme court of Quebec, and
A. 11. Aylesworth, K. C., of Toronto. This
tribunal met in London on September 3.
under the presidency of Lord Aiverslone.
Tho proceedings were expeditious, and
marked by a friendly and conscientious
spirit. The respective case*, counter cues
and arguments presented the Issues clear
ly and fully. On the 20th of October a ma
jority of the tribunal reachtd and signed
an agreement 011 ail the questions submit
ted by the terms of the convention. By
this award the right of the United States
to the control of a continuous strip or bor
der of the mainland shore, skirting all the
tide-water inlets and sinuosities of the
coast, Is confirmed; the entrance to Port
land canal (concerning which legitimate
doubt appeared) is defined as passing by
Tongass inlet and to the northwestward of
Wales and Pearse Islands; a line is drawn
from the head of Portland canal to the
fifty-sixth degree of north latitude; and
the Interior borderline of the strip is fixed
by lines connecting certain mountain sum
mits lying between Portland canal and
Mount St Ellas, and running along the
crest of the divide separating the coast
slope from the inland watershed at the
only part of the frontier where the drain
age ridge approaches the coast within the
distance of ten marine leagues stipulated
by the treaty as the extreme width of the
strip around tht heads of Lynn canal and
its branches.
The award is self-executing 011 the vital
points. To make it effective as regards
the others it only remains for the two
governments to appoint, each on its own
behalf, one- or more scientific experts,
who shall, with all convenient speed, pro
ceed together to lay down the boundary
line in accordance with the decision of
the majority of the tribunal. I recom
mend that the congress make adequate
provision for the appointment, compen
sation and expenses of the members to
serve on this joint boundary commis
sion on the part of the I'nited States.
Claims Again*! Venezuela.
It will be remembered that during the
second session of the last congress Great
Britain, Germany and Italy form'd tin
alliance for the purpose of blockading
the ports of Venezuela and using such
other means of pressure as would secure
a settlement of claims due, as they al
leged. to certain of their subjects. Their
employment of force for the collection of
these claims was terminated by an agree
ment brought about through the offices
of the diplomatic representatives of the
United States at Caracas and the gov
ernment at Washington, thereby ending
a situation which was bound to cause
increasing friction, arid which jeoparded
the peace of the continent. tender tills
agreement Venezuela agreed to set apart
a certain percentage of the customs re
ceipts of two of her ports to be applied
to the payment of whatever obligations
might bo ascertained by mixed commis
sions appointed for that purpose to be
due from her, not only to the three pow
ers already mentioned, whose proceed
ings against l.er had resulted in a'state of
war but also to the United States, France,
Spain. Belgium, tin- Netherlands. Sweden
and Norway, and Mexico, wh . had not
employed force for the collection of the
claims allegeei to be due to certain of
their citizens.
A demand was then made by the so
called blockading powers that the sums
ascertained to be due to their citizens by
such mixed commission should be record
ed payment in full before anything: was
paid up in the claims of any of the so
called pe-tu'e powers. Venezuela, on the
other htm l, insisted that all her creditors
should be paid upon a basis of exact
equality. During the efforts to adjust
this dispute it was suggested by the pow
ers in Interest that it should be referred
to me for decision, but I was clearly
of the opinion that a far wb-er course
would be to submit the question to the
permanent court of arbitration at The
Hague. It seemed to me to offer an ad
mirable opportunity to advance the prac
tice of the peaceful settlement of dis
putes between nations and to secure for
The Hague tribunal a memorable in
crease of its practical importance. The
nations interested in the controversy
were so numerous, and in many Instances
so powerful as to make it evident thiit
beneficent result;; would follow from
their appearance at the same time before
the bar of that aug-ast tribunal of peace.
Our hopes In that regard have been real
ized. Russia and Austria are represented
in the persons of tho learned and distin
guished jurists who compose tie tr bunal,
while Great Britain, Germany. France,
Spain, Italy. Belgium, the Netherlands.
Sweden and Norway, Mexico, the United
States and Venezuela are represented by
their respective agents and counsel. Such
an Imposing concourse of nations present
ing their arguments to and Invoking the
decision of that high court 01' international
justice and International peace can hardly
fall to secure a like submission of many
future controversies. The tuitions now ap
pearing there will find It far easier to ap
pear there a second time, while no nation
can imagine its just pride will be lessened
by following the example now presented.
This triumph of the principle of interna
tional arbitration Is a subject of warm con
gratulation and offers u happy augury for
the peace of the world.
Relations nltli Turkey.
Early in July, having received intelli
gence, which happily turned out to be
erroneous, of the assassination of our vice
consul at Beirut, 1 dispatched a small
seiuadixm to that port for such service as
might be found necessary on arrival. Al
though the attempt on the life of our vice
consul had not been successful, yet the
outrage was symptomatic of a' state of
excitement and disorder which demanded
immediate attention. The arrival of the
vessels had the happiest result. A feeling
of security at once took the place of the
former alarm and disquiet; our officers
were cordially welcomed by the consular
body and the leading merchants, and or
dinary business resumed its activity. Tlie
government of the sultan gave-a consider
ate hearing to the representations of our
minister; the official w ho was regarded as
responsible for the disturbed condition of
affairs was removed. Our relations with
the Turkish government remain friendly;
our claims fonjsd(td on inequitable treat
ment of some of our schools and missions
appear to be in process of amicable adjust
ment.
Relations with China.
The signing of a new commercial treaty
with China, which took place at Shanghai
011 'he Bth o) October is a cause for sat
isfaction. This act, the result of long dis
cussion nnd negotiation, places our com
mercial relation* with the great oriental
empire on a mere satisfactory footing than
tl.ey have 1 ver heretofore enjoyed, it pro
vieles not only for the ordinaty rights and
privileges oi diplomatic and consular
officers, but also for an important exten
sion of our commerce by Increased facility
of access to Chinese ports, and for the
relief of trade by the removal of some 01
the obstacles which have embarrassed it
In the past The Chinese government en
gages. on fair and equitable conditions,
Wllich will probably be accepted by the
principal commercial nations, to abandon
the levy of "liken" and other transit dues
throughout the empire, and to introduce
other desirable administrative reforms.
Rural Fret* Delivery.
The rural free-delivery service haa been
steadily extended. The attention of the
congress is asked to the (question of the
compensation of the letter carriers and
clerks engaged in the postal service, es
pecially on the new rural free-delivery
route.-). Mete routes have been installed
since the lirst of July last than in any
'j*e period in the department's history.
While a due regard to economy must "be
kept in mind in the establishment of new
S routes, yet the extension .>f the jural
| free-delivery system must be continued,
j for reasons of sound public policy. No
! governmental movement of recent years
! has resulted in greater immediate benefit
Ito the people of the country districts.
Rural free delivery, taken in connection
with the telephone, the bicycle, and the
trolley, accomplishes much toward les
sening the isolation of farm life and
making it brighter and more attractive.
Inter 11 alio 11111 Expositions.
I trust that the congress will continue
to favor In all proper ways the Louisiana
I I urchaso exposition. This exposition com
memorates the Louisiana purchase, which
. the "„ rst great step in the expansion
wnlch mad» us a continental nation The
expedition of Lewis and Clark across the
I c P ll Unent follow**! thereon, and marked
the beginning of the process of exploration
and colonization which thrust our national
boundaries to the Pacific. The acquisition
of the Oregon country. Including the pres
ent states of Oregon and Washington, was
a fact of immense importance in our his
l tory; first giving us our place on the Pa
j cilic s -aboard. and making ready the way
for our ascendency in the com merer of the
| greatest of the oceans. The centennial of
our establishment upon the western coast
by the expedition of Lewis and Clark Is
to be celebrated at Portland, Ore., by an
exposition In the summer of 1905, and this
I event should receive recognition and sup
i port from the national government.
Onr luaiiiur Possessions,
i T recommend that an appropriation be
made for building lighthouses in Hawaii,
t and taking possession of those already
built. The territory should be reim
bursed for whatever amounts it has al
ready expended for lighthouses. The
governor should be empowered to sus
pend or remove any official appointed by
him, without submitting the matter to
| the legislature.
j Of our insular possessions the Philip
l pines and Porto Hico It is gratifying to
, say that their steady progress has been
such as to make it unnecessary to spend
much time In discussing them. Yet the
congress should ever keep in mind that
a peculiar obligation rests upon us to
further in every way tha welfare of
these communities. Tho Philippines
should be knit closer to us by tariff ar
rangements. It would, of course, be im
possible suddenly to raise the people of
the islands to the high pitch of industrial
prosperity and of governmental efficiency
to which they will in the end by degrees
attain; and the caution and moderation
shown in developing them have been
among the main reasons why this devel
opment has hitherto gone on so smooth
ly. Scrupulous care has l>e%n taken In
the choice of governmental agents, and
the entire elimination of partisan politics
from the public service. The condition
of the islanders is in material things far
better than ever before, while their gov
ernmental, intellectual and mora! ad
vance has kept pace with their material
advance. No one people ever benefited
another people more than we have bene
fited the Filipinos by taking possession
of the islands.
The Public Lands.
A gratifying disposition ha-s been
evinced by those having unlawful in
clo.sures of public land to remove their
fences. Nearly 2,ooo,erfX) acres so In
closed have been thrown open on demand.
In but comparatively few cases has It
been necessary togo into court to ac
complish this purpose. This work will be
vigorously prosecuted until all unlawful
inclosures have been removed.
Experience has shown that in the west
ern states themselves, as well as in the
rest of the country, there is widespread
conviction that certain of the public land
laws and the resulting administrative
practice 110 longer meet the present needs.
The character and uses of the remaining
public lands differ widely from those of
the public lands which congress had es
pecially in view when these laws were
passed. The rapidly increasing rate of
disposal of the public lands Is not fol
lowed by a corresponding increase in
home building. There is a tendency to
mass in large holdings public lands, es
pecially timber and grazing lands, and
thereby to retard settlement. 1 renew
and emphasize iny recommendation of
last year that so far as they are available
for agriculture in its broadest sense, and
to whatever extent they may be re
claimed under the national irrigation law,
tho remaining public lands should be held
rigidly for the home builder. Tho atten
tion of the congress is especially direct
ed to the timber and stone law, the
desert-land law, and the commutation
clause of the homestead law. which in
their operation have in many respects
conflicted with wise public-land policy.
The discussions in the congress and else
where have made It evident that there Is
a wide divergence of opinions between
those holding opposite views on these
subjects; and that the opposing sides
have strong and convinced representa
tives of weight both within and without
the congress; the differences being hot
only as to matters of opinion but as to
matters of fact Tn order that definite
inlormation may be available for the use
of the congress, I have appointed a com
mission composed of W. A. Kichards,
commissioner of the general land office;
Glfford Plnchot, chief of the bureau of
forestry of the department of agricul
ture. and F. 11. Newell, chief hydrogra
pher of the geological survey, to report
at the earliest practicable moment upon
the condition, operation and effect of the
present land laws and on the use, con
dition, disposal and settlement of the
public lands. The commission will report
especially what changes in organization,
laws, regulations and practice affecting
the public lands are needed to effect the
largest practicable disposition of the pub
lic lands to actual settlers who will build
permanent homes upon them, and to se
cure in permanence the fullest and most
effective use of the resources of tho pub
lic lands; and it will make such other
reports and recommendations as Its
study of these Questions may suggest.
The commission Is to report immediate
ly upon those points concerning which
Its Judgment Is clear; on any point upon
which it has doubt It will take the time
necessary to make investigation and
reach a final judgment.
Tlie Army nud Xavy,
The effect of the laws providing a gen
eral staff for tho army and for the more
effective use of the national guard has
been excellent. Great improvement has
been made in the efficiency of our army
In recent years. Such schools as those
erected at Port Leavenworth and Port
Riley and the institution of fall maneuver
work accomplish satisfactory re-sults.
The good effect of these maneuvers upon
the national guard is marked, and ample
appropriation should be made to enable
the guardsmen of the several states to
share In the benefit. The government
should as soon as possible secure suitable
permanent camp sites for military man
euvers in the various sections of the
country. Tho service thereby rendered
not only to the regular army, but to the
national guard of the several states, will
be so great as to repay many times over
the relatively small expense. We should
not rest satisfied with what has been
done, however. The only people who are
contented with a system of promotion
by mere seniority are those who are con
tented with tho triumph of mediocrity
over excellence. On the other hand a
system which encouraged the exercise of
social or political favoritism In promo
tions would be even worse. But It would
surely be easy to devise a method of
promotion from grade to grade In which
the opinion of the higher officer* of the
service upon the candidates should be
decisive upon the standing and promotion
->f the latter.
Tiie Xnvr.
I heartily congra'u'.ate the congress upon
the steady progress in building up the
American navy. We cannot afford a let-up
In this great work. To stand still means
togo back. There should be 110 cessation
in adding to the effective units cf the light
ing strength ef the licet. Meanwhile the
navy department and the officers of the
navy are doing well their part by provid
ing constant service at sea under conditions
akin to those of actual warfare. Our offi
cers and enlisted men are learning to han
dle the battleships, cruisers and torp. do
boats with high efficiency in fleet and
squadron formations, and the standard of
marksmanship Is being steadily raised.
The best work ashore is indispensable,
but the highest duty of a naval officer is
to exercise command at sea.
It is eminently desirable, however, that
there should be provided a naval general
staff on lines similar to those of the general
staff lately created for the army. Within
the navy department itself the needs of
the service have brought about a system
under which the duties of a general staff
are partially performed; for the bureau of
navigation has under its direction the war
college, the office of naval intelligence and
the board of inspection, and has been In
close touch with the general board of the
navy. But though under the excellent offi
cers at their head, these boards and bureaus
do geiod work, they have not the authority
j of a general staff, and have not sufficient
scope to Insure a proper readiness for
emergencies. We need the establishment
by law of a body of trained officers, who
shall ex* rclse a systematic control of the
military affairs of the navy, and beauthor
ized advisers of the secretary concerning it.
Tlie Isthmian Canal.
By the act of June 28. 1902, the congress
authorized the president to enter into
treaty with Colombia for the bulld'ng of
the canal across the Isthmus of Panama;
It being provided that in the event of
failure to secure such treaty after the
lapse of a reasonable time, recourse
should be had to building a canal through
J Nicaragua. It hits not been necessary to
1 consider this alternative, as I am enabled
! to lay before the senate a treaty provid-
I ing for the building of the canal across
the Isthmus of Panama. This was the
[ route which commended Itself to the de
| liberate Judgment of the congress, and
| we can now aceiuire by treaty the right
to construct the canal over this route.
The question now, therefore, is not by
which route the isthmian etanal shall be
built, for that question has been definite-
I ly and Irrevocably decided. The question
is simply whether or not we shall have
an Isthmian canal.
When the congress directed that we
should take the Panama route under
treaty with Colombia, the essence of the
condition, of course, referred not to the
government which controlled that route
but to the route Itself; to the territory
I across which the route lay. not to the
name which for the moment the territory
i bore on the map. The purpose of the law
was to authorize the president to make
a treaty with tho power in actual con
trol of the isthmus of Panama. This
: purpose has been fulfilled.
iMtliiuiaa Treaty Obligations.
In the year IMS this government en
tered into a treaty with New Granada,
: the predecessor upon the Isthmus of the
Republic of Colombia and of the present
Republic of Panama, by which treaty it
was provided that the government and
i citizens of the United States should al
ways have free and open right of way
or transit across the Isthmus of Panama
by any modes of communication that
might be constructed, while in return our
government guaranteed tho perfect neu
trality of the above-named isthmus with
the view that the free transit from the
I one to the other sea might not be inter
rupted or embarrassed. The treaty vest
ed in the United States a substantial
property right carved out of the rights of
sovereignty and property which New
' Granada then had and possessed over the
■•aid territory. The name of New Gran
ada has passed away and its territory
has been divided. Its successor, the gov
-1 ernment of Colombia, has ceased to own
j any property in the isthmus. A new
republic, that of Panama, which was at
1 one time a sovereign state, and at an
; other time a mere department of the suc
i cessive confederations known as New
i Granada and Colombia, has now succeed
ed to the rights which first one and then
the other formerly exercised over the
isthmus. But as long as the isthmus en
-1 dures, the mere geographical fact of Its
I existence, and the peculiar Interest there
j in which is reeiuired by our position,
perpetuate the solemn contract which
binds the holders of the territory to re
j spect our right to freedom of transit
across it, and binds us in return to safe
guard for the isthmus and tho world the
exercise of that inestimable privilege.
The true interpretation of the obligations
upon which the United States entered in
this treaty of 1X46 has been given repeat
edly in the utterances of presidents and
1 secretaries of state.
For 400 years, ever since shortly nfterthe
discovery of this hemisphere, the canal
across the isthmus has been planned. For
twoscore years it has been worked at.
When made it is to hist for the ages. It Is
to alter the geography of a continent and
the trade routes of the world We have
shown by every treaty we have negotiated
or attempted to negotiate with the peoples
in control of the isthmus and with foreign
nations in referi nee thereto our consistent
good faith in observing our obligations; on
the one hand to the peoples of the isthmus,
and on the other hand to the civilized world
whose commercial rights we are safe
guarding and guaranteeing by our action.
We have done our duty to others In letter
and spirit, and we have shown the utmost
forbearance in exacting our own rights.
Colouillia's Repudiation of Treaty.
Last spring, under the act above re
ferred to, a treaty concluded between the
representatives of the Republic of Colom
bia and of our government was ratified
by the senate. This treaty was entered
Into at the urgent solicitation of the peo
ple of Colombia and after a body of ex
perts appointed by our government es
pecially togo Into the matter of the
routes across the isthmus had pro
nounced unanimously in favor of
Panama route. In drawing up this treaty
every concession was made to the people
and to the government of Colombia. We
were more than just in dealing with
them. Our generosity was such as to
make it a serious question whether we
had not gone too far In their in
terest at the expense of our own: for in
our scrupulous desire to pay all possible
heed, not merely to the real but even to
the fancied rights of our weaker neigh
bor. who already owed so much to our
protection and forbearance, we yielded
In all possible ways to her desires in
drawing up the treaty. Nevertheless the
government of Colombia not merelv
repudiated tho treaty, but repudiated it
In such manner as to make it evident by
the time the Colombian congress a( *-
journed that not the scantiest hope re
mained of ever getting a satisfactory
treaty from them. The government of
Colombia made the treaty, and yet when
the Colombian congress was called to
ratify it the vote against ratification was
unanimous. It does not appear that the
government made any real effort to se
cure ratification.
Ite'volntlon In Pannma.
Immediately afte.r the adjournment of
the congress a revolution broke out in
Panama. The people of Panama had
long been discontented with the Republic
of Colombia, and they had been kept
quiet only by the prospect of the con
clusion of the treaty, which was to them
a matter of vital concern. When it be
came evident that the treaty was hope
lessly lost, the people of Panama rose
literally as one man. Not a shot was
fired by a single man 011 the Isthmus in
the interest of the Colombian govern
ment. Not a life was lost in the accom
plishment of the revolution. The Colom- 1
blan troops stationed 011 the isthmus,
who had long been unpaid, made com
mon cause with the people of Panama,
and with astonishing unanimity the new
republic was starte-d. The duty of the
I'nited States In the premises was clear.
In strict accordance with the principles
laid down by Secretaries Cass and Seward
In the official documents above quoted,
the United States gave notice that it
would permit the landing of no expedi
tionary force, the arrival of which would
mean chaos nnd destruction along the
line of the railroad and of the proposeel
canal, and an interruption of transit as
an Inevitable consequence.
Previous isthmian Dint n r lin neen.
When these events happened. 57 years
had elapsed since the United States had
entered into its treaty with New Granada.
During that time the governments of New-
Granada and of its successor, Colombia,
have been in a turmoil. The experience of
over half a century has shown Colombia
to be utterly incapable of keeping order
011 the Isthmus. Only the active inter- ,
ference of the United States has enableel
her to preserve so much as a semblance of
sovereignty. Hnd it not been for the. ex
ercise by the United States of the police
power In her Interest, her connection with
the isthmus would have been sun
dered long ago. Tn ISO 6, in ISGO, In 1£73, in
18}.f>, In 1801, and again in 1902. sailors and
marines from United States warships wire
forced to land in order to patrol the Isth
mus. to protect life and property and to
see that the transit across the Isthmus was
kept open. In 1861, in 1562, in ISSS, and In I'JtiO
the Colombian government asked that the
United States government would land
troops to protect Its interests and maintain
order 011 the isthmus. Perhaps the most
extraordinary request !s that which ha#
just betn received and which runs as ft>l
lows:
Colombia's l.atext Proposition.
"Knowing that revolution has already
commenced in Panar:.i |an eminent Co
lombian| says that it the government of
the United States will 'and troops to pre
serve Colombian sov' relgnty. and the
transit, if requested by Colombian charge
d'affaires, this government will declare
martial law; and, by virtue of vested con
| stltutional authority, when public order
is disturbed, will approve by decree the
j ratification of the canal treaty as signed;
or, if the government of the United States
! prefers, will call extra session of the con
gress—with new and friendly members—
; next May to approve the treaty. fAn emi
nent Colombian) has the perfect confidence
i of vice president, he says, arid II It became
necessary will goto the isthmus or send
representative there to adjust matters
along above lines to the satisfaction of
the people there."
This dispatch is noteworthy from two
standpoints. Its offer of Immediately
guaranteeing the treaty to us Is in sharp
| contrast with the positive and contempt
uous refusal of the congress which has just
closed its sessions to consider favorably
i such a treaty; it shows that the govern
! m'-nt which made the treaty really had ab
solute control over the situation, but did
| not choose to exercise this control. The
; dispatch further calls on us to restore or
j der and secure Colombian supremacy in
j the isthmus from which the Colombian gov
ornment has just by Its action decided to
bar us by preventing tho construction of
the canal.
Importnnt to Us,
The control. In the interest of the com
merce and traffic of the whole civilized
world, of the means of undisturbed
transit across the isthmus of Panama
has become of transcendent importance
to toe; United States. We have repeated
ly exercised this control by intervening
in the course of dor/ stic dissension, and
by protecting the territory from foreign
invasion. In 1853 Mr. Everett assured the
Peruvian minister that we should not
hesitate to maintain the neutrality of tho
isthmus in the case of war between Peru
and Colombia. In 1X64 Colombia, whicn
has always been vigilant to avail Itself
of its privileges conferred by the treaty,
expressed Its expectation that in the
event of war between Peru and Spain
the United States would carry into ef
fect the guaranty of neutrality. There
have been few administrations of the
state department in which this treaty
has not, either by the one side or the
other, been used as a basis of more or
less important demands. It was said by
Mr. Pish in IX7I that the department of
state had reason to believe that an at
tack upon Colombian sovereignty on the
isthmus had, on several occasions, been
averted by warning from this govern
! ment. In IXSO, when Colombia was under
t the menace of hostilities from Italy in
the Cerruti case, Mr. Bayard expressed
I the serious concern that the United
] States could not but feel, that a Euro
: pean power should resort to force against
a sister republic of this hemisphere, as
j to the sovereign and uninterrupted use of
i a part of whose territory we are guar
! antors under the .solemn faith of a treaty,
i Tho above recital of facts establishes
I beyond question: First, that the United
j States has for. over half a century pa-
I tiently and in good faith carried out its
i obligations under the treaty-of IM6; sec
l ond. that when for the first time it be
came possible for Colombia to do any**
thing in requital of the services thus re
peatedly rendered to it for 57 years by
the United States, the Colombian gov
ernment peremptorily and offensively re
fused thus to do its paxt, even though
to do so would have been to its advan
tage and immeasurably to tho advantage
ot the state oi Panama, at that time un
der its Jurisdiction; third, that through
out this period revolutions, riots, and
factional disturbances of every kind hav»
occurred one after the other in almost
uninterrupted succession, some of there
lasting for months and even for years,
while the central government was unable
to put them down or to make peace wltl»
the rebels; fourth, that these disturb
ances instead of showing any sign of
abating have tended to grow mor*
numerous and more serious in the imme
diate past; fifth, that the control of
Colombia over the Isthmus of Panama,
| could not be maintained without tha
armed intervention and assistance of the
I United States. In other words, the gov
ernment of Colombia, though wholly un
able to maintain order on the isthmus,
has nevertheless declined to ratity .i
treaty the conclusion of which opened
tho only chance to secure its own stabil
ity and to guarantee permanent peace
on, and the construction of a can.it
across, the isthmus.
Under such circumstances the govern
ment of the I'nited States would have been
guilty of folly and weakness, amounting
in their sum to a crime against the nation,
had it acted otherwise than it did when
the revolution of November i last took
place in Panama. This great enterprise of
building the in teroceanic canal cannot b<s
he-Id up to gratify the whims, or out of
respect to the governmental impotence,
or to the even more Minister ami evil polit
ical peculiarities, of peopie who, though
thtn- dwell afar off, yet, against the wish
of the actual dwellers on the istlTmus, as
sert an unreal supremacy over the terri
tory. The possession of a territory fraught
with such peculiar capacities as the isth
mus in question carrier with it obligations
to mankind. The course of events has
shown that this canal cannot be built by
private enterprise, or by any other nation
than our own; therefore it muat be built
by the United States.
Provision* of PnnHuin Treaty.
Every effort has been made by the gov
ernment of the United States to persuade
Colombia to follow a course which was
essentially not only to our interests and
to the interests of the world, but to the in
terests of Colombia itself. These efforts
have failed; and Colombia, by her persist
ence in repulsing the advances that have
been made, has torced us, for the sake of
our own honor, and of the interest mid
well being, not merely of our own peopie.
but of the people of the Isthmus of Pan
ama and the people of the civilized coun
tries of the world, to take decisive steps
to bring to an end a condition of affairs
which had become intoleratile. The new
republic of Panama immediately offered to
negotiate a treaty with us. This treaty X
herewith submit. By it our interests are
better safeguarded than In the treaty with
Colombia which was ratified by the sen
ate at its last session. It is better in its
terms than the treaties offered to us by the
republics of Nicaragua and Costa Kica.
At last the right to begin this great under
taking is made available, i'anama has
done her part. Ail that remains is for the
American congress to do Its part and forth
with this republic w ill enter upon the exe
cution of a project colossal in its size and
of well-nigh incalculable possibilities for
the good of this country and the nations
of mankind.
By the provisions of the treaty the United
States guarantees and will maintain tha
independence of the republic of Panama.
There is granted to the United States in
perpetuity the use occupation and control
of a strip ten miles wide and extending
three nautical miles into the sea at cither
terminal, with all lands lying outside of
the zone necessary for the construction of
the canal or for Its auxiliary works, and
with the islands in the bay of Panama.
Tho cities of I'anama and Colon are not
embraced in the canal zone, but the United
States assumes their sanitation ar.d. In
case of need, the maintenance of order
therein; the United States enjoys within
the granted limits all the rights, power and
authority which it would possess were it
the sovereign of the territory to the ex
clusion of the exercise of sovereign rights
by the reptib'.ic. All railway and canal
property rights belonging to Panama and
needed for the canal pass to the United
States, including any property of the re
spective companies in the cities of Pan
ama and Colon; the works, property and
personnel of the canal and railways art
exempted from taxation as well in the cit
ies of Panama and Colon as in the canal
zone and its dependencies. Free immigra
tion of the personnel and Importation of
supplies for the construction and operation
of the canal are granted. Provision is made
for the us" of military force and the build
ing of fortifications by the United States
for the protection of the transit. In other
details, particularly ns to the acquisition
of the interests of the New- Panama Canal
company and the Panama railway hv th«
United States and the condemnation of pri
vate property for the uses of the canal,
the stipulations of the Tlay-Herran treaty
are closely followed, while the compensa
tion to be given tor these enlarged grants
remains the same, being $10,000,000 payablo
on exchange of ratifications; and, begin
ning nine years from that date, an ar.nral
payment of $250,000 during the life of (h#
convention.
THEODORE UOOSEA r EIiX.
■VVhtu House, December. T, 1201, '
3