i 1 1 f f 1 t a e a v I 0 6 t. C f d V I" en . peniuhiri' r. r l!ir Hm'.-iI year was i''l,To''.IT. Tim deficit sujpl irl out of (he gian-i U treasury was 6J. (SI ,VJ'.).r.5, orl:i-b per rent." of llio. amount, ex nri In truded. '1 ho rceeipls wore S:itt','.i ! 8.03 ONeess of tluwo of tlr previous year, and . l,575,on7.'J7 in excess t'f !lio estimate made two years fern, before tho present period of iaeincss prnspei it y had fairly begun. The whole number of loiters mailed in 5his count rv in (lie last fiscal year ex ceeded l,6oo, nut i, (too. The "registry system is reported to be in excellent condition having been remodeled during the- past four years with good results. The amount of registration fees col lected dining t lie last fiscal year was S712,8S2.2, an increase over the fiscal year ending Juno 30, 1877, of 545,443, 40. The entire number of letters and packages registered during the year was 8,3rs,iU9 of which only 2,0G1 were lost or destroyed in transit. The operations of the money-order system are multiplying yearly under the Impulse of emigration, of the rapid r'cvcl'ipmont of the newer States and Territories, and the consequent demand for additional means of intercommuni cation and exchange. During the past Tear 3.'58 additional money-order ollices Lave boon established, making a total of 5.4'.)',i in operation at the date of this report. During tine year the domestic money-orders aggregated in value $105, 075,7o'..U5. A modification of the system is sug gested, reducing the fees for money orders not exceeding $5 frm ton cents to five cents, and making the maximum limit $ 100 in place of $50. Legislation for the disposition of unclaimed money orders in the possession of the postotliee - department is recommended, in view of the fact that their total value now ex ceeds one million dollars. Tho attention. of Congress is again invited to the subject of establishing a system of savings depositories in con nection with the postotliee department. The statistics of mail transportation Bhow that during the past year railroad routes have been increased in length 6,240 miles, and in cost Sl,U4,:5S2,while Bteamboat routes have been decreased in length 2,182 miles, and in cost $1154, 054. The so-called star routes have been decreased in length 3,94'J miles, and in cost S3i'4,144. Nearly all of the more expensive routes have been super seded by railroad service. The cost of the star service must therefore rapidly decrease in the Western States and Territories. The postmaster general, however, calls attention to the con stantly increasing cost of the railway mail service as a serious difficulty in tho way ot making the department self sustaining. Our postal intercourse with foreign countries lias kept pace with the growth of the domestic service. Within tho East year several countries and colonies ave declared their adhesion to the postal union. It now includes all those which have an organized postal service, except Bolivia, Costa Rica, New Zea land, and tho British colonies iu Aus tralia. THE STAR ROUTE CASES. As has been already stated, great re ductions have recently been made in the expense of the star route service. The investigations of the department of iustice and the postoffice department iavo resulted in the presentation of in dictments against persons formerly con nected with that service, accusing them of offenses against tho United States. I have enjoined upon the officials who are charged with the conduct of the cases on the part of tho government and upon the eminent counsel, who, before my accession to the presidency, were called to then assistance, the duty of prosecut ing with the utmost vigor of the law all persons who may be found chargeable with frauds upon the postal service. The acting attorney-general calls at- tion to the necessity of modifying the present system of the courts of the United States, a necessity due to the large increase of business, especially in tne supreme court, litigation in our Federal tribunals became greatly ex panded after tho close of the late wrar, Bo long as that expansion might be at tributable to the abnormal condition in which tho community found itself im mediately after the return of peace, prudence required that no change bo made in the constitu tion of our judicial tribunals. But it has now become apparent that an immense increase of litigation has directly resulted from the wonderful growth and development of the country. There is no ground for belief that tho business of the United States courts will ever be less in volume than at present. Indeed, that it is likely to be much greater is generally recognized by the bench and bar. In view of the fact that Congress has already given much consideration to this subject I make no suggestion as to detail but ex press tho hope that your deliberations may result in such legislation as will give early relief to our over-burdened courts. The acting attorney-general also calls attention to the disturbance of the public tranquility during the past year in the Territory of Arizona. A band of armed desperadoes, known as " cowboys," probably numbering from fifty to one hundred men, have been engaged for months in committing acts of lawlessness and brutality which the local authorities have been unable to repress. The depredations of these "cowboys" have also extended into Mexico, which the marauders reach from the Arizona frontier. With every dispositiou to meet the exigencies of the case, 1 am embaraxsed by lack of au thority to deal with them effectually. Tho punishment of crimes committed within Arizona should ordinarily, of course, bo left to the Territorial authorities. But it is worthy of consideration whether acts which necessarily tend to embroil the United States with neighboring governments should not be declared crimes against the United States. Some of the incursions alluded to may perhaps be within the scope of the law (Revised btatucs, Section 5,2Ho) forbidding "mil tary expeditions or enterprises," against friendly States. But in view of tho speedy asembling ot your body, I have preferred to await such legislation as in your wisdom the -occasion may seem to demand. Jt may, perliaps, be thought proper to provide that the on foot. within our Betting own Lehfory, of brigandage and armed - expeditions against friendly '"'r citizen shall be juhi- 'i UNO HHilliit the Uni- a J J tf..;lt. VX t event of a requisition from the Terri torial govcrnnn nt for protection by the United Stales against "domestic vio lence," Ibis government would be powerless to render assistance. The net of 17'.I5, chanter 36, passed at a time when Territorial governments re ceived littlo attention from Congress, enforced this duty of the United States as to the States. But the act of 1807, chapter 30, applied also to Territories. This law seems to have remained in force until revision of the statutes, when provision for Territories was dropped. I am not advised whether this altera tion was intentional or accidental, but it seems to mo the Territories should be offered protection which is accorded to States by the Constitution. I sug gest legislation to that end. It seems to me." too, that whatever views may prevail as to the policy of recent legis lation, by which the army has ceased to be a part of the posse commitatus, an exception might well be made for per mitting the military to assist tho civil Territorial authorities in enforcing tho laws of the United States. Tliis use of the army would noi seem to bo within the alleged evil against which tha t legis lation was aimed. From sparseness of population, and other circumstances, it is often quite impracticable to summon a civil posse in places where officers of justice requiro assistance, and where a military force is within easy reach. THE INDIAN'S. Tho report of the secretary of tho interior, with accompanying documents, E resents an elaborate "account of tho usiness of that department. A sum mary of it would be too extended for this place. 1 a.sk your careful attention to the report itself. Prominent among the matters which challenge the atten tion of Congress at its present session is the management of our Indian atl'airs. While this question ha.s been a cause of trouble and embarrassment from tho infancy of the government, it is butre eentlv'that any etl'ort has been made for its solution, at' once serious, determined, consistent and promising success. It was natural, at a time when the national territory seemed almost illimi table and contained many millions of acres far outside the bounds of civilized settlements, that a policy should have initiated which more than aught else has been tho fruitful source of our In dian complications. I refer, of course, to the policy of dealing with the various Indian tribes a3 separate nationalities, of relegating them by treaty stipulation to the" occu pancy of immense reservations in the West, and of encouraging them to live savage lives, undisturbed by any earnest and well directed efforts to bring them under the influence of civilization. Tho unsatisfactory results wliich have sprung from this policy are becoming apparent to all, as tho white settlements have crowded the borders of the reser vations. The Indians, sometimes con tentedly and sometimes against their will, have been transferred to other hunting grounds from which they have again been dis lodged whenever their new found homes have been desired by the adventurous settlers. These removals, and the fron tier collisions by which they have often been preceded.have led to. frequent and disastrous conflicts between the races. It is profitless to discuss here which of them has been chiefly responsible for tho disturbances whoso recital occupies bo large a space upon the pages of our liistory. We have to deal with the appalling fact that though thousands of lives have been sacrificed, and hundreds of millions of dollars expended hi tho attempt to solve the Indian problem, it has within the last few years seemed scarcely nearer a solution than it was half a century ago; but the government has been cautiously but steadily feeling its way to the adoption of a policy, which has already produced gratifying results, and which m my judgment is likely, if Congress wid the executive accord in its support, to relieve us ere long from the difficulties which have hitherto beset us. For tho success of the efTorts now making to introduce among the Indians the customs and pursuits of civilized life, and gradually to absorb them into the mass of our citizens, sharing their rights and holding to their responsibili ties, there is imperative need for legis lative action. My suggestion in that regard will be chiefly such as have been already called to the attention of Con gress, and have received to some extent its consideration: First, I recomend the passage of an act making the laws of the various States and Territories ap plicable to the Indian reservations within their borders, and extending the laws of the State of Arkansas to the portion of the Indian Territory not occu pied by tho five civilized tribes. The Indian should receive the protection of the law. lie should be allowed to maintain in court his rights of person and property. He has repeatedly begged for this privilege. Its exercise would be very valuable to him in his progress toward civilization. Second, of even greater importance in a measure which has been frequently recommended by my predecessor in office, and in furtherance of which several bills have been from time to time introduced iu both houses of Con gress. The enactment of a general law permitting the allotment in several ty, to such Indians at least as desire it, ol a reasonable quantity ol land secured to them by patent, and for their protec tion made inalienable for twenty or twenty-five years, is demanded for their present welfare and their permanent advancement. In return for such considerate action jon the part of the government fhere is x 11: ii .i av I! I iciiauu to ueueve mai me intuaus, in large numbers, would bo persuaded to 6ever their tribal relations ad to engage at once in agricultural pursuits. Many ot them realize the fact th;it their hunt ing days are over, and that J it is now for their best interests to ccinform their manner of life to the nw order of tilings. By no greater indileenient than the assurance of permanent title to the Boil can they bo led to cAigage in the occupation of tilling it The well attested reports of the increasing in terest in husbandry justify the hope and belief that the enactment of such a stat ute as I recommend would be at once attended with gratifying results. A i resort to the allotment system would have a direct and powerful influence in dissolving the. tribal bond which is so prominent a feature of savage life, and which tends so strongly to perpetuate it. Third. I advise liberal anoronriu- tions fir the support of Indian" si bonis, because of my conlident belief (hat that course is consistent with wisest econ omy. Among the most uncultivated Indian tribes there is reported to be a general and urgent desire on f he part of tho chief and older members for tho education of their children. Jt is unfor tunate, in view of the fact, that during the past year the means which have beep at the command of the interior depart ment f rthe purpose of Indian instruct ion have proved to bo utterly inadequate. The success of the schools which are in operation at Hamilton, Carlisle and 1 orest Grovo should not only encour age a more generous provision for the support of these institutions, but should prompt the establishment of others of n similar character. They are doubtless much more potent for good than tho day-schools upon the reservation, as tho pupils nro altogether separated from the surroundings of savage life, and brought into constant contact with civilization. There are many other phases of this subject which are of great interest, but .which cannot bo included within the becoming limits of this communication. They are dis cussed ably in the reports of the secre tary of tho interior and commissioner of the Indian atl'airs. For many years tho Executive in his annual message to Congress has urged the necessity of stringent legislation for the suppression of polygamy in the Territories, and es pecially in tho Territory of Utah. Tho existing statute for the punishment of tins odious crime, so revolting to tho moral and religious sense of Christen dom, ha.s been persistently and contemptuously violated ever since its enactment. Indeed in spito of commendable efforts on the part of the authorities who rep resent the United States in that Terri tory, the law has in very rare instances been enforced, and for a cause to which reference will presently bo made is practically a dead letter. The fact that adherents, of flic Mormon church, which rests upon polygamy as its corner-stone, have recently been peopling in largo numbers Idaho, Arizona and others of our AVestern Territories, is well calcu lated to excite the liveliest interest and apprehension. It imposes upon Congress and the Executive the duty of using against this barbarous system all the powerwhich, under the Constitution and laws they can wield for its destruction. Reference has been already made to the obstacles which the United States officers have encountered in their ef forts to punish violations of law. Promi nent among the obstacles is tho diffi culty of procuring legal evidence suf ficient to warrant a conviction, even iu the case of the most notorious offenders. Your attention is called to a recent opinion of the supreme court of tho United States explaining its judgment of reversal in the case of those who had been convicted of bigamy in Utah. The court refers to the fact that the secresy attending the celebra tion of marriages in that Territory makes the proof of polygamy very difficult, and the propriety is suggested of mody ing the law of evidence which now makes a wife incompetent to testify against her husband. This suggestion is approved. I recommend also the passage of an act that in the Territories ot the united Mates the tact that a woman has been married to a persdn charged with bigamy shall not dis qualify her as a witness upon his trial for that offense. I further recom mend legislation by which any person solemnizing a marriage in any of tho Territories shall be required, under stringent penalties for neglect or refusal, to file a certilicate of such mar riage in the supreme court of the Ter ritory unless Congress may devise other practicable measures for obviating tho difficulties which have hitherto attended the efforts to suppress this iniquity. I assure you of my determined purpose to cooperate with you in any lawful and discreet measures wnicii may be pro posed to that end. PUBLIC EDUATIOX. Although our system of government does not contemplate that the nation should provide or support a system for tho education of our people, no 'meas ures calculated to promote that general intelligence and virtue upon which tlu perpetuity of our institutions so greatly depends, have ever been regarded with indifference by Congress or the Execu tive. A large portion of tho public domain has been from time to time devoted to the promotion of educa tion. There is now a special rea son why, by setting apart the pro ceeds of its sales of public lands, or by some other course, the government should aid the work of education. Many who now exercise the right of suffrage are unablo to read tho ballot which they cast. Upon many who had just emerged from a condition of slavery were sudden ly devolved the responsibilities of citi zenship in that portion of the country most impoverished by war. I have been pleased to learn from the report of he commissioner of education that there has been lately a commendable increase of interest and effort for their instruction, but all that can be done by local legislation and private generosity should be supplemented by such aid as can bo constitutionally af forded by tho national government. I would suggest that if any fund be dedi cated to the purpose it may be wisely distributed iu the different States, ac cording to the ratio of illiteracy, as by those means those locations which are most in need of such assistance will reap its especial benelits. AGKICTLTURE. The report of the commissioner of agriculture exhibits results of the ex periments in which that department has been engaged during the past year, and makes important suggestions in refer ence to the agricultural development of the country. The steady increase of our population and the consequent addition to the number of those engaging in the pursuit of husbandry are giving to this depart ment a growing dignity and importance. The commissioner's suggestions touclt ing its capacity for greater usefulness deserve attention, as it more and more commends itself to the interest which it was created to promote. TENSIONS. It appears from the report of the comiuisioner of pensions that since I860, 789,003 original pension claims have been riled; 450,919 of these have been allowed and inscribed on the pen sion roll; 72,53'J have been rejected and abandoned, being cent, of the whole settled. There fin thirteen plu per aims number i ' now pending ' for Seltloniunt "u5,f75 original pension claims, hl'i ,o II) ol which were hied prior to July 1 , 1880. These, when allowed, will involve (he payment of arrears from the date of discharge in case of an in valid, and from date of death or ter mination of a prior right in all other eases. From all the data obtainable it ifl estimated that fifteen per cent, of tho number of claims now pending will bo rejected or abandoned. This would sliow the probable rejection of 34,000 cases and the probable admission of about 103,000 claims, all of which in volve the payment of arrears of pension. With tho present force -employed, tho number of adjudications remain ing the same and no new business intervening, this number of claims (193,000), could be acted upon in a ?eriod of six years, and taking January , 1884, as a mean period from which to estimate in each case nn average amount of arrears, it is found that every case allowed would require, for the first payment upon it, tho sum of 1,350 dol lars. Multiplying this amount by the whole number of probable ndmissions gives $250,000,000 as (he sum required for first payments. This represents (ho Bum w inch must be paid upon claims which wero filed bcloro July 1, 1S80, and are now pending and entitled to (ho benefits of the arrears act. From this amount ($250,000,000) may be deducted from ten to fifteen millions for cases where, the claimant dying, there is no pei-son who under tho law would be entitled to tho pension, leaving $235,000,000 as tho probable amount to be paid. In these estimates no account has been taken of tho 38,500 cases filed since June 30, 1880, and now pending, which must re ceive attention as current business, but which do not involve payment of any arrears beyond the date of tiling the claim of this number. It is estimated that eighty-six per cent will be allowed as lias been stated. ith the pres ent force of tho pension bureau 075 clerks it is estimated that it will tako six years to dis poso of tho claims now pending. It is stated by tho commissioner of pensions that by an addition of 250 clerks (in creasing the adjudicatory force rather than the mechanical) double the amount of work could be accomplished, so (hat these cases could be acted upon within three years. Aside from tho consider ations of justice widen may be urged for a speedy settlement of tho claims now on the files of tho pension office it is no less on the score of economy, inasmuch as fully one-third of tho clerical force of the office is now wholly occupied in giving attention to cor respondence with the thousands of claimants whoso cases have been on file for tho past eighteen years, The fact that a sum so enormous may be expended by the government to meet demands for arrears- of pensions is an admonition to Congress and the Execu tive to give cautious consideration to any similar project in the future. The great temptation to tho presentation of fictitious claims, afforded by the fact that the average sum obtained upon each application is $1,300, leads me to suggest the propriety of making some special appropriation for the prevention oi fraud. RECOMMENDING APPROPRIATIONS FOR INTERNAL IMPROVEMENTS. I advise appropriations for such in ternal improvements as the wisdom of Congress may deem to bo of public im portance. The necessity of improving tho navigation of the Mississippi river justifies a special allusion to some meas ures for the removal of obstructions which now impede tho navigation of that great channel of commerce. CIVIL SERVICE REFORM. In my letter of neceplanco of the nomination for Vice-President I stated that, in my judgment, " no man should be an incumbent of an office tho duties of which he is, for any cause, unfit to Eerform ; who is lacking in the ability, delity or integrity which a proper ad ministration of such office demands." This sentiment would doubtless meet with general acceptance, but opinion has been widely divided upon the wisdom and practicability of tho various re formatory schemes wluch have been sug gested, and ot certain proposed regula tions governing appointments to public office. The efficiency of such regulations have beeji distrusted mainly because they have seemed to exalt mere educa tional and abstract tests above general business capjicity, and even special fit ness for the particular work in hand. It seems to me that the rules which should be applied to the management of the public service may properly conform in (he main to such' as regulate the con duct of successful private business. Original appointments should be based upon ascertained fitness. The tenure of office should be stable Positions of responsibility should, so far as practicable, be hiledby the promotion of worthy and efficient officers. The investigation of all complaints, and the punishment of all official misconduct, bliouid oe prompt and thorough, The views expressed in tho foregoing letter are those which will govern my administration oi me executive otnee, They are doubtless shared by all intelli- gent and patriotic citizens, however divergent in their opinions as to the best methods of putting them into prac tical operation. For example, the assertion that " original appointments should be based upon ascertained fitness," is not open to dispute. But the question how, in practice, such fitness can be most effect ually ascertained, is one which has lor vears excited interest and discussion The measure, which slight variations in its details, has lately been urged upon the attention of Congress and the Exe cutive has as its principal feature the scheme ot competitive examination save for certain exceptions w hich need not here be specified. This plan would ap ply to the service only in its lowest grade, and would accordingly demand that all vacancies in higher positions should be filled by promotion alone. In theso particulars it is in conformity with the existing civil service system of Great Britain. And, indeed, the success which has attended that system in the country of its birth Is the strongest argument which lias been urged for its adoption nere. Tho fact should not, however, be overlooked that there are certain feat ures ot the English system, wluch have not r one ! I V b in this country, most, adv -at es Among ! in m m ii i v ' e ! re 1 even anion of civil sen ! t : lore- the e reform. are 1. A I enure of oil' .'0 whii h is sub- slant ially a life tenure-. 2. A limitation of the maximum ago nt which an applicant can enter (lie service, whereby all men in middlo life, or older, are, 'with some exceptions, rigidly excluded. 3. A retiring allowance upon going out of office. These three elements are as im portant factors of the problem as any of tho others.- To eliminate them from tho English system would effect a most radical change in its theory and practice. Tho avowed purpose of that system is to in duce tho educated young men of tho country to devote their lives to public employment by an assurance that, hav ing entered upon it, they need never leave it, and (hat after voluntary retire ment they shall be the recipient's of an annual pension. That this system as an entirely has proved very successful in Great Britain seems to bo generally conceded, even by tboso who once opposed its adoption. To a bill which should incorporate all Ms essential fea tures I should feel bound to give my ap proval. But whether it would be for tho best interest of the public to fix on an expedient for iinmcdiato and exten sive application, which embraces cer tain features of the English system, but excludes or ignores others of equal im portance, may bo seriously doubted, even by those who are impressed, as I am myself, with the grave importance of correcting the evils which inhere in tho present methods of appointment. If, for example, the English rule, which shuts out persons above the age of twenty live years from a large number of public employments, is not to be made an essential part of our system it is questionable whether tho attainment of the highest number of marks at a com petitive examination should bo tho criterion by which all applications for appointment should be put- to the test. And under similar condition it may also bo questioned whether admission to tho service should be strictly limited to its lowest ranks. There are very many characteristics which go to make a model civil servant. Prominent among them are probity, industry, good sense, good habits, good temper, patience", order, courtesy, tact, sell-reliance, manly deference to superior officers, and considerations for inferiors. The absence of these traits is not supplied by wide knowledge of books, or by promptitude in answering questions, or by any other quality likely to bo brought to light by competitive exami nation. To make success in such a con test, therefore, an indispensable condi tion of public employment would very likely result in the practical exclusion of tho older applicants, even though they might possess qualifications far superior to their younger and more brilliant competitors. I hose suggestions must not bo regarded as evincing any spirit of opposition to the competition plan wluch has been to some extent successlully employed already, and wliich may hereafter vindi cate tho claim ol Us most earnest sup porters. But it ought to bo seriously considered whether tho application of the same educational standard to per sons of mature years and to young men fresh from school and college would not be likely to exalt mere iutellectual proficiency above other qualities of greater importance. Another feature of the proposed system is tho selection by promotion ot all officers ol tho gov ernment above the lowest grades, ex cept such as would fairly be regarded as exponents of the policy of the Execu tive and tho principles of tho dominent party. I o afford encouragement to faithful public servants, by exciting in their minds the hope ol promotion if they are found to merit it, is much to be desired, but would it be wise to adopt a rule so rigid as to permit no other mode of sup plying the intermediate walks of the service ? There are many persons who till subordinate positions with great credit, but lack those qualities which aro requisite for higher posts of duty. Besides the modes of thought and action of one whose service iu a governmental bureau has been long continued are fjften so cramped by routine procedure as nlmost to disqualify linn from instituting changes required by the public interest, and in fusion of new blood from time to time into the middle ranks of the service might be very beneficial in its results. The subject uifrler discussion is one of grave importance. The evils which aro complained ol cannot be eradicated at once. The work must be gradual. The present English system is a growth of years, and was not created by a single stroke of executive or legislative action. Its beginnings are found in an order in council promulgated in 1855, and it was after patient and cautious scrutiny of its workings that fif'tuen vears later it took its present slmne. Five years after the issuance of the order in council and at a time when resort had been liad to competitive examination as an ex periment much more extensively than has yet been the case in (his country, a ."imiiii.iee 01 uu; nouse ot com mons made a report to that house, which declaring its approval of the com petitive met hoc j deprecated, neverthe less, iuiy precipitancy in its general adoption, as likely to endanger its ulti mate success. During this tentative period the results of the two methods of pass examination and competitive ex amination were closely watched and compared. It may bo that before wo tul",uo uuiseives upon tins important question within the stringent bounds of Ditiucoiy enactment we may profitably await the result of further inquiry and experiment. The submission of a por tion ol the nominations to a central uuuiu ut cvmiiucrs selected sol eiy lor lesung me quahticat cms of m-mliiHirWa IT1AV nor in , ... ' . ' j i , mmum resort to tho competitive test, put an end to the mis- u u" aueiiu tbe present system of appointment, and it may bo feLible to .vest in such a board a wido discre ion to ascertain the characteristics and ainmenu of candidates in those paV ticulars to which 1 have already referred as bemsno less important than n ere Intellectual attainment. at thgreS3.Sh0U.ldtJcem lt advisable at tne nrnnf Gnu,;.. .... .... :;.DU 1 1" aiaiiish com- ti " l7lVor adinteMion to the ser vice, no doubt such as have boon sua.. pe&teu shall deter me frwn givin- the meuMire my earnest supper,, I T ( T . . i 7 a f 'I .11 . .:".'.) ;.) oof ..'eeivid ed statute. n or MlOjoef, that nil ap'U rpi i a y eai i nay 1"' mm ie 1. r I ! n' ot'soeiion 1 ,7'i-t of the rc i With tho aid thus alVordod me 1 slmll sirivo to onoouIo t lie pro i-.',.mi of thirl law according to its letter and f-pirit. I nm unwilling, in justice to the pros sent civil servants of (h government, to dismiss this subject without declaring my dissent from the severe and nlmost, indiscriminate censure with which they have been recently assailed. That they are, as a class, indolent, ineliieient, cor rupt, is a statement which has been often mado and widely credited. .But when tho extent, variety, deljnu y and Importance of their duties are consid ered, tho great majority of (he employes of the government are, in my judgment, deserving of high commendation. THK MKIiClIANT MAHINK. The continuing decline of tho mer chant marine of tho United Slates is to bo greatly deplored. In view of tho fact that we f urnish so large a propor tion of (ho freights of the commercial world, and that, our shipments aro steadily and rapidly Increasing, it is a cause of surprise that not only is our navigation interest diminishing, but it is less than when our exports and im ports were not half so large as now, either in bulk or value. There must bo some peculiar hindrance (o the develop ment of this interest, or the enterprise and energy of American mechanics and capitalists would have kept this coun try at, least abreu.st of our rivals in tho friendly contest for ocean supre macy. Tho sultitutlon of iron fcr wood and of steam for sail has wrought great revolutions iu tho carrying trada of (he world; but these changes could not have been adverse to America if we had given to our navigation interests a portion of aid and protection, which nave been so wisely bestowed upon our manufactures. I commend the wholo subject to tho wisdom of Congress, with the suggestionthat no question of greater magnitude or farther reaching import ance can engage (heir attention. In 1875 the supremo court of the United Slates declared unconstitutional the statutes of certain States w hich im posed upon shipowners or consignees a tax of a dollar and a half for each pas senger arriving from a foreign country, and in lieu thereof , required a bond to indemnify the Stato and local authori ties against expense for tho future re lief or support of such passengers. Since this decision the expense attending tho care and supervision of emigrants has fallen on tho I" I nl V I l.iilnre in Stales at whoso ports they have landed. As a large majority of such immigrants, immediately upon their ar rival, proceed to (ho inland States and tho Territories to seek permanent homes, it is manifestly unjust to impose upon tho Stato whose shores they first reach tho burdeu which it now bears. For this reason, and because of the na tional importance of tho subject, I re commend legislation regarding the su pervision and transitory care of immi grants at the ports of debarkation. THK CONDITION OF ALASKA. I regret to stato that the people of Alaska have reason to complain that they are as yet unprovided with any form of government by which life or property can bo protected. THE DISTRICT OF COLVMBIA. The report of tho commissioners of tho District of Columbia, herewith transmitted, will inform you fully of the condition of tho affairs of tho District. They urgo tho vital importance of legis lation for the reclamation and improve ment of tho marshes, and for the cstab! llshment of tho harbor lines along the Potomac river front. CONTESTHI) ELECTIOX3. The importance of timely legislation (villi respect to the ascertainment and declaration of tho vote for Presidential Electors was sharply called to the at lention of the people more than four years ago. It is to bo hoped that some well de 5ned measure may bo devised before mother national election, which will fender unnecessary a resort to any ex- Sedient of a temporary character for the etermination of questions upon con leSted returns. ' PRESIDENTIAL DISABILITY. Questions wliich concern the very ex istence -.-f tho government and tho lib erties of tho people wero suggested by Ihe prolonged illness of tho late Presi dent nnd his subsequent incapacity to perform the functions of his office. It Is provided by the second article of the Constitution in the fifth clause of its first Section, in case of the removal of the President from office or of his death, resignation or disability to discharge the powers and duties of said office, the lame shall devolve upon the Vice-President. What is the intendment of the Consitution in the specification of ina bility to discharge the powers and du ties of said office as one of the contin gencies which calls the Vice-President to the exercise of presidential functions? Is the inability limited in its nature to long-continued intellectual incapacity, or has it a broader import? How must its existenco be established? lias the President whose inability is the sub ject of inquiry any voice in determin ing whether or not it exists, or is tho decision of that momentous and delicate question confided to tbe Vk'e President, or is it contemplated by the Constitution that Congress should pro vide by law precisely what should con stitute inability, and how and by what tribunal or authority it should bo ascer tained? If the inability proves to bo temporary in its nature, and during its continuance the Vice-President lawfully exercises functions of the Executive, by what tenure does he old his office r Does he continus as President for the remainder of the four years term; or would the elected President, if his inabilility should cease in the in. terval, bo empowered to resume his office? and if, having such lawful au thority, he should exercise it, would tho Vice-President be thereupon empowered to resume his powers and duties assuch ? I cannot doubt that these important questions will receive your cany and thoughtful, consideration. Deeply impressed with (ho gravity of the responsibilities which have so unex pectedly devolved upon me, it will ba my constant purpose to co-operate with you in such measures as will promote the glory of the country and the pros perity jf its people. Chest ek A. n nvn. V 1 :,,,-e.,, ),., ,,:, I , i
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