Ow ...a......,
Governor's Message.
n the Honorable the Senators and Members of
the Ho:tse f Representatives of the General'
.arsenaly.
OrEntrmex :—A beneficient Providence has
favored the people of our Commonwealth with a
high degree of heath and general prosperity
during the year just closed, and with many oth
er causes of pleasure and gratitude. Humbly
acknowledging these blessings, lot as ask His
divine direction in the discharge of our official
obligations.
atlbrds me tmaffected delight to welcome
the representatives of the people to the seat of
government, and rely for a time, upon the aid
of their combined wisdom in the administration
of public affairs; as it is also a grateful task to
perform the constitutional injunction that re
quires the Executi , e to "communicate to the
General Assembly information of the state of
the Commonwealth," and make such Bugg..
tions and recommendations as the welfare of
the people, and the exigencies of the times may
seem to demand; and to the discharge of this
obligation I now proceed.
The reoeipta of the treasu ry for the year
1853, exclusive of loans, and including the ac
tual balance in the treasury on the first day of
December, 1852, (being $871,037 72,) amount
ed to the sum of $5,952,474 47.
The payments for the same period, exclusive
Of loans and other extraordinary expenditures,
make a total sum of $4,134,048 47, being $l,.
818,326 10 less than the receipts. Of this ex
cess, $505,057 55 was paid to the Commission
ers of the Sinking Fund, and $589,000 towards
the payment of old debts and the construction
of new work on the N..rth Branch Canal and
Portage Railroad, being part of the temporary
loans authorised by the act of the nineteenth of
April last; which, together with the balance in
the treasury applicable to the redemption of
outstanding loans, reduces the actual balance
on the first day of December last, to the sum
of about six hundred and twenty-five thousand
dollars, to be used in the payment of the Feb
ruary interest.
The receipts foithe year 1854, including the
balance in the treasury on the first of Decem
ber, 1853, may, in my opinion, be safely esti
mated at $5,840,417 34.
The expenditures for the same period, inclu
ding $250,000 for the payment of old debt; on
the public works, and $300,000 for the sinking
fund, should not, and if proper care bo taken,
will not exceed the sum e $4,500.000, leaving
a balance in the treasury on the first of Dec.
1854, of $1,340,417 34. Deducting from this
$625,000, the amount that should remain in
the treasury to meet the interest due Feb. 1,
1855, and we should have a surplus revenue of
over $700,000.
It is thus made apparent to my mind, that
the treasury will have the ability, during the
coming year, to redeem the entire amount of
the temporary loans now outstanding, and pay
the debts to which I have already referred.—
But no additional drafts should be made upon
it, without provision being first made for their
payment.
At the time of me induction into office. the
liabilities of the State were ar follows, to wit:
Six per cent. bonds, $2,314,033 51
Five do do., 36,704,458 03
Four and one-half per cent. bonds 198,200 00
Relief notes, per act of May 4, '4l, 650,163 00
Certificates for unpaid interest on
the public debt, for the years
1843, '44, and '45, with their
accumulated interest,
Domestic creditors' certificates,
Total liabilitie4, Dee. 1, 1853, $40,154,457 48
Add loan of April 2, 1852, for
the completion of the North
Branch canal,
$41,004,457 48
Prom which take the following payments
To the sinking fund $681,469 83
Interest on outstanding
certificates,
50,752 91
Amount of funded dbt at this time,540,272,233 01
The meet this apparent increase of $117,-
777 53 of the public debt, it should be obser
ved that, by the cancellation of six per cent.
bonds, we have a saving of $20,000 annually
to the treasury, which is equivalent to a virtual
payment of $400,000 dollars of the five per
cent, bonds. The amount thus saved will be
a permanent restibrce, without making any ex
action from the people, and constitute a sub
stantial addition to the sinking fund. It will a
virtual reduction of the public debt to tho
amount of $282,222 47.
The floating liabilities and current demands
upon the treasury, at the period I have indica
ted were as follows
Damages, balances on contracts,
andlor'labor and materials on
the public works, prior to Jan.
1852, and since paid, as ap
pears on the books of the Audi.
tor General,
Temporary hunts,
Unpaid appropriations,
Total,
The floating liabilities of the
Commonwealth, and cur•
rent demands upon the
treasury at this time awe:
B. road and canal debt 5,5327,734 DO
Temporary loans, 590,000 00
Unpaid appropriations, 305,695 00
Difference between the two periods, $177,661 15
It will thus appear that the floating liabilities
are $177,681 15 less than when I assumed the
duties of my present station. It should be re•
marked that floating debt, as above stated, is
no new thing. It has always existed to a
greater or less degree, but has not usually been
exhibited in this form. A balance of unpaid
appropriations is unavoidable, and has not
been so small for many years, as at present.
During the years 1832 and 1853, the follow.
ing appropriations and payments have been
made, towards the construction of new im•
provements:
For re-laying the north track of •
the Columbia railroad, $355,500 00
For the construction of a new road
to avoid the inclined plains on
Allegheny mountains,
For the completion of the Western
reservoir,
For the North Brooch mei,
. .
r, the new locks on the Delaware
Division,
Total,
From the foregoing figures it is apparent
that the operations of the treasury have exceed.
ed our most sanguine expectations, yielding
over a million of dollars annually above the or.
dinary charges and expenses; and showing,
that if no new improvements had been in pro.
gross two millions, at least, of the public debt
could been paid during the last two years.
In addition to these extraordinary expendi•
tures, there was paid out of the treasury dur
ing
said period, in pursuance of laws passed
prior to 1852: for the State Lunatic Asylum,
$70,7000; for the publication of the Pennsylva•
nia Archives and Colonial Records $23,163
52; for the improvement of the State peniten
tiaries $35,000; for the publication of Protbssor
Rogers' geological survey $16,000; for the pre.
paration of registration books $12,190 19; to
the Sugar Valley and Deer Creek Turnpike
company $B,OOO.
ft will readily be perceived, therefore, that
should the appropriations hereafter be confined
strictly to the ordinary expenses of govern.
ment, we shall have an annual surplus reveu
tie exceeding one million of dollars, applicable
to the payment of the funded debt. net such
should be the policy of the State, after the com
pletion of the works now in progress, will not
be doubted. The importance of such economy
in view of the great cud to be attained—the It.
quidation of the - public debt—and consequent
relief of the people from taxation for State purr
poses, is too manifost for argument. Euter
taining these views, I could not give my as
eenteto any new schemes of imptovemeut by
the State.
The operations on the pub lie works for the
r ear jug clond do not present a very detterinc
picture, so far as relates to nett revenue. The
aggregate amount of business was larger by
twenty per cent, than that of nny former year,
and the cross receipts amounted to the sum of
$1,932,495 33, being an excess of hot $33,6831
91 over the receipts of 1852. This increase of
tonnage without a corresponding increase of
receipts is the consequence of a very great re
ceipts is the consequence of a very great reduc
tion in the rate of tolls, a measure, in the opin
ion in the Canal Comraissieners, demanded by
public policy; and it may be said that whatever
has been lost to the treasury was given to ex
tend commerce and trade. The expenditures
for the year, according to the report of the Ca
nal Commissioners, amounted to the sum of
$1,177,742 75, leaving a nett balance of $754,-
752 58; but as this sum does not include any
portion of the cost of now locomotive engines
and the erection of farm bridges, the deduc
tion of the proper proportion of these will
leave the sum of $701,752 68 as the actual
nett balance.
The receipts and expenditures and general
operations ou the Columbia railroad exhibit an
encouraging state of affairs, as they also do on
the North Branch canal and Delaware division;
on the other divisions of the canal they are tel•
erable; but on the Allegheny Portage railroad,
the condition of affairs is entirely unsatisfacto
ry. Tho system of management heretofore
practiced on that complicated and difficult
work, would seem to demand a speedy and ra•
dical change. But the Executive under the
laws as they now are, having no control or di
rection over the public works, it is right and
proper that I should leave the explanation of
the details of their workings and managements
to the people's agents, who have charge of the
I whole subject.
I am, however, still entirely sanguine that
with the necessary change in the system of
management, the public improvements can he
made to yield a very handsome revenue to the
treasury; indeed, even for the last year, bad the
expenses on the mountain division been con
fined to a reasonable sum the nett revenues
would have reached near one million of dollars.
Relieved from these absorbing demands by the
construction of the new road, or in some other
way, and we shall realize, by the year 1855, a
nett profit equal to the interest on 'twenty-two
millions or store of the public debt.
The work on the railroad to avoid to inclin•
ed plians on the Allegheny mountains, has not
progressed as rapidly as had been anticipated.
It is the opinion of the engineer, however, as
will appear on reference to his report, that
should the necessary means be promptly fur
nished, the entire line could be completed dur
ing the coming year. The grading fora doub
le track is finished with the exception of four
miles, and the cost of this balance, together
with the expenses of laying down a single track,
is estimated at mix hundred and five thousand
dollars, in addition to the value of the old track.
The engineer also estimates the annual saving,
as compared with the expenditures on the old
road, on a business equal to that of 1852, .nt
two hundred and ninety thousand dollars. He
also states that the road between plain No. 4
and Hollidaysburg, with a double track, will
cost about eight hundred thousand dollars less
than the Pennsylvania railroad, for a like die.
: 1 tatter.
Viewed in every aspect, it must be confessed
that this branch of the public affaird presents
an embarrassing alternative. The prompt com
pletion of the new work will involve the ex
penditure of more capital than the State can
command without resorting to farther tempora
ry loans; whilst, on the other hand, the main
tenance of the old road, at a cost of four hund
red and filly thousand dollars per annum, is
quite out of the question. Its exhausting; de
mands on the treasury must he speedily obvia
ted, and for my part I can see no mode of do
ing this except by the completion of the new
road.
204,680 20
82,932 74
850,000 00
At the time I assumed the duties of my pres
ent station, I found this work in progress of
construction; the western slope up to the Sum
mit having been placed under contract during
the summer of 1851. On rthrring to the re
ports of the Canal Commissioners and engineer,
the only data which I could properly consult as
to the policy of the measure, I found that the
t,dal cost of a Fingle track was estimated at
$1,015,000. The materials on the old road
were valued at $248;f.50, which together with
the appropriations previously made, reduced
the amount to be provided to complete the
work to the meagre sum of $591,850. With
these calculations before me, and even adding
a large amount for errors in the estimates, and
the enormous expenditures of the old road in
full view, I could not doubt the expediency and
economy of the measure.. But the unusual ad
. Vallee in the price of labor, material and sub
sistence; added to the obvious errors in the en
timates, has changed the entire aspect of this
enterprsa. The sum of $d50,000 has been op
proprmted since that time, and over six hun
dred thousand dollars is still required with the
value of the old, road, to bring the lino into
use.
732,222 47
$381,752 13
398,000 00
621,938 00
The estimated cost of completing the North
Branch canal, at the period already named,
was $772,000. Ono million of dollars has
since been paid, and a sum exceeding one hun
dred and fifty thousand dollars is still required
to pay for its completion. With such unexpec
ted demands upon the treasury within the
short space of two years, it would not be un
reasonable to expect an increase of the liabili
ties of the State; but it is alike gratifying and
astonishing to know,that this has not occurred.
TheJunctioti canal,extending from the New
$1,401,090 15
.1,223,429 00
York lino to Elmira, will be ready for business
during the present month, and the State work
from Pittston to the dam nt Athens, a distance
of ninety-three miles, has been completed.—
The only unfinished part of the work lies be
tween Athens and the State line, a space of
two and a half mites, the construction of which
was delayed by an effort of the Canal Commis.
sioners and the Governor, under an act of As
sembly, to negotiate with the Junction canal
company for its completion. But even this
section, I am assured, will be ready in ample
time for the spring trade.
Theso works will complete the last link in a
continuous water communication between the
Chesapeake bay the northern• lakes. The
struggle for this achievement has been long
and arduous, covering nearly a quarter of a
century. But the triumph is still a brilliant
one, and must be cause of gratification to the
people of the entire State.
Most nuspicious and promising is it for the
enterprising inhabitants of Northern Pennsyl.
to whose untiring effor'
656,034 90
52,380 41
1,000,000 00
80,000 00
vania,
summation may be mainly attributed. Through
this channel, in the early part of next session,
and during each succeeding year, Pennsylva.
nia will send greeting to the people of a neigh
boring state—the evidence of fraternal affec
tion—the assurance of political fidelity, and
the blessings of an extended commerce, in the
shape of inland vessels, freighted with her rich
est minerals, and receive in return, as she cer
tainly will be offered, from the vast rallies of
the Empire State, now teeming with wealth in
all its variety, assurances of full reciprocity, in
affection, fidelity and commerce. And in due
time the coffers of the State, I am coufident,
will receive an ample reward from these new
relations of trade. Indeed, on this point, the
large increase of profits on the old line, for the
year just closed, furnishes the most reliable in
dication of what we may anticipate from the
new. The constantly increasing demand for
coal, outrunning, as it has done fur years past,
the means of supply,justifies if it does not
force upon us the conclusion, ;hat so soon as
boats can be constructed, and proper business
connexions formed; this canal will lie patroniz
ed up to its full capacity. A glance at the
vast, rich and populous section of country
which it will he called open to supply with
coat, for every imaginable purpose, domestic,
mechanical and manufacturing, and at the (le
cithin offered by the New York canals and the
lakes, to reach all points of that country, must
satisfy the most sceptical as to the value and I
importance of this improvement.
I congratulate you, therefore. upon the eon
summation elan enterprize which will be thus
profitable to the State, and beneficial to the
people.
- The expediency cf selling . the public works
has bcra a ' , pie of ii,:uuton in the mist of
$2,143,915 31
the State for some months past, and without
indicating a policy for the General Aisembly,
cc intmding the slightest discourtesy to the
people's agents to whom the management of
this branch of public affairs has been confided.
I have deemed it my duty to discuss some of
the considerations incident to and growing out
of the proposition.
Indeed, it would be unreasonnble to assume
either the affirmative or negative of the • goes
lion, and expect to be properly understood,
without some explanation as to the price of the
works and the conditions of sale.
It is fair to presume that those who advocate
the affirmative have distinct ideas as to what
the prince should be, and that unless such con
sideration can be realized they would not agree
to sell.
The first inquiry therefore is, why should
these works be sold ? The answer usually giv
en is that the measure is necessary to reduce
the State debt as to relieve the people from
taxation. These are great objects indeed, and
should, as I have no doubt the will, receive
your earnest consideration; their realization
however, must depend mainly upon the price
obtained.
Should the interest on the public debt
dated by the sale be less than the nett profits
arrising from the works, than it would be false
economy to sell. In that case the measure
would not be one of relief to the people, but
must necessarily increase their yearly bruthens.
And what reason is there to suppose that
more can be obtained? Capitalists, it will be
conceded, when when weighing the question of
a purchase, will make the nett profits on their
investments the basis of all their calculations.
They will loolc at the past operations of these •
worfis,in connection with their prospects in the
futura—carefully considering every fact and
circumstance bearing on their real value; and,
it is scarcely necessary to remark, will only
buy wnen perfectly satisfied thnt they have the
best of the bargain. In attempting to deter
mine the question of value, it will be perceiv-
ed. therefore, that the inquiries, examinations
and motives of buyer and seller, waist neces•
snrily be identical.
It . is apparent then, that effect of competi
tion on the value of these works; the inroads
which may be made by science and mechanic
arts on every description of transportation fa.
citifies now in existence; the casualties that
may result to them from the elements; in short,
the mutability of human structures, and the
propriety of Simplifying the duties of govern
ment, must constitute, mainly, the considera
tions in favor of a separation between the
State and her improvements.
On the other hand will be presented the
hopes of future business and increased profits
to the treasury, predicated upon the rapid
growth of the Commonwealth; her vest and va.
ried resources, and the influence of these upon
transportation within her limits; the increasing
demand for facilities to transmit her products.
to market; the endless consumption and unlim
ited supply of her great staples of coal and
iron, and their proximity to her works at all
points; the enlarged products or agriculture,
and the rich variety of manufactures, so rapid.
ly multiplying in every part of the State, con
stituting at once a home business, with ages of
duration before it, which no human agency can
disturb, and which must contribute at all times
a flair incense to the government. In addition
to these considerations against a sale, may be
urged the necessity which would be presented
for thecreation of a comber of corporations,
having a coinumnity of interest and feeling.
with similar bodies already in existence, and
the danger of thus inducing the organization
de controlling. power in the Commonwealth.
But it is said that companies can manage
these works with greater skill and economy
than the State, .d for that reason they would
be most valuable in the hands of the former,
and that the State can realize this difference by
a sale. It must be confessed, that it is to these
considerations, and these only. flint we ears
look for arguments to sustain the idea teat the
State can gain any thing. pecuniarity, by a sale
of lice improvements. That the difference in
the expenses of the management of the works
would amount to a fair per coinage, in the es•
tumid. of some capitalists, I have no doubt;
hot it is not so gent as estimated by some.—
Indeed, certain portions of our own works are
now well managed, and it is lisped and believ
ed that sects changes can he made in the sys
tem of direction now practiced by the State, as
to lead to general skill and economy.
But the main question will be the minimum
price that shall be fixed an these improvements;
and the proper disposition of this, it insist be
readily seen. will demand ninch careful exami
tion. And in reference to this point the wis
est find best may honestly differ ' for the issue
belongs mainly to the future, and can only be
anticipnted from the results of the past. To
these we iney look for a moment.
For the years 1832 and 1853, the nett re
ceipts may lie put down as equal to the annual
interest upon about fifteen millions of the pub•
lie debt; and Inm inclined to believe that,
without any increase of trade except on the
North Branch, the nett profits for the ensuing,
year may be estimated at a sum equal to the
interest on seventeen or eighteen millions of
the debt, and that the completion of the road
over the mountains. or relief in some other
way, from the leeching deniands of that por
tion of our improvements, will see the nett re
•venties, from this source, swelled to rt sum
equal tr, the interest upon twentptwo millions
of the Stnte bonds.
If it be desirable to sell the public works. we
should not underate their importance, nor is it
juot to disparage the wisdom of their founders.
We are prone to murmur azainst the policy
that their construction, because of the debt We
hare thus incurred, and pet, lithe proposition
were submitted to cancel this liability by their
destruction or disuse, wo should be compelled
to reject it.
'Ai' the time of its adoption, this policy was
necessary and proper. Avenues of this kind
thee' the body of the State, to convey yet vast
productions to market; are as indispensible to
leer vigorous growth and physical development
ns are the veins and arteries to the human sys.
tom to give circulation to the blood and conse
quent health and vigor to the body. To stop
or clog these. in either case, would produce
stagnation and ultimate destruction.
Without reference to the abstract question of
a sale, I may say, that under no circumstances
should we entertain the proposition to part with
the public works by the creation of a joint
stook company, as heretofore repeatedly pro.
posed, by which the Commonwealth is to re
main a large shareholder. but the direction to
be in the hands of individuals or corporations,
associated with her in the ownership. I have
always regarded this as a most dangerous and
insidious measure. If the proposition to sell
he seriously entertained, under the present con
dition of the money market, it should be based
on the idea of a bona tide sale, fur a full com
pensation, in exchange for the bonds of the
State, and under such salutary reservations
and restrictions ns the interests of the people
may demand.
its ifs final con.
But it is urged by many that the State's sys•
tem of managing the public works is suscepti
ble of improvement—that much con be done
by judicious reforms to augment the receipts
into the Treasury, and facilitate the business
of transportation; and, es much of this system
results from positive law, it may not be deemed
officious on my put to make suggestions on the
subject.
In a special message, communicated to the
General Assembly, soon after toy induction
into office, I advocated the policy of making
cashpayments fur labor and materials, and the
interdiction by law of the creation of debt by
the officers on the public works, and made al
lusion to other radical defects in the system,
which could scarcely he re:idled by the Canal
Board. To some of those I shall now briefly
nll ucle.
In the first place, it is impossible to avoid
the creation of debts, it' the appropriations be
insufficient to meet unavoidable expenditures.
The business of transportation and travel on
these higltwat•s must be kept up, whether the
expense be paid or not. These circumstances
have defeated, to some extent, the administra•
tion of the law of May, 1852, requiring cash
and prompt rettlement? l‘y the off,
tern on these works, and prohibiting the crea
tion of debts. This result, I regret, for lam
still decidedly of the opinion, that no other
change in the system is so likely to beget econ
omy, purity and efficiency in their general di
rection. For the last year, however, this law
was strictly carried out on some of the divisions,
and it is sincerely desired that hereafter tine
practice may bo extended to all.
I need not dimes the consequences of the
custom of making debts on the public works—
its errors are too palpable to need refutation by
argument; and I shall only repeat what I sub
stantially said to the General Assembly on a
former occasion, that in addition to the oppor
tunity it afforded for extortion off the State, if
not actual fraud upon the treasury., the feu that
officers, for the time being, should be allowed
to scatter the credit of the Commonwealth
broad-cast, to be discovered and redeemed, at ,
some future period, by their successors, is a
monstrosity in the economy of public affisirs.
There seems to be some plausibility, if not
actual truth, in the allegation; that tlie State's',
management of these works is expensive and
inefficient; and yet it is not clear to my mind,
that treated ns a mere business affair, her su
pervision would not be as cheap and efficient
as that of corporations and individuals. But
the instability of her agencies renders accuracy
and economy exceedingly difficult. her peri
odical change of officers has always deprived
her of the benefit of experience in this work;
and this, in any business, you will agree with
me, is equivalent to a fair profit, and that it is
eminently so in the repair and genera) super.
vision of railroads and canals. This shifting
practice has had the effect of making her works
a species cf Normal schools for the ecilmation
of engineers and supervisors to take charge of
other improvements. This instability results
from the recognition of places on the State
works, as political offices s insteadof scientific
and mechanical workshops; sailbringing to
bear on their control and direction, our notions
of rotation and short tenure in office. These
ideas are sound and republican, and should
never-be disregarded, in reference to the offices
appertaining to our political organization as a
government; but it must be conceded that a
mere business operation to make money in
competition with the creatures of government
and the efforts of individuals, was not contem
plated as an office in the organic law of the
State; and hence, it is not strange ' that the
principles proper for one do not apply usefully
to the other. What, I would inquire, would be
the condition of the Reading railroad, the Penn.
sylvania railroad and other similar works, were
they required to change their engineers and
superintendents, at shalt periods, and bring I
strangers into their employ? The answer may
be readily discovered in the State's experience.
I have long been of opinion that in reference
to all the subordinates of the Canal Commis.
sioners. Changes should not be periodical and
prefixed, bet should be made as' demanded by
the exigencies of the public service. The de
linquent in any one of the obligations of duty
should he dismissed at once, and. the only gn
amity of continued employment should be
found in the superiority of the services render
ed the State. All other rules for appointment
and dismissal should be speedily obliterated
from the system. The present practice deprives
else State, to a great extent, of the benefit of
that incentive to excel, which actuates all men
where character, position and emoluments are
at stake. Of course, my suggestions in refer
ence to the importance of experience will not
be undnirstood as applying to all the agents on
the works; for instance, it reqnires but little ex
perience to make a eollector, but it has and al
ways will require this to render an agent effi
cient in the construction and repair of railroads
and canals, to fosses exigencies and give har
monious direction to the current operations of ,
this complicated brooch of public service, In
short, the management wants the application
of business organization and principles. A
system of books should supplant the use of'
check rolls, and the operations he so eystema
tized that the receipts and expenditures of each
month, as the season passes by, could bo an
nounced to the public.
Confusion, obscurity and redundeney in our
' annual volume of laws—vexation inroads upon
private rights—attempts at the • usurpation of
power and consequent strivings and litigation,
are, in my opinion, the legitimate fruits of our
system of special and omnibus legislation. In
deed the truth of these prepositions is too pal
pable to admit of argument. It is manifested
in every year's experience, and in some instan
ces the government, as n consequence, has
been forced into the humiliating position of be
coming a litigant against her own creatures.—
Its demoralizing intineneo is marked and ad
mitted on all hands and imperiously demands
an efficient remedy. Thatthe present General
Assembly Inns. be distinguished and blessed for
applying the axe nt the root of the evil and
marking the era of its final termination, is my
I sincere hope.
A prolific source of mischief consists in the
practice of passing n number of laws, entirely
dissimilar in their characteristics, ins the same
bill, or in what is familiarly known as the "Om
nibus System." The inevitable, and indeed
the frequently lamented effect of this mode of
legislation, has been to facilate the passage of
bills through the General Assembly, and to se
care the sanction of the Executive without
that critical examination indispensible to a
clear comprehension of their true import.
An illustration of the difficulties which the
pghetiee imposes upon this branch of the gov
ernment, it is only necessary to state, thirst
within two days surer-ceding the final adjourn
ment of the last Leeislature. no less than one
hundred anal six bills wore presented for Exe
cutive consideratinn, containing three hundred
and thirty-four different subjects. Some of
these bills contained as many as twenty dissim
ilar items of legislation; and of these, some
were not even indicated by the transcribed title.
In addition to the difficulty of comprehend
ing the import ()ranch a hetroeeninas mass of
matter, the Executive frequently finds himself
forced into the dilemma of signing a law which
his judgment rejects, or returning another
which he really approves. Neither alternative,
will you agree with me, is in strict accordance
with the mandates of the Constitution. Great
inconvenience results to the people, under this+
system, in paying the enrollment tax upon pri
vate laws. In bills, such as I have already
described, may be found a number of items,
' some taxable, and others not, and the bill must
be enrolled under its proper number and title,
and tine tax be first paid. One party interest
ed in this legislations may pay his sham, anoth
er refuse to do so, and a third, on seeing the
amount of tax, concludes that he can live with
out the law; and thus it has been no uncom
mon thing Inci persons to he forced to pay tax
on laws in which they have no interest, in or
der to avail themselves of what the Legislature
had expressly granted. Such a state of affairs
is senrcely consistent with the dignity of a
great State, arid certainly demands an efficient
remedy.
Some of my predecessors have urged the
General Assembly to change this system. and
in several previous communications, I have
suggested tine propriety and justice of pulsing
each proposition seperately, at least so far ns
the objects were dissimilar. But the evil still
exists, and I am deeply sensible of the difficul
ty which the applications of a prompt and effec
tual remedy must always present to the Gen
eral Assembly. After much reflection on the
magnitude of'this evil—its various inroads up.
on private rights, and its demoralizing tendon.
cy upon the interests of the people, and the
more elevated purposes of legislation, I have
determined tn co-operate with the General As
sembly in the npplicntion of tho most efficient
mean, which their wisdom ninny devise for its
removal; but in the mean time, as a restrain
ing pr of the law-making power, I must beg
to he indulged inn claiming the privilege of con-
sideriug . each subject of legislation seperately, n
and on e own merits, as contemplated by the
spirit of the Constitution. henceforth, there
fore, hills containing a variety of eubjects of
legislation, dissimilar in their character and
purpose*, cannot receive the sanction of the
present Executive.
. . _
Another branch of the evil, and if possible
a still greater one, consists of epeeist and 10.
cal lailou. It i, to tlii, prmtice that we
are mainly indebted for an annual volume of
laws of most unseemly dimensions, and for a
seperate code for nearly every locality in the
State. The remedy for this must ho found in
the adoption of a few more general laws, and
the rigid administration of those already in ex. ,
istenee. Special acts, you will agree with mo.
should in no instance be passed where the ob
ject can be reached under general laws.
The law of 1791 and its several supplements
make provision for the creation nod amend
ment of corporations for literary, charitable and
religious purposes, and to create beneficiary
societies and fire engine and hose companies,
through the instrumentality of the Attorney
General and the Supreme Court. The act of
the 13th of October, 1929, extended this pow.
er to the courts of the several counties. The
acts of 183 E and 1838 make provision for the
association of individuals, through the instru
mentality of the Attorney General and the Gov
ernor, for the purpose of manufacturing iron
from mineral coal. In addition to these acts,
the law to encourage manufacturing, passed
in 1849, and its supplements, provide for asso
ciations for the purpose of inanufacturing wool
len, cotton, flax and silk goods, or for making
iron, glass, salt, paper, lumber, oil from rosin,
mineral paints, artificial slate, and for printing
and poblishing; nod the supplement of 1853
extends its provisions, in a modified form, to
the business of mining of almo3t every descrip.
tiou.
On the subject of erecting new townships
and incorporating boroughs, the courts have
unlimited power; and in the 'natter of selling
real estate, the property of minors, by guardi
ans, executors or others, acting in a fiduciary
capacity, the act of last session on this Subject
will, in my opinion, reach every imaginable
case. Its provisions should not be infringed,
for the subject belongs most legitimately to the
courts.
1 can see no reason why the power to desig
nate election houses-.head not be confined to
the commissioners of the several counties.—
Those officers are usually familiar with locali
ties, and can readily determine what arrange.
ment would best subserve the convenience of
the electors. In addition to the fact, which
will not be disputed, that this business receives
but partial consideration in the Legislature it
is objectionable, because of the the great space
it annually occupies in the journals and lam.
I am aware, however, that it has been suggest.
ed that the laws of the United States provide
that the places for holding the elections for
Members of Congress shall be fixed by the
Legislature of tie several States, and' that,
therefore, the end in view cannot be attained.
In answer to this objection, it maybe remark
ed. that the Legislature having in other instals•
cos delegated doubtful powers, such as the right
to make paper money, it is scarcely necessary
to rake the question of the right to delegate a
function so expressly conferred.
• Alarg,e number of the laws of the last us.
sion consist of special nets to incorporate com
panies to construct plank roads. This object,
right and proper in itscle, might, it seems to
me, be =6,1 by a general law, authorizing
the association of a number of citizens to con
struct these highways on proper conditions.
In former commeriications I have held the
doctrine, that but little legislation of any kind
was essential to the endi of mere business eit
terprise—to promote objects understood by all
anti within the reach of moderate means; and
that most certainly, whatever might me deem
ed expedient should he general in its charac
ter. That the Legislature had no moral right
to grant special advantrges to one citizen and
deny them to another; cud I have declined to
approve any act on this subject, where the cm ,
porators were not made liable in their individ
ual estates for the debts of the corporation.
No Clearer evidence, it seemd to me, can be
furnished to show that much of this special le
gislation is sought and is valuable only be
cause it is special, status is found in its own his.
tory. It will be remembered by many of you,
that during the Administration of Governor
Shank, numerous applications were made for
special acts to in corporate manufacturing coin
patties, and that the Governor refused to give
his assent to their passage. In 1849. a gener
al law to encourage manufacturing, liberal in
its provisions, was adopted, mid you will be as
tonished to learn that at this time there are not
a dozen companies in existence under it. Dul
ling the sessions of 1852 and 1853, much time
was coesumial in the consideration of special
acts to incorporate mining companies. Near
the close of she last session a general law on
the subject, applicable to all the counties in
the State except six, was passed, and although
this law is as favorable in its terms as the site.
cial acts solicited, but a single application 11119
been made under it for mining purposes; and
even in this instance operations have not coin.
menced. These are significant facts, and in
my opinion will fully justify the rejection anti
special acts on the subject in the future. I can
see no reason why this general law should not
be extended to the balance of the State, if the
people desire to have it; but no special act to
organize companies within the counties not in
cluded in the general law, can receive my ap
proval, and such as are now in my possession
of this character will be returned without the
Executivesanction.
At the date of MY last anneal message, pro
ceedings wore pending in the Supreme Court
of Pennsylvania, to test the right of Franklin
canal company to construct a railroad from
the City of Erie to the Ohio State liue. The
decision of the Court was against the compa
ny on the main point, and the opinion of Chief
Justice Black shows most clearly that the con•
erection of their road was without authority of
law. but the preliminary injunction prayed for
by the complainant was refused, on the ground
that the Commonwealth could not, under the
law give security for costs. The effect of this
decision was toplitce the privileges claimed by
the company within the control of the Legisla
ture.
In anticipation of this result, I had suggest.
ed to the General Assembly the propriety of
taking charge of these valuable rights, and so
far as might be practicable, without the exer
cise of an illiberable principle, render this im
portant link of communication, between the
seaboard and the great west, subservient to
the interests of the people of Pennsylvania.—
The subject was considered, but not finally
dispnded of.
In May last I received a communication
from the president of the company, covering I
the proceedings of a meeting of the board of
directors, in which, after allusion to the action
of the Supreme Court and the Legislature, a
snicker of propositions were submitted, hull.
eating the willingness of the company to par
certain rates of taxation for the unrestrained
use of the road, until after the coming session
of the Legislature, or until that branch of gov
ernment should net on the subject. Belieiing
that I had no right to make conditions with the
company, or even to receive the money which
they were willing to pay, I declined to enter
tain the proposition. The relations of the com
pany towards the State, therefore, have under
gone no change since the adjournment of the
last Legislature, except that the Attorney Gen
eral has recently taken measures to obtain a
final decree in the plea for an injunction and
by writ of QUO WARRANT° to revoke the franch
ises claimed by the company.
Recent occurrences at the city of Erie evince
and intensity of feeling amongst the people,
seldom equaled nn a question of this kind, in
dicating nut only the propriety, but necessity,
for precept and decisive legislative action, as to
the rights of this company.
It must be dlear to the impartial observer,
that the Legislature never intended, by any
previous net, to authorise the construction of a
railroad between the city of Erie and the Ohio
line. Indeed, the highest judicial tribunal in
the State Ms expressed the opinion, that no
such authority can be found in the charter of
the Franklin canal company; nod, in my opin
ion, the grant should hereafter be made on
such conditions only, ns will protect and ad
vance the interests of all the people of Penn.
Sylvania, eo far as they may be involved in the
siihject. It so happens that Pennsylvania
holds the key to this important link of connex
ion between the East and Coe West, and t moat
unhesitatingly tap, th;it "ere no principle of
111,11 , v ree 1.: 1 7. it ,
right and the duty of the State to turn her nat•
oral advantages to the promotion of the views
and welfare of her own people.
It may be said that n restriction that would
require a break of railroad gunge at the harbor
of Eric, would be the use of en illiberahle prin.
ciple. The answer is, that the necessity for a
break or gunge between the Ohio line and the
seaboard exists, as a cousnquenve of s differ
ence iu the width of the New York and Ohio
',lads. The only question to settle, therefore,
relates to the point at which it should oN or. I
have been able to discover no reasons, founded
in public policy, why the break should be fixed
at l3offalo, that do not apply with equal force
in favor of Erie. Tonnage and passengers
can be as well transhipped at the latter, as at
the former city.
So far as concerns the benefit of either city,
incident to a transhipment, the idea is unwor•
thy of notice. But the effects of a break Of
Euage, and consequent transhipment oast of
lie, upon the business of that harbour, must
be paralyzing, if not &tat. It would virtually
require shipments to be made either at Cleve.
land or Buffalo. Scarcely ie43 embarrassing
would this arrangement be upon the interests
of the Sunbury and Erie road, or any other
avenue that may hereafter connect the lake
with the city of Philadelphia.
. .
It may be that neighlioring states, possess•
ing similar natural advantages, would give
them away for our benefit. but I hove not been
able to discover any fact in the former policy,
to justify such a conclusion. I shall await your
action with anxiety.
The subscriptiohs of the cities of Philadel
phia and Pittsburg to the stock of the Penn
svivania railroad, arid the prompt payment of
the interest on the same. together with the flat
terin.e prospects of that imnrovement, had the
effect of extending the belief that municipal
subsriptions could be safely made to any simi
lar enterprise—that such subscriptions were in
truth, what had been alleged by some, a mere
loan of the credit of the respective municipal
corporations, and that neither principal nor in-
Wrest would ever be demanded.
The consequences of this plausible and se
ductive•doetrine were promptly manifested in
the form of numerous applicntions for legisla
tire authority to municipal bodies to subscribe
to railroad stocks in various parts of the State.
These applications were invariably pressed on
the plea of promoting public convenience and
the general prosperity, and a number of laws
of this character were adopted. So far as these
apply to cites and boroughs, their operation
has been rnther successful; but when applied
to counties it has certainly been much less so;
failing entirely in some instances, and in oth
ers leading to violent controversies amongst
the people, destructive to the value of the val
ue of the municiple bonds thus created. View
eel in every aspect, as a mere question of expe
diency, the experiments already made would
seem to weigh heavily against the policy of
such subscriptions; indeed, I have no hesitation
in saying that the aversion I have always en
tertained towards this principle, and especially
its extension to counties, has been greatly
strengthened by this experience, and we should
now, it seems to me, as a prudent people, prof
it by this lesson and avoid the practice in the
future. Always doubting the policy of such
subscriptions, and declaring my views freely
against them, I have not felt required to inter
pose the Executive prerogative nosiest the
judgment of the people directly interested in
the question; or in other words, to judge for e it
izens of a particular locality on a stibiect rela
ting merely to their pecuniary interests, or to
resist the wishes of their immediate represen
tives.
In a communication addressed to the Goa
coal Assembly in March, 1852, on this subject,
I remarked, "that the. power to subscribe should
never be exercised by municipal corporations.
unless the interests of the people represented
by such authority are directly and certainly
identified with the project on which the money ,
is to be expended. The operation of the prin
ciple may be equitable, when applied to the
people of a city or town, whose interests are
Identical, lint viten applied to the people of a
county, it may not be so. On the contrary, it,
may prove most unjust and cmpressive—snb
jecting the people to burthens in the shape of
taxes for the construction of public improve
ments, from which they may neverrealize ben.
eat, direct or remote. • The people in one sec
tion era county may derive valuable advents.
ges from the construction of a public work,
whilst those of another section, equally taxed
for the payment of the interest and principal of
the debt, so contracted, limy possibly realize
no benefit int n 11." It is to these eflects that
may be attributed the violent contests that
have grown up in certain counties, to which
the principle has been extended.
In the State of Ohio, where this dangerous
practice also prevailed, a constitutional pro.
hibition has been deemed necessary by the
people, and municipal subscriptions cannot
now be made, even with the of those affected
by the measure. The experience of that State,
as I have learned, was alike against the prac
tice of making improvements in this wily, and
that in the end, it became inefficient, through
the disposition of capitnlists and others to rely
alone upon municipal corporations for the
means of construe'ing public itnprovements.—
I am decidedly of the opinion, that a similar
decision would be made by the people of this
State, when the proper opportunity is present.
ed. In the meantime, this insidious and dan.
germs wile of contracting debts should he
guarded against with the utmost vigilance* I
shall indulge the hope, that nll future applies.
tions for legislation of this character, may be
rejected by the General Assembly.
It is my duty to inform von that $328,351 of
the relief issues of May, 1841, are still in ex* I
istence, and continue to „pollute the channels
of circulation. Under the provisions of' the
act of April last, $121,812 of these notes, of a
less denomination than five dollars, have been
cancelled, and the whole amount can. under
this Inn- '
be ultimately extinguished. But the
process has not been so rapid as was anticipa
ted, nor is it sufficiently so to meet the de.
mands of the public weal. I respectfully sup
gest, therefore, that the law be so amended as
to make it the duty of the State Treasurer to
retain from time to time, as near as practica
ble, the amount in relief notes, necessary to
meet the entire demands of the sinking fund.
I also recommend the repeal of the net of
April 10. 1849, authorizing the re-issue of this
curries Cy. •
The occurrences of the past year greatly
strengthen the views I expressed in my last
annual message, on the subject of the clime
ey. The dangers of au inflated paper system
have been most strikingly manifested ie the
experience of a number of the surrounding
States, and nothing, in my opiniqabayed our
own metropolis; i and possibly ot6l parts of
the State, from the consequences of a severe
contraction of the currency, but our visit agri
cultural and mineral productions, and the mi.
salmi:y high prices which these commanded
in foreign markets.
I have always held the doctrine, that our
country, like all others, must have a system of
currency; and whilst, there fore, I have resist
ed the excessive increase of banking capital,
I have not sought to uproot, entirely, the sys
tem we have. That it is the best that the wit
of man could devise, is not beleived, nor is it
probable that the authors of this paper system,
enjoying the experience of the present age,
and possessing the vast amount of coin now in
existence, would have entailed this evil upon
us. But we have it, and the best we can do is
to mitigate its consequences whilst it eedures,
and throw it oft' by degrees. 'believe that
the Pennsylvania system of paper money, res•
Ling on a specie basis, small as it is, and the
individual liability of the stockholders, is as
safe neatly other. I prefer it vastly to the
' loose plan existing in sonic of the neighboring
States, or to the scheme of the honking adop.
ted in other sections ofthe Union.
That bey system of blinking that authorizes
the emission of mail piper as n medium of
eirculatien, must entail evil consequences up•
on the country, him been too eleaily demon•
mildest by our own experience is, need eltiehlte
by argument. I' N!, therefore,
' that it is the true ;loth:y of thi t and of ad the
of a large denereinethm. Those of a small
denomination should be gradually withdrawn
from circulation, in order to ma ke room for
the vast accessions of the precious metals from
California end Australia. - In vain shall we
seek to disseminate coins throughout the coma
try, and Mace their circulation at points rss•
mote from the Atlantic cities so long as smelt
paper is permitted to exist. If notes of the
ficeominaton of five dollars were withdrawn
from the channels of circulation, the vacuum
thus created would be rapidly supplied with
gold and silver, and so also with thoao of a
greater nominal value. Bet so long as this
paper medium is permitted to circulate. It will
i
be mprasticable to induce the general diffu
sion of coin. The people inquire why ft Is,
that with the vast increase of gold so little LA
seen. The answer is. that bank notes Meer;
intervene. The trader, merchant and
and
retain the coin and pay out the paper; and the
only remedy is to be found in the removal of
the latter. There is, perhapi, no principle ap
plicable to this question better settled, than
that which proves that two kinds of currency,
differing in valise, will not circulate together.
The least valuable will constantly be obtruded,
whilst the more prccions will be displaced.—
The gradual withdrawal of the smaller denom
?union of paper, presents to my mind the
greatest practical reform that can be applied
to our system of currency. The exchange of
one paper system for another, and the incorpo.
of restrictions on this or that point of the ono
we have, although often right and necessary,
can never eradicate the evil.
I would not, however, be understood as fa
voring a very sudden alteration in our /system
of currency, regarding, as I do, all violent
changes in the policy of government as unjust
and oppressive. All the 'mines , ' arrange
ments of the country based upon our present
plan, and it is interwoven with the general af
fair. of life as to forbid its rapid withdrawal.—
But the beginning should be made, and wis
should prepare throw Vie system which will
in the fistnre, to a greater extent, perhaps,
than in the past, render our country tributary
to rivals, and snake our people "hewers of
wood and dressers of water to other nntione."
No other reform in the political policy of this
nation, I sincerely believe, would have such a
direct tondeney to promote all the great inter
ests of the American people. A practical, safe
and efficient mode of carrying out this work, is
to be found in the gradual extinguishment of
a small denomination.
This reform. however,lo be complete, and to
give the people the full benefit of its salutary
effects upon our commercial operations with
other nations,must be common to the whole
country. „ •The efforts of a single member of
the Coniederney, however thorough and well
directed, can achieve bet partial success.-
Even in a locatpoint of view they can scarce•
ly exercise a controlling influence. For In.
stance, vacuums in the channels of paper cit.•
relation in one State are too liable to be sup.
plied by the 1951109 of others, interdieted,though
the circulation of the latter may be, by positive
law. These considerations have suggested the
importance of is simultaneous action of the
States oil the subject, and it has occered •to
my mind, that n convention of delegates from
each, appointed by the respective legislatures:,
might be a good mode of directing public at.
:infirm to the subject, and securing efficient ac•
tion.
In the mean time, our State can take the
lend in. this work, as she can also carefully ro
s'rict the evil tendencies of the present system,
by requiring the instituetions now in existence
t, make mere frequent settlements, and yenner
more efficient her present system, by confining
the amount of banking capital,. as a basis of
paper imes, to the lowest point consistent with
the demands of legitimate business. I be
lieve the amount we have now comes up to
this standard, and thnt the best interest of thA
people require that it should not be inrreased.
Efforts, extensive, energetic, and highly coup
mendable are being tootle in all parts of the
country to advance the interest of agriculture,
by the dissemination of correct information
concerning this great pursuit, and in this way
bestowed upon the farmer, the blessings of a
scientific, as well re a greatly refined practical
understanding of the nol.ile work in Which ha
is engaged.
Pentisyvanin, so eminently an agrleultural
State, and therefore so deeply interested, can
not he indifferent to the merits of this enter
prise. Her best energies may wisely ba exer•
cued to secure its success. Already much has
been accomplished in the way of removing
prejudices heretofore extensively cherished
against any. system of agricultural education,
and by the extinguishment of doubts as to the
utility, or even the practicability, of applying
the principles of science to the business of far
mine.
The belief that these principles can be so
applied, I am gratified to perceive is rapidly
gaining popular favor. Indeed, the experi
ments which have beets made in this country
and in Europe, clearly establish the utility of
scientific farming, and in both, the necessity
for such a system is manifest.
A proper understanding of the constituent
elements of the soil—the influence of these in
the production'of vegetable matter—the means
of maintaining these elements in their original
strengths—the nature of stimulants for the son,.
and their proper use—the quality of seeds, and
the breed of animals, make up the main features
of this system. These subjects will constitute
an agreeable, and, I have no doubt, a highly
advantageous study for the farming commune•
In my last anneal message I suggested tho
propriety of appointing an Agricultural Chem
ist, to be paid a moderate salary, and whose
labors should he given to the State and county
societies. I still entertain the opinion that
such an officer, surrounded by proper opportu
nities, could render great service to the cause
of agriculture.
The utility of establishing an agriculture/
college, with a model farm attached, wherein
the principles of a scientific cultivation of the
soil and manual labor in that pursuit would be
joined to the usual academical studies,
has
been strongly urged upon my attention. Such
an institution and system of education, it is be.
Loved, would at the same time improve the
physical and moral condition of the profession.
al mercantile classes, and promote the social
and intellectual attainments of the agriculturist.
mechanic and laborer. in addition to the vast
benefits it would confer upon the pursuit of the
farmer. These considerations, and others
which will doubtless he presented by the advo•
testes of the proposed institution, will commend
the subject to your favorable consideration.
It is believed that such an institution can be
successfully organized under the auspices of
the State and county societies.
A highly useful institution has recently been
organized at Philadelphia, under the auspices
eliberal and patriotic citizens of that city and
iu pnrspance of an act of the last ses•
sins, named "The Polytechuio College of
Pennsylvania," in which the education of youth
in a practical knowledge of mining, manufac
turing and the mechanic arts is united with the
or di csiv literary studies. Surely, as meets car.
be done to impart a practical understanding
of the pursuit of the farmer.
Whims a few years past the general govete
ment has expended n large suns of nuance in
the construction of a dry dock at the Philuidek
phia navy yard, with a railway attached, to
facilitate the operation of raising and repairing
vessels. A survey of the Delaware river has
also been made, which justifies the opinion
that there is a sufficient depths of water in its
channel to admit vessels of a large class with
entire safety. • Thei locittion of this yard, on
the bank et' the Delaware, in the southern part
of the county of Philadelphia, accessible from
all points. surroubded by a vigorous and flour.
isliing population, and blessed with a healthy
climate, gives to it advantages not surpassed
by those surrounding the mire yards of any
section of the Union, There is, then, no rear
son why it should not receive a full Aare of
patronege from the Government. Why it two
not 1 . .e.n so favored I shall not at this time at•
tcositt to loans, but that the fact boo bun the
cease or reoret and colopinint among the
pvc.
pie of Philatielphm. nod q 4. er prate rf the