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 65th CONGRBSSl 
 
 jrf Sessio-n I 
 
 SENATE 
 
 fDoCUMRNT 
 
 I No. 448 
 
 ) f^ L c: tt. r ' 
 
 FRANCIS GRIFFITH NEWLANDS 
 
 ( Late a Senator from Nevada) 
 
 MEMORIAL ADDRESSES 
 
 ,> ,' zf 
 
 DELIVERED IN THE SENATE 
 OF THE UNITED STATES 
 
 SIXTY-FIFTH CONGRESS 
 
 Proceedings in the Senate 
 September 2, 1918 
 
 Proceedings in the House 
 January 3, 1918 
 
 PREPARED UNDER THE DIRECTION OF 
 THE JOINT COMMITTEE ON PRINTING 
 
 "> l^ 
 
 (.^/^ 
 
 WASHINGTON 
 1920 
 
b; of 3. 
 
 ii^l I 1920 
 
 
 % 
 
■c 
 
 TABLE OF CONTENTS 
 
 Page. 
 
 Proceedings in the Senate 5 
 
 Prayer by Rev. Forrest J. Pretlyman, D. D 5, 10 
 
 Memorial addresses by — 
 
 Mr. Key Pittnian, of Nevada 13 
 
 Mr. Henry Cabot Lodge, of Massachusetts 20 
 
 Mr. George E. Cliamberlain, of Oregon 22 
 
 Mr. William H. King, of Utah 24 
 
 Mr. James D. Phelan, of California 35 
 
 Mr. John F, Shafroth, of Colorado 43 
 
 Mr. Joseph E. Ransdell, of Louisiana 47 
 
 Mr. Charles S. Thomas, of Colorado 52 
 
 Mr. Albert B. Cummins, of Iowa 55 
 
 Mr. Charles B. Henderson, of Nevada 59 
 
 Letter from Mr. Willard Saulsbury, of Delaware.. 70 
 Resolutions of the Chamber of Commerce of Los 
 
 Angeles, Calif 8 
 
 Tribute by Prof. F. H. Newell, former Director of the 
 
 Reclamation Service 50 
 
 Memorial of National Reclamation Association 66 
 
 Proceedings in the House 73 
 
 Prayer by Rev. Henry N. Couden, D. D 73 
 
 Appendix — Remarks of Mr. Newlands in the Senate, August 
 2, 1917, on River Development — Water Conservation — Co- 
 ordinated Rail, River, and Ocean Transportation 75 
 
 [3] 
 
HON.KRAITCIS G-NETWLANDS 
 
DEATH OF HON. FRANCIS GRIFFITH NEWLANDS 
 
 Proceedings in the Senate 
 
 Thursday, January 3, 1918. 
 The Chaplain, Rev. Forrest J. Prettyman, D. D., offered 
 the following prayer: 
 
 Almighty God, in Thy great goodness Thou hast brought 
 us to the beginning of a new year. Thou hast enabled us 
 to write one of the fairest and greatest pages in the history 
 of the whole world in the year that has gone. We bless 
 Thee that Thou hast led us through the year with unity 
 of spirit and with devotion to the great and high ideals to 
 which this Nation has been consecrated. 
 
 We pray Thee that as we begin the new year we may 
 begin it under the inspiration and guidance of God alone. 
 Let Thy blessing rest upon every man whom Thou hast 
 called to a place of influence in this Nation, that he may 
 feel the support and interest and cooperation of all the 
 citizenship, that we may continue the unity of spirit and 
 purpose and effort until success comes to our enterprise. 
 
 We miss the genial face to-day of one of our colleagues 
 in this Chamber whom Thou hast called to the great 
 beyond. We thank Thee for the wide influence, for the 
 friendship, for the inspiration of his life. We pray that 
 Thy blessing may rest upon the inner circle of his loved 
 ones and that his memory may abide as an inspiration to 
 us all in this Chamber. 
 
 Now, God our Father, guide us by Thy counsel. Give to 
 us the continual influence of Thy Spirit. Bring us to the 
 end of our great national enterprise for the establishment 
 of peace and brotherhood in the earth. For Christ's sake. 
 Amen. 
 
 [5] 
 
Memorial Addresses : Senator Newlands 
 
 Mr. Martin. Mr. President, in the absence of the Sena- 
 tor from Nevada [Mr. Pittman] and acting in accordance 
 with a request from him sent to me by wire — and I should 
 say that Senator Pittman's absence is due to a delayed 
 train on which he is now traveling to Washington — it 
 becomes my duty to make public announcement on the 
 floor of the Senate of the death of the senior Senator from 
 Nevada, Senator Newlands. I ask that the telegram 
 received from Senator Pittman may be printed in the 
 Record. 
 
 The telegram referred to is as follows: 
 
 Charlottesville, Va., January 3, 1918. 
 Senator Martin, 
 
 United States Senate, Washington, D. C: 
 My train is five hours late. Should I not arrive in time, may 
 I beg you to move an adjournment in respect for the memory of 
 our late colleague, Senator Francis G. Newlands? In his death 
 our State and our Government has lost one of its foremost states- 
 men. He won the affection of his friends by his ever gentle, 
 genial, and considerate manner, and commanded the admiration 
 of all by the power of his statesmanship. His loss is bemourned 
 by all in our State. Al the proper time I will ask that a day be 
 set apart in which tribute may fittingly be paid to his memory. 
 
 Key Pittman. 
 
 Mr. Martin. I think, Mr. President, I can safely say 
 that Senator Newlands was not only held in high regard 
 but affectionate regard by every Senator on the floor 
 of this body. In addition to our personal loss, Mr. Presi- 
 dent, I feel that I should also add that the death of Sena- 
 tor Newlands in this crisis of our history is a great public 
 loss. His familiarity with the subject which is now 
 engrossing the attention of the country made his services 
 peculiarly desirable and efficient. But it has pleased 
 the Almighty to call him from our midst, and all we can 
 do is to bow humbly to that decree. 
 
 Later on a day, of course, will be fixed when proper 
 tribute may be paid to the memory of this distinguished 
 
 [6] 
 
Proceedings in the Senate 
 
 Member of this body. In the meantime, Mr. President, I 
 send to the desk resolutions which I ask may have imme- 
 diate consideration. 
 
 The Vice President. The resolutions will be read. 
 
 The resolutions (S. Res. 173) were read, considered by 
 unanimous consent, and unanimously agreed to, as fol- 
 lows : 
 
 Resolved, That the Senate has heard with profound sorrow of 
 the death of the Hon, Francis G. Newlands, late a Senator from 
 the State of Nevada. 
 
 Resolved, That the Secretary communicate these resolutions to 
 the House of Representatives and transmit a copy thereof to the 
 family of the deceased. 
 
 Mr. Martin. Mr. President, as a further mark of respect 
 to the memorj' of our deceased colleague I move that the 
 Senate do now adjourn. 
 
 The motion was unanimously agreed to; and (at 12 
 o'clock and 5 minutes p. m.) the Senate adjourned until 
 to-morrow, Friday, January 4, 1918, at 12 o'clock m. 
 
 Friday, January 4. 1918. 
 
 A message from the House of Representatives, by Mr. 
 G. F. Turner, one of its clerks, announced that the House 
 had passed resolutions relative to the death of Hon. 
 Francis Griffith Newlands, late a Senator from the State 
 
 of Nevada. 
 
 Monday, January 7, 1918. 
 
 The Vice President. The Secretary will read the fol- 
 lowing letter. 
 
 The Secretary read as follows : 
 
 January 5, 1918. 
 
 My Dear Mr. Vice President: I beg to express to you and 
 through you to the Members of the Senate my appreciation of 
 your friendly sympathy during these last sad days. 
 
 My husband treasured the friendships he had formed in the 
 Senate and valued his associations there beyond any other in- 
 terest. 
 
 [7] 
 
Memorial Addresses: Senator Newlands 
 
 The evidences of the friendly feeling which his associates had 
 for him, as expressed by you and them, have been most grateful 
 to me. 
 
 Very sincerely, yours, 
 
 Edith McA. Newlands. 
 
 Thursday, February 7, 1918. 
 
 Mr. Phelan. Mr. President, I present resolutions adopted 
 by the Chamber of Commerce of Los Angeles, Calif., which 
 I ask may be printed in the Record. 
 
 There being no objection, the resolutions were ordered 
 to be printed in the Record, as follows: 
 
 Whereas a great leader in the development of the West has been 
 
 lost to the country by the recent death of Senator Francis G. 
 
 Newlands, whose years of devotion to the cause of national 
 
 reclamation and river regulation contributed so largely and 
 
 were so indispensable to the success of the campaign for the 
 
 United States reclamation act, passed in June, 1902, and the 
 
 Newlands river regulation amendment, passed as section 18 
 
 of the rivers and harbors bill in August, 1917: Now, therefore, 
 
 be it 
 
 Resolved, That the Los Angeles Chamber of Commerce hereby 
 
 expresses its deep appreciation of the public services rendered 
 
 by the late Francis G. Newlands in his long career as a Member 
 
 of the House of Representatives and the Senate of the United 
 
 States, and its profound regret that his death should have brought 
 
 that career to an end; and be it further 
 
 Resolved, That a copy of these resolutions be spread upon the 
 
 records of this chamber' and a copy thereof sent to the family 
 
 of the deceased and to the President of the Senate. 
 
 I hereby certify that the above is a true and correct copy of 
 
 resolutions adopted by the board of directors of the Los Angeles 
 
 Chamber of Commerce at their regular meeting on Wednesday, 
 
 January 2, 1918. 
 
 Oscar C. Mueller, 
 
 Vice President. 
 Attest: 
 
 Frank Wiggins, Secretary. 
 
 Saturday, July 13, 1918. 
 Mr. PiTTMAN. Mr. President, after consultation with the 
 senior Senator from Virginia [Mr. Martin], I desire to 
 
 [8] 
 
Proceedings in the Senate 
 
 give notice tliat on Monday, the 26th day of August, fol- 
 lowing the routine morning business, I shall ask that the 
 unfinished business be temporarily laid aside, that the 
 Senate may have an opportunity to pay respect to the 
 memory of the late Senator Francis G. Newlands. 
 
 Wednesday, August 28, 1918. 
 
 Mr. Beckham. Mr. President, it is my sad duty to an- 
 nounce to the Senate tlie death of my distinguished col- 
 league, Hon. Ollie M. James, which occurred at the Johns 
 Hopkins Hospital in Baltimore this morning about 6.30, 
 and while it has not been unexpected for some time it 
 comes as a great shock to all of us and to all who knew 
 him. 
 
 Mr. PiTTMAN. Mr. President, this is the day which had 
 been agreed to by the Senate for holding memorial exer- 
 cises in respect to the memory of the late Senator from 
 Nevada, Francis G. Newlands. I, as does every Member 
 of the Senate, concur in the sentiments expressed by the 
 Senator from Kentucky relative to our beloved friend, 
 and, of course, in the circumstances it is fit and proper 
 that this body shall adjourn in accordance with custom, 
 and I have been informed by the Senator from Kentucky 
 that he is about to make such a motion. I know that the 
 action proposed by the Senator from Kentucky will meet 
 with the entire approval of the family of the late Senator 
 and that this custom of the Senate is thoroughly under- 
 stood. But before action is taken upon that motion out of 
 respect to the late Senator James I give notice that on 
 Monday morning, immediately after the Senate convenes, 
 the memorial exercises in respect to the memory of the 
 late Senator Francis Griffith Newlands will be held by 
 unanimous consent. 
 
 Mr. Beckham. Mr. President, as a further mark of re- 
 spect to the memory of Senator James I move that the 
 Senate do now adjourn. 
 
 [9] 
 
Memorial Addresses: Senator Newlands 
 
 The motion was unanimously agreed to; and (at 12 
 o'clock and 10 minutes p. m.) the Senate adjourned until 
 to-morrow, Thursday, August 29, 1918, at 12 o'clock m. 
 
 Monday, September 2, 1918. 
 The Chaplain, Rev. Forrest J. Prettyman, D. D., offered 
 the following prayer: 
 
 Almighty God, we how before Thy sovereignty and call 
 upon Thy name seeking Thy blessing and guidance this 
 day. This day has been set apart in the interest of that 
 great toiling mass who have added so much happiness 
 and prosperity to our country. We pray that Thy bless- 
 ing may rest upon the toilers of our land. We thank 
 Thee for the nobility of this class of our citizenship, for 
 their loyalty to the Nation, and their devotion to the flag. 
 They have been called upon to perform a great task in 
 the present world conflict. Give to each one a clear vision 
 of the glory of their toil as a part of the Nation's struggle 
 to preserve our liberties. Bless them with happy homes 
 and the widest opportunities for advancement in life. 
 Grant, we pray, that Thou wilt, through the ministry of 
 this day, bring together in closer fellowship and sympathy 
 all the classes of our citizenship, that we may realize the 
 oneness of our national life and of the high aims that 
 we have before us to-day. As we remember to-day, ac- 
 cording to the program of this day, one who has passed 
 away from the membership of this Senate we pray that 
 Thy Spirit may lead us to remember the uncertainties of 
 life, and lead us to cherish the memories of men who have 
 so truly served their day and generation, and hold sacred 
 their names in the list of the honored of our land, that 
 they may not be forgotten but abide as an inspiration to 
 those who follow them. Hear us in our prayer. For 
 Christ's sake. Amen. 
 
 Mr. PiTTMAN. Mr. President, the ceremonies that we in- 
 tend to hold to-day were to be held last Wednesday, but 
 
 [10] 
 
Proceedings in the Senate 
 
 at that time it was unanimously understood that they 
 would be postponed until to-day, and that on to-day 
 no other business would be transacted. 1 do not know 
 whether the understanding has been placed in the regular 
 form of a unanimous-consent agreement, and therefore 
 I ask unanimous consent that the reading of the Journal 
 be dispensed with, that the morning business be dispensed 
 with, and the unfinished business temporarily laid aside 
 for the day, and that upon the completion of the cere- 
 monies the Senate shall adjourn until Tuesday at 12 
 o'clock. 
 
 The Vice President. The Senator from Nevada asks 
 unanimous consent that the reading of the Journal be dis- 
 pensed with, that morning business be dispensed with, 
 that the unfinished business be temporarily laid aside, 
 that the proceedings of the day consist of memorial ad- 
 dresses on the life and character of the late Francis G. 
 Newlands, a Senator from the State of Nevada, and that 
 at the conclusion thereof the Senate shall adjourn. Is 
 there objection to the request of the Senator from Ne- 
 vada [Mr. Pittman] ? The Chair hears none. 
 
 [11] 
 
MEMORIAL ADDRESSES 
 
 Address of Mr. Pittman, of Nevada 
 
 Mr. President: Francis Griffith Newlands, late Sena- 
 tor from the State of Nevada, passed away on the 24th 
 day of December at his home here in Washington. In his 
 intellectual prime and splendid physical vigor, his death 
 came as a severe shock to his colleagues. There was no 
 warning to prepare us for the great loss. During the en- 
 tire session, yes, even to the day of his departure, his bril- 
 liant mind and active body were busily engaged with 
 legislation vital to the welfare of our country. 
 
 As chairman of the great Committee on Interstate Com- 
 merce of the Senate, during a period when transportation 
 was the lifeblood of nations in a world's war for exist- 
 ence, every resource of his masterful mind and every 
 nerve of his body were self-sacrificingly dedicated to his 
 patriotic task. 
 
 Mr. President, Francis G. Newlands was wont to carry 
 his heavy burdens in so happy a manner and to accom- 
 plish his great undertakings with such modesty that even 
 his family and most intimate friends did not realize that 
 he had given all he had to give in this existence to the 
 cause of his country. He went over the top and gave his 
 life with the same unflinching bravery and glorious patri- 
 otism that has lifted our boys in France above earthly 
 praise. He has gone and the Nation has lost a great and 
 good man. He enjoyed the profound respect and the deep 
 affection of every Member of this body and we grieve with 
 his family and our heartfelt sympathy goes out to them. 
 
 Mr. President, the life of Senator Newlands was such 
 as is rarely allotted to man. He was born in Natchez, 
 
 [13] 
 
Memorial Addresses: Senator Newlands 
 
 Miss., August 28, 1848. His parents were of good old 
 Anglo-Saxon stock, possessed of the means to give their 
 son every advantage of learning and culture. He received 
 his education from private tutors and at Yale College and 
 the Columbian Law College. When 22 years of age he 
 was admitted to the practice of law in the District of 
 Columbia. This, however, was not to be the arena for his 
 enterprise. Even then he had visions of a broader field 
 of endeavor. With that independence and fearlessness 
 that marked his whole life he enthusiastically pursued his 
 destiny. 
 
 Immediately after his admission to the bar he removed 
 to San Francisco, Calif., then the pioneer cosmopolis of our 
 country, and cast his career in its wild, brilliant, complex 
 atmosphere. Those were the days of gold. Its irresistible 
 magnetism had drawn from the four corners of the earth 
 typical specimens of all God's creation. The Mexican 
 relic of the hacienda California, the rough miner, the 
 brazen gambler, the cunning confidence man, the patient 
 padre, and the new millionaire lived, dined, and brushed 
 shoulders with distinguished jurists, eminent scientists, 
 and superior men of every occupation, all drawn to the 
 golden Mecca by the same alluring power, a power that 
 must be felt to be understood. Not the sordid greed for 
 gold that puts its mark upon the miser, but the exhilarat- 
 ing joy of discovering it in nature's hiding places and 
 giving it bounteously to the world — the power of romance, 
 hope, and unrestricted opportunity. 
 
 The legal history of the West is illuminated by the 
 names of the great lawyers who came from every section 
 of the United States, moved by the same vision that ap- 
 peared to Francis G. Newlands. Neither the influence of 
 family, wealth, nor prior prestige had power of conquest 
 in that new world. Every man was weighed and meas- 
 ured for his intrinsic worth. It was a frank, independent, 
 fearless, vigorous, charitable, generous, fighting commu- 
 
 [14] 
 
Address of Mr. Pittman, of Nevada 
 
 nity. There was no such thing as equality of accomplish- 
 ment nor of existence. A man either went over the top or 
 was shot at dawn. 
 
 Into this maelstrom of action and events went the 
 young Newlaxds, without introduction, wealth, or influ- 
 ence. In four years he had fought his way to the forefront 
 of the San Francisco bar. As general counsel for the min- 
 ing interests of Senator Sharon in the great Comstock 
 mines he became a frequent visitor to the State of Ne- 
 vada. He became acquainted with her vast acres of rich 
 soil impatiently waiting for the tardy hand of government 
 to permit the waters of the mountains to flow over their 
 bosoms and fertilize them into wonderful productivity. 
 He saw the great silver producers of the State, that had 
 sustained the Nation's credit in its hour of panic, calling 
 for a champion to tear away the heavy hand of those who 
 would destroy them. It was a great arena for a great 
 fighter, and Francis G. Newlands longed for the fray. In 
 1888 he moved to Nevada, established his home, took an 
 active part in the development of the State, and became 
 one of its largest landowners. 
 
 Nevada at that time was suffering from the effects of 
 the demonetization of silver and the negligent attitude of 
 the National Government toward its public lands, which 
 embraced 95 per cent of the area of the State. The people 
 of Nevada were thoroughly aroused by these intolerable 
 conditions. Naturally, Mr. Newlands was animated by 
 the local sentiment, but his sincere belief in the economic 
 soundness of bimetallism could not be doubted by anyone 
 who had read or listened to his persuasive addresses upon 
 this subject. He was deeply sympathetic with the silver 
 miner and was conscious of the violent legislative injus- 
 tice done a great western industry, yet he did not base his 
 principal arguments upon these grounds, but, in the char- 
 acteristic manner in which he approached all great prob- 
 lems, he considered and presented the subject from the 
 
 [15] 
 
Memorial Addresses: Senator Newlands 
 
 broad standpoint of the national welfare. He soon be- 
 came one of the strongest advocates of the principle and 
 was recognized throughout the country as a leader in the 
 movement. 
 
 Tn January, 1892, in the city of Washington, he actively 
 participated with other great leaders in the organization 
 of the American Bimetallic Party. This organization was 
 rather of the character of a committee, but it was the 
 forerunner and the inspiration for the organization of 
 the National Silver Party, which held its convention at 
 St. Louis, Mo., on the 26th day of July, 1896, and which 
 nominated William J. Bryan, the then Democratic candi- 
 date, as its candidate for President of the United States. 
 Senator Francis G. Newlands was chairman pro tempore 
 of this remarkable convention, and as such officer was 
 delegated the honor of laying down the principles of 
 bimetallism. 
 
 In the same year he also participated in the organiza- 
 tion of the Silver Party in Nevada and became its first 
 nominee for Representative in Congress. A newcomer to 
 the State and a stranger to most of its citizens, he entered 
 the campaign with the same fearlessness that marked his 
 rise in San Francisco, and through the force of his own 
 ability and personality was elected by the largest plu- 
 rality ever given any candidate for the high office. 
 
 In 1894 he was elected upon the concurrent nominations 
 of the Silver Party and the Silver Republican Party. In 
 1896, 1898, and 1900 he was successively returned to Con- 
 gress upon the nomination of the Democratic Party and 
 upon the indorsement of the Silver Party, This term 
 ended his brilliant career in the House of Representatives. 
 As a Member of that body he served upon several great 
 committees and took an active part in the debates upon 
 the floor. 
 
 Immediately upon his induction into office as a Mem- 
 ber of the House he vigorously attacked the problem of 
 
 [16] 
 
Address of Mr. Pittman, of Nevada 
 
 national conservation of the waters of the West and the 
 reclamation of its vast valleys of arid but fertile Govern- 
 ment lands. The policy was then considered by almost 
 the entire membership of Congress as an Utopian dream 
 of most radical and impracticable State socialism, un- 
 worthy, even, of the gentle ridicule of profound and dis- 
 tinguished statesmen. Conservation had not then be- 
 come the stepping-stone for statesmen and the football 
 for fools. Its dawn was not visible except to the few far- 
 sighted statesmen. Day by day, and month by month, his 
 unanswerable logic and persuasive pleas fell upon unlis- 
 tening ears. Session after session he saw his legislative 
 provisions silently and contemptuously brushed aside. 
 Yet for 10 years in the House of Representatives he per- 
 sisted in his untiring efforts, and with that fortitude, pa- 
 tience, and faith that is so rare in legislators and that so 
 peculiarly characterized our deceased colleague slowly 
 but surely he won the country to his views and after 10 
 years of unceasing labor Congress passed the Newlands 
 national reclamation act. 
 
 This law has transformed hundreds of thousands of 
 acres of desert land into blooming, productive fields; has 
 made happy homes for thousands of citizens, and en- 
 riched his State and the Nation. Senator Newlands has 
 many splendid acts of statesmanship to his credit, yet this 
 alone will cause his name to live in the hearts of the West 
 and upon the pages of his country's history. 
 
 In 1902 he was nominated by the Democratic Party for 
 United States Senator and indorsed by the Silver Party. 
 That was the last year of the existence of the Silver Party. 
 It had played its part, its work was done. At the ensuing 
 election he was elected as a Member of this body by an 
 overwhelming vote. Again in 1908 and 1914, as the can- 
 didate of the Democratic Party, he was returned to the 
 Senate. Immediately upon taking up his duties in the 
 Senate he continued his constructive work for the conser- 
 
 115652°— 20 2 [17] 
 
Memorial Addresses: Senator Newlands 
 
 vation, control, and utilization of the flood waters of our 
 rivers. His comprehensive and magnificent plan contem- 
 plated the impounding of such flood waters at or near the 
 source and their control and utilization for irrigation and 
 in aid of navigation upon our inland waterways. He de- 
 plored the neglect of our inland waterways and their 
 abandonment as arteries of trade. He clearly saw the era 
 rapidly approaching when these great public highways 
 would be essential to the speedy and economical transpor- 
 tation of the tremendous and rapidly growing traffic of 
 our country. How clear was his vision is conclusively 
 proven by the present conditions. Just before he gave up 
 his life work, and after 16 years of able and persistent 
 endeavor, his heart was made glad and his patient labors 
 were rewarded by the initiation of the first step in his 
 great program. 
 
 Mr. President, I will not further attempt to review other 
 important acts of legislation in which he played a leading 
 part. These are all matters of record, and further, Mr. 
 President, are more familiar to some of his other col- 
 leagues who participated directly with him in such mo- 
 mentous undertakings. 
 
 Mr. President, Senator Newlands was peculiarly a na- 
 tional statesman. His mind dwelt upon large national 
 and international problems. His wonderful vision and 
 progressive ideals frequently led him away from the pres- 
 ent into the impending realm of future activity. Vigilant 
 and vigorous though he was in the protection of the local 
 interests of his State, he never emphasized this branch 
 of his service nor attempted to use it for political profit. 
 He took no pleasure in the power of political patronage 
 and cringed from the practice of minor political arts. He 
 was firm in his adherence to certain principles of govern- 
 ment, but was individualistic rather than partisan in 
 politics. He was a happy, sociable, congenial man, who 
 loved his fellow man, and yet he made no effort to utilize 
 
 [18] 
 
Address of Mr. Pittman, of Nevada 
 
 these charming gifts to win the support of the voters of 
 his State. He seemed to feel that such a method of cam- 
 paigning was a reflection upon the intelligence of the 
 citizens of his State and a depreciation of the great office 
 which he represented. He was a politician only in the 
 highest sense of the term. And yet, Mr. President, no man 
 ever had a stronger hold upon the confidence and loyalty 
 of the people of his State than did Francis G. Newlands, 
 They knew the man. They had confidence in his ability, 
 sincerity, and loyalty. They recognized his statesman- 
 ship and were proud to have him as the representative of 
 the State of Nevada. 
 
 The private and domestic life of Senator Newlands 
 were equally idealistic. In 1874 Clara Adelaide Sharon, 
 daughter of Senator Sharon, of Nevada, became his wife. 
 To this short but happy union three daughters were 
 born to give pride and happiness to their father through- 
 out his entire life. In 1882 Clara Sharon Newlands passed 
 away. The period of his widowerhood was probably the 
 only sad years of his long life. In 1888 he was united in 
 marriage to Miss Edith McAllister, the daughter of the 
 dean of the San Francisco bar. No union could have 
 been more complete or happy. A woman of remarkable 
 ability, splendid education, and unusual accomplish- 
 ments, she became his daily companion in all of his 
 thoughts and works. Through her charming hospitality 
 and entertaining personality she attracted to their home 
 in Nevada and their home in Washington the most de- 
 lightful men and women in public and private life. His 
 happy disposition reflected the love and admiration of 
 his family and friends. 
 
 He was a devoted husband and father, a true friend, a 
 fearless man, and he died while performing his public 
 duties after 25 years of continuous service on behalf of 
 his State and his country. 
 
 [19] 
 
Address of Mr. Lodge, of Massachusetts 
 
 Mr. President : Senator Newlands became a Member of 
 the House on March 4, 1893, the same day on which I took 
 my seat in the Senate, and from that day until his death — 
 for 25 years — we were friends, meeting constantly not 
 only in the Senate but elsewhere. I felt for Senator New- 
 lands always a very real affection, and his death meant to 
 me the loss of a most valued friend. 
 
 It is not for me to sketch the history of his life. That 
 will be better done by others. I desire only to speak 
 briefly of the man as I knew him. He was very active 
 always in the work of the House and the Senate. He was 
 a man who was both liberal and tolerant, and he was one 
 who thought for himself and had many ideas of his own 
 which he desired to put into the form of law. People 
 were apt, I think, to regard him in some degree as a 
 dreamer, but many of his dreams have finally found either 
 complete or partial expression in laws which have been 
 passed. He was very pertinacious about any idea or any 
 scheme which he had once adopted, and neither opposi- 
 tion nor indifference could turn him from his path. But 
 however impracticable some of his theories may have 
 been thought at the time or subsequently, everyone had 
 to admit that they were designed to promote the welfare 
 of the country and the well-being of his fellow citizens. 
 His designs were large, but their purpose was always a 
 good one. He did not confine himself to the subjects 
 which greatly occupied his mind, like the coordination of 
 Government activities and the development of our inter- 
 nal navigation. He spread himself over a much larger 
 field, for he was a lover of art and architecture, and he 
 had a realizing sense of the permanency involved in build- 
 ings and monuments. He addressed himself in obedience 
 
 [20] 
 
Address of Mr. Lodge, of Massachusetts 
 
 to these desires and tastes to the improvement of the city 
 of Washington. We are painfully familiar with Members 
 of Congress in both branches who find it desirable to assail 
 Washington and its people, which can be done with 
 political safety and possibly with political profit. From 
 such persons as these Senator Newlands widely differed. 
 He worked for the improvement of W^ashington not be- 
 cause there was any political profit in it, for there was 
 none, but because he desired to see our Capital City 
 worthy of the Nation which established it. It was most 
 disinterested and most unselfish work, and his name 
 stands with the very few in House and Senate who have 
 labored in season and out for the interests of Washington 
 with no thought except what was best for the Capital of 
 the country. 
 
 After all, however, that which is uppermost in my mind 
 is the thought of the man and the friend who has gone. 
 He always seemed to me to be one of the very best tem- 
 pered men I have ever known. No difference and no 
 opposition ever seemed to change his pleasant ways 
 toward those who did not agree with him. His ability no 
 one questioned, and everyone recognized that he was one 
 of the most agreeable companions and one of the pleasant- 
 est of friends. It was always a happiness to meet him 
 everywhere, and he had in large measure that most im- 
 palpable and most attractive of all qualities — personal 
 charm. In the lives of all who have known him and who 
 have had a warm affection for him he leaves a gap which 
 is one of those that can not be filled. 
 
 [21] 
 
Address of Mr. Chamberlain, of Oregon 
 
 Mr. President: It is fitting tliat we pay tribute to the 
 memory of our late and beloved colleague, Francis G. 
 Newlands. 
 
 It has been my privilege and pleasure to know him quite 
 intimately during the past 15 years, and as I look back 
 over that acquaintance it is gratifying to me to know that 
 nothing has ever transpired to interrupt a delightful 
 friendship. 
 
 It is hard to realize that he is no longer with us. The 
 fleeting years had dealt with him so kindly that he seemed 
 at the time of his death almost in his prime, and there 
 was eveiy indication that he would yet be spared to round 
 out a busy and useful life. Words are feeble things when 
 one undertakes to give utterance to the thoughts in one's 
 mind when the heart is distressed over the loss of a dear 
 friend or loved one. So now I find myself unable to give 
 expression to my feelings in reference to our dear dead 
 friend. 
 
 He was in many respects a very remarkable man. Born, 
 as he was, in the South, while yet a boy he took up his 
 residence in the West and, it might be said, grew up with 
 it. He loved the West as the West loved him, and there 
 was constantly in his mind the thought of constructive 
 legislation which would benefit the section which he so 
 ably represented. I think it may be safely said that no one 
 did more and probably no one did as much as he in the 
 matter of legislation that would result in reclamation of 
 arid and semiarid lands. He had much to do with the 
 original Carey Act, as he had with the later act providing 
 for the reclamation of Government lands. These acts 
 bear the impress of his brain and hand. Together they 
 have added millions of wealth to the semiarid States and 
 furnished homes to the homeless from nearly every State 
 in the Union. 
 
 [22] 
 
Address of Mr. Chamberlain, of Oregon 
 
 For a number of years he has worked most diligently 
 along the lines of conservation of our natural resources, 
 and his colleagues will remember how zealously he has 
 contended for the storage of waters at the head of navi- 
 gable streams, with the object in view, first, of reducing 
 flood devastation, and, second, utilization of these stored 
 waters for the purpose of reclamation. In my opinion he 
 impressed the country not only with his sincerity in this 
 behalf but of the entire feasibility of his plan, and after 
 years of effort the first steps are being taken to carry out 
 a part of his program. His persistency in the accomplish- 
 ment of legislation which was near to his heart was the 
 wonder and admiration of his friends, whether they 
 agreed with him or not. In season and out of season he 
 took occasion to impress his views upon the Senate, and 
 always did it eloquently and ably. The record of his long 
 and splendid public service has been dwelt upon by his 
 colleagues, and I merely mention the two or three things 
 with which his name must ever be connected and which 
 have done so much for the happiness of mankind. 
 
 In his association with his colleagues he was always the 
 same cordial, kind-hearted, chivalrous gentleman, and, 
 although I have seen him laboring under great provoca- 
 tion, I never saw him lose his temper. I have sometimes 
 wondered how he maintained such splendid equilibrium 
 at all times and under all circumstances. In all the years 
 of our acquaintance I never heard him speak unkindly of 
 friend or foe, and that can not be said of many men in 
 public life. There was always that in his heart which 
 made him love to do a kindly act or to say a pleasant 
 thing of his fellow man. Those of us who have enjoyed 
 the hospitality of his delightful home look back with 
 pleasure upon our association with him there. A genial 
 and lovable man in all his associations, he was at his best 
 as a host. He possessed that peculiar charm of manner 
 that made all who approached love and admire him. 
 
 [23] 
 
Address of Mr. King, of Utah 
 
 Mr. President: I did not know until a few moments 
 since that I was to be honored in having an opportunity 
 to submit a few observations upon this occasion. While 
 I appreciate the courtesy extended me to say a few words, 
 I know I shall fail to give utterance to what is within my 
 heart to say concerning the memory of one whom I loved 
 so well. And what I shall say will be a very imperfect 
 tribute to a great man who has gone from our midst and 
 whose death has resulted in a loss which is irreparable. 
 While these memorial exercises have been in progress I 
 have been thinking of great public characters whom I 
 have had the honor of knowing and who have passed to 
 the great beyond; and I can truthfullj^ state that, much 
 as I esteemed and honored them, the death of none gave 
 me such poignant grief and sorrow as that of the demise 
 of Francis G. Newlands. There was no one in public life 
 for whom I entertained so deep an affection as I did 
 for him. 
 
 His death, therefore, means to me much more than the 
 passing away of a great public character; it means the 
 loss of one whose friendship I prized, whose companion- 
 ship I cherished, whose qualities of head and heart drew 
 from me deep and lasting affection for him. 
 
 My acquaintance with Senator Newlands began at the 
 special session of Congress in 1897. I had known of him 
 prior to that time because his fame had spread through- 
 out the West. He had been conspicuous in the advocacy 
 of great and important fiscal policies and in the discus- 
 sion of questions relating to the development of the West 
 and the resources of our country. When I came, as a 
 young man, to the House of Representatives I immedi- 
 ately sought an acquaintance with Mr, Newlands, the 
 
 [24] 
 
Address of Mr. King, of Utah 
 
 then Representative from the State of Nevada. Because 
 of his great ability, his high character, his qualities of 
 leadership, I sought an opportunity to know him and was 
 glad to regard him as a mentor and as a guide. I had 
 somewhat of the feeling toward him then that finds ex- 
 pression in the words of the intrepid Kent, who said to 
 the kingly Lear : 
 
 You have that in your countenance which I would fain call 
 master — authoritj'. 
 
 He exhibited so much of wisdom, of sagacity, of bril- 
 liant statesmanship, and possessed so clear a vision of 
 the future of the needs of our Nation, and he spoke with 
 such assurance and such authority, that I was glad to 
 stand near him and to follow his leadership upon great 
 and important questions. In the great battles which he 
 waged in the House, and those in which he participated 
 in this forum, I always thought of him as one — 
 
 Whose armor conscience buckled on. 
 Whom zeal and charity brought to the field, 
 As God's own soldier. 
 
 The Civil War and the period of reconstruction follow- 
 ing, as well as a consideration of the important questions 
 which called for national legislation, seemed to have 
 clouded the vision of our countrj^ to the West and to its 
 resources and possibilities. There were many in our 
 country who regarded the arid and semiarid West as an 
 encumbrance and liability to our Nation, and any attempt 
 to present the interests of the West or to discuss policies 
 relating to the conservation of the Nation's resources or 
 the development of the resources of the West provoked 
 bitter criticism. There were some who felt that most 
 of the territory lying west of central Nebraska was value- 
 less, and that those who resided in the western part of the 
 United States were suffering from an incurable mania 
 growing out of bimetallism. There were many in the 
 
 [25] 
 
Memorial Addresses: Senator Newlands 
 
 National Legislature and in high positions in our land 
 who could not see that all the States were linked together 
 and that whatever brought prosperity and development 
 to one section of our Nation added to the general advance- 
 ment of the entire country. 
 
 When I entered the House Senator Newlands was 
 attempting to secure legislation for the reclamation of 
 the arid lands of the Nation. He had given profounder 
 thought to irrigation problems, to the questions connected 
 with opening up and settling the public lands, the im- 
 pounding of the waters found at the sources of our great 
 rivers, the question of preserving the Nation's forests, and 
 the general question of conservation than any other man 
 in public life. In dealing with these and related ques- 
 tions he w^as easily supreme. He studied these problems, 
 not as mere local questions, but in their national aspect, 
 and as they affected the future growth, development, and 
 prosperity of the entire people of our land. 
 
 At that time I was honored with his friendship and con- 
 fidence, and I am happy to say that the friendship then 
 formed continued without interruption until he passed 
 from our midst. I was frequently called into conferences 
 which he held concerning the great reclamation bill and 
 other legislative measures with which he was identified; 
 and it was my privilege to be permitted to cast the decid- 
 ing vote which first reported the Newlands reclamation 
 bill from the committee to the House of Representatives. 
 In the sessions of the Fifty-fifth and Fifty-sixth Con- 
 gresses, at which time I was intimately associated with 
 Senator Newlands, he not only gave earnest attention to 
 the questions to which I have just referred but he was 
 deeply interested in all matters affecting our Nation's 
 welfare. 
 
 I recall that in the Fifty-fifth Congress Senator New- 
 lands offered a resolution in the House for the annexation 
 of the Hawaiian Islands. He believed, with Seward, that 
 
 [26] 
 
Address of Mr. King, of Utah 
 
 the Pacific Ocean would become the tlieater upon which 
 our Nation would play a most conspicuous part. I re- 
 member his sagacious remarks concerning oriental trade 
 questions and the sound statesmanlike views which he 
 frequently enunciated concerning the future relations 
 between the United States and China and Japan. He 
 appreciated the fact that with the progress of civilization 
 nations would be drawn closer together, and that there 
 must be more toleration and sympathy between nations. 
 He believed that our Nation should possess a strong Navy, 
 and that the important part which our country would 
 take in the Pacific Ocean required that we should have 
 a strong naval base in the Hawaiian Islands. He loved 
 peace and desired that the policies of our Nation should 
 be so just as to command the respect and admiration of 
 all other nations, but he comprehended that there were 
 nations that were selfish and ambitious, and that to secure 
 our rights and protect our national honor it was essential 
 that our Na\y should be brought to a high stage of 
 perfection. 
 
 Perhaps no man in our country had so great a grasp 
 of the intricate questions involved in transportation 
 problems as did Senator Newlands. In his able addresses 
 he showed the intimate relation between transportation 
 and material prosperity. He challenged attention to the 
 discriminations under which certain sections of our 
 country labored at the hands of the great transportation 
 companies of the land. He sought to improve the con- 
 dition of our railroads and mitigate the evils and burdens, 
 unjust and unnecessarj', to which the railroad companies 
 were subjected; to unify in a proper way, without destroy- 
 ing competition, the railroad systems of our land; to 
 effectuate reductions in freight rates, and to secure a 
 beneficent and just control over public utilities that would 
 prove of advantage to the people as well as to the investors 
 in the stocks and bonds of transportation corporations. 
 
 [27] 
 
Memorial Addresses : Senator Newlands 
 
 He had large plans in process of development which 
 would have, in m}^ opinion, resulted in the greatest good 
 to the people of our land, not alone the general public 
 but those who owned the railroads and the stocks and 
 securities of the same. It was a great misfortune that 
 this masterful man should have been called from our 
 midst at the moment when the transportation question 
 w^as one of the most important and far-reaching ques- 
 tions presented for determination by this Nation. 
 
 The Senator from Nevada [Mr. Pittman] has referred 
 to his activity in behalf of bimetallism and related finan- 
 cial questions. He was deeply grounded in financial 
 questions and was one of the ablest exponents of the 
 quantitative theory of money. His views upon this ques- 
 tion were misunderstood by many, but it is sufTicient to 
 state at this time that he dealt with the money question 
 in a broad, comprehensive, and scientific wa3\ 
 
 After he left the House of Representatives I followed 
 the career of this distinguished man wdth very great in- 
 terest. He grew with the passing years until he became a 
 national figure, a statesman of commanding ability. In 
 the Senate, as in the House, he took a conspicuous part 
 and w^as the proponent of measures of the greatest magni- 
 tude and of far-reaching importance to our country. My 
 regard for Senator New lands was so great and my confi- 
 dence in his ability and statesmanship so strong that early 
 in the year of 1912, when Democrats were casting about 
 for a candidate for the Presidency, I reached the conclu- 
 sion, after mature deliberation, that Senator Newlands 
 measured up to the most exacting demand and was an 
 available candidate for that high office. I accordingly 
 wrote him and urged that he become a candidate for the 
 Presidency. I felt that no man in the Democratic Party 
 was better equipped for the position than he was. His 
 great knowledge of our domestic problems, his long and 
 faithful public service, his great intellectual and moral 
 
 [28] 
 
Address of Mr. King, of Utah 
 
 qualities, marked him, in my opinion, as the most suitable 
 candidate for his party to select. His reply was charac- 
 teristic of the man. I felt then, as I have felt upon other 
 occasions, that Senator Newlands was too modest and too 
 unpretentious. I might say, in passing, that he was always 
 democratic, gentle, and chivalrous in his relations with 
 his fellows. 
 
 When Germany's violations of international law and 
 the rights of our Nation no longer could be tolerated 
 and our Nation recognized a state of war as existing be- 
 tween it and the Imperial Government of Germany he 
 patriotically supported every measure necessary to pre- 
 pare our countiy for the conflict. For some time prior to 
 the declaration of war his keen vision had enabled him to 
 see that war was inevitable. There were no lamentations 
 from him because of the war. There was a stern deter- 
 mination upon his part that our country should mobilize 
 her resources and prepare in a most thorough and effec- 
 tive way to strike relentlessly until Prussian autocracy 
 was destroyed and a just and righteous peace secured. 
 
 Senators will recall his infrequent but earnest speeches 
 following the entrance of our country into the conflict and 
 the sound advice which he gave concerning the policies 
 which should be pursued in order that our resources 
 might be conserved and all of the power of our Nation 
 concentrated for the winning of the war. I remember 
 the warnings which he gave to capital and to some of 
 the great corporations of our country that were profiteer- 
 ing out of the war. He adjured them, as well as all others, 
 to patriotically serve our country, and warned those who 
 were securing great profits from the war of the inevitable 
 results which would follow, and particularly in the circles 
 of labor. He was always a " watchman upon the "tower." 
 He saw the first glimpse of the morning and he was among 
 the first to grasp the dangers that menaced our country 
 from without as well as from within. The immediate 
 
 [29] 
 
Memorial Addresses: Senator Newlands 
 
 questions involved in this great conflict did not close his 
 eyes to the mighty questions with which this Nation and 
 other nations will be compelled to grapple when this 
 titanic contest is ended. I recall many conversations with 
 him in which he expressed in a clear and comprehensive 
 way some of the complex situations which we would be 
 compelled to meet in the near future. I learned from 
 him but a short time prior to his death that he was work- 
 ing out the problem of transportation, national and inter- 
 national, following the war. He was maturing plans to 
 increase and secure our foreign trade, to procure the raw 
 materials which our country would require in order that 
 it might continue to be a great manufacturing Nation. He 
 had dreams of this Republic becoming the great commer- 
 cial and financial mart of the world, and if he had lived 
 his pen would have drawn many of the important meas- 
 ures so necessary to enable our country to take and main- 
 tain her proper station among the nations of the world. 
 
 Senator Newlands brought into public life a well- 
 trained mind, enriched with a knowledge of the political, 
 economical, and industrial questions affecting our coun- 
 try, and with that broad vision which is found in every 
 great leader and which must exist in every statesman. It 
 was said by a great prophet that " where there is no vision 
 the people perish." The truth of this statement finds ex- 
 emplification in all generations and in all lands. The mul- 
 titude keep their eyes upon the ground, upon the trivial and 
 petty things of life, and many who are raised to position 
 and power act with selfishness and for personal or party 
 ends instead of for the public weal. They have no vision, 
 no prophetic gift, no power to " dip into the future," and 
 their plans and policies and programs bring confusion 
 and discord and ultimate hurt to the people. A State or 
 nation is blessed when there comes to it a man of vision, 
 a man of high ideals, and of spiritual power. Great men 
 carry the world upon their shoulders. Each becomes a 
 
 • [30] 
 
Address of Mr. King, of Utah 
 
 fabled Atlas, and on his bowed back humanity moves 
 forward to higher ground and greater achievements. 
 
 The struggle is always on between the spiritual and 
 progressive forces and dark and gross materialism. The 
 mass of the world have always been content to follow the 
 prophet of to-day rather than the one who spoke for the 
 morrow. We find it easier to plan for to-day than to 
 build for the morrow. It is a long way from self to un- 
 selfishness, from self-service to service for others; and so, 
 in the field of national concerns, we find too many en- 
 gaged in limited and narrow circles, without vision or 
 capacity or desire to comprehend the future. It is so easy 
 to be local and provincial; to see the narrow field where 
 the landscape and the horizon meet. Only men whose 
 eyes are anointed by the Infinite One and whose hearts 
 respond to the thrilling force which He sets in motion can 
 look with unblanched cheek into the future and read its 
 riddles and with prophetic power lead, as an evangel, 
 the struggling masses of the world. Fortunate, as I stated, 
 is the generation or the State that can have leaders of 
 this character, men in public place to strike from the 
 necks of the people the chains of narrow and sordid pro- 
 vincialism and point the way to national vigor and na- 
 tional progress and moral and spiritual evolution. There 
 is no line of cleavage between the moral, ethical, and 
 spiritual forces which underlie an indestructible Chris- 
 tianit}' and the forces and influences which lead to human 
 progress and the growth of liberty in the governments of 
 men. In other words, if justice and righteousness and 
 high ethical concepts and spiritual forces and power find 
 expression in the faith of Christ, these same influences, 
 forces, and powers should be manifest in the conduct and 
 activities of men and in their relations with each other, 
 whether of a business or social character or whether re- 
 lating to political and governmental questions. 
 
 [31] 
 
Memorial Addresses : Senator Newlands 
 
 So if vision is necessary in religion it is necessary in 
 the perplexing questions affecting life and the confusing 
 and bewildering problems relating to our economic, in- 
 dustrial, and political life. " Without vision the people 
 will perish"; they will perish religiously; atrophy will 
 overtake them spiritually; they will perish industrially 
 and politically. In proportion as we have leaders of 
 vision and follow them our progress will be assured. 
 Thank God for leaders who have vision, statesmen who 
 can see beyond some local lines and comprehend the 
 problems of the Nation and the questions that are inter- 
 national. This age calls for men who not only think 
 nationally but internationally. 
 
 And such an one was our beloved friend who has gone 
 from our midst. He was a big man, who dealt with big 
 things in a big way. There was nothing petty or mean in 
 his soul. In all of my relations with him I never heard 
 him utter a trivial or commonplace remark. His active 
 mind was constantly engaged in the contemplation of im- 
 portant measures relating to our country and to the world. 
 It is given to some men to have only a fleeting vision of a 
 great project or to have borne in upon their hearts some 
 great idea. Francis G. Newlands lived in the atmosphere 
 of great ideas and great ideals, and he had visions of many 
 great projects, policies, and truths which guided him in 
 his noble and exalted aims. When he thought of his State 
 it was to regard it as a sovereign nation with a great mis- 
 sion and with great responsibilities resting upon it. When 
 he thought of the Nation which he loved so well it was to 
 regard it as the great political and moral guide to the 
 world, and he believed that the democratic forces of our 
 country would lead this Nation to glorious heights and 
 evolve moral and spiritual forces which would enlighten 
 all nations. He exemplified in high degree the words of 
 Lord Bacon wherein he says : 
 
 It is a great error and a narrowness of the mind to think that 
 nations have nothing to do one with another except there be 
 
 [32] 
 
Address of Mr. King, of Utah 
 
 either an union in sovereignty or a conjunction in pacts or 
 leagues; there are other bands of society and implicit confedera- 
 tions. 
 
 Mr. President, Francis G. Newlands was an intensely 
 patriotic man. He loved his country with a passion and 
 devotion that few men possess. He was always planning 
 for its development and progress and for its future. No 
 mere temporary expedient satisfied him. Legislation to 
 command his suj^port must be comprehensive, general, 
 and fundamentally sound. He was analytical and philo- 
 sophical. He believed that there was law and unity per- 
 vading life and man's activities. 
 
 He was not a pessimist. He believed the world was 
 growing better, and as the years were lost in the centuries 
 the world would grow better and liberty and progress 
 would crown all nations and all peoples. To him there 
 was no death. There was life everywhere, and humanity 
 to him was one living stream the source of which was in 
 God and the end of which could only be found in the 
 Eternal and Omnipotent Power which guides all things. 
 With such views he could not be other than intellectually 
 honest, which can not be said of all men in public places. 
 It was impossible for him to reason in a circle. He saw the 
 objective and with steady eye and courageous heart he 
 went with unerring step. 
 
 Senator Newlands was a courageous man. There was 
 not a drop of the coward's blood in his body. With a 
 courtliness that few possess he met his adversaries. He 
 was just and tolerant to his opponents, but he did not 
 hesitate to denounce injustice and to unmask heresy and 
 lies, no matter by whom they were cloaked or who were 
 their protagonists. Whatever he believed he believed 
 with all his heart. If an idea took possession of his soul 
 and he believed that it was right, he became a crusader in 
 its propagation. He was patient, persevering, relentless 
 in the pursuit of any cause which he espoused. 
 
 115652'— 20 3 [33] 
 
Memorial Addresses: Senator Newlands 
 
 Senator Newlands, as I have stated, was a man of high 
 ideals. Whatever appeared to him to be unjust or im- 
 moral or not in consonance with the spiritual teachings 
 of a great Christian people met with his stern disapproval. 
 He was not a Pharisee, nor did he make frequent procla- 
 mation of his religious views, but he had a profound 
 belief in God, a living faith in the immortality of the 
 soul, and a sincere regard for the great spiritual forces 
 which animate and control the world. 
 
 Mr. President, the life and the death of this great man 
 bring convincing proof of the immortality of the soul. It 
 is impossible to believe that the mind and soul and being 
 tliat could conceive the great thoughts to which our 
 deceased friend gave expression, and comprehend the 
 vital and spiritual forces which found expression in his 
 life, should perish. If there is persistence of force, there 
 is persistence of life; and the great soul of our loved 
 friend still lives, mingling with the just and actively en- 
 gaged in service which contributes to the accomplishment 
 of the purposes of the Everlasting Father. 
 
 He left us at a time when great problems pressed for 
 solution. This hour calls for giants. We shall miss him 
 in this hour and in the days pregnant with mighty events 
 that are immediately before us. We feel that in his death 
 we suffer an irreparable loss. God grant that to others 
 may be given something of the genius and gifts and 
 powers so richly possessed by him. His life was rich in 
 good deeds and in great achievements, and he has left 
 a patrimony to his State and to the Nation that enriches 
 us all. We will go from this memorial service with 
 higher purpose and resolve to serve our country and 
 humanity, and endeavor from his life and his glorious 
 service to obtain that inspiration which will lead us, 
 falteringly, indeed, in his footsteps to that high plane 
 which he trod and into the field where he rendered such 
 rich and profitable service. 
 
 [34] 
 
Address of Mr. Phelan, of California 
 
 Mr. President: Death has been very busy in this body; 
 and the transitory character of human affairs has been 
 brought home to us in unexpected ways. 
 
 When the great statesman, Edmund Burke, felt the 
 poignancy of domestic grief, in the midst of his labors, 
 with introspective glance, he said: "What shadows we 
 are, and what shadows we pursue ! " If we thought only 
 of the inevitable end we would become morbid and 
 constantly have in mind that thought of Burke, "What 
 shadows we are, and what shadows we pursue ! " But 
 it is in human nature to be hopeful and optimistic. Nor- 
 mal men do not ordinarily dwell upon mortality; and 
 it is well that it is so, because, as it has been observed, 
 no development is possible to the individual and no prog- 
 ress is possible to the race where the power of death to 
 destroy life is not conquered in thought and feeling. 
 Therefore wc go on our accustomed way; the ranks which 
 have been depleted are filled; and we pause, as to-day, 
 to express our sorrow for the death of our beloved col- 
 league, feeling our duty done. 
 
 He might have prolonged his years, as many another 
 Senator, by avoiding the strenuous character of public 
 life and retiring before his appointed time; but among 
 brave and valorous men there is never a disposition to 
 leave the scene of conflict. They prefer to die fighting. 
 The Empress Theodora said, when she was admonished 
 that her duties led inevitably to a premature end, that 
 " the throne is a glorious sepulcher." The Senate is a 
 glorious sepulcher. Men who die in the service of the 
 State, men who yield all that is mortal while serving in 
 the Senate of the United States, go out gloriously. They 
 
 [35] 
 
Memorial Addresses: Senator Newlands 
 
 might have saved a few years of their lives by retiring 
 and eke out a feeble existence leading to the inevitable 
 end; but no! Instinctively and consciously they remain 
 in the public service and go down fighting. And so, since 
 death must come to all, it is well that our colleague should 
 die in the midst of his labors and in the fullness of his 
 fame. 
 
 It fell to my lot to be with him on the last day. He was 
 my neighbor and friend. We were bound together by 
 those endearing ties of our common western citizenship 
 and by associations growing out of our residence in the 
 city of San Francisco as well as in the city of Washington. 
 In our club on the very day of his death I found him in 
 his usual good spirits and apparent health. We sat down 
 at a small table together and had lunch and discussed 
 questions of life and death, prompted by his indisposition, 
 which then seemed trivial, and we discussed current and 
 pending legislation. Foremost, I remember, in his mind 
 was the solution of the railroad problem, and he was wait- 
 ing to hear what determination should be arrived at by 
 the President, before whom he had laid the facts. It is a 
 regret to recall that he died before the solution of that 
 question had been made. Public control was declared 
 by the President on the very day of his obsequies. But 
 the labor, the thought, and the anxious hours that he gave 
 to a consideration of that and other public questions no 
 doubt brought about his untimely end, because when I 
 observed that he looked well and inquired about his gen- 
 eral health he said that he had never felt better in his 
 life than when he rose that morning. But his vitality had 
 been undermined. When I suggested that he must be 
 suffering from some passing ailment he said, " No ; it is 
 more than that; a near relative has just died of heart 
 trouble, and I feel that my affliction is of the heart." 
 Then he showed by his expressed feelings that he was suf- 
 fering a sense of suffocation. So that fatal clot of blood 
 
 [36] 
 
Address of Mr. Phelan, of California 
 
 was working his destruction, although he hore all the 
 appearance of health and vigor. 
 
 As I sailed by with colors flying, 
 You would not know that I was dying. 
 
 He consulted a doctor, who reassured him, doubtless, 
 because he returned to the club, but after going home that 
 night he died. 
 
 The Senate has been informed about the particulars of 
 his career; how^ he was born in the South, educated in the 
 East, and cast his destinies in California and in Nevada. 
 
 California and Nevada are closely allied. The great 
 mountains that stand between them are the glory and 
 pride of both States. The beautiful Lake Tahoe, seated 
 on the mountain crest, is the common possession of Ne- 
 vada and of California. Senator Newlands was as much 
 a Californian as he was a Nevadan. California may be 
 said to have given Senator Newlands to Nevada just as 
 she had given in another generation Senator Baker to 
 Oregon. We claim as ours the fame of these great men 
 and hold them as dearly as do the Commonwealths that 
 particularly honored them by elevating them to the Sen- 
 ate of the United States. 
 
 But what made Senator Newlands in this body a unique 
 figure? He was not a practical politician. But he was a 
 man endowed with vision. He served an ideal. He could 
 see and did see very much further than the average of his 
 colleagues, and he wrought for the future, that future 
 which could not reward him, as he wrought for this dis- 
 franchised city of Washington with all the zeal which too 
 often only signalizes, in other fields, the pure selfishness 
 of man. 
 
 He saw the great West with the poet's eye and he saw 
 the possibility of reclaiming it. To draw no invidious 
 comparison, Daniel Webster, practical statesman, saw 
 the great West with its trackless prairies, its forbidding 
 
 [37] 
 
Memorial Addresses: Senator Newlands 
 
 deserts, impassable mountain ranges, and torrential 
 streams, and he said we can never take in that territory 
 as a part of the Union; it is too difficult to reclaim and 
 too remote to govern; and he expressed the hope that an 
 empire some day should be set up in the far West which 
 would maintain amicable relations with the Federal Gov- 
 ernment. That great man, Daniel Webster, who hoped 
 that his eyes would not look, in the final hour, upon 
 broken and dismantled fragments of a glorious Union, 
 could not in a constructive way see the policy and the pos- 
 sibility of bringing together plain and mountain and 
 desert and erecting a State worthy of admission into that 
 Union which he so much loved. But Senator Newlands 
 saw this, and the Newlands Act, of which we have heard, 
 is perhaps the greatest monument to his fame. 
 
 Then he turned from the reclamation of the desert, by 
 putting water upon it, to the control in other regions of 
 the mountain streams where water, getting away from 
 control, devastated great areas. Water, like fire, is an 
 excellent servant but a very bad master. 
 
 In doing these things, accomplishing such comprehen- 
 sive results, he did not seek to impose any burdens upon 
 the common country which would indubitably benefit in 
 the largest possible way by the reclamation of waste lands 
 suitable for human habitation. Nations go to war at the 
 cost of millions of lives and millions of treasure to acquire 
 territory, but the Senator saw the territory we needed 
 within our own confines, and to spend money upon it to 
 redeem it was a higher and a better method of enlarging 
 our arable domain for the benefit of the people, and so he 
 became a constructive legislator. 
 
 But even then he provided a fund which was to be 
 known as a revolving fund — that is, in the first instance, 
 the Government would put the land by a large outlay 
 under water, and the beneficiary, holding the land, would 
 over a long period of years return the money to the fund, 
 and the fund then would be available for further projects. 
 
 [38] 
 
Address of Mr. Phelan, of California 
 
 When he came before the Senate to ask within my time 
 for $600,000,000 to check the ravages, particularly of the 
 Mississippi River, which came down from its mountain 
 fastnesses like a bandit, ravaging fertile valleys below, 
 the Senate looked upon him as a visionary, in an in- 
 credulous way, surprised at the magnitude of the amount; 
 but they had to listen to him week after week on the 
 necessity of such a work to save the lands threatened 
 by destruction, and furthermore on the pressing need of 
 coordination in order to get the maximum of service out 
 of the departments and the bureaus. Senator Newlands's 
 discussion of " coordination " became almost a byword, 
 and yet, justifying him again, as he has been justified in 
 all his public acts by time, he had been gone but a short 
 space when in this crisis we found it necessary to give the 
 President power, in order to prevent duplication and 
 waste, for that coordination for which the Senator 
 pleaded so eloquently on this floor. He did not have the 
 rough ways, he did not have, perhaps, the persuasive 
 power to immediately carry his project, cajoling his col- 
 leagues by one specious method or another, but he had 
 the quality of perseverance and he kept talking upon his 
 subject until he commanded a hearing. 
 
 While it is true he did not get the whole amount for 
 the purpose of restraining devasting streains, he did get 
 a substantial appropriation for the purpose of determin- 
 ing exactly how these great evils should be righted, how 
 the great damage should be averted, and how the people 
 of the interior valleys of this country could live in security 
 and reap the rewards of their labor. 
 
 He felt for the men who worked; he kept apace sym- 
 pathetically with the industrial evolution of the times as 
 no other man, and his heart went out to those who were 
 handicapped by fortune in the daily struggle on every 
 side, but the result of whose combined labors, he be- 
 
 [39] 
 
Memorial Addresses: Senator Newlands 
 
 lieved, made the national wealth and the national 
 greatness. 
 
 His heart and mind in full accord were moved by what 
 he knew and saw and felt. 
 
 'Tis hard to sow in spring and not to reap 
 
 The autumn's yield; 
 'Tis hard to till and when tilled to weep 
 
 The fruitless field! 
 
 I have heard him in the presence of the President tell 
 of the unrewarded labor of the pioneers of the West. He 
 said — and he was capable of demonstrating it — that all 
 the money spent by individuals, not counting their time 
 wasted, in exploration and discovery of the precious 
 metals was far in excess of the yield by the mines of 
 the West; and if the Federal Government had out of its 
 Treasury from the beginning pursued that policy of de- 
 velopment on its own account for that same reason its 
 expenditures would have been far in excess of the return. 
 
 So he pleaded for consideration for the man who w^as 
 willing to take his chance in the diificult places of the 
 earth and discover the presence of the minerals, and then 
 by labor and enterprise, although he himself may be lost, 
 unknown to fame, and unrewarded, make the Nation his 
 debtor by revealing the treasures otherwise hidden from 
 human ken. 
 
 But what appealed to me very strongly in observing the 
 course of the Senator in this body was his love of the 
 beautiful. It is not common in legislative bodies nor 
 among the mass of the people to find any great devotion 
 to art. Our art seems to be reserved for a select few and 
 we depend upon the leaders in the great moral, spiritual, 
 and artistic movements to command a following and 
 achieve results. 
 
 The city of Washington, planned by L'Enfant, is perfect 
 in conception, and only where L'Enfant's designs have 
 
 [40] 
 
Address of Mr. Phelan, of California 
 
 failed of execution by a subsequent generation has Wash- 
 ington been marred. It is the constant surprise of new- 
 comers that the city remains so beautiful; but it is due 
 only and whollj^ to the vigilance of such idealists as 
 Senator Newlands. Plato said that children should not 
 be allowed to grow up amid the images of evil, lest their 
 souls simulate the ugliness of their surroundings, and 
 I could appropriately paraphrase our great American 
 sculptor, W. W. Story, when he said: 
 
 Is this the stately form I saw 
 
 In Greece a thousand years ago, 
 Who ruled the world by Beauty's law 
 
 And used among the gods to go? 
 Now scant in garb a mendicant, 
 
 She stretches forth her tearful palms. 
 And Congress in pity for her want, 
 
 Contemptuous, tosses her its alms! 
 
 That is the spirit in which Congress has conserved the 
 beauty of the Capital. When the invading bands of a 
 heedless commerce, for the purpose of saving money and 
 sacrificing art, sought to construct smokestacks under the 
 very monument of Washington in the Mall it was the 
 Senator from Nevada who persistently arraigned those 
 who attempted this perpetration. He had behind him 
 the American Institute of Architects and the Commission 
 of Fine Arts, whose approval he demanded from a self- 
 sufficient Congress on all occasions before public monu- 
 ments and public buildings were constructed within the 
 sacred precincts of this District. 
 
 Loving art and in a most practical way defending art, 
 meeting every obstruction that might be put in the path 
 of the accomplishment of Washington's dream and 
 L'Enfant's plan, he valiantly on more than one occasion 
 saved the city. I know the people of Washington appre- 
 ciate his service. I know that artists have enshrined his 
 name. 
 
 [41] 
 
Memorial Addresses: Senator Newlands 
 
 So he is tied to the West and to the East by the indis- 
 soluble bonds of affection. Nature and art mourn his 
 loss. 
 
 So long as the desert yields to the will of men and 
 engineering skill restrains the mountain torrents to create 
 homes for the helpless and promote happiness in the re- 
 claimed regions of the West; so long as Beauty sits 
 enthroned by the Golden Gate — because his labors there 
 were just as efficacious as here — or by the shores of the 
 Potomac; so long as the snows upon the Sierra Nevadas 
 look down upon the sister States, affording sustenance to 
 field and farm; so long as friendship remains, binding 
 heart to heart, this beloved and lamented Senator shall 
 not be forgotten. 
 
 In our conversation that fateful day he said he felt that 
 upon him was a grave crisis and could not expect im- 
 munity because he had attained, he said, nearly 70 years. 
 
 Edwin Arnold, pessimistic, with his heathen philosophy 
 upon his lips, had written — 
 
 This life of man so pleasant 
 
 Run it not to waste and woeful finishing 
 
 In time's dry sands. 
 
 But I think the Senator, if he were consulted, in the 
 words of his poet-friend, Edward Robeson Taylor, of San 
 Francisco, would rather say: 
 
 Death take my body, it has served me well, 
 
 Nor do I now begrudge thy longed-for dole; 
 
 But to thy very face dare this I tell: 
 
 Thou shall not have the treasure of my soul! 
 
 His pure spirit, pure and untrammeled, has, let us be- 
 lieve, taken its heavenly flight, but he will also enjoy, I 
 am convinced, an earthly immortality not only in the 
 pages of the history of the West and of his country but in 
 the loving hearts of his friends and his colleagues and his 
 countrymen. 
 
 [42] 
 
Address of Mr. Shafroth, of Colorado 
 
 Mr. President: In the fall of 1891 I was in Salt Lake 
 City, Utah, on law business and noticed in the morning 
 newspaper that an irrigation congress was to be held there 
 that day. I concluded that I would attend the opening 
 exercises, and there I met for the first time Mr. Francis 
 G. Newlands, who was the leading spirit in the sessions 
 of the congress. Mr. Newlands was then a thin, delicate- 
 appearing man, but he made a speech that was one of the 
 most remarkable I had ever heard on the need, indeed 
 the necessity, of irrigation for the arid West. It was there 
 that I learned, perhaps for the first time, the reason why 
 the soil of the arid West is so fertile; why it is that no 
 fertilizer is needed and will not be needed for many 
 years; that in the aridity of that region is contained the 
 compensating advantage of fertility. That was one of the 
 features of his speech that impressed me very much. 
 
 In the East, where there is more rainfall, of course the 
 washings of the ages upon the soil have dissipated its 
 fertility. All soil is nothing but disintegrated rock, and it 
 is necessary to preserve the mineral salts in that soil in 
 order to retain its fertility. The arid condition of the 
 Great American Desert has been the principal factor that 
 has preserved the fertility of the soil in that great expanse 
 of territory and saved it for these later ages, to be brought 
 to a condition which can produce crops in more abundant 
 quantity and of better quality than those which any other 
 soil can produce. By reason of excessive rains in other 
 portions of the countr3% which melt and dissipate the 
 mineral salts, the fertility which is the basis of great and 
 excellent production is wasted. It therefore becomes nec- 
 essary to supply fertilizers in those sections. 
 
 Knowing that the region west of the one hundredth me- 
 ridian, which passes through the State of Kansas, needed 
 
 [43] 
 
Memorial Addresses: Senator Newlands 
 
 only the aid of irrigation, Francis G. Newlands applied 
 himself to a solution of the great problem that was to be 
 one of the remarkable achievements in a career which 
 he at that time marked out for himself. He made his be- 
 ginning in his speech in favor of the irrigation of that 
 vast extent of territory that should supply millions and 
 millions of people with food and afford homes for yet 
 other millions on which to live prosperous and happy 
 
 lives. 
 
 At that time Mr. Newlands was not in office, but it was 
 then stated to me— for his speech made a lasting impres- 
 sion upon every person who heard him — that he expected 
 to run for Congress and no doubt would be elected. The 
 next year he was a candidate for Congress and was elected 
 by an overwhelming majority. When he came to Wash- 
 ington he began his work in an attempt to get Govern- 
 ment assistance for the reclamation of the arid lands 
 of the West. He followed up his effort by speeches in 
 the House of Representatives and in many conferences 
 and many conventions which he attended. Two years 
 after that I was elected to the House of Representatives 
 and, having met him at Salt Lake City, renewed my 
 acquaintance with him and assisted him in every way 
 that I could in getting his projects, his bills, his ideas 
 concerning reclamation indorsed by the Congress. 
 
 After some years it was deemed advisable by the 
 western Senators and Representatives to appoint a com- 
 mittee of 17 Members, consisting of one from each of the 
 17 arid States and Territories, to draft a bill that would 
 be acceptable to the Senate and the House of Representa- 
 tives. Francis G. Newlands, at that time still a Member 
 of the other House, represented the State of Nevada and 
 I happened to represent the State of Colorado on that 
 committee. We met at night and we devoted probably 
 a period of six weeks to formulating the bill and recon- 
 ciling the various differences of opinion in reference to 
 
 [44] 
 
Address of Mr. Shafroth, of Colorado 
 
 it, but the leading spirit of that committee was Francis G. 
 Newlands. While he differed in some respects upon 
 some of the points that were made by other members of 
 the committee, he, nevertheless, was possessed of that 
 spirit of amiability and of fairness which prompted him 
 always to concede merit in the contention of others. 
 When it came to name the man who should introduce 
 the bill in the House of Representatives I had the honor 
 of moving that Mr. Newlands be named as the one to do 
 so, which was agreed to, and he introduced the bill. That 
 bill thereafter became an important subject of discus- 
 sion in the Congress. 
 
 Nearly all of the parliamentarians of the House of 
 Representatives were against the passage of the bill; all 
 of the leaders, it might be said, of the House were opposed 
 to it. Dire predictions were made of its total failure and 
 arguments on the impropriety of the Government going 
 into the field of business were vigorously urged. There 
 was a parliamentary filibuster, as it might be termed, 
 started against the measure. For some reason or other, 
 in the bringing in of the rule for consideration of the bill 
 the hour of 5 o'clock in the afternoon was fixed as the 
 time when its consideration should cease if a vote had* 
 not then been taken. It was rather a singular order, and 
 it was thought by some of us that it had been imposed 
 with the purpose of letting the hour of 5 o'clock come 
 during debate and then of relegating the bill to the cal- 
 endar, with possibly but little chance of again getting it 
 up for consideration at that session. It was near the close 
 of the long session of Congress, and the short session is 
 always crowded with work, so that a measure can hardly 
 be supposed to have a chance of passage at a short ses- 
 sion if there is strong objection to its consideration. 
 
 It became necessary to limit the debate on each amend- 
 ment which was offered. Senator Newlands and I had 
 grown very intimate by that time and we frequently con- 
 
 [45] 
 
Memorial Addresses: Senator Newlands 
 
 ferred over plans for the bill's advancement. He was a 
 very courteous, kindly man, and loath to offer motions to 
 cut off debate. He therefore requested me to make the 
 necessary motions in the attempt to limit debate on each 
 amendment, so that we should certainly reach the end of 
 the consideration and secure a determination of the meas- 
 ure by 5 o'clock in the afternoon. I did so, and I had to 
 make many such motions; I had finally to move to limit 
 the time of debate on amendments to a very few minutes; 
 in fact, sometimes to three minutes. It was only at 10 
 minutes of 5 o'clock that the vote was ordered to be taken 
 upon the bill. Senator Newlands was present at all times, 
 and was active in the endeavor to utilize every force and 
 every particle of his influence in favor of the passage of 
 the bill; and at last, when the Newlands bill v/as passed 
 in the House of Representatives, it was regarded as one 
 of the greatest achievements of that Congress, and, in- 
 deed, of many Congresses which had preceded it. 
 
 Mr. President, we all loved Francis G. Newlands. He 
 was intimate, I believe, with every Member of this Cham- 
 ber. He was always pleasant. He often told me that he 
 thought that his good nature had prevented his getting 
 -consideration of some of his measures; that he ought, 
 perhaps, to have used the weapon which is sometimes 
 used of objecting to the consideration of other measures 
 until his measure could be considered by the Senate; but 
 his nature was too kindly to permit him to do so. He was 
 always considerate of and most liberal in his attitude 
 toward the opinions of others. I believe there was no 
 Member of this body who did not sincerely grieve when 
 he realized that Francis G. Newlands had expired. 
 
 Mr. President, we all honored him; we all appreciated 
 his ability; we all recognized his greatness; and we know 
 that he will be regarded as one of the greatest Senators 
 who ever sat in this body from the West. 
 
 [46] 
 
Address of Mr. Ransdell, of Louisiana 
 
 Mr. President: Two or three things attracted me to 
 Senator Newlands. He was born on the banks of the 
 Mississippi River, in the city of Natchez, and my home is 
 on the river about 120 miles north of that city. Senator 
 Newlands was greatly interested in questions relating to 
 water in some form or other, and I have also during my 
 public life always been intensely interested in the same 
 subject. 
 
 The first thing that attracted me to him after I entered 
 Congress in 1899 was his veiy enthusiastic and persistent 
 advocacy of the Newlands reclamation bill, which had 
 been under consideration for some time. He was not a 
 man who went into anything half-heartedly, but w^as the 
 most persistent man whom I have ever known in either 
 House of Congress. When he undertook to advocate a 
 measure he did so with his whole heart and soul; he did 
 so with every appearance of having the utmost faith him- 
 self in it and with the determination to win. 
 
 There was a fellow feeling between the people of the 
 West and myself in their efforts to secure the irrigation of 
 their arid lands. They desired to put water on land which 
 had none, whereas in my portion of Louisiana the people 
 wished to restrain the floods of the mighty Mississippi 
 River which swept down to the Gulf wuth the accumulated 
 waters of 31 States, frequently bearing death to many 
 persons and destruction to vast quantities of property. It 
 seemed to me to be very natural that, as I desired the 
 water kept from the lands of my State, I should aid the 
 people of the West in their effort to put water on their arid 
 lands, hence I early took an interest in Senator New^lands 
 and the great measure which he advocated so enthusias- 
 tically. 
 
 It was a long time before he could secure the passage 
 of his bill. I well recall that the river and harbor bill, 
 in which I was intensely interested, was talked to death 
 
 [47] 
 
Memorial Addresses: Senator Newlands 
 
 by Senator Carter of Montana because of its failure to 
 carry an appropriation of about $300,000 to irrigate some 
 lands in the State of Montana. That was in the spring of 
 1901 ; and the great bill carried $54,000,000 for improving 
 the waterways of the Nation for purposes of navigation. 
 
 Within a year from that date the sentiment in favor 
 of irrigation had grown materially. Senator Newlands 
 and other friends had been doing wonderful work, and 
 President Roosevelt, the remarkable man who then occu- 
 pied the White House, had sent to Congress the strongest 
 kind of message in favor of general irrigation in the West. 
 With the aid of that message, and of many representatives 
 from the Mississippi Valley, Senator Newlands succeeded 
 in passing his great reclamation act, to my mind one of 
 the most magnificent pieces of constructive legislation 
 passed by Congress during the 19 years of my service — 
 a measure under which over $100,000,000 has been ex- 
 pended, which has made not two blades of grass to grow 
 where none grew before but wonderful crops, beneficial 
 to the whole Union, on millions of acres of land that were 
 entirely arid before, and initiating a program which is 
 going to result in the reclamation of a great many more 
 millions of acres of land now utterly worthless because 
 of the lack of life-giving water. 
 
 It was a wonderful conception, a marvelous accomplish- 
 ment, and it is the greatest monument, in my judgment, to 
 the memory of Francis G. Newlands and the other west- 
 ern Representatives and Senators who worked so hard 
 and so faithfully to secure its passage. 
 
 Another matter that caused me to take an interest in 
 Senator Newlands was his enthusiastic advocacy of flood 
 control. That matter has been alluded to by one or two 
 Senators who have preceded me, but it came home to me, 
 Mr. President, as perhaps to no other Member of this body, 
 for my own section of Louisiana has time and again been 
 devastated by the, Mississippi's floods. My State has 
 
 [48] 
 
Address of Mr. Ransdell, of Louisiana 
 
 14,000 square miles of land subject to overflow when that 
 great river breaks its bounds. There are 28,000 square 
 miles of such land in the valley of the Mississippi, and 
 great floods have often swept over that area, more fertile 
 than the valley of the famous river Nile. 
 
 During his entire congressional career, at least since I 
 have been a Member of Congress, which embraces a period 
 of 19 years, Senator Newlands was a friend of flood con- 
 trol. He had a great conception about it. He desired 
 to control water in all its forms from the time it fell from 
 the clouds until it evaporated and became a cloud again. 
 His idea was that Congress should create a great water- 
 ways commission and give it money and authority to 
 handle water for every purpose; to purify the streams in 
 order that the water might conserve the best purposes of 
 health and sanitation; to regulate the underground flow 
 of water in order that agriculture might be benefited and 
 improved; to regulate it so as to increase the growth of 
 our forests; to drain the 77,000,000 acres of swamp lands 
 in this country; 120,000 square miles of swamps, an area 
 equal to two and a half times the total area of the State 
 of Louisiana; to control floods in every part of the Nation, 
 not alone on the Mississippi River but all over the Union; 
 and his conception always took in the use of our internal 
 waterways for purposes of navigation. 
 
 It also included the control of the mountain torrents 
 for hydraulic power. He wished to harness this water 
 and create an enormous quantity of valuable power. His 
 plan was a big one. Years ago he introduced the first 
 bill for the Newlands National Waterways Commission 
 and sought to have Congress appropriate $60,000,000 a 
 year for 10 years— a total of $600,000,000. Some day that 
 sum will be appropriated; but the Senator looked further 
 into the future than most of us, and I doubt if a dozen 
 Senators agreed with him on the large appropriation to 
 be carried in his bill. I for one disagreed with him on 
 
 115052°— 20 4 [49] 
 
Memorial Addresses : Senator Newlands 
 
 it, but he finally persuaded the majority of the Senate to 
 create the National Waterways Commission and arm it 
 with the necessary money and poYv^er to make investiga- 
 tions and report upon all of the uses of water — appropria- 
 tions for same to be made hereafter if the reports are 
 approved. Every legitimate and proper use of water is 
 to be studied and reported upon by this great commis- 
 sion, which was provided for in the river and harbor act 
 of last year. It was an herculean task to persuade Con- 
 gress to agree to the creation of that commission, and it 
 gives me inuch satisfaction to recall that I aided Senator 
 Newlands therein to the best of my ability. The Senator 
 did not live to see the commission actually appointed. Its 
 members have not yet been named. I presume the Presi- 
 dent has been so engaged by his duties in connection with 
 the war that he has not found time to select the seven 
 strong men for this truly great commission; but they will 
 be appointed some da}', and will evolve plans to be pre- 
 sented to Congress that, in my judgment, will result in 
 very beneficial laws, which, in turn, will become other 
 great monuments to the memory of Francis G. Newlands. 
 
 Mr. President, I knew the Senator well. Though I dif- 
 fered with him on some subjects, I admired his ability 
 greatly, and I was much pained and shocked when I 
 heard of his untimely death. 
 
 One of the best friends and greatest admirers of Sen- 
 ator Newlands was Mr. F. H. Newell, for a long time head 
 of the Reclamation Service and now chief of the depart- 
 ment of civil engineering in the University of Illinois. 
 Prof. Newell has sent me a brief statement in regard to 
 the Senator, with which I will conclude my remarks by 
 reading : 
 
 FRANCIS GRIFFITH NEWLANDS. 
 
 Senator Newlands remains in the memory of his friends a 
 man at all times courteous and considerate of others, whether 
 Senators or servants. With his strong, decided views on many 
 
 [50] 
 
Address of Mr. Ransdell, of Louisiana 
 
 points he necessarily differed from many of those about him, 
 but in liis intercourse or reference to his opponents he pre- 
 served a rare degree of consideration for them. In spite of the 
 difficulties, embarrassments, and petty annoyances which make 
 up the life of an active business man and Senator he maintained 
 his characteristic poise, meeting all situations with his rare sense 
 of humor. 
 
 As a statesman his chief characteristic was that of the breadth 
 of his views and his grasp of national and international rela- 
 tions. He was a man of vision without being visionary. His 
 thoughts were not bounded by civil divisions, but included the 
 whole United States and its relation with other countries. He 
 looked far ahead and discussed the needs of legislation so much in 
 advance of his colleagues that one of them jokingly said: " When- 
 ever we want to find out about a subject now being discussed we 
 look up what Newlands said concerning it 10 years ago." 
 
 Thus it was with the reclamation act, which is forever con- 
 nected with his name. He worked for this ideal even before 
 coming to Congress and endeavored to persuade the State of 
 Nevada to take the lead. Failing in this he, as Representative 
 from Nevada, drafted many bills providing for the reclamation 
 of the arid west; in season and out with rare persistence and 
 tact he kept continually forward the conception that it was the 
 duty of the Nation as the proprietor of unutilized but valuable 
 lands to make these available for homes. He attracted to the 
 support of these measures other men both in and out of Con- 
 gress and presented his ideas so clearly and persistently that 
 they could not fail to be adopted. 
 
 Senator Newlands seemed never to tire, but displayed a most 
 unusual persistency in his advocacy of large ideals and measures 
 such as those embodied in part in the reclamation act. This had 
 no sooner passed into law and become effective than he took 
 up and urged year after year the continuation of similar prin- 
 ciples which involved a higher degree of cooperation and coordi- 
 nation of governmental functions in developing and utilizing 
 other resources in the United States, At the time of his death 
 he was still urging action which would extend to other parts of 
 the country some of the benefits of water conservation, flood 
 protection, and development of power such as were in papt 
 covered by the reclamation act. The country as a whole lost in 
 his death the activity of one of the most unselfish and yet per- 
 sistent advocates of internal development. 
 
 [51] 
 
Address of Mr, Thomas, of Colorado 
 
 Mr. President: I was acquainted with Senator New- 
 lands during the last 25 years of his life. I met him at 
 the convention of 1892 in the city of Chicago. My subse- 
 quent relations with him were intimate and cordial. I 
 was not in Washington when he died. The news of his 
 demise reached me through the press dispatches. I was 
 not even aware that he was ill when I learned that he 
 was dead. 
 
 During my membership in this body our acquaintance 
 ripened into a close and intimate friendship. Naturally 
 I saw much more of him than before, and I learned to ap- 
 preciate him, not only as a fellow legislator but as a com- 
 panion in all that the term implies. His death was a great 
 shock to me and I could not but reflect how many Mem- 
 bers and former Members of this body had i^assed away 
 during the short torm of my service in it. I have had 
 frequent occasion since then to indulge in the same re- 
 flection, for the hand of death has been busy in this body 
 since it convened on the 2d day of April, 1917. Ten of 
 our Members have gone to their long home. Who will 
 next be called we do not know, but I am sure that if it 
 can be said of him, as it can be said of Francis G. New- 
 lands, that his life was an open book, and his work an 
 earnest of his devotion to his countiy, he will not have 
 lived in vain. 
 
 Senator Newlands possessed in high degree two funda- 
 mental qualities of statesmanship — the one, perseverance; 
 the other, imagination. The union of these in a man bent 
 upon the accomplishment of a given object makes him a 
 strong force for its ultimate accomplishment. He be- 
 lieved thoroughly in this Republic, and loved the West 
 
 [52] 
 
Address of Mr. Thomas, of Colorado 
 
 with a passionate devotion. It was the mainspring of his 
 efforts for western development. 
 
 Senator Newlands was a national representative. He 
 was a statesman in the broadest sense. We are too prone, 
 as Members of the Congress of the United States, to regard 
 ourselves more as the representatives of the political divi- 
 sions which choose and send us here. We are too apt to 
 exalt the wants, prejudices, preferences, and selfishness 
 of our immediate constituencies above the calls and re- 
 quirements of national duty. Hence it is reassuring to 
 find in such surroundings a man of broad national view^s 
 like Senator Newlands, who regarded his duty always as 
 first to the Nation, yet loyal to his State. 
 
 It has been said that a sense of duty arises from a con- 
 sciousness of public responsibility. His consciousness of 
 public responsibility was always present with Senator 
 New^lands and the dominant note in all of the utterances 
 which he made upon this floor when speaking to some 
 great measure pending before it. 
 
 He had also the element of moral courage — a quality 
 greatly needed in public life, and, unfortunately, all too 
 rare in this hour of the Nation's crisis. He did not act im- 
 pulsively, but only after due and careful deliberation. 
 Having resolved upon a course he could not be dissuaded 
 from it. He was not a Titan, striking sledge-hammer 
 blows in behalf or in defense of his purpose. His power 
 was rather that of the sunshine. Its constant play upon 
 the forces of the opposition sometimes slowly but always 
 surely overcame opposition or tended to the accomplish- 
 ment of his objects. 
 
 His disposition was singularly sweet and attractive. I 
 have seen him occasionally lose his temper when under 
 great provocation. I never knew him to remain out of 
 humor 10 minutes at any time. He could not be an enemy, 
 because he could not carry malice long enough to provoke 
 resentment. He won his way through the world by a 
 
 [5:5] 
 
Memorial Addresses: Senator Newlands 
 
 genial disposition, an excellent temper, a quiet but over- 
 whelming determination, and a thorough acquaintance 
 with every subject which engaged his energies. He is 
 gone, Mr. President. His death has left a void among us 
 which can not soon be filled. As we mourn his loss we 
 pay tribute to all that he did and all that he desired. Let 
 us hope that " when," in Tyndall's phrase, " we shall like 
 streaks of morning cloud have melted into the infinite 
 azure of the past," the same may be said in small measure 
 of ourselves. 
 
 [54] 
 
Address of Mr. Cummins, of Iowa 
 
 Mr. President: I very deeply regret that absence from 
 Washington made it impossible for me to be in the Cham- 
 ber during the entire memorial services. 
 
 I shall not attempt to express, even measurably, my 
 sense of the overpowering loss which, as an individual, I 
 sustained in the death of Senator Newlands. We were 
 close, intim.ate friends, and I entertained for him an 
 affection which during my whole life I have felt for few, 
 very few men. We were companions in so many confer- 
 ences and discussions upon public alTairs that it is difTicult 
 for me to realize that never again am I to experience the 
 joy of his delightful presence, the warmth of his gracious 
 personality, and the strength of his wise and exalted 
 counsel. In all the wide range of the subjects in which 
 we were so vitally interested no man ever helped me more 
 than this sound-hearted, broad-minded, highly-cultured, 
 well-trained student of political economy. To the end of 
 my days I shall gratefully remember his exceeding kind- 
 ness, his fine inspiration, his wonderful fellowship, and 
 his earnest, though tolerant, leadership. I shall never 
 cease to mourn the fate which carried him from our world 
 to the rewards of the future at the very climax of his use- 
 fulness and power. 
 
 My chief, indeed my only, purpose upon this occasion is 
 to record in an enduring way my estimate of his service 
 as a Senator of the United States and of the value of the 
 heritage which he has bequeathed to us and to all who are 
 to follow us. 
 
 My acquaintance with Senator Newlands began in the 
 early years of the last decade, when he, as Senator and 
 member of the Waterways Commission, and I, as gov- 
 ernor of Iowa, came together in an effort to advance the 
 
 [55] 
 
Memorial Addresses: Senator Newlands 
 
 movement for water transportation. He had been long 
 engaged in the work. I was a stranger to it. He was 
 familiar with every phase of the subject. I had yet to 
 grasp its full significance and supreme importance. Com- 
 parisons are said to be odious, and I recognize that there 
 have been and are many men whose contributions to this 
 subject have been invaluable, but I am sure that I may 
 be permitted to say without offense that in the persistency 
 of his labor, in comprehension of the whole intricate 
 problem, in the tremendous energy he expended in turn- 
 ing the country toward practical achievement, in the zeal 
 with which he reiterated his well-matured views upon 
 every proper occasion he rose high above all his fellows. 
 It is in these and in kindred qualities that his greatness is 
 to be found. 
 
 He was not a dreamer, but a man with vision, and he 
 was always able to clothe his abundant imagination with 
 the realities of development. He was a prophetic philos- 
 opher and could not only foretell in speech but could 
 clearly see the course which the Nation must pursue to 
 attain its ends. He loved to surround himself with pic- 
 tures of things as they are to be, and they were as real to 
 him as they will be to the generation before which they 
 will rise up in form and substance. 
 
 How often have we heard him from his place in this 
 forum with unflagging industry and noble eloquence 
 appealing for the future— for the reclamation of our 
 deserts ; for the preservation of our forests ; for the proper 
 use of all our natural resources; for the regulated flow 
 of our streams; for the construction of reservoirs to con- 
 fine our waters in flood time; the straightening of chan- 
 nels; the protection of river banks; and the indissoluble 
 union that must be established between land and water 
 carriage, all to the one great purpose that every force 
 capable of working in harmony should be invoked and 
 the mighty volume of production be distributed through- 
 
 [56] 
 
Address of Mr. Cummins, of Iowa 
 
 out the country easily, quickly, and cheaply. All these 
 things will come, and are coming day after day; but he 
 was one of those rare men who could visualize them as 
 a complete whole even before their disjointed parts began 
 their inevitable movement toward each other. We used 
 to jest with him now and then about his frequent use of 
 the word " coordinate," but we knew all the time that 
 he employed it with the utmost discrimination and accu- 
 racy. The truth is that the word was not only frequently 
 upon his lips but it was the keynote of his life. He per- 
 ceived, as few of us do or can, the actual relation between 
 the potentialities of nature and the activities of humanity. 
 Most of us fail to grasp this vital kinship and lose the 
 strength that ought to be summoned to achieve the desired 
 result. With him it was instinctive, and in felicitous, 
 faultless language he could marshal all the contributing 
 factors until his hearers could see them converging to 
 accomplish a common purpose. This was his coordina- 
 tion, and nothing truer or higher can be conceived by 
 mortal man. 
 
 When I came to the Senate in 1908 Senator Newlands 
 was a leading member of the Committee on Interstate 
 Commerce and soon became its ranking minority member. 
 With the change in the political complexion of the Senate 
 he rose to the chairmanship and continued as the head 
 of the committee until his death. It happened that I was 
 assigned to that committee, and shortly after the change 
 in the administration I became the ranking minority 
 member. I mention these things only to indicate the 
 opportunity I had to know the qualities of his mind and 
 the integritj' of all his work. 
 
 This committee undertakes the consideration of all bills 
 relating to our interstate commerce save those which 
 affect the improvement of rivers and harbors. In times 
 of peace the authority to regulate commerce among the 
 States is the broadest and most important power granted 
 
 [57] 
 
Memorial Addresses: Senator Newlands 
 
 by the Constitution, and it was most fortunate that lead- 
 ership upon such a subject was conferred upon a man so 
 superbly fitted to guide and direct. He was diligent, 
 watchful, and tactful; but that is saying little, for these 
 are common characteristics. He was vastly more. He 
 brought to the committee that wide knowledge and per- 
 fect understanding of the relation which the component 
 parts of commerce bear to each other which I have men- 
 tioned with respect to other subjects. The regulation of 
 our 250,000 miles of railway was his chief concern. While 
 admitting that the interstate-commerce act and the Inter- 
 state Commerce Commission had done much to correct 
 the wrongs and mistakes of transportation, his unerring 
 vision detected the inherent and fundamental defects in 
 the system. It was again an instance of want of coordina- 
 tion. Not for a moment did he hesitate in reaching down 
 to the underlying causes of failure and in exposing them 
 to the view of less analytical observers. He believed 
 that adequate regulation could not be secured until all 
 railway corporations were organized under the laws of 
 the United States, and without entering into the detail of 
 his marvelous plan it is enough to say that, under my ob- 
 servation, he gave 10 years of his life to the movement, 
 and led it from the darkness of total obscurity and the 
 weakness of almost universal opposition to the very point 
 of general approval and acceptance. With the dawn of 
 victory gladdening his weary eyes, the summons of the 
 Master came. 
 
 Greatness is elusive and hard to define. No man is 
 great in all things and few are great in anything. 
 
 The man who leaves behind him an indelible impress 
 for good upon the world is a great man. The man who 
 found his country wrong in any material thing and by his 
 influence left it right was a great man. 
 
 In this rank I enroll Francis Griffith Newlands. 
 
 [58] 
 
Address of Mr. Henderson, of Nevada 
 
 Mr. President: The passing of Francis G. Newlands 
 came at a time when the State, and in large measure the 
 Nation, could ill afford his loss. 
 
 Never before were the people of the United States and 
 the Congress faced with problems affecting so directly 
 everj' phase of our national life and our internatiohal re- 
 lations, whose solution will shape the destiny of man for 
 centuries. 
 
 The welfare of our present and future millions depends 
 absolutely upon the decisions that must be reached in 
 this Chamber. To the wise solution of these problems 
 must be brought not only the wisdom and experience of 
 the past but an ability to penetrate the future and judge 
 its needs. This demands vision. Such vision had Wash- 
 ington; such vision had Lincoln; and such vision had he 
 whom we miss and honor at this hour. 
 
 Had Senator Newlands lived, his vision, his energies, 
 and his talents would have been generously devoted to 
 the great new w^ork at hand, and his advice and counsel 
 would have made straight and plain many of the paths 
 that now seem dark and uncertain. But it is not to be 
 given to us to measure what that service might have been, 
 for he has taken his honored place among those who have 
 served the Republic, and his name stands high upon the 
 Nation's honor roll as one who foresaw and made wise 
 provision for his country's development and welfare. 
 
 Now that the Book of Life is closed to him here, of 
 how little moment it is where and when he was born, or 
 from whence he sprang; of how little concern is a record 
 
 r591 
 
Memorial Addresses: Senator Newlands 
 
 of his comings and goings and the events that marked his 
 useful life of 69 years. His fame rests not on these, but 
 will endure through his great works accomplished here; 
 through his clear vision coupled with rare capacity for 
 work which made him one of the great constructive 
 statesmen of his time. He will live in the hearts of grate- 
 ful millions as that great empire reaching from the water- 
 sheds of the Mississippi to the boundaries of California 
 attains its highest development and fructifies because of 
 the wise and beneficent plans of water storage and control 
 and the irrigation and reclamation of arid lands so ably 
 fostered and developed by him. 
 
 In reviewing the life work of Senator Newlands, recall- 
 ing many conversations had with him on the great prob- 
 lems to which he had addressed himself, there has re- 
 peatedly recurred to me the words and the vision of 
 another great statesman, Edmund Burke, who said in 
 his speech on conciliation: 
 
 Young man, there is America — which at this day serves for 
 little more than to amuse you with stories of savage men and un- 
 couth manners; yet shall, before you taste of death, show itself 
 equal to the whole of that commerce which now attracts the envy 
 of the world. Whatever England has been growing to by a 
 progressive increase of improvement, brought in by varieties of 
 people, by succession of civilizing conquests and civilizing set- 
 tlements in a series of seventeen hundred years, you shall see 
 as much added to her by America in the course of a single life! 
 If this state of his country had been foretold to him, would it 
 not require all the sanguine credulity of youth, and all the fervid 
 glow of enthusiasm, to make him believe it? Fortunate man, he 
 has lived to see itl Fortunate indeed if he lives to see nothing 
 that shall vary the prospect and cloud the setting of his day! 
 
 Senator Newlands had the same vision of Burke as to 
 the future of America. And to him was given the privi- 
 lege and the opportunity to make much of the dream of 
 both come true. 
 
 [60] 
 
Address of Mr. Henderson, of Nevada 
 
 His life spanned a period in the development of the 
 United States of America in which greater progress was 
 made in the work of controlling and utilizing the forces 
 of nature for the benefit of mankind than had ever been 
 made before in any period of human history. 
 
 When he was a youth the vast territoiy extending from 
 the Mississippi River to the Pacific Ocean was almost an 
 unbroken wilderness, unpopulated and undeveloped. 
 Through the ensuing years the part he took in its trans- 
 formation is conspicuous and truly worthy. 
 
 From the beginning to the end of his public career, 
 both as a Member of the House of Representatives and 
 of the Senate, covering a period of 25 years, his dream 
 of conquest was for the conquest of the deserts and 
 their subjugation to the uses of mankind. To a large 
 extent he lived to see the fulfillment of that dream. It is 
 conceded by those familiar with the events leading up to 
 the enactment of the United States reclamation act in 
 June, 1902, that without his efforts in its behalf there 
 would have been no such law, though no one could have 
 been more generous than he in extending to his coadju- 
 tors in that great undertaking the fullest measure of credit 
 and recognition. The reclamation act before its passage 
 was known as the Newlands national irrigation bill. He 
 suggested the plan of providing a revolving fund from the 
 proceeds derived from public-land sales, and around 
 the measure embodying this idea he organized the west- 
 ern Representatives solidly in its support. The success 
 of the engineers of the Reclamation Service in the con- 
 struction of the great engineering works built under the 
 reclamation act was to him a source of never-failing 
 gratification. 
 
 Great as was his work on reclamation, of more far- 
 reaching import were his efforts on water control, cen- 
 tering largely on the Mississippi and its vast watershed. 
 
 [61] 
 
Memorial Addresses: Senator Newlands 
 
 He was born at Natchez, Miss., on the banks of the great 
 Father of Waters. Those were the days when the river 
 was crowded with the splendid river steamers, which were 
 a feature of the earlier development of transportation in 
 this country. 
 
 It is an interesting fact that one of the greatest ambitions 
 of his later years was a restoration of the rivers of the 
 country to their rightful place as a part of a great coordi- 
 nated system of rail and water transportation, and par- 
 ticularly that the Mississippi River, on the banks of which 
 he was born, should again enjoy its rightful heritage as 
 one of the greatest carriers of water-borne commerce in 
 the world. 
 
 Looking backward he saw in his mind's eye that mighty 
 river carrying on its bosom the crowded commerce of a 
 vast inland territory, teeming with a life filled with events 
 that stirred men's blood and with a romance that fasci- 
 nated their minds. 
 
 Looking forward he saw the vision of that magnificent 
 river harnessed and controlled; its floods conquered and 
 made to do man's bidding, its depth standardized and flow 
 regulated, its banks stabilized and lined with thriving 
 communities, the gateways through which a rich and 
 populous land, well named " The Sugar Bowl of the Con- 
 tinent," shall pour into the world's commerce its con- 
 tributions to the needs of man. 
 
 Since Marquette first threaded the swamps of that 
 river's valley and Ponce de Leon sought the fountain of 
 youth along its lower reaches, the menace of devastating 
 floods has hung like a pall over that region. The Ohio, the 
 upper Mississippi, and the Missouri have poured their 
 flood waters into the lower Mississippi without let or 
 hindrance. 
 
 Looking forward, again, into the glass of the future he 
 saw the Hoods prevented at their source; he saw the 
 
 [62] 
 
Address of Mr. Henderson, of Nevada 
 
 freshet waters held back and absorbed into Mother Earth, 
 our greatest reservoir, to nourish the growth and increase 
 the fruitage of plants and trees; he saw the floods im- 
 pounded in surface reservoirs and used to drive the power 
 wheels for industry; he saw the source streams on all that 
 vast watershed, comprising one-third of the entire area of 
 the United States, regulated and controlled; he saw the 
 time when floods shall be no more, and when the now 
 wasted flood waters shall be proved to have been, as he so 
 well characterized them, " the Nation's greatest asset " ; 
 he saw the channels of all the source streams which are 
 now ranging torrents in winter and dry beds in summer 
 changed to cool and beautiful perennial streams, flowing 
 gently through deep pools, between banks overhung with 
 verdure, and led out through myriads of ditches to carpet 
 the fields with green and water the gardens around count- 
 less homes where men and women and their children 
 shall have found a land of plenty. 
 
 It is not alone in the arid region that irrigation is a 
 blessing. In the not distant future, in every State of the 
 Union, millions of irrigated garden homes will contribute 
 food for the family, and the Nation will be astonished at 
 the yield from the magic touch of water. In the humid 
 region supplemental irrigation is crop insurance and will 
 prodigiously increase crop production. These are the 
 benefits of source stream control and river regulation in 
 which every farmer may participate, whether his farm be 
 located on the prairies of the central West, among the 
 hills of New England, in the Allegheny or Appalachian 
 Valleys, or in the arid region. 
 
 His labors in this field of water conservation, water 
 development, and water utilization were not limited to 
 the West. He thought always as a national statesman, 
 never as a local representative only. His vision of the 
 national benefits from the control and use of water 
 
 [63J 
 
Memorial Addresses: Senator Newlands 
 
 covered every watershed in the United States and every 
 use to which " the Nation's greatest asset," its unused 
 waters, could be put. Not the least of these uses was 
 navigation, and a great national network of waterways 
 was the keystone of the arch of the system he proposed. 
 
 His efforts in this field culminated in a legislative 
 measure known as the Newlands river-regulation bill. 
 That bill provided a complete and comprehensive system 
 for regulating the flow of all the rivers of the United 
 States and all their source streams, through coordinating 
 for teamwork, in place of the chaotic confusion that now 
 exists, the Departments of War, Interior, Agriculture, and 
 Commerce, in cooperation with the States and all local 
 agencies, or, as he himself expressed it in the bill, " with 
 a view to assigning to the United States such portion of 
 such development, promotion, regulation, and control as 
 may be undertaken by the United States, and to the States, 
 political subdivisions thereof, municipalities, commun- 
 ities, corporations, and individuals such portions as be- 
 long to their respective jurisdictions, rights, and interests." 
 
 The larger measure was summarized and epitomized in 
 an amendment to the river and harbor bill which became 
 a law on August 8, 1917, and has been known as the New- 
 lands river-regulation amendment. The appointment of 
 the commission created by this river-regulation amend- 
 ment will practically bring to fruition the life work of 
 Francis G. Newlands in that field. It was his belief that 
 the creation of that commission, not as a mere investi- 
 gating commission but as a permanent coordinating com- 
 mission, with a membership in sympathy with the broad 
 and comprehensive purposes of the act, would insure to 
 the people of the country the far-reaching benefits con- 
 templated in the original bill as fast as the work of con- 
 struction can be practically carried forward. Every great 
 structure built in the future through the work of that 
 
 [64] 
 
Address of Mr. Henderson, of Nevada 
 
 commission will stand as an enduring monmnent to the 
 life work of Francis G. Newlands. 
 
 While water conservation is perhaps the most conspicu- 
 ous achievement of Francis G. Ne\vlands, it by no means 
 marks the limit of his accomplishments as a national 
 legislator. He took an active part in many matters of 
 national importance. It may be said of him that through- ■ 
 out his long career in Congress there was hardly an im- 
 portant subject that had not the benefit of his intelli- 
 gence, his judgment, and his powers. 
 
 Senator Newlands's quarter of a century of service in 
 Congress was marked by unremitting study, which took 
 him deep into the fundamentals of the various phases of 
 the legislation he sought to develop, by tireless energ>% 
 and finally by high accomplishment. As has been well 
 said before, any one of several of his efforts was great 
 enough to have been the great life work of a great man. 
 He fairly earned the verdict so freely given him by the 
 people of Nevada, "Well done, good and faithful serv- 
 ant." 
 
 Mr. President, on August 2, 1917, Senator Ne\vlands 
 delivered in this body an address on river develop- 
 ment, water conservation, and coordinated rail, river, 
 and ocean transportation. At that time permission was 
 granted the Senator to insert historical statements on this 
 measure, containing extracts from messages of various 
 Presidents, extracts from reports of committees, and other 
 public matter, both in new^spapers and in the public 
 records, and letters relating to this subject. When I ar- 
 rived in Washington I found that these remarks had been 
 corrected and these historical data had been supplied, 
 and permission having been granted at that time, I now 
 send to the desk the remarks of the Hon. Francis G. New- 
 lands on the subjects just enumerated, with the data at- 
 tached, and ask that they be printed in the Record. 
 
 115652'— 20 5 [65] 
 
Memorial Addresses : Senator Newlands 
 
 The Presiding Officer (Mr, Pomerene in the chair). 
 Without ohjection, they will be ordered printed in the 
 Record. 
 
 (The matter referred to appears on pages 75-182.) 
 
 Mr. Henderson. Mr. President, I also send to the desk a 
 memorial to Francis G. Newlands by the National Rec- 
 lamation Association and ask that it be printed in the 
 Record. 
 
 The Presiding Officer. Without objection, it is so 
 ordered. 
 
 The memorial is as follows: 
 
 National Reclamation Association. 
 
 MEMORIAL to FRANCIS G. NEWLANDS. 
 
 " Where there is no vision the people perisli." 
 
 The country owes a debt of gratitude to Francis G. Newlands 
 that can be paid only by completing tlie great work to wliich liis 
 life was devoted. His vision of nature's devastating forces con- 
 quered and controlled, of deserts reclaimed by irrigation and 
 swamps by drainage, of valleys defended against onrushing 
 floods, of forests safeguarded against fires, of grass and trees 
 made to grow over millions of acres where none grew before, 
 of winter floods harnessed to float water-borne commerce in 
 summer and furnish power to industry, of waterways aiding 
 railways to meet growing transportation needs, of the Nation's 
 greatest asset, its unused and now wasted waters, fully conserved 
 and utilized for food production, power, and navigation, was a 
 vision of benefactions to future generations that will guide and 
 inspire all who may hereafter labor for its fulfdlment. 
 
 Peace will bring obligations to serve humanity no less potent 
 than the demands of war. The devastating forces of nature, 
 forest fires, floods, and the deadly encroachments of the desertSj 
 must in future be fought with the same invincible determination 
 and adequate expenditure with which we have fought the devas- 
 tating forces of war. Wherever the tendrils of a new life are 
 creeping upward beside the hearthstone of a home founded on 
 the reclaimed desert, the child at its mother's knee should be 
 taught its obligations to those who made that home possible, and 
 its duty to enlist in the great army of peace that will fight to 
 achieve the full realization of the vision of the pioneers of deserts 
 
 [66] 
 
Address of Mr. Henderson, of Nevada 
 
 conquested, swamps subjugated, and floods chained and held 
 back until needed to feed gently flowing rivers. 
 
 For a full quarter of a century Francis G. Newlands was a 
 guiding spirit among those pioneers and their leader in the na- 
 tional halls of legislation. He attended the first session of the 
 National Irrigation Congress at Salt Lake City in 1891, and bore 
 a prominent part in its deliberations. Elected to the House of 
 Representatives in the following year (1892), he deliberately 
 dedicated himself to the one great task on which he had deter- 
 mined to found his public career — the reclamation of the arid 
 lands by means of a bold and far-reaching policy of statesman- 
 ship. His capacious intellect, informed by wide experience of 
 affairs and tempered by a fine instinct of benevolence, supplied 
 the ?deal equipment for this special undertaking. 
 
 He realized that the men of the great West, as trustees for 
 the Nation, and forefathers of an unimaginable future, stood in 
 the presence of a vast problem of which there then appeared no 
 possible solution, yet upon the solution of which the existence 
 and happiness of millions of people would ultimately depend. 
 
 At the beginning of his work in Congress he encountered three 
 apparently insuperable obstacles. 
 
 First, there w-as a well-nigh universal hostile public opinion, 
 for the science of irrigation was unknow^n or unappreciated; the 
 half continent of arid or scmiarid land was considered practi- 
 cally worthless. 
 
 Next, there was deep-seated opposition from eastern people, 
 particularly farmers, to the appropriation of public moneys for 
 the creation of new agricultural districts in the far west. 
 
 Finally, there were local jealousies in arid Arizona itself, each 
 State and valley preferring its own claims to attention before all 
 others. 
 
 With unconquerable optimism this man of vision set himself 
 to overcome the stupendous odds. 
 
 His ceaseless campaign of education, conducted both in and 
 out of Congress, with voice and pen, and extending even to his 
 Washington home, where he converted his colleagues through 
 a series of entertainments and illustrated lectures, eventually 
 brought a powerful following to his support. 
 
 But he had yet to forge the weapon — the actual legislation — on 
 the anvil of debate. He brought forth at length a shining lance, 
 a miracle of statesmanship, which enabled him to strike a fatal 
 blow to the heart of all opposition, both eastern and western. 
 
 [67] 
 
Memorial Addresses: Senator Newlands 
 
 This weapon was the original Newlands national irrigation bill, 
 introduced January 26, 1901, nearly 10 years subsequent to the 
 first national irrigation congress, but prior to the appointment 
 of the famous committee of western statesmen who finally ap- 
 proved it and before the accession of the President who later 
 urged and signed the measure. 
 
 The Newlands bill overcame all eastern opposition by propos- 
 ing to take the receipts arising from the sale of the public do- 
 main — money contributed by western settlers in exchange for 
 western lands — instead of asking appropriations from the Na- 
 tional Treasury. 
 
 It harmonized all western differences by providing for the 
 equitable apportionment of the fund among the public-land States. 
 
 It was a great piece of automatic legislation, placing a revolving 
 fund at the disposal of the Secretary of the Interior and thus pro- 
 viding for the construction of project after project without fur- 
 ther action of Congress. 
 
 If the fame of Francis G. Newlands rested on nothing more it 
 would be secure in the hearts of the western people, but his pro- 
 motion to the Senate of the United States was followed by some- 
 thing infinitely greater — the Newlands river-regulation bill — cer- 
 tainly the most comprehensive and perhaps the most beneficent 
 single measure of legislation ever devised in any age or country. 
 
 Under the terms of this bill man would assert his promised 
 dominion over the earth and come into his rightful heritage. 
 
 Every stream would be harnessed — for power, for irrigation, for 
 drainage, for navigation; erosion and floods would be prevented 
 and their menace lifted from the flood-stricken valleys. 
 
 Every forest area would be conserved, every deforested area 
 replanted, and new forest plantations created. 
 
 There would be no idle men in the length and breadth of the 
 land; for the work of broadening the country's economic founda- 
 tion and mobilizing its entire fund of natural resources for human 
 uses would absorb and reward all energies. 
 
 And this was and is only the beginning. 
 
 The great ultimate objective is to open the way for millions of 
 men and women to get homes on the land, to achieve individual 
 independence, and thus effectually to secure the true liberty of 
 the American people throughout all generations. 
 
 The adoption of this policy of continental conquest is as certain 
 as the rising of to-morrow's sun. 
 
 [68] 
 
Address of Mr. Henderson, of Nevada 
 
 On no other terms can the Republic meet the mighty strain that 
 will be put upon it with the cessation of war activities and the 
 return home of the battling hosts. 
 
 No man lives beyond his allotted span save the few who give the 
 world a new and creative thought that influences for good the 
 fortunes of the many throughout all time. 
 
 To this small company of immortals Francis G. Newlands 
 assuredly belongs. 
 
 A great man who led his country to the threshold of a great 
 epoch and pointed the way! 
 
 He fell at the supreme height of his usefulness. 
 He had steadily grown through the years until at last he had 
 attained an unquestioned eminence in the rare quality of con- 
 structive statesmanship. 
 
 His fame will broaden and deepen with the passing generations 
 living in the shelter of his thought and work. 
 
 J. H. Brady, president; Francis Cuttle, vice president; 
 W. A. Reeder, chairman of the board; George L. 
 Ralston, treasurer; Fred E. Peterson, secretary; 
 William E. Smythe, T. P. Lukens, George Wharton 
 James, memorial committee; A. K. Brauer, M. V. 
 Hartranft, Louis C. Hill, George H. Maxwell, Frank 
 H. Olmsted, executive council. 
 
 [69] 
 
Letter from Mr. Saulsbury, of Delaware 
 
 Mr. PiTTMAN. Mr. President, the Senator from Dela- 
 ware [Mr. Saulsbury] has written me a letter which I ask 
 permission to read. It is as follows: 
 
 United States Senate, 
 Committee on Coast and Insular Survey, 
 
 August 31, 1918. 
 Hon. Key Pittman, 
 
 United States Senate, Washington, D. C. 
 
 Dear Senator : It causes me deep regret that I am unable to be 
 present at the memorial exercises of Senator Newlands to be held 
 in the Senate on Monday. The postponement of these exercises 
 has made it impossible for me to make a short address on the occa- 
 sion; therefore I am writing you. 
 
 I do not believe the Senate ever had among its Members a more 
 earnest, industrious, straightforward, honorable, untiring Senator 
 than Francis G. Newlands, of Nevada. Those of us who were 
 honored with his personal friendship feel deeply the great loss 
 we have suffered. He was a man of far vision, looking toward the 
 great ends of government and public action, troubled little by the 
 smaller details or temporary hindrances which sometimes seem so 
 important to men of more limited horizon. 
 
 Several times during my service with him in the Senate he has 
 proposed measures far in advance of the thought of the time and 
 lived to see us come to take the view he has first advanced. His 
 solicitude when considering public matters was always that right 
 principles should be established and the matter immediately under 
 consideration brought in harmony with the principle, rather than 
 that some temporary aim should be served. I doubt if Senator 
 Newlands in advocating or opposing a measure ever considered 
 whether a majority of his colleagues would support his views or 
 oppose them. His effort was to have us all appreciate the reason 
 for the course he advocated, and, having presented those reasons, 
 I never observed in him the slightest sign of irritation toward any- 
 one who failed to appreciate the views he presented. 
 
 [70] 
 
Letter from Mr. Saulsbury, of Delaware 
 
 I esteemed it a great privilege to be considered by Senator New- 
 lands as a personal friend. I saw him often, and only a few 
 hours before his death enjoyed that perfect hospitality for which 
 in this city he was famed. 
 
 Senator Newlands will be long remembered by those who 
 served with him in the Senate as a faithful, high-minded public 
 servant, who conscientiously and with consideration only of the 
 public interest brought forward and advocated public measures 
 which came before us. The West lost in him one of her greatest 
 sons, and the Nation mourns a Senator of high ideals and far- 
 visioned aspirations, guided in his public efforts by his conception 
 of the best interests of all our people in the widest sense. He was 
 useful, eloquent, and industrious, and by his efforts helped to 
 maintain the high standard of the Senate, which loved and re- 
 spected him. 
 
 Yours, very truly, 
 
 WiLLARD Saulsbury. 
 
 The Presiding Officer. The ceremonies having heen 
 concluded, the Secretary will notify the House of Repre- 
 sentatives thereof, and, in accordance with the unanimous- 
 consent agreement, the Senate stands adjourned until 12 
 o'clock to-morrow. 
 
 Thereupon (at 2 o'clock and 30 minutes p. m.) the 
 Senate adjourned until to-morrow, Tuesday, September 
 3, 1918, at 12 o'clock m. 
 
 [71] 
 
Proceedings in the House of Representatives 
 
 Thursday, January 3, 1918. 
 The Chaplain, Rev. Henry N. Couden, D. D., offered the 
 following prayer: 
 
 Almighty God, our heavenly Father, whose invisible 
 hand guides the stars, which mark the flight of time, Thou 
 hast brought us to the beginning of a new year, with its 
 hopes and ever-widening possibilities. 
 
 The past is ours by inheritance and by our personal ex- 
 perience. The future is a closed book. Help us by the 
 wisdom of the past, its mistakes and defeats, that with 
 calmness and serenity we may read the pages o( the fu- 
 ture, as they are unfolded, with fortitude, courage, and 
 vigor. 
 
 As the sun rose upon the new year it looked down upon 
 a world of strife, carnage, brutality, and heart-rending 
 suffering and sorrow. Grant, O most merciful Father, 
 that amid all we may cling to Thee in faith as our refuge 
 and our strength, for faith is truer than doubt, truth is 
 mightier than the sword, right is stronger than might, and 
 love shall live when the stars have all gone out. 
 
 May the duty well done to-day strengthen us for the 
 duties of the to-morrow, and may the achievements of 
 the past inspire us to the new achievements which the 
 future hath in store for the faithful. 
 
 Since we last met two Members of the congressional 
 family have crossed the river of death; peace be to their 
 souls, and the consolation of faith, hope, and love sus- 
 tain their colleagues, friends, and bereaved families. In 
 His name. Amen, 
 
 [73] 
 
Memorial Addresses: Senator Newlands 
 
 A message from the Senate, by Mr. Waldorf, its enroll- 
 ing clerk, announced that the Senate had passed the fol- 
 lowing resolutions: 
 
 Resolved, That the Senate has heard with profound sorrow of 
 the death of the Hon. Francis G. Newlands, late a Senator from 
 the State of Nevada. 
 
 Resolved, Thai the Secretary communicate these resolutions to 
 the House of Representatives and transmit a copy thereof to the 
 family of the deceased. 
 
 Resolved, That as a further mark of respect to the memory of 
 the deceased the Senate do now adjourn. 
 
 Mr. Roberts. Mr. Speaker, it is my solemn and painful 
 duty to announce the death of the Hon. Francis Griffith 
 Newlands, late a Senator from the State of Nevada, and 
 formerly for many years a Member of this House. I shall 
 ask at some later date that a day be set apart for Mem- 
 bers of this House to pay a fitting tribute to his memory 
 as a citizen and as a public servant. I offer the following 
 resolution. 
 
 The Speaker. The Clerk will report it. 
 
 The Clerk read as follows : 
 
 Resolved, That the House has heard with profound sorrow of 
 the death of Hon. Francis Griffith Newlands, late a Senator 
 from the State of Nevada. 
 
 Resolved, That the Clerk communicate these resolutions to the 
 Senate and transmit a copy thereof to the family of the deceased. 
 
 The resolutions were unanimously agreed to. 
 
 [74] 
 
APPENDIX 
 
 River Development — Water Conservation — Coordinated Rail, 
 River, and Ocean Transportation. 
 
 [Remarks of Hon. Francis G. Nkwlands, of Nevada, in the Senate of the United 
 
 States, Thursday, Aug. 2, 1917.] 
 
 The Senate had under consideration the conference report on the river and 
 harbor bill, conflrming the Senate amendment. 
 
 Mr. Newlands. Mr. President, I quite agree with the 
 Senator from Minnesota [Mr. Nelson] as to the impor- 
 tance of bringing the rail and water carriers into coordi- 
 nation and cooperation. I wish, however, to call the at- 
 tention of the Senator from Minnesota to the fact that, de- 
 sirable as the cooperation and coordination of rail and 
 water carriers is, we must have a perfected instrumental- 
 ity for rail carriers and must have a perfected instrumen- 
 tality for water carriers; and a complete and perfect 
 waterway is as essential for water carriage as a complete 
 and perfect railway for rail carriage. 
 
 THE RHINE AND THE DANUBE. 
 
 We have been singularly lethargic in our movement for 
 the perfection of our waterways. The newspapers an- 
 nounce that, even during the stress of war, Germanj'^ and 
 Austria have agreed upon a plan, and are now engaged in 
 its actual execution, of connecting the headwaters of the 
 Rhine, which empties into the North Sea, with the head- 
 waters of the Danube, emptying into the Black Sea. 
 When that is done we shall find as the result that the per- 
 fectly coordinated system of waterways of Germany — 
 uniting all her waterways by artificial connection in such 
 a way that you can proceed from one part of Germany 
 to any other part of Germany by waterway — will be 
 united with an equally perfected system of waterways in 
 Austria. When this war ends that great union of coordi- 
 nated empires will have the most perfect system of rail, 
 river, and ocean transportation in the world. 
 
 [75] 
 
Appendix 
 
 COORDINATED RAIL AND RIVER TRANSPORTATION. 
 
 Mr. President, I wish to add something fuxihcr to what 
 the Senator from Minnesota has said.. He has suggested 
 that, as chairman of the Interstate Commerce Committee, 
 I should apply my energies to bring the rail and water- 
 way carriers into coordination. I wish to say that that 
 matter has received my utmost earnest attention, and is 
 now before the Joint Committee on Interstate Commerce 
 of the Senate and the House of Representatives, of which 
 I have the honor to be chairman, and which is consider- 
 ing the whole question of waterway transportation. If 
 the Senator will read the reports of the hearings held by 
 that joint committee, he will find how large a space is de- 
 voted to the consideration of a perfected waterway sys- 
 tem, with a view of bringing rail carriers, river carriers, 
 and ocean carriers into coordination. 
 
 Now, Mr. President, I wish to express my great gratifi- 
 cation that the amendment of the Senate providing for a 
 waterways commission has been accepted by the House 
 conferees. 
 
 THE RIVER-REGULATION BILL. 
 
 This amendment embodies the substantial features of a 
 measure known as the river-regulation bill, which some of 
 us have been urging for years for the practical coordina- 
 tion of the engineering and scientific services of the coun- 
 try engaged in the study of our water resources in order 
 that those resources may be fully utilized for navigation, 
 irrigation, swamp and arid land reclamation, water- 
 power development, and all other useful purposes for 
 which the surplus waters that are now wasted may be 
 bencticially used, and for the coordination of the Nation 
 with the States in plans and works for the full develop- 
 ment from the source to the mouth of all waterways 
 in such a way as to eliminate destructive floods and to 
 
 » [76] 
 
Remarks of Mr. Newlands 
 
 utilize flood and stored waters for beneficial and wealth- 
 producing purposes. 
 
 Such legislation was approved nearly 10 years ago by 
 the Inland Waterways Commission appointed by Mr. 
 Roosevelt, and has been supported by Mr. Roosevelt and 
 by Mr. Taft, as well as by President Wilson and his Cabi- 
 net. Whilst the provision in the river and harbor bill 
 does not carry the large appropriations contemplated in 
 the original bill introduced by me and urged for so many 
 years, it does provide for its entire plan of organization 
 and administrative machinery, and under it plans for 
 construction can be perfected and submitted for the ap- 
 proval of Congress. 
 
 I predict that the passage of this measure will open up 
 a new era in transportation and that under it a perfectly 
 coordinated system of rail, river, and ocean transporta- 
 tion will be developed. I predict also that destructive 
 floods will be mitigated and eventually eliminated; that 
 swamp lands will be restored; that arid lands will be 
 •reclaimed; that intensive cultivation and forestry will be 
 stimulated by supplies of stored water; that water power 
 will be developed for municipal and power uses; and that 
 under its provisions a remarkable conservation of the nat- 
 ural resources of the country will be established. 
 
 No one can picture the beauty and perfection of our 
 waterway system when our river banks can be made 
 stable, when the channels become fixed and the flood 
 plane determined and controlled, and when thriving 
 towns and cities will be established at places which have 
 been for years threatened with constantly rising floods 
 and recurring overflows. 
 
 WATER CONSERVATION A WAR MEASURE. 
 
 As a war measure nothing surpasses in importance this 
 jiieasurc. Our rivers, connected with each other by arti- 
 ficial channels, and with the Great Lakes, and with the 
 
 [77] 
 
Appendix 
 
 gulfs and oceans, will carry the cheap and bulky articles 
 of freight which are now burdening our railroads to the 
 point of congestion. 
 
 We must not overlook the fact that the war is enor- 
 mously stimulating industiy along lines that are largely 
 temporary. Peace will bring far-reaching stagnation, un- 
 less some great constructive policy for building internal 
 improvements is substituted for the stimulus to industry 
 created by the war, which will be withdrawn when peace 
 returns. The plans for such a great national constructive 
 era for internal improvement and development can now 
 be made before the war closes. The instant peace has 
 been achieved this Nation can turn the same indomitable 
 energy that it is now devoting to winning this war against 
 a foreign foe to winning a greater war against the destroy- 
 ing forces of nature, and to the creation of new wealth, by 
 building waterways, by creating new communities on re- 
 claimed lands, by developing water power, by controlling 
 floods, by planting forests, by preventing forest fires, and 
 by conserving for the best and highest use, for the benefit- 
 of all the people, the natural resources of the country. 
 
 THE SAME ALL-CONQUERING ENERGY. 
 
 The greatest waste that takes place in this country to- 
 day is the waste of its surplus waters, which arc the 
 Nation's greatest asset, but which now run to waste in the 
 sea, carrying destruction in their path, in the form of 
 devastating floods. We must learn to conserve that waste 
 and to transform it into wealth; we must learn to fight 
 that devastation with exactly the same all-conquering 
 energy that we are now devoting to war. In no other way 
 can the period of industrial depression that will otherwise 
 be the aftermath of the war be so effectually averted. If 
 that is to be done the great work of making the working 
 plans for construction must be done before the war ends.. 
 It must be begun now and prosecuted with the same dili- 
 
 [78] 
 
Remarks of Mr. Newlands 
 
 geiice that war measures are being prosecuted. This 
 great work of building internal improvements and creat- 
 ing densely settled rural communities on newly reclaimed 
 lands and on old lands protected from overflow or forti- 
 fied by an abundant water supply will furnish a way of 
 providing for the industrial employment of the hundreds 
 of thousands of men who will return from the war when 
 it has closed and their terms of enlistment have expired, 
 and for whom occupation must be provided in time of 
 peace. 
 
 STRENUOUS ECONOMIC COMPETITION. 
 
 We can not ever expect to maintain a large army in 
 idleness in this country in time of peace, but we can 
 maintain an industrial army. The pressure of the strenu- 
 ous economic competition that vvdll prevail in the world 
 after the war will not permit the economic waste of a 
 large army of idlers. If we have an army it will have to 
 be a working army, engaged in the construction of works 
 of internal improvement, such as are contemplated in 
 this provision for river regulation which is embodied in 
 the river and harbor bill. 
 
 In the economic era that lies ahead, that nation which 
 applies the greatest science and skill in the elimination of 
 waste, in the conservation of natural resources, and in 
 the development of opportunity, will fare best in mate- 
 rial progress, in the creation of national strength and 
 wealth, and in the progressive development of world 
 influence. This river-regulation provision opens the gate 
 wide for us. 
 
 A CONSTRUCTIVE EXECUTIVE. 
 
 Mr. President, the agitation which has finally resulted 
 in the adoption of this measure has been going on for 
 more than 10 years; very many have contributed most 
 materially to its advancement; waterways associations 
 and chambers of commerce and boards of trade through- 
 
 [79] 
 
Appendix 
 
 out the country have had their attention directed to this 
 movement and have approved it, and many eminent, ener- 
 getic, and public-spirited men have contributed to its ad- 
 vancement. I wish to say, how^ever, that my experience in 
 Congress has been that it is very difficult for an individual^ 
 Member of Congress to initiate and carry through within a 
 reasonable period any great constructive work of legisla- 
 tion. It took 10 years to carry through the reclamation 
 act, and then we had to summon to our support the match- 
 less energy of Theodore Roosevelt, without whose aid the 
 passage of that bill would probably have been much 
 longer delayed. It is absolutely essential that there be a 
 constructive Executive to focus the attention of the coun- 
 try and of Congress upon a particular constructive meas- 
 ure. So it was in reference to the Trade Commission, a 
 measure which has been pending here for years, and 
 which needed the energizing force of President Wilson to 
 carry it into accomplishment; so it is with this measure. 
 Every friend of waterway development is indebted to Mr. 
 Wilson for the painstaking attention which he has given 
 to this subject. He appointed a Cabinet committee to in- 
 vestigate it and to make a report to him, and ever since 
 that time he has been the firm and consistent friend of a 
 great, comprehensive measure for the development of our 
 waterways and the conservation and utilization of our 
 water resources. 
 
 THE EDUCATIONAL CAMPAIGN. 
 
 I can not in this connection close in reference to those 
 who outside of Congress have been active in this move- 
 ment without referring to Mr. George H. Maxwell, the 
 executive director of the National Reclamation Associa- 
 tion, who is so prominently identified with the national 
 reclamation movement, who conducted the educational 
 campaign throughout the country for 10 years which 
 finally led to putting that measure upon the statute books; 
 
 [80] 
 
Remarks of Mr. Newlands 
 
 who, ever since then, has been continuously connected 
 with the nation-wide educational campaign for the pas- 
 sage of this measure, and who, as the trusted adviser of 
 the Flood Commission of Pittsburgh and of the Reclama- 
 tion Association of Louisiana, gave his ripe experience to 
 the subject of conducting this great educational campaign 
 and the prosecution of the work of those organizations. 
 In connection with that work, he lived for nearly three 
 years in Pittsburgh, from 1908 to 1911, studying the flood 
 problems of the Ohio River Valley, and during 1912 and 
 1913, the two great flood years, he was in New Orleans 
 studying the flood and waterway problems of the Missis- 
 sippi River Valley. 
 
 Mr. President, I would be glad to mention other names, 
 among them the names of Frederick H. Newell; Gifford 
 Pinchot; the late W J McGee; Herbert Knox Smith; Wal- 
 ter Parker, of New Orleans; Robert H. Downman, of New 
 Orleans; Joseph N. Teal, of Oregon; the late Charles B. 
 Boothe, of Los Angeles, for many years president of the 
 National Reclamation Association; William E. Smythe, of 
 San Francisco, the founder of the National Irrigation Con- 
 gress; Francis Cuttle, of Riverside, chairman of the Tri- 
 Counties Reforestation Committee; J. L. Craig and George 
 McM. Ross, of Stockton, Calif.; Gov. Hall, of Louisiana; 
 Gov. Capper and J. B. Case, of Kansas; and Herbert 
 Quick, of the Federal Farm Loan Board. 
 . The General Federation of Women's Clubs of the 
 United States, through its present chairman of conserva- 
 tion, Mrs. John Dickinson Sherman, and her predecessor, 
 Mrs. Emmons Crocker, have been unfaltering in their sup- 
 port of this measure, which is equally true of innumerable 
 State and local women's clubs, under the leadership of 
 such loyal adherents as the late Miss Hattie M. Carstens 
 and Mrs. B. F. Williston, of Detroit; Mrs. Foster Elliot, of 
 Los Angeles; Mrs. Roydan Douglas, of New Orleans; and 
 
 115652°— 20 8 [81] 
 
Appendix 
 
 many others who ought to be mentioned. In fact, there 
 is hardly a State in the Union which has not furnished its 
 quota of zealous advocates of this plan for river regula- 
 tion which is embodied in the measure now before the 
 Senate. Their name is legion, and the mention of a few 
 involves no lack of appreciation of the faithful work of 
 the many who are entitled to recognition. 
 
 In this connection, Mr. President, I ask leave to insert an 
 historical statement of this measure containing extracts 
 from the messages of various Presidents, extracts from 
 reports of committees, and other public matter, both in 
 newspapers and in the public records, as well as letters 
 relating to this subject. 
 
 The Presiding Officer. Without objection, leave will be 
 granted. The Chair hears no objection. 
 
 The matter referred to is as follows: 
 
 ToPEKA, Kans., April 5, 1917. 
 Hon. Francis G. Newlands, 
 
 United States Senate, Washington, D. C. 
 My Dear Senator: I tliought you might be interested in the in- 
 closed letter, which I have received from J. B. Case, of Abilene. 
 You probably know Mr. Case. He is one of our finest citizens and 
 a great booster for your bill. I think he is right in his views. 
 "With best regards, I am. 
 
 Very respectfully, Arthur Capper. 
 
 Farmers' Loan & Trust Co., 
 Kansas City, Mo., April 3, 1917. 
 Hon. Arthur Capper, 
 
 Topeka, Kans. 
 My Dear Governor: I inclose a clipping of the Star of this date, 
 which goes to show how slow and careless the people of the 
 United States perform and also goes to show the great projects 
 that Senator Newlands has figured out in the interest of the West; 
 I say West— in the interest of the whole country; but it looks to 
 me as though it were up to the West to push this matter of the 
 Newlands bill harder than we ever have before. 
 
 [82] 
 
Remarks of Mr. Newlands 
 
 It also goes to show that with Germany's gi'eat war and expense 
 that the present indications of war in the United States should be 
 no reason why this Government should not take up the Newlands 
 project with the sum of $600,000,000 in comparison with the 
 $163,000,000 which Germany has already appropriated for a like 
 construction. 
 
 1 have recently been drafted by this company as its president, 
 but do not think I will change my residence, as I expect to spend 
 part of my time in Abilene as usual. 
 Yours, truly. 
 
 J. B. Case, President. 
 
 [From the Kansas City Star.] 
 GERMANY PLANS A NEW SHIP CANAL. 
 
 In the midst of war Germany is planning vast industrial de- 
 velopments and internal improvements to be carried out after 
 peace comes. One of the most gigantic of these has in it a lesson 
 for Americans, and especially for those of the Middle West. It is 
 a ship canal 440 miles long, 120 feet wide, and 11 feet deep, 
 capable of floating vessels of 1,200 tons, to connect the Main and 
 the Danube Rivers. It will cost $163,000,000 and will require 
 eight years to build. The Bavarian Government has already made 
 arrangements to raise its share of the cost. 
 
 By following the course of this canal on a map of Germany 
 an idea of its importance may be had. The river Main is to be 
 deepened from its confluence with the Rhine at Mainz to Nurem- 
 berg. From there the canal will go south to the Danube. When 
 this work is finished boats from the North Sea may enter the 
 Rhine, go up to Mainz and enter the Main, and so on to the Danube 
 and down that river to the Black Sea. 
 
 Why is Germany going to spend such a vast sum on an internal 
 waterway? The answer contains the lesson from which America 
 may profit. Mainly this work is to be done to relieve railway 
 congestion. Germany's plans for great industrial development 
 can not be carried out if the railways are to become congested 
 with freight and traffic delayed. Experience has shown that in 
 times of great activity the railroads are not adequate to handle 
 the traffic. Germany has had that experience, just as we had it 
 this year, and many times before. Germany, with an already 
 widely developed system of waterways, has learned how water- 
 borne traffic relieves railway congestion. Between 1895 and 1905 
 
 [83] 
 
Appendix 
 
 the traffic on German waterways increased 125 per cent, and on 
 railways it increased 71 per cent. The two systems work together, 
 the waterways taking the poorest paying heavy merchandise, such 
 as coal, sand, lumber, hardware, leaving the railways free for 
 passengers and fast freight. 
 
 America's waterways are undeveloped. In time they will all 
 be great arteries of transportation and then we shall not have 
 the whole railway transportation system of this country stalled 
 because of congestion from trains of coal and wheat and lumber 
 and iron ore moving slowly on every line. Those commodities 
 will go by water, as they do in Germany. If the United States 
 is to keep up with Germany in the race for the world's trade we 
 must plan for as great efficiency as Germany has, and one of the 
 things contributing to that efficiency is water-borne transporta- 
 tion. 
 
 Treasury Department, 
 
 Washington, April 18, 1917. 
 Senator Francis G. Newlands, 
 
 United States Senate, ^yashington. 
 
 My Dear Senator: You and I have been interested for years 
 in the matter of the development of our inland waterways. You 
 may possibly remember my book, American Inland Waterways, 
 published in 1909 by Putnam. 
 
 For many years I have refused to take any interest in the 
 matter of this development because of the conviction which has 
 been borne in upon me that all plans for restoring commerce to 
 our rivers will be futile, save under exceptional conditions, until 
 a national policy is adopted which will require the railroads 
 to correlate their business with the business of the waterways; 
 will prevent them from pursuing policies which are destructive 
 to waterway commerce; will enable shippers to route their ship- 
 ments by land or water, in whole or in part, according to their 
 needs; which will force joint traffic arrangements between water 
 lines and railway lines; and which will build up our inland har- 
 bors with freight-handling appliances and means generally for 
 putting the waterway transportation lines as nearly upon an 
 equality with railway lines in the matter of service as is possible. 
 
 I am taking the liberty to address this letter to you at this 
 time because of the fact that the railroads are, in my opinion, 
 absolutely sure to break down completely under the load of 
 freight which they will have to carry during this war. ^•• 
 
 [84] 
 
Remarks of Mr. Newlands 
 
 We are urging the farmers to produce and produce, and to 
 continue to produce, but we are providing no additional trans- 
 portation of any sort for them. The slow, heavy freight not only 
 ought to go by water where possible, but additional possibilities 
 for its movements ought to be opened up, and the railroads 
 should be, if necessary, coerced into allowing that sort of freight 
 to come by water instead of breaking their backs trying to carry 
 it by rail. 
 
 I certainly doubt whether complete development of the interior 
 of a country like this can ever take place except by the develop- 
 ment of our waterways. 
 
 Under the present conditions of the American railways pros- 
 perity can develop only up to a certain point. When this point 
 is reached prosperity is strangled by lack of transportation. This 
 condition is intolerable, to my mind, and within six months I feel 
 sure that it will be so regarded by all minds. 
 
 Whatever is necessary to be done in the way of legislation or 
 constitutional amendments ought now to be done, in order that 
 we may adopt a national waterways policy which will include 
 not only reforestation to prevent the silting up of our water- 
 ways, but also headwaters control, a system of reservoirs on 
 the general principles advocated by Mr. Marshall 0. Leigliton 
 in 1907, and the development of the water powers which will be 
 made available by such a system. At present the constitutional 
 doctrine that nothing can be done in these matters except in 
 the interests of navigation makes all coordinated effort in that 
 direction difficult. May I suggest that now is the time for a 
 " spring drive " in the direction of waterway development? I 
 do not for a moment believe that you are oblivious of the fact 
 that the present crisis is an opportunity, and I am writing this 
 to express my belief that the breakdown of transportation which 
 is now apparent will soon make transportation one of our big 
 issues. 
 
 There are no cars for coal. The Packard Co. are delivering 
 their automobiles all over the United States, even as far as the 
 Pacific coast, by having them driven overland on account of 
 lack of cars. I am told that in the city of Flint, Mich., there 
 are from 15,000 to 20,000 automobiles parked in open places of 
 the city for lack of storage room, every one of which has been 
 sold to a customer but can not be delivered for want of cars. 
 What will happen under the pressure of war and war orders and 
 
 [85] 
 
Appendix 
 
 the movement of troops is something which the country and its 
 
 legislators have not yet realized. 
 
 Please pardon this long letter, which I will not make longer 
 
 unnecessarily. 
 
 Yours, sincerely, 
 
 Herbert Quick, 
 
 Member Farm Loan Board. 
 
 Historical Statement Regarding the Waterway Movement. 
 
 THE NEWLANDS RIVER-REGULATION AMENDMENT: SECTION IS OF THE 
 river and harbor bill of august, 1917. 
 
 [By George H. Maxwell, executive director National Reclamation Association.] 
 
 An historical statement of the national campaign that has led 
 up to the final adoption of the great comprehensive plan* for 
 river regulation provided for in section 18 of the river and harbor 
 bill of August, 1917, known as the Newlands river-regulation 
 amendment, in place of the old and hopelessly inadequate, piece- 
 meal system of river improvement, is a most interesting chapter 
 in the legislative history of the United States. 
 
 The river-regulation movement harks back to the very begin- 
 ning of the agitation for national irrigation and water conserva- 
 tion in the West — even further back than the founding of the 
 National Irrigation Congress by William E. Smythe, more than 
 a quarter of a century ago. Many of the early pioneers in the 
 movement, like Maj. J. W. Powell, did not live to see the realiza- 
 tion of their visions, but we are now within reach of that realiza- 
 tion. 
 
 River regulation — the control of the surplus flow and flood 
 waters on the source streams by systems of reservoirs — was the 
 original idea of this movement when it first took the form of a 
 nation-wide campaign. 
 
 The Newlands Reclamation Act, passed in 1902, was a com- 
 promise and provided only for the reclamation of specific tracts 
 of land where the cost of the reclamation could be reimbursed 
 from the lands reclaimed. It was not a complete adoption of 
 the comprehensive national policy which had been theretofore 
 urged upon Congress, the policy of regulating the flow of all 
 rivers by reservoirs so as to increase the water resources of 
 the Nation, without reference to any specific use of the water 
 
 L86] 
 
Remarks of Mr. Newlands 
 
 or any particular tract of land any more than has been the policy " 
 in other river improvements under the river and harbor bills. 
 
 The Newlands Reclamation Act was only a stepping-stone to 
 the more comprehensive river-regulation policy, which included 
 in its scope the full conservation and utilization of all the vast 
 unused and now wasted water resources of the United States, not 
 only for navigation but for every beneficial purpose for which the 
 water could be used. 
 
 Immediately following the inauguration of the new national 
 policy provided for by the Newlands Reclamation Act the advo- 
 cates of a nation-wide policy of river regulation returned to their 
 active efforts to secure the inauguration by Congi'ess of the whole 
 broad river-regulation policy, and those efforts have at last cul- 
 minated in its adoption through the enactment of this Newlands 
 river-regulation amendment. 
 
 The most interesting and complete historical statement here- 
 tofore published with reference to this movement is found in 
 the report of the Flood Commission of Pittsburgh, pages 1 to 5, 
 from which the following is quoted : 
 
 " HISTORICAL. 
 
 " The regulation and control of the flow of navigable rivers 
 in aid of interstate commerce is an important factor relating 
 to the conservation, development, and use of the natural re- 
 sources of the United States and the enlargement of its internal 
 trade and commerce. When such a national policy has been 
 adopted on a scale commensurate with the magnitude of the 
 problem, it will not only promote navigation and water trans- 
 jjortation but must also necessarily include the storage of flood 
 waters for flood prevention and for all other beneficial uses and 
 the protection of watersheds from denudation and erosion and 
 from forest fires. 
 
 " Much has already been done, in a disconnected and inade- 
 quate way, toward the inauguration of such a comprehensive 
 national policy for river regulation, and the work done and 
 measures advocated by the Flood Commission of Pittsburgh are 
 in the direction of an ultimate enlargem.ent of that policy, which 
 will be vastly beneficial to the entire country. The progress thus 
 far made has been accomplished as the result of three organized 
 movements: 
 
 " First. The national irrigation movement, culminating in the 
 passage of the national irrigation act, which became a law on 
 
 [87] 
 
Appendix 
 
 June 2, 1902. Under this act about $60,000,000 has been thus 
 far expended in the construction of works for water storage 
 and control in the western half of the United States. Several 
 large reservoirs have been built on the headwaters of the Mis- 
 souri River and its tributaries. 
 
 " Second. The Appalachian Forest Reserve movement, result- 
 ing in the passage of the Weeks Appalachian National Forest 
 Act, which became a law on March 1, 1911. The purpose of 
 this act, as expressed in its title, is ' to enable any State to 
 cooperate with any other State or States, or with the United 
 States, for the protection of the watersheds of navigable streams, 
 and to appoint a commission for the acquisition of lands for the 
 purpose of conserving the navigability of navigable rivers.' 
 
 " Third. The national storage-reservoir movement, which was 
 first in order of date and was inaugurated by the Chamber of 
 Commerce of Pittsburgh through the National Board of Trade 
 in December, 1898, The resolution then presented by the Pitts- 
 burgh Chamber of Commerce to the National Board of Trade 
 urged ' the storage of flood waters on the upper branches of 
 navigable streams, to be held in use for irrigation, for checking 
 damaging floods and liberating water in times of drought that 
 will preserve streams in navigable condition.' 
 
 " In behalf of this proposition Mr. George H. Anderson, then 
 secretary of the Chamber of Commerce of Pittsburgh, submitted 
 a report, the preamble of which was as follows : 
 
 " ' Your committee, to whom has been referred the subject of 
 the storage of flood waters on the higher tributaries of the navi- 
 gable streams in the Mississippi and Ohio Valleys for improving 
 navigation, providing for irrigation, etc., present the following 
 
 report,' 
 
 "After the discussion following the reading of this report, which 
 is published on pages 59 to 76 of the Report of the Twenty-ninth 
 Annual Meeting of the National Board of Trade, held in "Washing- 
 ton in December, 1898, and in Appendix No. 6 of this volume, a 
 resolution was adopted by the National Board of Trade embody- 
 ing substantially the recommendations of the Pittsburgh Chamber 
 of Commerce on this subject and laying stress upon ' the value of 
 a system of improvement on the navigable waterways of the 
 Mississippi and Ohio Basins for irrigating and making productive 
 vast areas of arid lands, for the continued improvement of these 
 rivers for transportation purposes, and diminishing the destruc- 
 tive power of floods.' 
 
 [88] 
 
Remarks of Mr. Newlands 
 
 " NATIONAL IRRIGATION MOVEMENT. 
 
 " The movement thus started by the Pittsburgh Chamber of 
 Commerce was taken up by the National Irrigation Association, 
 organized on June 2, 1899, and brought about the enactment of 
 the national irrigation act previously mentioned. This associa- 
 tion has persistently advocated the adoption of a national policy 
 which is stated in the constitution of the association as follows: 
 
 " ' The preservation and development of our natural resources 
 by the construction of storage reservoirs by the Federal Govern- 
 ment for flood protection and to save for use in aid of navigation 
 and irrigation the flood waters which now run to waste and cause 
 overflow and destruction.' 
 
 "A national educational propaganda was inaugurated, based 
 upon the action of the National Board of Trade on the resolu- 
 tion of the Pittsburgh Chamber of Commerce, and also upon the 
 recommendations of the Chittenden Report, Document No. 141, 
 House of Representatives, Fifty-fifth Congress, second session. 
 This report was made under an appropriation contained in the 
 rivers and harbors act of June 3, 189G, which provided, in sec- 
 tion 8, for a number of preliminary examinations, among which 
 was the following: 
 
 " ' From the examination of sites and report upon the practica- 
 bility and desirability of constructing reservoirs and other hy- 
 draulic works necessary for the storage and utilization of water, 
 to prevent floods and overflows, erosion of river banks and breaks 
 of levees, and to reinforce the flow of streams during drought 
 and low-water seasons, at least one site each in the States of 
 Wyoming and Colorado.' 
 
 " The Chittenden Report, transmitted to Congress on Decem- 
 ber G, 1897, now out of print, has attracted wide attention and 
 may be found in part in the Report of the Chief of Engineers of 
 the United States Army for 1898. An abstract of this report 
 will be found in Appendix No. 6 of the Report of the Flood Com- 
 mission. After a most exhaustive examination and considera- 
 tion of the whole question of the effect and value of reservoirs 
 to aid navigation, to prevent floods, and to furnish water for 
 irrigation, the following conclusions were stated: 
 
 " ' First. A comprehensive reservoir system in the arid regions 
 of the United States is absolutely essential to the future welfare 
 of this portion of the public domain. 
 
 [89] 
 
Appendix 
 
 " ' Second. It is not possible to secure the best developments 
 of such a system except through the agency of the National Gov- 
 ernment.' 
 
 " The work of the Flood Commission of Pittsburgh has related 
 primarily, of course, to the conditions on the headwaters of the 
 Ohio River. It is worthy of note at this point that in considering 
 the effect of flood-water storage on the Missouri River upon 
 floods in the lower Mississippi Valley Col. Chittenden said: 
 
 " ' The floods of the Mississippi are formed by the heavy rains 
 in the low regions east of the ninety-eighth meridian and very 
 largely come from east of the Mississippi itself. The great con- 
 trolling element, in fact, in all the lower river floods is the Ohio 
 River.' 
 
 " The relation of flood-water storage on the upper Ohio and 
 its tributaries to river regulation and flood prevention in the 
 lower Mississippi Valley is thus clearly set forth, and makes 
 manifest the fact assumed in the resolution of the Pittsburgh 
 Chamber of Commerce to the National Board of Trade in Decem- 
 ber, 1898, above referred to. Considered from a national point 
 of view, flood-water storage on the Ohio Basin is but one aspect 
 of a great national problem which is coextensive with the entire 
 drainage basin of the Mississippi River and all its tributaries, 
 covering an area comprising more than one-third of the United 
 States and stretching from Canada to the Gulf of Mexico and 
 from the crest of the Appalachian Range, on the east, to the crown 
 of the continent, on the west. Hence any attempt to localize the 
 problem must fail. 
 
 " In presenting the arguments, which make it clear that reser- 
 voir construction for river regulation is naturally and necessarily 
 a national function, Col. Chittenden, on pages 55 and 56 of his 
 report, says: 
 
 " ' In the case of reservoirs it not infrequently happens that 
 some of the very best sites are to be found close to State lines, 
 where the waters so stored will flow immediately into neighboring 
 States. In these extreme cases the States where they are located 
 could not, of course, be expected to construct reservoirs, and the 
 States to be benefited would not be likely to go outside their own 
 borders to do so. The function clearly pertains to that sov- 
 ereignty which covers all the country and embraces the streams 
 from their sources to the sea. It alone can store these waters and 
 be sure that it is reaping the full benefit. 
 
 [90] 
 
Remarks of Mr. Newlands 
 
 " ' The policy of the Government in the matter of the preserva- 
 tion of the forests of the country is a case directly in point. 
 There seems to be a well-nigh universal consensus of opinion that 
 the preservation of the forests of the arid regions is distinctly a 
 Government duty. * * * Inasmuch as the commercial value 
 of these forests is practically insignificant, except for furnishing 
 fuel and rough timber, the water question is really the more im- 
 portant one. If it is properly a Government function to preserve 
 the forests in order to conserve the flow of the streams, surely it 
 can not be less a Government function to execute works which 
 will conserve that flow even more positively and directly. Grant- 
 ing all that can be said of forests in this connection, they cer- 
 tainly can never prevent the June rise, and it is precisely this 
 waste flow which reservoirs will help to save. The forests ought 
 unquestionably to be preserved, and the Government is the proper 
 agency to do it, but the principal arguments therefor apply with 
 accentuated force to the construction of reservoirs.' 
 
 " The precedent for the construction of reservoirs for river 
 regulation and to reinforce the flow during low-water seasons 
 had already been established by the construction, beginning in 
 1881, of five reservoirs on the headwaters of the Mississippi 
 River, where dams were built across the outlets of natural lakes. 
 These reservoirs are described in Appendix No. 5 of this report 
 and are referred to at some length by Mr. Anderson in his paper 
 mentioned above. 
 
 " FOREST MOVEMENT. 
 
 " The National Government has now, however, by the enact- 
 ment of the Appalachian National Forest bill, gone to the full 
 extent of recognizing and using its constitutional power to con- 
 trol and regulate the flow of navigable rivers at their sources not 
 only by the building of artificial reservoirs but by preserving 
 the forests and woodland cover on the watershed as natural 
 reservoirs. 
 
 " The maintenance and preservation of natural reservoirs by 
 forest preservation, as provided in this act, and the construction 
 of artificial reservoirs, as advocated by the Flood Commission of 
 Pittsburgh, on the headwaters of the Ohio River in the Appa- 
 lachian Mountains, involve the exercise of a constitutional power 
 which is precisely the same in both instances. It is the same 
 power which was exercised in the creation of the California 
 
 [91] 
 
Appendix 
 
 Debris Commission, to prevent the silting up of navigable chan- 
 nels by the debris from hydraulic mines. It is also the same 
 power which was exercised in the construction of levees on the 
 lower Mississippi to aid in maintaining a navigable channel, not- 
 withstanding the conceded fact that one of the greatest moving 
 forces in that case was the necessity for protecting the planta- 
 tions from overflow. 
 
 " So, in the case of reservoir construction on the headwaters 
 of the Ohio River, the constitutional power being so clearly 
 established, the enormous damages by floods in the Ohio Valley, 
 estimated to average at least $50,000,000 a year, and in some 
 years to be as high as $100,000,000, furnishes strong ground for 
 relief from the National Government when it is conceded that 
 such regulation of the flow of the river by reservoirs as would, 
 beyond question, immensely aid navigation and would also give 
 relief from these destructive floods. Senator Burton clearly saw 
 this aspect of the question when, in his speech in the Senate on 
 the passage of the Appalachian National Forest bill, he said : 
 
 " 'Another thing that the Federal Government ought to do if 
 this precedent is established, and it ought to do it right away, 
 is to provide means for the prevention of floods. At certain 
 seasons of the year we can hardly take up a newspaper without 
 reading of the loss of life and of the mammoth destruction of 
 property as a result of floods in the Ohio, the Mississippi, and 
 various other streams of the country. Those floods have a direct 
 influence upon navigation. If we are going to inaugurate this 
 policy, why not protect these manifold interests by preventing 
 floods and save the tremendous loss of property and the very 
 pitiful loss of life which so frequently occurs?' 
 
 " EXTENSION OF POLICY TO RESERVOIRS. 
 
 " The National Government having, by the passage of the Ap- 
 palachian National Forest act, inaugurated the policy of main- 
 taining natural reservoirs on the tributaries and source streams 
 of the navigable rivers, for the purpose of regulating their 
 flow, and having extended the policy of national forest reserves 
 for that purpose into the Appalachian region, it is manifest that 
 even-handed justice between the different sections of this great 
 country requires that the policy of building artificial reservoirs 
 for river regulation should also be extended over that portion 
 of the United States lying east of the Mississippi River. Thus 
 
 [92] 
 
Remarks of Mr. Newlands 
 
 far everything done under that constitutional power, for the con- 
 trol and regulation of the flow of the navigable rivers, has been on 
 the headwaters of the Mississippi River, or in the lower valley of 
 that river, or in the vast territory to the west of it. The entire 
 territory extending from the Mississippi River on the west to the 
 Atlantic seacoast on the east has been excluded from any local 
 participation in the benefits of expenditures under that policy. 
 
 " The Flood Commission of Pittsburgh now urges that the policy 
 already inaugurated in a part of the country be made broadly 
 national and that the East as well as the West shall be made 
 beneficiaries under it. The Chamber of Commerce of Pittsburgh 
 has at all times, from the very first, been an active and con- 
 sistent advocate of the reservoir policy in the West, and now, 
 with the same broad vision of national benefits, the flood com- 
 mission organized by the chamber of commerce urges its exten- 
 sion to the East. All who advocate national irrigation in the 
 West, national drainage in the South, or flood prevention in the 
 East through national river regulation are practically supporting 
 one and the same national policy and should unite to accomplish 
 its nation-wide adoption. 
 
 " Pittsburgh took the lead in urging this broad application of 
 the policy as far back as 1898, and has aided other sections to 
 secure the first benefits from its adoption. It. is therefore pe- 
 culiarly appropriate that Pittsburgh, after spending over $100,000 
 to establish the facts and showing the practicability and necessity 
 for the adoption of the same constructive national policy in the 
 Ohio Valley, should take the lead in a national campaign to ex- 
 tend the national policy of flood-water storage over the entire 
 United States and to all navigable rivers and their tributaries and 
 source streams. 
 
 " THE NEWLANDS RILL. 
 
 "A bill providing for such a broad national extension of the 
 policy of river regulation was introduced by Senator Newlands 
 in the Senate of the United States on March 1, 1911, the day 
 the Weeks Appalachian National Forest bill became a law by 
 the signature of the President. The purpose of this Newlands 
 river-regulation bill was to so enlarge the forest policy inaugu- 
 rated by the Weeks bill as to make it cover the entire United 
 States and to supplement the establishment and maintenance 
 of the natural reservoirs which the forests and woodland cover 
 create by an adequate national system of artificial reservoirs 
 
 [93] 
 
Appendix 
 
 for flood-water storage. This bill, which is printed in Appendix 
 No. G of this volume, was Senate bill 10900, in the Sixty-first 
 Congress, third session, and Senate bill No. 122, in the Sixty- 
 second Congress, first session. 
 
 " The Chamber of Commerce of Pittsburgh has in the past 
 supported both the national irrigation act, which was known 
 as the Newlands bill in the House of Representatives when it 
 passed that body, and the Weeks Appalachian National Forest 
 Act, and has extended its indorsement and support to the New- 
 lands river-regulation bill by the adoption on April 13, 1911, of the 
 following resolution : 
 
 " ' Whereas a bill was introduced in the Senate of the United 
 States by Senator Newlands on March 1, 1911, entitled: 
 
 " ' "A bill to create a board of river regulation and to provide 
 a fund for the regulation and control of the flow of navi- 
 gable rivers in aid of interstate commerce, and as a means 
 to that end to provide for flood prevention and protection 
 and for the beneficial use of flood waters and for water stor- 
 age, and for the protection of watersheds from denudation 
 and erosion and from forest fires, and for the cooperation 
 of Government services and bureaus with each other and 
 with States, municipalities, and other local agencies; " and 
 " ' Whereas the primary purpose of said bill is to bring into con- 
 ference and cooperation the National Government with the 
 States, municipalities, counties, and local districts for the 
 construction of the works necessary for the regulation of 
 the flow of rivers and for flood prevention and protection, 
 and it provides a fund of $50,000,000 annually for 10 years 
 for said purpose; and 
 " ' Whereas the passage of said bill by Congress would result in 
 the relief not only of Pittsburgh but of all cities and com- 
 munities on "the Ohio, Missouri, and Mississippi Rivers from 
 destructive floods, and increase the flow of the rivers in the 
 low-water season for navigation : Now, therefore, be it 
 "'Resolved, That the Chamber of Commerce of Pittsburgh 
 hereby indorses said Newlands river-regulation bill and requests 
 the Senators and Congressmen from this State to urge its passage 
 by Congress.' " 
 
 The bill referred to in the foregoing resolution has been desig- 
 nated and known throughout the country as the Newlands river- 
 regulation bill. It was printed in full on pages 391 to 396 of the 
 
 [94] 
 
Remarks of Mr. Newlands 
 
 aforesaid report of the Flood Commission of Pittsburgh, being 
 S. 10900 (61st Cong., 3d sess.), introduced in the Senate of the 
 United States by Senator Francis G. Newlands on March 1, 1911, 
 and reintroduced by him as S. 122 (62d Cong., 1st sess.) in the 
 following session of Congress, on April 6, 1911. 
 
 The Newlands river-regulation bill was evolved and developed 
 from a bill known as the Inland Waterways Commission bill, 
 which was introduced in the Senate by Senator Newlands on De- 
 cember 4, 1907 (S. 500, 60th Cong., 1st sess.), and which had been 
 prepared with a view to securing the legislation necessary to 
 inaugurate the national policy with reference to river regulation 
 and a national system of waterways which was subsequently 
 recommended by the Inland Waterways Commission in its report 
 of February 3, 1908. 
 
 The following is a copy of the Inland Waterways Commission 
 bill above referred to (S. 500, 60th Cong., 1st sess.) : 
 
 "the newlands bill introduced tn the senate DECEMBER 4, 1907. 
 
 "A bill (S. 500) providing for the appointment of an inland-waterway commis- 
 sion and for the improvement and development of the inland waterways of 
 the country with a view to the promotion of transportation between the States 
 and with foreign countries. 
 
 " Be it enacted, etc., That a special fund shall be established 
 in the Treasury, to be known as the inland-waterway fund, to be 
 used in the examination and survey for and the development of 
 the inland waterways of the country; and the sum of $50,000,000 
 is hereby reserved, set aside, and appropriated as such fund. 
 
 "Sec. 2. That the President of the United States is hereby 
 authorized to cause to be made examinations and surveys for the 
 development of the inland waterways of the country, including 
 the Great Lakes, the Mississippi River and its tributaries, the 
 navigable rivers of the Gulf of Mexico and their tributaries, the 
 navigable rivers of the Atlantic coast and their tributaries, the 
 navigable rivers of the Pacific coast and their tributaries, and 
 for the connection of such rivers with each other, wherever 
 practicable and desirable, by connecting canals and bj^ coastal 
 canals, with a view to the promotion of transportation between 
 such rivers by vessels of a standard draft; and to investigate 
 all questions relating to the development and improvement of 
 the inland waterways of the country, with a view to the promo- 
 tion of transportation; and to consider and coordinate the ques- 
 tions of irrigation, swamp-land reclamation, clarification of 
 
 [95] 
 
Appendix 
 
 streams, utilization of* water power, prevention of soil waste, 
 protection of forests, regulation of flow, control of floods, trans- 
 fer facilities and sites, and the regulation and control thereof, 
 and such other questions regarding waterways as are related 
 to the development of rivers, lakes, and canals for the purposes 
 of commerce. 
 
 " Sec. 3. That in order to enable the President to make such 
 examinations, surveys, and investigations and to construct the 
 works provided for by this act, he is authorized to appoint an 
 inland waterways commission, to be composed of mem- 
 bers, and to bring in coordination therewith the Corps of Engi- 
 neers of the Army, the Bureau of Soils, the Forest Service, the 
 Bureau of Corporations, the Reclamation Service, and other 
 branches of the public service related to waterways, and to 
 appoint such experts and other persons and create such board or 
 boards in connection therewith as the work may require, and to 
 fix the salaries of all commissioners, experts, and other persons 
 employed under this act until the same has been fixed by Con- 
 gress, the official salary of any official appointed or employed 
 under this act to be deducted from the amount of salary or com- 
 pensation fixed under the terms of this act. 
 
 " Sec. 4. That such commission shall make to the President 
 annually, and at such other periods as may be required either by 
 law or by the order of the President, full and complete reports of 
 all their acts and doings and of all the moneys received and 
 expended in the construction of works and in the performance 
 of their duties in connection therewith, which reports shall be 
 by the President transmitted to Congress; and such commission 
 shall furthermore give to either House of Congress such infor- 
 mation as may at any time be required either by act of Congress 
 or by order of either House of Congress. 
 
 " The President shall cause to be provided for the use of the 
 commissioners and other employees under this act such offices 
 as may, with the suitable equipment of the same, be necessary 
 and proper in his discretion for the proper discharge of their 
 
 duties. 
 
 " Sec. 5. That if, after such examination, survey, and estimate, 
 such commission shall determine that any project for the im- 
 provement or construction of an inland waterway or coastal 
 waterway is practicable and desirable, it may, with the approval 
 of the President and through the appropriate service, construct 
 
 [96] 
 
Remarks of Mr. Newlands 
 
 or execute, or cause to be let, contracts for the construction or 
 execution of the same, in such portions or sections as it may be 
 practicable to construct and execute as parts of the whole project: 
 Provided, That the necessary moneys therefor are available in the 
 inland waterway fund. 
 
 " Sec. 6. That such projects may include such collateral works 
 for the irrigation of arid lands, for the reclamation of swamp 
 lands, for the conservation or replacement of forests, for the 
 clarification of streams, and for the utilization of water power 
 as may be deemed advisable in connection with the development 
 of a channel for navigation or as aiding in a compensatory way 
 in the diminution of the cost of such project. 
 
 " Sec. 7. That such commission is authorized, with the approval 
 of the President, to enter into cooperation with States, munici- 
 palities, communities, corporations, and individuals in such 
 collateral works, and to make arrangements for the propor- 
 tionate payment of the cost thereof out of the inland waterway 
 fund and by the States, municipalities, communities, corpora- 
 tions, and individuals benefited thereby, in such manner as to 
 secure an equitable distribution of the costs and benefits: Pro- 
 vided, That the cost of such collateral works shall be paid, if 
 practicable, out of funds provided therefor by Congress, but if 
 sufficient provision therefor is not specially made by Congress, 
 such commission is authorized to pay for the same out of the 
 inland waterway fund; but the total payments made on account 
 of such collateral works from such inland waterway fund shall 
 not exceed 10 per cent thereof, and provision shall be made, as 
 far as practicable, for the reimbursement to such fund of such 
 payments by the States, municipalities, communities, corpora- 
 tions, or individuals benefited thereby: And provided also, That 
 the inland waterways developed shall remain free for all the 
 uses of navigation. 
 
 " Sec. 8. That such commission shall make, with the approval 
 of the President, rules and regulations governing the cooperation 
 and compensation to the fund, wherever practicable, by the con- 
 veyance of reclamation rights, the lease of water power, and 
 such other means as may be beneficial to the United States and 
 the several States, municipalities, communities, corporations, 
 and individuals entering into such cooperation. 
 
 " Sec. 9. That in carrying out the provisions of this act re- 
 gard must be had, as far as practicable, to the equitable appor- 
 tionment and contemporaneous execution of the projects con- 
 
 115652"— 20 7 [97] 
 
Appendix 
 
 templated under this act among the several waterway systems 
 of the country. 
 
 " Sec. 10. That the President is authorized, whenever the inland- 
 waterway fund is reduced below §20,000,000, to make up the 
 deficiency in such fund by the issue and sale of bonds in such 
 amount and for such time as he shall deem advisable, bearing 
 interest at a rate not exceeding — per cent per annum; but the 
 amount of bonds issued shall not at any time exceed the differ- 
 ence between the cash on hand in such fund and $50,000,000." 
 
 The foregoing bill, known as the inland-waterways bill (S. 500), 
 upon its introduction was referred to the Committee on Commerce 
 of the Senate, and by that committee the bill was referred to the 
 War Department for its suggestions and recommendations. 
 
 The bill was returned by the War Department to the Committee 
 on Commerce with a communication, bearing date April 17, 1908, 
 from the Secretary of War to the chairman of the Committee on 
 Commerce, approving the bill, with some amendments which were 
 suggested in detail in the communication. 
 
 Extracts from this communication from the Secretary of War 
 were embodied in an address by Senator Newlands in the Senate 
 on February 18, 1910, at the time of the introduction by him of 
 the first river-regulation amendment on that date, from which 
 address the following is quoted: 
 
 " Here is what Secretary Taft said upon this subject in his 
 letter of April 17, 1908, addressed to the Senate Committee on 
 Commerce regarding Senate bill 500, which I had introduced 
 in the Sixtieth Congress, and which was similar in its terms 
 to Senate bill 3717, introduced by me in this Congress: 
 
 " * (c) The bill provides for correlating the existing agencies in 
 the Departments of War, Interior, Agriculture, and Commerce and 
 Labor through certain powers vested in the President. The need 
 for some such plan is sufficiently shown by the fact that while 
 this country is better endowed with waterways than any other 
 our streams are less used for navigation and other public pur- 
 poses than those of other countries. Since this provision touches 
 duties placed on the War Department by law, it has received care- 
 ful consideration. It does not appear that the measure would 
 interfere with the functions of the War Department, or with the 
 continuation and extension of the engineering work now per- 
 formed there, but it is believed that the provision for administra- 
 tion would tend to promote the general welfare. Accordingly 
 
 this feature meets the approbation of the War Department. 
 
 ******* 
 
 [98] 
 
Remarks of Mr. Newlands 
 
 " ' (e) The bill provides also for the initiation of projects by a 
 board of experts. These provisions affect the work of the War 
 Department and have had careful consideration. Suitable pro- 
 visions for expert initiation and prompt execution are essential 
 to the proper development of any system of river improvement. 
 The chief defect in the methods hitherto pursued lies in the ab- 
 sence of executive authority for originating comprehensive plans 
 covering the country or natural divisions thereof. The creation 
 of an Inland Waterways Commission for the purpose of initiating 
 plans for the improvement of waterways seems to me a more 
 effective way of a general plan for the improvement of all the 
 waterways in the country than under the present provisions of 
 law. This would not dispense with the admirable machinery 
 furnished by the War Department for the improvement of water- 
 ways when the plan has been determined upon and is to be 
 executed. But it supplies what does not exist in the law now — 
 a tribunal other than Congress charged with the duty of originat- 
 ing and developing a satisfactory plan.' 
 
 " Secretary Taft adds: 
 
 " ' 3. In its present form the bill might be construed to curtail 
 indirectly certain functions of the War Department, which is now 
 charged with large discretion in waterway affairs. Possible am- 
 biguity on this point should be removed.' 
 
 " Mr. Taft goes on and gives the history of the Engineer Corps 
 of the Army and shows how it drifted into the control of our 
 waterways. 
 
 " * Under the same long-standing arrangement — 
 
 " Mr. Taft says— 
 " * it is the policy of the War Department to maintain a trained 
 body of military engineers with a view to the national defense, 
 and to keep these engineers in training in time of peace by de- 
 tail to civil duty allied to their professional duty in time of war 
 or military preparation; and it was carrying out this policy that 
 the functions of the War Department pertaining to waterways 
 have been more and more largely intrusted to the engineers of 
 the Army during the 110 years since the Army and Navy were 
 separated in distinct departments. This policy has long been sus- 
 tained by the Congress, although the military engineers have been 
 prohibited from initiating projects or originating plans for meet- 
 ing the growing needs of commerce. It is desirable to continue 
 the policy of keeping the military engineers in training and at 
 
 [99] 
 
Appendix 
 
 the same time rendering tlieir skilled service available in work 
 on waterways, although it is not necessary to vest them with 
 the power of initiative, which they have not exercised in the 
 past and which is, perhaps, inconsistent with their primary duty 
 in connection with the Military Establishment, of which they 
 form a part. A provision that the Chief of Engineers of the 
 Army shall be a member of the commission proposed to be cre- 
 ated, and a further provision specifically covering the detail 
 of military engineers to the service of the commission whenever 
 such detail shall be consistent with their military duties, would 
 remove any possible ambiguity and would be in accord with the 
 custom and policy of the War Department.' 
 
 ******* 
 
 " THE WATERWAYS COMMISSION APPROVES. 
 
 " Here also is the letter of the Inland Waterways Commission, 
 signed by Theodore E. Burton, chairman, which, referring to 
 this bill, states as follows: 
 
 " ' 1. Several of the leading provisions of the bill are in accord 
 with the recommendations of the commission in a report sub- 
 mitted on February 3 last and transmitted to the Congress by 
 the President on February 26. Among these are (a) the provi- 
 sion for coordination of navigation with related uses of the 
 waters; (b) the provision for cooperation between the Federal 
 Government, States, municipalities, communities, corporations, 
 and individuals; (c) the provision for correlating existing agen- 
 cies in the Departments of War, Interior, Agriculture, and Com- 
 merce and Labor in such manner as to secure effective adminis- 
 tration; and (d) the provisions looking toward the control of 
 running waters in such manner as to protect and promote navi- 
 gation. In so far as these provisions are concerned, the bill has 
 
 the unqualified approbation of the commission. 
 
 * * ♦ ♦ * - * . 
 
 " ' 3. The general purpose of the bill is in harmony with the 
 comprehensive plan for improving and developing the water- 
 ways of the country framed by the commission and approved by 
 the President in his message of February 26 last.' 
 
 " It is fair to say that this expression was somewhat modified 
 by Gen. Mackenzie, Chief of the Engineer Corps, whose views, 
 however, as I recall, accord with the modified provisions of the 
 pending amendment. 
 
 [100] 
 
Remarks of Mr. Newlands 
 
 " I think the honored chairman of tliat committee, Mr. Burton, 
 will bear witness with me as to the intelligent service rendered 
 by the chiefs of the scientific services of the country who 
 were on that commission. I am sure that ever since my experi- 
 ence with them I have had a higher idea of their efiiciency, their 
 capacity, and their high public spirit. I know of no organiza- 
 tion in a business way in the country that surpasses the scientific 
 services of the country in integrity and in efficiency." 
 
 THE INLAND WATERWAYS COMMISSION. 
 
 The Inland Waterways Commission was created by President 
 Roosevelt on ]March 14, 1907, with the following membership: 
 Hon. Theodore E. Burton, chairman; Senator Francis G, New- 
 lands, vice chairman; Senator William Warner, Hon. John H. 
 Bankhead, Gen. Alexander Mackenzie, Mr. W J McGee, Mr. F. H. 
 Newell, Mr. Gifi"ord Pinchot, Hon. Herbert Knox Smith. 
 
 The following brief summary of the activities of this commis- 
 sion is quoted from page 17 of its printed report: 
 
 " PROCEEDINGS. 
 
 "After conference and correspondence between the chairman 
 and other commissioners, a meeting for organization was held 
 in the United States Capitol, beginning April 20 and ending May 
 3 (1907). A second meeting and inspection trip on the Missis- 
 sippi River from St. Louis to The Passes took place May 13 to 
 May 23. A third meeting and inspection trip, first on the Great 
 Lakes from Cleveland to Duluth, next on the Mississippi from 
 St. Paul to Memphis, and then on the Missouri from Kansas City 
 to St. Louis, took place September 21 to October 13. A fourth 
 meeting was held in the United States Capitol, beginning on 
 November 25, 1907, for the purpose of preparing a preliminary 
 report; it ended February 3, 1908." 
 
 The report above referred to was adopted and transmitted to 
 President Roosevelt on February 3, 1908, and by him transmitted 
 to Congress on February 26, 1908. 
 
 The report was printed as Senate Document No. 325, Sixtieth 
 Congress, first session, entitled " Preliminary Report of the Inland 
 Waterways Commission." 
 
 The work of the Inland Waterways Commission ended with this 
 report, on which no action was taken by Congress at that time. 
 
 [101] 
 
Appendix 
 
 Subsequently the United States National Waterways Commis- 
 sion, composed of 12 Members of the Senate and House of Repre- 
 sentatives, was created by act of Congress of March 3, 1909. 
 
 The statute creating the National ^Yaterways Commission pro- 
 vided that a preliminary report should be filed not later than 
 January 1, 1910, containing conclusions reached by the commis- 
 sion upon the several subjects investigated. Such a report was 
 
 made. 
 
 This United States National Waterways Commission, " having 
 concluded its investigation of questions relating to water trans- 
 portation and the improvement of waterways," ended its labors 
 by the submission to Congress of its final report, which was 
 ordered printed on March 25, 1912, and was thereafter printed 
 as Senate Document No. 469, Sixty-second Congress, third session^ 
 entitled " Final Report of the National Waterways Commissioa.". 
 "The preliminary report of this commission w^as printed in full 
 on pages 65 to 95 of that same volume. 
 
 No action based on these reports of the United States National 
 Waterways Commission has ever been taken by Congress. 
 
 The action now taken by the adoption of the river-regulation 
 policy embodied in section 18 of the pending river and harbor 
 bill is in accordance with the recommendations not of the Na- 
 tional Waterways Commission but of the Inland Waterways Com- 
 mission, as set forth in the report of the Inland Waterways 
 Commission made on February 3, 1916, the closing paragraph of 
 the final recommendations of that report having been as follows: 
 
 " We recommend that the Congress be asked to authorize the 
 coordination and proper development of existing public services 
 connected with waterways, and we suggest that such enactment 
 might provide that the President of the United States be au- 
 thorized, with the advice and consent of the Senate, to appoint 
 and organize a national waterways commission, to bring into 
 coordination the Corps of Engineers of the Army, the Bureau 
 of Soils, the Forest Service, the Bureau of Corporations, the 
 Reclamation Service, and other branches of the public service 
 in so far as their work relates to inland waterways, and that he 
 be authorized to make such details and require such duties from 
 these branches of the public service in connection with navi- 
 gable and source streams as are not inconsistent with law; 
 the said commission to continue the investigation of all questions 
 relating to the development and improvement and utilization 
 
 [102] 
 
Remarks of Mr. Newlands 
 
 of the inland waterways of the country and the conservation of 
 its natural resources related thereto, and to consider and coordi- 
 nate therewith all matters of irrigation, swamp and overflow 
 land reclamation, clarification and purification of streams, pre- 
 vention of soil waste, utilization of water power, preservation 
 and extension of forests, regulation of flow and control of floods, 
 transfer facilities and sites and the regulation and control thereof, 
 and the relations between waterways and railways; and that 
 the commission be empowered to frame and recommend plans 
 for developing the waterways and utilizing the waters, and as 
 authorized by Congress to carry out the same through established 
 agencies, when such are available, in cooperation with States, 
 municipalities, communities, corporations, and individuals in 
 such manner as to secure equitable distribution of costs and 
 
 benefits." 
 
 A comparison of the foregoing recommendation o^ the Inland 
 Waterways Commission with the river-regulation amendment em- 
 bodied in section 18 of the river and harbor bill of 1917 exempli- 
 fies the fact that after an interval of nine years and seven months, 
 during which the report of the Inland Waterways Commission has 
 lain dormant and the commission has been out of existence, the 
 tenacity of purpose of the advocates of river regulation has finally 
 prevailed to the extent, at least, of securing the inauguration of 
 so much of the national policy of river regulation as was recom- 
 mended in the section quoted above from the report of the Inland 
 Waterways Commission of February, 1908. 
 
 The complete statement of the conclusions of the Inland Water- 
 ways Commission, as embodied in this preliminary report of 
 February 3, 1908, hereinbefore referred to, was as follows: 
 
 " The commission is fully aware that its creation was due to 
 a demand of the people, and that there exists an expectation in 
 certain localities that the report here presented will include 
 plans extending in detail to the principal waterways of the coun- 
 try. To prepare and consider such plans would require ex- 
 tended study at large expense by engineers and other experts 
 whose services were not available. Under the instructions from 
 the President, and in the absence of funds and of the men and 
 time required for such study, the commission was necessarily 
 confined in preparing this preliminary report to the more general 
 features of *A comprehensive plan designed for the benefit of 
 the entire country,' viz, a statement of principles and an outline 
 
 [103] 
 
Appendix 
 
 of policy, coupled with recommendations which, if adopted, will 
 insure the continuation of the work and the practical applica- 
 tion of the principles and policy. 
 
 " FINDINGS. 
 
 " 1. The possibilities of inland navigation are indicated by the 
 fact that there are in mainland United States some 25,000 miles 
 of navigated rivers and at least an equal amount Vv^hich are 
 navigable or might be made so by improvement; there are also 
 some 2,500 miles of navigable canals and over 2,500 miles of 
 sounds, bays, and bayous readily connectible by canals, aggre- 
 gating less than 1,000 miles in length, to form inner passages 
 paralleling the Atlantic and Gulf coasts — these being additional to 
 some thousands of miles (reckoned between leading ports) of 
 regularly navigated waters in lakes and landlocked bays. These 
 waterways lie in or along the borders of Alabama, Arkansas, 
 California, Connecticut, Delaware, Florida, Georgia, Idaho, Illi- 
 nois, Indiana, Iowa, Kansas, Kentucky, Louisiana, Maine, Mary- 
 land, Massachusetts, Michigan, Minnesota, Mississippi, Missouri, 
 Montana, Nebraska, New Hampshire, New Jersey, New York, 
 North Carolina, North Dakota, Ohio, Oklahoma, Oregon, Penn- 
 sylvania, Rhode Island, South Carolina, South Dakota, Tennes- 
 see, Texas, Vermont, Virginia, "Washington, West Virginia, and 
 Wisconsin, i. e., 42 States; while the development of rivers for 
 irrigation, power, and other purposes will also render navigable 
 certain waterways in Arizona, Colorado, Nevada, New Mexico, 
 Utah, and Wyoming. Although it is not probable that any con- 
 siderable share of this vast mileage of navigable waterways will 
 be improved to a high standard of efficiency, at least at an early 
 date, yet the assured growth of the country and the capacity of 
 these waters, not only for navigation but for other uses, render 
 imperative the necessity for their control and utilization as an 
 asset of almost unlimited value. It is desirable that these water- 
 ways, of which portions have been surveyed or improved for 
 purposes of navigation, should be further investigated with a view 
 to the systematic development of interstate commerce in coordina- 
 tion with all other uses of the watei's and benefits to be derived 
 from them. 
 
 " 2. While the railways of mainland United States have been 
 notably efficient in extending and promoting the production and 
 commerce of the country, it is clear that at seasons recurring 
 
 [104] 
 
Remarks of Mr. Newlands 
 
 with increasing frequency they are unable to keep pace with 
 production or to meet the requirements of transportation. 
 
 " 3. While navigation of the inland waterways declined with 
 the increase in rail transportation during the later decades of 
 the past century, it has become clear that the time is at hand 
 for restoring and developing such inland navigation and water 
 transportation as upon expert examination may appear to con- 
 fer a benefit commensurate with the cost, to be utilized both 
 independently and as a necessary adjunct to rail transportation. 
 
 " 4. While the decline of navigation in the inland waterways 
 was largely due to the natural growth and legitimate competi- 
 tion attending railway extension, it is also clear that railway 
 interests have been successfully directed against the normal 
 maintenance and development of water traffic by control of 
 water fronts and terminals, by acquisition or control of com- 
 peting canals and vessels, by discriminating tariff's, rebates, by 
 adverse placement of tracks and structures, and by other means. 
 
 " 5. Any complete or practically successful plan for the gen- 
 eral improvement of waterways must eventually provide for sat- 
 isfactory adjustment of the relation of rail lines to such water- 
 ways. Since present and prospective railways reach all parts 
 of the country while navigable waterways are confined to cer- 
 tain natural lines, it is clear that railways can so control trans- 
 portation as to leave the waterways insufficient traffic to support 
 the requisite vessels and terminals. The railways have accord- 
 ingly, save in certain exceptional cases, substantially absorbed 
 the traffic of the country, and unless the present unrestricted 
 and short-sighted competition between the two systems is intel- 
 ligently adjusted they will continue to do so. So large a por- 
 tion of railway traffic is free from water competition that rail- 
 ways can readily afford to so reduce rates on those poi'tions 
 affected by such competition as to destroy the profits of the 
 water lines without appreciably affecting the profits of the rail 
 systems which recoup these reductions by higher rates else- 
 where. This has been the case with most of the great inland 
 waterways, excepting the Great Lakes, where the conditions of 
 water and traffic approach those of open seas. In spite of the 
 great increase of traffic and the continued improvement of w^ater- 
 ways, the total river traffic of the country has steadily decreased 
 both proportionately and absolutely, with the result that few^ 
 rivers are used to anything approaching their full capacity. It 
 
 [105] 
 
 k 
 
Appendix 
 
 will not relieve tralBc congestion to improve our waterways 
 unless the improved waterways are used; hence it is obvious that 
 relief from the existing congestion by waterway improvement 
 can be made permanently effective through coordination of rail 
 and water facilities as will insure harmonious cooperation rather 
 than injurious opposition. 
 
 " C. Existing data as to the nature and amount of the internal 
 commerce of the country are extremely meager and incomplete. 
 Such information is essential to the intelligent treatment of the 
 inland waterways, and it is desirable that means be employed 
 to obtain it. 
 
 " 7. Improvements of navigation in inland waterways in the 
 main affect favorably the purity of the waters and the regularity 
 of the supply, and these objects should be carefully kept in mind. 
 The increasing pollution of streams by soil wash and other waste 
 substances connected with a growing population reduces the 
 value of the water for manufacturing purposes and renders the 
 water supply for communities injurious to and often destructive 
 of human life. The prevention of these evils should be con- 
 sidered in any scheme of inland waterway improvement. 
 
 " 8. Engineering works designed to improve navigation affect 
 favorably the regimen of the streams, including floods and low 
 waters. The annular floods of the United States occasion loss of 
 property reaching many millions of dollars, with considerable 
 loss of life, while the low water of late summer involves large 
 loss in diminished water supply, in reduced power, and in the 
 fouling of streams with consequent disease and death. It has 
 been claimed that in specific cases the cost of works required both 
 to control floods and meet the needs of commerce would be less 
 than the amount of this loss. It is desirable that more detailed 
 information be collected concerning the effects of floods and low 
 waters and their prevention by engineering works and other 
 devices. 
 
 " 9. The annual soil wash in mainland United States is estimated 
 at about 1,000,000,000 tons, of which the greater part is the most 
 valuable portion of the soil; it is carried into the rivers, where it 
 pollutes the waters, necessitates frequent and costly dredging, 
 and reduces the efficiency of works designed to facilitate navi- 
 gation and afford protection from floods. The direct and indirect 
 losses from this source have not been measured, but are exceed- 
 ingly large; and it is desirable that definite determinations be 
 
 [106] 
 
Remarks of Mr. Newlands 
 
 made with the view of devising means for reducing the loss to the 
 land and preventing the impairment of the streams for purposes 
 of commerce. 
 
 " 10. Both the regimen of streams and the purity and clarity 
 of waters are affected by forests and other natural growths and 
 by farming, mining, and other industrial operations over the 
 watersheds in which they gather. Millions of acres in mainland 
 United States have been deforested unnecessarily, and the floods 
 and low waters ascribed to this cause have in some localities 
 occasioned losses commensurate with the value of the timber. 
 Means should be devised and appUed for coordinating forestry, 
 farming, mining, and related industries with the uses of streams 
 for commerce and for other purposes. 
 
 " 11. The effect of wide variations in the level of navigable 
 streams is to render difficult the establishment of necessary 
 terminals for the handling of traffic, and thus to interfere seri- 
 ously with the utilization of our inland waterways. The pre- 
 vention or mitigation of such variations would be most helpful 
 to the revival of river traffic, and means to this end should be 
 adopted in plans for waterway improvement. 
 
 " 12. The storage of flood waters combined with the diversion 
 of streams to arid and semiarid lands for purposes of reclama- 
 tion by irrigation creates canals and also tends to clarify the 
 waters and increase the seepage or return waters during times 
 of drought. There have already been put under irrigation over 
 10,000,000 acres of fertile land, adding a quarter of a million 
 homes and several hundred million dollars of taxable wealth, 
 and it is estimated that by fully conserving the waters and by 
 utilizing the water power developed in connection with storage 
 and other works fully three times as much land can be re- 
 claimed in the western half of the United States. It is desirable 
 to continue the collection of data with a view to so adjusting 
 irrigation and power development with navigation and other 
 uses of the streams as to secure the highest value of the water to 
 the greatest number of people. 
 
 " 13. Locks and certain other works designed to improve navi- 
 gation commonly produce head and store water in such manner as 
 to develop power available for industrial purposes, while works 
 designed to develop power on navigable and source streams affect 
 the navigation and other uses of river systems; and these uses must 
 necessarily be considered together. Information concerning 
 
 [107] 
 
Appendix 
 
 water power in the several States and sections is incomplete, yet 
 it is known to be a vast and intrinsically permanent asset which 
 should be utilized for the benefit of the people of the country, in 
 whose interests it should be administered with careful regard for 
 present and prospective conditions. The facts ascertained in cer- 
 tain specific cases furnish a basis for the claim that the value 
 of the power would pay fhe cost of all engineering and other 
 works required in such cases to control the streams for navigation 
 and other uses. In the light of recent progress in electrical appli- 
 cation, it is clear that over wide areas the appropriation of water 
 power offers an unequaled opportunity for monopolistic control 
 of industries. Whenever water is now or will hereafter become 
 the chief source of power the monopolization of electricity pro- 
 duced from running streams involves monopoly of power for the 
 transportation of freight and passengers, for manufacturing, and 
 for supplying heat, light, and other domestic, agricultural, and 
 municipal necessities to such an extent that unless regulated it 
 will entail monopolistic control of the daily life of our people in 
 an unprecedented degree. There is here presented an urgent need 
 for prompt and vigorous action by State and Federal Governments. 
 
 " 14. Any comprehensive system of improvement of inland water- 
 ways will necessarily affect the drainage or reclamation of swamp 
 and overflow lands, which are mainly rich alluvial tracts largely 
 along or near waterways. The construction of dikes and levees 
 or bank-protective works and the deepening of channels are often 
 closely connected with means of control both of overflow and of 
 underflow by drainage. It is estimated that there are 77,000,000 
 acres of such land, now unproductive, but which, with drainage 
 and protection from overflow, will have exceptionally high agri- 
 cultural value; if divided into 40-acre farms, these lands will 
 furnish homes for 10,000,000 people. 
 
 " 15. The control of waterways on which successful naviga- 
 tion depends is so intimately connected with the prevention of 
 floods and low waters and works designed for these purposes, 
 with the protection and reclamation of overflow lands and works 
 designed therefor, with the safeguarding of banks and main- 
 tenance of channels and works employed therein, with the puri- 
 fication and clarification of water supply and works designed 
 therefor in conjunction with interstate commerce, with control 
 and utilization of power developed in connection with works 
 for the improvement of navigation, with the standardization of 
 
 [108] 
 
Remarks of Mr. Newlands 
 
 methods and facilities and the coordinating of waterway and rail- 
 way instrumentalities, and throughout the larger areas of the 
 country with reclamation by irrigation and drainage and works 
 designed primarily for these purposes that local and special 
 questions concerning the control of waterways should be treated 
 as a general question of national extent, while local or special 
 projects should be considered as parts of a comprehensive policy 
 of waterway control in the interests of all the people. 
 
 " 16. Governmental agencies whose work is related to the use 
 and control of streams are now in existence in the Federal De- 
 partments of War, Interior, Agriculture, and Commerce and 
 Labor, and it is desirable, in order to prevent duplication of 
 work and function and to avoid unnecessary delays in the de- 
 velopment of the inland waterways, that means should be pro- 
 vided for coordinating all such agencies. 
 
 " 17. While precise figures are not now obtainable, it is safe 
 to say that the current value of our inland transportation facili- 
 ties (of which railways form all but a small percentage) ex- 
 ceeds one-eighth of our national wealth; yet these facilities are 
 so far inadequate that production is impaired and the growth 
 of the country is retarded. While trustworthy estimates can 
 not be made without further data, it is reasonable to anticipate 
 that congestion of interstate commerce can be obviated in large 
 measure by judicious improvement of waterways adapted to 
 barge and boat traffic at a figure much less than that estimated 
 by competent authorities for so increasing railway facilities as 
 to meet present needs. It is desirable that additional data be 
 obtained by requisite expert investigation. 
 
 " 18. It is conservative to estimate that judicious improvement 
 of the waterways of the country will confer direct benefits 
 through increased transportation facilities which will exceed 
 the cost, while the collateral benefits will be at least comparable 
 with the gain to commerce. Under a coordinated plan such 
 collateral benefits as the enhanced value of lands reclaimed by 
 irrigation and drainage, the value of water power developed, the 
 increased values due to the prevention of floods and low waters, 
 and the great benefits of purified and clarified water will more 
 than balance the cost of the works. 
 
 " 19. In a comprehensive system of water improvement and 
 control designed to meet present and future needs the practica- 
 bility of any project will depend not alone on local and general 
 
 [109] 
 
Appendix 
 
 demands of commerce, but measurably on attendant natural and 
 industrial conditions, including nature of banks and bed, suit- 
 ability of the ground as a foundation for works, volume of water, 
 and liability to floods and low stages, configuration of the water- 
 shed and its susceptibility to control by judicious agriculture 
 and forestry or by reservoirs and others means, local and gen- 
 eral demand for pure-water supply, amount and value of avail- 
 able water power incident to the works, proximity and cost of 
 structural material, relations to existing and prospective projects 
 on the same and neighboring waterways, and all other physical 
 and economic factors entering into or tending to counterbalance 
 the cost; and the local surveys or plans for any project should 
 take account of all such natural and industrial conditions and be 
 adapted to the attainment of maximum benefits at the minimum 
 cost. 
 
 " 20. Existing data concerning the volume, regimen, and other 
 physical features of most streams are meager and imperfect. 
 Since plans for improving and controlling the waterways and 
 utilizing the waters must rest on these facts it is desirable that 
 means be employed to extend and perfect physical data relating 
 to the navigable and source streams of the country. 
 
 " 21. The benefits of a comprehensive system of waterway im- 
 provement will extend to all the people in the several sections 
 and States of the country, and the means employed should be 
 devised, so far as possible, to distribute the cost equitably through 
 cooperation between Federal agencies. States, municipalities, com- 
 munities, corporations, and individuals. 
 
 " 22. In order to improve the inland waterways for navigation 
 and at the same time coordinate the agencies and means of trans- 
 portation, develop the collateral benefits of waterway improvev 
 ment, adapt all natural and industrial conditions related with 
 waterways to the attainment of maximum benefits at the minimum 
 cost, and perfect means for distributing the cost equitably between 
 Federal agencies. States, municipalities, communities, corpora- 
 tions, and individuals in a prompt and efficient and economical 
 manner, it is desirable to maintain an administrative agency with 
 large powers for the investigation and elaboration of projects 
 under suitable legislative regulation. 
 
 " 23. The immediate use of natural resources in the rapid de- 
 velopment of the country are often allowed to stand in the way of 
 more beneficent and permanent utilization. This is especially 
 
 [110] 
 
Remarks of Mr. Newlands 
 
 true of all resources connected with running waters, the substan- 
 tial value of which has not been adequately appreciated. It is 
 clearly practicable, without undue expense or interference with 
 current use, to carry out broad plans for the complete develop- 
 ment of the resources of the country, and thus assure to the great- 
 est number of people the greatest good for both the present and 
 the future, while if this is not done the temporary or partial devel- 
 opment of these resources will prevent their full utilization for 
 the general benefit. Steps should be taken without delay to out- 
 line and initiate the more pressing projects of conservation and 
 to apply practically the principle of conservation before it is too 
 
 late. 
 
 " 24. Our unsurpassed natural wealth and the eagerness of our 
 people for immediate results regardless of future needs have led 
 to a policy of extravagant consumption of natural resources and to 
 an encouragement of monopoly, whereby an excessive share of 
 such resources has been diverted to the enrichment of the few 
 rather than preserved for the equitable benefit of the many. 
 Monopolistic tendencies have appeared (a) in the extensive con- 
 trol of mineral fuels on public lands, whereby large values essen- 
 tial to the development of the country have passed beyond public 
 regulation; (b) in the acquisition and needless destruction of 
 forests, whose preservation is a public necessity for stream con- 
 trol, for timber supply, and for other purposes; (c) in the ac- 
 quisition of controlling sites on waterways and the appropriation 
 of valuable water powers with their segregation from public uses 
 without adequate compensation, whereby indispensable utilities 
 escape public regulation in the interests of the people; (d) in the 
 segregation of lands, especially in the semiarid regions, whereby 
 development is retarded, so that the lands remain without benefit 
 to commerce or advantage to the growth of the country; (e) in 
 the control of products and of transportation to disturb the 
 normal values and natural channels of trade, thereby imposing 
 undue burdens on producers and consumers; and (f) in various 
 interferences with the production and commerce of the country, 
 whereby prosperity is curtailed and progress impeded. While 
 such monopolistic tendencies have been conspicuous in connec- 
 tion with the agencies of transportation, they are now in many 
 cases opposing the best utilization of streams by diverting their 
 control from State and Federal jurisdiction in the public interests 
 to personal and corporate means of excessive and burdensome 
 
 [111] 
 
Appendix 
 
 profits. Since transportation is a primary factor in the existence 
 and development of any people, and is increasingly important 
 with the growth of population, it is essential that its means should 
 be regulated in the public interests; and any plans for relieving 
 congestion of transportation in the United States should be so 
 framed as to employ all proper State, Federal, and municipal 
 agencies in protecting from monopolistic control not only the 
 agencies and avenues but also the materials of interstate com- 
 merce. 
 
 " RECOMMENDATIONS. 
 
 "A. We recommend that hereafter plans for the improvement 
 of navigation in inland waterways, or for any use of these water- 
 ways in connection with interstate commerce, shall take ac- 
 count of the purification of the waters, the development of power, 
 the control of floods, the reclamation of lands by irrigation and 
 drainage, and all other uses of the waters or benefits to be de- 
 rived from their control. 
 
 " B. We recommend that hereafter both local and general bene- 
 fits to the people shall be fully considered in any such plans 
 for the improvement of navigation in inland waterways or for 
 any use of these waterways in connection with interstate com- 
 merce; and that wherever practicable Federal agencies shall 
 cooperate with States, municipalities, communities, corporations, 
 and individuals with a view to an equitable distribution of costs 
 and benefits. 
 
 " C. We recommend that hereafter any plans for the naviga- 
 tion or other use of inland waterways in connection with inter- 
 state commerce shall take full account of transfer facilities and 
 sites and of the location of tracks, grades, bridges, dams, depots, 
 and other works on navigable and source streams with a view to 
 equitable cooperation between waterway and railway facilities 
 for the promotion of commerce and the benefit of the people. 
 
 " D. We recommend that any plans for improving the inland 
 waterways shall take account of the present and prospective 
 relation of rail lines to such waterways, and shall ascertain so 
 far as may be whether such waterways when improved will be 
 effectively used in the face of railway competition; and that the 
 relations between railways and waterways be further examined 
 with the purpose of devising means of rendering the two sys- 
 tems complementary and harmonious and making such fair 
 
 [112] 
 
Remarks of Mr, Newlands 
 
 division of traffic that rates and management may be coordinated 
 economically and with benefit to the country. 
 
 " E. We recommend the adoption of means for ascertaining 
 regularly all facts related to traffic on the inland waterways and 
 for publishing the same in a form suitable for general use, 
 
 " F. We recommend the adoption of means for ascertaining and 
 rendering available, at such rate as to meet public necessities, 
 all requisite data related to the physical character and general 
 utility of the navigable and source streams of the country. 
 
 " G. We recommend that hereafter any plans for the use of 
 inland waterways in connection with interstate commerce shall 
 regard the streams of the country as an asset to the people, 
 shall take full account *of the conservation of all resources con- 
 nected with running waters, and shall look to the protection of 
 these resources from monopoly and to their administration in 
 the interests of the people. 
 
 " H. We recommend that the Congress be asked to make suitable 
 provision for improving the inland waterways of the United 
 States at a rate commensurate with the needs of the people as 
 determined by competent authority; and we suggest that such 
 provision meet these requisites, viz, expert framing of a definite 
 policy; certainty of continuity and coordination of plan and 
 work; expert initiative in the choice of projects and the suc- 
 cession of works; freedom in selection of projects in accord- 
 ance with terms of cooperation; and the widest opportunity 
 for applying modern business methods. 
 
 " I. We recommend that the Congress be asked to authorize the 
 coordination and proper development of existing public services 
 connected with waterways; and we suggest that such enactment 
 might provide that the President of the United States be author- 
 ized, with the advice and consent of the Senate, to appoint and 
 organize a National Waterways Commission, to bring into coordi- 
 nation the Corps of Engineers of the Army, the Bureau of Soils, 
 the Forest Service, the Bureau of Corporations, the Reclamation 
 Service, and other branches of the public service in so far as their 
 work relates to inland waterways, and that he be authorized to 
 make such details and require such duties from these branches of 
 the public service in connection with navigable and source 
 streams as are not inconsistent with law; the said commission to 
 continue the investigation of all questions relating to the develop- 
 ment and improvement and utilization of the inland waterways 
 
 115652°— 20 8 [113] 
 
Appendix 
 
 of the country and the conservation of its natural resources re- 
 lated thereto, and to consider and coordinate therewith all matters 
 of irrigation, swamp and overflow land reclamation, clarification 
 and purification of streams, prevention of soil waste, utilization of 
 water power, preservation and extension of forests, regulation of 
 flow and control of floods, transfer facilities and sites and the 
 regulation and control thereof, and the relations between water- 
 ways and railways; and that the commission be empowered to 
 frame and recommend plans for developing the waterways and 
 utilizing the waters, and as authorized by Congress to carry out 
 the same, through established agencies when such are available, 
 in cooperation with States, municipalities, communities, corpora- 
 tions, and individuals, in such manner as to secure equitable dis- 
 tribution of costs and benefits. 
 
 ****** ii 
 
 " Respectfully submitted. 
 
 " Theodore E. Burton, Chairman. 
 
 " Francis G. Newlands. 
 
 " Wm. Warner. 
 
 " J. H. Bankhead. 
 
 "W J McGee, 
 
 " F. H. Newell. 
 
 " GiFFORD PiNCHOT. 
 
 " Herbert Knox Smith. 
 
 " supplementary report of commissioner senator FRANCIS G. 
 
 newlands. 
 
 " I concur in the report of the commission, but desire to em- 
 phasize my belief that it is of the highest importance that in 
 dealing with subjects relating to the respective powers, rights, 
 and interests of the Nation, States, municipalities, corporations, 
 and individuals large powers and a comparatively free hand 
 should be given to an administrative body of experts in the full 
 development of projects, lest the complexity of the transactions, 
 the time necessary to secure congressional approval, and differ- 
 ence of view as to purpose of method may result in indecision 
 and delay, the worst enemies of eff"ective development. 
 
 " An ample fund should be provided, to be reenforced from 
 time to time either by legislative appropriation or by bond 
 issue, and the administrative board or commission should be 
 given the power not only to investigate projects but also, when 
 determined to be feasible, to enter, with the approval of the 
 President, upon their immediate execution; but the power should 
 
 [114] 
 
Remarks of Mr. Newlands 
 
 be limited so as to prevent such administrative body from enter- 
 ing into any contract unless there are sulTicicnt unappropriated 
 moneys in the fund to meet the cost thereof. 
 
 " Unless some method of construction and development insur- 
 ing prompt decision and execution and continuous and consecu- 
 tive work by a body of experts is adopted, I fear that the best of 
 projects may be wrecked in the shoals and quicksands of legis- 
 lation. 
 
 " Francis G. Newlands." 
 
 The statement above set forth of the findings and recommenda- 
 tions of the Inland Waterways Commission will be found oil pages 
 18 to 27 and the supplementary report of Commissioner Senator 
 Francis G. Newlands on pages 30 and 31 of the preliminary 
 report of the Inland Waterways Commission, Senate Document 
 No. 325, Sixtieth Congress, first session. 
 
 It also appears, as above republished, in Senate Document No. 
 550, Sixty-fourth Congress, first session, entitled "River Regula- 
 tion, Flood Control, and Water Conservation and Utilization. 
 Hearing before the subcommittee of the Committee on Commerce, 
 United States Senate, Sixty-fourth Congress, first session, on S. 
 5736, a bill to promote interstate commerce, agriculture, and the 
 general welfare by providing for the development and control of 
 waterways and water resources; for water conservation; for flood 
 control, prevention, and protection; for the application of flood 
 waters to beneficial uses; and for cooperation in such work with 
 States and other agencies, and for other purposes," pages 147 
 
 to 153. 
 
 PREsmENT Roosevelt's recommendation 
 
 In the letter of transmittal by the President to Congress of the 
 report of the Inland Waterways Commission on February 26, 1908, 
 President Roosevelt closed the letter with the following urgent 
 recommendation : 
 
 " The development of our waterways and the conservation of 
 our forests are the two most pressing physical needs of the 
 country. They are interdependent, and they should be met vigor- 
 ously, together, and at once. The question of organization, 
 powers, and appropriations are now before Congress. There is 
 urgent need for prompt and decisive action." 
 
 EVOLUTION OF NEWLANDS RIVER-REGULATION BILL. 
 
 From that time until the present the effort to secure action from 
 Congress has never ceased. The campaign has been steadfastly 
 
 [115] 
 
Appendix 
 
 and continuously conducted. In nearly every session of Congress 
 measures have been urged by Senator Newlands with a view to 
 securing action that would inaugurate the broad and comprehen- 
 sive river regulation, waterways, and water resources national 
 policy embodied in the river-regulation amendment which Con- 
 gress has now adopted. Until this session no such comprehensive 
 legislation has been enacted. Congress has confined its action to 
 such incomplete, inadequate, and piecemeal or local legislation as 
 the White Mountain and Appalachian National Forest Reserve act, 
 passed in February, 1911, and the Mississippi and Sacramento 
 Rivers flood-control act, passed at the last session. 
 
 The following references to bills introduced and to debates and 
 remarks in the Senate and in the House of Representatives, and 
 to public addresses and articles in newspapers, periodicals, and 
 magazines by Senator Fr\ncis G. Newlands, from 1894 to 1917, 
 furnishes an historical reference record, extending over a period 
 of 23 years, of the development of the river-regulation movement 
 from the reclamation movement originating in the West, and of 
 the evolution of congressional action relating to that movement, 
 from the earliest measures introduced down to the final inaugura- 
 tion of the comprehensive river regulation and waterways and 
 water resources policy embodied in the river-regulation amend- 
 ment, section 18, of the river and harbor bill of 1917: 
 
 August 11, 1894: Remarks of Hon. Francis G. Newlands, in 
 the House of Representatives, on reclamation of arid lands. 
 (Cong. Rec, vol. 2G, pi. 8, p. 8427.) 
 
 February 17, 189C: Remarks in House on irrigation investi- 
 gations. (Cong. Rec, vol. 28, pt. 2, p. 1815.) 
 
 March 14, 1898: Introduced H. R. 9080, for construction of 
 reservoirs in the arid region (Cong. Rec, vol. 31, pt. 3, p. 2792.) 
 
 December 19, 1899: Introduced H. R. 4751, directing Secretary 
 of Interior to make surveys and report cost of erecting reser- 
 voirs in arid region, and making appropriations for same. (Cong. 
 Rec, vol. 33, pt. 1, p. 594.) 
 
 December 17, 1900: Introduced H. R. 12844, for the disposition 
 and settlement of arid lands, etc. (Cong. Rec, vol. 34, pt. 1, p. 
 386.) 
 
 January 9, 1901: Remarks in House; Storage reservoirs — The 
 arid lands question — Missouri headwaters improvement. (Cong. 
 Rec, vol. 34, pt. 1, p. 784.) 
 
 [116] 
 
Remarks of Mr. Newlands 
 
 January 11 and February 9, 1901: Made statements at hearings 
 before House Committee on Arid Lands. 
 
 January 15, 1901 : Offered amendment for construction of two 
 reservoirs on the Humboldt River. (Cong. Rec, vol. 34, pt. 2, p. 
 1056.) 
 
 January 15, 1901 : Remarks in House on Missouri headwaters 
 improvement. (Cong. Rec, vol. 34, pt. 2, p. 1055.) 
 
 January 15, 1901 : Remarks on Humboldt River improvement. 
 (Cong. Rec, vol. 34, pt. 2, p. 1056.) 
 
 January 26, 1907: Introduced H. R. 13846, for the reclamation 
 of arid lands. (Cong. Rec, vol. 34, pt. 2, p. 1542.) 
 
 January 30, 1901: Remarks in House on irrigation. (Clong. 
 Rec, vol. 34, pt. 2, p. 1700.) 
 
 February 6, 1901: Introduced H. R. 14072, to construct public 
 works for river regulation in the arid region. (Cong. Rec, vol. 
 34, pt. 3, p. 2047.) 
 
 February 6, 1901: Introduced H. R. 14088, to construct reser- 
 voirs, etc., in the arid region. (Cong. Rec, vol. 34, pt. 3, p. 2047.) 
 
 February 19, 1901: Remarks on cost of determining water 
 supply. (Con. Rec, vol. 34, pt. 3, p. 2665.) 
 
 February 19, 1901: Remarks on Nevada and its need of irri- 
 gation. (Cong. Rec, vol. 34, pt. 3, p. 2662.) 
 
 February 19, 1901: Remarks in House, Labor's intelligent ap- 
 preciation of the reclamation projects. (Cong. Rec, vol. 34, pt. 
 3, p. 2664.) 
 
 February 19, 1901: Remarks on Nevada and irrigation. (Cong. 
 Rec, vol. 34, pt. 3, p. 2665.) 
 
 March 2, 1901: Introduced H. R. 14326, to store winter, etc. 
 (Cong. Rec, vol. 34, pt. 4, p 3484.) 
 
 March 2, 1901: Introduced H. R. 14338, to store water, etc. 
 (Cong. Rec, vol. 34, pt. 4, p. 3605.) 
 
 March 12, 1901: Remarks on plan for storing water. (Cong. 
 Rec, vol. 34, pt. 4, p. 3565.) 
 
 March 12, 1901 : Remarks in House, to double appropriation 
 for irrigation investigations. (Cong. Rec, vol. 34, pt. 4, p. 3572.) 
 
 December 2, 1901 : Introduced H. R. 51, to authorize and begin 
 the construction of reservoirs, canals, etc, for the irrigation of 
 arid lands in Nevada. (Cong. Rec, vol. 35, pt. 1, p. 52.) 
 
 December 2, 1901 : Introduced H. R. 52, to provide for the dis- 
 position of arid public lands, to authorize the construction of 
 
 [117] 
 
Appendix 
 
 reservoirs for the storage of waters, etc. (Cong. Rec, vol. 35, pt. 
 1, p. 52.) 
 
 January 21, 1902: Remarks in House- — Western irrigation meas- 
 ure—Competition of western with eastern farmers (reply to Sib- 
 ley). (Cong. Rec, vol. 35, pt. 1, p. 836.) 
 
 January 21, 1902: Introduced H. R. 9C7G, appropriating receipts 
 from sales and disposal of public lands in certain States and 
 Territories to construction of irrigation works for reclamation 
 of arid lands (this is the reclamation act now in force). (Cong. 
 Rec., vol. 35, pt. 1, p. 851.) 
 
 March 8, 1902: H. R. Report 794 on above bill. (Cong. Rec, 
 vol. ,35, pt. 3, p. 2549.) 
 
 March 10, 1902: Same; views of minority. (Cong. Rec, vol. 35, 
 pt. 3, p. 2549.) 
 
 March 20, 1902: Remarks in House on irrigation of arid lands. 
 (Cong. Rec, vol. 35, pt. 3, p. 3088.) 
 
 April 7, 1902: H. R. Report 1468 on S. 3057, same? (Cong. Rec, 
 vol. 35, pt. 4, p. 3812.) 
 
 May 14, 1902: Remarks in House on reclamation of arid lands. 
 (Cong. Rec, vol. 35, pt. 8, Appendix, p. 253.) 
 
 June 12, 1902: Remarks in House on H. R. 9315, irrigation of 
 arid lands. (Cong. Rec, vol. 35, pt. 7, p. 6673.) 
 
 June 13, 1902: Remarks in House, same. (Cong. Rec, vol. 35, 
 pt. 7, p. 6731.) 
 
 July 6, 1902: Article in Washington Post on irrigation. 
 
 October 15, 1903: " Watering the desert "; article in the Youth's 
 Companion. 
 
 November 1, 1903: Article in Twentieth Century West on irri- 
 gation. 
 
 March 25, 1904: Reform of land laws — State cooperation in 
 irrigation — Nevada irrigation statute; remarks in House. (Cong. 
 Rec, vol. 38, pt. 4, p. 3667.) 
 
 December 26, 1904: Walker River storage. Correspondence 
 about Walker River water rights. 
 
 January 17, 1905: Walker River storage. Correspondence 
 about Walker River water rights. 
 
 March 2, 1905: Resources of the semiarid region; Senate Docu- 
 ment No. 191, published at Mr. Newlands's request. 
 
 June — , 1905: Remarks at banquet to irrigation party at Red 
 Bluffs, Cal. 
 
 June 30, 1905: Remarks at Sheridan, Wyo. 
 
 [118] 
 
Remarks of Mr. Newlands 
 
 September — , 1906: "Irrigation as a social problem"; article 
 in the Pacific Monthly. 
 
 March 14, 1907: Mr. Newlands was appointed by President 
 Roosevelt a member of the Inland Waterways Commission. 
 
 April 29, 1907: The commission organized at Washington, D. C, 
 and selected Mr. Newlands as vice chairman. 
 
 May 13-23, 1907: The commission made a trip on the Missis- 
 sippi River, from St. Louis to The Passes. Mr. Newlands 
 spoke at St. Louis. 
 
 September 3, 1907: Addressed the National Irrigation Con- 
 gress, at Sacramento, on waterways. 
 
 September 21 to October 13, 1907: Commission made a trip on 
 the Great Lakes, from Cleveland to Duluth; on the Mississippi 
 from St. Paul to Memphis; and on the Missouri from Kansas City 
 to St. Louis. Senator Newlands accompanied it. He spoke at 
 several places on the route, including St. Paul (Sept. 27), Mem- 
 phis (Oct. 5), Kansas City (Oct. 7), and Jefferson City (Oct. 10). 
 
 October 2G, 1907: Spoke on waterways before the University 
 Club, at Washington, D. C. 
 
 November 19, 1907: Made the opening address at the Atlantic 
 Deeper Waterways Conference, Philadelphia. 
 
 November 26, 1907: Spoke at the National Drainage Congress, 
 Baltimore, Md. 
 
 December 4, 1907: Introduced S. 500, for the appointment of an 
 inland waterways commission, etc., and spoke briefly in its sup- 
 port. (Cong. Rec, vol. 42, pt. 1, p. 143.) 
 
 December 5, 1907: Address before National Rivers and Har- 
 bors Congress, Washington, D. C. 
 
 December 17, 1907: Remarks in Senate on waterways and on 
 S. 500. (Cong. Rec, vol. 42, pt. 1, pp. 389, 400.) 
 
 January 1, 1908: Article in the Annals of the American Acad- 
 emy of Social and Political Science on the " Use and develop- 
 ment of American waterways." 
 
 January 3, 1908: Addressed the Springfield (Mass.) Board of 
 Trade. 
 
 January 22, 1908: Spoke at the banquet of the National Board 
 of Trade, Washington, D. C. 
 
 January 30, 1908: Mr. Newlands spoke before the Traffic Club, 
 at their annual banquet, Chicago. 
 
 February 7, 1908: Article on waterways in the Christian En- 
 deavor World, Boston, Mass. 
 
 [119] 
 
Appendix 
 
 February 7, 1908: Address before chamber of commerce, At- 
 lanta, Ga. 
 
 February 26, 1908: Joined with the Inland Waterways Commis- 
 sion in their preliminary report. 
 
 March 5, 1908: Article on waterways in Leslie's Weekly. 
 
 April 8, 1908: Mr. Newlands spoke before the waterways sec- 
 tion of the Southern Commercial Congress at Nashville. 
 
 April 11, 1908: Mr. Newlands addressed the National Drain- 
 age Congress at New Orleans. 
 
 April 16, 1908: Mr. Newlands spoke on waterways at a banquet 
 given by the Pittsburgh Chamber of Commerce in honor of the 
 Flood Commission. 
 
 May 13, 1908: Mr. Newlands introduced S. 7112. (Cong. Rec, 
 vol. 42, pt. 7, p. 6175.) 
 
 May 14, 1908: S. 7112 reported from Committee on Commerce 
 with amendment. (Cong. Rec, vol. 42, pt. 7, p. 6226.) 
 
 May 15, 1908 : Debate. (Cong. Rec, vol. 42, pt. 7, p. 6333.) 
 
 May 16, 1908 : Debate. (Cong. Rec, vol. 42, pt. 7, pp. 6403-6405.) 
 
 May 19, 1908: Reported S. 7112 as substituted for H. R. 21899. 
 (Cong. Rec, vol. 42, pt. 7, p. 6525.) 
 
 May 20, 1908: Debate (Cong. Rec, vol. 42, pt. 7, p. 6577.) 
 
 May 23, 1908 : Debate. (Cong. Rec, vol. 42, pt. 7, pp. 6808-6811.) 
 
 May 26, 1908: Debate. (Cong. Rec, vol. 42, pt, 7, pp. 6950. 
 6965. 6972.) 
 
 May 28, 1908: Debate. (Cong. Rec, vol. 42, pt. 7, p. 7124, 
 Appendix.) 
 
 November 25, 1908: Addressed the River Regulation Commis- 
 sion of Stockton, Calif., on waterways. 
 
 December 10, 1909: Introduced S. 3717, for the formation of 
 an inland waterways commission, etc. (Cong. Rec, vol. 45, pt. 1, 
 p. 76.) 
 
 February 16, 1910: River regulation amendment to rivers and 
 harbors bill. (Cong. Rec, vol. 45, pt. 2, p. 1963.) 
 
 February 17, 1910: Debate. (Cong. Rec, vol. 45, pt. 2, p. 1998.) 
 
 February 18, 1910: Debate. (Cong. Rec, vol. 45, pt. 2, pp. 
 2067-2072.) 
 
 February 22, 1910: Amendment to S. 6168 for Government busi- 
 ness methods commission. (Cong. Rec, vol. 45, pt. 2, p. 2204.) 
 
 April 11, 1910: Rivers and harbors bill debate. (Cong. Rec, 
 vol. 45, pt. 5, p. 4496.) 
 
 April 15, 1910: Debate. (Cong. Rec, vol. 45, pt. 5, pp. 4805- 
 4809.) 
 
 [120] 
 
Remarks of Mr. Newlands 
 
 April 18, 1910: Debate on rivers and harbors bill. (Cong. 
 Rec, vol. 45, pL 5, pp. 4877, 4885, 4893, 4894, 4895, 4896.) 
 
 April 19, 1910: River regulation, amendment to rivers and 
 harbors bill. (Cong. Rec., vol. 45, pt. 5, pp. 4972, 4984.) 
 
 June 8, 1910: Debate, rivers and harbors bill. (Cong. Rec, 
 vol. 45, pt. 7, pp. 7G01-7602.) 
 
 June 23, 1910: Amendment to Senate bill 4501, Appalachian 
 and White Mountain Forest Reserve bill. (Cong. Rec, vol. 45, 
 pt. 8, p. 8813.) 
 
 January 17, 1911: River regulation, amendment to rivers and 
 harbors bill. (Cong. Rec, vol. 46, pt. 1, p. 983.) 
 
 February 3, 1911: Article in the Commoner on "Suggested 
 Legislation," containing river-regulation program. 
 
 February 15, 1911: Debate on Appalachian bill. (Cong. Rec, 
 vol. 46, pt. 3, pp. 2577-2587, 2592-2595.) 
 
 March 1, 1911 : Introduced S. 10900. (Cong. Rec, vol. 46, pt. 4, 
 p. 3752.) 
 
 March 15, 1911: Letter to Hon. Champ Clark, waterways as a 
 part of the legislative program. 
 
 April 6, 1911: Introduced S. 122. (Cong. Rec, vol. 47, pt. 1, 
 p. 103.) 
 
 May 11, 1911: Introduced S. Res. 41, legislative program. 
 
 May 15, 1911: Debate. (Cong. Rec, vol. 47, pt. 2, pp. 1205- 
 1213.) 
 
 May 16, 1911: Debate. (Cong. Rec, voL 47, pt. 2, pp. 1225- 
 1229.) 
 
 May 24, 1911: Debate. (Cong. Rec, vol. 47, pt. 2, pp. 1546- 
 1547.) 
 
 June 24, 1911: Debate. (Cong. Rec, vol. 47, pt. 3, pp. 2443- 
 2448.) 
 
 July 22, 1911: Introduced S. Res. 109, legislative program. 
 (Cong. Rec, vol. 47, pt. 4, p. 3176.) 
 
 July 24, 1911: Debate. (Cong. Rec, voL 47, pt. 4, pp. 3181- 
 3189.) 
 
 August 4, 1911: Debate. (Cong. Rec, vol. 47, pt. 4, p. 3601.) 
 
 December 7, 1911: Introduced S. Res. 159. 
 
 December 11, 1911: Debate. (Cong. Rec, vol. 48, pt. 1, pp. 
 186-188.) 
 
 January 23, 1912: Debate. (Cong. Rec, vol. 48, pt. 1, pp. 648, 
 657.) 
 
 April 13, 1912: Debate (Cong. Rec, voL 48, pt. 5, pp. 4705, 
 4706.) 
 
 [121] 
 
Appendix 
 
 April 30, 1912: Amendment to H. R. 21447, rivers and harbors 
 bill. (Cong. Rec, vol. 48, pt. 6, p. 5576.) 
 
 April 30, 1912: Waterways. (Cong. Rec, vol. 48, pt. 6, pp.. 
 5576, 5577.) 
 
 May 9, 1912: Debate. (Cong. Rec, vol. 48, pt. 6, pp. 6110-6119; 
 Appendix, pp. 216-228.) 
 
 July 18, 1912: Debate (Cong. Rec, vol. 48, pt. 9, p. 9220.) 
 July 26, 1912: H. R. 21214. (Cong. Rec, vol. 48, pt. 10, pp. 
 9707, 9708.) 
 
 August 9, 1912: Debate. (Cong. Rec, vol. 48, pt. 11, pp. 10572- 
 10574.) 
 
 October 3, 1912: Article in the Independent on "Possibilities 
 of a Democratic administration," including the subject of water- 
 w^ays. 
 
 February 19, 1913: Amendment to river and harbor bill. 
 (Cong. Rec, vol. 49, pt. 4, p. 3400.) 
 
 February 20, 1913: Debate. (Cong. Rec, vol. 49, pt. 4, pp. 
 3478-3498) 
 
 February 22, 1913: Debate. (Cong. Rec, vol. 49, pt. 4, p. 3636.) 
 February 24, 1913: River regulation commission debate. (Cong. 
 Rec, vol. 49, pt. 4, pp. 3786-3791.) 
 
 March 1, 1913: Debate. (Cong. Rec, vol. 49, pt. 5, pp. 4365- 
 4376.) 
 
 April 10, 1913: Article in the Independent: Control of our 
 waterways. 
 
 March 13, 1913: Introduced S. Res. No. 4; debate. (Cong. 
 Rec, vol. 50, pt. 1, pp. 16-17.) 
 
 March 17, 1913: Debate. (Cong. Rec, vol. 50, pt. 1, pp. 33-34.) 
 April 21, 1913: Debate. (Cong. Rec, vol. 50, pt. 1, p. 205.) 
 May 5, 1913: Debate. (Cong. Rec, vol. 50, pt. 1, pp. 210-211.) 
 May 19, 1913: Debate. (Cong. Rec, vol. 50, pt. 1, pp. 265-267.) 
 May 20, 1913: Debate. (Cong. Rec, vol. 50, pt. 2, p. 1092.) 
 July 14, 1913: Introduced S. 2739: A bill to create a water- 
 ways commission and a board of river regulation. The bill is 
 printed in full on pages 2393 to 2395 of the Record of this date. 
 (Cong. Rec, vol. 50, pt. 3, pp. 2392-2395.) 
 
 January 31, 1914: Introduced an amendment in the nature of 
 a substitute for S. 2739, this substitute bearing the same num- 
 ber, and being known as the Newlands-Broussard river-regula- 
 tion bill. It is printed in full in the Record of this date. (Cong. 
 Rec, vol. 51, pt. 3, pp. 2635-2638, 2640.) 
 
 [122] 
 
Remarks of Mr. Newlands 
 
 In his remarks on the introduction of this bill Senator New- 
 lands said : 
 
 " I wish to introduce the bill which I send to the desk as a svib- 
 stitute for the bill (S. 2739) known throughout the country as 
 the Newlands river-regulation bill, submitted by me on July 14, 
 1913. This substitute is intended to remove all doubt as to the 
 purpose of the original bill regarding the Mississippi River. It 
 proposes to make the Mississippi River, with its banks, its levees, 
 its spillways, and its cut-offs, a national highway." 
 
 In the Congressional Record of this same date, following the 
 bill, articles were printed, entitled as follows: 
 
 1. Editorial from the Memphis News-Scimitar, January 15, 
 1914. 
 
 2. Editorial from the Mobile Item, January 22, 1914. 
 
 3. Resolutions of the Trans-Mississippi Commercial Congress, 
 fourteenth annual session, Seattle, Wash., August 18-21, 1903. 
 
 4. Flood control — Impounding waters at their sources, by 
 George H. Maxwell. From the Southern Lumberman, Nashville, 
 Tenn., December, 1914. (Cong. Rec, vol. 51, pt. 3, pp. 2634- 
 2640.) 
 
 June 22, 1914: River-regulation amendment to rivers and har- 
 bors bill introduced with explanatory remarks. Amendment 
 printed in Record and referred to Senate Committee on Com- 
 merce. (Cong. Rec, vol. 51, pt. 11, pp. 10833-10834.^ 
 
 July 9, 1914: Debate; discussion of the river-regulation amend- 
 ment, the Newlands-Broussard bill, and the river and harbor 
 bill. (Cong. Rec, vol. 51, pt. 12, pp. 11864-11866.) 
 
 December 23, 1914: Reintroduction river-regulation amend- 
 ment, remarks on river-regulation bill, Democratic platforms, 
 1908-1912. 
 
 In the course of his remarks Senator Newlands said: 
 
 " The President, without committing himself to this or any 
 measure, is inclined to favor the general principles of the bill; 
 but he does not think that there is time enough for its considera- 
 tion at the short session. 
 
 " While I am reluctant to lessen the pressure for legislation 
 on this important question, and believe that the force of public 
 sentiment should be continuously exerted, and while I have 
 reason to believe that the measure which I have been advocat- 
 ing has the support of thinking people in every section of the 
 country, I can not take exception to the position of the Presi- 
 
 [123] 
 
Appendix 
 
 dent, burdened as he is with tiie advocacy of other measures 
 of great importance. I have therefore concluded not to press 
 the matter in any form at this session unless a decided change 
 in the conditions takes place. 
 
 " I wish, however, to impress the friends of river regulation 
 and water development with these facts: 
 
 " First. That public opinion is against the present system of 
 river and harbor improvements. 
 
 " Second. That the committees of the Senate and House are 
 favorable to the present system and will abandon it with great 
 reluctance. 
 
 " Third. That it is necessary for that reason to maintain the 
 pressure of a sound public opinion in order to force the con- 
 sideration of the measure. 
 
 " To this end I think it important that the development of the 
 rivers should be entirely separated from the development of 
 the harbors. The harbors are a part of foreign commerce. The 
 rivers are a part of interstate commerce. The harbors bill should 
 go to the Commerce Committee in the Senate. The river-regu- 
 lation bill should, in my judgment, in the Senate go to the Inter- 
 state Commerce Committee, of which 1 am chairman, and not to 
 the Commerce Committee, as the chairman of the Commerce 
 Committee contends. 
 
 " In the Senate this bill now lies on the table awaiting the 
 determination of the Senate itself as to which committee the 
 bill shall go. If it goes to the Interstate Commerce Committee, 
 we can then formulate all the necessary legislation that will make 
 river development dovetail with the development of railroad 
 transportation. Provisions can be secured in that legislation that 
 will prevent the destruction of river transportation by the unfair 
 competition of the railroads. Interstate commerce is one sub- 
 ject, and it should not be divided between two committees. 
 
 " For the reasons above given I have concluded not to press the 
 river-regulation bill at this session, but to press it with vigor 
 at the next session of Congress, and I urge all who feel the im- 
 portance of river regulation to bring the weight of their personal 
 influence to its support. It has been indorsed throughout the 
 entire country by chambers of commerce, boards of trade, and 
 waterway associations. It has been hospitably received by the 
 press of the country. It has received the indorsement of several 
 
 [124] 
 
Remarks of Mr. Newlands 
 
 State legislatures. It is the only concrete measure upon which 
 public opinion can be concentrated. It is no new thing. 
 
 " Pressure for the bill gives concrete expression to a favorable 
 public sentiment regarding the principles of the bill and does 
 away with the necessity for tedious elaboration in its advocacy. 
 I invite the hearty support of all people who believe that water 
 is a valuable asset; that it should be conserved and regulated 
 as such, and that its highest uses should be developed and main- 
 tained with scientific accuracy. As the President so happily ex- 
 pressed it to the irrigation congress at Salt Lake, ' the floods 
 should be turned from a menace into a blessing.' 
 
 " Now, Mr. President, I ofTer, but not with a view to pressing 
 the matter, an amendment to the river and harbor bill similar 
 to the one which I offered at the last session. That amendment 
 refers simply to the organization of the commission, and not to 
 the creation of a fund." 
 
 The river-regulation amendment above referred to is printed 
 in the Record of this date. (Cong. Rec, vol. 52, pt. 1, pp. 623- 
 624.) 
 
 February 4, 1916: Remarks in protest against inadequate 
 methods of dealing with flood problem. (Cong. Rec, vol. 53, 
 pt. 3; p. 2105.) 
 
 February 19, 1916: The Newlands-Broussard river-regulation 
 bill proposed as an amendment to the Shields water-power bill 
 (S. 3331). (Cong. Rec, vol. 53, pt. 3, p. 2805.) 
 
 March 8, 1916: Debate. (Cong. Rec, vol. 53, pt. 4, pp. 3732- 
 3736.) 
 
 April 11, 1916, Senator Newlands presented the following 
 documents, which were printed in full in the Record: 
 
 1. Telegram from Walter Parker, general manager New Or- 
 leans Association of Commerce, to Hon. William C. Redfleld, 
 Secretary of Commerce, dated February 15, 1916, and contain- 
 ing a copy of telegram from Woodrow Wilson to Francis G. New- 
 lands, president Irrigation Congress, Salt Lake City, Utah, dated 
 Seagirt, N. J., September 20, 1912. 
 
 2. Letter from President Woodrow Wilson to Hon. Francis G. 
 Newlands, United States Senate, dated the White House, April 
 3, 1916, transmitting report of the Interdepartmental Cabinet 
 Committee, dated Washington, February 26, 1916, and signed by 
 the Secretaries of Interior, Agriculture, and Commerce. (Cong. 
 Rec, vol. 53, pt. 6, p. 5871.) 
 
 [125] 
 
Appendix 
 
 April 11, 1916: Remarks by Senator Newlands explaining the 
 difference between the Ransdell-Humphreys flood-control bill 
 and the Newlands-Broussard river-regulation bill, and the rec- 
 ommendations of the Interdepartmental Cabinet Committee with 
 relation to both bills. (Cong. Rec, vol. 53, pt. 6, p. 5872.) 
 
 April 17, 1916, Senator Newlands introduced river-regulation 
 amendment to river and harbor bill (H. R. 12193) with the fol- 
 lowing remarks: 
 
 " Mr. Newlands. Mr. President, I submit an amendment in- 
 tended to be proposed by me to the river and harbor bill, em- 
 bracing the recommendations of the Secretaries of the Interior, 
 Agriculture, and Commerce to the President of the United States, 
 regarding a full and broad system of river regulation and control. 
 These recommendations were recently transmitted to me by the 
 President of the United States in a letter, which, with the accom- 
 panying recommendations, were at my instance recently printed 
 in the Record. They were recommendations made by an inter- 
 departmental committee appointed by the President two years 
 ago, consisting of the Secretaries of War, Interior, Agriculture, 
 and Commerce. Owing to a vacancy in the War Secretaryship 
 the recommendations were signed only by the three other Secre- 
 taries, but I am informed that the recently appointed Secretary 
 of War is in harmony with them. The letter of the President and 
 the recommendations of the Secretaries will be found in the Con- 
 gressional Record of April 11, 1916." (Cong. Rec, vol. 53, pt. 7, 
 p. 6269.) 
 
 The river-regulation amendment introduced as aforesaid on 
 April 17, 1916, is printed in full in the Congressional Record of 
 that date, pages 6269-6270. 
 
 April 24, 1916: Introduced S. 5736. (Cong. Rec, vol. 53, pt. 7, 
 p. 6688.) 
 
 May 9, 1916: Remarks prompted by discussion of appropriation 
 in rivers and harbors bill as to floods in Kansas; conference at 
 office of governor of Kansas; inadequacy of flood-control bill. 
 (Cong. Rec, vol. 53, pt. 8, p. 7656.) 
 
 May 18, 1916: Remarks: Flood-control bill; correspondence 
 with Hon. B. G. Humphreys. The Humphreys bill and the New- 
 lands bill printed in parallel columns. (Cong. Rec, vol. 53, pt. 8, 
 pp. 8232-8235.) 
 
 May 18, 1916: Remarks: Coordination of rail and water trans- 
 portation. (Cong. Rec, vol. 53, pt. 8, p. 8248.) 
 
 [126] 
 
Remarks of Mr. Newlands 
 
 May 22, 1916: Remarks in protest against piecemeal character 
 of river and harbor appropriations and urging necessity of com- 
 prehensive plan. (Cong. Rec, vol. 53, pt. 9, pp. 8435-8437.) 
 
 May 24, 1916: Debate, same subject, and also flood-control bill; 
 protest against organization of National Waterways Commission 
 in March, 1909; investigation should now be followed by the 
 actual work of construction. (Cong. Rec, vol. 53, pt. 9, pp. 
 8568-8572.) 
 
 May 26, 1916: Remarks: Shafroth amendment requiring 20 per 
 cent contribution from States on river and harbor improvements. 
 (Cong. Rec, vol. 53, pt. 9, pp. 8703-8705.) 
 
 May 26, 1917: Introduced river-regulation amendment to river 
 and harbor bill, H. R. 12193, which was ordered to lie on the 
 table and be printed. (Cong. Rec, vol. 53, pt. 9, p. 8729.) 
 
 May 27, 1917: River-regulation amendment offered, the river 
 and harbor bill being under consideration: 
 
 " Mr. Newlands. I wish to offer the same amendment that was 
 offered and put into the river and harbor bill some three years 
 ago regarding the creation of a river regulation commission with 
 powers of coordination and cooperation. 
 
 "Mr. Clarke (chairman of the Commerce Committee). I trust 
 that the Senate will permit the amendment to be adopted without 
 comment. 
 
 The amendment was read and appears in full in the Record 
 of this date on page 8763. The point of order being made against 
 the amendment that it is general legislation on an appropriation 
 bill, the amendment was temporarily withdrawn. (Cong. Rec, 
 vol. 53, pt. 9, p. 8763.) 
 
 May 29, 1917: River-regulation amendment again offered, with 
 the following remarks : 
 
 " Mr. Newlands. Mr. President, I renew the amendment I 
 offered the other day, an amendment which was inserted in the 
 river and harbor bill some two years ago by the Senate." (Cong. 
 Rec, vol. 53, pt. 9, p. 8832.) 
 
 The amendment was subsequently stricken out on a reserved 
 point of order. (See p. 8835.) 
 
 May 31, 1917: Debate as to reference of flood-control bill, 
 H. R. 14777: An act to provide for the control of floods in the 
 Mississippi and Sacramento Rivers; relation of flood control to 
 waterway transportation. (Cong. Rec, vol. 53, pt. 9, pp. 8953- 
 8957.) 
 
 [127] 
 
Appendix 
 
 August 1, 1916: Remarks prompted by floods in Alabama, North 
 and South Carolina. (Cong. Rec, vol. 53, pt. 12, p. 11908.) 
 
 December 21, 1916: Introduced a bill (S. 7510) providing for 
 the control of waterways and water resources, for water con- 
 servation, for flood control, prevention, and protection. (Cong. 
 Rec, vol. 54, pt. 1, p. 635.) 
 
 February 10, 1917: Remarks: 
 
 " Mr. Newlands. I wish to ask of the chairman of the Com- 
 mittee on Commerce whether there is reported in the river and 
 harbor bill a provision for the organization of a waterways com- 
 mission", composed of departmental chiefs and distinguished 
 engineers, who are to make a thorough study of ail the questions 
 that relate to the development of our waterways for navigation 
 and other purposes?" 
 
 The chairman of the Commerce Committee replied that such 
 provision had been embodied in the bill, and the amendment 
 (the river-regulation amendment) is printed on page 2990 of the 
 Record. (Cong. Rec, vol. 54, pt. 3, pp. 2989-2990.) 
 
 February 26, 1917: Debate: Mississippi and Sacramento Rivers 
 flood-control bill, on the passage of the bill. (Cong. Rec, vol. 
 54, pt. 3, pp. 4282, 4290, 4292, 4294, 4298.) 
 
 THE NEWLANDS RIVER-REGULATION AMENDMENT. 
 
 The first Newlands river-regulation amendment was introduced 
 in the Senate as an amendment to the river and harbor bill by 
 Senator Newlands on February 16, 1910, and on February 18 was 
 reintroduced by him, with a brief amendment, and is printed in 
 full in the Congressional Record of the latter date. 
 
 At that time Senator Newlands addressed the Senate on the 
 subject of this amendment, and from his remarks the following 
 is quoted: 
 
 " THE waterways CAMPAIGN. 
 
 " Mr. Newlands. Mr. President, the question of the development 
 of the waterways of the country has been receiving great atten- 
 tion within the past few years. Various organizations have been 
 formed throughout the country relating to the development of our 
 waterways, associations appropriately named for the promotion 
 of such development in the Mississippi Valley, on the various 
 tributaries of the Mississippi, on the Atlantic, the Pacific, and 
 the Gulf coasts. This movement reached such headway through 
 conventions and river and harbor congresses that Mr. Roosevelt, 
 
 [128] 
 
Remarks of Mr. Newlands 
 
 then President, took the matter in hand and appointed a commis- 
 sion in aid of his power of recommendation to Congress, called 
 ' the Inland Waterways Commission,' which made a preliminary 
 report to him, which report was subsequently submitted to Con- 
 gress. 
 
 " It was my privilege to. serve on that commission, and whilst a 
 member of it I introduced a bill, Senate bill No. 500, in the Six- 
 tieth Congress, first session, for the organization of an inland 
 waterway commission, for the coordination of the various scien- 
 tific services of the Government that related in any way to the 
 development of our waterways and water resources, and for co- 
 operation between the Nation and the States, municipalities, and 
 private interests in the development of these waterways. That 
 bill, with certain modifications, was approved by the then Secre- 
 tary of War and by the Inland Waterways Commission, of which 
 Mr. Burton, of Ohio, was the chairman. It was referred to the 
 Commerce Committee and there considered. But it did not come 
 up for passage. 
 
 " Since then Congress itself took the matter in hand and ap- 
 pointed a National Waterways Commission, composed entirely 
 of Senators and Representatives, the previous Inland Waterways 
 Commission appointed by the President under his executive 
 power of recommendation being a mixed commission, consisting 
 of two Senators, two Members of the House of Representatives, 
 and five others— the Chief of the Engineer Corps of the Army, the 
 Chief of the Reclamation Service, the Chief of the Forestry Serv- 
 ice, the Chief of the Bureau of Soils, and the Chief of the Bureau 
 of Corporations. ^ 
 
 " Both these commissions have agreed substantially upon the 
 lines of their recommendation as to legislation. They have de- 
 clared for coordination of the scientific and constructive services 
 of the Government in this great work and for the cooperation of 
 the Nation with States, municipalities, corporations, and in- 
 dividuals that have any jurisdiction over or any right or interest 
 in the development of our waterways, the purpose being to unite 
 the information, the experience, of the scientific services of the 
 Government, and to unite the energies of all the various sov- 
 ereignties and of all the corporations and individuals having 
 jurisdiction over or interest in the water resources of the coun- 
 try in developing our waterways, not only for navigation, but for / 
 
 every other useful purpose. 
 
 »*»•*♦* 
 
 115652°— 20 9 [129] 
 
Appendix 
 
 THE RELATED USES OF WATER. 
 
 " Mr. President, I imagine that there will be little difference of 
 opinion that these related questions of forestry, of the reclama- 
 tion of arid lands, of the drainage of s\vamp lands, of the de- 
 velopment of water power, and the clarification of streams, all 
 have a relation to the development of waterways for the purpose 
 of navigation. The development of a w^aterway for navigation 
 may be entirely impracticable because of its cost; but if we can 
 unite with the development of that waterway the reclamation of 
 the arid lands above, the drainage of swamp lands below, and the 
 intermediate development of valuable water power, we then add 
 to the natural resources of the country and create values which in 
 themselves will be compensatory of the entire work, whereas the 
 work would not be in any measure self-compensatory if confined 
 to navigation alone. 
 
 "We have in this Government various scientific services, serv- 
 ices of a very high standard, services of great esprit de corps, 
 services that have won the admiration and respect not only of 
 Congress, but of the entire country. These services are now act- 
 ing entirely separate and apart from each other, and yet they are 
 all practically acting upon parts of the same subject matter. 
 
 "We have the Engineer Corps of the Army operating simply 
 upon the question of navigation. Their efforts thus far have 
 been largely confined simply to the maintenance of a stable chan- 
 nel through the operations of dredging and bank protection. We 
 have the Reclamation Service engaged in the diversion of the 
 flood waters of the upper reaches of streams, carrying those flood 
 waters over the arid lands, and thus aiding in the prevention of 
 the extraordinary floods which impair the efficiency of the chan- 
 nel of the river below. We have in them an agency for flood pre- 
 vention and for the storage of the flood waters which will aid and 
 promote navigation. Then, we have below vast areas of swamp 
 land, rich with alluvial soil, the deposits of ages, almost useless 
 because of the annual overflow, and the channel of the river itself 
 so scattered and diverse as not to permit navigation anywhere. 
 
 " The problem there is to make one navigable channel by bank 
 protection and by bank levees, and by one process thus clear the 
 channel for navigation, and at the same time promote the recla- 
 mation of vast areas of rich and fertile land. So also in the de- 
 velopment of our works for navigation we are compelled in 
 places to provide for dams and locks in the rapids of the river 
 
 [130] 
 
Remarks of Mr. Newlands 
 
 where there is a rapid fall, and those dams and locks are useful 
 for the development of water power, which in itself is partly 
 compensatory of the project. 
 
 " We have, then, the Reclamation Service; we have the Forestry 
 Service; we have the Weather Service; we have the Soils Service; 
 we have the Coast and Geodetic Survey; and we have the Geo- 
 logical Survey, all of them engaged in the study of questions 
 relating to water, its development, and its regulation and control. 
 Is it not the businesslike thing to provide some method by which 
 those services can be brought together for consultation and joint 
 action? 
 
 " The purpose of this amendment is to permit the President of 
 the United States to bring into coordination, through a board or 
 boards, these related services; to bring them into coordination 
 with the Corps of Engineers of the Army, leaving that as the 
 central organization in connection with the development of our 
 waterways, as it has been for so many years, but giving it the 
 benefit of the advice and the accumulated experience and infor- 
 mation of these great services which have been making a study 
 of similar subjects. 
 
 " WATER AND RAIL COOPERATION, 
 
 " Then there is the question of transportation. The National 
 Waterways Commission in its very elaborate and able report 
 presents the question of the development of our waterways in 
 connection with railways, insisting that the decline of water- 
 way transportation thus far has been due to the fact that the 
 railways have discouraged water transportation and have sought 
 by unfair competition to destroy it. So, in connection with this 
 great work, we should be allowed the opportunity of calling 
 upon the great transportation experts of the country, and also 
 the members of the Interstate Commerce Commission themselves, 
 for the purpose of advising this board, or these boards, regard- 
 ing methods that will bring water and rail into cooperation and 
 make each the friend and ally instead of the enemy of the other. 
 
 " TRANSPORTATION A CHARGE ON OUR NATURAL RESOURCES. 
 
 " The railroad managers have declared that it is essential, in 
 order to meet the transportation requirements of the country in 
 the near future, that at least $5,000,000,000 shall be expended 
 upon the railways of the country. That $5,000,000,000 is a charge 
 
 [131] 
 
Appendix 
 
 upon the natural resources of the country, as is so well stated in 
 the report of the national commission. The interest upon it, 
 amounting to at least $250,000,000 annually, will be paid by the 
 shippers of the country, and is it not a wise thing for us to con- 
 sider whether we can pot reduce in part the necessity for such 
 enormous expenditure by spending within the next 10 years 
 $500,000,000, and even perhaps a billion dollars in the aggregate? 
 It is reasonable to suppose that the expenditure of a billion 
 dollars in waterway transportation at the rate of $100,000,000 a 
 year during the next 10 years will save more than half of the 
 necessary expenditure of $5,000,000,000 upon the railways. 
 
 " Why is it that the railways have been unequal to the trans- 
 pprtation requirements of the country? Why was it that two or 
 three years ago they broke down just before the panic? It was 
 simply because the railroads were made the agencies of trans- 
 porting the bulky and cheap products of the country, products 
 which could be better and more cheaply carried by water, and 
 in reference to the transportation of which time was not an 
 essential. Inquire of any railroad man, and you will find that 
 the breaking down of the transportation system of the country 
 was not due to the transportation of the high-priced products, 
 which pay high freight, but to the coarser products, the products 
 of the mine, the products of the field and the farm, such prod- 
 ucts as in Germany are carried mainly by waterway transporta- 
 tion, and which in this country, if we perfect our waterway 
 transportation, can be carried largely upon the rivers of the coun- 
 try; so that it is important for us to act now and to establish the 
 system under which we are to proceed. 
 
 " The amendment which I have offered, whilst not going so far 
 as I would desire to do, as indicated in my appendix to the report 
 of the Inland Waterways Commission, goes as far as the judg- 
 ment of Congress will at present sanction; but I believe that, so 
 far as providing for coordination of the scientific services of the 
 country, providing for comprehensive plans, and for cooperation 
 between the Nation and the States is concerned. Congress will 
 readily see the propriety of this amendment. Then we will have 
 enlisted not only the information and experience of the Engineer 
 Corps of the Army, but the information and experience of every 
 scientific service of the Government and the services of the best 
 engineers, constructors, and transportation experts of the country 
 in the solution of these important problems; and we can enter 
 
 [132] 
 
Remarks of Mr. Newlands 
 
 upon this great work with comprehensive plans, assigning to each 
 sovereign its duty, to each interest its duty, properly apportion- 
 ing costs and benefits, instead of entering upon an accidental and 
 disjointed development, ^vhich may result, I fear, In the shipwreck 
 
 of the waterway movement of the country. 
 
 ******* 
 
 " THE governors' CONFERENCE. 
 
 " If you will read the report of the conference of the governors, 
 unanimously acquiesced in by the governors of the great States, 
 you will find the principles of coordination and of cooperation, 
 such as are outlined in this amendment, clearly sustained and 
 
 vindicated. 
 
 " I quote from the declaration of the governors, as follows: 
 
 " * We declare our firm conviction that this conservation of our 
 natural resources is a subject of transcendent 'importance which 
 should engage unremittingly the attention of the Nation, the 
 States, and the people in earnest cooperation. These natural 
 resources include the land on which we live and which yields 
 our food; the living waters which fertilize the soil, supply power, 
 and form great avenues of commerce; the forests which yield 
 the materials for our homes, prevent erosion of the soil, and 
 conserve the navigation and other uses of the streams; and the 
 minerals which form the basis of our industrial life and supply 
 us with heat, light, and power. \ i 
 
 " ' We agree that the land should be so used that erosion and \ 
 soil wash shall cease; and that there should be reclamation of 
 arid and semiarid regions by means of irrigation, and of swamp 
 and overflowed regions by means of drainage; that the waters 
 should be so conserved and used as to promote navigation, to 
 enable the arid regions to be reclaimed by irrigation, and to de- 
 velop power in the interests of the people; that the forests, which 
 regulate our rivers, support our industries, and promote the fer- 
 tility and productiveness of the soil, should be preserved and 
 perpetuated; that the minerals found so abundantly beneath the 
 surface should be so used as to prolong their utility; that the 
 beaut}-, healthfulness, and habitability of our country should be 
 preserved and increased; that the sources of national wealth exist 
 for the benefit of the people, and that monopolj^ thereof should 
 not be tolerated. 
 
 " * We commend the wise forethought of the President in sound- • 
 ing the note of warning as to the waste and exhaustion of the 
 
 [133] 
 
Appendix 
 
 natural resources of the country, and signify our high appre- 
 ciation of his action in calling this conference to consider the 
 same and to seek remedies therefor through cooperation of the 
 Nation and the States. 
 
 " ' We agree that this cooperation should find expression in suit- 
 able action by the Congress within the limits of and coextensive 
 with the national jurisdiction of the subject, and, complementar}^ 
 thereto, by the legislatures of the several States within the limits 
 of and coextensive with their jurisdiction. 
 
 " ' We declare the conviction that in the use of the natural 
 resources our independent States are interdependent and bound 
 
 together by ties of mutual benefits, responsibilities, and duties. 
 
 ******* 
 
 " ' We recognize in our waters a most valuable asset of the peo- 
 ple of the United States, and we recommend the enactment of 
 laws looking to the conservation of water resources for irrigation, 
 water supply, power, and navigation, to the end that navigable 
 and source streams may be brought under complete control and 
 fully utilized for every purpose. We especially urge on the Fed- 
 eral Congress the immediate adoption of a wise, active, and 
 thorough waterway policy, providing for the prompt improve- 
 ment of our streams and the conservation of their watersheds 
 required for the uses of commerce and the protection of the in- 
 terests of our people.' " 
 
 The Newlands river-regulation amendment was agreed to by the 
 Senate as an amendment to the river and harbor bill on February 
 23, 1913, but was stricken out in conference, as will be seen by 
 reference to the debates in the Senate on the river and harbor bill 
 on March 1, 1913. (Cong. Rec, vol. 49, pt. 5, pp. 4365-4376, 4380, 
 4427-4428.) 
 
 On June 22, 1914, Senator Newlands again introduced the river- 
 regulation amendment, and from his remarks in the Senate at that 
 time the following is quoted: 
 
 " Mr. Newlands. Mr. President, I submit an amendment intended 
 to be proposed to the river and harbor appropriation bill, and I 
 desire to make a brief statement in connection therewith. 
 
 " Ever since 1907 I have been urging the adoption of a river- 
 regulation bill, providing a commission with a fund of $60,000,- 
 000 annually for 10 years, for the purpose of promoting the 
 development and control of our rivers in the interest of irriga- 
 tion, and also with a view to the solution of the related ques- 
 
 [134J 
 
Remarks of Mr. Newlands 
 
 \ 
 
 tions of irrigation, forestry, fisheries, swamp-land reclamation, 
 flood control, water-power development, cooperation of railways 
 and waterways, and promotion of transfer facilities and sites. 
 Two years ago I succeeded in placing an amendment upon the 
 river and harbor bill in the Senate providing for the skeleton 
 organization covered by this bill, but the amendment was lost 
 in conference because of the opposition of the House conferees. ^ 
 Since then, as the result of conferences with Senator Ransdell 
 and Senator-elect Broussard, of Louisiana, the bill has been 
 amended by fully recognizing the Mississippi River as a national 
 problem, and the bill now has the active cooperation of these 
 gentlemen, Mr. Broussard having recently introduced it in the 
 House. The bill is now known as the Newlands-Broussard bill. 
 
 " Early in the present administration the President's attention 
 was called to the bill as a substantial compliance with the Demo- 
 cratic platforms of the past two campaigns, calling in the most 
 specific terms for comprehensive plans, an ample fund, the co- 
 ordination of the scientific services, and the cooperation of the 
 Nation with the States in the full development and control of our 
 rivers for every useful purpose. The President was much inter- 
 ested, and referred the bill to a Cabinet committee consisting of 
 the Secretaries of War, Interior, Agriculture, and Commerce for 
 their study and report. This Cabinet committee is very favor- 
 ably inclined toward the general lines of the bill, but recom- 
 mends as a step in the ultimate solution of the problem the adop- 
 tion of an amendment to the river and harbor bill practically on 
 the lines of the amendment offered by me two years ago and 
 adopted in the Senate. The matter has been the subject of dis- 
 cussion at a Cabinet meeting, and the President approves of this 
 action. 
 
 " The most important difi'erence between this amendment and 
 the full bill is that it does not carry the large and continuing 
 appropriation for which the advocates of a comprehensive plan 
 of waterway development have been working. It does, however, 
 provide complete machinery for the coordination of the scientific 
 services of the Government, for the study of the problems in- 
 volved, and for the formulation of plans. The amendment has 
 the approval of the Secretaries of the departments named, as well 
 as of the President, and is acceptable to me as a step in the right 
 direction, although it does not go as far as I had hoped it might 
 be carried. It is my belief that upon such a substantial founda- 
 
 [135] 
 
Appendix 
 
 tion, with the cordial cooperation of the administration, it will 
 be a question of only a comparatively short time until the problem 
 of how to conserve our water resources will be solved in the best 
 possible way. 
 
 " I ask that the amendment be printed in the Record and re- 
 ferred to the Committee on Commerce." 
 
 There being no objection, the amendment was referred to the 
 Committee on Commerce and ordered to be printed in the Record, 
 as follows: 
 
 " Sec. — . That a commission, to be known as the river-regula- 
 tion commission, consisting of the Secretary of War, the Secre- 
 tary of the Interior, the Secretary of Agriculture, the Secretary 
 of Commerce, two Members of the Senate to be selected by the 
 President of the Senate, and two Members of the House of Rep- 
 resentatives to be selected by the Speaker, is hereby created 
 and authorized to investigate questions relating to Ihe develop- 
 ment, improvement, regulation, and control of navigation as a 
 part of interstate and foreign commerce, including therein the 
 related questions of irrigation, forestry, fisheries, swamp-land 
 reclamation, clarification of streams, regulation of flow, control 
 of floods, utilization of water power, prevention of soil waste, 
 cooperation of railways and waterways, and promotion of trans- 
 fer facilities and sites, and to formulate, if practicable, and to 
 report to the Congress comprehensive plans for the development 
 of the waterways and water i-esourccs of the country for every 
 useful purpose through cooperation between the United States 
 and the several States, municipalities, communities, corporations, 
 and individuals within the jurisdiction, powers, and rights of 
 each, respectively, assigning to the United States such portion 
 of such development, promotion, regulation, and control, if any, 
 as can be properly undertaken by the United States by virtue 
 of its power to regulate interstate and foreign commerce and 
 by reason of its proprietary interest in the public domain, and 
 to States, municipalities, communities, corporations, and indi- 
 viduals such portion, if any, as properly belongs to their juris- 
 diction, rights, and interests, with a view to properly appor- 
 tioning costs and benefits, and with a view to so uniting the plans 
 and works of the United States within its jurisdiction, and of the 
 States and municipalities, respectively, within their jurisdic- 
 tions, and of corporations, communities, and individuals within 
 their respective powers and. rights as to secure the highest devel- 
 
 [136] 
 
Remarks of Mr. Newlands 
 
 opment and utilization of the waterways and water resources 
 of the United States. Such river-regulation commission is au- 
 thorized, for the purpose of said investigation and report, to 
 bring into coordination and cooperation with the Corps of Engi- 
 neers of the Army, as a board or boards, the other scientific 
 or constructive services of the United States that relate to the 
 stud}', development, and control of waterways and water re- 
 sources and subjects related thereto, and to the development and 
 regulation of interstate and foreign commerce, and to consider 
 as a part of its study of a comprehensive plan the continuance 
 of such a board or of such boards with a view to keeping such 
 services in coordination and cooperation; and such river-regula- 
 tion commission is authorized to appoint as members of such 
 board or boards such engineers, transportation experts, experts 
 in water development, constructors, and other employees as it 
 may deem advisable. to appoint and employ in connection with 
 the investigation and the formulation of plans herein authorized, 
 and to lease offices. And for the expenses of such investigation, 
 organization, and formulation of plans the sum of $500,000 is 
 hereby appropriated." 
 
 The river-regulation amendment finally passed by Congress on 
 August 3, 1917, and which became a law by the signature of the 
 President on August 8, 1917, is section 18 of H. R. 4285, an act 
 entitled "An act making appropriations for the construction, re- 
 pair, and preservation of certain public works on rivers and 
 harbors, and for other purposes," Public, No. 37, Sixty-fifth Con- 
 gress, and is as follows: 
 
 " Sec. 18. That a commission, to be known as the Waterways 
 Commission, consisting of seven members to be appointed by 
 the President of the United States, at least one of whom shall 
 be chosen from the active or retired list of the Engineer Corps 
 of the Army, at least one of whom shall be an expert hydraulic 
 engineer from civil life, and the remaining five of whom may 
 each be selected either from civil life or the public service, is 
 hereby created and authorized, under such rules and regulations 
 as the President may prescribe and subject to the approval 
 of the heads of the several executive departments concerned, to 
 bring into coordination and cooperation the engineering, scien- 
 tific, and constructive services, bureaus, boards, and commissions 
 of the several governmental departments of the United States and 
 commissions created by Congress that relate to study, develop- 
 
 [137] 
 
Appendix 
 
 ment, or control of waterways and water resources and subjects 
 related thereto, or to the development and regulation of interstate 
 and foreign commerce, with a view to uniting such services in 
 investigating, with respect to all watersheds in the United States, 
 questions relating to the development, improvement, regulation, 
 and control of navigation as a part of interstate and foreign com- 
 merce, including therein the related questions of irrigation, drain- 
 age, forestry, arid and swamp land reclamation, clarification of 
 streams, regulation of flow, control of floods, utilization of water 
 power, prevention of soil erosion and waste, storage, and con- 
 servation of water for agricultural, industrial, municipal, and do- 
 mestic uses, cooperation of railways and waterways, and pro- 
 motion of terminal and transfer facilities, to secure the necessary 
 data, and to formulate and report to Congress as early as prac- 
 ticable a comprehensible plan or plans for the development of 
 waterways and the water resources of the United States for the 
 purposes of navigation and for every useful purpose, and recom- 
 mendations for the modification or discontinuance of any project 
 hei'ein or heretofore adopted. Any member appointed from the 
 retired list shall receive the same pay and allowances as he would 
 if on the active list, and no member selected from the public serv- 
 ice shall receive additional compensation for services on said 
 commission, and members selected from civil life shall receive 
 compensation of $7,500 per annum, 
 
 " In all matters done, or to be done, under this section relat- 
 ing to any of the subjects, investigations, or questions to be con- 
 sidered hereunder, and in formulating plans, and in the prepa- 
 ration of a report or reports, as herein provided, consideration 
 shall be given to all matters which are to be undertaken, either 
 independently by the United States or by cooperation between 
 the United States and the several States, political subdivisions 
 thereof, municipalities, communities, corporations, and indi- 
 viduals within the jurisdiction, powers, and rights of each, re- 
 spectively, and with a view to assigning to the United States 
 such portion of such development, promotion, regulation, and 
 control as may be undertaken by the United States, and to the 
 States, political subdivisions thereof, municipalities, communi- 
 ties, corporations, and individuals such portions as belong to 
 their respective jurisdictions, rights, and interests. 
 
 " The commission is authorized to employ or retain and fix 
 the compensation for the services of such engineers, transporta- 
 
 [138] 
 
Remarks of Mr. Newlands 
 
 tion experts, experts in water development and utilization, and 
 constructors of eminence as it may deem necessary to make such 
 investigations and to carry out the purposes of this section. 
 And in order to defray the expenses made necessary by the pro- 
 visions of this section there is hereb}' authorized to be appro- 
 priated such sums as Congress may hereafter determine, and 
 the sum of $100,000 is hereby appropriated, available until ex- 
 pended, to be paid out upon warrants drawn on the Secretary of 
 the Treasury by the chairman of said commission. 
 
 " The commission shall have power to make every expenditure 
 requisite for and incident to its authorized work, and to employ 
 in the District of Columbia and in the field such clerical, legal, 
 engineering, artistic, and expert services as it may deem advisable, 
 including the payment of per diem in lieu of subsistence for em- 
 ployees engaged in field work or traveling on official business, 
 rent of offices in the District of Columbia and in the field, and the 
 purchase of books, maps, and office equipment. 
 
 " Nothing herein contained shall be construed to delay, prevent, 
 or interfere with the completion of any survey, investigation, 
 project, or work herein or heretofore or hereafter adopted or 
 authorized upon or for the improvement of any of the rivers or 
 harbors of the United States or with legislative action upon re- 
 ports heretofore or hereafter presented." 
 
 The following is a copy of S. 573G, Sixty-fourth Congress, first 
 session, introduced April 24, 1916, bj^ Senator Francis G. New- 
 lands with a view to embodying in the Newlands river-regulation 
 bill the recommendations of the Interdepartmental Cabinet Com- 
 mittee and the Interdepartmental Committee of Service Chiefs 
 appointed by President Wilson : 
 
 " Be it enacted, etc., That the sum of $60,000,000, to be appor- 
 tioned as hereinafter provided, is hereby reserved, set aside, 
 appropriated, and made available until expended, out of any 
 moneys not otherwise appropriated, as a special fund in the 
 Treasury, to be known as the ' river-regulation fund,' to be 
 used to promote interstate commerce by the development and 
 improvement of the rivers and waterways of the United States 
 and their connections with the Great Lakes and with each other, 
 and by the coordination of and cooperation between rail and 
 water routes and transportation, and the establishment and main- 
 tenance of adequate terminal and transfer facilities and systems, 
 and their maintenance, improvement, and protection, and by 
 
 [139] 
 
Appendix 
 
 the making of examinations and surveys and by the construc- 
 tion of engineering and other works and projects for the regu- 
 lation and control of the flow of rivers and their tributaries 
 and source streams, and the standardization of such flow, and 
 by the maintenance of navigable stages of water at all seasons 
 of the year in the waterways of the United States, and by pre- 
 venting silt and sedimentary material from being carried into 
 and deposited in waterways, channels, and harbors, and by the 
 conservation, development, and utilization of the water resources 
 of the United States, and by flood prevention and protection, 
 through the establishment, construction, and maintenance of 
 natural and artificial reservoirs and detention basins for water 
 storage and control, and levees, revetments, and other bank- 
 protective works, spillM'ays, wasteweirs, wasteways, by-passes, 
 controlled outlets, and flood-control works of every nature and 
 kind, and the protection of watersheds from denudation, erosion, 
 and surface wash, and from forest fires, and the maintenance 
 and extension of woodland and other protective cover thereon, 
 and the reclamation of swamp and overflow lands and arid lands, 
 and the building of drainage and irrigation works in order that 
 the flow of rivers shall be regulated and controlled not only 
 through the use of flood waters for irrigation on the upper tribu- 
 taries, but also through controlling them in fixed and established 
 channels in the lower valleys and plains, and by doing all things 
 necessary to provide for any and all beneficial uses of water 
 that will contribute to its conservation or storage in the ground 
 or in surface reservoirs as an aid to the regulation or control 
 of the flow of rivers, and by acquiring, by purchase, condemna- 
 tion, or otherwise, holding, using, leasing, hiring, and trans- 
 ferring by appropriate deed lands and any other property that 
 may be needed for the aforesaid purposes, or which it may be 
 deemed advisable to dispose of, and by doing such other things 
 as may be specified in this act or necessary to the accomplish- 
 ment of the purposes thereof, and by securing the cooperation 
 therein of States, municipalities, and other local agencies, as 
 hereinafter set forth, and for the payment of all expenditures 
 provided for in this act. 
 
 " The aforesaid sum of $60,000,000, appropriated as hereinbe- 
 fore provided, shall be apportioned for expenditure under this 
 act as follows: 
 
 [140] 
 
Remarks of Mr. Newlands 
 
 "(a) Twenty-five million dollars to the Illinois River and its 
 watershed and to the Mississippi River from the mouth of the 
 Illinois to the Head of the Passes, including the Atchafalaya 
 River as one of the mouths of the Mississippi River, to be ex- 
 pended for the improvement of the Illinois River and for con- 
 tinuing the improvement of the Mississippi River from the Head 
 of the Passes to the mouth of the Illinois River, for the control 
 of floods thereon, and the establishment of a waterway from the 
 Lakes to the Gulf; (b) .$5,000,000 to the watersheds of the Ohio 
 River and its tributaries, for the control of floods thereon, and 
 the consequent improvement of navigation; (c) $5,000,000 to the 
 watershed of the Mississippi River above the mouth of -the Illi- 
 nois River; (d) $5,000,000 to the watersheds of the Missouri 
 River and all other tributaries of the Mississippi River, except 
 the Ohio, from the mouth of the Illinois River to the Gulf, and 
 all rivers draining into the Gulf of Mexico west of the Missis- 
 sippi River; (e) $5,000,000 to the watersheds of the rivers drain- 
 ing into Canada, the Great Lakes, and the Atlantic Ocean and 
 rivers draining into the Gulf of Mexico east of the Mississippi 
 River; (f) $5,000,000 to the watersheds of all the rivers draining 
 into the Pacific Ocean in Oregon and Washington, including 
 the Columbia River watershed; (g) $5,000,000 to the water- 
 sheds of the rivers draining into the Sacramento and San 
 Joaquin Valleys and into the Pacific Ocean north of Santa Bar- 
 bara, in California; (h) $5,000,000 to the watersheds of all other 
 rivers in California and the Great Inland Basin and the Colo- 
 rado River. 
 
 " NATIONAL WATERWAYS COUNCIL. 
 
 " Sec. 2. That a national waterways council, hereinafter called 
 the council, is hereby created, consisting of the President of the 
 United States as chairman, the Secretary of War, the Secretary 
 of the Interior, the Secretary of Agriculture, the Secretary of 
 Commerce, and the chairman of the water-control board, to be 
 appointed as hereinafter provided. ^ 
 
 " The council shall have authority to direct and control all 
 proceedings and operations and all things done or to be done 
 under this act, and to establish all rules and regulations which 
 may, in their judgment, be necessary to carry into effect such 
 direction and control consistent with the provisions of this act 
 and with existing law and with any provisions which Congress 
 may from time to time enact. 
 
 [141] 
 
Appendix 
 
 "All plans and estimates prepared by the water-control board, 
 as hereinafter provided, which contemplate or provide for ex- 
 penditures from the river-regulation fund shall be submitted to 
 the council for final approval before any of the expenditures 
 therein provided for or contemplated are authorized or made or 
 any construction work undertaken or contracts let under or in 
 pursuance of such plans: Provided, That in case of an emer- 
 gency the chairman of the water-control board shall have full 
 power to act, and shall report in detail his action in every case 
 to the council at its next meeting after his action. 
 
 " WATER-CONTROL BOARD. 
 
 " Sec. 3. That to assist in carrying out the purposes aforesaid 
 the council may utilize the various agencies of the Government, 
 and there is hereby created a water-control board, hereinafter 
 called the board, which shall consist of a chairman, to be ap- 
 pointed by the council, and four assistant secretaries, to be ap- 
 pointed as hereinafter provided, and such additional members 
 as the council may from time to time appoint. The chairman 
 of the board shall receive a salary of $12,000 per annum, each 
 assistant secretary aforesaid shall receive a salary of $10,000 per 
 annum, and said additional members of the board such salaries 
 as the council may from time to time fix. Subject to the direc- 
 tion and control of the council as to general policy and pro- 
 cedure, it shall be the duty of the board to ascertain in detail 
 the work in progress and obtain plans, recommendations, and 
 estimates of the work contemplated in the general field of water 
 conservation, control, and utilization by the various agencies of 
 the Government, States, counties, municipalities, districts, com- 
 munities, corporations, associations, and individuals, and on the 
 basis of such information and the results obtained by its own 
 surveys and investigations to prepare for the consideration of 
 the council a general and comprehensive program of water and 
 waterways conservation, regulation, development, and utilization, 
 extending through a number of years, with comprehensive gen- 
 eral plans for each watershed, treating the entire watershed of 
 each river as a unit, and with specific projects, plans, estimates, 
 and recommendations, involving independent work by the United 
 States and the combining of resources and energies of the various 
 public and private agencies aforesaid; to coordinate and bring 
 into conference the various agencies of the Government; and to 
 
 [142] 
 
Remarks of Mr. Newlands 
 
 examine, compare, adjust, allot, assign, and supervise their work, 
 to the end that duplication may be avoided and the highest 
 efficiency obtained; by agreement to assign to the various co- 
 operating agencies the work to be done by them within their 
 respective spheres'; to accept, on behalf of the United States, 
 from such agencies contributions of money and property of any 
 kind to be used for carrying out the purposes authorized by this 
 act; to make field inspection of all work done or contemplated 
 under this act by the Government and its cooperating agencies; 
 and to employ such engineers, transportation experts, experts in 
 water development, constructors, and other employees, and to 
 construct such buildings and work as may be necessary for those 
 purposes. The board is hereby authorized to expend from the 
 sums herein provided such amounts as may be necessary for 
 services of employees in the city of Washington, D. C, and else- 
 where; to pay therefrom such sums as may be necessary for office 
 accommodations in the city of Washington, D. C, and elsewhere, 
 and to purchase such law books, books of reference, periodicals, 
 engineering, statistical, and professional publications as may be 
 needed. Contributions received under this section shall be used 
 by the board, under the direction of the council, for carrying 
 out the purposes of this act, and money so received shall be paid 
 into the river-regulation fund herein created. Subject to the ap- 
 proval of the council, the board is authorized to enter into such 
 contracts or carry on by hired labor or otherwise such work as 
 may be necessary for carrying out the purposes of this act, 
 within the limits of appropriations made or authorized by this 
 act or appropriations or contributions which shall be hereafter 
 made or authorized from time to time, or as may be necessary 
 for executing projects under this act within the respective limits 
 of cost thereof approved by the Congress, the funds for which 
 shall have been provided by the Secretary of the Treasury in 
 accordance with the authority conferred by this act. Subject to 
 the approval of the council, the board may also employ the vari- 
 ous agencies of the Government in carrying out such purposes 
 or executing such projects. 
 
 " COOPERATION WITH STATES AND OTHER AGENCIES. 
 
 " Sec. 4. That the board shall, in all cases where possible and 
 practicable, encourage, promote, and endeavor to secure the co- 
 operation of States, municipalities, public and quasi public cor- 
 
 L143] 
 
Appendix 
 
 porations, towns, counties, districts, communities, persons, and 
 associations in the carrying out of the purposes and olijects of 
 this act, and in making the investigations and doing all coordina- 
 tive and constructive work provided for herein; and it shall in each 
 case endeavor to secure the financial cooperation of States and of 
 such local authorities, agencies, and organizations to such extent 
 and in such amounts as the council shall determine to be a just and 
 equitable apportionment of work, costs, and benefits under all 
 the circumstances in each case; and it shall negotiate and perfect 
 arrangements and plans for the apportionment of work, cost, and 
 benefits, according to the jurisdiction, powers, rights, and benefits 
 of each, respectively, and with a view to assigning to the United 
 States such portion of such development, promotion, regulation, 
 and control as can be properly undertaken by the United States 
 by virtue of its power to regulate interstate and foreign commerce 
 and promote the general welfare, and by reason of its proprietary 
 interest in the public domain, and to the States, municipalities, 
 communities, corporations, and individuals such portion as prop- 
 erly belongs to their jurisdiction, rights, and interests, and with a 
 view to properly apportioning costs and benefits, and with a view 
 to so uniting the plans and works of the United States within 
 its jurisdiction, and of the States and municipalities, respectively, 
 within their jurisdictions, and of corporations, communities, and 
 individuals within their respective powers and rights, as to secure 
 the highest development and utilization of the waterways and 
 water resources of the United States. 
 
 " APPOINTMENT OF WATER-CONTROL BOARD. 
 
 " Sec. 5. That each head of a department named in this act is 
 authorized to appoint, with the approval of the council, for serv- 
 ice as a member of the board, a highly qualified representative, 
 who shall be an assistant secretary in the department in which 
 he is appointed; shall devote his time primarily to the work 
 authorized by this act; shall have, subject to the direction of the 
 head of the department, such general supervision and control 
 as may be necessary for the purposes of this act of the agencies 
 within the department engaged upon- such work; shall serve dur- 
 ing good service and behavior; and shall be removable by the 
 head of the department only for good cause. 
 
 [144] 
 
Remarks of Mr. Newlands 
 
 " RIVER-REGULATION FUND. 
 
 " Sec. 6. That no sums shall be paid out of the river-regulation 
 fund except on vouchers signed by the chairman of the board 
 or by an official designated by him in writing, drawn on the 
 Secretary' of the Treasury. To provide for carrying out the 
 projects formulated under this act which involve expenditures 
 in excess of the $60,000,000 herein appropriated to the river- 
 regulation fund the appropriation hereafter to the credit of said 
 fund of such sums as may be necessary is hereby authorized. 
 At any time that the Secretary of the Treasury shall determine 
 it to be necessary or advisable, in order to provide all or any 
 part of the appropriation made or authorized by this act or 
 which may be hereafter made or authorized or to provide reve- 
 nues to execute a project under this act, which shall have been 
 approved b}- the Congress, he may issue and sell, or use as a 
 means of borrowing money, bonds in the necessary amount, in 
 accordance with the provisions of the act of August 5, 1909 
 (36 Stats. L., pp. 11, 117), the act of February 4, 1910 (36th 
 Stats. L., 192), and the act of March 2, 1911 (36th Stats. L., p. 
 1013). The sums appropriated or provided by the Secretary of 
 the Treasury pursuant to this section shall be paid into the river- 
 regulation fund and shall be available until expended and paid 
 out as provided for in this act. All moneys received in connec- 
 tion with any operations under this act as well as from the sales 
 of materials utilized and any condemned property shall be cov- 
 ered into the ' river-regulation fund ' and be available for ex- 
 pendilure therefrom. It is the intent and purpose of this act to 
 authorize and empower the council and the board and their 
 officers, agents, and employees to do all necessary acts and things 
 in addition to those specially authorized in this act to accom- 
 plish the purposes and objects hereof." 
 
 The following is a reference to the leading measures which 
 have been introduced by Hon. Francis G. Newlands at different 
 times, from which the present river-regulation measure, section 18 
 of the river and harbor act of 1917, has been developed: 
 
 The Newlands national irrigation bill, officially designated 
 after its enactment as the United States reclamation act: H. R. 
 9674, introduced January 21, 1902. 
 
 The inland waterways commission bills: S. 500, introduced 
 December 6, 1907, and S. 3717, introduced December 10, 1909. 
 
 115652°— 20 10 
 
 [145] 
 
Appendix 
 
 Amendment to S. 4501, the White Mountain and Appalachian Na- 
 tional Forest bill: Introduced June 23, 1910. ^ 
 
 The Newlands river-regulation bill: S. 10900, introduced March 
 1, 1911; S. 122, introduced April 6, 1911; S. 2739, introduced July 
 14, 1913. 
 
 The Newlands-Broussard river-regulation bill, introduced as 
 an amendment in the nature of a substitute for S. 2739, intro- 
 duced January 31, 1914. 
 
 The Newlands river-regulation bill, providing for a national 
 waterways council and a water-control board, to conform to 
 recommendations of the interdepartmental committee: S. 5736, 
 introduced April 24, 1916. 
 
 The reclamation act, known before its passage as the Newlands 
 national irrigation act, was passed by Congress on June 13, 1902, 
 and was signed by President Roosevelt and became a law on 
 June 17, 1902. 
 
 The river-regulation act, section 18 of the river and harbor 
 act of 1917, known before its passage as the Newlands river- 
 regulation amendment, was passed by Congress on August 3, 
 1917, and was signed by President Wilson and became a law on 
 August 8, 1917. 
 
 The original Newlands river-regulation bill, S. 10900, was 
 printed in full in the report of the Flood Commission of Pitts- 
 burgh, pages 391 to 396, and in a public document containing 
 the remarks of Senator Newlands in the Senate on Wednesday, 
 February 15, 1911, on the passage on that day of the Appalachian 
 and White Mountain Forest Reserve bill. 
 
 The Newlands-Broussard river-regulation bill, amendment to 
 S. 2739, was printed in the Congressional Record, volume 51, 
 part 3, pages 2035-2638, and also in Senate Document No. 418, 
 Sixty-third Congress, second session. 
 
 The last Newlands river-regulation bill, embodying the recom- 
 mendations of the interdepartmental committee, and providing for 
 a national waterways council and water-control board, as recom- 
 mended in that report, was printed in full in Senate Document 
 No. 550, Sixty-fourth Congress, first session, and has been herein- 
 before reprinted in full in this historical statement. 
 
 CONSTITUTIONAL QUESTIONS. 
 
 At every stage of its progress this great national movement for 
 the conservation, development, and complete utilization of the 
 water resources of the United States has been opposed on the 
 
 [146] 
 
Remarks of Mr. Newlands 
 
 ground that it was an unconstitutional and unwarranted enlarge- 
 ment of the functions of the National Government, and the meas- 
 ures which Congress has finally adopted have each settled some 
 one particular phase of this advancement of the sphere of govern- 
 mental action. 
 
 The United States reclamation act settled forever the right and 
 obligation of the Government of the United States to construct 
 works for the conservation and utilization of the surplus waters 
 in the western half of the United States. 
 
 The White Mountain and Appalachian National Forest Reserve 
 act went further and settled the question as to the range and scope 
 of the activities of the Federal Government on the watersheds of 
 the navigable rivers. It established the principle that the consti- 
 tutional power and obligation of the National Government extends 
 to the source of every tributary stream feeding a navigable river 
 and to the doing of any and all things that may be essential to 
 control and regulate the flow of that river and all its source" 
 streams, so as to standardize their flow, so far as practicable, 
 throughout the year. The act provides only for forest methods 
 cf accomplishing this object, but if forestry is within its powers 
 and obligations there is no reason why all practicable methods of 
 accomplishing the same result are not equally within the powers 
 and obligations of the National Government, such as the building 
 of artificial surface reservoirs, as advocated by the Flood Com- 
 mission of Pittsburgh, or the conservation by storage in the 
 ground of waters used for agricultural purposes. 
 
 The Mississippi and Sacramento Rivers flood-control act again 
 extended the recognized powers and obligations of the National 
 Government to the protection of lands from overflow and flood 
 devastation by engineering works built for that purpose, without 
 any necessary justification for their construction, on the ground 
 that such construction was warranted by their benefit to naviga- 
 tion, as had previously been contended. 
 
 And now the river-regulation amendment, section 18 of the 
 river and harbor bill of 1917, has practically and substantially 
 declared that the powers authorized in the three bills above men- 
 tioned shall be extended to and cover the whole field of the con- 
 servation, development, and utilization of all the water resources 
 of the United States for every useful and beneficial purpose for 
 which those waters can be used and upon every watershed in the 
 United States. 
 
 [147J 
 
Appendix 
 
 The United States reclamation act of June 17, 1902, was only a 
 single stepping-stone to this complete and comprehensive policy; 
 the White Mountain and Appalachian Forest Reserve act was an- 
 other stepping-stone; the Mississippi and Sacramento Rivers flood- 
 control act was another; and now Congress has, after a campaign 
 always having that ultimate object in view and extending over 
 more than a quarter of a century, unequivocally placed the author- 
 ity and powers and obligations of the National Government in this 
 broad field upon a nation-wide, enduring, and comprehensive 
 foundation that will in its eventual working out save from waste 
 " the Nation's greatest asset," the surplus and now unused waters 
 of the United States. 
 
 The educational campaign that has steadfastly pushed forward 
 this broad and beneficial national policy has been conducted 
 through several different organizations, the oldest being the Na- 
 tional Irrigation Congress and the American Forestry Association. 
 
 The National Irrigation Congress declared for the national irri- 
 gation policy at some of its earliest sessions and squarely put its 
 demands before the people at the seventh national irrigation con- 
 • gress held at Phoenix, Ariz., in 1897, and was unfaltering in its 
 support of that policy until it was adopted by Congress in June, 
 1902, by the enactment of the reclamation act. 
 
 The American Forestry Association championed the White 
 Mountain and Appalachian National Forest Reserve bill, organized 
 a national campaign in its behalf, and marshaled the forces that 
 fought for that bill through a period of fully 10 years until it was 
 finally enacted by Congress in February, 1911. 
 
 The National Reclamation Association was organized as the 
 National Irrigation Association on June 2, 1899, for the purpose of 
 conducting a nation-wide campaign for the entire broad national 
 policy advocated in the statement of the objects of the association, 
 as set forth in its constitution, as follows: 
 
 " [The National Irrigation Association, organized June 2, 1899.] 
 
 " OBJECTS. 
 
 " 1. The adoption by the Federal Government of a permanent 
 policy for the reclamation and settlement of the public domain 
 under which all the remaining public lands shall be held and 
 administered as a trust for the benefit of the whole people of the 
 United States, and no grants of title to any of the public lands 
 shall ever hereafter be made to any but actual settlers and home 
 builders on the land. 
 
 [148] 
 
Remarks of Mr. Newlands 
 
 " 2. The preservation and development of our natural resources 
 by the construction of storage reservoirs by the Federal Govern- 
 ment for flood protection, and to save for use in aid of navigation 
 and irrigation the flood waters which now run to waste and cause 
 overflow and destruction. 
 
 " 3. The construction by the Federal Government of storage res- 
 ervoirs and irrigation works wherever necessary to furnish water 
 for the reclamation and settlement of the arid public lands. 
 
 " 4. The preservation of the forests and reforestation of denuded 
 forest areas as sources of water supply, the conservation of exist- 
 ing supplies by approved methods of irrigation and distribution, 
 and the increase of the water resources of the arid region by the 
 investigation and development of underground supplies. 
 
 " 5. The adoption of a harmonious system of irrigation laws in 
 all the arid and semiarid States and Territories under which the 
 right to the use of water for irrigation shall vest in the user, and 
 become appurtenant to the land irrigated, and beneficial use be 
 the basis and the measure and limit of the right. 
 
 " 6. The dissemination by public meetings and through the 
 press of information regarding irrigation, and the reclamation 
 and settlement of the arid public domain, and the possibilities of 
 better agriculture through irrigation and intensive farming, and 
 the need for agricultural education and training, and the creation 
 of rural homes as national safeguards, and the encouragement of 
 rural settlement as a remedy for the social and political evils 
 threatened by the congestion of population in large cities." 
 
 The National Reclamation Association of Louisiana was organ- 
 ized in January, 1912, with a view to subsequently merging it 
 with the National Irrigation Association, which was done in Janu- 
 ary, 1913, and after the great flood of 1913 a statement was issued 
 to the business men. of the United States setting forth the reasons 
 why the Newlands river-regulation bill should have the support of 
 the business interests of the country. 
 
 That statement was as follows: 
 " To the merchants and manufacturers of the United States: 
 
 " The National Reclamation Association extends to you its 
 greetings and urges your consideration of the following fads: 
 
 " There is not a merchant or manufacturer in the United States 
 whose market is the country at large who did not sufl'er from 
 loss of trade, delayed collections, or uncollectable accounts, with 
 consequent loss of profits, as the result of the disastrous floods 
 
 [149J 
 
Appendix 
 
 that devastated the Ohio and Mississippi Valleys in 1912 and 1913. 
 These national catastrophes will continue to recur at frequent 
 intervals in different parts of the country unless preventive 
 measures arc adopted by the National Government. Is it not 
 better that this be done without delay by prompt congressional 
 action? Every year's delay means a continuation of this risk of 
 enormous losses, which will be removed whenever the inertia 
 of Congress has been overcome by an insistent demand from the 
 business men of the country. 
 
 " You insure against fire loss by the payment of a premium to 
 an insurance company or by cooperation with some plan for 
 mutual insurance. Is it not good business policy for every mer- 
 chant and manufacturer in the United States to cooperate with 
 others, and by their mutual activity and insistent demand for 
 immediate action by Congress secure the passage of the New- 
 lands river-regulation bill at the next session? That bill pro- 
 vides flood insurance for all parts of the United States by pro- 
 viding for doing the things in this country that have been so 
 successfully done in several European countries to prevent and 
 protect against damage by floods. What other countries have 
 done we can do. Not to do it is to court the eventual destruc- 
 tion that has finally been the fate of the countries of Asia and 
 northern Africa that have neglected these national protective 
 measures against the destructive forces of nature. 
 
 " The Newlands river-regulation bill creates a waterways com- 
 mission and board of river regulation composed of the heads 
 of the departments and bureaus of the National Government that 
 are now at work on the problem of river regulation and con- 
 trol. It coordinates their work, provides for cooperation with 
 States and local districts or municipalities, and then appro- 
 priates enough money for the work to actually get it done. The 
 policy that built the Panama Canal and the national irrigation 
 works in the West is applied by the Newlands bill to building 
 works to harness and control the floods in all parts of the United 
 States. The bill appropriates $00,000,000 a year for 10 years to 
 do this work. That total appropriation of $600,000,000, cover- 
 ing 10 years of construction work, is less than the actual direct 
 losses from floods within two years in the Ohio and Mississippi 
 Valleys alone. 
 
 " The only way to deal with the flood problem is to treat every 
 river from source to mouth, with all its tributaries, as a unit. 
 
 [150] 
 
Remarks of Mr, Newlands 
 
 and so far as possible slow up the run-off, harness the floods at 
 their sources by all practicable means, and restore nature's safe- 
 guards by providing controlled outlets and excess flood-water 
 channels as well as levees, revetments, and local protective works. 
 Levees alone can never be made an adequate protection against 
 the extraordinary floods of the unusually heavy flood years, and 
 any plan that contemplates ' levees only ' as a remedy will in 
 the end prove a delusion and a snare and worse than a waste of 
 money. 
 
 " The Newlands river-regulation bill provides not only for 
 levees but also for all other means for flood prevention and pro- 
 tection that are practicable and applicable to the particular 
 section where they should be adopted. It covers the whole 
 problem and it covers the entire country. It recognizes the 
 necessity for flood protection and prevention and the equal 
 right to such relief in all flood-menaced sections of the United 
 States. The solution of this great problem demands that sec- 
 tional selfishness be laid aside and the question dealt with na- 
 tionally, under the constitutional power of Congress to aid navi- 
 gation. The water that now goes to waste in floods must be con- 
 served for beneficial use and turned into the river channels in 
 the low-water season to float water-borne commerce. 
 
 " On the Mississippi River, which presents the largest problem, 
 because this great river drains 41 per cent of the entire United 
 States, the annual appropriations in the river and harbor bill 
 should be enlarged from year to year as the value of this great 
 national inland waterway becomes better appreciated and com- 
 merce thereon increases. The work done under the river and 
 harbor bill, which is largely channel-improvement work, must 
 be supplemented by source-stream control, bank-protective works, 
 and a system of controlled outlets and excess flood-water channels, 
 so as to regulate the flow of the river, lower the flood stages, and 
 raise the low-water stages, as provided in the Newlands river- 
 regulation bill. The floods that come from the West should be 
 held back and used for irrigation and power development. The 
 floods from the Ohio River should be controlled on the tributaries 
 whence they come, and the water beneficially used, instead of 
 sweeping down the valleys as a mighty agency of devastation and 
 destruction. 
 
 " The Newlands river-regulation bill has been before the country 
 for more than two years and is strongly supported by such or- 
 
 [151] 
 
Appendix 
 
 ganizations as the Pittsburgh Chamber of Commerce, Philadelphia 
 Board of Trade, St. Louis Merchants' Exchange, National Irri- 
 gation Congress, National Lumber Manufacturers' Association, As- 
 sociated Chambers of Commerce of the Pacific Coast, San Fran- 
 cisco Chamber of Commerce, Los Angeles Chamber of Commerce, 
 Los Angeles Clearing House, Arizona and California River Regula- 
 tion Commission, River Regulation Committee of Stockton, Calif., 
 Texas Bankers' Association, Louisiana Bankers' Association, South- 
 ern Cypress Manufacturers' Association, National Slack Cooperage 
 Association, Flood Commission of Pittsburgh, and many other 
 similar organizations, and has nation-wide support from the press. 
 " The active campaign for the passage of the bill by Congress is 
 being conducted by the National Reclamation Association, and 
 the cooperation of every commercial and manufacturing concern 
 and industrial institution in the United States is earnestly desired 
 in order that the relief which this great constructive national 
 legislative measure will bring to the entire business interests of 
 the country and particularly to the flood-menaced sections may 
 be expedited and the danger of a recurrence of past disasters safe- 
 guarded against without delay. 
 
 " National Reclamation Association, 
 
 " R. H. Downman, 
 
 " Chairman of the Board. 
 
 " George H. Maxwell, 
 
 " Executive Director. 
 
 " Walter Parker, 
 
 " Secretary." 
 The National Irrigation Association, now known as the National 
 Reclamation Association, from the date of its organization in June, 
 1899, 18 years ago, up to the enactment of the United States recla- 
 mation act, in June, 1902, conducted one of the most far-reaching 
 and vigorous campaigns of education ever conducted in the United 
 States for the policy set forth in its constitution above set forth, 
 and its efforts contributed largely to the success of the movement 
 that brought about the final passage of the reclamation act on June 
 13, 1902. 
 
 The National Irrigation Association in 1903 turned its attention 
 again to the broader aspects of the national movement to which it 
 was devoted, and the broad and comprehensive national policy 
 embodied in the Newlands river-regulation bill was declared and 
 indorsed in the following resolutions drawn by George H. Maxwell 
 
 [152] 
 
Remarks of Mr. Newlands 
 
 and adopted as an expression of the broad western vision of what 
 should be done to prevent the waste and destruction of our 
 natural resources and safeguard against the annually recurring 
 menace of the floods: 
 
 " Resolutions Adopted at the Fourteenth Annual Session of 
 THE Trans-Mississippi Commercial Congress Held at Seattle, 
 Wash., August 18-21, 1903. 
 
 " We are drawing from nature's treasure vaults the wealth that 
 has been accumulating through the ages. That wealth is in our 
 forests, our mines, and our farms. Their products are the basis 
 of both our internal and our foreign trade and commerce, and 
 the original source of all employment for labor. 
 
 " conserve natural resources. 
 
 " The unparalleled era of prosperity through which we are now 
 passing results from the rapid development of the material re- 
 sources of our country, and we must preserve those resources 
 if we are to maintain that prosperity. We are drawing from 
 nature's treasure vaults the wealth that has been accumulating 
 through the ages. That wealth is in our forests, our mines, and 
 our farms. Their products are the basis of both our internal 
 and our foreign trade and commerce, and the original source of 
 all employment for labor. 
 
 " This mighty resource of natural wealth must not be wasted or 
 destroyed. Not only should the natural resources of the trans- 
 Mississippi region be systematically preserved but the home mar- 
 ket for its products should be protected. 
 
 " We have a higher destiny as a Nation than the mere creation 
 or accumulation of capital. We must preserve and bequeath to 
 future generations the natural resources which will be necessary 
 to their material welfare, and without which in the years to 
 come the masses of our people will inevitably be reduced to 
 poverty, and suffer privation and distress. 
 
 " WHAT MUST HE DONE. 
 
 " We may use and enjoy these vast natural resources without 
 destroying them, and by a wise governmental policy they may 
 be enormously developed and enlarged. But if this is to be done: 
 
 " 1. The appalling ravages from forest fires must be stopped. 
 
 " 2. The reckless destruction of our timber resources by care- 
 less and wasteful methods of lumbering must cease. 
 
 [153] 
 
Appendix 
 
 " 3. The forests must be preserved by right use, not only as a 
 permanent source of supply for wood and timber but as sources 
 of water supply and great natural reservoirs to hold back the 
 flood waters and lessen the destructive volume of floods. 
 
 " 4. The waters that now run to waste must be stored both for 
 flood protection and for use in irrigation and to create electric 
 power and for the improvement of navigation. 
 
 " 5. Reservoirs should be buih throughout the mountain regions 
 and wherever practicable in the natural depressions and basins 
 of the great plains in the valleys of the Missouri and Mississippi 
 Rivers and their tributaries. 
 
 " 6. The building of a multitude of small reservoirs and ponds 
 by damming the draws and coulees should be brought about. 
 
 " 7. The river channels should be, wherever necessary, deep- 
 ened, straightened, and improved, and the banks protected by 
 revetments. 
 
 " 8. Levees should be built along the rivers for flood protection 
 and to improve the channels for navigation. 
 
 " 9. The public lands should be held as a sacred trust for those 
 who will build homes upon them, and their rapid absorption into 
 private ownership by speculators and to create great ranges for 
 live stock should be immediately stopped. 
 
 " 10. The National Government should build the great irrigation 
 systems necessary for the reclamation and settlement of the arid 
 region by actual settlers and homemakers, and the lands re- 
 claimed should repay to the Government the cost of the con- 
 struction of the works. 
 
 " GREAT ENGINEERING WORKS. 
 
 " The great engineering works necessary for the utilization of 
 the waters of such large rivers as the Columbia, the Missouri, 
 the Colorado, the Snake, the Milk, the Salt and Gila, and the 
 Sacramento and San Joaquin Rivers in California, should pro- 
 ceed as rapidly as the lands reclaimed will be utilized, and will 
 repay to the Government the cost of the works; and in the great 
 interior central valley of California the problem of the control 
 of the floods of the Sacramento River, which would furnish water 
 enough to irrigate 10,000,000 acres of land, if conserved and 
 utilized, should be treated as a single problem involving arid- 
 land reclamation, flood control, navigation, and drainage, and 
 while the improvements of the Sacramento and San Joaquin 
 
 [154] 
 
Remarks of Mr. Newlands 
 
 Rivers should be continued and extended by the National Gov- 
 ernment to fully develop the navigability of those rivers the 
 necessity of coping with the problem in its broadest aspects 
 should be recognized and a complete and comprehensive plan 
 for its entire solution should be prepared without delay by the 
 engineers of the Reclamation Service and of the "War Depart- 
 ment of the United States." 
 
 The urgent needs of different sections of the country for relief 
 along the comprehensive lines embodied in the Newlands river- 
 regulation bill and in the river-regulation amendment, section 18 
 of the river and harbor act of 1917, have found expression in the 
 formation of strong local organizations in widely separated hydro- 
 graphic basins. These local organizations have strengthened and 
 supplemented the nation-wide educational campaign which the 
 National Reclamation Association has during the last 18 years 
 conducted in behalf of this national policy for the conservation, 
 development, and utilization of all the water resources of the 
 Nation for every beneficial purpose for which these now wasted 
 water resources can be utilized in every practicable way and by 
 every practicable method which can be adopted. 
 
 The Pittsburgh Flood Commission was organized by the Pitts- 
 burgh Chamber of Commerce January 30, 1908. It raised a fund 
 of over $125,000, made a complete survey of the watershed of the 
 upper tributaries of the Ohio River above Pittsburgh, and pub- 
 lished a report which covered every phase of the problem of 
 flood control, prevention, and protection with reference to that 
 territory. 
 
 This report established indisputably Pittsburgh's need for the 
 broad national river-regulation policy contemplated by the pres- 
 ent measure. Out of this need grew the larger and more compre- 
 hensive measure designated and known as the Newlands river- 
 regulation bill, which was drawn with the special view of covering 
 the Nation's needs for flood protection as well as waterways. The 
 Newlands river-regulation bill was an extension and enlargement 
 of the original Waterways Commission bills, S. 500 and S. 3717, 
 heretofore referred to in this statement, and was first introduced 
 in the Senate by Senator Newlands on March 1, 1911. It is 
 printed in full on pages 391-396 of the Report of the Pittsburgh 
 Flood Commission, being S. 10900, Sixty-first Congress, third ses- 
 sion, and S. 122, Sixty-second Congress, first session. 
 
 [155] 
 
Appendix 
 
 The Newlands river-regulation bill was indorsed by the National 
 Irrigation Congress at its Chicago session in December, 1911, an 
 indorsement which has been repeatedly reiterated at later sessions 
 of that congress; by the California Inland Waterways Association; 
 by the Legislatures of California, Louisiana, South Dakota, and 
 "Wisconsin; and by an almost unanimous public sentiment ex- 
 pressed through the press of practically every State in the Union. 
 A late favorable editorial expression is from the Detroit News, 
 from which is quoted the following excerpt: 
 
 " The river and harbor bill contains one provision that may 
 help to solve the ' pork barrel ' problem. It provides for a water- 
 ways commission of seven members. Congressional rules cut 
 that provision out of the bill in the House, but the Senate re- 
 stored it. A similar provision was inserted in the bill last year 
 by the Senate, but the bill failed to pass." 
 
 After specifying the powers conferred on the commission, this 
 editorial continues: 
 
 " These are sweeping powers, but they are needed if system is 
 to be introduced in place of chaos. The country is tired of the 
 annual rivers and harbors bill fight and will be glad to see the 
 entire control of waterways placed in competent hands. The 
 danger is that Members of Congress eager for appropriations 
 for pet projects ignored by the new board will try to override 
 its reports, as they have sometimes overridden those of the Gov- 
 ernment's engineers to secure picayune improvements for their 
 districts. But if the country gets behind the commission and 
 insists that its recommendations be adopted it may be that the 
 annual ' pork barrel ' scandal may be avoided hereafter." 
 
 The most active of the local organizations above referred to was 
 the National Reclamation Association of Louisiana, organized at 
 New Orleans in January, 1912, and 'merged with the National Irri- 
 gation Association in January, 1913, as the National Reclamation 
 Association. Those associations brought the necessity for source- 
 stream control before the Mississippi Valley as a lesson taught by 
 the devastating floods that swept through that valley in 1912 and 
 1913. The campaign of the National Reclamation Association cul- 
 'minated in resolutions adopted at a great public mass meeting at 
 the Tulane Theater in New Orleans on May 15, 1913. Those reso- 
 lutions were formally presented to President Wilson by Mr. R. H. 
 Downman, chairman of the National Reclamation Association, act- 
 
 [156] 
 
Remarks of Mr. Newlands 
 
 ing as the personal representative of Gov. Hall, of Louisiana, on 
 May 18, 1913. 
 
 The following is a copy of those resolutions: 
 
 " FLOOD PROTECTION AND PREVENTION AND RIVER REGULATION. 
 
 " Resolutions adopted at the second mass meeting of the citizens of New Orleans 
 and Louisiana held at the Tulane Theater on May 15, 1913, reafiirming and 
 reiterating and again approving and indorsing the joint resolution of the Gen- 
 eral Assembly of the State of Louisiana adopted June 6, 1912, which was 
 specifically and in extenso approved, adopted, and indorsed at the first citi- 
 zens' mass meeting held at the Progressive Union Assembly Hall in New 
 Orleans on June 20, 1912, and indorsing and urging the immediate enactment 
 by Congress of the Newlands river-regulation bill as amended when reported 
 from the Senate Commerce Committee to the Senate on March 3, 1913, and 
 embodied in full in Senate Report No. 1339, Sixty-second Congress, third 
 session, the said bill being S. 122, Calendar No. 1187, of said session. 
 
 " [R. H. Downman (chairman), J. H. Fulton, John J. Gannon, Frank 13. Hayne, 
 Chas. Janvier, general committee.] 
 
 " Whereas the people of the State of Louisiana, through their 
 representatives in legislature assembled, did on June 6, 1912, by 
 joint resolution, concurred in by the senate and house of repre- 
 sentatives, declare as follows: 
 
 " ' Whereas the great flood of 1912 has demonstrated that the 
 National Government only can obviate a recurrence of such over- 
 flow disasters in the future by a national policy under which 
 an adequate levee sj'stem will be built and maintained as na- 
 tional fortifications against invasion and destruction by t^p forces 
 of nature; and 
 
 " ' Whereas the steadily increasing volume of the floods in the 
 lower Mississippi Valley has been largely caused by the changed 
 condition of the watershed in the States comprising the drain- 
 age basins of the Ohio, upper Mississippi, and Missouri Rivers; 
 and 
 
 " * Whereas these causes and conditions are beyond the control 
 of the States bordering the Mississippi from Cairo to the Gulf, 
 and can only be controlled by the National Government: Now, 
 therefore, be it 
 
 " * Resolved by the House of Representatives of the State of 
 Louisiana {the Senate concurring therein), That the National 
 Government should immediately extend such temporary relief as 
 may be necessary to repair the broken levees and to maintain 
 them in future, and to control the river in its channel by revet- 
 
 [157] 
 
Appendix 
 
 ments and bank-protective works which will safeguard against 
 the destruction of levees by caving banks and shifting channels. 
 
 " ' Resolved further, That in working out plans for flood pre- 
 vention and the protection of the lowlands of the Mississippi 
 Valley from overflow the Mississippi River and all its tributaries 
 and source streams should be treated as a unit, and a compre- 
 hensive and adequate levee system, to be permanently main- 
 tained by the National Government, should be supplemented by 
 a system of reservoirs on the headwaters of the Ohio and its 
 tributaries, and also on the upper Mississippi, and by a system 
 of flood-water canals and storage reservoirs in the Missouri River 
 Valley, by means of which the flood plane at Cairo would at all 
 times be so reduced that no combination of high water in the 
 three upper rivers would ever create a great flood in the lower 
 Mississippi Valley, and at the same time prevent overflow and 
 damage by floods in the valleys of the Ohio, the upper Mississippi, 
 and Missouri Rivers. 
 
 " ' Resolved further, That the Nation can not longer afford to 
 permit its resources of soil, of power, of water, and of naviga- 
 tion to be carried as a wasteful and destructive flood to the sea, 
 and that since the States themselves can not, in the general 
 interest, prevent this waste, the Federal Government should con- 
 serve such floods at their sources, and subject the now washed 
 waters to beneficial use.' 
 
 "And whereas subsequently, on June 20, 1912, at a public ma^s 
 meeting of the citizens of New Orleans, held in the Progressive 
 Union Assembly Hall, the foregoing joint resolution was approved 
 and ratified and embodied in its entirety in the resolutions 
 adopted at said meeting; and 
 
 " Whereas a flood-prevention and river-regulation conference, 
 attended by representative citizens from many different sections 
 of the State of Louisiana, was held in New Orleans on January 7, 
 1913, at which resolutions were unanimously adopted urging that 
 the Newlands river-regulation bill should be so amended as to 
 specifically appropriate and set apart $100,000,000 for work on 
 the Mississippi River from St. Louis to the Gulf; and 
 
 " Whereas the said bill as originally drawn contained the follow- 
 ing provision: 
 
 " ' Sec. 18. That in carrying out the provisions of this act regard 
 must be had, as far as practicable, to the equitable apportionment 
 and contemporaneous execution of the works and projects con- 
 
 [158J 
 
Remarks of Mr. Newlands 
 
 templated under this act among the several waterways systems of 
 the United States; ' and 
 
 " Whereas when said bill was reported from the Senate Com- 
 merce Committee on March 3, 1913, it was amended in accord- 
 ance with the resolutions of said flood-prevention and river- 
 regulation conference and the following provision added to said 
 section 18: 
 
 "'Not less than $10,000,000 annually shall be apportioned to 
 the Mississippi River from St. Louis to the Gulf, .$5,000,000 to 
 the Missouri River, $5,000,000 to the Ohio River, $5,000,000 to the 
 upper Mississippi River above St. Louis, and $5,000,000 to the 
 Sacramento and San Joaquin Rivers in California; ' and 
 
 " Whereas said bill also contains the following specification as 
 to the appropriation and apportionment of the $50,000,000 a year 
 for 10 years appropriated thereby: 
 
 " ' For the Corps of Engineers, United States Array, for build- 
 ing bank-protective works to prevent erosion and cutting of the 
 banks and consequent caving, and to control the river and hold 
 it in a permanently fixed and established channel, and for build- 
 ing and maintaining revetments, dikes, M'alls, levees, embank- 
 ments, gates, wasteways, by-passes, flood-water canals, restrain- 
 ing dams, impounding basins, and bank-protective works for 
 river regulation, and as a means to that end the building of 
 works for reclamation, drainage, and flood protection, and for 
 building reservoirs and artificial lakes and basins for the storage 
 of flood waters to prevent and prefect against floods and over- 
 flows, erosion of river banks, and breaks in levees, and to regulate 
 the flow of source streams and navigable rivers, and reenforce 
 such flow during drought and low-water periods, and for the 
 operation and maintenance of the same, $30,000,000; ' and 
 
 " Whereas the said Newlands river-regulation bill, when so 
 amended, specifically and by its terms fully and completely pro- 
 vides for New Orleans, La., and the whole Mississippi Valley all 
 the relief and benefits and all the measures for flood protection 
 and prevention, and embodies the entire national policy advo- 
 cated in the aforesaid joint resolution of the Legislature of Louisi- 
 ana; and 
 
 " Whereas the said bill rejects and condemns no plan, and pro- 
 vides not for ' levees .only ' or for any one plan to the exclusion 
 of others, but covers and provides for the adoption of all safe- 
 
 [159] 
 
Appendix 
 
 guards and all plans and methods for flood protection and pre- 
 vention that may, after proper survey and examination, be found 
 practicable; and 
 
 " Whereas the said bill further provides similar relief and bene- 
 fits for other sections of the country that are demanding national 
 aid for flood protection, and without whose cooperation and 
 support the Mississippi Valley can not expect to secure such na- 
 tional aid; and 
 
 " Whereas the said bill has been before the people of the United 
 States for more than two years, and now has nation-wide support 
 extending from Pennsylvania to California and from Montana to 
 Texas, and will combine sufficient territorial political strength 
 to insure its passage by Congress; 
 
 " Now, therefore, we the citizens of New Orleans and Louisiana, 
 in mass meeting assembled, do most heartily again indorse the 
 wise and patriotic joint resolution passed by the Legislature of 
 the State of Louisiana on June 6, 1912, and do hereby renew and 
 reiterate the demands embodied in the said joint resolution, and 
 do hereby indorse the Newlands river-regulation bill, and dc 
 hereby most earnestly urge the enactment of said bill by Con- 
 gress at the present session, in order that the development of the 
 Mississippi Valley shall be no longer retarded by the flood 
 menace; 
 
 "And we hereby call upon our Senators and Representatives 
 in Congress to extend their hearty and unqualified support to 
 the principles so positively and unequivocally declared, as afore- 
 said, by the Legislature of Louisiana, and to the aforesaid bill 
 in which those principles have been embodied for congressional 
 enactment." 
 
 After the presentation of the foregoing resolutions to the Presi- 
 dent at Washington by Mr. Downman on May 18, 1913, the follow- 
 ing striking article, setting forth a forecast of what the adoption 
 of the national policy urged in those resolutions would bring to 
 the great territory embraced in the valleys of the Mississippi River 
 and its tributaries, was published editorially in the New Orleans 
 Item of May 23, 1913: 
 
 " WHEN THE VALLEY IS REDEEMED AND THE MOSSBACKS ARE ALL 
 
 FORGOTTEN. 
 
 " Let us draw breath a moment in the strike, stop to tighten 
 belts and lean upon our weapons, scan with placid and contented 
 
 [160] 
 
Remarks of Mr. Nevvlands 
 
 eye the moiling fragments of the scattered, frothing enemy — 
 and then glance beyond the battle lines to the certain victory. 
 
 " The space of peace is pardonable. We stand intrenched in 
 truth. The cause is just — God knows none other touches nearer 
 our hearts and homes. The foe is really ignorance, and for the 
 fighters under that banner we can feel pity while we smite them 
 hip and thigh. 
 
 " Picture the valley, 10 years hence, with the Hood menace 
 long since lifted, with the resource, the purse, and mind and 
 conscience of the great Republic busy completing the task of 
 redeeming and conserving against the waste of future ages the 
 uncounted boundless wealth that fate and nature have given 
 to us here between the Rockies and the Alleghenies: 
 
 " In the Appalachians the new forests on the watersheds will 
 have begun to grow anew. On the mountain slopes of upland 
 America the agents of a beneficent Government will have shown 
 the natives how to terrace their hillside farms. In the gorges 
 and valleys of the Allegheny and Monongahela, the Kentucky, 
 the Cumberland, the reservoirs will be finished. On the water- 
 sheds of the Ohio to the northward science will have worked 
 out plans to prevent the recurrence of the disaster to come from 
 such fioods as 1913. Along the Ohio the locks and dams whose 
 construction has dragged for years will be finished. From out 
 the harbors of Pittsburgh, Louisville, Indianapolis, Cincinnati, 
 will be moving vast fleets of barges and modern river craft, 
 bearing to the markets of the South the product of the greatest 
 freight-producing region on this earth— bearing it at the cheapest 
 freight rate the world knows — by the easiest, surest route to the 
 greatest market in the history of mankind. 
 
 " Far up the upper Mississippi the canals through to the Great 
 Lakes will be built. Boats will be loading in Minneapolis, in 
 Chicago, in Duluth, Cleveland, Milwaukee, Rock Island, with all 
 the myriad articles their factories and their fields and mines 
 produce that folk to the southward need. Reservoirs above 
 Minneapolis will have lifted danger of flood from a vast area 
 there. From great water-power plants established on the dams 
 hydroelectric power will keep the busy factories humming 
 through the nights and days— the charge therefor maintaining 
 the works for flood prevention and stream control. 
 
 "Away in the far Northwest, on millions of acres of land now 
 lying barren to the suns of summer and the winter winds, the 
 
 115652°— 20 11 
 
 [161] 
 
Appendix 
 
 quiet farms will guard their fertile acres — where the water is 
 kept on the ' land that wants it ' and off the land that doesn't. 
 From out of the prairies the tide of corn and wheat will move 
 toward the river towns on the Missouri, there by barge to seek 
 the route that nature marked thousands of years ago, down to 
 the southern sea. The Missouri, no longer the sullen, vengeful, 
 reckless stream of disorder and disaster, will carry again the 
 argosies of commerce. On the distant mountain sides the new 
 sapling forests will begin anew to catch and hold the humus and 
 the moisture. Cared for, handled, guarded, controlled, the 'blessed 
 rain,' no longer an agent of destruction everywhere, will be man's 
 best instrument of plenty and prosperity. 
 
 " So to the southward may we picture the change — Memphis no 
 longer a promontory in a springtime inland sea, with busied 
 Army officers sending out relief expeditions into the flooded area, 
 but instead a great * port of call ' on the river route to the mar- 
 kets beyond the Gulf and beyond the canal; with warehouses, 
 wharves, elevators lining its river front; the new-style river 
 steamers replacing the ancient boats of the ' Lee Line ' and the 
 old Kate Adams; the harbor busy as that of Hamburg or any city 
 on the Rhine or Elbe; and the whole mind of the people turned 
 away from the dread of disaster to busy thinking of how best 
 to turn to use the tremendous instrument which nature gave and 
 man retained for a nation's use. 
 
 " Imagine the significance of that altered frame of mind on 
 down the valley 1 Vision the dwellers on the rich lands of the 
 Mississippi Delta, of the Arkansas lowlands, no longer dreading 
 floods! Think of their initiative freed from the numbing weight 
 of the ' flood menace! ' Picture the stream flow regulated, levees 
 strong enough to stand the height beyond which the people know 
 the waters can not go and banks assured against all caving! Pic- 
 ture Helena, Arkansas City, Greenville, absolutely safe for them- 
 selves and for the region round about them! 
 
 " Vision that security in upper Louisiana, in the country facing 
 Vicksburg and Natchez; imagine it in the lowlands along the 
 Red, the Ouachita, the Black! Picture the change in the waste 
 land about the junction of the Red, the Mississippi, and the 
 Atchafalaya, with the swamps reclaimed, with a great controlled 
 sluiceway across Old River, with adequate levees on both sides 
 the Atchafalaya to the Gulf, with locks that will continue navi- 
 gation, while the gated dam controls the stream flow to Red and 
 Mississippi alike! 
 
 [162] 
 
Remarks of Mr. Newlands 
 
 " In Pointe Coupee and West Baton Rouge, in Iberville and 
 Ascension the current would have ceased to gnaw, the herald of 
 alarm would no longer call the countryside to battle against the 
 water as against a living, vengeful enemy. The banks would 
 be fixed, the levees would be strong and broad and built for the 
 ages. 
 
 "At Bayou Plaquemine, at Manchac, at Lafourche, perhaps at 
 other places, there would be regulated, guarded, absolutely con- 
 trolled spillways, themselves leveed and guarded out to the lakes, 
 to take off the surplus water, insurance against any greater height 
 than the levees would be built to sustain. 
 
 " In all the region men would go about their business absolutely 
 surel 
 
 " No longer would the winds of March bring fear and the April 
 rains disaster. 
 
 "And in all the valley the new measure of activity, of commerce, 
 of business, would converge toward the valley's outlet to the 
 southward ! 
 
 " To the empty acres of Louisiana and Mississippi the flocking 
 land-hungry emigrants from the Middle West would have rushed 
 the moment the ' flood menace ' has been made sure of extinction. 
 Already the millions of acres of reclaimed and reclaimable land 
 about the mouth of the Mississippi would have been taken up. The 
 swamps would have been cleared and drained, the great estates 
 cut up int6 busy farms. Good roads, good schools, quickened life 
 and trade already would have remade the life of all. In the towns 
 and villages a new era would have come, a new point of view 
 been opened, a new hope and a new confidence creating a new 
 activity. 
 
 "And sitting at the valley's gate. New Orleans, redeemed and safe 
 and whole, would sit the beneficiary of all the change from far-off 
 watersheds in the mountains of the East and West down to the 
 very Gulf. To her merchants would come the trade of the new 
 dwellers on the safe lands of the South. To her banks would 
 center the surplus capital of the region relieved from danger. 
 To her docks and wharves would come the river craft from the 
 Ohio, the Missouri, the Great Lakes, the upper Mississippi, the 
 Red, the Cumberland, the Kentucky, the Tennessee; and to her 
 harbor would assemble the ships of all the seven seas to barter 
 cargoes with the craft from the inland waters. 
 
 [163] 
 
Appendix 
 
 "A 'dream?' 
 
 " ' Too good to be true? ' in the poetic language of the facile 
 ' Pic' 
 
 " So men sneered at the suggestion that the Great American 
 Desert would ever be smiling farm land. So elder statesmen 
 as wise and weird as Ransdell laughed to scorn the suggestion 
 that Oregon and Washington were worth fighting for. So the 
 reclamation act was laughed at, and the Appalachian bill said 
 to be a ' joke.' So men scoffed at Edison when he explained 
 his incandescent lamp. So railroad-owned newspapers and their 
 blind followers prodded old John T. Morgan when through the 
 harassed 3^ears he took the part of modern Cato and ever thun- 
 dered that * The canal must be dug! ' So learned engineers told 
 Goethals and Roosevelt that the Panama Canal never could be 
 completed in the exact way, shape, and form in which it is being 
 completed! 
 
 " So our own fossils of many years ago told Eads the jetties 
 wouldn't work; so our own Supreme Court wisely asserted that 
 no human power could ever filter enough Mississippi River 
 water for New Orleans to drink and bathe in. Yet the jetties 
 are built and working, and the filtered water is at hand for 
 anyone who will turn the faucet! 
 
 " A dream? 
 
 "No! A plain picture in the large of the exact changes that 
 have been wrought on smaller scale by these exact means in 
 other regions, a picture of what we can get for the Mississippi 
 Valley! 
 
 " It is this which the Newlands bill has in view. Mr. Ransdell 
 has said that the Newlands bill furnishes ' ample means to build 
 levees on the Mississippi and protect us from floods.' His bill 
 proposes no more than that. Isn't the bare possibility that this 
 * dream ' might be made true in its other particulars enough to 
 make it worth working for? " 
 
 CALIFORNIA ORGANIZATIONS. 
 
 The needs of the San Joaquin Valley and central California for 
 waterway, flood prevention, and water conservation legislation of 
 this character have been urgently pressed by the Stockton River 
 Regulation Commission, through its chairman, Mr. J. L. Craig, and 
 vice chairman, Mr. G. McM. Ross, and indorsed by the Water Prob- 
 lems Association of California, the Fresno Chamber of Commerce, 
 
 [164] 
 
Remarks of Mr. Newlands 
 
 the San Joaquin Valley Commercial Association, and numerous 
 other similar organizations on the Pacific coast. 
 
 The Los Angeles Chamber of Commerce for more than 15 years 
 has been a constant and earnest advocate of this legislation, sup- 
 ported by the Pittsburgh Chamber of Commerce and many other 
 similar organizations in every great hydrographic basin in the 
 United States, most active among whom has been the New 
 Orleans Association of Commerce, working in cooperation with 
 the National Reclamation Association, and as the result of their 
 activity the special requirements and needs of the great Mis- 
 sissippi Valley drainage basin were more fully and specifically 
 provided for in the bill known as the Newlands-Broussard river- 
 regulation bill (S. 2739 and H. R. 12754) printed as Senate Docu- 
 ment No. 418, Sixty-third Congress, second session, which in other 
 respects was substantially the same as the orginal Newlands river- 
 regulation bill. 
 
 On February 24, 1913, the Senate adopted an amendment to the 
 river and harbor bill which was known as the Newlands river- 
 regulation amendment and which was very similar in its pro- 
 visions to the amendment embodied in the bill by the Senate 
 Commerce Committee at this session and now under considera- 
 tion. After extended discussion, however, which will be found in 
 Senate Report No. 1339, Sixty-second Congress, third session, that 
 amendment was lost in conference. 
 
 Again, substantially the same river-regulation amendment was 
 adopted by a vote of the Senate as an amendment to the river and 
 harbor bill, but it was afterwards stricken out on a reserved point 
 of order. 
 
 When the water-power bill was before the Senate on February 
 21, 1916, an amendment to that bill was moved by Senator New- 
 lands which embodied the provisions of the Newlands-Broussard 
 river-regulation bill. 
 
 The discussion in the Senate at that time on this subject ex- 
 tended over several days and has been brought together and 
 published as a public document under the title " Water a national 
 asset." That document includes the platforms of the political 
 parties in different campaigns approving the general policy with 
 reference to our rivers which has now taken form in the pending 
 measure. The Democratic platforms of 1908 and 1912 were par- 
 ticularly clear and specific in their pledges for legislation such as 
 that which the Congress is now enacting. 
 
 [165] 
 
Appendix 
 
 SUPPORT OF PRESIDENT WILSON. 
 
 The direct appeal to President Wilson through the resolutions of 
 the mass meeting at New Orleans which were presented to the 
 President by Mr. R. H. Downman on May 18, 1913, resulted later 
 in the appointment by the President of the Interdepartmental Cabi- 
 net Committee, composed of the Secretaries of War, Interior, Agri- 
 culture, and Commerce, who, with the aid of the chiefs of the 
 different Government services and bureaus having to do with 
 water and waterways, made a most exhaustive investigation of 
 the subject, particularly with relation to the working out of some 
 plan for the better coordination and cooperation of these Govern- 
 ment departments and agencies. As the result of that investiga- 
 tion and study of the subject the hearty cooperation of the 
 Secretaries named and of President Wilson has been enlisted and 
 exerted in bringing this great public movement to a successful 
 conclusion. 
 
 The country is to be congratulated that the support of President 
 W^ilson, first expressed in his telegram to Senator Newlands as 
 president of the National Irrigation Congress at its Salt Lake ses- 
 sion on September 29, 1912, has resulted in the enactment of the 
 present measure creating the Waterways Commission, which 
 opens up such stupendous possibilities of benefit to the people of 
 the United States. 
 
 The broad and comprehensive purposes which have actuated 
 the Congress in its enactment were strongly stated in the report 
 of the Secretaries composing the Interdepartmental Cabinet Com- 
 mittee to the President on February 26, 1916, set forth in full in 
 the Congressional Record for April 11, 1916, from which the 
 following is quoted: 
 
 " [Remarks of Hon. Francis G. Newlands, of Nevada, in the Senate of the 
 
 United States, Apr. 11, 1916.] 
 
 " Mr. Newlands. Mr. President, some time ago, at the height of 
 the flood at New Orleans, a telegram was addressed by the New 
 Orleans Association of Commerce to the Secretary of Commerce, 
 which I will insert in the Record, calling attention to these floods 
 and to the party assurances given regarding flood mitigation and 
 river development, and suggesting immediate legislative action 
 upon the subject. Following the receipt of that telegram the 
 President reconstituted the interdepartmental committee, which 
 some time ago was instructed by him to inquire into the difl'ering 
 
 [166] 
 
Remarks of Mr. Newlands 
 
 phases of river regulation and control presented by various 
 bodies and to report to him. That committee consisted of the 
 Secretaries of War, of the Interior, of Agriculture, and of Com- 
 merce. 
 
 " The office of Secretary of War being vacant, the three other 
 Secretaries met and communicated with the senior Senator from 
 Louisiana [Mr. Ransdell], the junior Senator from Louisiana 
 [Mr. Broussard], the Representative from Mississippi [Mr. Hum- 
 phreys], and myself. Mr. Humphreys was unable to be present, 
 owing to illness; but after several discussions of the question the 
 Interdepartmental Cabinet Committee drew up a report to the 
 President presenting their views regarding needed legislation. 
 That report has been recently transmitted to me by the President 
 of the United States. I ask to have read the letter of the Presi- 
 dent and the report of the interdepartmental committee, and I 
 will ask unanimous consent to insert in the Record the telegram 
 to wliich I have referred. 
 
 " The Vice President. Without objection, it is so ordered. 
 
 " The telegram referred to is as follows : 
 
 " ' [Telegram.] 
 
 " ' New Orleans, February 15, 1916. 
 " ' Hon. William C. Redfield, 
 
 " ' Secretary Department of Commerce, Washington, D. C. 
 
 " ' Dear Sir: One of the main-line levees of the Mississippi River 
 in northern Louisiana has just given way in a district which suf- 
 fered in 1912 and in 1913. A vast area of fertile farm land is be- 
 ing inundated. The people are fleeing from their homes. We 
 are sending them help, as we always do. You are one of the mem- 
 bers of the interdepartmental committee appointed many months 
 ago to study the various submitted plans of stream and flood con- 
 trol. Your committee, we have been informed, reached an agree- 
 ment upon the principle of the measures which were to be sup- 
 ported before Congress by the executive department. This or- 
 ganization, voicing the settled judgment of the business com- 
 munity of New Orleans, is on record as favoring the principle 
 and the form of one great measure submitted to you for your 
 approval, and by you in principle indorsed. 
 
 " ' Through three sessions of Congress we have waited patiently 
 for the action to which the Democratic Party is pledged and to 
 which you gentlemen yourselves have submitted your belief and 
 
 [167] 
 
Appendix 
 
 your approval. We have waited, conscious that each year of 
 delay in approaching the problem of flood and stream control in 
 a broad and comprehensive manner adds another year to the 
 many years of our continual and recurring peril. Still no action 
 has come. "We do not presume to sit in judgment upon those of 
 you who occupy posts in close relationship to the processes of 
 legislation and of execution in the Federal Government, but we 
 do know that our peril continues, that we lose in money and in 
 lives in each returning year of flood. We suffer an invasion as 
 real as though it were directed by the head of an alien govern- 
 ment. We lose lives as certainly as though they had been lost 
 in Mexico or on the high seas. We suffer the imposition of 
 indemnities which we must meet with taxes and bond issues that 
 are just as much indemnities as though levied by a conquering 
 army, and through the years and in proportion to the wealth of 
 the region afflicted what we have lost and w^hat we have paid 
 surpasses the indemnities inflicted upon France after the Franco- 
 Prussian War — the greatest indemnity ever paid by any one 
 nation. 
 
 " * Here in New Orleans we feel that we as individuals and our 
 investments arc phj'sically safe because we have massed re- 
 sources of human power and of material which enable us to keep 
 our levee breastworks so far ahead of the long lines reaching up 
 the tw^o sides of the Mississippi River from here to Cape Girar- 
 deau that levees elsewhere give way before the flood level reaches 
 us, and thus we are saved by the misfortune of our fellow citi- 
 zens of the Mississippi Valley. We appeal to you now in behalf 
 of those unfortunates in Kentucky, southern Missouri, Arkansas, 
 Mississippi, and Louisiana who have lost their homes, their for- 
 tunes, or their lives through the onslaught of the forces of nature 
 operating over the territory of thirty-odd States and concentrating 
 their evil effect upon those who live in the smaller regions on the 
 lower reaches of the Mississippi "Valley. 
 
 " * It is now too late for Congress to do more for those who are 
 suffering than to give them food, if they need it, to furnish them 
 with Government tents, and to put at their call the officers of the 
 United States Army; but it is not too late for the interdepart- 
 mental committee to make known its conclusion and its findings 
 with reference to suggested legislation having to do with the 
 inland rivers of the United States. It is not too late for the 
 executive department of the Government to put its recommenda- 
 
 [168] 
 
Remarks of Mr. Newlands 
 
 tions before Congress, to lend the strength of its influence in 
 support of the measures already drafted and pending therein, 
 which will bring to bear upon the whole vast interrelated prob- 
 lem of stream-flow control, flood-disaster prevention, and use of 
 the rivers in navigation the coordinated power and capacity of 
 the whole Federal Government. It is not too late for this admin- 
 istration and this Congress to undertake " after Panama " the task 
 of "the inland rivers"; carrying out the policy so well phrased 
 and indorsed by President Wilson in his telegraphic message to 
 Senator Newlands, dispatched in the autumn of 1912: 
 
 " ' " Seagirt, N. J., September 29, 1912. 
 " ' " Hon. Francis G. Newlands, 
 
 " ' " President Irrigation Congress, Salt Lake, Utah: 
 " * " Please express to the National Irrigation Congress my hearty 
 approval of the policy it is met to promote, and especially of the 
 polic}^ of supplementing bank and levee protection by storage of 
 flood waters above for irrigation and water power, turning 
 floods from a menace into a blessing and at the same time abun- 
 dantly feeding navigable waters. 
 
 " ' " WooDROw Wilson.' " 
 
 " ' Is it asking too much to request you to read this telegram at 
 the next Cabinet meeting as a respectful and an urgent message 
 from the Association of Commerce, as representing the afflicted 
 and jeopardized people, to the responsible heads of a Govern- 
 ment from which we had expected adequate measures of safety? 
 
 " * Walter Parker, 
 " ' General Manager New Orleans Association of Commerce.' 
 
 " Mr. Ne\vl.\nds. Now, I ask that the Secretary read the letter of 
 the President and the report of the interdepartmental committee. 
 
 " The Vice President. In the absence of objection, the Secretary 
 will read as requested. 
 
 " The Secretarj' read as follows : 
 
 " ' The White House, 
 
 " ' Washington, April 3, 1916. 
 " ' Hon. Francis G. Newlands, 
 
 " ' United Stales Senate. 
 
 " ' My Dear Senator : I take the liberty of sending you inclosed 
 
 a copy of a memorandum concerning flood control which the 
 
 Secretaries of the Interior, of Agriculture, and of Commerce 
 
 were kind enough to prepare for me. I hope that it will prove 
 
 [169] 
 
Appendix 
 
 of interest to you. I know that you were consulted at the time 
 the memorandum was contemplated. 
 
 " ' Sincerely, yours, Woodrow Wilson.' 
 
 " ' The Secretary of the Interior, 
 
 " ' Washington, February 26, 1916. 
 
 " * Dear Mr. President: In accordance with your suggestion we 
 beg to present a resume of our views as to the practicable way 
 of dealing with the problem of so regulating and handling our 
 rivers that they will be made to be of greater use and of less 
 injury to the Nation. 
 
 " ' We do not feel the necessity for emphasizing the need for 
 such legislation. Each recurring year makes plain the greatness 
 of the work that must be undertaken if we are to keep our rivers 
 within their banks. The floods of each year take their toll in 
 property and lives. Our streams are filling with silt and their 
 channels becoming less certain and reliable as nature's primal 
 highways. Vast bodies of lands of the richest alluvial character 
 are submerged so large a portion of the time as to be of no value 
 to the Nation and of no service to the world. Therefore, to 
 make more navigable our streams, to protect the cities and farms 
 already established and to make a place for others, to save life 
 and increase our crops, to conserve the waters on the higher 
 reaches of the streams where they may be used for needed irri- 
 gation, and to convert their fall into electric power — these are 
 the chief ends to be reached by river improvement. 
 
 " ' It is now time, we believe, to urge a comprehensive and con- 
 structive plan of river development upon Congress, a plan which 
 recognizes the magnitude of the problem, the impossibility of 
 dealing with it by temporary expedients, and that looks definitely 
 to the time when the flood evils of to-day will be remedied and 
 the waters put to their highest use. This means nothing less than 
 a study under one responsible authority of the problems and pos- 
 sibilities of each river, and after such study a determination upon 
 a definite policy with regard to it and the commitment of the 
 Government to the pursuit of such policy. It has been suggested 
 that an adequate lump-sum and continuing fund for carrying on 
 such national work shall be placed in the hands of a commission 
 composed of the President and four of his Cabinet, which fund 
 shall be expended upon such projects as it sees fit. We do not 
 think this plan in its logical entirety necessary to the end in view. 
 
 [170] 
 
Remarks of Mr. Newlands 
 
 " ' We do believe, however, that the Congress should commit 
 itself to a comprehensive policy of river development, involving 
 the expenditure over a long period of a large sum of money, with 
 sufficient appropriations immediately available for continuing the 
 work on the lower Mississippi substantially in accordance with 
 the plans of the Mississippi River Commission, and for taking the 
 necessary preliminary steps for the study of problems and the 
 projection of work on other parts of the Mississippi and of other 
 rivers. It should study each river system, and as projects are 
 developed reports with recommendations for expenditure should 
 be made to Congress, with the understanding that Congress, on 
 the basis of the data furnished, would provide sufficient sums for 
 the continuous prosecution of the work. There are precedents 
 for this course, such as the Panama Canal and the Alaskan rail- 
 road projects. In these cases Congress determined that such 
 enterprise should be undertaken, the general lines of development, 
 and in a sense pledged itself to award the money necessary for 
 the completion of the enterprise within a limited time, leaving the 
 details of the plans and their execution to executive bodies. 
 
 " * We believe that for the execution of such a policy the Con- 
 gress should authorize a national waterways council, composed 
 of the President and the four heads of departments most con- 
 cerned — War, Interior, Agriculture, and Commerce — and a sub- 
 ordinate water-control board, composed of a highly qualified 
 representative from each of the four departments and of such 
 engineers or other officials as the Congress may authorize. The 
 four department representatives of the latter board should have 
 such standing in the departments and such functions as would 
 enable them to secure such data and services in connection with 
 the work from the various bureaus in the departments as may be 
 serviceable and necessary. The national waterways council 
 should be authorized to direct and control the general policy 
 and procedure of the water-control board and other agencies 
 charged with the execution of the work, to establish the neces- 
 sary ^ules and regulations, to consider and approve plans, the 
 distribution of funds under authorization from the Congress, to 
 decide questions of conflict, and to report to Congress. The 
 latter board should be authorized to coordinate and invoke the 
 services of the necessary bureaus and agencies of the Govern- 
 ment, to make preliminary surveys and detailed plans for work 
 in various areas, to prepare estimates, to study the activities of 
 
 [171] 
 
Appendix 
 
 the States, municipalities, organizations, and individuals in water 
 regulation, to prepare a general program of water and water- 
 ways regulation and development involving the combined re- 
 sources and cooperation of all the agencies, to recommend to 
 the council for approval the assignments for the different bureaus 
 or services of the departments, to complete statements of the 
 work already accomplished, and immediately to supervise the 
 prosecution of the work under the plans approved. It would be 
 understood that in the meantime there should be no interference 
 with the execution of the existing plans of the Mississippi River 
 Commission for the work on the lower Mississippi, and that these 
 plans should proceed as outlined unless it should become clear 
 that improvements could be made. 
 
 " ' The most pressing call for help has come and continues to 
 come from the lower Mississippi. As to this river, what may be 
 determined defensive plans have been elaborated by the eminent 
 body of national officials who are now prepared to proceed with 
 their work to its completion. Their embarrassment arose out 
 of the fact that they can not plan for the execution of their work 
 continuously and for a sufficiently long period, owing to the fact 
 that each year the work must wait on the appropriations for that 
 year. There would seem to be every reason for prosecuting these 
 plans vigorously, and later as investigations proceed for supple- 
 menting these works with others of a constructive nature higher 
 up the river and for undertaking as soon as possible projects on 
 other rivers. 
 
 " ' To summarize, we recommend: 
 
 " ' 1. That Congress declare its purpose to deal with our river 
 problems in a comprehensive way, involving a large ultimate ex- 
 penditure of funds and the immediate expenditure of consider- 
 able amounts, and the creation of machinery intimately related 
 to the executive branch of the Government. 
 
 " * 2. That the boards and the other parts of the machinery pro- 
 vided for shall be directed to continue the work on the lower 
 Mississippi substantially under existing plans and to proceed with 
 the investigations and the elaboration of plans on other parts of 
 the Mississippi River and other rivers of the Nation. 
 
 " * 3. That all the available agencies of the Government shall be 
 coordinated in this endeavor to improve and protect our rivers, 
 to control floods, to utilize waters, and to reclaim valuable lands 
 and make the necessary reports to Congress as bases for addi- 
 tional appropriations. 
 
 [172] 
 
Remarks of Mr. Newlands 
 
 " ' 4. That the expenditures for this work should, in the main, 
 be met by the sale of national bonds, and that the lands bene- 
 fited should be made to bear a proportion of such expenses, 
 agreements in this regard to be submitted to the Congress as part 
 of the plan for development. 
 " * Cordially, yours, 
 
 " ' Franklin K. Lane. 
 "'D. F. Houston. 
 
 " * William C. Redfield. 
 
 " ' The President, 
 
 " ' The White House.' " 
 
 The necessity for such legislation as that embodied in the river- 
 regulation amendment, section 18 of the river and harbor bill of 
 1917, was explained in brief and its relation to the provisions of 
 the Democratic platforms of 1908 and 1912 shown in the remarks 
 of Senator Newlands in the Senate on February 21, 1916, on the 
 subject, as set forth in the following quotation from the Con- 
 gressional Record of that date: 
 
 " RIVER development FOR INTERSTATE COMMERCE. 
 
 " Mr. Kenyon. May I suggest that in the debate on the river and 
 harbor bill it was disclosed that over $140,000,000 had been 
 spent on the Mississippi River? 
 
 " Mr. Gallinger. Yes. Can the Senator give us any good reason, 
 any substantial reason, that would tend to clarify our minds and 
 vision, when we come to the consideration of this subject, as to 
 how it is that after having spent $140,000,000 on the Mississippi 
 River there is not any commerce on that river? 
 
 " Mr. Newlands. I tried to explain that in ray remarks when the 
 Senator from New Hampshire was not present. 
 
 " Mr. Gallinger. I am sorry I was not present. 
 
 " Mr. Newlands. But I shall be glad to give the Senator an 
 epitome of what I said on that subject. 
 
 " THE MISSISSIPPI AS A PERFECTED INSTRUMENTALITY OF COMMERCE. 
 
 " The Senator's inquiry is as to how, logically, we can consider 
 the expenditure of more money on the Mississippi River when 
 the expenditure of $140,000,000 has done very little toward the 
 promotion of navigation on that river. My answer is that that 
 expenditure has been scattered most ineffectively over a great 
 number of years; that the expenditure did not involve the com- 
 
 [173] 
 
Appendix 
 
 prehensive treatment of the entire I'iver with a view to making 
 it an instrumentality of commerce; that the work was done largely 
 in detached places here and there, in the removal of sand bars 
 and other obstructions or in the construction of levees, and so 
 forth; but that there never has been an effort really to artificialize 
 and perfect the Mississippi River as an instrumentality of com- 
 merce. That involves the establishment of transfer facilities and 
 sites, the dovetailing of the river with the rails by a system of 
 legislation and administration, the construction of the proper 
 wharves, the erection of the proper stations and warehouses, 
 etc. The river has thus far been developed practically as a rail- 
 road would be developed across the continent, with spaces, every 
 mile or two, of rails left out, or without stations or sidetracks. 
 The Senator can understand how effective a railroad would be 
 upon which a very considerable amount of money had been 
 expended that was in that condition; and that has been practically 
 
 the condition of the Mississippi River. 
 
 «♦****» 
 
 " What does the development of our rivers for purposes of com- 
 merce mean? It means the construction of wharves, warehouses, 
 and transfer facilities, the acquisition of transfer sites, and a com- 
 plete coordination with our railways. We have allowed our rail- 
 ways to sandbag our water carriers without protecting our water 
 carriers by the law, and then we have failed to give our water 
 carriers a perfected instrumentality, which means not only a 
 steady channel, a steady flow of water, but wharves, warehouses, 
 and transfer facilities and a coordination of rail and water car- 
 riage. 
 
 " You might as well say that you could perfect railway trans- 
 portation by building a railway across the continent, leaving 
 out the rails every 10 miles and leaving out sidetracks, ware- 
 houses, and stations, as to contend that you can make a river 
 an instrumentality of commerce under the conditions which 
 have prevailed with reference to their development. 
 
 " How have the water carriers been enabled to sustain them- 
 selves in this unequal conflict? Sandbagged by the railways 
 during the period of navigability that put down their rates to 
 the point of loss, without terminal facilities, without transfer 
 facilities, without stations or warehouses, unprotected by the law, 
 the individual carrier, the owner of a steamboat, has been com- 
 pelled to struggle against these tremendous odds, and because 
 
 [174] 
 
Remarks of Mr. Newlands 
 
 he has not succeeded the former Senator from Ohio, after years 
 of investigation, practically declares that the improvement of our 
 rivers for purposes of commerce is a failure. 
 
 "Would the Germans have succeeded under such a system? 
 Did the}' allow the railroads to sandbag the water carriers? Did 
 they say, ' We will perfect railways in every way with single 
 and double tracks and sidetracks and stations and warehouses 
 and the most perfect facilities for transportation, and all we 
 will do on our rivers is to dredge a sand bar here and there, or 
 here and there put up some levees for the protection of some 
 swamp-land proprietor? ' Did they content themselves with that, 
 perfecting the railway system and allowing the river system to 
 take care of itself? 
 
 "No; they practically artificialized every river throughout its 
 entire course and the tributaries, and not only that but they 
 connected them bj' canals entirely artificial in their creation, 
 and to-day waterway transportation is just as important as rail- 
 way transportation, and it is important because it is the cheapest 
 known method of transportation, for you can carry enormous 
 bulk in barges and steamers. In a single barge itself you can 
 carry as much as can be carried in an entire train. The cheap- 
 ness of carriage to-day from Pittsburgh down to New Orleans 
 of coal and iron indicates how cheap that transportation is. 
 
 " DEMOCRATIC PLEDGES. 
 
 " Now, Mr. President, the Democratic Party is under a peculiar 
 obligation to do something upon this great subject, for whilst 
 the Republican Party for years has been contenting itself with 
 general phrases the Democratic Party in two conventions has 
 declared in the most specific terms, first, for the coordination of 
 all the scientific services of the Government that relate to water 
 so that their plans shall dovetail with each other; second, for 
 the cooperation of the Nation with the State so that each can 
 cooperate with the other in the formation of plans and the con- 
 struction of works belonging to their respective jurisdictions; 
 and, third, the creation of an ample fund for continuous work 
 covering every watershed in the country. 
 
 " I will ask to insert these various planks of the platform of 
 1908 and the platform of 1912 in the Record. 
 
 "The Presiding Officer (Mr. Vardaman in the chair). If there 
 is no objection, it will be so ordered. 
 
 [175] 
 
Appendix 
 
 " The matter referred to is as follows : 
 
 " * Democratic Platform, 1908. 
 
 " ' WATERWAYS. 
 
 " ' "Water furnishes the cheaper means of transportation, and 
 the National Government, having the control of navigable waters, 
 should improve them to their fullest capacity. We earnestly 
 favor the immediate adoption of a liberal and comprehensive 
 plan for improving every watercourse in the Union which is 
 justified by the needs of commerce; and to secure that end we 
 favor, when practicable, the connection of the Great Lakes with 
 the navigable rivers and with the Gulf through the Mississippi 
 River and the navigable rivers with each other by artificial canals, 
 with a view of perfecting a system of inland waterways to be 
 navigated by vessels of standard draft. 
 
 " ' We favor the coordination of the various services of the Gov- 
 ernment connected with waterways in one service for the pur- 
 pose of aiding in the completion of such a system of inland 
 waterways, and we favor the creation of a fund ample for con- 
 tinuous work, which shall be conducted under the direction of a 
 commission of experts to be authorized by law. 
 
 "'Democratic Platform, 1912. 
 
 " ' We renew the declaration in our last platform relating to the 
 conservation of our natural resources and the development of our 
 waterways. The present devastation of the lower Mississippi 
 Valley accentuates the movement for the regulation of river flow 
 by additional bank and levee protection below and the diversion, 
 storage, and control of the flood waters above, and the utilization 
 for the beneficial purposes in the reclamation of arid and swamp 
 lands and the development of water power instead of permitting 
 the floods to continue, as heretofore, agents of destruction. 
 
 " * We hold that the control of the Mississippi River is a national 
 problem. The preservation of the depth of its water for the pur- 
 poses of navigation, the building of levees to maintain the in- 
 tegrity of its channel, and the prevention of the overflow of the 
 land and its consequent devastation, resulting in the interruption 
 of interstate commerce, the disorganization of the mail service. 
 
 [176] 
 
Remarks of Mr. Newlands 
 
 and the enormous loss of life and property, impose an obligation 
 which alone can be discharged by the General Government. 
 
 " ' To maintain an adequate depth of water the entire year, and 
 thereby encourage water transportation, is a consummation worthy 
 of legislative attention and presents an issue national in its char- 
 acter. It calls for prompt action on the part of Congress, and the 
 Democratic Party pledges itself to the enactment of legislation 
 leading to that end. 
 
 " * We favor the cooperation of the United States and the respec- 
 tive States in plans for the comprehensive treatment of all water- 
 ways with a cooperative plan for channel improvement, with plans 
 for drainage of swamp and overflowed lands, and to this end we 
 favor the appropriation by the Federal Government of sufficient 
 funds to make surveys of such lands, to develop plans for drain- 
 age of the same, and to supervise the work of construction. 
 
 " ' We favor the adoption of a liberal and comprehensive plan 
 for the development and improvement of our inland waterways 
 with economy and efficiency, so as to permit their navigation by 
 vessels of standard draft.' " 
 
 EXTRACTS FROM THE PRESS. 
 
 The broad and comprehensive plan for dealing witli the prob- 
 lems of river improvement for navigation and the conservation, 
 development, and utilization of all the water resources of the 
 Unitc.d States embodied in the river-regulation amendment has 
 been widely discussed in the press of the country from one end 
 of it to the other, and has received the practically unanimous 
 approval of the best thought of the Nation, as expressed through 
 resolutions of organizations of every character and the leading 
 newspapers. 
 
 The following quotations are merely a brief indication of the 
 trend of sentiment shown by and expressed in thousands of 
 similar indorsements: 
 
 " Senator Newlands certainly deserves well of his country for 
 pushing his waterways proposition as he has done. (Salt Lake 
 Tribune.) 
 
 " Senator Francis G. Newlands, of Nevada, has been talking 
 sound sense about the futility of the present method of making 
 appropriations for rivers and harbors. (New York Tribune.) 
 
 " The Mississippi Valley's prosperity is essential to the pros- 
 perity of the whole country; the only way to secure its pros- 
 
 115652°— 20 12 
 
 [177] 
 
Appendix 
 
 perity is by flood prevention; the only effective flood prevention 
 is by the passage of the Newlands bill or similar legislation. 
 (Houston (Tex.) Chronicle.) 
 
 " In the face of the awful lessons of 1911, 1912, and 1913 those 
 Congressmen who opposed the Newlands bill in the last session 
 assumed a grave responsibility. (Los Angeles Tribune.) 
 
 " The appalling flood catastrophe which has just befallen the 
 people of the Ohio River Valley emphasizes with striking and 
 irresistible force the urgent and imperative necessity of the 
 national legislation embodied in the Newlands river-regulation 
 bill. (Cincinnati (Ohio) Commercial Tribune.) 
 
 " Probably no man in public life is better fitted to discuss 
 questions relating to conservation, particularly as regards deal- 
 ing with water, than United States Senator Francis G. New- 
 lands, of Nevada. (Troy (N. Y.) Times.) 
 
 " Senator Newlands's bill seems to be broadly national rather 
 than selfishly sectional, and in that is to be found no small 
 part of its wisdom and the promise of its deserved success before 
 Congress. (Los Angeles Examiner.') 
 
 "We join heartily with Senator Newlands in his idea that 
 the time has come when the issue should be made between an- 
 nual expenditure of millions on fighting the Mississippi River 
 and a sensible attempt to control it to the advantage of unirri- 
 gated territory. The issue is simply one between loss and gain. 
 (Minneapolis News.) 
 
 " Senator Newlands is not only a broad-minded statesman and 
 an able speaker; he is an adroit manager and he combines the 
 suaviter in modo with the fortiter in re. When Congress emerges 
 from the tariff-currency-Mexican web in which all other legis- 
 lation is now enmeshed it may, and probably will, take up the 
 Newlands reclamation bill. Once it shall be seriously considered 
 its passage will be a foregone conclusion. (Los Angeles Times.) 
 
 " The Newlands bill for the regulation of water flow in the 
 Mississippi Valley and for the reclamation of waste lands is in 
 every feature thoroughly practicable. (F. H. Newell, Director 
 of the Reclamation Service, quoted in the New Orleans Item.) 
 
 " The remedy for a pork-barrel system lies in a comprehensive 
 national plan for river improvement and flood prevention, which 
 shall treat each stream in the country as a unit, which shall 
 utilize all the departments of the Federal Government in cooper- 
 ation, and which shall have regard for all the uses of water. 
 
 [178] 
 
Remarks of Mr. Newlands 
 
 instead of regarding only tlie local interest. Such a plan is be- 
 fore Congress now in the form of the Newlands river-regulation 
 bill. * * * The adoption of this plan for river control and 
 use would result in the absorption and retention of the water on 
 the upper source streams and tributaries, and this would so 
 standardize the flow and lower the ordinary flood levels and raise 
 the low-water levels that navigation would be enormously im- 
 proved. But the occupation of levee boards, contractors, Array 
 engineers, local politicians, and others who profit from the piece- 
 meal, mud-pie system of sinking money in useless river projects 
 would be gone. Therefore the Newlands bill sleeps in commit- 
 tee while the pork barrel rolls merrily forward. (Gilson Gardner 
 in Harper's "Weekly.) 
 
 " The measure proposed is not the result of any slight consid- 
 eration of the big work in hand, but its terms embody the best 
 thought in the Nation on the subject of river regulation and con- 
 trol, and it behooves everybody in the two great valleys of the 
 State to get behind the bill and leave nothing undone to impress 
 Congress with the crying necessity for such a measure. (Stock- 
 ton (Calif.) Independent.) 
 
 " The Newlands bill, now before Congress, proposes a new 
 policy of flood prevention and river regidation, a policy that 
 clearly recognizes the vital necessity of conserving the food 
 supply of the Nation, which supply is absolutely dependent upon 
 water. (St. Paul Pioneer Press.) 
 
 " It is with extreme satisfaction that we note the fast-growing 
 popularity and progress of the Newlands river-regulation bill. 
 (Stockton (Calif.) Mail.) 
 
 " This is the greatest constructive measure ever inaugurated 
 by the United States Government for the protection of those 
 affected by the wet and dry seasons of our rivers. (Escalon 
 (Calif.) Tribune.) 
 
 "According to Judson C, Wall, of New York, a conservation 
 specialist who advocates the Newlands bill, a comprehensive 
 measure for conserving soil fertility, this country is losing under 
 the present river-regulating policy an average of over $100,000,- 
 000 a year. (Wall Street (N. Y.) Journal.) 
 
 "A comprehensive, practical, and efficient measure is the New- 
 lands bill for the control of floods of this great valley, and it is 
 growing more and more in public favor as it is better under- 
 stood. (Memphis News-Scimitar.) 
 
 [179] 
 
Appendix 
 
 *' It is interesting to note that the Newlands bill is gaining 
 friends and that there seems to be good grounds for expecting 
 its passage. (Dayton (Ohio) News.) 
 
 "All California, without regard for political considerations or 
 affiliations, will get behind Senator Newlands's comprehensive 
 plan for the development of the inland waterways of the State. 
 Senator Newlands proposes to meet in a statesmanlike way, by 
 a single operation, three of thef most pressing problems that con- 
 front the people of California. (San Francisco News Letter.) 
 
 " The Newlands plan offers opportunities for realization of the 
 ambitions which the people of this region have long cherished 
 and deserves the support of all progressive citizens. (Portland 
 (Oreg.) Oregonian.) 
 
 " There can be little doubt that one of the greatest physical 
 tasks awaiting the people of the United States is the proper de- 
 velopment of the national water supply. Nor can there be any 
 doubt that this development will best be achieved by a nationally 
 directed policy rather than by the haphazard methods of the 
 different States and of irresponsible private enterprise. (San 
 Francisco Bulletin.) 
 
 " Senator Newlands will deserve the thanks of the Nation if he 
 can devise a method of removing the taint of * pork barrel ' from 
 the rivers and harbors bill." 
 
 The following is a reproduction of an editorial from the San 
 Francisco Call-Post of August 28, 1917, which points out the great 
 benefits that may result from the inauguration of the policy em- 
 bodied in the river-regulation amendment, with reference to the 
 industrial conditions that will prevail after the close of the war 
 with Germany: 
 
 " WORK FOR CALIFORNIA AFTER WAR TO SAVE WASTED WATER RE- 
 SOURCES WORTH $15,000,000,000 WAIT UTILIZATION WHILE VAST 
 AREA OF LAND REMAINS UNPRODUCTIVE. 
 
 " After the war, what? 
 
 "When the world has been made safe for democracy; when 
 20,000,000 men have stacked their guns; when the colossal war 
 machine has been brought to a dead halt and the engines and 
 industries of destruction are at last standing still, where shall 
 this inconceivable energy which is now devastating the world 
 be diverted? 
 
 [180] 
 
Remarks of Mr. Newlands 
 
 " For California this question was raised and answered a few 
 days ago in the United States Senate by Senator Francis G. New- 
 lands. 
 
 " No Californian knows better than Senator Newlands what are 
 California's greatest resources and needs. 
 
 " On August 2 Congress adopted his amendment to the rivers and 
 harbors bill. It is a measure whereby the United States Govern- 
 ment will undertake the solution of the Nation's water problems. 
 Senator Newlands had won a victory for which he has been 
 fighting for 10 years. He said: 
 
 " * Peace will bring far-reaching stagnation unless some great 
 constructive policy for building internal improvements is substi- 
 tuted for the stimulus to industry created by the war that will be 
 withdrawn when peace returns. 
 
 " ' The instant peace has been achieved this Nation can turn the 
 same indomitable energy that it is now devoting to winning the 
 war against a foreign foe to winning a greater war against the 
 destroying forces of nature. 
 
 " ' The greatest waste that takes place in the country to-day is the 
 waste of its surplus w^aters, which are the Nation's greatest asset, 
 but which now run to waste in the sea, carrying destruction in 
 their path in the form of devastating floods. W'^e must learn to 
 conserve that waste and fight that devastation with exactly the 
 same vast and all-conquering energy that we are now devoting 
 to war.' 
 
 "What is that waste in California? What is the value of our 
 undeveloped water resources? 
 
 " When Hiram W. Johnson, now with Newlands in the Senate, 
 was governor of California he appointed Dr. George C. Pardee, 
 former governor, head of a conservation commission to study this 
 question and make investigations. 
 
 " Pardee devoted several years to the work. 
 
 " He computes the value of California's water resources at 
 $15,000,000,000. 
 
 " Fifteen billions of dollars! 
 
 " Fifteen thousand times one million! 
 
 " Such a sum is inconceivable, as Senator Johnson said only the 
 other day in Washington. The human mind can not grasp it 
 Like infinitude, it is incomprehensible. 
 
 [181] 
 
Appendix 
 
 " Were this wealth in minted money or in some form that we 
 could measure and divide, it would mean, if distributed, $5,000 
 to every man, woman, and child in California to-day. 
 
 " Enough that every family, counting five to a family, could 
 have a $25,000 farm. 
 
 "And since this wealth consists -entirely of the unused water 
 and the unused land in the State — though Dr. Pardee did not 
 include the value of the land in his estimate — the farm, of 
 course, makes the most appropriate unit of measurement. 
 
 " Dr. Pardee estimates that the water of the State for power pur- 
 poses is worth $10,000,000,000 and for irrigation $5,000,000,000. 
 
 " Less than one-tenth of the available water power is now har- 
 nessed and less than one-fifth of the irrigable lands are being 
 watered. 
 
 " To make the $15,000,000,000 available for man's enjoyment is 
 the work that Senator Newlands refers to. 
 
 " To harness these waste waters, to irrigate another 12,000,000 
 acres of arid lands, is the work that confronts California. 
 
 " To reach this treasure will require the building of great dams, 
 of reservoirs, power plants, and irrigation works. 
 
 *' There is the fight for California when the war is done." 
 
 [182]