Na Pr aP ROS NAPNEBS a Aaf aM ar eda? eZ Ma AIPVD PN sf My PMePAASPNDPN UY? eA TSAANA PN! Suh MLZ MP ANA HA RSM GPA? Nae SARA ANZ NDAN Che Ganunonmeslth of Masssarchuacits Praha Med A TPAGE NG PNP Mad PBA Nal Na? Sad OIA ENG? Nal Sif Dad MARRY IAAP RAPA PN GF NaN IPEN IT AMP UPN? OPN Nat NP st yy? Addresses and Messages to the General Court, Proclamations, Official Addresses, : Correspondence and Statements ‘of | His Excellency Governor Channing. H. Cox. For Ge Years Rand Hundred ‘and Twenty - -~one, Nineteen Hundred and Twenty-two, Nineteen Hundred and Twenty-three and Nineteen Hundred ae ipa ds Compiled by Sherwin Lawrence c ook, Assistant Private Secretary to _ His Excellency Governor oes H. Cox IPN FPN PNP Pe a PPL PENI N ePeP NP eh wersetneP hat at phe Nate tance PAu? Nets as P iP Nye MnP Phe ha Ne PoP Mg Ay APr Published by Order of the Council, dated ‘December Thirty-first ‘Nineteen Hundred and Twenty-four ‘ mar aenarnadtesoreNat in thee mae AON ene aP NA Nair” vetNet Na Pad NaP INNA Nad HPN APNE NUM oP Na Ne Na Tsien ehh et\at® ‘all ht el del ool Tek deh Fite eal) alt lal dl te ek ee eT alt del del Pa La lt NerNe ofS ae” NNN eet Nee he NES, Che Commonwealth o of f Mussina Pe PRR PAPAS Aa Na PNP ES EL aN Net lt dol Tek heh hell tel del tal te Te leh et hel Lael del de Te ee dl eee e 1 Lee Chel del ff || Addresses and Messages to the General Court, Proclamations, Official Addresses, Correspondence and Statements. of His Excellency Governor Channing H. Cox For the Years Nineteen Hundred and Twenty -one, Nineteen Hundred and Twenty-two, Nineteen Hundred and Twenty-three and Nineteen Hundred and Twenty-four Compiled by Sherwin Lawrence Cook, Assistant Private Secretary to His Excellency Governor Channing H. Cox V1 Vick Plc ida anti dal Lael tal Teh ee a ae ae Lael ae ae ee ie ee Lil ae eh ie el dl de ek ee i ele Lael ae ae eh eT a ae el Th Published by Order of the Council, dated December Thirty-first Nineteen Hundred and Twenty-four Pt dat tal dal tel lek a de ial del del te le i al el Le Le ee a idl il ae ae i eT lel he he hee id idl del al ek ee Try ey TiS CaN i Te Oiees Sos PREFATORY NOTE When in 1914 the messages and inaugurals of the Gov- ernors of Massachusetts ceased to appear in the Blue Book, a need arose for a compact volume containing these papers. A well-approved custom has caused the addition of the official gubernatorial proclamations and certain other ad- dresses, statements and correspondence of an official and public character. The Council has again authorized such a publication, this time to cover the four years of adminis- tration of His Excellency Governor Channing H. Cox. A new method of arrangement has been adopted in this volume, the matter being classified under appropriate head- ings and a table of contents being substituted for an alpha- betical index. , All the messages to the General Court and the official proclamations are included in the volume. In selection of the other matter, its author has insisted on a rigid method of elimination, and certain addresses and statements which might have been included without criticism have been omitted. The last annual pardon message of Governor Coolidge, transmitted to the Legislature by his successor, has been here included for the sake of preserving the record in con- tinuity,. and proclamations issued by Acting Governors during Governor Cox’s administration are included for the same reason. No book of this nature can be an epitome of the adminis- tration of any Governor, and because he believes that it will give the volume a proper completeness, the compiler has added as an Appendix a résumé of the administration of Governor Cox, by Wendell D. Howie, from the “Boston Evening Transcript” of January 3, 1925. 7524C8 ss The compiler is under obligation to Mr. Henry F. Long, now Commissioner of Corporations and Taxation, but formerly Private Secretary to Governor McCall and Gov- ernor Coolidge, and under whose hand several previous volumes have been published, for advice concerning the selection of the papers, and to Hon. Herman A. MacDonald, former Private Secretary to Governor Cox, who collected a large amount of matter from which to make selection. 9. LG TABLE OF CONTENTS PAGE INAUGURAL AND ANNUAL ADDRESSES TO THE GENERAL Court: Inaugural Address, 1921 . é j : 3 : : Ah Boies Kes Annual Address, 1922 : : ‘ 3 F : 4 ‘ . 84 Inaugural Address, 1923 . : ; ‘ : , i PDS Annual Address, 1924 : ‘ ; : . : i Ng MESSAGES TO THE GENERAL Court: Relative to pardons (transmitted by Governor Calvin Coolidge), 1921 . 99 Submitting budget recommendations, 1921 : i 100 Recommending an amendment to a bill enabling the Fi frat Chitrek of Boston to convey property to its trustees ; 103 Recommending an amendment to a bill authorizing the racine Tuber. culosis Relief Society to transfer its property to the Worcester Society for District Nursing. ’ i 4 . 104 Vetoing a bill relative to the ul of ice at nea 105 Vetoing a bill relative to the construction, alteration and matenbnee of buildings in the city of Boston : 106 Relative to granting jurisdiction to the Gated States of Barat and known as Camp Devens : 107 Recommending an amendment to a pill Pelative to ihe Haettation of embalmers . i i : . 108 Submitting Mipplementary Budget PaeaiaMen gations) 1921 : s 109 Recommending an amendment to a bill ratifying and validating eG acts of the town of Methuen : : ve hE Relative to an appropriation for repairs on bie Old State Halse : mega 2 Vetoing a bill relative to the salary of the Director of the Division of Animal Industry in the Department of Conservation : BIEN 1 bs. Vetoing a bill relative to the salary of the Commissioner of Ghasereation’ 114 Vetoing a bill relative to the compensation of the members of the Board of Parole. 115 Vetoing a bill aaplishine ne Bidried of ine Sia maatiea’ in the ies of the Treasurer and Receiver General . : 116 Recommending an amendment to a bill providing po anert Atloweness based on annuity and pension contributions for employees of the city of Boston or the county of Suffolk ; ; Ey Relative to the issuing of notes providing for the Bane ehction of eeu bridges over Charles River . : : i EE Relative to consolidation of various jails Sau Hotes of aieccian 120 Relative to pardons, 1922 4 ee Relative to an appropriation to attabritee the ay of aa for sometrac tion of a temporary bridge over Saugus River y 122 Relative to the death of Hon. John C. F. Slayton of ee seats of the Executive Council, and the naming of his successor . : ssa 8°. Submitting budget recommendations, 1922 : ; 125 Relative to an appropriation for clearing the forests of the Aetcoolitan District after severe storm . : A 4 ; : : on), L288 6 PAGE MESSAGES TO THE GENERAL Court — Continued. Relative to an additional appropriation for clearing the forests of the Metropolitan District after severe storm ; , se Relative to affording relief to the city of Boston for jibes of revenue in taxes on account of public gift by George Robert White . ; 131 Recommending an amendment to a bill providing for an eighth daa clerk of the Municipal Court of the City of Boston for civil business . 132 Relative to granting jurisdiction to the United States of certain land in Rutland. 133 Vetoing a bill Sliding the ton of Dover Rots the Metropolitan ‘pase District ; : 134 Recommending an aaiendiient to a bill auithanene he Metropolitaa District Commission to appoint a superintendent of police : 139 Vetoing a bill permitting justices of the Superior Court to suspend the execution of sentences in criminal cases . : 141 Vetoing a bill reinstating Daniel J. O’Sullivan in the pub ie Divisiee of the Department of Public Works of the City of Boston : 143 Vetoing a bill appointing Richard Williams as a member of the Fire De- partment of the City of Quincy . : 144 Relative to the establishment of the office of Danity: Coniinies ae of Banks ‘ : 145 Relative to securing compentive bids fon State Penk and binding oad to awarding a contract . : : A . 146 Submitting supplementary budget recommen ateane 1922 ; 148 Relative to an appropriation for securing certain relics from the Old Province House . : 150 Relative to offer with further referents to securing erie false of Ne Old Province House . 152 Vetoing a bill reinstating cA Kelley i in ihe Tnstnuticds Denarunaee of the City of Boston s 153 Vetoing a bill directing the Deoartnent of Public are fe oyovade ie the construction or improvements of certain roads . : 154 Recommending an amendment to a bill regulating the Operate of aircraft é 159 Vetoing a bill Tec the Denarinent of Pane Works Pe Bee, for further construction of a certain highway in the towns of Rutland and Holden 5 ‘ 160 Vetoing a resolve ariding for the tal yc of pints for the Rleeioe - of the waters of Lake Cochituate and the South Sudbury System . 162 Vetoing a resolve to pay the widow of the late Rep. Walter S. Hale the balance of the salary to which he would have been entitled for the cur- rent session t 164 Relative to giving the Garner with the advice and Soriaere of the Couns cil power to appoint a Fuel Administrator , 4 ; . . 165 Relative to Pardons, 1923 : , : i , . Ra fy Submitting budget recommendations, 1923 : : : : . 168 Authorizing the seizure and destruction of unfit coal . ; cere Was Vetoing a bill providing that assistants employed by custodian or jan- itors in public school buildings of the city of Boston be exempt from Civil Service Laws and Rules ; 173 Recommending an amendment to a bill ts Protect aes: eae ihe age of seventeen at trials for certain crimes. ; : ; wobes 7 PAGE MESSAGES TO THE GENERAL Court — Continued. Recommending an amendment to a bill authorizing domestic corpora- tions, voluntary associations and partnerships to become limited members of credit unions. 176 Recommending an amendment to a bill Auntie? OEE ae ine right of non-residents to operate motor vehicles . f 177 Recommending an amendment to a bill relative to ihe Buitdite ines of the city of Boston : 179 Vetoing a bill to ascertain the will of the ey of Madea chitigetts with reference to the repeal of the Eighteenth Amendment of the Consti- tution of the United States, ete. . 180 Relative to the final report of the Massachusetts Fuel Binerventy ree ministrator . t : ; . 183 Submitting Eronlementie Hideet rocOmeHBatione 1923 f ; 185 Recommending an amendment to a bill authorizing the city of Boston ‘6 pay a sum of money to John M. Chmielinski . 4 187 Vetoing a bill authorizing the city of Holyoke to pay a sum of money i the widow of Thomas E. Powers . : : ; ; . 188 Relative to pardons, 1924 ; ; : . . 189 Submitting budget recommendations, 1924 ‘ ; : . 190 Recommending an amendment to a bill relating to certain meetings in the town of Florida : : ; ; . 194 Relative to an investigation of the eiehine! ineitwiey : é 196 Recommending an amendment to a bill authorizing the Hc tte Pa a as special police officers of agents of the Animal Rescue League of Boston and of the Boston Workhorse Relief Association 197 Relative to authorizing the Department of Mental Dieeeses h issue licenses to institutions established by the United States government . 199 Vetoing a bill relative to the keeping of gasoline and other inflammable fluids in buildings used for housing fire and police apparatus. . 200 Relative to enacting legislation to safeguard horses and mules. Mi O® Recommending an amendment to a bill establishing a maternal and child welfare commission in the city of Fall River. : 203 Recommending an amendment to a bill to annex a part of the tone of Sherborn to the town of Framingham . : 204 Recommending an amendment to a bill relative to the pation of coasting on the public ways . : 206 Recommending an amendment to a reaolve dutharizing the conipleon of the drawings for a report on the birds of the Commonwealth, and the publication and distribution of the first volume of said report . 207 Vetoing a bill establishing the pension of Michael Birmingham, for- merly a member of the Fire Alarm and Police Signal Service of the city of Boston. 209 Recommending an Pincudedent ie a bill Seteling the ae of service of the Special Commission on the Necessaries of Life and vesting it with certain powers in the event of a fuel emergency , é 210 Vetoing a bill authorizing the city of Boston to pay a sum of money to John Curran ‘ 212 Recommending the aaNet of ke to enable the iruskaes of the Massachusetts School for the Feeble-minded and the Metropolitan District Commission to arrange for taking water from the metro- politan water supply . 5 ; , : : : : 2 pels 8 MESSAGES TO THE GENERAL Court — Concluded. Recommending an amendment to a bill relative to payments to the fam- ilies of policemen killed or dying from injuries received while on duty) 2) ihe ane i ea Submitting payee HL puoer aie cata 1924 : j ea ABs) Vetoing a bill increasing the salaries of registers of deeds and assistant recorders of the Land Court for the Northern, Southern and Fall River Districts of Bristol County . / {GAT Recommending an amendment to a bill requiring ihe Divine of the Blind to establish, equip and maintain schools for the industrial training of blind persons, and workshops for their employment, and providing for an investigation relative to the employment, training and placement of the blind . : 219 Recommending an amendment to a bill us pathos the: lasing cuts widening and construction of Tremont Street from Arlington Square to its intersection with Stuart Street in the city of Boston i +» 222 Recommending an amendment to a bill to authorize the laying out, wid- ening and construction of Kneeland Street at or near Washington Street and Stuart Street to Atlantic Avenue in the city of Boston . 224 Vetoing a bill authorizing the Armory Commissioners to acquire certain land in the towns of Lynnfield, Reading and Wakefield for a State Rifle Range . 5 226 Vetoing a bill providing for the plate ne ie a a alone the _ shore of Dorchester Bay off Squantum in the city of Quincy and of an adjoining highway ’ 5° BST Relative to the term of certain ites ord asics for baviein additions and improvements. ’ oN 229 Recommending an pia th 9 to a ‘ill i provi for the treatraene of extra-pulmonary tuberculosis at the Lakeville State Sanatorium . 230 Vetoing a bill providing for the construction of a breakwater or seawall at Point Allerton in the town of Hull . ! , . ; fs. Qbt PROCLAMATIONS: On National Thrift Week i ; ’ ; ; ; 235 On Lincoln Day : : es On “ Be Kind to Animals ‘Week a hed Hinnnne Suiiday : ; . 289 On Arbor and Bird Day . : : : . 241 On Forest Protection and Fire Teavenlion Week ; : . 243 On Flag Day . ; 3 z é f } : : : . 245 On Fire Prevention Day . 4 : i ; : : i . 247 On Armistice Day . ? f : ; . 249 Respecting the burial of the Babs Soldiee ¢ i ; ’ Rae 3 | Authorizing the display of the flag of the French Republic . : . eae On Thanksgiving Day . . B 4 : : ‘ : . 254 On American Education Week . ; f : $5, 268 On Display of the flag of the Kingdom of Tealy i : ! } + 258 On Lincoln Day 259 On establishing the Department of Defective Delinquents ae ihe State Farm . : ; ‘ ; ; } 4 - e2Gt On securing aialy inlet for ex-service men ‘ ; : La Ge On Forest Protection Week and Arbor and Bird Day! : : . 264 On “ Be Kind to Animals Week ” and Humane Sunday ; : . 266 ProcLamMations — Concluded. On Ulysses S. Grant Day On Flag Day . ; On the Two Hundredth Meares of the Birth of cant! janis On Fire Prevention Week On Armistice Day On Thanksgiving Day On opening the Belchertown State etek tt Promulgating the Sixty-Seventh Article of Aeneddmaitt to the Gan stitution On Lincoln Day On Patriot’s Day On Arbor and Bird Day hail Forest Taptsckion Waals, On Flag Day . In memory of Warren G. taming On Fire Prevention Week ; On suspending the open season for hastting aed ’ the Tecutenent Governor, Acting Governor) . On putting in force the open season for aucag Gaiied be Hie LesWTbnant Governor, Acting Governor) . On American Education Week . On Armistice Day On Thanksgiving Day On the observance of Harding Mosiarial Week On Lincoln Day Respecting the late Visadrow Ww ban On Humane Sunday and “ Be Kind to Animals Week’ bi On Arbor and Bird Day and Forest Protection Week . On Flag Day . On Fire Prevention Week Suspending the open season for hunting On Armistice Day — Announcing the death of United States Senator Hears Cabot youn On American Education Week . : On Thanksgiving Day Restoring the open season for hanes (by the Galretey of State, ahs Governor) Concerning the Libation of Sectors of petdent Wd View Browaene of the United States Promulgating the Sixty-Eighth Article of Amondnent to the oer tution : Promulgating the Sixty-Ninth Perils of *heyandment to the Conus. tution OrriciaL ADDRESSES: At the celebration of the three hundredth anniversary of the return of the * Mayflower ”’ At the inauguration of or Heneat Pee Nithols as Bebeident of the Midas chusetts Institute of Technology At the Commencement of Harvard University Welcoming the President of the United States, Watren Ge Haring at the Plymouth Celebration : . 10 PAGE OrrictaL ApprREssEs — Concluded. Accepting from Mr. and Mrs. Frederick H. Prince a tablet, in memory of their son, Norman Prince . ; , } . 348 Welcoming Marechal Ferdinand Foch at the Hall of Flags : f . 3849 Welcoming Generalissimo Armando Diaz at the Hall of Flags _.. . B51 Accepting a tablet in memory of Henry B. Endicott . ‘ 353 Opening the exercises commemorating the one-hundredth anniversary of the birth of Edward Everett Hale . : : : . 354 At the Commencement of Harvard University . ; 355 Opening the conference of committees appointed by the Governors of the New England States, to determine the attitude of New England with reference to the proposal to group the railroads of New England . 359 Welcoming M. Georges Clemenceau at the Hall of Flags. : 363 At the inauguration of Dr. Samuel Wesley Stratton as President of the Massachusetts Institute of Technology . ‘ ; : : . 3864 At the Commencement of Tufts College. : ; : : . 3866 At the Commencement of Harvard University . ! E : . 370 Greeting General Haller at the Hall of Flags 372 At the celebration of the ninetieth birthday of Charles Willian Elliot, President Emeritus of Harvard University . : : : - 873 At the Commencement of Harvard University . d . ; . S74 Receiving the world flyers at the Hall of Flags . 4 376 Accepting a tablet to the Massachusetts Medal of Honor Mew in the World War . : : ; : : ; : : f pres ff) OFFICIAL STATEMENTS AND CORRESPONDENCE OF Pusiic INTEREST: Statement relative to President Harding’s message to the principal Allied Powers on the limitation of armament . : : : ., ool Statement on American Education Week . ‘ ; ' . 382 Statement issued to local executives and law eaforecisent officers on enforcement of individual rights. , . 383 Statement relative to the death of President Wathen G. Harding . 3884 Telegram to Mrs. Warren G. Harding " 385 Telegram to Calvin Coolidge upon taking the oath of iffics as ‘Prem dent of the United States. ) : : : . 886 Statement in support of the Japanese alien fond’ : : . oot Telegram to President Coolidge relative to the Japanese relief fund . 388 Statement relative to Navy Day and the anniversary of the birth of Theodore Roosevelt ; : : : : . 889 Statement on the death of Woodrow Wilson A 391 Telegram to Mrs. Woodrow Wilson on the death of Ex-President Woo row Wilson . { ; 4 ; ‘ ‘ . 392 Statement on National Detcnce Day 393 Message to Mrs. William L. Douglas on the Meath of Ex- Governor William L. Douglas. ‘ 3 ; : ; ; : . 3894 Statement on Navy Day . : 5 : ; 4 5 : . 895 APPENDIX: Four Years of Cox as shown by his Accomplishments, an article by Wendell D. Howie in the “ Boston Evening Transcript” . , . 3899 INAUGURAL AND ANNUAL ADDRESSES TO THE GENERAL COURT ei “Fe INAUGURAL ADDRESS Delivered in the House of Representatives January 6, 1921 MEMBERS OF THE GENERAL Court: — The legislative enactment of the special session of the General Court last month, approved by the Governor, consolidating and re- vising the statute law of the Commonwealth, has come at the end of several years’ work by a special commission, and alter careful study by a large recess committee of the Legis- lature. It is to be hoped that the work has been done well, and that little if any of your time need be consumed in cor- recting errors or changing the phraseology of our laws. Your predecessors, in recent years notably, have been quick to respond to clearly defined public sentiment. The people of Massachusetts have always been ready to assume new forms of service which gave promise of relieving hardship or making more equitable the distribution of opportunities and responsibilities. But in these days when men in every form of private undertaking have found it necessary to look to fundamental things, it is no less necessary for us who have been selected to conduct the affairs of Massachusetts to look to fundamentals. In my judgment the needs of Mas- sachusetts today do not so much require great legislative reforms and improvements as they do require reforms and improvements in administration. ADMINISTRATIVE REFORM At an early date I propose to ask the help and advice of the various heads of departments, inviting them into con- ference as the directors of a private corporation confer. It is highly important that the head of a department have intense concern for the affairs under his control, but it is equally desirable that he weigh the importance of his de- partment in the light of the complete activities of the State. 14 It is possible to inquire whether the work of the government is being done as efficiently as it can be. I urge that your committees in examining departmental requests ascertain whether everything possible is being done to meet the spirit of the act passed in 1919 consolidating the departments and commissions, whether work is still being duplicated, and whether it is possible to transact the public business better and at less expense. ECONOMY The cost of carrying on government in Massachusetts as elsewhere has reached a point where it has become a heavy burden on all our citizens, whether they: share that burden directly in taxes or indirectly through the increased cost of the necessaries of life. The constantly increasing cost of government must be checked or it will become so heavy that it will fall of its own weight. The Commonwealth is doing a fine work in the care of the sick, the insane, the helpless, the feeble-minded, the delinquent, and for the convenience and comfort of all. Her institutions command the admiration of all observers. We must continue in this well-doing. But the government must not be saddled with so many under- takings that it breaks down and becomes unable to do the things already attempted. Under the existing laws the Commonwealth is committed to tremendous expenditures. Such expenditures are doubtless necessary in large part if the Commonwealth is to continue the present undertakings. Twenty years ago Governor Crane warned the Legislature that unless the strictest economy were practiced a State tax of $2,000,000 was imminent. Last year the total expendi- tures were approximately $38,760,000. The total revenue was approximately $24,760,000, making necessary a State tax of $14,000,000. It will become my duty in a few days to submit to you a budget, and then I shall discuss State finances more in detail. But today and every day through the year I ask you to remember that in the home and in private business it is necessary to practice thrift and econ- omy. Money spent improvidently, extravagantly or reck- lessly by the city or town, county, State or Nation is a need- less charge which must be borne by the people. We shall 15 deserve the approval of our fellow citizens if we in united effort, still continuing the necessary and desirable work of government, find the method of halting the onward rush of governmental expenditure. We shall make progress in that direction by requiring every public official to use the same care and prudence in the handling of public funds that he uses in spending money which he has earned by his own labor. Puspiic WorxKs Life is growth. We do not stand still. We develop, we progress or we go backward. Our population in Massa- chusetts continues to increase. We are constantly required to plan for future needs, and those needs, especially so far as construction of new buildings, new highways, improve- ments of harbors, public works in general, may be deter- mined in advance with considerable accuracy. It has hap- pened frequently in the past when business was good, when labor was abundantly employed, when there was active con- struction for private ends, that at such a time the State entered upon the most ambitious projects of public works. Under such conditions the State comes into competition with private enterprise for materials and for labor. My observation in the public service of Massachusetts convinces me that by looking ahead and having ready at hand a more comprehensive plan of needed public improvements the Commonwealth and the public could be immeasurably benefited. When departments seek appropriations they could as far as possible be required to estimate their require- ments for the next five years. The Legislature could then determine which projects are of the most immediate urgency. If it were convinced that other public works are reasonably certain to be started within five years, the Legis- lature could profitably authorize preliminary surveys, plans and specifications. If such preliminary work had been done, then in the event of some public stress, when our citizens were unable to obtain private employment, in such a time when there is a general desire to provide work for those in dire need, the Commonwealth could proceed to do neces- sary work, effecting at the same time relief to the needy and 16 saving to the Commonwealth. I recommend that in your examination of all departmental appropriations you look over a five-year period. You may say that a five-year pro- gram is too short, and that a ten-year period is a better unit for planning. If you take that view, so much the better. Some may fear that the heads of departments might be en- couraged to present altogether too ambitious programs. On the contrary, if we can get into our public service a spirit of looking at our whole undertaking, and of understanding that the authorization of one project, or one building, may mean eventually the necessity of many more, I am confident we shall have taken a long step towards improved public management. SALE OF Excrss SUPPLIES. It has just come to my attention that recently one of the departments had on hand a considerable supply of articles no longer necessary. The articles were advertised, proper bids were received and the articles were sold at $2.12 each. And yet at the same time some of our State institutions were required to purchase the same articles of no better quality and to pay for them $4.50 each. The statement of such facts needs no comment. It is the sort of thing that could not be tolerated in a successful private business. I recommend that you require every department or institution to file with the Supervisor of Administration a schedule of all supplies it desires to purchase or sell; that wherever possible one department or institution purchase from another at a fair price; and that the Treasurer and Receiver-General be noti- fied, and that he make proper credits and charges to the departments. It might be provided that if there were any difficulty in fixing a fair price the Governor and Council should determine it. Each department or institution ought also to file with the Supervisor at regular periods statements of all property not in use but which is fit for salvage. JUSTICE TO WoMEN Since the last regular session of the Legislature the amend- ment to the Federal Constitution granting equal suffrage 17 to the women has been ratified and has become a part of the organic law of the land. The women of Massachusetts have shown a most commendable spirit in assuming their new responsibilities and discharging them with zeal. They have given abundant evidence of their desire to co-operate and support in all that will purify, strengthen and develop the life and welfare of the people. We should provide for their participation in government on equal terms with men. There still remain in our Massachusetts Constitution and laws provisions which may prevent such participation. I recommend that the Constitution and laws be amended to remove such provisions, and that Massachusetts take the last vital step in equality by removing every legal obstacle which prevents women from holding any elective public office within the gift of the people, and by freeing them from all inequalities. EDUCATION To a peculiar extent the economic as well as the political and social welfare of the Commonwealth depends upon education. While it has no deposits of precious ore, of coal or iron; while it has no vast fertile prairies and no boundless tracts of untouched timber; while, in fact, Massachusetts is not rich in a reserve of natural resources, yet it has been a part of the fundamental belief of our people that we can compete successfully with any other people, provided we maintain an aggressive program of education by means of which we may develop our human resources to the full. In the period of reconstruction through which the country as a whole is passing, the greatest care must be taken to pre- vent any retardation of our educational program in com- parison with that of other sections of the country. Through- out the land there is an awakened and widespread interest in the development of more efficient institutions of educa- tion. From the point of view of her material prosperity, as well as from the larger consideration of her duty in the development of American citizenship, Massachusetts must not sacrifice her educational leadership. The Special Commission on Teachers’ Salaries made a report in August last which merits your thorough study. 18 The compensation of the public employees of Massachusetts has been generally increased in the past two years, and in © practically all departments is now at least the equivalent of that paid to those in similar lines of private employment. But this is not true of teachers. I cannot bring myself to believe that teachers have received altogether just treat- ment. We cannot afford to deal other than justly with them. Teachers in our schools today are called upon to do for children some of the things which parents in other days were glad to accept as their own duty to do. Teachers in our schools have it within their power to instill in the hearts of children a love of America and American institutions which will never grow cold. It has seemed to me that many of our well-intentioned efforts to teach Americanism have failed, and more and more we must look to the children of parents of foreign birth as the instruments for breaking down family prejudice and distrust and winning respect and loyalty for America. We must reach them in the schools. The citizens of tomorrow are entitled to the best educational advantages we can give. In a system of good schools taught by competent teachers of character and devotion we have assurance that the Nation may have able and upright leaders — in the future. The salaries of teachers in the public schools must be increased sufficiently to attract into the teaching profession capable young men and women, to retain efficient teachers now in service, and, in the words of the commis- sion, “‘to enable all teachers to provide from salary earnings the necessaries of life, and savings and insurance against disability and old age, as well as to make those investments that result in continued growth in professional efficiency.” To that end I strongly recommend that the present mini- mum legal salary of $550 for teachers be materially raised. SUPREME JUDICIAL CouRT The Legislature of last year in its general program of revising salaries was liberal in most respects, and its work has made it unnecessary for us to go further this year. In the endeavor to compensate fairly the justices of the Su- preme Judicial Court a condition was imposed which I 19 approve upon general principles, but which, as applied to the men who have given long years of service upon the Supreme bench, has prevented them from receiving any additional salary. I urge you to examine again the provi- sions made for them, and make absolutely certain that we deal justly with those judges to whom we turn in the last resort for determination of justice. AGRICULTURE The industrial and commercial progress of Massachusetts depends in large measure upon the development of our agricultural resources. The recent advance in the freight rates on all commodities that enter New England puts upon us a new necessity of feeding ourselves and affords the Massachusetts farmers a new opportunity to farm with profit. Massachusetts for the purpose of self-preservation must do all in its power to place the great fundamental in- dustry of agriculture upon a basis which may compare favorably with the financial reward in other industries. The proportion of our population engaged in agriculture bears no relation to the importance of the industry. The real problem of farming merges into a greater problem, that of an adequate food supply for our whole population, furnished at a reasonable price to consumers. Massachusetts cannot furnish all its own food, but it can grow much more than at present. Doubtless the best way for the Commonwealth to help is to give proper support to the agencies already estab- lished. The reorganized Department of Agriculture should be given facilities for greater service to the farmers, who have given evidence of confidence in its work. Especially should encouragement be given to the Division of Markets that it may deal adequately with the complex but vital matters which concern the distribution of farm and food products. The Department of Agriculture should be au- _thorized to make a comprehensive study of the farm labor supply, and also the possibility of securing better market- ing and purchasing conditions for the farmers. I recom- mend consideration of some plan of extending sufficient credits to farmers both for land purchase and for making 20 and selling crops, and to aid in the acquisition of farms by persons who will operate them for economic benefit. The farmer who is willing to remain in rural districts and pro- duce from the soil deserves proper living conditions, good roads on which to carry his produce to market, and sufficient. educational opportunities for his children. All of us should be interested for our own welfare to aid in seeing that he gets them. I recommend adequate appropriations in order that the Agricultural College may be able to render the largest measure of service to those who seek education with the ambition that they may more efficiently and successfully carry on practical agriculture, and in order that the college through its experimental work may be of the greatest assist- ance to the farmers. Massachusetts can hardly afford to do other than maintain a first-class agricultural college for her sons and daughters. It is no less the duty of counties to give ample support to the farm bureaus and county schools, which may be of untold value in the solution of the vital farming problem. If we are to hold our present industrial and commercial standing we must develop our farming com- munities to supply the needs of our industrial and com- mercial population. SAFEGUARDING STATE FuNDS The Treasurer and Receiver-General is elected by the people. He is charged with grave responsibilities. In gen- eral he has the duty of caring for the funds of the Common- wealth. Laws have been enacted directing how he shall keep such funds and in what manner he may place those funds on deposit. At present the various departments are only required to deposit their funds with the Treasurer at least once a month, and consequently are carrying bank accounts which in the aggregate total a large sum of money. The law contemplates that the Treasurer shall be limited as to the amount of State funds which he may deposit in any one bank, and yet it has been found that in some instances where the Treasurer has deposited the legal limit in a bank, some other department has deposited additional State funds in that bank. Fortunately it does not appear that the Com- 2] monwealth has as yet suffered from such practice. I do not believe, however, that the practice should be continued. I believe that the Treasurer should retain the most complete control possible of all State funds, and that he should know just where all of the public funds are. I recommend that wherever possible every department be required to use the Treasurer as its depositing bank. I am advised that under such a method the Treasurer would have a larger cash balance throughout the month, which will help in putting off the time when it is necessary to borrow in anticipation of revenue, and he would thereby be enabled to effect a saving of thousands of dollars annually in interest charges. I am confident such a method commends itself as more in keeping with sound business principles. All recent issues of the Commonwealth’s bonds have been serial in form. Practically all of the earlier issues now out- standing were sinking fund bonds. The Commonwealth _has now sinking funds of over $48,000,000 for the retirement of such bonds. Under the present law the Treasurer is in practical control of these sinking funds, and all investments or changes in investments for such funds are made by him, although he receives the approval of the Governor and Council. The wisest management of such large funds seems to require more safeguarding.’ I recommend that authority be given to the Governor to appoint two citizens of recog- nized financial ability who shall serve without pay, who shall advise the Treasurer as to the management of the State sinking funds, and that the Governor and Council may not approve any request of the Treasurer for change in or addi- tion to such sinking funds unless such request be recom- mended by at least one of such advisers. This method gives promise of additional safeguarding of large public funds, and I am confident that public-spirited citizens would serve the Commonwealth in such capacity even as they have always been willing to serve as trustees of our institutions. I recommend that you put similar safeguards around the management of the various other trust funds now under the control of the Treasurer, such as the retirement funds and the Massachusetts school fund. 22 I also recommend that authority be given to the Governor to require the Treasurer at any time to furnish him with a list of the banks in which State funds are deposited, and gt: amounts of such deposits. In justice to the present Treasurer, who shows unusual zeal in the public service, I am happy to say these sugges- tions relative to his office are made largely as the result of his own recommendation to safeguard the ieee funds in every possible way. PROTECTION OF SMALL INVESTORS One of the most urgent problems now confronting the Commonwealth is the protection of small investors. Massa- chusetts owes her industrial strength to the thrift of her people. The savings of income become capital. With the great demand for new capital in Massachusetts for rail- roads, public utilities, home-building and industry, the workers must be encouraged and protected in their efforts to save. The most effective way to discourage thrift and to retard the accumulation of capital is to permit fraudulent pro- moters to rob the people of their savings. It is estimated that worthless or fraudulent securities amounting to at least $30,000,000 are sold annually in Massachusetts. Americanization work is greatly hindered by such frauds. The fraudulent promoters who destroy the faith of the workers in our economic institutions and in our laws sow the seeds of radicalism and anarchy. The Commonwealth must protect the industrial workers, particularly those who have recently come from foreign lands, from such exploita- tion; the Commonwealth must encourage thrift, to the end that capital, so essential to her industrial growth, may thereby be created. The Special Commission to Investi- gate the Sale of Corporate Securities has conducted an ex- haustive and careful survey of this great problem. Their report, submitted to you, will give the needed information of the legislation and experience, not only of the other States of the Union, but also of Europe. It will include a study of the present conditions in this Commonwealth, and 23 the fundamental consideration which must guide you in your task of effecting wise remedial legislation. Thus, fully advised as to what other States and countries have done and as to the situation which confronts us in Massachu- setts, you will be able to meet the responsibility which the great losses of our people from fraudulent promotions and exploitations have imposed. PREVENTION OF ACCIDENTS TO CHILDREN The rapidly increasing number of motor-vehicle accidents has become a matter of grave public concern. The motor vehicle has reached the stage where it is no longer merely a luxury. It has contributed immeasurably to our conven- lence and comfort. It has become a necessity. To regulate its use so that destruction of life and property shall be re- duced to a minimum is one of the problems to which I invite your most careful consideration. During the past year 189 children under sixteen years of age were killed on our streets in automobile accidents, and 2,100 children under that age were injured seriously, many of them maimed for life. In almost all of these cases the thoughtlessness and careless- ness of the children themselves contributed to the unfortu- nate result. Recently in New York City there was an ex- plosion in which some 20 people were killed and about 200 injured. For several days the papers in all parts of the country impressively related to the public the facts of the terrible occurrence; and yet the death of 189 of our chil- dren and serious injury to 2,100 others in one year almost escape general public notice. We must have the deepest concern for the grief, the sorrow and the suffering of the parents afflicted by these sad happenings. We are also con- cerned with the economic loss to the community incident to the death and injury of this large number of children in whom loving parents have invested years of care and sav- ings. .As a possible help in reducing the number of such accidents I suggest that every elementary school in the Commonwealth be asked to set aside fifteen minutes each week for the purpose of impressing upon the children the danger of the use of our streets and highways, and the 24 absolute need of caution in such use. I recommend that the Commissioner of Education be given authority and facilities for assembling facts and methods of presentation which shall be available for the use of the school teachers — of each city and town. Motror-VEHICLE PATROL Taken as a whole, the results of motor-vehicle accidents in Massachusetts in 1918 were 499 killed and 8,598 injured. In 1919, 582 persons were killed and 16,281 were injured. During the present year an intensive safety campaign has been waged, and while the number of persons killed was reduced to 477, nevertheless, the number of persons injured still further increased to 21,086. A careful analysis of the accidents indicates that by far the greater number of them resulted from causes that could have been avoided. We can have no sympathy with those who wilfully violate the laws regulating the opération of motor vehicles. While the police forces of the various cities and towns have done excellent work the past year in prosecuting vicious violators of motor- vehicle laws, it is practically impossible to apprehend the violators in many cases because few of the cities or towns have motor-cycle police. Moreover, police officials of one town cannot go beyond their own boundaries into other towns. I suggest for your consideration the establishment of a small motor-vehicle patrol of inspectors attached to the motor-vehicle division of the Public Works Department. The presence of such a force on the main highways would have a salutary effect, and those reckless operators who have no regard for the lives of other human beings might have some regard for their own personal liberty, and keep in mind the possibility of meeting an officer of the law the other side of a dangerous curve. Such a patrol would be of great assistance to those many towns through which main thoroughfares now pass, and which are not able to maintain police forces of their own. SHORTAGE OF CoAL AND HousiIna Coal is an absolute necessity in Massachusetts. The householder must have it in order to live, and the manu- facturer must have it as his main source of power. Both in anthracite and bituminous coal a shortage has existed for the past year, which speculators have turned to their ad- vantage. The price of coal to the citizens of Massachusetts has been exorbitant and unjust. Supply has been uncer- tain and business has been disrupted in the effort to obtain fuel for power, while the citizens have been driven to dis- traction in their endeavor to obtain the necessary household requirements. To complicate the fuel situation, our trans- portation difficulties, due to the breakdown of our railroads in New England, are further disturbed because of a lower rail than water freight rate. Before the war the water rates for coal were approximately 75 cents per ton less than rail rates. At present it costs about $1 per ton less by rail than by water, naturally throwing an additional burden on our depleted railroads. Foreign demand for bituminous coal has had a tremendous influence upon the price of coal in New England. Nearly all of the coal exported was taken — from the producing district upon which we depend, and to a large extent was shipped through a terminal which had been created to supply New England with bituminous coal. This resulted in a congestion at that terminal, and offered unlimited opportunities for adding to the expense of coal shipped here. We have had a hard struggle to obtain such coal as we received, and the Fuel Administrator has been of great help in presenting the absolute needs of Massachu- setts and in securing a measure of relief. Housing conditions have gone from bad to worse over a period of almost four years. This has been true over all the country, and in Massachusetts no less so. Searcity of houses mean's competition for quarters among those who can pay, and in consequence rentals have increased. We must be concerned with a situation that compels overcrowding in unsanitary quarters, with consequent increased infant mortality, the spread of tuberculosis and communicable 26 diseases, and a general development of moral laxity among those affected. A condition that threatens the lives of our people threatens the stability of our government. In such a situation the Legislature of last year attempted to pre- vent unjust increases of rents, recognizing the necessity of protecting the people against extortion and suffering. There has been criticism of that action on the part of tenants because sufficient relief was not. given, and on the part of — owners because they were prevented from getting a fair return upon their invested capital, and that, therefore, further building is discouraged. The difficulties presented. by the housing shortage are of a twofold character. There is - the urgent need of finding means to restore as speedily as possible the housing facilities of the Commonwealth to normal proportions. There is also the vital necessity of protecting the people until that end is accomplished. A committee of the United States Senate has been in- vestigating these questions, and has already made a pre- liminary report. As I look back over the great monuments. of constructive legislation in Massachusetts that have come as the result of intelligent and conscientious study by com- mittees of thé General Court, I am encouraged to believe that a similar study of the coal and housing and rent con- ditions would be of real and lasting benefit. Certainly the coal and housing conditions are among the most urgent of | all the problems which confront us. I therefore recommend that you authorize one of your standing committees or a special committee to study these questions and report to this session at the earliest date possible. There is available for use the investigations of the Fuel Administrator and the Commission on Necessaries of Life. I suggest that you direct such committee to report whether everything possible is being done to insure for our citizens an adequate supply of coal at a fair price, whether everything in the nature of extortionate rent cannot be effectively prohibited, and to devise if possible legislation which, fair alike to owner and tenant, may stimulate the resumption of building and re- store again in this Commonwealth normal housing con- ditions. 27 StaTE ContTROL oF ALL PENAL INSTITUTIONS A welcome decrease in the number of inmates of the prisons and jails of Massachusetts has been noted for years. Ten years ago the county prisons had a population of 3,583. On November 30, 1920, that population had decreased to 1,120. The net per capita cost for each inmate of State penal institutions for the year ending September 30, 1920, was $397.06, while for the same period the net per capita cost for each inmate of county penal institutions was $826.41. The various counties have established twenty-one different jails and houses of correction. Today at least seven of those institutions are empty or closed. Five other of those institutions had on November 30, 1920, less than 30 inmates each. The difference between the cell capacity of these institutions, 4,508, and the population, 1,120, in- dicates that many more of these institutions could be closed - to good advantage if there might be proper transfer of in- mates. It is needless to argue as to the possibility of great decrease in operating expenses that might be effected by a consolidation of these institutions, nor is it necessary to point out the opportunity under such consolidation of de- voting valuable property to other uses. A due regard of the true interest of the taxpayers would seem to demand that these institutions be consolidated under State control. It is further submitted that such a change.is dictated by other compelling reasons. The Commonwealth is the source of all law, and whoever offends against the law is an offender against the Commonwealth. The cases of all offenders are heard and determined before magistrates holding the commission of the Commonwealth and not the commission of any particular locality. In 1899 Governor Wolcott in advocating State control of all penal institutions sald: : The divided control of penal institutions, not justifiable on any easily comprehensible theory, results in practice, as might be expected, in lack of uniformity of discipline, diet and employment; in imperfect classifica- tion of the inmates as regards sex, age and degree of criminality and degradation; and in consequent unnecessary difficulty of reformatory treatment. 28 This matter was first advocated in the Declaration of Principles laid down by the American Prison Congress fifty years ago. It has been advocated at various times in Mas- sachusetts beginning with an interesting report by the com- mittee on prisons in 1873 contained in House Document No. 264 of that year. It was recommended by the special recess committee on institutions, which reported to the General Court of 1920. Some of the evident advantages which ought to accrue from State control of all penal in- stitutions are: _ 1. A consistent and comprehensive policy of treating penal subjects. 2. A greater possibility of classification of prisoners, resulting in more ~ helpful and scientific treatment. 3. Continued development of the camp idea, now halted because in- mates otherwise eligible for transfer must be retained in county institu- tions. 4. Improvement in the housing and living conditions of prisoners. 5. Employment of more men in productive industry, and consequent stimulation of habits of thrift and industry. 6. More economical administration through collective purchasing of supplies and utilization of farm products. 7. Securing to each convict wherever sentenced the benefits to which all should be entitled of physical and psychiatric examination, oppor- tunity for learning to read and write, and to have the benefit of voca- tional training, employment in industry, the services of a resident chaplain, and other advantages which cannot be supplied in a small institution. 8. Opportunity would be given for the establishment of a much-needed defective delinquent colony in one of the vacant institutions. 9. Aid to discharged prisoners, after-care and supervision of paroled prisoners, temporary relief of prisoners’ families, and the aid of other State departments which are not present in county administration. The principal objections which are made to any such change are based almost entirely upon the ground of con- venience to the various localities. County jails and houses of correction were established when communication was difficult. But today one may travel across the State and return in a day. Under a centralized control plan institu- tions would be maintained in different parts of the State, using some of the existing structures. Similar objections were raised twenty years ago when the Commonwealth took over the care of the insane in the State, and yet the 29 results under State control have been so beneficial and so vast an improvement over the old system that all our citi- zens join in willing testimony to their appreciation of the vision, the courage and the true humanity of those men of 1900 who dared depart from the custom of years. Therefore, in the interests of a better system of penology, in the interests of economy of administration, and in fulfill- ment of the promise of the platform upon which the great majority of you as well as myself were elected, I earnestly recommend that the jails and houses of correction, now maintained by fourteen separate counties with varying standards, be now consolidated under the direct control of the Commonwealth. SHort BALLoT As a member of the Legislature of 1911 I voted for the present direct primary law. I believed in the principle of direct nominations then. I do today. It must be admitted, however, that from time to time there has been much criticism against the result of the actual working of that system. It is not necessary to restate the criticisms. The objection which seems to have most weight arises because there are so many offices to be filled in a State-wide primary, and so many candidates seek those offices that it is ex- tremely difficult for even the careful voter to learn of the relative merits of the various candidates. The chief interest centers in the candidates for Governor and for Lieutenant Governor, and public discussion is confined largely to the candidates for those two offices except in the years when a candidate for United States Senator is nominated. The chief objection to the present system of direct nomination in Massachusetts would in my.judgment be removed by the adoption of the short ballot. Then, in alarger way the people have come to look upon the Governor as the head of the government, and there is a growing tendency to hold him responsible for the conduct of all the administrative depart- ments. If the Governor is in any sense to be held responsible for the conduct of the affairs of the departments of the State officials, — the Secretary, the Treasurer, the Auditor and the Attorney-General, — then he ought to have direction 30 over those officials. He ought to be allowed to call men into those positions who will work in harmony with him and who will adopt policies which bear his approval. The ob- jection may be raised that the Attorney-General is not alone the adviser of the Governor but of the Legislature as well, and that sometimes the Legislature might desire indepen- dent ‘advice, and that it ought not to be compelled to accept legal opinions from the Governor’s appointee. It should be remembered, however, that each branch of the Legislature has authority to require the opinion of the justices of the Supreme Judicial Court upon important questions of law, and upon solemn occasions. ‘To the end that the direct primary system may operate to the best advantage, and that the efficiency of-the State administration may be promoted, I recommend that the Constitution be amended so that the Governor be given the power to appoint the State officers — the Secretary of the Commonwealth, the Treasurer and Receiver-General, the Auditor and the Attorney-General — for the same term as his own. BRADFORD'S HISTORY Another edition of Governor Bradford’s History has been exhausted. In this year of anniversary of the landing of the Pilgrims I recommend that you authorize the re- printing of this story of our beginning, and that you provide for the gift of a copy to each high school in the State, in order that the young men and women who would know of the sacrifices and privations of those who laid firmly the foundations of our present institutions may have access to Bradford’s inspiring record. PREVENTIVE MEASURES Massachusetts expended last year $11,887,108 for the maintenance and improvement of the institutions con- ducted by the Departments of Mental Diseases, Corrections, Public Welfare and Public Health. This represents a large proportion of our public expenditures. Massachusetts has been a pioneer in the work of caring for the unfortunate and the afflicted, and is today doing much in this direction ol which has not been attempted by other States. The policy in this regard has met with the general approval of our citizens, and they insist not only upon a continuance of this work, but that the work be better done. Our citizens must recognize the immense cost of it all, and they must be pre- pared to pay for it. They must remember that some of this work has been made necessary because individuals are not doing the things for afflicted members of their own families which they did in former generations, and because parents are not exercising the same degree of control and correction of their own children that they did in earlier times. Our only hope of escape from this constantly increasing public expense lies in finding measures of preventing disease of the mind and of the body, and preventing the degradation of morals. We are now trying some preventive measures. We have done a great deal in checking the spread of tuber- culosis and to prevent the spread of other diseases. I recom- mend appropriations for further research in the endeavor to check the increase of the feeble-minded, and to reduce if possible the number who are sent to the correctional in- stitutions. MEMORIAL FOR THE UNKNOWN Dap IN WAR The splendid action of France and Great Britain in bury- ing the remains of an unknown hero of the French army in the Pantheon, and the remains of an unknown hero of the British forces in Westminster Abbey, has prompted the sug- gestion that Massachusetts pay similar tribute in honor of those devoted men who have enriched the name of the Com- monwealth by sacrifices which ended in unknown graves. Doubtless the Navy Department would gladly loan an American warship on which to bring from the fields of France the body of one of the unknown dead in battle for burial with all military honors in some worthy place here. It has been suggested that a grave on the lawn in front of the State House might be an appropriate place, —a grave marked with such monument as parents might erect for their own son. To such a shrine on Memorial Day and at other times mothers and fathers and other relatives of boys lost in 32 France might repair to do honor to the memory of their own, and at such a shrine all devoted citizens of the Common- wealth might pause and rejoice in a love that impels sons to © give their lives in the name of Massachusetts. We may visualize in part the mighty patriotic inspiration that would come to us in the performance of such an act of justice, and the comfort and satisfaction that would come to those of our citizens who have patiently suffered unspoken grief. I commend to your consideration the desirability of carrying ~ out such a form of tribute to the unknown dead. CONCLUSION Massachusetts has kept well in advance of most of the other States in the enactment of sound and humane legislation, © with a constant desire to improve the welfare of the people. In such an endeavor her true public servants will ever be glad to continue. In the year we are this day beginning we shall search diligently for methods of remedying injustice and of further promoting the happiness and well-being of all. However profound our admiration for Massachusetts in- stitutions and laws, no one would claim that they are perfect or that they are not susceptible of improvement. That State is fortunate whose government serves the people and whose people love and uphold their government. Our gov- ernment must serve the people, and the people will love and uphold it. But let us always remember, when we think of the degenerate, the feeble-minded, the evil-minded, the vicious, the selfish and the transgressors, that they constitute but a small part of the whole. Fortunately for us the great mass of our citizens are sturdy, strong, God-fearing, home- loving, industrious and courageous men and women. In an attempt to strengthen the weak, let us be careful not to break the spirit of the strong. No one can offer any sub- stitute for work, for thrift and industry, or for character and integrity. ‘To succeed, the individual must acquire these virtues for himself. No one can give them to him. Let us not, therefore, attempt the impossible in legislation. Men and women have come to Massachusetts from all parts of the world. Here they have made their homes, and 33 by their industry and by their consecration to the public good they have contributed to the upbuilding of our in- stitutions. They have only recently given abundant evi- dence of their readiness to defend their liberty and to up- hold their law. In their patriotic response to the call of their country during the war, in their contributions of sons and of treasure, they demonstrated that they were sound at the core and that their hearts were true. So with confidence we face the day which is dawning with the promise of new opportunities and new glory. We are just emerging from years of intense feeling, tre- mendous effort, and unusual sacrifice caused by a mighty conflict which has disturbed the thought and action of the world. The people of our Commonwealth, like the people of other States and Nations, while always ready to battle for justice and for the cause of humanity, are somewhat weary of the prolonged strain. They desire to return to the normal scope of daily action. They need an opportunity to store up physical and mental vigor that they may have a reserve, and be able the better to render a full measure of service if ever called upon again in some great public neces- sity. So in the spirit of the times let us turn our hearts and minds to fundamental things. Let us dare to follow in the footsteps of those quiet but sturdy builders of our Republic, whose deep faith in God guided them through the early years of a new Nation. Let us today renew our vows of honest public effort, to the end that the noblest purposes of the Pilgrim fathers may be achieved, and that here in Massa- chusetts wisdom and understanding shall dwell, and civil and religious liberty shall endure. 34 ANNUAL ADDRESS Delivered in the House of Representatives January 4, 1922 MEMBERS OF THE GENERAL Court: — For the first time since the adoption of a Constitution Massachusetts has passed through a year without holding a general election. The administrative officers and the members of the General Court who served last year are to continue. We are, never- theless, beginning a regular session of the General Court. Before turning to a discussion of matters which await your future action it is a pleasure to record a sense of deep appre- ciation for the unfailing kindly consideration and the spirit of co-operation for the public weal which was manifested during the last session. There was evidence of a desire to respond to clearly defined public sentiment, —a desire which I am confident will again find continuous expression in the months that he ahead. STATE FINANCES The results of the fiscal policy followed during the past year are most encouraging. In place of a deficit which we faced a year ago, the Auditor’s report shows a cash balance of more than six and one-half million dollars, while the State tax remained the same as in 1920. The great work of the Commonwealth has been carried on without curtailment of usefulness, but it has been done with actual economy and with a commendable endeavor to attain efficiency. Almost without exception the departments have lived within their appropriations, and, aided by lower commodity prices, have been able to finish the year with comfortable balances which now revert to the treasury. Great saving has been made possible by improved methods of doing the same work; for example, the Treasurer paid this year as interest on loans 35 in anticipation of taxes $8,334.47 as contrasted with $200,- 467.07 for the same purpose in 1920. This represents an actual saving of $192,132.60, and is wholly the result of the Treasurer’s new method of placing State deposits and of our new requirement that the departments deposit their funds with the Treasurer. During the year the netdirect debt of the Commonwealth has been reduced by $5,816,443, and leaves that debt at $29,311,796, the lowest figure since 1914 as was promised in my budget of last year. The con- tingent net debt, made up principally of loans to finance improvements in the metropolitan district, was decreased by more than $2,000,000. Therefore the total debt obliga- tions of the Commonwealth have been reduced by about $8,000,000 in a single year. To a large extent this favorable showing with reference to the State debt was made possible by your adherence to the “pay as you go” policy recom- mended in my budget of last year. If additional argument in favor of this policy be needed it will be found in my budget soon to be submitted which will show materially reduced interest requirements for 1922 as compared with £921. In the past few years it has been necessary to make tremendously large outlays. The payments of $10 per month to men in military service, authorized by chapter 211 of the General Acts of 1917, and payments of $100 each, as authorized by chapter 283 of the General Acts of 1919, amount to over $21,800,000. Payments for State and mili- tary aid on account of the World War have been to date $2,663,246. Payments for certain other activities directly . on account of Massachusetts’ share in the conduct of the World War bring the total sum to $26,575,000. These pay- ments have been well financed, and the total debt from loans made for these purposes is today only $4,638,722. TAXATION Taxes have been high due both to this record of war activities and to the inflation of prices and wages caused by the war. Of course the burden of Federal and local taxation is much more onerous than the comparatively small tax 36 levied by the Commonwealth. And yet the Common- wealth is charged with full responsibility for its share. Ex- cessive taxes seldom reach the intended victim. On the contrary, if all incentive for business men to risk their money in new ventures is removed, then general business becomes stagnant, with the result that working people are driven out of employment. The time has come when taxes must be reduced. The revenues of 1922 will in some instances be less than those of last year. This will be true, particularly with reference to corporation taxes. However, the condi- tions are such in business and industry today that the Com- monwealth is not warranted in levying again the special tax of three-quarters of 1 per cent on corporations which has been imposed for several years. The special revenues provided for meeting the cost of . payments in recognition of military service have, in some instances, exceeded the estimates to such an extent that it does not seem necessary to levy again this year the special tax of $660,000, and accordingly I recommend that section 5 of chapter 342 of the General Acts of 1919, requiring this special State tax, be repealed. Although the discontinu- ance of these two special taxes will reduce the state income it will represent a saving of about $4,000,000 to taxpayers. In preparing the budget of last year it was impossible to make a satisfactory downward revision to meet the de- flation then in process in the business world. The budget is made up almost entirely of items required under existing laws, and until those laws are revised, as urged last year, the Governor is legally bound to provide for the maintenance upon a creditable basis of the activities of government as already authorized. Nevertheless, the past year has demon- strated that economies can be effected, and with the surplus on hand today the budget soon to be presented will in the . absence of some emergency afford the opportunity for the reduction of the State tax. MounicrpaL TAXATION The existing high level of municipal expenditures and tax rates, while little understood because of its complexity, is 37 nevertheless a matter of prime concern to every citizen. It is a most important factor in checking community growth, discouraging industry, and depressing property values. The burdens imposed upon enterprise by local taxation are generally recognized but the means of relief is in doubt. I recommend that a special committee of your membership be created for the purpose of studying existing municipal taxation and of determining what, if any, remedies are possible through legislative enactment to afford relief. ADMINISTRATIVE REFORM In response to my inaugural recommendation, that you ascertain whether everything possible is being done to meet the spirit of the act passed in 1919, consolidating the de- partments and commissions, whether work is still being duplicated, and whether it is possible to transact the public business in a better way and at less expense, a special com- mission was created to investigate. That commission was composed of experienced members of the Senate and House and five especially qualified citizens of my appointment. The members have taken their work seriously, and have made an extended survey of our State administration and our method of transacting the public business. Through the splendid public spirit of its chairman the commission has enjoyed the services of experts associated with him in private business for which the Commonwealth would have otherwise been obliged to pay large sums. The report’ of - the commission now before you is in my judgment one of the most valuable contributions made to the Common- wealth in years. I urge that you give it your most earnest study, and that you adopt such of its recommendations as after careful consideration give sure promise of increased efficiency and true economy. It is not necessary to discuss the report in detail at this time, but in general it confirms my own observations in a long period of State service that among the most pressing needs of Massachusetts today are the cessation of duplication of work and overlapping of functions, the adoption of a better method of accounting, the establishment of a centralized State purchasing agency, 38 and a greater degree of administrative control and responsi- bility. In its welfare work, in its care of the unfortunate and the sick of body and mind, and in its endeavor to reduce human wastage, Massachusetts has made an enviable record. The progress made in this direction must be con- tinued. In such endeavor the benefits cannot be measured in dollars and cents. The return is to be found in the satis- faction of relieving suffering and in the development and protection of strong men and women. We must never stop to balance dollars against the chance of relieving misery. The Commonwealth might well, however, increase its charges for certain special activities which benefit only par- ticular individuals and corporations, so that their cost may be fully paid by the benefited parties and not from general taxation. There will be ample justification of this legisla- tive session if as a result of its deliberations the people of Massachusetts may enjoy improved service and at the same time be relieved of unnecessary expense. The adop- tion of the principal recommendations of the special com- ' mission will make such a result possible. EDUCATION The people of Massachusetts have always recognized the basic and essential importance of education. Upon its healthy condition rests, in large measure, the hope of the continued welfare of the Commonwealth. It is gratifying, therefore, to be able to record the recent progress that has been made in the field of public education. Legislation enacted at recent sessions of the General Court has increased the funds available for the support of schools; has tended to equalize the cost of education; and has resulted in more adequate compensation for teachers. Provision has also been made for raising the standards of teacher-training and for improving the professional status of the teacher. By fixing in the child labor laws a sixth-grade qualifica- tion for leaving school, and by establishing continuation schools, wider educational opportunity has been opened to many thousands of our youth. Much legislation designed 39 to produce educational improvement in other directions is also to be found in the record of recent sessions of the Gen- eral Court. Among the practical and beneficial results of the active interest of the people in education and of the legislation that has been enacted are to be noted the increase in the average salary of our teachers from $744 in 1910 to $1,486 in 1920; the turning of larger numbers of students to the normal schools, there being an increase of 436 for this year over last; the enrolment of 32,500 minors in continuation schools in 1921 as compared with 8,000 in 1920; instruction in the English language during the past year of over 20,000 adults; and an enrolment of more than 30,000 adults for class and correspondence instruction through University Extension. Because of the important character and the quantity of recent legislation affecting education, I believe that oppor- tunity should be given for the adjustment and assimilation in practice of the laws in force at present. AGRICULTURE A new hope and a new courage on the part of our farmers has been noted this past year. The educational work of the agricultural college and the helpful activities of the State Department of Agriculture have had a noticeable effect upon the progress of our farming industry. Those engaged in the commercial and manufacturing business of the Com- monwealth are increasing their interest in the farmers with greater realization of the mutual advantage to be gained. The business of farming is bound to increase in the Com- monwealth. There are many acres of rich untilled lands yet to be brought under the plow. There are many other acres which are wet and need to be drained or otherwise improved to be made fully useful. The developments of dairying and of such Mr ecralties as the raising of apples, cranberries, market-garden crops, onions, small fruits, tobacco, and poultry seem to offer possi- bilities of much greater expansion. The State apple packing and grading law has been of invaluable help to apple growers. Selected apples of high 40 quality in attractive packages are giving Massachusetts apples an enviable reputation over the entire eastern sec- tion of the country. In fact, apples from Massachusetts are shipped as far west as Detroit. I recommend an investi- gation of onion and tobacco grades to facilitate the handling and marketing of these crops. At present much unnecessary waste occurs because the crop is not sufficiently graded by the producer, who is thereby unable to obtain credit upon warehouse receipts because the grades are not sufficiently standardized to permit this. An investigation is necessary to determine what these grades should be. The State marketing officials in the Department of Agri- culture are keenly aware of the interest of all those who are concerned with the movement of food products from the producers to the ultimate consumer. Their service is being organized to meet the requirements of producers and con- sumers alike. The daily wholesale and weekly retail market reports issued in Boston, Worcester, and Springfield have been of assistance to growers, market men, and consumers. The cost of distributing our foods as well as the sources of their supply are réceiving careful attention and study. The new State constabulary is already useful in protecting property in the rural districts. They also police the agricul- tural fairs and other gatherings which are removed from urban police protection. The agricultural fairs are recovering from their setback due to the war, and have begun to attract great interest again. These afford not only an opportunity for the display of farm handicraft, but a gathering place for the exchange of thought and experience in country affairs. It should be remembered that farmers are not able to get together.as often as those who live in cities, because of the distance necessary to travel. JI recommend the encouragement of these fairs, particularly the exhibits of the labor and achieve- ments of the boys and girls. There are over twenty thou- sand such boys and girls pursuing organized agricultural club work in the Commonwealth at the present time. The tide is turning on the part of those who are agricul- turally minded from the West back to the East. Many 41 farms in the Commonwealth have been sold to such persons during the past year. This is a movement which the State Department of Agriculture is encouraging and in which it should be supported. Civilization in all countries and at all times has thrived best where a proper equilibrium has been maintained between city and country. State DrIrReEcTION OF ALL PENAL INSTITUTIONS » One year ago I recommended legislation looking toward the unified control of county penal institutions. Since that time a special committee of the General Court has thoroughly investigated this subject, visiting all the State and county penal institutions. That committee has recommended a bill which does not deprive the counties of their property and which does not insure “State control’ of the county penal institutions, but which, nevertheless, will go. far toward securing the benefits which would come from State control. I earnestly urge the enactment of this or some other appropriate legislation which will make possible the co-operative and uniform management and care of those committed to the various houses of correction. There may be some difference of opinion as to the proper agency to care for persons awaiting trial. There can be no doubt, however, that persons convicted of a breach of the law of this Commonwealth should be cared for under a system devised and directed by the Commonwealth. This principle is being repeatedly urged by the American Prison Association and by all penologists of note throughout the country. The whole-hearted and enthusiastic support being given this movement by disinterested bodies of citizens testifies to the public demand for a more economical and efficient system. The principal defects in the present disintegrated penal system are a 1. Lack of steady and productive employment. . Lack of vocational training. . Limited educational facilities. . No psychiatric examination. . Inadequate outdoor exercise. | Or & OO 2% 42 6. Lack of uniformity in diet and discipline. 7. Insufficient information as to case histories. ° 8. No proper system of parole and after-care of paroled prisoners. 9. Lack of a concerted and co-operative policy with regard to transfers and classification. All of these defects should be removed and a comprehen- sive prison policy evolved under the proposed legislation. Such a move cannot be considered an attack upon county government, as our fundamental law recognizes the existence of the counties, and they cannot be abolished except by constitutional amendment. Many of the objections origi- nally raised against State control cannot be made against the proposed legislation. Under the proposed scheme of adminis- tration those in charge of county institutions may preserve all that is good in their systems and work in co-operation with the State Department of Correction for the benefit of the unfortunates in the houses of correction and at a con- siderably decreased cost to our taxpayers. In spite of the fact that the advantages of improved penological treatment are provided in State institutions, and few if any of these are provided in county institutions, the net per capita cost of maintaining a prisoner in a county institution is still 60 per cent higher than the cost of maintaining a prisoner in a State institution. Notwithstanding the fact that an investigation has been In progress, no considerable improvement has been noted in the conduct of the houses of correction. Idleness still pre- vails; no productive industry has been established; and out-of-date penological methods are employed in many of them. Such powers as the Department of Correction has. vested in it by statute have been nullified through lack of co-operation by those in charge of the county institutions. Although there is contention to the contrary, no sufficient power exists in the Department of Correction to secure for the county institutions a proper measure of unified control. The control of all finances is still in the hands of the county commissioners, and without financial provision no extended improvement can be made. The power of transfer exists on 43 paper, but the exercise of this power without knowledge of the inmates to be transferred would not be productive of wise Classification, and unless institutions adapted for classi- fied treatment are provided, there would be no virtue in making the transfers. The power to make rules, which now exists, carries with it no provisions for the enforcement of the same. The joint control over the prison industries by the sheriffs and the Department of Correction is such that the consent of both agencies is necessary in order to make im- provements, and has been unproductive of progress in these lines. I sincerely hope that this session will enact legislation which will enable those in charge of State and county insti- tutions to go forward together in a co-operative manner, each being of assistance to the other, in an effort to secure for the people of Massachusetts an efficient and humane administration of all its penal institutions. UNEMPLOYMENT Owing to unusual conditions in business and industry, with the consequent result that an abnormal number were unemployed, on September 28 I asked a large number of representative men and women to serve on a Massachusetts committee to promote work. That general committee has formed sub-committees and a survey of the unemployment situation has been made. The committee has conferred with the mayors of the various cities and has studied val- uable data furnished by the Department of Labor and Industries. As a result of the recommendations of the conference on unemployment called by President Harding the Massachusetts committee has endeavored to aid in the organization and functioning of local unemployment com- mittees. Not only have municipal conditions been sur- veyed, but also the conditions in individual manufacturing concerns have been analyzed and Chambers of Commerce and Boards of Trade have been urged to take action. The figures available represent a distinct improvement since December, 1920, when the peak of unemployment was reached. However, we must stand ready to give aid during 44 the next few months in every proper way. Already public work has been stimulated, and in our State departments, where buildings and improvements have been authorized, it has been found an advantageous time to proceed with such work as rapidly as possible. The Public Works Depart- ment, in anticipation of the present situation, is ready to begin highway construction as soon as the season will per- mit. Therefore I recommend that you give immediate consideration to such new projects of public works and new buildings as are needed, and that work on them be started at the earliest possible moment. Last year I urged that in your examination of departmental appropriations you look over a five-year period. Asa result of that policy adopted in part it has been possible to hasten some needed public work. Again I urge the continuance and extension of that policy, especially so far as public works and buildings are con- cerned. A considerable proportion of the State’s construc- tion work can be done when conditions are most favorable, which is generally during periods of industrial depression, with low costs of material and plentiful labor. The result of such a policy will mean not only eventual saving to the Commonwealth, but prove of great practical value in other ways. The total amount of construction done by the Com- monwealth is small in comparison with that done by cities and towns. If the latter, however, following the example of the Commonwealth, would adopt such a policy of making in advance comprehensive plans to meet the requirements for a series of years, then in the event of a recurrence of excessive unemployment there would be at hand a practical and economical means of relieving distress.) The Massa- chusetts committee to promote work will continue its service, and its organization will be available for meeting new re- quirements of the unemployment situation. PREVENTION OF MENTAL DISEASES The Commonwealth has recognized its responsibility for the care and treatment of those suffering from mental dis- eases and defect, and in the State hospital system has pro- vided facilities for the treatment of these cases. In most 45 instances, however, only those patients receive treatment who have well-established and rather serious mental symp- toms. The majority of those patients are committed to the hospital, and the number who go on a voluntary basis, because they realize the necessity of treatment, is not large. The great sums expended by the Commonwealth for the maintenance of these institutions emphasizes the fact that much is to be done in the field of practical mental hygiene to stop the increasing numbers for whom institutional care must otherwise be provided. It is an accepted fact that approximately one-half of all patients admitted to our State institutions are suffering from mental disorders that could have been prevented. Our efforts must be continued to overcome a hesitation to use our State hospitals, — a hesi- tation due in part to ignorance and in part to the continuing effect of old tradition. Every effort must be made to bring treatment to bear upon the early stages of mental disorder, through a continued campaign of education and in trying to promote the best possible conditions in childhood for those who are handicapped either by mental defect or by nervous instability which may later lead to nervous and mental disorders. The Commonwealth has recognized the impor- tance of a practical mental hygiene program, and has pro- vided much legislation to make effective such a program. The State’s program for the feeble-minded embraces the following factors: . Identification. . Registration. . Education. Supervision. Segregation. Or HB 089 tO The establishment of school clinics, — the Department of Mental Diseases co-operating with the Department of Education, — whereby school children three or more years backward are examined, represents an _ extraordinary achievement, there being no known similar provision any- where else in the world, These clinics have been made constructive from the start, the purpose of the examination 46 being not to discredit the backward child in any way, but rather to ascertain exactly what school progress he is mak- ing; to insure that he is not worked beyond his capacity, and that not too much is expected of him; and so far as possible to ascertain any special reasons for his lack of development. Approximately 3,000 children have been examined since the organization of the clinics in the spring of 1921. The cordial co-operation with which this work has been received is noticeable; both the parents and the school authorities are using results of the examinations to do more for the children than has ever been done before. As a result of this work specially unstable children may receive adequate supervision and care. The continuing census of the feeble-minded, which the Department of Mental Diseases has under way, has far- reaching possibilities; the regular checking up of the lists will show those defectives who are not capable of com- munity life and also those of the hereditary grade who are likely to propagate their kind and who need institutional segregation. It will also show the well-developed defectives who are conducting themselves properly and who can safely be trusted in the community. There are now large numbers of feeble-minded patients of our schools for the feeble-minded living in the community under slight supervision, practically all behaving themselves and the majority supporting themselves. Recent legislation — - provides definitely for community supervision of the feeble- minded, and with provisions for the necessary machinery to carry on this work a much larger number can be cared for in the community, and room made available for those requiring, temporarily at least, institutional care. The schools for the feeble-minded should, in the future, function very largely in giving a period of training to large numbers and then return this group to the community to earn their own living. It is.interesting to note that a group of 93 from one of our schools for the feeble-minded were supervised in the community last year and earned, collectively, $102,000. There is great need for extension of this principle of com- 47 munity supervision as far as possible instead of expensive institutional support and the large expenditures for the construction of buildings (new construction costs approxi- mately $1,500 per bed; annual maintenance, at least $300 per patient). The importance of the feeble-minded problem now warrants the recommendation that there be created with the Department of Mental Diseases a Division for the Feeble-minded. The State hospital system conducts well-organized out- patient clinics. This work should be continued and en- couraged. A practical program in mental hygiene looks forward to co-operating with the.courts in the examination of any one where there is the least suspicion of mental disease or mental defect. This should be encouraged, to the end that all courts having to do with juvenile delin- quency could be furnished with a psychiatric report. The Psychopathic Hospital provides a unit of the general hospital type for the reception of early cases of mental disorder. There is a very noticeable tendency to make use of such small units by individuals who, either themselves or their relatives, are unwilling otherwise to use the State hospital. To take advantage of this principle there is legis- lation available for the organization of small psychopathic hospital units. | Massachusetts has gone far in providing care and treat- ment of the insane and mentally defective. The work is being well done today and large appropriations are neces- sary for its continuance. The only escape from constantly increasing expense lies in the adoption of more preventive measures. I urge the continuance of the support given last year to a program of prevention to offset the growing and increasing demands for institutions to care for those whose mental disorders could have been prevented, and to the development of all means to care for the individual, espe- cially the feeble-minded, in the community under super- vision rather than the more expensive plan of establishing new hospital facilities. 48 Banks AND TRUST COMPANIES After recent experience it is a satisfaction to be able to report that in the judgment of the Commissioner of Banks the banking conditions in Massachusetts are fundamentally - sound. The disclosures of the last year and one-half in- volved only a very few of the six hundred and seventy banks, as defined by the statutes, under the supervision of the Commissioner of Banks. Nearly all the banks are ably and honorably managed, but the few which have been closed have brought suffering to thousands of innocent depositors, and inconvenience and loss to many others. The punish- ment of those who have violated the banking laws should be severe, and if the present laws do not provide for such punishment legislation should be enacted forthwith to correct this condition. The Commissioner of Banks should be given an appropriation sufficiently large to enable him to engage and retain the services of competent examiners and other assistants. If the Commonwealth is to main- tain a banking department the people have a right to ex- pect that the banks will be examined often enough and with such thoroughness and efficiency as to give assurance that all banks are sound. It should be remembered, of — course, that the human equation will always exist, and just so long there will be an occasional failure. It is to be hoped, however, that any such experience as we have passed through lately will not occur again. Recognizing the seriousness of conditions and the im- portance of preventing their recurrence a commission was appointed last year to revise present banking laws. I in- vite your careful attention to the recommendations of that commission for the correction of existing evils. It is to be regretted that the Commonwealth had large amounts on deposit in some of the closed banks.