III

MESSAGES TO THE LEGISLATURE

Regular Session — Convened January 1; Adjourned April 19

Extraordinary Session Convened June 16, at 8.30 P. M.; Adjourned at 12 o'clock Midnight on Same Date

ANNUAL MESSAGE

STATE OF NEW YORK-EXECUTIVE CHAMBER

To the Legislature:

Albany, January 1, 1919

With the Christmas hymn, "Peace on Earth to Men of Good Will", still ringing in our ears, we begin the new year full of thanksgiving to Divine Providence for the safe return of our soldiers, our sailors and all our citizens who offered themselves that the principles upon which the great Republic was founded might endure.

Our hearts go out to the afflicted families who have but the memory of their loved ones, and the sad sight of the returning sick and wounded puts the pang of sorrow in our hearts. Let us, nevertheless, greet the dawn of peace as meaning the end of the black night of conflict that has convulsed practically every civilized nation in the world. The new era that is coming in the United States puts the duty upon our State of blazing the way in the conception of readjustment. The old order of things that means standing by and meeting the situation when it presents itself must at once give place to a policy of initiation, broadness of vision, and foresight, that will not only hold the position that we have inherited in the country's affairs, but will provide for the successful solution of every condition that can arise.

The men and women of our State have done their full share. Let us not be content with what we have accomplished, rather let us prepare to build for the future of our national life. Our State has been called upon to make heavy sacrifices and to meet an extraordinary upheaval in living and working conditions. In the wake of war there is much that needs readjustment, and ours is an opportunity for the upbuilding of the service of the State to the people on permanently progressive lines.

I have full confidence in the splendid resources and possibilites of this great State and Nation, and in the soundness and virility of

our people. I firmly believe that if, with faith in the future, we devote ourselves wholeheartedly to the normal pursuits of peace, dealing justly with one another in a spirit of mutual helpfulness and forbearance, the period of reconstruction will be one of prosperity for our people.

RECONSTRUCTION

The problems of reconstruction that will confront us may be divided into two classes:

First, those of a temporary nature, which call for immediate measures of relief, such as the care of the heroic injured, the impoverished family and the orphaned child. They are certainly entitled to the care and protection of the State. Likewise, the question of unemployment as a result of readjustment, cries to us for an immediate remedy.

Among the temporary tasks of reconstruction which confront us, not one is more important than extending help to returning soldiers. Many of these will want to go to the farm where they can live wholesome, satisfying, lives in the open country. Naturally a large part of those who seek this field are already fitted for that life. All the allied countries except the United States have made generous provision for helping soldiers to become established in the country under congenial conditions. This country can do no less.

The Secretary of the Interior has submitted to the country a carefully prepared plan of co-operation between the Federal government and the states for creating soldier settlements in every state that wishes to participate. It is becoming more and more apparent that the ability and the experience of our agricultural leaders should be mobilized to create a planned rural development which will include co-operative organization for buying and selling, a system of credit that will give broader opportunities for men of small capital to become farm owners, and a better social life.

The soldier settlements proposed by Secretary Lane aim to bring into operation all of these agencies for rural progress. I am informed there are thousands of unused, but really good farms available in all sections of the state; and these farms can be obtained under proper arrangement for those who want to secure them. The present machinery of the state will readily take care of this need.

The co-operation of New York with the Federal government would show our appreciation of the sacrifices of the soldiers, enlist the services of some of our ablest agricultural leaders in constructive planning and be a demonstration of enduring value to the State. While this matter will receive the attention of the commission hereafter spoken of in this message, I deem it of sufficient importance to mention it specifically to your honorable body to-day.

The second class would be permanent problems of reconstruction which will give to our people a full realization of democracy at home, the ideal for which they fought so valiantly to secure for all the world.

In the second group there comes to my mind problems pressing for solution as follows:

The enactment of measures of taxation which will bear equally upon all classes of our people.

Provision must be made for the production and distribution of the necessaries of life so that the people may obtain them at the lowest cost.

We must enact more stringent and more universal laws for the protection of the health, comfort, welfare and efficiency of our people. The problems of finance and banking, as well as the questions of sanitation, unemployment, labor, the position of women in industry, education and military training, need solution as peace measures.

The readjustment of costs, production and distribution of food stuffs and fuel, wages and employment alone, present very large problems.

RECONSTRUCTION COMMISSION

As an effective means of assistance in the solution of these problems, I shall immediately appoint a Reconstruction Commission. That we may be well advised as to the best means of meeting these problems, I propose to call to my aid men and women of the State who, willing to give their time and service during the war, will, I am quite sure, be equally willing to aid the State in this period of reconstruction and readjustment. This commission can call to its aid advisory councils throughout the State. To their aid I shall summon the universities of the State with their expert staffs, the State departments and the voluntary social and civil organizations with their special knowledge of particular problems. In this way we will be able to co-ordinate the functioning of the State departments on these important problems and be advised as to legislation necessary for their solution. In appointing the commission, I shall recommend specific matters to their attention, and from time to time I shall recommend to your honorable body such matters as they deem proper subjects for legislation.

During this period of reconstruction we must not forget that New York State is now the commercial center of the world, and that the great business interests of this State have made their sacrifices because of war. Irresponsible and wanton attacks on business are a blow to capital and labor alike. The prosperity of the working man depends in large part upon the prosperity of the employer. In framing laws and in administering government, it is therefore of prime importance that legitimate business should be safeguarded, promoted and encouraged, to the end that we maintain our financial, commercial and industrial supremacy.

EDUCATION

The industrial efficiency, the economic soundness, and the civic righteousness of the State, very largely depend upon our educational system. Ignorance is the greatest ally of poor citizenship. It should be our objective that no person in this State who can be brought under our influence should be without the ability to read and write, or without a clear conception of our American institutions and ideals. The youth, the future citizen of the State, is a God-given resource which should be conserved with all of our energy. The fundamental law itself places the duty on the Legislature to provide for the maintenance and support of a system of free common schools. The most vital force in the schoolroom is the teacher. The highest standard of qualifications consistent with prevailing economic and financial conditions should be insisted upon. The efficiency of the school cannot rise above the standard of qualifications set for the teaching service. To bring this about the teachers should be adequately paid and fairly pensioned.

I strongly recommend that whatever curtailment may be necessary elsewhere, full and adequate provision be made for the education and training of our children.

PUBLIC SERVICE COMMISSIONS

There is widespread dissatisfaction, particularly in New York City, with the Public Service Commissions.

In the First District, a radical change should be made in the structure of the Commission itself if it is to accomplish results. At the time of its formation in 1907, there was expressed grave doubt as to whether or not it would work out well. There were many who believed that the function of constructing rapid transit railroads for the City of New York should be divorced from the function of regulating public utility corporations generally. In my opinion experience has demonstrated that they were right.

For years the trend in New York City as well as in the State, has been towards single-headed commissions, to the end that the responsibility may be fixed upon one man. During the recent war the Federal government taught us the lesson that results can best be obtained by a single executive clothed with proper power when any great work is to be carried out successfully. What we do in time of trouble is brought about by the very best judgment we can exercise. Why is it not sound in time of peace? It is my belief that the subway rapid transit system of the City of New York can be built better and quicker, under the direction of a Rapid Transit Commissioner whose entire time, brains and energy would be devoted to the completion of the subway system. The regulatory functions of the Commission in the First District also might be performed by a single Public Service Commissioner. Not only will

this result in an economy of administration but it will be productive of results. The argument has been made that a separation of the functions of the Commission might interfere with the work. This I do not believe to be the fact.

I therefore recommend that legislation be enacted to bring about this change, and I make this recommendation after years of observation.

Upon the same principle outlined above, I also believe that the affairs of the Public Service Commission in the Second District will be more economically and more efficiently managed by a singleheaded commission, and I recommend that legislation be enacted to bring this about.

I further call your attention to the weakness of the law itself in not giving to the commissions sufficient power to enforce their orders. These weak spots history has taught us seem to have been inserted for the benefit of the corporations to be regulated. Without enumerating them in detail in this message, I would refer you to that part of the Report of the Joint Legislative Committee, appointed to investigate the Public Service Commissions, transmitted to the Legislature March 10, 1915, and I ask you to enact such legislation as will remedy these defects and strengthen the arm of the commissions that they may more effectively carry out the function for which they were organized.

PROHIBITION BY FEDERAL AMENDMENT

I ask your careful consideration of the pending amendment to the Federal Constitution providing for national prohibition. It is not my intention to review the arguments that have been advanced in favor of, or against the Prohibition Amendment. The question to my mind is whether or not the people of this State are ready to surrender their inherent right to legislate upon this question. Are the people of the State prepared to forfeit any part of their police power? Are they reconciled to the policy of incorporating in the Federal Constitution a rigid restriction upon their personal liberty? I believe it is our duty to ascertain their will directly upon this subject. I believe we should consult them, and to that end, I recommend to your honorable body that legislation be enacted submitting the question to a popular referendum in order that its determination might represent the expression of the will of the majority.

MUNICIPAL OWNERSHIP

Recent years have been marked by a great opening of the popular mind to the true scope of enlightened municipal administration. There is everywhere a recognition that it is only through the application of progressive conceptions of public duty that life can be made tolerable in our teeming cities with their unprecedented growth in population, and the consequent living conditions. From every