suitable home for their reception. The need of such an institution is so manifest that its establishment could not fail to receive popular approval.

GEOLOGICAL SURVEY.

I invite special attention to the report of the State Board of Geological Survey, now laid before the legislature for the first time in twelve years. It contains matter of public interest which cannot here be discussed in detail, but if you care to learn what has become of an annual appropriation of eight thousand dollars, continued through twenty years, from which few of our people have received any benefit, the information is there furnished. I trust the recommendations therein made will meet your approval, especially that relating to the Commissioner of Mineral Statistics, whose duties could better be performed by the state geologist or one of his assistants. The geology of our state is of large interest to our citizens, and the subject, as it now stands, calls for heroic treatment. The survey should either be abandoned, or provision made for its early completion.

WORLD'S COLUMBIAN EXPOSITION.

The board of World's Fair managers have drawn but $40,000 of the $100,000 appropriated. The State building is nearly completed and is in every way creditable. The work is so far advanced that the board are confident our State exhibit will be full and satisfactory, and I believe the sum appropriated is sufficient to cover the necessary expense.

GOOD ROADS.

At the late special session of the legislature I was authorized to appoint a commission who should report a plan of legislation looking to the improvement of our highways. I submit herewith the report of the commission. In their opinion no valid legislation can be enacted, under our present constitution, which will meet the requirements of modern road-making, and you will be asked to submit to the people at the next election an amendment to the constitution, which, if adopted, will enable the legislature to put in operation a general system of road improvement. The importance of this subject is attracting attention in every part of our country. Conventions are held, societies organized, and public sentiment aroused to the necessity for better roads. It is admitted on all hands that our present system, or lack of system, involves a waste of time, labor, and money, without permanent benefit, and no other question of internal policy demands greater attention at your hands.

STATE TROOPS.

Michigan has reason to be proud of the character, discipline, and efficiency of her state militia. Their conduct in camp, their improvement in military knowledge, and their soldierly qualities insure prompt and efficient service in case of lawlessness or domestic violence. I fully concur in the recommendations of the Adjutant General, to which I invite your attention.

RAILROADS.

The Commissioner of Railroads submits an exhaustive report containing much valuable information. He points out certain defects in our leg

islation on this important subject and makes several practical recommendations which deserve serious consideration.

SUPREME COURT.

The necessity for some form of relief for the Supreme Court becomes more apparent each year. So many cases are heard that it is impossible to give them proper consideration without a delay which is detrimental to the interests of those whose rights are involved. Several plans for relief are suggested by the members of the court and the bar, and some early action is desirable.

LIVE STOCK SANITARY COMMISSION.

The Live Stock Sanitary Commission report a healthy condition of stock throughout the state, and no serious epidemic or contagious disease has prevailed. Such diseases are always found to some extent, but by prompt attention and the slaughter of infected animals the commission have held them in check. The interest involved is large and the commission is doing good work at very small cost to the state.

BUILDING AND LOAN ASSOCIATIONS.

Within a few years a large number of building and loan associations have been organized and are operating in this state. More than one hundred Michigan associations, and many organized in other states are now doing business here, and their agents are diligently canvassing every section of the state. People of all classes are induced to subscribe for stock, and make small payments from time to time under an agreement that they shall be entitled to draw out a certain sum at the expiration of a fixed period. The terms offered are so advantageous that they are accepted by thousands of people. The subscribers have no means of knowing that the associations will be able to meet their obligations when the time comes, and the business has assumed such large proportions that stockholders should be protected by having the business placed under competent state supervision, so that the financial condition of these associations may be known by those who are asked to invest in them. Associations doing legitimate business would have no cause to complain of such supervision, and the people should be informed as to their responsibility.

LEGISLATIVE SESSIONS.

The length of recent sessions of the legislature affords just cause for complaint, and public opinion demands a reform in this respect. The legislatures of 1887, 1889 and 1891, were each in session about six months. Such lengthy sessions are not necessary, and it is in the power of any legislature to shorten them without diminishing the amount of work accomplished. There are two principal causes of the evil. One is the existing method of dealing with municipal charters, which consumes a large portion of every session in the consideration of separate bills. If our cities and villages were classified according to population, and a general charter enacted for each class, which all desiring to incorporate must accept, a great saving in labor and time would be accomplished.

The other principal cause of lengthy sessions is the practice by the

members of accepting free passes. If they were obliged to pay their own traveling expenses most members would remain at the capitol and attend to their duties, but with free transportation experience has shown that they will vote to adjourn from Friday night to Monday night, and the result is only four working days in the week. That the points mentioned are the principal causes of our long sessions is known and a Imitted by all who are familiar with the subject, but, as yet, no legislature has contained enough diligent and unselfish members to apply the obvious remedies. The legislature which shall enact general laws for the incorporation of cities and villages, and shall do away with the evils of the free pass system, will earn the lasting gratitude of the people.

EDWIN B. WINANS.

The following is the report of the Highway Commission submitted by ex-Governor Winans with his message:

To the Legislature of Michigan:

The undersigned, commissioners appointed by the Governor under the joint resolution of the 6th of August, 1892, to report to the next session of the Legislature, a plan of legislation looking to the improvement of the highways of this State, and to report as to the practicability of using convict labor in connection with such improvement, beg leave respectfully to report:

The reference embraces two subjects, both of which have received the careful consideration of the commission. In regard to the first subject, the commission is satisfied that no changes can be made by the Legisla ture, under the present constitution relating to highways, which would afford the ample and substantial improvement which the welfare of the State demands. The Supreme Court have construed the constitutional provisions relating to townships and township officers in such manner as to forbid any legislative action looking to a substantial improvement of the roads which shall be greater in extent than the limits of a single township. The State is forbidden to enter into any system of internal improvement, and we are, therefore, of opinion that no ample and complete improvement can be had without an amendment to the constitution. We have not, therefore, formulated a bill to be presented to the Legislature, as we do not think it wise to consider the details until the general principles shall first have been established. We have prepared, and submit herewith, a suggested amendment to the constitution, the terms of which indicate the views of the commission. We earnestly recommend to the Legislature that an amendment to the constitution, substantially in line with the one suggested, be submitted to the people of this State, to be be voted upon at the next April election. If the Legislature shall submit such an amendment, and if the people shall approve it, it will take effect as soon as it be officially declared to be adopted. We may fairly presume that the Legislative session will continue long enough beyond the April election so that a bill way be constitutionally passed after such amendment. We assume that no objection could be urged to a bill introduced during the first fifty days of the session, which should lie in the hands of the committee until the question of the adoption of the amendment to the constitution should be determined. Such bill should be prepared by this commission, should the Legislature desire, or by the proper Legislative committee, as may be deemed best. We are

of the opinion that to insure good roads, built at least cost and maintained at least expense, the principal highways of a county should be under county control. In most cases the county seat is proximately the center of the county. Whether so or otherwise, it is the place to which the people of the county are often called by business affairs, and it is, ordinarily, the market town of the county. The outlying townships are interested in having good roads to the county seat. The roads they most use pass through other townships than the ones in which they reside, and over these roads, in which these outlying towns are as much interested as any in the county, they have no control, nor are they charged with any portion of the expense. If the principal highways of the county leading to the county seat or market town are under county control, and constructed and maintained at county expense, except so far as it may be deemed wise to assess locally for special benefits conferred, the expense will be shared by all interested. The market town is interested to have good roads leading to it and all the farmers and business men who have occasion to visit the central town are also interested. There will be short lateral roads connecting with these principal ones, in which laterals only the people of a particular township will be interested and the construction and care of these laterals may well be left to the people specially interested in them.

The question of imposing special taxes or assessments upon abutting farms, to be paid ratably during a period of years has been carefully considered. This plan has been in use in some of the neighboring states, some assessing the strip of country through which the improved road is to extend with its entire cost, others assessing only a portion of the cost, and the balance upon the county at large. Other states have adopted the policy of making these good roads wholly at the general expense of the county. In all cases it has been found, as we believe, that the investment is a good one for all parties concerned, whether made with one mode or the other. We do not think it would be wise or just to assess the entire expense of the improved roads upon the property locally benefited. There is a general benefit, and for this the general tax should pay. The property of the market town, with good roads leading to it from every direction will be enhanced in value by the construction of these roads, and it would be only just to the farming community that the cost of this enhancement should be borne by the county in general. The limit of local assessment should not exceed one half the added value to the lands adjacent to such roads, and the remainder of cost should be a general tax.

In proposing a change from one system to another, in any matter involving the expenditure of material means, it is important to consider relative cost as well as advantage.

Very soon after the appointment of the commission circulars were issued addressed to county and township officers and others throughout the State asking for information as to the cost of maintenance of highways in the several counties. The parties to whom these circulars were addressed responded to them in many instances, giving such information as was in their possession. With the hope of securing fuller reports than were available from this source, the commission caused to be addressed to the boards of supervisors previous to the commencement of their annual sessions in October, circulars requesting information under the following heads:

1. Total valuation outside of incorporated villages.

2. Amount highway labor assessed.

3. Amount paid in labor.

4. Amount paid in money.

5. Amount returned unpaid.

6. Amount voted by town meeting or town board.

7. Amount levied by authority board of supervisors.

8. Amount whether in land or money, under special acts of Legislatura 9. Amount salary of highway commissioner.

The reports from all sources are not as full as the commission would have wished, but the more essential items so far as received, have been tabulated by the secretary as appears by the table marked "A," which is appended and made a part of this report.

The other matter referred to the commission, relates to the employment of convicts for the improvement of the highways. Assuming the term "convicts" to refer to such as have been convicted of felony and sentenced to our State Prison, we are of opinion that it would not be wise to employ such work upon our public highways. The following considerations have influenced the commission in reaching this conclusion:

First, Convict labor has been employed upon the highways in monarchial countries, and perhaps when thus employed has been productive of good results. The principal employment has been in the breaking of stone, but with the improved machinery now in use for that purpose there would be no economy, In Michigan convicts sentenced for life would have their opportunities for escape greatly increased, and knowing that no additional punishment could be inflicted upon them, would not hesitate to avail themselves of the opportunities however closely guarded. If worked with a ball and chain the demoralizing spectacle would be abhorrent to every citizen. Necessarily others must labor with them and direct their labors, and the effect upon the common mind would be to make labor appear to be degrading. Labor thus employed would be associated with crime and criminals. We think, in this country, under our institutions, all labor is honorable, and there should be nothing done, under the sanction of law, which might have a tendency to make it appear otherwise. If the ball and chain were not adopted, the rifle would be in constant use to prevent escape, and the lives of the guards wuld be in constant danger unless the guards were in such force as to prevent being overpowered. Then these convicts must be housed and guarded at night as well as by day during rainy weather when work could not be done upon the highways, and we believe the expense of all these preparations and precautions would exceed the value of the labor performed. In monarchial countries, where rulers claim divine right, it is thought wise for the government to give exhibitions of its power to its subjects, and such exhibition would be given by the employment of convicts guarded by soldiers and before the eyes of the public continuously. A government like ours, based upon the will of the people, would not strengthen itself in the love and respect of the peoby any such exhibition. A system of working convicts upon the highways would promise better results in the southern states, where the climate is less rigorous, and where the expense of keeping convicts, when not at actual labor would be much less than here, and yet, so far as we can learn, all the states in the south where this has been tried, have either abandoned it entirely or have confined it to those convicted of petty offences, tramps and vagrants, who would have less motive to escape than convicted felons.