JOURNAL

OF THE

House of Representatives

OF THE

SESSION OF 1913

'

T. J. APPLEYARD, STATE PRINTER,
TALLAHASSEE, FLA.

C/ S sS,
/6/3
c.,,^

MEMBERS OF HOUSE OF REPRESENTATIVES 1913

J. C. Adkins of Alachua County.
E. R. B. Kite of Alachua County.
H. J. Rhoden of Baker County.
A. D. Andrews of Bradford County.
W. E. Middleton of Bradford County.
J. M. Sanders of Brevard County.
L. M. Griffin, Jr., of Calhoun County.
J. E. Stevens of Citrus County.
E. D. Prevatt of Clay County.
S. D. Dupree of Columbia County.
W. J. Feagle of Columbia County.
George A. Worley of Dade County.
W. C. Langford of DeSoto County.
St. Elmo W. Acosta of Duval County.
Ion L. Farris of Duval County.
H. C. Clopton of Escambia County.
James McHugh of Escambia County.
C. H. B. Floyd of Franklin County.
S. H. Strom of Gadsden County.
W. L. Taylor of Gadsden County.
John High of Hamilton County.
A. W. Miller of Hamilton County.
L. C. O'Neil of Hernando County.
W. T. Martin of Hillsborough County.
R. R. Tomlin of Hillsborough County.
E. A. Williams of Holmes County.
W. H. Beauchamp of Jackson County.
W. L. McKinley of Jackson County.
John B. Lacy of Jefferson County.
Theo. T. Turnbull of Jefferson County.
John M. Gornto of Lafayette County.
J. A. Hanson of Lake County.
J. G. Hatcher of Lake County.
Louis A. Hendry of Lee County.

iv MEMBERS OF HOUSE OF REPRESENTATIVES, 1913.

W. A. Register of Leon County.
L. C. Yaeger of Leon County.
W. J. Epperson of Levy County.
R. F. Hosford of Liberty County.
M. L. Leslie of Madison County.
Win. M. Taylor of Madison County.
A. M. Wilson of Manatee County.
L. S. Light of Marion County.
Edwin Spencer, Jr., of Marion County.
Marcy B. Darnall of Monroe County.
Chas. L. Knowles of Monroe County.
Harry Goldstein of Nassau County.
S. A. Ogilvie of Nassau County.
Samuel A. Robinson of Orange County.
Forest Lake of Orange County.
H. Clay Stanford of Osceola County.
H. L. Bussey of Palm Beach County,
P. C. Mickler of Pasco County.
John S. Taylor of Pinellas County.
J. C. Brown of Polk County.
R. W. Hancock of Polk County.
W. S. Middleton of Putnam County,
W. A. Russell of Putnam County.
J. A. Bryant of Santa Rosa County.
T. J. Fenn of Santa Rosa County.
W. A. MacWilliams of St. Johns County.
E. A. Wilson of St. Johns County.
Otis R. Parker of St. Lucie County.
Glen Terrell of Sumter County.
J. P. Lamb of Suwannee County.
L. D. Newlan of Suwannee County.
E. J. Harvill of Taylor County.
John G. Leonardy of Volusia County.
John A. Van Valzah of Volusia County.
G. W. Tully of Wakulla County.
W. H. Mapoles of Walton County.
L. H. Howell of Washington County.

0

OFFICERS AND ATTACHES
OF THE
HOUSE OF REPRESENTATIVES

Speaker-Hon. Ion L. Farris of Duval.
Speaker Pro Temr-Hon. Edwin Spencer, Jr., of Ma-
rion.
Chief Clerk--J. G. Kellum of Leon.
Assistant Chief Clerk-Chas. H. Gray of Gadsden.
Bill Clerk-C. C. Epperson of Levy.
Reading Clerk-Nat. R. Walker of Wakulla.
Assistant Reading Clerk-W. B. Lanier of Duval.
Engrossing Clerk-Eli Futch of Alachua.
Enrolling Clerk-C. W. Edwards of Lafayette.
Recording Clerk-Fred M. York of Suwannee.
Sergeant-at-Arms-J. M. Duncan of Hillsboro.
Messenger-R. A. Green of Bradford.
Doorkeeper-R. J. lDavis of DeSoto.
Chaplain-H. S. Howard of Franklin.
Janitor-Eugene Hawkins of Florida.
Pages-Morgan Richard, Duval; Williamson Allen,
Wakulla; Howard Leslie, Madison; Paul Stokely, Lake.

( /

/ 1

ERRATA.

On page 430, after line 12, should be inserted the fol-
lowing: "Nays-None."
On page 468, after line 19, should be inserted the fol-
lowing: "Nays-None."
On page 490, after the ninth line, should be inserted
the following: "House Bill No. 60."
On page 504, after line 30, should be inserted the fol-
lowing: "Nays-None."
On page 530, after line 2, should be inserted the fol-
lowing: "Nays-None."
On page 642, after line 12, should be inserted the fol-
lowing: "Nays-None."
On page 655, after line 3, should be inserted the fol-
lowing: "Nays-None."
On page 656, after line 29, should be inserted the fol-
lowing: "Nays-None."
On page 657, after line 25, should be inserted the fol-
lowing: "Nays-None."
On page 662, after line 26, should be inserted the fol-
lowing: "Nays-None."
On page 664, after line 25, should be inserted the fol-
lowing:, "Nays-None."
On page 672, after line 29, should be inserted the fol-
lowing: "Nays-None."
On page 713, Wilson of St. Johns should be recorded
as voting yea on passage of House Bill No. 28.
On page 743, after line 29, should be inserted the fol-
lowing : "Nays-None."
On page 768, after line 19, should be inserted the fol-
lowing: "Nays-None.",
On page 779, after line 15, should be inserted the fol-
lowing: "Nays-None."
On page 780, after line 9, should be inserted the fol-
lowing: "Nays-None."
On page 781, after line 5, should be inserted the fol-
lowing: "Nays-None.".
On page 783, after line 39, should be inserted the fol-
lowing: "Nays-None."

On page 839, after line 29, should be inserted the fol-
lowing: "Nays-None."
On page 840, after line 26, should be inserted the fol-
lowing: "Nays-None."
On page 847, "House Memorial No. 90" should read
"House Resolution No. 90."
On page 863, just before the word "Enrolled," the fol-
lowing should be inserted:
"Mr. L. D. Newlan, Chairman of the Joint Conmmit-
tee on Enrolled Bills, submitted the following report:
House of Representatives,
Tallahassee, Fla., April 29, 1913.
Hon. I. L. Farris,
Speaker of the House of Representatives,
Sir:
Your Joint Committee on Enrolled Bills, to whom was
referred-
House Bill No. 239:
An Act validating a certain lease made upon the 8th
day of April, 1913, by the Board of County Commission-
ers of Holmes County, Florida, leasing certain property
of said County to D. L. Green.
Also-
House Bill No. 252:
An Act to legalize and validate elections held in Spe-
cial Tax School District No. 1 of Dade County, Florida,
on the 10th day of August, A. D. 1912, and in Special Tax
School Districts Nos. 5 and 8 of said County and State
on the 31st day of August, A. D. 1912, respectively, and
to legalize and validate the issue of certain bonds sold or
to be sold by the Board of County Commissioners of Dade
County, Florida, under authority and in pursuance of
said elections.
Have carefully examined same and find them correctly
enrolled.
L. D. NEWLAN,
Chairman of Committee."
On page 863, after line 30, the following should be in-
serted:
"OHon. I. L. Farris,
Speaker of the House of Representatives,
Sir:

viii

ERRATA.

Your Joint Committee on Enrolled Bills, to whom was
referred-
House Bill No. 67:
An Act to amend Section 12 of Chapter 6173 of the
Laws of Florida, approved June 3, 1911, entitled 'An Act
to prescribe the time of holding the terms of the Circuit
Courts in and for the First, Second, Third, Fourth, Fifth,
Sixth, Seventh, Eighth, Ninth, Tenth and Eleventh Ju-
dicial Circuits of the State of Florida.'
Have carefully examined same and find them correctly
enrolled.
L. D. NEWLAN,
Chairman of Committee."
On page 941, after line 12, should be inserted the fol-
lowing : "Nays-None."
On page 944, after line 18, should be inserted the fol-
lowing: "Nays--None."
On page 1111, line 22, the figure "9" should read "92."
On page 1203 the number voting yea on the passage of
House Bill No. 546 should be 67, instead of 7.
On page 1636, just before the roll call at the bottom
of the page, the following should be inserted: "The ques-
tion then recurred upon the passage of Senate Bill No. 3.
Upon call of the roll on the passage of the bill the vote
was :"
On page 1874, Senate Bill No. 351 should read "Senate
Bill No. 358."
The reports of Harry Goldstein on House Bills Nos.
887 and 886, appearing on pages 2107, 2108 and 2109,
should appear on page 2124, instead of the above pages.
On page 2190, line 23, "553" should be "533."
On page 2195, line "'22," should read "252."
There are two House Resolutions both numbered 113
and two others numbered 115.
House Resolutions numbers 104, 114, 118, 121, 124 do
not appear at all.
There are two House Concurrent Resolutions numbered
8 and two others numbered 16.
House Bill 543 on Page 2590 should read House Bill
547.

ERRATA.

ix

JOURNAL
OF THE

House of Representatives.

Of the fourteenth regular session of the Legislature,
under the Constitution of A. D. 1885, began and held at
the Capitol, in the City of Tallahassee, the State of Flor-
ida, on Tuesday, the 8th day of April, A. D. 1913, being
the day fixed by the Constitution of the State of Florida
for the meeting of the Legislature.

Tuesday, April 8, 1913
The House was called to order by Mr. J. G. Kellum, of
Gainesville, Alachua County, Florida, Chief Clerk of the
House of Representatives, at 12 o'clock m. The certified
list of the Secretary of State of members elected to the
Legislature for the session of 1913 was called as follows:

MEMBERS OF THE HOUSE OF REPRESENTATIVES
1913.

J. C. Adkins of Alachu'a County.
E. R. B. Kite of Alachua County.
H. J. Rhoden of Baker County.
A. D. Andrews of Bradford County.
W. E. Middleton of Bradford County.
J. M. Sanders of Brevard County.
L. M. Griffin, Jr., of Calhoun County.
J. E. Stevens of Citrus County.
E. D. Prevatt of Clay County.
S. D. Dupree of Columbia County.
W. J. Feagle of Columbia County.
George A. Worley of Dade County.
W. C. Langford of DeSoto County.
St. Elmo W. Acosta of Duval County.
Ion L. Farris of Duval County.
H. C. Clopton of Escambia County.
James McHugh of Escambia County.
C. H. B. Floyd of Franklin County.
S. H. Strom of Gadsden County.
W. L. Taylor of Gadsden County.

John High of Hamilton County.
A. W. Miller of Hamilton County.
L. C. O'Neil of Hernando County.
W. T. Martin of Hillsborough County.
R. R. Tomlin of Hillsborough County.
E. A. Williams of Homes County.
W. H. Beauchamp of Jackson County.
W. L. McKinley of Jackson County.
John B. Lacy of Jefferson County.
Theo. T. TurnbulJ of Jefferson County.
John M. Goruto of Lafayette County.
J. A. Hanson of Lake Coun ty.
J. G. Hatcher of Lake County.
Louis A. Hendry of Lee County.
W. A. Register of Leon County.
L. C. Yaeger of Leon County.
W. J. Epperson of Levy County.
R. F. Hosford of Liberty County.
M. L. Leslie of Madison County.
Win. M. Taylor of Madison County.
A. M. Wilson of Manatee County.
L. S. Light of Marion County.
Edwin Spencer, Jr., of Marion County.
Marcy B. Darnall of Monroe County.
Chas. L. Knowles of Monroe C'ounty.
Harry Goldstein of Nassau County.
S. A. Ogilvie of Nassau County.
Samuel A. Robinson of Orange County.
Forest Lake of Orange County.
H. Clay Stanford of Osceola County.
H. L. Bussey of Palm Beach County.
P. C. Mickler of Pasco County.
John S. Taylor of Pinellas County.
J. C. Brown of Polk County.
R. W. Hancock of Polk County.
NW. S. Middleton of Putnain County;
W'. A. Russell of Putnam County.
J. A. Bryant of Santa Rosa County.
T. J. Fenn of Santa Rosa County.
W. A. MacWilliams of St. Johns County.
E. A. Wrilson of St. Johns County.
Otis R. Parker of St. Lucie County.
Glen Terrell of Sumter County.
J. P. Lamb of Suwannee County.

0

3

L. D. iNewlan of Suwannee County.
E. J. Harvill of Taylor County
John G. Leonardy of Volusia County.
John A. Van Valzah of Volusia County.
G. W. Tully of Wakulla County.
W. H. Mapoles of Walton County.
L. H. Howell of Washington County.

State of Florida,
Office Secretary of State-ss.,
I, H. Clay Crawford, Secretary of State of the State of
Florida, do hereby certify that the foregoing is a cor-
rect list of the members of the House of Representatives
of the State of Florida, elected on th 5th day of No-
vmber, A. D. 1912, as shown by the election returns on
file in this office.
Given under my hand and the Great Seal of the State
of Florida, at Tallahassee, the Capitol, this the 8th day
of April, A. D. 1913.
H. CLAY CRAWFORD,
Secretary of State.
The following members came forward and took the
oath of office prescribed by the Constitution of the State
of Florida before Mr. Justice William A. Hocker of the
Supreme Court of the State of Florida:
Messrs.-
Acosta, St. Elmo W. of Duval.
Adkins, J. C. of Alachua.
Andrews, A. D. of Bradford.
Beauchamp, W. H. of Jackson.
Bryant, J. A. of Santa Rosa.
Bussey, H. L. of Palm .Beacih.
Brown, J. C. of Polk.
Clopton, R. C. of Escambii.
Da-rnall, Marcy B. of Monroe.
Dupree, S. D. of Columbia.
Epperson, W. J. of Levy.
Farris, I. L. of Duval.
Feagle, W. J. of Columbia.
Fenn, T. J. of Santa Rosa.
-Floyd, C. H. B. of Franklin.
Goldstein, Hariy of Nassau.
Cointo, John N. of Lfat'velte.
(Oriiin, L. M.., Jr. of (C:lhoun.
Hiancock, R. "W. of Polk.

4

Hanson, John A. of Lake.
Harvill, E. J. of Taylor.
Hatcher, J. G. of Lake.
Hendry, L. of Lee.
High, John of Hamilton.
Hoford, R. F. of Liberty.
Howell, L. H. of Washingtoli.
Kite, E. I. B. of Alaclhua.
Knowles, (Chas. L. ofi Mon ;oe.
Lacy, J. B. of Jeflerson.
Lake, Forest of Oran.ge.
Lamb, B. of Suwannee.
Lan1gord, W. C. of DeSoto.
Leslie, N. L. of Madison.
Leonardy, John G, of Volusia.
Ligllt, L. S. of Marion.
MaclWillianms, W. of St. Johns.
Maioles W. IT. of W-alton.
liartin, W. T. of Hillsboro.
McHough, J ames of Escambia.
MlcKinley, W. L. of Jackson.
Middleton, W. E. of I'Bradford.
M iddleton, W. S. of Put-nam.
Mickler, P. C. of Pasco.
Miller, A. W. of Hamilton.
Newlan, L. D. of Suwannee.
O'Neil, L. C. of Hernando.
Ogilvie, S. A. of Nassau.
Parker, Otis R. of St. Lucie.
Prevatt, E. D. of Clay.
Register, W. A. of Leon.
Rhoden, H. J. of Baker.
Robinson, S. A. of Orange.
Russell, W. A. of Putnam.
Sanders, J. M. of Brevard.
Slpencer. Edwin Jr., of Marion.
Stanford, H. Clay of Osceola.
Sevens, J. E of Citrus.
St-roin, S. H. of Gadsden.
Taylor, \ L. of Cadsden.
Taylor, W. M. of Madison.
Taylor, John S. off Pinellas.
Terrell, Glen of Snmter.
Tomlin. R. P. of Hillsloronowh.
"Tnlly, George W. of Wakunla.

5

Turnbull, T. T. of Jefferson.
Van Valzah, John A. of Volusia.
Williams, E. A. of Holmes.
Wilson, A. M. of Manatee.
Wilson, E. A. of St. Johns.
Worley, Geo. A. of Dade.
Yaeger, L. C. of Leon.
Mr. J. G. Kellum, Chief Clerk, announced a quorum
present.
Mr. MacWilliams of St. Johns moved that the House
proceed with a permanent organization by hte election of
a Speaker, Chief Clerk, other officers and attaches.
Which was agreed to.
Mr. MacWilliams of Stj Johns nominated Hon. Ion L.
Farris of Duval County for Speaker.
Upon call of the roll the vote was:
For Ion L. Farris for Speaker-
Messers.-
Acosta, St. Elmo W. of Duval.
Adkins, J. C. of Alachua.
Andrews, A. D. of Bradford.
Beauchamp, W. H. of Jackson.
Bryant, J. A. of Santa Rosa.
Bussey, H. L. of Palm Beach.
Brown, J. C. of Polk.
Clopton, H. C. of Escambia.
Darnall, Marcy B. of Monroe.
Dupree, S. D. of Columbia.
Epperson, W. J. of Levy.
Feagle, W. J. of Columbia.
Fenn, T. J. of Santa Rosa.
Floyd, C. H. B. of Franklin.
Goldstein, Harry of Nassau.
Gornto, John N. of Lafayette.
Griffin, L. M., Jr. of Calhoun.
Hancock, R. W. of Polk.
Hanson, John A. of Lake.
Harvill, E. J. of Taylor.
Hatcher, J. G. of Lake.
Hendry, L. A. of Lee.
High, John of Hamilton.
Hosford, R. F. of Liberty.
Howell, L. H. of Washington.
Kite, E. R. B. of Alachua.
Knowles, Chas. L. of Monroe.

6

Lacy, J. B. of Jefferson.
Lake, Forest of Orange.
Lamb, J. P. of Suwannee.
Langford, W. C. of DeSoto.
Leslie, N. L. of Madison.
Leonardy, John G. of Volusia.
Light, L. S. of Marion.
MacWilliams, W'. A. of St. Johns.
Mapoles, W. H. of Walton.
Martin, W. T. of Hillsboro.
McHiugh, James of Escambia.
McKinley, W. L. of Jackson.
Middletotn, W. E. of B3radford.
Middleton, W. S. of Putnam.
Micller, P. C. of Pasco.
Miller, A. W. of Hamilton.
"Newlan, L. D. of Suwanuee.
O'Neil, L. C. of Hernando.
Ogilvie, S. A. of Nassau.
Parker, Otis R. of St. Lucie.
Prevatt, E. D. of Clay.
Register, W. A. of Leon.
IRhodeu, H. J. of Baker.
Robinson, S. A. of Orange.
Russell, W. A. of Putnam.
Sanders, J. M. of Birevrd.
Spencer, Edwin, Jr. of Marion.
Stanford, H. Clay of Osceola.
Stevens. J. JE. of Citra.
Stronm, S. H. of Gadsden.
Taylor. W. L. of Gadsden.
Taylor, NW. M. of Madison.
Taylor, John S. of Pinellas.
Terrell, Glen of Sumter.
Tomlin, R. R. of Hillsboronuh.
Tnlly. Genore W. of Waknlla.
Turnblll. T. T. of Jefferson.
Van Valzah, John A. of Volusia.
Willinms, E. A. of Holmes.
Wilson, A. M. of Manatee.
Wilson, E. A. of St. Johns.
Worley, Geo. A. of Dade.
Yaeger, L. C. of Leon.
Mr. J. G. Kellunm, Chief Clerk, announced the Hon. Ton
L. Farris unanimously elected Speaker.

Mr. J. C. Brown, of Polk, moved that a committee of
two be appointed to escort the Speaker to the Chair.
The Chief Clerk appointed Messrs. Martin of Hills-
borough and Bussey of Palm Beach to escort the Speaker
to the Chair.
The Speaker being conducted to the Chair extended
his thanks to the House for the honor conferred upon
him.
Mr. MacWilliams of St. Johns nominated Mr. J. G.
Kellum, of Gainesville, Fla., for Chief Clerk.
Upon call of the roll the vote was for Mr. J. G. Kellum
for Chief Clerk.
Mr. Speaker.
Messrs.-
Acosta, St. Elmo W. of Duval.
Adkins, J. C. of Alachua.
Andrews, A. D. of Bradford.
Beauchamp, W. H. of Jackson.
Bryant, J. A. of Santa Rosa.
Bussey, H. L. of Palm Beach.
Brown, J. C. of Polk.
Clopton, H. C. of Escambia.
Darnall, Marcy B. of Monroe.
Dupree, S. D. of Columbia.
Epperson, W. J. of Levy.
Feagle, W. J. of Columbia.
Fenn, T. J. of Santa Rosa.
Floyd, C. H. B. of Franklin.
Goldstein, Harry of Nassau.
Gornto, John N. of Lafayette.
Griffin, L. M., Jr., of Calhouh.
Hancock, R. W. of Polk.
Hanson, John A. of Lake.
Harvill, E. J. of Taylor.
Hatcher, J. G. of Lake.
HE Jdry, L. A. of Lee.
Hfign, John of Hamilton.
Ho,-ord, R. F. of Liberty.
Hc.%- ell, L. H. of Washington.
Kite, E. R. B. of Alachna.
Knowles, Chas. L. of Monroe.
Lacy, J. B. of Jefferson.
Lake, Forest of Orange.
Lamb, J. P. of Suwannee.
Langford, W. C. of DeSoto.

8

Leslie, N. L. of Madison.
Leonardy, John G. of Volusia.
Light, L. S. of Marion.
MacW\illiams, W. A. of St. Johns.
Mapoles, W. H. of Walton.
Martin, W. T. of Hillsboro.
McHugh, James of Escambia.
McKinley, W. L. of Jackson.
Middleton, W. E. of Bradford.
Middleton, W. S. of Putnam.
Mickler, P. C. of Pasco.
Miller, A. W. of Hamilton.
Ogilvie, S. A. of Nassau.
Newlan, L. D. of Suwannee.
O'Neil, L. C. of Hernando.
Ogilvie, S. A. of Nassau.
Parker, Otis R. of St. Lucie.
Prevatt, E. D. of Clay.
Register, W. A. of Leon.
Rhoden, H. J. of Baker.
Robinson, S. A. of Orange.
Russell, W. A. of Putnam.
Sanders, J. M. of Brevard.
Spencer, Edwin, Jr., of Marion.
Stanford, H. Clay of Osceola.
Stevens,J. E. of Citrus.
Strom, S. H. of Gadsden.
Taylor, W. L. of (adsden.
Taylor, W. M. of Madison.
Taylor, John S. of Pinellas.
Terrell, Glen of Sumter.
Tomlin. R. R. of Hillsborough.
Tully, George W. of Wakulla.
Turnbull, T. T. of Jefferson.
Van Yalzah, John A. of Volusia.
Williams, E of Holmes.
Wilson, A. M. of Manatee.
Wilson E. A. of St. Johns.
Worley, Geo. A. of Dade.
Yaeger, L. C. of Leon.
The Speaker declared Mr.. J. G. Kellum unanimously
elected Chief Clerk. Mr. MacWilliams nominated rHon
Edwin Spencer Jr., for Speaker pro tern.
Upon call of the roll the vote was for Mr. Spencer for
Speaker protem:

9

Mr. Speaker.
Messrs.--
Acosta, St. Elmo W. of Duval.
Adkins, J. C. of Alachua.
Andrews, A. D. of Bradford.
Beauchamp, W. H. of Jackson.
Bryant, J. A. of Santa Rosa.
Bussey, H. L. of Palm Beach.
Brown, J. C. of Polk.
Clopton, H. C. of Escambia.
Darnall, Marcy B. of Monroe.
Dupree, S. D. of Columbia.
Epperson, W. J. of Levy.
Feagle, W. J. of Columbia.
Fenn, T. J. of Santa Rosa.
Floyd, C. H. B. of Franklin.
Goldstein, Harry of Nassau.
Gornto, John N. of Lafayette.
Griffin, L. M., Jr. of Calhoun.
Hancock, R. W. of Polk.
Hanson, John A. of Lake.
Harvill, E. J. of Taylor.
Hatcher, J. G. of Lake.
Hendry, L. A. of Lee.
High, John of Hamilton.
Hosford, R. F. of Liberty.
Howell, L. H. of Washington.
Kite, E. R. B. of Alachua.
Knowles, Chas. L. of Monroe.
Lacy, J. B. of Jefferson.
Lake, Forest of Orange.
Lamb, J. P. of Suwannee.
Langford, W. C. of DeSoto.
Leslie, N. L. of Madison.
Lenoardy. John G. of Volusia.
Light, L. S. of Marion.
MacWilliams, yW. A. of St. Johns.
Maypoles, W. H. of Walton.
Martin, W. T. of Hillsboro.
McHugh, James of Escambia.
Mapoles. W. H. of Waltoii.
Middleton, W. E. of Bradford.
Middleton, W. S. of Putnam.
Mickler, P. C. of Pasco.
Miller, A. W. of Hamilton.

10

Newlan, L. D. of Suwannee.
O'Neil, L. C. of Hernando.
Ogilvie, S. A. of Nassau.
Parker, Otis R. of St. Lucie.
Prevatt, E. D. of Clay.
Register, W. A. of Leon.
Rhoden, H. J. of Baker.
Robinson, S. A. of Orange.
Russell, W. A. of Putnam.
Sanders, J. .. of Brevard.
Spencer, Edwin Jr. of Marion.
Stanford, H. Clay of Osceola.
Stevens, J. E. of Citrus.
Strom, S. H. of Gadsden.
Taylor, W. L. of Gadsden.
Taylor, W. M. of Madison.
Taylor, John S. of Pinellas.
Terrell, Glen of Sumter.
Tomlin, R. R. of Hillsborough.
Tully, George W. of Wakulla.
Turnbull, T. T. of Jefferson.
Van Valzah, John A. of Volusia.
Williams, E. A. of Holmes.
"Wilson, A. M. of Manatee.
Wilson, E. A. of St. Johns.
Worley, Geo. A. of Dade.
Yaeger, L. C. of Leon.
The Speaker declared Mr. Spencer elected Speaker pro
tem.
Mr. MacWilliams made the following nominm;lions:
Assistant Chief Clerk-C. H. Gray.
Bill Clerk-C. C. Epperson.
Reading Clerk-Nat R. Walker.
Assistant Rending Clerk-W. B. Lanier.
Engrossing Clerk-Eli Futch.
Enrolling Clerk-C. W. Edwards.
Recording Clerk-Fred M. York.
Sergeant-at-Arms-J. M. Dnncan.
Messenger-R. A. Green.
Doorkeeper-R. J. Davis.
Chaplain-H. S. Howard.
Janitor-Eugene Hawkins.
Page---Moran Richard.
Page-Williamson Allen.
Page-Howard Leslie.

11

Page-Paul Stokely.
Mr. MacWilliams moved that all the officers and at-
taches as nominated above be elected by acclamation.
Which was agreed to.
All of the officers and attaches as elected came forward
and were sworn in by Mr. Justice William A. Hocker.
On motion of Mr. Lamb of Suwannee a committee of
three, consisting of Messrs. Lamb of Suwannee, Brown of
Polk and Worley of Dade, were appointed to wait upon
His Excellency, the Governor, and inform him that the
House was organized and ready to receive any message or
communication that he may be pleased to make.
After a brief absence, the committee returned and re-
ported that they had performed the duty assigned them,
and were discharged.
A committee of three from the Senate, Messrs. Wells,
Brown and McClellan, appeared at the bar of the House
of Representatives and announced that they were in-
structed by the Senate to inform the House that the Sen
ate was organized and ready to proceed to business.
On motion of Mr. Adkins of Alachua a committee of
three, consisting of Messrs. Adkins of Alachua, Taylor of
Madison and Bussey of Palm Beach, were appointed to
inform the Senate that the House was organized and
ready to proceed to business.
After a brief absence the committee returned and re-
ported that they had performed the duty assigned to them
and were discharged.
Mr. MaCWilliams moved that the rules as adopted and
used by the House during session of 1911 be adopted for
the use of the House until the Committee on Rules could
report.
Which was agreed to.
The following message from the Governor was received

State of Florida,
Executive Chamber.
Tnllahassee, April 8, 1913.

Hon. Ton L. Farris.
S1,peaker of Houise of Representa tives.

Sir :
I have the honor to transmit herewith, in printed form,

12

the Message to the Legislature contemplated by Section 9
of Article IV. of the State Constitution.
Very Respectfully,
PARK TRAMMELL,
Governor.
Mr. Strom moved that the Governor's Message be re-
ceived and read.
Mr. MacWilliams moved as a substitute that the Gov
ernor's Message be received and spread upon the Journal
Which was agreed to.

MESSAGE OF THE GOVERNOR

EXECUTIVE OFFICE,
STATE OF FLORIDA,
TALLAHASSEE, APRIL 8, 191.
TO THE FLORIDA LEGISLATURE:

In compliance with Section 9, Article IV of the Con-
stitution, which provides that "The Governor shall cornm-
municate by Message to the Legislature at each regular
session, information concerning the condition of the State,
anu, recommend such measures as he may deem expe-
dient," I respectfully transmit this, my message, for the
consideration of your Honorable Body.

CONDITION OF THE STATE.

It is with much gratification that I report that along
all lines the condition of our State is most satisfactory.
In every field of industry there is an unprecedented ex-
pansion and growth. Florida is becoming more widely
and more favorably known throughout the Nation than
ever before.
With a progressive, an industrious, intelligent and high
type of citizenry; with a rapidly increasing population,

13

increased activities in the farm and fruit industries, a
conspicuous enlargement of manufacturing enterprises
and the very marked expansion of the mining operations,
we find our State rapidly forging to the front as one
of the greatest of the American States. Even the most
sanguine can scarcely forecast Florida's progress, growth
and development within the next decade.
Our people are blessed with good health, with prosper
ity and happiness, and indeed the sunlight shines bril-
liantly upon our pathway for the future.

FINANCIAL CONDITION OF STATE.

The report of the State Treasurer shows that the finan-
cial condition of the State is good. On March 31, 1913,
there was in the General Revenue Fund $373,776.61, and
a safe balance in all of the other funds. The appropria
tions made by the last Legislature, which have matured up
to the present time, have all been promptly met. The
Treasury, when others mature, will have sufficient funds
to meet them.
STATE DEBT.

For a number of years the State has not had any out-
standing indebtedness except certain refunding bonds
amounting to $601,506.00, bearing interest at the rate of
3 per cent per annum. These bonds are not owned by
private parties, but are now held and have for many
years been held by the State Board of Education.

REICOMMENDATTONR1.

For your consideration a nd for such action thereon
as your wisdom directs, I wish to submit my views and
recommendations relative to the measures which I deem
expedient, under their respective heads, as follows:

FUND TO GUARANTEE BANK DEPOSITORS.

The pri n1 p-,ni rs1 r- i le est. lblisi.hmnut of bankss o

14

far as the public is concerned are; first, that the public
shall have a safe place to deposit their imioney and,
second, that those who need it may conveniently obtain
funds upon proper security after the money sh-,!. have
been gathered together by the banking corporal tion.
The ideal system of banking will guarantee to deposit-
ors the absolute certainty of the return of every Jollar
deposited, and this will insure the greatest possible
volume of loanable funds in banks for the needs of
business. The State and Nation should see to it that
every safeguard shall be provided for the security of the
depositor, since they permit and authorize the receiving
of deposits under the sanction of the law.
Florida has a most excellent and substantial lot of
banks and the failuress have been comparatively few;
yet there is that weakness existing in our banking sys-
teni which does not make the depositor absolutely safe.
At the critical moment in our financial and industrial
affairs, when it is most necessary that he be secured
against the loss of his deposit, tlh depositor's only
guarantee is the ability of the bank to pull through the
financial and industrial depression. Should not a
depositor, if it can reasonably be done, be made safe
against loss when the financial distress comes? Un-
questionably he should, and I regard it the duty of the
State and the Nation to enact laws which will make him
secure. A failure to do so, in my opinion, is an inexcusa-
ble neglect to protect the citizen in his rights.
That depositors may be secure, that bank failures may
become minimized, that the greatest cause for producing
panics may be materially reduced, I believe a measure
providing for and requiring the banks to maintain a
bank guarantee find should be enacted and I so recom-
mend. Thle glaranitee fund system has been tried out for
a reasonable time, in a few of the states, and I am in-
formed tiht it has proven entirely satisfactory to depos-

15

itors and has not worked any hardships on the banks.
The stock in trade of the bank is the deposits. A greater
part of the earnings of banks come from the interest upon
the money of depositors which is loaned, The returns
upon bank investments as a rule range from ten to thirty
per cent. Most bank stock sells above par. From the
patronage and business arising from the funds of the
depositor the bank is one of our most profitable business
institutions. With an absolute guarantee that every
dollar on deposit is safe I believe the bank would be even
more prosperous as a money-making institution; but if
it would not, then should we leave the depositor insecure
in order that the bank be relieved of the small payments
necessary for the establishment of the guarantee fund, or
should every dollar in the bank be made safe, although the
bank's profits would be slightly reduced thereby? One of
the greatest causes of panics is bank failures. The prin-
cipal cause of the failure of banks is the lack of confi-
dence in our banks, when talk of hard times, though
often fanciful, begins. With implicit confidence in our
banks at all times and under all conditions, the panic
would be much less probable, if not entirely eliminated.
The people of the Nation are becoming awakened as to
need of the bank guarantee. It is right and just that
we should have this protection. People engaged in every
industry are interested in this problem. Florida can be
among the leaders in this righteous cause, or it can wait
until the National government and all of the other States
have acted, and then follow as the kites tail. I recom-
mend action now.

INTEREST ON PUBLIC FUNDS.

At present interest is required on State funds on de-
posit, the State receiving two and one-half per cent. on
daily balances. The law should also require banks to
pay interest on deposits of county funds. It should also

0

16

provide for the State and counties receiving bids froni the
banks of the State for the deposit of the funds. This
policy, in my opinion, would produce much more interest
on State funds, and will result in the counties deriving a? n
income of from $5)0,000.00 to $75,)000.00 annually from a
source now producing no revenue. It would be advisable
for cities and towns to also inaugurate such a policy in
handling municipal funds.

R1E)IJUCTION OF INTEREST RATE.

I respectfully reconlnend that a law be enacted chan g-
ing the legal rate of interest from eight to six per cent.
and that the rate which is allowed to be charged by con-
tract be changed from ten to eight pel cent. It has now
been twenty-two years since the present law fixing the
legal rates of interest in this State was enacted. Within
this time conditions have wonderfully changed. Our State
has quadrupled in population and developed remarkably
in scope and value of all her industries and resources.
The rate of interest suggested by me is .equally as rea-
sonable in our State at the present time as the rate now
allowed was when fixed in 1891. As evidence of the fact
that the rate suggested by me is reasonable, a large ma-
jority of the banks and individuals loaning money on con-
tract now require not exceeding eight per cent. In fact,
much capital is now loaned in Florida at slightly lower
interest charges, and business men generally consider a
return of six to eight per cent. upon money loaned a good
investment. It is not believed that the amendment of the
law here suggested would in the slightest degree retard
the investment of capital or the extension of loans. It
would merely be adjusting the statutes of the State to the
changed conditions of the times. Most of the Southern
States now have a lower legal rate of interest than is
fixed by Florida, and it has come to be generally recog-
nized that both in business practice and as a governmental

17

policy, lower interest rates should prevail-large enough
to give reasonable returns to the lenders, but, on the
other hand, low enough not to work a hardship on those
who have to borrow, and also to encourage those who
would borrow capital and invest it in indust-;a1 'evelop-
ment.

ABOLISHING OFFICE OF COUNTY TREASURER.

A constituitonal amendment to abolish the' office of
County Treasurer at the expiration of the terms of the
present incumbents, should be submitted for ratification
or rejection by the electors at the next general election.
In my opinion, the amendment should provide that the
county Tax Assessor shall perform the duties now in-
cumbent upon the County Treasurer. It is a well known
fact that the duties connected with the office of County
Treasurer require but little time and work from the per-
son filling the office, and that the compensation paid
therefore is entirely out of proportion to the responsi-
bilities assumed or the work actually done. These duties
could be discharged by the Tax Assessor without inter-
fering with his duties as Assessor. The change could be
made without injustice to the Assessors and without im-
pairing the efficiency of the public service; yet with a
very considerable economy in the administration of gov-
ernment. This being true, why should the taxpayers of
all the counties be required to continue paying salaries
aggregating at least $125,000.00 annually for offices which
are really unnecessary? The submission and adoption of
such an amendment should effect a saving to the people
of the State of the amount now paid to the County
Treasurers of the respective counties. Favorable con-
sideration of such a constitutional amendment is strongly
recommended.
2-H.

18

REPEAL LAW GIVING LANDS TO RAILROADS.

One of the statutes of this State under which railroads
have heretofore had donated to them large quantities of
State land is still in force, and should a new railroad be
constructed it would, under this law, be entitled to the
alternate sections of the State land on each side of the
railroad within six miles thereof. In the event the State
did not still own the alternate sections, the Company
would be entitled to lands to make up the deficit any-
where within twenty miles of its road. The State has but
little land except in the Everglades. In that territory the
State owns about a million acres of land. Should a rail-
road be constructed through that territory and the land
grant law above referred to was still in force, the rail-
road would be entitled to a large quantity of the State
land, and would thereby get from the State public prop-
perly worth probably two or three million dollars. The
time has passed when the State can afford to allow land
grants to encourage railroad building. We cannot afford
to have the public lands further applied in this way. For
this reason I urge that a law be enacted repealing Sec-
tion 622 of the General Statutes, which constitutes our
present law providing for railroad land grants.

CHANGE IN CONVICT SYSTEM.

In my platform as a candidate for Governor, I pledged
myself as follows, to-wit:
"I favor discontinuing Lease System and using convicts
in road building. State's finances to be guarded in making
change."
For thirty years the lease system has existed in our
State. During this time the prisoners have been hired
out to work upon farms, in phosphate mines and on tur-
pentine farms. At present they are under a four-year
lease, which expires on January 1, 1914. They are prin-

19

cipally engaged in working p)lentine farms at pres-
ent. The lessees pay the 'S1.60 pe capital per
annum for able-bodied m al i rs :and maintain in a
hospital free of cost to the, women and disabled
male prisoners. The prison o atlon at present is about
fourteen hundred, of whom about two hundred and fifty
are women and infirm men. Under this lease about $300,-
000 net is realized annually from the hire of State Con-
victs. This sum is by law apportioned to the counties quar-
terly upon the basis of assessed valuation of the several
counties. Under the present system the Commissioner of
Agriculture and the Board of Commissioners of State In-
stitutions make and prescribe the rules and regulations
governing the custody, care and handling of the State
prisoners. The State has four Convict Supervisors who
are constantly engaged in inspecting convict camps, and
making investigations as to the manner in which the
prisoners are treated, seeing that the rules and regula-
tions are observed, reporting failure to observe the same
and suggesting improvements.
The Prison Hospital, the stockades, and all equipment
now used in the handling of the prisoners belong to the
lessees. The State owns no prison buildings, stockades,
hospital or other prison equipment. The only prison prop-
erty which the State owns is a tract of about 16,000 acres
of uncleared and unimproved land in Bradford County,
which was purchased in 1911, with a view to establishing
thereon a State Prison Farm. With the above conditions
confronting us, we must with judgment, care and in a
business-like way work out a reasonable anld efficient plan
for the abolishing of the lease system. In this undertak-
ing it is essential that we bear in mind:
1st. That in view of the fact that fhe State has at pres-
ent no buildings, stockades or place where it could care
for its fourteen hundred prisoners, provision for their
custody, care and maintenance is absolutely essential

20

prior to the time the St ; all withdraw tIhemI from the
Lease Systetai, and tlha i unt of the great mnag-ittde
and extent of such pl. 1) n, from two, to three years
will be required for- il ig, ie funds and making provi
sion for its a:ccmnllishin1it.;'
2nd. That for the State to provide the necessary sub-
stantiIa and permanent buildings and other equipment.
and put in a tillable condition a reasonable portion of the
land on the prison farm to be established in BIrailord
County, and to provide the olter funds necessa' im pro-
ceeding with the changing of the system during tlile next
two years, an estimated sum of 250,000 to $275.000 will
be required for such buildings and other purposes.
3rd. That for the counties to provide necessary equip-
meunt for the care of State prisoners which may be allotted
to them the sum necessary for such purpose should be
raised prior to the time that any of the State prisoners
shall be allotted to a county to ble ,used in public road
work.

4th. That the funds necessary for the State and the
counties to make the required preparation for a change in
the prison system must be derived from the proceeds
from the hire of the State prisoners, or, upon the other
hnnd, from direct taxation.

5th. That primarily the duty to care for and support
State prisoners is upon the State and therefore a county
should not be forced to take and care for Stale prisoners.

I believe that provision shoi!d i:e made for the discon-
tinuance of the leafe system; Itha: the able-bodied male
prisoners should be used as far as practicable in building,
and repalirig roads; thatl tlhe iinirm male prisoners, fe-
male prisoners, andi tho::.e of the prison population who
arPe not1 used by the counties in the building and maintain-
ino: of public i-roads should be kept a.t the State Prison
Farm when established in Bradford County. Such change

21

can, and, in my opinion, should be accomplished by Legis-
lation that will not require a levy of direct taxation for
the expense incident to the preparation for the change.
To inaugurate a new plan for the handling of the State
prisoners and to abolish the present lease system, I
recommend the enactment of a law providing:

1st. For the withdrawal of the prisoners from the
lease system in reasonable installmens.
2nd. For the raising of funds from the prisoners tem-
porarily leased, to defray the expense of building up a
prison farm and meeting the other expenses incident to
making a change in the system.
3rd. For the counties, if they desire, to take over the
able-bodied prisoners at the time of the installment allot-
ments to be used in public road work.
4th. For the care and maintenance of the infirm male
and women prisoners, at the State prison farm to be
established in Bradford County.
To carry out these purposes in a manner which will
require no taxation or burden upon the State or counties,
and at the same time accomplish the change of the systerti
within a reasonable time, I have prepared a bill covering
my ideas of the details of the change, This bill you will
find appended hereto, and I respectfully submit the same
for your consideration.

GAIN TIME FOR CONVICTS.

In the enactment of Chapter 6177, Acts of 1911, same
being an Act to amend Section 4140 of the General
Statutes, relative to gain time to be allowed to (onvie-ts,
an error was made in not providing an allowance of fain
time for the fifth year of sentence. This mistake was
doubtless purely a clerical error and should be corrected,
so as to preserve the symmetry of the Act and carry out

what was unquestionably the real intent of the Legisla-
ture in passing the enactment. The said law can very
easily be re-enacted with correction of the error pointed
out, and I recommend that it be done.

AUTHORITY TO PAROLE PRISONERS.

The Board of Conmmissioners of State Institutions
should be given authority to grant parole to prisoners
either upon bond made payable to the Governoxr, or with-
out bond when deemed advisable, and I recommend a
measure granting such authority.

STATE PRISON FARM.

By Chapter 5941, Acts of 1909, the Legislature appro-
priated -50,000.00, from the Hire of Convicts Fund, for
the Board of Commisisioners of State Institutions to pur-
chase lands for a prison farm and for other kindred pur-
poses.
In March, 1911, the said Board, after careful examina-
tion of many tracts of land which were offered, or sug-
gested, for this purpose, purchased from the Empire Lum-
ber Company of Jacksonville 7,914L acres of excellent land
in Bradford County, for the price of $5.00 per acre. At
the same time the Board took an option from the Empire
Lumber Company, on an additional tract of about the
same size, adjacent to that which was purchased at $5.00
per acre.
The Legislature of 1911, by Chapter 6134, Laws of
Florida, appropriated an additional sum of $50,000.00
from the Hire of Convicts Fund, to enable the Board to
purchase the land upon which option had been taken
and for use in establishing on said lands a State Prison
Farm.
In pursuance of such apppropriations a total of 15,5871

23

acres of land, in Bradford County, were purchased from
the Empire Lumber Company. Adjoining and partially
embraced within the lands purchased from the Empire
Lumber Company, were two full sections of land, then
owned by Mr. W. E. Davis, of Starke, Florida. Upon in-
vestigation it was found that the Davis lands were of
very superior quality, and that it would be greatly to the
advantage of the State for the Board to purchase the said
Davis lands.
After considerable negotiations, Mr. Davis agreed to
accept $7.50 per acre for the said two sections of 1,280
acres. In July, 1912, the Board of Commissioners of
State Institutions purchased the said 1,280 acres from
Mr. Davis at $7.50 per acre.
The Board thus acquired for use as a State Prison Farm
a splendid tract of land, embracing 16,8671 acres for a
total purchase price of $87,537.50, leaving a balance in
the amounts appropriated by the said Acts of 1909 and
1911 of a little more than $12,000.00. It is the sense
of the Board of Commissioners of State Institutions that
the State has, at very reasonable cost, acquired an ade-
quate area of land of excellent quality, splendidly lo-
cated, for use as a State Prison Farm whenever the State
is in position to utilize same.
The above mentioned Acts of 1909 and 1911 provided
that, with the appropriations made, the Board of Commis-
sioners of State Institutions should have buildings erected
and the said Prison Farm equipped for use of a desig-
nated class of the State prisoners. The amount remain-
ing in the appropriation, however, after the Board had
purchased what it deemed to be a sufficient area of land
for all future needs of the State Prison system, about
$12,000.00, was wholly inadequate for erecting such build-
ings as would be needed by prisoners such as were to be
placed on the farm, and for meeting the numerous ex-
)penses of equipping, guarding and maintaining the said

2u

Prison Farm; consequently no attempt has been made to
erect any buildings on the lands so purchased.

It is deemed to be a matter-of the highest importance
that the present Legislature make proper and adequate
provision for equipping the said Prison Farm and provid-
ing for its use, as was contemplated by the Acts of 1909
and 1911.

AUTHORIZE SALARY FOR PROBATION OFFICERS.

The provision of Chapter 6216 of the Acts of 1911, fix-
ing the salaries of Probation Officers, has been declared
unconstitutional by the Supreme Court. That the Juve-
nile Court Act may serve the purpose for which it was
enacted, I recommend that a law be enacted providing for
the compensation of Probation Officers.

LIMIT CAMPAIGN EXPENDITURES AND PRO-
HIBIT CORRUPT PRACTICES.

The primary and election laws should be so perfected
that all opportunity for fraud and trickery in elections
shall be removed, and campaign expenses reduced to the
minimum. I believe that a very large majority of the
people of this State are heartily in accord with the idea
that the man and not the dollar should triumph, and will
welcome for all time to come a law that will stamp out
the idea entertained by a few that public office is a chattel
to be sold at public outcry to the highest bidder. The law
should be such that a poor man who is upright and capa-
ble may run for public office without financial embarrass-
ment, and the electors of the State may have the privilege
of voting for such a man. A free and uncorrupted ballot
is the supreme safeguard upon which rests the per-
manency of our free institutions and the hope of the
future destiny of our State and Nation. We must make
certain the purity of the ballot. Every form of election

corruption should be severely punished. Candidates
should be restricted in the purposes for which money
may be expended and should be limited to a specified sum
which can be expended for such purposes. I respectfully
recommend the enactment of a primary election law
which will provide:

1. A specified limit or maximum which may be spent
by or on behalf of or in any manner in furtherance of the
candidacy of any candidate for each of the elective offices
-Federal, State and County.
2. Specifying clearly the purposes for which it will be
legal for any candidate, or for any person or committee
or club or other organization of persons, to expend,
directly or indirectly, the amount authorized by law to
be spent in behalf of the candidacy of any candidate for
office.
3. That no candidate, citizen, political committee or
club, or other organization of persons shall be allowed to
employ speakers or political workers, and .shall not be
allowed to compensate any such speaker or worker, direct-
ly or indirectly, or to pay their traveling expenses or
other expenses.

4. That a sworn statement of all campaign expendi-
tures made by any citizen or association of citizens or
club shall be made in duplicate and filed within six days
from the date of the expenditure. One copy thereof shall
be filed with the Clerk of the Circuit Court of the county
in which the expenditure was made, and one copy shall
be filed with the Secretary of State at Tallahassee.
5. That sworn detailed itemized statements of ex-
penditures made, of contributions received and of out-
standing obligations in any wise pertaining to a candi-
dacy for public office, by a candidate or his campaign
manager or campaign committee, shall be made in dupli-
cate if such candidacy is for a State or National office.

26

and one copy thereof shall be filed with the Clerk of the
Circuit Court of the county where the candidate resides
and the other copy shall be filed with the Secretary of
State at Tallahassee, not more than thirty-five days nor
less than thirty days prior to the date of the primary. A
similar statement shall be so filed not more than twenty-
five nor less than twenty days prior to the day of the
primary, and another such statement shall be so made and
filed not more than twelve nor less than eight days prior
to the day of the primary. Within ten days after the
primary another statement covering all such items shall
be so made and filed. Said requirements to also apply as
f'ar as applicable to the second primary. That if the can-
didate aspires to an office to be voted upon Iby the voters
of only one county, such statements shall be filed only in
the county where he resides.
6. That upon every piece of literature or campaign
article published and circulated the name of the person
having it published or circulated shall thereon appear.
If published or circulated by a club or a committee, the
name of the Chairman and Secretary shall appear.
7. That every candidate, campai-gn manager, campaign
committee or political club, shall at least six days prior
to the day of publishing or circulating, any charge or
attack against a candidate, serve a copy of the same on
the party against whom the charge or attack is to be
made and if the reply to such charge or attack contains
any charges that do not directly arise from the attack
which is being answered, a copy of the reply shall be
served upon the party to whom reply is being made at
least five days prior to its publication.
8. That all persons who upon a promise of pay or for
pay does any speaking, or political work, for or against a
candidate shall be punished by a heavy penalty.
9. That an appropriation of a reasonable sum shall be
made for the puIrpIose of the detection of violations of the
primary lbw.

27

All other provisions necessary to give us a strong pri-
mary law should be added.

VOTING IN PRIMARY ELECTIONS.

The primary elections, being restricted to the white
voters, mere irregularities in marking the ballot, if the
intention of the voter is clearly indicated, should not
be cause for throwing out the ballot. The primary law
should be so amended as to provide that where a voter's
intention is clear on the ballot, the vote should be count-
ed, though technically there might be an error in the
marking of the ticket.

TRAVELING MEN AND RAILROAD EMPLOYEES
RIGHT TO VOTE WHEN ABSENT
FROM HOME.

Many traveling men and also a considerable number
of railroad employees, who are qualified voters of this
State, are often deprived of the privilege of voting on
account of their absence from the County in which they
are registered, upon the date of the primary or election,
such absence being due to the fact that their employ-
ment requires them to be away from home a great deal
of the time. That they may be allowed to vote when
absent from their home County, I recommend the enact-
ment of a law providing that a traveling man or railroad
employee or other voter who is required to be absent from
his home upon presenting his registration certificate, his
poll tax receipts, and satisfying the election officers as
to his identity, and that he has not voted in his home
county or any other county or precinct and will not be
able to do so, shall be allowed to vote for National and
State officers :t lMe place where he may be, and, that
his vote shall be restricted to such officers, the law should
provide that lie shall be furnished with only that portion

of the ticket covering Nat-ional anid t(ate officer-;. Such
law to provide suitable penalties for any effort to vote
or for voting at more than one place.

APPROPRIATION FOR DETECTION OF EECT ION
FRAUDS.

A law should be passed providing an appropriation of
a reasonable sum, which may be used by the Governor or
the Attorney General, for the purpose of employing
detectives and special agents to detect and have punished
any violations of the Election or the Primary Election
laws. This measure may also provide for the Sheriff
and other police officers to report to the Governor or
Attorney General any suspected violations requiring
special investigation.

DIRECT ELECTION OF UNITED STATES
SENATORS.

Under date of May 17, 1912. the Secretary of the United
States, transmitted to the Governor of this State a certi-
fied copy of a resolution of Congress, entitled "Joint Reso-
lution Proposing an Amendment to the Constitution Pro
hiding that Senators Shall be Elected by the People of the
Several States. The text of this proposed amenendment to
the Constitution of the United States is as follows:
"Resolved by thSe -Senate and House of Representatives
of the United S1-ates of America in Congress assembled
(two-thirds of each house concurring therein), That in
lieu of the first paragraph of Section : of Article 1, of the
Constitution of the United States. and in lieu of so much
of paragraph two of the same section as relates to the fill-
ing of vacancies, the following be proposed as an amend
ment to the Constitution, which shall be valid to all in
tents and purposes as part of the Constitution when rati
fled by the Legislatures of three-fourths of the States:

29

"The Senate of the United States shall be composed of
two Senators from each State, elected by the people
thereof, for six years; and each Senator shall have one
vote. The electors in each State shall have the qualifica-
tions requisite for electors of the most numerous branch
of the State Legislatures.

"When vacancies happen in the representation of any
State in the Senate, the executive authority of such State
shall issue writs of election to fill such vacancies: Pro-
vided, That the Legislature of any State may empower the
executive thereof to make temporary appointments until
the people fill the vacancies by election as the Legislature
may direct.
"This amendment shall not be so construed as to affect
the election or term of any Senator chosen before it be-
comes valid as part of the Constitution."
I strongly recommend that the said proposed amend-
ment of the United States Constitution be ratified by the
Legislature at the present session. The direct, popular
election of the United States Senators is demanded by
the public sentiment of this day. There is no valid reason
why our Senators should not be directly elected by the
voters of the respective States.

THE COMMON SCHOOLS.

The great masses of the children of this State are de-
pendent entirely upon the common school for their educa-
tion. But few comparatively ever have the opportunity
to acquire a collegiate education. Whatever educational
aldv;nitage a gIeilt majority of our future statesmen, our
farlmers, our 0 business tmen .1 all others who are to later
assIumle the responsibility for the welfare and prosperity
6f the State, are to have, must largely be extended through
the common schools.

30

Our State colleges are worthy o1f -pport and are indeed
a credit to Florida; but I would recommllendl equal at-
tention to the nee the ee thi e building of the common
schools-for they are in factl the only college a large per-
centage of our people can ever attend. Past legislatures
have been liberal in their appropriations for the institu-
tions of higher learning, but can as much be said in re-
gard to the consideration given to the common schools?
I fear not. It is unnistakably shown by the netual con-
ditions, particularly in regard to the rural schools, that
more could and should be done to advance their standard.
Their terms are too short, their equipment and general
facilities are inadequate. Their teachers as a rule are
poorly paid. The need, as I see it, is for more uniformity
in the length of term, in equipment and in tle salaries
paid teachers.

The hundred and fifty thousand children in the corin
mon schools will have no special delegations before you
to llead for them, but their ambitions for an education,
the anxious hopes of fond parents for their success in
life, and, in fact, the future welfare and happiin.ss of
our people and the destiny of our State must appeal to
you for a liberal and just consideration of their cause.

ADDITIONAL INSPECTOR FOR RURAL SCHOOLS.

We have now one High School Inspector and one in-
spector for the rural schools. The salary of the latter is
paid almost entirely from an outside endowment in-
stead of by the State. Inasmuch as it is physically im-
possible for one inspector to meet the demands of the
rural schools, I submit for your consideration the wisdom
of providing for one additional inspector for the rural
schools.

31

AGRICULTURAL, MECHANICAL AND DOMESTIC
SCIENCE TRAINING IN THE PUBLIC
SCHOOLS.

It is the source of much gratification to me to see the
good which has been accomplished by requiring the ele-
ments of Agriculture and Civil Government to be taught
in the public schools, especially since I was the author
of the measure which placed this law on our statute books.
I recommend the enactment of a law which would pro-
vide for the teaching cf at least the elementary principles
of domestic science and, as far as practical, mechanic'
training in the public schools of the State.
There has been a marked advancement in Florida's
public schools in recent years; but I am convinced that the
most needful thing at this time in our public school policy
is a more practical training for our boys and girls.

EQUAL LENGTH TERMS OF TOWN AND COUNTRY
SCHOOLS.

The tax payers of the rural "districts being required to
pay the same rate of taxation to the General School Fund
for school purposes that is paid in the towns and cities.
it is my opinion that the country schools should be main-
tained from the said General School Fund for'terms equal
to those provided for the town and city schools from this
general fund. A law should be passed so providing.

MAKE LADI ES ELIGIBLE FOR SCHOOL
TRUSTEES.

I have no doubt in my mind that a great many Indies
would make most excellent local District school trustees.
They are certainly interested in the welfare and educ;-
tion of the children. Many of them are among our best
and most efficient teachers. As there is no Constitu-

32

tiomnal inlhii ition against a lady holding office iln lorida.
it is within the power of the Legislature to pass a law
making her eligible for election as a school officer. Be-
lieving in many instances it would be wise to have a
lady upon the Board of Sub-District Trustees, I recom-
mend the enactment of a law which will permit them
relprsentation upon said local boards. With tile right
to hold such olfices extended to women it will then be a
matter of preference with the voters as to whether or
not they shall be elected to such places.

LIBRARIES FOR PUBLIC SCHOOLS.

That the school youth of the State have easy access
to good books and proper reading matter is deemed
highly importaiat. With a carefully selected library in
the public schioo- suitable for lthe respective grades, the
boys and girls would be inclined to cultivate a taste
for reading tile right kind of literature and their at-
eli(,Ion diverted from trashy reading, to which they aire
too often attracted when the better class of books is not
available.
I would therefore reconlmend a law making it the
duty of the County Board of Public Instruction in each
county to provide for circulating school libraries to con-
tain not less than fifty volumes each, the number of
libraries to be not less than one to every ten schools.
and to provide for Ithe care of the libraries and their
exchange from one school to another. The supervision
of the libraries and the details of the circulation of the
same, and the system and rules for use thereof might
very properly be made the duty of the County Superin-
tendent of Public Instruction.
These libraries would cost each county but very little.
The initial and maintenanceee expense would be but a
trifle compared with the great good which they would
accomplish.

33

PROHIBIT EMPLOYMENT OF TEACHER WITH
TUBERCULOSIS.

That the health of the school children may not be en-
dangered, I recommend the passage of a law providing
that no person shall be employed in the public schools
or colleges of this State as teacher, principal or superin-
tendent, when afflicted with pulmonary tuberculosis, and
shall not be retained in any such position when so afflict-
ed.

PUBLISH MINUTES STATE BOARD OF EDUCA-
TION.

Many important State transactions are handled by the
State Board of Education. At present the minutes of
this Board are not printed for circulation. That pub.
licity may be given to the transactions of this Board, I
would suggest the enactment of a law requiring that these
minutes be printed biennially for distribution to the mem-
bers of the Legislature, the press and the public. Three
hundred dollars should be appropriated biennially for
tl is purpose.

BONDS FOR SPECIAL TAX SCHOOL DISTRICTS.

At the general election held in November, 1912, the
electors of Florida adopted the following amendment to
the State Constitution, which had been submitted by the
last Legislature:

"The Legislature may provide for Special Tax School
Districts, to issue bonds for the exclusive use of public
free schools within any such Special Tax School District,
whenever a majority of the qualified electors thereof, who
are freeholders, shall vote in favor of the issuance of such
bonds.
3-H.

34

"Whenever any such Special Tax School District has
voted in favor of the issuahce of such bonds, a tax not
to exceed five mills on the dollar, in any one year, ou the
taxable property within the District voting for the issue
of bonds shall be levied in accordance with law providing
for the levying of taxes, to become a fund for the pay-
ment of the interest and redemption of such bonds."

The interests of the public school system will be ad-
uirably served and greatly advanced if appropriate legis-
lation is enacted at the present session to make this new
constitutional amendment operative. I earnestly recom-
mend that this important matter have your careful con-
sideration.

SALE STATE SCHOOL LANDS ON INSTALLMENTS.

A good law would be one to authorize the State Board
of Educantion to sell State School lands on reasonable
installments.

This would frequently result in the State getting a
better price, would encourage settlers and often aid a
poor man to purchase who would otherwise be unable
to pay all cash for the land he desires.

OPERATION OF UNIFORM STATE TEXT BOOK
LAW.

The 1911 session of the Legislature enacted the Uni-
form State Text Book Law. In accordance with the pro-
visions of this Act, the Governor duly appointed a sub-
Commission co0mlosed of nine members. The said Sub-
C nmission convened il the City of Tallahassee during
the summer of 1911, and after giving due consideration
to the latter of recommending books from which the
State Text Book Commission, which is composed of the
Siate oflieers who are members of the Board of Comn-

35

missioners of State Institutions, made its recommenda-
tions to the said State Commission. In accordance with
the duties imposed upon. the said State Text Book Com-
mission, this Commission, acting as directed by the pro-
visions of the said law, selected and adopted the books
which are to constitute and be the system of Uniform
School Books to be used throughout the State of Florida,
as directed and required by this law.
Without going into details as to the prices made upon
the books which were adopted, I will say that the prices
under the State Uniform System, as provided by this
Act, were uniformly lower than the prices which had
previously been charged for the same books under the
County plan of adoption. I believe that the prices made
and agreed upon for the books which are being furnished
under the contracts for State Uniformity will average
twenty to twenty-five per cent lower than those previous-
ly required under the old system for purchasing school
books. As far as I am advised the State Uniform Sys-
tem is giving satisfaction as well as having furnished the
means of purchasing books at a lower price.

COUNTY AGRICULTURAL AND HORTICULTURAL
AGENTS.

The demonstration work which has been carried on
by the State University and the Federal Government has
made apparent the value to our farmers and fruit growers
of agricultural, horticultural and stock breeding demon-
strations. There is room for enlargement of this very
beneficial work. The fnct that the work of the Agricul-
tural Experiment Station is more or less limited by lack
of funds and the large territory to cover suggests the
value of a demonstrator in the counties who would be
skilled in proper methods of farming and fruit growing,
selection of seed and plants, breeding of live stock, exter-
mination of pests, judging the value and proportions of

36

fertilizers, treatment of soils and the diseases of trees and
plants.

I recommend that a law be passed authorizing the
Board of County Commissioners of each county to employ
such agricultural and horticultural demonstrator when
in their judgment it would be profitable to do so, and
when deemed advisable, to authorize such agent to employ
assistants. Such demonstrator could render valuable ser-
vice by giving practical lessons in agriculture in the pub-
lic schools, thereby making more efficient this branch of
the public school work; also in co-operating with the
corn clubs and tomato clubs, stimulating and extending
this commendable work. The law should allow two or
more counties to jointly employ such demonstrator if
desired.
FARMERS' INSTITUTES.

Every one familiar with the splendid results accom
polished through the holding of farmers' institutes fully
realizes that it is wise to encourage and aid this most
beneficial work. The scope of the farmers' institutes can
and should be so extended as to bring a short but very
useful course in agricultural and horticultural education
to the doors of our farmers and fruit growers. This can
be done, too, without any great expense, by arranging
written courses of study and having them circulated
among the farmers and all others interested some little
time before the institute is to be held. It would seem to
be a very simple and feasible plan for the directors of
the institutes to give notice through the press and every
other available means to all the people of Florida who
may be interested, that the advance written courses of
instruction can be obtained by application to the director,
and that at a stated time a farmers' institute will be
held in a designated town.

At such institutes those who attend can be questioned

37

fully with a view to ascertaining whether they have clear-
ly grasped the substance of the instructions. The courses
can be fully explained and illustrated, and a vast amount
of practical and useful information can thus be imparted.
An institute lasting one or two weeks, should be held in
each county of the State each year, and I recommend an
adequate appropriation to carry out this highly important
work, which can be made of inestimable value to the
farmers and horticulturists of the State and their sons
and daughters. I fully endorse the recommendations of
Dr. P. H. Rolfs, Director of the Experiment Station,
which will be found in the printed report of the Board
of Control.

AGRICULTURAL PRIZES FOR BOYS AND GIRLS,

Any policy which tends to encourage and increase agri-
cultural activities is of unquestionable value to our State.
Florida has an unlimited amount of rich and productive
land and it has untold possibilities for agricultural ex-
pansion. Every reasonable effort should be made to pro-
mote our farming interests. The ambitious boys and
girls of the State will readily respond to the encourage-
ment which might be offered to them by contests in
growing the crops to which the soils of their respective
sections are adapted.
I suggest the wisdom of legislation being enacted which
would authorize the County Commissioners of the various
counties to offer prizes for such contests. In some few
communities in the State contests of this kind have been
inaugurated with splendid results.

STATE AID TO STAMP OUT PEST.

The people generally of the State are interested in
having stamped out and preventing the spread of any
disease or insect which threatens any of our agricultural

38

or horticultural interests to such an extent as to become
a public menace. The State should do all possible to
prevent such injuries to our farm, fruit and grove in-
dustries, and for the purpose of aiding in this behalf I
would recommend an appropriation of $3,000.00 annually
or so much thereof as necessary to be used for this pur-
pose by and under the direction of the Experimental Sta-
tion at Gainesville for this purpose.

FARMERS' DEMONSTRATION WORK.

Under co-operation between the U. S. Department of
Agriculture and the College of Agriculture of the State
University at Gainesville, some most excellent results
have been accomplished in the farmers' demonstration
work. A great deal of information valuable to the farmer
has been disseminated and marked interest has been sti-
mulated in the Boys' and Girls' Club work. Under proper
instruction the boys enlisted in the Corn Clubs: have been
breaking the record in corn production in Florida, and
the Girls' Clubs have been the means of making known
the great possibilities in canning and preserving many
of the Florida products. To further encourage anil en-
large this branch of the farmers' demonstration work, I
recommend an annual appropriation of $1,500.00 to be
used in this behalf.

PROTECTION OF CATTLE INDUSTRY.

The 1910 census credits Florida with about 800,000
head of cattle, valued at about eight million dollars. It
is estimated that about three per cent, of these animals
die annually from cow ticks, causing a loss in deaths from
this source alone of about .-25,000.00 a year. The Federal
Government in co-operation with certain of the State
governments has accomplished splendid results in the
eradication of this pest; and I believe our State, with

39

the aid of the Federal Government, should further extend
the movement in this direction which was recently in-
augurated by the State Board of Health.

"THE STUDY OF CO-OPERATIVE RURAL CREDITS.

On April 28th, 1913, a Commission composed of dele-
gates from practically all of the Southern States will go
to Europe to study co-operative rural credit systems of
European countries. It is believed much information of
great benefit to our rural communities will be gained by
the study to be made by this Commission. Particular
attention will be given to the system of rural co-operative
banks, which are understood to have worked to the great
advantage of the farming people in several European
countries. Florida should be represented on this Commis-
sion, and I recommend prompt action so providing. The
purposes of the said Commission are thus stated:
"To inquire into the business organization of agricul-
ture in Europe.
"To examine the methods employed by progressive
agricultural communities in production and marketing,
and in the financing of both operations, noting: (a) the
parts played, respectively, in the promotion of agriculture
by Governments and by voluntary organizations of the
agricultural classes; (b) the application of the co-opera-
tive system to agricultural production, distribution, and
finance; (c) the effect of co-operative action upon social
conditions in rural communities; (d) the relation of the
cost of living to the organization of the food-producing
classes."

ENCOURAGE OWNING OF HOMES.

That community in which most of the citizens own
their own homes is usually more substantial and pros-

40

perous than the community where but few own the
premises they occupy. This is true the world over, and
there can be no question that our citizens of limited
means, whether living in the country or in towns, should
be encouraged to acquire and preserve their own homes.
For the purpose of offering them some encouragement
and for the upbuilding of our State, I believe it would
be wise to submit a constitutional amendment providing
for exempting from taxation five hundred dollars of the
assessed value of the homestead when actually used and
occupied by the owner.

NO LICENSE TAX ON FARM PRODUCTS.

Florida is vitally concerned in extending its grove and
agricultural interest. We want to encourage our farm-
ers and producers. In this behalf, I recommend the
enactment of a law exempting absolutely from a City.
County or State License Tax, all farm and grove pro-
ducts or the products manufactured therefrom, when being
hadled by and disposed of by the original producers there-
of.
GRAI)ED CORPORATION TAX.

The privileges given to a corporation by the State are
valuable to the incorporators, and gives them rights and
exemptions from liabilities that individuals do not enjoy.
It is for the purpose of exercising these privileges that
persons form corporations. Many States impose an an-
nual tax on all corporations, and I would suggest the
enactment of a law imposing a small annual license tax
on corporations doing business in this State-say from
$5.00 to $50.00, based upon capital stock.

UNIFORMITY OF TAXATION.

T;ix assessment laws that do not apply in equal terms

41

to all are not impartial and just laws. .The Florida tax
laws governing assessments require that all properties
shall be assessed at their full cash value, excepting the
properties of railroad, Pullman and telegraph companies.
The properties of these corporations are assessed under a
special law which makes assessable physical properties
only, not including the value added to the physical
property on account of the franchise privileges enjoyed.
We have no such law regarding other properties.
I respectfully recommend that the law governing the
assessment of the properties of such public utility cor-
porations should be so amended as to have such pro-
perties assessed upon the same basis as all other pro-
perties.

AUTHORIZE THE GOVERNOR TO REDUCE TAX
MILLAGE.

While your Honorable Body fixes the millage to be
levied for general revenue, pensions and the Board of
Health, the Governor should be given authority to reduce
the millage so fixed, if in his opinion a lower rate of
millage will be sufficient to provide the funds required.
Therefore, I recommend the enactment of a law granting
such authority to the Governor.

TAX ON REFRIGERATOR CARS.

The independent lines of refrigerator cars pay no taxes
of any description in this State. I, therefore, think a
measure should be passed requiring a reasonable license
tax on these cars.

PAY FOR PRINTING TAX LIST.

In some counties in the State it has been held by the
authorities that a newspaper publisher was not entitled

42

to compensation for the setting up of tax sale items, when
the said items were never published due to the tax hav-
ing been paid after the Tax Collector delivered the de-
linquent list to the publisher, but prior to the (late for
tist publication. This works a hardship and an injustice
upon the publisher, as the expense of the composition is
possibly greater than the expense of the printing for the
entire number of publications. I would therefore suggest
that Section 50 of Chapter 559G of the Laws of Florida,
be so amended as to plainly provide for a reasonable com-
pensation to the publisher under such circumstances.

DRAINAGE ASSESSMENT FEES PAID BY DRAIN-
AG E FUND.

At present the fees for assessing and collecting the
drainage tax are paid from the general revenue fund.
This being a special tax and for a special improvement,
the general taxpayers should not be required to pay-
these fees, but they should be paid from the drainage tax
fund. A law should be passed so providing.

AUTHORIZE DEPUTY TAX COLLECTOR.

A measure should be passed authorizing the Tax Col-
lector to have a Deputy with authority to act in his stead
and place when necessary.

CANCELLATION OF CERTAIN TAX DEEDS.

A property owner who has paid the taxes on his prop-
erty, and holds a receipt therefore, should have some
remedy for clearing a void tax deed upon his property
without the necessity of a suit in equity, at considerable
cost; this being his only remedy at present. A law
should be enacted providing a method whereby after
proper service the Clerk of the Circuit Court may cancel

43

a tax deed where the property owner presents to him a
tax receipt showing that he paid the taxes on the prop-
erty for the year for which it was illegally sold.

AMEND PULLMAN CAR TAX LAW.

The Pullman Car Company has attacked the constitu-
tionality of Section 47 of Chapter 5596, upon the ground
that it does not provide for a hearing before the Comp-
troller in the event of a failure to make the report of the
amount of gross receipts as required by said Section.
Judge Pardee and two associate United States Cir-
cuit Judges, on February 9, 1911, denied the Pullman
Company a temporary injunction and held the statute
constitutional. From their order an appeal has been
taken to the United States Supreme Court. While I feel
very confident that the United States Supreme Court will
sustain the lower court, however, to remove even the
ground of contention, I would suggest that said section
be amended so as to provide for not less than five days'
notice of the hearing where, on account of the company
failing to make the report of its gross receipts and pay
the tax thereon as required by said section, it becomes
necessary for the Comptroller to make the assessment.

TAX EQUALIZATION.

Possibly no subject is more difficult of solution than
the tax problem. We should have the tax burden bear
equally upon all. There should be absolutely no favorit-
ism extended, either by the tlx Inws or by the assessing
officers. A long step towards equalizing of taxes, in my
opinion, could be accomplished by changing our system so
as to provide for the discontinuance of the levy of an
ad valorem State tax, and have the State government
supported exclusively by the license and franchise taxes.
This would remove the necessity of State Uniformity in

44

assessments, leaving uniformity necessary only in the
counties. In this connection I respectfully call your at-
tention to the report of the Tax Commission, authorized
by the last Legislature.

INHERITANCE TAX LAW.

A very large majority of the States have enacted laws
providing for a reasonable tax upon inheritance. This
seems to be one of the most equitable ways by which to
raise revenue. I recommend the passage of a graduated
inheritance tax law, which will apply to all estates of
more than a certain amount, to be fixed by the law.

CARE OF OLUSTEE MONUMENT.

A monument has been erected on the Olustee battle
field as a fitting tribute to the brave Southerners who so
nobly repelled the invasion of the State during the Civil
War. It is proper that it should be cared for and the
grounds immediately around it beautified and given care
and attention. I, therefore, recoininend that a reasonable
appropriation-not to exceed five hundred dollars per
annum-be made by the Legislature for this purpose, the
money to be paid upon vouchers approved by the Governor
and endorsed as correct by the President of the Florida
Division of the United I)aughters of the Confederacy.

CONFEDERATE SOLDIERS' HOME.

The need and usefulness of the Confederate Home,
located near Jacksonville, will increase with the ad-
vancing years and increasing helplessness of those veter-
ans of the Southern Army who are compelled to resort to
it as their home. These time-worn and valiant defenders
of the Southland are deserving of as generous treatment
as the State is justified in offering and should be assured

45

of the comforts of life. To this end I recommend that an
adequate appropriation be made for the maintenance of
said Home and for such improvements in its equipment
as may be found necessary. The appropriation for this
Institution should be a continuing one, fixed upon a
businesslike basis.

CONFEDERATE SOLDIERS.

The heroism, the bravery, the love of country and
devotion to duty of our Confederate heroes is a heritage
of which our State and the South is justly proud. Every
homage and tribute should be paid these veterans by our
State and her people. I recommend that the pension law
be changed so as to require only ten years residence to
get a pension, and also that you provide liberal pensions
for these heroes of the sixties.

AUTHORIZE GOVERNOR TO APPOINT OFFICERS
WITH AUTHORITY CO-ORDINATE WITH
THAT OF SHERIFF.

The Governor when he deems it advisable in having in
restigation made of alleged law violations, should have
authority to appoint one or more special law officer for
such purpose, with authority to exercise all the powers
of a sheriff in criminal matters, the said officer to have
such authority throughout the State. I suggest the pas-
sage of a law so providing.

AUTHORIZE COUNTY COMMISSIONERS TO EM-
PLOY DETECTIVES WHEN NEEDED.

Under the present law, the Board of County Commis-
sioners are without authority to employ detectives when
deemed advisable to investigate alleged crimes when the
circumstances are such as to make it practically impos-

46

sible for the Sheriff to detect the crime. I believe a law
granting such authority advisable and recommend( its
enactment.

CIRCULATE STATE REPORTS PRIOR TO CON-
VE.NING OF THE LEGISLATURE.

IUnder tVie present system, the biennial reports of the
State officers are not distributed among the Legislators
until after the Legislature is in session. Not reaching
them until this time they have but little opportunity to
study the reports and consider the suggestions made by
the heads of the various departments. These reports
contain valuable information and should be in the hands
of every legislator t. a time when he can give them care-
ful study. A law should be enacted requiring that said
bieniial reports be furnished to each member of the Legis-
lature at least twenty (days prior to the regular sessions
of the Legislature.

In these reports should be required:
"First-A statement in detail of all expenditures in
each officer's department made under the head of the col-
lection of revenue, the enforcement of the law, current
or incidentale expenses paid from either incidental funds
or contingent funds.

"Second-The number of employees in each department
and the salaries paid in detail.
"Third-A detail budget of the entire funds necessary
for each officer's department for the next succeeding two
years.
"Fourthl-A concise but complete statement of all the
operations of the department during the period covered
by the report.
"This will furnish valuable information for the legis-
lators when they come to consider the appropriation

47

measures and give the people information to which they
are entitled concerning the public business."

LEGISLATIVE COMMITTEE SHOULD INSPECT
STATE INSTITUTIONS PRIOR TO SESSION
OF LEGISLATURE.

Heretofore it has been the policy of the Legislature to
designate committees composed of a considerable number
of the House and the Senate to visit the Institutions for
Higher Education, The Hospital for the Insane, The Deaf
and Dumb Institute, The Convict Camps, the State Re-
form School, and the Drainage Operations, during the
session of the Legislature, and report thereon while the
body is in session. This plan for having these institu-
tions inspected by committees from the Legislature takes
a considerable number of the members away from the
daily sessions, and also on account of the desire of the
committee to return to the regular legislative work, gives
but limited time for making the inspections.
It is my opinion that some plan should be devised
whereby these committees could be designated prior to
the convening of the Legislature, so that they may make
their visits and inspections prior to the session, and be
ready to make a report when the Legislature meets.

MUZZLE THE LOBBYIST.

A law should be enacted requiring that any and every
person representing or desiring to represent before any
committee of the Legislature any interest, should be re-
quired to register, in a book to be kept by the Secretary
of the Senate and Chief Clerk of the House of Repre-
sentatives, his name, giving the nature of his employment
and the name of his employer, and the measure upon
which he appears. The next succeeding day the name
of the person so registering should be published in the

48

Journal with the name of his employer and character
of his employment. Only such persons who have so regis-
tered should be allowed to appear before the Legislature
or a committee thereof for or against a proposition.

PUBLISH MINUTES, COMMISSIONERS STATE
INSTITUTIONS.

The law does not require the minutes of the Board of
Commissioners of State Institutions to be published. This
Board handles many important affairs of State during
each year, and I deem advisable a law to provide for the
printing and distribution of its minutes bi-ennially.

UNIFORM SYSTEM OF PUBLIC ACCOUNTS.

There has been in recent years a great impIrovement in
nearly all the counties in regard to the system of keeping
the public accounts, but in order that this may be per-
fected I recommend that a uniform system of public ac-
counting in the county offices be established by providing
for the State Comptroller and the State Auditor to pre-
scribe and enforce the use of uniform books and blanks,
and also authorizing them to require the system pre-
scribed to be used by every county official whose duty
includes the keeping of any part of the public accounts.

REQUIRE OFFICERS TO PAY OVER PUBLIC
FUNDS PROMPTLY.

All money belonging to the State or a county when
paid to an officer should be promptly paid over to the
public treasury. No officer should be allowed to hold the
public funds for an indefinite period. I would suggest
the enactment of a law requiring that all officers collect-
ing public funds shall pay the same to the proper officer
within ten days after the first day of the month next

49

succeeding the month of receiving the same, with the
penalty of removal for a failure to comply with the law.

LIVE STOCK INSURANCE.

The present laws governing the conditions upon which
insurance companies may be authorized to enter the State
for transacting business require investments in approved
securities amounting to $250,000 for fire insurance and
casualty companies; $200,000 for Life Insurance Com-
panies, and $200,000 for Live Stock Insurance Companies.
As a result of the high requirement in the case of com-
panies insuring only live stock practically every company
in the United States writing this class of risks are barred
from the State. There is not at present, nor has there
been for some time past, a single live stock insurance com-
pany in the State. Our stock owners are thus prevented
from having any opportunity to insure their live stock
if they so desire. There are a number of reputable live
stock insurance companies which are at present admitted
to practically every other Southern State except Florida.
which would probably enter this State but for the pro-
hibitive requirement in the law in force. Since the
amount of the risks written by such companies are con-
siderably smaller than life insurance or fire insurance, I
would recommend that the law be amended so as to per-
mit these companies to enter, and believe that a $50,000
investment requirement for companies writing only live
stock insurance would be ample and would be then a
greater proportionate protection than the law now affords
in reference to fire and life insurance companies.

PROHIBIT INSURANCE COMBINES.

There is considerable complaint that life and fire in-
surance is excessively high. It is also apparent that the
insurance companies have some mutual understanding in
4-H.

50

the nmuiter of fixing rates. 1 would, therefore, suggest a
law that would make it unlawful for two or more insur-
ance companies doing business in this State, or for of-
ficers, agents or employees of such companies, to make or
enter into any combination or arrangement relating to
the rates to be charged for insurance, the amount of com-
mission to be allowed agents for procuring the same, or
the manner of transacting such business within this
State.

AUTHORITY TO REPLACE PUBLIC PROPERTY
WITH PROCEEDS OF INSURANCE.

At present in the event of the destruction of any of
the State buildings by fire there is no authority to re-
build. To supply this defect in the law a measure should
be passed providing that in cases of loss of public prop-
erty by fire the proceeds from the insurance shall, under
the authority of the proper officers, be used in replacing
the destroyed property.

SURETY COMPANIES STOCK INCREASE.

Section 2780 of the General Statutes provides that the
capital stock of a surety company incorporated in this
State shall be not less than five hundred dollars. This
section was evidently intended to be a copy of Section
2226 of the Revised Statutes, which required the capital
stock of such companies to be five hundred thousand
dollars. The amount of stock now required is too small,
and I would therefore suggest that said section be so
amended as to require that surety companies incorporat-
ing in this State shall have a capital stock of not less
than One Hundred Thousand Dollars.

LICENSE REVOKED WHEN INSURANCE COM
PANY DOES NOT PAY TAX.

There is no provision made in Section 8 of Chapter
5595 for the enforcement of the payment of the tax of
two per cent upon the gross receipts of insurance com-
panies. Therefore the State's only remedy is by an as-
sumpsit action. To remedy this defect in the law I would
suggest the passage of a law providing that no license
shall be issued to an insurance company which has not
paid to the State all license taxes due, and in the event
that the defaulting company has a license to do business,
that it shall be revoked by the Insurance Commissioners.

INVESTMENT OF INSURANCE FUNDS.

It is the policy of insurance companies to invest their
surplus funds in interest-bearing securities. Every State
is, in my opinion, entitled to have invested in the State a
reasonable percentage of the net surplus realized in that
State. At least a part of the money earned in Florida
should be invested in this State. I therefore recommend
the enactment of a law requiring that life insurance com-
panies invest a reasonable percentage of its net surplus
from Florida earnings in securities of this State.

REFORM CIVIL COURT PROCEDURE.

The court procedure in this State has become more or
less antiquated and out of balance with the present day
thought and progressive spirit of the times. There is
need for reform in the law and rules which govern the
proceedings in our courts.
Florida has as honorable, able and efficient jiIh-iary
as any State in the Union. The fault is not with the
judiciary, but with the law and rules by which our courts
are guided. Under our present system it is impossible

52

to force a trial in a civil case in less than six to twelve
months. Every kind of technical dodge that will cause
delay is permitted. The law should be so changed as to
expedite and hasten trial. A litigant should be able to
get a hearing on his case within one to two months after
suit is instituted. The pleadings should be simplified and
technicalities eliminated in all of the courts. The time
allowed for entering and perfecting appeals should be
shortened. With a change of our law along these lines
much will be accomplished towards giving to our citi-
zens justice without unreasonable delays and without
excessive cost.

REFORM CRIMINAL PROCEDURE.

Our laws relative to indictments and informations in
criminal cases should be so reformed as to make more sim-
ple the complaints against alleged offenders. These pro-
ceedings are now so technical that often the guilty escape
punishment.
I would recommend a law prescribing and setting forth
a simple form of indictments and informations applicable
to the most frequent crimes.

REQUIRE BOND WHEN LIS PENDEJNS IS FILED.

If a person instituting suit desires to attach property.
he is under our law required to file a bond to indemnify
the opposite party against any damage he may suffer on
account of such attachment if the attaching party is
not successful in his suit. This is not true in the matter
of placing a lis pendens on real property. A person who
sues, where real property is involved, can, under the pro-
visions of Section 1(49 of the General Statutes, file a
lis pendens without bond. Often in these cares, there is
but little justification for the suit in which the lis
pendens is placed upon real estate; but regardless of

53

the fact that the party suing loses his case, and, on
account of the lis pendens, the title to the innocent land
owner has been clouded, he has possibly suffered great
damages thereby, and he has no remedy against the per-
son who placed the lis pendens on the property. The law
should be amended so as to require that when a lis pen-
dens is instituted, a bond to idemnify against damages
should be given.

REQUIRE BOND IN GARNISHMENT.

The garnishment law should be so amended as to re-
quire a bond from the person instituting garnishment
proceedings, the same as is required in attachment pro-
ceedings.

APPROPRIATION FOR MANDAMUS PROCEEDINGS
BY STATE.

While it may at any time become necessary for the At-
torney General to institute mandamus proceedings or
quo warrant, to protect the interest of the public, there
is no appropriation made to meet the expenses that would
be incident thereto. I therefore suggest that a standing
appropriation of one thousand dollars should be made
to meet any emergency that may arise in such extraordi
nary proceedings.

TORRENS SYSTEM OF LAND TITLES.

What is commonly referred to as the Torrens System of
Land Titles has proved very satisfactory in a number of
States. I recommend that you investigate this system
and take the necessary steps looking to such adoption of
it as will at least permit those who desire, to have such
record and abstract made of their property.

54

TAX TITLE SUITS.

A law should be enacted providing that in ejectment
suits where defendant is claiming under a tax title, he
shall be allowed to set up as a set-off against mesne profits,
reasonable value for improvements and his expenses for
taxes and assessments against the property while held
by him under tax title.

SUPREME COURT'S OPINION, CERTAIN CONSTI-
TUTI ONAL QUESTIONS.

A measure should be passed authorizing the Governor,
the Legislature or the Attorney General, in matters of
great public moment, to submit to the Supreme Court of
the State, questions for decision, in which constitutional
points are involved. At present the Governor only may
request the Supreme Court to give an advisory opinion
upon its interpretation of the constitution upon ques-
tions affecting the constitutional powers and duties of
the executive only.
This authority would doubtless be seldom exercised;
however, at times it would be best for the State if such
power existed. As an illustration, we may take the ques-
tion of the constitutional authority of cities to issue
bonds for school purposes. For at least ten years there
was a diversity of opinions as to whether or not such
authority existed. Long ago it should have been adjudi-
cated, yet this important public question remained un-
settled until some two years ago when brought to the
Supreme Court in a private suit instituted against a city.
With a law as I recommend this question could have
been settled when first raised.

CONSTITUTIONAL QUESTIONS RAISED IN
SUPREME CURT.

Under our present procedure frequently a constitu-

55

tional question raised upon appeal is not passed upon by
the Supreme Court when raised, it being the rule to
dispose of a case upon other than constitutional points
when it can be done. That the constitutionality of a
law may be settled when raised, I recommend a law re-
quiring that when the constitutionality of a statute is
raised in the appellate court, the question should be
passed upon. Such law would often save the time and
expense required for a second trial.

ABOLISH RULE UNANIMOUS JURY VERDICT.

I strongly believe in a fair and impartial trial by jury
and that this right should in no way be infringed; yet I
think our system, which requires a unanimous verdict,
often defeats justice and entails upon the State or liti-
gants large additional expense by allowing one member
of the jury to bring about a mistrial, thereby necessitat-
ing another trial and delay in justice, although all the
other jurors favor and agree upon a verdict.

I think the system Should be so changed that in cases
tried by jury of six, five out of six of the jurors, and in
cases tried by twelve jurors, ten out of twelve jurors
agreeing can render the verdict of the jury, and I would
suggest a constitutional amendment so providing. This
would certainly still leave every protection of trial by
jury and would in no wise injure the just cause of any-
one.

CHARGE JURY ON RECOMMENDATION OF MERCY.

A measure should be passed requiring the court to
instruct the jury in all trials for murder in the first
degree, that it may recommend mercy and what effect
such recommendation will have upon the sentence.

56

INSTRUCT JURY UPON PENALTY.

As the character and extent of the punishment which
may be inflicted upon one convicted of crime may in-
fluence the jury in fixing its verdict, I would suggest that
the law should require the court to acquaint the jury
with the punishment which may be imposed for the differ
ent crimes or degrees of crime of which the person on
trial may be convicted.

TRANSFER CASE TO PROPER COURT.

'In certain cases where a suit is brought in the wrong
court and thrown out for the want of jurisdiction, the
party may lose his right on account of the statute of
limitations having barred his action. To remedy this
weakness in the law, I would recommend the passage of
a law providing that no cause, proceeding or appeal
should be dismissed or thrown out of court solely on
account of being brought in or taken to the wrong court
or venue, but if there is a court where it may be brought
or prosecuted, it should be transferred to such court, all
prior proceeding being saved.

SUBSTITUTE JUDGE FOR PREJUDICE JUDGE.

A change of venue on account of the prejudice of the
judge as provided in Sections 1471 and 1475 of the Gen-
eral Statutes, requires the transfer of the cause to an-
other district or county entailing either to the litigants
or the county and State the extra expense of carrying
the witnesses to the district or county to which the case
is transferred, necessarily making the expense much
larger than if the case was tried in the county in which
it was instituted. When the change of venue is asked
merely upon the prejudice of the judge there is no reason
why the case should be transferred. Instead a judge

57

should be substituted for the one who is alleged to be
prejudiced. I recommend that the law be amended ac-
cordingly.

RECLAMATION OF EVERGLADES.

Practically every citizen of our State who is familiar
with the Florida Everglades and the reclamation work
that is now being carried on there realizes the great
importance and magnitude of the drainage operations
now being carried on by the State. Under more or less
financial embarrassment this State enterprise has made
marked progress, and it is believed that it is worthy of
being continued to its completion. As there are many
features connected with the reclamation and the future
drainage operations which I desire to bring to the at-
tention of your Honorable Body, this subject will be
covered thoroughly in a Special Message to be trans-
mitted later.

EXPERIMENTAL FARM IN EVERGLADES.

That the diversity of crops for which the soil of the
Everglades land is suitable may be ascertained, and also
for the purpose of demonstrating the agricultural value
of this land for the production of the different crops, I
deem it advisable that you pass a bill providing that the
Trustees of the Internal Improvement Fund, shall estab-
lish and maintain, so long as they believe for the best
interest of the State, one or more experimental farms in
the Everglades. The State owns within the Everglades
about one million acres of land, and it is my opinion that
such Experimental Farms, which would be of but little
expense upon the Internal Improvement Fund, would
add very materially to the development of the State as
well as enhance very much the value of the State's land
;n1l other h1nds in that territory.

58

AUTHORIZE LOCAL DRAINAGE DISTRICTS.

The greatest and most important work now being car
ried on by the State, is the drainage and reclamation of
what is commonly known as the Everglades. This work,
which was inaugurated under the administration of the
late lamented Governor Broward, who, with his master
S mind, saw the possibilities in reclaiming this vast area
of rich and fertile lands, and thereby adding to the ma-
terial wealth and prosperity of our State, has continued
to progress with all reasonable dispatch; and with the
marked advancement that has been made, it is but a ques-
tion of a short time until in addition to the main canals
which are being constructed by the State, a system of
lateral canals and local ditches will have to be inaugu-
rated. That we may be prepared for this further step in
this great enterprise, I would suggest the enactment of
a law providing for the establishment by the property
owners of local drainage districts.

STRENGTHEN CORPORATION LAWS.

Our laws governing the formation of corporations for
profit are too lax, and should be so amended as to give
better protection to the public against those who take
advantage of the weakness of the law to carry on wild-
cat schemes. I recommend that the law be changed so
that it will provide:

1st. That a corporation shall not be allowed to pay
out more than ten per cent of its CAPITAL STOCK for
commissions to agents selling stock.

2nd. That all corporations desiring to sell stock
through agents shall prior to offering the stock for sale
submit to a Board consisting of the Attorney General,
the Comptroller and the State Treasurer a detailed de-
scription of the assets and liabilities of the corporation,

59

and shall submit any additional evidence or statement
required by said Board to satisfy the Board that the cor-
poration is solvent and that its stock possesses substantial
marketable value. The said Board should be author-
ized to grant permits for the sale of such stock, but should
grant no such permit until satisfied with the showing
made by the corporation as to its financial condition.

3rd. That Section 2659 of the General Statutes should
be so amended as to provide a more stringent and ef-
fective penalty for failure of the officers of a corpora-
tion to make annual returns as to the status of the stock
and financial condition of the corporation.
4th. That all corporations desiring to increase the
amount of the corporation stock, shall pay to the Secre-
tary of State for the use of the State $2.00 per thousand
upon the increase, the same as required when originally
incorporated.
5th. That the maximum charter fee for new corpora-
tions be changed from $250 to $500.
6th. That no corporations be allowed to transact any
business until at least twenty-five per cent of the capital
stock has been paid in.
7th. That no corporation be authorized under one
cThdrter to transact more than two distinct classes of
business. (At present under one charter they may get
authority to transact as many classes of business as de-
sired.)

NO TWO CORPORATIONS WITH SAME NAME.

Our law for chartering corporations and permitting,
foreign corporations to do business in this State should
be amended so as to clearly provide that there should
be no two corporations of the same name authorized to
do business in this State.

60

AMENDMENT TO RAILROAD COMMISSION LAW.

The Railroad Commission point out in their report the
need of an amendment in the law relative to an increase
in their powers, especially along certain lines-to-wit:
I. Lack of power to prescribe joint rates for rail and
water carriers.
II. Penalties imposed by the Commissioners ought to
have the force of a lien on the property of the common
carrier until paid, or until they are determined in favor
of the carrier.
III. More specific powers in some instances, as it ap-
pears that while the general powers of the Commission
are broad, some railroads are disposed to contest specific
authority in practically all orders.
IV. A law granting speci power to require closets in
coaches and in depots to be kept in sanitary condition.
I respectfully recommend the passage of a law grant-
ing the additional powers requested by the Commission.

NOTICE TO ATTORNEY GENERAL OF APPEALS.

As the Attorney General is frequently never served in
cases of unperfected appeals in criminal cases to the
Supreme Court, I think the law should require the Clerk
to notify him when an appeal is taken. Under the pres-
ent system with no notice to the Attorney General in cer-
tain cases a prisoner remains in the county jail at a
considerable expense to the county, and a loss to the
State of his services, for several weeks or months after
the expiration for the tiipe for perfecting the appeal, for
the reason that the county authorities are waiting for a
disposition of the case by the Supreme Court. The court
has no knowledge of the case, the Attorney General has
never heard of it, therefore there can be no disposition

61

of it until per chance some county officer or the State
Attorney brings it to the attention of the Attorney
General, when he has the case docketed and dismissed
in the Supreme Court.

PROHIBIT FOREIGN PUBLIC SERVICE CORPORA-
TIONS SUING IN U. S. COURT.

I would suggest the passage of a law providing that a
foreign public service corporation which removes a suit
to a Federal Court or institutes'a suit therein which it
could not move to a Federal Court or institute and main-
tain therein if it were a domestic corporation, shall for-
feit its right to do intrastate business within this State.
A law of this character would, I think, aid the State in
regulating public service corporations and very much
hasten litigation between the State and a foreign public
service corporation.

STATE RIGHT OF APPEAL.

Under our present law the State is deprived of the
right of appeal in a criminal case upon the constitution-
ality of the law. Should a Justice of the Peace, a County
Judge or the Circuit Judge in a criminal case declare
the statute under which the case is being tried to be un-
constitutional, there is no means provided for the State
to have the ruling of the trial court passed upon by an
appellate court. That we may have the constitutionality
of criminal statutes passed upon by the appellate court
when they are declared unconstitutional by the lower
courts, I suggest that a measure should be passed allow-
ing the State the right of appeal in such cases.

COMPENSATION OF CORONERS.

Section 4100 of the General Statutes provides that*

62

"The coroner's fees shall be as follows: S numoning jury,
taking inquisition of dead body and making return there-
of, three dollars, and five cents for each mile to and from
the place of inquest by the nearest practical route, to be
paid by the county. For any other official service, he
shall receive the same fees as Sheriffs." Owing to the
distances which coroners frequently have to go in this
State to hold inquests, and the high charge which they
mn1ust pay for a vehicle to transport them, especially when
they are detained some time at the scene of the inquest,
it appears that coroners are sometimes at greater ex-
pense in getting to and from such place than is covered by
their entire fee bill. It is suggested that the statute might
be made somewhat more liberal, so as to prevent the
obvious injustice which is worked in such cases.

REQUIRE COMMON CARRIERS TO FURNISH CARS
FOR PERISHABLE PRODUCTS IN CERTAIN
TIME.

That the producers of perishable fruits and farm
products may have cars furnished to them by common
carriers for the prompt shipment of such perishables, or
in the event of their failure to promptly furnish cars,
that the producer may be compensated in damages, I
recommend the enactment of a law making it the duty of
common carriers to furnish to any grower or growers of
perishable fruits and vegetables, suitable icing and re-
fri-gerator cars or other suitable cars for the transporta-
tion of such products when application in writing is
made therefore, a reasonable number (the number to be
inserted) of hours in advance of the time such car or cars
are wanted for loading. And providing that in the event
common carriers shalI fail to so furnish such cars, the
shipper shall be entitled to recover the damage he has
suffered on account of such failure or delay based upon
the market value of his products.

63

REQUIRE RAILROADS TO PROVIDE OPENINGS
FOR DRAINAGE CANALS.

In carrying on the drainage work the Drainage Board
has found that in order to pass a dredge through the
railroad right-of-way it was necessary for the State to pay
all of the expense necessary in making the opening across
the railroad, and also in rebuilding trestles or building
new trestles when necessary.
As the drainage canals are part of the work of a
great public system for the reclamation of swamp and
overflowed lands, and are beneficial to every business in-
terest in the territory where they are excavated, including
the railroads, it is my opinion that a law should be en-
acted requiring railroads to provide openings for drain-
age canals without cost to the State.
I further recommend that a law be passed requiring rail-
roads to provide sufficient drawbridges, when necessary,
to permit of navigation upon any drainage canal of suf-
ficient capacity to be used for navigation.

FEDERAL GOVERNMENT SHOULD CONTROL EAST
COAST CANAL.

The inland canal extending southward from the St.
Johns River, near Jacksonville, to Biscayne Bay, which is
now owned by a private corporation, should, in my opin-
ion, be controlled anil operated by the United States Gov-
erinenit. The law nmdL t which this canal was construct-
ed (nly required it to be fifty feet wide and five feet deep.
If this were done with Federal control, the Government
With Federal control, the Government would undoubtedly
increase the carrying capacity of the canal and insure
its being kept at a high standard for purposes of naviga-
tion. This would prove a great boon to the whole East
Coast, which is one of the most rapidly dre lopiun sec-

64

tions of the State. It is suggested that action by the
Legislature, either in the form of a memorial to Con-
gress, or otherwise, might assist in inducing the Govern-
ment to acquire and improve this canal, and thereby in-
sure reduced rates )f freight and passenger traffic to
that proving section of the State.

ASK FEDERAL GOVERNMENT TO MAKE TRANS-
PORTATION WATERWAY OF DRAINAGE
CANAL.

The system of drainage canals excavated in the Ever-
glades has already provided a waterway across the south-
ern part of Florida, and will later provide one or two
other waterways across the State. These waterways fur-
nish to an extent a means of water transportation, but
they could by being deepened be made more efficient for
navigation. It is my opinion that the Federal govern-
ment, slih uld be requested to take over and make one or
r.ore cf these canals a first class water course from the
Eastern to the Western shores of Florida. That such
movement may be begun, I respectfully recommend that
your Honorable Body pass a suitable memorial asking
Congress to make an appropriation for a survey looking
to the establishment by the Federal Government of a
waterway across the Southern lart of the Stale.

REGULATE RATES CANAL COMPANIES.

At present the Trustees of the Internal Improvement
Fund approve the toll rates to be charged by canal com-
panies. The law should be so changed as to authorize
the Railroad Commission to fix and regulate the rates to
be enforced by canal companies.

65

PROHIBIT SHIPMENT OF LIQUORS IN DRY TER-
RITORY.

Under a recent Act of Congress, known as the Webb
Act, authority has been granted to the States to prohibit
the shipment of intoxicating liquors when same is to be
used for commercial purposes, from wet territory into dry
territory. This was one of the most important enact-
ments of the last Congress and has furnished people of
those sections, who desire to suppress the sale of intoxi-
cating liquors, with authority which will help them ma-
terially in preventing evasions of the local option laws.
It is recommended that the Legislature pass a law which
will permit the counties of Florida to enjoy the full
benefit of the authority granted in the said Webb Act.

CLOSING SALOONS PRIMARY ELECTION DAYS.

Section 240 of the General Statutes requires the clos-
ing of all saloons on days of general elections. There
seems to be a question as to whether the requirement that
saloons be closed must apply to days on which primary
elections are held. Saloons should certainly be closed on
primary election days and I recommend that the law be
so amended that there can be no doubt of its application
to same.

INCREASE PENALTY FOR DRUNKENNESS.

Section 2631 of the General Statutes provides a fine not
exceeding five dollars for drunkenness. I believe the
penalty should be increased, so as to provide a fine not
exceeding twenty-five dollars or imprisonment not ex-
ceeding thirty days. This would give better protection
to people living, outside of incorporated towns and cities,
and also the traveling public.
5-H.

6(

(GIVING LIQUG ON SALE OFi OTHER ARTICLES.

Section 3551 of the General Statutes provides that
"Whoever gives, or by pretended sale of any other article
furnishes any liquor, wine or beer to a customer, or per-
mits the same to be done with a view to entice custom or
evade the law, shall be deemed a seller without a license
and liable to the penalty for selling liquor without
license." This provision does not apply to dry counties.
I would, therefore, suggest a similar law so drafted as to
be enforced in counties that have adopted local option.

CRIMINAL STATISTICS.

A law should be passed requiring the Clerks of the
Circuit Courts, Criminal Courts of Record and County
Courts, to make biennial reports to the Attorney General
of all criminal cases in such courts respectively, said
report to give all information necessary for the prepara-
tion of a State Report on Criminal Statistics, for which
service the clerks should be allowed a reasonable fee.

ASSAULT UPON WOMEN.

A law should be passed more severely punishing in-
decent assaults upon women, such assaults as do not
quite come up to the definition of assault with intent to
commit rape. At present the only punishment is as for
ordinary assault. This subject is discussed by the
Supreme Court in the case of Ruslhtn vs. State, 58 Flor-
ida Reports, at page 94.

CRIMINAL ASSAULT, ATTEMPT.

A brutal attempt to rape is deserving of just as severe
punishment as rape. In such cases it is not the fault of
the brute tlat he fails in his purpose, yet our law provides

67

only a sentence of not exceeding twenty years for an
attempt. I think the law should provide that such
offenses shall be punished by death or life imprisonment,
and it is recommended that the law be made to so pro-
vide.
ANTI-TRUST LAW.

A large majority of the States have passed anti-trust
laws, and, in my opinion it is advisable that a strong
anti-trust law should be enacted in Florida.

HOMESTEAD AND EXEMPTIONS.

Under our present homestead and exemption law, a
person may have property worth many thousand dol-
lars exempt from his debts. The law is too liberal, and
a constittitional amendment should be submitted to the
voters, cutting the homestead exemptions down to real
estate of reasonable value and a reasonable amount of
personal property.

AUTHORITY TO SELL STATE LANDS HELD BY
RIGHT OF SOVEREIGNTY.

In Florida, as in practically all other States of the
Union, the State owns more or less land held by right
of sovereignty. This ownership of the State consists
of the land between the high and low water mark on a
number of streams and bodies of water in the State and
the beds of all the navigable lakes and running streams
within the State. In some of the streams and lakes more
or less phosphate deposits exist. Upon some of the land
so held there is more or less valuable timber. In many
instances the timber has been removed from this land by
trespass without the State having received any compen-
sation whatever therefore. At present no express author-
ity is vested either in the Governor of the State or any of

68

Governmental officers or Boards to sell or dispose of any
of this property.
In my opinion a great part of it should not be disposed
of; but as there are certain portions of it which it may
be desirable for the State to sell, or to contract for the
use of it I deem it advisable that 'some of the State
Boards be authorized to sell or contract for the use of
such property, and therefore, recommend that a law be
enacted authorizing the Trustees of the Internal Im-
provement Fund to make such sales or contracts where it
is deemed for the best interest of the State to do so.

AMEND LAW RELATIVE TO NOTICE SALE STATE
LANDS.

The present law, being Chapter 6160 of the Acts of
1911, requiring the publication of notice of proposed sales
of State lands, requires that said notice be published in a
newspaper in the county in which the land is located and
also in a newspaper in Tallahassee. There is no reason
for having these notices published in Tallahassee; and,
that the State may save this expense, I recommend that
the law be amended so as to require said notice only in
the county where the land is located.

COUNTY COMMISSIONERS.

I would advise the passage of a measure prohibiting
a County Commissioner from holding any position or
remunerative employment created by the board of which
he is a member during his service as Commissioner.

ALLOW COUNTY COMMISSIONERS TO ISSUE
TIME WARRANTS.

It frequently happens in the various counties of the
State that, owing to the fact that taxes are slow in com-

69

inig in, or that certain county obligations mature before
tax payments are received into the county treasuries, that
there is a deficit in the county funds. It is suggested that
the public interests would be well served if a law should
be enacted, authorizing the Boards of County Commis-
sioners to issue temporary interest-bearing warrants to
tide over the necessities arising from such deficiencies of
funds. Any such statute should definitely limit the
amount of such time warrants which a county is author-
ized to issue and should prescribe that no such warrants
should bear over six per cent. interest. It is believed that
such a law, with proper safeguards and restrictions,
would keep all of the counties on a cash basis and pre-
vent the necessity of having scrip outstanding.

PROHIBIT WATERED STOCK.

The over-capitalization of public service corporations
is one of the greatest menaces of the present age. The
past cannot be corrected, but for the future I would sug-
gest a law that would require that the issuance of all rail-
road, street railways and express company stocks and
bonds be subject to the scrutiny and approval of the Rail-
road Commission.

EMPLOYERS' LIABILITY LAW.

The present system governing the recovery of damages
for personal injury imposes very often a great hardship
upon the family of the injured person or upon the injured
person himself; and, furthermore, very frequently under
our present law those who are injured while working in
hazardous occupations do not recover anything whatever
on account of the injury. Many of the States have en-
acted employers' liability laws providing that employees
may recover an appropriate amount for an injury with-
out the necessity of prolonged extensive litigation.

I believe that those engaged in hazardous employmenlts
are entitled to proper damages for injury sustained; that
the family oof an employee who loses his life in his em-
ployment should, under the law, be given a reasonable
sum on account of the death of the one upon whom they
were dependent.
That we may have a better law governing personal in-
jury cases, and that ample protection may be provided
for those who are engaged in hazardous employment, I
recommend the enactment of a strong employers' liability
act.

RAILROAD EMPLOYER'S LIABILITY.

The best modern thought recognizes the dignity of
labor, which may well be called the cornerstone of in-
dustrial life. We know that those engaged in hazardous
occupations are deserving of suitable compensation for
loss of life or serious injury or accident; however, under
our present law, damages cannot be recovered for the loss
of life or for serious injury or accident to a public ser-
vice corporation employee, should the employee have
been guilty of any negligence whatever.
This is true, ailtIough there may have been much greater
negligence on the part of the company. The system re-
quires the employee to carry all of the blame for the
negligence and the company none.
That this injustice to the employee may be remedied, I
suggest the passage of what is commonly known as the
law of comparative negligence.

CHILD LABOR LAW.

Such changes as are necessary to strengthen and make
effective the law governing Child Labor should be enacted
and I recommend such needed changes.

71

SALE OF PUBLIC PROPERTY TO MEMBER OF
BOARD.

A measure should be passed providing that no State,
County or City Board, should sell to one of its members
any of the public property which may be disposed of
by such Board.

EXEMPT FROM JURY DUTY EMPLOYEES AT
INSANE HOSPITAL.

The duties of the attendants at the State Hospital for
the Insane are such that it is frequently very difficult for
one or more of them to be spared from his post for one or
more days for jury duty. That the Institution will not
be disturbed by its employees being so forced to be
absent from their regular work, I suggest a law exempt-
ing the employees of the State Hospital for the Insane
from jury duty.

PROHIBIT DISCOUNT OF PAY CHECKS.

When a pay check or a merchandise check is given to a
person for labor rendered, the laborer should be able to
get dollar for dollar for such checks. The person who
issues the checks should not be allowed to discount the
same, whether presented by the person to whom given or
by some one else. A law so providing should be enacted.

LABOR COMMISSIONER.

One of the greatest factors in our State's growth and
development is the laboring interests. I believe it would
be of benefit to the State to have a Labor Commissioner
to compile labor statistics, to aid in the enforcement of
the child labor law and otherwise promote the labor in-
terests. I recommend a law providing for such conuis-
sioner.

72

INITIATIVE, REFERENDUM AND RECALL.

It is my opinion that a constitutional amendment grant-
ing to the people the right by petition to initiate legisla-
tion and the right by petition to vote upon laws enacted
by the Legislature, when a desire to do so is expressed by
a reasonable percentage of the qualified voters, should be
submitted. Another and separate constitutional amend-
ment giving the electors the right, upon demand of a
reasonable percentage of the qualified voters, to vote upon
the recall of public officers, whom it is believed are not do-
ing their duty, should be submitted.

CHECK LAND FRAUDS.

Every county in Florida has a large quantity of rich,
fertile land, and there is no reason why there should be
any land frauds in our State. To check the few who are
disposed to defraud and deceive land purchasers, T think
we should have a law providing that all literature rela-
tive to lands to be sold under the colonization or kindred
plans shall be first approved by the Department of Agri-
culture-the expense incident to this requirement to be
paid by the party offering the land for sale.

FEDERAL INCOME TAX.

Under date of July 26th, 1909, the Secretary of State of
the United States, transmitted to the Governor of this
State, a certified copy of a joint resolution of Congress
proposing an amendment to the Constitution of the United
States to authorize Congress to lay and collect taxes on
incomes, with request that same be submitted to the Legis-
lature for such action as may be had.
The text of the said joint resolution is as follows:
"Resolved by the Senate and House of Representatives
of the United States of America in Congress assembled

73

(two-thirds of each house concurring therein), That the
following article is proposed as an amendment to the Con-
stitution of the United States, which, when ratified by the
Legislatures of three-fourths of the several States, shall be
valid to all intents and purposes as a part of the Consti-
tution.

"Article XVI. The Congress shall have power to lay
and collect taxes on incomes, from whatever source de-
rived, without apportionment among the several States,
and without regard to any census or enumeration."
On April 5th, 1911, the then Governor transmitted the
said joint resolution to the Legislature for ratification or
rejection and recommended that it be ratified. It appears,
however, that the point was raised that the Legislature
of 1911 was not competent under Section 19 of Article
XVI. of our State Constitution, to act upon the said pro-
posed amendment to the Constitution of the United
States, because a portion of the members of the State
Senate of 1911 had been elected prior to the submission
of the said proposed amendment.
The Legislature of 1911, therefore, did not act upon the
said proposed amendment. In the intervening time the
said amendment to the United States Constitution has
been ratified by the requisite number of States and is now
a part of the United States Constitution.

This situation, however, furnishes no reason why the
Florida Legislature should not formally record its ratifi-
cation of the amendment, giving Congress the right to
collect taxes upon incomes. It is a right which the Con-
gress should possess and exercise. A reasonable tax upon
incomes is one of the most just forms of taxation yet de-
vised and tends with certainty to distribute the burden
of taxation upon those most able to bear it. The Florida
Legislature should ratify the said constitutional amend-
ment, and I recommend that it be done without delay, as

74

there is now no ground upon which to base any opposition
to prompt action.

PUBLIC ROAD COMMISSION.

Within the past decade the public has become more or
less alive to the necessity of and the advantage derived
from good roads. This good road sentiment has become
quite general in Florida. A large number of the counties
of the State are now either by direct taxation or by funds
raised from bonds engaged extensively in road construc-
tion and improvement. With the expenditure of the large
sums of money which is now being applied and will in
the future be used in even larger amounts for road build-
ing, it will be both wise and economical to have the roads
of the counties laid out with system; to have them made
of proper materials and scientifically constructed. There
is no avenue for greater waste of public funds than in
road building, when the work is carried on in a slip-shod
fashion, without proper skill, a comprehensive system and
suitable material.
I believe that the County should be the unit for road
building; but while the first object should be to serve
the people of the County which defrays the expense, each
County should be neighborly and co-operate with the ad-
joining counties in making proper and suitable connec-
tions for highways.
To advance the good road movement, to bring about
greater efficiency in road construction in the various
counties of the State, to ascertain the most advisable
methods, the best materials to be used, and in a general
way to have the road building of the counties placed upon
the most economical and business-like basis, I believe it
advisable to have created a State Road Commission, to
be composed of three members, who shall be allowed
their expenses when engaged in the public business but
who shall serve without salary.

The said Commission should be granted ample authority
to conduct all inquiries, to make all necessary investiga-
tions, and take all necessary action for the advancement
of public road improvements in the State. The Commis-
sion should be authorized to employ a Highway Engineer,
at a salary not exceeding twenty fve hundred dollars
per annum, who should be required to investigate and
report upon the methods of road construction best adapt-
ed to the various sections of the State, and define stan-
dards for the construction and maintenance of highways
in the various counties of the State, suggest routes for
State highways, and perform such other duties incident
to and properly connected with such position, He should
also co-operate and advise with the Boards of County
Commissioners and County Engineers with reference to
County Roads.
To defray the expenses of such Commission an annual
appropriation of not exceeding six thousand dollars
should be made.

MOTHER'S DAY.

A beautiful tribute to the mothers of our land would
be the enactment of a law requiring that a certain day
in each year should be appropriately observed in the pub-
lic schools as "Mothers' Day," and I respectfully suggest
the passage of such measure.

A SETTLER'S ACT.

While the State owns only about one hundred thousand
acres of land, other than School Lands and those located
within the Everglades, I think it would be a wise policy
to enact a settler's act applying to this land-one hun-
dred thousand acres-under which a bona fide settler
who had continuously lived upon a tract, and made cer-
tain substantial improvements thereon, could purchase

the tract of not exceeding forty acres, at a price which
would be reasonable for an actual settler.

GOOD ROADS.

"In my study of public problems for the past ten years
I have given more or less thought to the subject of good
roads and the advisability of governmental activity along
this line. From my interest in this subject and its study,
I am firmly convinced that a thorough system of good
roads in each county in Florida will add more to the ma-
terial advancement of our varied resources, to the up-
building of our State, to property enhancement and to
the comfort and convenience of our rural citizens and
to the people generally of the State than any other one
step that can be taken.

IMMIGRATION BUREAU.

Suitable provision should be made for the Department
of Agriculture to provide literature relative to the cli-
mate, the soil, and the varied industries and resources of
Florida. Many inquiries are now being made relative
to our State, and as we are interested in bringing immi-
gration this way we should have sufficient literature and
information to acquaint those making inquiries with
Florida's many advantages.

WHARF AND DOCK PRIVILEGES.

The tendency on the part of public service corpora-
tions has m6re or less been towards monopolizing the
wharf and dock privileges in our towns and cities. The
result often is that competitive railway or waterway
transportation lines are excluded and the patrons of
such common carriers are therefore deprived of the ad-
vantages in passenger and freight rates which are usual-

77

ly produced by competition. I believe it essential that a
law be enacted authorizing towns and cities to acquire
suitable facilities for wharves and docks and recommend
the passage of a law so providing.

AUTHORIZE CITIES TO CHANGE CHARTERS.

Much of the time of each session of the Legislature is
consumed in the consideration of city charter measures.
To relieve the Legislature of this work, and in order that
the people of the towns and cities may have authority to
make their own charters and alter same, as desired
locally, a constitutional amendment removing this au-
thority from the Legislature and vesting it in the towns
and cities should be submitted.

ADVERTISE GRANTING OF FRANCHISE.

City franchises are often very valuable, and for the
protection of the interests of the towns and cities, I
would suggest the passage of a law requiring that when
an application for a franchise is presented to a City or
Town Council, the said council, if it is desired to con-
sider the application, shall give public notice through the
press of the application, for at least three weeks before
acting upon it, in order that others may also make appli-
cation, and that the citizens may be advised. The law
should further provide for a referendum vote upon all
grants of franchise when requested by a certain number
of voters.

CONSIDERATION OF TUBERCULOSIS SANI-
TARIUM.

It has been suggested that many people of our State
who upon finding that they are suffering from pulmonary
tuberculosis at much expense and loss of time seek sani

I

78

tariums in other States, hoping there to find benefit.
While the establishing of a State Sanitarium for the
treatment of consumption (at cost) is an open question,
yet I recommend to the Legislature the wisdom of giving
consideration to the subject.

SCHOOL FOR DEAF AND BLIND.

Within the past few years the School for the Deaf
and Blind has been materially improved. The plant is be-
coming creditable. With the growth in the student body
however the demands for enlargement and expansion
necessarily come. The institution is worthy of a most
liberal consideration and I recommend that you make
ample appropriations for maintenance and all needed
improvements at this institution.

FLORIDA HOSPITAL FOR THE INSANE.

During the last few years the Board of Commissioners
of State Institutions has exerted every effort within its
power to improve the facilities and raise the standard of
the Florida Hospital for the Insane. In this effort the
Board was fortunate in having the service of a very faith-
ful and conscientious Superintendent and a highly effi-
cient and devoted Medical Staff, as well as a corps of ex-
perienced and loyal assistants. Much has been accom-
plished for the comfort and more scientific care and treat-
ment of the unfortunate inmates of this institution. Re-
cent Legislatures have been as generous to the State's
insane population as the State's finances would permit,
and special efforts have been made by the Board and the
officers of the Hospital to use the appropriations to the
best advantage.
A new Receiving Hospital for sick patients is now in
course of construction, and its completion will mark a

79

great step in advance in the treatment of patients. The
dormitory capacity of the institution and the power
plant have been enlarged during the last two years. The
Medical Staff has been increased and a competent Path-
ologist, with necessary equipment, has been provided.
This Hospital now has more than 1,100 patients and
about 150 officers, attendants, nurses and other employes
are required for their care and attention. The magnitude
of the Institution will appear from these figures. The
necessity of adequate appropriations to maintain this
large number of helpless people and to carry on the needed
improvements already under way is also evident. This
Institution appeals strongly for the State's most generous
care, and I feel sure the Legislature will provide for its
extensive needs.

I desire to suggest the wisdom of making provision for
the establishment of a Tuberculosis Hospital or ward at
Chattahoochee.
The Hospital has also outgrown the capacity of its pres-
ent sewerage system and electric light plant, and the Leg-
islature should cause careful examination to be made as
to its needs along these lines and make adequate provision
for extending the said systems so that they will be suf-
ficient for at least several years into the future.
For full information regarding the condition and needs
of the Hospital, reference is made to the Superintendent's
interesting biennial report.

STATE COLLEGES.

Florida Amy well be proud of her State Colleges. They
maintain a high standard. They are doing excellent work
and are appreciated by the people, is is evidenced by the
constantly increasing attendance from all sections of the
State.

80

These institutions were established by Chapter 5384,
Act of 1905, and during the eight years which have fol-
lowed very large sums of money have been appropriated
to furnish and equip buildings for their use. Within this
eight years' period approximately the following amounts
have been allowed for new buildings and furnishings:

At University of Florida............ $340,000.00
At State College for Women........ 230,000.00
At Deaf and Blind School......... 102,000.00
At A. & M. College for Negroes...... 52,000.00

$724,000.00

Between January 1, 1906, and December 31, 1912, under
appropriations made by the Legislature from the Gen-
eral Revenue Fund, the sum of $1,188,164.42 was paid out
for maintenance, buildings and improvements of these in-
stitiitions. In addition to this amount the University of
Florida and the A. & M. College for negroes have received
annually substantial sums from the United States govern-
ment under the act of Congress known as the Morrill
Fund, and the University has also received annually sub-
stantial sums under the Acts of Congress creating the
Hatch Experiment Station Fund and the Adams Experi-
ment Station Fund.
The Comptroller's warrants show that the following
amounts have been expended on account of these institu-
tions within the past two years:

University of Florida, 1911...... .137,477.18
University of Florida, 1912...... 194,199.22-$331,676.40

College for Women, 1911........$ 58,622.73
College for Women, 1912........ 99,125.32- 157,748.05

Deaf & Blind School, 1911. .... .$ 30,973.75
Deaf & Blind School, 1912.... .. 41,174.77- 72,148.52

81

Negro College, 1911.............$ 52,134.58
Negro College, 1912............ 41,316.34- 93,450.92

Total ..................... $655,023.89

For full and complete information as to the condition
and progress of these institutions I refer to the printed
report of the Board of Control. As to the appropriations
for these institutions for higher education, in the future
I recommend liberality, but would have you bear in mind
that in addition to these institutions the State has upon
it the support of many other public institutions which
are badly in need of funds. We must deal liberally with
all our institutions, but let.us remember that every dollar
which is appropriated comes out of the pockets of the tax
payers. Time is required to build up the public institu-
tions. We cannot make them what we would have them
within a short period of time without making the tax
burden too heavy.
Special commendation is due to the unselfish and faith-
ful service rendered by the members of the Board of
Control having supervision over these institutions, who
have without compensation given their time and thought
to the advancement of higher education in Florida. Their
services have been efficient, painstaking and of great
value to the State.

FLORIDA STATE REFORM SCHOOL.

The State maintains near Marianna a Reform School
for the detention, correction and training of youthful of-
fenders against the law. A reform school is an institu-
tion capable of being of very high usefulness to the State
in the reformation of young people who have violated
the law and have been committed to its custody. There
is need in Florida for such an institution maintained
at a high standard. The proper maintenaAce, supervision
f)-H.

82

and conduct of such a reformatory should appeal strongly
to the State Authorities and to all persons interested in
the welfare of erring youths.
In my opinion, the Florida State Reform School and
the laws pertaining thereto should have the careful at-
tention of this Legislature. It is recommended that a
careful investigation be made as to the condition, the
needs and the possibilities of this School and that such
enactment be made as will tend to increase its usefulness
and assure its successfulness and business-like manage-
ment.

I especially recommend that the Board of Managers of
the State Reform School be required by law to file with
the Comptroller proper vouchers covering all disburse-
ments made from appropriations made for their use. Such
a requirement is imposed upon all of the other insti-
tutions of the State, and there is no reason why the Man
agers of this School should be the exception. They are
now allowed to draw money quarterly upon requisition
and disburse same after receiving it. The law should
provide that all bills against the State Reform School
should be sent to the Comptroller or to some specified
State Board for audit and approval before payment. This
requirement is made with respect to every other class
of claims or bills against the State.

HISTORICAL RECORDS RELATING TO FLORIDA.

The Legislature of 1911 enacted Chapter 6136 of the
Laws of Florida, being an Act to authorize the Governor
to complete the Historical Archives of the State of Flor-
ida, to collate and catalogue historical records and mak-
ing an appropriation therefore. Governor Gilchrist ap-
pointed Mr. W. T. Bauskett to do the work contemplated
by the said Act. Mr. Bauskett was familiar with the
records ofl the various departments of the Federal Gov-

83

ernment in Washington City, and during 1911 and 1912
he filed with the Governor a very large amount of his-
torical data relating to Florida, covering the matters
required by the Act.
The material compiled by Mr. Bauskett is now on file
in the Governor's office in typewritten form. It is very
voluminous and appears to contain much matter of his-
torical interest concerning Florida. It might be well for
the Legislature to consider and act upon the advisabil-
ity of having this material printed in book form for dis-
tribution under such conditions and at such price as
may be prescribed by the Legislature.
In this connection it is deemed proper to call the at-
tention of the Legislature to the fact that Florida has
never yet maintained a State Library, so arranged and
equipped that it would be available for use by citizens
and students. The Supreme Court and Railroad Com-
mission Building will be completed this summer and ad-
ditional room will be available in the Capitol for the ad
ministrative departments. It is suggested that the Leg-
islature might if desired direct that in the rearrange-
ment of the office space in the Capitol, after the Supreme
Court and Railroad Commission move into their new
building, provision be made for suitable quarters for the
State Library; and that employment of a competent Li-
brarian be also authorized.

STATE BOARD OF HEALTH.

I am pleased to advise that the State Board of Health
has been rendering a highly efficient and useful service
during the past two years-as, in fact, it has done since
its creation over twenty years ago. In my opinion, this
Board has accomplished great good and been one of Flor-
ida's best investments. It has really been a great factor
in building up the State, by inducing immigration through
the confidence inspired in regard to the State's satisfae-
tory health conditions.

84

The medical and educational work done by the Board
in hook worm eradication, in treating children bitten by
rabid animals, in counseling the public in the matter of
vaccine against typhoid fever and the distribution of this
preventive to the indigent; also, in the distribution of
diphtheria antitoxin to those who are unable to purchase
it, are all worthy of special commendation, and cover, in-
deed, only a few of the beneficent activities of the Board.

The Board has also been rendering a very valuable serv-
ice to the State in its efforts to acquaint the public with
the proper treatment for diseased animals. Its work look-
ing to the eradication of the cow tick will prove of much
value.

The Board's Report will be placed before the members
of the Legislature and is deserving of careful attention.
This report calls attention to certain amendments which
the Board would be pleased to have in the present law
for the prevention of rabies, the law relative to horses
having glanders, and to the statute regarding the distri-
bution of hog cholera serum.

REPORT OF TAX COMMISSION.

In conformance with the Act of the last Legislature
providing for the appointment of a Tax Commission my
predecessor appointed Hon. W. S. Jennings, Hon. T. L
Clarke, and Hon. E. S. Matthews, to membership upon
said Commission. These gentlemen made an exhaustive
study of our taxation laws and reached certain conclu-
sions, and agreed upon certain needed changes in the law.
The report of the Commission is a very able and thorough
presentation of our tax problems, and should be care-
fully considered. I heartily recommend the enactment
of a law which will carry out the policy of separating
County and State taxes, as suggested by the Commis-
sion.

85

COMMISSION ON JUDICIAL PROCEDURE.

Pursuant to a concurrent resolution passed by the last
Legislature, Governor Gilchrist appointed Hon. J. B.
Whitfield, Hon. W. A. Blount and Hon. C. M. Cooper
as members of the Commission on Judicial Procedure.
The Commission, prior to the retirement of Governor
Gilchrist, made its report recommending certain changes
in the law of procedure. I believe the law suggested
by the Commission would greatly aid in simplifying
the practice and in preventing delays in the courts. I
respectfully urge a careful consideration of the report
made by this Commission.

REPORT OF CIRCUIT JUDGES.

During 1912 Governor Gilchrist invited the several
Circuit Judges of the State to meet in Tallahassee to
discus's and recommend needed changes in the law.
Responding to his request eight of the eleven Judges
met and were in session for four days at the capital.
As a result of their conference they prepared and trans-
mitted to the Governor certain measures which they re-
commended should be enacted into law. These measures
should have your careful consideration. At least a num-
ber of them should be favorably acted upon.

SUPREME COURT AND RAILROAD COMMISSION
BUILDING.
The building, authorized by Chapter 6131, Acts of 1911,
for the use of the Supreme Court, the Railroad Commis-
sion and the Library, is now being erected on the capitol
square and will doubtless be completed by the middle of
this summer. This will be one of the most substantial,
most attractive, and most pleasing public buildings owned
by the State of Florida. It will afford a suitable and
permanent home for the important branches of the State
Government which are to occupy it. For the furnishing

86

and complete equipment of this building, a small addi
tional appropriation will be needed and an estimate of
the amount required will be furnished to the Legislature
in due course. It is recommended that such appropria
tion be passed.

REPORTS OF STATE OFFICERS.
There will be placed before you the official reports of
all the departments of the State government covering the
operations of each of same during the last two years.
These reports have been carefully and intelligently pre
pared and contain a great fund of useful information
relating to the State's business. The State is fortunate
in having upright, efficient, progressive officers, and their
several reports should have the careful attention of all
the members of the Legislature.

ECONOMY IN GOVERNMENT.
One of the elementary principles of efficient Democratic
government is that the public business shall be conducted
with the strictest economy consistent with the public
welfare. At each session of the Legislature there are
many urgent requests for appropriations from the public
treasury. Some of these requests frequently represent
extravagance as to the amount asked, and some extrava-
gance in toto. The State's business should not be run on
a niggardly basis, nor should any governmental agency
be hampered in rendering its best service by lack of
funds. At the same time, the Legislature should exercise
the greatest caution and scrutiny in passing upon appro-
priation measures, and endeavor to keep the State's
liabilities at a stage where the tax burden can be as light
as possible upon the people. No money can be paid from
the treasury except upon appropriations made by the
Legislature. This places the full responsibility for pro-
tecting the taxpayers upon your branch of the govern-
ment, and it is hoped that it will be prudently exercised.

87

LEGISLATIVE ECONOMY.

More or less extravagance has at times been permitted
by our Legislatures in the employment of large numbers
of unnecessary clerks and attaches. This should be dis-
continued. The Legislature should, of course, have all
the clerical assistance required to expedite business, but
the public funds should not be wasted merely to provide
salaries for persons whose services are not actually
needed, and who will not perform any actual service fur-
ther than signing the pay roll.

CONCLUSION.

I submit this message fully realizing the great responsi-
bility assumed with my oath of office; but in submitting
it I also do so with an earnest desire to co-operate with
you in all efforts which look to the welfare, prosperity
and happiness of the people of Florida. I believe each
of you today undertakes the responsibilities and duties
required of you, as law makers, with a firm resolution
to so legislate as to promote the well-being of the com-
monwealth.
With the determination that we should be true and
loyal to our State and her citizenship as our guide,
the Legislature of 1913 can accomplish much in promot-
ing the welfare of Florida. I have an abiding confi-
dence that you will each endeavor to fully, discharge
your duty. If you do, you will have and deserve the grati-
tude of the people of this State and the personal sat-
isfaction of knowing that you have been true to your
high trust.
Trusting that the greatest degree of harmony and suc-
cess will attend your endeavors, and with my sincere good
will, I submit this message.
PARK TRAMMELL,
Governor.

DISTINGUISHED DEAD.

In the early part of 1912 the State suffered the loss of
two very able and useful members of the Administrative
Department of the Government. Hon. B. E. McLin, Com-
missioner of Agriculture, died suddenly on January 31,
1912, and less than a week later Hon. A. C. Croom, Comp-
troller, also suddenly departed this life. Both of these
distinguished Floridians had ably served the State for
a decade and their sudden deaths caused great shock and
sorrow to the people of Florida. Their funeral obsequies
were fittingly marked by appropriate attention from those
who served with them in official life.
-

ii Ilb Ir I--II

I-pr- R, rlle -,-1 I

89

APPENDIX.

BILL RELATIVE TO CONVICT SYSTEM.

(Title to be provided)

Be it Enacted by the Legislature of the State of Florida:

Section 1. That on June 30, 1914, or within thirty days
thereafter, approximately one-fourth of the State pri-
soners shall be withdrawn from the present lease system;
that on March 31, 1915, or within thirty days thereafter,
one-third of the State prisoners remaining under the
lease system shall be withdrawn; that on March 31, 1916,
or within thirty days thereafter, one-half of the State pri-
soners remaining under the lease system, shall be with-
drawn; that on December 31, 1916, or within thirty days
thereafter, all prisoners who have not previously been
withdrawn from the lease system shall then be withdrawn
therefrom. That such withdrawal of the State prisoners
from the lease system, shall be accomplished in the manner
and subject to, and in accordance with the provisions of
tlis Act. That for the purpose of allowing the time re-
quired for the making of the preparations for the chang-
ing of the lease system as provided in this Act, the Board
of Commissioners of State Institutions is authorized to
temporarily lease the State convicts, but neither the said
Board nor the Commissioner of Agriculture shall make
any contract for the hire of State convicts which will be
in conflict with, or in anywise interfere with, the State
prisoners being withdrawn from the lease system in the
manner and as provided by this Act.
Section 2. That upon the withdrawal of the State pri-
soners from the lease system in accordance with the pro-
visions of this Act, the said prisoners at the time of such
withdrawal shall be disposed of in the following manner
to-wiht

90

All able-bodied male prisoners shall be allotted by the
Board of Commissioners of State Institutions to the sev-
eral counties upon relative basis of the total valuation for
taxation in the respective counties. The prisoners so
allotted to the counties may be used by the counties in
building and maintaining public roads within the res-
pective counties; or should a county not desire to use
its quota of the prisoners so allotted, the Board of Com-
missioners of State Institutions may hire such quota of
the State prisoners, if satisfactory contract can be made,
to another county or counties, to be used by the county
or counties hiring them in the construction and main
tenance of public roads, the proceeds from the hire of pri-
soners so leased to be paid to the State and covered into
the fund from hire of State convicts. A county is also
given the option and right, upon the approval of the Board
of Conmmissioners of State Institutions, to allow another
county or counties to use its quota of the State prisoners
and a county so using the prisoners of another county
may compensate the county by the exchange of an equal
number of convicts. That should a county not desire to
use its quota of the State prisoners and the Board of
Commissioners of State Institutions fails to arrange for
the lease of them by another County, or an exchange agree-
ment is not made, the said prisoners shall be sent to the
Sta te Prison Farm in Bradford County, and there be
used in carrying on the developments, improvements and
farming operations upon the said farm. That each county
which has its quota or part of its quota of State prisoners
at the State Farm shall be entitled to its portion of the
net proceeds derived from said farm.
Section 3. That a State prison to be known as the
State Prison Farm is hereby established upon the lands
purchased in 1911 by the State in Bradford County, under
the provisions of Chapters 5941 and 6134 of the Laws
of Florida.
Section 4. That the Board of Commissioners of State

91

Institutions shall have erected at the State Prison Farm
all necessary buildings, shall provide all furnishings and
equipment and do all things essential to permanently
establish the said prison farm, to improve, to maintain
and to operate the same. The said Board shall provide
for the care and maintenance of all prisoners who may be
placed in custody at said prison farm.
Section 5. That for the purpose of providing the funds
necessary to carry out the provisions of Section 4 of
this Act, the following sums are hereby appropriated out
c` the funds arising from the hire of State convicts, to-
wit:
$20,000 for the quarter ending June 30, 1913.
$40,000 for the quarter ending Sept. 30, 1913.
$45,000 for the quarter ending Dec. 31, 1913.
$35,000 for the quarter ending March 31, 1914.
$35,000 for the quarter ending June 30, 1914.
$30,000 for the quarter ending Sept. 30, 1914.
$25,000 for the quarter ending Dec. 31, 1914.
$25,000 for the quarter ending March 31, 1915.
$25,000 for the quarter ending June 30, 1915.
The proceeds from the hire of convicts based upon the
present lease should provide the above amounts, and in
addition thereto an equal or larger sum for the counties.
But in the event there should be a failure to make a tem-
porary lease of the prisoners after January 1, 1914, that
will provide the funds from which all of the above appro-
priations are to be paid, said appropriations accruing
after January 1, 1914, or so much thereof as cannot be
paid from the funds arising from the hire of the State
convicts, is hereby appropriated out of the General Reve-
nue Fund.
Sec. 6. That all proceeds from the hire of State Con-
victs leased by private parties or a county over and above
the amount otherwise appropriated by the provisions of
this Act shall be distributed quarterly to the counties in
accordance with the present method of distribution pro-

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