I submit to your judgment the propriety of such amendments to the election laws as will provide, first, for the representation of minorities in the boards of the judges and clerks of the elections; and second, for the registration of all the lawful voters in each township, ward, and election precinct, prior to the election.

That the boards of elections ought to be so const.i.tuted that minorities as well as majorities will have a fair representation in them, is so plainly just that in some parts of the State, even in times of the highest political excitement, such representation has been obtained, in the absence of law, by arrangement between the committees of the rival political parties. It is not probable that any mode of selecting judges and clerks of elections can be adopted which will, in every case, accomplish this object. But in all cases where the strength of the minority is half, or nearly half as great as that of the majority, the desired representation of the minority may be insured with sufficient certainty by several different plans. For example, it may be provided that at the election of the three judges who are to decide all questions at the polls, each elector may be allowed to vote for two candidates only, and that the three candidates having the highest number of votes shall be declared elected, and in like manner that, at the election of the two clerks of elections, each elector may vote for one candidate only, and that the two candidates receiving the highest number of votes shall be declared elected.

I do not lay much stress on the particular plan here suggested, but your attention is invited to the importance of a fair representation of the minority in all boards of elections, not doubting that your wisdom will be able to devise a suitable measure to accomplish it.

All parts of the State of Ohio are now so closely connected with each other, and with other States, by lines of railway, that great and constantly increasing facilities are afforded for the perpetration of the cla.s.s of frauds on the elective franchise, commonly known as "colonizing." In the cities, men called "repeaters," it is said, are paid wages according to the number of unlawful votes they succeed in casting at the same election.

The increase of population adds to the difficulty of detecting and preventing fraudulent voting, in whatever mode it may be practiced.

It is manifestly impossible, amid the hurry and excitement of an election, that the legal right to vote, of every person who may offer his ballot, should be fully and fairly investigated and decided. The experience of many of the older States has proved that this can best be done at some period prior to the election, so as to give to every legal voter, in an election precinct, an opportunity to challenge the claim of any person whose right is deemed questionable. Laws to accomplish this have been in force in several other States for many years, and have been carried out successfully and with the general approval of the people. Believing that an act providing for the registration of all legal voters is the most effective remedy yet devised for the prevention of frauds on the sacred right of suffrage, and that a registry law can be so framed that it will deprive no citizen, either native born or naturalized, of his just rights, I respectfully recommend to your earnest consideration the propriety of enacting such a law.

The comprehensive geological survey of the State recommended in this message was promptly brought about through the able co-operation of the Hon. Alfred E. Lee, representing Delaware county in the House of Representatives, who drew up and reported a bill on February 9, 1869, making provision for the important object in view. Through the intelligent activity of Governor Hayes and Representative Lee, the bill became a law, April 2, 1869. The thorough scientific survey of the State, since completed under the supervision of Professors Newbury, Andrews, and Orton, has been of immeasurable value in the way of developing the mineral resources of Ohio.

Governor Hayes in this message demands laws to secure honest elections, because "to corrupt the ballot-box is to destroy our free inst.i.tutions."

He recommends laws securing the representation of minorities on election boards, and advocates stringent registry laws.

In the second annual message, delivered at the close of his first term, which we give below, he recommends increased powers to the State board of charities; better provision for the chronic insane; the establishment of a State agricultural college; the founding of a home for soldiers'

orphans, and restoring the right of suffrage to soldiers in the national asylum, to college students, and others who had been disfranchised under Democratic legislation. He urged also the ratification by Ohio of the Fifteenth Amendment. We shall speak of the gratifying result of these recommendations in our next chapter.

_Fellow-Citizens of the General a.s.sembly:_

In obedience to the const.i.tution, I proceed to lay before you the condition of the affairs of the State government, and to recommend such measures as seem to me expedient.

The balance in the State treasury on the 15th of November, 1868 was $570,120.75; the receipts during the last fiscal year were $4,781,614.49; making the total amount of available funds in the treasury during the year ending November 15, 1869, $5,351,735.24.

The disburs.e.m.e.nts during the year have been $4,913,675.10, which sum has been paid out of the treasury from the several funds as follows, viz:

General revenue fund $1,577,221.18 Ca.n.a.l fund 41,783.74 National road fund 22,069.69 Sinking fund 1,775,938.52 Common school fund 1,496,633.80 Bank redemption fund 28.17 ------------ Total $4,913,675.10

Leaving a balance in the treasury, November 15, 1869, of $438,060.14.

The estimates of the auditor of State of receipts and expenditures for the current year are as follows:

Estimated receipts from all sources, including balances $4,791,144.50 Estimated disburs.e.m.e.nts for all purposes 4,477,899.60 ------------ Leaving an estimated balance in the treasury November 15, 1870, of $313,244.90

The amount of the public funded debt of the State, November 15, 1868, was $10,532,675.43. During the last year the fund commissioners have redeemed of the various loans $516,093.57, and have invested in loans not yet due $160,643.59, leaving the total debt yet to be provided for $9,855,938.27.

The whole amount of taxes, including delinquencies, collectible under State laws during the year 1869 was $21,006,332.44. The auditor of State reports the total amount of taxes, including delinquencies, collectible during the current year at $22,810,675.84, an increase of the taxes of 1870 over 1869 of $1,804,353.40.

In 1869 there was collected for the sinking fund, to be applied to the payment of the princ.i.p.al and interest of the State debt, the sum of $1,370,101.12. In the present year there will be collected for the same purpose the sum of $808,826.61, or $561,275.51 less than was collected last year.

A large proportion of the taxes collected from the people are for county, city, and other local purposes, and do not pa.s.s through the State treasury, but are disbursed within the counties where they are collected. During the current year the taxes, exclusive of delinquencies, to be collected for all State purposes except for the common school fund, amount to $2,542,025.27, while $18,187,400.92 are to be collected for local purposes.

The foregoing statements from the report of the auditor of State show that the taxation of this year for State purposes other than for payments on the princ.i.p.al and interest of the State debt exceeds the taxation of last year for the same purposes by the sum of $609,601.50, and that taxation for local purposes this year exceeds that of last year for the same purposes by the sum of $1,695,725.38. The local taxes this year are about 44 per cent.

greater than they were three years ago, and are 10 per cent.

greater than they were last year.

The increase of taxation for State purposes is in part due to the amount collected for the asylum building fund, which exceeds the amount required last year for building purposes by almost $300,000.

Making due allowance for this, the important fact remains that both State and local taxes have largely increased.

A remedy for this evil can only be had through the General a.s.sembly. The most important measures to prevent this rapid increase of taxation, which have heretofore been recommended, are a revision of the financial system of the State in accordance with bills prepared by a board of commissioners appointed for that purpose, in pursuance of an act pa.s.sed March 18, 1867; short sessions of the General a.s.sembly; adequate fixed salaries for all State, county, and munic.i.p.al officers, without perquisites; and definite and effectual limitations upon the power of county commissioners, city councils, and other local authorities to levy taxes and contract debts.

The const.i.tution makes it the duty of the legislature to restrict the powers of taxation, borrowing money, and the like, so as to prevent their abuse. I respectfully suggest that the present laws conferring these powers on local authorities require extensive modification, in order to comply with this const.i.tutional provision. Two modes of limiting these powers have the sanction of experience. All large expenditures should meet the approval of those who are to bear their burden. Let all extraordinary expenditures therefore be submitted to a vote of the people, and no tax be levied unless approved by a majority of all the voters of the locality to be affected by the tax, at a special election, the number of voters to be ascertained by reference to the votes cast at the State election next preceding such special election. Another mode is to limit the rate of taxation which may be levied and the amount of debt which may be incurred. It has been said that with such restrictions upon the powers of local authorities the legislature will be importuned and its time wasted in hearing applications for special legislation. The ready answer to all such applications by local authorities will be to refer them to their own citizens for a decision of the question. The facility with which affirmative votes can be obtained under the pressure of temporary excitement upon propositions authorizing indebtedness may require further restrictions upon the power to borrow money. It is therefore suggested, for your consideration, to limit the amount of debt for a single purpose, and the total amount for all purposes which any local authority may contract to a certain percentage of the taxable property of such locality.

The evils here considered are not new. Fourteen years ago Governor Medill, in his annual message, used the following language, which is as applicable to county and munic.i.p.al affairs now as it was when it was written: "The irresponsible and extravagant system of administration which prevails in some of our counties and cities furnishes the princ.i.p.al cause for the exactions which are so generally complained of. There public contracts are given to favorites, which occasion the most lavish expenditures. There also we find officers with incomes which shock all correct ideas of public compensation. These things have their effect upon the general tone of public morals. County reform is a duty enjoined by every consideration of public virtue."

The whole of this important subject is commended to your candid consideration.

The management of the affairs of the penitentiary, during the past year, has been good; discipline has been maintained; under kind and judicious treatment the prisoners have been industrious and orderly, and the pecuniary results are satisfactory. The number of prisoners, on the 31st of October, 1869, was 974, and the number of convicts admitted during the year ending on that day was 347. This is a decrease compared with the preceding year, of 27 in the number of convicts admitted, and of 67 in the number confined in the penitentiary.

The earnings during the year ending October 31, were $175,663.06 The expenses were 143,635.83 ---------- Excess of earnings over expenditures $32,027.23

Last year the earnings were $171,037.45 The expenses were 141,794.95 ---------- And the excess of earnings over expenses were $29,242.50

A large proportion of the convicts, when admitted, are quite young.

The age of about one-third does not exceed twenty-one years. More than two-thirds of the inmates of the prison are now under thirty years of age. It will occur to any one who considers these facts that, under our system of prison discipline, too little effort has heretofore been made to reform these young men. A high authority has said, "No human being is so debased and wicked that he can not be reclaimed." It is believed that, under a wise system, the young, at least, can be reformed and prepared for useful and worthy citizenship. The present system has two capital defects--the mingling in intimate a.s.sociation of the young with the hardened criminals, and the failure to educate the convicts in habits of thrift and self-control. The defects are in the system. The convict, when he leaves the penitentiary, is exposed to greater temptations than ever before, and the result of his prison life is that he has less power to resist evil influences, and, too often, less disposition to resist them. I do not enlarge upon the objections to the present system; it is not claimed to be reformatory. In a recent report, the directors said: "The great ma.s.s of convicts still leave the penitentiary apparently as hardened and as dangerous to the State as they were when they were sentenced." The vital question is, how to remove this reproach on our penal legislation. In considering it, I commend to you the remarks of the board of State charities on the Irish convict system. The distinguishing merit of that system is, that "it enlists the co-operation of the prisoner in his own amendment, without withholding from him the punishment due to his crime." If the adoption of that system, with such modifications as our condition requires, is deemed an experiment which it is inexpedient for the State to try until its advantages are better understood, I submit that the least that ought now to be attempted is to provide for a cla.s.sification of convicts, so as to separate beginners in crime from hardened offenders. Whether this can best be done by alterations and an extension of the present penitentiary or by the erection of a new one, is for your wisdom to determine.

In several other States voluntary a.s.sociations have been formed to provide for, encourage, and furnish employment to discharged convicts, and their efforts have been of incalculable benefit to this unfortunate cla.s.s. If a similar a.s.sociation should be formed by the benevolent citizens of Ohio, they will reasonably expect to receive proper a.s.sistance from the General a.s.sembly, and in that expectation I trust they will not be disappointed.

The total number of persons of school age in the State, in 1869, was officially reported at 1,028,675--an increase of 11,108 over the previous year. The total number enrolled in the public schools in 1869 was 740,382--an increase of 8,610 over the year 1868. The average daily attendance in the public schools in 1869 was 434,865--an increase over 1868 of 24,144.

The total taxes for schools, school buildings, and all other purposes, the present fiscal year, is $6,578,196.83--an increase over the taxation of the previous fiscal year of $616,795.68. Of this increase of taxation, the sum of $17,833.86 is in the State taxation for school purposes, and the sum of $598,991.82 is the increase of local school taxation.

The State commissioner of common schools, in his report, will recommend the adoption of county superintendency, the subst.i.tution of township boards of education to provide for the present system of township and sub-district boards, a codification of school laws and other important measures, to which your attention is respectfully called.

Prior to the organization of the board of state charities in 1867, there was no provision for a systematic examination of the benevolent and correctional inst.i.tutions under the control of the State and local authorities. The members of the board serve without pecuniary compensation. It is simple justice to them to say that they have faithfully performed the thankless task of investigating and reporting the defects in the system and in the administration of our charitable and penal laws, and have furnished in their reports information and suggestions of great value. If it is true that an abuse exposed is half corrected, it would be difficult to overestimate their work. They have, their reports show, discovered abuses and cruelties practiced, under color of law, in the midst of communities noted for intelligence and virtue, which would disgrace any age. Let the board be granted increased powers and facilities for the discharge of their duties, and it will afford security--perhaps the best attainable--to the people of the State, that the munificent provision which the laws make for the poor and unfortunate, will not be wasted or misapplied by the officials who are charged with its distribution.

During the last year more than nine hundred persons, cla.s.sed as incurably insane, have been lodged in the county infirmaries, and almost one hundred have been confined in the county jails. Besides these a large number of the same cla.s.s of unfortunates have been taken care of by relatives or friends. The State should no longer postpone making suitable provision for these unfortunate people.

The treatment they receive in the infirmaries and jails is always of necessity unsuited to their condition, and is often atrocious.

To provide for them, I would not recommend an increase of the number of asylums for the insane. It is believed by those best acquainted with the subject, that both economy and the welfare of the patients require that the chronic insane should be provided for by additions to the asylums already built, or to those which are now building. It is probable that in this way such patients can be supported at less expense to the people of the State than in infirmaries and jails. However this may be, their present condition imperatively demands, and, I trust, will receive, the serious consideration of the General a.s.sembly. Although commonly cla.s.sed as incurable, it is quite certain that, by proper treatment, in suitable inst.i.tutions, the condition of all of them will be vastly improved, and, it may well be hoped, that many of them can be entirely cured.

The expediency of establishing an asylum for the cure of inebriates has not been much considered in Ohio. The encouraging results which are reported by the officers in charge of the State inebriate asylum of New York, induce me to recommend that the General a.s.sembly provide for a full investigation of the subject.

The agricultural and mechanical college fund, created by the sale of land-script issued to Ohio by the National government, amounted, on the first instant, to $404,911.37-1/2. The State accepted the grant out of which this fund has been created, February 10, 1864, and is bound by the terms of acceptance, as modified by Congress, to provide "not less than one college on or before July 2, 1872, where the leading object shall be, without excluding other scientific and cla.s.sical studies, and including military tactics, to teach such branches of learning as are related to agriculture and the mechanic arts." The manner in which this fund shall be disposed of has been amply considered by preceding General a.s.semblies, and in the messages of my predecessors in the executive office. I respectfully urge that such action be had as will render this fund available for the important purposes for which it was granted. It is not probable that further delay will furnish additional information on any of the important questions involved in its disposition. Much time and attention has been given to the subject of the location of the college. No doubt it will be of great benefit to the county in which it shall be established, but the main object of desire with the people of the State can be substantially accomplished at any one of the places which have been prominently named as the site of the college. I therefore trust that the friends of education will not allow differences upon a question of comparatively small importance to the people at large longer to postpone the establishment of the inst.i.tution, in compliance with the obligation of the State.

A large part of the work required to complete the "Soldiers'

Record," in pursuance of an act pa.s.sed March 17, 1864, has already been done, at an expense of about $8,000, and the propriety of making an appropriation sufficient to enable the adjutant-general to complete it is respectfully suggested for your consideration.

During the war for the Union, the people of this State acknowledged their obligation to support the families of their absent soldiers, and undertook to meet it, not as charity, but as a partial compensation justly due for services rendered. The Nation is saved, and the obligation to care for the orphans of the men who died to save it still remains to be fulfilled. It is officially estimated that three hundred soldiers' orphans, during the past year, have been inmates of the county infirmaries of the State. It is the uniform testimony of the directors of county infirmaries that those inst.i.tutions are wholly unfit for children; that in a majority of cases they are sadly neglected; and that even in the best infirmaries the children are subject to the worst moral influences.

Left by the death of their patriotic fathers in this deplorable condition, it is the duty of the State to a.s.sume their guardianship, and to provide support, education, and homes to all who need them. The people of Ohio regret that this duty has been so long neglected. I do not doubt that it will afford you great gratification to give to this subject early and favorable attention.

All agree that a republican government will fail, unless the purity of elections is preserved. Convinced that great abuses of the elective franchise can not be prevented under existing legislation, I have heretofore recommended the enactment of a registry law, and also of some appropriate measure to secure to the minority, as far as practicable, a representation upon all boards of elections.

There is much opposition to the enactment of a registry law.

Without yielding my own settled convictions in favor of such a law, I content myself, in this communication, with urging upon your attention a measure of reform in the manner of conducting elections, the importance and justice of which no one ventures to deny. The conduct of the officers whose duty at elections it is to receive and count the ballots, and to make returns of the result, ought to be above suspicion. This can rarely be the case where they all belong to the same political party. A fair representation of the minority will go far, not only to prevent fraud, but, what is almost of equal importance, remove the suspicion of fraud. I do not express any preference for any particular plan of securing minority representation in the boards of judges and clerks of elections.

Various modes have been suggested, and it will not be difficult to adopt a means of attaining the desired result which will harmonize with our system of election law.

The re-enactment of the law securing to the disabled volunteer soldiers who are inmates of the National asylum, near Dayton, the right of suffrage in the county and township in which said asylum is located, which was repealed April 17, 1868, and the repeal of the legislation of the last General a.s.sembly, imposing special restrictions upon the exercise of the right of suffrage by students and by citizens having a visible admixture of African blood, are measures so clearly demanded by impartial justice and public sentiment that no argument in their support is deemed necessary.

I transmit herewith the report required by law of the pardons granted during the year ending November 15, 1869, a report of the expenditures of the Governor's contingent fund, copies of proclamations issued during the year, and several communications accompanying gifts to the State of portraits of former Governors.