mental statue of a Union soldier keeping guard over the deod, which the trustees propose to erect at an expense of thirty thousand dollars. STATE PRISONS. It appears from the report of the inspectors, that there were twentynine hundred and twenty inmates in the State prisons on the thirtieth of September last. The management of the prisons has given general satisfaction, and the financial results are more favorable than I had at one time apprehended. It is true that the expenditures have been about one hundred and seventy thousand dollars over the receipts; but the causes which have produced this result are clearly and satisfactorily explained in the annual statement of the inspectors. While it is desirable that the receipts should be at least equal to the expenses, this cannot properly be regarded as the primary object, nor even as one of the most essential requirements of these institutions. The regulation of the mode and degree of punishment, the safe keeping of the convicts, the maintenance of prison discipline, and the adaptation of the means employed for the reformation of the criminals, are matters of even greater importance than a fiscal balance in our favor on the prison. ledger. It seems possible, however, to promote this end without drawing, under ordinary circumstances, upon the public treasury. The most favorable results from the industry of convicts have been attained at the Dannemora prison, where the inmates are employed directly by the agents of the State. It is the judgment of inspectors, in which I am inclined to concur, that the extension of this system to our other prisons would be attended with advantage to the convicts and profit to the State The records of the prisons show an improved state of discipline, resulting, doubtless, from more strict administration, and the incentives. to good conduct held out to the convicts under the authority of a recent act of the Legislature, allowing them to earn certain deductions from the period of imprisonment, by the careful observance of prison regulations. It is not improbable that some modification of our prison system will be recommended by the Convention for the revision of the Constitution, and hence I forbear to enter more largely upon the discussion of this branch of the public interests. The whole subject of our prison administration; the punishment and reformation of criminals; and the exercise of the pardoning power, is worthy of grave and thoughtful consid. eration. Much has already been accomplished, but much more remains to be done in perfecting reforms which seem to be attainable through well guarded and enlightened legislation. QUARANTINE-PUBLIC HEALTH-HARBOR OF NEW YORK. The number of alien immigrants who arrived at the port of New York during the past year was two hundred and forty-two thousand, seve■ hundred and thirty-eight, being nine thousand three hundred and twenty in excess of last year. Immigration is one of the sources of the wealt of our country, and an essential element of its progress and power. It is estimated that during the last twenty years about four millions of immigrants have arrived at the port of New York alone, and we ma safely assume that these accessions, together with their natural increas amount at present to eight millions, or nearly one-fourth of our enti e population. While it is true that our cheap and fertile lands, our profitable pursuits, and our free institutions invite them hither, it is also true that commerce and industry generally follow the march of the immi grant. A glance at the rapid growth of our northwestern States and of some of our northern cities plainly discloses the influence of this cause upon our general prosperity. Our recent civil war has removed the obstacles which tended to discourage the immigrant from settling in the southern portion of our country, but which will now claim to participate in this agency so important to its early recovery from the devastations of war, and the degradation of labor consequent upon the long prevalence of slavery. The commissioners of emigration deem it a privilege to extend a hearty welcome to the new comers, and direct their footsteps to these inviting fields of industry and profit. It will be regarded as a duty we owe alike to our institutions and to the emigrant whom we invite, to our shores, to encourage and foster a wise distribution over our country of these inflowing elements of National wealth and progress. The fund under the control of the commissioners is created by a percapita tax of 2.50 for each alien, which is devoted mainly to the support of the sick and indigent upon their arrival at the port, and in maintaining suitable agencies to carry out the humane purposes of the law establishing the board. The landing depot at Castle Garden has been improved, the facilities for landing purposes increased, and new appliances added for the comfort and security of the immigrant. From the fund thus obtained, large and beautiful hospital buildings have been erected on Ward's Island, where the unfortunate and afflicted are kindly cared for, and prepared for their new associations and the active affairs of the land of their adoption. The improved sanitary condition of the Metropolitan district during the past year, and the decrease in the mortality of the cities of New York and Brooklyn, are important and gratifying. This district, the centre of American commerce and the entrepot of foreign immigration, though almost constantly threatened during the past season, has been secured from the ravages of epidemic disease; and the business and commercial interests of the State have suffered no interruption. The success of these efforts has justified the demand of an enlightened public, for inteiligent and scientific administration of the health laws, in the most populous portion of the State. It will be readily understood that our extensive commerce with nearly all parts of the world, and the vast and steadily increasing immigration to our shores from Europe, are constant sources of danger to the health and lives of our citizens from the importation of contagious and infectious diseases. From statistics furnished me by the Health Officer, it appears that since the first day of January last, one hundred and forty-eight vessels have been placed under quarantine. In addition, over two hundred vessels came from ports known to be infected with yellow fever, and these were required by law as well as by common prudence, to be detained a sufficient time to determine whether they were free from disease. The danger to which we are exposed, and the disaster that would be likely to follow from inefficient or incompetent administration of our quarantine and health laws, are not likely to be estimated. The hospital authorized to be erected on West Bank, under the act of 1866, has so far progressed that its final and successful completion is promised early the coming season. This, it is believed, will meet one of the great needs of the sanitary authorities, but they will still be without warehouses for infected goods, proper facilities for well passengers detained under quarantine, or a suitable landing and boarding station. The duty of the General Government to provide such ware houses is generally conceded, and I am not without hope that Congress. will yet take measures to this end. Provision was made by the act of April last, for the temporary occupation of Barren Island, as a place for the detention of well passengers under quarantine, and for a permanent station on Coney Island. A site for the latter was selected by a board of officers charged with that duty, but the comissioners have been restrained by injunction from taking possession. The law authorizes the selection of a suitable site on the west end of the island. It was deemed proper that it should embrace a sufficient area to secure complete isolation, and thus avoid any possible danger from its use for quarantine purposes, but I am advised that the court has decided that the powers of the board were limited, and that they had no right to take the question of isolation into consideration. The effect of the decision has been to render that portion of the act inoperative, and your attention is respectfully directed to the question whether there should be further legislation to promote the original object. The Police, Fire and Central Park Commissioners have continued to discharge their important functions to the satisfaction of the people of the State, and in a manner especially acceptable to the communities more immediately affected by their action. An act was passed by the Legislature in 1865, to authorize the erection of warehouses and docks in the port of New York, for quarantine purposes. These docks and warehouses were designed to facilitate the discharge of cargoes from vessels not infected with disease, although subject to detention by reason of exposure on the voyage, or in ports from which they sailed. At present such vessels are relieved of their cargoes by lighters, at some point in the bay considerably removed from the main land. It was supposed that the projected warehouses could be erected in the bay, not less than one and a half miles from shore, and a restriction to that effect is contained in the act referred to. By the same act the Governor was authorized to appoint commissioners to confer with the authorities of the State of New Jersey, relative to the insufficiency of the quarantine regulations with that State, applicable to the waters, and land under water, within her jurisdiction. It has been ascertained that a suitable site cannot be found, except on lands under water, the proprietary right to which is ceded to New Jersey by the compact made with that State in 1834. The commissioners appointed have endeavored to obtain the grant, and the Legislature of that State, by joint resolutions passed in April last, designated commissioners to confer with them on the subject. The result of their conference, I am assured, will be communicated to the Legislature of both States in time for action during the present winter. In connection with this subject, my attention has also been called to a prosecution instituted by the late Attorney-General, in the name of the people, against the New Jersey Central Railroad Company, to prevent the construction by that company, of docks and piers projecting from the New Jersey shore far out into the bay of New York. A large area of the bay, comprising many hundreds of acres, is included within these structures. The compact betwen the States expressly secured to New York exclusive jurisdiction over these waters to low water mark on the New Jersey shore, but subject to the right of the latter State to construct wharves and docks. It is claimed by New Jersey that the provisions of the compact authorizing such construction, by legal implication, permit their extension and filling in with earth beyond low water mark, so far as may be found convenient for commercial purposes. It is sought on this ground to justify the erection by the New Jersey Central Railroad Company, of structures extending a mile into the bay, under grants obtained from that State. If these encroachments on the bay are continued, they will seriously interfere with the use of the harbor and the convenience of general commerce; and if they are in violation of the territorial rights of New York, this constitutes an additional and conclusive reason for restraining them. In either view, it is obvious that wharf lines on both shores of the harbor should be established, beyond which docks should not be extended. With my sanction, the commissioners appointed presented the subject to the agents on the part of New Jersey. It is hoped that a satisfactory arrangement will be agreed upon and submitted to you at an early day. Thh questions involved are of the greatest importance. The foreign and domestic trade, at the port of New York, is of immense magnitude, and that city is already the rival of the leading seaports of the old world. In the hope that interests so vast may be further promoted, I think it desirable to continue the commission. The whole subject, relating to obstructions of the harbor, and a more commodious and complete system of wharves and piers, is of grave public importance, and I respectfully commend it to your careful consideration. SPECIAL LEGISLATION. In my last annual message, I alluded to the importance of strict adherence to the policy indicated in the first section of the eighth article of the Constitution, which provides that corporations may be formed under general laws, "but shall not be created by special act, except for municipal purposes and in cases where, in the judgment of the Legislature, the objects of the corporation cannot be attained under general laws." Acting in the spirit of this provision, the Legislature, from time to time, framed laws of general scope and application, almost wholly removing the necessity for special charters. It seems to me that this regulation should be strictly observed; and that exceptions should be admitted only in cases of extreme hardship, and when the public good clearly justifies a departure from the general rule. The pressure of private interests has led to its disregard, and we have seen individuals and associations obtain by inconsiderate legislative grants, unnecessary and extraordinary special privileges and powers. In a period of vast transactions and great commercial activity, competition in every department of enterprise finds increased stimulus, and you doubtless will be frequently invoked to advance schemes which promise individual advantages and the promotion of objects seemingly meritorious. The danger lies in the tendency to give projects for private advantage and gain an undue prominence, to the prejudice of the vast public trusts committed to your special and immediate supervision. The last Legislature passed more than one thousand bills, of which nine hundred and seventy-four received my approval, covering twenty-six hundred printed pages. Of this number, one hundred and twelve only were of a general public character, while three hundred and thirty-seven related exclusively to private interests, and five hundred and twenty-five had merely a local bearing. If it is cousidered that the the work of preparing, examining and maturing these measures was compressed into a period of less than four months, it will be apparent that a great proportion of the bills must have been passed without careful examination and a deliberate consideration of their provisions and legal effect. More than one-half of these bills were enacted during the last ten days of the session, and notwithstanding close application on my part, JAN. 7.1 23 With my in the discharge of the duty devolving upon me, four hundred and ninety-four did not receive my approval until after the adjournment of the Legislature. This is not wholly an exceptional case. It canimmediate predecessor, two hundred and eighty-one bills the first year of his term, and two hundred and forty the second year, were acted upon after the close of the session, and obviously from the same cause. not be doubted that a firm adherence to the policy indicated in the Constitution would tend to more careful legislation, and a great reduction in the number of the laws. It is a significant fact, that the French House of Deputies, during its last session, of more than five months duration, enacted only one hundred and thirty-five laws. The Parliament of Great Britain, during the years 1865 and 1866, enacted but three hundred and ninety-six; and the 38th and 39th Congress of the United States, embracing a period of four years, enacted only three hundred and twenty-eight laws, including those of a private and public character. This comparison gives support to the prevalent opinion that we not only legislate too much, but that a portion of the measures over which the Legislature exercises jurisdiction are imperfectly considered uncalled for, and lead to embarrassment and confusion. Entrusted by the Constitution with the authority to impose taxes for public purposes, and charged with the duty of restricting the powers of municipal corporations to contract debts, the obligation resting upon you is alike delicate, arduous and responsible. A large portion of the tax borne by the people is the outgrowth of the recent war, the exigen cies of which justified the assent of the Legislature to the large burden assumed by the State and by localities. But the war has passed, an◄ every consideration of policy, patriotism and interest, points to th necessity of a prudent husbandry of the public resources, and a carefu avoidance of all experimental legislation for mere private or corporat ends. EDUCATION. e There are probably few among us who, even amid the pressure of th active affairs of life, fail to recognize the importance and magnitude Of our system of popular education, Our people have acted upon the th ory that the extension to every class and condition of society, of the means of early education and facilities for the acquisition of knowledge in after life, contributes to the prevention of crime, the preservation of social order, the security and stability of the government, and the thrift and prosperity of all who are engaged in the various departments policy, and the practical result is that our schools are open to the ch of industry. Our legislation has been based on this liberal and enlightened Idren, even of the poor and the homeless. We have been steadi S The sti D extending the facilities for instruction in the higher departments. pensed, and there is reason to believe that our system of education, a whole, is meeting the just expectations of the people. a The following summary is gathered from the records of the depart ment of Public Instruction, and from the interesting report of the Super intendent: For the support of Common Schools Public moneys, including three-quarters mill tax... $1,403,163 84 06 |