GOVERNOR'S MESSAGE 
TO THE. 
GENERAL ASSEMBLY 
OF GEORGIA 
November 3, 1915 
Cmu;. P. BYRD, State Printer 
AlrLA..'iTA 
 
 GOVERNOR'S MESSAGE 
TO THf_ 
GENERAL ASSEMBLY 
OF GEORGIA 
November 3, 1915 
CnAs. P. BYRD, State Printer 
ATLANTA 
 
  MESSAGE 
EXECUTIVE DEPARTl\rn:"l"T, STATE CF GEORGIA. 
ATLANTA, GA., Nov. 3, 1915. 
r_t'o THE GENEEAL AssElVIBLY OF THE STATE CF GEORGIA: T1-1e recent failure of your body to complete the 
work which was necessary to the p1oper continuanc.:~ of the State government has compelled me to call you together in extraordinary se~sion. 
The proclamation convoking you is herewith laid before you for such attention as you shall deem it your duty to give it under the Constitution and laws of the State. 
I need not now go into any discussion of the unpa1al'e1cJ circumstances which rendered the calling_ of this session necessary. 
I realize the fact that the whole proceedings was lrought acout through the earnest and settled desire of a majoriiy of your body to take up and consider certain legislation concerning the prohibition of the manufacture and sale of intoxicants in the State of Georgia, which C:esire a minority of your body preYented you from accomplishing. ,vhile the method adopted for compel1ing an extraordinary session vrns, I believe, without pre2edent in the history of our State, in fact was somewhat revolution- 
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 ary, yet it serves to disclose in a very striking manner the settled determination of a majority of your body that the legislation referred to should be passed on by the General Assembly. 
I congratulate you on the changed condition of the business affairs of the State since your last meeting. '11he increase in the price of cotton and other products has served to encourage our people, make money easier and arouse enthusiasm throughout all our business circles. The lessons of the great war are being studied and learned, and the promise is near by that our future progress will become more brilliant than has ever been anticipated by the most optimistic in our midst. 
You will note that I have seen fit to lay before you the following objects, eac-h of which was deemed by me of sufficient importance to make the necessity for such extraordinary session apparent: 
1st. The consideration and enactment of the general appropriation bill, with all special and deficiency appropriations deemed proper by your body. 
2nd. Prohibition in the broadest sense, so as to enable you to make such additions or changes under the present laws as will in your opinion secure uniform and adequate enforcement of these laws. 
3rd. The future disposition of the 1Vestern & Atlantic Railroad. 
4th. The establishment of a State warehouse system. 
5th. The protection of the fish, oyster, prawn and shrimp business. 
6th. The amendment of the law concerning the automobile license tax. 
 
 You can well understand that a large number of other matters was called to my attention during the time which elapsed between the adjournment and the call of the special session. Most of these matters were pending in various stages within the two houses at the time of the adjournment. I have not thought it well to throw the doors wide open, because in the extraordinary session none of the technical work done in the consideration of the various measures before the two houses can be utilized, but everything must begin anew. It will not be so at the regular session next year. I have tried to confine you, therefore, to such matters as seemed to me most pressing, and aside from their intrinsic importance, would seemingly arouse as little opposition in their consideration as possible, under the circumstances. 
As to the first two groat matters which I have included, namely, appropriations and prohibition, upon which the two houses have already divided in your deliberations at the recent session, I have hoped that, as most of the members of the General Assembly had made up their minds touching what they desired to do when the measures came up again; there need be no great amount of discussion before a vote can be taken. A useless prolongation of the extraordinary session would arouse much criticism throughout the State. 
APPROPRIATIONS. 
Upon the attitude of your body towards the departments and institutions of the State, when you come to make appropriations, will depend in a large 
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 measure the usefulness and effectiveness of these portions of the government during the term for which you and I were elected. 
while a large number of these appropriations are fixed as to amount by existing laws, yet the great bulk is left entirely to your discretion, and upon your good judgment as you deal with them must rest the financial ability of these departments 
and institutions to properly transact the business for 
which they were established. They work for the State. Our educational and charitable institutions, our penal establishment, as well as our governmental departments, have been brought into existence as necessary instruments of the State Government, for the protection, prosperity and advancement of the inhabitants of the Commonwealth. You will decide whether during the two years for which you were elected they shall be enabled to properly perform their recognized and established functions, with that success which shall enable them to keep pace with the growth of the State, or whether they shall be crippled and restricted in their usefulness, and the whole State suffer accordingly. 
While I know that it is necessary to exercise great caution in making appropriations so as to keep them within the bounds of the revenue raised to meet them, yet I sincerely believe that you, gentlemen of the General Assembly, will agree with me in the conclusion that it is necessary to give our institutions for the protection of persons and property, for the care of those suffering from mental and moral deficiencies, for the education of our chil- 
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 dren, a sufficient support, not only to maintain their present standards, but to enable them to continue to expand so as to meet the growing needs of the State. 
I have suggested to you before, that a legislator's duty is best discharged by an effort to spend the revenue of the State judiciously, rather than to be constant in the effort to save the same. 
It is penny-wise and pound-foolish to cut down an 
appropriation to a worthy institution on the idea that it will save a few dollars for the time being, when such institution is ~onducted for the purpose of providing care and shelter for the sick and insane, or even for giving educational facilities to the young. The progress lost in this way may never be regained. So I confidently hope that a law-making body like yours, which was willing to precipitate a revolution in parliamentary procedure in order to secure the opportunity to forther protect those unfortunates, whose wills are not strong enough to resist the temptation to the excessive use of alcoholic stimulants, will certainly not diminish the amount of fi. nancial support heretofore given to institutions established on the one hand for the care of those who are already victims of such misfortune, or on the other for directing, molding, upbuilding and strengthening the characters and habits of the boys and girls who must be exposed to those evils in the future. 
I call your attention to the work of investigation 
and researrh which was <lone by your committees at the rerent session, in the gathering up of facts and 
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 statistics to ascertain the real wants of the various departments and institutions of our State, and with confidence, I commit the contents of each of these to the good judgment of the General Assembly. 
CONTINGENT FUND AND GOVERNOR'S OFFICE FORCE. 
I have already communicated to you at the regular session, the condition of the contingent fund, together with the difficulties encountered because of the limited appropriation for the Governor's office force. 
The annual appropriation for the contingent fund, which amounts to $25,000.00, has been forced to ineet several extraordinary calls, such as the salary of a messenger in the Executive Department, the salary of a valuation engineer for the vVestern & Atlantic Railroad, employed by my predecessor and continued by me, amounting together, to about $5,000.00, and the expense of the copper mine litigation and other payments, and as a consequence thereof the fund has run very short and will scarcely be sufficient to carry the State through the remaining three months of the year. 
I would be glad if the Legislature would either increase the fund or make special appropriations to cover some or all of the items above mentioned. 
The employment of a messenger is made necessary by the fact that no appropriation has ever been made to furnish a stenographer to the Governor. He cannot prepare a State paper or ans,Yer a letter of one of his constituents without writing in his own 
hand or borrowing someone to take his dictation. 
8 
 
 I trust you will find some method in your wisdom to amend this situation. 
STATE SANITARIUM FOR TUBERCULOSIS. 
This institution established at Alto in this State has been suffering greatly for the want of funds. At your recent session an advance of $10,000.00 over the former appropriation for each of the years 1916 and 1917 was earnestly urged in behalf of this institution. I call special attention to this matter, because as the State has enlisted in the fight against this wide-spread disease, it will be necessary to increase from year to year the appropriation to this sanitarium, if it be expected that the institution perform even to a limited degree the great purpose for which it was established. 
GEORGIA SANITARIUM AT MILLEDGEVILLE. 
This institut10n is overcrowded and is sadly in need of additional funds. I call attention to the report of its operatioLs and wants recently laid before your body. 
GEORGIA TRAINING SCHOOL FOR GIRLS. 
The Georgia Training School for Girls exhausted its fund for maintenance by June 1st of the present year and has been compelled to borrow in order to continue its sessions to this time. 
It wilJ be necessary in dealing with this institution if you desire to continue its effectiveness to make a special appropriation of some $5,000.00 inorder to cover the deficit for 1915. This deficit was 
9 
 
 brought about by reason of the fact that the appropriation for the school began in the middle of the year instead of the first of the year, and consequently no appropriation ,ms made for one half of a year. 
DEFICIENCY APPROPRIATIONS. 
If the  General Assembly should determine to include both the regular and deficiency appropriations in the same bill, then I respectfulJy call your attention to the large deficit existing in the printing fund. This was caused largely by the fact that the bills of the public printing establishment had run over from 1914 to 1915, in which latter year, with the exception of a very small amount, Governor Slaton paid the State Printer $10,684.00 out of the appropriation made for the year 1915. This step was justified by the fact that the work was done for use during the fiscal year 1915. 
The total amount appropriated to the printing fund for 1915 is therefore exhausted and there will be a deficit at the end of the year estimated at some $20,000. 
This printing fund is under charge of the Secretary of State, the Comptroller-General and the Treasurer, and I am informed has been carefully audited and judiciously expended. 
It appears that there have been two now depart- 
ments of the State government created since the General Assembly of 1913 cut down this appropriation from $40,000.00 to $35,000.00 per year. 
One of the largest items figuring in this deficit is the paying for the reprinting from electrotyped 
10 
 
 plates of Georgia Reports, which cost about $9,000.00. From this source the State will derive about $13,000.00, but this sum will be returned to the general fund of the rrreasury instead of to the printing fund. 
I earnestly recommend, therefore, that you take this matter up, deal with this deficit, and make such appropriation to cover the same as you shall deem best for the State. 
DEPARTMENT OF PUBLIC BUILDINGS AND GROUNDS. 
In the Department of Public Buildings and Grounds there is also an existing deficit which I call to your attention. Several irregularities have been recently discovered in the accounts of the Keeper of Public Buildings and Grounds. These accounts have been kept by the assistant keeper, who filled the position of Captain of the Guard. I had an audit made of this department by certified public accountants and -we submit to you a copy of the report for your information. 
This report shows outstanding bills against the State due by this department amounting to $14,210.83. It also discloses a default of $4,421.78, moneys applied to other purposes than for the use of the State. 
The report has been referred to the AttorneyGenernl with directions to insist upon the Keeper of Public Buildings and Grounds replacing the default aforementioned. Even if this amount is replaced there ,Yi11 still exist a deficit in the funds of the department of $9,789.05. While this is the appar- 
11 
 
 ent amount, the real deficit is probably even greater, since it seems that there is only left to the credit of this department funds sufficient to pay the salaries of the necessary employees for the remainder ot the year, and afford nothing for the incidentals and suppiies required to transact the business of the 
State at the Capitol. It would be best for the Legis- 
lature to make an appropriation sufficient to cover the total deficit and if the money 1s recovered from the principal keeper, it can be covered directly into the Treasury. 
MILITARY DEPARTMENT. 
There is a deficit also in the Military Department. The Adjutant-General reports that the sum immediately necessary to relieve the situation in that department amounts to something like $15,000.00. This sum is made up of the recent riot duty expenses for which the regular appropriation could not be used, amounting to $5,376.15, which expense has been left unpaid so long that the creditors have almost grown hopeless; also of the charges for caretakers required by the Federal Government, upon which the keeping of our field artillery depends, amounting to $5,000.00. Another item is armory rentals yet unpaid, which amounts to over $4,000.00, and which together with a number of other smaller rlaims make up the sum of $15,000.00. 
I have already expressed myself as to the duty of  improving and increasing the effectiveness of the National Guard of this State. I believe the State should co-operate with the National Government in securing this result. 
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 The men composing the National Guard prepare themselves at their own expense, for the protection of the life, liberty and property of the citizens in time of danger. They pay the expenses out of their own pockets and but for this our -State would have no National Guard, and its judicial decrees would be without the ultimate power of enforcement. 
I believe that a sufficient amount ought to be appropriated annually from the Treasury of this State to pay the expense of the maintenance of drill halls, the necessary servants' hire in connection with these halls and to pay for the men who must be kept on duty at all times in the Adjutant-General's and Quartermaster-General's departments, and in preserving and taking care of the equipment furnished for the troops, in anticipation of service. 
No nation in the present exigencies of the world's advancement can occupy a high and commanding position unless it possesses trained armies or a citizenship educated to take the place of those in time of war. There was never a time in the history of the world when this fact was more distinctly emphasized, than at present. The Union consists of forty-eight Republics or States, and its armies must be drawn from the rank of the citizens of the several States. The country would be utterly hopeless in time of sudden invasion if these citizens were unable to reinforce the small standing army of the National Government. 
INSURANCE FUND. 
There is also a deficit in the fire insurance fund if the law of the State which requires the Governor 
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 to insure all the property of the State (Code Sec- 
tions 147 and 148) is to be literally enforced. 
This deficit it is estimated will reach appro~imate]y the sum of $20,000.00. This situation grows out of the fact that the trustees of the eleven A. & M. Schools and Industrial School at Savannah have put in a claim to have their buildings insured. As this had never yet been done the question was referred to the Attorney-General, who decided that the 
law referred to was mandatory and that the insur- 
ance should be obtained. To do this an additional $20,000.00 will be required to the present appropriation for insurance. 
I call the Legislature's attention to the fact that no insurance is being carried on the Capitol building in Atlanta. It has been thought that the guards or watchmen employed in the building both night and day would give sufficient protection. It is a fact, however, that very recently a fire broke out in one of the rooms of the Capito], by which a considerable amount of property was destroyed, without the guard being advised of the same. 
OuR EnucATIONAL T-:-.rsTITUTroxs. 
I sincerely hope that the General Assembly will find it possible to appropriate sufficient funds to our 
educational institutions to enable them to carry on 
their work with their present high state of efficiency, and if anything to increase, rather than diminish, their activities and usefulness. 
I am informed that as a whole there is probably a larger attendance at these institutions than ever 
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 before, probably with one or two exceptions, due to local causes. 
uNIVERSITY OF GEORGIA AT ATHENS. 
The branches of the University of Georgia, located at Athens, have a larger attendance than heretofore. The University proper reports a largely increased attendance; the State Normal School has something like 700 students, the annual enrollment promising to exceed anything they have ever had in the past. The State College of Agriculture shows an enrollment this year of 687, against a total enrollment last year of 541. This work is being carried on by a plant originally designed to care for two hundred men. In addition to the students actually enrolled in the college, they serve something like 25,000 people through an extension service and over 200,000 people who are reached through field and miscellaneous meetings. 
TECHNOLOGICAL SCHOOL. 
At the Technological School in Atlanta, the apprentice class was abolished this year, and the entrance requirements raised from twelve to fourteen units. In spite of the result produced by this factor, there is an increase of thirty over the same date last year. The net total is now 974-, and additional enrollments will probably run the total up to more than 1,000 for the year. 
This school has asked for the sum of $100,000.00 for each of the years 1916 and 1917, being an increase of $10,000.00. This increase is wanted to care for and put into use the magnificent power plant for 
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 the school, which is being erected and equipped without one dollar of expense to the State. Through the efforts of the alumni of the institution about $80,000.00 has been raised to erect the buildings for this plant, while the great manufacturers of machinery and material in the north have donated all equipment for the building, valued at $125,000.00. It would seem, therefore, eminently proper for the General Assembly to appropriate the small annual increase that will enable the institution to utilize this magnificent gift, for the boys of the State who are seeking an industrial education. 
THE STATE NORMAL SCHOOL. 
The State Normal School has asked for an appropriation of $4,500.00 for the purpose of building an infirmary at that institution. The Elijah Clark Chapter of the Daughters of the American Revolution of Athens has offered to donate $700.00, more or less, to be applied on said infirmary, provided the State of Georgia should increase that amount to at least $5,000.00. 
This institution reports that it is now using an old servants' house with only sufficient room to care for four patients at a time. A school that is at.tended by 700 students is likely at any time to have need of accommodations for many more sick than that. No appropriation has ever been made for this purpose to this institution. 
THE GEORGIA NORMAL AND INDUSTRIAL COLLEGE. 
The Georgia Normal and Industrial College at Milledgeville is doing a great work that is limited 
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 only by the capacity of the plant and the financial ability of the school to take care of students. The increase asked for by this institution is much needed and well merited. I would rejoice to see every want of this school met and gratified as I regard it as among the best and greatest of its kind in the Union. 
THE NORTH GEORGIA AGRICULTURAL COLLEGE AND 
DISTRICT SCHOOLS. 
The North Georgia Agricultural College reports that their enrollment is up to capacity, with a very high personnel in the student body. District school reports have been received from the third, fifth, sixth, seventh, ninth and tenth distdct A. & M. Schools, all showing increased attendance, and indicating that increased support from the State will relieve pressing needs and enable them to do better and more widely extended work. All of tbese scbools have been recently established, nearly all of them starting with some degree of indebtedness which has handicapped their work to a great extent. 
I think that some measure looking to the speedy improvement of these schools will be necessary at an early date. They should be brought closer to the management of the University System of which they are a part, or some agency should be provided in order to secure greater uniformity in the work and a higher degree of efficiency in accomplishment. 
When this is done a substantial increase ought to be made to the income of these schools, properly apportioned. 
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 THE COMMON SCHOOLS. 
The work of the common schools of the State cannot be too earnestly commended to your attention. In the fight waged against illiteracy and ignorance, these schools form the first line of battle, and a proper extension of their work, with improvement in the conditions surrounding the splendid men and women devoting themselves to the business, should be one of the chief concerns of the Legislature. 
I wish the condition of the Treasury was such that you could make a material addition to the present fund, but in this, and in all other cases, a due regard for the Treasury must not be overlooked. 
It affords me much pleasure to inform you that under the recent Act passed at the regular session of this year, which authorized the borrowing of enough money to meet the annual deficiency in the common school fund, arrangements have been perfected to secure the relief authorized by said measure. The full amount of the appropriation of $2,550,000 has been tendered to the State at a discount of only three per cent. upon warrants covering the same. This splendid offer-flattering alike to the credit as well as the honesty of our State-was made by the Hon. Joseph A. McCord, Governor of the Regional Bank, located in Atlanta. A like offer was also made upon the same terms by the Nationar Park Bank, of New York, om fiscal agent i.n that city. The warrants have been signed and are now on the way to the parties at interest. 
Unless some unlooked for miRfortune should occur it will not be necessary hereafter for the State 
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 to postpone the payment of the teachers' salaries in the common schools beyond the day on which they become due. 
This lifts a handicap from our schools, the beneficial effects of which will only be appreciated when the results become known to the people. 
CONFEDERATE VETERANS. 
I trust that you will not, in making your appropriations for the coming years, forget the just claims of our Confederate veterans. They stood in the front before many of you were born; few of you can appreciate the suffering incurred, and the hardships through which they passed. 
I wish the State could take care of them, increase their small pensions as they grow, older and smooth the way to the end with the State's beneficence. 
VICTIMS OF NARCOTICS. 
As the Federal law which prohibits the sale of opiates and other habit-forming drugs is being strenuously enforced, and as a result a large number of unfortunates addicted to the drug habit is being thrown upon the country, many being prosecuted for vagrancy, thus filling up our jails and sanitariums, I think it would be wel] for the Legislature to take into consideration in making the annual appropriations, the propriety of co-operating with the citizens in providing some place for these unfortunates, until they can be cured and safely allowed to go at large. 
Several interesting communications have been received in the Executive Offices covering this sub- 
19 
 
 ject, and I would be glad to have the Legislature inquire into the same, as the trouble is growing larger every day. Some of the courts are sentencing the victims to the State Farm as vagrants, and if this is allowed to go on, wi11 soon fill the farm to overflowing, and make space difficult for the regular convicts of the ordinary type. 
BOLL WEEVIL. 
Mr. Worsham, the State Entomologist, has furnished to me a report touching some present needs in the fight now going on against the boll weevil in the State. 
I regard this as one of the most important matters which the State has to deal with at the present time. 
The communication of Mr. worsham is hereby laid before you, and your attention is asked thereto, so that you can take such steps to carry into effect his recommendations as you may see fit. 
FINANCES. 
The condition of the Treasury at the present time is practically normal. According to report received from the Treasurer on Monday, November 1st, the available balance amounts to some $151,267.36. 
There will be a steady influx of the taxes from now on, and it has therefore been practicable to make the usual payments to the schools - and public institutions, keep up the civil establishment, and res~rve a reasonable balance to meet all the exigencies of the situation. 
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 I accompany this message with a letter from the Comptroller-General referring to the results of the tax returns for 1915 as compared with those of 1914. There was no very great depreciation in the county returns, owing largely to the advantageous application of the Tax Equalization Law. 
vYhile the tax rate has been raised in a very slight degree, yet it is hoped for the next year, if the present Legislature is as considerate as your predecessors, there may be a reduction in this rate, so that the people may appreciate the value of the law which seeks to e(Jualize all the burdens of this character among those liable to taxation in the State. 
'1'1rn PROHTBITION LA ws. 
The failure of the General Assemhl~- to pass on the prohibition measures at the summer session brougM about the present extrnordinar~' session. 
It ,vas contended by the nwjority that the representatives of the 1wople had the right to vote on these matters, and that the m:e of filibustering tactics to prevent the same was not authorized. I have thought fit, therefore, to include this subject matter in the call, because it seemed to me demanded by the situation itself. r:I1 he faet that the Legislature would take so extreme a step was an indication of unrest and dissatisfaction throughout the State with the present prohibition laws. 
After the adjournment of the Legislature on August the eleventh, requests, petitions and memorials, both pro and con, began to reach the Governor's office on the subject of including prohibition in the call for the extraordinary session. The number of 
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 those urging the inclusion of the subject in the rall far exceeded the number of those who opposed the same. Over two-thirds of the membership of the House, and a large niajority of the members of the Senate, joined in the request to include the subject, assuring the Executive that proper laws bearing on the subject would be promptly passed at the extra session, should opportunity be given. 
In addition large numbers of petitions were received from grand juries, from church organizations, from civic bodies, from called meetings, public officers and thousands of individual citizens from nearly all the business ca1lings and professions of the State. 
J\Iany voor 'iYOnH-m connected with 110 organizations madp their pilgrimages from various parts of the State to the Rxecutive office, saying that they were only drunkards' wives, but wanted to add their voices to those of the other friends of temperance throughout the State in behalf of the enactment of these laws. 
I believe it is the sentiment of the great majority of the people of Georgia that some measure should be enacted wl1ich will faeilitate the enforcement of our prohibition laws. Georgia has occu1)ied a very sing11lar position. while rla,'<sed among the States having prohibition, yet it is unfortunately the fact that the law has been so loosely administered in various parts of the Commonwealth that her position has become a reproach to the prohibition cause. 
The differences of opinion between the advocates of prohibition and the opponents of the same ane so radical that it is doubtful if they could ever be 
22 
 
 reconciled. Large numbers of our citizens believe that these laws are infringements upon personal liberty. They are, therefore, opposed to them on principle. On the contrary, a still larger number of our people believe that these laws are the surest and best means of aiding the temperance cause among the people, and do not infringe on any vested right of a citizen. They believe that they can he enforced, and if this were done, that the moral, physical and social interests of the State would be greatly improved. 
vVhile the matter was under consideration, a statement was handed the Executive by one of the advocates of prohibition, setting out the results of the law in a State where it seems to he practically enforced, the State of Kansas. 'rhis statement was forwarded by me to the Governor of Kansas, where prohibition has been in operation for thirty-five years, and he writes me that same is correct. It says: 
'' A half million young men and women "in Kansas over tweuty-one )'ems of age have never seen a saloon in that State. rrhere is not a Kansas newspaper which publishes a liquor advertisement. Since Kansas adopted prohibition illiteracy has been reduced to less than two per cent. 'l'here is only one pauper in every 3,000 popnlaton. Eighty-eight of the hundred and five counties have no insane on county farms, fifty-four no feeble-minded on county farms, and ninety-six no inebriates.. Thirty-two poor farms have no inmates. Some counties have not called a jury to try a criminal case in ten years. In one Kansas county, there has not been a grand jury called for twenty-five years." 
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 It is needless for me to say to the General Assembly that such statements and publications circulated throughout the country arouse the very greatest enthusiasm among the advocates of prohibition, and it is not surprising in many cases these advocates vecome so strongly convinced that there appears to them to be no other side to the question. The ideal enforcement of the law is always the object to be sought after. Our own State, for the first six months following the adoption of the prohibition law, furnished a shining example. 
The radical differences of opinion between the advocates of prohibition and the opponents thereof have brought on conflicts at every session of the Legislature for the past five years, and taken up the time of the General Assembly without result or advantage. The valuable time of the legislators has been consumed in an effort to thrash out these questions, concerning which there seems to be no possibility of agreement. 
I concluded, therefore, in obedience to the demands of the Legislature itself, and of a large majority of the people who communicated with me on the subject, that it would he better to settle the matter at an adjourned session if possible, so that the regular session could be taken up with other constructive legislation. 
There were three measures presented wo1"thy of consideration at the recent session, but it is not necesS'ary for the Executive in this message to go into the relative merits of any of the measures that were pending. 
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 The people demand that more stringent laws should be enacted, so that the benefits of the legislation shall be fully enjoyed by all the inhabitants of the State. The celebrated Webb-Kenyon Act, passed by the National Congress, March 1, 1913', prohibiting the shipment of intoxicating beverages into dry States, and enabling the General Assemblies of these States to place restrictions upon shipments for personal use, has never yet been adopted in Georgia. 
I most earnestly advise the Legislature to put this Act into immediate operation under such terms and restrictions as shall seem best in your judgment. By doing this, the State authorities will have the co-operation of the National Government in the prevention of many of the violations of the prohibition law, and this co-operation, without doubt, can be made effective in preventing the shipment for unlawful purposes into the State of the prohibited articles. 
I think, too, as. the sale of liquor in Georgia is not permitted, it would be well to prevent the advertisement of the same, and that this law should go into effect at once. 
It was also proposed at the regular session to repeal the licensing of near beer, locker clubs and such institutions, which the law has made legal since Jan. 1, 1908. In dealing with this matter, it would be proper for the Legislature to give a fair and reasonable time to those engaged in the business for readjusting their affairs and finding other occupations or lines of business, alike for those who are employed in the occupation as for those who own the plants. 
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 It has been customary in all such cases where the business has been licensed by the State to aUow such reasonable time for re-adjustment. Should the time for the law to take effect be fixed at any period between the first and the last of the fiscal year, it will be necessary that authority be given directly in the Act to prorate the license taxes on a basis according to the time in the fiscal year when the busines::; must cease. 
I have not deemed it necessary to go further into tho discussion of the prohibition ques1ion. The people of Georgia are trying it out, and I sincerely believe are convinced that if the law can be enforced, it will be of great interest and advantage to the State at large. I agree with them in this belief. 
The question is fast becoming economic with all the governments of the world. The effect on the race was growing great-becoming so widespread; so general in its results for evil, that the safety of the people became involved-and statesmen, ethical an<l philosophical writers, thinking men everywhere do not hesitate to urge upon States and Legislatures the necessity of attempting to curb the results of intemperance by enacting such measures as shall in every casE be suited to the situation. 
You have before you the condition of our great State. Its mixed population, its growing business interests, its splendid progress in recent times, the demand for economy in living and the necessity to utilize all the strength of its people in pushing it forward on the highway to progress and prosperity are fully within your knowledge. 
I trust that you will meet the situation without prejudice or partisan feeling, but determine, at all 
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 events, that prohibition of the genuine kind shall have a fair trial in Georgia. If it fails, then something else must be resorted to to save the people, but till th<.::n, let it have the right-of-way. 
WESTERN & ATLANTIC RAILROAD. 
Feeling the joint responsibility which devolves upon the General Assembly and the Executive touching the disposition of the western & Atlantic Rail- 
at road the termination of the present lease, I have 
ir cludt~d 1his subject among the others submitted to ~-ou for action at the present term. 
while I recognize fully that no final conclusion can be reached concerning this matter, yet I think it important tha:t certain preliminary sh1ps should lw taken without further delay to bring about the disposition of the road at the termination of the present lease. 
The lease expires on December 27, 1919, and the re-leasing of the road will involve the execution of a contract covering several millions of dollars. 
The road itself is the most valuable single tangible asset that the State of Georgia owns, and plays a large part in upholding the credit of the State, inasmuch as the Constitution provides that it shall he a security for the payment of the entire public debt of the Commonwealth. 
The present lease brings an income of only $35,001.00 per month. It is believed that after this lease has terminated, the inrome may be decitletlly increased, thus adding materially to the public school fund and to the general assets of the Treasury. 
A number of important facts concerning the road have been brought to the attention of my office since 
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 I entered upon its duties. Some of these should be considered by you in passing on the questions which the subject will bring before you. 
There is now going on an important proceeding instituted by the Interstate Commerce Commission under the Act of Congress, having for its object the valuation of all the railroad property of the United States. The purpose of this valuation is, among other things, to provide a basis for the fixing of interstate rates on the railroads in the future. That Commission has issued some twenty valuation or- 
ders with reference to work required to be done by 
the owners and operators of railroad propertywhich work is intended to assist the Commission in reaching a final valuation. Fifteen of these orders apply to the Western & A tlnntic road. The actual inventory of the road will begin by the government engineers on or ahout January l, 1916-a little less than two months off. 
The Nashville, Chattanooga & St. Louis Railway Co., the present lessee, has for some months, acting under instructions of the Interstate Commerce Commission, been attempting to comply with the provisions of this valuation Ja,v, especially in so far as it involves the ascertainment of the original cost of 
the property to date, the cost of reproduction new, 
and the cost of reproduction less depreciation, in addition to the other elements of value goi'ng into the property as a whole. 
My predecessor, former Governor Slaton, impressed with the importance of the situation to the people, thought fit to appoint a special engi.neer in 
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 behalf of the State, to aid in this valuation and take care of the State's interests therein. The engineer so appointed served from }Iay 1 to September 13, 1915r and upon notice that he would be unable to continue the work, I left the order in force and appointed Mr. J. H. Johnston to fill his place. 
' These special engineers, 1\[essrs. Durham and Johnston, report to me that it will be an exceedingly difficult, if not an utterly impossible, undertaking to ascertain the original cost of the road. They state that none of the books of the road bearing on its construction have been preserved, that only about twenty or twenty-five per cent. of the original deeds remain, that the maps, made in pursuance of the authority given in the Act of the Legislature of 1893, are utterly incomplete and filled with many discrepancies. They also inform me that it will be a difficult matter to ascertain the cost of reproduction new owing to the fact that in all probability the terminal properties in Atlanta and Chattanooga, when properly assessed will prove of really more value than the entire line besides. It will be difficult to determine these values definitely, and to do so approximately will require both time and investigation. 
The matter of intangible values must also be considered, franchises, custom, facilities for connection-all these things must go into the subject of valuation; and about which, of course, there can be no mathematical exactness. 
With these conditions urged upon us by our own 0ngineers-and with experienced railroad men at variance in their ideas concerning the value of the road, it would seem to follow that the sooner the 
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 Legislature takes hold of the matter for final disposition, the better it will be for the interests of ali concerned. 
I trust, therefore, that the Legislature at -the present session will find it possible to take the J)Jreliminary steps necessary to dispose of the road ,in a manner most profitable to the State. The lessee is now preparing a complete set of maps of the system, the cost of which will run into thousands. I am informed that the State can secure a copy of these maps by expending about $200.00, if application is made therefor in due season. 
The experts of the lessee company are a1ready in the field placing estimates and values upon our property. rl'he experts of the government will soon follow them, and a final valuation soon will he reached upon which will depend very largely the leasing value of the property in the future. 
Judging by the past, it would be best to have some form of commission appointed to take charge of the whole matter. This commission should be required to co-operate with the authorities of the Nashville, Chattanooga & St. Louis Railway Company and the government, in the present valuation work. It should be clothed with such authority as the Legislature may deem proper in reference to the obtaining and compiling all data-the gathering up of facts and putting the matter in shape for final disposition. 
The members of the commission, if selected outside the legislative body, should he strong, disinterested railroad and business men of unimpeachable integrity and able to comprehend the sit- 
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 uation, and just enough to do what is right in the premises. 
I would suggest that it would be advisable to have on this commission the present Chairman of the Railroad Commission of the State, whose widt) experience, unimpeachable integrity and unfailing devotion to his State, eminently qualify him to represent her in the leasing of her property. 
Provision should be made for the necessary expenses of the commission, and for the suitable and adequate compensation of the members selected from the State at large. 
I recommend, if such commission is created, t1rnt there be embodied in the Act full authority to secure bids for a specified minimum or maximum term of years at a rental to be specified by the bidder. I am not decided whether it would be best to include the minimum rental in the Act. 
I believe it would be better for tho State to make a long-term lease, and it ought to be the duty of the commission to look into this, and if a long-term lease is agreed upon, let it he understood that the lessee company will expend the necessary funds for double tracking the road, abolishing the curves, and making other improvements, impossible under a short-term lease. It should be distinctly provided that all such 
improvements revert to the State at the expiration 
of the lease. I think the question of re-imhursing the counties 
throngh which the road runs for expense of courts should be considered hy the rommission, and relirf given to the counties aforesaid, inasmuch as no taxes can be levied upon the property. 
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 The commission should also ascertain whether any portion of the terminal property at either ern1 of the road can be efficiently disposed of without materially decreasing the rental value of the whole. 
I would recommend that this commission report to the regular term of the General Assembly in June 1916. 
Many considerations concur in bringing about a belief on the part of the Executive that the present is the best and most opportune time to consider the matter of re-leasing the road at a figure that will be just to foe State and secure its highest interests for the future. 
I have outlined my ideas of the powers with whieh the commission should be clothed merely as suggestions to your body, for I know you have investigated the subject carefully at the recent term and it seems to me you should be able to reach a conclusion at an early elate without any great discussion or difference of opinion concerning the same. 
w STATE AREHOUSE SYSTEM. 
I am convinced that the time has arrived when some proper legislation is needed to authorize a more adequate warehouse system for our farm products. The following is the result which should be sought: 
First. The removal from our cotton producers of the necessity of marketing their crop as fast as gathered. 
Second. The giving of encouragement to those planting and harvesting other crops than cotton, so that the farmers of the State may raise a necessary 
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 food supply, with a reasonable expectation of having a steady market, and the ability to handle such products on as good terms as they can handle cotton. 
The details of this proposed legislation have been studied by many members of the General Assembly, and I have thought it ,vorth while to include it in the call for the extraordinary session. 
I recognize the fact that there will be differences of opinion as to what is the best method of handling the situation, but I have no hesitation in calling on the Legislature to examine carefully into the matter and see if some remedy cannot be applied to mecr the present unsatisfactory situation. 
Cotton has always been Georgia's foremost money crop, and it will, beyond every doubt, continue to be so for many years to come. This great staple, first plantea in Georgia in Seventeen Hun<lred and Thirty-four, has grown in importance until today it turns into our coffers annually approximately two hundred millions of <lollars. 
The process of cultivating the crop has been improved. The process of separating the lint from the seed has undergone a vast change. The process of manufacturing the raw lint into the :finished product has nn<lergone a change still more phenomenal; and yet today, we have practirally about the same mode of marketing our crop as was in vogue a half century ago. 
Tt is an nn<lisputed fact thftt no system devised by man can r)e <leemed to he perfect. Tt stands to reason, therefore, tbat our present antiquated system can be improved, and it remains for yon gentlemen, as rerresentatives of yonr people, to say 
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 whether these irnprovemenh; are to be made unde1 State supervision. 
It will be a glorious day for Georgia when her sturdy sons, the very backhoue of the State, upo11 whom we a11 depend for our sustenance and wealth, can know that their warehouse receipts mean ready cash without a forced sale. The banks, in the time of need, have the notes of the merchants to secure them; the merchants have the notes of the farmers as col lateral; the farmer has no security to offer and, consequently, is perhaps forced to throw his crop upon the market at a ruinous price. 
vVe find upon every band, the great crying nee:l of today is for better credit facilities for the farm ers, that they may go forward, feed and clothe tLc world, and enrich themselves by their indust.r-y. 
Should we adopt a warehouse system and make it possible for the farmer to secure a reduced inter est rate on his products, I am told that this would probably form a valuable aid to our rural credits system, to which this General Assembly has rJledge,l itself. 
The small farmer who has no land would certainly be henefitted, and the large farmer who has much land would have an additional advantage added to the rural credit system we are earnestly hoping to obtain. 
The interest of the farmer has been the foot bu 1' of politics for a long time. I believe the end h?ci come, and that the people do not desire more of this. 
The law shon]d provide that all warehouses of the Rtate should be eligih]e to qualify under the ru1<  provided for securing the end in question, and if 
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 this can be done without unnecessary expense or hardship we will not be troubled with the foar rL concentrating the cotton crop in certain localitie:-,, rather than handling it at the point of production. 
I have included the matter in the present call, because it was represented to me that it was an emergency measure, that it ,vould be necessary to have some law enacted if it was expected to get the system in operation by time of the marketing of the crop in 1916'. 
If the legislation can be carefully drawn, guardec1 at all points, made not too cumbrous or complicate, 1 it seems to me that it would eventually prove to lw one of the most beneficial pieces of constructive leg islation enacted in many years. 
I have always contended that the people of th,, South can raise cotton better than any other peoph on earth. Their lands are also fitted for grain al1(l food-stuff. If the two crops could be developed together by the farmers, our prosperity would soon attain to the highest possible point of perfection. It would be easy to diversify the crops of Georgia if the storing and marketing facilities of otlwr States were afforded. 
I have been thus careful in calling this matt0r h your attention, because I am persuaded that it will not be an easy task to so adjust the legislation to meet the precise wants of the farmer, hanker and warehouseman. 
Unless there is unanimit~- as to the form of the legislation touching the sul)ject when you begin its consideration, and unless yon feel assured that you can at this time emirt a measure that 
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 will be satisfactory to the people, and accomplish the desired results, then I suggest that you refer the whole matter to a committee to be appointed from the two houses, who shall report their conclusions to the next session of the Legislature, with the appropriate, proposeu legislation accompanying same. 
PROTECTION OF ]'ISn, OYSTERS, SHRIMP AND PRAWN. 
Section 612, Volume 2, of the Code of Georgia of 1910, makes it a misdemeanor to "catch or take any fish with seine, net, gig or spear, or like device from any of the waters of this State, between the first day of February and the first day of July in each year, except with hook and line." while shrimp and prawn are classed as fish, it might 'Nell be held tlrn~ this section was not intended to apply to them as they are not susceptible of being caught with hook and line. As the process of catching them in nets, however, involves the catching of quite a large number of scale fish which are undoubtedly covered by the section, a technical violation of the law must necessarily result from the use of nets in order to take shrimp or prawn. 
A large industry in the taking and shipping of these fish has gro1Yn up within the past few years in the coast counties of the State. I am informed 
that these industries support some l0,000 people ,it 
this time and are rapidly growing. I am also in formed that a closed season for /Jsh or prawn from May first to Angust first of each year would gin abundant protection to almost every species of fisl including shrimp anc1 prawn, duriug , the entil'e spawning period. The time of greatest activity for the taking of shrimp and prmvn seems to be from 
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 January first to May first and the strict enforcement of the Code Section above referred to would entaii great hardship upon the people engaged in this industry, without corresponding benefit to the natural fish supply. 
I commend to your consideration the bill that was introduced in the Senate at the summer session, which passed that body by an almost unanimous vote, and which not only changes the closed season in accordance with the above statement, but provides for the preservation of our natural resources in fish and oysters, affording a revenue that will meet the necessary expense for carrying out these provisions and furnishing a surplus for the school fund of the State. 
The measure referred to was originally prepared by experts on the subject from the coast counties of Georgia and from the Bureau of Fisheries at Washington, who had before them the experience of other States in these matters'. 
I am informed that this bill is satisfactory to tlte parties concerned and I bespeak for this measure your careful consideration, not only for the benefit of the people interested in the industries themselves, but for the good of the State at large in the conservation of a valuable source of food supply, and in the production of additional revenue for the Treasury. 
AUTOMOBILE LICENSE TAX. 
The State Automobile License Tax authorized under the Act approved August 19, 1913, amending an Act approved August 13, 1910, is now being attacked in the courts on the gruund of unconstitutionality. 
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 The charge made is that the tax is a revenue measure, and that inasmuch as the State already tarns the automobile ad valorem, it cannot levy an other tax in the guise of a license or specific tax. 
Tho Act came up in the Superior Court of Chatham County, Ju;:lge Charlton presiding, and the learned judge, after holding tl:e law unconstitutional on the groun'.:l. aforesaid, went on to discuss the validity on other grounds, stating th~,t in his opinion, tho method of distribution pursl~cl was unfair to the counties. It is the sulject of litigation in other forums, and the case is now pending in the Supreme Court that will doubtless settle the question of constitutionality. 
I have include;:} the question as one of the objects in the extraordinary call because of the possibility of the court's contention being sustained, which result would cause the loss of approximately $120,000.00 in the revenue of the State. 
If the law is declarej unconstitutional, it would also put an end to an important and necessary regu1ation on the part of the State in regard to these vehicles. 
It will be noticed that there is no provision made for th enforcing of this tax, the good faith of tho taxpayer being largely concerned in the matter. 
I respectfully suggest to the General Assembly the advisatility of investigating the suhje:.it, an::l of making such amendments to the law as would meet the contention of those who claim tho tax to 1::e invalid. This, as I understan J, can be clone so as to sustain tl:e present tax levy. 
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 Ttc fund is now dividd among the several counties in proportion to the road mileage of those 
co11nties. It has l:een suggested that it would be 
well to direct the money to be paid into the Treasury as a special fund to 1:c applid to the road work of tbe counties, either by a Highway Commission to be hereafter cstablishe:J, or by some commission inchiding the Treasurer and the Secretary of State. 
I con~mend the whole question to you for consideration, and trust that in your wisdom you will 1::e 
able to devise so1re n".ethod by which the tax can ce 
saved to the State. 
CONCLUSION. 
I have gone into the matters set forth in this message, not with a view of arousing any kind of antagonism, or challenging controversy. 
1'he crisis is an important one and the cost of the extra session to the people will be <letermine:1 hy the value of the work. One measure might com}:ensate for all the expense of the session. 
I apr,eal to the patriotism of your body, anJ trust tlrnt no uselc~s c:-;pcnc:c will tc incurred, and no time thrown away in getting down to an immediate consideration of the measures submitted to you for the session's work. 
'lh:) people of the State will stand ready to give credit for the course that has been taken, if you bring the session to an early adjournment; you will thereby save from expense and mortification the con- 
 
 stituents who sent you to transact their business in this great forum, and keep your State on the pedestal which her greatness entitles her to occupy. 
Respectfully submitted, Governor. 
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