Proceedings of the Second National Conservation Congress at Saint Paul Part 11

There are two good reasons why the Federal Government is directly interested in Conservation. In the first place, it is the largest land-owner in this country; and, in the second place, it has high duties to perform for the interests of all the people of this country. For these reasons, the Federal Government comes directly in touch with the practical questions of Conservation in dealing with what is left of the natural resources of our public domain. The value of these resources cannot be measured in mere terms of acres. Some 700,000 acres of our public lands remain; but that means nothing unless we know what is contained in or on the land represented by the mere statement in figures. Now we are learning that this great area, both on the mainland and in Alaska, is filled with priceless treasures in the resources needed for the lives of the people of our country; and it is in the handling of these resources--either disposing of them or providing for their use or development--that the Federal Government must deal practically with the problems of Conservation. Only as we know this tremendous area and its priceless treasures do we realize that we must, in the practical handling of these resources, make as few mistakes as possible, and constantly keep in view the interest of all the people as a guide in the solution of any given problem.

Now, we meet with serious difficulties in attempting to decide how best to use the property owned or held by the United States Government as trustee for all the people. We have under our system of government a dual jurisdiction, or rather, two jurisdictions--that of the Nation on the one hand, and that of the State on the other. Yet between these two jurisdictions there is no real conflict; there ought to be no insuperable obstacle to such cooperation between States and Nation as will make possible a wise solution of all questions in which both jurisdictions have duties to perform. We hear much about States' rights, as though the problems of Conservation have brought to life again an old doctrine, as though in some way the Conservationist is endeavoring to take something away from the States. The very opposite is true. There is no effort on the part of the Conservationist to interfere with any duty that the State ought to and can perform. Those duties devolving on the States should be performed by the States; and the people of each commonwealth should see to it that their State representatives not only do what is wise and necessary each year but exercise foresight in dealing with all resources subject to their jurisdiction (applause).

That, however, does not mean that the Federal Government is debarred from proper use of the public domain within the areas of the several States; it likewise has great duties devolving on it in so administering its property as to safeguard the interests and the rights of all the citizens of the country. The State lines are merely accidental in many instances. The States of the old Northwest and the States of the Middle West today were carved out of public territory simply by drawing of lines; they were not political ent.i.ties in the first instance, but a few people got together and agreed that so many square miles of territory would be made into a State, and whether that State line was drawn here or a hundred miles over there should not determine how we are to deal with the public resources contained within the area.

In the early period of our development there was but little need of giving heed to the questions that are now uppermost in our minds in relation to the public domain. There was land enough and to spare; and the early purpose of the Federal Government was to provide easy methods for getting the public domain (which in those days was considered chiefly useful for agriculture, as it is in the middle West) into farms, and building up commonwealths that are now theatres of agricultural industry. But today the conditions are very different. The remaining agricultural land that can be used without irrigation or drainage is very little in comparison to the needs of our people; and in handling what is left of the public domain it becomes the duty of the Federal Government to see to it that not one acre of land that can be used for agricultural settlement and development is directed to any other purpose--and likewise to see to it that land capable of mineral development or of water development is not stolen from the public domain under the guise of homestead entries. (Great applause)

In order to understand exactly what the Federal Government can do in relation to the use of the public domain, let us keep clearly in mind the powers granted to it under the Const.i.tution, and the laws enacted in accordance with the Const.i.tution by Congress. The Const.i.tution provides that--

The Congress shall have power to dispose of, and make all needful rules and regulations respecting the territory and other property belonging to the United States.

The executive power shall be vested in a President of the United States of America.

* * * he shall take care that the laws be faithfully executed.

Now, in accordance with the provisions of the Const.i.tution, the Congress has enacted the following laws affecting the public domain:

The Secretary of the Interior is charged with the supervision of public business relating to * * * the public lands, including mines.

The Commissioner of the General Land Office shall perform, under the direction of the Secretary of the Interior, all executive duties appertaining to the surveys and sale of the public lands of the United States, or in anywise respecting such public lands.

The Commissioner of the General Land Office, under the direction of the Secretary of the Interior, is authorized to enforce and carry into execution by appropriate regulations, every part of the provisions of this t.i.tle [the public land laws] not otherwise specifically provided for.

Congress, acting under these general provisions, has from time to time enacted laws affecting portions of the public domain. It has provided the Homestead Act, the Timber and Stone Act, the Mineral Entry Act; provided for the creation of the National Forests; enacted laws relating to the use of the public domain for reservoir sites, for pipe-lines, and for transmission lines; and as the needs of each generation have been made known, Congress, acting for the interests of all the people, has enacted direct legislation for the purpose of providing method for the disposition and use of the public domain.

Meantime, the Executive on his part has performed the duties devolving on him under the Const.i.tution--duties few in number and easily expressed, though of great importance to the public welfare. They are, in brief, to see to it that the laws of the United States are faithfully executed; and he is granted all the executive power that could have been given by the use of the English language. There is no limitation. It is simply "executive power"; whatever that may be was granted to the President of the United States.

One of the great objects for which this Nation was created was to promote the "general welfare." That object was not only stated in the preamble of the Const.i.tution, but was likewise written into the body of the instrument; and the power was specifically granted to Congress to provide for the general welfare of the United States. That was not an idle phrase. The founders of the Republic recognized that it was impossible for them to foresee all the things that it might be necessary for the Federal Government to do; it was not possible for them to define in specific language all the powers that were to be exercised, nor was it possible for them to indicate to what extent these powers, once granted, might properly and wisely be used; and this welfare clause has made it possible to carry out by both the Legislative and the Executive branches of the Federal Government the beneficent purposes of the founders in ways which they never contemplated or could have contemplated in detail. Fortunately, during the early days of our National existence we had at the head of the Supreme Court a master mind. Marshall was as profound a statesman as he was a great jurist. He recognized with that great far-seeing insight that amounts almost to inspiration, that it would have been to sound the death-knell of the Republic if he, as the chief law interpreter from the judicial seat, should so interpret the Const.i.tution as to tie the hands of the Government and prevent the people from doing the things necessary to make themselves a great and permanent Nation. In one of the earliest decisions involving interpretation of the Const.i.tution (McCullough vs.

Maryland. 4 Wheaton 315) Marshall used this language:

Let the end be legitimate, let it be within the scope of the Const.i.tution, and all means which are appropriate, which are plainly adapted to that end, which are not prohibited but consistent with the letter and spirit of the Const.i.tution, are const.i.tutional.

Another sentence in the same opinion sets a standard for judging existing or proposed law; he says--

But where the law is not prohibited, and is really calculated to effect any of the objects entrusted to the Government, to undertake here to inquire into the degree of its necessity would be to pa.s.s the line which circ.u.mscribes the judicial department and tread on legislative ground. This court disclaims all pretensions to such a power.

Clearly, Marshall saw at that time that if the Supreme Court endeavored to prevent Congress from exercising to the full a power granted under the Const.i.tution, it would at that very moment overstep its legitimate ground and interfere with the functions granted to the legislative body; and in dealing with the powers granted to the Executive, exactly the same rule of interpretation applies. Now, it is most interesting to notice how from generation to generation Marshall's interpretation has made possible the doing of the things that have been done by our people.

In those days it was impossible for men to conceive of the commercial development that has taken place during the hundred years. They could not have realized that within a hundred years we would be a great manufacturing Nation, and that our commercial relations would not be confined to the thirteen colonies but would spread broadcast throughout the entire world.

A striking example of the application of this wise interpretation arose in dealing with the questions of the Philippine government. We there had an entirely novel proposition. The forefathers of the Republic had never contemplated the acquisition by us of territory in the Pacific, or islands elsewhere. Yet when we faced that problem, we found that under Marshall's interpretation, our Const.i.tution was broad enough and big enough, and the powers granted therein were great enough, to permit us to fulfill the Nation's duty to the islands and islanders. President Taft, discussing our work in the Philippines, used this language three years ago:

It is said that there is nothing in the Const.i.tution of the United States that authorizes National altruism of that sort.

Well, of course, there is not; but there is nothing in the Const.i.tution of the United States that forbids it. What there is in the Const.i.tution of the United States is a breathing spirit that we are a Nation, with all the responsibilities that any Nation ever had, and therefore when it becomes the Christian duty of a Nation to a.s.sist another Nation, the Const.i.tution authorizes it because it is part of National well-being.

That interpretation of the power of both the Executive and the Congress is exactly in line with the power that is exercised by both in dealing with this question of the public domain and the welfare of our people (applause). It would be a childish interpretation of the Const.i.tution to hold that we as a Nation could act for the people in the Philippine Islands as was best necessary for their well-being, and yet within our own confines as a Nation would be prohibited from doing that which is necessary for the well-being and the welfare of our children and their children. (Applause)

The interpretation by Marshall gave vigor to the young Nation. He was not afraid of great responsibilities. He recognized that great responsibilities likewise meant the possibility of great mistakes, but that did not deter him from so interpreting the Const.i.tution as to make possible the doing of the things that have been done. He was not of that cla.s.s of timid folk who fear to exercise great power lest they may make a mistake. He was not that type, either as statesman or jurist, who because they do not see plainly written in the Const.i.tution specific authority for the doing of every act necessary, therefore hold back and maintain that no such authority exists. This is the type of mind that prevents all progress. The timid man is often side by side with the dishonest man, because the timid man refuses to act from fear while the dishonest man raises the cry, "There is no power," in order to gain for himself that to which he is not ent.i.tled, or to escape Governmental jurisdiction or evade governmental regulation of any character.

(Applause)

But we are not left simply to academic discussion as to whether the Federal Government has power to deal with the National domain. The Supreme Court has held, over and over again, that the Federal Government, acting through both the Legislative and the Executive branches, has the power to do what is best for the people's interests in handling the public domain. The Court has wisely and properly held that the power granted under the Const.i.tution to dispose of the public domain carries with it every lesser power (applause)--that because Congress has the right to provide for the sale or the gift of land, it can likewise provide for the lease of land under such conditions and regulations as it may prescribe or as it may permit the Executive to prescribe.

Therefore, the way is clear for the Federal Government to do whatever may be wise and necessary to protect the interests of the people in the use of the public domain.

Let us take another view of Executive authority. The chief Executive, above all other officers, is recognized and properly held as the great steward, the immediate custodian of the public property and of the people's rights. He is single-headed. He is one upon whom responsibility may be fixed. He is constantly at his desk; he is ever vigilant; he is constantly in touch with the things that interest the people and their rights therein; and as the custodian and guardian of the people's interests, it is to him that we must look for the protection of the public domain. It is not enough that the Executive shall simply carry into effect the specific language of a statute. He must go farther than that; he must be as aggressive in his vigilance as are those who would take the public property without conforming to the law (applause). The Executive is required to see to it that the laws are enforced. Now, in the enforcement of law he often finds that while the paper record presented to him or to his subordinates by those who seek to acquire the public domain is perfect (there is no difficulty about making a land t.i.tle good on paper) his duty is only partially fulfilled unless he goes behind the paper record; and when the last Administration took hold of the question of the land frauds, the Executive decided that there was but one way to enforce the law, and that was to see to it that the paper record conformed to the facts in every case presented (great applause).

The greatest land frauds that have been perpetrated against the people of the United States were perpetrated because the public officers in years past did not make that direct, careful investigation of the facts and of the condition of the lands which would have enabled them to save for the people hundreds of millions of dollars of valuable property that in the last generation has gotten illegally into the hands of the big interests. (Applause)

The founders of our Republic recognized and understood the vital need of giving ample power to the Executive. It is well to recall what Hamilton wrote when defending the Const.i.tution:

Energy in the Executive is a leading character in the definition of good government. It is essential to the protection of the community against foreign attacks; it is not less essential to the steady administration of the laws; to the protection of property against those irregular and high-handed combinations which sometimes interrupt the ordinary course of justice; to the security of liberty against the enterprises and a.s.saults of ambition, of faction and of anarchy.

There can be no need, however, to multiply arguments or examples on this head. A feeble Executive implies a feeble execution of government. A feeble execution is but another phrase for a bad execution, and a government ill-executed, whatever it may be in theory, must be, in practice, a bad government.

Thus the Executive must be held responsible for much that is done in connection with the administration of our laws. Congress enacts the laws; they may be faulty; if so, they may be amended. If they are faulty, it is the duty of the Executive to carry them into effect, but to recommend their amendment, alteration, or repeal; but under no circ.u.mstances is he fulfilling his duty if he sits supinely by and allows the public domain to be despoiled because the law is not as efficient as he thinks it should be. (Applause)

Much has been said in recent years regarding Executive usurpations. It has been held by those who objected to the new order of things--those who objected to that change in methods by which the public frauds were stopped--that the Executive was usurping powers not granted to him under the Const.i.tution. Now, if it be usurpation to so enforce the law as to prevent dishonesty, fraud, and theft, then there has been usurpation (applause). But I as yet have failed to have presented to me a single instance of actual usurpation. The Executive is as much subject to the courts of the United States as is the ordinary citizen. If the Executive has transcended his power, if he has in his execution of law gone beyond what someone thinks is his power, then the Executive can be haled into court; and over and over again I have said to complainants who came to me when I was in office "All you have to do is to go into the courts of the United States, and if the Executive power that is being exercised is improperly exercised, there in that jurisdiction you can bring us to account." But no one has yet seen fit to bring such an action; and the reason is that there has been no usurpation of executive authority.

(Applause)

There is a wide difference between simply being within the law and executing the law. A man may be within the law and yet do absolutely nothing to further the spirit of the law; like an engineer, he is on the track whether he is standing still, going backward, or going forward; but I take it that what we want in executive office is an engineer who stays on the track yet is constantly driving forward the engine (applause). We may rest a.s.sured that those who are seeking to acquire the public domain will not be idle if the Executive is standing still.

(Applause)

That brings me again to a subject mentioned a moment ago, namely the relation of the Nation to the States; and the Executive here plays an important part. An example will show how the executives of both the Nation and the States should cooperate in working out any given problem: A great water course is a natural ent.i.ty; the water-shed must be considered as a unit--otherwise the people within that water-shed will not have equal justice done them in their right to the water. For example, the waters of the Rio Grande rise in Colorado; they cross the line into New Mexico; they then become the dividing line between Mexico and Texas. If we admit for a moment that the power to use and control all the water of the Rio Grande shall be left solely with Colorado because it rises in the great mountains of that State, then we instantly jeopardize the rights of all the people who live south of the Colorado line (applause). If the Chief Executive of the Federal Government had feared to exercise his power to prevent water-power sites and reservoir sites in Colorado from being taken exclusively by Colorado people; if he had been unwilling to exercise the power granted him by the Const.i.tution, then the people below would have had just cause for complaint that the Executive instead of obeying the law was in effect a party to a violation of law in jeopardizing their rights. The only way in which that matter could properly be handled was for the Executive of the Federal Government to withdraw certain lands from sale or entry; and by so doing he made it possible for the people of New Mexico and Texas, and of the Republic of Mexico in conformity with the treaty made by the Federal Government, to have their fair share and just proportion of the use of that water.

The best way to deal with conflicting water rights between States is for the Federal Government to continue to hold every acre of public land capable of use in water development pending agreement with the various States as to how the lands shall be used, to the end that the rights of all the people of each water-shed, rather than the special interests of a few, shall be protected in the use and disposition of that great resource. (Applause)

What I have said in relation to water applies equally to the development of our coal, our phosphates, and our timber. The phosphates recently discovered in the West lie in four States. When the matter was first called to my attention by the report of the Geological Survey and the special report of Dr Van Hise, I was astonished to learn the conditions then existing in our country. Practically all of the mineral phosphates known in the United States were held by one great corporation, and over 40 percent of the products of the Southern mines were being shipped abroad to be used on the fields of Europe; and the same men were already endeavoring to get hold of the phosphate deposits in the West. Therefore I instantly made a recommendation to the President, and he instantly acted on it and withdrew the phosphate lands (applause). Now that withdrawal was not an interference with the rights of the people of any of those four States, nor was it an act of usurpation, or an improper extension of Executive authority. It simply meant this: that we would hold, prevent the acquisition of those lands under laws not adapted to them, report the matter to Congress, and hold the lands until Congress provided a method for wise disposition of them (applause). And my recommendation was that the phosphate deposits of the country should be disposed of only under lease and with such conditions as would prevent export to foreign lands (applause). We need every ton of our phosphates for our own use. (Applause)

So, if you trace the actions of the Executive and of Congress in dealing with the public domain, you will find that wherever there has been a vigorous execution of law coupled with recommendation of further legislation looking to the welfare of all of our people, there we have made advance along lines that will promote the development of our country in future years; and that wherever there has been laxity in the enforcement of law, wherever we have allowed the interference of big business interests to interrupt the enforcement of law as it should be enforced, land frauds there have crept in and in those conditions we have found the big interests getting control of more than their fair share of the resources of the public domain.

Sometimes we have been accused of being unfair to the big interests. We have been accused of a.s.sailing these interests simply because they were big; and we have been charged with raising ghosts to frighten the people, and naming those ghosts water-power trusts, timber trusts, land trusts, or coal trusts, when in reality there was no danger of trust development or of monopolistic holding of these resources. And yet, my friends, if you trace back the history of the acquisition of the public domain you will find that in every instance where there has been a failure to strictly enforce the laws the special interests have slipped in and have gained control of the resources of the public domain. They have never been idle. We ourselves have been indifferent, we have been negligent; and it is not for us now altogether to blame the beneficiaries of our neglect, but we must blame ourselves--and must blame our representatives in office now if by any chance they permit a return to the old conditions. (Applause)

The power of the Executive and of Congress is ample to do all that is necessary to protect the public welfare and the common good. There must be no backsliding in what has already been so splendidly started. We must see to it that our representatives, both in the Senate and in the House, are men who will take a long look into the future--men with imagination. Men with enthusiasm? Yes! Nothing great has ever been accomplished without enthusiasm and without imagination (applause). And we want practical men who will lead us, as I said in the beginning, step by step, to better things. Thus and thus only will the Federal Government exercise to the full the powers granted under the Const.i.tution, and thus and thus only will the people of this country safeguard their property rights, their personal and their political rights as well, and hand down the great heritage that has come to us not only unimpaired but in better condition than we received it. (Great and prolonged applause)

President BAKER--Ladies and Gentlemen: Now that this subject has been so ably opened by Mr Garfield, we are going to call upon another man who has been militant in the work of Conservation--an Ex-Governor who is even more active as an ex than he was as Governor, a sort of characteristic, these days, of prominent men (laughter). I am sure you will have great pleasure in hearing from Ex-Governor George C. Pardee, of California. (Applause)

Ex-Governor PARDEE--Mr President, Ladies and Gentlemen: I hope the Chair will forgive me if I differ from him very radically in one statement that he made, to the effect that _all_ of us who have been things (laughter) are now more active than we were when we were things.

(Laughter)

I sat here today in this vast Auditorium and saw thousands of men and women and children, gathering to do honor to the man whom we, in common with the rest of the world, consider to be the greatest American now alive (great applause). When I saw those thousands of people filling this great Auditorium, row on row and tier on tier, until the heads of those standing in the topmost row touched the very roof, I thought to myself that the activities of him who _was_ in office are being only continued since he left the office which he filled to our entire satisfaction. (Applause)

I come here this afternoon to discuss the very able paper so well presented to you by him who was once Secretary of the Interior, in the cabinet of the President of the United States (applause); and I hope you will not consider it presumptuous that I should attempt to discuss that very able paper. Mr Garfield was good enough to furnish me with a copy of his address several days ago, and I am free to confess to you that I have given it prayerful consideration and that I can find nothing in it to discuss (applause), because it calls a spade a spade and a thief a thief (applause); and with both of those propositions I have no doubt the ladies and gentlemen here a.s.sembled will thoroughly and totally agree. (Applause)

Every now and then we hear of some poor, miserable fool sent to the penitentiary for crimes and frauds against the land laws; but will any one be kind enough to mention to me the name of any princ.i.p.al in such crimes and frauds who, with shaved head and striped suit, is looking through the bars of the penitentiary today? I take it that you will agree with me that the time has come when the rights and duties of the plain American citizen should be again placed within his grasp, and that the rights and duties of the very meanest of us should be regarded as equal to those of the most powerful and the richest and most influential. Our representatives have too often forgotten the fact that they represent the great ma.s.s of the people, and that they represent unborn generations of American citizens--that they are plowing legal furrows and building legal fences and making things ready for the coming generations of Americans who will fill this great land of ours.

So when I speak of my own State of California, and say that its people have been robbed and plundered and pillaged; when I say that its government has been debased and corrupted; when I say with shame and with blushes that my native city of San Francisco has been humbled and shamed into the very dust by the corrupting influences of men and public-service corporations who, with us as their benefactors, have turned and stung the breast that warmed them into life; when I say these things I have but to call to your attention conditions which have existed in almost every large city, in almost every State of this Union.

(Applause)

Like Mr Garfield, I do not find it in my heart to blame the men who have taken advantage of our laxness; I cannot find it in my heart to blame the two men who own each over a million acres of the best timber land in the State of California for having taken advantage of the laxness in administration of the law in times past--not of the law itself, for the law has been good, and if it had been administered as it should have been administered these two men could not have owned a million acres apiece of the best timbered land in the State of California (applause).

But who of us has not heard--in times past more than since the time of Theodore Africa.n.u.s (laughter)--who of us has not heard those who, perhaps with a selfish interest, have sneered and said, "Well, we're all a little crooked, and why should we take exceptions to the man who is a little more crooked?" when the question of frauds against the land laws was in discussion? I take it that the officials who had those matters in charge should be, as Mr Garfield has so well said, ever vigilant within the law to do those things which the law does not prohibit and not wait for the prods and stings of outraged public opinion that compel them to do the things which they should, in common honesty to the people whom they represent, perform and do for the protection of you and me and your children and my children. (Applause)