been due to the intelligent activity of the Highway Department. A careful reading of the last report of this department, extending from April 1, 1917, to April 1, 1918, is commended.

PRIMARY ELECTIONS

Political parties are formed for the purpose of promoting certain principles in governmental affairs which, in the opinion of the adherents of the different parties, will bring to the whole body-politic, conditions that will prove more nearer the ideals for which a democracy is striving. The well-being of society in general and its future welfare, was originally the idea which concerned the advocates of principles embodied in the platforms of political parties, and incidentally, the distinction that comes from success. Political organizations in those days were controlled through conventions which were regulated by rules made and promulgated by the party in convention assembled and enforced by the officers of the organization. All nominations of candidates representing any particular faith or party, were made through conventions composed of representatives of the party. This was during the time when we were adhering to, and considered that representative government was the most suitable method by which the interest of the people could be best provided for. It was during the time when principles swayed the individual voter to a greater extent than the personality and interest of the candidate.

The plan of having conventions to present candidates representing the views of the party, has gradually given way to what is known as party primaries. This step was taken that each individual voter within the party might have the privilege of casting his vote directly for the candidate of his choice, thereby doing away with the intermediary of a representative, who formerly performed this service in the conventions. The primaries as we have them now in this State, really amount to the same thing as the general election, because there is only one well established party and its nominees, made in primary elections, are uniformly successful, except in a very few counties of the State. When the primary system was first introduced into our political organizations, they were controlled by rules and regulations laid down by the party organizations. As the custom for holding primaries continued, however, dissatisfaction arose, growing out of charges of unfairness that may have been practiced in certain elections, and legislation was demanded, in order that each party man would be guaranteed the same rights and privileges as extended to others. Today the control of party elections has been regulated by stringent laws, almost to the same extent as the official elections, which finally determine who is entitled to the different official positions within the State and counties. While we have

adopted general election laws and have permitted them to remain. unchanged for years, we have never seemed to be content with any primary election law that has been adopted. Our primary laws are changed almost as often as the Legislature meets, and yet many complaints are registered as to the inefficacy of the present law. A law based upon fairness and justice to all, instead of one seeking factional advantage, would give satisfaction to the public at large.

In 1915 the Legislature adopted an entirely new law. It was quite a departure from any that had heretofore been operative in the State. Many of its important features were borrowed from another state, which was just at that time preparing to discard the features which had been adopted by Alabama as unsatisfactory, after a few years trial. The first general primary election held in this State after the adoption of the present law, warns us that the new features which have been introduced into the Alabama primaries will prove unsatisfactory, and that if retained long, may result in disaster to party organization. There were many independent candidates in the counties seeking important offices in opposition to the regular nominees, as declared by the result of the primary election. Some few of the opposition were successful and many of them received splendid support. It is the county offices in which the people are most directly concerned. They are closer to the people of the respective counties and the personnel in the administration of these offices, affects them more directly than does the personnel of the State's offices. We should, therefore, in arriving at a solution of this question, be guided by a knowledge of what laws will prove more satisfactory to the people in the several counties of the State, for the election. of their county officials.

One of the freaks of the present primary law, is its failure to properly protect the ballot after it has been deposited in the ballot box. After so much painstaking to insure that the voter may not be unduly influenced in making up his mind as to whom he shall vote for, and then fail to provide a manner in which a remedy can be applied, if perchance his vote should not be preserved as cast by him, is a reflection which no party of high principles should desire to be responsible for. The first concern of those who are charged with the duty of constructing an election law, should be that of providing for the sacredness of the ballot. There should be no division of opinion upon this fundamental principle. After that has been accomplished, is time enough, to engage our minds upon other matters incident to campaigns that may have occurred prior and up to the time of the election. Our present primary election and registration laws have quite a number of features to command the earnest attention of the Legislature. There are restrictions that work to the great inconvenience of the voter which have no apparent virtue, except to afford opportunities to the unscrupulous.

BANKING DEPARTMENT

The banking interests of the State are in splendid condition. The number of State banks in operation are 239, with 21 branches. The combined capital and surplus of these banks were on December 1, $18,300,664.11, with resources of $106,177,485.90. During the past year five banks have taken steps for voluntary liquidation.

The superintendent of the department has recommended the following amendments to the banking laws of the State, which meet with my concurrence:

1. "The act creating this department does not provide for a bank to voluntarily liquidate. In my opinion the act should provide ways and means for a bank to voluntarily liquidate, without being taken over by this department, and incurring the expenses incident thereto."

2. "Section 10 of the act provides that funds remaining in the hands of the Superintendent of Banks, uncalled for, be placed in some State bank, at interest, to the credit of the Superintendent of Banks, in his official capacity, in trust for the several depositors in, and creditors of, the liquidated bank from which they were received. The act does not limit the time such deposits are to be held, and as you will note above in the case of the Peoples Savings & Investment Company, the deposit has been held for nearly five years. In all probability, this fund will never be called for, and in time such deposits will become a burden to this department to keep track of, as well as to the banks that hold the deposits. It is my opinion that after the funds are held from three to five years, the same should be certified into the State treasury, and machinery should be provided through which the depositor may get his money, if he should ever demand it."

3. "Article 10 of Chapter 69 of the Code, provides that all corporations organized and operating as trust companies, shall be amenable to the banking laws, and provides that they shall be examined by the bank examiners. The Attorney General holds that since the act creating this department was passed subsequent to the Code, that this department has no supervision of trust companies, unless they are doing a banking business. For this reason, there is no supervision now of trust companies in Alabama. In my opinion, the Legislature should have their attention called to this defect. Now that trust companies in most of the States are under the supervision of the banking department, in my opinion, it would be wise to better regulate such concerns and have them examined by this department."

4. "Since national banks are specifically authorized to accept customer's drafts, in my opinion, a law authorizing and regulating such acceptances by State banks should be passed by the incoming Legislature."

ARCHIVES AND HISTORY DEPARTMENT

The activities of the Department of Archives and History have been regularly conducted on the high plane of efficiency, which has obtained with that department from the beginning. It is believed that no department of the State government has better justified the many encomiums of praise which it has received, both from students and thoughtful observers abroad, as well as from our own people. It has not only met the many exacting demands of the original act of establishment, and of the subsequent enlargement of its functions and activities, it has also become a model for those states which are undertaking to meet the duty of their archives and history work through separate departments of state.

The work of the department has grown in a wonderful way since its establishment February 27, 1901. For the better accomplishment of its object, its activities are subdivided into the following groups or divisions: archives, historical and reference library, gallery, museum, library extension, anthropology, natural history, and a research, extension and reference service. The archives represent the entire collection of non-current public records of the State, centralized in one collection, all carefully organized and made immediately available for use. They are constantly in demand by students and business men alike. The historical and reference library is one of the most complete collections in existence of the field covered. It is particularly rich in Alabama literature, U. S. government publications, State official documents, history, biography, genealogy, the social sciences, bibliography, periodicals, newspapers, and general reference works. The collections of the gallery and museum are unique, including hundreds of portraits, and other illustrative materials, aboriginal objects, pioneer relics, war relics, flags, banners, costumes, etc. In the field of natural history the birds, the mammals, and the reptiles of Alabama are excellently represented. Many objects illustrative of the industrial life of the State have been assembled. The library extension activities of the department have shown marked advance.

The service in the division of research, extension and reference, is remarkably illustrative of the value of a helpful and sympathetic agency in every form of State activity. Reference is made to House Joint Resolution of September 25, 1915 in which unstinted praise is accorded the department and its staff for its reference service. The department, with its growth of equipment, is in a position to render even better service during the current session, and wholly without cost. Your failure to make use of this service will be a definite loss in the performance of your difficult labors.

The most recent activity of the department is the collection of personal records and memorials of Alabama and Alabamians in

the European War. I have elsewhere spoken of the conspicuous record of our State in this great world struggle. Our pride would not be properly justified if we were to fail to properly care for the records in detail. This duty the department of archives and history is, I believe, fully meeting. It is undertaking not only to compile the records of our volunteers, of our men secured through the selective draft, and the officers and men of the regular army, it is also undertaking to gather data as to the activities. of all military units operating in the State, of Federal agencies, such as the food administration, and of welfare agencies, such as the Red Cross, etc. The Director of the department is State War Historian of the Alabama Council of Defense. Doubtless recommendations will be made looking to some definite assistance in aid of furthering the work of completing these records, and if so, you should give any reasonable proposals your support.

The department should be given still greater general opportunity for expansion and enlargement. It has demonstrated its value. The call for space is imperative. While no opportunity for the enlargement of the capitol exists, some additional accommodations can be provided by a small appropriation to fit up the attic of the south wing for storage. All of its existing appropriations should be maintained.

CONFEDERATE PENSIONS

For almost fifty years, the State has in some form provided relief for needy Confederate soldiers and sailors and their widows. From a small beginning the volume of such relief has increased from year to year until at present large sums are annually expended in that behalf. In the financial statement, forming a part of this message, will be found details of such expenditures. The special relief afforded by the Confederate Soldiers Home will be found noted specifically under the reference to that institution.

The pension business of the State is administered by the Alabama Confederate Pension Commission and office of the State Auditor. The commission is an ex officio body, composed of the Director of the Department of Archives and History, the Attorney General and the Chief Examiners of Public Accounts. It is provided that it shall be the duty of the commissioners "to have full control and supervision of all pensions allowed by law to soldiers and sailors in the service of the State of Alabama, and to their widows, and the soldiers and sailors in the Army or Navy of the Confederate States of America, and to their widows, and to do and perform any and all acts whatsoever, and to have all such powers as are necessary to the full execution of this act." All disbursements are made by the State Auditor, through the assistance of a pension clerk, who is also the secretary to the commission. Prior to the present law, which was approved September 25, 1915, the Confederate pension system consisted of one State