Without sympathy for the mischievous spirits who sought to foment trouble in America, the Governor clearly expressed his conception of Americanization as a voluntary spiritual, and not a compulsory, process. The policy he had in mind was indicated in an address in Chicago in March, 1920, in which he said:
"There must be no compromise with treason, but the surest death to Bolshevism is exposure of the germ of the disease itself to the sunlight of public view. We must protect ourselves against extremes in America. The horrors and tragedies of revolution can be charged to them. If government is a.s.sailed, its policy must not become vengeful. Our fathers in specifying what human freedom was, and providing guarantees for its preservation, recognized that among the necessary precautions was the protection of individual right against governmental abuses.
"If the alien, ignorant of our laws and customs, cows in fear of our government, he is very apt to believe that things are much the same the world over, and he may become and easy convert to the doctrine of resistance. The skies will clear but meanwhile government must be firm, yet judicial, uninfluenced by the emotionalism that breeds extremes. The less government we have, consistent with safety to life and property, the better for both happiness and morals. A policeman on every corner would be a bad index to the citizenship of the community, for it would reflect a foolish concept of conditions by the munic.i.p.al officers."
The vision of Governor c.o.x in legislation is best to be studied in the statute book of Ohio. The fact is that he was a pioneer in some of this, indeed in a large part of it. Through the years he has insisted that government must deal with its problem by evolution lest revolution overtake it. It was this sentiment that led him to deal with the industrial injury matter. When he heard men inveighing against the courts, a discerning eye knew something was wrong and he gave his attention to righting that wrong. His creed, not recently as a candidate, but in the years of his public career, has been expressed in this summary: "Our view is toward the sunrise of tomorrow with its progress and its eternal promise of better things."
The expression is found so frequently in his state doc.u.ments that it might properly be set forth in the form of a creed. But there has been more than what the great Roosevelt called "lip- service to progress. The forward steps became a part of the laws.
In health affairs he asked for the appointment of a commission to study the need for adequate local administration and he urged its adoption before the General a.s.sembly so forcefully that Ohio to-day has what is universally recognized to be the best system in America. In placing the state department upon a footing commensurate with other inst.i.tutions of government, case was taken to place it where it cannot be prost.i.tuted to partisanship. There has been a growing number of governmental departments under Governor c.o.x in which partisanship is utterly forbidden. They include the Board of Administration, dealing with the wards of the state, the social agencies, the educational, and the Fish and Game Department. An actual census in all the varied public office activities in Ohio would disclose that although the Democratic party has been in possession of the Government for nearly all of the past twelve years, the number of members of the Republican party on the public rolls is almost as great as that of the victors. The Governor has found that men in the world of business employ, at larger compensation than the state has afforded, the type of men he has most often selected for responsible posts. It is one of the curious effects of progress in government that it has touched and awakened progress in business and in civic life.
In social service there has been evolved the cold storage act which has served as a model for proposed national legislation.
under its provisions a strict limitation of time is placed upon the storing of food. With this has gone strict legislation against adulteration of food and honest enforcement of the laws.
Other states have accepted as a model the social agency committee now working in effective co-operation with state departments and bringing into mutual operation all recognized social agencies. One of the greatest steps forward was the establishment of a bureau of juvenile research with Dr. L. H.
G.o.ddard at its head.
Second to no other reform has been that effected in handling of the prison problem. Prisoners now earn their freedom through work in the healthful out-of-doors on highways, in plants for making road material, and on farms. There is a system of compensation to the families for work done as a balance on which to begin life anew.
Twelve hundred consolidated schools in Ohio attest the successful workings of the rural school code which was brought into existence in 1914 after careful study and after the state in general meetings had carefully studied the plans. The old one-room school house is giving way in the country to the modern centralized school and community life is being remade. Through the raising of the country school to the plane of those of the cities, it will be possible to check the alarming drift to the cities and depopulation of the countryside. Governor c.o.x does not believe that the federal government should interfere in the affairs of local communities but he does believe that it "can inventory the possibilities of progressive education, and in helpful manner create an enlarged public interest in this subject."
Along with the improvement of rural schools has gone a most comprehensive highway programme involving an annual outlay of millions of dollars. Gradually as highways are improved they will, under the state policy shaped in 1913, be taken over by the state.
The agricultural legislation was in consonance with the other subjects touched. Ohio was long a dumping ground for inferior fertilizers, diseased livestock and impure seed. Adequate laws have changed all this. Still, these are police measures not of necessity a true index of real vision in agricultural matters.
The boldest step ever taken was the establishment of pure bred herds of cattle by the state with opportunity afforded through breeding service at inst.i.tutional farms to extend these pure strains to the small farms. The success attained is reflected in numerous heard of thorough-bred cattle.
CHAPTER VIII
FIGHTING "SLUSH FUNDS"
Developments of the present campaign have given a peculiar interest to past history with respect to the record of Governor c.o.x in dealing with campaign expenditures. The Governor"s reports, which have been filed under the Ohio Corrupt Practice law, show that he has never been an extravagant spender in campaigns. In his various races for the Governor"s office in Ohio one of the points which he has claimed is the redemption of pledges made to the people. Under one of these pledges he advocated and secured the enactment of an anti-lobby law, designed to reduce the evils attendant upon the presence of a legislative lobby. He found upon the statute books of Ohio a corrupt practice act and this was strengthened by laws pa.s.sed during his term. In taking hold as Governor in 1913, he demanded and secured a rigid lobby law. Of this he said:
"Conditions not only justify but demand drastic anti-lobby law.
Any person interesting himself in legislation will not, if his motive and cause be just, object to registering his name, residence and the matters he is espousing, with the secretary of state, or some other authority designated by your body. If his activities be of such nature that he does not care to reveal them in the manner indicated, then the public interest is obviously endangered. It is no more than a prudent safeguard to have it known what influences are at work with respect to legislation. There ought to be no temporizing with this situation."
In the first year of his administration he combated an attempt to annul the workmen"s compensation law by an improper referendum and vigorously cleaned up the situation by causing the arrest of those who had conspired to falsify names to pet.i.tions. The Governor followed up his activity for clean administration of the referendum system by comprehensive laws in 1914, since when no abuses have been discovered. What he said to the General a.s.sembly gave a further indication of his policy in this respect. He said:
"The underlying spirit of the corrupt practice laws in the state and nation is the ascertainment of the influences behind candidates or measures. We can with profit compel a sworn itemized statement when the pet.i.tion is filed showing all money or things of value paid, given or promised for circulating such pet.i.tions."
In the campaign of 1916, in which Governor c.o.x was re-elected, a.s.sertions were made of large improper expenditure of money in defiance of the law. In the following January at the regular session of the General a.s.sembly, the Governor indicated his position by calling for a special legislative inquiry. The statements he made furnish an interesting background for the developments of the year. At that time he said:
"Let me lay particular emphasis on the necessity of safeguarding the suffrage thought of the state from the dangers of corrupt influences. The sums of money expended for so-called political purposes are a.s.suming such magnitude as to cause seemingly well- founded alarm, if not to justify the belief that the legitimate purpose of campaigning is being exceeded. Unfettered by law, this tendency might result in the waters of our free inst.i.tutions being poisoned at their very base. Reduced to simple terms, the object of a campaign is to inform the voters on every subject that legitimately and germanely joins to the issues and the candidates. Any step beyond this, and any project opposed to it in motive, cannot but be regarded as dangerous.
Human frailties should not be played upon by vast treasures of money advanced by men or movements whose huge disburs.e.m.e.nts can hardly be looked upon as of patriotic inspiration. It is not necessary to expend large amounts of money for the promotion of a worthy cause, and, inversely, any cause or candidacy having behind it unprecedented financial support is likely to be regarded with suspicion. It may, through legislation, be necessary to restrain irresponsible organizations whose existence and activities are born of a hidden design, conceived by some interest afraid to operate in the open. I recommend that a legislative committee of investigation be appointed with the power to employ counsel, and the authority to summon persons and papers and to swear witnesses in order that it might be known just what organizations have been entering into campaign activities, and how much money they expended and collected--also the names of the contributors. This should extend also to candidates. The facts as adduced will then be a safe guide as to the necessity of strengthening the corrupt practices act, or more rigorously enforcing existing law, or both."
The legislative session had hardly concluded before the war with Germany broke out and it was deemed unwise at that time to proceed to any agitation on the subject. The functions of the committee were, accordingly never fulfilled. Early in the year of 1920, the Governor gave warning of the report that huge funds were to be raised in this year for election purposes. At the very outset of his campaign in addressing the members of Democratic National Committee at Columbus, the Governor said:
"I hope I do violence to no member of this committee when I submit to you this proposal: That we purpose not only to deal with eminent good faith with the electorate of this nation in November with reference to platform pledges, but we mean to let every man and woman understand where every dollar comes from, and for what purpose it is spent. We not only urge that as a matter of high principle, but in order to guarantee the triumph of our cause which deserves to triumph. We do not want the publication of expenditures after the election. There is no point in advising the voters what has been done. We want them to be fully advised of every circ.u.mstance with reference to the collection and the disburs.e.m.e.nt of funds in order that from the circ.u.mstances they can gain a correct index, and understand that when the Democracy is continued in power in Washington, it a.s.sumes its responsibility without a single obligation except to the conscience that G.o.d has given us.
"Therefore, gentlemen, let us make up a budget which will carry the full details and information--recounting the legitimate expenses of this campaign, render an accounting daily or weekly, and the source from which it came. And more than that, we shall insist upon the senatorial investigating committee continuing in session until the ballot has been closed in November. You know full well that a campaign fund sufficient in size to stagger the sensibilities of the nation is now being procured by our opponents. If they believe that is correct in principle, G.o.d speed them in the enterprise, It will be one of our chief a.s.sets in this campaign."
This, then is the record.
CHAPTER IX
THE LIFE STORY
Born at Jacksonburg, Ohio, March 31, 1870, son of Gilbert and Eliza c.o.x; educated in public schools; reared on farm; worked in printer"s office; taught country school; became newspaper reporter; secretary to Congressman Sorg, 3d Ohio District; bought Dayton Daily News, 1898, and Springfield Press Republic, 1903, forming News League of Ohio; member 61st and 62d Congress (1909-13), 3d Ohio District; Governor of Ohio; elected in 1912, defeated in 1914, elected in 1916 and 1918; now serving third term; home, Trailsend, Dayton.
The family of c.o.x seems to have had its origin in England in the generations gone, but its Americanism is of two centuries in duration. At Freeboard, New Jersey, lived General James c.o.x, one of the early speakers of the New Jersey House of Representatives and later a member of Congress. Tillers of the soil and artisans, the closer forbears attained to no distinction in public life. To Ohio the family came sometime in the early years of the last century, and at Jacksonburg the paternal grandfather, Gilbert c.o.x, established himself. On the ancestral farm of 160 acres, his son, Gilbert, Jr., lived, and on it James M. c.o.x first saw the light of day. His uncles and aunts, for his father was one of a family of thirteen, were of the people who migrated westward. The youngest of a family of seven children, he learned the routine of tasks of a boy on the farm. In the little one-room country school he attended, his teachers found him an ordinary pupil but with a fondness for newspaper reading.
c.o.x"s first public job was the humble position of janitor in the United Brethren Church, and even now his favorite reminiscence is the difficulty he had in making the old wood stove function properly. The thrifty farmers in those days were accustomed to commute part of their dues in cord wood for the church, and often the quality they supplied was not of the best. The boy became a member of the Church, a membership which is still retained.
At fifteen he left the elementary school to enter the Middletown High School, living with his sister, Mrs. John Q. Baker, whose husband was a teacher in the High School and owner of the Middletown Signal. Board was paid in working as a printer"s devil until the apprenticeship was served and the county newspaper business was mastered from both the counting room and the editorial side. Upon completion of his high school course, the young man pa.s.sed the county examination and obtained a position as teacher of the school he had in earlier years attended, but a pedagogical career was not to his liking and he returned to work on the Signal staff. He became also the local correspondent for the Cincinnati Enquirer and attracted the attention of the main office by a neat scoop which he landed regarding a railroad wreck. Graduating into the reportorial work, he became a.s.sistant telegraph and railroad editor of the Enquirer. He retired from the newspaper life for a time to become Secretary to Congressman Sorg, remaining in his capacity until his 28th year, when he purchased the Dayton News, giving $12,000 in notes and beginning with a capital of just $80. The times were hard enough for the young chap with creditors constantly upon him. Once his paper was forced to suspend by reason of an unpaid bill, and the opposition paper heralded its death. The struggling publisher retaliated with an "extra"
announcing its continuance. Then again there were plenty of libel suits for the young editor-publisher, setting out to be a reformer, and the ruling powers in the city strongly disapproved his methods, but the militant editor brought readers and the readers brought advertisers, and the venture became a success.
Five years from his first venture he bought the Springfield Press Republic and the Springfield Democrat, combining the two in the Evening News. Each is now housed in its own modern newspaper building and each is highly prosperous as a business inst.i.tution, although the owner"s supervision has been of a general character.
His a.s.sociates always speak of the "c.o.x luck" in politics, but upon a.n.a.lysis it seems that it consists either of seizing or making the opportunity. In 1908 his Congressional district, originally Democratic, had become Republican, but a factional quarrel breaking out in the opposition camps, the Governor took the Democratic nomination and won out, again riding to victory in the great landslide of 1910. In Congress his career afforded him no opportunity to attain to high distinction, but he became a member of the appropriations committee and there became most deeply impressed with the waste in public funds and the unbusinesslike methods of arriving at appropriations. One of his services was the disclosure that the care of Civil War veterans in the National Soldiers" Home at Dayton was shattered, and he won the contest for increased allowances. The grat.i.tude of the veterans was expressed in a majority from the Home in his re- election in 1910, thus breaking an historical precedent.
Two years later he became the champion of the const.i.tutional amendments proposed by the Fourth Const.i.tutional Convention of Ohio, then sitting, and as such was unanimously nominated by his party for Governor, on a platform which demanded a "new order"
of things in Ohio. As soon as he was nominated he took the platform before the people for the adoption of the const.i.tutional amendments in a special September election. These amendments included one providing for the initiative and referendum of which he had been an advocate for years, and one for the removal of officials failing to enforce the laws, giving the Governor the weapon with which he established his law- enforcement record. There was very little to the campaign in that year, the historical Republican party splitting in two upon the issue of progressiveness, and he was elected by an enormous plurality. Facing the tasks imposed by the new const.i.tution, the Governor insisted upon legislative fulfillment of each popular mandate, and in a busy session of three months he accomplished his programme.
Aside from the legislation suggested by the amendments, his greatest constructive step was the enactment of a budget system, which sought to place the financial affairs of Ohio upon a businesslike basis. Its worth as a saver of money and promoter of efficiency has never been challenged. The previous Ohio fiscal system had grown grossly archaic. Appropriations were made by the Legislature to the departments in lump sums or in the form of granting all receipts and balances, some of the departments being maintained by the fees from interests they regulated. Of the departments having receipts of their own, many had deposits of their own in banks and their own checking accounts, so that their funds never pa.s.sed through the State Treasury or through the hands of the State Auditor. Other departments got much or little from the Legislature, depending upon whether they had a gifted representative to appear for them before the legislative finance committee. Inst.i.tutions vied with each other in providing the best entertainment to these committees as they made their week-end junket trips over the State during legislative sessions.
All this was changed in one sweeping stroke in the first administration of Governor c.o.x. All receipts of all departments now go into the State Treasury and none leave the treasury until it is appropriated in specific sums for specific purposes within specific departments. The state auditor has a check on every expenditure.
The Ohio budget department is composed of one commissioner appointed by the Governor, an a.s.sistant and a clerk. All departmental requests for funds desired of the next succeeding Legislature are filed with the Budget Commissioner, to be brought before the Governor. He investigates all items, ascertains the reasons for any increases that are asked, and fixes the sums he deems proper. Also, he estimates what the State revenues during the next biennium will be and prunes the budget to come within the total of expected revenues. The budget as prepared by the commissioner is submitted to the Governor, who frequently makes changes of his own after advising with department heads.
The Governor then presents the budget to the Legislature, which refers it to the finance committees of the two houses. The committees, and, in turn, the Legislature, have full authority to make any alterations, increases or decreases, desired, but the spellbinding by department representatives and wire-pulling by lobbyists are reduced to a minimum because the Budget Commissioner sits as the agent of the Governor at all sessions of the finance committees and at all times is prepared to defend the allowance he thinks a department should have.
The first budgetary appropriation bill repealed an existing appropriation law. It reduced appropriations aggregating $9,709,288 to $8,762,664, a saving of $946,624. Since that time the Ohio budget system has effected savings of millions, not, of course, in the sense that expenditures of the State government now are less than in 1913--for they have increased as governmental activities have enlarged--but in the sense that expenditures each year have been vastly less than they would have been without the budget plan of pruning and scaling down demands of existing State departments with a view both to general economy and avoidance of deficits.
The Ohio Budget and consequently its appropriation law cla.s.sifies expenditures in two divisions: (1) Operating expenses and (2) Capital outlay (or permanent improvements).
Operating expenses are subdivided into personal service and maintenance. Personal service in turn is divided into salaries and wages, and maintenance into supplies, materials, equipment, contract or open order service, and fixed charges and contributions.
Elasticity of funds within departments is afforded by periodical meetings of a board of control, composed of the Governor (who may be and usually is represented by the Budget commissioner), the State Auditor, the Attorney-General, and the chairmen of the two legislative finance committees. If any new need develops within departments, funds for the purpose may be provided by a four-fifths vote of the board of control. Effort first is made to transfer the needed funds from one cla.s.sification to another within the department. If no fund within the department has a surplus, and the need is great enough, relief may be granted by the emergency board, having the same membership as the board of control, which has at its disposal an emergency fund for contingencies arising between legislative sessions. Perfection never has been claimed for the Ohio system. Governor c.o.x himself realizes certain weaknesses in it and is making a fight now for strengthening features, which, however, necessitate a change in the const.i.tution. One defect is that, regardless of probable income, the Legislature may increase items in the budget (or rather the appropriation bill based on the budget), and it may make other appropriations in separate bills as it sees fit without regard to prospective revenues.
In his 1919 message to the General a.s.sembly, a Republican body, the Governor urged submission to the people of an amendment to the const.i.tution providing that the Legislature shall have the right to diminish any item in the executive budget by majority vote or to strike out any item: that, however, it shall not be privileged to increase any item or to add a new one unless it makes legislative provision for sufficient revenue to meet the added cost. Such an amendment was not submitted. Unless it is done by an early legislature, adherents of c.o.x in Ohio say it may be undertaken by initiative pet.i.tion.
Good Roads
Another notable achievement of Governor c.o.x is the advance of the Ohio highway system. Roads were in deplorable shape when he became Governor. There was no hope for rural counties with small tax duplicates, the ones in greatest need of good roads never being able to lift themselves out of the mud except through liberal state aid.