A Financial History of Maine 9780231876940

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STUDIES IN HISTORY, ECONOMICS AND PUBLIC L A W Edited by the F A C U L T Y OF POLITICAL SCIENCE OF COLUMBIA

UNIVERSITY

N U M B E R 432

A FINANCIAL HISTORY OF M A I N E BY

FRED EUGENE JEWETT

A F I N A N C I A L HISTORY OF M A I N E

BY

FRED E U G E N E JEWETT, Ph.D. PROFESSOR

OF

BUSINESS

OKLAHOMA AND

ADMINISTRATION

AGRICULTURAL

MECHANICAL

NEW COLUMBIA

COLLEGE

YORK

UNIVERSITY

PRESS

LONDON: P. S. KING & SON, LTD.

1937

COPYRIGHT,

1937

BY COLUMBIA UNIVERSITY

PRESS

PRINTED I N T H E UNITED S T A T E S OF A M E R I C A

Co T R E MEMORY OF

JUDGE FRED EMORY BEANE

PREFACE THIS study is a detailed account of the financial history of the state of Maine. It was undertaken in the hope that such a history of a typical New England state might aid in formulating plans for the future by making available the lessons of the past. The author is especially indebted to Robert Murray Haig, McVickar Professor of Political Economy at Columbia University, whose careful reading and detailed criticism of the manuscript has been of inestimable value. Carl S. Shoup, assistant professor in the School of Business at Columbia University, has also read the manuscript and offered many helpful suggestions. Mr. Elbert D. Hayford, state auditor of Maine and William A . Runnells, state controller, have been helpful in supplying material not otherwise obtainable. Ethel Davis Jewett, the author's wife, has rendered assistance in collecting and analyzing data. Appreciation is also expressed for the courtesy shown by the staff of the Maine state library. F . E . J. STILLWATER, MARCH

25,

OKLA. 1937.

7

CONTENTS P A R T A

GENERAL OF

O N E

ACCOUNT

THE

OF

STATE,

THE

FINANCES

1820-1936

CHAPTER

I II III IV V

PAGE

Formative Period, 1820-1835 Extravagance and Its Aftermath, 1836-1860 The Civil War Debt and Its Liquidation, 1861-1889 Expanding Government Functions and Extinction of Debt, 1890-1912 The Present Day Period, 1913-1936

P A R T STUDIES

VI VII VIII IX X XI

the 66 78

T W O

OF S E L E C T E D

FINANCES

IS 30 42

ASPECTS

OF THE

OF

THE

STATE

The Property Tax . The Taxation of Financial Institutions The Taxation ot Public Service Corporations The Public Lands The Trust Funds . . Financial Organization and Procedure Organization prior to 1931

opp. 220

CHART I I .

Organization after 1931

opp. 220

APPENDIX.

Revenues and Expenditures.

CHART

I.

107 138 159 184 201 214

Tables

A,

B, C, D , E. opp. 228

BIBLIOGRAPHY

229

INDEX

233

9

LIST OF TABLES TABLE

1 2 3 4 5 6 7 8 0 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 30

PAGE

21 Summary of Revenues and Expenditures 1820-1835 Debt Incurred and Paid and A m o u n t s Outstanding by Y e a r s 1820-1835 28 Summary of Revenues and Expenditures 1836-186« 31 D e b t Incurred and Paid and A m o u n t s Outstanding by Y e a r s 1836-1860 33 Expenditures Classified 1836-1860 36 Maturities of the Public Debt of the State of Maine as of D e c e m ber 1, 1 8 4 2 . . . . . . . 38 Maturities of the Debt of the State of Maine as of December 1, i860 40 Revenues and Expenditures 1861-1889 43 Expenditures, 1861-1870 . . . . . 46 W a r Expenditures 1861-1870 48 Funded Debt of the State of Maine Outstanding December 31 for the Y e a r s 1861-1870. . 54 Temporary Debt and Unpaid Claims of Maine, December 31, 1865 55 Expenditures 1871-1889. . . . . . . . . 58 Maturities of the Debt of the State of Maine as of January 1,1871 61 Maturities of the Debt of Maine as of December 31, 1 8 7 6 . . . . . 63 Maturities of the Bonds of the State of Maine as of December 31, 1889 65 Revenues and Expenditures 1890-1912 67 Expenditures 1890-1912. 69 Debt Incurred and Amount Outstanding by Years 1890-1912 . . 75 Revenues and Expenditures 1913-1932 80 Expenditures Classified 1913-1932 81 Expenditures Classified for Health and Welfare Purposes 1933 . . 89 Revenues and Expenditures 1933-1936 96 Revenues 1933-1936 97 Expenditures 1933-1936 97 Bonded Debt of the State of Maine as of the End of Each Fiscal Y e a r 1913-1936 100 Property T a x Levied Segregated A c c o r d i n g to Governmental Jurisdictions 1900-1932 129 Trend of Property Taxes Levied 130 Total Property T a x Rates in Maine 1902-1032 131 Percentage of Assessed Value to Actual Cash Market Value as Determined from Lists of Specimen Properties S h o w i n g A s -

11

12

31 32 33 34 35 36 37 38 39 40 41

LIST

OF

TABLES

PAGE sessed and A c t u a l Cash M a r k e t Value Submitted by Local A s sessors in 1930 134 Variation in A s s e s s m e n t of F a r m P r o p e r t y in Maine 135 Number and Capital S t o c k of State C o m m e r c i a l B a n k s 1819-1880 140 Trust Companies, N u m b e r and A s s e t s 1885-1936 . . 146 Number of S a v i n g B a n k s and Deposits 1855-1936 148 E x c i s e T a x e s and Gross Transportation Receipts for Steam Railroads in M a i n e 1923-1934 171 B a n g o r and A r o o s t o o k Railroad, D a t a C o n c e r n i n g E x c i s e T a x e s and I n c o m e 1923-1934 . 173 Maine Central Railroad, D a t a C o n c e r n i n g E x c i s e T a x e s and Inc o m e I923-Ì934 174 Sales of Public L a n d in Maine 1824-1878 190 M i n i m u m Price Set on E a c h Class of Public L a n d by the L a w of 1832 192 Sales of S e t t l i n g L a n d s in Maine 1840-1878 199 State Trust Funds 1932 . . . 212

PART ONE A GENERAL ACCOUNT OF THE FINANCES OF THE STATE

CHAPTER I FORMATIVE PERIOD,

1820-1835

mechanisms and financial policies usually have deep roots which run far down among historical precedents. In this country particularly, perhaps because of its comparative youth and because of the rapidity of the pace of its economic evolution, this fact is often overlooked. T o o often, in the formation of plans for change, are the issues weighed without an adequate appraisal of the worth of mechanisms and policies in the light of their history and without an adequate consideration of previous experiences. It is the hope that this detailed account of the financial history of a typical New England state may facilitate the task of making intelligent use of the lessons of the past in laying the financial plans of the future. FINANCIAL

The first part of the study, chapters I - V , is primarily a chronological story of the fluctuations in the financial situation of the state of Maine, with a brief analysis of the important factors that operated to affect that situation in various periods of its history. There follows in Part II, a series of studies of special financial topics, in more detail than can conveniently be inserted in a general chronological account of the variations in the general financial fortunes of the state. The " District of Maine " was separated from Massachusetts and admitted to the Union as a state in the year 1820. Prior to this date the region was governed as an integral part of Massachusetts and no separate history of the finances is possible. Sentiment in favor of separation grew out of the geograph ical isolation of the region and from the particular economic and social conditions that existed there. Maine was physically separated from Massachusetts proper by the state of New Hampshire. Massachusetts was well settled while Maine was still largely in the early pioneering state of development. A s is

16

A

FINANCIAL

HISTORY

OF

MAINE

early as 1 7 8 4 and again in 1 7 8 7 conventions were held looking toward separation, but they accomplished nothing. 1 A statement of the " evils and grievances under which the people of Maine labored," drawn up by a committee appointed by the convention of 1784, shows that irritation caused by taxation played an important role. In addition to complaints regarding the general lack of understanding, the inconvenience caused by the distance from the seat of government, the expense of contesting law suits at Boston, the trade regulations which, it was alleged, operated to depress lumber prices and the inadequate representation of Maine in the legislature, the following financial grievances were cited: ( 1 ) the Massachusetts method of taxing polls and estates was unjust; ( 2 ) an undue burden fell upon the inhabitants of Maine by reason of the excise and import acts; and ( 3 ) because of the smaller value of land conveyed and the more frequent conveyance, the tax on deeds involved discrimination against the territory. In spite of the lack of success that attended these early efforts the agitation f o r separation continued. In 1 8 1 6 the legislature of Massachusetts went so f a r as to authorize the people of Maine to vote on the question but the poll failed by a narrow margin to produce the required five-to-four majority. 2 H o w ever, three years later the legislature passed a law authorizing another vote 3 and this time the count was overwhelmingly in f a v o r of it, 1 7 , 0 9 1 to 7 , 1 3 2 . A Constitutional Convention was promptly held in Portland. This convention drafted a constitution and petitioned f o r admittance to the Union. On the granting of this, Maine became a state on March 3, 1820. The separation involved two serious financial problems: first, the distribution of the public property and, second, the distribution of the public obligations. T h e act of June 19, 1 8 1 9 , which 1 Edward Stanward, " T h e Separation of Maine f r o m Massachusetts," Proceedings of the Massachusetts Historical Society, Series III, pp. 125-165. 2 Stanward, op. cit., p. 138. 3 This law was incorporated in the constitution of Maine and may be found in the volume entitled Laws of Maine 1820.

FORMATIVE

PERIOD,

182O-1835

IJ

authorized the vote on separation, also stipulated how these problems should be met and established a joint commission to carry out its provision. T h e division of the public lands between the two states was by f a r the most important task of the commission and was not finally completed until the early F i f t i e s . Nearly one-half the area of the state of Maine was public land. A great portion of it was unsurveyed and the available statements of its amount, quality and characteristics were rough and undependable. Moreover, the location of the northeast boundary was in dispute, as much as three or f o u r million acres being involved in the long standing controversy with England. T h e act provided that all the public land, including the area in dispute, should be equally divided between the two states and that the land allotted to Massachusetts should be exempt f r o m taxation so long as the state held title to it. In approaching the public land problem the commission decided to ignore the area involved in the boundary controversy and to confine its immediate activities to the territory to which England could not possibly lay claim. In its report, submitted in 1 8 2 1 , it compiled estimates of the amount and value of the land. These estimates established the total area of the public land at 8 , 2 1 8 , 3 2 0 acres and valued it at f r o m f o u r to twentyfive cents per acre, or at an aggregate of $ 3 6 1 , 6 8 0 . One-half of this, $ 1 8 0 , 8 4 0 , represented the interest of Massachusetts. In addition, that state had a two-thirds' interest in $ 1 2 , 1 2 4 of unpaid purchase money notes. 4 The commission recommended that the interest of Massachusetts in the public land be purchased by Maine, not on the ground that the purchase would be of pecuniary interest to Maine, but f o r the reason that such action would eliminate a cause of possible controversy between the two states. T h e legislature of Maine approved this suggestion, but Massachusetts declined to accept it and it was not 4 " Report of the Joint Committee of Maine and Massachusetts," found in Resolves of Maine 1821, p. 77.

18

A FINANCIAL

HISTORY

OF

MAINE

until 1 8 5 3 that Maine acquired full title to the unsold public land within her borders. Massachusetts had a claim against the Federal government for money spent during the W a r of 1 8 1 2 . Under the Act of Separation, Maine was to receive one-third of the proceeds of this claim. Moreover, the act provided that all " productive property " owned at the time of separation should be used to settle any outstanding indebtedness and, should a surplus remain, Maine should receive one-third. A f t e r the outstanding indebtedness had been paid, there remained a surplus of $ 7 1 , 997.16. One-third of this was awarded to Maine by the commission, to be paid in the following manner: in cash out of the treasury of Massachusetts, $15,888.00 and one-third of the remaining securities. There remained the Penobscot Indian annuity. On June 19, 1 8 1 8 , Massachusetts had made a treaty with the Penobscot Indians under the terms of which the Indians gave up title to all their lands except four townships located on the Penobscot River and Oldtown Island in the Penobscot, and Massachusetts agreed to purchase for the Indians two acres of land in the town of Brewer, to provide them with a man to instruct them in the arts of husbandry, to repair their church at Oldtown and to deliver to them annually the following articles: five hundred bushels of corn, fifteen barrels of flour, seven barrels of clear pork, one hogshead of molasses, one hundred yards of doublebreadth broadcloth, fifty good blankets, one hundred pounds of powder, four hundred pounds of shot, six boxes of chocolate, one hundred and fifty pounds of tobacco and fifty dollars in silver.® The Act of Separation provided that in return for $30,000 from Massachusetts, Maine should assume the obligations of this treaty. This arrangement was completed by the treaty of August 17, 1820, between Maine and the Indians. The financial burden of the annuity amounted to about $ 1 , 2 0 0 annually.' 5 Laws of Maine 1843, p. 253. 6 Public Documents of Maine

1843.

FORMATIVE

PERIOD,

182O-1835

I9

Maine was now ready to enter her career as a state. When the first legislature met, May 3 1 , 1820, it found its immediate task considerably simplified by a provision in the Act of Separation that continued in effect the laws of Massachusetts until they might be modified by the legislature of the new state. The taxes, licenses and fees for the year 1820 were imposed under this provision; estimated to yield $64,000/ they actually produced only $23,407.® N o explanation of this disappointing yield has been found, but whatever the reason may have been, Maine took prompt steps to collect her future revenues under her own statutes rather than under the authority of the old Massachusetts laws. A s early as June 27, 1820, an act of the legislature called f o r a new assessment of property. The assessors of each district, town and plantation were ordered to render a return of the estates and polls in their respective districts, towns or plantations to the Secretary of State before the first day of November, 1820." On the base so established, the legislature, by a resolve passed the following spring, levied a property tax for the year 1 8 2 1 of $50,000. 1 0 In the meantime, on January 23, 1 8 2 1 , the legislature established a semi-annual tax of one-half of one per cent on the par value of the capital stock of state banks, 11 this act being practically a re-enactment of the Massachusetts law of 1 8 1 2 . 1 2 Other minor sources of revenue were provided, such as licenses, fees, fines, etc. Thus was framed the tax system that, with practically no important changes, was destined to serve the state of Maine until after the Civil War. During the period under consideration, between 1820 and 1835, the annual levy on estates and polls varied from $40,000 to $50,000, but the actual collections 7 Resolves of Maine 1820. 8 Derived from Table A in Appendix. 9 Public Laws of Maine 1820, ch. 19, p. 22. For a detailed explanation of this act cf. infra, pp. 109-115. 10 Private and Special Laws of Maine 1821, ch. 85. 11 Public Laws of Maine 1821, ch. 144. 12 W. D. Williamson, History of the State of Maine 1603-1820 (Hallowell, 1839), vol. ii, p. 625.

20

A FINANCIAL

HISTORY

OF

MAINE

often ran substantially below the amounts of the levies. The tax on bank stock which produced about $ 1 5 , 0 0 0 annually at first, gradually increased in yield and in 1 8 3 5 brought $26,390.49 into the treasury. Non-tax receipts, particularly from land sales, played an important role in these early years. Indeed taxation was responsible f o r only slightly more than half of the revenues of the state. The data of both revenues and expenditures f o r this period are set forth in detail in Table A of the appendix. A summary of the more important facts is set forth in Table I. It is important at this point to make certain comments and explanations regarding the items of income and out-go and the resulting financial condition of the state. First, the large items of non-tax revenue require additional comment. It has been noted that income f r o m public lands became an important item before the end of the period. In 1 8 2 4 , an act was passed providing f o r the administration and sale of the public land, in which it will be recalled Massachusetts had a half interest. 13 Because of a specification that the land must be sold in small parcels, little progress was made under this law. Moreover, previous to 1 8 3 2 , the practice was to divide the land and to assign a part to Massachusetts before sale. In that year an agreement was reached whereby the land held jointly by the two states could be sold and the proceeds divided a f t e r the sale. 14 This arrangement gave an added impetus to the sale of land. In the year 1 8 3 5 , when speculation in Maine timber lands reached fantastic heights, the amount received f r o m the land office amounted to $ 1 3 3 , 5 6 7 . 5 5 , almost double the amount received from taxes in that year. Another interesting item of non-tax revenue was the income f r o m lotteries. 15 It became common for the legislature to grant 13 Public Laws of Maine 1824, ch. 280. 14 Resolves of Maine 1832, ch. 119. 15 Money f r o m this source can not properly be considered state revenue because the state acted merely as a collecting agency for the beneficiaries of the lotteries.

FORMATIVE

PERIOD, TABLE

182O-1835

21

1

S U M M A R Y OF R E V E N U E S AND EXPENDITTOES, 1 8 2 0 - 1 8 3 5 *

(Figures in thousands) Revenues

Year 1820 1821 1822 1823 1824 1825 1826 1827 1828 1829 1830 1831 1832 1833 1834 1835

State tax Tax on polls on and bank estates stock

Sale of public land

Other revenue

Total

. .. . . . . . . . .. . . . . . . . .

$ 1 33 52 37 41 44 44 50 49 51 49 50 53 50 46 51

$15 15 15 13 14 16 18 20 21 18 14 17 15 20 24 26

$ 1 2 1 1 13 22 33 45 3 31 24 31 134

$ 24 S 8 7 55 28 95 94 43 13 70 74 13 26 89 15 98 41 133 18 120 35 143 147 (•) 219 125 26 12 106 11 112 251 40

Total ...

701

281

341

498

1,808

Expenditures $ 38 80 75 102 80 93 82 98 142 123 189 150 /$Q-|

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S N M b VTfcO'*'P»a"e .. 1857 .. 1858 1859 1860 1861 1862 ... 1863 ... 1864 ... 1865 ... 1866 ... 1867 ... 1868 ... 1869 . . . . . . . 1870 ... 1871 . . . . . . . 1872 . . . . . . . 1873 . . . . . . . 1874 . . . . . . . 1875 . . . . . . . 1876 . . . . . . . 1877 . . . . . . . 1878 . . . . . . . 1879 . . . . . . . 1880 . . . . . . . 1881 . . . . . . . 1882 . . . . . . . 1883 . . . . . . . 1884 . . . . . . . ... 1885 1886 . . . . . . . 1887 ... 1888 ... 1889 1890 ... ... 1891 1892 ... ... 1893 1894 . . . . . . . ... 1895

Deposits

11

$

11 12 13 14 15 15 15 15 18 20 28 37 49 54 54 56 58 63 60 60 59 59 55 55 55 54 54 54 54 55

897 1,030 1,466 1,620 1,876 2,641 3,673 3,337 3,946 5,599 8,032 10,830 22,788 27,557 26,154 29,557 31,052 32,083 27,819 26,898 23,173 20,978 23,278 26,475 29,504 31,372 32,914 35.118 37,215 38,820 40,970 43,977 47,781 50,278 53,398 53,261 54.531 56,376

55 54 53 53 52 51 52

867

Year 1896 1897 1898 1899 1900 1901 1902 1903 1904 1905 1906 1907 1908 1909 1910 1911 1912 1913 1914 1915 1916 1917 1918 1919 1920 1921 1922 1923 1924 1925 1926 1927 1928 1929 1930 1931 1932 1933 1934 1935 1936

Number of banks

Deposits

52 51 51 51 51 51 51 51 51 51 51 52 52 52 52 49 48 48 48 48 48 45 45 44 43 43 43

S 54,477 59,598 60,853 64,009 71,076 74,623 77,853 80,538 82,741 85,590 89,681 92,853 93,783 96,254 98,402 97,705 102,211 104,515 105,995 106,523 107.784 105,872 104,097 107.463 114,138 116,264 117,788

38 37 37 35 35 35 32 32 32 32 32 32 32

118.288 119,788 121,520 122,156 126,281 127,259 126.843 131.631 133.509 132,703 132,033 136,366 139,106

..

.. ... ... ... .. ... ... ... ... ... ... ... .... ... ... .... ... .... ... .... ... .... ... .... ... ) Because the tax is figured on returns of the previous railway operating income, and net income are for years one appear on the table. (O Deficit.

Net railway operating income (b>

$2,704 3,680 3,000 1,836 1,550 1,993

Net income (») S 376 10 51 1,177 1,270 551 788 1,746 1,112 63 (*) 416 («) 19

Bureau of T a x a t i o n . in the United States. y e a r , gross receipts, net y e a r prior to what they

Study of the data f o r the Maine Central Railroad shows that in 1929, the year when the " gross-net " method went into operation, the tax levied decreased $288,000 or 3 1 . 5 per cent, and the rate of the tax decreased to four per cent f r o m five and one-half per cent; from 1 9 2 9 to 1934, there was a rather constant relationship between the net railway operating income and the gross receipts, as evidenced by the fact that during these years the rate of the tax varied only one-half of one per cent; in 1 9 3 2 and 1 9 3 3 , the railroad operated at a loss yet the rate of the tax did not decline to the minimum allowed by the law because of the constant relationship between gross receipts and operating income; from 1 9 2 9 to 1 9 3 4 the yield of the tax

TAXATION

OF

PUBLIC

under the new " g r o s s - n e t "

SERVICE

law was

CORPORATIONS

f r o m seventy-two

175

to

e i g h t y - t w o per cent of what it would have been under the old g r o s s receipts law. T h e decline in the rate f o r the Maine Central in 1929, when compared with the rate f o r the B a n g o r and A r o o s t o o k , which did not decline because that railroad w a s in a prosperous condition, indicates that this law accomplished the purpose of imposing less taxes on a railroad that w a s not prosperous than on the one which was making satisfactory profits. T h e constant relationship between the gross transportation receipts and the net operating income is contrary to the theory upon which the successful operation of the " g r o s s - n e t " plan depends. fixed

A c c o r d i n g to this theory, net Income, because of

charges, should vary to a greater extent than gross re-

ceipts.

Thus,

if gross receipts decreased 20 per cent, net

income should decrease more than 20 per cent because there are certain items of expense which will not decrease regardless o f the amount of business done. In this case a greater decrease than 20 per cent would bring about a lower ratio between g r o s s and net receipts and cause a lower t a x rate to be levied. If g r o s s receipts and net income increase or decrease to the same extent there will be no change in the tax rate and the effect o f the tax will be the same as that of a gross receipts tax. F r o m the fact that the tax rate of the Maine Central varied only one-half of one per cent f r o m 1929 to 1934, while during the same period the gross receipts declined twenty-seven per cent and in some years the railroad was operating at a loss, it is evident that the net operating revenue declined at about the same rate as the gross receipts. T h i s may be accounted f o r by undermaintenance, as well as operating economies. T h e result of this constant relationship between the gross receipts and the net operating income w a s that even when the net income was negative the minimum rate did not apply to the Maine Central. T h e data f o r the B a n g o r and A r o o s t o o k do not call f o r e x tended comment. D u r i n g this whole period the B a n g o r and

176

A

FINANCIAL

HISTORY

OF

MAINE

Aroostook was prosperous and the m a x i m u m rate applied in all but one year, 1 9 3 2 . In general, the Maine " g r o s s - n e t " law conforms to the recommendations of the committee of the National T a x A s s o ciation. There is, however, one point of dissimilarity. T h e committee recommends " net earnings " as one of the criteria by which the rate of the tax should be computed, while the Maine law uses net operating income. T h e committee, in its report, uses the term " net earnings " but gives no explanation as to how " net earnings " should be computed. Did it mean net operating income, as incorporated in the Maine law ? Did it mean net earnings a f t e r the deduction of interest and other charges which would make it similar to " net income " as defined by the Interstate Commerce Commission? What did it mean? Accounting practices are not sufficiently standardized f o r a bare statement of that nature to have much of any meaning. " Net earnings " computed in one way will give results in the operation of the " gross-net " plan which are very different f r o m those given if " net earnings " are computed in another way. B e f o r e any " gross-net " law is drawn up, careful studies should be made of the ratios between " net earnings " computed in various ways, and gross receipts. It will be found that these ratios differ f o r different businesses and that to apply the same ratios to different businesses will result in levying unequal tax burdens on these different businesses. Certain conclusions may be drawn f r o m this study: ( 1 ) the tax rate was less f o r a railroad that was not prosperous than f o r a prosperous one; ( 2 ) taxes conformed more to ability to pay, as measured by net income under the " g r o s s - n e t " plan than under the gross receipts plan; ( 3 ) even when operating at a loss substantial taxes were imposed on the Maine Central; and ( 4 ) the method of computing " net earnings " needs careful study. The question may now be considered as to whether or not the " gross-net " law should be continued in Maine. T h e writer is of the opinion that under the present conditions, it should be.

TAXATION

OF

PUBLIC

SERVICE

CORPORATIONS

I"]"]

W i t h property assessments what they are, there would be no possibility of assessing equitable property taxes on railroads. There is a valid objection that the burden of taxes on railroads corresponds more nearly to the ability of railroads to pay than do taxes levied on other businesses. This objection is perhaps outweighed by the fact that because of present economic conditions, railroads are less able to pay arbitrary taxes than many other types of businesses. If conditions should change in Maine so that all property is adequately assessed and if a net income tax is levied on all business done within the state, the writer would prefer that railroad property be taxed as other property, and that the railroads be subject to the same business net income tax as would be applied to other businesses. Telephone and Telegraph Companies. T h e first mention of taxation of telegraph companies was found in the message of Governor Dingley to the legislature in 1875. connection with a general recommendation for the taxation of public service corporations, he said: In my judgment it is possible . . . certainly so with amendments to the State Constitution to provide for all expenditures for State purposes by a just tax on National and savings banks, railroad, insurance, telegraph and express companies, wild lands and other interests without assessing a single dollar on the several towns of the State." This recommendation was but a continuance of the movement which had resulted in the passage of the act in 1874, taxing railroads. The temporary lack of success with the railroad tax prevented the immediate extension of the policy of taxing businesses affected with a public interest. A f t e r the railroad tax had been declared constitutional by the Supreme Court the movement gained strength, resulting in the passage of an act in 1880 taxing telegraph companies in a special manner. 34 Message of Governor

Dingley

to the Legislature

1875, p. 16.

I78

A

FINANCIAL

HISTORY

OF

MAINE

T h i s law provided t h a t : Every telegraph company, corporation or person doing business in this State shall pay an annual tax of two and one-half per cent of the value of any telegraph lines owned by said corporation, company or person within the limits of this State, all poles, wires, insulators, office furniture, batteries and instruments, and any circumstance or condition which affect the value of its p r o p e r t y . " T h i s law also provided that this t a x should be in lieu of all other taxes, including taxes on the stock of these companies; that it should be assessed by the governor and council; and that part o f it should be distributed to the cities and t o w n s in proportion as the amount o f the stock owned in each city or t o w n w a s to the total stock o w n e d in the state. T h e W e s t e r n U n i o n and International T e l e g r a p h companies refused to pay the t a x and a suit w a s brought against the W e s t ern U n i o n .

T h e taxes were paid by the three smaller com-

panies. 88 T h e W e s t e r n U n i o n claimed that this w a s a property tax and as such violated the uniformity clause of the constitution o f Maine, which provided t h a t : " A l l taxes on real estate and personal estate, assessed by authority of this State, shall be apportioned and assessed equally according to the just value thereof."

T h e company pointed out that this was a tax o f

31

twenty-five mills on all of its property in the state, while the rate of the property t a x on other property varied in different towns. T h e company also called attention to the fact that the rate of the state property tax w a s only five mills, while the remainder of the property tax, levied on property in general, w a s assessed by counties and municipalities. It contended that if this t a x w a s intended to be in lieu of county and municipal property taxes, it w a s one which the state government had n o power to levy. 3 5 Public 3 6 Annual

T h u s the issue to be decided by the court w a s

Laws

of

Report

3 7 Constitution

Maine of

1880, c h . 246.

the Treasurer

of Maine,

1880, p . 17.

a r t . i x , sec. 8.

TAXATION

OF

PUBLIC

SERVICE

CORPORATIONS

179

the question o f w h e t h e r or not this w a s a p r o p e r t y t a x . S i n c e this is the first case w h i c h i n v o l v e d the p o w e r o f the state to l e v y an " e x c i s e t a x f o r the privilege o f e x e r c i s i n g . . . c o r poration f r a n c h i s e within the state," a n d since it implied that the state h a d the p o w e r to levy a t a x f o r the p r i v i l e g e o f d o i n g business in the state, it will be treated in s o m e detail.

It should

be recalled that in the M a i n e C e n t r a l case, 8 8 the c o u r t did n o t pass o n these points but only on the point o f w h e t h e r the l a w o f 1 8 7 4 t a x i n g railroads w a s a v i o l a t i o n o f c o n t r a c t . T h e supreme c o u r t o f M a i n e d e c l a r e d that the t a x o n teleg r a p h c o m p a n i e s w a s not a p r o p e r t y t a x but " an e x c i s e t a x levied f o r the privilege o f e x e r c i s i n g its f r a n c h i s e in the s t a t e . " A f t e r c l a s s i f y i n g this t a x as an e x c i s e t a x , the c o u r t declared that the state h a d the right to levy an e x c i s e t a x . T h e r e a s o n i n g s u p p o r t i n g this opinion can best be presented in the w o r d s o f the c o u r t : T h a t the State has the power to tax a foreign corporation to any extent it pleases as a condition upon which it may exercise its franchise in the State may be considered well settled law. D r y d e n v. G. T . Railroad of Canada, 60 Maine 5 1 2 ; Paul v. Virginia, 8 Wallace 168; Liverpool Insurance Co. v. Massachusetts, 10 Wallace 566. In this discussion we must start with the fundamental principle, now well settled, that all acts passed by proper authority in conformity with established forms, are presumed to be in accordance with the constitution and none will be declared otherwise so long as any reasonable doubt of its violation of the fundamental law remains. T h u s the real question at issue is the proper interpretation of the act, or more properly, will it fairly bear the construction necessary to make the tax one upon business. T h e business is a necessary incident to the t a x ; without it the t a x falls and ceases to be. T h e corporation is assessed not because it is a corporation but because it carries on that particular business, 38 Maine v. Maine Central, 66 Maine 488 and Railroad v. Maine, 96 U. S.

499-

180

A

FINANCIAL

HISTORY

OF

MAINE

and the amount of that assessment is not a given sum but ascertained by a valuation put upon that which is used in the business. In a word the corporation is assessed because it is engaged in that particular business." T h e interesting feature of this case is that the court justified levying the tax not on the grounds o f its being a t a x on the corporate franchise, but a t a x levied f o r the privilege of

doing

business in the state, regardless of whether or not it w a s a corporation. N o further changes in the law t a x i n g telegraph companies w a s made until 1901, when the g r o s s receipts o f both telegraph and telephone companies were taxed. Since a f t e r 1901, telegraph and telephone companies have been taxable in the same manner, the history of the taxation of telephone companies b e f o r e 1901 will be taken up next. T h e first law taxing telephone companies w a s passed in 1883. T h i s law provided t h a t : Every telephone corporation, company or person doing business within the limits of this State, shall annually pay into the Treasury of the State, a tax of two and one-half per cent of the value of any line owned by said corporation, company or person, within the limits of this State, including all poles, wires, insulators, transmitters, telephones, batteries, instruments, telephone apparatus, office furniture, and any circumstances or conditions which may affect the value of the property.* 0 T h e law also provided that this tax should be in lieu of all taxes on the property or on the stock of telephone companies. It should be noted that this law did not provide f o r the distribution of any of the proceeds of the tax to the cities and towns. In 1893, the law w a s amended by s p e c i f y i n g that the tax should be levied on property used by a company as well as on that owned. T h e reason f o r this change w a s that the larger 3 9 State 4 0 Public

v. Western Laws

Union

of Maine

Telegraph 1883, ch.

Company, 213.

73 M a i n e , p p . 525-528.

TAXATION

OF

PUBLIC

SERVICE

CORPORATIONS

l8l

companies were leasing the lines of smaller companies and it was difficult to collect the tax f r o m these small companies. T h e law taxing telephone companies was never contested because it was similar to that taxing telegraph companies, which had been held constitutional. In 1 9 0 1 , taxation of telegraph and telephone companies was consolidated under one law and the method was changed to that of a gross receipts tax. The method of ascertaining the amount of the tax was as follows: when the gross receipts were less than $5,000, the rate was one and one-quarter per cent; f r o m $ 5 , 0 0 0 to $ 1 0 , 0 0 0 , one and one-half per cent; f r o m $ 1 0 , 0 0 0 to $25,000, one and three-quarters per cent; f r o m $ 2 5 , 0 0 0 to $50,000, two per cent; and for every additional $25,000, the rate was to increase one-quarter of one per cent, but in no case should it exceed four per cent. The amount collected was to be distributed to the cities and towns in proportion as the number of shares owned in each city or town was to the total amount owned in the state. In no case was more to be paid to the cities and towns than was collected nor a greater portion of the tax collected than the proportion which the amount of stock owned in the state was to the total stock of the companies. 4 1 In 1 9 1 1 , the law was changed so that the rates were as f o l l o w s : when the gross receipts were less than $5,000, the rate was one and one-quarter of one per cent; f r o m $ 5 , 0 0 0 to $ 1 0 , 0 0 0 , one and one-half per cent; from $ 1 0 , 0 0 0 to $20,000, one and three-quarters per cent; f r o m $20,000 to $40,000, two per cent; and f o r every additional $20,000 the rate increased one-quarter of one per cent but in no case was the rate to exceed six per cent. 42 N o other change of importance was made until 1 9 3 3 , when it was provided that in case the amount of the stock owned in the state did not amount to two per cent of the total stock of any company, or unless the amount to be 41 Ibid., 1901, ch. 201. 42 Ibid., 1911, ch. 142.

182

A

FINANCIAL

HISTORY

OF

MAINE

apportioned exceeded $250,'" no distribution should be made and the company should be relieved of the duty of reporting names and residences of stockholders. The effect of the graduation of the rates of the tax on telegraph and telephone companes is to apply low rates to a few rural telephone lines. The other companies always pay the maximum rate. This tax is simple and inexpensive in its administration. The Taxation of Express Companies. T h e express business was one of the first businesses to be singled out for taxation in some way other than by the property tax. T h e reasons for this were that express companies used very little property in comparison with the volume of business done and the property, being mostly railroad cars, was difficult to assess. The first law taxing express companies, passed in 1880, provided that: Every express corporation, company, or person doing express business on any railroad, steamboat or vessel in this State, shall annually before the first day of May, apply to the State Treasurer for a license authorizing the carrying on of such business; and every such corporation, company or person shall annually pay to the State Treasurer on or before the first day of May, threefourths of one per cent of the gross receipts of said business for the year ending on the first day of April preceding. Said threefourths of one per cent shall be on all of said express business done in this State, including a prorata on all express business coming from other States or countries; provided that nothing in this act shall be construed to apply to goods or merchandise in transit through the State. 44 This law provided, also, that this tax should be in lieu of local property taxes and taxes on the stock of these corporations. 4 3 Ibid.,

4 4 Public

IQJ3, c h . 224.

Laws

of

Maine

1880, ch. 244.

TAXATION

OF

PUBLIC

SERVICE

CORPORATIONS

183

In 1883, real estate was made taxable locally and the amount deductible from the state gross receipts t a x . " In 1885, the administration of the tax was placed in the hands of the state board of assessors. 48 In 1889, the rate of the tax was increased to one and one-half per cent; 4 7 the rate was increased to two per cent in 1 9 0 1 ; 4 8 in 1907 to two and one-half per c e n t ; 4 ' and in 1911 to four per cent. 50 It is customary to employ the gross receipts method in taxing express companies. The writer believes the present method is satisfactory and recommends no change. 45 ¡bid., 1883, ch. 135. 46 Ibid., 1885, ch. 49. 47 Ibid., 1889, ch. 109. 48 Ibid., 1901, ch. 147. 49 Ibid., 1907, ch. 167. 50 Ibid., 1911, ch. 115.

CHAPTER IX THE PUBLIC LANDS T H E public lands were of great importance during the first half century of the existence of Maine as a separate state. T h e policy followed in disposing of the public land had a great influence on the finances of the state government and on the economic and social development of the state. A glance at the accompanying map will show that in 1820, a large portion of the state w a s still an unsettled wilderness. T h e area of the state under the boundaries, as

finally

deter-

mined, is 19,132,800 acres. 1 A c c o r d i n g to Greenleaf's computations, the settled and incorporated towns in 1820 embraced an area of 8,555,596 acres, or approximately one-third of state. 2

the

P a r t o f the unsettled land w a s owned by the state and

part by individual proprietors. Greenleaf computed, f r o m the Massachusetts records, that by 1820 there had been 9 , 8 5 6 , 1 2 6 acres disposed of. 3 I f this figure is subtracted f r o m the present area, there remains 9,276,674 as the amount of the public land, or approximately one-half the area of the state. T h e joint committee of Maine and Massachusetts estimated in 1821 that the amount of public land w a s 8,218,320 acres. 4 T h e boundaries of the state had not been determined at that time and a large portion of the state had not been s u r v e y e d ; consequently, the estimate made by the committee could have been little more than an intelligent guess. F r o m 1783, the year Massachusetts became a sovereign state, to 1820, public land in Maine w a s disposed of rapidly; 1 , 1 0 3 , 4 1 5 acres were granted to " literary and other public institutions; " 1 Maine Forestry

Bulletin, no. 8, p. 22.

2 Moses Greenleaf, Survey of Maine, 1829, p. 416. Greenleaf said that t o consider the incorporated towns as the settled portion of the state was not entirely accurate but for all practical purposes it w a s adequate. 3 Ibid., p. 418. 4 Cf. supra, p. 17. 184

THE

PUBLIC

LANDS

185

4,320,617 acres were sold at an average price of twenty-two and three-fourths cents an acre, bringing into the treasury $923,871.14. Most of this land was sold in large tracts, only 79,010 acres having been sold to settlers. 5 A t the time of separation, the most important question to be settled was the ownership of the public land. A n agreement was reached whereby the public land was to be divided equally between the two states and a commission was established to make the division. It was also provided that all grants of land which had been made by Massachusetts should continue in full force after separation. In order to get a complete picture of the amount of land which was eventually at the disposal of Maine, it will be necessary to consider two problems: the Northeastern Boundary controversy and the purchase by Maine of the Massachusetts lands. A t the time Maine became a state, the northern and eastern boundaries had not been definitely located. The treaty between Great Britain and the Colonies in 1784, 9 which established these boundaries, was worded in such general terms that a controversy immediately arose as to the exact location of the dividing lines. The eastern boundary was determined in 1795, but the northern boundary remained a subject of controversy for many years and it was not until after a clash of arms had taken place between Maine and the province of New Brunswick in 1839 that the governments of Great Britain and the United States energetically attempted to settle the matter. In 1842, L o r d Ashburton came to this country and made an agreement with the American Secretary of State, Mr. Daniel Webster, by which 4,489,600 acres of the disputed territory was awarded to Maine and 3,207,680 acres to Great Britain. The state of Maine accepted this settlement on the condition that the United States government pay her an indemnity of $125,000 and reimburse her for the expenses she had undergone as a result of the con5 Moses Green-leaf, o/>. cit., p. 427, ad. passim. 6 Treaty between Great Britain and the United States, 1784, art. ii.

l86

A

F I N A N C I A L

^

HISTORY

' ^ - ^ ' ' ' ' ^ J ü / ^

fi

W^W/^ic,

KjOXFOdD |r

I

^

fr^f \

/'

'

,

/

=1—

^

I7T6 j

1800 & IÖ20

7akcn from Grccnlcafs 'Survey of Susine *

-•(1820)Northern Limit-of Settlement ••(1800) • . . . ima • . . . . ..

! ; i i i :

jÜ I I iy !

THE

PUBLIC

LANDS

187

troversy. 7 Practically all of this land w a s public land and became jointly the property of M a i n e and Massachusetts. T h e A c t of Separation provided that the public land should be divided equally between M a i n e and Massachusetts. Between 1820 and 1830, a number of

divisions o f

several hundred

thousand acres were made. In 1832, because of the difficulty of making equitable division o f the public land, an agreement w a s concluded whereby the public land w a s to be sold without dividing it and one-half the proceeds of the sales was to g o to each state. It w a s also agreed that each state would spend ten per cent of the receipts f o r roads, surveys and other public improvements. 8 A f t e r 1848, Massachusetts r e f u s e d to continue with this ten per cent agreement, leaving the whole burden of road building and other improvements on the state of Maine.® In 1850, Massachusetts passed a law p r o v i d i n g that no more public land should be sold but that the policy should be followed o f selling permits to cut timber and that the land should be held in perpetuity. 1 0 T h i s policy w a s objectionable to Maine f o r t w o reasons: first, it would greatly hinder the opening of the settling lands, because those of Massachusetts were intermingled with the settling lands belonging to M a i n e ; second, because the public land belonging to Massachusetts w a s exempt f r o m t a x a tion while the title rested with the state, and an undue burden of taxation would be placed on other land f o r the support of local functions of government. A f t e r considerable negotiation, M a i n e in

1853

purchased

Massachusetts' interest in the public land f o r $362,000, p a y i n g $112,000 in cash and the balance in serial bonds. T h e total amount of land purchased w a s 1,198,000 acres. 1 1 7 H e n r y S. B u r r a g e , Maine in the Northeastern ad. passim. 8 Resolves

of Maine

Boundary

Dispute, p. 336,

1832, ch. x i .

9 " M e s s a g e of G o v e r n o r H u b b a r d P u b l i c D o c u m e n t s 1853, pt. ii. 10 Annual Report

of the Land Agent

11 Annual Report

of the Treasurer

t o the L e g i s l a t u r e 1851, p. 7. 1853.

1853," f o u n d

in

188

A

FINANCIAL

HISTORY

OF

MAINE

In considering the alienation of the public land, there are three main phases to f o l l o w : grants, sales of timber land and sales of settling land. In general, the policies w e r e : ( i ) to be generous in making grants to educational institutions and f o r other public purposes; ( 2 ) to sell the timber land as rapidly as possible and ( 3 ) to sell the settling lands to actual settlers f o r a nominal price on very easy terms. In the grants of

land made, Maine w a s v e r y liberal

in

supporting education. O v e r 700,000 acres were set aside f o r the establishment of a permanent school fund, the principal

of

which w a s to be kept inviolate and the interest to be used f o r the support of the common schools of the state. 12 In each t o w n ship, 1,000 acres were reserved f o r the use of the c o m m o n schools of that township when it should be incorporated. 1 3 A l l of the colleges in the state received grants of land. N e a r l y all o f the academies received grants. Grants were also made f o r purposes other than education. Revolutionary soldiers were given 200 acres each. In a number of cases, grants were made to towns f o r the purpose of aiding them in constructing roads. O n l y one case w a s found where a g r a n t w a s made to a private company. T h i s was a g r a n t in 1868 of 700,000 acres to the European and N o r t h A m e r i c a n R a i l r o a d f o r the purpose of encouraging the construction of a railroad f r o m B a n g o r to the eastern boundary of the state. T h i s g r a n t later became k n o w n as the " state steal." Because the policies followed in disposing of timber lands were different f r o m those followed in disposing of

settling

lands, the alienation of these t w o types of lands will be treated separately. T h e first law concerning the disposal of the public land w a s passed in 1824. T h i s law created the office of land agent, charged with the duty of administering the public land. It provided that the land agent should select t o w n s h i p s , " the 12 Cf.

infra,

pp. 209-210.

13 Cf.

infra,

pp. 205-209.

14 T h e s y s t e m of s u r v e y i n g land into t o w n s h i p s of s i x m i l e s s q u a r e c o n t a i n i n g 23,040 acres h a d b e e n adopted by M a s s a c h u s e t t s b e f o r e 1820.

THE

PUBLIC

LANDS

189

land of which w a s suitable f o r settling, and designate them a s settling lands. O t h e r townships were to be designated as timber l a n d s . " T h e first policy adopted f o r disposing of the timber lands was that o f restricting narrowly the amount to be sold to a n y one person, so that the land might not fall into the hands o f large land holders and become a subject of speculation. T h e restrictions originally imposed were set f o r t h in the f o l l o w i n g section of the l a w : B e it further enacted, that such land as may be unfit for settlement and cultivation, and properly falling under the denomination of timberland shall be laid out in lots and sold for its just value, not exceeding five hundred acres to any one person; one-half of the purchase money to be paid at the time of contracting, and the other half to be paid in three annual payments, with interest annually, with good and sufficient surety for the payment thereof. 1 * Little timber land was sold under this law. Evidently the policy w a s not satisfactory, because in

1826 the law

was

changed, p r o v i d i n g that the land agent, acting under the advice of the commission created by the act of separation, should designate

the

townships

which

were

" considered

valuable

chiefly f o r the timber thereon " as timber land and should set a minimum price on them. T h e land agent w a s then to sell them at public auction a f t e r ninety days' notice, whenever he could obtain a price greater than the minimum set. T h e terms o f payment were similar to those in the preceding act. 17 R e f e r e n c e to Table 38 will show that under this act, sales greatly increased. In 1826, sales amounted to only 12,092 acres, while in 1827, 101,909 acres were sold. F r o m this time until the depression, which began in Maine in 1836, annual sales continued to be large. 15 Public

Laws of Maine 1824, ch. 993.

16 Ibid., ch. 280. 17 Ibid., 1826, ch. 366.

I90

A

FINANCIAL

HISTORY TABLE

OF

MAINE

38

SALES OF PUBLIC LAND IN MAINE, 1 8 2 4 - 1 8 7 8 *

Year

Number

A v e r a g e price

AmouDt

of a c r e s

per a c r e

received

1824

1,448

1825

36,711

S M .50

$

1,219.84 18.369.92

1826

12,092

.40

4,822.63

1927

101,909

22

22,920.90

1828

263,676

.31

82,206.51

1829

129,483

.21

26,627.79

1830

162,282

.28

45,234.45

1831

21,661

.68

14,779.64

1832

92,393

.66

61,091.73

1833

70,989

.42

30,469.27

1834 1835

230,146

1.45

335,478.62

1836

2,630

.99

2,612.80

1837

3,274

1.66

5,447.00

1838

12,837

.74

9,504.77

1839

33,558

1.48

49,718.79

1840 1841

18,050

.88

15,915.92

1842

17,868

.43

7,862.27

1843

1,661

28

465.77

1844

147,637

1.08

159,924.64

1845

48,459

.45

22,230.26

1846

47,310

.60

28,514.90

1847

105,625

.86

91,678.04

1848

101,220

.77

78,451.95

1849

145,708

.46

1850

324,913

.49%

67,07458 169,538.99

1851

39,823

.31

12,446.42

1852

310,802

.47

145,714J01

1853

316,926

.49

155,52051

1854 afhrrr>

irtdusfrai

UofM

PUB L/C

Exec

Be/of MosmS&i Trust*

TrusAtca i/uVGrtih

TnjsfaofSchca for-fijai'

Both

Bdof Voco/ Sc/ÌATaten

£DUCAT/OW Commissioner

Commies/oner

Ci>m m/s s/o/vtr-

FINANCIAL

ADMINISTRATION

221

departments. . . . The results thus found took so much time to get that they were practically useless at the time they were finally secured as in most cases the current need had long since passed.12 A n e w system of accounting was installed which centralized practically all records in the bureau of accounts and control. The only accounts now being kept by the departments and institutions are inventory and voucher registers. The treasurer's office, which was not consolidated with the department of finance because of constitutional difficulties, now keeps only a cash book of receipts and disbursements. Because of the great amount of detail which was involved and the necessity of getting out reports quickly, the Hollerith machine system was installed. This system permits not only the keeping of records in great detail but also the supplying of information with great facility. Expenditure accounts may be classified as to function, object, fund or organization unit; it takes but a few minutes to ascertain the unexpended balance of any department or to make a summary report of the conditions of state finances; financial reports which formerly took months to prepare can now be made in a few days. 13 With such a system of accounting in effect, good control of the state finances is made possible. Authorities generally agree that the power of preparing and executing the budget should be lodged with the chief executive.14 An attempt was made to do this but, as will be seen later, without complete success. The office of state budget officer was created in the department of finance with authority to prepare a biennial budget; to examine and recommend quarterly work programs and allotments for each department and agency of the state government; to investigate duplication of work of 12 Biennial Report of the Department of Finance 1934, p. 16. 13 Information concerning accounting was obtained f r o m the Biennial Report of the Department of Finance 1934 and f r o m the state controller, William A. Runnells. 14 A . E. Buck, The Budget in Governments of Today ch. 3.

( N e w York, 1934),

222

A

FINANCIAL

HISTORY

OF

MAINE

departments and other agencies; to study the organization and administration of departments and to make recommendations for improvements; and to prepare any financial data which the governor and legislature might require. The scope and form of the budget is prescribed with considerable exactness. It is required that the budget shall present a complete financial plan for each fiscal year of the ensuing biennium, which shall set forth all proposed expenditures, all interest and debt charges and an estimate of revenue. The budget must be set up in three parts, part one consisting of a message by the governor outlining the financial policy of the state government for the next biennium and presenting a general budget summary in such manner as to show the balanced relations between proposed expenditures and anticipated revenues, contrasted with corresponding figures for the last complete fiscal year and the fiscal year in progress. Part two must contain the detailed budget estimates both of expenditures and revenues. Part three must be an appropriation bill embracing the recommendations made in the first two parts of the budget. Appropriations for operation and maintenance of the departments and agencies must be in lump sum; for the acquisition of property they may be itemized in such manner as the governor may direct. As procedure for preparation of the budget, each department and agency of the state government is required to present to the state budget officer on or before November I of the even numbered years, on forms prescribed by him, estimates of their expenditure requirements for each year of the next biennium, compared with corresponding figures for the last complete fiscal year and the current fiscal year. These expenditure estimates must be classified so as to set forth the data by funds, organization units, character and object, or in any other manner which the budget officer may require. These estimates must be reviewed by the governor and the governor-elect, with the assistance of the state budget officer and such changes made as seem

FINANCIAL

ADMINISTRATION

223

desirable. A legislative advisory committee is also provided, consisting of a representative and a senator, and a legislator chosen by these two. T h e representative is appointed by the speaker of the house and the senator by the president of the senate. Their function is advisory but the governor is under no legal obligation to consult them. A f t e r the estimates have been revised, the budget officer is required to prepare the budget document, which must be presented to the legislature by the governor not later than the fourth week of the regular legislative session. T h e first step in the execution of the budget is the preparation of work programs and allotments. It is required that not later than J u n e I of each year, each department and agency shall present to the department of finance a work program f o r the ensuing fiscal year, such program to include a statement of all appropriations made and requested allotments f o r expenditures by quarters f o r the fiscal year. T h e governor and council, with the assistance of the state budget officer, must review these requests and make such changes as seem advisable before approving them. A f t e r approval by the governor and council, the state budget officer is required to transmit copies of the work programs and allotments to each department or agency concerned, and also to the state controller, who is given authority to authorize all expenditures on the basis of such allotments. W o r k programs and allotments may be revised at the end of each quarter with the approval of the governor and council. In order to provide some degree of flexibility, the governor and council may require each agency or department, when making the original allotments, to set up a reserve, the exact amount of which is determined by the governor and council. A t any time during the year, this reserve may be returned to the original appropriation to which it belongs or it may be transferred to the allotment of any other department or agency. A n y unexpended or unencumbered allotment at the end of each quarter is credited to the reserve set up f o r the fiscal year.

224

A

FINANCIAL

HISTORY

OF

MAINE

A s procedure f o r m a k i n g disbursements, it w a s provided that the state controller should e x a m i n e and authorize the payment of all claims against the state and that such authorization be in the f o r m of a warrant d r a w n in f a v o r of the payee, which shall become a check on a designated bank when countersigned by the state treasurer. T h i s procedure is of questionable constitutionality, because the constitution provides that " n o money shall be d r a w n f r o m the treasury but by w a r r a n t of the G o v ernor and Council." It is possible, however, that the courts m i g h t decide that approval of w o r k plans and allotments by the g o v e r n o r and council fulfill constitutional requirements. T h e budgetary procedure established by the code is along lines generally recognized as sound

15

except

f o r the division o f

authority between the governor and council in the execution of the budget. T h e council, as evidenced by events in the t w o administrations

from

1932 to 1936, through

its p o w e r

of

approving appointments, w o r k programs and allotments, is able to force the governor to retain officials and to make appointments not satisfactory to him and is also able to dictate to a considerable extent departmental w o r k programs and allotments. T o the bureau of purchases, established in the department of finance, w a s given authority to purchase all supplies, material and equipment needed by the state g o v e r n m e n t ; to establish and enforce standard specifications f o r all supplies, material and equipment; to purchase or contract f o r all telephone, telegraph, postal and electric light and power service f o r state departments and agencies; to lease all grounds, buildings, office or other space required by the state; to give general care and supervision to central storerooms operated by the state g o v e r n m e n t ; to transfer to or between state departments and agencies or sell supplies which are surplus or unused; to make an inventory of state property and keep it current and to establish a central mailing room f o r the state departments located at the capitol. Under

this authority a system was established w h i c h

15 National Institute of Public Administration, op. cit., ch. iii.

it is

FINANCIAL

ADMINISTRATION

225

claimed saved fifteen per cent on state purchases in the biennium July i , 1 9 3 2 to June 30, 1934 and thirty per cent in the biennium July i , 1934 to June 30, I936. 1 * It is also claimed that by control of storerooms of the departments and institutions much waste and loss has been prevented. The purchase of liquor for the state liquor stores by the state liquor commission is a notable exception to the centralization of state purchasing. These purchases amounted to $3,320,341.75 in 1936. The state purchasing agent recommends that the buying of liquor be done through the bureau of purchases. 17 Although the institute recommended that all tax administration be concentrated in a bureau of taxation in the department of finance, this recommendation was only partly realized in the code. A bureau of taxation was created in the department of finance as recommended, but only the administration of the property tax and the gasoline tax was transferred to it. Later the administration of the retail store license tax was given to it. 18 The state board of assessors was abolished and its duties transferred to the division of property taxes in the bureau of taxation. The office of state assessor was created, the duties of which are to be head of the bureau of taxation and chairman of a new board of equalization. This new board consists of the state assessor and two part time members, the part time members to serve only as required by the state assessor and to be paid on a per diem basis. Administration of other taxes remained, as before, scattered among the different departments. The location of tax administration in the department of finance may appear logical but plans which appear logical on paper may not always work out well. Such seems to have been the case regarding tax administration in Maine. Although the institute recommends that tax administration be placed in a 16 Biennial Report of the Department of Finance 1934, pp. 13-15; 1936, P- 14.

17 Ibid., 1936, p. 14. 18 Public Laws of Maine 1933, ch. 260.

22Ô

A

FINANCIAL

HISTORY

OF

MAINE

department of finance, other authorities are by n o means agreed that this is the best p l a n . " P r o f e s s o r H . L . L u t z , w h o has made a study of taxation in Maine, condemns the location of t a x administration in the department of finance and the lack of a n y real t a x administration r e f o r m in the reorganization of

1931.

In support o f his position, he has the f o l l o w i n g to say : The position taken here in respect to the bureau of taxation is that the relatively minor place to which it was assigned by the reorganization act of 1931 has had a bad psychological effect. T h e bureau has been treated by everyone as a minor bureau because of its minor position. So far as the act of 1931 goes, tax administration is a less important matter than budgeting, purchasing or accounting. O f the 30 sections in Article II of this act (the department of finance article), only three sections at the end of the article relate to tax administration, and one of these is taken up with establishing a relatively useless state board of equalization. The result has been that state tax administration in Maine has been neglected, both from the standpoint of its financial support and from that of recognition of its fundamental importance to the state. . . . Maine has never had an adequately developed state tax administration, and when the opportunity of improving the situation was presented, at the time the state reorganization scheme was being planned, nothing was done to lift the tax administration to its proper level. 20 P r o f e s s o r L u t z then went on to recommend that a department o f tax administration be created with the administration of all taxes concentrated in it and that adequate powers and f u n d s be given to it. W i t h the views and recommendations of P r o fessor L u t z , this writer agrees. A department of audit w a s created which w a s required to p e r f o r m a post audit of all accounts and other financial records of the state government or any department or agency thereof ; 19 Proceeding1

of the National Tax Association

1925, pp. 263-288 ; H . L .

Lutz, Pub He Finance, ch. xxxv. 20 H . L. Lutz, The System of Taxation in Maine ¡934, pp. 80-81.

FINANCIAL

ADMINISTRATION

227

to install accounting systems and to perform audits for cities, towns and villages when requested to do so by them; to prepare and publish an annual report setting forth the essential facts concerning its audit of the department of finance and other departments and agencies of the state government sixty days after the close of each fiscal year. It is also provided that the head of this department shall be known as the state auditor and that he shall be elected by the legislature for a term of four years. The purpose of making the auditor elective by the legislature was to free him of executive control in order that he might make an independent audit of the departments and institutions responsible to the executive. This purpose has not been achieved, however, because of limited appropriations granted. Each year the auditor has said in his annual reports, " A s stated in previous reports, the present force in this office is available for only a small part of the auditing which the law requires." 21 N o audit has been made of the department of finance since its creation. The department of audit has devoted its time to the auditing of special funds such as trust funds, agencies receiving money such as normal schools and the accounts of a relatively small number of cities and towns. While the auditing which has been done is desirable, the really important work is that of auditing the central accounts that are kept in the bureau of accounts and control. W i t h only three auditors 22 it should be obvious that the department of audit can do nothing in auditing such an extensive system of accounts. Through budgetary control the executive, intentionally or unintentionally, has been able to prevent an independent audit of departments and institutions under his control as effectively as he would have been able to do had the appointment of the state auditor been left in his hands. A possible remedy for this situation would be to take requests for appropriations for the department of audit out of 21 Annual Report of the Department 22 Ibid., 1934, p. 2.

of Audit 1935, p. 2.

228

A FINANCIAL

HISTORY

OF

MAINE

the budget and make financial relations direct between the state auditor and the legislature, as has been done for the judiciary. In summarizing, it may be said that substantial progress has been made in consolidating and coordinating departments and agencies of the state government, although much remains to be done; a good system of budgeting has been established but executive control of the execution of the budget has not been achieved; a modern and satisfactory system of accounting has been created; no adequate facilities for tax administration exist; and provisions for auditing would be satisfactory if sufficient appropriations were granted.

BIBLIOGRAPHY GENERAL

WORKS

Abbott, John S., History of Maine, Portland, 1892. Bartlett, E. H., "Local Government in Penobscot County," University of Maine Studies, second series, no. 21. Blakey, R. G., Taxation in Minnesota, Minneapolis, 1932. Brush, Edward H., Rufus King and His Times, New York, 1926. Buck, A. E., The Budget in Governments of Today, New York, 1934. , Public Budgeting, New York, 1929. Burrage, Henry S., Maine in the Northeastern Boundary Dispute, Portland, 1919. Cleveland, F. A. and Buck, A. E., The Budget and Responsible Government, New York, 1920. Coe, H. B. (editor), Maine: Resources, Attractions and Its People, 5 vols., New York, 1928. Coleman, J. K., State Administration in South Carolina, New York, 1935. Conwell, R. H., Life and Public Services of James G. Blaine, Augusta, 1884. Davis, Daniel, " Proceedings of the Two Conventions Held in Portland to Consider the Expedience of a Separate Government in Maine," Massachusetts Historical Society Collections, first series. Dingley, Edward H., Life and Times of Nelson Dingley, Kalamazoo, 1902. Dingley, Nelson, Autobiography of Nelson Dingley, Lewiston, 1874. Dodge, M. A., Biography of James G. Blaine, Norwich, 1895. Fessenden, Francis, Life and Public Services of William Pitt Fessenden, Boston, 1907. Greenleaf, Moses, Survey of Maine, Portland, 1829. Hamlin, Charles E., Life and Times of Hannibal Hamlin, Cambridge, 1899. Hamlin, Cyrus, My Life and Times, Boston, 1893. Hatch, L. C., Maine, A History, 4 vols., New York, 1919. Hormel, 0 . C., " Maine Towns," Bowdoin College Municipal Research Series, no. 9, 1932. Hasse, Adelaide, Index to Economic Material in the Documents of Maine, Washington. 1907. McCall, Samuel W., Life of Thomas B. Reed, Boston, 1914. McDonald, William, The Government of Maine, Its History and Administration, New York, 1902. McCulIoch, Hugh, Men and Measures of Half a Century, New York, 1888. National Industrial Conference Board, Cost of Government, New York, 1934. Proceedings of the Fifteenth National Tax Conference, 1922. Proceedings of the Twenty-Third National Tax Conference, 1930. Pattangall, W. R., Maine's Hall of Fame, Augusta, 1916. Ramsdell, H. J., Life and Public Services of James G. Blaine, Philadelphia, 1884. 229

230

BIBLIOGRAPHY

Report of the New York State Commission for the Revision of the Tax Laws, Albany, 1932. Stanward, Edward, " T h e Separation of Maine from Massachusetts," Proceedings of the Massachusetts Historical Society, series iii, vol. i, pp. 125-163. Stanward, Edward, James Gilespie Blaine, Boston, 1905. Staples, Arthur G., The Letters of John Fairchild, Lewiston, 1922. Stetson, W . W . , History and Civil Government of Maine, N e w Y o r k , 1898. Sullivan, James, History of the District of Maine, N e w Y o r k , 1795. Williamson, Charles E., Life of Abner Coburn, Bangor, 1885. Williamson, Joseph, Bibliography of Maine, 2 vols., Portland, 1896. Williamson, W . D., History of Maine, Hallowell, 1832. Willoughby, W . F „ The Principles of Public Administration, 1927. Words and Phrases, third series, vol. 7, St. Paul, 1929. O F F I C I A L D O C U M E N T S OF

New

York,

MAINE

SERIAL

Annual Report of the Adjutant General, 1832-1936. Annual Report of the Secretary of Agriculture, 1859-1936. Annual Report of the State Board of Assessors, 1891-1931. Annual Report of the Attorney General, 1859-1936. Annual Report of the State Auditor, 1907-1936. Annual Report of the Treasurer, 1827-1936. Banking: Annual Report of the Bank Commissioners, 1829-1867. Annual Report of the Bank and Insurance Commissioner, 1868-1869. Annual Report of the Bank Examiner, 1870-1871. Annual Report of the Condition of Savings Banks, 1872-1904. Maine Bank Report, 1905-1936. Biennial Report of the Budget Committee, 1917-1936. Collected Documents: Public and Legislative Documents, 1828-1867. Public Documents, 1868-1934. Biennial Report of the Department of Finance, 1932-1936. Report of the Forest Commissioner, 1891-1933. Industrial and Labor Statistics of Maine, 1883-1886. Annual Report of the Insurance Commissioner, 1870-1936. Annual Report of the Land Agent, 1832-1892. Laws: Public Laws of Maine, 1820-1936. Private and Special Laws of Maine, 1820-1936. Resolves of Maine, 1820-1936. Legislative Documents: Public and Legislative Documents, 1828-1867.

231

BIBLIOGRAPHY Legislative Documents, 1868-1899 and 1931-1936. Legislative Record, 1903-1936. Senate Bills and Senate Documents, 1901-1929. House Bills and Documents, 1901-1929. Maine Senate Journal, 1854-1936. Maine House Journal, 1855-1936. Messages of the governors to the legislature, 1824-1934. Maine School Report, 1854-1936. NON-SERIAL

Farm Taxation in Maine, Bulletin 336, Agricultural Experiment Station, University of Maine. Annual Reports of cities and towns, 1903 and 1932. Annual Reports of counties, 1903 and 1932. Financing of the Public Schools in Maine, 1934, " Report of the Maine School Finance Commission." " Forests of Maine," Maine Forestry Bulletin, no. 8. " Report of the Joint Commission of Maine and Massachusetts," found in Resolves of Maine, 1821. Report of the Special Tax Commission of Maine, 1889. Report on the State Trust Funds, Frank Cowan, 1931. Report on the State Trust Funds, Governor Gardiner, 1932. State Administrative Consolidation in Maine, National Institute of Public Administration, 1930. The System of Taxation in Maine, H . L . Lutz, 1934. FEDERAL DOCUMENTS

Bureau of the Census : Financial Statistics of State and Local Governments, Census of Population, 1930. Statistical Abstract, 1933. Interstate Commerce Commission: Statistics of Railways in the United States.

1932.

INDEX Accounts, Bureau of, 224-225 Administration, Budget, 221-224; Bureau of Accounts, 224-225 ; Bureau of Purchases, 224-225: criticism of administration, 215218; Department of Audit, 226227 ; Department of Finance. 220 ; financial administration, 214 ; proposal for reorganization, 218-219; reorganization, 218-220; tax administration, 318, 225-226 Agriculture, Department of, 92-93 Aid to soldiers' families, 52 Assessment of property, 108-113, 122123 Assessors, State Board of, abolished, 126-127; authority over local assessments, 125-126; criticism of, 134-136; created, 123; duties, 123124; qualifications of members, 125 Audit, Department of, 226-227 Banks, national, taxation of, 139-144. I5I-IS3 Banks, saving, number and deposits of, 148; taxation of, 66-67, 147-15' Banks, state commercial, charter of, 27; number and capital of, 140; purchase of stock by state, 27 ; receipts from tax ceased, 44; taxation of, 19, 137-139 Banking, venture of state into, 27 Banks, general comments on taxation of, I5I-IS4

Bartlet, E. H., cited, 107 Bridges, Kennebec, 102; WaldowHancock, 103 Budget, preparation and execution of, 221-224 Budgeting, no satisfactory system of, 217 Burrage, H . S., cited, 187 Buck, A. E., cited, 219 Capitol, of the state, building of, 25-26 Charities and Correction, Department of, 87 Children, care of dependent, 87-88 Cities, chartering, 108 Civil War, aid to families of soldiers, 52; beginning of, 42; condition militia, 46-47 ; enlistment bounties,

47-52 ; enlistment of first ten regiments of militia, 46-47; protection of the coast, 47 ; reorganization of militia, 47 Conservation and development, 91-92 Constitution, amended to provide uniform taxation of property, 122; provisions concerning taxation, 109 Corporations, double taxation of, 119120; franchise tax, 72, 82-83 Counties, development of, 107-108; functions of, 107-108 Courts of common sessions, establishment of, 24 Court, supreme judicial, establishment of, 23 Cowan, Frank, cited, 2 1 1 Debt, of the state government, 28-29, 3^. 53-56, 60-65, 74-77. 99-104 Education, support of, 41, 59; also see schools Enlistment bounties, 46-52 Express companies, taxation of, 57, 182-183 Equalization, State Board of, created, 126-127 Expenditures, 22-27, 31, 35-39. 40-41, 43-53. 57-60, 67-70, 72-74. 79-8I, 83-95 Farm Lands Loan Commission, 212 Finance, Department of, 220 Forestry District, creation of, 74; increased rate of tax, 93 Forests, taxation of growing forests, 127-128 Functions of government, division between state and local, 22 Gasoline, taxation of, 83 Government, units of, 107, 108 Greenleaf, Moses, cited, 184-185 Health and Welfare, history of, 86 Highways, early building and maintenance, 22; first state highway law, 73 ; history of state highway department, 88-91 Hospitals, aid to, 88 233

234

INDEX

Indians, Penobscot, annuity, • 18; treaty with, 18 Inland Fish and Game Department, 93 Insane asylum, building of, 26 Insurance companies, taxation of, 57, 154-158 Internal improvements, board created, 27 Lotteries, 19-22 Lutz, H. L „ cited, 132, 214, 226 Maine, District of, separated from Massachusetts, 15-18 McCulloch, Hugh, cited, 193 Militia, condition of in the year 1861, 46-47; enlistment of the first ten regiments; expense of maintaining, 22 Mothers, aid to, 87 Municipal bounty debts assumed by the state, 55 Municipalities, forms of, 108; functions of government performed, 108 National Institute of Public Administration, cited, 215, 216, 217, 218, 219, 224 Northeastern Boundary Dispute, 17, 37, 39 Organization of state government before 1931, 219; after 1931, 220; proposals for reform of, 218 Pier, Maine State, 101-102 Plantations, description of, 108-109 Polls and estates, procedure of levying tax on, 113 Prison, recommendation for building, 24

Property, assessment of, 108-113, 122-123 Property taxation, assessment of, 109-113, 122-123; certain manufacturer's property exempt, 119-120; constitution amended to provide uniform taxation, 121; collection of taxes, 113; double taxation, 1191-20; exemption, 117-120; intan>gibles escape taxation, 124-125; interests in timber and improvements on public lands made taxable, 120; jurisdiction for tax purposes, 118-119; levies, 129; Maine adopts Massachusetts' tax laws, 107; personal property defined, 116-

117; real estate defined, 116; recommended improvements, 132137; rates, 128-130; revision of tax laws, 116-117; studies of property taxation in Maine, 133-134; revision of tax laws, 116-117; yield of property taxes, 120-121 Purchasing, no central agency, 217218 Purchases, Bureau of, 224-225 Public Lands, amount of, 17, 184; disposal of timber land, 188-196; disposal of settling land, 195-199; division between Maine and Massachusetts, 18, 187; grants, 188-189; Northeastern Boundary Dispute, 185-187; purchase of public lands owned by Massachusetts, 39, 187; public land sale, 20; sales by Massachusetts before 1820, 184-185; settling duties, 195196; speculation in, 193; receipts from sales became negligible, 44; remaining lands sold at auction, 199-200; revenue received, 199-200 Railroads, chartering and growth of, 159-160 Railroads, regulation of, 159 Railroads, subsidy to European and North American, 45, 160 Railroads, taxation of, excise tax, 167; franchise tax, 161-167; " g r o s s - n e t " tax, 169-177; property tax, 160; special provisions in charters, 160-161 Reform school for boys, building of, 41 Reformatories for men and women, establishment of, 93 Revenues,

21-22,

31-32,

30-40,

43,

56-57, 66-68, 71-72, 78, 80, 82-83, 96

Sanitariums, tubercular, 87 Script, issuance of, 53 Schools, common, appropriation of savings bank tax to, 59; common school fund, 23; support of, 70-73, 84-86 Schools, free high, 59 Sea Shoe and Fisheries Department, 93 Sinking fund of 1865, created, 55; discontinued, 62 Sinking fund of 1868, created, 57; discontinued, 64

INDEX Soldiers, allotments, 52; aid to families, 52 Stanward, Edward, cited, 16 Subsidies to farmers, 37 Subsidy to European and North American Railroad, 45 Taxation, banks national, 139-144, 1 5 1 - 1 5 3 ; banks saving, 66-67, 1471 5 1 ; banks state commercial, 19, 27, 44, 137-139; banks general comment, 1 5 1 - 1 5 3 ; express companies, 57, 182-183; forestry district, 74; forests, 127-128; gasoline, 83; insurance, 57, 154-158; polls and estates, 1 1 3 ; property, see property taxation; raidroads, 160177; telephone and telegraph companies, 57, 177-182; trust and banking companies, 145-147 T a x administration, 218, 225-226 Taxation, Bureau, created, 126-127 T a x Commission, appointed 1889, 122-123

235

Taxes, delinquent, 1 1 4 - 1 1 5 Taxes for religious purposes, 1 1 5 Tax, local for highways, 115 Taxation, shift of burden from property to business, 121 Telephone and telegraph companies, taxation of, 57, 177-182 Towns, government of, 108 Township, description of, 108-109 Trust and banking companies, charter of, 144-145; number and assets, 146; taxation of, 145-147 Trust funds, Investment of, 2 1 3 ; Passamaquody Indian, 2 1 0 - 2 1 1 ; Penobscot Indian, 211 ; Permanent School, 209-210; Reserved Lands, 201-209; Restoration of, 211-213 Tubercular sanitariums, establishment of, 87 War of 1812, claim of Massachusetts on Federal Government, 18, 23 Williamson, W. D., cited, 19, 109

TABLE R E V E N U E S AND E X P E N D I T U R E S ,

I

SI

(Figures in thoi

I. Revenue

State tax Tax on capital stock of state banks Departmental fees and licenses Public lands Taxes collected and paid to cities—towns .. Federal government Miscellaneous Funded loans Premium on loans Interest Income from investments Cash balance from last year Total

1830

1837

1838

1839

1840

1841

1842

1843

1844

$ 49 36 3 45

S 1 49 3 12

no reports found

$ 45

$

3 41 2 3

S 99 34 3 69 2

S198 30 3 22

$204 28

11 261 386 6

2 1070 210

4 134

5

55 5 434 3

$215 26 2 107 7

11 80

22 14 181

2 6

1 2 25

1 6

1 8

1 83

1 56

232

309

749

1340

429

316

O

30

Jan. 1,1845Apr. 30,1846

7

$ 220 39 3 157 14 162 7

1 1 8

5 1 389

9 1 392

739

757

1003

Jan.1,1845Apr. 30,1846

li

II. Expendit

Administrative Legislative Costs of courts Military Defectives Regulative Developmental Education Highways Redemption of funded debt Temporary debt Interest Taxes collected and paid to cities—towns .. Indians Pensions Agriculture Miscellaneous Cash on hand Total * Annual Reports of the Treasurer.

1836

1837

1838

S 25 42 14 3 14

S 24 41 25 20 39

no reports found

18

9 36 3 35

29

4

3

1839

1840

1841

1842

1843

1844

51 40 5 8 21

$ 75 57 20 6 22

S 52 48 12 19 9 1

S 76 33 15 2 8

$ 66 33 16 1 17 1

$ 55 40 19

17 7 4 30 195 31

202 42 8

$ 83 48 12 3 13 1 4 46 8

36 2 9

29 1 62

29 4 73

27 1 317

20 98 1 5 3 1 28 56

103 2 5 2 2 6 8

100 11 6 2 1 5 389

98 10 5 2 2 8 392

138 12 7 3 2 5 369

428

316

740

757

1003

603 90

37 25

7 1 6 5 1 11 45

320 8

6 3 1 122 83

233

309

747

1340

8 10

7 2

10

li

549—50 S191 27 2 136 15 142

1850-51

May 1,1851Dec.31,1852

$208 28 2 142 11 3 26

S338 51 3 158 8 176 6

1853

1854

1855

1856

1857

1858

1859

1860

S191 41 2 106 6

$206 57 3 75 6

$201 70 2 28 3

$211 76 3 106 4

$193 75 2 54 3

no reports found

12

11

2 218

10 180

30

$199 75 2 51 4 10 2 30

$222 75 2 30 5 8 56 51

3

4

1 1

1

3

146

48

114

505

422

566

12 1 79

5 1 126

3 1 45

2 1 165

1 1 92

1 108

39

605

552

790

527

451

636

632

1849-50

1850-51

May 1,1851Dec. 31,1852

1853

1854

1855

1856

1857

1858

1859

1860

S 55 42 24

$ 65 48 27

$ 75 44 21 2 51

$118 45 36 4 59 2

51 2 30

85

83

$ 79 38 34 4 55 1 1 41

155

44 4 10

$ 73 35 36 1 67 1 1 69

$ 86 35

15 1 5 36 7 228

$ 65 47 36 1 50 1

no reports found

20 1

$ 66 45 25 1 60 1

242

138

30

30

51

52 1 6 2 2 9 45

51 5 11 3 6 10 165

42 6 6 2 3 118 93

39 3 4 2 5 9 108

38 6 8 2 6 12 39

38 3 7 2 6 12 146

39 4 12 2 9 13 48

39 3 7 2 9 5 76

41 4 10 2 11 138 37

552

790

527

452

636

632

505

422

566

29 2 124 82 62 24 6 2 2 3 126 605

$ 65 58 33 3 122 1 3 65

3 42 1 98

1861

1862

1863

1864

State tax T a x or. capital stock of state banks Railroad tax Telephone company tax Telegraph company tax Express company tax T a x on insurance companies Savings bank tax Taxes collected and paid to cities—towns . Federal government Miscellaneous Temporary loans Funded loans Cash balance from last year

S 227 78

S264 79

S 423 60

S 829 35

4 200 50

5 251 60

4 429 144

830 37

68

1,000 94

5 204 62 1,801 2,768 365

Total

1,426

728

2,156

6,070

1861

1862

1863

1864

97 35

$ 102 35

234 45

1,322 54

3,780 53

3 73 31

4 81 27

1 90 50

1 82 53 1,601

Pensions Agriculture

40 5 9 2 6

84 3 10 2 8

100 6 7 2 7

226 4 7 2 6

Miscellaneous Cash on hand

12 68

12 94

9 365

24 95

1,426

728

2,156

6,070

Administrative Legislative Costs of courts Defectives Health Developmental Education Funded debt Temporary debt Sinking fund Taxes collected and paid to cities—towns .

Total

S

82 35

S 89 35

1,008 53

S

* Annual Reports of the Treasurer, (") Includes SI,236,000 received for sale of bonds in sinking fund. < b ) Municipal war debt assumed b y state.

TABL R E V E N D E S AND E X P E N D I T U H E S ,

(Figures in < I. Revi 1864

1865

1866

1867

1868

1869

1870

1871

1872

S 829 35

81,279 19

$2,156 5

81,345 4

S 816 1

$ 889

81,176

82,096

$ 152

5 204 62 1,801 2,768 365

3 51 28 1,635 68 95

5

5 209 41

5 248 79

6 45

6 678 43

7 5 33

305

232

209

216

3,022 263

49 118

11 192

6,070

3,177

2,550

1,837

1,359

1,156

5,160

2,308

1,527

1864

1865

1866

1867

1868

1869

1870

1871

1872

92 35

S 113 35

$ 125 35

$ 112 36

8 120 35

3,780 53

1,584 74

541 81

458 80

18 80

7 118

$ 155 36 1 18 129

1 82 53 1,601

2 40 37 944 151 325 4 13 2 6

5 63 37

151 35 37

6 46 37

8 132 40 3 4 82 10 26 94 57

226 4 7 2 6

1 48 40 535 96 323 4 11 2 7

S 160 35 7 17 94 10 678 13 126 66 3,075 (b) 883

285 349 5 10 115 7

244 296 5 11 52 7

24 95

21 305

24 232

54 209

60 216

77 313 5 11 54 9 30 51 236

214 471 6 12 26 7 34 53 118

258 480 6 12 27 7 16 25 192

174 433 7 12 27 7 21 20 380

6,070

3,177

2,549

1,836

1,359

1,155

5,160

2,308

1,527

65 14

120 8 43

II. Expe:

$ 102 35

$

iü (J STATE OF MAINE, 1 8 6 0 - 1 8 8 9 *

thousands) enues 1873

1874

1875

1876

1877

1878

1879

1880

1881

$ 244

81,168

$1,050

S 889

S 872

S 819

S 941

31,092

14

51

54

29

no reports found

70

18

58

1

1

140 8

143 9

12 372 8

13 279 9

18 246 9

10 167 10

8 167 10

19 178 10

29

89

75

56

33

26 125

17

380

1 436

322

377

394

157

16 200 307 69

30 160

1,799

1,860

1,891

1,688

1,602

1,385

1,742

1,578

1873

1874

1875

1876

1877

1879

1880

1881

$ 133 41 3 19 63

S 138 40 4 8 111 10 2 439 24

166 431 8 12 26 7 19 34 436

188 432 S 18 25 8 16 30 322

204 424 9 17 25 7 18 35 377

80 358 11 18 24 7 24 31 394

80 354 12 18 26 8 28 19 231

150 80 353 11 18 25 7 22 9 69

S 101 36 2 23 84 5 7 353 273 125 80 349 29 16 24 1 25 48 160

$ 104 36

9 343 49

S 140 41 4 11 119 25 2 424 51

1,799

1,860

1,891

1,688

1,602

1,385

1,742

1,578

nditurea

$

71 40 36 12 85 10 4 451 30

$

91 41 37 12 90 5 5 500 47

1878 no reports found

$

69 41 34 3 79 5 3 405

17 134 5 8 339 83 200 80 339 13 15 20 12 11 19 142

1881

1882

1883

1884

1885

1886

1887

1888

1889

11,092

SI,055

$1,062

$ 969

81,084

$ 856

$ 638

$ 683

58

110

1

87 2 12 1 17 192 12

88 2 8 2 15 210 13

85 2 6 1 20 235 13

93 1 6

19 178 10

10 3 16 206 12

93 2 4 1 14 175 12 o

no reports found

100 2 6 1 25 296 16

17

20

20

16

25

28

37

30 160

142

2 475

88

192

319

312

1,578

1,575

1,861

1,395

1,640

1,564

1,400

5,420

1881

1882

1883

1884

1885

1886

1887

1888

1889

$ 91

$ 119

$ 116

no reports found

$ 145

2 15 82 5 3 393 51

$ 107 37 2 16 123 10 6 414 48

$ 174 42 2 29 191 15 31 466 3,871

23 272 17

1,437 M 198 2,384 272

17 134 5 8 339 83 200 80 339 13 15 20 12 11 19 142

1 15 68 5 1 356 52

$ 128 36 1 17 166 5 4 394 434

80 327 24 14 20 9 25 12 475

80 363 38 16 21 14 26 32 88

83 316 37 19 22 8 27 21 192

78 317 34 19 21 15 29 46 319

80 313 34 19 24 19 36 40 319

243 43 21 37 5 40 28 272

229 76 15 44 15 43 115 63

1,578

1,575

1,861

1,395

1,640

1,564

1,400

5,421

$ 104 36

1 15 68 8 2 411 59

2 16 88 8 7 444

APPEN1 TABLE R E V E N U E S AND E X P E N D I T U R E S ,

S

( F i g u r e s in th< i. R e v e n i

State tax T a x o n capital s t o c k of s t a t e b a n k s

...

1820

1S21

1822

1823

1824

SI 15

¡¡>33 15 1 0

S 52 15 7 0

837 13 11 2 I 30

811 14 10 2 2 1

C o u r t s — f e e s , fines, a n d f o r f e i t u r e s D e p a r t m e n t a l fees a n d licenses Public lands Miscellaneous F u n d e d loans T e m p o r a r y loans P r e m i u m on loans Interest Income from investments . . C a s h b a l a n c e f r o m last y e a r T o t a l ia)

15 40

S 25

23

49

79

138

90

1820

1821

1822

1823

1824

S 5 12 1 1

S10 20 10 2 0

S 8 10 24 1 8

S 8 17 2.8 1 8 20

•810 20 21 1 9 0

2

5

5

0

5 1

1

1 1

47 3

2 1

2 1 1

15

12

8

3

2

38

81

122

102

80

If

IT. E x p e n d i

Administrate e Legislative C o s t s of courts Attorney General's d e p a r t m e n t Military Defectives Developmental Public buildings Education Highways R e d e m p t i o n of f u n d e d d e b t . . . Interest Indians Pensions Investments Miscellaneous C a s h o n h a n d 1 lee. 31 Total

* A n n u a l R e p o r t s of t h e T r e a s u r e r . fa) ¡.»¡sriviinni-ii's in last digits caused b y omission of t h o u s a n d s .

li

' E N D I X 'ABLE A TORES, STATE OF M A I N E , 1 8 2 G - 3 G +

:S in thousands) Revcmn-s S24

1825

1820

1827

1828

1S29

1830

1831

1832

1833

1834

1835

11 14 10 2 2 1

$14

8 44 18 9 2 1 15 25

S 50 20 12 3 13

S 49 21 12 4 22 25 27

S 51 18 13 3 oo OO 2 8

S 49 14 12 3 45 20 51

S 50 17 7 3 3 138 33

S 53 15 4 3 31 IS 20

S 50 20 6 3 24 2 50

S 46 24 3 3 31 4 70

S 51 26

1

1

1

1 19

10 9 l 1

29

3 134 17 59

i 1

71

76

115

134

101

126

195

251

146

156

182

310

Expenditures S24

1S25

1826

1827

1828

1S29

1830

1831

1832

1833

1834

1835

10 20 21 1 9 0

$11 2,

S 9 25 16 1 10 3

S 10 22 23 1 6 12

S 11 23 22 1 7 10

S 12 23 IS 1 7 11

•S 10 28 24 1 0 9

5 1

7 i

7

2 3

3 7 3 40 3 2 1

26 6 7 8 2 3 1

57 7 12

2 1 1

7 1 10 2 2

S 16 34 22 1 10 5 5 2 19 10 28 4 9 1

$ 19 37 23 1 20 12 1 5 25 2 138 10 7 1

4

0

10

8

6

28

S 13 31 21 1 7 7 2 S 4 8 30 3 2 1 1 5

S 13 30 24 1 12 14 5 15 3 16 2 3 4 1

2

S 13 34 21 1 7 13 3 2S 4 9 76 4 2 1 2S 9

11

6

3 0

80

93

92

124

182

131

189

254

144

154

171

310

28 1 n i

5

20 3 2 1

3 2 1

TABLE

I

R E V E N U E S AND E X P E N D I T U R E S , STA

(Figures in thoi I.

Departments and institutions Miscellaneous Cash balance for last year Total

1891

1892

1893

1891

1S95

1896

1897

1S98

1

S 661 106 2 6

S 829 103 2 7 1 32

S 827 280 3 7 1 31 1

S 886 170 4 9 1 29 12

S 775 145 4 7 4 33 42

S 810 153 7 7 36 23

S 782 164 8 7 4 38 29

S 902 170 8 6 4 59 23

S

25

S 522 101 2 6 1 27

321 16

348 19

368 24

402 63

402 61

388 59

381 54

382 59

394 59

21

3 21

4 28

2 24

3 21

1 26

25

5 29

4 26

358 25 12 300 63

18 28 15 287 175

31 32 100 200

29 68 125 305

30 22

34 15

32 14

336

458

290

31 12 200 204

33 14 150 152

1,558

1,913

1,777

2,170

1,987

1,992

1,867

1,953

2,007

1S90

1891

1892

1893

1894

1895

1896

1897

1898

$ 162

$ 202 42 3 18 154 25 18 16 499

S 184

S 196

$ 203 42 4 36 195 28 26 11 651

S 194

2 20 126 18 20 12 570

$ 208 42 2 31 141 22 19 13 593

3 35 225 37 22 12 647

$ 235 42 3 40 160 29 29 12 677

CO M CO

State tax Railroad tax Telephone company tax Telegraph company tax Express company tax Tax on insurance companies Tax on collateral inheritances T a x on trust and banking companies Corporate franchise tax Savings bank tax Taxes collected and paid to cities—towns . Maine forestry district Inland fisheries and game commission . . . . New corporations Licenses on automobiles

Revenu

1S90

52 325 91 64 21 58 19

50 100 81 106 18 66 19

50

50

50

75 113 20 64 22

74 110 18 72 20

77 110 20 73 32

50 200 77 122 20 76 19

i

:

I I . Expendii

Administrative Legislative Cost of courts Military Health Regulative Developmental Education Funded debt Temporary debt Interest Taxes collected and paid to cities—towns . Indians Pensions Agriculture Maine forestry district Inland fish and srame commission Charity Miscellaneous Cash on hand Total L

* Annual Reports of the Treasurer.

2 20 146 10 16 7 461

3 32 109 31 18 12 600

3 34 141 41 27 12 656

1

11

130 94 56 21 67 14

61 287 102 57 15 65 17

52 100 92 57 24 60 16

10 46 120 175

15 43 62 200

19

38 72 305

19 42 71 336

20 30 38 458

30 64 68 290

35 51 57 204

38 75 97 152

46 49 64 155

1,558

1,912

1,777

2,170

1,987

1,992

1,867

1,953

3,007

1

'ABLE D I K E S , S T A T E OF M A I N E ,

1890-1912

*

s in thousands) Revenues 1899

1900

1901

1902

1903

1904

1905

1906

1907

1908

1909

1910

1911

1912

902 170 8 6 4 59 23

S 923 160 9 6 9 62 36

S 916 176 11 6 5 69 IS

449 54

S 941 365 20 3 10 90 31 37 00 485 73

S 954 404 22 3 10 97 74 44 63 409 78

S 983 520 25 3 10 105 69 51 70 425 83 2

S 936 491 32 3 11 m 71 58 87 442 89

S 1,152 (¡06 39 3 15 113 89 75 145 463 89

81,307 615 44

403 61

S 862 327 17 3 9 79 40 24 44 538 71

S 987 658 44 3

394 59

S 929 292 14 3 8 73 39 21 34 501 68

16 111 99 88 105 471 110

16 1.18 78 95 196 171 li/fi

4 26

7 42

10 34

12 53

7 8S

39 96

10 71

71 94 3

57 164 3

41 153 3

43 78 4

109 90 7

81,392 717 55 3 21 126 93 101 188 463 93 60 54 10

82,142 851 57 5 20 137 147 108 199 461 93 68 50 77 12

$2,553 888 84 6 22 151 276 121 206 466 101 75 40 105 98

33 14 150 152

17 35 18 350 155

9 33 23 200 200

28 42 24 250 199

132 48 28 100 298

228 47 25

48 21

42 44

84 31

84 27

70 76

439

1,38

245

430

76 33 200 598

480

509

63 166 300 76

59 94 300 136

502

2,007

2,295

2,214

2,591

2,712

2,989

2,940

2,851

3,111

3,905

3,471

3,965

4,106

5,021

5,824

S98

77

4

2 48

Expenditures 1898

1899

1900

1901

1902

1903

1904

1905

1900

i 907

1908

1909

1910

1911

1912

! 213

S 224

$ 275 87 60

S 277

S 164

S 127

156 120 48 516 205 56 35 J ,266 184

126 58 538 81 56 54 1,288 309

50 150 76 123 20 74 23

50 200 79 117 20 79 25

50 350 78 118 21 79 33

15 46 236 53 23 49 814 30 MO

S 256 71 29 37 29« 51.1 37 29 770 73 23

$ 252

50 200 77 122 20 76 19

S 266 59 30 28 300 54 26 38 775 8 70

S 299

4 47 256 41 27 13 663

S 266 54 11 30 302 31 21 22 041

S 251

3 34 141 41 27 12 656

S 227 42 2 126 268 40 25 15 634

63 170 23 83 39

46 49 64 155

46 74 78 200

52 77 41 199

4S 66 68 298

56 77 82 439

73 173 638

00 176 22 89 34 15 60 82 88 245

55 20« 22 87 50 28 78 ICMj 114 431

50 196 21 89 42 18 100 96 80 598

101 69 479

26 330 24 89 54 103 RI 179 41 569

25 304 31 91 150 100 110 201 61 76

38 233 30 90 US 70 131 124 399 136

S 115 119 88 54 533 119 42 34 1,973 226 22 300 35 167 26 S5 139 80 89 108 502

S 168 23 95 61 437 102 49 37 2,177 129 400 300 28 316 21 15!) 103 6S 07 267 22 457

3,007

2,295

2,214

2,591

2,712

2,989

2,940

2,854

3,114

3 on-,

3,171

3,965

4,106

5,021

5.824

15 38 166 44 29 16 702 8 70 350 69 165 24 84 24

76

(¡0 15 191 «5 21 34 783 75 287

46 150 101 25 32 910 93 380 200 29 215 24 91 80 67 62

78 45 ">7 "i K\

O-T

38 861 197 15

161

C H A R T ORGANIZATION OF T H E STATE G O V E R N M E N T OF

VOTERS L

SECRETARY OF STATE

MOTOR VEHICLES

E

G

I

S

L

A

T

COMMISSIONER OP AGRICULTURE

ATTORNEY GENERAL

U

R

STATE TREASURER

OF

]

MAI

1

E

STATE AUDITOR

.GOVERN

INHERITANCE

COUNC

EX

PARM LANOS LOAN BOARD

O F F I C I O

B0A90 0*

PORT OP PORTLAND AUTHORITY

COMMISSIONERS Of PORTtANO

PCN03SC0T BOOM lOMMlSSlONERS

BOARO O f VOCATIONAL EDUCATION

MAINE DEVELOPMENT COMMISSION

INDUSTRIA. ACCIDENT COMMiSS»ON

BOARD OF A R B I T R A T I O N AND CONCILIATION

PUBLIC UTILITIES

S E A a SHORE FISHERIES

I N L A N D FlSM AND GAME

FORESTRY

L A B O R ANO INDUST RY

COMMISSION

COMMISSIONER

COMMISS'ONE« kCv.SO«»*^

COMN»'SS>ON£R

COMMISSIONER

* Message of Governor

Gardiner to the Legislature, 1931.

•iE A L T M A N I WELFARE

5TiTUT»OwA4. service DioecTo LOCAI. BOA«D» 0* VISITORS

IA R T

II

OF M A I N E

AFTER T H E REORGANIZATION I N

1931.*

TABLE R E V E N U E S AND E X P E N D I T U R E S ,

I

ST

(Figures in then

I. Revenui

Railroad tax Telephone company tax Telegraph company tax Express company tax Tax on insurance companies Tax on collateral inheritances Tax on trust and banking companies Tax on bank stock Corporate franchise tax Gasoline tax State tax on wild lands Savings bank tax Taxes collected and paid to cities—towns . Interest Maine forestry district tax Inland fisheries and game \ e w corporations Licenses on automobiles Departments and institutions Highway commission Miscellaneous Funded loans Temporary loans Cash balance from last year Toial

Jan.1,1921 to June 30, 192100

1913

1914

1915

1916

1917

1918

1919

1920

SI,871 976 92 T 2 155 170 136

82,387 1,051 98

84,295 1.089 108

49 157 284 146

25 162 179 150

82,253 998 in 8 27 174 224 161

$3,200 1,092 12S 11 30 186 216 168

82,786 1,292 137 11 33 207 274 152

83,897 1,529 150 12 41 236 412 136

83,683 1,671 182 54 17 263 594 169

235

205

235

228

221

215

220

243

13

4S0 96 12 80 60 51 139 53 85 10 56 300

486 91 32 74 57 45 193 70 244 152 22 500

483 92 33 78 51 41 268 66 236 174 46 500

245 460 95 43 74 55 52 364 76 450 216 35 500

322 403 104 47 83 60 63 488 53 448 436 37 710

323 357 107 41 85 67 27 570 49 314 520 42 712

462 273 117 39 113 117 74 790 60 361 713 32

440 217 117 101 111 109 74 834 69 554 1,089 10 6,065

16 110

457

649

778

1,159

1,473

1,862

1,986

2,218

5,551

5,539

7,003

9,102

8,025

9,658

10,186

11,776

18,896

8,655

i

t

S

;

J

88 410 199 18 61 297 214 93

i

59 6 15 19 747 16 235 470 4

I I . Expendit

1914

1915

1916

1917

1918

1919

1920

Jan.1,1921 to J u n e 30, 1921(a)

S 147 148 94 52 621 106 56 41 2,072 553

S 163 6 96 74 879 109 76 41 2,283 1,395

S 163 135 120 76 696 178 99 27 3,745 1.312

S 475 8 101 72 774 196 132 34 2,279 159

$ 127 157 107 467 1,208 307 34 129 2.352 1.511

S 191 4 152 361 1,113 393 139 29 2,256 2,137

$ 249 171 129 686 1,300 258 155 44 2,497 2,352

S 291 10 144 987 1,523 542 202 311 2,689 4,416

$ 146 192 64 2,164 735 257 73 40 450 1,511

12 265 31 90 141 97 136 157 70 649

8 24 270 26 119 184 99 149 189 34 778

40 54 401 37 127 183 70 135 290 55 1,159

39 69 290 41 130 152 64 139 339 59 1,473

54 93 315 41 187 161 91 129 245 83 1,862

79 107 292 45 77 162 123 132 277 129 1,986

79 125 293 48 137 177 140 207 360 151 2,218

288 215 262 52 143 210 147 272 603 40 5,551

100 192 4 26 89 95 103 100 272 30 2,011

5,539

7,003

9,102

8,025

9,658

10,186

11,776

18,896

8,655

1913 Administrative Legislative Costs of courts Health Regulative Developmental Education Highways Funded debt Temporary debt Sinking fund Taxes collected and paid to cities—towns .

Maine forestry district Inland fish and game commission

Total * Annual Reports of the Treasurer. (") Fiscal year changed. (>>) D a t a not available.

,

ABLE E URES, STATE OF MAINE, 1913-32 * 3 in t h o u s a n d s ) Revenues

, 1921 J u n e 30,1921 to ne 30, L O) J u n e 30,1922

1922-23

1923-24

1924-25

1925-26

1926-27

1927-28

1928-29

1929-30

S4.054 1,847 216 22 54 386 1,373 200 198 246 537 467 209 173 53 163 130 159 2,170 80 476 2,080 87 942

$4,463 1,626 272 26 50 406 688 201 289 315 1,464 502 208 177 54 196 143 190 2,258 87 501 2,655 96 1,600

S4.407 2,087 309 26 49 435 800 229 266 394 2,051 495 221 176 129 166 85 156 2,571 69 661 5,061 85 2,500

84,263 1,997 322 27 44 451 1,693 251 255 466 2,624 465 233 180 88 203 159 120 2,699 77 681 1,639 103 875

$4,222 1,682 319 28 41 475 925 268 44 497 3,114 465 240 176 145 223 179 110 2,917 70 733 2,100 54 2,456

$5,059 1,635 346 31 39 545 1,013 322 432 508 3,945 550 249 190 115 221 23S m 3,164 70 820 1,767 55 3,700

88 410 199 18 61 297 214 93

§3,148 2.273 211 1 59 311 564 188

13

236

S3,404 2,305 223 34 59 325 1,119 177 303 247

16 110 7 59 6 15 19 747 16 235 470 4

369 214 170 61 182 124 51 1,312 67 1,624 1,500 4 3,000

402 207 133 50 157 109 51 1.612 68 492 2.075 68 1,894

$4.391 2,386 232 22 59 358 556 182 247 246 389 503 213 176 122 180 116 59 1,925 76 439 2,748 63 1,000

551

2,011

1,864

2.085

2,718

2,612

4,639

6,023

4,477

2,671

655

17,855

17,392

18,796

19,083

21,084

28,073

25,911

25,989

27,804

1930-31 (•>)

1931-32

Expenditures

L, 1921 J u n e 30,1921 to ne 30, I (a) J u n e 30,1922

1922-23

1923-24

1924-25

1925-26

1926-27

1927-28

1928-29

1929-30

1930-31

1931-3'

146 192 64 164 735 257 73 40 450 511

S 281 12 148 288 1,649 682 169 391 2,939 6.364 220

S 292 187 148 126 1,420 627 180 786 2,880 5.334 234

S 300 16 143 141 1,783 608 188 341 3,147 6,083 8

S 422 191 156 122 1.650 716 154 112 3.119 7,112 40

S 299 12 144 162 1,363 660 168 196 3,194 7,358 1

S 384 198 147 119 1.421 542 163 76 3,217 11,867

S 347 16 185 128 1,763 677 213 137 3,476 10,112

•S 405 245 189 111 1,450 806 382 214 3,488 11,501 48

S 320 12 208 130 1,529 793 283 146 3,683 13,647 27

S 501 12 235 204 1,301 682 432 159 3,115 17,476 5

100 192 4 26 89 95 103 100 272 30 on

419 467 237 55 143 239 267 271 6 IS 133 1,864

419 570 474 58 138 226 140 237 648 162 2,085

469 656 505 58 120 231 159 232 699 193 2,718

350 147 517 56 109 240 199 247 714 93 2,612

370 225 533 54 87 245 185 284 769 132 4,639

631 752 539 78 103 280 220 299 907 103 6,023

817 878 571 62 108 327 21S 332 849 150 4,477

876 857 565 74 104 284 196 343 892 288 2,671

979 879 566 59 95 290 237 434 1,179 381 1,929

$ 509 222 235 146 1,750 872 319 172 3,894 16,506 12 800 932 939 685 62 91 334 247 565 1.223 327 2,878

655

17,855

17,392

18,796

19,083

21,084

28,073

25,941

25,989

27,804

33,719

30,140

675 1,049 492 64 87 324 353 567 1,389 1,018