Very truly yours,
J. W. Brooks, Chairman.
The Committee coincide with the views of the commissioners. And the justness of their remarks, that the State must not expect to have the work done at less than its cost, is borne out by the operations under the contract for the West End enlargement, where the State has increased the contract from four to seven dollars and fifty cents a perch, in order to insure the miners a compensation for their labor.
It may be proper to state in this connection, that the labor done upon the road and tunnel by early contractors, has not tended to a "rapid, economical and certain progress of the work," and that if even the whole work should be put under contract, the interest of the Commonwealth would require the continuance of a commission, and the services of an engineer of the highest skill and integrity to superintend its performance in order to avoid a loss and damage similar to that which occurred to the State while the work was under the nominal control of the Troy and Greenfield Railroad corporation.
The retirement of all the gentlemen who comprised the board of commissioners, first appointed under the legislation of 1862, affords the Committee an opportunity to acknowledge the eminent talent and ability which they respectively possessed for the discharge of the important duties assigned to them, and to bear testimony to the industry and intelligence displayed in their elaborate and comprehensive report upon the subject of the railroad and tunnel in 1863. It was fortunate for the State in that crisis in the affairs of this enterprise to be able to command so much practical information upon a question so interesting and important, and at the same time so difficult of solution.
But in addition to the duty of furnishing an opinion of the feasibility and mode of constructing the tunnel, and of the propriety of opening this line of railway communication with the West, the commission was instituted to carry on and superintend a most important and difficult public work, involving the expenditure of several million dollars. Yet each of the gentlemen composing the board was engaged in other duties requiring substantially their whole time and attention. Under these circumstances their personal observance of the progress of the work could not be given to a degree satisfactory to the public, or essential to the interests of the State, and the responsibility of the operations came to devolve upon the engineer at the works, and the chairman of the commissioners in Boston. These irksome labors were discharged with diligent faithfulness, and as the event has proved with a physical suffering to one of them that has called forth a general expression of regret and sorrow.
By chapter 214 of the Acts of 1863, the governor is authorized to draw his warrant on the treasurer for such sums as may be required, from time to time, by the commissioners, for the purpose of carrying out the provisions of law for the completion of the tunnel and railroad. The commissioners under this enactment have made monthly requisitions upon the governor, transmitting at the same time vouchers for the expenses of the preceding month; and upon this information and requisition the warrants have been drawn. By the 293 chapter of the Acts of 1866, a general supervision of the work is vested in the governor and council, with power to "correct abuses, remedy defects, and impose and enforce requirements in such manner as the interests of the Commonwealth shall, in their judgment, require." As the commissioners exercise a delegated power, there would have been a manifest propriety in requiring of them, from time to time, a report upon the progress of the work, and of their own doings even under the Act 1863, so that the governor might have been more fully provided with information touching the necessity of the requisitions. But under the Act of 1866, it appears essential that the commissioners should report monthly to the governor and council the general plan of operations pursued, the progress of the work, and the manner and extent of their own superintendence of the same.
The Committee are therefore of opinion that the commission should be reorganized in such manner that the State could command the whole time of its members: that a greater degree of personal attention should be given by them to the work than it has heretofore received: that the commissioners should keep minutes of their doings which shall be open to the inspection of the governor and council, and the appropriate legislative committee: that their monthly communications to the governor and council should embrace, in addition to the past, and the requisition for the current month, a report of the operations, the progress of the work during the previous, month, and the manner and extent of their own superintendence of the same.
The Committee are also of opinion that a due regard to economy in conducting the enterprise requires that the commissioners should at once, by experiment, ascertain the probable time required to excavate the enlargement of the tunnel, and that the work upon the enlargement be regulated and pursued with a view of avoiding any unnecessary delay in operating the road after the heading is removed.
In concluding this Report, the Committee cannot forbear to express their obligations to Mr. Doane, the engineer in charge of the work, for the assistance rendered by him in aid of their labors, nor withhold their approbation of the faithful and able manner in which he has discharged the duties of his office, so far as they have come under their observation. The Committee are indebted to Mr. Hill, the superintendent of labor, for his uniform attention during their examinations, and they fully recognize his capacity for his position, and his interest in the operations. They are likewise indebted to Mr. Hall, the intelligent master of the machine shop, for very valuable information concerning his particular department. And also to Mr. Field, the able and efficient engineer of the railroad, for a very satisfactory report upon that portion of the work under his direction.