Legislature in various ways. It assumed, however, definite shape in the session of eighteen hundred and sixty (1860) in the bill to grant the right to construct the bulkhead to a corporation known as the San Francisco Dock and Wharf Company.

The measure was advocated and resisted with unusual ability and persistence on both sides, and, as will be remembered, after passing was entombed by an executive veto. The whole bill proceeded on the fact of the necessity of a bulkhead. This the opposition would have been but too ready to deny. Knowing, however, that in the face of the testimony taken by the committee in charge of the bill, such denial could not be maintained, they resisted the bill on other grounds.

That contest settled two points, viz., the necessity of the sea-wall and that it should be constructed by the State and not by private parties; and soon after, on the twenty-fourth (24th) of April, eighteen hundred and sixty-three (1863), an Act was passed creating the Board of Harbor Commissioners, and enjoining on them its construction. On the fifth (5th) of March, eigh'een hundred and sixty-four (1864), the said Act was amended, and again the Board was directed to proceed with it.

The Board reported the plan of construction to the Legislature in November, eighteen hundred and sixty-five (1865), and in November, eighteen hundred and sixty-seven (1867), the letting of contracts for the construction of two sections, and in November, eighteen hundred and sixty-nine (1869), the completion of the two sections, the letting of a third section and its completion also, making a total of thirtytwo hundred and fifty-two (3,252) feet in length, at a cost of about six hundred and eighty thousand ($680,000) dollars.

At the session of the Legislature in eighteen hundred and sixtyseven and eight (1867-8), a committee was appointed to investigate the affairs of the Board, and they gave special attention to the subject of the sea-wall. In their report they reiterate the necessity of it and entirely approve the plan on which part of it had then been constructed. Again, by the Act of the twenty-eighth (28th) of February, eighteen hundred and seventy-six (1876), the Legislature emphatically directed the prosecution of the work.

In eighteen hundred and seventy (1870) the Chamber of Commerce of San Francisco presented a memorial to the Legislature, in which they say: "During the contest referred to-the bulkhead bill of eighteen hundred and sixty-eight (1868)—the peculiar character of this harbor, and its requirements for protection and improvement, received the most thorough attention and examination from the Legislature, from Committees of this Chamber, and of the citizens at large, and from civil and military engineers; and it is safe to assert that at the close of the struggle, the whole question was better understood than at any former period, and with the facts and conclusions freshly before them, both the Legislature and the public definitely decided that a solid, permanent sea-wall was an absolute necessity for the protection of the harbor. The Act of eighteen hundred and sixty-three (1863) was the result of this conviction, and it is submitted that nothing has since occurred to obviate the need of this important work."

The Chamber was so impressed with its necessity that they recommended the issuance of bonds, not exceeding one million of dollars ($1,000,000) for the continuance of this work.

At that session, eighteen hundred and seventy (1870), a bill was passed by both Houses for the issuance of such bonds, but it failed to receive the Governor's approval on grounds quite distinct from the necessity of the work.

From all this it appears that from eighteen hundred and sixty (1860) to the present time the construction of the sea-wall has been the settled policy of the State.

It is needless to discuss the grounds of this policy. It is sanctioned by time and the total absence of all dissent.

If more were wanting it would be easy to show the great expense imposed on the State and the property holders in keeping in repair streets constructed entirely of piles and planks, and traversed by the whole commerce of the city, and that such condition of things entirely forbids improvements being made, and to that extent decreases the taxable wealth of the State and city.

In all commercial cities the water-front lots have a high value, but in San Francisco, owing to the reason stated, it is almost unsaleable. Next, as to its plan. The sections which have already been constructed have so fully answered all the requirements for which it was designed that no valid reasons exist for a change of plan.

It is simply a rip-rap embankment of stone which is thrown loosely into a channel dredged about sixty (60) feet wide and twenty (20) feet deep, and carried up with a proper slope to the official grade. It is a retaining wall, against which the water-front streets and lots may be solidly filled in.

The original plan of a cut stone facing has been entirely abandoned as of no practical use, and involving great expense.

The portions of the sea-wall already constructed, except that between the northerly line of Vallejo Street and the northerly line of Union Street, will be available, requiring only to be widened out to the new water-front line.

As the work progresses and has become sufficiently settled and compact to stand the outward pressure, the thoroughfare on the inner side should be commenced, so as to obtain, as soon as possible, a solid foundation for paving it with stone. Until that occurs it must be planked.

We concur entirely in what was said by Mr. Arnold, the Chief Engineer of the Board, in his report of eighteen hundred and seventy-three (1873) on this subject: 'No plan for the improvement of our harbor facilities can be considered complete which does not provide for the paving of the street along the city front in a permanent and durable manner. The vast amount of traffic concentrated on this street destroys the pavement (planking) now in use with great rapidity, and its renewal becomes an onerous expense both to the property owners and the State."

No time could be more auspicious than the present for the re-commencement of this work, as labor is abundant and cheap, and the expenditure would furnish employment to many industrious men who are now in need of work.

NEW SYSTEM OF PIERS.

The new piers will be constructed from time to time as they may be needed, and will be numbered, beginning at some point north and continuing thus to the south. They will project generally at right

12

angles from the new water-front line to an established pier-head line so as to secure the full sweep of the tidal currents.

In no case will this projection exceed six hundred (600) feet; in some cases it will be less. The width of the piers will be about eighty (80) feet and of the docks about two hundred (200) feet.

This width of dock is essential to obviate the great inconvenience and expense of vessels lying at outer berths hauling out to allow entrance and exit for vessels lying at inner berths of the same dock.

ESTIMATE OF COST.

The Engineer of the Board has furnished the following estimates of cost, which include the dredging of a channel sixty (60) feet wide and twenty (20) feet deep, the filling it with large stone nearly to the official grade, the filling the thoroughfare with smaller stone and earth, the planking of the roadway, and the construction of a wharf about thirty (30) feet wide to serve as a facing to the sea-wall. They do not include the paving of the thoroughfare nor the cost of new piers:

Our remarks will be confined to that part of the water front between Chestnut and Harrison Streets, as the sea-wall is most needed there at present.

The policy of the State hitherto has been to construct the sea-wall and piers out of the surplus revenue of the water front, and, in eighteen hundred and sixty-eight and eighteen hundred and sixtynine, three thousand two hundred and fifty-two lineal feet were constructed and so paid for.

The prosecution of the work then ceased in consequence of the exhaustion of the fund applicable thereto, and there has been no accumulation since then sufficient to permit its resumption.

The establishment of the new water-front line, and an accumulation of about three hundred and eighty thousand dollars in the Harbor Improvement Fund, will now enable the work to be resumed at an early day.

The average net revenue for the past two years has been twentythree thousand three hundred and thirty-three ($23,333) dollars per month; and, after allowing for all probable contingencies, it may safely be estimated that twenty thousand dollars ($20,000) per month can be applied to sea-wall construction.

the Harbor Improvement Fund, not required for the erection of the necessary wharves, their repair, dredging, etc.

If by this is meant (as is supposed) that no contract can be let until all the money to be paid on it is actually in the Harbor Fund at the date of its letting, then it is apparent that the work will be interrupted for longer or shorter periods, awaiting sufficient accumulation for the letting of the next contract. As a monthly revenue of at least twenty thousand dollars ($20,000) can certainly be counted on, and payment on such contracts are invariably made from time to time as the work proceeds, it is not easy to see the reason for such provision of the Code. Interruptions in the work, when once. resumed, will leave the water front in a very disordered state, cause much hindrance to business, and prove in the end the most expensive mode of doing the work. We recommend, therefore, the amendment of that section of the Code, so that a contract may be made whenever the amount in the Harbor Fund, together with the estimated net revenue, will be sufficient to meet the cost of the work contracted for, with a proviso that the State shall in no event be liable for any deficiency in the Harbor Fund.

In eighteen hundred and sixty-eight (1868) and eighteen hundred and sixty-nine (1869), the sea-wall was constructed along the following parts of the water front, as it then existed, viz.:

Along Front Street, from the northerly line of Vallejo Street to the the northerly line of Union street-length six hundred and fifty (650) lineal feet.

Total cost, seventy-two thousand eight hundred dollars ($72,800); or per lineal foot, one hundred and twelve dollars ($112).

Along East Street, from the southerly line of Pacific Street to the southerly line of Washington Street-length seven hundred and fortythree (743) lineal feet.

Total cost, two hundred and six thousand five hundred and fiftyfour dollars ($206,554); or per lineal foot, two hundred and seventyeight dollars ($278).

Along East Street, from the South side of Washington Street to the south side of Market Street-length seven hundred and twenty-nine and forty-three one-hundredths (729,13) lineal feet.

Total cost, one hundred and fifty-nine thousand seven hundred. and forty-five dollars ($159,745); or per lineal foot, two hundred and nineteen dollars ($219).

Along East Street, from the south side of Market Street to a point fifty-two and one-half (521) feet northerly from Howard Streetlength one thousand one hundred and thirty (1,130) lineal feet. Total cost, two hundred and seventy-one thousand two hundred dollars ($271,200); or per lineal foot, two hundred and forty dollars ($240).

From which it appears that thirty-two hundred and fifty-two (3,252) lineal feet of sea-wall was constructed at a total cost of seven hundred and ten thousand two hundred and ninety-nine dollars ($710,299). Union Street is of no avail except as so much filling of Front Street. By the change of the water-front line, the section from Vallejo to The other sections are available only as so much filling of the thor

estimate of two million three hundred and fifty-seven thousand eight hundred and eighty-six dollars ($2,357,886) for the seven

thousand (7,000) feet of sea-wall from Chesnut to Harrison street, such filling of the thoroughfare has been taken into account.

As will be seen by the annexed map it is proposed to construct twenty-two new piers along the seven thousand (7,000) feet of water front. Four of them were constructed during the past two years. The remaining eighteen, with the removal of the old wharves, will cost about six hundred thousand dollars ($600,000). As any section of the sea-wall is constructed it will be necessary to construct some, if not all the piers along that section, so that the present number of berths for shipping may not be decreased.

The number is now too small, and in a few years will be far below the need. It is well known that the prompt dockage of vessels arriving in port, and the facilities for quick discharge and reloading are material elements in a ship's bill of expenses.

In considering the ways and means for the construction of the seawall and piers it is not possible to take into account the proceeds of the sale of the lots along the water front. They should be sold from time to time, as the sea-wall and thoroughfare is constructed opposite to them, so that the Harbor Fund may have the benefit of the enhanced value. But if compensation is allowed for damages caused by the change of the water-front line, it is apparent that no reliable estimate can be made of the increase of the Harbor Fund from such sales.

It will be observed that to a considerable amount-probably one hundred and fifty thousand dollars ($150,000) will be needed for the improvement of China Basin for the accommodation of the lumber, wood, brick, and hay business, if the Harbor Commissioners are permitted to improve it.

The foregoing remarks will enable us to form some idea of the time which will be required for the completion of the work from Chesnut to Harrison Street, relying alone on the accumulation in the Harbor Fund from the net revenue.

Estimated cost of 7,000 feet of sea-wall and thoroughfare (not including the paving of the same)..

Estimated cost of eighteen piers and removal of old wharves_

Estimated amount in Harbor Fund 1st of January, 1878.Balance.

It serves at present all the purposes of a retaining wall for that part of the water front. But it is to be observed that until the new seawall is constructed along that two thousand six hundred and two (2,602) feet, the proposed thoroughfare cannot at all be opened, and the new piers which are needed can be constrcted only at an additional cost.

Additional expense will be incurred, too, in making the connections between the new sea-wall and such old portion. In our judgment true policy dictates that a proper system having been adopted, it should be steadily adhered to, utilizing, as far as possible, any old work, but not deviating from the system merely because such work has been done and may answer present purposes.

To go further into this subject would only require a repetition of the reasons for any sea-wall at all which, as was before observed, has been the settled policy of the State for the last eighteen years.

It has been suggested that the proposed work should be done in a much shorter time by an issue of bonds, secured by a pledge of all the harbor revenues.

As this view has been pressed on our consideration, and may be presented to the Legislature, we deem it advisable to submit the details involved in the proposition. It certainly is practicable to do the work in five years, but it will require an issue of one million five hundred thousand ($1,500,000) dollars of bonds. If made payable in twenty years after date of issue, and issued only as the deficit in the net revenue may require, the creation of a fund for the payment of interest and their semi-annual redemption and ultimate payment might be commenced at the end of five years—that is, first of January, eighteen hundred and eighty-three (1883).

Starting on the first of January, eighteen hundred and seventyeight (1878), with about three hundred and eighty thousand ($380,000) dollars in the Harbor Fund, with an accumulation of twenty thousand ($20,000) dollars per month, and letting the contracts so as to complete seven thousand (7,000) feet of sea-wall and thoroughfare, and fifteen of the twenty-two new piers (four being already built) at the end of five years, the following issue of bonds and payment of interest would be required:

$2,357,886 600,000 $2,957,886 380,000 $2,577,886

On 1st of January, 1879, bonds issued.

$162,148

Interest thereon at 6 per cent. per annum to 1st of January, 1880. On 1st of January, 1880, bonds issued..

$9,729

458,629

37,246

289,646

54,625

323,225

74,018

288,218

So that, estimating the net revenue at twenty thousand dollars ($20,000) per month, an accumulation of that balance will require about eleven years, and conseqently that time for the completion of the work.

It is very much to be desired that it should be completed in less time, for during the process of construction there must necessarily be considerable derangement of the wharves and streets along the water front and hindrance to travel, and it is apparent that the inconvenience will be the greater as the period is protracted.

We are not to be understood as saying that the construction of the whole of this seven thousand (7,000) feet is imperatively demanded at this moment for the accommodation of the commerce of the port. There is a continuous line of sea-wall of two thousand six hundred and two (2,602) feet extending from the south side of Pacific Street to a point fifty-two and one-half (521) feet north of Howard Street.

Interest to 1st of January, 1881, on $620,777 of bonds..
On 1st of January, 1881, bonds issued..
On 1st of January, 1882, bonds issued.
Interest to 1st of January, 1882, on $910,423 of bonds.
Interest to 1st of January, 1883, on $1,233,648 of bonds..
On 1st of January, 1883, bonds issued..

$175,618 $1,521,866

From first of January, eighteen hundred and eighty-three (1883), in order to meet the semi-annual interest on one million five hundred and twenty-one thousand eight hundred and sixty-six ($1,521,866) dollars of outstanding bonds and commence the creation of a sinking fund sufficient to redeem said bonds at maturity, there will be required a monthly deposit in the Harbor Bond Fund of eleven thousand six hundred and twenty-seven dollars and twenty-six cents ($11,627 26).

In form they must, it is presumed, be bonds of the City and County of San Francisco, as, for obvious reasons, they cannot be State bonds. It would not be prudent with an issue of bonds to such extent to attempt any reduction of the rates of dockage, wharfage, and tolls until after the year eighteen hundred and eighty-nine (1889).

After full consideration, we are not prepared to recommend the issue of bonds at this moment. If section two thousand five hundred and thirty six (2536) of the Political Code is amended as before suggested, there will be available for the prosecution of the work during eighteen hundred and seventy-eight (1878) and eighteen hundred and seventy-nine (1879) about eight hundred and sixty thousand ($860,000) dollars. This will enable the Board to construct about fifteen hundred (1,500) lineal feet of sea-wall and thoroughfare and five or six new piers, and if the next Legislature deem it advisable to have the work pushed more rapidly to completion the issue of bonds may then be provided for.

In the meantime the Board hope that by judicious management of the affairs of their trust it may prove possible that this work, so important to the commercial interests of the State, may be completed in a reasonable time without resort to the doubtful policy of a bonded debt.

Respectfully submitted,

WM. BLANDING, BRUCE B. LEE, A. M. BURNS, Harbor Commissioners.

REPORT RELATIVE TO THE PAYMENT

OF

SPECIAL COMMITTEE ON CHINESE IMMIGRATION."