of accident is seriously curtailed before it reaches the beneficiary.  These three considerations clearly suggest the lifting of this whole operation out of the courts and the sphere of legal disputation.  And then there is a broader principle which must be recognized.  There is no characteristic of our civilization so marked as the element of interdependence as between social units.  We are all dependent upon our fellows in one way or another.  Some occupations, however, are more hazardous than others and the rule of the past in compelling those engaged in dangerous activities to bear unaided the burden of this great risk, is not right.  The Workmen’s Compensation Law in this state, which, however, lacks the compulsory feature, has made steady growth in popularity.  The heavy decrease in rates clearly indicates economy and efficiency in the administration of the state liability board of awards.  The compulsory feature, however, should at once be added.  I respectfully but very earnestly urge its adoption amendatory of the present law with such other changes as experience might dictate.

“The objective to be sought is the fullest measure of protection to those engaged in dangerous occupations with the least burden of cost to society, because after all the social organization must pay for it.  The ultimate result of this law will be the reduction in death and accident because not only the humanitarian but the commercial consideration will suggest the necessity of installing and maintaining with more vigilance modern safety devices.

“Government as a science must make its improvement along the same practical lines which develop system, simplification, classification of kindred activities, and better administrative direction in the evolution of business.  A private or corporate enterprise is compelled to promote in the highest degree both efficiency and economy because its income is subject to the hazards of business.  Government without this spur of necessity because its revenue is both regular and certain, does not effect reorganizations and combine common activities so readily.  One reason, of course, is that new legislation is required and that is not easy at all times.  Wherever human energies are now being directed toward more efficient public service, we find the consolidation under one administrative unit or bureau of all departments which deal either in direct or different manner with the same general subject.  Investigation develops many duplications in both labor and expense in the departments of the state.  No business institution would continue such a policy and recognizing now the importance of conducting the business of the commonwealth along the same modern and efficient lines of private and corporate operations, there is submitted herewith to your honorable body two recommendations which, in my judgment, are of tremendous importance, namely, the creation of an Industrial Commission and a Department