An index of the development of a state is the growth and character of its public expenditures. The eminent German economist, Adolph Wagner, has stated what he calls the law of the increase of public expenditures: "Increase is both extensive and intensive; the central and local governments constantly undertake new functions, while they perform both new and old functions more efficiently and completely." The public expenditures of Texas since 1880 exhibit the tendencies asserted by Professor Wagner. While total net expenditures increased from $2,349,973 in 1881 to $16,659,844 in 1915, or by 609 per cent, those on account of education, charities and corrections, and pensions and support of soldiers' homes increased from $977,998 in 1881 to $13,866,269 in 1915, or 1317 per cent.1

Expenditures of the kind which Herbert Spencer calls protective - in other words, those for the judiciary, for the bare general and financial administrative functions of the government, and for the militia - showed a percentage decrease, as did also those for the legislature, public printing, and interest on the public debt. Except in the case of the interest item, there was an absolute increase in all expenditures, and it was especially large in the items of general administration and judiciary.

General administrative agencies in 1880 were the executive, state, and attorney general's departments; the department of insurance, statistics and history, the state health officer, and the general land office. There has been a marked development since 1880 in the establishment of those general administrative agencies whose object it is to conserve directly the economic, physical and social welfare of the citizens. These have taken the form of boards, commissions, and commissioners.

1 The only expenditures for the penitentiary which are included are those made out of the general treasury of the state. The amounts for education, charities and corrections, etc., are not net expenditures, but are a combination of expenditures and warrants drawn on the general treasury.

In 1881 a fish commissioner was authorized, and his duties were concerned with the propagation and preservation of fish.1 After 1885, and until 1895, this work was suspended, but in 1895 the office of fish and oyster commissioner was created, and regulation of the fishing and the oystering in the bays and coast waters of the state was begun.2 In 1907 the duties of this officer were extended to game protection, and his title was changed to that of game, fish, and oyster commissioner.3 This state service is self-sustaining as a result of taxes, fees, and rents of oyster beds. In 1883 the office of state engineer was created, and it lasted until 1886. It was the duty of this official to inspect the railroads of the state to see that they complied with the laws.4 This and other laws enacted at this time constituted the beginning of railroad regulation proper in Texas, the culmination of which was the establishment in 1891 of a mandatory commission with supervision over rates, service, and the issue of securities.5

In 1887 the bureau of agriculture was created and attached to the department of insurance, statistics, and history, and its function was defined as "to aid and advance the interest of agriculture in Texas."6 In 1907 this bureau was made into a separate department.7 In 1893 a livestock sanitary commission was established to deal with quarantine and other sanitary regulations affecting livestock, and in 1911 the office of state sheep inspector was created.8 The growing recognition by the state of its duty to promote the agricultural and livestock interests of the state was attested by the provision made in 1909 for the establishment of stations where experiments should be conducted in agriculture, horticulture, and animal husbandry, and by the provision made for teaching elementary agriculture in the common schools, the state normals, and in the summer schools of the Agricultural and Mechanical College, the University, and the College of Industrial Arts.1 In 1911 provision was made for the establishment of rural high schools. In 1914, following the outbreak of the European war and the consequent difficulties experienced by the farmers in the marketing of their products and in the securing of credit, provision was made for the establishment of state warehouses and for state assistance in the marketing of farm products.2 This state service is under the supervision of the commissioner of insurance and banking. Bearing also on the agricultural interests were the creation in 1909 of the state levee and drainage board, whose work looks to the reclamation for agricultural uses of the overflowed, marsh and swamp lands in the state; the establishment in 1913 of a board of water engineers, which has the administration of a general irrigation law, including the control over the waters of the state which may be used for irrigation purposes; and the creation in 1915 of the position of state forester.3 In 1915 there was appropriated $100,000 for the payment of bounties for the destruction of wild animals which are inimical especially to livestock.4

1 Laws of 1881, p. 83.

2 Laws of 1895, Reg. Sess., p. 170. Laws of 1899, p. 312. Laws of 1905, Reg. Sess., p. 128. Laws of 1907, Called Sess., pp. 233, 254. Laws of 1909, p. 325.

3 Laws of 1907, p. 254. Rev. Civil Stats., 1911, title 63, chap. 2. Laws of 1911, p. 62. Laws of 1913, Reg. Sess., p. 297.

4 Laws of 1883, p. 98.

5 Laws of 1891, p. 55. Rev. Civil Stats., 1911, title 115, chap. 15.

6 Laws of 1887, p. 98.

7 Laws of 1907, p. 127. Rev. Civil Stats., 1911, arts. 4435-4475.

8 Laws of 1893, p. 70. Rev. Civil Stats., 1911, title 124, chap. 8. Laws of 1911, p. 9. Rev. Civil Stats., 1911, title 136, Chap 1.

In 1903 the bureau of vital statistics was established and the title of the quarantine department was changed to that of the state board of health and vital statistics.5 Appropriations have increased as the scope of the board's functions have grown and as the public has realized the important character of the work. In the quarantine work, however, there has been some needless duplication by the state of the work of the Federal government. In 1907 the office of dairy and food commissioner was created, thus aligning the state on the side of the pure food movement.1 In 1911 an anti-tuberculosis commission was created and two tuberculosis colonies, now called a sanatorium, were established.2 In 1913 the state health department was empowered to engage in statewide publicity work regarding-the cause and prevention of communicable diseases, but while the law was approved, the appropriation to make it effective was vetoed by the governor.3

1 Laws of 1909, pp. 332, 221. Laws of 1913, Reg. Sess., p. 339. Laws of 1913, Called Sess., p. 98.

2 Laws of 1914, Second Called Sess., p. 2.

3 Laws of 1909, p. 136. Laws of 1911, p. 160. Laws of 1913, Reg. Sess., pp. 292, 358. Laws of 1915, Reg. Sess., p. 88.

4 Laws of 1915, Reg. Sess., p. 220.

5 Laws of 1903, p. 220; Rev. Civil Stats., 1911, title 66, chaps. 1, 2. Laws of 1911, p. 173. Laws of 1913, Called Sess., p. 191.