Gov. T. Watkins Ligon, elected in 1853, also recognized the importance of internal
improvements, but he was somewhat more cautious as to the proper role to be played
by the state in superintending them. In his 1854 inaugural address he stated:

The control of these vast interests has been by the Constitution devolved principally upon
a coordinate branch of the government—the board of commissioners of public works. Their
wisdom, I am sure, will plan out the course best to be pursued in their management and
full disposition. . . . The result of some of these enterprises which the State has liberally
fostered, has not been such as was by many anticipated when the credit of the State was
loaned for their construction. Yet, on the other hand, it may be remarked that the benefits
accruing to the State should not be measured by the direct profit or loss upon actual in-
vestment, or the amount of revenue annually derivable to the Treasury on their account.
The State is the gainer wherever the result has been an increase in the extent and facilities
of trade, because the value of the property of the State is thus increased, and the basis of
the taxation, which is its legitimate source of revenue and power, correspondingly enlarged.
This is, perhaps the chief end to which the State should mainly take in her relations to
these works. It may, indeed, be gravely considered whether any connection with such works
is desirable by the State, other than such supervisory power as may be necessary to pre-
venting abuse or misapplication of corporate privileges.²²

The Commissioners of Public Works held three meetings in 1855, and for the first
time it appeared to be paralyzed by an internal split. On 5 March it met to select the
ten state directors of the B & 0. Eight candidates received the necessary three votes,
but the voting for the other two positions deadlocked in a two-to-two tie on each of
the four nominees. As a result, the selection of the remaining two directors was made
by the state treasurer pursuant to article 7, section 3 of the Constitution.²³

Tie votes occurred again on 4 June, when the board met to appoint directors of
the C & O Canal Company. Stewart and Nelson each nominated a slate. Chamberlain
supported Stewart's nominees, and Falls supported the Nelson ticket. With no nominee
receiving the requisite three votes, that matter, too, was decided by the treasurer, who
selected Stewart's list of candidates. The next day, 5 June, the board met to elect
directors of the Northern Central Railroad and was deadlocked until the fourth bal-
lot.²⁴

In November 1855 the terms of Stewart and Chamberlain expired, and George
Peter and Benjamin Lankford were elected as their successors. At the first meeting
thereafter, on 28 December 1855, Moore N. Falls was elected president, and the com-
missioners proceeded to elect directors of the Annapolis and Elkridge Railroad, ap-
parently without any dissension. The board also adopted two resolutions requesting
the state directors of the various internal improvement companies to use all proper
means to cause the adoption of rates upon agricultural improvements and manures
"as will only be sufficient to cover the cost of their transportation."²⁵

20. Ibid., pp. 16-22. See also chapter 3.

21. Ibid., p. 21.

22. T. Watkins Ligon, "Inaugural Address," 12 January 1854, Maryland State Documents, 1854 (Annapolis,
1854), doc. C, p. 5.

23. BPW Minutes, 5 March 1855, vol. 1851-83, pp. 19-20.

24. Ibid., 4, 5 June 1855, pp. 21-22.

25. Ibid., 28 December 1855, p. 29.