gsBgswnna I
a
I
I
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eoiian;er.. lion nronoslIlOB wnicrr "in ut 3IIJIIH'-
ted lo you F i authority 10 efund the duties and
Cnc! the bonds thus received. The provinces ol
Canada and New Brunswick have also wnlicipni--d
the tult operation of the Ileal; by legislative
arrangnn nb prpsf lisely, to atimit Iree oi duty
the products of ihe Uniied State men ioned in the
fine list ol the liva y, nnd an arr.ogejneut, simi
lar to that regarding British fish, h is been mnCe
for duties now charg'-able on the products of those
provinces enumerated in the same tree list, and
introduced iherefrom into the United States ; a
proposition for refunding which will, in my judg-irm-bt.
be in l.ke manner entitled to your fa
vorable cunsnJi r atton.
There is difference of opinion between the
United States nnd (ireat Britain as to the bound
ary line or t lie Territory of VVashington adjoining
the British possessions on the Pacific, which bus
already led to difficulties on the part of the eili
lens and local authorities of the two governments.
I recommend that provision be mide for a com
mission, to be joined by one on the part of her
Britannic Majesty, for the purpose ol running and
establishing the line in controversy. Cerain sti
pulations of the ihird and fourth articles of the
treaty concluded by the United States and Ureal
Britain in 1846 regurding possessory rights of th
Hudson's B.iy Company, and property of the
Puget's Sound Agricultural Coinp.ny. have given
rise lo serious disputes, and it is important to all
concerned I bat summary aieans ol" setting litem
amicably shouid be aV vised. I have reason to
believe that an arrangement can be made on just
terms for the extinguishment of ihe rights in
qu s'ion, m.'ir cing alaa the right of the Hud
son's Bay Coanpaay to th navigation of ihe riv r
Columbia ; and I therefore suggest lo vur ci
deration the expediency af making a contingent
appropriation for lhat purpose.
France was the early and fficien' ally of the
United Stutcs in their struggle for imtepeodnce.
From that time to ihe present, wilh occasional
slight interruptions, cordjal relations oi friend
ship have existed b tween the goverjnol and
people of the two countries, Tfce kindly sen'i
ments, cherished alike by both nation, have led
to extensive social and commercial intercourse,
which. I trust, will not be interrupted or checked
by any casual event of an apparently unsatisfac
tory character. The French consul at San Fran
cisco was, not long since, brought into the United
States district court at that place, by compulsory
process, as a witness in favor of another foreign
consul, in violation, as the French government
conceives, of his jriiu.'ges under our consular
convention with Fr uice. There being no'bj.g in
the transaction wl.ich could imply any disrespect
to France or its consul, suck explanation h:.s been
made as 1 hope will be satisfactory. Subsequent
ly , misunderstanding arose on the sul j ct of the
French government having, as it appeared, ab
ruptly excluded the American minister to Spain
from passing through France on his way frum
London to Madrid. But that government h is un
equivocally disavowed any design to deny the
right of transit to tha minister of the United
States ; and, after explanations !o this effect, ho
has resumed his journey, and actually returned
through France to Spain. I herewith lay before
Congress the correspondence on this subject be
tween. our envoy at Paris and the Minister of for
eign relations of the French government.
The position of our affairs with Spain rem tins
as a: the close of your last session. Internal ag
itation, assuming very nearly the character of po
litical revolution, has recently convulsed that
country. The late ministers were violently ex
pelled from power, and m mi of very different
views in relation la its internal affairs have suc
eeed d. Since this change, there has been no pro
pitious opportunity to resume, and press on nego
tiations lor the adjustment of serious questions of
difficulty between the Spanish government and
the United States. Tbere is reason to believe
that our minister will find thepresent government
favorably inclim d than the proceeding to comply
with our just demand, and to make suitable ar
rangements for restoring harmony and presening
peac5 between the two countries.
Negotiations are pending with !) nmark to dis
continue the pr;.c'ice of levying tolls on our ves
sels and their cargoes passing through the sound.
I do not doubt that we can chin exemption there
from as a matter of right. U is admitted on all
hands, that this exaction is sanctioned, not by the
general principles of the law of nations, but only
by special conventions, which most of the com
mercial nations have entered into with Denmark.
The fifth article of our treaty ol 1826, with
Denmark, provides that there shall not be paid,
on tun vessels of the United States nnd their car
goes when passing through the Sound, higher
duties than those of the most favored nations.
This may be regarded as an implied agreement to
submit to the tolls during the continuance of the
treaty, and, consequently, may embarrass the as
sertion of our right to be rejensed therefrom.
There are also other provisions in the treaty which
ought to be' modified. It was to remain in force
for ten years, and until one year after either party
should give notice to the other of intention to ter
minate it. I deem it expedient that the contem
plated notice shiudd be giyen to the government of
Denmark.
The nival expedition despatched about two
years since for the purpose of establishing rela
tions wjih the empire of Japan, has beeu ably and
skilfully conducted to a successful termination fu
tile officer to whom it was intrusted, A treaty
opening certain of tbe poits of that populous
country has been negotiated; and in order to give
full effect thereto, it only remains to exchange
ratifications, aud adopt requisite commercial regu
lations. The treaty lately concluded between the United
States and Mexico settled some of our most em
barrassing diffjcultits with that country, but nu
merous claims upon it for wrongs and injuries to
our citizens remained unadjusted, and many new
cases have been recently added to the former list
of grievances. Our legation has been earnest
in its endeavors to obtain from the Mexican gov
ernment a favorable consideration of these claims,
but birtierto without success. This failure is,
probably, in some measure, to be ascribed to the
disturbed condition of that country. It has been
my anxious desire to maintain friendly relations
with the Mexican republic, and to cause its rights
and territories to be respected, not only by our
citizens, but by foreigners, who have resorted to
the United States for the purpose of organizing
hostile expeditions against some of the States of
that Republic. The defenceless condition in
which its frontiers have been left, has stimulated
lawless adventurers to eiubnrk in these enterprises,
and greatly increased the difficulty of enforcing
our obligations of neutrality. Regarding it as my
solemn duty to fulfil, efficiently, these obligations,
not only towards Mexico, but other foreign na
tions, I have everted all the powers wiih which I
m invested to defeat such oriminal proceedings,
and bring to punishment 'hose who, by taking a
part therein, violated our lws. The energy and
activity of our civil and military authorities have
frustrated the designs of th" who meditated ex
peditions of this character, except in two instances.
One of these, composed of foreigners, wjs at first
countenanced and aided by the Mexican govern
ment itself, it having been deceived as to their
real object. The other, small in number, eluded
too vigilance of the magistrates at San Francisco,
and succeeded in reaching the Mexican territories;
but the effective measure taken by this govern
ment compelled the abandonment of the under
taking. The commission to establish the new line be
I tween the United Slates and Mexico, according to
'the provision of the treaty of theSOth of Decern
! ber last, has been organized, and the work is ah
! ready commenced.
Our treniies with the Argentine Confederation,
' nnd with the Republic of Uruguay and Paraguay,
! secure lo us the free, navigation of the river La
i Plata, and some of its larger tributaries ; but I be
same success bas not attended our endeavors to
' open the Amazon. The reasons in favor id the
j Iree use ol that river, I had ocean ion to present
' lully, in a former message; and, cr.suh ring the
I eordi.il relations, which have long exis'ed between
this government and Brazil, it may be expected
; that pending negotiations will, eventually, reach a
' favorable result.
Convenient means ol transit, between the seve
ral parts of a country, are in t only desirable for
the olj cts of comm rci il und personal commu
! uication, but essential to its existence under one
government. Separated as are the tlaniic and
Pacific coasts of the United Slates by the whole
breadth of the continent, still ihe inhabitants of
each are closely bound together by community ol
origin and insti'utions, and by strong attachment
to the Union. Hence I be constant nnd increasing
ioterc uise, and vast interchange of commercial
productions, between these remote divisions of lhr
Republic. Al the present time, the most pracii
cable and oidy commodious routes for communi
cation between them are by the way of the Isthmus
of Central America. Jt js ihe duty ol the govern
or nt to si cure these av nues against all danger
ol interruption.
In lelate n to Central A merica, perplexing ques
tions xited between the United States and Great
IJr'i.un at the lime of the c ssion of California.
These, as well as quesions which sobs qmntfy
, arose concerning inter-oceanic communication
across the Isthmus, were, as it was supposed, ad
justed ' the treaty of April 19, 1850; lu', unfor
tunately, they Imve been re-opened by seiious
; misunderstanding as to the import of some of its
provisions, a re adjustment ofwh-ch is now under j
consideration. Our minister at London has made j
strenuous ejfoi ts to accomplish thjs desirable ob
ject, Ifcit has not yet found i: possible to bring the
negotiations to a termination.
As incidental to these questions, I deem it
proper lo notice an occurrence which happened in
Central America, near the close of the last session
jf Congress. So soon as the necessity was per
ceived of establishing inter oceanic communica
tions across the Isthmus, a company was organ
ized, under authority of the State pf Nicaragua,
but composed, for the most part, of citizens of the
United Stales, for the purpose of opening such a
transit way, by the river Sun Juan and Lake
Nicaragua, which soon became an eligible and
much used route in the transportation of our citi
z ns and their property between the Atlantic and
Pacific. Meanwhile, and in anticipation of the
completion and importance of tins transit way, a
number of adventurers had taken possession of
the old Spanish port at the mouth of the river
i San Juan, in open defiance of the State or Statee
of Central America, which, upon their becoming
independent, had rightfully succeeded to tue local
sovereignty and jurisdiction of Spain. These ad
venturers undertook to change the name of the
place from S la Juan del Norte to Grey town, and,
thoui at fust pretending to act as tbe subjects of
the fictitious sovereign of the Musquito Indians,
i they subsequently repudiated tbe control of any
; power whatever, assumed to adopt a distinct po
I litical organization, and declared themselves an
independent sovereign State. If, at some time, a
faint hope was entertained that they might become
a stable and respectable community, that hope
soon vanished. They proceeded to assert un
founded claims !o civil jurisdiction over Punta
Arenas, a position on the opposite side of the
river San Juan, which was in possession, under a
li' le wholly independent of them, of citizens of the
United States, interested in the Nicaragua Transit
Company, and which was indispensably necessary
to the prosperous operation of that route across
the Isthmus. The company resisted their ground
less claims ; whereupon they proceeded to destroy
some of its buildings, and attempted violenty to
dispossess it.
At a later period they organized a strong force
for the purpose of demolishing the establishment
at Punta Arenas, but this mischievous design was
defeated by the interposition of one of our ships
of war, at that time in the harbor of San Juan.
Subsequently to this, in May last, a bodv of men
from Grey town crossed over to Punta Arenas,
arrogating outhority to arrssi, on the charge of
murder, a captain of one of the steamboats of the
Transit Company. Being well aware that the
claim to exercise jurisdiction there would be re
sisted then, as it had been on previous occasions,
they went prepared to assert it by force of arms.
Our minister to Central America happened to be
present on that occasion. Believing 'hat tbe cap-
j tain of the steamboat was innocent, for he wit
j nessed the transaction on which the charge was
j founded, and believing, also, that the intruding
j party, having do jurisdiction over the place where
I they proposed lo ma'xe the arrest, would encoun
j fer desperate resistance if they persisted in their
: purpose, he interposed, effectually, to prevent
j violence und bloodshed. The American minister
afterwords visited Greytown, and whilst he was
j" there a mob, including certain of the so-called
j public functionaries of the place, surrounding the
, house in which he was, avowing that they had
, come to arrest him by order oi some person ex
ercising the chief autorny. While parleying
with them, he was wounded by a missile from the
crowd. A boat, despatched from ihe American
steamer M Northern Light " to release him from
the perilous situation in which he was understood
i to be, was fired into by the town guard and c.om
! pelled to return. These incidents, together with
! the known character of the population of Grey,
j town, and iheir excited state, induced just appre
, hensions that the lives and properly of our citi
' zliis at Punta Arenas, would be in imminent
j danger after the departure ol (he steamer with
i her passengers for New York, unless a guard was
j left lor their protection. For this purpose, and in
: order to insure the safety of passengers and prop-
er'y passing over the route, a temporary force
was organized tit considerable expense to the
j United States, for which provision was made t
j the last session of Congress.
This pretended community a heterogeneous
, assemblage, gathered from various coun'nes, and
j composed for the most part of blacks and persons
j of mixed blood had previously given other indi
j cations of misch'evous and dadgerous propensi
j ties. Early in the same month, property was
clandestinely abstracted from the depot of the
j Transit Company and taken to Greytown. The
piuuuerers ouinineu sneuer mere, an! their pur
suers were driven back by its peoole, who not only
protected the wrongdoers and shared the plunder,
but trated with rudeness and violence those who
sought to recover their properly.
Such, in substance, are the facts submitted to
my cons. deration, and proved bp trustworthy evi
dence. I could not douU that the case demanded
the interposition of this Government. Justice
required that reparation should be made for so
many and such gross wrongs, and that a course
v of insolence and plunder, tending directly to the
insecurity of the lis of numerous travellers,
and nf the rit-b treason a rxdoiiu n" to our citizens.
passing over this transit way, should b peremp-
tonlv arrmied. Whatever it might be in other
resprcts, the community in question, in power to rent fiscal year are not likely to equul in amount
do mischief, was not despicable. I; was well pro- j those of tbe last, yet they will undoubtedly ex
vided with ordnance, small arms and ammunition. ceed the amount of xpepditures by at least fifteen
and might easdy seize on the unarmed boats, , millions of dollars. 1 shall, therefore, continue
freighted with millions of property, which passed to direct that the surplus revenue be applied, so
lmni dailv uiihin it rnrh li did not nrofess i tar as can be judiciously and ecunomicallv done.
to belong to buy regular government, nnd had, in
fact, no recognisi d dependence on or connexion j w hich, at the commencement of the last fiscal
with any one to which the United Stales or their year, was sixty-seven millions three hundred and
iijured citizens might apply for redress, or which I lirtrly th wsand six hundred and twenty-eight dol
could be held responsible in any way for the out- ' lars ; of which there had been paid on the twen
rages ex mmiiled. Not standing before the world j ti. th day of November, 1854, the sum of twenty
in the attitude of an organiz d political society, j two millions three hundred and sixty-five thousand
being neither competent to exercise the rights nor j one hundred and seventy-two dollars ; leaving a
to discharge the obligations of a government, it j balance of outstanding public tlebt of only forty
was in fact a marauding establishment, too dan- ) four millions nine hundred ami seventy-five thou
gerous to be disregarded, and too guilty to pass j sand four hundred and fifly-six dollars, redeem-
unnunished, and yet incapable ol being treated in
any other way than as a piratical resort ol out- j
laws, or a camp of savag s, depredating on emi- j
grant trains or caravans and the frontier settle-
ments of civilized Stales.
Seionablc notice was given to the people of
Grey town ihnt this Government required them to
repair the injuries they had done to our citizens
and to make suitable apology
for '.heir insult of
our Minister, and that a sbip-of-war would be
despatched thither to enforce compliance with
these demands. But the notice passed unheeded.
Thereupon a commander of the navy, in charge
of the sl-.op of-war " Cyane," was ordered to
repeat the demands, and to insist upon a compli
ance therewiih. Finding that neither the popu
lace, nor those assuming to have authority over
them, manifested any disposition to make the re
quired reparation, or even loolfer excuse for their
conduct, he warned ihem, by a public proclama
tion, that il they did not give satisfaction within
a time specified, he would bombard the town. By
this procedure he afforded them opportunity lo
provide for their personal safety. To those also
who desired to avoid loss of property in the pun-
ishment about to
town, he furnished
be indicted on the offending
the means of removing their
effects by the boats of his own sbip, and of a
steamer which he procured and tendered to ihem
for that purpose. At length, perceiving no dis
position on the part of the town to comply with
his requisitions, he appealed to the commander of
her Brittanic Majesty's schooner " Bermuda,"
who was seen to have intercourse, and apparently
much influence, with the leaders among them, lo
interpose and persuade them fo take some course
calculated to save the necessity of resorting to the
extreme measure indicated in his proclamation;
but that officer, instead of acceding to the request,
did nothing more than to protest against the con
templated bombardment. No steps of any sort
were ft: ken by the people to give the satisfaction
required. No individuals, if any there were, who
regarded themselves as not responsible for the
misconduct of the community, adopted any means
to separate themselves from the fate of the guilty.
The several charges on w hich the demands for
redress were founded had been publicly known to
all for some time, and were again announced to
them. They did not deny any of these charges ;
ihey offered no explanation nothing in extenua
tion of their conduct; but contumaciously refused
to hold any intercourse with the commander of i
the " Cyane." By their obstinate silence they
! seemed rather desirous to provoke chastisement
than to escape it. There is ample reason to be-
lieve that this conduct of wanton defiance on their
part is imputable chiefly to the delusive idea that
the American Government would he deterred
from punishing them through fear of displeasing j
a formidable foreign Power, w hich they presumed
to tbmk looked wiih complacency upon their ag
gressive and insulting deportment towards the
United Stales. The "Cyane" ot ieng'h fired
upon the town. Before much injury hnd been
done, the fire was twice suspended, in order to
afford opportunity for an arrangement, but this
was dedined. Most of the buildings of the place,
ol little value generally, were, in the sequel, de
stroyed, but, owing to the considerate precautions
taken by our naval commander, there was no
destruction ol life.
When the ' Cyane " was ordered to Central
America, it was confidently hoped and expected
lhat no occasion would arise for "a resort to vio
lence and destruction of proper.y and loss of
lile." Instructions to that effect were given to
her commander ; and no extreme act would have
been requisite had not the peonje themselves, by
iheir extraordinary conduct in the affair, frustrated
all the possible mild measures for obtaining satis
faction. A withdrawal from the place, the object
ol his visit entirely defeated, would, under the
circumstances in which the commander of the
Cyane found himself, have been absolute abandon
ment of all claim of our citizens for indemnifica
tion, and submissive acquiescence in national
indignity. It would have encouraged in these
lawless men a spirit of insolence and rapine most
dangerous to the lives and property of our citizens
at Punta Arenas, and probably emboldened them
to grasp at the treasures and valuable merchan
dise continually passing over the Nicaragua route.
It certainly would have been most satisfactory to
me if the objects of the "Cyane's" mission could
have been consummated without any act of public
lorce ; but the arrogant contumacy of the offend-
ers rendered it impossible to avoid the alternative,
either to break up their establishment, or to leave
them impressed with the idea that they might per
severe with impunity in a career of insolence and
plunder.
This transaction has been the subject of com
plaint on the part of some foreign powers, and
has been characterized wiih morn of harshness
lhan of justice. If comparisons were to be insti
tuted, it would not be difficult lo present repeated
instances in the history of States, standing in the
very front of modern civilization, where commu
nities, far less offending and more defenceless
than Greytown, have been chastised wiih much
greater severity, and where not cities only have
been laid in ruins, but human life has been reck
lessly sacrificed, and the blood of the innocent
made profusely to mingle with lhat of the guilty.
Passing from foreign to domestic affairs, your
attention is naturally directed to the financial con
dition of the country, always a subjJct of general
snterest. bor complete and exact information
regarding the finances, and the various branches
ol the public service connected tnerewith, I refer
you to the report ol the Secretary of the Treasu
ry ; from which it will appear, that the amount of
revenue during the last fiscal year, from all
sources, was seventy-three millions five hundred
and forty-nine thousand seven hundred and five
dollars; and that the public expenditures for the
same period, exclusive of payments on account of! corresponding consideration was not bestowed on
the public debt, amounted to fifty-one millions the officers, who, in view of their character and
eighteen thousand two hundred and forty-nine ; services, and ihe expenses to arh'ch ihey art
dollars. During the same period, the payments ! necessarily subject, receive at present what is, in
I made in redemption of the public debt, including
mieresi anu premium, amounted to twenty-four i me vaiuaoie services constantly renaerea oy manners, producing injury or death to passenrers
miliums three hundred and thirty-six thousand ; he Army, and its inestimable importance, as the j on the high seas, beyond the jurisdiction of hUv of
three hundred and eighty dollars. To the sum j nucleus around w hich ihe volunteer forces of the the States, and where such delinquencies can" be
total of the receipts of that year is to be added a ! nation can promptly gather in the hour of dagger, ; reached only by the power of Congress ? The whole
balance remaining in tbe Treasury af Use com- j sufficiently attest ihe wisdom of maintaining a subject is earnestly commended to your considera
tions ment thereof, amounting to t wenty. one mil- ; mdilary peace establishment ; but the theory of tion.
lions nine hundred and forty-two thousand eight I our system and the wise practice under it, require j The report of the Postmaster General to which
hundred and ninefy-two dollars; and at ihe close 'hat any proposed augmentation, in lime of peace, you are referred for many interesting details in re
of the same year, a corresoondina balance amount- I be only commensurate with our extended limits lation to this important arid rapidly extendintr.r-.iieh'
ing lw nty millions one hundred and thirty-seven
1 thousand nine hundred and sixty seven dollars of
! receipts above xnendi'ures. also remained in the
j Treasury . Ai. hough m the opiniou of the Sec-
! rotary of the I reasury, the 'tceipts of the cur-
I to the reduction of the public debt, the amount of I
sana lour imnurca
able at different
able at uinerent penocs wnnin tourieen years.
There are also remnants of other government
stocks, most of which arc already due, and on
which the interest has ceased, but which have not
yet been presented for pay ment, amounting to two
hundred and thirty-three thousand one hundred
and seventy-nine dollars. This statement exhi
bits the fact, that the annual income of the Gov-
j ernment greatly exceeds the amount of its public
debt, which latter remains unpaid, only because
the time of payment has not yet matured, and it
cannot be discharged at once, except at tho option
of public creditors, who prefer to retain the S' cu
rilies of the United States ; and the other fact,
not less striking, that the annual revenue from all
sources exceeds, by many millions of dollars, the
amount needed for a prudent and economical ad
ministration of the Government.
The estimates presented to Congress from the
different Executive Departments, at the last ses
sion, amounted to thirty-eight million lour hun
dred and six thousand five hundred and eighty
one dollars ; and the appropriations made, lo the
sum of fifty-eight million one hundred and sixteen
thousand nine hundred and fifty-eight dollars.
Of this excess of appropriations over estimates,
however, more than twenty millions was applica
ble to extraordinary objects, having no reference
to the usual annual expenditures. Among these
objects, was embraced ten millions to meet the
third article of the treaty between the United
States and Mexico ; so that, in fact, for objects of
ordinary expenditure, tne appropriations were
limited io considerably less lhan forty millions of
dollars. I therefore, renew my recommendation
for a reduction of the duties on imports. The
report of the Secretary of the Treasury presents
a series of tabies, showing tbe operation of the
revenue system for several successive years', and
as the general principle of reduction of duties
wilh a view to revenue and no; protection may
now be regarded as the settled policy of the
country, I trust that little difficulty will be en
countered in settling the details of a measure to
that effect.
In connexion with this subject, I recommend a
change in the laws, which recent experience has
shown to be essential to the protection of the
government. There is no express provision of
law, requiring the records and papers of a public
character, of t he several officers of the government,
lo be left in their offices for the use of their suc
cessors, nor any provision declaring it felony on
their part to make false entries in (be books, or
return false accounts. In the absence of such
express provision by law, the outgoing officers, in
many instances, have claimed and exercised ihe
right to trade into thrdr own possession, important
books and papers, on the ground that these were
'heir private property ; and have placed them
beyond the reach of the government. Conduct
of this character, brought in Several instances to
the notice of ihe present Secretary ol the Treasu
ry, naturally awakened his suspicion, nnd resulted
in the disclosure fliat at four ports, namely, Os
wego, Toledo, Sandusky, and MilwaUkie, the
treasury had, by false entries, been defrauded,
within the four years next preceding March, 1853,
of the sum of one hundred and ninety-eight thou
sand dollars. The great difficulty with which the
detection of these frauds bus been attended in
consequence of the abstraction of books and papers
by the retiring officers, and the facility wilh which
similar frauds in the public service may be per
petrated, render the necesity of new legal enact
ments, in the respects above referred to, quite ob
vious. For other material modifications of the
revenue laws which seem to me desirable, I refer
you to the report of the Secretary of the Treasury.
That report, and the tables which accompany it,
furnish ample proofs of the solid foundation on
which the financial security of the country rests,
and of the salutary influence of the independent
treasury system upon commerce and ul! monetary
operations.
The experience of the last year furnishes ad
ditional reasons, I regret to say, of a painful char
acter, for ihe recommendation heretofore made, to
provide for increasing (ho military force employed
in the territory inhabited by the Indians. The
settlers on the frontier have suffered much from
the incursions of predatory bands, and large
parties of emigrants fo our Pacific possessions have
been massacred with impunity. The recurrence
of such scenes can only be prevented by teaching
these wild tribes the power of, and their responsi
bility to, the United States, brom the garrisons
of our frontier posts, it is only possible to detach
troops in small bodies ; and though these have on
all occasions displayed a gallantry and a stern de
votion to duty, which on a larger field would hav ?
commanded universal admiration, they have usual
ly suffered severely in these conflicts with superior
numbers, and have someiiines been entirely sacri
ficed. All the disposable force of the army is
already employed on this service, and is known
to be wholly inadequate to the protection which
should be afforded. The public mind of the country
has been recently shocked by save.ge atrocities
committed upon defenceless emigrants and border
settlements, and hardly less by tha unnecessary
destruction of valuable lives, where inadequate
detachments of troops have undertaken to furnish
th 2 needed aid. Without increase of the military
foice, these scenes will be repeated, it is to be
feared, on a larger scale, and with disastrous con-
sequences, congress, t am sure, win perceive
j that the plainest duties and responsibilities of gov-
ernment are involved in this question, and I doubt
not that prompt action may be confidently antici
pated when delay must be attended by such fear
ful hazards.
The bill of the last session, providing for an in
crease of the pay of the rank and file of the army
has had beneficial results, not only in facilitating
enlistments, but in obvious improvement in the
class of men who enter the service. I regret that
my judgment, inadequate compensation.
and fron'icr relations. While scrupulous?
y ad-
hering to this principle, 1 find, in existing circum
stances, a necessity for increase of our military
i force, and it is believed that four new rrgtmcnts,
tti rA III lintrv onil fn ..f mounted men. will ue
1 n o v v i iiikiioi f uuu - ---
sufficient to meet the present . Agency, il were
necessary carefully to weigh the cost in a case
of such urgency, it would be shown thai the ad
ditional expense would be comparatively light.
With the increase of the numercial force of the
army shouid, I think, be combined certain mea
surcs of reform In its organic arrangement und ad
ministration, ihe present organization is tne re
sult of partial legislation often directed to special
objects and interests ; and the laws regulating
rank and common, having been adopted many
years ago from the Biitish code, are not always
applicable to our service. It is not surprising,
therefore, that tho system should be deficient, in
the symmetry and simplicity essential to the har
monious working oi its several parts, und require
a careful revision.
The present organization, by maintaining large
staff corps or departments, separates many offi
cers from that close connection with troops, and
those active duties M. the field, which are deemed
requisite to qualify them for the varied responsi
bilities of high command. Were the duties of the
army staff mainly discharged by officers detached
from their regiments, it is believed lhat the special
service would be equally well performed, and the
discipline and instruction of ihe army be iinproy
ed. While due regard to the security of the rights
of officers, and to the nice sense of honor should
be cultivated among them, would seem to exact
compliance with ihe established rule of promotion
in ordinary oases, still it can hardly be doubted
that the range of promotion by selection, which is
now practically confined to the grade of general
officers, might be somewhat extended wilh benefit
to the public service. Observance of thp rule of
seniority sometimes leads, especially in time of
peace, to the promotion of officers who, after
meritorious and even distinguished service, may
have been rendered by age or infirmity incapable of
performing active duty, and whose advancement,
therefore, would tend to impair the efficiency of
the army. Suitable provision for this class of of
ficers, by the creation of a retired list, would re-
medv the evil, without wounding the just pride of
i . . i J ,
men who, by past services, have estab ished a
v , , .
uiaiui to nign consiaeranon. in again commend
ing this measure to the favorable consideralion of
Congress, I would suggest that the power of plac
ing omcors on the retired list oe limited to one
year. The practical operation ol the measure
would thus be tested, and if, afier, the lapse of
years, there should be occasion lo renew the pro
vision, it can be reproduced with any improve
ment which experience may indicate. The pres
ent organization of ihe artillery into regiments is
liable to obvious objections. The service of ar
tillery is that of batteries, and nn organization of
batteries into a corps ol artillery would be more
consistent with the nature of their duties A large
, - . . . ...
part of the troops now called artille ry are , and
have been, on duty as infantry ; the distinction
between the two arms being merely nominal.
This nominal artillery in our service is entirely
disproproiionate to the whole force, and greater
lhan the wants of ihe country demand. 1 there
lore commend ihe discontinuance of a distinction,
which has no foundation in either the arms used
or the character of the service expected to be
performed.
In connection with the proposition for the in
crease of the army, I have presented these sug
gestions with regard to certain
measures ol re-
j form, as the complement of a system, which
j would produce the happiest results from a given
j expenditure, and which I hope may attract ihe
i early attention, and be deemed worthy of the ap-
proval ot Longress.
The recommendation of ihe Secretary of the
Navyj having reference lo more ample provisions
for i he discipline and general improvement in the
character of seamen, and for the re-organization
and gradual increase of the Navy, I deem emin
ently worthy of your favorable consideration.
The principles, which have controlled our policy
in relation to the permanent military force, by sea
and land, are sound, consistent with the theory of
our system, and should by no means be disturbed.
But limiting the force to the objects particularly
set forth in ihe preceding part of this message, we
should not overlook the present magnitude and
prospective extension of our commercial marine,
nor fail to give due weight to the fact, besides the
two thousand miles of Atlantic seaboard, we have
now a Pacific coast, stretching from Mexico to the
British possessions in tho North, teeming with
wealth and enterprise, and demanding the constant
presence of ships of war. The augmentation of
the Navy has not kept pace with the duties pro
perly and profitably assigned to it in time of peace,
nnd it is inadequate for t lie large field of its op
erations, not merely in the present but still more
in the progressively increasing exigencies of the
wealth and commerce of the United States. 1
cordially approve of the proposed apprentice sys
tem for our national vessels, recommended by the
Secretary of the Navy.
The occurrence, during the last few months, of
marine disasters of ihe most tratjic nature, involv
ing great lost of human life, has produced intense
emotions of sympathy and sorrow throughout the
country. It may well be doubted whether all
these calamitious events are wholly attributable
lo the necessary and inevitable dangers of the sea.
Tbe merchants, mariners, and ship-builders of the
United Slates are, it is true, unsurpassed in far
reaching enterprise, skill, intelligence and cour
age, by any others in tho wot Id. Bui1, with the
increasing amount of our commercial tonage in
the aggregate, and the larger size and improved
equipment of the ships now constructed, a defi
ciency in the supply of reliable seamen begins to
be very seriously felt. The inconvenience may,
perhaps, be met, in part, by due regulations for
the introduction, into our merchant ships, of in
dented apprentices; which, while it would afford
useful and eligible occupation to numerous young
; men, would have a tendency to raise the charac
j ter of seamen as a class. And it is deserving of
j serious reflection, whether it may not be desirable
to revise the existing laws for the maintenance of
j discipline at sea, upon which the security of life
j and property on the ocean must to so"great an ex-
tent depend. Although much attention has at
; ready been given by Congress to the proper con-
struclion and arrangement of steam vessels and
all passenger ships, still it is believed that the
achievments of science ?nd mechanical skill in
j this direction have not been exhausted. No good
I reason exists for the marked distinction, which
; appears upon our statutes between the laws for
i protecting life and property at sea, and those for
protecting Ihem on land. In most of. the States
j severe penalties are provided to punish conductors
of trains, engineers, and others employed in the
j transportation of persons by railway, or by steam
: boats -on rivers. Why should not the same i,rmr.;.
J pie be applied to acts of insubordination, cowardice
or other misconduct on the part of masters and
j of the public service, shows that the expenditure of
tbe vear endiner June 30. lftr.i
dred" and thirty-three thousand fOUr De W
eighty-three dollars of balance due to f "Undr w
amounting to eight million seven hnAJ '
t UOMI1U J1111V 11U1IUI L H Hi I
ven dollars
lei
toss reeoints durinrr tha :mA mj.j
six million nine hundred and fifty-five tho2l
hundred and eighty-sL dollars:" exhibiti!" 5,
penditnre over income of one million sevni
and fifty-five thousand three hundred and
one dollars, and a diminution of deficiency lt?'
pared with the hwt year, of three hundred'an?
one thousand seven hundred and fifty-sir a:-
- . . . . ly 1 1-1 II w I
the year ending June 30, 1854, over the py:
year, was nine nunorea ana seventy thousand '
hundred and ninety-nine dollars. propon
increase, however, can be anticipated for
year, in consequence of the act of Congsg rf 't
OS ISriJ. urovidinor for increased
-v, x -- ""'lasat),,,
all postmasters. From these statements it is to
ent that the Post Office Department, instead rf
fraying its expenses, according to the desi at
time of its creation, is now, and under exists i
must continue to be, to no small extent, a i'
upon the general treasury. The cost of mail tr
portation, during the year ending June 30,
exceeds the cost of the preceding year by fcur'
dred and ninety-five thousand and MrcM?
dollars. I again call your attention to die. si
of mail transj ortati on by ocean steamers, and
mend the suggestions of the Postmaster Gtasi
your early attention.
During the last fiscal year eleven million sereat
thousand nine hundred and thirty -five acres ui
public lands have been surveyed, and eight mill,
one hundred and ninety-thousand and seventy
acres brought into market. The number of
sold is seven million thirty-five thousand seven W
dred and thirty-five, and the amount received tU
for nine million two hundred and eighty-lite tl,
sand five hundred and thirty-three dollars.
aggregate amount of lands sold, located under m.
it. -try scrip and land warrants, selected as swa,
lands by States, and by locating under grani (,
roads, is upwards of twenty-three millions of
The increase of lands sold, over the previous year,
about six millions of acres ; and the sales dttrffittL
; i- 1 u e
traordtnary result of hve
r i j e
exceeding ly nearly four
two hrst quartets ot the current year present thvn-
ling by nearly four millions of acres the a
of the corresponding quarters of the last year, tW
increasing to an extent unjiaralled during any hi
period in our past history the amount of revsm
provided from this soun-e for the Federal Trojan
The eommernbibh' noliev nf flin lnrammai L
. j .vIIHIHL.l
relation to setting apart public domain for tha
who have served their country in time of w;ir, t
illustrated by the fact ; that since 1790 no
thirty millions of acres have been applied u.Vu
object.
The suggestions, which I submitted in my annual
message of la-st year, in reference to grants of lan,
in aid of the constructions of railways, wore km fu
and explicit, than the magnitude of the subject nj
subsequent developments would seem to ren.l
proper and desirable. Ut tho soundness of t
principle then asserted with ygard to the liniit:iti:
of the power of Congress, I entertain no doubt; U:
in its application it is not enough that, the value f
lands in a particular locality may be enhanced; dm
in fact, a larger amount of money may probably g
received, in a given time, for alternate sections, thai
could have been renriscd for all the sections, withnot
the impulse and influence of the proposed mum
ments. A prudent proprietor looks beyond limits
sections of his domain, beyond present result, totlw
ultimate effect which a particular line of polKj
likely to produce upon alibis possesstom awi
terests. The government, which is trustee, M ai
matter, for the, people of the States, is booaitetab
the same wise and comprehensive view. Priom
and during the last session of Co;igrss, BBSna t
thirty millions of acres of land were, withdrawn fm
public sale with a view to applications! for grass tl
this character pending before Congress,
A careful review of tho whole sulij'ci W m
to direct that all such orders be abrogated, and ibt
lands restored to market ; and instructions en
immediately given to that effect. The applica
tions at the last session contemplated the coiulmc-tion-
of more than five thousand miles sf an
and grants to the amount of nearly Isjreatf B
lions of acres of the public domain. Even ic
mitting this right on the part of Congress lob
unquestionable, it is quite clear that tbe propws
grants would be productive of good, and not mi.'
The different projects are confined, for ihe p
sent, to eleven States of the Union, and one T
ritory The reasons assigned for tbe gw"i
show that il is proposed to put the works ffdilf
in process of construction. When we nfK.
that since the commencement of the construct:
of railways in the United Stales, sMmutaitdii
they have been by the largfi dividends realist
from the earlier works over the great lliorii;
fares, and between the most important poinM
commerce and population, encouragi d by Si
legislation, and pressed forward by the amazi.
energy of private enterprise, only seventeenth
sand miles have been completed in all the S
in a quarter of a century ; when we see ine Pf
pled condiiion of many works commenced a"1"
prosecuted upon what were deenrvd to be sou
principles, and safe calculations ; when t&
template the enormous absorption of capital
drawn from the ordinary channels of busiW
the extravagant rates of interest at this pf
paid to continue operations, ihe bankrupt
not merely in money, but in character, and'11
inevitable effect upon finances generally ; c
be doubled that the tendency is torunloW'
in this matter ? Is it wise to augment slF
by encouraging hopes of sudden wealth eipW
to flow from magnificent schemes depended J
the action ol Congress ? Does the P'r'l'f.
has produced such results, ncd to be s,MD"i
or checked ? Is it not the better rule to le"e
these works to private enterprise, regulate,1
when expedient, aided, by the co operaU
State ? If constructed by private capital
stimulant and check go together, and forni''
salutary restraint against speculative schema iaa
extravagance. But it is manifest that,"'"1.1
most effective guards, there is danger ol g0"
too fast and loo far.
We may well pause before a proposition coo
plating a simultaneous movement for the c00!
tion of railroads, which, in extent, w ill c1ual,I
sive of the great Pacific road and all its br
nearly oae-third the entire length of such
now completed, in the United States, and
cannot cost, with equipments, less than one buw
and fifty millions of dollars. The dangers W
result from combinations of interests of this f
actor, can bnrdlv ll nvor ftinmted. .
' J ' - thp K
curate Knowledge, tbe comprehensive B
which shall discriminate between the relative
curate knowledge, the comprehensive '"
... - . Jm
'
Wlll.li r. t . , , I I ,i..w. .... 1 . , , Wi It
90
of these 28 nrooosed roada. in eleven
4
where end ? If to enable these companies w
cute their proposed works, it is necessary tn
aid of the general government be primarily J.
the policy will preseut a problem so coniprrjjj
in its bearings, and so important to ou-.P?'1 ft
social well being, as to claim, in anticip&J
severest analysis. Entertaining these views,
w ith satisfaction to the exqerience and action
last session of Congress, as furnishing ftSsUf")1in,
the subject will not fail to elicit a
toheit a careiu. .v
nation and rigid scrutiny.
Tt wa mv irtritj-.r in TrAsenL On tfllS
- " T -' w i. ,.--. ... ..v -- - j , -
'.. r 1 mllttill'1
some Suggestions regarding iuierui i