THE 
 
 STATE OF THE UNION: 
 
 COMPLETE DOCUMENTARY HISTORY 
 
 THE PUBLIC AFFAIRS OF THE UNITED STATES, 
 
 FOREIGN AND DOMESTIC, 
 
 FOR THE YEAR 1854, 
 
 WASHINGTON: 
 
 PUBLISHED BY TAYLOR & MAURY 
 
 1855. 
 
Entered according to act of Congress, in the year 1855, by 
 
 TAYLOR &. MAURY, 
 
 In tlic Clerk's office of tlie District Court of the District of Columbia. 
 
PREFACE. 
 
 It is the design of this volume to embody in a convenient 
 form the interesting and valuable information contained in 
 the Executive Documents communicated to Congress at the 
 commencement of its session, in accordance with the con- 
 stitutional provision which requires the President to make 
 an annual report to that body of the state of the Union. 
 
 The annual message of the President and the reports of 
 the Departments contain matter of interest to every Amer- 
 ican citizen ; valuable for immediate use and for future refer- 
 ence. With the documents annexed, they are too voluminous 
 to appear in the newspapers, and only a few of the most 
 important are printed even in the leading political journals 
 of the great cities. They thus reach comparatively few of 
 the large number who are entitled to be made acquainted 
 with their contents ; and them in a form not convenient for 
 preservation. To separate what is of permanent interest in 
 these documents from what is temporary and unimportant — 
 to arrange it and make it easy of reference in a volume which 
 every one would be glad to possess and preserve — has seemed 
 to the editor a work of sufficient importance to justify the 
 preparation of the volume now submitted to tlie public. 
 
 The contents of the work are exclusively of official au- 
 thority. The reports of the Heads of Departments and those 
 of some of the most important bureaus are given entire, and 
 constitute the body of the work. 
 
PREFACE. 
 
 For the chapter on the Coast Survey we have been indebted 
 to the politeness of the Superintendent, under whose direc- 
 tion it wa« prepared. 
 
 In the chapter on Foreign AflFairs, we have given all the 
 documents necessary to illustrate the several topics discussed 
 in this connexion in the Presidext's message. 
 
 The Appendix contains an abstract or notice of every 
 document annexed to the reports, and the most important 
 gtatements and tables entire. 
 
 At the close will be found a very full Index to the contents 
 of the volume; containing a complete synopsis of every 
 chapter, l^esides a particular reference to the several topics 
 of each under their initial letters. 
 
CONTENTS. 
 
 I. The rREsiDENTs Message. 
 
 Message from the President of the United States to the two houses of 
 Congress at the comnienceiuent of the second session of the Thirty- 
 third Congress. December 4. lSo4 1 — 25 
 
 Correspondence accompanving the Message '23 — M 
 
 n. The Trkasirt. 
 Keport of the Secretary of the Treasury on the State of the Finances 3i — 54 
 
 III. The Arsiv. 
 Eeport of the Secretary of War 55 — S4 
 
 IV The Natv. 
 Repon of the Secretary of the Navy 85 — 111 
 
 V. The Post Office. 
 Postmaster General's Report ]12— 133 
 
 VI. The I.VTEKIOK. 
 Report of the Secretary of the Interior 140 — 157 
 
 ^^I. The Pcblic Lasds. 
 Repon of the Commissioner of the General Land Office 15S — 179 
 
 VlU. ISDIAN ArFAlRS. 
 
 Report of the Commissioner of Indian Affairs 150 — 2<>5 
 
 IX. The Pensio.v Office. 
 Repon of the Commissioner of Pensions 206 — ^220 
 
 X. IsTtR.N.AL Improvements. 
 Special Message of the Preadent to the Senate and House <n Repre- 
 sentatives, dated December 30, 1S54 220 — ^236 
 
 XI. The Coast Survey. 
 Abstract of the Repon of the Superintendent of the Coast Surrey.. 237 — ^251 
 
 XII Organization of Territories. 
 An act to oipmize the Territories of Xebraska and Kansas 252 — 272 
 
Vi CONTENTS. 
 
 XIII. Foreign Affairs. 
 
 Page.^. 
 
 Denmark and the Sound Dues ••• 273 — 296 
 
 Affairii iu Central America 297 — 321 
 
 Djplumatie Correspondence on the Central Amciican Question 322 — 344 
 
 Tbo Dombardmeiu of Greytown 345—363 
 
 Spain 369-370 
 
 liuA.sia. Treaty between the United States and his Majesty the Em- 
 peror of Ru68ia 371 — 372 
 
 Mexico. Treaty between the United States and the Mexican Re- 
 public --• 373 — 373 
 
 Groat Britain. Reciprocity Treaty between the United States and 
 
 her Britannic Majesty 378 — 381 
 
 Appe.nwx 363—460 
 
 LsuKX 461 
 
THE STATE OF THE UXIOX. 
 
 I.-ilESSAGE OF THE PRESIDENT. 
 
 FeRoK-Cittzem of the Senate 
 
 and of the House of Keprt$entativ€$ : 
 
 The past has been an eventful vear, and will be hereafter 
 
 referred to as a marked epoch in the history of the world. 
 5^^lile we have been happily preserved irom the calamities 
 of war, our domestic prosperity has not been entirely unin- 
 terrupted. The crops, in portions of the country, have been 
 nearly cut off. Disease has prevailed to a greater extent than 
 usual, and the sacrifice of human life, through casualties by 
 sea and land, is without parallel. But the pestilence has 
 swept by, and restored salubrity invites the absent to their 
 homes, and the return of business to its ordinary channels. 
 If the earth has rewarded the labor of the husbandman less 
 bountifully than in preceding seasons, it has left him with 
 abundance for domestic wants, and a large surplus for expor- 
 tation. In the present, therefore, as in the past, we find 
 ample grounds for reverent thankfulness to the God of Grace 
 and Providence, for His protecting care and merciful deal- 
 ings with us as a people. 
 
 Although our attention has been arrested by painful in- 
 terest in passing events, yet our country feels no more than 
 the slight vibrations of the convulsions which have shaken 
 Europe. As individuals, we cannot repress sympathy with 
 human suffering, nor regret for the causes which produce it 
 As a nation, we are reminded, that whatever interrupts the 
 peace, or checks the prosperity, of any part oi Christendom, 
 tends, more or less, to involve our own. The condition of 
 States is not unlike that of individuals. They are mutually 
 dependent upon each other. Amicable relations between 
 them, and reciprocal good will, are essential for the promo- 
 tion of whatever is desirable in their moral, social, and po- 
 
2 puBsn-zyr ? mzssage. 
 
 litical ccnd::: r.. Hvn:^e. it has c»een my earnest endeavor to 
 maintj^in rw- , .:. 1 rri.ndlv iiiterc«3nrse with all nations. 
 
 '; ' rv of this G'^vemment. so early adopted and 
 
 et*: i. of avoiding all entangling alliances, has 
 
 hitherto exempted it from many complications, in which it 
 would otherwise have become involved. Notwithstanding this 
 our clearly define«l and well sustained course of action, and 
 ' " 1 pw^sition so remote from Europe, increasing 
 ■^n manifested, by some of its governments. 
 iv ftU]^-crvi- - . respects, to direct, our foreign 
 
 policy. In r the balance of power among 
 
 themselves, ihey have a : • take us into account, and 
 
 would constrain us to c...: '- jur conduct to their views. 
 
 One or another of the powers of Europe has. from time to 
 time, imdertaken to enf r ^ •----_ regulations, contrary, 
 in manv re^'^ect*. to e»" iiciples of international 
 
 law. T " ^Luics i^ave. in their foreign in- 
 
 tercotir- 1 and observed, and they cannot 
 
 recognize any such interpolations thereiiL. as the temporary 
 interests of others may sugg--' T" ^v do not admit, that the 
 sovereigns of one continent. articular community of 
 
 States, can legislate for all oti^c.s. 
 
 Leaving the trans-atlantic nations to adjust their political 
 system, in the way " * for their common 
 
 wel^hro. the indepei. untinent may well 
 
 as- ^ht to be exempt from aii annoying interference 
 
 on : ^ ^rL Systematic abstinence from intimate political 
 
 connexion with distant tbreign nations, does not conflict with 
 
 " * ^ " ~'^ :'■ " ""- : reign commerc-e. This dis- 
 
 rv. seems to have been over- 
 
 _ reign States. Our 
 
 - i to, their peculiar 
 
 i tear, created ? listrust of otir conduct, 
 
 - - -. on their part, o . . ^^. acts of disttirbing effect 
 
 upon our foreign relations. Our present attitude and past 
 
 coarse, giv -. which should not be questioned, 
 
 that our pi; : aesrressive, nor threatening to the 
 
 • ns. Otir military establish- 
 
 . - ri to maintain exterior de- 
 
 -rve order among the aboriginal tribes 
 
 .-.:. .: the UnioiL Our naval force is intended 
 
 only for the protection of our citizens abroad, and of our 
 commerce, diffused, a« it is, over all the seas of the globe. 
 The eovemment of the United States, being essentially pacific 
 •D : repfrl invasion by the voluntary 
 
 **:'" ^ . . . and provides no permanent 
 
PEBSELEyrS M^SAGE. 
 
 means of foreign aggression. These considerations shoald 
 allay all apprehension that we are disposed to encroach on 
 the rights, or endanger the securitr. of other Stat€s. 
 
 Some European powers have regarded, with disquieting 
 concern, the territorial expansion of the United States. Th^s 
 rapid growth has resulted Irom the legitimate exe^ci^e o: 
 sovereign rights, belonging alike to all nations, and by many 
 liberally exercised. Under such circumstances, it could hard- 
 ly have* been expected that those among them, which have, 
 within a comparatively recent peri«3d. subdued and absorbed 
 ancient kingdoms, planted their standards on every continent, 
 and now possess, or claim the control of, the islands of every 
 ocean as their appropriate domain, would look with unfriend- 
 ly sentiments upon the acquisitions of this a-^untry. in every 
 instance honorably obtained, or would feel themselves justi- 
 fied in imputing our advancement to a spirit of aggression, 
 or to a passion for political predominance. 
 
 Our foreign commerce has reached a magnitude and extent 
 nearly equal to that of the first maritime power of the earth, 
 and exceeding that of any other. Over this great interest, 
 in which notonly our merchants, but all classes of citizens 
 at least indirectly, are concerned, it is the duty of the execu- 
 tive and legislative branches of the Government to exercise 
 a careful supervision, and adopt proper measures for its prc^- 
 tection. The policy which I have had in view, in regard to 
 this interest, embraces its future as well as its present se- 
 curity. 
 
 Long experience has shown that, in general, when the prin- 
 cipal powers of Europe are engaged in war. the rights of 
 neutral nations are endangered. This consideration led. in 
 the progress of the war of our Independence, to the formation 
 of the celebrated c«-->nfederacy of armed neutrality, a primary 
 object of which was. to assert the doctrine, that free ships 
 make free goods, except in the case of articles contraband .i 
 war: a doctrine which, from the very commencement of our 
 national being, has been a cherished idea of the statesmen 
 of this country. At one period or another, every maritime 
 power has. by some solemn treaty stipulation, recognized 
 that principle : and it might have been hoped that it would 
 come to be universally received and respected as a rule of 
 international law. But the refusal of one power prevented 
 this, and in the next great war which ensueii, that of the 
 French revolution, it failed to be respected among the belli- 
 gerent states of Europe. Notwithstanding this, the principle 
 IS generally admitted to be a sound and salutary one : so 
 much so, that, at the commencement of the existing war in 
 
4 PRESIDENTS MISSAGE. 
 
 Europe, Great Britain and France announced tlieir purpose 
 t<i observe it for the present; not, however, as a recognized 
 international riglit, but as a mere concession for the time 
 being. The coH»peration, however, of these two powerful 
 maritime nations in the interest of neutral rights, appeared 
 to me to alford an occasion, inviting and justifying, on the 
 part of the United States, a renewed effort to make the doc- 
 trine in question a principle of international law, by means 
 of special conventions between the several powers of Europe 
 and America. Accordingly^, a proposition, embracing not 
 only the rule, that free ships make free goods, except contra- 
 band articles, but also the less contested one, that neutral 
 property, otlier than contraband, though on board enemy's 
 ships, shall be exempt from confiscation, has been submitted 
 by this Government to those of Europe and America. 
 
 Russia acted promptly in this matter, and a convention 
 was concluded, between that country and the United States, 
 providing for the observance of the principles announced, not 
 only as between themselves, but also as between them and 
 all other nations, which shall enter into like stipulations. 
 None of the other powers have as yet taken final action on 
 the subject. I am not aware, however, that any objection to 
 the proposed stipulations has been made ; but, on the con- 
 trary, they are acknowledged to be essential to the security 
 of neutral commerce ; and the only apparent obstacle to their 
 general adoption is, in the possibility, that it may be encum- 
 bered by inadmissible conditions. 
 
 The King of the Two Sicilies has expressed to our Minis- 
 ter at Naples his readiness to concur in our proposition rela- 
 tive to neutral rights, and to enter into a convention on that 
 subject. 
 
 The King of Prussia entirely approves of tlie project of 
 a treaty to the same effect, submitted to him, but proposes 
 an additional article providing for the renunciation of pri- 
 vateering. Such an article, for most obvious reasons, is much 
 desired by nations having naval establishments, large in pro- 
 portion to their foreign commerce. If it Avere adopted as an 
 international rule, tlie commerce of a nation having compar- 
 atively a small naval force, would be very much at the mercy 
 of its enemy, in case of war Avith a power of decided naval 
 8U[)eriority. The bare statement of the condition in which 
 the United States would be placed, after having surrendered 
 the right to resort to privateers, in the event of war with a 
 belligerent of naval supremacy, Avill show that this Govern- 
 ment could never listen to such a proposition. The navy of 
 the first maritime power in Europe is at least ten times as 
 
president's message. 9 
 
 large as that of the United States. The foreij^n commerce 
 of the two countries is nearly equal, and about equally ex- 
 posed to hostile depredations. In war between that power 
 and the United States, without resort on our jiart to our mer- 
 cantile marine, the means of our enemy to inflict injury upon 
 our commerce would be tenfold greater than ours to retaliate. 
 We could not extricate our country from this unequal con- 
 dition, with such an enemy, unless we at once departed from 
 our present peaceful policy, and become a great naval power. 
 Nor would this country be bettor situated, in war with one 
 of the secondary naval powers. Thougli the naval disparity 
 would be less, the greater extent, and more exposed condition 
 of our wide-spread commerce, would give any of them a like 
 advantage over us. 
 
 The proposition to enter into engagements to forego a re- 
 sort to privateers, in case this country should be forced into 
 war with a great naval power, is not entitled to more favor- 
 able consideration than would be a proposition, to agree not 
 to accept the services of volunteers for operations on land. 
 When the honor or the rights of our country require it to 
 assume a hostile attitude, it confidently relies upon the pa- 
 triotism of its citizens, not ordinarily devoted to the military 
 profession, to augment the army and the navy, so as to make 
 them fully adequate to the emergency which calls them into 
 action. The proposal to surrender the right to employ jiri- 
 vateers is professedly founded n})on the principle, that pri- 
 vate property of unoifending non-combatants, though ene- 
 mies, should be exempt from the ravages of war ; but the 
 proposed surrender goes but little way in carrying out that 
 principle, which equally requires that such private property 
 should not be seized or molested by national ships of war. 
 Should the leading powers of Europe concur in proposing, as 
 a rule of international law, to exempt private pro})erty, upon 
 the ocean, from seizure by public armed cruisers, as well as 
 by privateers, the United States will readily meet them upon 
 that broad ground. 
 
 Since the adjournment of Congress, the ratifications of the 
 treaty between the United States and Great Britain, relative 
 to coast fisheries, and to reciprocal trade with tlie British 
 North American provinces, have been exchangeil, and some 
 of its anticipated advantages are already enjoyed by us, 
 although its full execution was to abide certain acts of legis- 
 lation not yet fully performed. So soon as.it was ratified, 
 Great Britain opened to our commerce the free navigation 
 of ;the river St. Lawrence, and to our fishermen unmolested 
 access to the shores and bays, from Avhich they had been pre- 
 
6 president's message. 
 
 viously excluded, on tlie coasts of her Nortli American pro- 
 vinces; in return for wliich, she asked for the introduction, 
 free of duty, into the ports of the United States, of the fish 
 caught on the same coast hy British fishermen. This being 
 the comi)ensation, stipuhited in the treaty, for privileges of 
 the higlic'st importance and value to the United States, which 
 were thus voluntarily yielded before it became effective, the 
 request seemed to me to be a reasonable one; but it could 
 not be acceded to, from want of authority to suspend our 
 laws imposing duties upon all foreign fish. In the mean- 
 time, the Treasury Department issued a regulation, for as- 
 certaining the duties paid or secured by bonds on fish caught 
 on tlie coasts of the British provinces, and brought to our 
 markets by British subjects, after the fishing grounds had 
 been made fully accessible to the citizens of the United 
 States. I recommend to your favorable consideration a pro- 
 position, which will be submitted to you, for authority to 
 refund the duties and cancel the bonds thus received. The 
 provinces of Canada and New Brunswick have also antici- 
 pated the full operation of the treaty, by legislative arrange- 
 ments, respectively, to admit, free of duty, the products of 
 the United States mentioned in the free list of the treaty; 
 and an arrangement, similar to that regarding British fish, 
 has been made for duties now chargeable on the products of 
 those provinces enumerated in the same free list, and intro- 
 duced therefrom into the United States; a proposition for 
 refunding which will, in my judgment, be in like manner 
 entitled to your favorable consideration. 
 
 There is difference of opinion between the United States 
 and Great Britain, as to the boundary line of the Territory 
 of Washington, adjoining the British possessions on the Pa- 
 cific, which has already led to difficulties on the part of the 
 citizens and local authorities of the two governments. I re- 
 copmend that provision be made for a commission, to be 
 joined by one on the })art of her Britannic Majesty, for the 
 purpose of running and establishing the line in controversy. 
 Certain stipulations of the third and fourth articles of the 
 treaty concluded by the United States and Great Britain, in 
 1846, regarding possessory rights of the Hudson's Bay Com- 
 pany, and property of tlie Pug'et's Sound Agricultural Compa- 
 ny, luive given rise to seriuus disputes, and it is important, to 
 ail coucorucd, that summary means of settling them amicably 
 should be devised. I have reason to believe that an arrange- 
 ment can be made, on just terms, for the extinguishment of 
 the rights in question, embracing, also, the right of the 
 Hudson's Bay Cojupuuy to the navigation of the river Colum- 
 
PRESIDENTS MESSAGE. 
 
 bia; and I therefore suggest to your consideration, the expe- 
 diency of making a contingent appropriation for that purpose. 
 France was the early and efficient ally of the United States 
 in their struggle for independence. From that time, to the 
 present, with occasional slight interruptions, cordial rela- 
 tions of friendship have existed between the governments 
 and people of the two countries. The kindly sentiments, 
 cherished alike by both nations, have led to extensive social 
 and commercial intercourse, Avhich, I trust, will not be in- 
 terrupted or checked by any casual event of an apparently 
 unsatisfactory character. The French consul at San Fran- 
 cisco was, not long since, brought into the United States dis- 
 trict 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 privileges under our consular 
 convention with France. There being nothing in the trans- 
 action which could imply any disrespect to France or its 
 consul, such explanation has been made, as, I hope, will be 
 satisfactory. Subsequently, misunderstanding arose on the 
 subject of the French government having, as it appeared, 
 abruptly excluded the American minister to Spain from pass- 
 in"- through France, on his way from London to Madrid. 
 But that Government has unequivocally disavowed any de- 
 sio-n to deny the right of transit to the minister of the Uni- 
 ted States ; and, after explanations to this effect, he has re- 
 sumed his journey, and actually returned through France to 
 Spain. I herewith lay before Congress the correspondence 
 on this subject between our envoy at Paris, and the minister 
 of foreign relations of the French government. ^ 
 
 The position of our affairs with Spain, remains as at the 
 close of your last session. Internal agitation, assuming very 
 nearly the character of political revolution, has recently 
 convulsed that country. The late ministers were violently 
 expelled from power, and men, of very different views in re- 
 lation to its internal affairs, have succeeded. Since this 
 change, there has been no propitious opportunity to resume, 
 and press on, negotiations for the adjustment of serious (lues- 
 tions of difficulty between the Spanish government and the 
 United States. There is reason to believe that our minister 
 will find the present government more favorably inclined, 
 than the preceding, to comply Avith our just demands, and 
 to make suitable arrangements for restoring harmony, and 
 preserving peace, between the two countries. 
 
 Negotiations are pending with Denmark to discontinue 
 the practice of levying tolls on our vessels and their cargoes 
 passing through the Sound. I do not doubt that we can 
 
8 PRESIDENTS MESSAGE. 
 
 claim exemption therefrom, as a matter of right. It is ad- 
 mitted on all hands that this exaction is sanctioned, not by 
 the general principles of the law of nations, but only by spe- 
 cial conventions, which most of the commercial nations have 
 entered into with Denmark. Tlie fifth article of our treaty 
 of 182G, with Denmark, i)rovides that there shall not be paid 
 on the vessels of the United States and their cargoes 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 assertion 
 uf our right to be released therefrom. There are also other 
 provisions in the treaty wliich 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 
 termiuiite it. I deem it exiiedient that the contemplated no- 
 tice should be given to the government of Denmark. 
 
 Tlie naval expedition despatched about two years since for 
 tlie purpose of establishing relations with the empire of Ja- 
 })au lias been ably and skilfully conducted to a successful 
 termination by the officer to whom it was entrusted. A 
 treaty, opening certain of the ports of that populous country, 
 has been negotiated ; and in order to give full efiect thereto, 
 it only remains to exchange ratifications, and adopt requisite 
 commercial regulations. 
 
 The treaty lately concluded between the United States and 
 Mexico settled some of our most embarrassing difficulties 
 with that country, but numerous 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 government a favorable consid- 
 eration of these claims, but hitherto 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 repub- 
 lic, 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 expe- 
 ditious against some of the States of that republic. The de- 
 fenceless condition in which its frontiers have been left has 
 stimulated lawless adventurers to embark in these enter- 
 prises, 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 nations, I have exerted all the 
 
PRESIDENTS MESSAGE. 9 
 
 powers with which I am invested to defeat such proceedings, 
 and bring to punishment those who, by taking a part there- 
 in, viohited our laws. The energy and activityof our civil 
 and military authorities have frustrated the designs of those 
 who meditated expeditions of this character, except in two 
 instances. One of these, composed of foreigners, was at first 
 countenanced and aided by the Mexican government itself, it 
 having been deceived as to their real object. The other, 
 small in number, eluded the vigilance of the magistrates at 
 San Francisco, and succeeded in reaching the Mexican terri- 
 tories ; but the effective measures taken by this government 
 compelled the abandonment of the undertaking. 
 
 The commission to establish the new line between the 
 United States and Mexico, according to the provisions of the 
 treaty of the 30th of December last, has been organized, and 
 the work is already commenced. 
 
 Our treaties with the Argentine Confederation, and with 
 the Republics of Uruguay and P;iraguay, secure to us the 
 free navigation of the river La Plata and some of its larger 
 tributaries ; but the same success has not attended our en- 
 deavors to open the Amazon. The reasons in favor of the 
 free use of that river I had occasion to present fully in a 
 former message; and, considering the cordial relations which 
 have long existed between this government and Brazil, it 
 may be expected that pending negotiations will, eventually, 
 reach a favorable result. 
 
 Convenient means of transit between the several parts of 
 a country are not only desirable for the objects of commercial 
 and personal communication, but essential to its existence 
 under one government. Separated as are the Atlantic and 
 Pacific coasts of the United States by the whole breadth of 
 the continent, still the inhabitants of each are closely bound 
 together by community of origin and institutions, and by 
 strong attachment to the Union. Hence the constant and 
 increasing intercourse and vast interchange of commercial 
 productions between these remote divisions of the Republic. 
 At the present time the most practicable and only commodi- 
 ous routes for communication between them are by the way 
 of the Isthmus of Central America. It is the duty of the 
 government to secure these avenues against all danger of in- 
 terruption. 
 
 In relation to Central America, perplexing questions ex- 
 isted between the United States and Great Britain at the 
 time of the cession of California. These, as well as questions 
 which subsequently arose concerning inter-oceanic communi- 
 cation across the Isthmus, were, as it was supposed, adjusted 
 
 2 
 
10 prkident's message. 
 
 by the treaty of April 19, 1850 ; but, unfortuiicately, tliey 
 have been ivopeiied by serious misuntlcrstauding as to the 
 imjtort ofsoiuu of its provisions, a re-adjustment of which is 
 now under consideration. Our minister at London has made 
 strenuous elforts to accom})lish tlii.s desirable object, but has 
 not yet found it possible to bring the negotiations to a termi- 
 nation. 
 
 As incidental to these questions, I deem it proper to no- 
 tice an occurrence -which happened in Central America, near 
 the close of the last session of Congress. So soon as the ne- 
 cessity was perceived of establishing inter-oceanic communi- 
 cations across the Istlinius, a company was organized, under 
 authority of the State of Nicaragua, but composed, for the 
 most j)art, of citizens of the Uuited States, for the purpose of 
 opening such a transit way by the river San Juan and Lake 
 Nicaragua, whicli soon became an eligible and much used 
 route in the transportation of our citizens and their property 
 between the Atlantic and Pacific. Meanwhile, and in antici- 
 pation of the completion and importance of this transit way, 
 a number of adventurers had taken possession of the old 
 Spanish port at the mouth of the river San Juan, in open de- 
 fiance of the State or States of Central America, which, upon 
 their becoming independent, had rightfully succeeded to the 
 local sovereignty and jurisdiction of Spain. These adventur- 
 ers undertook to change the name of the place from San Ju- 
 an del Norte to Greytown, and, tliough at first pretending to 
 act as the subjects of the fictitious sovereign of the Mosquito 
 Indians, they subsequently repudiated the control of any 
 power whatever, assumed to adopt a distinct political organ- 
 izatiun, and dechired themselves an independent sovereign 
 btate. h', at some time, a faint hope Avas entertained that 
 they might become a stable and respectable community, tluit 
 lutpe soon vanished. They proceeded to assert unfounded 
 claims to civil jurisdiction over Punta Arenas, a position on 
 the opposite side of the river San Juan, which was in pos- 
 sessi«jn, under a title wholly independent of them, of citizens 
 of the United States, interested in the Nicaragua Transit 
 Ojuqiany, and which was indispensably necessary to the 
 lii-Msperous operation uf that route across the Isthmus. The 
 Coinpauy resisted their groundless claims; whereupon tliey 
 jtrucee'led to destroy some of its buildings, and attempted 
 violently to dispossess it. 
 
 At a later period they organized a strong force for the 
 purpose of aemulishing the establishment at Punta Arenas, 
 but this mi.schievous design was defeated by the interposi- 
 tion ol one of our ships of war, at that time in the harbor of 
 
president's message. 11 
 
 San Juan. Subsequently to this, in May last, a body of men 
 from Greytown crossed over to Punta Arenas, arrogatinp: 
 authority to arrest, on the charge of murder, a cai)tain of 
 one of the steamboats of the Transit Company. Beins well 
 aware that tlic claim to exercise jurisdiction there would be 
 resisted then, as it had been on previous occasions, they went 
 prepared to assert it by force of arms. Our minister to Cen- 
 tral America happened to be present on that occasion. Be- 
 lievins? that the captain of the steamboat was innocent, for 
 he wi'tnessed the transaction on which the charge was 
 founded, and believing, also, that the intruding party, bav- 
 in f,^ no jurisdiction over the place where they proposed to 
 make the arrest, would encounter desperate resistance if they 
 persisted in their purpose, he interposed, effectually, to pre- 
 vent violence and bloodshed. The American minister after- 
 wards visited Greytown, and Avhilst he was there, a mob, in- 
 cluding certain of the so-called public functionaries of the 
 place, surrounded the house in which he was, avowing tliat 
 tliey iiad come to arrest him by order of some person exer- 
 cising the chief authority. While parleying with them he 
 was wounded by a missile from the crowd. A boat, de- 
 spatched from the American steamer '' Korthern Light" to 
 release him from the perilous situation in which he was un- 
 derstood to be, was fired into by the town guard, and com- 
 pelled to return. These incidents, together with the known 
 character of the population of Greytown, and their excited 
 state, induced just apprehensions that the lives and property 
 of our citizens at Punta Arenas would be in imminent dan- 
 ger after the departure of the steamer, with hei- passengers, 
 for New York, unless a guard was left for their protection. 
 For this purpose, and in order to ensure the safety of passen- 
 gers and property passing over the route, a temporary force 
 was organized, at considerable expense to the United States, 
 for whi'ch provision was made at the last session of Congress. 
 This pretended community, a heterogeneous assemblage 
 gathered from various countries, and composed, for the most 
 part, of blacks and persons of mixed blood, had previously 
 giveii other indications of mischievous and dangerous pro- 
 pensities. Early in the same month, property was clandes- 
 tinelv abstracted from the depot of the Transit Company, 
 and taken to Greytown. The plunderers obtained shelter 
 there, and their pursuers were driven back by its people, wlio 
 not only protected the wrongdoers and shared the plunder, 
 but treated with rudeness and violence those who sought to 
 recover their property. 
 
 Such, in substance, are the facts submitted to my consider- 
 
12 PRESn)E>T's MESSAGE. 
 
 ation, and proved hy trustworthy evidence. I could not 
 doultt that tlie case demanded the interposition of this gov- 
 ernment. Justice required that reparation shoukl be made 
 for so nianv and such gross Avrongs, and tliat a course of in- 
 solence an«i ]>lundt'r, tending directly to the insecurity of the 
 lives of numerous travellers, and of the rich treasure belong- 
 ing to our citizens, passing over this transit way, should be 
 ]>eremptorily arrested. Whatever it might be in other re- 
 spects, the community in question, in power to do mischief, 
 was not despicable. It was well provided with ordnance, 
 small arms, and ammunition, and might easily seize on the 
 unarmed boats, freighted with millions of property, which 
 passed almost daily witbin its reach. It did not profess to 
 belong to any regular government, and had, in fact, no re- 
 cognized dependence on, or connection with, any one to which 
 tlie United States or their injured citizens might apply for 
 redress, or which could be held responsible, in any way, for 
 the oTitrages committed. Not standing before the world in 
 the attitude of an organized political society, being neither 
 competent to exercise the rights nor discharge the obliga- 
 tions of a government, it was, in fact, a marauding establish- 
 ment, too dangerous to be disregarded, and too guilty to pass 
 unpunished, and yet incapable of being treated in any other 
 way than as a piratical resort of outlaws, or a camp of sav- 
 ages, depredating on emigrant trains or caravans and the 
 frontier settlements of civilized States. 
 
 Seasonable notice was given to the people of Greytown that 
 tliis (Government required them to repair the injuries they 
 liad done to our citizens, and to make suitable apology for 
 their insult of our minister, and that a ship-of-war would be 
 despatched thither to enforce compliance with these demands. 
 liut the notice jjassed unlieeded. Thereupon, a commander 
 of the navy, in charge of the sloop-of-war " Cyane," was or- 
 (h'red t<» repeat tlie demands, and to insist upon a compliance 
 therewith. Finding tliat neither the populace, nor those as- 
 suming to have authority over them, manifested any dispo- 
 sition to make the required reparation, or even to offer excuse 
 fi)r tli(!ir conduct, he warned them, by a public proclamation, 
 that if tliey did not give satisfaction within a time specified, 
 lie W(juld bombard the town. By this procedure he afforded 
 tlK-m (qq.oitnnity to ])r(.vide i'or their personal safety. To 
 tln.sc als.i, who desired to avoid loss of property, in the pun- 
 ishment abotit to be inflicted on the offending town, he fur- 
 nished the means of removing their effects, by the boats of his 
 own ship, and of a steamer which he procured and tendered 
 t<j tliem lor that purjjose. At length, perceiving no disposi- 
 
president's message. 13 
 
 tion on the part of the town to com])ly with liis requisitions, 
 he apjioalod to the commander of lier Britannic Majesty's 
 scliooner "Bermuda," wlio was seen to liave intercourse, and 
 ap]iarently much influence Avith the leaders amonf; them, — 
 to interpose, and persuade them to take some course calcula- 
 ted to save the necessity of resorting to the extreme measure 
 indicated in his proclamation; hut that officer, instead of ac- 
 ceding to the request, did nothino- more than to protest 
 against the contemplated homhardment. No steps of any 
 sort were taken, hy the people, to give the satisfaction re- 
 quired. No individuals, if any there were, who regarded 
 themselves as not responsible for the misconduct of the com- 
 munity, adopted any means to separate themselves from the 
 fate of the guilty. The several charges, on which the de- 
 mands 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; they offered no explana- 
 tion, nothing in extenuation of their conduct ; but contuma- 
 ciously refused to hold any intercourse with the commander 
 of the "Cyane," By their obstinate silence they seemed 
 rather desirous to provoke chastisement than to escape it. 
 There is ample reason to believe that this conduct of w'anton 
 defiance, on their part, is imputable chiefly to the delusive 
 idea that the American government would be deterred from 
 punishing them, through fear of displeasing a formidable 
 foreign power, which, they j^resumed to think, looked with 
 complacency upon their aggressive and insulting deportment 
 towards the United States. The " Cyane" at length fired 
 upon the town. Before much injury had been done, the fire 
 was twice suspended, in order to afford opportunity for an 
 arrangement ; but this was declined. Most of the buildings 
 of the place, of little value generally, were, in the sequel, de- 
 stroyed; but, owing to the considerate precautions taken by 
 our naval commander, there was no destruction of life. 
 
 When the "Gyane" was ordered to Central America, it was 
 confidently hoped and expected that no occasion would arise 
 for '"a resort to violence and destruction of property and loss 
 of life." Instructions to that eft'ect were given to her com- 
 mander. And no extreme act would have been requisite had 
 not the people themselves, by their extraordinary conduct in 
 the affair, frustrated all the possible mild measures for ob- 
 taining satisfaction. A withdrawal from the place, the object 
 of his visit entirely defeated, would, under the circumstances 
 in which the commander of the "Cyane" found himself, have 
 been absolute abandonment of all claim of our citizens for in- 
 demnification, and submissive acquiescence in national indig- 
 
14 president's message. 
 
 nity. It wouM have encouraged in these lawless men a spi- 
 rit "of insolence ami rapine most dangerous to the lives and 
 nro]ierty of our citizens at Punta Arenas, and probably em- 
 t)uldened them to grasp at the treasures and valuable mer- 
 chandise continually jiassing over the Nicaragua route. It 
 cortainly would liave been most satisfactory to me if the ob- 
 jects of the "Cyane's" mission could have been consummated 
 without any act of public force; but the arrogant contumacy 
 of the offenders rendered it impossible to avoid the alterna- 
 tive, either to l)reak up their establishment, or to leave them 
 impressed with tlic idea tliat they might persevere with im- 
 punity in a career of insolence and plunder. 
 
 This transaction has been the subject of complaint on the 
 part of some foreign powers, and has been characterized with 
 more of harshness than of justice. If comparisons were to 
 be instituted, it would not be difficult to present repeated in- 
 stances in tlie history of States, standing in the very front of 
 modern civilization, where communities, far less offending and 
 more defenceless than Greytown, have been chastised with 
 much greater severity, and Avhere not cities only have been laid 
 in ruins, but human life has been recklessly sacrificed, and the 
 Itlood of the innocent made profusely to mingle with that of 
 the guilty. 
 
 Passing from foreign to domestic affairs, your attention is 
 naturally directed to the financial condition of the country, 
 always a subject of general interest. For complete and ex- 
 act information regarding the finances, and the various 
 branches of the public service connected therewith, I refer 
 you to the report of the Secretary of the Treasury; from 
 which it will appear, that the amount of revenue during the 
 last fiscal year, from all sources, was seventy-three million 
 fivi- hundred and forty-nine thousand seven hundred and five 
 ilnljars; and tliat the public expenditures for the same period, 
 exclusive of payments on account of the public debt, amounted 
 to fifty-one million eighteen thousand two hundred and forty- 
 nine dollars. During the same period, the payments made 
 in redemi)tion of the public debt, including interest and pre- 
 mium, amounted to twenty-four million three hundred and 
 thirty-six thousand three hundred and eighty dollars. To 
 the sum total of the receijjts of that year is to be added a bal- 
 ance remaining in the Treasury at the commencement there- 
 of, amounting to twenty-one million nine hundred and forty- 
 two thousaml eight hundred and ninety-two dollars; and at 
 the dose of the same year, a corresponding balance amount- 
 ing to twenty million one hundred and thirty-seven thousand 
 nine hundred and sixty-seven dollars of receipts above expeu- 
 
pkesidext's message. 15 
 
 ditnreR, also remained in the Treasury. Althoiif>;h, in tlie 
 opinion of tlie Secretary of the Treasury, the receipts of the 
 current fiscal year are not likely to equal in amount those of 
 the last, yet they will un(loul)tedly exceed the amount of ex- 
 penditures by at least fifteen millions of dollars. I shall, 
 therefore, continue to direct that the surplus revenue be ap- 
 plied, so far as it can be judiciously and economically done, 
 to the reduction of the public debt, the amount of which, at 
 the commencement of the last fiscal year, was sixty-seven 
 million three hundred and forty thousand six hundred and 
 twenty-eight dollars; of which there had been i)aid on the 
 twentieth day of November 1854, the sum of twenty-two mil- 
 lion three hundred and sixty-five thousand one hundred and 
 seventy-two dollars; leaving a balance of outstanding public 
 debt of only forty-four million nine hundred and seventy-five 
 thousand four hundred and fifty-six dollars, redeemable at 
 different periods within fourteen years. There are also rem- 
 nants of other government stocks, most of which are already 
 due, and on which the interest has ceased, but which have 
 not yet been presented for payment, amounting to two hun- 
 dred and thirty-three thousand one hundred and seventy-nine 
 dollars. This statement exhibits the fact, that the annual 
 income of the government 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 dis- 
 charged at once, except at the option of public creditors, who 
 prefer to retain the securities 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 administration of the 
 Government. 
 
 The estimates presented to Congress from the difierent Ex- 
 ecutive Departments, at the last session, amounted to thirty- 
 eight million four hundred and six thousand five hundred 
 and eighty-one dollars ; and the appropriations made, to the 
 sum of fiity-eight million one hundred and sixteen thousand 
 nine hundred and fifty-eight dollars. Of this excess of ap- 
 propriations over estimates, however, more than twenty mil- 
 lions was applicable to extraordinary objects, having no re- 
 ference 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, the appropriations 
 were limited to considerably less tlian forty millions of dol- 
 lars. I therefore, renew my recommendation for a reduction 
 of the duties on imports. The report of the Secretary of the 
 
16 president's ihessaqe. 
 
 Treasury presents a series of tables, showing the operation 
 of the revenue system for several snceessive years, and as the 
 f^i-neral principle of reduction of duties with a view to reve- 
 nue and nut to protection may now he re^^arded as the settled 
 jtolicy of the country, I trust that little difficulty will he en- 
 countered in scttlinjjc the details of a measure to that effect. 
 
 In connexion witli this subject, I recommend a change in 
 the laws, which recent experience has shown to he essential 
 to the protection of the Government. There is no express 
 i)rovision of law, requiring the records and papers of a pub- 
 lic cliaracter. of the several officers of the Government, to he 
 left in their offices for the use of their successors, nor any pro- 
 vision declaring it felony on their part to make false entries 
 in the books, or return false accounts. In the absence of such 
 express ])rovision by law, the outgoing officers, in many in- 
 stances, have claimed and exercised the right to take into 
 tlieir own possession, important books and papers, on the 
 ground tliat these were their private property; and have 
 jdaced them beyond the reach of the Government. Conduct 
 of this character, brought in several instances to the notice 
 of the present >Secret{iry of the Treasury, naturally awakened 
 his suspicion, and resulted in the disclosure that at four 
 ])urts, namely, Oswego, 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 thousand dollars. The great diffi- 
 culty with which the detection of these frauds has been at- 
 tended, in consequence of the abstraction of books and pa- 
 pers by the retiring officers, and the facility with which 
 similar frauds in the public service may be perpetrated, ren- 
 der the necessity of new legal enactments, in the respects 
 above referred to, quite obvious. For other material modifi- 
 cations of the revenue laws which seem to me desirable, I re- 
 fer you to tlie report of the Secretary of the Treasury. That 
 reiiort, and the tables which accompany it, furnish ample 
 jtroofs of the solid foundation on which the financial security 
 of the country rests, and of the salutary influence of the inde- 
 pendent treasury system upon commerce and all monetary 
 operations. 
 
 The exj)eriencc of the last year furnishes additional rea- 
 sons. 1 regret to say, of a painful character, for the recom- 
 meiidiitiou heretofore nuide, to provide for increasing the 
 military force employed in the territory inhabited by the 
 Inihans. The settlers on the frontier have suffered much 
 from the incursions of j)redatory bands, and large parties 
 ot emigrants to our Pacific possessions have been massacred 
 
president's message. 17 
 
 with impunity. The recurrence of such scenes can only be 
 prevented hy teaching these wihl tribes the power of, and 
 their responsibilit}' to, the United States. Proin the !j;ani- 
 sons of our frontier posts, it is only possible to detach tr(K)ps 
 in small bodies ; and though these have on all occasions dis- 
 played a gallantry and stern devotion to duty, which on a 
 larger field would have commanded universal admiration, 
 they have usually suffered severely in these conflicts Avith 
 superior numbers, and have sometimes been entirely sacri- 
 ficed. All the disposable force of the army is already em- 
 ployed on this service, and is known to be wholly inadequate 
 to the protection which should be afforded. The i)ublic mind 
 of the country has been recently shocked by savage atrocities 
 committed upon defenceless emigrants and border settle- 
 ments, and hardly less by the unnecessary destruction of valu- 
 able lives, where inadequate detachments of trooi)S have un- 
 dertaken to furnish the needed aid. Without increase of the 
 military force, these scenes Avill bo repeated, it is to be feared, 
 on a larger scale, and with more disastrous consequences. 
 Congress, I am sure, will ])erceive that the plainest duties and 
 responsibilities of Government are involved in this question, 
 and I doubt not that prompt action may be confidently anti- 
 cipated when delay must be attended by such fearful hazards. 
 
 The bill of tlie last session, providing for an increase of the 
 pay of the rank and file of the army has had beneficial re- 
 sults, not only in facilitating enlistments, but in obvious im- 
 provements in the class of men Avho enter the service. I re- 
 gret that corresponding consideration was not bestowed on 
 the officers, who, in view of their character and services, and 
 tlic ex})enses to which they are necessarily subject, receive at 
 present Avhat is, in my judgment, inadequate compensation. 
 
 The valuable services constantly rendered by the army, 
 and its inestimable importance, as the nucleus around which 
 the volunteer forces of the nation can promptly gather in the 
 hour of danger, sufficiently attest the wisdom of maintaining 
 a military j)eace establishment ; but the theory of our sys- 
 tem and the wise })ractice under it, require that any proposed 
 augmentation, in time of peace, be only commensurate with 
 our extended limits and frontier relations. While scrupu- 
 lously adhering to this principle, I find, in existing circum- 
 stances, a necessity for increase of our military force, and it 
 is believed that four new regiments, two of intantry and two 
 of mounted men, will be sufficient to meet the present exi- 
 gency. If it were necessary carefully to weigh the cost in a 
 «ise of such urgency, it Avould be shown that the additional 
 expense would be comparatively light. 
 
18 president's message. 
 
 With the increase of tlic numerical force of the army 
 shuiihl, I think. 1)C conihined certain measures of reform in 
 its orjj:anic arrangement and administration. The iiresent 
 organization is the result of ])artial legislation often directed 
 to special ohjects and interests; and the laws regulating 
 rank and command, having heen adopted many years ago 
 from the British ode, are not always applicable to our ser- 
 vice. It is not sur])rising, therefore, tliat the system should 
 he deficient in the symmetry and simplicity essential to the 
 Ijarmuniuus working of the several parts, and require a care- 
 ful revision. 
 
 The i>resent organization, by maintaining large staff corps 
 or departments, separates many officers from that close con- 
 nexiiMi with troops, and tliose active duties in the field, which 
 arc deemed requisite to quality them for the varied responsi- 
 hilities of liigh command. Were the duties of the army 
 staff mainly discliarged by officers detached from their regi- 
 ments, it is believed tliatthe special service would be equally 
 well i)erformed, and the discipline and instruction of the 
 army be improved. While due regard to the security of the 
 rights of officers, and to the nice sense of honor which should 
 be cultivated among them, would seem to exact compliance 
 with the estal)lished rule of promotion in ordinary cases, still 
 it can hardly be doubted that the range of promotion by se- 
 lection, which is now practically confined to the grade of 
 general officers, might be somewhat extended with benefit to 
 the public service. Observance of the rule of seniority some- 
 times leads, especially in time of peace, to the promotion of 
 (•fTicers who, after meritorious and even distinguished service, 
 may have lieen rendered Ity age or infirmity incapable of per- 
 forming active duty, and whose advancement, therefore, would 
 tend to impair the efficiency of the army. Suitable provision 
 for this class of officers, by the creation of a retired list, 
 wotdd remedy the evil, without Avounding the just pride of 
 njen who, by past services, have established a claim to high 
 consideration. In again commending this measure to the 
 favoral)le consideration of Congress, I would suggest that the 
 power of placing ofhcers on tlie retired list be limited to one 
 vear. The jiraetical ojieration of the measure would thus 
 be tested, and if, alter the lapse of years, there should be oc- 
 casion to renew the provision, it can be reproduced with any 
 improvements which experience may indicate. The present 
 organizatiftn of the artillery into regiments is liable to ob- 
 vi-.u.s objections. The service of artillery is that of batteries, 
 and an orgiinization of batteries into a corps of artillery 
 w<.uld l;e more consistent witli the nature of their duties. A 
 
president's -MESSAGE. 19 
 
 large part of the troops now called artillery are, and liave 
 been, on duty as infantry; tlio distinction between the two 
 arms being merely nominal. This nominal artillery in our 
 service is disproportionate to the whole force, and greater 
 than the wants of the country demand. I therefore com- 
 mend the discontinuance of a distinction, which has no foun- 
 dation in either the arms used or the character of the service 
 expected to be performetL 
 
 In connection with the })roposition for the increase of the 
 army, I liave presented these suggestions with regard to 
 certain measures of reform, as the complement of a system, 
 which would produce the happiest results from a given ejc- 
 penditure, and Avhich I hope may attract the early attention, 
 and be deemed worthy of the approval, of Congress. 
 
 The recommendation of the Secret^iry of the Navy, hav- 
 ing reference to more ample provisions for the discipline 
 and general improvement in the character of seamen, and 
 for the re-organization and gradual increase of the navy, I 
 deem it eminently 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 disregarded. But, limiting the force to the objects 
 particularly set forth in the jH-eceding part of this message, 
 we should not overlook the present magnitude and prospec- 
 tive extension of our commercial marine, nor fail to give 
 due w^eight to the fact that, besides the two thousand miles 
 of Atlantic seaboard, we have now a Pacific coast, stretch- 
 ing from Mexico to the British possessions in the north, 
 teeming with wealth and enterprize, and demanding the 
 constant presence of ships-of-war. The augmentation of 
 the navy has not kept pace with the duties properly and 
 profitably assigned to it in time of peace, and it is inade- 
 quate for the large field of its operations, not merely in the 
 present but still more in the progressively increasing exi- 
 gencies of the commerce of the United States. I cordially 
 approve of the proposed apprentice system for our nati(>!ial 
 vessels, recommended by the Secretary of the Navy. 
 
 The occurrence, during the last few months, of marine 
 disasters of the most tragic nature, involving great loss of 
 life, has produced intense emotions of sympathy and sorrow 
 throughout the country. It may well be d(nibted whether 
 all these calamitous events are wholly attributable to the 
 necessary and inevitable dangers of tlie sea. The merchants, 
 mariners and ship-builders of the United States, are, it is 
 true, unsurpassed in far-reaching enterprize, skill, intelli- 
 
20 president's message. 
 
 gence and courage, by any others in the world. But, with 
 tiu- increasing' amount of our (>)mniercial tonnage in the 
 ai:nrej;ate, and the hirger size and improved equipment of 
 the'sliijis nuw eoustructed, a deficiency in tlie supply of re- 
 liahlf heamen begins to be very seriously felt. The incon- 
 venience may, perhaps, be met, in part, by due regulation 
 f.ir the introduction, into our merchant ships, of indented 
 apprentices; wliich, wliile it would afford useful and eligible 
 occupation U» numerous young men, would have a tendency 
 to rsiij<e the character oi" seamen as a class. And it is de- 
 serving of serious reflection, whether it may not be desirable 
 to. revise the existing laws for the maintenance of disciijline 
 at sea, upon which the security of life and property on the 
 ocean must to so great an extent depend. Although much 
 attention has already been given by Congress to the proper 
 Construction and arrangement of steam vessels and all pas- 
 benger ships, still it is believed that the resources of science 
 and mechanical skill in this direction, have not been ex- 
 hausted. No good reason exists for the marked distinction, 
 wliich appears upon our statutes between the laws for jjro- 
 tecting life and property at sea, and those for protecting 
 them on land. In most of the States severe i^enalties are 
 provided to punish conductors of trains, engineers, and 
 others enj ployed in the transportation of persons by rail- 
 way, or by steamboats on rivers. Why should not the same 
 jjiinciple be applied to acts of insubordination, cowardice, 
 or other misconduct on the part of masters and mariners, 
 producing injury or death to passengers on the high seas, 
 beyond tiie jurisdiction of any of the States, and where 
 tjuch delin([uencies can be reached only by the power of 
 <,ongress? The whole subject is earnestly commended to 
 y<jur consideration. 
 
 The report of the Postmaster General, to which you are 
 referred for many interesting details in relation to this im- 
 j)ortant and raj)idly extending branch of the public service, 
 shows that tlie expenditure of the year ending June 30, 
 I8.j4, including one hundred and thirty-three thousand four 
 hundred and eighty-thi'ee dollars of balance due to foreign 
 othees, amonnteil to eight million seven hundred and ten 
 tliousund nine hinidred and seven dollars. The gross re- 
 u-ipts during the same i)eriod amounted to six million nine 
 liuudred and fifty-five thousand five hundred and eighty-six 
 dollars: exliibiting an expenditure over income of one 
 million seven hundred and fifty-five thousand three hundred 
 and twenty-one dollars, and a diminution of deficiency, as 
 compared wjili the last year, of three hundred and sixty-one 
 
president's message. 21 
 
 thousand seven hundred and fifty-six dollars. The increase 
 of the revenue of the department, for the year ending; June 
 30, 1854, over the preceding year, was nine hundred and 
 seventy thousand three hundred and ninety-nine dollars. 
 No proportionate increase, however, can be anticipated for 
 the current .year, in conse({uence of the act of Congress of 
 June 23, 1854, providing for increased compensation to all 
 postmast-crs. From these statements it is apparent that the 
 Post Office Department, instead of defraying its expenses, 
 according to the design at the time of its creation, is now, 
 and under existing laws must continue to be, to no small 
 extent, a charge upon the general treasury. The cost of 
 mail transportation, during the year ending June 30, 1854, 
 exceeds tlie cost of the preceding year by four hundred and 
 ninety-five thousand and seventy-four dollars. I again call 
 your attention to the subject of mail transportation by ocean 
 steamers, and commend the suggestions of the Postmaster 
 General to your early attention. 
 
 During the last fiscal year eleven million seventy thoii- 
 sand nine hundred and thirty-five acres of the public lands 
 have been sui-veyed, and eight million one hundred and 
 ninety thousand and seventeen acres brought into market. 
 The number of acres sold is seven million thirty-five thou- 
 sand seven hundred and thirty-five, and the amount received 
 therefor nine million t^vo hundred and eighty-five thousand 
 five hundred and thirty-three dollars. The aggregate 
 amount of lands sold, located under military scrip and land 
 warrants, selected as swamp lands by States, and by locating 
 under grants for roads, is upwards of twent3'-three millions 
 of acres. The increase of lands sold, over the previous year, 
 is about six millions of acres ; and the sales during tlic' two 
 first quarters of the current year present the extraordinary 
 result of five and a half millions sold, exceeding by nearl'v 
 four millions of acres the sales of the corresponding quar- 
 ters of the last year. 
 
 The commendable policy of the Government, in relation 
 to setting apart public domain for those who have served 
 the country in time of war, is illustrated by the fact, that 
 since 1790 no less than thirty millions of acres have been 
 applied to this object. 
 
 The suggestions, which I submitted in my annual message 
 of last year, in reference to grants of land in aid of the con- 
 struction of railways, were less full and explicit than the 
 magnitude of the subject and subsequent developments would 
 seem to render proper and desirable. Of the soundness of 
 the principle then assertixl with regard to the limitation of 
 
22 PK1SIDEXT5 MESSAGE. 
 
 the power of Congress, I entertain no doubt ; but in its ap- 
 plici\tion it is not enough that tlie value of Lands in a par- 
 tic idar locality may be enhanced; that, in fact, a larger 
 amount of money may ]irobably be received, in a given time, 
 ibr alternate sections", than could have been realised for all 
 the sections, without the impulse and influence of the pro- 
 posed imi^rovements. A i)rudent proprietor looks beyond 
 limited sections of his domain, beyond present results, to the 
 ultimate eflec-t which a particular line of policy is likely to 
 produce upon all his possessions and interests. The Govern- 
 ment, which is trustee, in this matter, for the people of the 
 States, is bound to take the same wise and comprehensive 
 view. Prior to and during the last session of Congress, up- 
 wards of thirty millions of acres of land were withdrawn 
 fr.jin j)ublic sale with a view to applications for grants of this 
 character pending before Congress. A careful review of the 
 whole subject led me to direct that all such orders be abro- 
 gated, and the lands restored to market ; and instructions 
 were immediately given to that effect. The applications at 
 the lawt session, contemplated the construction of more than 
 five thousand miles of road, and grants to the amount of 
 nearly twenty millions of acres of the public domain. Even 
 admitting the right on the part of Congress to be unques- 
 tionable, is it quite clear that the proposed grants would be 
 productive of good, and not evil ? The different projects are 
 confined, for the ])resent, to eleven States of this Union, and 
 one Territory. The rea.sons assigned for the grants, show 
 that it is ])roposed to put tlie works speedily in process 
 of Construction. Wiien we reflect, that since the commence- 
 ment of the construction of railways in the United States, 
 stimulated as they have been by the large dividends realised 
 from the earlier works over the great thoroughfares, and be- 
 tween the most imjiortant points of commerce and popula- 
 tion, encouraged by State legislation, and pressed forward by 
 the amazing energy of private enterprise, only seventeen 
 thousand miles liave been completed in all the States in a 
 quarter of a cx'utury; — when Ave see the crippled condition 
 of many works commenced and prosecuted upon what were 
 deemed to be sound i)rinciples and safe calculations ; — when 
 we contemplate the enormous absorption of capital with- 
 drawn fr(»m tiie ordinary channels of business, the extrava- 
 gant rates of interest at this moment paid to continue ope- 
 rations, the bankrui)tcies not merely in money, but in 
 character, and tlie inevitable effect upon finances generally ; 
 cati it be dmiljtetl that the tendency is to run to excess in 
 this matter ? Is it wise to augment this excess by encour- 
 
president's message.. 23 
 
 aging hopes of sudden wealth expected to flow from mag- 
 nificent schemes dependent upon the action of Congress? 
 Does the spirit which has produced such results need to 
 be stimulated or checked? Is it not the better rule to 
 leave all these works to private enterprize, regulated, and 
 when expedient, aided, by the co-operation of States? If 
 constructed by private capital, the stimulant and the check 
 go together, and furnish a salutary restraint against specu- 
 lative schemes and extravagance. But it is manifest that, 
 with the most effective guards, there is danger of going too 
 fast and too far. 
 
 We may well pause before a proposition contemplating a 
 simultaneous movement for the construction of railroads, 
 which, in extent, will equal, exclusive of the great Pacific 
 road and all its branches, nearly one-third of tlie entire 
 length of such works, now completed, in the United States, 
 and which cannot cost, with equipments, less than one hun- 
 dred and fifty millions of dollars. The dangers likely to re- 
 sult from combinations of interests of this character, can 
 hardly be over estimated. But, independently of these con- 
 siderations, where is the accurate knowledge, the compre- 
 hensive intelligence, which shall discriminate between the 
 relative claims of tkese twenty-eight proposed roads, in eleven 
 States and one Territory? Where will you begin, and where 
 ■end? If to enable these companies to execute their proposed 
 works, it is necessary that the aid of the General Government 
 be primarily given, the policy will present a problem _ so 
 comprehensive in its bearings, and so important to our politi- 
 cal and social well being, as to claim, in anticipation, the 
 severest analysis. Entertaining these views, I recur with 
 satisfaction to the experience and action of the last ses- 
 sion of Congress, as furnishing assurance that the subject 
 will not fail to elicit a careful re-examination and rigid 
 scrutiny. 
 
 It was my intention to present, on this occasion, some sug- 
 gestions regarding internal improvements by the General 
 Government, which want of time at the close of the last ses- 
 sion prevented my submitting on the return to the House of 
 Representatives, with objections, of the bill entitled, '* an act 
 making appropriation for the repair, preservation and com- 
 pletion of certain public works heretofore commenced under 
 authority of law ;'" but the space in this communication al- 
 ready occupied with other matter of immediate public exi- 
 gency constrains me to reserve that subject for a special 
 message, which will be transmitted to the two houses of 
 Congress at an early day. 
 
24 president's .message. 
 
 The jmliclal estalilishment of the United States requires 
 "modification, and certain ret'unns in the manner of conduct- 
 ing the legal business of the Government are also much 
 needed ; hut as I liave addressed you upon Lotli of these sub- 
 jects at length before, I have only to call your attention to 
 the suggestions then made. 
 
 ]My former reeommcndations, in relation to suitable provi- 
 sion for various ol)jects of deep interest to the inhabitants of 
 the District of Columbia, are renewed. Many of these objects 
 partake largely of a national character, and are important, 
 independently of their relation to the prosperity of the only 
 considerable organized community in the Union, entirely 
 unrepresented in Congress. 
 
 I have thus presented suggestions on such subjects as ap- 
 pear to me to be of particular interest or importance, and 
 therefore most worthy of consideration during the short re- 
 maining j)eriod allotted to the labors of the present Con- 
 gress. 
 
 Our forefathers of the thirteen United Colonies, in acquir- 
 ing their independence, and in founding this Republic of the 
 United {states of America, have devolved upon us, tlieir de- 
 scendants, tlie greatest and the most noble trust ever com- 
 mitted to the hands of man, imposing upon all, and especially 
 such as the public will may have invested, for the time be- 
 ing, with i>i)Utical functions, the most sacred obligations. We 
 have to maintain inviolate the great doctrine of the inherent 
 right of jiopular self-government; to reconcile the largest 
 liberty of the individual citizen, with complete security of the 
 j»ublic order; to render cheerful obedience to the laws of the 
 land, to imite in enforcing their execution, and to frown in- 
 dignantly on all coml)inatious to resist them; to harmonize 
 a sincere and ardent devotion to the institutions of religious 
 faith with the most universal religious toleration; to pre- 
 serve the rights of all by causing each to respect those of the 
 other; to carry ibrward every social improvement to the utter- 
 most limit of luiman perfectibility, by the free action of mind 
 upon mind, not by the obtrusive intervention of misapplied 
 force; to uphold the integrity and guard the limitations of 
 our organic law; to i)reserve sacred from all touch of usur- 
 jiation, as tlio very palladium of our political salvation, the 
 reserved rights and ])owers of the several States and of the 
 jieoph-; to eherislj, with loyal fealty and devoted alTection, 
 this I'nion, as the only sure foundation on which the hopes 
 ot civil lilterty rest^ toudmiuister government with vigilant 
 integrity and rigid economy; to cultivate peace and friend- 
 ship with foreign nations, and to demand and exact equal 
 
president's stessage. "A 
 
 justice from all, but to do wrong to none; to eschew inter- 
 meddling with the national policy and the domestic repose 
 of other governments, and to repel it from our own; never to 
 shrink from war when the riglits and the honor of the coun- 
 try call us to arms, hut to cultivate in preference the arts of 
 peace, seek enlargement of the rights of neutrality, and ele- 
 vate and liberalize the intercourse of nations; and by such 
 just and honorable means, and such only, whilst exalting the 
 condition of the Republic, to assure to it the legitimate influ- 
 ence and the benign authority of a great example amongst 
 all the powers of Christendom. 
 
 Under the solemnity of these convictions, the blessing of 
 Almighty God is earnestly invoked to attend upon your de- 
 liberations, and upon all the counsels and acts of the govern- 
 ment, to the end that, with common zeal and common efforts, 
 we may, in humble submission to the Divine will, co-operate 
 for the promotion of the supreme good of these United States. 
 
 FRANKLIN PIERCE. 
 
 Washington, December 4, 1854:. 
 
 CORRESPONDENCE, 
 
 ACCOMPANYING THE PRESIDENT'S JIESSAGE. 
 
 il/r. Ilason to Secretary Marcy. 
 [No. 37.] Legation United States, 
 
 Paris, October 30, 1854. 
 
 Sir : An incident of very grave import has transpired. 
 In my No. Sfi, I communicated the intelligence that Mr. 
 Soule, United States Minister to Spain, had been prohibited, 
 by alleged orders of the Emperor's government, from enter- 
 ing France. 
 
 That I might, without delay, ascertain the facts of this 
 extrordinary and unusual proceeding, I sent Mr. Piatt, sec- 
 retary of this legation, to Dover, to communicate Avitli Mr. 
 Soule. He left Paris in the evening of the 2oth, and on his 
 arrival, finding that Mr. Soule had left Dover, lie proceeded 
 to London, where he had an interview with that gentleman. 
 The order forbidding his entering France, was wholly un- 
 known to Mr. Soule, and he assures me, that neither by deed 
 nor by words, uttered or written, had lie afforded a shadow 
 of excuse for the wanton measure wliicli, in violation of his 
 rights as a citizen of the North American Republic, and of 
 his privileges as one of its accredited ministers, has inter- 
 4 
 
26 president's message. 
 
 dieted to him a passage through France on his way back to 
 Madrid. 
 
 I lust no time after tlie return of Mr. Piatt, in addressing? 
 to the Minister of Foreign Atiairs, under date of the 26th 
 instant, a communication, of wliich I send you a copy. It 
 Avas sent to the Foreign OfHce on the 28th, and I have not 
 yet received an answer. 
 
 It is imjK'ssihle not to regard this humiliating indignity 
 as dt't'i)ly injurious, when it is remembered that Mr. 8oule, 
 acting undor your orders, has recently spent more than two 
 weeks in Paris; and while sojourning here neither he nor I 
 received any intimation that his presence was objected to by 
 the French government. 
 
 Seeing no adequate cause to justify an unfriendly feeling 
 towards the United States, I cannot but hope that the French 
 government, fiuding that it has acted on erroneous informa- 
 tion, will at once redress this grievous wrong. 
 
 If in this I am disappointed, earnest as I have been since 
 I have represented our country at this court to cultivate the 
 most cordial relations of amity between the two countries, I 
 must consider this incident of such grave importance that it 
 is not im])0ssible I shall regard it to be my duty to termi- 
 nate my mission by demanding my passports. I will not 
 lose a moment in keei)ing you advised of the reply to my 
 nute, and of the i)rogress of events in connexion with this 
 most extraordinary alfair. 
 
 I have the honor to be, very respectfully, your obedient 
 servant, J. Y. MASON. 
 
 3Ir. Mason to M. Drouyn de VHmjs. 
 
 Legation des Etats Unis, 
 
 Paris, October 27, 1854. 
 ^lu. Drouyn de i/Huys, Minister Foreign Aftairs : 
 
 Sir: I have received information that on the 24th iust. 
 ]\Ir. Soule, on his arrival at Calais from the shores of Eng- 
 land, was notified by a police officer that orders had beeii 
 given by the imperial government that he should not be 
 permitted to enter Frauee, and that by these orders he was 
 compelled to return to England, where he now remains. 
 Mr. Soule is a citizen of the United States, accredited as an 
 Envoy Extraordinary and Minister Plenipotentiary from 
 his country to the court of Spain. He had, in executino- 
 the orders of his government, visited Paris and London^, 
 and was returning to his i)ost at j\ladrid, by the most usual 
 and convenient route through the territories of France 
 
president's message. SY 
 
 •wlien he was tlnis arrested in his journey. He had received 
 no notice of the. determination of the Emperor's government 
 to deny him a privilege awarded hy all nations to citizens or 
 suhjects of friendly powers travelling under their protection, 
 and especially those who arc clothed Avith the sacred char- 
 acter of public ministers ; for he was actually arrested in 
 his journey some hours before I received the intimations in 
 regard to him which you did me the honor to give me in 
 the afternoon of the 24th inst. 
 
 If authorized by the Emperor's government, it cannot but 
 be regarded by the government and people of the United 
 States not only as a most unusual and humiliating act to- 
 wards the minister personally, but as a national indignity 
 of very grave character, only to be extenuated by facts es- 
 tablished by conclusive proof. Without waiting for special 
 instructions to that effect, I regard it as my imperative duty 
 to hasten to ask for what reasons one of my fellow-citizens, 
 chosen by my country as a representative to a foreign power, 
 has been so treated, while relations of amity and peace exist 
 and are cherislied by the United States with France. My 
 government will be filled with painful anxiety until satis- 
 factory information in reply to this inquiry can be communi- 
 cated. I cannot but hope that your excellency will furnish 
 me with such explanations as may relieve the minister from 
 the position in which he has thus beeu placed, and which 
 will enable me to allay the unpleasant feelings which the 
 intelligence of this occurrence will occasion in the United 
 States. 
 
 I avail myself of this opportunity to renew to your ex- 
 cellency the assurances of the high consideration with 
 which I am your humble and obedient servant, 
 
 J. Y. MASON. 
 
 Mr. Mason to Secretary 3Iarcy. 
 [No. 41.] Legation United States, 
 
 ' Paris, November 11, 1854. 
 
 Sir : In my despatch No. 37, I informed you of occur 
 rences at Calais by which Mr. Soule was interrupted in the 
 prosecution of his journey to Spain ; and Avitli that despatch 
 I sent you a copy of my letter to M. Drouyn de I'Huys, Min- 
 ister of Foreign'^ Affairs, of 27th October last. On the 1st 
 of November I received from his excellency a note in repl}'- 
 to mine of that date. I send the original, retaining a copy 
 for the files of the legation. Until the receipt of this note, 
 I had understood the prohibition of Mr. Soule's entering 
 
28 president's message. 
 
 France to be unqualified ; and such, too, was tlie understand- 
 ing of that gentleman; for by reason of its execution he had 
 to return to England. 
 
 On the Cth instant I addressed to the Minister of Foreign 
 Affairs a communication of which I send yon herewith a 
 copy. I have received no reply, and presume that it will 
 conclude a correspondence wliich I felt it to be my duty to 
 open without waiting for special instructions from the Presi- 
 dent. The result, I am happy to sa}', is that no impediment 
 exists to the passage of the American minister accredited to 
 the Spanish government through France to his place of 
 official duty. This is recognized, beyond doubt, as a prin- 
 ciple of the law of nations, interesting to every country, be- 
 cause its denial would seriously embarrass the maintenance 
 of dijdomatic missions, whose influence in i")romoting peace 
 and preserving good relations in the family of nations is 
 universally acknowledged. 
 
 I communicated to Mr. Soule, at London, my correspond- 
 ence with the Emperor's government; and on the morning 
 of tlie 9th instant he arrived in Paris, and left on the 11th 
 fur Bordeaux, where he expects to find the United States 
 steam-frigate San Jacinto, in which he will take passage for 
 Spain. 
 
 I have the honor to be, very respectfully, your obedient 
 servant, J. Y. MASON. 
 
 lion. W.M. L. Marcy, Secretary of State. 
 
 M. Drouyn de VHuys to Mr. Mason. 
 
 [Translation.] 
 
 Paris, November 1, 1854. 
 
 Sir : I have received the letter you did me the honor to 
 write me, under date of the 27th of the last month, in which 
 you ask me fur some explanations as to the motiA^es of the 
 deter mi nation taken with regard to Mr. Soule. I must, in 
 the first place, state the manner in which things have oc- 
 curred. 
 
 The Minister of the Interior had to give directions that 
 ^Ir. Soule should not be allowed to penetrate into France 
 witliout the knowledge of the government of the Emperor. 
 The instructions of Mr. Billant were striotly folloAved, and 
 carried out with the utmost propriety by the commissary of 
 polifc at Calais. Accordingly, that functionary did not in- 
 vite? Mr. Souh' to embark again fur England ; he left him per- 
 fectly free to remain at Calais until he should receive orders 
 from Paris, nhirh lie was about to request. It was simply a 
 
PBESIDEJrr's MESSAGE. 29 
 
 question of waiting patiently for one dav at the utmost ; but 
 3Ir. Soule. after saying that he did not expect any regard on the 
 part of the French government, and that, besides, he did not 
 care for it, preferred to go back to England immediately. 
 The Minister of the Interior did. nevertheless, forward his 
 definitive instructions to Calais by telegraph, and I can do 
 nothing better than transcribe them here : 
 
 '•If Mr. Soule presents himself for the purpose of entering 
 France, vou will give him to understand that the Emperor's 
 o-overument does not authorize him to sojourn there, but that 
 it makes no opposition to his passing through in order to go 
 to Spain; and you will offer him to vise his passport for that 
 destination." 
 
 You perceive, sir. that the government of the Emperor has 
 not sought, as you seem to believe, to prevent an envoy of 
 the United States from traversing French territory in order 
 to repair to his post and acquit himself of the co mmi ssion of 
 which he was charged by his Government : but between that 
 simple passage and the stay of a foreigner whose antecedents 
 (I regret to say it) have awakened the attention oi the au- 
 thorities whose duty it is to preserve public order among us, 
 there is a difference which the Minister of the Interior wa5 
 bound to appreciate. If Mr. Soule had been going directly 
 to Madrid, the route by France was open to him. If it was 
 his intention to come to Paris with a view of remaining here, 
 that privilege was not accorded him. It was. therefore, ne- 
 cessary to consult him as to his intentions, and it was him- 
 self who would not allow time to do so. 
 
 Our laws are strict with respect to foreigners. The Min- 
 ister of the Interior causes their rigorous provisions to be 
 executed when it is shown him that there is any necessity for 
 such action : and even then he makes use of discretionary 
 power, which the government of the Emperor has never al- 
 lowed to be discussed. The quality of foreigner on the part 
 of Mr. S<:»ule placed him within the scope of the measure of 
 which he was the object. All that remained was to reconcile 
 this measure with the public character with which he was 
 invested. You wiU acknowledge, sir. that this is what we 
 have done, and that the government of the United States, 
 with which government his Majesty the Emperor has at heart 
 to cultivate the relations of friendship and esteem, has in no- 
 wise been assailed in the person of one of its representatives. 
 
 The Minister of the United States in Spain is free, I repeat 
 it. to pass through France. Mr. Soule. who has no mission 
 to fulfil near the Emperor, and who, conformably with the 
 doctrine sanctioned bv the law of nations, would need, oa ae- 
 
so president's message. 
 
 count of his origin, a special agreement to enable him to 
 rcpre<:ent in his native hind the country of his adoption — 
 Mr. S'Hile, as a simple private individual, comes within the 
 pale of the common law which has been applied to him, and 
 he cannot lay claim to any privileges. 
 
 Accejjt, sir, the assurance of high consideration with which 
 I have the honor to remain vour verv humble and obedient 
 servant, ' DROUYN DE L'HUYS. 
 
 Mr. Ma.^on, United States Minister. 
 
 Mr. Mason to M. Drouyn cle VHuys. 
 
 Legation United States, 
 Paris, November 6, 185-i. 
 
 Sir: I have the honor to acknowledge the receipt of your 
 excellency's letter of the 1st of November, in reply to mine 
 of the 27th of October ultimo. I have carefully examined 
 your narrative of circumstances which led to the event and 
 gave occasion for this correspondence. It is quite manifest 
 that the order under which the commissary of police at Ca- 
 lais acted, when he interdicted Mr. Soule's entrance into 
 France, did not present to the American minister any alter- 
 native but to return to England or remain in Calais, virtually 
 under duress, until the further orders of the Emperor's gov- 
 ernment could be received. I think your excellency will con- 
 cur in the opinion that he could not, consistently with the 
 dignity of his government, remain on the frontier of France — 
 there situated, awaiting orders which he had no reason to be- 
 lieve would be nnu-e favorable than the one which denied him 
 entrance upon French territory. I cannot, therefore, but 
 deeply regret that the precise telegraphic order which your 
 excellency has incorporated in your letter to me did not pre- 
 cede Mr. Soule's arrival at Calais. That order, I am pleased 
 to find, removes all impediment to the free passage of the 
 American minister accredited to the Court of Spain through 
 the territory of France. 
 
 I have not failed to observe the declaration that Mr. Soule's 
 residence in France will not be authorized by the Emperor's 
 government. As his j)ul»lie duties require him to reside in 
 Spain, he has no intention, as far as I am informed, of re- 
 maining or residing in France. I therefore forbear enter- 
 ing into any examination of the reasons suggested for the de- 
 termination to deny him the i)rivilege, or of the manner in 
 which he has been notilied of tlie purpose of the imperial 
 govcrnnieiit. 
 
 I have observed al^o tlie distinction which your excellency 
 
president's message. 31 
 
 makes "between individuals and ministers. Without nnder- 
 takinf^ to inquire how far such distinction can Lo main- 
 tained — for it is not necessary to the occasion to guard my- 
 self against being misunderstood if I i)ass it in silence — I 
 must say that, in ray opinion, one who is a public minister, 
 jmssing through the territory of a friendly nation to the 
 court to which he is accredited, has privileges under the 
 solemn sanction of the law of nations, about which, if it shall 
 become necessary to discuss them, I feel assured that I will 
 not have the misfortune to find conflicting views held by one 
 so enlightened as your excellency. 
 
 I have much satisfaction in receiving the assurance, given 
 in the emphatic declaration of your excellency, that the min- 
 ister of the United States to Spain is at liberty to traverse 
 France towards his post, and obeying the commission with 
 which he is charged by his government. The recognition of 
 this right is all that I have to ask of the Emperor's govern- 
 ment in the premises ; and on this, as on all other occasions, 
 I receive with pleasure the assurance that the government of 
 his Imperial Majesty has at heart relations of friendship and 
 esteem with the government of the United States; feeling 
 which, it is my constant desire and eifort to cherish and 
 strengthen them. 
 
 I will hasten to communicate this correspondence to my 
 government, and will also inform the American minister to 
 Spain, who is still in London, of the result which has been 
 arrived at. 
 
 I avail myself of the opportunity to renew to your excel- 
 lency assurance of the very high consideration with which 
 I am your obedient, humble servant, 
 
 J. Y. MASON. 
 
II. -THE TREASURY. 
 
 REPORT OF TirE SECRETARY OF THE TREASURY, 
 OX THE STATE OF THE FINANCES. 
 
 Treasury Department, 
 
 December 4, 1854. 
 
 Sir : In obedience to the "act supplementary to tlie act en- 
 titled 'An act to establish the Treasury Department,'" ap- 
 proved May 10, 1800, the following report is submitted: 
 The balance in the treasury on the 1st of 
 
 July, 1853, was $21,942,892 56 
 
 And the actual receipts into the treasury for 
 the first quarter were : 
 
 From customs $19,718,822 00 
 
 From lands 1,489,562 05 
 
 Miscellaneous 147,994 87 
 
 21,356,378 92 
 And the estimated receipts for the other three 
 quarters were: 
 
 From customs 37,000,000 00 
 
 From lands 3,000,000 00 
 
 Miscellaneous 300,000 00 
 
 Mfikint:; the artual receipts for the first quar- 
 ter, and the estimated receipts for the other 
 three quarters 61,656,378 92 
 
 Add balance in the treasury 21,942,892 56 
 
 Total for service of the year 83,599,271 48 
 
 The actual expenditures of the first quarter of the fiscal 
 year 1853 were $15,081,383 70, and the estimated expendi- 
 tures for the remaining three quarters were $57,251,283 16, 
 making Ibr the actual exi)euditures of the first quarter, and 
 the estinnited exi>('uditures fur tlie other three quarters, 
 .v72.3:!'J,r.(;0 sO; wliich would have left an estimated balance 
 iu the treasury ou the 1st of July, 1854, of $11,266,604 62. 
 
 32 
 
THE TREASURY. 33 
 
 The actual receipts into the treasury for the fiscal year 
 
 ending 30th of June, 1854, were as follows: 
 
 Lst (|uarter — from customs $19,71 S. 822 00 
 
 from lands 1 ,48'J,r.(;2 05 
 
 miscellaneous 147,0'J4 87 
 
 21,356,378 92 
 
 2nd quarter — from customs 13,578,821 27 
 
 from lands 2,223,07G 39 
 
 miscellaneous 101,963 64 
 
 15,912,861 30 
 
 3rd quarter — from customs 16,896,724 83 
 
 from lands 2,012,908 36 
 
 miscellaneous 486,091 93 
 
 19,395,725 12 
 
 4th quarter — from customs 14,020,822 17 
 
 from lands 2,745,251 59 
 
 miscellaneous 118,666 10 
 
 16,884,739 86 
 
 Making 73,549,705 20 
 
 Balance in the treasury 1st of July, 1853 21,942,892 56 
 
 Total sum for the service of the fiscal year 
 
 ending June 30, 1854 95,402.597 76 
 
 The receipts from customs were 64,224,190 27 
 
 lands 8,470,798 39 
 
 miscellaneous 854.716 54 
 
 Balance in treasury 21,942^892 56 
 
 95,492,597 76 
 The actual expenditures for each quarter of 
 said year were: 
 
 For 1st quarter $15,081,383 70 
 
 2d quarter 22,301,896 24 
 
 3d quarter 12,448,947 42 
 
 4th quarter 25,522.402 90 
 
 '. 75.354.630 26 
 
 Leaving a balance in the treasury July 1, 
 
 1854, of. 20,13 7,967 5 
 
 5 ' 
 
34 THE TREASURY. 
 
 The usual and ordinary expenditures were as follows : 
 
 Civillist $4,649,384 98 
 
 Forei*:;n intercourse 7,726,677 13 
 
 Miseellaneou-s 13,531,310 33 
 
 Interior Department 2,609,054 79 
 
 War Department 11,733,629 48 
 
 Navy Department 10,768,192 89 
 
 Kedi-mption ol" public debt, interest and pre- 
 mium 24,336,380 66 
 
 Total expenditures 75,354,630 26 
 
 Balance in tlic treasury July 1, 1854, $20,137,967 50, as 
 api>ears in detail, per statement 1. 
 
 The estimated receipts for the fiscal year ending June 30, 
 1855. were as follows: 
 
 From customs $51,000,000 00 
 
 From lands 3,500,000 00 
 
 Miscellaneous 500,000 00 
 
 55,000,000 00 
 Add estimated balance in the treasury July 1, 
 
 1854 11,266,604 62 
 
 Estimated resources for the fiscal year ending 
 
 June 30. 1855 66,266,604 62 
 
 The estimated expenditures for the same year 
 
 were as follows : 
 Bahince of former ap]iropria- 
 
 tions to be expendtnl during 
 
 the year $6,865,126 44 
 
 Permanent and indefinite ap- 
 
 ]»ro))riations to be expended 
 
 ^ during the year.... 8,285,716 14 
 
 Specific approjiriations asked 
 
 for the service of the year... 35,909,434 54 
 
 Making an aggregate of 51,060,277 12 
 
 Leaving in the treasury, July 1, 1855, a bal- 
 
 "iiL-eof. .' : 15,206,327 50 
 
 The r(>C(ipts of the 1st quarter of the fiscal year, ending 
 September :'.0, 1854, have been as follows: 
 From custom.s $18,639,798 45 
 
THE TREASTRY. 35 
 
 From lands $2,7^1,054 12 
 
 Miscellaneous M!».Rr)0 2« 
 
 Total 21,521,:Ki2 85 
 
 The expenditures for the same first quarter have been as 
 follows : 
 Civil, miscellaneous, and foreign intercourse $6,241,749 31 
 
 Interior Department 2,175,737 13 
 
 AVar Department 3,307,030 92 
 
 Navy Department 2,508,791 09 
 
 Redemption of public debt, interest and pre- 
 mium 1,870,01 3 17 
 
 Total expenditures 10,1 09,330 G2 
 
 as appears, in detail, from table 2. 
 
 The receipts for the remaining three quarters of the year 
 are now estimated as follows : 
 
 From customs $30,000,000 00 
 
 From lands 6,000,000 00 
 
 Miscellaneous 500,000 00 
 
 Total 42,500,000 00 
 
 The receipts for the first quarter, the estimated receipts 
 for the remaining three quarters, and the balance in the 
 treasury on the first day of July, 1854, making a total sum 
 of $84,107,967 50 for the service of the fiscal year ending 
 June 30, 1855. 
 
 The estimated expenditures for the remaining three quar- 
 ters of the year are as follows : 
 Civil list, foreign intercourse, and miscella- 
 neous $15,060,931 13 
 
 Deficiency in the Post Oflice Department 2,719,404 00 
 
 Interior Department 3,133,055 25 
 
 War Department 13,028,350 90 
 
 Navy Department 11,258,095 71 
 
 Interest on the public debt 2,370,093 00 
 
 Making 48, 176,590 59 
 
 Total estimated expenditures for the year 1855 64,345,921 21 
 
 The expenditures of the first quarter, and the estimated 
 expenditures for the remaining three (quarters are $64,345.- 
 
36 THE TREASURY. 
 
 921 21, leavinj^ an estimated balance in the treasury, on the 
 1st ,lav of July, 185r., of $19,702.04(1 29. 
 
 There is always, at the close ol" the fiscal year, a balance 
 thus estiniatcil. not expended, of at least $12,000,000. That 
 $12,000,000 may be api)lied to the purchase of the i)ublic 
 debt durinj:; tlieremaining three quarters, without disturbing 
 the estimated balance in the treasury. 
 The amount of the ])ublic debt, outstanding 
 
 un the 1st day of July, 1853, was $67,340,628 78 
 
 And on the 1st day of July, 1854 47,180,506 05 
 
 Being a reduction of. 20,160,122 73 
 
 The estimated receipts for the fiscal year ending June 30, 
 1856, are as follows: 
 
 From customs $56,000,000 00 
 
 From lands 6,000,000 00 
 
 Miscellaneous 500,000 00 
 
 62,500,000 00 
 Add estimated balance in the treasury July 
 
 1, 1855 19,762,046 29 
 
 Making the estimated sum of 82,262,046 20 
 
 for the service of the fiscal year 1856. 
 
 Estimated expenditures for the fiscal year, 1856: 
 
 Balance of former appropriations, to be ex- 
 pended this year $11,212,905 20 
 
 Permanent and indefinite ap]i)ropriations, to 
 
 be expended this year 7,934,411 70 
 
 A])propriations asked for, and to be expended 
 
 this year 41,722,516 47 
 
 60,869,833 37 
 leaving the sum of $21,392,212 92 on the 1st of July, 1856. 
 
 Upon this estimate of the receii)ts and expenditures of the 
 fiscal year 1856, there will be a balance in the treasury on the 
 Ist of July, 185r), of ,*«;2 1,392,212 92, without expending any 
 thing in tlie redumption of the public debt; but if $12,000,000 
 shall be applied to the redem])tion of the public debt, which 
 may be done, there will remain an estimated balance in the 
 treasury of $9,392,212 92. 
 
 It appears the receipts from customs for the second, third, 
 and fourth quarters of the fiscal year 1854, were not dimin- 
 i.-iljetl from the pressure in the money market, and other causes, 
 as expected in my former report. They were kept up from 
 
THE TREASURY. St 
 
 importations, growing out of large exports of provisions, 
 caused by the scarcity in England and France, and tlie ex- 
 pected demands of the European war, and by the shipments 
 to this country of foreign manufacturers, who, owing tu tlie 
 want of a remunerating market in those countries, sought 
 the benefit of ours. They were also kept up by a greater 
 uniformity and better valuation of foreign goods, and a dimi- 
 nution in smuggling, caused by increased vigilance on tlie 
 part of the revenue otficers. The foreign and internal im- 
 migration to the new States and Territories, combined with 
 speculative investments in .the public lands, greatly in- 
 creased the receipts from that source; so that, instead of a 
 reduced revenue, as antici})ated, the receipts have been greater 
 than in any previous year. 
 
 It also appears from the statement of the recei])ts of the 
 first quarter of the fiscal year 185-1, that the receipts, both 
 from customs and lands, have been greater for the quarter 
 than a fair proportion of the estimated receipts for the year. 
 This has grown out of the same causes that kept up tlie re 
 ceipts from customs and lands for tlie last three quarters of 
 the fiscal year 1854, aided as to lands, to some extent, by the 
 effect of the act graduating the price, which operated in favor 
 of the receipts for the latter half of the quarter. 
 
 The receipts from customs for the remaining three quar- 
 ters of the year cannot be in proportion to those of the first 
 quarter, owing to the reciprocity treaty, introducing free 
 trade with the British colonies, and the short crops in almost 
 all portions of the country, which must materially affect the 
 exportation of provisions, and the return importations, and 
 diminish the ability to purchase and jjay for foreign goods. 
 The effect of a scarcity of provisions, with consequent high 
 prices, has always been to diminish the consumption of other 
 articles of customary use, and may be expected to operate on 
 the importations for the remaining three quarters of the 
 year, as it certainly will on the consumption. Moreover, the 
 United States have enjoyed a long period of agricultural, 
 manufacturing, and* commercial pros])erity, under extended 
 bank and other credit facilities, backed by the immense }»ro- 
 duction of gold from the mines of California. This has led 
 to large speculative investments in railroads, lands, lots, 
 houses, ships, stocks, and other eutcr})rizes, and to enhanced 
 prices for rents, labor, provisions, and all the necessaries of 
 life. The bank and credit facilities have been in check for 
 more than a year, with a prosi)ect of a continued check; 
 whilst the large and extended indebtedness of operators has 
 to be met under receding prices, without the stimulating 
 
38 THE TREASURY. 
 
 effect of new enterprizes. This will also act in restraint of im- 
 portations and consuni])tion. In the estimated receipts from 
 cu>toms for tlie tliree remaining- quarters of tlie current fiscal 
 year, tlie effects of the reciprocity treaty and reduced impor- 
 tations have been considered; whilst, also, the same causes 
 will operate in the sale of the public lands; but the effect of 
 the fict graduating the price has been considered sufficient to 
 keep up the receipts from the latter source to what they 
 were for the fiscal year 1854. 
 
 The estimate of receipts for the fiscal year 1856 has been 
 made from an exi)ectation that the same causes which will 
 operate to reduce the im])ortations and consumption of for- 
 eign goods for the remaining three quarters of the fiscal year 
 1855, will be continued through a part of the succeeding 
 year, and sensibly affect the importation and consumption of 
 foreign goods. 
 
 Tlie accompanying table, 3, exhibits the particulars of the 
 puldic debt on tlie 1st of Jnly, 1853, and the accompanying 
 table, 4, exhibits the i)articulars of the public debt on the 1st 
 of July, 1854, to wliich is appended a table exliibiting the 
 interest paid on the public debt during the fiscal year 1854, 
 and the princi})al, interest, and premium, on the part re- 
 deemed within that year. Table 5 exhibits the principal, 
 interest, and }>remium on the ])ublic debt redeemed from the 
 1st July, 1854, to the 20th November, 1854. From these 
 tables it appears that the sum of $20,098,422 73 of the pub- 
 lic debt was redeemed between the 1st of July, 1853, and the 
 1st of July, 1854, and that the interest and premium paid on 
 the amount redeemed was $3,345,545 23; and tlie principal, 
 interest, and premium on that part of the public debt re- 
 deemed between the 1st of July, 1854, and the 20th of No- 
 vember, 1854, was $2,(;04,203 51. 
 
 The table 0, which accompanies this report, exhibits the 
 tonnage engaged in our foreign and coasting trade from the 
 year i78'J to tlie 30th of June, 1854. It will be seen the 
 inorea.sc for the last year has been o'J5,892f 5 tons. 
 
 The table, 7, which accompanies this report, exhibits our 
 exports and imports for the same time; and the table, 8, 
 which also accompanies this report, exhibits the sums re- 
 ceived into the treasury from customs, public lands, miscella- 
 n':-"us sources, including loans and treasury notes, and the 
 tar i If iind jKirticular price of the public lands under which 
 the same was received; also the annual expenditures during 
 tlie same period. From the table of exports and imports it 
 appears the imports are $26,321,317 in excess of the exports, 
 U" account being taken of the precious metals brought iu by 
 
THE TREASURY. 39 
 
 emigrants. The profits on our exports, and the freights 
 earned by our ships in foreign trade, ought to more tlian 
 cover this excess. The exports include over $38,000,000 of 
 specie and Imllion exported; hut, whilst specie and bullion 
 are products of labor in our mines, they rank with any other 
 product, and must enter into our foreign trade as articles of 
 commerce, and can have no prejudicial eftect upon the great 
 interests of the country. These tables combined, exhibit the 
 growth of our commercial marine, of our exports and im- 
 ports, and the receipts and expenditures of our government, 
 and prove that the receipts into the treasury arc sufficient to 
 meet all reasonable expenditures, discharge the public debt, 
 and allow a reduction of the rate of taxation, with almost a 
 certainty that our increasing commerce will give an increase 
 of revenue equal to the reasonable demands of the future. 
 
 Therefore, I feel it necessary, again, to call the attention 
 of Congress to the propriety of reducing the revenue from 
 customs, so that no more money shall be received into the 
 treasury than is required for an economical administration 
 of the government. The reduction proposed in my former 
 report, as carried out by the bill prepared in this department, 
 and the reduction proposed in the bill, prepared and reported 
 by the Committee of Ways and Means of the House of Eep- 
 rcsentatives, would each have efi'ected the object of bringing 
 the receipts from customs to the proposed revenue standard. 
 
 The present tariff" has eight schedules, or different rates of 
 duties, as follows: The first of 100 per cent., the second of 40 
 per cent., the third of 30 per cent., the fourth of 25 per cent., 
 the fifth of 20 per cent, the sixth of 15 per cent., the seventh 
 of 10 per cent., and the eighth of 5 per cent. The bill pre- 
 pared by the Committee of the House of Representatives has 
 five schedules, as follows: The first of 100 per cent., the sec- 
 ond of 20 per cent., the third of 15 per cent., the fourth of 
 10 per cent., and the fifth of 5 per cent. And the bill pre- 
 pared at this department, and which is substantially the one 
 reported by the minority of the Committee of the House of 
 Representatives, has but two rates of duty : The first of 100 
 per cent., and the second of 25 per cent. There are difHcul- 
 ties in the execution of the present tariff' growing out of the 
 required classification under the eight schedules: and these 
 difficulties continue to increase by the acts of the manufac- 
 turers in assimilating one class of goods to another, and in 
 ascertaining the material of chief value in the fabrics. Tlie 
 difficulties M'ould be reduced under the bill of the committee, 
 and would entirely disappear under that proposed by the de- 
 partment. 
 
40 THE TREAsmr. 
 
 The hill of the committee. Avith the tahles herewith an- 
 nexed, exhihits the revenue from customs for tlie fiscal year 
 endine: the 3Uth of June, 1853, and what has been the revenue 
 undeAhe present tarilf for the aver.'ige of six years, inclu- 
 ding 1853, and what would have been the receipts for the 
 same periods under the hill of the committee, and under the 
 one reconiTuended hy this department. These tables only 
 include the enumerated articles in the bill of the committee, 
 leavin-j; the sum of about ^2,000,000 of revenue from unenume- 
 rated articles; but they are sufficient to explain the character 
 of the present taritf, the one proposed by the committee, and 
 the one by the department. 
 
 Herewith is also presented exhibit 10, containing the free 
 list jiroposed by this department, to which is added the Eng- 
 lish tariff on tlie same articles ; from which it will be seen 
 that the English tariff makes most of these articles free; and 
 as far as these articles are used in the arts and manufactures, 
 most of them are free of duty under the laws of other 
 manufacturing nations. Under the English tariff, the raw 
 material used in the arts and manufactures have been made 
 free of duty, whilst our tariff of 1846 imposes on those arti- 
 cles heavy duties ; and thus, to the extent of the duty on the 
 raw material, the English manufacturer has a decided advan- 
 tage over manufacturers of the United States in the markets 
 of other nations, wliilst the effect of the tariff of 181:6 is re- 
 duced in our own markets. In the revision of the tariff, for 
 the ])urpose of reducing the revenue, it was deemed expe- 
 dient and ])roper to take away the advantages accruing to 
 the manuiacturcrs (,»f other countries, under their free list, by 
 making the same articles free under our laws, except as to 
 the article of wool, and as to that article, on the coarser 
 wools. I'nder the reciprocity treaty, wool from the British 
 provinces will be admitted free of duty. In 1853, the im- 
 jiortations of wool and woolen goods amounted to over $30,- 
 000. (>()(», and the wool and the value of the wool in the manu- 
 factured article amounted to at least $10,000,000. This was 
 «n-er and abitve the amount produced in the country, and af- 
 fords satisfactory evidence that sufficient wool is not pro- 
 duer(l in the country for its consumption. The consumption 
 of wool in the United States for the year 1853, is estimated 
 at 200,000,000 pounds, of which 00,000,000 is the production 
 of tiie country, and 21,000,000 imported as wool, and the 
 balanee (if ll'.'l.OOO.OOO im])orted in Uianuftictures of wool. 
 
 The proposed ad<lition of articles of general consumption 
 to the free list, such as salt, &c., was deemed more question- 
 able. Itut wiis made because it seemed to have had the sane- 
 
THE TREASURY. 41 
 
 tion of Congress and the people, as to tea and coffee, and it 
 was thought wonUl leave the o])eration of the tarilF laws more 
 equitable in their hearing upon all sections of the country 
 than a general reduction on all articles. The addition of 
 unadulterated wines was made to promote our commercial 
 intercourse with wiiie-producing countries. 
 
 The present tariif. the hill of the Committee of the House 
 of Eepresentatives, and that of tliis department, impose the 
 like duty of 100 per cent, on spirits imported. The hill of 
 the^ommittee reduces the schedules of the present tariff from 
 40,*0, and 25 per cent, to 20 per cent., retaining the 15, 10, 
 and 5 per cent, schedules, with some transposition of articles 
 from one schedule to another; whilst that of the department 
 imposes a duty of 25 per cent, on all articles not made free; 
 most of the articles in the 15, 10, and 5 per cent, schedules" 
 of the present tariff having been added to the free list, there 
 being no just reason why the articles not added to the free 
 list should not pay the higher rate of 25 per cent. The ta- 
 ble 11, Avhich accompanies this report, exhibits the amount 
 that would have been collected for the year 1853 under the 
 present tariff, the bill of the committee, and that of the de- 
 partment and what would have been collected under each 
 schedule of the bill of the committee, and affords evidence 
 that the 5th schedule will not pay the expenses of collection. 
 Indeed, it is believed the advantages of these schedules will 
 be counterbalanced by the increased difficulties and expense 
 of collection. Whether the general rate should be 20 or 25 
 per cent., is a question of some doubt. It was thought that 
 a reduction to 20 per cent, might have the effect of increasing 
 the revenue by increasing the importations ; whilst the duty 
 of 25 per cent, would not probably have that effect. A ques- 
 tion of greater difficulty was, whether the rate of 40 per cent, 
 should not be retained on manufactured and adulterated 
 wines, and whether silks and some other sumptuary articles 
 should not be added to that schedule. Upon mature reflec- 
 tion, I am fully satisfied that the schedule of 40 per cent, 
 should have been retained, keeping in it wines not made free, 
 and adding to it silks of all kinds, laces of all kinds, milli- 
 nery of all kinds, and other sumptuary articles; and I now 
 recommend that, in revising the tariff, such a schedule, spe- 
 cifying tlie articles, be added. 
 
 The table, 12, which accompanies this report, exhibits the 
 articles manufactured in the United States, which have 
 formed a part of our exports for the years 1846, 1847, 1848, 
 1849, 1850, 1851, 1852, 1853 and 1854. It Avill be seen from 
 this table that there has been a great increase in the annual 
 G 
 
42 THE TREASCHT. 
 
 cxi)ort of articles manufactured in this country. It may he 
 fairly calculated that the $2('), 000,000, and upwards, of manu- 
 factured articles ex2)orted during the fiscal year 1854 Avill 
 CiUitinue gradually to increase, until the manufactures of 
 the United States shall constitute a fair jH-oportion of our 
 foreign exports. 
 
 In recognizing, as I do, the principle that duties should 
 be levied for revenue, and not for protection, I have consid- 
 ered it no de])arture from the principle to counteract the le- 
 gislation of other countries, and make the same articles ^-ee 
 under our laws that are free under theirs ; knowing, also, 
 that there never has been a tariff law enacted, under the 
 constitution, in which some articles were not allowed to be 
 im])orted free of duty. 
 
 The table, 13, Avhich accom])anies this report, exhibits du- 
 ties to the amount of $1,524,457 40 on the articles made free 
 l)y the reciprocity treaty with Great Britain during the 
 fiscal year 1854 ; to which extent the annual revenue from 
 customs will thereby be reduced. 
 
 In my former report a repeal of the fishing bounties was 
 recommended, for the reasons there referred to. That re- 
 commendation is renewed, and the subject of drawback 
 duties on refined sugar is recommended to the consideration 
 of Congress. The same principle would require like draw- 
 backs on all ex})orted articles on which there is a duty on 
 the raw material used in their manufacture. 
 
 The reports of the First, Second, Third, Fourth, Fifth, 
 and Sixth Auditors, and of the First and Second Comptrol- 
 lers, and the Commissioner of Customs, which accompany 
 tliis report, numljcred from 14 to 22, inclusive, exhibit a fair 
 statement of the operations and conditions of their respec- 
 tive offices. They are all in good order, and the current 
 business is }»rom]>tly, and, it is believed, correctly done ; and, 
 besides, considerable progress has been made in closing the 
 large unsettled balances that stood open on the books ol" the 
 treasury, as stated in my former report. 
 
 That rejjort stated the outstanding balance on the 1st of 
 April, 1853, at .' .$132,521,704 09 
 
 And there hafl been settled, up to the date 
 
 of that report 30,500,154 50 
 
 ^^•^a^'^'o' $102,021,549 59 
 
 Since the diitc of that report, this sum has 
 
 Ijceii reduced by settlements, collections, 
 
 &c., as follows: 
 
THE TREASmiY. 43 
 
 In tne office of the First and 
 Fifth Auditors, per report 
 of the First Comptroller of 
 the Treasury $65,237,291 47 
 
 Corrections in the same 1,001,020 00 
 
 In the office of the First Au- 
 ditor, per report of the Com- 
 missioner of Customs 2,523,872 72 
 
 In the office of the Second, 
 Tljirdand Fourth Auditors, 
 per report of the Second 
 Comptroller 4,924,265 64 
 
 In the office of the Auditor 
 for the Tost Office Depart- 
 ment 400,715 64 
 
 In the office of the Solicitor of 
 
 the Treasury 351,235 50 
 
 74,438,400 97 
 
 Leaving yet unclosed $27,583,148 62 
 
 The reports of the First and Second Comptrollers, and of 
 the Commissioner of Customs, upon the subject of these 
 balances, numbered 23, 24, and 25, and which accompany 
 this report, give reason to hope that in another year they 
 will be still further reduced, and a stricter system of ac- 
 counting enforced. 
 
 The force in the office of the Sixth Auditor and First 
 Comptroller is inadequate to the increased business in the 
 former, and the increased business and arrearages in the 
 latter ; and it was not possible to give the required addi- 
 tional force by transfers from other offices, owing, in part, to 
 the curtailment of five clerks in the Third Auditor's office, 
 one in the Second Auditor's office, and one in the Second 
 Comptroller's, from the failure to estimate for them, and 
 from Congress only granting eleven of the twenty-one 
 clerks recommended by the department. The attention of 
 Congress is called to the report of the Sixth Auditor and the 
 First Comptroller, as to the necessity for additional force in 
 their respective offices. It is recommended that Congress 
 allow five additional clerks and two additional messengers 
 to the Sixth Auditor, and two additional clerks to the First 
 Comptroller. The attention of Congress is also called to the 
 report of the Sixth Auditor, as to the necessity of additional 
 room for the accommodation of the clerks of his office, and 
 the safety of the accumulating papers and records, with a 
 
44 THE TREASURY. 
 
 recommendation that Congress make provision for the 
 same. 
 
 It woukl facilitate tlie hnsincss, and render less complicated 
 the accounts of the department, sliould all the accounts of the 
 Interior Department be given to the Second Auditor, and 
 all the accounts of the War Department be given to the 
 Third Auditor, as recommended in my former report. 
 
 The attention of Congress is called to the fact that the 
 Commissioner of the General Land Oflice and his clerks still 
 occupy a portion of the Treasury building, and that the First 
 and Fiftli Auditors and their clerks, and part of the clSrks 
 of the Third Auditor, have to be accommodated in rented 
 buildings, apart from the Treasury building; also, that the 
 clerical force in the building cannot be accommodated in 
 suitable connexion. Under the expectation that the Land 
 Office will be removed in the course of next spring, an esti- 
 mate has been su})mitted for the expense of affording addi- 
 tional light and ventilation to the Treasury building, so that 
 the rooms will be more convenient and comfortable, and the 
 necessary appropriation for that purpose is recommended. 
 
 The system of monthly accounts from the collectors of 
 customs, and the settlement thereof, within the succeeding 
 month, at the Treasury, has been adhered to and fully carried 
 out, with a few exceptions upon the Pacific; and the accounts 
 are being rendered and settled with great dispatch. The 
 benefits growing out of this system to the public, and the 
 officers of the revenue, is more manifest the longer it is en- 
 forced. The department has caused the collector's offices in 
 all the ports to be examined within the year, with but few 
 excejitions, by agents of the department, in order to ascer- 
 tain huw their books and accounts were kept, and, by per- 
 sonal ins})ection, how the official corps discharged their duties. 
 Tliese examinations have enabled this department to correct 
 errors and omissions, and to see that the official corps devote 
 themselves, in person, to the duties confided to them, and 
 have resulted in securing greater vigilance, and a more faitli- 
 ful application of the revenue laws. 
 
 Tiiu rojiort of the Ficgister of the Treasury (No. 26) also 
 accom}>aiiies this. It exhibits a greatly improved condition 
 of his office. The annual report on commerce and naviga- 
 tion is in advance of any former one, and will be in print for 
 the use of Congress at the commencement of its labors. The 
 , business of the office has been promptly and well done. 
 i The Solicitor of tlie Treasury has caused to be made out a 
 schedule (No. 27) of all the lots and lands purchased under 
 execution and decrees for the United States, or otherwise 
 
THE TREASURY. 45 
 
 taken for debts dne to tlie United States, and wliicli have 
 heretofore been sohl, and also a scliedule of all such lands as 
 are now held by the United States. They are submitted, in 
 order that Congress may have in view the sales heretofore 
 made, and devise some suitable mode for the future sale of 
 the property on hand, and such as may hereafter be acquired; 
 also for closing or crediting on the books of the Treasury 
 such debts as have been, or shall be discharged in whole or 
 in part by the purchase of real estate ; because, after ac- 
 counts have been stated at the Treasury, leaving a balance 
 due to the United States, they are passed to the Register, 
 and appear on his books, and then to the Solicitor, and ap- 
 pear on his books, and are then sent to the proper district 
 attorney for suit. When the debt is collected and paid into 
 the treasury, in whole or in part, the amount so paid is en- 
 tered on the books of the Auditor, where the account was 
 first stated, and then on the books of the Comptroller, and 
 then on the books of the Register ; but where lands or any 
 other thing is purchased under execution for the debt in 
 ■whole or in part, no entry thereof is made on the books of the 
 Auditor, Comptroller, and Register, until a re-sale is made 
 and the money is paid into the treasury ; and wdien the 
 United States fail, in whole or in part, in tlie courts, no entry 
 is made on the books of the Auditor, Comptroller, and Re- 
 gister. Thus, the books of the treasury exhibit balances due 
 the United States alter the same are discharged. This might 
 be remedied by a treasury regulation, causing the proper 
 entries to be made on the books of the Auditor, Comp- 
 troller, and Register, and opening in each office an account 
 of the lands, &c., purchased for the United States on each 
 debt, and for the discrepancies between the treasury state- 
 ments of indebtedness and the judgment in the particular 
 case; but it had better be regulated by Congress. This cor- 
 rection of the books would be a w^ork taking considerable 
 time and labor, as it would require to overhaul the books from 
 the commencement of the government. Yet no just state- 
 ment of the condition of the balances on the books of the 
 treasury can be made until it is done. 
 
 The report of the Solicitor of the Treasury (No. 28) also 
 accompanies this report, and exhibits the operations of that 
 office, and the attention given to the trial of suits, and the 
 collection of money upon judgments in I'avor of the United 
 States, with suggestions as to the propriety of amending the 
 law so as to authorize a commission to district attorneys for 
 the collection of old judgments, and the propriety of author- 
 izing the department to mal^e compromises and settlements. 
 
46 THE TREASURY. 
 
 Tlie attention of Congress is called to the subject, with a 
 recominendation that the department be authorized to allow 
 district attorneys and others, employed for that purpose, a 
 commission not exceeding ten per cent, on the amount 
 collected. 
 
 The report of the Treasurer of the United States, (No. 29,) 
 also accompanies this. The business in the office of the 
 Treasurer has been promptly and satisfactorily performed. 
 The money, both of the United States and the disbursing 
 agents of the Government, deposited, has been safely kept. 
 One additional clerk for the Treasurer's office is recom- 
 mended, for the reasons stated by the Treasurer in his 
 report. 
 
 Under the 11th section of the independent treasury law, it 
 was thought advisable to have the offices of the assistant 
 treasurers, and the depositaries of the United States, exam- 
 ined by an agent of the department, and Mr. William M. 
 Gouge was ai)pointed to examine all of them, excejjt that of 
 San Francisco, California. His letter of appointment, No. 
 30, accompanies this report, as also his general report upon 
 the condition and operation of the offices used as depositaries 
 of the public money, and by the disbursing agents of the 
 government, exhibiting a highly satisfactory condition of 
 said offices, the keeping the books and the public money, and 
 the duties of the respective officers. He will be required to 
 examine the southern offices not heretofore examined by him. 
 The assistant treasurer's office at San Francisco has been ex- 
 amined by J. Ross Browne, another agent of the department, 
 and that office found in good condition, and the business 
 promptly and satisfactorily performed. 
 
 The table, 31, which accompanies this report exhibits the 
 imports and exports of coin from the 30th day of September, 
 1821, to tlie 30th day of June, 1854 ; and the table, 32, which 
 accompanies this report, exhibits the coinage at the United 
 States mint from the year 1792 to the 30th day of September, 
 18.54; and tlie table, 33, which also accompanies this report, 
 exhibits the coinage of the United States mint and branches, 
 from our own mines, from the year 1804 to the 30th day of 
 September, 1854. 
 
 Under the act of 1853 there has been $10,152,170 of silver 
 coined at the mint in Philadelphia and branch mint at New 
 Ork-ans, and circulated at Philadelphia, New York, Boston, 
 Detroit, Chicago, Baltimore, Washington, Richmond, Norfolk, 
 (Charleston, Savannah, New Orleans, St. Louis, Jeffersonville, 
 Cincinnati, San Francisco and Pittsburg, and furnished to citi- 
 zens at various uther places. This has tended to keep a sound 
 
THE TREASURY. 47 
 
 currency for change in circulation, and afforded great conve- 
 nience to the public; but the circulation of large amounts of 
 small bank notes has contracted the benefits of the silver 
 change in many places, or driven it away, or tied it up in the 
 pockets of the people. The full benefit of silver coinage for 
 change can never be realized whilst small bank notes are en- 
 couraged under bank charters, and made current by the pa- 
 tronage of the community. 
 
 These tables give some data from which an estimate may 
 be made of the increasing amount of gold and silver coin 
 retained in the country. The table 34, wdth the remarks 
 annexed, whicb accompany this report, exhibits estimates 
 made by Secretaries of the Treasury, and others, of the amount 
 of gold and silver coin in the country at different periods, 
 and gives the amount on the 30tli of September, 1854, at 
 $241,000,000, which is believed not to be a high estimate. 
 Of this sum there was about .$60,000,000 in the banks, and 
 $26,000,000 in the United States treasury— the rest being in 
 circulation amongst the people, or hoarded up. 
 
 It appears from the report on the banks from this depart- 
 ment, submitted to Congress on the 6th of May, 1854, that 
 in 1850-51 there were 879 banks in the United States, with 
 a capital of $227,807,533, and in 1853-54 there were 1,208 
 banks, with a capital of $301,756,071, being an increase of 
 $73,948,538. In 1850-51 the circulation of the 879 banks 
 was $155,165,251; deposites, $128,957,712; due to other 
 banks, $46,411,928; and together, $330,539,891; and in 1853- 
 '54 the circulation of the 1,208 banks was $204,689,207, the 
 deposites, $188,188,744, and there Avas due to other banks 
 §50,322,162, and together $443,200,113, making an increase 
 of $112,660,222, with specie in their vaults in 1850-51 of 
 $48,671,048, and in 1853-54 of $59,410,253, being an increase 
 of $10,739,205. These tables exhibit a bank circulation of 
 $204,689,209, against the $241,000,000 of gold and silver in 
 the country. The independent treasury of the United States, 
 receiving and paying for the fiscal year 1854 more than 
 $75,000,000 in the current coin, has kept up the demand for 
 it, and prevented the large bank circulation from obtaining 
 the mastery, and driving the constitutional currency from 
 the country. In our table of exports we find an increase in 
 the export of coin over the previous year, but not exceeding 
 the produce of our mines. This increase may be, in part, 
 accounted for by the large redemption of the public debt held 
 abroad, and the bank circulation, a large part of which was 
 in small notes circulated at a discount in places remote from 
 
48 THE TREASURY. 
 
 the issuing bank, and forcing the better currency of gold and 
 silver out of tlie market. 
 
 The United States having phxced her receipts and expendi- 
 tures ujjon tlie constitutional currency of gold and silver, it 
 is in the power of the States, by prohibiting the banks from 
 issuing and circulating notes of a small denomination, and 
 by making the constitutional currency the basis of their own 
 receii»ts and expenditures, to give the victory in all time to 
 the constitutional currency, keep a sufficiency in the country 
 for all the ])urposes of a circulating medium, and prevent 
 the evils and losses that always attend an inferior currency. 
 The disorder now felt in money matters grows out of the 
 failure of many of these banks, and the curtailment of the 
 circulation and discounts of others, which, in the last six 
 months, must have reached forty or fifty millions of dollars; 
 and in part out of the effects produced by the large imports, 
 and in part out of the want of confidence between lender and 
 borrower. It cannot be attributed to the shipment of gold 
 and silver, Avhich is nothing but a consequence growing out 
 of these causes. 
 
 The independent treasury has been administered in strict 
 accordance Avith the provisions of the law, in all respects, as 
 stated in my former report. There has been found no diffi- 
 culty in its operation, nor in complying with any of the pro- 
 visions of the law. The opening the Treasurer's office at 
 AVashington, and the offices of the several assistant treas- 
 urers and public depositaries, as places of deposite for the 
 disbursing agents of the government, has been attended with 
 signal success, and resulted in great advantage to the execu- 
 tive departments and the disbursing agents. The table, 35, 
 which acctjuipanies this report, shows the growth of the 
 dej)osite system; the number of disbursing agents who de- 
 j->(»site, with the places and amount of deposite at different 
 periods. It will be seen that in September these deposites 
 exceeded $3,500,000; whilst all disbursing agents who could 
 have not availed themselves of the privilege, and many dis- 
 bursing agents could not do so, because there were not de- 
 po.sitaries convenient to their location. The returns of these 
 deposites furnish the means of ascertaining the operations 
 of disbursing agents, and whether the funds are kept in 
 readiness to meet the appropriations; whilst, upon the re- 
 moval, resignation, or death of a disbursing agent, the amount 
 on dei)o.site passes at once into the United States treasury 
 and to the credit of the depositor, without the procrastina- 
 tion causeil ])y having to await a settlement by the agent or 
 an administration; and can at once be applied to the purposes 
 
THE TREASURY. 49 
 
 of the appropriation throu2:li another agent. The money 
 thus on deposite is as safe and secure as that in tlie treasury, 
 and is without risk to tlie depositor; and it is right tlie gov- 
 ernment, find not tlie dishursing agent, sliouW he at tlicCx- 
 pense and risk of keeping the ptihlic money until actually 
 dishursed. It is to be regretted that all disbursing agents, 
 conveniently situated, have not availed themselves of the 
 right to deposite, because it furnishes cause of mistrust as to 
 a strict compliance with the law, both in respect to the de- 
 posite and use of the public money, and does not give the 
 United States the benefit of promptly obtaining the amount 
 not disbursed upon the removal, resignation, or death of the 
 incumbent. 
 
 The work on the coast survey continues to make good 
 progress, and the means appear to have been carefully and 
 economically used. If the work shall have the continued 
 support of Congress for a few years more, the fullest and 
 most reliable knowledge will be obtained of our extensive 
 coast, and of all our harbors, to the great advantage of our 
 navigation and commerce. The work is recommended to 
 the consideration of Congress, with the belief that no more 
 convenient time will be found for its continuance and com- 
 pletion, nor a more able corps of officers to which it can be 
 confided. 
 
 The report of the Light-house Board, No. 37, also accom- 
 panies this report, and is referred to for the detailed opera- 
 tions for the past year. The business has been promptly 
 and faithfully attended to in all its branches, and the sys- 
 tem made as efficient as the time and means would allow ; 
 and it is recommended to the continued favor of Congress, 
 in order tliat increased facilities may be given to navigation 
 in all its branches and connexions. 
 
 Under the appropriation of $20,000 for continuing the 
 system of protecting human life from shipwreck on the New 
 Jersey coast, and $20,000 appropriated without specification, 
 (which the department has thought advisable to expend on 
 the coast of Long Island,) Mr. S. C. Dunham was appointed 
 for the New Jersey coast, and Mr. J. N. Schellinger for the 
 Long Island coast, with instructions to examine existing 
 stations, and report what would be needed to put them in a 
 perfect state, and to select intermediate stations, so as to 
 make the stations on each coast five instead of ten miles 
 apart. Both these agents have reported, and are now em- 
 ployed in building the houses at the new stations, and pro- 
 viding the articles required for them and the old ones, and 
 
'tare l^es boili. s" i arf ^'ring shipped 
 
 - . I:v^^:i--iir coais ai 
 
 - ::ivl:v.:e.i in the act 
 
 V.as^el and 
 
 r.-r-er care 
 
 -:a. purv»-<a<^ tae acvessai ■ s are now 
 
 > disasrer lo the ship ** New Era" has 
 
 - - -■ c ----.-■_. xised for 
 
 '"-ien.is 
 
 the ststi:ii5 in aa. eniirely efeeiive condiiioii. 
 ' r:. X.x 3S, rn:ni Captain A. H ^ — - 
 "t?, in charge r.f the o'^n^rr 
 
 affords all necessarr i: 
 
 STuncieni lor lae "weigiii and charaeier 
 
 - rr-ecinei in the ^ ~ ' 'n^ to 
 
 "ri II lo l«e hmli . ere is 
 
 : :_- report of 
 
 site tor a easiom-h ruse ai Detroit : 
 
 . . _ : . r the reasons sr ~ : ^^.'^ that 
 
 rn z,j scrll the present 1 : .se a 
 
 _. Virginia, in acc»jrd- 
 - - - '-^zi. SfK 3V, acf>j>nipa- 
 
 zx to examine the sites o&red 
 ~ 'wi"^ : ' : ners and 
 
THE TF.F.AFTEY. 5l 
 
 others upon the guhject : and steps are "being taken to obtain 
 the titles, with a view to early action ir ' ' . bnild- 
 
 ings constructed. The table, 'So. 40. ex ?= snd 
 
 prices agreed to he paid in the several ciiies. rt 
 
 was made on the site at BufOalo, Xe^r York: • .ti. 
 
 Ohio; and Burlington, Iowa, for the reasons stated in the 
 same report There has not been time for information from 
 Xew Orleans since instructions were issued to obtain offers 
 for a site for the ma ' ' ' there. 
 
 The department . - jed of an embezzlement .>i 
 
 bullion br one of the omeers in the mint at Philadelphia. 
 determined to have the mint and course of business investi- 
 gated, and a detailed repc>rt made with a view to the better 
 security of its operations. Messrs. Eichard Smith and J. C 
 Pickett were appjinte'l f-»r that punx«se. A o''py of the 
 letter of appointment (So. 41) and : ly- 
 
 ing this, with a copy of the new re<- 1^ 
 
 rector of the mint has adopted, with the sanction oi this 
 depkartment, for the government of the mint and branches. 
 They are submitted to Congress for such additional legisla- 
 tion as the circumstances seem to require. 
 
 The condition of the mint at PhiladelT»hi?i. as to ^•^t-^ as 
 a depDsitory and security &om fixe, was er in 
 
 Bowman, under the directions of this c :_ " - ' - : re- 
 port (So. 42) accompanies this, and states the necessity of 
 giving the same greater security as a mint and depository. 
 and of its being made fire-pr«:>of : and estimates are sub- 
 mitted for the alterations, and a.- ' " . ' - vailts 
 of the Treasury building at VTfci- . i. B<jw- 
 man's general repniTt it is 5tate<l that the a] >n f'T 
 the repairs of the branch mint at New Orlc-„ : .- _ : : suS- 
 cient to make it thoroughly fire-pro<;'f and secure as a mint 
 and depository, and estimates are submitted for that pur- 
 pose. The attenti<'*n <">f rv>p.gress is called to the condition 
 of the mint at 7 . and the branch n' - " i'rw 
 Orleans, and of : :: the treasury, and - to- 
 priations rec^jmrnendei as will make them fire-pi rr- 
 lectly safe. The propriety of an annual apprct--^ -- '•^t 
 keeping in repair the vaults and safes for the assistant trea- 
 surers and depositories is submitted. 
 
 The table. 43. which accompanies this reT*ort. e:shib!ts fltty- 
 tour places, including the marine :. ' - is 
 
 iifiorded to sick and disabled seamen. :«f 
 
 this department, with the averaee c-^st per day oi each ja- 
 tient at the several places. It appears the average cost is 
 Siir and reasonable at most of the places, but at others it 
 
02 THE TREASmiT. 
 
 greatly exceeds what it slnnild be. Every effort has been 
 made to bring the cost within lair and reasonable limits, but 
 the greatest discrepancies are found in those places where 
 there are but few patients to accommodate, and where it 
 has been found impossible to reduce the item constituting 
 the largest average in the expense, such as compensation of 
 8urgeons, &c. 
 
 The report of the supervising inspectors of steamboats, un- 
 der the act of 30th August, 1852. No. 44, accompanies this 
 report, as also a letter from Mr. William M. Gouge, charged 
 by this department with the duty of attending the meetings. 
 The department also i)rocured Professor Booth, melter and 
 refiner at the mint in Diiladelphia, to experiment upon fu- 
 sible alloys, in connexion witli Evans' safety valves, and 
 otherwise, with a view of testing the same, and in order 
 to have reliable alloys should it be determined to continue 
 their use. His report, Ko. 45, also accompanies this, and 
 gives valuable information upon the subject The attention of 
 Congress is called to the suggestions in the report of the su- 
 pervisors, the letter of Mr. Gouge, and the report of Professor 
 Booth. The department has been furnished with the table, 
 40, which accompanies this report, showing the loss of sixty- 
 three steam vessels from the 1st of January, 1854, to June of 
 the same year, Avith the causes thereof This table exhibits ten 
 by collision, seventeen by fire, five from ice, twenty-three from 
 snags, and states nineteen of them were lost from inattention 
 and negligonce, thirty-one from accident, one from being un- 
 seawortliy, and only two from unavoidable causes. This ex- 
 hibit proves that much remains to be done, under the steam- 
 boat act, to secure capable and efficient officers on steam ves- 
 sels for the i^reservation of life. These, and the recent losses 
 upon the ocean, properly raise the question whether the law 
 should i)rovidc greater security in the construction of steam- 
 passenger vessels, or leave them, as now, to the ship-owners. 
 
 In my former report tlie attention of Congress was called 
 to the inconvenience arising from two sets of local inspectors, 
 one under the act of 1838, and the other under the act of 
 1852, and the i)ropriety of having but one set under the 
 same superintendence. The regulations which the supervi- 
 sing inspectors are authorized to make should also have the 
 approval of the department, and its supervision in enforcing 
 tliem. 
 
 The jtrdpriety of providing for supervising inspectors on 
 the Pacific coast was also stated, and is again recommended. 
 The attention of Congress is also called to the penalty for 
 collision, under the act of 1838, which only applies to the 
 
THE TREASURY. 53 
 
 destruction of life on the vessel the officer commanrls, and 
 does not embrace the killing done on the other vessel. 
 
 There seems to be no express provision, in any act of Con- 
 gress, that the records and ])apers of the several collectors of 
 customs shall be public property^ and left in the offices for 
 the use of their successors; nor any provision making it a 
 felony to make false entries in the collector's books, or return 
 false accounts to the treasury. It has been customary :n 
 man}'' of the districts for the outgoing collector to carry away 
 the books and papers, on the pretence that they were private 
 property, because purchased out of the emoluments of the 
 collector, under the regulations of the treasury. They have 
 been declared, by a treasury circular, the property of the Uni- 
 ted States, and directed to be preserved and handed over to the 
 successor. The fact that these books were carried away was 
 cause of suspicion as to the integrity of the collectors, and in 
 four ports, to wit: Oswego, Cleveland, Toledo, and IMilwau- 
 kie, where other strong circumstances strengthened the sus- 
 picion, investigations were instituted at the ports, with copies 
 of the returns made to the treasury, and the books and re- 
 ceipts of the importers in the United States and those in Ca- 
 nada examined. The accounts of the late collector at Oswego 
 were ascertained to have suppressed duties, actually collected 
 by him, to over $75,000; the collector at Cleveland to an 
 amount almost of $115,000; the collector at Toledo to an 
 amount of about $5,000; and the collector at Milwaukie to 
 over $3,000. These are the first frauds of this description 
 that have ever been brought to light. They are now pre- 
 sented to the consideration of Congress, for such additional 
 legislation as may be deemed necessary. In the revision of 
 the revenue laws prepared at this department, under a reso- 
 lution of the Senate, and now before that body, clauses have 
 been inserted for the purpose of providing the proper remedy. 
 There has been no revision of the revenue laws since the en- 
 actment of 1789. The necessity of a revision is respectfully 
 urged upon the consideration of Congress. 
 
 In addition to the tables and rej^orts herein before particu- 
 larly mentioned, various statements of exports and imports, 
 a statement of the persons employed in the several collection 
 districts, and a complete set of the circulars issued by this 
 department since the date of my former report, also accom- 
 pany this. 
 
 The important interests confided to this department re- 
 quire that the clerical force should be not only capable, but 
 trustworthy in all respects. I find there has been great im- 
 provement in that force. In most cases, the best of those 
 
54 THE TREASURY. 
 
 found in office were retained, and, under the system of classi- 
 fication, when vacancies occurred, a rule was established to 
 promote, for capacity and efficiency, from the lower to the 
 higher classes, whilst the required examinations have secured 
 more capable clerks for the first class. The rules of the of- 
 fice are strictly enforced, and there exists commendable in- 
 dustry, capacity, efficiency, and, it is believed, integrity, in 
 the corps employed. The department is being brought into 
 good condition. 
 All which is respectfully submitted. 
 
 JAMES GUTHRIE, 
 
 Secretary of the Treasury. 
 
1 1 1. -THE AH MY. 
 
 KEPORT OF THE SECRETARY OF WAR. 
 
 War Department, 
 December 4, 1854. 
 
 Sir: I have the honor to submit the following report of 
 the operations of the army for the past year, and to Lay be- 
 fore you the reports of the commanding general and of the 
 heads of the several bureaus of the War Department. 
 
 The authorized strength of the army (as now posted) is 
 14,216 officers and men; but the accompanying tables, pre- 
 pared at the Adjutant General's office, show that at the date 
 of the last returns tlie actual strength was only 10,745. 
 This difference, however between the authorized and actual 
 strength of the army is fast disappearing under the opera- 
 tion of the law of the 4tli of August last, " to increase the 
 pay of the rank and file of the army, and to encourage en- 
 listments." 
 
 The general distribution of the army is nearly the same 
 as shown in my last report. The most important changes 
 will be briefly noticed. The 3d artillery has been reorgan- 
 ized since the wreck of the steamer San Francisco, and six 
 companies sent to the Pacific, via the Isthmus of Panama. 
 Two of the companies of that regiment, and a detachment 
 of recruits for companies of dragoons serving in the depart- 
 ment of the Pacific have been sent by the over-land route, 
 for the i)urpose of exercising a salutary influence over the 
 Indians inhabiting the country through which they will pass, 
 and holding to account the tribe imi)licated in the massacre 
 of Capt. Gunnison's party. They will winter in the Great 
 Salt Lake valley, and proceed to their destination in the 
 spring. Six companies of the 2d infantry have been reor- 
 ganized, and are now posted in the department of the West. 
 The remaining comiianies of that regiment will ])0 sent to 
 the same department as soon as their organization is com- 
 pleted. The Gth infantry has been ordered to the depart- 
 ment of the Pacific. Six companies of the regiment are 
 concentrated at Jefferson Barracks, preparatory to sailing 
 for the Pacific, by way of the Isthmus, and two others, 
 which were also under orders for Jefl'erson Barracks, have 
 been sent to Fort Laramie in consequence of the difficulties 
 
 55 
 
50 THE ARMY. 
 
 that recently occurred in tliat vicinity. The remaining com- 
 panies now* at Fort Kearney and Laramie will be sent to 
 tlieir destination next sprint^, hy the overland routes, if a 
 continuation of the Indian ditHculties in that quarter should 
 not interfere with this intention. The headquarters and 
 two companies of tlie 1st dragoons have been transferred to 
 the department of New Mexico, and replaced in the depart- 
 ment of the West by four companies of the 2d dragoons 
 from New 3Iexico. The troo]is on the Indian frontier of 
 Florida have recently been reinforced by two companies of 
 artilk'ry drawn from the Atlantic coast. Some other changes 
 of minor inii)ortance have also been made with a view of 
 effecting a greater concentration of the troops. 
 
 The removal from Florida of the remnant of the Semi- 
 nole tribe, who. in violation of the treaty, have continued to 
 occui>y the southern part of that State, has received the con- 
 stant attention of the department; but, from peculiar cir- 
 cumstances, the efforts directed to this object have been at- 
 tended with but little success. It is, however, believed that 
 better results may be anticipated in the ensuing year. The 
 troops have taken a line of observation which greatly con- 
 tracts the limits of the territory occupied by the Indians ; 
 and it is proi)Osed to make expeditions through the region 
 where they have hitherto remained securely concealed. By 
 opening roads and by the use of boats adapted to the navi- 
 gation of the lakes, swamps, and bayous, which have here- 
 tofore enabled them to elude pursuit, (including a small 
 steamer, as recommended by the Quartermaster General,) 
 the dei)artment exi)ects to acquire an accurate knowledge of 
 the country, and to impress them with the conviction of 
 tlieir inability to escape from or resist the power of the Uni- 
 ted States. Measures have been taken to cut off their trade, 
 and to make tlieni feel the great inconvenience which will 
 attend an attitude of defiance on their part towards this 
 government. By these means it is hoped the Indians may 
 be ])eaceably removed to the home provided for 'them west 
 of the Mississippi, and the claim of Florida to be relieved 
 from their ])rt'S('nce be speedily answered. Should this hope 
 not be fulliiled, the measures above referred to are the 
 l>roper and the most efficient steps preliminary to active 
 operatiuns for their removal by force. 
 
 In the other military departments the Indians have re- 
 ])eatt'dly come into collision with our troops. Depredations 
 upon <iur frontier iuhal)itants and upon emigrants passing 
 through the Indian country, have lieen, and are still of fre- 
 quent uccurreuee. In the department of the West, besides 
 
THE ARMY. 57 
 
 the depredations cnmmitted Iw Rraaller trihes, hostilities 
 have occurred with tlie Sioux Indians, the most powerlul and 
 warlike tribe of the Northwest. In Texas, they have heen 
 so frequent and of so thrcateninc:^ a character, that it was 
 considered necessary to authorize the commander of tliat de- 
 partment to call upon the governor of the State, from time 
 to time, as exigencies might arise, for such volunteer force 
 as might he required to repel Indian incursions. In New 
 Mexico serious hostilities were repressed by tlie prompt and 
 energetic action of the troops employed there, but depreda- 
 tions upon the inhabitants are still of occasional occurrence ; 
 and in the department of the Pacific outrages of the most 
 revolting character have recently been perpetrated on par- 
 ties of emigrants on their way to California and Oregon. 
 To repress such disorders, the troops have been actively and 
 constantly employed ; and, in the arduous and harassing 
 duties that have devolved on them, have exhiliited a gallan- 
 try, zeal, and devotion, that merit the favorable notice of 
 the government. The details of these operations will be 
 found in the reports transmitted herewith. 
 
 During the past year the Sioux Indians have committed 
 many dcjiredations upon the property of the emigrants 
 passing Fort Laramie, on their route to Oregon and Utah. 
 On the 19th of August, Lieutenant Grattan, of the sixth 
 infantry, was sent, by the commander of that post, with 
 thirty men, to arrest an offender. This entire detachment 
 was massacred by the Indians, with the exception of one 
 man, who escaped severely wounded, and subsequently died. 
 The circumstances of this affair were at first involved in 
 much obscurity, but authentic details have since provetl that 
 the massacre was the result of a deliberately formed plan, 
 prompted by a knowledge of the weakness of the garrison 
 at Fort Laramie, and by the temptation to plunder the large 
 quantity of public and private stores accumulated at and 
 near that post. The number of Indians engaged in this 
 aflair was between 1,500 and 2,000. 
 
 I regret that it has not been in the power of the depart- 
 ment to concentrate the troops in sufficient force to prevent, 
 and in all cases to punish, these disorders. Tlie circum- 
 stances of the service have been such, and the want of troops 
 in all sections of the country so great, that the concentra- 
 tion would have exposed portions of the frontier to Indian 
 hostilities without any protection whatever. Every favor- 
 able opportunity will be taken to post the troops in com- 
 manding positions from which they can exercise a super- 
 vision of the Indian country, and operate to the best ad- 
 8 
 
68 THE ARMY. 
 
 vantajre. The events of the past year have furnished many 
 examples of the ineificiency of small posts. Our entire loss 
 in the several actions with the Indians during the year has 
 heen four oificers and sixty-three men killed, and four offi- 
 cers and forty-two men wounded. 
 
 While the occurrences on our frontier, and in the Indian 
 territory, present gratifying evidences of the zeal and devo- 
 tion of the troops, they also furnish deplorable proofs of the 
 insufficiency of our military force, and the absolute neces- 
 sity of the increase which it was my duty to urge in my last 
 annual report. I again solicit attention to this subject, and 
 in doing so must repeat, to some extent, what was then 
 urged. 
 
 For military purposes, the territory of the United States 
 is divided into five geographical commands. 
 
 1. Tlie Department of the East, embracing all the country 
 east of the ]\Jississip))i river. This department has 2,800 
 miles of seaboard, 1,800 miles of foreign, and about 200 
 miles of Indian frontier. Of the fifty permanent fortifica- 
 tions and barracks on the Lake, Atlantic, and Gulf coasts, 
 now completed or nearly so, and requiring garrisons to pro- 
 tect the posts, cities, and national establishments which they 
 cover, only eleven are now garrisoned, leaving the remain- 
 der exposed to a sudden or unexpected attack from any naval 
 power. The total force in this department, at the date of 
 the last returns, was only 1,574 officers and men, and of this 
 number 500 are employed on the Indian frontier of Florida. 
 
 2. Tlie Department of the West includes the country be- 
 tween the Mississippi river and the Rocky mountains, except 
 the departments of Texas and New Mexico. It has a sea- 
 board, foreign, and Indian frontier of 2,400 miles, 2,000 
 niiles of routes tli rough the Indian country constantly tra- 
 versed by emigrants on their way to Utah, New Mexico, and 
 our ])Ossessions on the Pacific, and an Indian population of 
 180,000, a large proportion of whom are, in feeling, hostile 
 to us, and many of them at this time actively so. The total 
 force in the dei)artment, at the date of the last returns, was 
 1,855 officers and men. 
 
 o. The Department of Texas, nearly the whole of that 
 State, lias a sealward frontier not yet protected by fortifica- 
 tions of 400 miles, a foreign and Indian frontier of nearly 
 2,000 niiles, and communications through the Indian coun- 
 try of more than 1,200 miles. The Indian population is es- 
 timated at 30,000, nearly all of wliom are nomadic and pre- 
 datory ; and the western and northern frontiers of the State 
 tire exi»osed to constant inroads from the Indians of Mexico 
 
THE ARMY. 59 
 
 and the plains. The force in that department, at the date 
 of the hist returns, was 2,880 officers and men. 
 
 4. The Department of Neio Mexico. — This department lias 
 an Indian and foreign frontier of 1,500 miles, communica- 
 tions tlirough the Indian country of more than a thousand 
 miles, and an Indian population of 50,000, a great propor- 
 tion of whom are hands who do not acknowledge the au- 
 thority of the United States. The force in this department, 
 at the date of the last returns, Avas 1,654 officers and men. 
 
 5. The Department of the Pacific, enihracing the State of 
 California and the Territories of Oregon, Washington, and 
 Utah, and a part of the Territory of New Mexico. This de- 
 partment has a seahoard frontier of 1,500 miles, entirely un- 
 protected hy fortifications, except the works in progress at 
 San Francisco, an Indian and foreign frontier of 1,600 miles, 
 and more than 2,000 miles of communications through the 
 Indian country, an Indian population of 134,000, who are 
 becoming formidalde from concentration, from the acquisition 
 of firearms and a knowledge of their use. The force in this 
 department is only 1,365 officers and men; but, as heretofore 
 mentioned, they will be increased by an additional regiment 
 ordered there. 
 
 To recapitulate. We have a seaboard and foreign frontier 
 of more than 10,000 miles, an Indian frontier, and routes 
 through tlie Indian country, requiring constant protection, 
 of more than 8,000 miles, and an Indian population of more 
 than 400,000, of whom, probably one-half, or 40,000 war- 
 riors, are inimical, and only wait the opportunity to become 
 active enemies. If our army should be expanded to its great- 
 est limit, it would have a force of 14,731 officers and men ; 
 but as a large allowance must always be made for absentees, 
 invalids, &c., the efiective force would probably never exceed 
 11,000. 
 
 That this force is entirely inadequate to the purposes for 
 which we maintain any standing army, needs no demonstra- 
 tion; and I take occasion again to urge the necessity of such 
 immediate increase as will at least give some degree of secu- 
 rity to our Indian frontier. That for this purpose a regular 
 force is not only the efficient and cheap, but the proper and 
 constitutional means, seems to me demonstrable, if not obvious. 
 The President is authorized to call out the militia to repel 
 invasion and suppress insurrection. These are the emergen- 
 cies for which it was deemed proj^er to confer upon the Ex- 
 ecutive the power to call citizens from their homes and (u-di- 
 nary avocations, and these are the great occasions on wliich 
 they may be justly expected to make all personal sacrifices 
 
60 THE ARMY. 
 
 which the safety of the country may require. It is in this 
 view that we habitually and securely look to the militia as 
 our reliance for national defence. It was not the designof 
 the constitution and laws to enable the President to raise 
 and maintain a standing army; yet this would be the prac- 
 tical effect of a p(»wer, at his discretion, to call the militia 
 into service, and employ them for the ordinary duty of pre- 
 serving order in the Indian territory. The abuse to which 
 such a i)ower, if it were possessed, would be subject, suffi- 
 ciently attests the wisdom of our forefathers in not confer- 
 ring it, and must remove far from us any desire to possess it. 
 If this view of the subject be correct, it follows that the Ex- 
 ecutive must look to the army regularly authorized by law to 
 preserve police among the Indian tribes, and to give that 
 pr(»tection to pioneer settlements which interest, humanity, 
 and duty alike demand. The organization of the two new 
 Territories, and the impulse given thereby to emigration to- 
 wards the western frontier, and the increase in the overland 
 trains to our Pacific possessions, have multiplied the oppor- 
 tunities as well as the causes of Indian depredations and 
 hostilities. It is reasonable to expect that the ensuing year 
 will be marked by more numerous and serious Indian out- 
 rages tlian the last or any preceding year. 
 
 Our border settlements extending from the Missouri west- 
 ward, and from the Pacific ocean eastward, are steadily 
 pressing the savage tribes into narrower limits and an un- 
 productive region, from which result combinations of bands 
 heretofore separated from each other, producing, at the same 
 time, by their concentration, an increase of power and a dimi- 
 nution of their ability to live by the precarious products of 
 the chase. Hence, a twofold necessity for an increase of our 
 military force. 
 
 The question of economy in the employment of the means 
 for this purpose has been frequently and fully discussed. It 
 may not, however, be Avithout benefit to advert to some in- 
 structive facts in our past experience of Indian wars. 
 
 The expenses occasioned by the war with the Sac and Fox 
 Indians in 1832 amounted to more than three millions of 
 dcjllars; the definite api)ropriations for the suppression of 
 Indian hostilities from 1836 to 1841, inclusive, amounted to 
 more than eighteen millions of dollars. Within the past 
 six years large ai)pro})riations have been made for the same 
 object in Texas, New Mexico, Utah, California, and Oregon. 
 The aggregate of such expenditures in the last twenty-two 
 years, in<lependent of the regular appropriations for the sup- 
 port of the army, is estimated at more than thirty millions 
 
THE ARMY. 61 
 
 of dollars — a sum sufficient to have maintained for the whole 
 period a much greater force tlian tliat recommended in my 
 report of last year. This sum is independent of the expen- 
 diture for property destroyed, compensation to suffering in- 
 hahitants, and on account of pensions and bounty lands, 
 and, ot" course does not include tlie losses occasioned by the 
 destruction of j)rivate property, nor those consequent upon 
 the interruption of agriculture and of the progress of 
 settlement. 
 
 Tlie.se cannot be measured by any sjiecific sum, and, al- 
 though private in their character, are not limited in their 
 effects to individuals, but by diminishing the resources of 
 the country, become public losses, and as such, are widely 
 felt. 
 
 It has been stated by those conversant witli all the facts, 
 that if in ISol a small mounted force had been at the dispo- 
 sal of the War Department, the Black Hawk war might have 
 been prevented; and that in 1835, if a few additional compa- 
 nies had been sent to Florida, the Seminole war would not 
 have occurred. 
 
 The state of the recruiting service is shown by the report 
 of the Adjut^mt General, and the accompanying tables. 
 Since the passage of the law of August 4, 1854, to encour- 
 age enlistments, that service has progressed very satisfac- 
 torily, both as regards the number and the character of the 
 men enlisted. In the months of September and October 
 last, 1,005 enlistments were made, Avhile in tlie correspond- 
 ing months of 1853, the number was only 309. In conse- 
 quence of the number of comi)anies that have been placed 
 on the maximum establishment under the law of June 17, 
 1850, the little success that attended the recruiting service 
 prior to the passage of the law above cited, and the greater 
 than usual number of casualties that have occurred (luring 
 the past year, the number of recruits that will be reij^uired 
 for the service for the ensuing year will probably not be less 
 than 6,000. 
 
 The estimates for the support of the army during the next 
 fiscal year exceed those submitted at the last session, for the 
 current year, by the sum of $681,668 30. The increase is to 
 be found in the items for pay of the rank and file at the 
 higher rates fixed at tlie last session of Congress, and for re- 
 cruiti,ug, clothing, and subsisting the better filled ranks of 
 the army. In other items there is a decrease; so that leav- 
 ing out of view the pay of the army, which being fixed by 
 law, this department can in no Avay increase or diminish the 
 expense of keeping the army in active service, with its ranks 
 
62 TEE ARMY. 
 
 thus increased, during the next fiscal year, will not, accord- 
 inu" U) the estimates, exceed that of the current year.^ The 
 item of transportation, one of tlie heaviest expenses, is not 
 increased, and is, therefore, relatively less than that for the 
 current year; thus verifying the expectation stated in the 
 last annual report, that an increase of the army would not 
 he attended with a proportionate increase of expense. In 
 fact, an undue expense in proportion to numhers always re- 
 sults from not keeping on foot a sufficient force. If the force 
 is too small for tlie line it protects, it must he kept moving. 
 The result is tliat stated in the Quartermaster General's re- 
 port. The cost of transportation comes upon the war scale 
 as for armies in the field. 
 
 The means of transportation have, in some instances, been 
 improved, and it is lioped further developments and improve- 
 ments will still diminish this large item of our army expen- 
 diture. In this connexion, waiving other considerations, I 
 again invite attention to the advantages to he anticipated 
 fi^m the use of camels and dromedaries for military and 
 other purposes, and, for the reasons set forth in my last an- 
 nual report, recommend that an appropriation be made to 
 introduce a small number of the several varieties of this ani- 
 mal, to test their adaptation to our countr}^ 
 
 I think it but an act of justice to the officers of the army 
 again to call attention to the recommendation made in my 
 last annual report relative to an increase of their pay. The 
 present rates of pay were established more than forty years 
 ago, when money had a much higher value, as measured by 
 the price of food; even as late as 1845, the cost of the sol- 
 dier's ration was 12^ cents, whilst the estimates of the com- 
 missary general for the present year are based on the price 
 of 25 cents for a ration. The necessaries of life generally 
 have had a like, if not always an equal appreciation, and, 
 under such circumstances, it would not be just that salaries 
 should remain fixed which were originally graduated to af- 
 ford the means proper to the officers' support. 
 
 The justice of an advance in the salaries of public officers 
 corresponding with the increased cost of the means of living, 
 has been recognized by the Government in the recent laws 
 for increasing the compensation of most of those employed in 
 the civil departments of the public service. These considera- 
 tions ai)ply with greater force to the case of officers of the 
 army, many of whom are compelled, by the nature of their 
 duties, to reside in parts of the country where even scanty 
 supplies can be obtained only at exhorbitant prices. 
 
 If it was deemed necessary to offer other considerations 
 
THE ARMY. 63 
 
 tho.n tliosG of justice and equality, many would ]irescnt 
 themselves appealinp; alike to tlie pride, the lihcrality, and 
 the gratitude of the American ]ieople, to sustain a ])roposi- 
 tion which only seeks to relieve the military officers of a dis- 
 crimination alike onenms and wounding. 
 
 It can require hut little reflection to convince anyone that 
 a policy which confines so large a body of intelligent and in- 
 structed men to a rate of compensation below that given in 
 the ordinary occupations of lile, must tend to drive from the 
 military service its more active and efficient officers. If, as I 
 doubt not, there will be many honorable exceptions to this 
 general proposition resulting from strong professional at- 
 tachment to the army, they are exactly such exceptions as 
 would claim increased consideration from every one who can 
 estimate the patriotism and elevation which should charac- 
 terize the officer to whom the honor and flag of his country 
 are intrusted. 
 
 In the law of the last session of Congress to increase the 
 pay of the rank and file of the army, the terms used to desig- 
 nate the grades of enlisted men are construed to exclude 
 those of the Ordnance Department. As this exclusion is 
 supposed to be accidental and unintentional, it is suggested 
 that an explanatory act should be passed to extend the in- 
 crease of pay to all enlisted men of the army. The ])ay of 
 ordnance laborers and mechanics would still be much below 
 the ordinary wages of such employments. 
 
 I would again call attention to the propriety of additional 
 legislation which shall place the widows and orphans of the 
 officers and soldiers of the army on an equality with those 
 of the officers and sailors of the navy. The subject has been 
 repeatedly recommended by the Commanding General of the 
 arm}', and it is again brought to notice in his report of this 
 year. 
 
 In some important particulars our military legislation in 
 regard to rank and command, as well as to organization, 
 needs revision. In armies it is essential that it should be 
 known, under all possible circumstances, who is the officer 
 entitled to command. Doubt as to the source from wliicli or- 
 ders are to emanate is destructive of discipline and subordi- 
 nation, and might, on many occasions, compromise the safety 
 of the troops. On this important jioint our militarv law is 
 exceedingly vague and defective. Much of the mischief that 
 otherwise would have resulted has been prevented by the 
 care of the department in keeping asunder officers whose 
 claims would come in conflict, and by the patriotic self-de- 
 nial of the officers themselves, who, in many instances, have 
 
^ TUE ARMY. 
 
 •waived claims to command whicli tliey believed to be well- 
 founded, and served under those whom they considered as 
 their juniors. Nevertlieless, many unseemly controversies 
 have arisen, enejenderini;- jealousy, rancor, and insubordina- 
 tion; and the decisions in such cases, so far from putting at 
 rest tlie questions involved, present a mass of conflicting ar- 
 guments, from which no general principle can be educed, and 
 which serve only to furnish to every disputant the means of 
 maintaining his own cause. So numerous and contradictory 
 have been the decisions of the highest authority on questions 
 of rank, that no executive regulation or judgment of a court- 
 martial could now establish any certain rule, or fix the in- 
 terpretation of the law; for either of these would be met by 
 as high authority for a contrary doctrine, and would proba- 
 bly be in turn overruled. Congress only can apply the 
 remedy; and whatever rule they may, in their wisdom, adopt, 
 should be sim})le in its terms, and universal in its applica- 
 tion. 
 
 One fruitful source of difficulty arises from double rank. 
 In our service, as in the English, an officer may have one 
 grade by brevet in the army, or at large, and another in a 
 particular regiment or corps. The law has attempted to de- 
 fine the cases in which one or the other of these commissions 
 shall take effect, and it is to the defective and insufficient 
 manner in which this is done that much of the confusion 
 above alluded to is due. The statutory provision on the sub- 
 ject is copied from the English. Even in their service it has 
 proved a source of much trouble, and, as in ours, there is a 
 class of commissions not known to theirs — commissions in 
 the army at large, not by brevet. The interpretation of the 
 law is further embarrassed by the necessity of applying it to 
 a class of cases for which it was not intended. 
 
 To remove this cause of difficulty, some have proposed to 
 abolish brevet rank altogether, but there are many stronger 
 reasons against this course. Brevet rank affords an honor- 
 able incentive and reward to distinguished conduct, and en- 
 ables the government to avail itself of the services and abili- 
 ties of meritorious oflKcers in higher commands than they 
 Would be entitled to exercise by their ordinary rank. It is 
 true, indectl, that these arguments lose much of their force 
 and api»lication, if the sytem of brevet promotion is not dis- 
 creetly and justly administered, and that the system itself 
 produces a shifting of rank dangerous to discipline and mili- 
 tary authority. The main benefit of the system is in afford- 
 ing selections for command, but the present law gives brevet 
 rank elleut in all detachments composed of different corps, 
 
THE ARinr. 65 
 
 and selection is as much restrained by this rule in favor of 
 brevet rank as by tbe rule in favor of ordinary connnissions. 
 To avoid the evils without forfeiting the benefits of the sys- 
 tem, it is proposed to give eiFect to brevet rank only \^^lien the 
 President may see fit to authorize it. As these commissions 
 are designed only to take occasional effect, there seems to be 
 a propriety in requiring his sanction, either direct or delega- 
 ted, as constitutional commander-in-chief of the army, to give 
 them effect. A further limitation, however, sliould be put 
 on them. As they are not intended, and ouglit not to be al- 
 lowed, to advance an officer in his own corps over his proper 
 seniors, the exercise of them ought to be forbidden, as it now 
 is, in the regiment, troop, or company where the officer be- 
 longs and is mustered. 
 
 A difficulty of still greater magnitude is found in tlie en- 
 actments intended to regulate rank and command wlien dif- 
 ferent regiments and corps do duty together. Tlie general 
 provision is, that the command shall devolve upon the officer 
 highest in rank ''in the line of the army;" but tliese words 
 were new in that connexion, and of undefined signification, 
 and it cannot be determined whether they were intended to 
 include officers holding commissions by brevet in the staff 
 or in certain special corps. The interpretation that has pre- 
 vailed in our service is, that they do not embrace any officers 
 of the general staff except the major-general and the two 
 brigadier-generals ; but this is not acquiesced in by many, 
 and the question is still productive of frequent controversy, 
 attended with all the evils which have been above enume- 
 rated. 
 
 I find much difficulty in proposing any general rule to 
 govern, in this particular, such a military organization as 
 ours. It is clearly improper to exclude from command, ac- 
 cording to their rank, the officers of the military staff, whose 
 duties are as important to the service as any other class of 
 military duties below the chief command, and require equal 
 general capacity, professional skill and experience. This 
 would, in effect, convert the military staff, so essential to an 
 army, into a quasi civil corps. On the other hand, officers 
 whose duties, being confined to a special corps, remove them 
 from the ordinary service of troops, ought not to take, by 
 seniority, the military command for wliicli tlieir special ser- 
 vice has not qualified them. 
 
 This remark does not, indeed, now apply to all officers of 
 the staff corps, in the higher grades of which are found many 
 officers who, having long served with troops, and won dis- 
 tinction in battle, were transferred to the places thev now 
 9 
 
G6 THE AR3IY. 
 
 hold. But the principle of promotion has since been applied 
 to those cori^s. and, under its operation, their places must ulti- 
 mately he filled hy officers early separated from' the general 
 service, and thenceforth confined to a round of special duties. 
 These difficulties can he obviated only by a change in the or- ' 
 ganization of the general staff itself; and I propose it with 
 less reluctance, as I share the conviction entertained by offi- 
 cers of experience, that the organization is not well calcula- 
 ted for the duties of the staff itself And I think that not 
 only the efficiency of the staff, but the general good of the 
 whole military service, would be promoted by some essen- 
 tial changes which I shall proceed to submit to your con- 
 sideration. 
 
 Our military general staff, besides the major-general and 
 the two brigadier-generals, who are habitually in command 
 of troops, is composed of an Adjutant General's Department, 
 Inspector General's, a Quartermaster General's Department, 
 and a Commissariat of Subsistence. The officers of tliese de- 
 partments, all of whom have military rank, form so many 
 corps distinct from the rest of the army, with promotion con- 
 fined to their own corps. The embarrassments in regard to 
 rank and command, resulting from this arrangement, have 
 been stated. But worse evils result from it in the ordinary 
 staff service. In the first place, most of these staff duties re- 
 (juire military knowledge, only to be derived from general 
 service and experience. In the second place, from various 
 causes and accidents, errors may be made in the first selec- 
 tion; either the officers selected may not be qualified, or they 
 may become disqualified for their special functions, and yet 
 be fit for the general service. These are evils which the gov- 
 ernment should, at all times, be allowed the means of cor- 
 recting. A good staff is so essential to army operations 
 that it is important to secure its constant efficiency. There 
 are, to my mind, conclusive reasons why the staff should not 
 be organized into permanent corps, and experience in the 
 administration of the War Department has furnished many 
 practical proofs of them. If tlie duties of the staff were per- 
 formed by officers holding temporary appointments for such 
 service, all the benefits might be secured of a large field of 
 selection, at all times open, of general experience in the ser- 
 vice, and of special qualifications for staff duties. The prin- 
 cipal officers found particularly qualified for their special du- 
 ties would naturally be retained. Tliose who might not be 
 useful on the staft' would be replaced in their regiments. Ei- 
 ther chiss not having been confined always to a staff corps 
 would be qualified for such military duty or command as the 
 
THE ARMY. W 
 
 course of service, according to their rank, might devolve upon 
 them. 
 
 It has heen stated that our organization is peculiar. A 
 brief reference to some of the European systems may aid in 
 illustrating the views hereinafter submitted of a well-organ- 
 ized staff. 
 
 The French staff is divided into two branches — a military 
 and a civil. The military has charge of all that relates to 
 orders, movements, and military operations; the civil fur- 
 nishes all the supplies of the army. 
 
 The officers who furnish the supplies have no rank. The 
 military staff have rank, and succeed ordinarily to command 
 by virtue of it. This military staff is composed of two 
 classes of officers ; the highest positions in it are filled by 
 selection from the general officers of the army, so as to se- 
 cure the best capacity and experience, in the service. For 
 the subordinate and more routine duties they have a special 
 corps; but the functions of this corps are of much importance, 
 and to supply it with fit officers, they have provided a special 
 military school, and a complete system of instruction in all 
 its duties. 
 
 This system is simple, with many obvious merits. It 
 brings all the military staff into one line and under one head. 
 It secures the double benefit of experience in the general 
 service, and in the special duties of the corps. But it is a 
 system only practicable in a large army. The permanent 
 corps must be such as to afford a sufficient field of promotion. 
 A small establishment does not allow of both selections and 
 permanent appointments. Nor is the separate school and 
 corps for the staff needed in our army, in which a large pro- 
 portion of the officers are ju-epared for such duties by the 
 complete course of studies at our Military Academy. This 
 is an advantage which our service has over those services 
 where the size of armies does not permit the education of 
 officers by government except for those corps in which it is 
 indispensable, and has attracted the attention of foreign offi- 
 cers and writers. 
 
 Instead of one corps to which all the military staft' busi- 
 ness is assigned, the English army has two principal military 
 staff departments — the Adjutant General's and the Quarter- 
 master General's. The chief officers of these are generals 
 of the army, appointed temporarily on the staff; the inferior 
 are appointed, in like manner, from the regiments. Neither 
 class gain rank by these appointments. 
 
 The Adjutant General's is the department of military or- 
 ders and regulations of the recruiting of the army, and of all 
 
88 THE ARifY. 
 
 correspondence connected witli tlie discipline and equipment 
 of tlio troops. 
 
 The duties of tlie Quartermaster General's department re- 
 late to the marching, emljarkinp;, transportation, billeting, 
 encamping and cantoning of the trooi)s, and the distribution 
 of their quarters. It is the office of all correspondence rela- 
 ting to military science and topography, maps and plans. 
 
 Besides these military departments of the staff, is the Ord- 
 nance, which, though not strictly a staff department, and hav- 
 ing many im})ortant functions not of the staff, yet provides 
 many sup}»lies for the army, and is charged with much of 
 that part of its staff business. 
 
 Both these systems, it will be observed, avoid the mischiefs 
 indicated as arising from corps organization like ours, lim- 
 ited to permanent officers. As to whicli is best where they 
 differ — the English in dividing, the French in uniting, the 
 military functions of the staff — there seems not much room 
 for doubt, if the purely military business of the staff only 
 were in question. The advantages gained by unity of respon- 
 sibility and authority in military operations overbalance those 
 of special experience and skill that arise from division of 
 labor. But there are a mass of staff duties, not purely mili- 
 tary, connected with army supplies and equipments. All 
 these cannot be accumulated upon one military staff; and an 
 organization which provides only a single military staff makes 
 necessary the employment of other agents for supplies. But 
 supplies are as essential as the movement of troops to the 
 operations of an army. To separate the furnishing of army 
 supplies from the other staff duties is, at last, to destroy the 
 unity of military administration in a point where it is always 
 usel'ul, and sometimes necessary, to preserve it. And to con- 
 fide tlie suiqilies to civil agents is to lose the control, where 
 it is so important to retain it, which commanders exercise 
 over military officers. It was in his first great campaign to 
 the frontiers of Russia that the Emperor Napoleon found 
 the great utility of giving a military organization not only 
 to his artillery trains, but also to the general equipage and 
 transjxtrtation tiains of his armies. The civil machinery of 
 the Frencli staff is now censured by some of their able mili- 
 tary critics as too expensive and too much removed from mili- 
 tary control. In these respects it is contrasted with the Prus- 
 sian system, where every branch of the army administration 
 is brought under military supervision and direction; to whicli 
 are attributed that admirable efficiency and economy which 
 enable Prussia to maintain so large an army in proportion 
 to her revenue. In lieu of this control, the Frencli system 
 
THE ARMY. 
 
 6i 
 
 sulistitutes, as a machinery of paper checTvS, a mass of wri- 
 tings and an amount of bureau labor, which have been justly 
 condemned as hardly possible in war, and as really atYording 
 no etlicieut security for the fidelity and economy of the ex- 
 penditures. In a comparison of the relative ex])ense of the 
 two systems, the French is stated at more than $1,020,000 a 
 year in salaries, and the Prussian at $19,000. 
 
 It is not recommended to bring our military staff into one 
 corps, or to incur the increased hazards and expense of a 
 separate corps for supplies. On the contrary, it is thought 
 that, without attempting so entire a revolution of the system 
 to which we have been accustomed, a statf organization may 
 be devised which will avoid the evils of our jiresent system, 
 and will secure the benefits of the French and English sys- 
 tems, with others which neither of them aftords. One prin- 
 ciple, however, should govern in any system that may be 
 adopted — that of throwing open the appointments on the 
 staff to selection from the officers of the army at large. 
 
 I now proceed to state, somewhat more in detail, the or- 
 ganization recommended. 
 
 We have now one major general commanding the army, 
 and five other general officers "commanding as such by brevet 
 or other commissions, the five geographical departments, and 
 one brigadier general at the head of the Quartermaster's 
 department. 
 
 It is proposed that the brigadier generals shall be nine in 
 number. This will give one for each department, as now; 
 one for Quartermaster General, as now; one for Adjutant 
 General; and two for the Inspectors General, being an ad- 
 dition of three to those who now, by brevet or otherwise, 
 have rank and command as brigadier general. 
 
 The duties of the Adjutant (Jeneral of the army are those 
 which in other services belong to the chief of the staff It is 
 obvious that he should have as high rank as any other mem- 
 ber on the staff with him, and as the department commanders. 
 Congress marked their sense of the duties of this office by a 
 special act, allowing to the late Adjutant General the exercise 
 of his rank of brigadier general. 
 
 Inspectors General must have different functions in war 
 and peace. It is impossible for them (and so the regulations 
 of the French service explain the employment of these offi- 
 cers) to exercise their inspection functions with troops in 
 actual campaign. There, the generals in command must take 
 care of the condition of the troops. But, in peace, and with 
 scattered garrisons, and in a service distributed like ours, 
 the inspection service is highly important. By taking, :u. 
 
^0 THE ARMY. 
 
 time of peace, inspectors from officers of the grade of generals, 
 tlicy will have a proper rank and authority for the inspection 
 service when so employed. Their duties suggest the special 
 reasons why the inspectors should not be commissioned 2)er- 
 manently and solely for that service. 
 
 Besides the Adjutant General of the army, there will he 
 needed in this branch of the staff about seven officers, taken 
 from the regiments and corj)s: one at the headquarters of the 
 army, one at the office of the Adjutant General, and one at 
 each department or district headquarters. One of these 
 wuuld probably be available Avlien any important detachment 
 may be collected for actual service; or, if others are needed 
 with armies in the field, they may be authorized as occasion 
 may require. 
 
 The ordinary service of the Quartermaster's department 
 in regiments, posts, and detachments, should be performed 
 by the detail of capable officers from the command. A lim- 
 ited number of experienced officers will be needed to perform 
 the more important duties of the department wdth large 
 commands, or at the principal stations, and to supervise and 
 control, under the generals in command, the operations of 
 the inferior officers in the parts of the country most remote 
 from the seat of government, and from the direct authority 
 of the Quartermaster General. Ten field officers would prob- 
 ably be sufficient at any time. It is doubted if so many would 
 be always required. (Selection and temporary appointments 
 will regulate the number employed by the actual wants of 
 the service. 
 
 At the head of the Subeistence department there should 
 be a Commissary General, taken from the field officers of 
 tlie army, Avith the pay and allowances of colonel, as at 
 present. 
 
 A il'W officers would be required for the principal stations 
 and duties; but the ordinary business of the department, 
 being mainly the care and issue of the rations to the troops, 
 to be performed at posts, and with troops on the march by 
 proper officers detailed from the subalterns. The officers of 
 this department should be charged with the supply of cloth- 
 ing i'or the army. 
 
 it may be proper again to advert to one effect of this plan 
 of details — that in selecting a sufficient number of junior 
 officers to perform the ordinary service of the staff in the field 
 and in garrison, most of them still serve immediately with 
 the troops, and will not cease to be instructed in regimental 
 and iiehl duties. 
 
 It is nut proposed to disturb the present system as regards 
 
THE ARMY. 'H 
 
 tlie p.ay of the troops and the hospital service. Hospital 
 supplies may uncloiibtedly be best procured by the medical 
 officers who administer them; and in this business no otlier 
 agency is needed for economy or efficiency. To maintain a 
 separate corps for the mere payment of the troops is an ex- 
 pense rather disproportioned to the strength of our army. 
 But our troops are distributed over so great an extent of 
 country that the pay officers on the establishment seem to 
 have sufficient employment. When troops are assembled in 
 campaign, the paymasters might have additional duties im- 
 posed on them; as the care of the military clicst, and the 
 payment (as to some extent in other services) of money upon 
 orders and warrants for other branches of the military ad- 
 ministration. 
 
 Topographical services being included in the functions of 
 the corps of engineers, and of officers of the general staff, 
 it is not deemed expedient to retain a separate organization 
 for the topographical corps. Engineers should be instruct- 
 ed by proper practice and emi")loyment in all the various 
 and important duties of the engineer service ; and that or- 
 ganization is very objectionable which makes a permanent 
 distribution of duties which should be equally shared and 
 practised by all, and appropriates a large portion of offi- 
 cers to one, and that, ordinarily, a less important portion of 
 its services. 
 
 In this connexion it may be in place to remark, that as 
 the duties of engineers require a continued study and ex- 
 perience of a special kind, they require a permanent body 
 of officers. But no injury can result from intrusting the 
 command of troops, according to their military rank, to 
 officers whose functions, in the language of our articles of 
 war, appertain "to the most elevated branch of military 
 service." It is, therefore, recommended to give effect to the 
 rank of engineers, as of other officers charged with military 
 duties, in accordance with the rule which governs all other 
 service. 
 
 The remarks relative to the specialty of the duties and 
 studies of engineers^ in some measure, apply to those of 
 officers of the ordnance. But advantage will be found in 
 giving on the one hand to the officers of ordnance the bene- 
 fit of a previous service with troops, and on the other hand 
 in giving to the officers of troops the opportunity of acquir- 
 iui;;" useful practical information relative to the construction 
 and preservation of their arms and equijuuents. With this 
 view, it is recommended to retain in the ordnance corps 
 only a small number of permanent officers for the more iui- 
 
72 THE ARJIY. 
 
 portant arsenals and duties, and to associate with them, as 
 assistants, junior officers, taken, by detail, from the regi- 
 ments and cor])s. 
 
 The Jud^e Advocate's department has now only one per- 
 manent officer. Officers to officiate as judge advocates at 
 courts-martial are appointed by the officers who order the 
 courts. This duty requires legal study and experience, but 
 it also requires a familiarity with the military laws and the 
 customs and regulations of the service. It is, therefore, 
 proper that judge advocates should be appointed from mili- 
 tary officers, Avliich is the system now practised. 
 
 In the proposed organization, it is not intended to give 
 increased rank, by virtue of their temporary appointments, 
 to the officers employed on the military staff. Their rank 
 would remain according to their commissions in the army. 
 It may be inexpedient to narrow the field of selection by 
 defining tlie grade from which they shall be taken. They 
 should receive the cavalry pay and allowances of the next 
 higher grade. 
 
 This organization removes all grounds of controversy and 
 objection to the rank and exercise of command by staff 
 officers. It leaves military rank to all the military staff 
 
 I cannot doubt that an organization upon tliese principles 
 would materially increase the efficiency of the staff and pro- 
 mote the general good of the service. It would require, of 
 course, a greater number of officers in the regiments than 
 the law now provides to furnish the necessary details and 
 appointments on the staff, as well as for regimental duty. 
 No injustice or undue hardships would probably result to 
 individual officers of the present staff corps in assigning 
 them to regiments. If the law for the retired list sliall pass, 
 there will Ijc no difficulty on this head. But, in any event, 
 the interest of individuals must yield to the public good. 
 
 The present organization of the regiments is also capable 
 of material reforms. In the artillery line we have now a 
 larger body in ])roportion to the strength of the army than 
 can be sjiared for the proper service of artillery. In fact, 
 most of our artilh-ry lias always been armed, drilled, and 
 employed as infantry. As, however, it is necessary that 
 every regular army should have a proportion of artillery, 
 armed, instructed, and ready for service, it is proposed to 
 reduce our artillery to the size which our service requires 
 ajid can maintain. The regimental organization is now 
 given to it, but in the field our artillery serves by batteries, 
 and it is jtroposed to organize it in one corps, of such size 
 only as may suffice for instruction and for necessary seivice 
 
THE ARJfY. 73 
 
 in the field and in the fortifications. Tlie officers and men 
 now in the artillery not required for the reduced corps to he 
 converted into regular infantry. A sufficient artillery would 
 be about half the strength of the present four regiments of 
 artillery, and Avould leave enough to make two regiments of 
 infantry. 
 
 The cavalry force of our army being all required for ac- 
 tive service of the same kind, there ai)i>cars no propriety in 
 making a permanent distinction in the ck'signation and arm- 
 ament of the several regiments : it is, therefore, proposed to 
 place all the regiments of cavalry on the same footing in 
 these respects, and to leave it in the power of the Executive 
 to arm and equip them in such manner as may be required 
 by the nature of the service in which they may be employed. 
 
 The remarks just made in regard to dragoons and mount- 
 ed riflemen apply to the case of infantry and foot riflemen. 
 In increasing the force of foot troops, it is proposed to de- 
 signate them all as infantry, leaving to the Executive the 
 selection of the arms and mode of instruction applicable to 
 their service in the field. 
 
 A strong reason for this arrangement exists in the fact 
 that, with the recent improvements in small arms, it is 
 probable that the distinction in the armament of heavy and 
 light infantry, and riflemen, will nearly cease, especially in 
 our service, where the whole force is liable to be employed as 
 light troops. 
 
 In the Prussian army, even before the adoption of the new 
 arms, the service of skirmishers or light troops regulated 
 the instruction of the whole body of infantry. 
 
 It has always been difficult to devise a rule of military 
 promotion by which the interests of the State may be secured 
 in advancing none but competent men, without affecting the 
 just pride of the officer or violating the consideration due to 
 long and faithful service. Undoubtedly, if it Avere possible 
 that the appointing power should always exercise a perfectly 
 enlightened and impartial judgment, the rule of promotion 
 by selection might be advantageously applied in filling up 
 all the grades of the army. But in- no military service has 
 it been thought safe to adopt this rule to such an extent, and 
 in our army the difficulty of its application is vastly in- 
 creased by the usually scattered condition of the forces, as 
 well as by other considerations. 
 
 The appointment of fit men for commissions in the lower 
 
 grades of the army may be in a great measure, secured by 
 
 requiring, in all cases, a preliminary examination, as is now 
 
 required for the promotion of cadets and non-commissioned 
 
 10 
 
74 THE ARIMT. 
 
 officers. But with every precaution in tlic first appointment, 
 some officers will be found unsuitable for discharging the 
 duties of the higher grades, or they may become disqualified 
 in consequence of the infirmities of age or other disability. 
 The ])roposed organization of the general staff provides a 
 remedv so far as relates to their important duties, by open- 
 ing a wide field for the selection of general and stafi" officers, 
 and lor replacing those who may, on trial, be found to want 
 the peculiar qualifications requisite for those duties. This 
 prinei])le may, perhaps, be advantageously extended to the 
 selection of officers for some other important stations in the 
 army, just as it is now applicable by law to the appointment 
 of a"^ commander of the corps of engineers. It is necessary, 
 therefore, in order to maintain an efficient body of officers, 
 that some provision shall be made for the cases above alluded 
 to, where officers may be disabled or disqualified for promo- 
 tion. The only means for affecting this object without in- 
 justice to faithful public servants is, to create a retired list, 
 which mav provide the means of retreat for disabled officers, 
 like that which tlie institution of a military asylum has af- 
 forded to other disabled soldiers. This measure has already 
 received the favorable consideration of one branch of Con- 
 gress, and its final adoption is urgently recommended as 
 being absolutely essential to an efficient reform. Its adapta- 
 tion to the service may be tested by restricting to a short pe- 
 riod (one year) the exercise of the power to place officers oii 
 the retired list, and requiring the renewed authority of law 
 for its continuance; and as to the expense, though that is 
 not the primary consideration in a question which involves 
 the efficiency of the army, it need only be remarked, that 
 by the present law the disabled officer who renders no ser- 
 vice draws full pay, while, on the retired list, he would re- 
 ceive a much smalfor allowance. So far as relates to them, 
 the expensive system is that which keeps them on full pay. 
 Whatever military establishment a nation maintains should 
 be kept efficient; and it never can be so if the higher 
 ranks are occupied by officers incapable of service. The 
 only choice is to retire them on some reduced allowance, or 
 to disband them. The last is a remedy too harsh to be ap- 
 plied to faithi'ul officers, disabled and worn out in its military 
 service. 
 
 For detailed information concerning the Military Acade- 
 my, 1 refer to the report of the last board of visiters, and to 
 that of the chief engineer, ex officio inspector of the Academy. 
 Tlie proposition submitted in my last annual report, to in- 
 crease the academic time of cadets by the addition of one 
 
THE ARMY. 75 
 
 year, has been matured and put into effect by dividing tlie 
 last admitted into two parts — tlie first to pursue the iormer 
 course of four years, and the second, conijiosed of tlie junior 
 and less educated members, to pursue the newly arranged 
 course of studies, which will occupy a term of five years. 
 By this arrangement we avoid an intermission in the sui)ply 
 of cadets to be attached as brevet second lieutenants to corps 
 and companies; and all classes hereafter admitted will be 
 instructed according to the plan of studies arranged for the 
 five years course. In general terms, it may be stated that 
 the scientific course has not been increased, and that the ad- 
 ditions made are those appertaining to practical military 
 instruction and extension of the course of languages and 
 national law. These additions were deemed necessary to 
 qualify military officers for the high and delicate duties they 
 are sometimes required to perform; and they could not be 
 added without increasing the term or subtracting something 
 from the thorough scientific education included in the course 
 heretofore pursued. 
 
 From a recent inspection of the Academy, I can bear testi- 
 mony to its successful administration, and the many and 
 decided improvements which have from time to time been 
 made. Additional means of instruction have greatly facili- 
 tated the acquisition of knowledge, and better arrange- 
 ments in the quarters and recitation-rooms have materially 
 contributed to the economy, comfort, and order of the corps. 
 
 I concur in the recommendation of the chief engineer for 
 the establishment of a new professorship to replace that of 
 "ethics and English studies." This chair is now filled by 
 the chaplain of the post; and if it was ever desirable that 
 the pastor of cadets should also be a member of the academic 
 staff, the wider range recently given to the study of philology, 
 national law, and the contemplated addition of cognate 
 branches, renders it impracticable for one person properly to 
 perform both duties. 
 
 I also concur in the estimates of that ofiicer for an apjn-ii- 
 priation for the commencement of the construction of addi- 
 tional quarters for officers on duty at the Military Academy. 
 The necessity for this is fully stated in the report of the 
 board of visiters and the chief engineer. The total cost of 
 the proposed buildings is estimated at $44,054 46, about one- 
 half of which is asked for the current year. 
 
 The condition of the seacoast defences is stated in the re- 
 port of the chief engineer. The grant of a})propriations for 
 these works at the last two sessions of Congress, after their 
 suspension for several years, during which the policy of con- 
 
76 THE ARilY. 
 
 tinning them was very fully discussed, is regarded as a final 
 decision of the question ; and I advert to the subject only to 
 sav that recent experience in Europe has placed beyond doubt 
 the wisdom of that conclusion. No defences can long avail 
 a people wlio cannot meet their foes in the open iield; and 
 our fortifications are not intended to serve as the refuge of 
 weakness, or as the strongholds of unpopular power. On the 
 seaboard, in advance of populous cities and important har- 
 bors, they are designed to arrest the progress of hostile fleets, 
 and force the invader to abandon his attack, disembark his 
 troops, and pursue his attack by land. The capacity of sea- 
 coast defences to affect this object against the most powerful 
 armaments that have ever been placed afloat, is amply de- 
 monstrated by the results of the late military operations in 
 the BLack sea and the Baltic. 
 
 Happily, we may profit by the experience of others with- 
 out suffering the evils that attend the practical solution of 
 such problems. 
 
 Though our arms have heretofore been considered the best 
 in use, recent inventions in Europe have produced changes 
 in small arms which are now being used in war, with such 
 important results as have caused them to be noticed among 
 the remarkable incidents of battles, and indicate that ma- 
 terial modifications will be made in the future armament of 
 troops. 
 
 The superiority of the grooved or rifle barrel and elon- 
 gated ball, in range and accuracy of fire, has been long 
 known, yet the difficulty of loading this weapon has hith- 
 erto, for most military purposes, counterbalanced its advan- 
 tages. To overcome this difficulty two methods have been 
 proposed: the first, by loading the piece at the breech, has 
 been for some time in use, but has defects which all the in- 
 genuity expended on it has failed to entirely overcome; the 
 second method, which has produced the important results 
 above indicated, is to use an oblong ball of such diameter as 
 to be readily introduced into the piece, but which afterwards 
 is ex}>anded so as to fill the calibre. This was at first done 
 by providing a rest or support at the junction of the cham- 
 ber with bore, as in Capt. Delvigne's method, or by means of 
 a solid pillar in the axis of the barrel, upon which the ball 
 rested and was expanded by blows from a heavy rammer. 
 This was the plan of Col. Thouvenin, of the French army, 
 and is known as the system "a la tige" which has been ex- 
 tensively used in their service. The same object was subse- 
 quently attained by inserting into the rear part of the ball 
 a conical iron cup, which, being driven into the lead by the 
 
THE ARMY. TT 
 
 explosion of the char<]je, acted as a wedge to expand the ball. 
 This is the plan known by the name of its inventor, Ca])tain 
 Minie, of the French army. Still more recently, in England, 
 the ball has l)een im])roved so as to expand by the force of 
 the powder alone, without the aid of tlie cup. Tliis is known 
 as the Pritchett ball, having been brought into use by Mr. 
 Pritchett, a gun-maker of London. This idea also had been 
 suggested by Capt. Delvigne. 
 
 My attention being drawn to tlie subject, I directed expe- 
 riments to be made by the Ordnance department, both as 
 to the proper shape of the ball and the best mode of groov- 
 ing the barrel. In the course of these trials some impor- 
 tUnt conclusions were reached — agreeing, as was afterwards 
 ascertained, with the results of the investigations then ma- 
 king in Europe. Although our experiments have been con- 
 fined to our service-rifle, and are yet incomplete, they con- 
 firm the great superiority claimed for this invention abroad. 
 They show that the new weapon, while it can be loaded as 
 readily as the ordinary musket, is at least equally effective 
 at three times the distance. The foreign experiments indi- 
 cate a still greater superiority of the new arms. These re- 
 sults render it almost certain that smooth-bored arms will 
 be superseded as a military weapon ; but great caution is 
 requisite in introducing a general change in tliis important 
 element of national defence, for the waste of public money 
 is not the greatest of the evils resulting from the adoption 
 of an erroneous system. The strong probability of a change, 
 and the fact that we have already accumulated so large a 
 supply — more tlian half a million of muskets and rifles in 
 the arsenals of the United States, besides about three hun- 
 dred thousand in possession of the States, at a cost of near 
 ten millions of dollars — render it not expedient to continue, 
 at this time, on a large scale, if at all, the manufacture of 
 small arms of our present patterns. But, until experience 
 shall enable us to decide on the merits of the new improve- 
 ments, I am of opinion that our expenditures for small 
 arms should merely be confined to the making of such as 
 are required for fully testing these inventions. I have, 
 however, asked for the usual appropriations for the national 
 armories, in the hope that our experiments and trials in ac- 
 tual service, and the experience of the present war in Eu- 
 rope, will enable us soon to decide on the value of the recent 
 modifications, and to continue the manufacture of arms upon 
 improved models. 
 
 Congress, at its last session, made an appropriation for 
 the purchase of a number of the best breech-loading rifles. 
 
f§ THE ARMY. 
 
 To ascertain winch among the many that have heen invented 
 are tlie best, public notice has been given through the news- 
 papers of tlie appropriation and its object, inviting all in- 
 ventors to furnish samples of their arras. When all who 
 choose to compete shall have submitted their arms, a number 
 of each kind deemed worthy of trial will be subjected to 
 such practical tests as may determine their relative merits 
 as military Avoapons. Should the result, as it probably will, 
 secure a substantial and simple breech-loading arm, it will 
 su]>erse(le our present patterns for the use of cavalry. 
 
 The efficacy of these new patterns of arms will bo further 
 increased by an approved mode of priming, which has been 
 approved by the highest officers in our military and naval 
 services. Operations are now in progress to perfect the de- 
 tails of fabricating this new primer and applying it to 
 finished arms of the old pattern, as well as to new ones now 
 in process of manufacture. 
 
 In anticipation of an increased, if not exclusive use of 
 rifle arms by the regular army, and because of the belief 
 that the rifle or light inflmtry system of instruction is best 
 adapted to the foot militia, I have caused inquiries to be in- 
 stituted into the systems used by the light troops of other 
 countries, that complete light infantry or rifle tactics might 
 be introduced into our service with such improvements as 
 the experience of other armies has shown to be valuable. 
 A work on this subject is now in the course of preparation, 
 and it is expected will be, in a short time, submitted to you 
 for such action as it may be deemed worthy to receive. 
 
 Attention is again called to the necessity for legislation 
 to provide a more certain and equitable mode for the distri- 
 bution of arms among the militia, and to the propriety of 
 supplying them with books of tactical instruction, as con- 
 temj)lated in the clause of the constitution, "for training 
 the militia, according to the discipline prescribed by Con- 
 gress." 
 
 I have to ask attention to the necessity for further legis- 
 lation for tlie sale of useless military sites. According to 
 the construction which has been given to the acts upon this 
 subject, and which, though its correctness has been doubted, 
 must be regarded as settled by the practice of the depart- 
 ment, the act of March 3, 1819, applies only to military 
 sites then held, and that of April 28, 1828, only to lands 
 " conveyed to" the United States for forts, &c. According 
 to these views, there is no provision for the sale of lands 
 which, since the 8d of March, 1819, have been reserved 
 from the public domain for military purposes ; and I there- 
 
THE ARMY. Id 
 
 fore recommend thai, the provisions of the acts c^lvinp; au- 
 thority to sell useless military sites be extended to embrace 
 those reservations. 
 
 Many reservations around military ])osts, originally es- 
 tablished on the frontier, and now rendered useless by the 
 advance of population, have acr[uired great value, not only 
 from the rise in the price of lands in such localities, but 
 from improvements put upon them by the labor of the 
 troops, or at public expense. In disposing at public sale 
 of some of these, which came within the act of 1819, it was 
 found that the bids were far below the fair market value of 
 the land — a result which has been attributed no doubt 
 correctly, to combinations among the l)idders. I concur 
 with the Quartermaster General in the opinion that similar 
 results can be prevented in future only by establishing a 
 minimum price, below which the land shall not be sold ; 
 and I recommend that provision be made for this purpose 
 in any act that may be passed on the subject 
 
 The accounts of disbursing officers have been rendered 
 with more than usual punctuality during the past year, but 
 yet not w^ith the promptitude which the department desires 
 to enforce. Many officers, not having stalf appointments, 
 besides the performance of their appropriate duties in the 
 active and arduous service of the frontier, are charged with 
 the disbursement of public money, and Avitli the care of pub- 
 lic property. Tliis, besides the labor it involves, subjects them 
 to some loss which no care can avoid, and which is a tax upon 
 their pay. To reimburse tliis loss, if not to remunerate their 
 labor, I concur with the Quartermaster General in recom- 
 mending that some additional pay be allowed. 
 
 I cannot too strongly urge the necessity of effectual meas- 
 ures being taken for the prompt settlement of accounts of 
 disbiu'sing officers at the treasury. The delay to which they 
 are now subjected exerts a most injurious eifect by destroying 
 the salutary impression of a watchful superintendence of 
 public expenditures, paralyzes the efforts of this depai-tmcnt 
 to enforce promptness in accounting, by keeping it in ignor- 
 ance of the true state of officers' accounts, and exposes them 
 to loss by failing to give them notice of errors or detects of 
 evidence until the accidents and mutations incident to army 
 life have destroyed their ability to rectify the one or supply 
 the other. One cause of the delay has been the distribution 
 of military accounts between two auditors, both of whom, in 
 some cases, have to settle different parts of the same account, 
 and even sometimes different items of the same voucher. It 
 is hoped this inconvenient and useless arrangement will be 
 
80 THE ARMY. 
 
 abolished, and all the military accounts committed to a single 
 auditor. It is scarcely to be expected, however, that this 
 measure alone will remove an evil which has resisted the 
 earnest eiforts of this department for a long series of years. 
 It is, however, the remedy suggested by our present knoAV- 
 ledge of tlie case: and if further investigation shall develop 
 other causes of the delays complained of, it will also indicate 
 the additional means necessary to complete the reform. 
 
 The arrangement made by the Treasury Department, by 
 which disbursing officers are enabled to keep funds on de- 
 posite witli the assistant treasurers of the United States, 
 proves to be of great advantage to the service, and promises, 
 when more perfectly understood and carried into full elFect, 
 to obviate most of the inconveniences heretofore experienced 
 in transmitting funds and making disbursements in remote 
 parts of the country. It preserves the control of the depart- 
 ment over the public moneys till the moment of their ex- 
 penditure, and enables it, in the event of the death of au 
 officer, to reclaim its funds without waiting for the appoint- 
 ment of an administrator or the settlement of his accounts. 
 It also removes, in a great measure, those temptations which 
 the possession of large sums of money in times of active 
 speculative excitement cannot fail to present. 
 
 I have again to invite attention to the necessity of some 
 general provision for the prosecution of suits involving titles 
 to lands and other public interests, committed to the charge 
 of this dei)artnicnt, and for the settlement of accounts for 
 counsel fees, costs, and other expenses incurred in maintain- 
 ing the rights of the United States in such cases. In the 
 absence of any provision of law on the subject, this depart- 
 ment has been sul)ject to exorbitant charges, and has expe- 
 rienced much embarrassment in the conduct of suits. 
 
 In ])ursuance of the riews stated in my last annual report 
 in referL'iice to river and harbor improvements, the depart- 
 ment has adhered, in the directions it has given, to the design 
 of making them as complete as possible, without any opera- 
 tion being undertaken which would be dependent for its 
 completion uj)on future ajipropriations. Some works have 
 been coiu[)leted in conformity with these views, but, by re- 
 ference to the reports of the colonels of the two corps of 
 engineers, it will be seen that a large majority are unfinished, 
 and that in many cases the balances of appropriations ap- 
 plicable tliereto are not sufficient to effect results of much 
 value. As no appropriations were made at the last session 
 of (.'(jngrcss, I have deemed it unnecessary to present further 
 ostiuiatetj at this time. 
 
THE ARMY. 81 
 
 To the general remarks upon this subject in my last annual 
 report, I have only to add that experience confirms the o})inion 
 tliat no benefit at all commensurate Avith the expense lias 
 been obtained or is to be expected from appropriations 
 granted and applied in the mode heretofore pursued. Much 
 of tlie expenditure has been utterly lost for want of furtlier 
 approi)riations to complete wliat has been commenced, and 
 works completed have fallen into ruins for want of ap})ro- 
 priations to preserve tliem from dilapidation by the violence 
 of storms, the wear of currents, and the progress of natural 
 decay. A rock or snag removed from a navigable channel is 
 a benefit gained forever, but artificial structures to protect 
 harbors or change the course or increase the velocity of cur- 
 rents, must undergo deterioration, which, however small, 
 will be constant; and whatever policy may be hereafter 
 adoi)ted in regard to such works, it will be imperfect unless 
 it embrace not only their completion upon the plans selected, 
 but their preservation from the operation of the natural 
 agencies which tend to destroy them, as well as from injury 
 or occupation by trespassers. No means will be adequate 
 for these objects unless accompanied by a cession of exclusive 
 jurisdiction over the site, or at least ownership of the soil. 
 Questions have already arisen Avhich seem to indicate the 
 difficulties which must inevitably occur from the want of 
 jurisdiction and title whenever the powers now necessarily 
 exercised in the prosecution of these works shall come in 
 conflict with the rights or interests of individuals. 
 
 The survey of the northern and nortliwestern lakes has 
 made steady progress, and the documents accompanying the 
 report of the Colonel of Topographical Engineers show an 
 unusual progress in this work accomplished during the past 
 season. 
 
 The roads in course of construction in the Territory of 
 Minnesota have been prosecuted with tiie means at the dis- 
 posal of the department, and a document in the report from 
 the Topographical bureau will show the system pursued and 
 tlie progress made in their construction. With regard to 
 those in Oregon, Utah, and New Mexico, special instructions 
 have been given from this department, of which copies are 
 appended, designed, in each case, to secure, in the first place, 
 a })ractical wagon-road between the termini, with such im- 
 ]»rovenients afterwards as the balance of the aitpro])riation 
 wt)uld allow. The roads in New Mexico, from Taos to Santa 
 Fe, and from Santa Fe to Dona Ana, authorized by the act of 
 July 17, 1854, have not yet been commenced. The location 
 of these, or at least of the latter, will depend, in a great 
 
82 THE ARMY. 
 
 measure, upon the success which may attend the efforts to 
 obtain water aking tlie route by wells, for which the act makes 
 ])rovision. The cheapest method of obtaining it will, it is 
 believed, he by borinji;, for which purpose implements could 
 not be obtained in that country. Measures have been taken 
 to procure the necessary tools and apparatus in connexion 
 with the examination and trials to be made for the supply 
 of water bv Artesian wells on the routes for the Pacific rail- 
 road. When these have been completed the same apparatus 
 can be economically used for the wells on the military roads. 
 Since the date of my report of February 6, 1854, commu- 
 nicating to Congress copies of all reports then received from 
 the engineers and other persons employed in explorations 
 and sm-veys to ascertain the most practicable and economical 
 route for a railroad from the Mississippi river to the Pacific 
 ocean, the six parties engaged in those surveys have com- 
 pleted tlieir field duties; reports from four of them have 
 been received, and printed under a resolution of the House 
 of Pteprescntatives, passed at the last session; the two re- 
 maining reports, it is expected, will be ready for the printer in 
 the course of next month. No provision was made, by the 
 resolution above cited, for engraving the maps; without them 
 the reports are comparatively useless. 
 
 In making surveys of this character, the maps and reports, 
 being hastily prepared in the field, and generally at night, 
 after a day of fatiguing duty, require careful revision in the 
 office, and are considered as merely preliminary to the more 
 elaborate results which finally take their place. Hence it 
 has been found necessary to return some of the reports for 
 revision, and in some cases to replot the work and make new 
 maps. 
 
 When all the reports and maps are received, they will be 
 laid Ijeforc Congress, with a general report, and a map ex- 
 hibiting all the routes and such profiles and other drawings 
 as will be necessary to illustrate the subject. 
 
 An appropriation having been made, at the last session, 
 for continuing these surveys, a party has been organized to 
 make iurther explorations between the plains of Los Ange- 
 les and the waters of the bay of San Francisco, to determine 
 whether there be a practicable route for a railroad through 
 the mountain passes of the Sierra Nevada and coast range 
 which extend to the sea-coast at Point Conception. A second 
 l)arty is making prejiarations for testing the practicability 
 of ]irocnring water by means of Artesian wells upon the 
 arid ]»lains which occur in the several routes. The results 
 of tlie surveys already made will, when assembled and com- 
 
THE ARMY. 83 
 
 pared, probably indicate the direction in which further ex- 
 plorations shall be made by parties organized to take the 
 field next spring, as early as the season will permit. 
 
 I refer to the report of Captain Meigs, of the corps of 
 engineers, the officer in charge of the Capitol extension, for 
 a very satisfactory account of the progress of that work. 
 The exterior focing of the walls has been retarded by the 
 difficulty of obtaining, under the contract, a sufficient .•sup- 
 ply of marble; but the brick work is well advanced. The 
 walls of the Senate chamber and Representatives' hall aro 
 finished, and these rooms will be placed under roof during 
 the present winter. It is expected that they will be com- 
 pleted by the meeting of the next Congress; but the delay 
 in the supply of marble may so retard the completion of 
 the outer walls, and the corridors depending thereon, as to 
 prevent their being occupied so early. 
 
 The style of the work, both in finish and strength, has 
 been of a higher standard than was contemplated when the 
 estimates were made; but the administrative caj)acity and 
 professional skill of the officer in charge have so kept down 
 the expenditures, that it is believed the cost will not exceed 
 the estimates made for an inferior building. 
 
 The modifications made in the interior plan of the struc- 
 ture are now so far completed as to be seen and easily under- 
 stood; and I feel additional assurance as to the successful 
 solution of the difficult problems of acoustics, optics, and 
 ventilation, presented especially in the construction of the 
 Hall of Representatives. 
 
 Operations on the work designed to supply this city with 
 water have been suspended for want of funds. It is hoped 
 that appropriations will no longer be withheld from this im- 
 portant work. I have seen no reason to change the opinion 
 that it was judiciously planned and located. My confidence 
 is strengthened that it will bo comjileted at a cost within the 
 estimate, and will secure the object in view witli more cer- 
 tainty, and — taking into view the permanence of the work, 
 its capacity to supply future wants, and the absence of ma- 
 chinery, entailing annual expense — more economically, than 
 any other mode that has been suggested. 
 
 By the civil and diplomatic appropriation act, approved 
 August 4, 1854, tliis department was authorized to purchase, 
 for |200,000, the large fire-proof building at the corner of F 
 and Seventeenth streets, which has long been occupied in 
 common by bureaus of the Treasury, Interior, Navy, and 
 War Departments. The lease under wliicli it was held ex- 
 pired on the 30th of June, and the owner, who had given the 
 
84 THE ARMY. 
 
 department due notice, refused to renew it for a less rent than 
 $30,000 per annum, which Congress had refused to appro- 
 priate. A thorough survey of tlie huilding was made hy com- 
 petent engineers and huiklers, who estimated its value, in its 
 actual condition, at $197,042, $197,997, and $198,342, respec- 
 tively, and, after some negotiation, the owner agreed to accept 
 the amount of the ap])ropriation in payment for the huilding 
 and in satisfaction of all claims for damages, and also for ar- 
 rears of rent accrued since the termination of the lease — near- 
 ly three months — which could not he paid, as the act was re- 
 garded as making an appropriation either for purchase or 
 rent, hut not for hoth. 
 
 It is true the plan of the huilding was not considered as 
 tlie hest adapted for puhlic offices, hut Congress had refused 
 to allow tlie rent demanded hy the owner, and had thus left 
 the department no alternative hut to purchase or vacate it. 
 Between tliese conditions there was scarcely a choice. Ac- 
 commodations elsewhere could not he procured without much 
 difficulty, and I should have felt great reluctance to place in 
 insecure buildings the valuable records stored there, some of 
 which, if destroyed by fire, could not he replaced at a cost 
 less than the price of the building, Avhile others could not he 
 replaced at all. The purchase was therefore concluded upon 
 the terms stated. I have submitted an estimate for repairs 
 and improvements sufficient to put the building in proper 
 condition. Much of the repairs now proposed would have 
 been equally necessary had the government vacated the 
 huilding, instead of purchasing, as the lease provided that 
 the building should be restored in a good state of repair. 
 The cost of the additional improvements will hardly exceed 
 the amount of the rent that was released in the contract of 
 purchase. 
 
 It is hardly necessary to remark that the purchase of this 
 huilding in no degree obviates the necessity heretofore fre- 
 quently presented, of replacing the building assigned for the 
 use of this department with a hrc^proof structure. 
 
 The accompanying reports of the Commanding General of 
 the army and the cliiefs of the several branches of the mili- 
 tary service contain full and exact information in relation to 
 the duties with which they are respectively charged. To 
 these I refer for such details as could not be embraced in 
 this report. 
 
 I have the honor to be, very respectfully, your obedient 
 servant; JEFl^li^RSON DAVIS, 
 
 Secretary of War. 
 
 To the i'jiEiiDENT of the United States. 
 
lY -THE NAVY. 
 
 REPORT OF THE SECRETARY OF THE NAVY. 
 
 Navy Department, 
 December 4, 1854. 
 
 Sir: In the annual report from the Navy Department, 
 which I now have the lienor to present, I have taken the 
 liherty, in addition to the usual statement of the operations 
 of the squadrons and the general condition of the service, 
 and the public propertj^ to recommend a still further grad- 
 ual increase of the navy, and to express frankly, my views 
 of the great importance of its reorganization, and the en- 
 actment of new regulations for the discipline and improve- 
 ment of seamen. If they are urged with seeming pertina- 
 city, my only apology is, a deep interest in the magnitude 
 of the subject, and a conviction of the necessity of legisla- 
 tive interposition. 
 
 Squadrons. — The vessels composing the home squadron 
 are, the frigate Columbia, the flag-ship. Commander S. B. 
 Wilson; the sloops-of-war Albany, Commander J. T. Gerry; 
 Falmouth, Commander T. D. Shaw ; and the steamers Prince- 
 ton, Commander Henry Eagle; and Fulton, Lieutenant Com- 
 manding J. K. Mitchell. Commodore J. T. Newton still com- 
 mands this squadron. The cruising of the vessels of the 
 squadron has been principally among the West India 
 Islands and along the coasts bordering on the Caribbean sea 
 and the Gulf of Mexico. 
 
 The Columbia returned to Norfolk, in obedience to or- 
 ders from the department, and on the 28th June sailed, un-, 
 der instructions to Commodore NcAvton. on special duty to 
 St. Domingo. Having thoroughly surveyed the bay of Sa- 
 mana and ascertained its depth and character, and examined 
 the localities in its vicinity Avith reference to fitness for a 
 convenient depot for naval purposes, the Columbia returned 
 to Pensacola, and is now under i3rders to proceed to San 
 Juan de Nicaragua, conveying to that point Jlr. Wheeler, 
 United States Minister resident to Nicaragua, and Mr. Mar- 
 lin, United States Minister resident to Guatemala. The 
 Princeton, Commander Eagle, sailed from Norfolk on the 
 31st of October for Pensacola, and will proceed on her 
 cruise as a part of the home squadron. The Albany, Com- 
 es 
 
86 THE NAVT. 
 
 mander Gerry, in pursuance of the orders of the commo- 
 doro. has been actively cruising; during the entire year, hav- 
 ing visited, among other ports, those of Samana, Sisal, St. 
 Thomas, Laguyra, Curaceoa, Carthagenia, Aspinwall, San 
 Juan, Port Royal, and St. Jago de Cuha._ She has done 
 good service, and Commander Gerry and his officers merit 
 the approbation of the department, as I have reason to 
 know that the appearance of our flag at those ports, and 
 the bearing of the officers, contributed much to the encour- 
 agement and protection of our citizens engaged in commer- 
 cial transactions in those regions. 
 
 The last official intelligence received from the Albany 
 was on the 28th of September from Aspinwall, informing 
 the department that on the ensuing day she would sail for 
 Kcw York. There is no doubt of her having put to sea at 
 the time mentioned. Much time having elapsed and no ti- 
 dings of her having been received, it is but natural that 
 painful anxiety should be felt touching her fate. The prev- 
 alent opinion is, that she has sustained serious injuries from 
 encountering storms recently prevalent in her course home- 
 ward, and that she has put into some port for repairs. With 
 a view of obtaining information and affording relief, the 
 steamer Princeton left Pensacola some days ago in search 
 of tlie Albany. The dei^artment still entertains the opinion 
 that she is sai'e. 
 
 The Fulton, which until the 24:th of April was under the 
 command of Lieutenant James M. Watson, was in useful 
 service, and having visited many of the ports of the West 
 Indies, returned to the United States. On the ITtli May she 
 left Xorfolk under the command of Lieutenant Mitchell, con- 
 voying to the port of Vera Cruz the Hon. Mr. Gadsden, our 
 minister to Mexico, and bearer of the treaty recently concluded 
 between the United States and Mexico, where she remained 
 iintil the treaty was ratified, and with it returned to the port 
 of Washington, Avhere she has since been necessarily de- 
 tained, and is now ready for service. 
 
 The practicability of inter-oceanic communication by the 
 construction of a ship canal across the isthmus of Darien, 
 between Caledonia bay and tlie Caribbean sea and the Gulf 
 of San Miguel, on the Pacific, has long been a subject of 
 much speculation and controversy among men of science and 
 karning. The magnitude of the work, and wonderful in- 
 fluence which its successful accomplishment might exert 
 upon the commerce of the world, and more especially upon 
 the interc(jurse between our Atlantic and Pacific possessions, 
 induced tiie department, with your approbation, to accept the 
 
THE NAVY. 87 
 
 services of an accomplished and enterprizing officer of the 
 navy, Lieutenant I. G. Strain, who volunteered to undertake 
 the exploration. The Caribbean sea being embraced within 
 the limits assigned as a cruising ground for the home squad- 
 ron, the department concluded that the Cyane, Commander 
 Hollins, might with great propriety, cruise in that region, 
 take proper soundings at Caledonia bay, and at the same 
 time, with but little additional expense, convey any party 
 that might volunteer to engage in the arduous and interest- 
 ing exploration. Passed Midshi])man Truxton, First As- 
 sistant Engineer, J. M. Maury, Midshipman H. M. Garland, 
 and a few civilians, and seamen from the crew of the Cyane, 
 also volunteered to embark in the adventure. The permis- 
 sion of the New Grenadian government having been cheer- 
 fully given, the Cyane sailed from Philadelphia in December 
 last, and arrived at Porto Escoccs, on Caledonia bay, on the 
 17th of January. The party were landed, and proceeded to 
 execute the special duty assigned. They succeeded in cross- 
 ing the isthmus, and returning, after encountering suffer- 
 ings and hardships, and exhibiting ])owers of endurance, a 
 spirit of enterprize, and a generous devotion to duty, emi- 
 nently creditable to them as officers, and honorable to them 
 as men. A f«w of the seamen and civilians were unable to 
 bear up under their trying exposure, and expired. The 
 Cyane returned with the party to New York. I refer you, 
 however, for a more particular recital of the details of the 
 expedition, to the interesting report of Lieutenant Strain 
 which accompanies this communication, from which you will 
 perceive that he is very decidedly of opinion that the work 
 is totally impracticable; and this, I apprehend, settles the 
 question forever. 
 
 It is proper that I should remark that the officers of 
 her Britannic Majesty's ship Virago, on the Pacific, were 
 prompt and generous in extending timely relief to the suf- 
 fering party, and that a proper ai)preciation of it has been 
 officially communicated to her Britannic Majesty's gov- 
 ernment. 
 
 Intelligence having been received that the property of 
 American citizens had been improperly detained by the 
 people of San Juan de Nicaragua ; that our minister to Cen- 
 tral America, Hon. ]\Ir. Borland, had been treated with rude- 
 ness and disrespect, and that the interests of our countrymen 
 required the immediate ])resence of a man-of-war in tliat 
 neighborhood, the Cyane, being the most available vessel ibr 
 that purpose, in obedience to instructions from the depart- 
 ment, put to sea again on the 19th of June. 
 
S8 THE NAVY. 
 
 On her arrival at San Juan, Commander Hollins, learning 
 from Mr. Fabens, the United States commercial agent at that 
 place, that the demand made by him, by order of the State 
 bepartment, for a proper reparation of wrongs commit- 
 ted by them, had been treated with derision and contempt, 
 after 'due deliberation, thought it expedient, through Mr. 
 Fabens, to make a final demand upon the inhabitants for a 
 satisfactory adjustment. As the result was entirely unsatis- 
 factory, Commander Hollins gave notice on the 12th of July, 
 by a proclamation posted in the most public places, that if 
 the proposed terms of settlement were not complied with, he 
 should at 9 A. M. of the 13th, ])roceed to bombard the town 
 of San Juan, to the end that "the rights of our country and 
 citizens may be vindicated, and as a guarantee for future pro- 
 tection." He had hoped that the show of a determination 
 on his part would, at this stage of the proceedings, have 
 brought about a satisfactory adjustment: such, however, was 
 not the case. 
 
 His appeals for adjustment were disregarded. His proc- 
 lamation was only read to bo treated with contempt. His 
 return to his country after all this, without inflicting some 
 ])unishment upon these laAvless and reckless people, he 
 thouglit would be but a signal for a renewal of insults and 
 outrages. Having tendered boats for the removal of pro- 
 perty and persons to all who would avail themselves of 
 tliem, he bombarded the place and destroyed most of their 
 property without loss of life. I couhl not reprove this 
 commander for his conduct. Humanity often lends her 
 sympathies to the sufferer, however just the punishment, 
 but patriotism rarely condemns the brave officer who admin- 
 isters that punishment from a sense of justice to liis coun- 
 trymen whose ])roi)erty is destroyed and Avhose national flag 
 is insulted. We may well regret the stern necessity which 
 constrained him, but it should be remembered that Com- 
 mander Hollins had been compelled but a year before to 
 interfere and stop these same people in their progress of 
 dc-structiou of American property; that he had, besides, seen 
 the report of our minister, s[)caking of tliem as "being per- 
 sons, almost witliout exception, of notoriously bad character 
 — some of them discliarged penitentiary convicts and refu- 
 gees from justice, habitually manifesting evil dispositions 
 towards our citizens, antl indulging those dispositions to 
 the injury of persons and property whenever they are not 
 restrained by force," and that he was "unable to regard them 
 in any other light than aspirates and outlaws; that he knew 
 that this ungoverned populace had for a season restrained an 
 
THE NAVY. 89 
 
 American minister's personal liherty and rudely assailed 
 him ; that tliey had retained and refused to surrender the 
 stolen property of some of our countrymen; that they con- 
 temptuously turned a deaf ear to his appeals for adjustment, 
 and that his alternative was to inflict punishment or return 
 to his country, with a well-armed national vessel, and report 
 that he had demanded satisfaction, and, upon heing treated 
 with contempt, had felt it liis duty to come home. 
 
 Rash impetuosity on tlie part of those who hold in their 
 hands, to some extent, tlie elements of war, cannot he too 
 strongly discountenanced. No officer should dare trifle with 
 thera. But I think that an acquaintance with all the facts 
 and calm reflection will relieve our own ]ieople (who are 
 justly sensitive of national honor) from any fear that a wrong 
 has been perpetrated, and a reference to history may well si- 
 lence the criticism of others. 
 
 The Cyane requiring extensive repairs, and owing to the 
 cr>nclition of the crew from the unhealthiness of that climate 
 and their previous exposure in the hay of Caledonia, her re- 
 turn to the United States became necessary. After receiving 
 on board the archives of the commercial agency and Mr. Fa- 
 bens and his effects. Commander Hollins proceeded to Boston, 
 and the vessel on the 1st of September was put out of com- 
 mission for the purpose of repairs, which are now completed. 
 
 The Falmouth, Commander Shaw, has been very recently 
 put in commission, and will proceed to sea in a few days. 
 
 The Brazil squadron, Commodore W. D. Salter, has at- 
 tached to it the flag-ship Savannah, Commander Samuel 
 Mercer; the sloop-of-war Germantown, Commander W. F, 
 Lynch; the brig Bainbridge, Lieutenant Commanding C. G. 
 Hunt{?r; and the store-ship Relief, Lieutenant Commanding 
 S. C. Rowan. The store-ship Relief returned to New York 
 on the 29th of July for fresh supplies, and having taken in 
 her cargo, sailed for Rio on the 24th of September. 
 
 The sloop-of-war Jamestown, which at my last report 
 formed one of this squadron, having com])leted her cruise, 
 returned to the United States, and arrived at riiiladelphia 
 on the 2d of ]\Lay. 
 
 The steamer Water Witch, Lieut. Commanding T. J. Page, 
 is still actively engaged in the surveys of the rivers L^ruguay 
 and Parana. 
 
 This squadron is efficiently engaged in taking care of the 
 interests of our country in that region, with which our com- 
 mercial transactions are rapidly growing. 
 
 The African squadron, Commodore Isaac Mayo, consists of 
 his flag-ship, the frigate Constitution, Commander J. Rudd; 
 12 
 
gd THE NA\T. 
 
 the sloops-of-war i\rarion. Commander H. Y. rurviance; and 
 Dale, Commander Wm. C. \Yhittle. The brig Perry, Lieut. 
 E. L. Page, ai'tor liaving been on the station two years, ar- 
 rived at '^'ortolk on the 15th of July. The Constitution and 
 the Marion will be relieved early in the ensuing year, at 
 which time they will have been two years on that station. _ 
 
 The vessels of this squadron have been actively, and in 
 many instances successfully, engaged in checking the slave 
 trade, and some of them have been regularly cruising on the 
 coasts most frequented by slavers. The officers in command 
 have also had it in their power to render assistance to mer- 
 chant vessels in distress, and to our growing commerce, ex- 
 posed to many dangers on the African coast. 
 
 The Mediterranean squadron. Commodore S. H. Stringham, 
 consists of his flag-ship, the frigate Cumberland, Commander 
 A. A. Harwood; the steam-frigate Saranac, Captain J. C. 
 Long; the sloops-of-war St. Louis, Commander D. N. Ingra- 
 ham, and Levant, Commander C. C. Turner. The Cumber- 
 land will be relieved early in the spring, and authority has 
 been given for the return of the Levant and St. Louis early 
 in the ensuing year. 
 
 This squadron, during the past year, has visited many of 
 the ports of Italy, Sicily, the Archipelago, and Grreece, and 
 also the coasts of Spain and Barbary; and has kept a watch- 
 ful eye over American interests in the Mediterranean. 
 
 The Saranac, under instructions from the de])artment, con- 
 veyed Mr. Chandler, the United States consul-general to Tu- 
 nis, from Marseilles to Tunis, where he was landed on the 
 J3th of July with the usual honors. 
 
 The East India squadron consists of the sloop-of-war Mace- 
 donian, Ca])tain Joel Abbot, the senior officer on the station; 
 the steam-frigate Powhatan, Captain W. J. McCluney; and 
 the sloop-of-war Vandalia, Commander John Pope. The 
 steam-frigates Mississippi and Susquehanna, tlie sloop-of-war 
 Plymouth, and the store-ships Southampton, Supply, and 
 Lexington, are now on their way home — the steamers return- 
 ing by the way of San Francisco. Commodore M. C. Perry, 
 recently commanding this squadron, is, by permission of the 
 department, returning to the LTnited States by the way of 
 England. 
 
 The vessels of the S(iuadr()n, owing to the civil war exist- 
 ing in China, have hail fre(|uent calls made upon them for 
 tlie protection of American citizens and property, and have 
 been of great service to our countrymen in that remote re- 
 gion. 
 
 Commodore Perry, with the steam-frigate Powhatan as his 
 
THE NAVY. 91 
 
 flao;-sliip, Captain W. J. McOlnncy; tlie sloop-of-'\var IMace- 
 donian, Captain J. Abbot; the steani-frip;ates Susquehanna, 
 Commander F. Buchanan, and Mississippi, Commander S. 8. 
 Lee; the sloop-of-war Vandalia, Commander John Pope; and 
 the store-ships Southam])ton, Lieutenant Couimandinjj^ J. J. 
 Boyle, and Lexinp;ton, Lieutenant Commanding:: J. J. Ghis- 
 son, arrived at Yedo bay, Japan, on the 13th of February, 
 for the purpose of fulfilling tlie plans of which he had noti- 
 fied them the year before, and of endeavorinp; to establisli 
 commercial relations between Japan and the United States. 
 By indomitable perseverance and remarkable management, 
 he succeeded finally in overcoming the obstinacy and preju- 
 dices of the Japanese government, and induced it to enter 
 into a treaty of amity and peace, by which two of its ports, 
 Hakodade and Simoda, Avere opened to vessels, and ship- 
 wrecked mariners of American vessels are guarantied to have 
 ample protection and kind treatment on whatever part of the 
 coasts they may be cast. The above-mentioned ports were 
 fully surveyed by our vessels, and are represented to be very 
 convenient and commodious. Presents were also exchanged 
 between the Japanese government and the United States. 
 
 The treaty having been concluded, it was intrusted to 
 Commander IL A. Adams, who was directed to proceed in 
 the Saratoga, Commander W. S. Walker, to San Francisco, 
 and thence to Washington. On the arrival of the Saratoga 
 at the Sandwich Islands, a more speedy conveyance offering. 
 Commander Adams left her and reached Washington with 
 the treaty on the 10th of July. Commodore Perry and those 
 who accompanied him in his novel and perilous undertaking 
 deserve well of their country. A new era seems, through 
 their instrumentality, to be dawning upon the commerce of 
 the world. It is difficult to calculate the wonderful results 
 which present and future generations may experience from 
 this promised gradual dropping off of the cruel fetters witli 
 which ignorance has so long embarrassed commerce, and 
 this hopeful prospect of the spread of civilization and lib- 
 erty and good government, so cheering to the Christian states- 
 man. 
 
 The Saratoga proceeded on her way to the LTnited States, 
 and arrived at Boston September 1, having been absent from 
 the country for four years. I have expressed to Commander 
 Walker and his officers, as also to the crew, my just appre- 
 ciation of their good conduct, notwithstanding the expiration 
 of their terms of enlistment. 
 
 I regret to state that, whilst the Plymouth was engaged 
 in surveying the Benin islands, Lieutenant John Matthews, 
 
92 THE NAVY. 
 
 with tlilrteen of the crew, when in a boat, encountered a se- 
 vere typlioon, and were all lost. Lieutenant Matthews, had 
 a hif^h reputation in the navy as an officer, and the men are 
 represented to have been among the best of the crew. 
 
 The vessels of the expedition for the survey and recon- 
 noissance of Behring's straits, the North Pacific ocean, and 
 China seas, after leaving Simon's bay, Cape of Good Hope, 
 proceeded to Hong Kong, China; the sloop-of-war Vincennes, 
 Comra;inder C Ringgold, and the brig Porpoise, Lieutenant 
 Commanding A. B. Davis, by the way of Van Dieman's Land, 
 through the Coral seas, passing the Caroline and Ladrone 
 and Blishee islands, arriving at Hong Kong on the 17 th of 
 March; the steamer John Hancock, Lieutenant Commanding 
 John Rodgers, the store-ship John P. Kennedy, Lieutenant 
 Commanding N. Collins, and the tender Fennimore Cooper, 
 Licut-enant Commanding H. K. Stevens, by the way of the 
 Straits of Sunda and G-aspar, the Carimataand Billeton pas- 
 sages, and the Sotfloo sea. Their arrival at Hong Kong is re- 
 ported by Commander Ringgold early in June. 
 
 During the absence of Commodore Perry, with the greater 
 part of the East India squadron, at Japan, the civil war ra- 
 ging in China, and particularly in the vicinity of Canton, so 
 alarmed American citizens holding immense property in that 
 region, that Commander Ringgold considered it proper to 
 suspend temporarily the special duties to which he was as- 
 signed, and render protection to his exposed countrymen; and 
 has tlius failed to accomplish a large portion of the surveys 
 that had been planned for the present year. In addition to 
 these embarrassments, Commodore Perry informs the depart- 
 ment, under date of August 9, that, on his arrival at Hong 
 Kong, he found the expedition laboring under serious disad- 
 vantages, owing to the unfortunate affliction of Commander 
 Ringgold, which has rendered it necessary, in the opinion of 
 the medical officers, that he should return to the United 
 States. Commodore Perry having placed in charge of the 
 expedition an experienced officer. Lieutenant John Rodgers, 
 the next in rank, and the plan of operations marked out by 
 him being considered judicious, the department has directed 
 liim to ])roceed with all despatch to its execution. 
 
 The Pacific squadron, Commodore B. Dulany, consists of 
 the flag-shi]) St. Lawrence, Commander W. W. Hunter, the 
 slooi)S-of-war Portsmouth, Commander T. A. Dornin,and St. 
 Mary's, Commander T. Bailey. The frigate Independence, 
 Captain J. Tatnall, bearing the broad pennant of Commodore 
 "W. Mervine, sailed from New York on the 9th of October, for 
 the Pacific. Upon her arrival out, Commodore Mervine will 
 
THE NAVY. 93 
 
 take command, and Commodore Dulany will return to tlie 
 United States in the St. Lawrence. Tlie sloop-ol-war Deca- 
 tur, Commander I. S. Sterrett, and the steamer Massachusetts, 
 Lieutenant Commandinf; R. W. Meade, sailed from Norfolk, 
 respectively, the IGth of June and 5th of July, to join this 
 squadron. By last advices, they had reached and left Rio, 
 on their way out; hut the Massachusetts, aft^r a day's sail, 
 encountered and suffered seriously from a violent storm, and 
 returned to Rio for repairs. 
 
 In addition to the above-enumerated vessels, there are on 
 the Pacific coast the stationary store-ships Fredonia, Lieu- 
 tenant J. D. Johnston, at Valparaiso, and Warren, Lieuten- 
 ant D. McDougal, at the navy-yard at Mare island, Cali- 
 fornia. 
 
 The St. Lawrence has been cruising most of the year be- 
 tween the ports of Payta and Callao, in Peru, and Valpa- 
 raiso, in Chili. The Portsmouth returned from the Sand- 
 wich islands to San Francisco on the 14th of January. The 
 government having received sufficient intelligence to im- 
 press it with the apprehension that an unlawful expedition 
 had left, or was about leaving, San Francisco, for the pur- 
 pose of taking possession of territory belonging to Mexico, 
 instructions were sent Commander Dornin to render prompt 
 and efficient aid in assisting to arrest and suppress any 
 such unlawful expedition as might be set on foot within the 
 jurisdiction of the United States, and to exercise all lawful 
 means of preventing the violation of law and infraction of 
 treaty stipulations. To assist him in this, he was, with 
 your approbation, authorized, if necessary, to charter a 
 steamer for a short time, on reasonable terms. Commander 
 Dornin considered it necessary, and for this purpose he 
 chartered, at San Francisco, the steamer Columbus, belong- 
 ing to the Pacific Mail Steamship Company. With this 
 steamer and the Portsmouth he proceeded along the coast ; 
 and having evinced a determination to execute his orders, 
 and unite with the civil authorities in promptly arresting 
 and suppressing all unlawful expeditions, he unquestion- 
 ably contributed largely to their early termination, and 
 thus to the maintenance of friendly relations with a neigh- 
 boring power. Some of the leaders were arrested, and 
 many of the sick and wounded availed tliemselves of the 
 offer of Commander Dornin to return tlieni to their homes. 
 
 After he had terminated successfully his elforts in regard 
 to the unlawful expedition against IMexico, he received in- 
 telligence that about twenty American citizens were im- 
 prisoned in close confinement at Mazatlan. Having inves- 
 
94 THE NAVY. 
 
 tifi:ated the matter, and concluding that their confinement 
 was improper, he interfered, and demanded their release. 
 They were soon discharged, hy order of the government of 
 Mexico, and, at tlic instance of Commander Dornin, were 
 conveyed, in the revenue cutter " W. L. Marcy," to San 
 Francisco at their own request. The Portsmouth did good 
 service at Acapulco, in relieving American steamers from 
 the emharrassment of a blockade of that port. When last 
 heard from she was at the Sandwich islands, and is now 
 prohahly on her way to the United States, imder the order 
 of the department. 
 
 The St. Mary's, which left the United States on the 15th 
 of October, 1853, joined the squadron at Valparaiso on the 
 20th of January. Complaints having been made of abu- 
 sive conduct toM-ards our ship-masters whose business car- 
 ried them to the Chincha islands, the St. Mary's was sent 
 there in April. Commander Bailey found in port about 
 one hundred and sixteen sail of vessels, two-thirds of which 
 were American. The presence of the St. Mary's had a very 
 beneficial effect, and the masters of the large fleet of mer- 
 chantmen, both English and American, expressed them- 
 selves highly gratified at the prompt and energetic action 
 taken byCommander Bailey in regard to their complaints 
 and grievances. Whilst there he had an opportunity to re- 
 turn the protection which was afforded last year by Admi- 
 ral Moseby, of the English navy, to many of our country- 
 men, by affording assistance and ])rotection to Captain Mc- 
 Clenan, master of the English ship Kildare, which assist- 
 ance and protection had been refused by the Peruvian gov- 
 ernor of the islands. The St. Mary's, after cruising on the 
 coast soutli of Panama, and showing our flag at Iqique, 
 Arica, and various other ports, was, on the 29th of August, 
 (the last advices from her,) at the Sandwich islands, whither 
 she had been sent by Commodore Dulany, under instructions 
 from the department. 
 
 The steamer Michigan, Commander J. S. Nicholas, is still 
 in commission on our northern lakes, and, during the last 
 season, en-gaged in her usual cruising. 
 
 The steam-frigate San Jacinto, Captain Stribling, having 
 received on board the new machinery recently constructed 
 for her, put to sea on the 9th of August for a six months' 
 cruise, with a view especially to testing the capacity of the 
 maehincry, in pursuance of the terms of the contract. 
 When last heard from she was at Southampton, and having 
 undergone very slight lepairs, was about proceeding on her 
 cruise. 
 
THE NAVY. 95 
 
 In addition to the employment of the vessels, officers, and 
 men afloat, as thus recited, many of the officers and men of 
 the navy are assigned to duty on the coast survey. 
 
 Increase of the Navy. — Although Congress, at its last ses- 
 sion, promptly responded to the recommendation for the 
 construction of six new steam-frigates, and for completing 
 and launching the frigates Santee and Sabine, I am very far 
 from entertaining the opinion that the enlargement of the 
 navy should stop here. The protection of our wide-spread 
 commerce, the guarding of our extended coast, the preser- 
 vation of our rank as a nation, demand that wo should not 
 be entirely stationary, and with inactive indifference behold 
 the progress of other powers in naval strength. And it is 
 hardly unwise to glance at the various national naval regis- 
 ters and compare the size of our navy, not merely with that 
 of tJte mighty nations ivith whom toe claim equal ranJc, hut with 
 that of other nations whom we esteem to be far, far behind ms 
 in the race of national greatness. Even with the addition of 
 the unfinished six steam-frigates, our naval force loill not ex- 
 ceed fifty vessels in condition for service. Weakness invites 
 aggression, and never inspires respect; while acknowledged 
 strength and visible preparation command consideration, 
 and are the true safeguards of peace. And although our 
 mission is peace, and no warlike messengers of propagandism 
 are to be sent forth to force republican liberty upon reluctant 
 victims of misgovernment, it may be well to remember that, 
 in addition to the ordinary uncertainty which ever hangs 
 around questions of peace and war in the distant future, we 
 have to encounter illy-disguised jealousy of our peculiar in- 
 stitutions from those who cling with tenacity to the old sys- 
 tem of government. Hear the language of one of your pre- 
 decessors in a message to Congress more than a quarter of a 
 century ago: "Unprovoked injuries are often inflicted, and 
 even the peculiar felicity of our situation might with some 
 be a cause for excitement and aggression. The history of the 
 late wars in Europe furnishes a complete demonstration that 
 no system of conduct, however correct in principle, can pro- 
 tect neutral powers from injury from any party; that a de- 
 fenceless position and a distinguished love of peace are the 
 surest invitations to war ; and that there is no way to avoid 
 it other than by being always prepared and willing, for a 
 just cause, to meet it. If there be a people on earth whose 
 more especial duty it is to be at all times i)repared to defend 
 the rights with which they are blessed, and to surpass all 
 others in sustaining the necessary burdens and in submitting 
 to sacrifices to make such preparations, it is undoubtedly the 
 
96 THE NAVY. 
 
 people of tliese States." The well-armed and well manned 
 sliips of our navy may be truly regarded as so many ocean 
 sentinels stationed along the main to challenge at once any 
 who miglit dare to seek an assault upon institutions sacred 
 to us, but inconvenient to tliera. 'Tis true, we are at peace 
 with the world; and so but a few months ago were the na- 
 tions of Euro])0, and, under the benign influence of Chris- 
 tianity and civilization, seemed hopeful of a quiet future, 
 witli no rivalry but in arts, science, and national develop- 
 ment. The scene is suddenly changed. War, with all its 
 bloody calamities, is convulsing those mighty nations, and 
 no j)rophetic statesman can foretell its extent or its termina- 
 tion. But who are interested in the navy? It is not merely 
 the citizen whose lot is cast along the coast, the wealthy mer- 
 chant in our cities, the speculator in floating merchandize, 
 but merchants,* mechanics, planters, our countrymen all along 
 the coast, up our rivers, beyond the mountains. The agri- 
 cultural interest is as much benefited and protected by the 
 uavy as any other. Every planter in every section is not 
 more truly protected by the enclosure around his farm than 
 by our "wooden walls" which float around our coast. The 
 States which border on the Mississippi transport on its bo- 
 som their cotton, and grain, and sugar, and vast varieties of 
 products, which are borne into the Gulf of Mexico. With 
 no navy sufficient to protect it in that region, who can ap- 
 preciate the inconvenience and embarrassment which our 
 planting interest will experience in war? But the great 
 cost is often suggested. That should always be vigilantly 
 watclied by the prudent statesman ; Avho, should, however, 
 remember that every dollar is expended among our; own 
 people in the purchase of material and payment of laborers, 
 and that it brings into exercise the mechanical skill of our 
 country, promotes, and thereby perpetuates, a class in our 
 midst e.s.seutial to our national independence. He who visits 
 our navy yards, and lingers a moment in beholding the giant 
 frames of the noble ships now being constructed by the ge- 
 nius, the labor, and with the material of our own country, 
 will find that the money expended not merely results in pre- 
 senting a floating battery to protect our property and our 
 flag, l)ut gladdens the hearts of hundreds of cheerful arti- 
 sans, who pay it back into the treasury with fourfold interest. 
 It is not wasted cai)ital; it is not like the millions annually 
 sent aljroad to foreign capitalists to pay the debts contracted 
 for schemes of extravagance, leaving embarrassment in its 
 trail. I do not propose to increase the number of ojicers, nor 
 materially to enlarge the squadrons, and thereby increase 
 
THE NAVY. 97 
 
 largely our current expenses, nor to have a navy of tlie im- 
 mense size and expense of some of the powers of Europe. 
 But I do propose so to increase the material of our navy as 
 at least to approximate to a state of readiness for emergencies 
 which wise statesmen strive to avoid, but wiser statesmen 
 prepare to meet. It will be my pleasure to co-operate with 
 the legislative department of government in practically car- 
 rying out these views. 
 
 For a detailed statement of the actual condition of our na- 
 val force, I beg to refer you to the full report of the chief of the 
 Bureau of Construction, Equipment, and Repair. 
 
 In the exercise of the discretion imposed upon me by the 
 act of Congress directing the construction of six steam fri- 
 gates, I decided after mature consideration and inquiry, to 
 have tliem built in the navy-yards, under the more imme- 
 diate supervision of the department. The Government liad 
 a fair supply of material, particularly of live oak, well sea- 
 soned; had erected ship-houses, in which the vessels, while 
 being built, could be protected from exposure, and the me- 
 chanics employed could be sheltered comfortably, and able 
 to prosecute the work in the most inclement weather. 
 
 On examination, I discovered that there was neither ma- 
 terial, building-slip, nor ship-house at Pensacola, and that 
 the Franklin was being rebuilt, and the Santee altered and 
 completed, at Kittery. I therefore ordered that immediate 
 preparation be made for constructing the new frigates at the 
 navy-yards in Boston, Brooklyn, Philadelpliia, Washington, 
 and Norfolk. There is no difficulty in securing the services 
 of as many skilful mechanics and laborers as are desired. 
 The public officers at the several yards have all manifested 
 a deep interest in despatching the work with success. Much 
 progress has been made, and I have no doubt six first-class 
 steamers, equal to the expectation of the country, will be 
 completed as speedily as men and means can accoi*n[)lish the 
 work. Not having facilities for manufacturing the steam 
 machinery necessary, except at the Washington navy-yard, 
 I had no alternative but to make contracts with private es- 
 tablishments for five of the frigates. These contracts have 
 been made with builders of established re])utation, and the 
 contractors are busily engaged in fulfilling them. The i)lan 
 adopted was to invite proposals, so as to call fortli the best 
 skill of the country, and, before adoi)ting them, submit them 
 for my guidance to a board of engineers. Bonds with ap- 
 proved sureties have been taken for the faithful execution of 
 the work, and two-fifths of the contract price is to be retained 
 until the machinery has worked successfully and satisfacto- 
 13 
 
98 THE NAVY. 
 
 rilv at sea for six months. Before adopting anj^ of the plans 
 pr()posed, I thou-j^ht proper, in consideration of the greater 
 ex])erience of England and France in the application of steam 
 machinery to men-of-war, to order the Engineer-in-chief, 
 Martin, to visit, Europe with a view to availing himself of 
 any improvements which may have been made. The obser- 
 vations made during his visit, and the interesting reports pf 
 Lieutenant Walker, who had been similarly engaged, will 
 prove useful to the service. The Santee and Sabine frigates 
 will be com])lcted and ready for being launched in a few- 
 weeks. The Franklin is progressing rapidly, and it is con- 
 fidently expected that the six steam frigates will be launched 
 certainly by the ensuing fall, if not earlier. 
 
 lleorgnnization of the Navy. — In my last annual report I 
 ventured to express the opinion "that the present organiza- 
 tion of the navy is not only essentially defective and unwise, 
 but is, in its practical operation, working palpable and serious 
 mischief to the efficiency and character of that branch of the 
 public service," and "that a retired list on reduced pmj for the 
 faithful who have become infirm; the discharge of the inefficient 
 who have no claim on the bounty of their government for ser- 
 vices rendered; promotion regulated by capacity, merit, and 
 not by mere seniority of commission; and pay to some extent 
 controlled by sea-service, are reforms not only demanded by 
 the condition of the service, by considerations of justice, but 
 absolutely necessary to the preservation of efficiency and 
 usefulness." Efforts were made, during the last session, to 
 accomplish many of the desired reforms. No final action 
 was taken. Subsequent reflection and experience of nearly 
 two years' connexion with the navy, an extended acquaintance 
 with the officers, and an attentive observation of the practical 
 working of the present system, have not only confirmed me 
 in the correctness of those views, but constrain me, at the 
 hazard of the charge of pertinacity, to renew most earnestly 
 my previous recommendations, and to urge their considera- 
 tion and adoption witli deep solicitude. So far as I have the 
 authority at present, these views shall guide my action. I 
 cannot recommend for promotion to higher rank and larger 
 pay officers who do not merit it from incapacity, either moral 
 or physical. I do not appreciate the justice or policy of pro- 
 moting to a higher grade an officer who cannot perform its 
 duties, unless in rare exceptional cases, as a complimentary 
 reward for services rendered. It is neither more nor less 
 than elevating the incompetent, and then ordering the un- 
 promotod competent to do their work! Is there an alarm of 
 laateuing upon the government an odious pension system? 
 
THE NAVY. 99 
 
 None can cherish a greater repugnance to that than myself; 
 but none can be more fully convinced that it can he so well 
 surrounded with safeguards, restrictions, and limitations, as 
 to retain its virtues and reject its faults. 
 
 Is the particular plan of having the aid of a board of offi- 
 cers in ascertaining the incompetent and unworthy ohjoct'-d 
 to ? I am not wedded to that or any other scheme, provided 
 the main object can be attained. I should be content to have 
 the Secretary from time to time officially report to the Pre- 
 sident such names as he wishes should be retired or dropped ; 
 that the President should transmit, if he thinks proper, their 
 names to the Senate, with a recommendation suited to each 
 case. Thus the President and the Senate, the appointing 
 power, will be the removing power, and the apprehension of 
 Star Chamber persecution and being victimized by secret in- 
 quisition, now felt by some worthy officers, would be quieted. 
 But I forbear to fatigue with details. The magic touch of 
 reform is needed, and if skilfully applied will impart to the 
 now drooping body of our navy a robust health and a new 
 life. I believe that sound policy, stern justice, demand it; 
 that true economy is not opposed to it. I shall be happy to 
 co-operate with Congress in effecting it. 
 
 I have no hesitation in saying that there are many officers 
 now in the navy whose names do not adorn the register. 
 There are those incapable of performing duty from age or 
 affliction. There are also many good officers resigning from 
 time to time, because the path of promotion is "blocked u})" 
 by the incompetent, and the future seems to them so unprom- 
 ising. But it is my pleasure, as well as my duty, to say that 
 the corps is still full of chivalrous and gallant officers, who 
 are not only ready for the post of danger, but would sustain 
 the proud reputation of our navy, which has won so many 
 laurels for our country, and by its brilliant victories cheeiv d 
 the heart of many a desponding patriot. 
 
 I will not, however, enlarge this report by repeating the 
 views or reciting the various amendments and modifications 
 of existing laws suggested in my last annual report, but con- 
 tent myself with renewing the recommendation. 
 
 Discipline of Seamen and the Enlistment of Boys as Appren- 
 tices. — While the just and liberal action of Congress during 
 the last session, authorizing an increase of pay of seamen 
 corresponding to the compensation in the merchant service, 
 has done much to encourage enlistments, and was received 
 with grateful joy by many a veteran tar, much remains yet 
 to be accomplished to give proper shape, vigor, character, 
 and success to the system of discipline in this important — 
 
100 THE NAVY. 
 
 indeed vital — part of the public service. Language cannot 
 describe, the mind can scarcely grasp, how much of happiness 
 and wretchedness hang around the fidelity, the discipline, of 
 the neglected sailor. Property, life, victory, defeat, national 
 honor and renown, have much to do with the character and 
 cheerful obedience and home-love of seamen. 
 
 I am very fiir from recommending the restoration of pun- 
 ishment by flogging. In my opinion, the experience of the 
 navy, at least, justifies its abrogation. The sloop-of-M'ar 
 Saratoga, Conmuinder Walker, constituted a part of the 
 squadron to Japan, left the United States in September, 1850, 
 and returned in the same month of the present year, after 
 cruising for four years beneath tropical suns and amid un- 
 congenial people, thousands of miles from home. The term 
 of the crew's enlistment expired Avhile they were far in the 
 east. They were informed while abroad that punishment 
 by flogging was abolished. I allude to this case especially, 
 as I think the test Avas a severe one. Yet, on their arrival 
 at Boston, the most flattering reports reach me of the good 
 conduct and discipline of the crew. I deemed it proper, also, 
 to address an inquiry on the subject to Commander Walker. 
 He resi)onds thus: "In regard to the first question, whether 
 it is desirable to restore corporeal punishment, I re})ly that, 
 from experience as well as conviction, I do not believe it 
 would be desirable, or for the interest of the service." And 
 yet he and every officer concur in the necessity of prescribing 
 and legalizing some substitute, accompanied, however, with 
 a plan o{ reward as well as punishment ; punishment jjrompt, 
 sure, in order to restrain the offender and deter the incon- 
 siderate; reward equally sure and generous, to encourage 
 fidelity and promote respectability. It is not the severity, 
 but the certainty iw\i{ promptness of punishment, Avhich pro- 
 motes discipline. The sailor who now commits an ofience 
 aboard shij) remote from home and the flag-ship, knows that 
 he cannot be tried, possibly for months, until the vessel ar- 
 rives in j)ort or falls in with the commodore of the squadron. 
 
 I consider it all-important that the commander of any 
 vessel should be authorized by law to order a summary 
 court-martial for the trial of the petty officers and those 
 below them; that they should have the power to punish 
 by dishonorable discharge in any port; by confinement on 
 reduced rations and witbout pay, with extra labor and de- 
 nial of shore privilege. When the seaman knows that these 
 puni.shnients can be promptly inflicted by the officers in 
 command of the ship, he has much to deter him from dis- 
 obedience. 
 
THE NAVY. 101 
 
 But, in order successfully to invite diligent and cntcr- 
 prizing men, they must know that tlieir integrity Avill be 
 commended, and their faithfulness remembered. ^ An hon- 
 orable discharge, leave-of-absence pay, shore privilege, and 
 the confidence of the officers, will animate and encoura.L^c 
 them. I ho])e I may be excused for repeating that "I docra 
 it indisiiensalde that some plan be adopted by which onr 
 seamen shall become more distincthj and pcrmanendy a 2^art 
 of the navy, and attached to the service. Whenever a ship- 
 of-war now returns from her three years' cruise, the officers 
 are detached, and granted a leave of absence for three months, 
 with leave-of-absence pay, but the seamen are peremptorily 
 discharf/ed — disconnected from the service. If they have been 
 meritorious, I propose that on their return they be granted 
 an 'honorable discharge,' (to be considered a leave of absence 
 on pay,) if witliin a certain time they choose to re-enlist in 
 the service. This would possess a two-fold virtue of ftiir and 
 generous treatment at parting, an invitation to continue a 
 member of a fomily caring for them during a temporary 
 absence." 
 
 I wish to raise the standard of character among seamen. 
 It is my design, also, immediately to adopt, in a modified 
 form, the "Apprentice System," and encourage the enlist- 
 ment of American boys from fourteen until they are twenty- 
 one' years of age. The object in view will be to train them 
 up at first on our large receiving ships, and transfer a cer- 
 tain number to each vessel starting on a cruise, to make 
 them practical seamen, to teach them in their youth to be- 
 come familiar with all the duties of a sailor, the require- 
 ments of the service, the sacredness of obedience to orders; 
 to watch over their proper moral and mental training, and 
 thus incorporate into the service gradually, but surely, a 
 body of seamen to be proud of in times of peace, to be re- 
 lied upon in times of danger. I am also very clearly of 
 opinion that the number of men in the service should be in- 
 creased at least twenty-five hundred. 
 
 Marine Corps. — The marine corps constitutes a most in- 
 teresting, important, and useful portion of the naval force. 
 Their service is equally cftective on land and on sea. They 
 arc an armed and disciplined police on ship-i)oard. "Well 
 trained and drilled before being detailed for duty at sea, 
 aware of the foct that they are set apart to sustain the officers 
 in command in the preservation of order and tlie t;uppression 
 of mutiny, the first symptom of insubordination finds them 
 ready, with strong hand and burnished arms, at the drum- 
 tap, to put down disorder or disobedience. 
 
102 THE NAVY. 
 
 Recent occurrences at sea, painfully fresh in tlie recol- 
 lection of all, imiu-ess the mind most vividly of the practi- 
 cal value of such a body of men on ship-board in moments 
 of peril and alarm, when mere panic and disorder are so 
 often unnecessarily fruitful of desolation and death. But on 
 laud also their services have ever been found efficient, either 
 in the navy yards or on shore far from their country. This 
 corps accompany our men-of-war in all their cruises in times 
 of peace and war, and have signalized their valor in many a 
 field. 
 
 Their number now is entirely too small, and I earnestly 
 recommend an increase, by which more time would be al- 
 lowed for their proper discipline and drilling before they are 
 ordered to sea, and their efficiency rendered still more re- 
 liable. I am satisfied also that the corps could be improved 
 and elevated in character by adopting some system of ap- 
 pointing officers of military education and training. 
 
 Yards and Docks. — We have now eight navy-yards, inclu- 
 sive of the one now in rapid progress of construction at 
 ]\Iare island, California. To keep these yards in proper con- 
 dition for useful service, and to erect on them the necessary 
 buildings and fixtures, occasion the expenditure, annually, of 
 large sums of money, notwithstanding the diligence and 
 vigilance of the chief of that bureau. Large appropriations 
 will be from time to time required for the yard in Califor- 
 nia, which it is presumed, Avill be a complete establishment, 
 as it is the only one on the Pacific. The prices of labor and 
 material and the necessaries of life in California are still far 
 higher than on the Atlantic coast. 
 
 My immediate predecessor, (Hon. John P. Kennedy,) in 
 his last annual report, recommended the construction of a 
 basin and railway, in connexion with the floating sectional 
 dock in California, thus: "No appropriation was made for 
 thle basin and railway, without Avliich the dock cannot be 
 safely or usefully employed. I submit it to the decision of 
 Congress whether these structures should not be made with- 
 out delay." 
 
 Congress subsequently, in the naval appropriation bill, 
 approved March 3, 1853, adopted the following section : 
 
 '' And the Secretary of the Navy is hereby directed to 
 cumpk'te and carry into execution the verbal contract for a 
 basin and railway in California, in connexion with the 
 fldating dock, as made by the late Secretary, in pursuance 
 of autliority for that purpose, given by the act of Septem- 
 ber the twenty-eighth, one thousand eight hundred and fifty, 
 entitled ' An act making appropriations for the naval ser- 
 
THE NAVY. 103 
 
 yice for tlie year ending the thirtieth of June, one thousand 
 eight hundred and fifty-one,' and as stated in the letter of 
 the said late Secretary addressed to the honorable Howell 
 Cohh, Speaker of the House of Eepresentatives, and dated 
 the twenty-first day of January, one thousand eight hun- 
 dred and fifty-one, towards the execution of which one hun- 
 dred and fifty thousand dollars is hereby appropriated: 
 Provided, That, in the judgment of the Secretary, such basin 
 and railway are necessary, and will be useful to the public 
 service." 
 
 In my last annual report, I informed you that I liad 
 given the subject much investigation ; that my predilec- 
 tions were decidedly in favor of stone docks; that Congress, 
 however had decided that a sectional floating dock is pre- 
 ferable in California ; that I entertained the opinion, that a 
 basin is necessary to render it safe when a large ship is 
 docked for repairs, which may expose it to months of dan- 
 gerous weather, and that I should proceed to execute the 
 contract unless Congress should otherwise direct. 
 
 The difliculties about the title to IMare island were not 
 removed until July last. Previous to making the contract, 
 the opinion of the Attorney General was asked as to the 
 proper construction of the law, and he advised that it was 
 mandatory in its terms as to the amount to be paid, and the 
 execution of the contract, if the basin and railway were de- 
 cided to be necessary and useful to the public service. He 
 uses the following language: "Thus far the terms of the 
 act are, in my opinion, positively mandatory, and it only re- 
 mains to discuss the proviso to the clause, which is : ' Pro- 
 vided, That in the judgment of the Secretary, such basin 
 and railway are necessary, and will be useful to the public 
 service.' * * In all machines, great or small, parts 
 are found which are necessary to the action, or to the safety, 
 or to the permanent value, of the machine. That is a nie- 
 chanical question, to be settled by the Secretary, by the aid of 
 experts and of engineers." I deemed it my duty to procure 
 the opinion and advice of experts, engineers, and practical 
 men, some of whose opinions, heretofore verbally given, I 
 have caused to be reduced to writing. I refer to a\rr. Lent- 
 hall, naval constructor and chief of the Bureau of Construc- 
 tion, Equipment, and Repair, and the civil engineer, Mr. 
 Sanger, attached to the Bureau of Yards and Docks. I am 
 not acquainted with any two gentlemen more distinguished 
 in their respective professions, and more entitled to the con- 
 fidence and respect of the department. It is proper that I 
 jshould state, also, that these two gentlemen have always 
 
TD4 THE NAVY. 
 
 been adverse to the construction of these floating docks ; 
 but on the question of the necessity and usefulness to the 
 public service of the hasin and railiuay in connexion with 
 the sectional dock, they have expressed themselves with 
 clearness and force, and presented •arguments and facts 
 which, in my judgment, were convincing. 
 
 Mr. Lenthail in answer to my inquiry, expresses himself 
 thus: " In compliance with your request that I should com- 
 municate my opinion in writing, which on several occasions 
 has been verbally given, as to whether the basin and rail- 
 way are desirable or necessary, in connexion with the sec- 
 tional or floating dock, I would respectfully state that, with- 
 out such an appendage, I would consider this floating dock, 
 in a great measure, unsuitable for naval purposes. As a 
 ship-builder, I could not recommend the execution of very 
 extensive repairs, which are often necessary to ships of war, 
 upon the uncertain foundation such a dock would present, 
 and therefore I consider the basin necessary for its full effi- 
 ciency. The danger to which such a floating structure 
 would be exposed with a heavy ship upon it, probably for 
 months, in my opinion renders this basin very desirable." 
 
 The following extracts are taken from the opinion of Mr. 
 Sanger : 
 
 " In answer to the first inquiry, I have to say that in my 
 opinion, the only feature in these works which commends 
 them to the favorable consideration as suitable structures for 
 naval purposes in making extensive repairs upon heavy 
 vessels-of-war, is the connexion of the dock, basin and rail- 
 way, so that when a vessel is put upon the dock for exten- 
 sive repairs, and to remain a length of time, the whole 
 structure can be floated into the basin and firmly grounded; 
 the ship may then be taken on shore by the railway, or re- 
 main on tlie dock, and would, in either case, rest as safely 
 as if on a building-sli}), and would bo shored and secured in 
 tlie same manner. I am therefore of opinion that Congress 
 having ortlered the construction of a sectional floating dock 
 in California, the addition of a basin and railway to operate 
 in connexion witli that dock at Mare island becomes both 
 necessary and useful. * * * * 
 
 " These il' lilting docks often answer a good purpose for 
 making slight repairs, such as repairing copper, cleaning 
 bottoms, or renewing copper, Avhere the work to be per- 
 f(jrmed requires but little time, and the ship is not weak- 
 ened, but always in such condition that she could be let into 
 the water at any moment without damages, should necessity 
 require it; but for extensive repairs, where the planking is 
 
THE NAVr. 105 
 
 removed and the upper works are cut to pieces, as is fre- 
 quently the case, I sliould consider tlieir use as very haz- 
 ardous and unsafe; and I do not think they are ever used, or 
 should be used, for such extensive repairs, unless in con- 
 nexion with a basin. * * * * 
 
 " I do not think that i)iers could bo constructed in such 
 manner as to render a heavy ship-of-war upon the dock safe, 
 when reduced to the conditions she must necessarily bo 
 placed in to receive extensive and thorough repairs occupy- 
 ing months, nor do I believe that any prudent naval con- 
 structor Avould risk a national ship in such condition for a 
 length of time upon any floating structure." 
 
 I deemed it also my duty to visit the navy-yard at Phila- 
 delphia and witness personally the operation of that dock, 
 similar to the one in California. Notwithstanding the in- 
 convenience and expense of dredging necessary at Philadel- 
 phia, national vessels entering that port have been regularly 
 repaired on the dock and in the basin with entire success 
 since its completion. During my administration of tliis de- 
 partment this dock and basin have been successfully used 
 for repairing the steamers San Jacinto and Fulton, and the 
 sloops-of-war St. Mary's, Oyane, and Jamestown. The San 
 Jacinto was also hauled ashore on the railway, where she un- 
 derwent several months' repairing, leaving the dock in the 
 meantime ready for any ship that might arrive. I am not 
 to be understood as advocating or recommending government 
 to adopt this system in preference to stone docks. But while 
 I am decidedly of opinion that this plan of dock is inferior 
 to the stone dock in point of durability, safety, and because 
 of the expense of repairing, and its requirement of a depth 
 of water involving often the cost of dredging, I am also 
 clearly of opinion that for naval purposes the hamn and rail- 
 way impart to its chief value, and that without the former 
 it would be unsafe. 
 
 Congress having previously chosen to construct the sec- 
 tional dock on the coast of California, the only one on the 
 Pacific coast; able and scientific officers having expressed 
 the opinion and assigned reasons in favor of the necessity 
 and usefulness of the basin and railway in connexion with 
 this dock; and being aware that the growth of our com- 
 merce, and the enlargement of our squadron in the Pacific, 
 demanded the service of the dock, I deemed it my duty "to 
 complete and carry into execution the contract" as described 
 in the law, for the construction of the basin and railway, to 
 render it secure and useful for the " public service." For 
 slight repairs these docks are used without the basin, and by 
 U 
 
106 THE NA\T. 
 
 authority of Congress the contractors have built temporary 
 jners, and are using tliis dock in California for such pur- 
 })0ses. But I could not consent (except from necessity) to 
 hazarding a national vessel on a floating structure like this 
 for extensive repairs, Avith her planks off, in a weakened con- 
 dition, to be exposed montht; to uncertain weather. The loss 
 of one ship would equal the cost of the basin and railway, 
 great as it is, and blame might then well attach to the Sec- 
 retary who refused to protect it Avith a basin and railway, 
 although Congress authorized him, and experts advised him 
 of the hazard. 
 
 I am thus particular on this subject because of the amount 
 involved. The dock is completed, and will soon be thorough- 
 ly tested. The contractors are actively engaged in building 
 the basin and railway. 
 
 I informcil you in my last report of the difficulties which 
 had occurred 'in regard to the dock, basin, and railway 
 at Pcnsacola. This is a balance, not a sectional, dock. 
 When 1 came into the department I found that the contrac- 
 tors had already been paid up for these works the entire 
 amount agreed upon, as well as the reserved ten per cent., 
 and that a bond in the sum of two hundred thousand dol- 
 lars had been taken from them for the protection of the 
 Government. The records indicate that this was done upon 
 the certificates filed of the completion of the work, and the 
 opinion of the Attorney General of the obligation of the 
 Government, and not the contractors, to procure by proper 
 dredging the depth of water necessary for the operation of 
 the dock. A board had also been appointed, and the frigate 
 Columbia selected to test the works, in order that the de- 
 jKirtment miglit decide Avhether or not the stipulations en- 
 tered into had been fulfilled. The report of the board was 
 unfavorable, and I declined accepting the works. The con- 
 tractors insisted that injustice had been done them in the 
 mode of making the test, declined attempting to float the 
 Columbia into the basin with her armament on board, pro- 
 tested in writing against having the works rejected upon 
 this test, and asked tliat another might be applied after they 
 should make certain pro])Osed improvements and repairs. 
 It lias not been convenient for the department to spare any 
 national vessel for a second test, and I entertained the opinion 
 that after the Government had been to the expense and in- 
 convenience of furnishing one vessel, it became incumbent 
 upon the contractors to demonstrate by a fair and reasonable 
 test, at their own expense, that the works were in truth 
 
THE NAVY. 107 
 
 •worthy of acceptance, and tliat they had executed what they 
 had undertaken. 
 
 Mr. Kartt, junior naval constructor, who, until recently, 
 was stationed at Pensacola, and was one of the committee 
 reporting adversely, informed me, in an official communica- 
 tion dated March 7, 1854, "that from the external apj)ear- 
 ance of these repairs, &c., I [he] am of tlie opinion that the 
 dock and basin is in a safe and better condition to perform 
 the test than it was in May last; the basin required nothing 
 to be done to it, everything being in good order;" and after 
 enumerating the alterations and repairs, says: "I consider 
 the repairs and alterations enumerated above of great ad- 
 vantage, as regards the safety and efficiency of the dock." 
 Still I declined receiving the works. Tlic contractors pro- 
 posed several different vessels with Avhich to make tlie test, 
 but I declined, because I did not consider either of them of 
 sufficient weight and displacement to enable me to judge 
 of the capacity of the dock. Having then informed them 
 that I should deem it my duty to turn the case over to the 
 courts of law, they finally proposed another test, which I re- 
 ferred to the consideration of a board consisting of C\)mmo- 
 dores Morris and McCauley, Constructor Lenthall and Civil 
 Engineer Sanger. That board gave the whole case a thorough 
 investigation, and, after consideration advised the depart- 
 ment that it was proposed to take ballast in the large mer- 
 chant ship "The Monarch of the Seas," until her weight or 
 displacement was 2,500 tons, and then place ballast on the 
 dock until a weight of 3,300 tons was made up, that being 
 the estimated weight of the "Niagara," (the largest of the 
 new frigates,) with only her steam machinery and its appur- 
 tenances on board, thus making a weight of 315 tons more 
 than was used in the former test. The vessel is to be placed 
 on the dock, floated into the basin, and hauled ashore on the 
 railway, and returned again. 
 
 The board, considering the details of the proposed test 
 and arrangements, recommend it as one that may be suffi- 
 cient to enable the department to determine whether the 
 works are worthy of acceptance or not. The vessel is now 
 on her Avay to Pensacola, and the second test will be made 
 immediately, when the department will be the better able to 
 judge of the character of these structures. Tlie interests of 
 the government shall be protected as fully as they can be, 
 and every effort shall be made to ascertain tlie true facts as to 
 the character and capability of the dock, basin and railway. 
 
 In the third section of the naval appropriation act, passed 
 at the last session of Congress, it was provided, "that all 
 
108 THE NAVY. 
 
 the grounds and appurtenances thereunto belonging, known 
 as the Memphis navy-yard, in Shelby county, Tennessee, be, 
 and the same is hereby, ceded to the mayor and aldermen 
 of the city of Memphis for the use and benefit of said city, 
 and that the Secretary of the Navy order the commandant 
 of said navy-yard at Memphis to surrender to the mayor of 
 ^Memphis said ])roperty." In pursuance of that provision of 
 law, I addressed a communication to the mayor of the city 
 of Memphis, to ascertain the views of the mayor and alder- 
 men as to the acceptance of the donation. On receiving from 
 them a certified copy of their proceedings, expressing their 
 readiness to receive the property, an order was issued to the 
 commander of the navy-yard at Memphis to surrender the 
 grounds and ai)])urtenances to the mayor. The order was 
 obeyed, and in due form the surrender was made, and the 
 property is now in the possession and under the control 
 of the corporate authorities of Memphis. It is perhaps 
 proper that I should state that there were sundry articles 
 of property belonging to the Government used in con- 
 nexion Avith that yard, the sale of which the department 
 has for the present suspended, at the request of the mayor 
 and aldermen, on tlieir communicating to the department 
 that they had resolved to appeal to Congress to re-establish 
 the navy-yard. 
 
 The ground and appurtenances, however, have, in pursu- 
 ance of the law, been unconditionally surrendered, and the 
 yard abandoned by the Government. 
 
 MificeUancous. — The Naval Academy has during the past 
 year continued to present to the country practical evidence 
 of the wisdom and foresight of its projector. Under the 
 vigilant superintendence of Commander Goldsborough and 
 his wortliy assistants, the strictest discipline has been en- 
 forced, to tlie marked benefit of this institution. 
 
 The plan of e<lucation is now thorough, and the training 
 of the youtli admirable. The cruise in the practice ship is 
 of immeasural)le advantage in imparting, at an early age, 
 practical knowledge of seamanship. During the last sum- 
 mer the Preble, with 31 young midshipmen, visited Ports- 
 mouth and Plymouth in England, and Brest and Cherbourg 
 in France, thereby aflurdiiig them an opportunity of exam- 
 ining the naval establishments at tliose points. The contract 
 has Ijceu made for the erection of a machine-shop at Annap- 
 olis under the act of Congress authorizing it, and I shall 
 avail myself af the first opportunity when the service will 
 jiermit to substitute a steamer for the sloop now used as a 
 }iractice ship. The number of students now at the Academy 
 
THE NAVY. 109 
 
 is one Inmdred and sixty. Attention is called to the report 
 of the Chief of the Bureau of Ordnance and Hydrography, 
 and the annual report of the Board of ICxaminers, as also 
 that of the commander of the practice ship. 
 
 The Naval Observatory is still entitled to generous support, 
 and eminently demonstrates the utility of its original estah- 
 lishment. 
 
 The achievements on sea quietly and gradually effected hy 
 Lieutenant Maury, although not attracting the admiration 
 of the multitude, nor dazzling the beholder with sudden 
 flashes of triumph, have reflected honor upon himself and 
 his country; have brought remote nations in comparative 
 proximity to each other; have promoted commerce, by point- 
 ing out to the mariner new paths on the great deep, Avhere 
 favorable winds and currents lend friendly aid. His "Wind 
 and Current Charts," and "Sailing Directions," are saving 
 millions of money, by shortening the voyages of merchant 
 vessels fricglited with treasures. 
 
 I am otHcially informed "that it was stated in a paper read 
 before the British Association last year, that it was esti- 
 mated in India that a set of wind and current charts for the 
 Indian ocean, like those that have been constructed at this 
 office for the Atlantic ocean, would produce an annual saving 
 to British commerce in those seas alone of not less than 
 |1,000,000, (£250,000,) and for British commerce in all sea.s 
 of 110,000,000 a year. This estimate was based on the con- 
 dition of shortening the voyage only one-tenth, (whereas 
 the average length of the passage to all places beyond the 
 Equator has been shortened much more ;) and the estimat<3 
 was again repeated at the last meeting of the Association in 
 Liverpool." It has also been estunated that the value of 
 these charts to the commerce and navigation of the United 
 States is equivalent in the saving of time to several millions 
 a year. 
 
 I trust that these considerations may prevent all objection 
 to the comparatively small expense annually called for to 
 sustain this establishment. 
 
 The department is advised that Mr. Bobert L. Stevens, of 
 New York, is now rapidly jtrogressing in the construction of 
 the iron war steamer, to be sliot and shell proof, for harbor 
 defence, in accordance with his contract, under the acts of 
 Congress of 1842 and 1852. In his communication of the 
 28th of October, he informs me that " the boilers will be 
 ready to put on board in about three weeks, and the shafts, 
 beams, cranks, and links are nearly finished and turned,' 
 and that he has nearly five hundred men engaged on the 
 
110 THE NA\Tr. 
 
 work. It is very desirable that this vessel shoukl he com- 
 pleted, large sums having already been expended by Congress 
 upon it. If the undertaking is successful, and the contractor 
 accomplishes what he promises, the benefits derivable from 
 it for harbor defence arc incalculable. 
 
 Great difficulty having been experienced in procuring 
 American water-rotted hemp, special agents have been ap- 
 pointed in the districts of country in which it was most 
 likely to be attained. The instructions for its inspection and 
 receipt offer every inducement to encourage its preparation. 
 The supply of hemp has been princi]mlly drawn from Russia, 
 and the i)rcsent state of affairs in Europe demonstrates the 
 importance of our not being dependent on other countries for 
 our su[»})lics of this necessary article. 
 The estimates for the support of the navy 
 and marine corps for the year ending June 
 30, 1856, and for all objects coming under 
 the control of this department, are, in the 
 
 aggregate ; |16,241,931 53 
 
 From which deduct special objects, includ- 
 ing transportation of the mail in steam- 
 ships 7,324,634 22 
 
 Leaves for the support of the navy and ma- 
 rine corps 8,917,297 31 
 
 The estimate for the jiresent fiscal year Tor 
 the support of the navy and marine corps 
 was $8, 351,171 19 
 
 The total amount drawn from the treasury 
 during the fiscal year ending June 30, 
 1854, as exhibited by the statement of ap- 
 propriations for the naval service prejjared 
 bv the Second Comptroller of the Treasury, 
 was 111,750,236 32 
 
 From which deduct repayments 948,391 04 
 
 Gives as the total expenditure for all objects 
 imder the control of the Navy Depart- 
 ment 10,801,845 28 
 
 But of this amount there was expended for 
 
 special objects the sum of. 3,910,012 29 
 
 Leaving as the legitimate ex])cnditures for 
 the support of the navy and marine corps 
 for the fiscal year ending June 30, 1854... 6,891,832 99 
 
THE NAVY. Ill 
 
 There are, however, outstanding dairas to be paid out of 
 the appropriation for the fiscal year 185o-'54. 
 
 Your attention is invited to the reports and estimates of 
 the chiefs of the several hiu'caus connected with this depart- 
 ment. I perform hut an act of justice in testifyinj^ to tlio 
 fidelity and attention to business of all these officers, and in 
 suggesting that the compensation to the heads of the Bureau 
 of Construction, Equipment, and Repair, and Medicine and 
 Surgery, should be the same as tluit now allowed to the 
 others. 
 
 You will perceive, from reference to the report of the chief 
 of the Bureau of Ordnance and Hydrography, the importance 
 of the action of Congress in making necessary appropriations 
 for ordnance, which will be much larger than usual, in order 
 to enable the deixirtmcnt to supply the six new steam-frigates 
 with armament, which, it is designed, shall be of different 
 and heavier calibre than heretofore used. 
 
 In pursuance of the suggestions of the chief of the Bureau 
 of Medicine and Surgery, the Naval Laboratory in connexion 
 with the Hospital at Brooklyn was reorganized in the fall of 
 1853, and placed on a basis to secure its success and enlarge 
 its benefits to the service. Since January last the entire 
 supi^ly of medicines for the navy has been prepared at that 
 laboratory, thereby giving assurance that a reliable article is 
 gupplied, and that the service will not suffer from the impo- 
 sition of spurious and deleterious dnigs. As a matter of 
 economy, also, the advantages will not be inconsiderable. 
 
 The letters of Commander Charles H. DaviS;, touching the 
 Nautical Almanac, and of Professor Alexander, in regard 
 to the character of alimentary substances, accompany this 
 report, and will explain the progress made in their depart- 
 ments. 
 
 I have the honor to be, with great respect, rour obedient 
 servant, J. C. DOBBIN. 
 
 To the President of the United States. 
 
-THE POST OFFICE. 
 
 POSTMASTER GENERAL'S REPORT. 
 
 Post Office Department, 
 
 December 4i, 1854. 
 
 The whole number of post offices in the United States, on 
 the 30th of June, 1854, was 23,548. Of this number 257 are 
 oftices the annual commissions from which amount to one 
 thousand dollars or upwards, and tlic appointments at these 
 offices are therefure made by the President, by and with the 
 advice and consent of the Senate, agreeably to the provisions 
 of the act of 1836. The number of^offices established during 
 the last fiscal year was 1,842, and 'the number discontinued 
 G14, showing a net increase in one year of 1,228. The num- 
 ber of which the sites and names have been changed in the 
 course of the year was 499. The number of postmasters ap- 
 pointed during the year was 8,618. Of these, 4,185 weVe ap- 
 point<3d to fill vacancies occasioned by resignations; 1,977 by 
 removals; 320 by deaths; 294 by change of names and sites; 
 and 1,842 on establishment of new offices. 
 
 The total number of offices on the 1st of December, 1854, 
 was 23,925. 
 
 On the 30th June last there were in operation 6,697 mail 
 routes. Tlie number of contractors Avas 5,167. 
 
 Tlie length of these routes is estimated at 219,935. 
 
 The total annual transportation of mails was 63,387,005 
 miles, costing $4,630,676, and divided as follows, viz: 
 
 21,267,603 miles by modes not specified, at |1,092,833, 
 about 5 cents per mile. 
 
 20,890,530 miles by coach, at $1,290,095, about 6 cents per 
 mile. 
 
 15,433,389 miles by railroad, at $1,758,610, about 11 cents 
 4 mills ])er mile. 
 
 5,795,483 miles by steamboat, at $489,138, about 8 cents 4 
 mills per mile. 
 
 Cum])ared with the services of the 30th June, 1853, there 
 is an increase of 1,494,4(>3 miles of transportation, or about 
 2i ])er cent., and of $134,708 cost, being about 3 per cent, 
 
 Tlie increase of railroad service is 2,446,684 miles, and the 
 expense $157,281, being 19 per cent, in transportation, and 
 not quite 1 per cent, in cost. 
 
 112 
 
THE POST OFFICE. 113 
 
 Tlie increased transportation by modes not specified is 
 377,157 miles, or about 1 per cent., at a cost of $37,520, or 
 StVtt per cent. 
 
 The transportation by coaclies is less by 439,796 milos, or 
 about 2 per cent., though at an increased cost of $83,137, or 
 6-fVff per cent. 
 
 The un])recedented extension of railroads superseded much 
 coach service. The increased cost for a diminished amount 
 of such service may be accounted for from the fact that the 
 new contracts in New England and New York, commencing 
 1st July, 1853, were made at largely enhanced rates, in- 
 creasing the aggregate expense, while the amount of service 
 was largely reduced. 
 
 The steamboat transportation during the past year was 
 reduced 889,582 miles, or 15f per cent., at a reduced cost of 
 $143,230, or 29tV per cent. 
 
 This is accounted for by the discontinuance of service be- 
 tween Wilmington, North Carolina, and Charleston, South 
 Carolina, Savannah, Georgia, and Charleston, and Detroit, 
 and Buffalo, and the suspension of service on the Arkansas 
 and White rivers, owing to the failures of the contractors. 
 
 Several steamboat routes were also dispensed with at the 
 lettings of new contracts for New England and New York. 
 
 Tlie portions of service in the foregoing estimates charge- 
 able to California are 591,630 miles of annual transportation, 
 costing $142,933, and varying but slightly from last year's 
 report. 
 
 Steamboat transportation 159,120 miles, at $21,000. 
 
 Coach " 174,026 miles, at $35,185. 
 
 Modes not specified, transportation 258,484 miles, at $86,- 
 748. 
 
 In Oregon the service is as follows: 
 
 Steamboat, 38,038 miles, at $17,000. 
 
 Modes not specified, 98,988 miles, at $2,151. 
 
 Total transportation 137,026 miles. 
 
 Total cost $45,151. 
 
 The annual transportation by steamboat was increased 
 10,760 miles during the year without additional pay. 
 
 The following table exhibits the extension of railroad ser- 
 vice during the year, separately, in five groups of States: 
 
 Length of Miles of an- Additional 
 route. nual trans- cost, 
 
 portation. 
 
 New England and New York 629 971,341 $29,488 
 N. Jersey, Pennsylvania, Dela- 
 ware, Maryland, and Ohio 342 453,660 15,518 
 15 
 
114 THE POST OFFICE. 
 
 Virginia, North Carolina, S. 
 Carolina, Georgia, and Flo- 
 rida 328 235,227 $56,863 
 
 Michigan, Indiana, Illinois, 
 
 andAVisconsin 605 710,952 44,214 
 
 Kentucky, Tennessee, Alaba- 
 ma, Mississippi, and Loui- 
 siana 121 75,504 11,234 
 
 The lettings for the year embraced the States of Alabama, 
 Mississippi. Louisiana, Arkansas, Texas, Missouri, Kentucky, 
 Tennessee, Iowa, Wisconsin, Michigan, Indiana, Illinois, Cali- 
 fornia, and the Territories of Oregon, New Mexico, Utah, 
 "Washington, and Minnesota. In some of the States and 
 Territories I found the mail facilities greatly deficient, and 
 not at all such as the Avants and requirements of the people 
 absolutely demanded. After a careful survey of each State 
 and Territory, I gave to it such additional facilities as its in- 
 creasing trade and population seemed to require. 
 
 A comparison of the service under the new contracts com- 
 mencing 1st July last, as in operation on the 30th Septem- 
 ber, with that under the expired contracts in the north- 
 western and southwestern sections of the Union, shows that 
 the annual transportation of mails has been increased 
 2,990,860 miles, at an increased cost of $395,373 per annum, 
 divided among the several States and Territories, as follows: 
 
 Increased miles Increased 
 
 of annual trans- annual cost, 
 portation. 
 
 Michigan 146,342 $2,189 
 
 Indiana 240,255 60,425 
 
 Illinois 266,618 67,956 
 
 Wisconsin 75,537 32,320 
 
 Iowa 180,156 39,625 
 
 Missouri 23,820 11,635 
 
 Minnesota 62,960 2,002 
 
 Kentucky 269,258 
 
 Tennessee 16,285 
 
 Alabama 19,764 
 
 Mississippi 577,318 49,214 
 
 Arkansas 477,156 46,688 
 
 Louisiana 358,904 41,138 
 
 Texas 469,148 67,154 
 
 California 68,302 
 
 Utah 25,960 12,203 
 
 In Alabama the transportation has been slightly decreased, 
 though the total cost of service is increased $19,764. 
 
THE POST OFFICE. 115 
 
 In New Mexico the same amount of transportation con- 
 tinues under the former contracts, but at a reduced cost of 
 $10,700. _ 
 
 In California, 68,302 miles of additional transportation is 
 obtained at a reduced annual cost of $41,804, accord int!; to 
 the accepted bids; but, owing to tlie failure of tlie bidders 
 on two important routes, it is expected that the actual cost 
 of tlie service will be largely increased. 
 
 The service in Oregon has been reduced by not renewing 
 the contracts on the routes from Columbia to Cascades, Cas- 
 cades to Wascapum, and Wasca]mm to Salt Lake. 
 
 In Kentucky, 269,258 miles of additional service were ob- 
 tained at less pay than under the former contracts. 
 
 Of the 2,990,860 miles of transportation above stated, 
 1,292,650 miles are performed bv railroad. 
 
 Oftho additional cost of ,$395,^373, $106,951 is for railroad 
 service. 
 
 The total annual transportation under the new contracts 
 as adjusted for the quarter ending 30th September, is 29,- 
 O4'[,0o0 miles, and the total annual cost $2,375,789, divided 
 as follows, viz : 
 
 3,576,966 miles by railroad, at $343,118, or 9 cents and 6 
 mills per mile. 
 
 4,159,864 miles by steamboat, at $436,768, or 10^ cents 
 per mile. 
 
 6,674,072 miles by coach, at $646,068, or 9 cents and 6 
 mills per mile. 
 
 14,636,148 miles by modes not specified, at $949,835, or 
 6A cents per mile. 
 
 Contracts have been made to convey mails by steamboat 
 between New Orleans, St. Francisville, and Vicksburg, at 
 $75,000 per annum, and between Mobile and Montgon'iery, 
 Alabama, at $35,000 per annum, which are not included in 
 the foregoing statements. The amount of pay for service, 
 as in operation on 30th September, between New Orleans 
 and St. Francisville, by transient boats, is $33,680. It is 
 proper, therefore, to add for the new regular service $41,320, 
 which, with the $35,000 on the Alabama river route will in- 
 crease the cost of the service for the current year $76.320 — 
 making the whole additional cost of the new contracts 
 $471,693. To these must also be added the cost of additional 
 route agents, local agents, and mail messengers, appointed 
 since 1st July, amounting to $7,988. 
 
 There were in service on the 30th June last 236 route 
 agents, at a compensation of $181,600 per annum; 21 local 
 agents at 115,490 per annum ; and 968 mail messengers, at 
 
116 THE POST OFFICE. 
 
 $92,131 80 per annum ; making a total cost of $289,221_ 80 
 per annum to be added to the other cost of transportation, 
 stated above at $4,630,676. 
 
 Pursuant to the act of Congress of Sth August, 1854, I 
 invited proposals on the 31st August for conveying mails 
 from Cairo, Illinois, to New Orleans, and back, daily, in 
 steamboats. 
 
 Only one bid was received within tlie prescribed time, 
 (6th November ;) and that being for $300,000, I did not feel 
 myself at liberty to accept it. A second bid at a much more 
 reasonable rate was received after the regular time had ex- 
 pired. 
 
 There are now no great mail lines in operation with which 
 to connect the proposed one at Cairo. The time is, how- 
 ever, not distant, when the necessary connexions will be 
 effected by the completion of the Illinois Central railroad 
 to Cairo, and of the Ohio and Mississippi road to its point 
 of intersection from the East with the Illinois Central. I 
 am informed that by the 1st of January the Illinois Central 
 will be completed, and that by the 1st of July the Ohio and 
 Mississippi road will make its eastern connexion with that 
 road. The chain of railroads between the Atlantic at va- 
 rious points and the Mississippi river, thus completed, will at- 
 tract large and important mails which are now conveyed on 
 other routes, and most materially enhance the importance 
 of a steamboat route between Cairo and New Orleans. More- 
 over, it is reasonable to anticipate such an increase of trade 
 and travel in the same direction as will go very far towards 
 sustaining a line of boats, thus reducing the cost of mail 
 service. 
 
 At present, the principal, if not the only support of the 
 line, wouhl be from this department; and I have, therefore, 
 deemed it my duty not to enter into a contract now, but 
 await developments so soon to be expected, enabling me to 
 negotiate terms much more advantageous both to the public 
 and this department. 
 
 In the mean time mails are regularly conveyed as hereto- 
 fore, by the trip between Louisville and New Orleans, and 
 St. Louis and New Orleans. 
 
 I liavc also contracted for separate service between New 
 Orleans and Vicksburg, Vicksburg and Napoleon and 
 Memphis. 
 
 There were in operation on the 30th September last 239 
 railroad routes; their aggregate length was 16,62H miles, 
 and tlie cost of mail transportation thereon was 1 1,923,747 
 89. Add to this the sujns paid mail messengers, route and 
 
THE POST OFFICE. 117 
 
 local agents, and the whole cost of this service will be 
 .$2,196,249 89. 
 
 In adjusting the rate per mile to he paid these railroads 
 great difficulties continue to exist. The principle which 
 should regulate their pay seems to he agreed upon. Tlie 
 companies allege that the government sliould not ask or 
 expect them to jterform for it any service at a less rate tlian 
 that i)aid by individuals for similar services. This i)rinciple 
 has never been denied or disputed by the Post Office Depart- 
 ment; but, on the contrary, it has always maintained — and 
 this has been ever the great cause of difficulty between the 
 department and the companies — that the government has 
 been charged and paying much greater i)rices than those 
 paid by individuals. Whether this by so or not, is a matter 
 that could be easily settled by computation. And when 
 the Post Office Committee of the House of Representatives 
 at its last session proposed a bill fixing certain rates per 
 mile for mail transportation on the roads, if it could have 
 been shown to them that the rates thus fixed were too low, 
 considering the weight of the mail, its importance, and the 
 facilities and space given for its transportatitui, I am satisfied 
 they would have at once increased the rates. What is re- 
 quired is to fix fair and just prices, companies performing 
 similar services to receive the same 2)ay, which is not now 
 the case, and all of them to be paid according to the bulk of 
 the mails, the speed with which they are conveyed, and the 
 accommodations required. The sums paid by express com- 
 panies would be a very unfair criterion by which to regulate 
 the charges to be paid for the conveyance of the mails. Con- 
 trolled by no competition excepting such as it is in the power 
 of the railroad companies themselves to prevent, they can 
 pay any prices which may be demanded of them and assess 
 it upon their customers. It would be unjust, too, to found 
 a calculation upon the assumption that the mail car was 
 twenty-five feet in length, fifteen for a mail room and ten 
 for a post office, and tlien to estimate and charge both for 
 weight of car and mails at fourteen tons. Accommodations 
 such as these are required both for the security of the mails 
 and to enable route-agents properly to discharge their duties; 
 and to this fact I early drew the attention of tlie companies; 
 but these accommodations have not been given. Many of 
 the railroads, desirous of properly serving the public, devote 
 a car exclusively for mail purposes; but in the great ma- 
 jority of cases a car is divided between the government and 
 the express companies, or a space is apportioned off for the 
 route-agent, the mail being placed with the baggage in one 
 
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 ^^[%f^"' - :■= las "^Bipx- _ 
 
 £r T^'r :^5i^Beii. ^fcEcasi. The CHHe^neaee ias ~iesL ~"^-£r- -itf- 
 
120 THE POST OFFICE. 
 
 and, instead of a letter being mailed direct to the distribu- 
 tion office to which it belon2;s, it would be mailed from point 
 to point along the route until it reached its destined point. 
 To prevent these delays, and at the same time to possess my- 
 self of the local knoAvledge of the postmasters at the distribu- 
 ting post offices, I caused to be forwarded to me the different 
 8chem<^ of distribution. Some of them I found quite per- 
 fect, but the great majority of them were very defective, and 
 my only surprise has been that greater delays in the delivery 
 of letters have not taken place. I am now having prepared 
 distribution schemes for every distributing office in the coun- 
 try, allotting to each its proper distribution. When they 
 are completed the postmaster at the mailing point can, by 
 turning to his scheme and looking to the counties and towns 
 in each State allotted to the various distributing offices, be 
 enabled to mail direct. The department will likewise have 
 the important matter of distribution under its exclusive con- 
 trol, and when new mail arrangements are made, by railroad 
 or otherwise, which would change the course of distribution, 
 the different offices can be instructed accordingly. Much, 
 however, remains to be done. Every distribution causes de- 
 lay, and this must necessarily take place under our present 
 system once or twice, which is one great cause of complaint 
 that letters do not reach their point of destination as soon as 
 passengers. When the letter is from one distributing office 
 to another the mailing is direct, and if sent on its proper 
 course there is no good reason for any delay. The mailing, 
 indeed, should be direct from every post office in the United 
 States to another, but this under our present system I view 
 as impracticable. With our existing regulations, Avhich pre- 
 scribe that every postmaster shall mail direct to the place 
 addressed all letters for his own State or Territory, and all 
 letters for post offices in other States and Territories which 
 should not pass through a distributing office on their proper 
 route to the office of delivery, rigorously enforced, and the 
 new schemes of distribution in operation at the various dis- 
 tributing post offices, I trust to be able to give to our mails 
 greater speed and regularity. 
 
 The Auditor reports the expenditures of the department 
 for the last fiscal year at $8,577,424 12, for the following 
 objects, viz: 
 
 Cuui])ensation to postmasters $1,707,708 29 
 
 Extra compensation to postmasters by the act 
 
 ^ of March 3, 1851 34,799 97 
 
 Ship, steamboat, and way letters, 19,549 67 
 
THE roST OFFICE. 121 
 
 Transportation of tlie mails, including the , 
 mails to Bremen, Havre, and Havana, and 
 
 the mails across the isthmus of Panama $5,401,382 50 
 
 Wrapping paper 40,4t);i 06 
 
 Office furniture for post offices 5,021) 36 
 
 Advertising 103,863 57 
 
 Mail bags 48,861 57 
 
 Blanks.'". 78,176 81 
 
 Mail locks, keys, and stamps 10,070 77 
 
 Mail depredations and special agents 48,769 51 
 
 Clerks for offices (of postmasters) 631,138 26 
 
 Official letters received by postmasters 447 32 
 
 Postage stamps 13,664 57 
 
 Stamped envelopes 47,418 77 
 
 Postage stamps of old issue redeemed 51 65 
 
 Payments to letter carriers 135,968 52 
 
 Compilation of post routes 1,000 00 
 
 Miscellaneous payments 153,617 96 
 
 Payments for British mails 94,541 39 
 
 $8,577,424^12 
 
 The gross revenue of the last fiscal year, including foreign 
 postages and the annual appropriations from the treasury 
 granted by the acts of 3d March, 1847, and 3d March, 1851, 
 in compensation of mail services rendered to the government, 
 amounted to $6,955,586 22, viz: 
 
 Letter postage $3,277,110 50 
 
 Postage stamps sold 2,146,476 02 
 
 Newspapers and pamphlets 606,148 18 
 
 Fines, other than from contractors 17 50 
 
 Emolument accounts of postmasters 81,952 46 
 
 Letter carriers 135,968 52 
 
 Recovered from failing contractors 400 00 
 
 Dead-letter money unclaimed 4,346 11 
 
 Miscellaneous receipts 3,166 93 
 
 6,255.586 22 
 Annual appropriations above stated 700,000 00 
 
 6,955,586 22 
 
 The revenue, as above stated, includes the balance against 
 the department of $138,565 61, resulting from our postal ac- 
 count with Great Britain, Prussia, and i3remen for the last 
 fiscal year. 
 16 
 
122 THE POST OFFICE. 
 
 The expenditures of the department for the past year, in- 
 cluding payments for foreign postages, were, as already 
 stated!.... .........•: $8,577,424 12 
 
 The revenue of the year, including foreign post- 
 ages and the appropriation for free matter, 
 amounted to 6,955,586 22 
 
 Deficiency 1,621,837 90 
 
 To the deficiency ahove stated should be added 
 the balances due and unpaid to the London 
 and Bremen offices up to the 1st of July last, 
 less the balances due by the Prussian office 
 up to the same period, viz : 
 Balances due the London office from April 1, 
 
 1853, to June 30, 1854. $230,259 07 
 
 Balances due and unpaid to the 
 
 Bremen office to the same period 13,465 40 
 
 243,724 47 
 Less balances due from the Prus- 
 sian office 1st January, 1853, to 
 
 June 30, 1854 110,241 14 
 
 133,483 33 
 
 Total deficiency for 1854 1,755,321 23 
 
 The deficiency for the year ending June 30th, 1853, as sta- 
 ted in my report of last year, was $2,117,078 20 
 
 In the year 1854 the deficiencv, as stated above, 
 
 was.. ": 1,755,321 23 
 
 Difference in favor of 1854 361,756 97 
 
 One of the results of the great activity and expansion 
 which have ])revailed in the general business operations of 
 the country during the past year is manifest in an extraor- 
 dinary increase of the Post Office revenue ; and that it may 
 be seen in which branch this increase has mainly arisen, the 
 revenue of the past and preceding year is here presented in 
 a coin])arivtive statement from wliicli the foreign postages 
 are excluded: 
 
 Revenue of 1853. Revenue of 1854. 
 
 Letter postage $2,843,965 42 $3,277,110 50 
 
 Stamps sold 1,629,262 12 2,146,476 02 
 
 Newspapers and pami)hlets... 611,333 42 606,148 18 
 Emolument account of post- 
 masters 38,386 01 81,952 46 
 
 Received from letter-carriers... 113,017 73 135,968 52 
 
THE POST OFFICE. 123 
 
 Revenue of 1853. Revenue of 1854. 
 
 Miscellaneous receipts $4,760 00 $7,930 54 
 
 Annual appropriations for 
 
 free matter 700,000 00 700,000 00 
 
 5,940,724 70 6,-955,586 22 
 Deduct the balance in each 
 year resulting from our 
 postal accounts with Eng- 
 land, Prussia, and Bremen.. 94,466 27 138,928 31 
 
 5,846,258 43 6,816,657 91 
 5,846,258 43 
 
 Total increase of 1854 970,399 48 
 
 or 18^V(y per cent. 
 
 If from tlie letter postage and stamps sold in each year tlie 
 foreign halances be deducted, tliere will appear an increase 
 over 1853 of 20TVir per cent.; while the revenue from 
 newspapers and pamphlets in 1854 seems to have fallen off 
 nearly one ])er cent. 
 
 But the general account of "stamps sold" is necessarily 
 so kept as to embrace not only tlie letter postage stamps and 
 stamped envelopes, but also the one-cent blue stamps, which 
 are generally used to prepay transient newspapers, printed 
 circulars, and dropped letters, and occasionally upon domes- 
 tic and foreign correspondence. 
 
 Therefore, to arrive at a proper estimate of the revenue 
 from printed matter, it is necessary to accord to it its due 
 proportion of the stamps sold. If we admit 75 per cent, of 
 the average amount of the blue stamps, sold in tlie last three 
 years, to_ belong to the revenue from printed matter, then 
 the condition of the revenue derived from that branch in the 
 last four years will be shown by the following statement : 
 
 Year ending Year ending Year ending Year ending 
 
 June 30, 1851. June 30, 1852. June 30, 1853. June 30, 1854. 
 Revenue as stated 
 
 by the Auditor... $1,035,130 89 $789,240 30 $011,333 42 $000,148 18 
 Three-fourths blue ^'one issued 
 
 stamps sold this year... 38,081 C4 32,858 17 53,950 01 
 
 1,035,130 89 827,328 00 044,291 59 600,008 79 
 
 As the act of the 30th August, 1852, fixing the present 
 rates of postage on printed matter, took effect on the 1st 
 October following, a fair com])arison can only be instituted 
 between the revenue of the two last fiscal years, through the 
 
124 THE POST OFFICE. 
 
 whole of which the existing rates of postage prevailed. 
 This shows that after giving to each year the liberal allow- 
 ance of three-fourths of the one-cent stamps sold, the year 
 ending June 30, 1854, exceeds the previous year only 2[VTf 
 per cent. 
 
 In this act there is a clause which provides that "when 
 the postage upon any newspaper or periodical is paid quar- 
 terly or yearly in advance," one-half only of the regular rates 
 shall be charged. In view of the trivial increase of the post- 
 age on printed matter, and of the extremely low rates, par- 
 ticularly i'ov newspapers and periodicals, I would recommend 
 that the law be so far changed as to omit the clause referred 
 to, leaving the department to fall back upon the act of 1825, 
 under which quarterly payments in advance on newspapers 
 and periodicals have heretofore always been required. The 
 propriety of this recommendation will be apparent not only 
 for the reasons above suggested, but also from the following 
 comparative statement of facts: Under the act in operation 
 prior and up to July 1st, 1851, the postage, for instance, on a 
 weekly newspaper when sent not over one hundred miles, or 
 any distance in the State where published, was thirteen cents, 
 and Avhen sent over one hundred miles, or out of the State 
 where published, nineteen and a half cents a quarter. By 
 the act of IMarch 3d, 1851, six different rates, according to 
 distance, Avere established. Thus, on a weekly newspaper, 
 for any distance not exceeding fifty miles, five cents a quar- 
 ter; over fifty, and not exceeding three hundred miles, ten 
 cents; over three hundred, and not exceeding one thousand 
 miles, fifteen cents; over one, and not exceeding two thou- 
 sand miles, twenty cents; over two, and not exceeding four 
 thousand miles, twenty-five cents; over four thousand miles, 
 thirty cents a quarter; and weekly newspapers to subscri- 
 bers in the county where published were made free. By this 
 act the postage, it will be perceived, for any distance not over 
 one thousand miles, was greatly reduced ; but owing to the 
 diversity of rates — the too great reduction for the shorter 
 and too great increase for the longer distances — its modifi- 
 cation was at once called for, and this resulted in the pre- 
 sent law, by which the quarterly rate on any weekly news- 
 paper or i)eriodical not exceeding three ounces in weight 
 sent any distance in the United States, is only six and a 
 half cents. On newspapers not exceeding one and a half 
 ounce in weight, when circulated in the State where pub- 
 lished, the quarterly rate is still one-half less, being only 
 tliree and a quarter cents; and weekly newspapers to sub- 
 Bcribers in the county where published go free. I cannot 
 
THE POST OFFICE. 125 
 
 avoid the conviction, that had it been clearly uiulerstood 
 that the act of 1825 required payment quarterly in advance 
 on rej^ular news])apers to subscribers, and that the effect of 
 the clause in ([uestion would be to reduce the postap^e on the 
 p^reat bidk of }>rintcMl matter to rates so exceedin<;jly low, 
 Congress never Avould have given its sanction to the mea- 
 sure. If my recommendation be adopted, the quarterly 
 postage, for instance, on a weekly newspaper or periodical 
 not exceeding one and a half ounce, circulated in the State 
 where published, (and in the same proportion for more fre- 
 quent publications,) will be six and a half cents; and when 
 not over three ounces in Avcight, sent to any part of the 
 United States thirteen cents a quarter. The newspapers to 
 subscribers living in the county where published will con- 
 tinue to go free. 
 
 The expenditures of the current year ending June 30, 
 1855, owing to causes not within the control of the depart- 
 ment, will greatly exceed those of the past year. 
 
 In my report of the 1st December last, I had tlie honor 
 to state that the commissions allowed to postmasters by the 
 Cth section of the act to establish certain post-roads, &c., 
 approved 3d March, 1853, had proved insufficient at several 
 of the distributing offices to defray the expenses necessary 
 to their efficient administration; and to remedy a state of 
 things so injurious to tlie service, I then recommended the 
 restoration to the Postmaster General of the discretion 
 given him by the 6th seotion of the " Act to reduce and 
 modify the rates of postage," approved March 3, 1851, so 
 that he might have it in his power to allow to the postmas- 
 ters at such distributing offices the means necessary to de- 
 fray expenses. At the same time I took occasion to say, 
 that while this power should be given to meet the exigen- 
 cies of a particular class of cases, not exceeding twenty in 
 number, there were a])undant reasons why a larger share 
 of the postages should not be diverted from the general 
 purposes of the department. Upon representations subse- 
 quently made, it was deemed ex])edient to ask an enlarge- 
 ment of the power above mentioned so far only as to em- 
 brace a few separating offices situated at i)oints exacting 
 great labor and affording but a nominal comi)ensation to 
 the incumbents. Careful estimates were made by the Au- 
 ditor of the increase of expense necessary to relieve the few 
 distributing and separating offices which might, upon in- 
 vestigation, appear to be justly entitled to aid from the de- 
 partment, and the conclusion was that the whole amount 
 could not exceed $45,000 per annum. 
 
126 THE POST OFFICE. 
 
 This sum •would certainly have been sufficient to cover all 
 proper demands for additional aid. But the views of the 
 department did not prevail, and Con<2;ress passed the act of 
 June 22d, 1854, fixing an increased scale of commissions 
 and raising the aggregate compensation of all the post- 
 masters in the United States not less than $300,000 per an- 
 num, thereby increasing the expenditures of the department 
 to that amount, instead of $45,000, as had been recom- 
 mended. Tlie expenditures of the current year for '• com- 
 pensation to postmasters," " clerks for offices," &c., Avill be 
 further increased by the operation of the 4th and 5th sec- 
 tions of the act of 2ttli July, 1854, i-uaking provision for the 
 postal service in the State of California and the Territories 
 of Oregon and Washington. By the 5th section of the act, 
 the Postmaster General is authorized and directed to allow 
 in the statement of the accounts of postmasters in California 
 and Oregon originating previous to the 30th June, 1853, 
 " all just and reasonable expenses incurred by them in and 
 about the business of their respective offices and the dis- 
 charge of their official duties ; provided, that no allowance 
 shall be made whereby the United States shall be charged 
 with any indebtedness whatsoever." The balances due from 
 late and present postmasters in California and the Territories 
 of Oregon and Washington, subject to the operation of the 
 4th and 5th sections of the act just mentioned, amounted, 
 on the 30th June, 1854, to |164,i44 41, of which sum it is 
 estimated that not less than $50,000 must be cancelled under 
 tlie provisions of the 5th section, and carried into the gen- 
 eral accounts of the department as expenditures of the cur- 
 rent year. 
 
 In addition to the burdens thrown upon the revenue of 
 the department by the general increase of the compensation 
 of postmasters, and the special legislation for those in Cali- 
 fornia, Oregon and Washington Territories, the cost of 
 transporting the mails will be greatly increased in the pre- 
 sent year by putting new post-routes in operation, by the 
 enhanced prices demanded in the very large section let to 
 contract from the 1st July last, and by important improve- 
 ments in the grades of service generally. 
 
 Whilst I shall take care that the expenditures of the de- 
 partment are not unnecessaril)'- increased, and that it shall 
 draw from the general treasury only as much as its absolute 
 wants reqnire, which, I fear, it must necessarily do for some 
 years under the present rates of postage, it would be neither 
 wise nor exi)edient to deprive or keep from our people the 
 mail facilities which they require. The principle adopted 
 
TUE POST OFFICE. 127 
 
 in tlie inf\incy of our republic, tliat tlie Post Office Depart- 
 ment should sustain itself from its own revenues, was, in 
 my opinion, most wise and salutary. A postage was then 
 laid sufficient to meet the wants of the service, and under 
 this system eacli citizen paid the expenses of the transpor- 
 tation of his own letters, and others were not taxed for liis 
 benefit, as they must be when sums have to be drawn from 
 the general treasury to meet deficiencies in the Post Office 
 revenues. 
 
 Having thus briefly adverted to some of the causes of in- 
 crease in the expenditures in the current year, I proceed to 
 show what those expenditures will probably be, and what 
 means the department will have to meet them. 
 
 It is estimated that the expenditures for the year 1855, 
 exclusive of payments for foreign postages accruing within 
 the year, will be about $9,841,921 33, viz : 
 The rate of cost of transportation, including 
 
 foreign mails, on tlie 30th June, 1854, was...$5,517,312 00 
 To the cost of transportation in 1854 add the 
 increase in the current year which will be 
 occasioned by the enhanced prices of the 
 new contracts commenced 1st July last in 
 the northwestern, western, and southwestern 
 States and Territories, including California 
 and Oregon, by the extension and improve- 
 ment of the service therein, and by improve- 
 ments in other sections about 650,000 00 
 
 Total for transportation in 1855 6,167,312 00 
 
 For compensation to postmasters, clerks for 
 offices, ship, steamboat, and way-letters, 
 wrapping pajier, advertising, office furniture, 
 mail bags, blanks, mail locks, keys and 
 stamps, mail depredations and special agents, 
 postage stamps and stamped envelopes, letter 
 
 carriers and miscellaneous payments 3,541,126 00 
 
 For balances due to foreign countries up to 
 June 30, 1854, which will be paid in 1855, 
 amounting to 133,483 33 
 
 9,841,921 33 
 The means for the year 1855 will probably amount to 
 
 $9,989,944 90. 
 
 The balance stated by the Auditor as at the 
 credit of the revenue account on the 30th 
 June last was $740,078 €3 
 
128 THE POST OFFICE. 
 
 From the above balance the following deduc- 
 tions should be made, viz: 
 
 Dcmbtful and unavailable balances 
 due by late postmasters origina- 
 ting prior to June 30, 1854 149,438 34 
 
 California accounts, estimated at... 50,000 00 
 
 Balances due from foreign postage 
 
 accounts prioT to June 30, 1854 133,483 33 
 
 332,921 67 
 
 Available for 1855 ._ 417,156 96 
 
 The gross revenue of the year, exclusive of bal- 
 ances, resulting from the foreign postage ac- 
 counts, is estimated at 6,728,324 00 
 
 The appropriations for free matter, less $200,- 
 
 000 drawn in 1854 500,000 00 
 
 The approi)riation to sn})ply deficiencies in the 
 
 year 1855, made by the act of August 5, 1854 2,344,464 00 
 
 9,989,944 96 
 Estimated expenditures of 1855 9,841,921 33 
 
 Estimated surplus June 30, 1855 148,023 63 
 
 During the three years which commenced on the 1st July, 
 1851, and ended on the 30th June, 1854, the department is- 
 sued 166,120,417 postage stamps, and 25,076,056 stamped 
 envelopes, amounting in the aggregate to $5,507,022 03, of 
 wliich ,$5,092,301 73 were sold, being about 92^ per cent, of 
 the whole amount issued. 
 
 Having ascertained that the mode of examining and check- 
 ing the (luarterly returns of postmasters was radically de- 
 fective, 1 took occasion to invite attention to the subject in 
 my report of last year, and I again advert to it because sub- 
 sequent investigation and exj)erience have convinced me that 
 a thorough check of the accounts under the present system is 
 wholly ini])racticable. Such a check is indispensable to the 
 safety of the revenue, and can in no way be effected so certain- 
 ly, at so little cost, and with so much advantage to the service, 
 as by adopting prepayment of postage in all cases not com- 
 ing within our postal arrangements with foreign countries. 
 
 This ])lan, connected with a well-digested system for the 
 registration of letters, to which I shall presently allude, 
 would (juicken correspondence, while it would facilitate and 
 exj>edite the operations of the post offices in mailing and de- 
 livering letters, and inspire confidence in the department as 
 a Bate means of transmiting letters containing remittances. 
 
THE POST OFFICE. 129 
 
 Very soon after I entered upon my duties in this depart- 
 ment, its larGie and increasing correspondence in ref::ard to 
 the loss of valuable letters intrusted to the mails attracted 
 my attention. I found, on examination of the suhject, that 
 altliougii Congress, in estal)lishing our ])ostal system. a]>pears 
 to have had princijially in contemplation the providing of 
 suitable and convenient means of correspondence and the 
 ditlusion of intelligence, yet, from that time until now, the 
 mails have been used, to a large and constantly increasing 
 extent, for the transmission of bank notes and otlier valuable 
 enclosures, and are now the ])rincipal means through whicli 
 the remittances of the country are made; while neither the 
 laws nor any regulations of this department have provided 
 any additional guards for their security against loss or de- 
 predation beyond those originally established. In view of 
 the enormous sums which are constantly passing through 
 the mails, the losses by depredation are inconsiderable. Still, 
 such losses are numerous, their aggregate amount is large, 
 and they are increasing with the growth of our country and 
 the extension of its mail service. Under these circumstances, 
 I have thought it proper to recommend such legislation 
 on this subject as may enable this department to give greater 
 security to valuable letters in the mails, without assuming 
 any liability for their ultimate loss. By our present system, 
 all letters mailed at a given date at one post office for deliv- 
 ery or distribution at another, are entered in gross, according 
 to their several rates of postage, upon one post bill. If a let- 
 ter of great value be embraced in the bill, neither its address 
 nor any other descriptit)n of it is entered on the post bill, by 
 which it can be distinguished from other letters of the same 
 grade or rate of postage. Nor is the address or descri})tion 
 of any such letter entered on the postmaster's account of 
 mails sent, nor indeed upon any other record kept in the of- 
 fice from which it is sent. The only account kept by the 
 postmaster is a money account, made up each day of the sev- 
 eral aggregates of i)ostages of the ditferent rates, either col- 
 lected or charged as uni)aid. It will be seen that, under such 
 a system of accounts, a missing letter can never be traced 
 with certainty, for the account neither furnishes evidence 
 tliat a particular letter ever reached the place of its destina- 
 tion, nor even that it left the office of mailing. Believing 
 that this imperfection in our system can only be remedied 
 by the adoption of a general and uniform plan of registration 
 for all valuable letters, I have, alter consulting the expe- 
 rience of other countries on the subject, devised a plan of 
 17 
 
130 THE POST OFFICE. 
 
 registration which I think suited to onr circumstances, and 
 likely to add greatly to the security of the mails against de- 
 predation. 
 
 It i>rovides that receipts shall he given for valnahle letters 
 when posted, and that duplicates of these receipts shall he 
 kejjt for reference at the office of mailing; that the full ad- 
 dress of such letters shall he entered on a separate post hill, 
 which shall he copied at large upon an account to he kept 
 of registered letters sent. This post hill is to he forwarded 
 in a sealed envelope, separate from the package of letters to 
 which it relates, and its receipt at the office of its destination 
 is to be acknowledged by a duplicate thereof returned to the 
 office of mailing — marked correct, or otherwise^ as it may be 
 found on comparison. It provides that at the large offices 
 valuable letters shall be received at one window only, and 
 that tlie receiving clerk shall check them to the register 
 clerk, and he to the mailing clerk. It is, in short, designed 
 to fix responsibility and to furnish means which do not now 
 exist for tracing a missing letter from the point of its recep- 
 tion to that of its disappearance. To carry this plan into 
 effect, it will be required that new and expensive blanks be 
 prepared and distributed, and tliat an increased clerical force 
 be employed in the principal post offices. I have not, there- 
 fore, felt at liberty to adopt it without the sanction of Congress, 
 and authority to establish such additional rate of postage on 
 this class of letters as may be deemed adequate to the expense 
 of registration. 
 
 In Great Britain tlie "registration fee" on inland and most 
 foreign letters is sixpence sterling (about twelve cents) in 
 addition to tlie ordinary rates of postage, and it is expressly 
 l)rovided tliat "such registration shall not render the Post- 
 master General or the post office revenue in any manner lia- 
 ble for the loss of any such post letters or the contents thereof." 
 It is believed that authority to establish an additional rate 
 of five cents on each letter registered, and to require the 
 postage on all registered letters to be prepaid, would enable 
 the department to carry into effect the plan here submitted 
 without prejudice to its revenues. 
 
 It is not proposed to make the registering of valuable let- 
 ters compulsory, nor that the government shall become liable 
 for such letters when lost, but only to enable each person 
 mailing a valuable letter to do so in the ordinary manner, 
 or to add something to its security by the payment of a small 
 registration fee. 
 
 I luivc no doubt that the registration of valuable letters as 
 proposed, would be highly appreciated as a means of security 
 
THE POST OFFICE. 131 
 
 by the large commercial classes of the community, whose 
 collections and exchanges are made princijjally through the 
 mails, and who have from time to time urged in vain upon 
 this department the adoption of some such plan for tlu-ir 
 protection. I believe, too, that such a system of registratirm 
 would relieve this department from tlie imputation ol nu- 
 merous losses not properly chargeable upon it — cases in 
 which valuable letters alleged to have been lost through the 
 mails either never readied any post office, or have been stolon 
 after arriving at the places of their destination. 
 
 The cost of the service for the last fiscal year on the sev- 
 eral United States mail steamship lines, and across the isth- 
 mus of Panama, is as follows: 
 New York to Liverpool, Collins line, twenty-six 
 
 round trips... $858,000 00 
 
 New York, via Southampton, to Bremen, eleven 
 
 round trips .' 183,333 20 
 
 New York, via Cowes, to Havre, eleven round 
 
 trips 137,500 00 
 
 New York and New Orleans to Aspinwall, 
 twenty-four round trips, including same 
 number of trips between New York and 
 
 New Orleans, ^;/a Havana 289,000 00 
 
 Astoria, via San Francisco, to Panama, twen- 
 ty-four round trips 348,250 00 
 
 Charleston, via Savannah and Key West, to 
 
 Havana, twenty-four round trips 50,000 00 
 
 New Orleans to Vera Cruz, twenty-four round 
 
 trips, omitting Tampico 37,200 00 
 
 Aspinwall to Panama.^ 119,727 03 
 
 2,023,010 29 
 By the act of Congress approved the third of March, 1S47, 
 the President was authorized to contract for the construc- 
 tion and equipment of four first-class sea-going steamships, 
 to be attached to the navy of the United States. It was by 
 the second section made the duty of the Secretary of the 
 Navy to accept on the part of the Government of the United 
 States the proposals of E. K. Collins and his associates for 
 the transportation of the United States mail between New 
 York and Liverpool. The steamships to be employed were 
 to be so constructed as to render them convertible at the least 
 possible cost into war steamships of the first class. By the 
 fourth section of the same act it was likewise made the duty 
 of the Secretary of the Navy to contract with A. G. Sloo for 
 the transportation of the mail from New York to New Or- 
 
132 THE POST OFFICE. 
 
 leans twice a month and back, touching at Charleston, if 
 practicable. Savannah, and Havana, and from Havana to 
 Chag-rcs, and back twice a month. The fifth section author- 
 izedhim to enter into a contract to carry the mail from Pa- 
 nama to Oregon once a month. The sixth section made it 
 the duty of the Secretary of the Navy to i3rovide in the con- 
 tracts authorized by the act that the Navy Department shall 
 at all times exercise control over said steamships, and at any 
 time have the right to take them for the exclusive use and 
 service of the United States, due provision being made in 
 the contracts for the mode of ascertaining the proper com- 
 pensation to the contractors therefor. On the first of March, 
 1847, the Secretary of tlie Navy entered into a contract with 
 E. K. Collins and his associates. The contract contains all 
 the stipulations required by the act of Congress; the service 
 to be performed Avas twice each month for eight months of 
 the year, and once a month during the other four months. 
 The sum to be paid was three hundred and eighty-five 
 thousand dollars, or nineteen thousand two hundred and 
 fifty dollars a trip, and the contract was to continue in force for 
 ten years from the date of the commencement of the service. 
 A. Gr. Sloo was contracted with by the Secretary of the Navy 
 on the 20th of April, 1847, to perform the service mentioned 
 in the fourth section. The service was to be twice a month; 
 the sum to be paid two hundred and ninety thousand dol- 
 lars, and the contract to continue in force for ten years from 
 the commencement of the service. This contract likewise 
 contains all the stipulations required by the act of Congress, 
 and was assigned by A. G. Sloo to George Law, Marshall 0. 
 Koberts, and B. K. Mcllvain on the third of September, 1847. 
 The contract to trans])ort the mail from Panama to Oregon 
 was entered into Avith Arnold Han-is on the IGth of November, 
 
 1847. The service was to be once a month ; the price to be paid 
 was one hundred and ninety-nine thousand dollars, and the 
 contract was to continue for ten years from the first of October, 
 
 1848. All the stipulations required by the act of Congress 
 are contained in this contract also, which was assigned on 
 the 19th of November, 1847, to William H. AspiuAvall. On 
 the 13th of March, 1851, the Secretary of the Navy and 
 Postmaster General, in pursuance of a law passed on the 
 3d of March, 1851, entered into an additional contract with 
 the Pacific Mail Steamship Company, acting by William H. 
 As])iuwall, by which the service from Panama to California 
 and (Jregon was increased to twice a month, at an increased 
 ]>rice of one hundrc^d and forty-nine thousand two hundred 
 and fifty dollars, making the whole cost of the service three 
 
THE POST OFFICE. 133 
 
 hundred and forty-eight thousand two Imndred and fifty 
 dollars. 
 
 The ohject of Congress in the passage of this act seems to 
 have been to build up a naval steam marine, which mi^ht 
 temporarily be employed for commercial purjjoses. In order 
 to enable private individuals to build and equip these steam- 
 ships in the mode pointed out by Congress, sums of money 
 were advanced to them, and to sustain tliem until wanted for 
 Government purposes, largo sums of money were paid them 
 for conveying the mails. If in tlie progress of time it is dis- 
 covered that these steamships are not suited for naval i)ur- 
 poses, or that the large sums paid their owners for mail 
 transportation have created a monopoly, checking the enerf^y 
 and enterprize of others of our citizens, Congress, in my 
 opinion, is called upon to terminate their contracts, if it can 
 do so consistently with plighted iaith. By the terms of the 
 act, and of the contracts entered into between the Navy De- 
 partment and tliese companies in juirsuance of the act, it will 
 be seen that Congress reserved to itself the right to purchase 
 the steamships, and thus terminate the connexion between 
 the companies and the Government. When they have been 
 paid for their vessels the sums fixed by the appraisers mu- 
 tually chosen, every thing has been done which the f;iith of 
 the nation requires. 
 
 It is of course of great importance to the commercial and 
 other interests of the country that the mails should continue 
 to^ be carried ; but if these contracts are to be considered 
 with reference to the transportation of the mails, the prices 
 paid are too high, and if continued, all competition on the 
 part of private individuals unconnected with the govern- 
 ment must cease. High, however, as are tlie i)rescnt prices, 
 if the competition on the New York and California line be 
 driven off by the aid of funds derived from the general gov- 
 ernment, no one can foretell the prices that will have to be 
 paid after the expiration of the present contract. If the 
 present contractors do not wish the government to purchase 
 their steamships, and thus to end the contracts, it will be 
 for them to agree to a reduction of the present prices. Gov- 
 ernment will then pay a fair remuneration for all the ser- 
 vice which it receives, and tlie carrying and passenger trade 
 between our Atlantic and Pacific coasts will not have be- 
 come a monopoly. In the bids received under an advertise- 
 ment issued to obtain information, recjuired by tlie third 
 section of the act of 3d March, 185:}, tlie Nicaragua Com- 
 pany proposed to carry a semi-monthly mail between New 
 Vork and California for a sum not exceeding three hundred 
 
134 THE POST OFFICE. 
 
 thousand dollars, or six hundred thousand dollars for a 
 weekly service, which is now required; and this, in my 
 opinion, is the highest rate of pay which ought to he de- 
 manded. The present semi-monthly service, including the 
 sum of $119,727 03, paid for the isthmus transportation, 
 will cost this year the' sum of $757,977 03. By the act of 
 July 21, 1852,'the numher of trips on the Collins line was 
 iocreased to twenty-six, and the i)rice raised from nineteen 
 thousand two hundred and fifty to thirty-three thousand 
 dollars a trip, making the yearly cost of this service eight 
 hundred and fifty-eight thousand dollars. The section thus 
 increasing the compensation contains a proviso reserving 
 the power to Congress to terminate this additional allow- 
 ance at any time after the thirty-first of December, 1854, 
 upon giving six m.onths' notice. 
 
 While I shall always take great pleasure in testifying to 
 the faithfulness with which these contractors have performed 
 the service, and in saying that the ships huilt under the 
 contract reflect great credit upon American skill and enter- 
 prize, I cannot resist coming to the conclusion that the sums 
 now paid are too high, and tliat tlie notice should he given. 
 Considering the size and cost of those steamships, and the 
 speed with which the mail is carried, the sums fixed in the 
 contract may have been too low ; but however that may be, 
 the present rates are much too high, and such as ought not 
 tt) be paid. For the mail service between Liverpool and the 
 United States, the English government pay the Cunard line 
 the sum of one hundred and seventy-three thousand three 
 hundred and forty pounds, which computing the pound ster- 
 ling at five dollars, will make the sum of eight hundred and 
 sixty-six thousand seven hundred dollars. For this sum 
 they have weekly service, the seven steamships which con- 
 stitute the line running alternately between Liverpool and 
 New York, and Liverjiool and Boston, and receiving sixteen 
 thousand six hundred and eighty-six dollars a trip. It is 
 true there is a difference in the tonnage of the Collins and 
 Cunard lines, and that the American steamers make their 
 voyages in a shorter time; but the difference in the tonnage 
 and speed of the two lines does not, in my judgment, afford 
 any valid reason why there should be so marked a disparity 
 in the prices paid by the two governments. 
 
 Th.e steamships Humboldt and Franklitt, of the New York 
 and Havre line, have botli been wrecked during the year. 
 The former was lost in the month of December, 1853, and 
 the latter in July, 1854, in consequence of which the service 
 on that line has been irregular. Temporary arrangements 
 
THE POST OFFICE. 135 
 
 have been made to supply the pLaccs of the lost steamers 
 until suitable steamships can be built to re])lace them on 
 the line, and such vessels are now in course of construction. 
 Both on this and on the Bremen line, one of the montlily 
 trips has been omitted. These irregularities materially detract 
 from tlie efficiency of our mail service across the Atlantic. 
 
 In September last, the United States Mail Steamship Com- 
 pany having withdrawn their direct steamers between New 
 Orleans and Aspinwall, the mails between New Orleans and 
 the Pacific have since been conveyed, according to the ori- 
 ginal contract, by the way of Havana. On the Pacific line, 
 the company are permitted to omit Monterey and San Diego 
 by their ocean steamers, and thus expedite the through 
 mails, on condition of their supplying those offices, together 
 Avith Santa Cruz, Santa Barbara, San Louis Obispo, (if jirac- 
 ticable,) and San Pedro, semi-montlily by a coastwise 
 steamer from San Francisco, in due connexion witli the 
 through route, without change of pay. 
 
 No progress has been made since my last annual report 
 in the pending negotiations with Great Bsitain, relative to 
 the admission of France into the arrangement as contem- 
 plated by the provision in the 12th article of our i)ostal con- 
 vention. This article provides that " the rate of postage 
 to be taken by the British post office upon letters arriving 
 in the United Kingdom from the United States, either by 
 British or United States packets, and to be forwarded 
 Ihrough the United Kingdom to colonics or possessions of 
 the United Kingdom, or of the United States, or to foreign 
 countries — and vice versa — shall be the same as tlie rate 
 which is now or which may hereafter be taken.by the British 
 post office upon letters to or from such colonics or possessions, 
 or foreign countries, respectively, Aviien posted at the port 
 of arrival or delivered at the port of departure of the jiackots 
 conveying the mails between the United Kingdom and the 
 United States. 
 
 By this article a similar privilege is secured to Great Bri- 
 tain in respect to letters to and from the United Kingdom, 
 to be forwarded through the United States. But letters and 
 newspapers passing through the United Kingdom, "to and 
 from France" are expressly excepted from the stipulations 
 in said article. The two contracting parties, however, agreed 
 '•to invite France to enter into communication witii them 
 without loss of time, in order to effect sucli arrangement for 
 the conveyance of letters and newspapers, and closed mails 
 through the territories of the United Kingdom, of tlie United 
 States, and of France, resiicctively, as may be most conducive 
 
136 THE POST OFFICE. 
 
 to the interests of the three countries." The chiuse above 
 referred to, exchidinu; the correspondence between the United 
 States and France from the advantages of the convention, 
 was strongly objected to by Mr. Bancroft, who negotiated the 
 treaty on our part, and lie was induced finally to consent to 
 it only on being assured by the British government that 
 '■the treaty stipulations between England and France ren- 
 dered its iiisertion necessary, as witliout it the latter power 
 would have just cause of complaint against the former." This 
 representation, however, appears to have been incorrect, as 
 Mr. Lawrence, the successor of Mr. Bancroft, was subse- 
 quently assured that "France was then ready to negotiate at 
 once, waiving the privileges of the convention which Eng- 
 land set up in her behalf" This government, deeming the 
 treaty unequal in its bearing upon the interests of the two 
 countries, particularly on account of the exceptional clause 
 referred toj and being desirous of consummating without loss 
 of time the triple arrangement contemplated by the 12th ar- 
 ticle, commenced negotiations for that purpose immediately 
 after the treaty t.'as executed; which negotiations have been 
 continued to the present time — nearly six years — without any 
 beneficial result. The British government has steadily de- 
 clined to unite in effecting such arrangements as would "be 
 most conducive to the interests of the three countries," which 
 arrangements might have rendered the treaty more equal in 
 its o])eration; and the original terms of the convention still 
 remain uucliangcd. The more important parts of the cor- 
 respondence which has passed between the two governments 
 on this subject is contained in Executive Document No. 32, 
 published by c»-der of the Senate at the second session of the 
 32d Congres^s. On the part of this Government, it is claimed 
 that the British transit charge for the United States and 
 French cnrrespondence, if sent in closed mails through the 
 United Kingdom, shall not exceed twelve and a lialf cents 
 an ounce, tliat being the price paid by Great Britain for the 
 transit of British closed mails through the United States to 
 and from the British American provinces. The lowest offer 
 of the British government is that contained in Lord Pal- 
 mer.ston's note of the Dtli May, 1851, in reply to Mr. Law- 
 rence's communication of 18th October preceding, of oiie 
 shilling (twenty-four cents) an ounce — a sum nearly or quite 
 double that received by the United States for similar service. 
 Under a partial arrangement concluded between Great Bri- 
 tain and France in May, 1851, the mails from France for the 
 United States have been forwarded through England as dosed 
 mails, France agreeing to pay to Great Britain the price de- 
 
THE POST OFFICE. 137 
 
 manded — viz: a transit postage of one shilling, (twenty-four 
 cents,) and for the Atlantic sea conveyance one shillinc; eight 
 pence, (forty cents,) an ounce. Prior to that date, the P^ritlsh 
 office was charging and receiving the sea postage on all cor- 
 res})ondence between the United States and France, via Eng- 
 land, conveyed across the Atlantic by United States steam- 
 ers, the same as when conveyed by their own ]iackets; the 
 result of which was, that double sea postage having to be 
 paid on all correspondence forwarded by United States pack- 
 ets, the great bulk of the United States and French mails, 
 via England, was sent by the Cunard line. Since the par- 
 tial arrangement above referred t(^ went into o2)eration, no 
 charge has been made by Great Britain for tlie sea posta<'-e 
 of letters conveyed by American packets ; yet under its ope- 
 ration, the single rate of postage between "the United States 
 and France, by United States packets, is six cents higher on 
 each letter of the weight of one quarter ounce and under than 
 by British packets; and, consequently much the larger part 
 of the correspondence is still diverted to the British lines. 
 For instance, taking the weight of the French mails received 
 at New York by the Cunard packets to be the same Avith 
 that received by these packets at Boston, and reckoning 
 four letters to the ounce, the number of French letters 
 brought by the Cunard line during the year was 237,570, 
 while the number received by the Collins steamers, perform- 
 ing just half as many trips, was only 41,GU8 — less than one- 
 fifth. The present treaty in other respects gives an undue 
 advantage to Great Britain, and operates to the serious in- 
 jury of the United States. Under its provisions, as will be 
 seen by a statement in Appendix A, an excels of at least 
 $75,000 British postages has, during the last year, been col- 
 lected by the United States for the British office over and 
 above the whole amount of United States postages collected l)y 
 Great Britain. This large balance of British postages has 
 been collected at an actual expense of about $01,000 in the 
 shape of commissions to our postmasters; and this department 
 suffers also the additional loss by exchange, &c., necessary to 
 place the money in possession of the British office in London, 
 of not less than |3,500. When it is considered that all this 
 outlay is made on our part without receiving any equivalent 
 in return, one of the most striking inequalities of the exist- 
 ing arrangement is pointedly exhibited. 
 
 No satisfactory progress has been made since my last re- 
 port toward eftecting a postal convention with France, nor 
 has the contemplated arrangement with Belgium been yet 
 consummated. 
 18 
 
138 THE POST OFFICE. 
 
 Some steps Lave been taken with reference to a postal 
 convention with Mexico. A mutual exchano;e of dead let- 
 ters has already been agreed upon and carried into effect; 
 and I now await a project which Mexico is to propose, for a 
 more perfect arrangement, hy which it is expected the rates 
 of postage between the two countries will be materially 
 reduced. 
 
 Under our postal convention with Great Britain, the Phila- 
 delphia post office, with the concurrence of that Government, 
 has been constituted an office of exchange for United States 
 and British mails. The articles of agreement on this sub- 
 ject are hereto annexed. I regret to state that my proposi- 
 tion for tlie reduction of pamphlet and magazine postage 
 between the two countries to one cent an ounce on either 
 side has been positively declined by the British Post Depart- 
 ment. The combined rate is at present altogether too high, 
 being eight cents an ounce for all works of this kind above 
 the weiglit of two ounces. 
 
 In the month of March last an arrangement was made 
 with tlie proprietors of the Australia Pioneer Line of monthly 
 packets to convey mails regularly between New York and 
 Port Philip, Australia, at two cents a letter, one-half cent 
 per newspaper, and one-quarter cent an ounce for pamphlets 
 and magazines, and, with the view of affording to our citi- 
 zens the cheapest practicable means of communication with 
 that country, I have fixed the rates on all outgoing matter 
 by that line at five cents a letter, two cents each lor news- 
 papers, and one cent an ounce or fraction of an ounce for 
 pamphlets and magazines, prepayment required. These 
 rates embrace both the United States inland and sea postage. 
 As the United States postage cannot be prepaid on incom- 
 ing letters by this line, they are treated as ordinary ship 
 letters. Similar arrangements have been made during the 
 year with the proprietors of the steamers Black Warrior and 
 Cahawba to convey mails semi-monthly between New York 
 and Havana, and New Orleans and Havana, at two cents a 
 letter, and also with the pi-oprietor of the steamship Jewess 
 to convey mails once in every twenty days between New 
 York and Nassau, New Providence, returning by way of Ha- 
 vana, at the same rate of comi)ensation. 
 
 By these agreements an ini])ortant point lias been gained 
 in sustaining the department in the efforts which should be 
 made in all future arrangements to keep the cost of the ocean 
 service, if possil)le, within its receipts. 
 
 To the appendix (marked A) 1 invite your particular at- 
 tention and that of Congress. 
 
THE POST OFFICE. 139 
 
 It exhibits full statistical information on the sul)ject of 
 the foreign mails ; embracing- the amount of postages, in- 
 land, sea, and foreign, on mailable matter received and sent 
 by the different mail steamshi]) lines during the year ; the 
 amounts of letter postages on British, Prussian, Bremen and 
 Havre mails ; the portion tliereof collected by the United 
 States, Great Britain, Prussia and Bremen, resjtectively ; 
 and tlie amounts of unpaid and i)aid matter received and 
 sent by each of the lines of mail steamers. The gross and 
 net revenues received by the department from each of the 
 trans-atlantic mail lines are shown, and also the revenue 
 derived from the correspondence with Great Britain, Prus- 
 sia, and Bremen, respectively, under the existing postal ar- 
 rangements with these countries, both including and exclu- 
 ding the United States inland postage. It also shows the 
 number of letters and newspapers exchanged during the 
 year between the United States and Great Britain in British 
 mails, between the United States and Bremen in Bremen 
 mails, and between the United States and tlie Kingdom of 
 Prussia in closed mails ; the number of letters {in ounces) 
 received and sent in closed mails under each of our closed 
 mail arrangements, and the number of letters and newspa- 
 pers conveyed by the several home lines of ocean steamers. 
 Other valuable statistics connected with the foreign mail 
 service are also fully stated. 
 
 The usual report of fines and deductions will be duly fur- 
 nished for the information of Congress. These fines and 
 deductions for the year ending the 30th June, 1854, amount 
 to $110,486 59. The amount for the previous year was 
 $3*7,920 31. The increased amount has been mainly caused 
 by a more rigorous exaction than heretofore of forfeitures in- 
 curred for del'ective service. The aggregate amount ot" fines and 
 deductions for the last year has thus been greatly increased. 
 
 I am jdeased to say that the introduction into the post 
 offices of a better system of responsibility for mail bags has 
 resulted in checking the waste of this species of property. 
 The consequence has been a decrease of twenty per cent, in 
 the number of letter mail bags procured during the year 
 ending 30th of June last, as compared with the i>receding 
 year; though the ordinary increase in the transportation of 
 letters has required the use of a greater number of bags 
 than were actually used before. 
 
 My assistants and chief and other clerks have faithfully 
 attended to all their duties during the ])ast year. 
 
 JAMES CAMPBELL. 
 
 To the President. 
 
YI.-THE INTERIOR. 
 
 REPORT OF THE SECRETARY OF THE INTERIOR. 
 
 Department of the Interior, 
 
 December 4, 1854, 
 
 Sir: I liave the honor to submit the usual annual report 
 of the operations of this department. 
 
 The business of the General Land Office has greatly in- 
 creased, but has been conducted with vigor and ability. 
 
 The surveys of the public lands have progressed rapidly, 
 and the necessary preparations, so far as appropriations will 
 permit, have been made for extending them into new Terri- 
 tories. 
 
 The quantity of land in market has been largely aug- 
 mented, and every facility given to the hardy pioneers to se- 
 cure eligible and permanent homes. 
 
 The adoption of the graduation principle introduced into 
 the land system a novel and important feature, and stamped 
 it with a character almost entirely new. The labor on the 
 part of the bureau produced by it is immense, and has in- 
 volved the office in difficulties that cannot be easily or effec- 
 tively surmounted without the further aid of Congress. The 
 law may be so modified as to preserve its distinctive features, 
 relieve its ])rovisions from the uncertainty that now attaches 
 to them, and at the same time more efiectually accomplish 
 the grand object to be attained. No doubt the intention was 
 to aid and protect the actual settler, and not promote the 
 schemes of mere s])eculators. This being assumed, the law, 
 according to the plausible construction of the latter, will be 
 ibund lamentably defective. It could not have been enacted 
 to subserve their interests at the expense of those seeking 
 permanent residences; and yet, unless it be more strictly 
 guarded, its provisions more clearly defined, and its objects 
 more fully declared, it is feared such will be the result. 
 
 During the last fiscal year, 11,070,935 acres have been sur- 
 veyed, and 8,190,01'7 acres brought into market. Within the 
 
 same period there were sold for cash 7,035,735.07 acres. 
 
 Amount received therefor, $9,285,533 58. 
 Located with military scrip and land 
 
 warrants 3,416,802.26 
 
 140 
 
THE INTEKIOR. 141 
 
 Swamp lands, selected for States 11,033,813.58 acres. 
 
 Selected on donations for roads, &c. 1,751,9G2.1"J 
 
 Making a total of 23,238,313.05 acres; 
 
 cxliibitin*:: an increaseof 5,952,240.07 acres over tlie previous 
 year, of lands sold for casli ; and a sensible diniiuntion in the 
 amount located with scrip and land warrauts, and selected 
 for States. 
 
 The quantity of land sold durin^i;- the second and third 
 quarters of the present year Mas about 5.436,538 acres, heinoj 
 an increase of about 3,82B,619 acres (in cash of $3,642,496 44) 
 on that of the corresponding- quarters of the last year. This 
 cxtraordinai-y diflerence is owing to the remarkable advance 
 in the price of real estate over the whole country, and to the 
 operation of the law graduating the i)rices of the public 
 lands. 
 
 The quantity of land granted to satisfy the warrants is- 
 sued to soldiers of all the wars since 1790 amounts to 31,- 
 427,612 acres. To satisfy Virginia land warrants, scrip em- 
 bracing 837,356 acres has already been issued, and the bal- 
 ance yet required is estimated at about 200.000 acres. 
 
 In my last annual report donations of public land for the 
 construction of great leading higliAvays in the new States 
 were recommended, for reasons therein stated. Although 
 nothing has since transpired to change or modify the views 
 then entertained and advanced by the department, yet it 
 would be i'olly to attem])t to conceal the fact that, through 
 the popularity of the scheme, the apparent prospect of being 
 able to prostitute it to mere ])urposes of gain has induced 
 many projects which are totally unworthy of public confi- 
 dence. 
 
 It may tlicrefore be difficult, under existing circumstances, 
 to discriminate between those worthy of governmental aid 
 and tliose urged for mere speculative ])urposes. But if the 
 application proceeds from the legislature of the State in 
 which the improvement is contemplated, and, upon a tho- 
 rough examination and rigid scrutiny, it is found to be pro- 
 motive of the develo])ment of the country and the enhance- 
 ment of the value of the adjacent lands, there can be no rea- 
 sonable objection to the grant. 
 
 By confining it to the land in the vicinity of the pro- 
 jected thoroughfare, restricting the amount at any time to be 
 patented to the construction and completion of a given num- 
 ber of miles of road, and throwing such guards around the 
 grant as legislative wisdom may devise, there can be little 
 danger of the donation being improperly used. 
 
142 THE INTERIOR. 
 
 The applications to Congress at its last session contemplated 
 the construction of 5,056 miles of road, (exclusive of the great 
 Pacific railroad and its branches,) and assuming six sections 
 to each mile of road, Avould have required in round numbers 
 twenty millions of acres. 
 
 In compliance with the urgent solicitations of the repre- 
 sentatives of the several portions of country where these 
 contemplated improvements were to be made, large bodies of 
 land, estimated at about thirt_y-one millions of acres, were 
 withdrawn from market in anticipation of the grants being 
 made; but this not having been done, the lands were restored 
 to market immediately after the adjournment of Congress. 
 
 The withdrawal of lands from market under such circum- 
 stances, was found, on examination and reflection, obnoxious 
 to several objections, viz: Its effects in retarding the settle- 
 ment of the country, its questionable propriety, the difficulty 
 in discriminating between cases in which it should be done 
 and those in which it should not, and the injury that might 
 be inflicted upon the section of country the proposed grant 
 was intended to benefit, by turning the tide of emigration 
 elsewhere. For these and many other equally obvious rea- 
 sons, it was determined that there should hereafter be no 
 reservations for such purposes until grants are actually made 
 by Congress. 
 
 The department would reiterate its recommendation that 
 officer connected with the survey and sale of the public lands 
 be prohibited, under severe penalties, from becoming pur- 
 chasers. 
 
 Such is the general rule in regard to ordinary agents and 
 auctioneers, and it is essential that it should bo applied here. 
 Experience shows its absolute necessity. 
 
 After the passage of the act of 1850, granting the swamp 
 and overflowed lands to the several States in which they lie, 
 many of them were entered at the government land offices, 
 and now the purchasers claim their patents, and are equita- 
 bly entitled to them. It is therefore recommended that, Avith 
 the concurrence of the respective States in Avhich the lands 
 are situate, the patents be issued; and that where the land 
 was sold for cash, the money l^e paid to the State in which 
 the land lies; and where it was located with scrip or land 
 warrants, the proper State be authorized to enter the amount 
 of land so located from the public lands in that State subject 
 to private entry. As the lands belonged to the respective 
 States from the date of the act, this will be the most equita- 
 ble and perhaps satisfactory manner of settling the difficulty. 
 Some mode should be speedily devised to relieve the general 
 
THE INTERIOR. 143 
 
 government, the States interested, and innocent purchasers, 
 from emharrassment. 
 
 It will bo necessary again to extend the time for the com- 
 pletion of the work of the commission to ascertain and settle 
 the ])rivatc land claims in California. It expires on tlie 4th 
 of March next; and if the time is extended, it is desirable 
 that it should be done sufficiently early in the session to en- 
 able the department to advise the commissioners to contiimc 
 their labors. Notwithstanding the indefatigable exertions 
 of the commissioners, their labors cannot, with a due regard 
 to the public interests, be closed within the time allotted. 
 
 The whole number of claims presented is 813. Of these, 
 72 Avere adjudicated by the old board, which was constituted 
 in September, 1851, and 325 by the new board, a]-)pointed in 
 April, 1853. Of the 397 claims thus adjudicated, 294 were 
 confirmed for 736 square leagues of land, and 103, covering 
 383 square leagues, rejected. 
 
 Transcripts have been forwarded to the Attorney General 
 in 295 cases, and duplicate transcripts in 202 cases to the 
 proper courts, as required by law. 
 
 The recorded depositions of witnesses, decisions of the 
 board, original Spanish documents, translations, and the 
 daily proceedings of the board, cover, in all, 6,749 pages, 
 equal to about 41,492 folios. It is estimated that there is at 
 least as much more of this kind of clerical work to be done. 
 
 I append hereto a copy of the most recent report received 
 from the commission. 
 
 Since the new classification and reorganization of the Pen- 
 sion bureau, it has been conducted with much order and reg- 
 ularity. There is no unnecessary delay in deciding the ap- 
 plications presented, and every attention is given them that 
 can be desired. 
 
 The fact was before noticed, that the pension act of 3d 
 February, 1853, did not cover the cases of widows of officers, 
 non-commissioned officers, marines, and mariners, who served 
 in the navy during the revolutionary war. Congress at its 
 last session overlooked it; and as the omission was clearly 
 accidental, it is proper it should be again presented for con- 
 sideration. The widows of seamen who die in service in time 
 of peace are entitled to pensions, which are Avitliludd from 
 those of officers and soldiers of the army. Tliere is no rea- 
 son for this distinction. It is supposed by some that a fund 
 is raised, for the purpose, by the seamen themselves, when 
 in service; but this is an error. Both stand upon the same 
 footing and have like claims, the pension being a gratuity in 
 either case. 
 
144 THE INTERIOR. 
 
 Great inequalities exist in the pension laws, and in their 
 operation. The evil is of so absurd a character in many in- 
 stances as to he exceedingly annoying and mortifying, as 
 well as unjust. Of those that might be adduced, it is pre- 
 sumed that a single one will be sufficient to attract proper 
 attention to the subject. A seaman, a marine, and a private 
 soldier of the army, may be engaged in the same battle, and 
 all alike totally disabled. The seaman, by existing laws, 
 will receive three dollars, the marine six dollars, and the sol- 
 dier eight dollars per month. The disability and all the at- 
 tending circumstances being the same, there should be no 
 such gross disparity. 
 
 There has been, within a few years past, a large increase 
 in the aggregate amount of pensions paid, much of which is 
 owing to the departure from the original design of the pen- 
 sion policy. The intention of its first projectors was to re- 
 lieve the wants of those who, having served their country 
 faithfully, and hazarded their lives and fortunes for its free- 
 dom and happiness, Avere destitute. Now it has become gen- 
 eral, and has been more and more enlarged every year, until it 
 has grown into a stupendous system. At an early period of 
 our history it was considered derogatory for any one, however 
 meritorious, to accei)t the gratuity even when tendered by 
 the government, unless in needy or indigent circumstances. 
 A different sentiment, however, has now obtained, and the 
 purest, best, and most honorable of our citizens do not re- 
 fuse it. 
 
 T-liere can be no well-founded objection to this, so long as 
 the law remains as it is. But, considering the small pittance 
 (often, under existing laws, only one dollar and fifty cents 
 or two dollars per month) doled out to the indigent soldier, 
 his Avidow, or minor cliildren, it is a question worthy of con- 
 sideration, whether humanity does not demand that the sys- 
 tem be so modified as at least to approximate the principle 
 established by its founders, to increase the amount bestowed 
 upon those whose merits and circumstances entitle them to 
 aid, and to give to them, if nothing more, such substantial 
 relief as sound policy will permit. By adopting such plan, 
 and cutting off all arrearages of pensions, the great evil of 
 the system may be remedied. 
 
 The Third Auditor of the Treasury executes several acts 
 of Congress giving half-pay, for five years, to widows and 
 orphans of officers of the army. These acts being of the 
 same general character as others executed by the Commis- 
 sioner of Pensions, and the same principles of construction 
 applying to both, there is a manifest i)ropriety in conferring 
 
THE IXTEBIOR. 145 
 
 the whole power upon the Pension bureau, and therehy pre- 
 serving uniformity in the decisions. 
 
 A biennial exaininatiou of invalid pensioners, to detect 
 fraud and prevent imposition, was recommended to the con- 
 sideration of Congress, but not authorized. It is a remark- 
 ably striking fact, that of the large and entire number on 
 the invalid pension roll, Avith recently two honorable excep- 
 tions, there appears never to have been any diminution of 
 the disability, but frequently an increase. Besides, the Pen- 
 sion bureau, cripi)led as it is for means, has discovered many 
 instances in wliich palpable fraud has been perpetrated, and 
 gross deception practised. As the imputation of guilt may 
 fall upon the innocent as well as the guilty, it does seem 
 proper that authority should be given the Commissioner of 
 Pensions, on satisfactory proof of the commission of such 
 offence, to reduce the pension where the disability has de- 
 creased, and to strike the name of the pensioner from the list 
 where it has ceased. The Commissioner may safely be clothed 
 with this power; for, besides subserving the interests of the 
 public, it will protect from unjust aspersion the honest and 
 worthy pensioner. 
 
 The department Avould again earnestly recommend a modi- 
 fication of the act of Congress limiting to two years prose- 
 cutions lor perjury and forgery committed in pension and 
 laud-warrant cases. Why should the criminal escape, when 
 the offence owing to the ingenuity of the offender, is concealed 
 until the time for his prosecution has elapsed ? With all 
 possible vigilance this cannot be avoided. The cunning and 
 duplicity of the persons engaged in the commission of such 
 oflences are wonderful; still, many have been detected through 
 the watchfulness of the Pension bureau. Up to the 30th of 
 Sei)tember last, thirty have been indicted; of whom eleven 
 have been convicted, nine fled and forfeited their recogni- 
 zances, one died, one committed suicide, two have eluded the 
 officers, and six await trial. Others have not been i)rose- 
 cuted, owing to the limitation referred to, and in several 
 aggravated cases the statute has been successfully pleaded. 
 The pertinacity and success of the Pension bureau in pursu- 
 ing the offenders have perceptibly diminished the offence, and 
 with enlarged power it may probably be totally checked. The 
 limitation operates as an incentive, and is in effect a bounty 
 to the ingenuity and cunning of the felon. 
 
 By examining the reports of the able and efficient chief of 
 
 the Pension bureau, the necessity of a thorough revision of 
 
 the pension laws will be apparent. Justice to those entitled 
 
 to pensions, as well as sound policy and true economy, de- 
 
 19 
 
146 THE INTERIOR. 
 
 niand it. With a judicious, well-arranged system, the gov- 
 ernment could diminish the exi)enditure, give more satisfac- 
 tion, and do a vast deal more good than is now practicable. 
 
 By the act of Congress approved March 3, 1853, this de- 
 partment was authorized to designate three clerks of the 
 fourth class to act as disbursing clerks, and to allow each of 
 them two hundred dollars additional for their services as 
 such. With a view, however, to concentrate the responsibility, 
 and the better to preserve uniformity in the disbursement of 
 the ])ublic money, it was deemed best to employ but one dis- 
 bursing clerk, who, with the aid of two or three assistants 
 of lower grades, should constitute a financial division of the 
 department, where the salaries of all the officers of the de- 
 partment and its bureaus, and all contingent and other bills, 
 should be paid and all requisitions drawn for the advance or 
 payment of public money. So far the plan has worked ad- 
 mirably well, and it cannot fail to be liighly beneficial. 
 
 Prioi- to the commencement of the last fiscal year, (July 
 1, 1853,) no ledgers or other books had been kept in the de- 
 partment, from which the state of its various appropriations, 
 and the amounts in the hands of agents, could be ascertained 
 without resort to those kept by the treasury. 
 
 The proper books were therefore provided, and a system 
 devised, to supply this important defect; and now the bal- 
 ance to the credit of any appropriation can be readily ascer- 
 tained, and payments or advances made as the public service 
 requires, or the means at the command of the department 
 will admit. 
 
 The adoption of this plan has enabled the department to 
 ascertain and correct what it conceived to be a mischievous 
 practice, viz: the undue accumulation of public funds in the 
 hands of ofticers who act as disbursing agents. 
 On the 31st of March, 1845, there was in the 
 
 hands of pension agents alone the sum of... .$1,011,495 79 
 
 On the 31st of March, 1846, the sum of. 681,786 84 
 
 On the 31st of March, 1849, the sum of 950,918 25 
 
 On tiie 3 1st of March, 1850, the sum of. 748,900 37 
 
 On the 31st of March, 1853, the sum of. 948,475 80 
 
 As constituting this sum in part, the agents had, under 
 some acts, enough money to meet their estimated demands 
 for several years, and they were required to repay it into the 
 treasury, which has been done in the adjustment of their 
 accounts. 
 
 During the last fiscal year, advances have been made to 
 pension agents, Avith strict reference to carefully-prepared 
 estimates of the amounts necessary to meet probable de- 
 
THE INTERIOR. 147 
 
 maiuls upon them, and by this course the amount in their 
 hands lias been reduced from $948,475 80 on tlic olst of 
 March, 1853, to $3")3,801 20 on the 30th of June last. 
 
 No difficulty has existed in ]irocurin<^ agents to pay ])en- 
 Bions. On the contrary, such offices are sought after with as 
 much eagerness as others; and from the large aniouiiTs it 
 has been heretofore customary for tliem to have on hand, it 
 is not doubted but that they have been fully compensated for 
 their services. 
 
 The Mexican boundary survey is presumed to have been 
 recommenced in the field, and no doubt was entertained uf 
 its completion, under the acconijdished officer at its head, 
 within the time and amount estimated; but recent intrlli- 
 gence from tlie commission has reached the department which 
 may render a further appro])riation necessary. 
 
 An appropriation of $10,000 will be required to complete 
 the maps and drawings of the previous survey. The whole 
 estimate for this purpose was $20,000; but as $10,000 was 
 all that could be economically expended during the fiscal 
 year, that sum only was asked for. 
 
 The boundary line between the United States and the 
 British provinces in the northwest, as designated in the con- 
 vention of June, 1846, deserves attention. That part, es- 
 pecially, Avhich separates the Territory of Washington from 
 the British possessions, should be traced and marked. As 
 the British government is understood to be ready to co-oper- 
 ate, there should be no delay on our part. 
 
 The Territory of Washington is in process of settlement, 
 and difficulties have already arisen in regard to the extent 
 of the rights of the Hudson's Bay and Puget's Sound Com- 
 panies, and the interests of many of our citizens are being 
 involved in the controversy. As yet, not very much value 
 has attached to the country, and it is a question of moment 
 whether it is not the wisest policy to settle these claims at 
 once. They can probably be extinguished for a reasonable 
 consideration; if so, it should be done. 
 
 The Patent Office is in excellent condition; and the man- 
 ner in which its atiairs are conducted gives universal saris- 
 faction. Still, the character of the force, as now authorized 
 by law, is not such as to attain the accomplishment of all 
 that could be desired. By adopting a new arrangement, the 
 result of urgent necessity, the Commissioner has despatched 
 more than the usual amount of business. Instead of six 
 principal examiners, with two assistants each, there have 
 been practically, since the first of April last, eleven princi- 
 
148 THE INTERIOR. 
 
 pal examiners, each with one assistant. Thus, instead of 
 the usual tedious delays, most of the work is up to date. 
 
 Since the first of January last tliere liave been issued up- 
 wards of sixteen hundred patents; and witliin the year, tlie 
 number will probably reach nineteen hundred, Avhich will 
 be about double the number issued during the last year. Tlie 
 arrangement by which this result has been produced was ju- 
 dicious, and has proved satisfactory to all parties interested. 
 
 Several amendments to the patent laws were suggested 
 last year. Those of most immediate and pressing necessity 
 are, i)rovision for taking testiuKjny, appeals, and prescribing 
 a new rate of fees. Many questions of great importance are 
 frequently pending before the Patent Office, depending, for 
 a correct decision, upon the testimony of witnesses, and there 
 is no power provided of compelling them to give it. Nothing 
 is more common than ibr a witness to refuse to attend an ex- 
 amination, or to give testimony after he has attended. 
 
 The law now allows any person who appeals from the de- 
 cision of the Commissioner of Patents to select which of the 
 three judges of the circuit court of the District he chooses 
 before whom to bring his appeal. The chief justice of that 
 court will probably never again be able to entertain an 
 appeal, so that taking an ap})eal before him is tantamount 
 to its postponement during the term of his natural life; and 
 even after his death there may be some question whether 
 the delay will be at an end. By such an abuse of the law a 
 case has been suspended in this manner for nearly two years, 
 and may be continued for an indefinite period. 
 
 The rate of fees was fixed at a time when the real value 
 of money was much greater, in ])roportion to its nominal 
 value, than at the present time. The i)ay of the employees 
 in the office has been much increased by Congress, and in 
 various other ways its expenses have been largely augment- 
 ed, whilst the fees have remained the same. In addition to 
 this, the force of the bureau has been considerably increased 
 in order to dis})ose of the accumulation of business. From 
 all these causes, the inevitable consequence has been, that 
 during the current year the expenses of the office have been 
 continually exceeding the revenue, and such will continue 
 to be the case until the increase of the revenue shall have 
 been provided for. 
 
 Such a re-organization of the examining corps as will 
 place all its members on a proper footing, is a subject worthy 
 of consideration. The assistant examiners who are perform- 
 ing the duties of principal examiners may justly expect, at 
 
THE INTEKIOR. 149 
 
 no distant day, the compensation attached to those duties 
 and responsibilities. 
 
 The Attorney Cfeneral shonhl be clotlied witli supervisory 
 power over the accounts of the uuirshaLs, clerks and other 
 officers of the courts of the United States, now ])osse.ssed by 
 this department. It is germane to tlie other powei's intrusted 
 to him. A law department should, for many obvious reasons, 
 he constituted. Properly organized, it would be very advan- 
 tageous to the other dejjartments of the government, and at 
 the same time introduce, many radical and salutary retbrms 
 in onr judicial expenditure. 
 
 The salaries of most of the judges of the district courts of 
 the United States are inade(|uate. Their duties are arduous 
 and important, and constantly increasing. The professional 
 ability, knowledge, and qualities required for their faithi'ul 
 discharge, would insure a much larger compensation at the 
 bar. In many of the districts the clerks and marshals, wlio 
 perlbrm comjjaratively little intellectual labor, are far better 
 remunerated for their services. A respectable support should 
 be given to men who cannot, on account of the positions they 
 occupy, engage in any other profession or avocation. The 
 preservation and perpetuity of our most valued institutions 
 depend, to a great extent, on the purit}-, firmness, and inde- 
 pendence of the judiciary, and these qualities should be nur- 
 tured and encouraged. 
 
 Much ambiguity exists in the act of 18.53 as to the discre- 
 tionary power of the Secretary of the Interior over the ex- 
 penditures of judicial officers, and for judicial purposes. In 
 several instances judges have presented for allowance bills 
 for law-books purchased by them, wdiich were disallowed. 
 The district attorneys have frequently asked that offices and 
 furniture be provided for them, which has generally been 
 refused, the rule being to allow office acconiniodati(>us 
 when, at particular places or in large cities, the government 
 is compelled to make provision for the courts by renting 
 buildings, and rooms can be spared without inconvenience, 
 but not otherwise. h\ other cases, marshals have exceeded 
 the limit prescribed by the statute in the purchase of furni- 
 ture, where the assent of the Secretary of the Interior is 
 made a condition precedent to the exi)enditure, and the de- 
 partment has refused to allow such accounts, on the ground 
 that the prerequisite approval had not been obtained, and it 
 was doubted wdiether he then had the power to legalize an 
 act manifestly illegal. In all such cases it has been contended, 
 by intelligent and experienced jurists and lawyers, that such 
 allowances are pi oper, and that the power has been conferred 
 
150 THE INTERIOR. 
 
 Oil the department, and they feel aggrieved that it is not ex- 
 ercised. Xot disposed in tlie slightest degree to wrong men 
 ■whose opinions are entitled to so mnch weight, I hope Con- 
 gress will, in the next appropriation for the exjjenses of the 
 United States courts, indicate their opinion on the point in 
 issue, and relieve it of all doubt in the future. 
 
 Some time after I entered upon the discharge of my duties, 
 I observed that many inquests were held in the city by the 
 coroner, and I'ound that the sum of ^9,800 had Avithin the 
 last four years, been drawn from the treasury to defray the 
 expenses. Believing these expenditures to be unauthorized 
 by law, I sought the advice of the Attorney General, who, 
 in an elaborate opinion, having concurred with me, all further 
 payments were discontinued. 
 
 In June, 1853, on the question being presented on appeal, 
 I was of opinion that tlie clerk of the United States courts 
 in this District was, by the IGTtli paragraph of the act of 
 1842, obliged, as other clerks, to make a report of his fees 
 and emoluments, embracing those of the criminal court. As 
 a contrary view had been taken by one of his predecessors, 
 I submitted the question to the Attorney General, who, upon 
 a tliorough examination, came to the conclusion that such 
 was his duty. From his reports, since made, after making 
 large allowance for expenses, his fees and emoluments in the 
 five years ending the olst of December last were $29,986 48, 
 being an excess of $12,486 48 over the maximum allowed by 
 law, which will be refunded. There is not even a j^lausible 
 pretext for his being made a solitary exception to a rule ap- 
 l)lying to tlie clerks of all the other United States courts. 
 
 By existing laws, the costs of all criminal complaints made 
 l)efore the magistrates of this District, whether the complaint 
 JK sustained or not, are paid by the general government. 
 This item, for the last fiscal year, amounted to upwards of 
 $10,500. The power should surely be conferred upon the 
 magistrate or court to compel the complainant to i)ay the 
 costs in all cases where the magistrate or court may deem the 
 prosecution unfounded, frivolous, or malicious. This may be 
 the means of preventing the institution of many prosecutions 
 in wliich the })ublic have no interest. 
 
 The judicial expenses of the United States are largely on 
 the increase. To some extent this is natural, and many causes 
 contribute to it; but some exist which seem to be unnecessary, 
 and sliould therefore be removed. A pre-eminent one is be- 
 lieved to 1)0, the great number of terras and })laces at which 
 courts are held. 
 
 Two hundred and twenty-three terms of the United States 
 
THE INTERIOR. 151 
 
 courts (exclusive of the Territories) are held in eijj^lity-eight 
 different phices during each year. In the western district 
 of Virginia, courts are hekl at six different ])LT,ces; in the 
 northern district of New York, at eight; in California, at six; 
 in Louisiana, at six; and in Florida, at five. It is well to 
 inquire whetlier the judicial husiness transacted justifies the 
 expense in tliese and other instances. Were there hut one or 
 two places only, in each State, for holding the United States 
 courts, there would he many obvious reasons in i'avor of con- 
 structing suitable buildings at those points for their exclusive 
 use, so as to make them entirely independent of the State, 
 county, or other local authorities; such buildings, and every- 
 thing connected with the federal courts, being assimilated, 
 as nearly as practicable, to those of the State courts. 
 
 The accompanying report from the First Comptroller of 
 the Treasury contains suggestions on this and other kin- 
 dred subjects which, emanating from such a source, deserve, 
 and will no doubt receive, the proper consideration of Con- 
 gress. 
 
 In pursuance of the separate resolutions of the two houses 
 of Congress passed at the last session, tlie Superintentlent 
 of the Census has prepared, with much labor and ability, 
 a Compendium of the Seventh Census ; and the required 
 number of copies is ready for delivery. This has nearly 
 exhausted the appropriation for census purposes, a small 
 amount only remaining unexpended. The matters to whicli 
 his attention was directed being completed, the Su})erintcnd- 
 ent has tendered his resignation to take effect in the course 
 of the present month, and the office has been discontinued. 
 
 Many public improvements are required in the District of 
 Columbia, which can be constructed at this time without 
 the expenditure being seriously felt by the treasury. In 
 such a city, certain objects of magnitude are to be accom- 
 plished, which are beyond the reach of the citizens ah>ne. 
 xSothing can be lost by exhibiting a generous s})irit of lib- 
 erality, the more especially where important interests of the 
 government are thereb}' promoted. 
 
 The erection of fire-proof buildings is absolutely neces- 
 sary for the safety and security as well as the convenience 
 and accommodation of the State, War, Navy, and Interior 
 Departments. No city can be more exi)osetl than this to 
 fire, and none are in possession of fewer means to extin- 
 guish it. When there is such a surplus lying dormant in 
 the treasury, what good reason can be assigned for perniit- 
 ting millions of public property to be constantly exposed 
 to imminent danger vithout an efibrt to protect it? The 
 
152 THE INTERIOK. 
 
 rents paid for additional buildings, although large, are tri- 
 fling in comparison with the irreparable loss that would 
 accrue from the occurrence of such a calamity. If the 
 money is not thus expended, may it not be applied to pur- 
 poses of less importance to the American people ? 
 
 The appro])riations made for the present fiscal year for 
 improving and ornamenting the public grounds were too 
 small and too limited. With a A^iew to the comfort, health, 
 and beauty of the city, tlie admirable i)lan of Mr. Downing 
 sliould be rapidly pressed to completion. It is impractica- 
 ble to prosecute it vigorously without additional means. 
 If liberal appropriations were made, as well as provision 
 for the en)j)loynient of a skilful and intelligent landscape 
 gardener, all tlie ])ublic grounds might soon be made to 
 assume a beautiful ajtpearance. The portions cultivated and 
 improved are certainly very creditable to the action and 
 taste of Congress ; but the remainder, in their present con- 
 dition, are not only offensive to the eye, but well calculated 
 to generate disease in the city. 
 
 The force employed upon the public grounds should be 
 differently organized and arranged. There should be a 
 controlling spirit at the head, who would direct and dis- 
 tribute the subordinates and laborers; and the salaries of 
 the officers, instead of being paid at the discretion of the 
 de])artment, should be fixed by law. 
 
 The lots in the city belonging to the general government 
 are now sold by the Commissioner of Public Buildings, and 
 the ])roceeds expended for the improvement of the streets, 
 nothing going into the treasury. The propriety is sug- 
 gested of selecting such as may be necessary for the public 
 use, and turning over the balance to the city authorities, to 
 be exclusively devoted by them to the purposes of education. 
 This would relieve the department from all embarrassment 
 in connexion with tliem, prevent private individuals from 
 obtaining them on ex parte statements for a mere trifle, and 
 would benefit a most worthy class of 2)eople. 
 
 Under the appropriation of fifteen thousand dollars for 
 completing the Little Falls bridge, a contract has been en- 
 tered into for erecting on the stone abutment and piers al- 
 ready built two spans of wooden bridge, in length three 
 hundred and twenty feet. The i)lan adopted is known as 
 '•Howe's Truss," combined with arches, and the structure is 
 to be capable of sustaining a test-weight or load of one ton 
 for every foot in length. To make it available for travel, an 
 inclined timber roadway will be constructed, to lead from the 
 rivcr-bottomj which is dry at low water, up to the roadway 
 
THE INTERIOR. 153 
 
 of the bridge. This jiart is liable to be carried away by the 
 spring freshets, but can be re[)laced at a comparatively 
 Binall cost. The whole will be completed by the 15th inst. 
 To finish the bridge as originally pi'oposed, would, accordin" 
 to the estimate of the engineer in charge, cost seventy-live 
 tliousand dollars more. If a])prupriated, the departnient 
 will endeavor to cx2)end it judiciously and with frugality. 
 
 Tlie erection of the buikliugs for the National Hosjiital 
 lor the insane has been prosecuted with great energy, and 
 strictly Avith an eye to utility and economy. It was supposed 
 that ere this it would have been ready to receive inmates ; 
 but, on reflection, it was concluded best to defer its occu- 
 l)ancy until the erection of permanent appendages, which 
 otherwise must have been temporary, and, in the end, far 
 more expensive. The present intention is, to receive the 
 patients of the District — now under the care of the Mary- 
 land Hospital and Mount Hope Institution at Baltimore — 
 on the first day of January next. It is probable the jjresent 
 edifice Avill be completely finished and in readiness for oc- 
 cupation on the oOtli of June next. It will then accommo- 
 date eighty-five patients, with the usual proportion of olfi- 
 cers, attendants and servants. There are now twent}^ in- 
 sane persons belonging to the army and navy establish- 
 ments, and fifty-three indigent insane, in the Baltimore in- 
 stitutions, supported by the government; and eleven are 
 detained in the jail in this city : so that it appears there are 
 already eighty-lour who will be entitled to the benefits of 
 this institution according to its original design. It is con- 
 ceived that no project can commend itself more favorably 
 to the attention of Congress. To make it a model institu- 
 tion of its kind should be the determined effort of the gov- 
 ernment. This can be done, with the aid and exjjcrience of 
 the present excellent superintendent, at a small cost, com- 
 pared with our other public buildings and similar structures 
 m many of the JStates. 
 
 The penitentiary of the District, although conducted with 
 care and rigitl economy, is considerably in debt. In 1846 a 
 special appropriation of §11,949 64 was made, in addition 
 to the annual ai)propriation lor its support, and to meet as 
 is sui)posed, the then existing indebtedness. It proved to 
 be insufficient, however; for, though the appro])riation for 
 the next ensuing year was about double tlie ordinary amount 
 provided, an indebtedness is still reported to have existed 
 on the olst December, 1847, of $1,055 15, which continued 
 annually to augment until the present warden took charge 
 of the institution, on the Sth June, 1853, when it amounted 
 20 
 
iS4 THE INTERIOR. 
 
 to about $12,000. Collections and payments have been since 
 made, which enabled him to reduce this indebtedness to 
 about $7,000, which the institution has no means of paying, 
 as no further collections can be confidently relied upon. 
 Soon after the present wurden Avas appointed, he was instruct- 
 ed to abandon the credit and adopt the cash system, which 
 has thus far had a salutary effect. He is now anxious that 
 an appropriation should be made to enable hira to pay off 
 the indebtedness for which he is in nowise responsible. 
 
 It is necessary to increase the number of guards and em- 
 ])loyees about the penitentiary, as the duties to be discharged 
 are entirely too onerous for those now engaged. In 1849 there 
 were forty convicts incarcerated in it, to guard whom there 
 were nine persons, including the messenger. In 1853 there 
 were one hundred convicts imprisoned, and only eight per- 
 sons to guard them. That an additional number is required 
 admits of no doubt. 
 
 In the increase of salaries to officers and clerks of the dif- 
 ferent departments, by a late act of Congress, no notice was 
 taken of the chief clerk of this department, whose duties are 
 as arduous and of as important a character as those of the 
 assistant secretaries of the other departments. These assis- 
 tants receive each $3,000 per annum; he only $2,200. No 
 such invidious distinction should exist between them. Justly 
 appreciating the value of his services, I have no hesitation 
 in recommending the increase of his compensation, and that 
 he be made ex-officio assistant secretary in the absence of the 
 Secretary from the department. 
 
 Temporary clerks, when necessary, are employed under the 
 act of 26th August, 1842, and paid for every day of actual 
 service. The act of 22d April last requires their compensa- 
 tion to conform to that of regular salaried clerks performing 
 similar duties. A modification of these laws is suggested, 
 so that the temporary clerks shall hereafter be paid by the 
 folio, or piece, as in the Patent Office. This would tend to 
 ])revent partiality, and encourage and reward the expert, in- 
 dustrious, and experienced. 
 
 Within tlie year fourteen treaties have been entered into 
 with the Indian tribes. The most important have been con- 
 cluded with the Omahas, Ottoes, and Missourias; Sacs and 
 Foxes of Missouri; lowas, Kickapoos, Delawares, Shawnees, 
 Kaskaskias and others ; Miamies, and the Menominees. Vig- 
 orous efibrts have been made, and are still being made, to 
 execute in good faith all the i)rovisions and stipulations to 
 be performed on the part of the Government, and the In- 
 dians seem desirous of strictly conforming to their respective 
 
THE INTERIOR. 155 
 
 en<2:agement.s. The appropriations to carry tliose treaties 
 into complete effect were made at so late a period, that it was 
 found impracticable to accomplish all that was desij:jncd. 
 In these treaties the Government adopted a liberal poli- 
 cy towards the Indians; and if it is pursued and prosecuted 
 efficiently, it must lead to most beneficial consequences. 
 The ])rincipal thin<]f to be feared is, that the poor, ip;norant, 
 unlettered, and inexperienced Indians may be brou,t;ht into 
 too close contact with the whites, which <;eiierally degrades 
 them, because they seem inclined to contract their evil habits, 
 instead of imitating their virtues. 
 
 The annuities are abundantly sufficient for all legitimate 
 purposes. A large portion of them should be devoted to the 
 improvement of their moral condition. Ample i)rovision 
 should be made for educational purposes. The missionary 
 establishments among them, which have been very successl'ul 
 in converting many to Christianity and reforming and civil- 
 izing them, should be fostered and encouraged. 
 
 There is a ])rovision in some of these treaties of grave im- 
 portance, and requires prompt attention. One of the stipu- 
 lations with the Delawares, as well as lowas, and the con- 
 federate band of Kaskaskias, and others, requires that the 
 land ceded by them (excej^t the Delaware outlet) shall, after 
 survey, be offered at public sale, and sold to the highest 
 bidder; and such portions as may not be sold at })ublic sale, 
 shall be subject to entry at one dollar and twenty-five cents 
 per acre for the term of three years; after wluch Congress 
 may reduce the price of the residue unsold. The expense of 
 surveying, managing, and selling the land is to be deducted 
 from the proceeds of the sales, and the balance paid to the 
 Indians. 
 
 The Governinent is bound to preserve these lands from all 
 such trespass and intrusion as will interfere with ixbomi fiih: 
 compliance with this treaty stipulation. If, as is now the 
 case, intruders occupy these lands, and more especially with 
 a view of making permanent settlements, and effectually pre- 
 venting the governmental authorities from executing this 
 stipulation, they should be promptly ejected. The duty of 
 the Government is clear, and justice to the Indians rei^uires 
 that it should be faithfully discharged. Experience shows 
 that much is gained by sacredly observing our jilighted faith 
 with these poor creatures, and every principal of justice and 
 humanity promi)ts to a strict performance of our obligations. 
 
 The better to protect the interests and promote the welfare 
 of the Indian tribes, between whom and the United States 
 treaties exist, instructions have been given requiring the 
 
156 THE INTERIOR. 
 
 agents and sub-agents to reside within the limits of their re- 
 spective districts, and to make, through their superintend- 
 ents, periodical reports, in detail, of their operations. 
 
 Many of the Indian tribes are doing well, and their con- 
 dition is daily improving; wliilst others are rapidly deteriora- 
 ting, and constantly assuming a more dissolute and degraded 
 character. The aggregate number is fast diminishing, and 
 some of the tribes whose numbers in former days were large, 
 and whose prowess was great, are now nearly extinct. Not- 
 withstanding the unremitting eflforts of the department, it 
 seems impossible effectually to prevent the introduction of 
 ardent spirits amongst them. The facility with which the 
 use is acquired, and the misery and destitution which are 
 its inevitable consequences, are matters of deep concern and 
 regret. The abolition of the system of cash payments, 
 which is being accomplished as rapidly as practicable, will 
 lessen the quantity consumed, as it directly interferes with 
 the interests of the vendors. The traders, who have on this 
 account a most potent and controlling influence over the 
 Indians, are generally opposed to the change in the mode of 
 payment, and have seriously embarrassed the efforts made to 
 effect it. 
 
 The crops of many of the tribes who have been induced to 
 till and cultivate the soil have, from the continued drought, 
 partially tailed. As the quantity of breadstuffs and provi- 
 sions usually produced affords, at best, but a scanty subsist- 
 ence, their wants and necessities will be materially increased. 
 As they may be exposed to much suffering during the 
 coming winter, instructions have been given to reserve a 
 portion of their annuities, to avert, as far as practicable, that 
 calamity. Every effort M'ill be made to relieve them; and 
 it is expected the agents will not be remiss in faithfully dis- 
 charging the duties incumbent upon them under such peculiar 
 circumstances. 
 
 The liunter tribes have lately exhibited more than their 
 usual boldness and desperation. The limits of their hunting 
 grounds are being rapidly reduced, and the buffiilo and other 
 game are fast diminishing, so that they are driven by stern 
 necessity to theft or starvation. In consequence of this, the 
 frontier settlements and the emigration to California and 
 Oregon have been much exposed and harassed. The mili- 
 itary force at the command of the War Department is 
 small, and, although active and vigilant, has not been able 
 to give that protection to our citizens which is so much 
 required. 
 
 Perhaps the only course that can be pursued to reclaim these 
 
THE INTERIOR. 157 
 
 tribes, and prevent their depredations upon their innocent, 
 and in many cases defenceless victims, is, to make liberal 
 a])])roi)riations for their colonization and civilization. Colo- 
 nization was, many years a<:!;o, ])artially tested in California, 
 and the recent trial, it is hoped, will ])rove successful. There 
 is every reason to believe the i)lan a <:jood one, if those in- 
 trusted with its execution have the ])roper aptitude and 
 qualifications. Few possess the qualities necessary to the 
 useful discharge of the duties of an Indian a^ent, and fewer 
 still the properties required to carry out skilfully and suc- 
 cessfully such a system. If this last hope fails, their extinc- 
 tion appears to be inevitable. Such should not be tlic destiny 
 of this unfortunate race, if it can be averted by the power 
 of this Government. Some are impressed witli the idea that 
 the only successful way of treating them, and preserving the 
 relations that should exist between them and the Govern- 
 ment is to chastise and punish them whenever they err; 
 but, in my judgment, kind treatment in most cases will sub- 
 serve a far better and more useful purpose, and eventually 
 lead to more desirable results. The whites who mingle with, 
 or live contiguous to them are not always blameless. Olten, 
 to their mischievous conduct may be traced the most brutal 
 and distressing depredations of these children of the forest. 
 Kindness has operated wonderfully on some tribes, and why 
 should it not succeed with others? Colonization might be 
 attempted in the Territories of New Mexico, Utah, Oregon, 
 Washington, and the country immediately east of tlie Kocky 
 mountains. The object should be twofold, to domesticate 
 and isolate them as much as practicable from the white set- 
 tlements. Tiie arts of civilized life should be introduced, 
 and, if possible, a settled form of government established 
 among them. To effect this, large ai)pro])riations would be 
 requisite; but how could money be expended more charitaldy 
 or a])propriately than in this great cause of huuuuiity? 
 
 I have the honor to be, very respectfuUv, vour obedient 
 servant, R. McCLELLAND, 
 
 The President. Secretary. 
 
VII. -THE PUBLIC LANDS. 
 
 REPORT OF THE COMMISSIONER OF THE GENE- 
 RAL LAND OFFICE. 
 
 General Land Office, 
 
 November 30, 1854. 
 
 Sir : I have the honor to submit the following report of 
 the operations of this office for the fiscal year ending June 
 30, 1854, and for the third quarter of the current calendar 
 year. 
 
 From the 30th September, 1853, to the 30th September, 
 1854, 9,384,464 acres were surveyed, chiefly in Wisconsin, 
 Iowa, Minnesota, and Florida, and 8,190,017 acres were 
 brought into market. This is exclusive of the surveys in 
 California, Oregon and Washington, amounting to 1,686,471 
 acres, which have not yet been proclaimed for sale, for the 
 reason tliat those in California could not be disposed of till 
 the private claims and pre-emptions in that State had been 
 adjusted ; and no provision Avas made by law for the ordinary 
 sale of lands in Oregon and Washington till the last session 
 of Congress. As soon as it can be done with a due regard 
 to outstanding claims, these lands will be brought into 
 market in the same manner as those east of the Rocky 
 mountains. 
 
 During the fiscal year ending the 30th June last, there 
 were — 
 
 Acres. 
 
 Sold for cash 7,035,735.07 
 
 Located with military warrants 3,402,620.00 
 
 Located with other certificates 14,182.26 
 
 Making atotal of 10,452,537.33 
 
 In addition, there were reported — 
 
 Under swamp-land grants 11,033,813.53 
 
 Internal im})rovements, railroads, &c 1,751,962.19 
 
 Making an aggregate of 23,238,313.05 
 
 158 
 
THE PUBLIC LAXD?. |59 
 
 For the quarter ending September 30, 1854, tliere were — 
 
 Acres. 
 
 Sold for cash (part estimated) 2,894,300.00 
 
 Located with bounty-land warrant.s 388,300.00 
 
 I\[alvin^ a total of...... 3,282.0(;0.()0 
 
 Reported under swamp-land grant «.... 1,490,1)02.57 
 
 Making an aggregate of. 4,779,628.57 
 
 This shows an increase in sales for the last fiscal year 
 over the preceding of 5,952,239.80 acres; and although the 
 aggregate disposed of was less than that of the preceding 
 year_ by over 2,000,000 acres, the difference was caused by 
 the lact that the most of the grants for bounty land, swamp, 
 railroad, &c., had previously been disposed of 
 
 The sales for the third quarter of the current calendar 
 year are more than twice as heavy as those for the corres- 
 ponding quarter of tlie previous year, though the locations 
 are less numerous, for similar reasons to those above given. 
 During the year ending the 30th September last, 120,784 
 patents under the various laws were written, exclusive of 
 the swamp-land grants, and 111,158 were recorded, occupy- 
 ing 224 folio volumes ; 429 manuscript patents were also 
 written and recorded, covering 851 pages, or nearly two 
 folio volumes. 
 
 Tr.acts. 
 
 Of certificates of purchase there were posted 100,279 
 
 Declaratory statements 17 goO 
 
 Land-warrant locations 50 324 
 
 Selections for internal improvements 13'473 
 
 Swamp-land selections 93 302 
 
 Equal to 281 244 
 
 The following accounts were also adjusted, to wit : 
 
 Of receivers of public money 486 
 
 Of disbursing agents 402 
 
 Of refunding accounts 508 
 
 Of surveyors general and deputy surveyors 333 
 
 Of publishers of newspapers 277 
 
 Equal to 2,006 
 
 accounts, and occupying four large folio vohmics of records. 
 125 lists of swamp-land selections, coverin.ij; 2,920 pao-es 
 and 4 lists of railroad selections, covering 348 pages, have 
 been received and acted on. 
 
160 THE PUELIC LANDS. 
 
 508 Virginia boiinty-laml claims, filed for the issue of 
 scrip under tlic act of Augu.st 31, 1852, have been examined, 
 of whicli 37o were allowed, 62 rejected, and 73 suspended. 
 4,043 pieces of scrij) were issued, amounting to 292,195 
 acres ; and 190 claims Avere filed, calling for 90,342 acres. 
 2,806 pre-emption claims under the several laws have been 
 examined and settled, and the voluminous correspondence 
 therewith connected promptly attended to. 
 
 26,617 letters have been received and registered, the re- 
 gistery covering 3,659 pages, or 7 volumes of large folio re- 
 cord ; and 24,279 letters were written, filling 15,473 jiages, 
 or 31 volumes of record. 
 
 6,684 packages, exclusiv' e of letters, have been transmitted, 
 and the seal of the office attached to 51,000 patents, copies, 
 &c. 
 
 It will thus be perceived, that, on an average, full one- 
 third more business has been done in the office durinar the 
 past year than in the preceding ; and although more assist- 
 ance has been furnished for part of the current year than 
 formerly, the gentlemen in the office, heads of divisions, 
 and others, who cordially co-operated in pressing on this 
 labor, are entitled to high commendation. 
 
 The unusually large number of patents prepared, and the 
 office business connected therewith, evince the amount of 
 labor performed in the recorder's division. 
 
 The onerous and responsible duties of the chief clerk have 
 been faithfully and efficiently discharged, and the internal 
 police of the office fully sustained. The principal clerk of 
 privato land claims has also been actively employed in the 
 difficult and complicated duties of his division, which are in 
 a satisf ictory state of forwardness. 
 
 The principal clerk of surve3^s, though in ill health, has 
 been assiduously engaged as his strength would permit in 
 organizing the surveying operations in the now Territories, 
 and carrying them out in the States. 
 
 The clerk in charge of the pre-emption division lias also 
 been most indefatigably em})loyed, and, in view of the fact 
 tliat many cases were com])licatcd and difficult, has disposed 
 of a very large amount of business. 
 
 The clerk in charge of the Virginia revolutionary claims 
 and war of 1812 bounties, has labored indefatigably and ably 
 in this most difficult branch of duty. 
 
 The clerks in charge of the Mexican bounty-land claims, 
 and those under the acts of 1850 and 1852, have striven 
 earnestly and successfully to keep up the duties of their re- 
 
THE PUBLIC LANDS. 
 
 161 
 
 spective divisions, notwithstanding the great pressure of 
 those duties. 
 
 The accountants liave had the posting of the sales and 
 locations, thougli unusually heavy, brought up as close as 
 possilde, and the accounts of the receivers and disbursing 
 agents, adjusted to the latest dates practicable ; and notwith- 
 standing the large amount of money received for lands, it is 
 confidently believed that every dollar has been or will be 
 paid into the treasury. The duties of these divisions, 
 though exceedingly arduous, have been zealously and faith- 
 fully performed. 
 
 Tlie clerk in charge of the swamp-land division has also 
 been diligently employed, and has ably pressed forward the 
 duties of it towards completion. 
 
 Witli very few exceptions, the assistants in those several 
 divisions have ably and efficiently seconded the efforts of 
 their principals to consummate speedily and satisfactorily 
 the duties of their respective branches. 
 
 The accounts of the surveyors general, deputy surveyors, 
 and publishers of newspapers, have been adjusted and re- 
 ported to the latest possible dates. 
 
 The following table shows the present condition of the 
 bounty-land warrants, under the acts of 1847, 1850, and 
 
 1852, to wit : 
 
 
 
 
 
 
 
 
 Act of 1847, 
 
 
 
 
 Grade of 
 warrant. 
 
 Number 
 issued. 
 
 Acres embra- 
 ced thereby. 
 
 Number 
 located. 
 
 Aorcs embra- 
 ced thereby. 
 
 No. out- 
 standing. 
 
 Acres onihr.i- 
 ccd thereby. 
 
 160 acres 
 
 40 acres 
 
 79,407 
 7,269 
 
 12,705,120 
 290,760 
 
 71,939 
 5,596 
 
 11,516,240 
 223,840 
 
 7,468 
 1,673 
 
 1,194,880 
 66,920 
 
 Total 
 
 86,076 
 
 12,995,880 
 
 77,535 
 
 11,734,080 
 
 9,141 
 
 1,261,800 
 
 
 
 Act of 1850, 
 
 
 
 
 160 acres 
 
 80 acres 
 
 40 acres 
 
 26,808 
 
 56,220 
 
 101,567 
 
 184,595 
 
 4,289,280 
 4,529,600 
 4,062,680 
 
 22,713 
 43,434 
 75,034 
 
 3,634,080 
 3,474,720 
 3,001,360 
 
 4,095 
 12,786 
 26,533 
 
 655.200 
 1,054,880 
 1,061,320 
 
 Total 
 
 12,881,560 
 
 141,181 
 
 10,110,160 
 
 4.3,414 
 
 2,771,400 
 
 
 
 Act of 1852. 
 
 
 
 
 160 acres 
 
 80 acres 
 
 40 acres 
 
 1,157 
 1,049 
 8,7.32 
 
 185,120 
 131,920 
 
 349,280 
 
 709 
 
 959 
 
 5,037 
 
 113,440 
 76,720 
 
 201,480 
 
 448 
 
 690 
 
 3,005 
 
 71,680 
 55.200 
 147,800 
 
 Total „ 
 
 11,538 
 
 666,320 
 
 6,705 
 
 391,640 
 
 4,833 
 
 274,680 
 
 
 
 SUJIMARY. 
 
 
 
 
 Act of 1847.. 
 Act of 1850.. 
 Act of 1852.. 
 
 86,676 
 
 184,-595 
 
 11,538 
 
 12,995,880 
 
 12,881,560 
 
 666,320 
 
 77.535 
 
 141,181 
 
 6,705 
 
 225,421 
 
 11,734,080 
 
 10,110.100 
 
 391,040 
 
 9,141 
 
 43.414 
 
 4,833 
 
 1,261,800 
 
 2,771,400 
 
 274,680 
 
 Grand total 
 
 21 
 
 282,809 
 
 26,543,760 
 
 22,235,880 
 
 57,383 
 
 4,307,880 
 
1G2 THE PUBLIC LANDS. 
 
 It Avill thus "be perceived, that of the 26,543,760 acres 
 embraced by the ■warrants now issued, 22,235,880 acres have 
 been located, leavinjj:; only 4,307,880 acres to be satisfied. 
 
 The followino- table exhibits the present condition of the 
 grant of 500,000 acres made to each of the States for inter- 
 nal improvements by the act of September 4, 1841, to wit : 
 
 States. Qiinntity to Quantity selected Quantity to be 
 
 Miiicli entitled. and approved. selected. 
 
 Illinois 209,085.50 208,980.05 105.45 
 
 Missouri 500,000.00 500,000.00 
 
 Alabama 97,469,17 97,469.17 
 
 Mississippi 500,000.00 499,984,59 15.41 
 
 Louisiana 500.000.00 387,875.20 112,124.80 
 
 Michigan 500,000.00 498,638.54 1,361.46 
 
 Arkansas 500,000.00 499,889.03 110.97 
 
 Florida* 499.990.09 368,290.10 131,699.99 
 
 Iowa 500,000.00 500,000.00 
 
 Wisconsint 500,000.00 416,721.41 83,278.59 
 
 Total 4,306,544.76 3,977,848.09 328,696.67 
 
 This grant may be regarded as closed in all these States 
 except Louisiana, and it is presumed that it will soon be 
 disposed of by that State also. 
 
 The grant for the central railroad from Chicago to Mo- 
 bile, with a branch to Galena, has been adjusted and finally 
 closed ; tluit in Missouri, from Hannibal to St. Joseph's, is 
 also closed, except a few tracts claimed by the railroad, 
 which have been selected by the agents of the State as 
 swamp lands under the act of 1850, and which are in pro- 
 cess of adjustment. The grant for the southwestern road 
 from St. Louis, Missouri, is in process of adjustment, and 
 will be completed as soon as practicable. Nothing has yet 
 been done Avith the grants for roads in Arkansas, for the 
 reason that, by the terms of the grant, the legislature of the 
 State was authorized to have the routes of the road estab- 
 lished, and that body did not meet since the grant was 
 made till this fall. It is presumed that the routes of these 
 roads will be established from surveys already made ; and 
 when established, the grant Avill be adjusted as speedily as 
 practicable. 
 
 The grant for the Sault Ste. ]\Iarie canal, it is expected, 
 will be finally adjusted by the commencement of the session , 
 of Congress. ' U 
 
 * Sulijeot to readjustment, owing to imperfection of plats from which selec- 
 tions were made, 
 t Under decision of Attorney General, July 24, 1852. 
 
THE PUBUC LANDS. ] C3 
 
 At the instance of many members of Congress, and others, 
 about thirty-one millions of acres in several of tlie land 
 States had been withdrawn from market in anticipation of 
 grants for railroad and other internal improvements ; as 
 snch grants were not made, it was deemed ex])edient to re- 
 store these masses of lands to market, especially in view of 
 the passage of the bill graduating the price oi' the public 
 lands ; and this has been, except Avhere the reservation was 
 for a fixed period, or grants have already been made. 
 
 The adjustment of these grants, and the prompt discharge 
 of the current duties of this office, have been materially in- 
 terfered with by the delay in selecting the swamp lands. 
 
 When the act of the 28th of September, 1850, was passed, 
 granting the swamp and overflowed lands to the several 
 States, the surveyors general were charged with the selec- 
 tion of those lands in the States where that office still ex- 
 isted, and where not, that duty was devolved on the regis- 
 ters and receivers of the land.offices. 
 
 The instructions required tliat the selections should be 
 made from the field or descriptive notes of survey where 
 the States were willing to accept that basis ; but where they 
 were not, and claimed other lands in addition to those 
 shown by the field or descriptive notes to be embraced by 
 the law, that the lands so claimed should also be certified 
 to the States on satisfactory evidence that they were of the 
 character alleged. 
 
 More than four years have elapsed and the selections are 
 not yet completed. In the mean time numerous entries and 
 locations were made of lands subsequently claimed by tlie 
 States, and in many cases of this kind where these claims 
 have been contested it has been found that the lands were 
 not embraced by the swamp law, and consequently the sales 
 or locations were confirmed; the claim on the jiart of the 
 States having originated in the ignorance or carelessness of 
 some of their agents. As the matter now stands, however, 
 it is impossible to issue patents for sales and locations with 
 any safety till the final returns of the swamp selections have 
 been made and posted. The parties who claim these patents 
 complain — and Avith good reason — of this withholding of the 
 evidences of their titles; and the extent of the evil may be 
 judged of from the fact, that by careful estimates it appears 
 there are now in this office about one hundred and twenty- 
 four thousand patents written and not transmitted. 
 
 To remedy this evil I respectfully recommend that author- 
 ity be given for the issue of these patents, and that provision 
 be made by law that the purchase money for any such lands 
 
164 THE PUBLIC LANDS. 
 
 he paid over to the States, and that they he aiithorized to se- 
 lect others in lieu of those located with scrip, land warrants, 
 &-C., on due proof hy the authorized afj;ents of the States, that 
 such lands were of the character embraced hy the swamp- 
 land act of 1850. 
 
 Further experience in examining the Virginia revolution- 
 ary bounty-land claims filed for scrip under the act of Au- 
 gust, 1852, has fully evinced the difficulties in arriving at a 
 satisfactory conclusion in many of those cases. In view, how- 
 ever, of the liberal construction given to the act of 31st Au- 
 gust, 1852, by your decision, and the opinion of the Attorney 
 General rendered since the recommendation in my report of 
 last year, I am clearly of opinion that every claim can be 
 satisfied that should be allowed, and hence that further legis- 
 lation on this subject is unnecessary, if not inexpedient. 
 
 iSTonc can entertain a higher estimate than is held by this 
 office of the value of the services for which bounty lands were 
 promised by Virginia in the revolutionary struggle, and 
 hence the most liberal construction consistent with the law 
 has been applied to claims of this character. 
 
 The attention of Congress is again respectfully called to 
 the imperfect condition of part of the records of this division. 
 These records are the only evidence of title to numerous 
 bodies of land in Ohio, patented prior to 1834, and it is highly 
 important that measures should be promptly adopted for per- 
 fecting them, as every year's delay increases the difficulty in 
 accomplishing that object. 
 
 In connexion with this subject it is suggested that a num- 
 ber of "entries," as they are termed, of Virginia revolutionary 
 warrants were made in the military district in Ohio for which 
 no surveys have been executed, or patents issued, owing to 
 the neglect of the owners, many of whom, or their heirs or 
 assigns, now occupy those lands. The act of 20th February, 
 1850, expired on tlie 1st of January, 1852, and since that 
 time no survey could be executed of any of these "entries," 
 however meritorious. To close this whole matter, it is re- 
 spectfully recommended that authority be given to consum- 
 mate all cases of this character; and that the balance of the 
 public land, amounting, it is estimated, to about 60,000 acres, 
 be donated to the State for school purposes. This recom- 
 mendation is made in view of the i'act that these lands are 
 mere interstitial slips of irregular shapes, generally excluded 
 from tlie adjoining surveys, it is believed, because they were 
 considered of little or no value; and, further, that it would 
 in all jirobability cost the government more to hunt up sur- 
 veys, sell and issue patents for them, than would be realized 
 
•THE PUBLIC LANDS. 105 
 
 from the lands. It is important, however, in finally dispo- 
 sing of these tracts, either hy the federal or State govern- 
 ment, that provision be made giving a preference in the ])ur- 
 chase of them to adjacent proprietors, at a given ])rice and 
 for a fixed time. This suggestion is made to prevent con- 
 flict of boundaries, and the litigation that will necessarily 
 grow out of it in surveying these lands, as it will be neces- 
 sary for this purpose to retrace old boundaries of irregular 
 figures, the marks and monuments of many of which it is 
 probable have been entirely effaced by time or accident. In 
 fact it would seem to be necessary, in this case, to introduce 
 something of the old Maryland system of surveys to take up 
 vacancies, or re-surveys to include vacancies. 
 
 In view of the increase of business consequent on the oj)e- 
 rations of the law graduating the price of the public lands, 
 and the decrease in the compensation of the land officers 
 caused by that reduction, it would seem to be just that some 
 provision be made to recompense them for their labor. The 
 measure of compensation heretofore allowed should, there- 
 fore, be continued — that is, one per cent, where fees are al- 
 lowed, estimating all the lands at one dollar and twenty-five 
 cents per acre, with the restriction that they should not ex- 
 ceed six hundred and twenty-five dollars for any one quar- 
 ter, nor twenty-five hundred dollars for the wliole of an 
 official year, except where the sales exceed that amount — say 
 to an extent that would make the per centage equal to one 
 hundred dollars where a proportionate per centage should be 
 allowed to compensate a clerk or clerks for the additional 
 duty necessary to keep up the business. An allowance 
 should also be made those officers for office rent, and they 
 should be required to keep their offices in safe and secure 
 buildings, so that the valuable documents in tlieir custody 
 would be preserved against every risk of loss or destruction. 
 As it is, these offices, containing the only reliable evidence 
 of the foundations of title to the numerous and valuable 
 farms all over the land States, are frequently located in frame 
 buildings, so situated as to insure their destruction in case 
 of fire in the vicinity, and often wholly insecure against tres- 
 pass by the mischievous, designing, or dishonest. The cost 
 is too slight in comparison with the risk, and it is jjrobably 
 the only class of cases in the world where so little regard is 
 paid to such valuable archives. As the matter now stands, 
 every effort within the power of this office is made to obtain 
 suitable locations, by suggestions, &c.; but if the government 
 paid the rent, it would have the power to require that the 
 offices should be kept in secure buildings. 
 
166 THE PUBLIC LANDS. 
 
 For donation claims in Orcc;on one hnndred and forty-two 
 certificates were transmitted to this office for patenting, but 
 on examination it was ascertained that most of them were 
 hounded by lines differing from those of the public surveys, 
 and that special plats of the locations had not been trans- 
 mitted with them as required by instructions. Without 
 those plats, showing their locations in connexion with the 
 lines of the ])ublic surveys, there would have been no secu- 
 rity that difierent patents, wdien issued, would not have in- 
 cluded the same land, in whole or in part. The certificates 
 for such donations Avero therefore returned, that the instruc- 
 tions might be complied with. The others were placed in 
 hands for patenting; and in view of the difficulty in pre- 
 paring these patents, as special forms are required in differ- 
 ent cases, I have devolved that duty on the principal clerk of 
 private land claims. Tlie business of that division, which has 
 been promptly and efficiently discharged, was already onerous, 
 embracing the Indian grants as well as private claims; but as 
 these donations partook in some degree of the nature of that 
 business, this arrangement was deemed the most judicious. 
 
 The surveyors general of Kansas and Nebraska, New 
 Mexico and Washington Territories, have repaired to their 
 respective posts, witli full instructions for their guidance and 
 government, under tlie legislation of the last session of Con- 
 gress; but it is not expected that reports can be received 
 from them in time to be laid before Congress, in view of their 
 recent appointment and the remoteness of their fields of labor. 
 The instructions to them, moreover, required much care and 
 consideration, and consequently some time, that they might 
 be fully advised of their duties, and that the intention of 
 Congress should be carried out in their legislation on this 
 subject. As these instructions are voluminous, and will 
 probably be interesting to those of our citizens who may wish 
 to emigrate to either of those Territories, especially those for 
 the examination and adjudication of private claims in New 
 Mexico, I have appended coi)ies of them. 
 
 The land officers for Wasliington and Oregon Territories 
 authorized at the last session of Congress having been ap- 
 p(.iinted, full instructions, with the necessary tract-books, 
 blanks, &c., have been transmitted to their offices, that they 
 may be able, at once, to enter on duty. Those for Kansas 
 and Nebraska were not appointed; and as no surveys have 
 yet been made in those Territories, they would have had 
 nothing to do, and their appointment would therefore have 
 involved unnecessary expense. 
 
 Arrangements have been made for organizing a new land 
 
THE PUBLIC LJ^DS. 167 
 
 district in the southern part of Florida in accordance with 
 the requirements of the act of 5th Aujinst last, which takes 
 effect on the 5th of February next. This act, however, re- 
 quires an amendment, Kivino; authority to tlic President to 
 ap])oint tlie ofiiccrs, and defining their duties and responsi- 
 hilities. All the other laws of the last session which require 
 the action of this office — and they are nearly one-fifth of the 
 whole number passed — have been considered and disposed of, 
 or are in process of execution. 
 
 The able and lucid reports of the surveyors general are 
 herewith communicated, and special attention is respectfully 
 requested to the suggestions and recommendations therein 
 contained. The great amount of surveys executed in their 
 several districts, and the strenuous efforts to secure accuracy 
 in that service, evince the most untiring energy on the part 
 of those officers. 
 
 The report of the surveyor general of Michigan presents a 
 most satisfactory statement of the operations of his district 
 during the past year. He has successfully overcome most* of 
 the difficulties incident to the fraudulent surveys heretofore 
 made, and is pursuing the only plan by which the evils re- 
 sulting therefrom can be remedied. In reference to the sur- 
 vey of the village lots at Sault Ste. Marie, referred to by 
 him, it is proper to state, that in attempting to protract, on 
 a large scale, the surveys formerly made of those lots, as re- 
 quested by this office, the surveyor general found that they 
 would not close ; and, further, that the corners of the blocks 
 and squares had not been properly marked. In view of the 
 increased value of the lots in the village, it was deemed ne- 
 cessary to have them resurveyed with care, having reference 
 to the decisions of the land officers under the law, and the 
 corners permanently marked and established. This has been 
 done, and it is hoped that the whole business will be closed 
 at an early day. It is proper to state, however, that the long 
 delay in disposing of this matter is not attributable either to 
 this office or the surveyor general. 
 
 From the report of the surveyor general of Wiscnnsin 
 and Iowa, whose district includes also the Territory df Min- 
 nesota, it Avill be perceived that the emigration to tliat re- 
 gion is so great that it is impossible for the surveys to keep 
 pace with the settlements, notwithstanding the most judi- 
 cious application of the means placed at his disposal, the 
 unceasing efforts of his deputies, and a devotion to labor on 
 the part of his clerks of about twelve hours cacli day. 
 
 The surveyor general of Illinois and ]Missouri is rapidly 
 brinoiing the labors of his office to a close, and but ibr the 
 
168 THE PUBUC LANDS. 
 
 difficnlt and complicated duties connected with the location 
 and survey of the private claims in his district, would soon 
 have them completed. The granting of the request made 
 hy him for the appropriation of a small sum for the pur- 
 chase of law books for the use of his office is earnestly re- 
 commended as indispensably necessary to enable him under- 
 standingly to adjudicate the intricate and important ques- 
 tions arising in the discharge of his duties. 
 
 The surveyor general of Arkansas, it will be perceived, 
 is only prevented from closing the business of his district by 
 the discovery of frauds in surveying executed many years 
 ago, which require correction or the resurvey of considerable 
 tracts of land. 
 
 The prevalence of sickness in Louisiana during the past 
 season has materially interfered with the field operations in 
 that State; notwithstanding which, very satisfactory pro- 
 gress has been made in the difficult and complicated duties 
 of the district, including the adjustment of the swamp-land 
 grant, Avhich has been nearly completed. 
 
 In Florida the surveys have been closed on the line be- 
 tween that State and Alabama, and arrangements are being 
 made for extending the surveys over the neutral ground sur- 
 rounding the reservation heretofore made for the Seminoles, 
 and also over part of that reservation, including the lands 
 adjacent to Kissimie river and Lake Akechobee, which are 
 represented as among the finest in Florida. 
 
 It will be remembered that the appropriations for survey- 
 ing the keys on the coast of Florida, and the islands off the 
 coast of California have been placed under the direction of 
 the superintendent of the Coast Survey. By this judicious 
 management but little expense is incurred beyond that re- 
 quired for the coast survey purposes; whereas, if these 
 islands and keys were surveyed in the usual manner, in con- 
 nexion with the ordinary land surveys, the expense would 
 be very heavy. Whenever practicable, the coast survey has 
 surveved the necessary boundaries to divide these keys and 
 islands into tracts of suitable size for sale; and where from 
 the nature of the ground this could not be done, posts or 
 corners have been established which can easily be connected 
 by straight lines, so as to produce this result. 
 
 " Plats on this work, covering a very considerable portion 
 of it, and of a character highly satisfactory, have already 
 been ])laced at the disposal of this office, and others are ex- 
 pected at an early day. Advices have also been received that 
 the work on the "coast of California is progressing as rapidly 
 as possible. 
 
THE PUBLIC LANDS. 169 
 
 Special attention is requested to the report of the surveyor 
 general of California, and it is earnestly suggested tluit the 
 most stringent means be adopted to prevent the outra"-es 
 mentioned by him. Iftlic surveyor general cannot l)e sus- 
 tained in the discharge of liis duties, or the marks and 
 monuments of the United States surveys can be obliterated 
 with impunity, the extension of the system over tlie regions 
 of country where such offences are committed is worse than 
 useless. 
 
 The report of the surveyor general of Oregon has not yet 
 been received, but is expected in time to be laid before Con- 
 gress early in the session. 
 
 At tlie last session of Congress action was had on several 
 subjects that had been brought to the attention of tliat body, 
 but there are others which require action, and Avliicli I beg 
 leave to present for consideration. 
 
 The necessity has heretofore been presented of authorizing 
 the department under the direction of the President, to re- 
 store to market lands whicli had been reserved, but wliich 
 were no longer required for the purposes for which they were 
 thus set apart. Numerous, and in some instances, large 
 bodies of land are kept out of market for want of such au- 
 thority, the settlement of tlieir localities materially hin- 
 dered, and special legislation frequently invoked on the 
 subject. The authority now asked would enable the de- 
 partment to dispose of the unimi)roved lands in such reser- 
 vations, under the general laws, and, where improvements 
 had been made at the expense of the government, so to ave- 
 rage the sale as to reimburse such expense. 
 
 The law of April 20, 1854, organizing the new land dis- 
 trict of Cheboygan, in Michigan, having no date, took ef- 
 fect from its passage ; and as the land officers for the old 
 districts out of which it was formed could not be immedi- 
 ately apprized of the change, a number of sales were made 
 in those districts of land which by the act had been trans- 
 ferred to the Cheboygan district. As these sales are illegal 
 under the decision of the Supreme Court in the case of 
 Matthews vs. Zane, the land officers of the Cheboygan dis- 
 trict have been instructed to reserve the lands so entered 
 till Congress can confirm these sales ; and it is respectfully 
 recommended that an act be passed to that effect, with a pro- 
 vision that in all cases hereafter, where laws of this charac- 
 ter are passed without date, they shall take effect six months 
 after their approval. This will give full time to organize 
 the new districts and prevent the confusion and risk of error 
 consequent on hasty action. 
 22 
 
170 THE PUBLIC LANDS. 
 
 Under a misapprehension of the provisions of the relief 
 laws, passed for winding up the old credit system, sales 
 were closed many years ago which were not embraced by 
 these i)rovisions, and patents were issued on them. In 
 other cases illegal subdivisions have been made by the land 
 officers, and those subdivisions sold. To remedy these evils, 
 I respectfully suggest that an act be passed making these 
 patents and sales valid. 
 
 The muniments of titles under the credit system, as^ here- 
 tofore rei)orted, are subject to loss, and are rapidly going to 
 decay. 13 ut few are now living who understand the opera- 
 tions of that system, and hence, in addition to the risk of 
 the loss or destruction of those papers, the holders of titles 
 of which they are the original evidence, may be subject 
 hereafter to inconvenience or actual loss from information 
 derived from those who are not familiar with the details of 
 the system. To obviate all difficulties on the subject, I re- 
 spectlul.ly recommend that autliority be given for recording 
 all these documents, with proper notes showing the entire 
 deraignment of titles in each case. The work would be la- 
 borious and expensive, but little in comparison to the good 
 that will flow from it hereafter, in rendering certain those 
 old titles, and infinitely less when compared with the value 
 of the lands affected by them. 
 
 Uniformity in the action of the several branches of the 
 business of this office renders its duties more simple, and 
 the titles to lands more secure. By the act of 2 2d March, 
 1852, this office was authorized to prescribe the form and 
 regulations for the assignment of land warrants. A like 
 authority in relation to all transfers of entries, so far as 
 they are regarded as assignable by this office, would intro- 
 duce uniformity into this branch, and put at rest the ques- 
 tion of the validity of such assignments. It would, more- 
 over, secure evidence at least, of the identity of the vendor 
 with the purchaser, and thus prevent frauds in assignments. 
 
 The necessity for an act of limitation in relation to sur- 
 veys and sales by the United States is every year becoming 
 more ap})areut, and the expediency of the measure cannot 
 be doubted. So far as the survey of private claims is con- 
 cerned, this office, with your a])])robation, has established 
 the common-law doctrine of estopi)els; but difficulties arise 
 in carrying out this doctrine in relation to the notice of the 
 survey that should be given to the parties in interest, and 
 the length of time that should elapse after such survey be- 
 fore that doctrine should properly apply. To sales or loca- 
 tions no such principle can be applied, as they are regulated 
 
THE PUBLIC LANDS. ITl 
 
 by law. Cases of great hardship may arise to suhsequent 
 purchasers, who, relying upon the evidence given by the 
 United States officers to tlie original parties, buy in good 
 liiitli, and improve the land. If the title is finally fduud 
 illegal or defective, it is vacated; the first purcliaser muy 
 have left the country, and the innocent assignee has no 
 remedy. In cases of this character some general principle 
 established by law would afford relief to the })arties, and 
 obviate the necessity for much special legislation by Con- 
 gress. 
 
 • I beg leave to renew the recommendations in my last an- 
 nual report, not heretofore specially adverted to, and to re- 
 quest for them the consideration their im])ortance requires. 
 
 This city and District, severed by their political i)osition 
 from the fostering care of any one State, are deprived of the 
 assistance given to education by all the States, unless Con- 
 gress, as their special legislators, shall make the necessary 
 provisions for them. This may be done as elsewhere, by do- 
 nations of public lands, under judicious restrictions. 
 
 A number of locations of warrants have been rejected be- 
 cause the parties to whom those warrants were granted had 
 died before the issue of them, leaving neither widows nor 
 minor childreu to receive the grants under the law. This, 
 with the subject of further grants to the old soldiers, or 
 their heirs, is respectfully submitted for consideration. 
 
 The act of the 4th August last, "to graduate and reduce 
 the price of the public lands to actual settlers and cultiva- 
 tors," judging from tlie reports received, has been productive 
 of much fraud and perjury, and jiroved seriously injurious 
 to the actual settlers on the public domain. As far as prac- 
 ticable, these evils have been remedied by construction and 
 instructions; l)ut the law is inherently defective if it be de- 
 signed to ingraft this feature permanently on our land system. 
 The privilege of ]varchasing at the graduated price sliould 
 have been limited to pre-emptors, or made general to all. 
 Now, it is alleged that persons take the oath prescribed by 
 the law, with the mental qualification that the land will be 
 required for actual settlement and cultivation at soine future 
 time. Others, it is stated, liave employed men to go forward 
 and make the affidavit, paying all their expenses, and also 
 paying for the land; the employer agreeing to give his em- 
 ployees, in fee simple, a portion — say one-eighth, or a quarter, 
 of the land so entered — retaining the balance. The only 
 corrective of this abuse, in the power of the office, was to 
 refuse to recognise assignments of entries of this character, 
 and to issue the patents to the persons in whose names the 
 
172 THE PUBLIC LANDS. 
 
 entries were made ; and this rule has been established. Efforts 
 have been made to enter lands actually occupied and culti- 
 vated, but to which the settlers had no pre-emption claim. 
 This has been refused on the f^round that the settlers, being 
 in occupancy of the land, could not, and should not, be ousted 
 of his improvements by a party who wished to settle upon 
 the same land, to the prejudice of the settler's occupancy. 
 Attempts have also been made to enter land in the names 
 of femmes covert, minors, &c. This, too, has been refused, 
 for the reason that the obligation of settlement and cultiva- 
 tion, roiiuired to constitute the right to enter under the law, 
 contemplates a contract; and hence those only can claim the 
 benefit of the act who are capable of contracting. The pro- 
 viso to the second section renders the execution of the law 
 exceedingly intricate, and it is difficult to explain this feature 
 in connexion with the several pre-emption laws in such a 
 manner as to make it thoroughly understood. In fixing the 
 periods for the several classes, fractions of years were disre- 
 garded from necessity, to prevent the dates becoming so nu- 
 merous as to produce confusion. In many cases, as you are 
 aware, the several parts of the same township, for various 
 causes, were offered at different periods, frequently years 
 apart; and hence these several parts are in different classes. 
 In such cases it would have been desirable to fix a mean date 
 as the average period of offering, but the office had not the 
 power to do so. 
 
 The pre-emption clause is a peculiar feature in this law. 
 Its effect is to give to pre-emptors settled on offered lands a 
 perpetual credit, subject only to the risk of entry by others, 
 for one month at the end of each period of graduation ; in 
 other words, to denote the land subject only to this risk. The 
 effect, though ostensibly beneficial to the settlers, would 
 probably prove most disastrous to them in the main. Rest- 
 ing in fancied security, the time in which they would be 
 subject to this risk might be forgotten, and their land and 
 improvements be taken by speculators; or death might in- 
 terpose, and difficulties arise in subsequent domestic arrange- 
 ments as to the persons by Avhom the entries authorized by 
 the law should be made. This would certainly lead to liti- 
 gation, and might have the still more disastrous and unhappy 
 effect of producing discord and contention in families. 
 
 The basis of this law is the length of time the lands have 
 been in market. It has been heretofore fully shown, that 
 from eight to twelve millions of acres have been annually 
 brought into market, while the demand has only ranged from 
 one to four millions. It would be absurd to suppose that all 
 
THE PUBLIC LANDS. 173 
 
 the best lands are first purchased, or that all the lands first 
 entered were of the best quality. Our people are eminently 
 social in their habits, and, moreover, naturally con;^re<:;ate 
 together for the advantages of churches, schools, and mutual 
 assistance. 
 
 The inference is ftiir, therefore, that except the most worth- 
 less class, which was disposed of by the swamp-land grant, 
 a fair ])roportion of lands of all qualities have been annually 
 entered, leaving the same relative proportion in each class of 
 lands subject to entry. Moreover, as time elapses and set- 
 tlements increase and extend, lands comparatively poor and 
 uniVuitful become more valuable, because of increased facili- 
 ties for market, or that the improvements in the nciglibor- 
 hood bring into requisition the peculiar products of those 
 lands. For these reasons, beds of sand and fields of rock or 
 gravel, in the vicinity of growing towns or villages, though 
 unfit for cultivation, are actually more valuable to their 
 owners, on account of the materials for building and improve- 
 ment obtained from them, than the most productive agricul- 
 tural lands. The best evidence of these facts is found in the 
 State of Ohio, Avhere the richest lands had all been taken 
 years ago, and yet, in proportion to those remaining unsold, 
 the sales have been heavier than in any other of the land 
 States. Indeed, evidence might be produced to almost any 
 extent corroborative of this view, or showing, rather, that, 
 generally speaking, lapse of time is a better reason for in- 
 creasing than for decreasing the price of lands. 
 
 This, however, is not the only erroneous view that seems 
 to have been entertained on the subject of the public domain. 
 It has been alleged, on the one hand, that by it injustice is 
 done to tlie old States, while the utmost liberality is mani- 
 fest-ed towards the new; and on the otlier, that in conse- 
 quence of the Government being the great landholder in the 
 new States, and its lands not subject to taxation, the sparse 
 settlements of those States are compelled to sustain the 
 expenses of State, county, and municipal governments, 
 unaided by the means that should be derived from taxing 
 all the lands. These views, on both sides of the question, 
 are, to a greater or less extent, erroneous, as the facts will 
 show. 
 
 The land system was originated by Jefierson, and fashioned 
 into form by that great statesman, aided by Livingston, 
 Gerry, Howell, Read, Williamson, Lang, King, Johnson, 
 Stewart, Gardner, Henry, Grayson, Ball, Houston, and Mon- 
 roe. In the enactment of the ordinance of 1785, and the 
 acts of 1796, 1800, and 1805, the nation had the benefit of 
 
174 THE PUBLIC LANDS, 
 
 the wisdom and patriotism of the sages, who, under Heaven, 
 founded our free and happy government. The advancement 
 of the puhlic interest was then the onlyohject sought. The 
 heavy deht of the revolution pressing on the young repuhlic 
 required liquidation, and every means at the disposal of the 
 gov^ernment was carefully and judiciously applied to that 
 object. Among these the public lands were considered a per- 
 manent and prominent item. With the utmost care, fore- 
 cast, and wisdom, the land system was brought to perfection 
 by a series of laws and executive and judicial decisions, till, 
 by the passage of the act of 24th April, 1820, the cash was 
 substituted for the credit system. 
 
 This is a brief summary of the inception and progress of 
 our land system, which has continued for over seventy years, 
 unaffected by any radical change till the passage of this 
 graduation act, and which, in its past history for simplicity, 
 harmony, certainty, and uniformity, has commanded univer- 
 sal admiration. 
 
 Let us now see how this system has been administered, 
 with special reference to the benefits derived from the public 
 lands by the old and new States respectively, excluding, of 
 course, the lands on the Pacific. 
 
 The bounty lands for services in the revolutionary war, 
 and that of 1812, flowed mostly to the citizens of the old 
 States, and (say) one-half of those for services in the Mexi- 
 can war. 
 
 The amount actually paid to the old States, under the act 
 of 4th September, 1841, of the surplus revenue, is, of course, 
 charged to those States. 
 
 As tlie proceeds of the public lands went into the treasury, 
 and were applied to aid in defraying the expenses of the 
 Government, the necessity was thus obviated of increasing 
 the tariff" to that amount. The tariff, it is admitted, bears 
 more equally on the entire population of a country than 
 any other tax. The old States originally, and until within 
 a few years, Averc vastly more populous than the new, and 
 this relief, therefore, applied in the same proportion. Sup- 
 pose then, that for the entire period of the operation of the 
 laud system, the average i)roportion of the population of the 
 old States to that of the new was as three to one: on this 
 basis the people of the old States would have been benefited 
 by three-fourths of the proceeds of the public lands, and 
 those of the new States by one-fourth of those proceeds. 
 
 To stat« the account, then, on these hypotheses, the old 
 States are chargeable with the amount of lands given as 
 bounties in the revolutionary war and that of 1812, including 
 
THE PUBLIC LAXDS. 175 
 
 that under the acts of 1850 and 1852— say 19,200,297 acres, 
 
 equal to $24,011,020 00 
 
 One-half of the act of 1847— say G,477,880 
 
 acres, equal to 8,097,330 00 
 
 Amount actually paid the old States under 
 
 the act of 1841 409,912 42 
 
 Three-fourths of the proceeds of the public 
 
 lands 113,676,758 67 
 
 Making a total of. 146,195,641 09 
 
 the benefit of which has flowed chiefly, if not entirely, to the 
 people of the old States. This amount, it will be remem- 
 bered, is exclusive of the sum of more than forty-eight and a 
 quarter millions net receipts for imports at the ports of Flo- 
 rida and Louisiana, which went into the treasury, and by 
 which the people of the old States were also proportionably 
 benefited. 
 
 One of the greatest benefits, however, to the old States, and 
 that which cannot be estimated by dollars and cents, was the 
 opening given by the new to the ambitious and enterprizing 
 citizens of the former, and the facilities furnished them by 
 Government of obtaining valuable farms at mere nominal 
 prices. They have also enjoyed immense benefits from the 
 products of the West — the sup]dy being vastly increased 
 thereby, and the cost proportionably reduced. 
 
 On the other hand, grants have been made to the new 
 States and Territory of Minnesota for schools, academies, uni- 
 versities, seats of government, public buildings, and internal 
 improvements; the swamp lands being left out of the account, 
 because, by the terms of that grant, the proceeds Avere to be 
 applied in draining those lauds — say 34,89l,063TVTr acres, 
 
 equal to $43,613,829 50 
 
 One-half the bounty-land act of 1847—6,477,- 
 
 880 acres, equal to 8,097,350 00 
 
 Amount actually jmid under the act of 1841.. 178,141 39 
 
 One-fourth the proceeds 37,892,252 89 
 
 Two, three, and five per cent, fund 4,502.813 34 
 
 Making a total of 94,344,387 12 
 
 the benefits of which would have flowed to the new States on 
 this basis. 
 
 Thus it will be perceived that mutual benefits to an im- 
 mense extent, and in about equal })roportion, have flowed to 
 both the old and new States under this judicious system; and 
 if either has apparently the advantage, it is all within the 
 
176 THE PUBUC LANDS. 
 
 one grnat family, and not a sufficient ground of controversy 
 between sires and sons. 
 
 The true ])olicy of the land system is, first, to encourage 
 the actual settlement and improvementof the public domain. 
 This may be done by sucli amendments to the pre-emption 
 laws as ex})erience may prove necessary for the purpose, and 
 by which every actual settler may secure his improvements 
 in a reasonable time, without risk of competition from specu- 
 lators. 
 
 And, second, to aid in providing the necessary facilities 
 for intercommunications, and for the transportation of the 
 jiroducts of the lands to market. Although the railroad ex- 
 citement, in many cases, has been carried to excess, experi- 
 ence has proved that grants for such purposes, when carried 
 out in good faith, are alike beneficial to the people, the States, 
 and the general government. 
 
 To prevent mere speculation, and to secure an equivalent 
 to the government for the lands granted for those purposes, 
 some modifications in the acts making them seem proper — 
 as, for instance, that no grant should be made except on the 
 application of the legislature of a State; that the lands 
 should be taken in alternate sections within a certain dis- 
 tance on each side of the improvement, the minimum price 
 of the remaining sections to be doubled, throughout the 
 whole extent of the grant; and the lands to be certified to 
 the States as the work progresses, with a provision of for- 
 feiture in case of failure. 
 
 It is impossible to portray the vast benefits already derived 
 by the West from this system. Immense regions have been 
 disposed of that were thought to be wholly unsaleable, be- 
 cause of the difficulty of access ; and so numerous are the ap- 
 plications for these lands, that in some cases, for want of 
 time, they cannot be acted on for months after they are 
 made. The government has consequently been benefited, as 
 will be seen in part from the following tables: 
 
THE PUBLIC L.\NDg. 
 
 m 
 
 A. — Within the six mile limit. 
 
 Statement shou-ing the quantity of land sold, with amount of purchase money received 
 Jot the same; also, the quantity located within the six and fifteen mile limits of the 
 Illinois Central railroad, from the date of beiny offered at public sale to the 30tA 
 September, 1854, within the State of Illinois, by land districts. 
 
 Districts. 
 
 D.ite wlicn 
 oH'i.-rcil. 
 
 Quantity. 
 
 Purchase 
 money. 
 
 Quantity loca- 
 ted with war- 
 rants. 
 
 Excess pur- 
 cliaso money 
 upon locations 
 with warr.-iiiLi. 
 
 Shawneetown 
 
 Kaskaskia. 
 
 July 19, 1852 
 July 5, 1852 
 
 Sept. 20, 1852 
 Aug. 2,1852 
 
 Aug. 23, 1852 
 Sept. 1,1852 
 Aug. 16, 1852 
 
 Acres. 
 5,246.02 
 36,826.00 
 
 62,240.-34 
 146,238.91 
 
 132, 480. .58 
 
 35,801.23 
 
 5,640.00 
 
 $1.3,116 06 
 92,068 93 
 
 160,600 00 
 375,845 05 
 
 332,531 79 
 91,217 89 
 14,100 00 
 
 Acres. 
 2,235.78 
 18,147.90 
 
 57,903.16 
 
 $2,754 80 
 22,882 87 
 
 Edwardsville 
 
 Dixon 
 
 72.378 9.'i 
 
 
 118,548.99 140,961 11 
 
 
 
 
 118,806.33 149,835 97 
 
 
 13 574 40 18,262 16 
 
 Palestine 
 
 12,000.00 15.000 00 
 
 
 
 Within six mile 
 
 
 424,473. Os'l. 079. 478 72 
 
 341,216 56' 4:^.0. 0'?:'! 86 
 
 
 
 
 
 
 B. — Within the fifteen mile limit. 
 
 Districts. 
 
 Date when 
 otTered. 
 
 ^--^'>- ''irir 
 
 Quantity loca- 
 ted with war- 
 nnts. 
 
 Excess pur- 
 chase money 
 upon location^ 
 with warrants. 
 
 Shawneetown 
 
 July 19, 1852 
 July 5, 1852 
 July 12, 1852 
 Sept. 20, 1852 
 Aug. 2,1852 
 July 26, 1852 
 Aug. 23, 1852 
 Sept. 1,1852 
 Aug. 16, 1852 
 
 Acres. 
 41,352.57 
 35,700.96 
 
 3,497.95 
 49,943.04 
 66,215.91 
 26,123.00 
 99,886.08 
 
 5,160.67 
 21,000.00 
 
 $51,690 68 
 
 44,680 40 
 
 4,349 93 
 
 62'. 438 80 
 
 82,863 73 
 
 33,400 26 
 
 125,097 4G 
 
 o!492 06 
 
 27,304 19 
 
 Acres. 
 
 66,673.06 
 
 39,700.99 
 
 7,926.95 
 
 184,914.86 
 
 382,453.29 
 
 94 989.00 
 
 $1,140 92 
 5S5 66 
 
 Edwardsville 
 
 Dixon 
 
 16 82 
 8,870 08 
 
 Vandalia 
 
 6,889 99 
 
 Springfield 
 
 7r.(i on 
 
 Danville 
 
 369. 829.72]' 17.740 17 
 
 Chicago 
 
 4li9,3G.08! 
 
 l*iiles tine 
 
 75 000 00' "^53 23 
 
 
 
 Within fifteen n 
 
 ule„ 
 
 348,880.18 
 
 438,317 51 
 
 1,26.3,424.55 
 
 36,256 92 
 
 
 
 Acres sold within both limits 773,353.26 
 
 Acres located within botli limits; 1,604,041.11 
 
 Total sold and located with military war- 
 rants ■ ". 2,37 7,994.37 
 
 Cash received for land sold $1,517,796 23 
 
 Excess in cash upon locations with warrants... 466,332 78 
 
 Total cash received Ji^^i'i29_01 
 
 Cash value of warrants surrendered $2,005,081 38 
 
 23 
 
178 THE PUBLIC LANDS. 
 
 The necessity for means of communication between the Pa- 
 cific and the Mississippi, across the continent, is becoming 
 more apparent and pressino; every year. The only mode by 
 which this can be accom]dished is a grant of the character 
 above alluded to. No State can do it ; it has not the power 
 to go beyond its own limits. The work is too vast for pri- 
 vate enterprize, and too important for further delay. Should 
 the land system be crippled, this work, and all others of like 
 character, will be rendered impracticable. If the object 
 sought in the passage of the graduation act was to get rid 
 of the lands as soon as practicable, tliere is but little doubt 
 that object will be attained by it. If, on the contrary, tlie 
 supposition was tliat the lands would not sell for more, the 
 foregoing, I think, will satisfactorily show that supposition 
 to be erroneous. The sales have always been equal to the 
 demand; the supply far, very far, beyond it. The demand 
 at the reduced prices will be increased, but chiefly for pur- 
 poses of speculation; and the hardy and enterprizing settler, 
 instead of dealing with a kind paternal government in the 
 purchase of his land, and securing a perfect title, will have 
 to look to the wealthy monopolist and trust to his tender 
 mercies, with the risk that h'is title is encumbered by prior 
 liens or mortgages. 
 
 With these views, the natural suggestion is, that the gradu- 
 ation law be radically amended, if it be the pleasure of Con- 
 gress to ingraft it ])ermanently on the land system; and in 
 that event it is further suggested that the twelve-and-a-half- 
 cent class be abolished, or rather donated to the States re- 
 spectively in which they lie, as the profit will scarcely defray 
 the expenses of disposing of them. 
 
 The materials to answer the resolution of the House of 
 Representatives of the 4th of August last cannot be prepared 
 in time to ))e laid before that body at the commencement of 
 tbe next session. That resolution requires "that tlie Secre- 
 tary of the Interior cause to be prepared for the use of the 
 House of Representatives, during the recess of Congress, a 
 statement of the time the public lands may have, been in 
 market, as well as the quantity, classified according to the 
 act gradiuiting and reducing the price of the public lands, 
 passed 4tli August, 1854." Tlie statistics now on hand can- 
 not aid in preparing an answer to this resolution, even if 
 they could be relied on. 
 
 The classification of the lands is progressing as rapidly as 
 possible; and when completed, it will be necessary to ascer- 
 tain the amount in each township that remains vacant, as 
 well as the time of offering, that the classifications required 
 
THE PUBLIC LANDS. 179 
 
 by the act may from time to time be made. This work is 
 tedious and slow, and requires the services of those who are 
 familiar with the land system. To obtain a starting-point, 
 it was necessary to post all sales, locations, and selections up 
 to 1st July last. This is mostly done, and every effort cuii- 
 sistcnt with a due regard to correctness will be made to pre- 
 pare the answer to the resolution at the earliest day prac- 
 ticable. 
 
 All of which, with the accompanying documents, is most 
 respectfully submitted. 
 
 Your most obedient servant, 
 
 JOHN WILSON, 
 
 Convmissioner. 
 
VIII.-INDIAN AFFAIRS. 
 
 KEPORT OF THE COMMISSIONER OF INDIAN 
 AFFAIRS. 
 
 Department of the Interior, 
 Office Indian Affairs, Nov. 25, 1854. 
 
 Sir : I submit for your consideration, the usual annual 
 report from this branch of the public service, referring to 
 the accompanying reports of the diiferent superintendents, 
 agents, sub-agents, and other communications, for detailed 
 information respecting the operations of the department 
 and the condition of the various Indian tribes. 
 
 The remnants of the " Six Nations," remaining in_ the 
 State of New York, present the interesting spectacle of one 
 of the most renowned portions of the aboriginal race of this 
 continent, still adhering, Avith traditional tenacity and vene- 
 ration, to the homes of their forefathers. Subjected to many 
 trying and adverse vicissitudes, by which their numbers and 
 territorial possessions have been greatly diminished, this 
 once barbarous and heathen people, devoted only to war and 
 the chase, have undergone one gratifying change, and now 
 generally acknowledge, and partially practise, the more en- 
 nobling and beneficial principles and pursuits of Christi- 
 anity and civilization. Internal dissensions, alluded to in 
 former reports, have materially interfered with their ad- 
 vancement and welfare ; but these it is hoped will all soon 
 cease, and never hereafter be renewed. 
 
 The peculiar and unfortunate situation of the Indians in 
 the State of Michigan, consisting, mainly, of the confede- 
 rated bands of Ottowas and Chipiiewas, was fully stated 
 last year, and the measure deemed best lor their preserva- 
 tion and welfare suggested. It is requisite that there be 
 new conventional arrangements with them, providing for 
 material changes in tlieir ailairs, and in their relations with 
 the United States and the State of Michigan. Sucli ar- 
 rangements could not be effected without more or less ex- 
 pense ; and, on the ai)plication of tlie de])artment, the sum 
 of ten thousand dollars was apprt)priated therefor by Con- 
 gress. But, in consequence of the late period at whicli the 
 
 180 
 
INDIAN AFFAIRS. 181 
 
 appropriation was made, and other circumstances, it has 
 been deemed advisable to postpone further proceedings until 
 the next year. 
 
 By tlie convention with the Monomonees of the r2t]i of 
 May last, tliey relinquisli tlieir rit^ht to a large tract of coun- 
 try in Minnesota, west of tlie Mississippi river, set apart fir 
 their permanent home by the treaty of 1848, but which, 
 proving to be unsuitable for that purpose, was therefore un- 
 acceptable to them. In exchange therefor they were con- 
 firmed in the possession of a portion of the tract on the 
 Wolf and Oconto rivers, in Wisconsin, which, with the as- 
 sent of the authorities of that State, had been assigned for 
 their use, and to wliich they had removed. The tract 
 granted them by the treaty of 1848 was guarantied to con- 
 tain not less than six hundred thousand acres; that secured 
 to them by the convention of May last, embraces only two 
 hundred and seventy-six thousand four hundred and eiglity 
 acres, and is deemed to be more than ample for tlieir com- 
 fortable accommodation. The lands retroceded by them, 
 though not suitable for their purposes will be equally valu- 
 able to the government, if not more so than those granted 
 in exchange. 
 
 In consideration of the great difference in the quantities 
 of the lands thus exchanged, and because it Avas believed 
 that the consideration stipulated for the lands they had 
 been induced to cede by the treaty of 1848 was inadequate, 
 in addition to the pecuniary and other beneficial provisions 
 of that treaty, which were continued to them, the sum of 
 one hundred and fifty thousand dollars was stipulated to be 
 paid in fifteen annual instalments, commencing with the 
 year 1807, when the payments in fulfilment of the treaty of 
 1848 will expire. This consideration wa^ increased by the 
 Senate, in the additional sum of ninety-two thousand six 
 hundred and eighty-six dollars; making the aggregate 
 amount of two hundred and forty-two thousand six hundred 
 and eighty-six dollars. Having thus been jiermanently and 
 most liberally provided for, and all causes of discontent re- 
 moved, it is hoped and believed that in a few years the IMe- 
 nomonees will exhibit some evidence of moral and social ad- 
 vancement. 
 
 The department has been perplexed and embarrassed by 
 the refusal of that portion of the Stockbridge Indiann of 
 Wisconsin, parties to the treaty of 1848, to accept the tract 
 of land selected for them in accordance with that treaty, and 
 to which selection they at one time gave their assent. They 
 are, or pretend to be, anxious to remain where they now 
 
182 INDIAN AFFAIRS. 
 
 are, at Lake Winnebago ; and individual members of tbe 
 band have repeatedly visited this city to urge an arrange- 
 ment to that cftect. For reasons stated in my special report 
 to you of the 25th ultimo, their application could not be 
 granted. The only alternative seems to be to find them a 
 suitable home witliin tlie limits of Wisconsin ; and as they 
 require but a very small tract, this can be accomplished 
 without prejudice to the interests of the white population of 
 the State. It should not be done, however, without making 
 provision for all belonging to the band — those jxarties to 
 the treaty of 1848, and those who were not ; including also 
 tlieir brethren the Munsees, whose rights and interests were 
 entirely disregarded in that treaty. It is much to be re- 
 gretted that such an arrangement has not heretofore been 
 etfected ; as the distracted condition of these Indians, and 
 the uncertainty as to their future destination, have been of 
 serious injury to them. A recent personal visit disclosed 
 manifest evidences of a former state of advancement and 
 prosperity far beyond Avhat they now enjoy. 
 
 The only other Indians having territorial rights in Wis- 
 consin are tlie band of Oneidas, who occupy a small reser- 
 vation near Green Bay, and are so far advanced in civiliza- 
 tion as to justify the presumption that, like the Brothertons, 
 tliey will at no distant day, dissolve their tribal organiza- 
 tion and become citizens. 
 
 There are, however, within the limits of Wisconsin, and 
 also within the northern peninsula of Michigan, a few 
 small bands of the Chippewas of Lake Superior, who still 
 occupy tlieir former locations on lands ceded by the treaties 
 of 1837 and 1842. It has not, thus far, been found necessary 
 or practicable to remove them. They are very unwilling 
 to relinquisli their present residences, as are all the other 
 bands of tlic same Indians; and it may be necessary to per- 
 mit them all to remain, in order to acquire a cession of the 
 large tract of country they still own east of the Mississippi, 
 which, on account of its great mineral resources, it is an 
 object of material importance to obtain. They would re- 
 quire but small reservations; and thus permanently settled, 
 the efforts made for their improvement will be rendered more 
 effectual. 
 
 The Chippewas who reside in Minnesota, west of the Mis- 
 sissippi, are not, it is understood, desirous of ceding any por- 
 tion of their country west of that river; nor is such a cession 
 at this time deemed absolutely necessary, so far as the wants 
 of our citizens are immediately concerned; yet, in view of 
 the rapid spread of population in that direction, and of the 
 
INDIAN AFFAIRS. 183 
 
 future interests of tlie Indians themselves, it is believed that 
 an early opportunity should be embraced to circninscribe 
 their limits, and to concentrate them upon permanent loca- 
 tions, as recommended lor their brethren on the east side. 
 There are also bands of Chippewa Indians residinf^- in tlie 
 region north of the head-waters of the Mississippi, who, from 
 the imperfection of former treaties, do not participate in their 
 benefits, and are therefore in a very destitute condition. Some 
 arrangement should be made to secure to them the means of 
 subsistence and improvement. 
 
 It having been found that the country proposed to be given 
 to the Winnebagoes, by tlie agreement made Avith them last 
 year, for an exchange of lands, would, in many respects, be 
 an improper location for them, it was recommended by the 
 department that the agreement should be so amended as to 
 assign them a location on the southern branch of the Crow 
 river, to include Eed Cedar Island lake. 
 
 The amendment which was adopted by the Senate au- 
 thorized the assignment of this location to them, or one 
 furtlier west, as might on examination be found most ad- 
 visable. A reconnoissance of the country west having thus 
 been rendered necessary, the arrangements for the jjerma- 
 nent establishment of these Indians, unfortunately for them, 
 have not yet been consummated. 
 
 The difficulties connected with our relations with the Sioux 
 Indians of Minnesota were, a year ago, as explained in the 
 last annual report, of a serious character, but they have 
 happily been surmounted. Congress having, at its late 
 session, confirmed to these Indians the reservations origi- 
 nally intended for them by the treaties of" 1851, measui-es 
 were promptly adopted for concentrating them thereon, and 
 for commencing a system of operations calculated to domes- 
 ticate and improve them. 
 
 During the past season articles of agreement and conven- 
 tion were concluded with the Omaha, Ottoc and I\Iissouria, 
 Sac and Fox of jMissouri, Iowa, Kickapoo, Delawaie, Shaw- 
 nee, Kaskaskia, Peoria, Wea, Piankeshaw, and ]Miaini In- 
 dians, all residing within the central superinteinlency, and in 
 the newly organized Territories of Nebraska and Kansas. 
 These tribes possessed lands bounded on the east by the 
 western boundaries of the States of Missouri and Iowa, and 
 lying between the parallels of 3*7 deg. and 42 deg. 40 min. 
 north latitude, embracing, in the aggregate, nearly 15,000- 
 000 of acres; all of which, with the exception of about 
 1,342,000 acres, being the amount of their several reserva- 
 tions, was ceded to the government. All the cessions vest 
 
184 IXBIAX ATFAIRS. 
 
 the title unconditionally in the United States, except those 
 from the loways. the confederate band of Kaskaskias and 
 Peorias. Weasand Piankeshaws. and the Delawares. The 
 stipulations with these tribes are, that the land ceded by 
 them (except the Delaware outlet) shall, after survey, be 
 offered at public sale, and sold to the highest bidder; and 
 such portions as are not so sold shall be subject to entry at 
 |1 25 per acre for the term of three years: after which time 
 Congress may reduce the price of the land then remaining 
 unsold. The expense of surveying, managing, and selling 
 the land is to be deducted from the proceeds of the sales, 
 and the residue to be paid to the Indians. 
 
 The prices stipulated for the lands acquired in Nebraska 
 do not exceed the average prices given heretofore for Indian 
 lands, whilst those for the acquisition in Kansas are greater. 
 This is attributed to the higher grade of title possessed by 
 the Indians treated with in the latter Territory, but which 
 will not necessarily be the case in the conventions contem- 
 plated to be held with the tribes there, who are the mere 
 holders of title without guaranty for perpetuity by the United 
 States. 
 
 The payments have been graduated and extended so far as 
 was deemed judicious, in view of the condition of the tribes 
 dependent, from present habits, upon annuities for subsistence. 
 But perpetual annuities have been discountenance, as tending 
 to indolence and helplessness. The moneys have been placed, 
 except in a few instances, and in those to a limited extent, 
 under the control of the President of the United States, to 
 be so applied as will, in his opinion, most conduce to civili- 
 zation, comfort, and mental and moral improvement; and 
 the payment of debts contracted by a few individuals, or 
 alleged' to have been contracted by them in the name of the 
 tribes, and termed national obligations, heretofore a prolific 
 source of bribery and corruption, are expressly forbidden. 
 
 The lands thus acquired are of excellent quality, eligibly 
 situated, are now l>eing rapidly settled, and will soon be 
 brought under cultivation by that portion of our population 
 who intend to make these Territories their future homes. 
 
 Congress appropriated the funds necessary to fulfil the 
 stipulations of these conventions, the Senate having ratified 
 all without amendment, except those with the Miamies and 
 Shawnees. The amendments to the former did not require 
 the assent of the Indians; and those to the latter were as- 
 sented to by the Shawnees, coupled with the condition that 
 neither the' present nor any future council of the tribe should 
 ever appropriate any of the funds stipulated to be paid them 
 
INDIAN AFFAIRS. 185 
 
 to the satisfaction of certain pretended claims of E. W. Thomp- 
 son. G. C. Johnson, and Ewings and Clymer, atjainst the 
 tribe. The condition was deemed of such a character as to 
 require the consideration and action of the Senate, and the 
 paper was returned to the Indians, with a suggestion hv the 
 department tliat they should cancel it, make their assent un- 
 conditional, and, if they desired to do so, express their views 
 of these claims in the form of an independent resolution. 
 This suggestion was adopted by the Shawnees, the amend- 
 ments unconditionally assented to, and a resolution unani- 
 mously adopted expressive of the wish and desire of the 
 Shawnees, "tliat no countenance be given by any of the 
 departments at Washiugton to the aforesaid pretended claims, 
 or any other of a like character." 
 
 There are several other tribes in Kansas Territory with 
 which it will be necessary to have new conventions at an 
 early day; and it is also very important that arrangements 
 be made as soon as practicable Avith the Pawnee and Poncah 
 Indians, of Nebraska, by which their limits may be restricted 
 and defined, and their assaults upon emigrants, and their* 
 hostile excursions against other tribes, terminated. 
 
 "Within the central superintendency no perceptible im- 
 provement has taken place during the year in the moral 
 condition of the Indian tribes; while the unusual and pro- 
 tracted drought that has prevailed in that region of country 
 has caused, in many instances, an almost total failure of the 
 crops of some of those who have heretofore attempted to 
 cultivate the soil. 
 
 Some of the tribes will have corn sufficient to supply their 
 necessities; and to guard against inevitable suffering and 
 want, it has been determined to retain a portion of the an- 
 nuities of the present year due to such as are destitute of 
 provisions, and thus afford them the means necessary to pro- 
 cure food during the approaching winter and spring. 
 
 The various bands of Sioux, Gros- Ventres, Arickarees, 
 and others of the Upper Missouri agency who are parties to 
 the treaty of Fort Laramie, received their annual presents 
 and annuity goods with great satisfiiction. The Arickarees, 
 Mandans, and Gros-Ventres informed the agent that he 
 might in future dispense with any further su})ply of corn, as 
 they had raised enough for their own use, besides a quantity 
 to sell. The rapid dispersion of the buffalo, and other causes 
 alluded to in the report of the agent, require that such action 
 be taken at once as will lay a foundation for the future sup- 
 port of these people. 
 
 The discontent of some of the bands on the Upper ^lis- 
 24 
 
186 INDIAN AFB'AIRS. 
 
 souri, and the attempts of those who committed tlie massa- 
 cre near Fort Laramie — alluded to elsewhere — to enlist all 
 the Indians of that region to join them in a general war ou 
 the whites — for details of whicli you are referred to the re- 
 port of the agent — are, in my judgment, sufficient to require 
 prompt action and such military defences as will be suffi- 
 cient to protect those avIio may travel over the plains next 
 spring. 
 
 The Omaha, Ottoe, and Missouria, and the Pawnee tribes, 
 embrace the Indians in the Council Bluif agency. Through 
 the neglect of their former agent, and the delay necessarily 
 occasioned by his rejection by the Senate, and the appoint- 
 ment and qualification of a successor, these Indians have 
 had but little attention during the past season. The Oma- 
 has and Pawnees have, it is understood, raised and gathered 
 less than an average crop of corn, but the Ottoes and Mis- 
 sourias are without food for the winter, and all of them are 
 nearly destitute of clothing. When recently in Nebraska, I 
 directed the agent to make provision for the necessary wants 
 *of the Omahas, and Ottoes and Missourias; and to proceed 
 at once, with parties of each to select the reservations pro- 
 vided for in tlie recent treaties, so that these Indians may 
 be removed early in the spring. 13y the treaty with tlie 
 Omahas it is stipulated that the United States will protect 
 them in their new home from the assaults of the Sioux and 
 other hostile tribes. Without this protection they will 
 not, and indeed ought not to remove; and the military post, 
 before alluded to, should be located with reference to such 
 protection. 
 
 Tlie Indians of the Great Nemahaw agency, comprising 
 the Sacs and Foxes of Missouri, and tlie loways and Kicka- 
 poos, will, with the partial crop raised by them, and the 
 portion of their annuities withheld to meet tlieir necessities, 
 get along without any serious inconvenience. It is gratify- 
 ing to know that some of the Indians of this agency are im- 
 pressed with the necessity of exerting themselves to change 
 their mode of life, to adopt new habits, and to liave their 
 means emj'loyed in the erection of houses and the opening 
 and cultivation uf farms. 
 
 The crops of the Indians within the four agencies embra- 
 cing the Delawares, Shawnees, Wyandots, Pottawatomies, 
 Kansas, Sacs and Foxes of the Mississippi, Chip[)ewas, Otto- 
 was, Kaskaskias, Peorias, Weas, Piankesliaws, and Miamies, 
 have, to a very great extent, failed, and suffering to an unu- 
 sual degree will only be prevented by the application of a 
 portion of the ample money-annuities, which most of them 
 
INDIAN AFFAIRS. 18T 
 
 have, to the purchase of such supplies as may be necessary 
 for their comfort. 
 
 The ageuts have hecn instructed to cause tlie exterior lines 
 of the tracts reserved hy the recent treaties with the tril)es 
 west of Missouri and Iowa for their future lionies to he sur- 
 A-eyed and distinctly marked, so that the Indians may re- 
 move within them at the earliest practicable period. In the 
 case of the Shawnees, the united tribe of the Kaskaskias and 
 others, and the IMiamies, the homes of the Indians cannot 
 be selected until the government surveys are made, embra- 
 cing the tracts ceded by them; and it is tlierefore very de- 
 sirable that the public surveys in the Territory of Kansas 
 should be prosecuted without delay. 
 
 The tribes in Kansas and Nebraska with Avhom conven- 
 tions have recently been concluded, as well as several otliers 
 within the range of the emigration to those Territories are 
 now undergoing a severe trial, and it is by no means sur- 
 prising that their moral condition has not improved during 
 the pa'st year. IMost of them were to remove to new loca- 
 tions; but the conventions had first to be ratified by the 
 Senate, and the necessary appropriations made to carry out 
 their provisions. In this unsettled state, the minds of the 
 Indians were ready for any and every impression that the 
 circumstances surrounding them Avould be calculated to pro- 
 duce. The effect has been, and will continue to be unfavor- 
 able to them, until they can be placed securely in their new 
 homes; and it will then require the most faithful attention on 
 the part of their agents, and the constant and devoted ef- 
 forts of the missionaries and teachers to prevent them from 
 contracting the vices and rejecting the virtues of civilized 
 life. 
 
 It is gratifying, liowever, to notice the fact tliat, in the 
 midst of these adverse influences, the various mission scliools 
 within the central superintendency from which reports have 
 been received are in a sound, if not flourishing condition, 
 and the number of Indian youth attending them is equal to 
 that of any former year. 
 
 As heretofore reported to you, an association of persons 
 has undertaken to appropriate to their own use a portion of 
 the land ceded by the Dehuvares, fronting on tlie Missouri 
 river, and south of Fort Leavenworth; liave laid out a 
 citv thereon, and actually had a public sale of the lots of the 
 same on the 9th and lUtli of October last. These unlawful 
 proceedings have not only taken place under the eyes of the 
 military officers stationed at the fort, but two of them are 
 said to be members of the association, and have been active 
 
188 INDIAN AFFAIRS. 
 
 agents in this discreditable business. Encouraged by these 
 proceedings, and prompted by those engaged in them, other 
 persons have gone on other portions of the tract ceded by 
 the Delawares in trust to the tJnited States, and pretend to 
 have made, and are now making, such " claims" as they 
 assert will vest in them the lawful right to enter the land 
 at the minimum price under the pre-emption law of July 
 22, 1854. 
 
 It is well understood that these parties can acquire no title 
 to the lands thus "claimed." They must be sold at public sale 
 to the highest bidder, and the stipulations of the treaty com- 
 plied with in good faith; and the government should at 
 once interpose its authority, and expel all who are trespass- 
 ing on the Delaware cession. The effect has already been 
 injurious to the peace of the Delawares, and it is due to 
 them that such prompt and unmistakeable action be had as 
 will assure them that the United States will keep its faith. 
 The Indians should under no circumstances be permitted 
 to become dispirited, or to lose confidence in the public 
 authorities, for if they do, all efforts to civilize them or im- 
 prove their condition must be unavailing. Procrastination 
 or delay in this case will induce others to trespass on the 
 similar cessions made by the loways and Kaskaskias, and 
 others, if not upon the homes reserved by these and other 
 Indians. 
 
 In view of the fticts above stated, I am constrained to sub- 
 mit a few suggestions in relation to the emigrated tribes in 
 Kansas Territory, who, by the policy of the government 
 adopted more than thirty years ago, and reluctantly acqui- 
 esced in by them, were removed to, and became inhabi- 
 tants of, the country now embraced in this Territory. Al- 
 ready many of them have ceded, and it is expected that 
 others will cede, the larger portion of their lands to the 
 United States for the use and occupation of our citizens. 
 The faith of the nation Avas pledged in the most solemn form, 
 before these tribes removed to the region west of the Missis- 
 sippi, that they should have the undisputed possession and 
 control of the country, and that the tracts assigned to them 
 therein should be their permanent homes. It was called the 
 " Indian Territory," and the intercourse act made it unlaw- 
 ful for white men to go into it, except on a license obtained, 
 and for special purposes : and, in this secluded home, it was 
 believed the efforts of the government and the philanthropist 
 to civilize the red man would be more successful than ever 
 before. Such was not the case, however. Our population 
 advanced rapidly to the line which Avas to be the barrier, and, 
 
INDIAN AFFAIRS. 189 
 
 with the emi<:ijration consequent upon our acquisitions from 
 Mexico and tlie organization of our new TerritDries, neces- 
 sarily subjected the Indians to tliat kind of contact witli the 
 whites which was sure to entail on them the vices, while de- 
 prived of the good influences, of civilization. 
 
 In the recent negotiations for their lands, the Indians 
 dwelt upon the former ])ledges and promises made to them, 
 and were averse generally tt) the surrender of any portion 
 of their country. Tliey said tliat they were to have the land 
 "as long as grass grew or water run," and they feared the 
 result if they should consent to yield any part of their pos- 
 sessions. AVhen they did consent to sell, it was only on the 
 condition that each tribe should retain a portion of their 
 tract as a permanent home. All were unitedly and firmly 
 opposed to another removal. So fixed and settled was this 
 idea that propositions clearly for their interest were rejected 
 by them. 
 
 The residence of the tribes who have recently ceded their 
 lands should, therefore, be considered (subject in a few cases 
 to a contraction of limits) as permanently fixed. Already 
 the white jiopulation is occu})ying the lands between and 
 adjacent to the Indian reservations, and even going Avest of ■ 
 and beyond them; and at no distant day all the country im- 
 mediately to the west of the reserves which is worth occu- 
 pying will have been taken up. And then the current of 
 })opulation, until within a lew years flowing only from the 
 East, now conies sweeping like an avalancliefrom the Pacific 
 coast, almost overwhelming the indigenous Indians in its 
 approaches. It is, therefore, in my judgment, clear, beyond 
 doubt or question, that the emigrated tribes in Kansas Ter- 
 ritory are permanently there — there to be thoroughly civil- 
 ized, and to become a constituent portion of the ])opulation, 
 or there to be destroyed and exterminated. "What a spec- 
 tacle for the viewof the statesman, p]iilauthi-o}»ist, Christian — 
 a subject for the most ])rofound consideration and reflection! 
 With reservations dotting the eastern portion of the Terri- 
 tory, there they stand, the representatives and remnants of 
 tribes once as powerful and dreaded as they are now weak 
 and dispirited. By alternate persuasion and force, some of 
 these tribes have been removed step by step, from mountain 
 to valley, and from river to plain, until tlicy have been 
 jiushed half-way across the continent. They can go no 
 further; on the ground they now occupy the crisis must 
 be met, and their future determined. Among tliem may be 
 found the educated, civilized, and converted Indian, tlie be- 
 nighted and inveterate heathen, and everv intermediate 
 
190 INDIAN AFFAIRS. 
 
 grade. But there they are, and as they are, "vvlth outstand- 
 ing obligations in their behalf of the most solemn and im- 
 perative character, voluntarily assumed by the government. 
 Their condition is a critical one — such as to entitle them not 
 onlv to the justice of the government, but to the most pro- 
 found sympixthy of the people. Extermination may be their 
 fate, but not of necessity. By a union of good influences and 
 proper effort, I believe they may, and will be saved, and their 
 complete civilization effected. 
 
 Be that as it may, however, the duty of the government 
 is, in my opinion, plain. It should fulfil, with the_ greatest 
 promptness and fidelity, every treaty stipulation with these 
 Indians ; frown down, at the' first dawning, any and every 
 attempt to corrupt them; see that their ample annuities 
 are directed faithfully to their education and improvement, 
 and not made the means of their destruction ; incessantly 
 resist the efforts of the selfish and heartless men who, by 
 specious plans and devices for their own gain, may seekto 
 distract and divide them ; require diligence, energy, and in- 
 tegrity in the administration of their afi'airs by the agents 
 who may be intrusted with their interests and welfare ; and 
 •visit the severest penalties of the law on all who may violate 
 its salutary provisions in relation to them. Let these things 
 be done; the co-operation of the civil officers, magistrates, 
 and good citizens of the Territory secured, and the most ac- 
 tive efforts of the friends of the benevolent institutions now- 
 existing among them be brought into exercise for their 
 moral culture; and, by harmonious and constant effort and 
 action, a change may, and it is believed will, be brought 
 about, and Kansas become distinguished as a land in which 
 the complete and thorough civilization of the red man was 
 worked out and accomplished. 
 
 The agent for the Upper Platte and Arkansas agency_ ex- 
 perienced no difficulty in obtaining the assent of the tribes 
 who were parties to the Arkansas treaty, to the amendments 
 of the Senate to that instrument, except the Apaches ; and 
 he expresses the belief that the Comanches and Kioways 
 have faithfully comi)lied with the stipulations of the same, 
 except in their forays on citizens of New Mexico, seeming 
 not to understand that that territory now belongs to the 
 United States. When the agent met the Apaches, he was 
 without an interpreter, and therefore could not submit the 
 amendments to them. 
 
 It is stated that the great majority of the Indians of that 
 agency luive no respect for the government of the United 
 States' or the citizens thereof; that emigrating parties have 
 
INDIAN AFFAIRS. 191 
 
 g;enerally to buy their way tliroiigh the country, and that 
 the military force at the different po.sts can render no assist- 
 ance, being, indeed, unable to protect itself beyond the reach 
 of the guns of the forts. 
 
 The Osages, Pawnees and others, have also annoyed the 
 emigrants, and committed depredations upon them. The 
 roads on the principal routes to the Pacific coast have be- 
 come very important thoroughfares. Thousands of emi- 
 grants, and many merchants, wlio, with their i)ropcrty to 
 the amount of several millions in value, pass annually over 
 the plains, are entitled to the protection of the government. 
 The weakness of the present military force operates injuri- 
 ously in various ways, and it would be much better to with- 
 draw it entirely, and let emigrants have notice that they 
 must protect themselves and their property, and leave the 
 Indians to be dealt with by our agents alone, than to permit 
 the posts to remain in their present weak and enfeebled con- 
 dition. 
 
 The report of Agent Whitfield reiterates the admonition 
 of his predecessor in relation to the impending fate of the 
 Indians of the Arkansas, the Platte, and the Plains, if some 
 policy be not soon introduced by which their habits, tastes, 
 and pursuits may be changed. The buffalo, on which they 
 mainly rely, not only for food and clothing, but also for the 
 means of shelter, is rapidly disa])pearing, and must soon 
 cease to be a source of reliance and dependence for support. 
 The best policy to be adopted to meet tlie exigency it is dif- 
 ficult to determine satisfactorily. But that sometliing 
 should be done, and that speedily, must be apparent to every 
 reflecting mind. 
 
 In the report last year of the late Agent Fitzpatrick, he 
 states tliat, in his then recent visit he found many of the 
 Cheyennes, Arapahocs, and Sioux in a starving condition, 
 on account of the scanty supply of buffalo; and the U|)per 
 Missouri agent, in his last year's report, also states that 
 within his agency there are at least four hundred thousand 
 of these animals annually destroyed. 
 
 The present agent for the Upper Platte and Arkansas is 
 of the opinion, tliat although starvation be inevitable, yet 
 the Indians alluded to will never voluntarily abandon their 
 present mode of life ; and that to effect a change and obtain 
 control over them, the United States must first efi'ectually 
 chastise every band. 
 
 Although having confidence in the prudence and judg- 
 ment of the agent, I am constrained to think that the sug- 
 gestion has not been well considered by him; and without 
 
192 INDIAN AFFAIRS. 
 
 questioning the beneficial effects which might result from 
 the successful execution of such a measure, it would in my 
 opinion, if attem])te(l, prove an utter failure. These Indians 
 have no fixed habitations, no houses, no fields, and no pro- 
 perty, herds, or flocks, but such as may be removed with 
 great celerity; and in their rapid migration from one portion 
 of the country to another, thoy leave no trace behind to 
 guide and direct their pursuers. 
 
 I am not prepared to suggest any better plan for their do- 
 mestication and preservation tlian to make an effort to colo- 
 nize them in suitable tracts of country, to be selected for 
 that purpose, and there teach them to labor and to cultivate 
 the soil. Some, no doubt, would at once embrace the oppor- 
 tunity, if presented; and the improvement of their condition 
 would have its influence upon others, who, from their desti- 
 tution and want, could, it is believed, be induced to take 
 refuge in these retreats. A portion of the funds now applied 
 to the purchase of merchandise for annual distribution among 
 them might be appropriated for this purpose, and the experi- 
 ment made without any demand upon the treasury beyond 
 the amount required to pay the wages of a few employees 
 and minor agents. 
 
 The four principal tribes witliin the southern superintend- 
 ency — the Chcrokees, Creeks, Choctaws, and Chickasaws — 
 continue gradually to improve their condition. Having gen- 
 erally adopted the habits and pursuits of civilized life, they 
 are probably more prosperous and happy than any of the 
 other tribes within our borders. Their forms of government, 
 which have been modified and improved as their knowledge 
 and experience have increased, and the manner in which their 
 internal affairs are administered, do them great credit; while 
 the zeal and anxiety of their leading men for the general educa- 
 tion of their people entitle them to the highest commenda- 
 tion of the government. They are loyal and friendly to the 
 United States, and quiet and generally peaceful towards each 
 other. The only cause of anxiety with regard to them, at 
 present, is that they may be subjected to some hardship and 
 suffering in consequence of the shortness of their crops, 
 occasioned by the extreme drought which has prevailed in 
 that region, as well as elsewhere. 
 
 The Scminoles within tliis supcrintendency are in a much 
 less satisfactory condition, being ignorant and more or less 
 debased, idle, and addicted to dissipation. The Creeks, with- 
 in whose boundaries they reside, complain that they are the 
 instruments and agents through whom most of the ardent 
 spirits brought into their country are introduced, and they 
 
INDIAN AFFAIRS. 193 
 
 have appealed to tlie government to interpose to abate this 
 nuisance, which is attended with much injury to their people. 
 
 The United Senecas and Shawnees, and the otlier small 
 Lands of Quapaws and iSenecas, also within tlie southern 
 supcrintendcncy, are in comj)aratively comlortahle circuni- 
 stances; but the Osages, in the same district, who have not 
 yet abandoned the chase, are in a much less favorable con- 
 dition. An cflbrt, Avhich has been partially successful, is now 
 being made to effect treaties with these several bands, for 
 the purj)Ose of reducing their territorial possessions, which 
 are much too extensive, and of bringing them under a better 
 system of control and management, with a view to their 
 more rapid improvement. 
 
 The question of a political separation between the Choc- 
 taws and Chickasaws, which has for some time been earnest- 
 ly sought for by the latter, but opposed by the former, and 
 which has excited much feeling between the members of 
 both tribes, still remains unadjusted. Commissioners ap- 
 pointed for the purpose by each were to meet early in Octo- 
 ber, to consider and discuss the subject; but informati<jn as 
 to the result of their conference lias not yet reached the de- 
 partment 
 
 A political union, similar to that between the Choctaws and 
 Chickasaws, also exists between the Creeks and tSeminoles, 
 much to tlie dissatisfaction of the latter, who are weak and 
 feeble in numbers and resources, and complain of wrong and 
 oppression from their brethren of the other and more pow- 
 erful tribe. Like the Chickasaws, they cherish the natural 
 and reasonable desire of a separate country and an indepen- 
 dent government of their own. If their wishes in this re- 
 spect were granted, it would, it is believed, exercise a power- 
 ful influence upon those in Florida towards inducing them 
 to emigrate. It is said that they are well acquainted with 
 the nature of the relations between their brethren west and 
 the Creeks, and that they will never willingly emigrate so 
 long as those relations, which are very repugnant to them, 
 shall continue. 
 
 The Choctaw authorities are anxious to put in ojieration a 
 general system of neighborhood or common schools among 
 the people, but have not the means necessary for its accom- 
 plisliment. They have requested that the balance of the 
 orphan fund remaining in the hands of their agent unclaimed 
 may be appropriated for that purpose; but, under existing 
 laws, the department is unable to comply. It is probable 
 that no further demands Avill ever be made upon this fund, 
 amounting now to $17,550 80, and to be increased as the 
 25 
 
194 INDIAN AFFAIRS. 
 
 orphan lands in Mississippi are sold. The request is so rea- 
 sonable, and the object so praiseworthy and appropriate, that 
 it is to be hoped that Congress will authorize the department 
 to apply the fund as the authorities of the tribe desire. 
 
 The Indians in Texas are represented to be now more 
 peaceful and orderly tlian they have been during a great 
 portion of the year. They have committed many outrages 
 upon frontier citizens, and continue their forays beyond our 
 boundaries, in spite of the military force in that quarter and 
 the elibrts of the agents of this department to restrain them. 
 It is in contemplation to collect and colonize them on three 
 reservations which the State of Texas has granted for the 
 purpose, and where they are to be partially subsisted at the 
 expense of the United States, for a year or two, until they 
 can be induced to turn their attention to agriculture and the 
 raising of stock, and thus provide for their own subsistence. 
 The duty of making the necessary explorations of the coun- 
 try, and of selecting and surveying the boundaries of the 
 reservations, was confided to R. S. Neighbors, the principal 
 agent of the dej)artment in Texas, and to Captain R. B. 
 Marcy, of the army, who were instructed to make a joint 
 report of the result of their proceedings, with plats of the 
 reservations. At the last accounts the surveys had not been 
 completed, and their report has, consequently, not been re- 
 ceived. The important measure of thus colonizing these 
 Indians will, when consummated, place them more fully un- 
 der our control, and have a tendency to prevent the depreda- 
 tions and outrages from which the border citizens of Texas 
 have so long sutfered. 
 
 Conventional arrangements are necessary with all the In- 
 dians in New Mexico and Utah, except the Pueblos, for the 
 jjurpose of fixing them in proper locations, and of giving to 
 the department such influence and control over them as will 
 enable it, as far as possible, to confine them thereon, and to 
 induce them to resort to agriculture and kindred pursuits, 
 instead of relying, as they now do, for support upon the un- 
 certain and precarious supplies of the chase, and, when that 
 fails, upon the more hazardous and injurious practice of theft 
 and plunder. Our citizens ought to have proper protection 
 from Indian depredations; but, in the present state of things 
 in these two Territories, thi.s is impossible. All the military 
 force that could be sent there could not prevent such depre- 
 dations, otherwise than by the extermination of the Indians. 
 Without implements or stock, and untaught and unassisted 
 in the art of husbandry, they cannot support themselves 
 otherwise than they do. When, as is often the case, the chase 
 
INDIAN AFFAIRS. 195 
 
 does not supply their necessities, they must steal or starve. 
 They must either subsist to a considerable extent by phuulcr- 
 ing the white inhabitants, or they will have to ))o extermi- 
 nated; or else they must be colonized in suitable locations, 
 and, to some extent at least, be subsisted by the j^overnment, 
 until they can be trained to such habits of industry and 
 thrift as will enable them to sustain themselves. This system 
 is in progress in California with some prospect of success. 
 It is about being commenced in Texas, and its adoption in 
 New Mexico and Utah should be no longer delayed. Thougli 
 expensive at hrst, its cost will not equal the amount of the 
 losses sustained by our citizens from tlie depredations of these 
 Indians. 
 
 The governor of New Mexico estimates the cost of putting 
 this system in operation in that Territory at $67,500 for the 
 first two years, $40,000 for the third, and $30,000 for each of 
 several succeeding years. 
 
 He reports the amount of lo.sses sustained by the Avhite 
 population of the Territory during the year past at about 
 $112,000. That the obligations of Christian duty, as well 
 as the dictates of humanity, demand the efficient action of 
 the government, must be too obvious to require discussion. 
 We have to some extent taken possession of the lands of these 
 Indians, driven them from their cherished resting-places, and 
 destroyed the game, their only means of support. We should 
 now aid and teach them to live without this resource, or their 
 destruction is inevitable. 
 
 Appropriations were made at the late session of Congress 
 to enable the department to negotiate treaties with the In- 
 dians of these Territories, in which provision should be made 
 for the inauguration of the policy referred to. It is to be 
 regretted that these appropriations were delayed until it was 
 too late in the season to send out the goods and other jire- 
 sents, without which the negotiations cannot be attempted 
 with a reasonable prospect of success. They had, therefore, 
 necessarily to be deferred till the next year. In the mean 
 time, the governors of the Territories have been called upon, 
 in their capacities of superintendents of Indian atlairs, for 
 information as to the extent and nature of tlie various Indian 
 claims, with maps indicating the boundaries of each, and 
 such other information as would enable tlie department to 
 issue the necessary instructions; and also as to the character 
 and description of the articles most useful to the Indians, 
 and best suited to aid in the accomplishment of the object in 
 view. 
 
 The reasons which prevented the accomplishment this sea- 
 
196 INDIAN AFFAIRS. 
 
 son of treaties with the Indians in New Mexico and Utah 
 apply with equal force to the Blackfeet and other Indians of 
 the Upper Missouri, and adjacent to the Territory of Wash- 
 ington. Measures will at once he adopted so as to insure a 
 council with them early the next year. 
 
 Appropriations having also heen made for the like pur- 
 pose in the Territories of Oregon and Washington, the arti- 
 cles intended for presents Avere promptly procured and 
 shipped hy the way of Cape Horn, and the superintendents in 
 those Territories instructed to proceed as early as practicahle 
 with the negotiations. It is hoped that these will result in 
 satisfiictory arrangements for the permanent settlement of 
 the Indians, and in the estahlishment of such relations be- 
 tween them and the whites as will prevent the recurrence of 
 such inhuman scenes and atrocities as have taken place in 
 Oregon during the past year; and in which it is due to truth 
 to state that the latter have, in some cases, heen the agres- 
 sors, and shown themselves to he as harbarous and cruel as 
 the Indians. Indeed, the usual order of things has been to 
 some extent reversed, the department having had to invoke 
 the aid of the military for the protection of the weak and 
 helpless Indians from the persecutions and cruelties of the 
 whites. 
 
 In this connexion I would refer to the report of Superin- 
 tendent Palmer, of Oregon, and. to the elaborate report of 
 Governor Stevens, of Washington, as containing much val- 
 uable and interesting information in regard to the tribes, 
 and the condition of Indian affairs in those two Territories. 
 
 Our Indian relations in California begin to wear a more 
 encouraging aspect. No serious disturbance has occurred 
 there during the past year. The system of colonizing the 
 Indians on reservations located so as not to interfere with 
 the progress of the white settlements has thus far been at- 
 tended witli happy results, in withdrawing the Indians from 
 the injurious contact Avitli tlie mining and agricultural popu- 
 lation, from which the painful collisions and disturbances 
 that have heretofore occurred arose. While its tendency is 
 to satisfy the whites that they will hereafter be secured from 
 molestation and annoyance by the Indian population, it gives 
 promise of disposing of the latter in a manner to admit of its 
 being held under proper control, and gradually improved and 
 civilized. One reservation has been established at the Tejon 
 Pass, to which about seven liundred Indians* have been re- 
 moved, and a considerable quantity of land put in cultiva- 
 
 * Late Superintendent Beale reported the number at the Tejon, in February 
 last, at about 2,500. 
 
INDIAN AFFAIRS. 197 
 
 tion. There are numbers of other Indians ready and anxious 
 to take up their residence upon this reservation, who will be 
 removed there as soon as arrangements can he pr()})erly and 
 economically made for their support and em])loyment. The 
 result thus far encourages the belief that the Indians of Cali- 
 fornia can be made a peaceful and self-sustaining people, and, 
 it is hoped, eventually a useful population. They are easily 
 controlled, manifest mucli interest in the system and arrange- 
 ments for colonizing and giving them em])loymcnt, and have 
 with readiness devoted themselves to the agricultural and 
 other occupations assigned them. The sui^erintendent re- 
 ports that the system has been so successfully organized and 
 developed on the Tejon reservation, that there will be no ne- 
 cessity for any material expenditures there after the present 
 year. A second reservation has been selected some six hun- 
 dred miles further north for the Indians in that region, and 
 to which they w^ill be removed with all practicable despatch. 
 These two reserves will, it is expected, accommodate and dis- 
 pose of all the Indians in and about the present mining and 
 agricultural districts, so that time and care can be taken in 
 the establishment of the third and last reservation. 
 
 On the 17th of August last, a train of Mormon emigrants 
 passed an encampment of certain bands of the Sioux Indians, 
 who were awaiting, near Fort Laramie, for their annuity 
 goods. One of the cattle belonging to the train made its 
 way into the Sioux villages, and was killed and consumed by 
 the Indians. The Mormons complained to the commandant 
 of the fort, who despatched Lieut. Grattan, with twenty-nine 
 men and an interpreter, to demand the person of the Indian 
 who killed the animal. He Avas not delivered up; andujion 
 the refusal or failure to do so, a fight ensued, in which the 
 lieutenant, his entire command, and the interpreter, were 
 killed. The particulars of this melancholy and heart-rend- 
 ing occurrence will be found in the report of Agent Whit- 
 field, and the documents accompanying it. The Sioux belong 
 to bands in amity with the United States — bands which have 
 annuities due them under treaty stipulations; and the Mor- 
 mons should, undo- the provisions of the "intercourse act," 
 have applied to the agent, who was in the vicinity, for re- 
 dress, and he could, under the law, have paid, out of the an- 
 nuities, for the property taken; but no officer of the military 
 department was, in my opinion, authorized to arrest or try 
 the Indian for the offence charged against him. 
 
 Immediately after the perpetration of the massacre, the 
 Indians repaired to ihc warehouses of the trading company, 
 near by in which their annuity goods had been stored by 
 
198 INDIAN AFFAIRS. 
 
 the contractors for their transportation, and, without wait- 
 ing the arrival of the agent to make a distribution, took pos- 
 session of, and appropriated the goods among themselves. 
 
 Occasions frequently arise in our intercourse with the 
 Indians requiring the emi)loyment of force, although the 
 whites may he, and often are, the aggressors. The Indian 
 bureau would be relieved from embarrassment, and ren- 
 dered more efficient, if, in such cases, the department had 
 the direct control of the means necessary to execute its own 
 orders. A force better adapted to the Indian service than 
 any now employed could, it is believed, be readily organized. 
 But careful attention, and kind and humane treatment will, 
 generally, have more influence upon the savage than bayo- 
 nets and gunpowder. 
 
 The wonderful growth of our distant possessions, and 
 the rapid expansion of our population in every direction, 
 will render it necessary, at no distant day, to restrict the 
 limits of all the Indian tribes upon our frontiers, and cause 
 them to be settled in fixed and permanent localities, there- 
 after not to be disturbed. The policy of removing Indian 
 tribes from time to time, as the settlements approach their 
 habitations and hunting-grounds, must be abandoned. The 
 emigrants and settlers were formerly content to remain in 
 the rear, and thrust the Indians before them into the wil- 
 derness ; but now the white population overleaps the reser- 
 vations and homes of the Indians, and is beginning to in- 
 habit the valleys and the mountains beyond ; hence removal 
 must cease, and the policy be abandoned. Injury will not 
 necessarily result to the Indian race from a change. By 
 the operations of a former system, some tribes have become 
 extinct; and the reduced numbers and enfeebled and de- 
 moralized condition of many of those who now rest upon 
 the frontier furnish unmistakoable evidence of the effect of 
 the system upon them. It is believed that by the proposed 
 change, advantages will also result to the white population, 
 while the heavy drafts heretofore made on the national 
 treasury for removing Indian tribes will be saved. 
 
 Experience has proven the law approved June 30, 1834, 
 " to regulate trade and intercourse with the Indian tribes, 
 and to preserve peace on the frontier," to be inadequate to 
 meet and dispose of all the varied questions and difficulties 
 wliich frequently arise under, and grow out of, the existing 
 state of our Indian relations. It does seem to me essential, 
 in order to the proper administration by the government of 
 its Indian affairs, that further and immediate legislation 
 should be had on the subject. 
 
INDIAN AFFAIRS. 199 
 
 In New Mexico, Utah, Washington, and Minnesota, the 
 supervision of our Indian affairs is given to the territorial 
 executive, who by law is made the superintendent; and in 
 Oregon, Kansas, and Nebraska the same is confided to an 
 independent officer, denominated the superintendent of In- 
 dian affairs. I am satisfied that the harmony and efficiency 
 of the Indian service would be promoted by placing our In- 
 dian affairs in the first on tlic same footing in tliis respect 
 that they now occupy in tlie last-named Territories. 
 
 Of the various evils which beset our Indian population, 
 there is none more alarming than the traffic in ardent 
 spirits. In spite of the laws of the government, the vigi- 
 lance and exertions of its officers, and the efforts of the 
 truly philanthropic, .tlie evil still exists and lias its sway. 
 Considerable reflection has confirmed me in the opinion 
 that much may be done towards abating this vile trade by a 
 co-operation with the government on tlie part of the States 
 and Territories bordering on the frontier. Earnest appeals 
 have been made to them for proper legislation, but only 
 with partial success. It is hoped tliat this important subject 
 will arrest the attention of the people, and their represen- 
 tatives in the States and Territories referred to, and tliat 
 something efficient will yet be done by them towards aiding 
 the government in relieving the poor Indian from the evils 
 arising from the use of ardent spirits, and the power of the 
 whiskey-trader. 
 
 In the last annual report, your attention Avas directed to 
 the subject of a general council of the semi-civilized tribes 
 of the southern superintendency with the wild tribes of the 
 prairies, having in view the establishment of mutual rela- 
 tions of peace and amity between the several tribes, and of 
 making available the occasion to impress the wilder Indians 
 witli a just ap})rcciation of the power and determination of 
 the government of the United States to punish them for 
 their aggressions, if persisted in, and to show the necessity 
 of being at peace and on good terms as well with the whites 
 as with their red bretliren. With regard to this matter, 
 my views are still unchanged. I therefore renew my recom- 
 mendation that application be made to Congress for an ap- 
 propriation to carry out the object. 
 
 Referring to a suggestion made in former reports, in re- 
 gard to the investment of moneys in stocks so as to produce 
 tlie annual income stipulated by treaty to be secured in per- 
 jK'tuity to various Indian tribes, I deem it now to be my 
 duty to allude to a provision of the second section of the 
 act of Congress entitled '• An act to repeal a part of the act 
 
200 INDIAN AFFAIRS. 
 
 to provide for the support of the Military Academy of the 
 United States," &c., approved September 11, 1841. The 
 section referred to, according to the construction put upon 
 it, requires the department to invest all moneys held in 
 trust for Indian tribes in stocks of the United States. 
 
 There are now funds in the treasury to a considerable 
 amount, arising from accrued interest, lands, &c, which it 
 would be good policy to invest ; but in view of the fact that 
 United States stocks are held at a very high price^ in com- 
 parison with safe State stocks bearing a like rate of interest, 
 and inasmuch as the government is itself engaged in pur- 
 chasing in its stocks at a high premium, it has been deemed 
 best to await the a})proaching session of Congress, in the 
 hope that it will take such action as may be necessary to 
 extend the authority and option of the Secretary of^ the In- 
 terior in regard to the investment of the moneys of Indian 
 tribes. 
 
 The fifth, and by limitation of law the last, volume of the 
 work containing information relative to the history, present 
 condition, and prospects of the Indian tribes in the United 
 States, is in press, and it is hoped will be ready for distribu- 
 tion before the close of the next session of Congress. 
 
 I deem it proper to call attention to the claims of Indians 
 to laud bounty for military services rendered to the United 
 States. Under the act of September, 1850, a considerable 
 number of such claims were presented and allowed ; but a 
 decision having been made that Indians are not embraced 
 by that act, there are many equally just remaining unsatis- 
 fied. The subject not having been under the jurisdiction of 
 this office, I am not a])prized of the particular grounds of 
 that decision; but the distinction made has caused much dis- 
 satisfaction; and as it is but just that all should be com- 
 pensated for their services, I would recommend such le- 
 gislation as may be deemed necessary to secure them the 
 value of this right in money, and providing for the adjudi- 
 cation of their claims in this office. 
 
 In several of the western States and Territories there are 
 bands of strolling Indians, who have from time to time be- 
 come severed from the tribes to which they belong. They are 
 generally in a deplorable condition, and are a great annoyance 
 to the white population. They ought to be removed to their 
 tribal home, or some other disposition made of them; and to 
 accomplish which an appropriation by Congress will be ne- 
 cessary, as there are now no funds at the disposal of the 
 department applicable. 
 
 I deem it my duty to call attention to a recent transaction 
 
INDIAN AFFAIRS. 201 
 
 of a character clearly illustrating the propriety and duty of 
 strictly adhering to the policy of exercising, as far as possi- 
 ble, such a supervision and control over the moneys payable 
 to the Indians as will secure to them the full benefit thereof, 
 and prevent their being fleeced by designing men, under 
 corrupt and iniquitous contracts or obligations, which in 
 their ignorance and simplicity they have been induced or 
 seduced to sign; or by the recognition and allowance of 
 claims and demands against them having no foundation in 
 right or justice. 
 
 It having become known that the Menomonco Indians had 
 manifested dissatisfaction with the treaty made Avith them 
 in 1848, and that they were probably entitled to a larger 
 compensation than that stipulated for the lands which they 
 thereby ceded, they were induced to enter into a contract 
 with an individual to prosecute a claim against the govern- 
 ment therefor, and to agree to allow him one-third of the 
 sum which might be recovered. About the same time a 
 large amount of claims of traders and others were raked up 
 to be prosecuted against the Indians, and to be paid out of 
 such sum, although a fund had been set apart by the treaty 
 of 1848, and applied by the Indians to the settlement and 
 payment of their indebtedness, and which was d(nibtless con- 
 sidered amply sufficient to cover all the just and valid claims 
 against them. The compensation for the prosecution and 
 recovery of these claims against the Indians was understood 
 to be one-half the amount so recovered. The two transac- 
 tions were apparently in different hands, but there can be no 
 doubt but that they were the joint and partnership opera- 
 tions between some three individuals. 8ee acconqjanying 
 papers in the Appendix, marked A, B, C, D, E, F, G, H, I, 
 J, K, L, M, N, and 0, of which B, C, F, G, and H but re- 
 cently came into the possession of this office, and to all of 
 Avhich your particular attention is called. Letter H is a copy 
 of an agreement with an individual who had but recently 
 been the agent for the Indians, and was therefore, doubtless, 
 supposed to be able to exercise an influence over them by 
 Avhich, for a contingent compensation of $10,000, he was ob- 
 ligated to throw no obstacle in the way of the transactions, 
 but to aid and assist in both — in obtaining the largest pos- 
 sible sum from the government for the Indians, and all the 
 claims against the latter that could be procured to be paid 
 out of that sum. There was thus to be a speculation of con- 
 siderable magnitude, and of a three-fold character. The gov- 
 ernment, the Indians, and the alleged or pretended claimants 
 against the latter, were all to be levied on. By ingenuity 
 
202 INDIAN AFFAIRS. 
 
 and skilful calculation, the claim in behalf of the Indians 
 was worked up to half a million of dollars, and those against 
 them to about ninety thousand dollars; the third part of the 
 one and the half of the other— amounting to upwards of two 
 hundred and eleven thousand dollars, which, less the $10,000 
 to be paid under the agreement mentioned, was, in case of 
 success of the scheme, to be divided mainly or entirely be- 
 tween some three individuals — making quite a handsome 
 fortune for each, out of one poor, miserable Indian tribe; to 
 say nothing of the further drafts which would no doubt have 
 been made on the Menomonee portion of the fund if the plan 
 had succeeded. 
 
 Having become satisfied from an examination into the af- 
 fairs of the Menomonees, and their relations with the gov- 
 ernment, that they were justly entitled to some additional 
 compensation for the lands ceded by them under the treaty 
 of 1848, in consequence of the quantity thereof having been 
 under-estimated at the time that treaty was made, and also 
 that the country thereby assigned to them west of the Mis- 
 sissippi was not suitable for them, the supplemental articles 
 of May 12, 1854, referred to elsewhere, were entered into, by 
 which' they were given another and an acceptable home, and 
 an additional allowance made to them of $150,000, which was 
 increased by the Senate's amendment in the sum of $92,686; 
 making the sum allowed to them $242,686, to be divided into 
 fifteen annual instalments, commencing with the year 1867 ; 
 and which is solemnly and sacredly pledged to be paid and 
 applied under the special direction of the President of 
 the United States, in such manner, and for such purposes, as 
 will best tend to improve their condition and promote their 
 permanent welfare. And any diversion of this fund for any 
 purpose in the slightest degree interfering with these great 
 and beneficent ends would be not less disgraceful to the gov- 
 ernment than it would be injurious to the Indians. 
 
 In the adoption of this measure of justice towards these 
 Indians, tlie department acted ui)on the principle announced 
 in the last annual report, and wliicli I take occasion here to 
 repeat, "that tliere is no absolute necessity for the employ- 
 ment by Indian tribes of attorneys or agents to attend to 
 their business at the seat of government;" and that, in their 
 dependent condition, "it is the duty of government, as their 
 guardian, to cause all matters of a business character Avith 
 them to be so conducted as to preclude the necessity of the 
 intervention of this class of persons." The new arrange- 
 ment with the Menomonees was made not only without any 
 such intervention in their favor, but, as is well known, con- 
 26 
 
INDIAN AFFAIRS. 203 
 
 trary to the wishes of the person or persons assuming to act 
 as their attorneys, and in despite of such influences us they 
 could hring to hear against it; and yet these individuals 
 have had the assurance and hardihood to go into the country 
 of these poor, deluded, unlettered Indians, and surreptitious- 
 ly ohtain from them the papers marked L, M, and N, (ap- 
 pendix,) for the purpose of filching from them the sum of 
 |lG8,331 G7, of which $80,895 33 to he for the payment of 
 an unjust and unfounded claim for services in procuring the 
 additional allowance which was voluntarily made to them 
 through the instrumentality of the department and the Sen- 
 ate; and $87,436 34 for various other claims against them, 
 which, in view of the settled policy of the government, it is 
 not in the slightest degree hound to recognize or respect, and 
 which possihly are entitled to as little consideration on the 
 score of justice as the other demand. These sums, too, are 
 sought to he obtained from the amount allowed hy the sup- 
 plemental agreement with these Indians, Avhich, as already 
 stated, is otherwise sacredly pledged, and which cannot be 
 diverted without a violation of plighted faith and justice. I 
 cannot forbear expressing the hope that all persons having 
 any agency in the administration of Indian affairs, whether 
 connected with the executive or legislative departments of 
 the government, now or hereafter, will resolutely set their 
 faces against and frown down all attempts to secure the al- 
 lowance or payment of such unauthorized and improper de- 
 mands against the Indians. 
 
 For his culpable disregard of the policy of the department, 
 and his duty towards the Indians, in having anything to do 
 with these proceedings, the sub-agent who certified and au- 
 thenticated one of the papers last referred to has been sum- 
 marily dismissed from office. 
 
 The instruments marked M and N in the schedule are in 
 the handwriting of one of the individuals whose name is at- 
 tached to the contingent contract (H) with the late sub-agent ; 
 and the interpreters and other persons who attest the execu- 
 tion of M are to receive of the funds pretended to be assigned 
 and appropriated by the Indians, by virtue of the same, to 
 themselves and their assigns, the sum of $28,311 i)o, they 
 being, without exception, interested parties. 
 
 This transaction among the Menomonees has not been re- 
 ferred to as an isolated case, but as a sample of a class, and 
 illustrative of the outrageous and initpiitous attempts of 
 unscrupulous white men to enrich themselves out of the 
 funds of the Indians. The pecuniary losses to the latter 
 comprise only a minor portion of the injurious concomitants 
 
204 INDIAN AFFAIRS. 
 
 and results of sucli attempts. The Indians — particularly 
 the chiefs and leading men — are frequently hribed, and 
 otherwise corrupted and demoralized, in order to obtain 
 their assent to being defrauded, while the agents and others 
 connected with the Indian service, do not always escape the 
 prev^ailing contamination. Among the Menomonees the 
 fatal tendency and ciFect of such occurrences may be seen in 
 the intemperate and demoralized habits and condition of 
 Osh-kosh, principal chief, and many others of the tribe. 
 
 But tlieevil is a general and growing one; formidable in 
 its combinations and alarming in its results, and therefore 
 requiring the speedy application of the most radical and 
 effectual remedy. AH executory contracts, of every kind 
 and description, made by Indian tribes or bands with claim 
 agents, attorneys, traders or other persons, should be de- 
 clared by law null and void, and an agent, interpreter, or 
 other person, employed in or in any way connected with the 
 Indian service, guilty of participation in transactions of the 
 kind referred to, should be instantly dismissed and expelled 
 from the Indian country ; and all such attempts to injure 
 and defraud the Indians, by whomsoever made or partici- 
 pated in should be penal offences, punishable by fine and 
 imprisonment. We have now penal laws to j^rotect the In- 
 dians in the secure and unmolested possession of their lands, 
 and also from demoralization by the introduction of liquor 
 into their country, and the obligation is equally strong to 
 protect them in a similar manner from the wrongs and in- 
 juries of such attempts to obtain possession of their funds. 
 
 In this connexion I deem it appropriate to respectfully 
 remark, that where, as is sometimes the case, laws are 
 passed providing for the payment of large sums of money 
 for alleged obligations arising in this branch of the public 
 service, withoiit the department having an opportunity of 
 examining into or passing upon the accounts and other evi- 
 dences of such claims, the effect is to deprive it of that salu- 
 tary control over the important interests committed to its 
 charge which is so necessary to a successful administration 
 of its affixirs ; and it cannot and should not, in such cases, 
 be held responsible for the consequences. 
 
 In carrying out all the plans heretofore devised for ame- 
 liorating the condition of the aborigines of our continent, 
 difficulties have arisen and obstacles presented themselves 
 on every side; and it seems impossible now to devise any 
 means for attaining these desirable ends, by which all diffi- 
 culties could be obviated and all obstacles avoided. 
 
 But partial success has attended the labors of the benevo- 
 
INDIAN AFFAIRS. 205 
 
 lent ; and the efforts of the department when most faithfully 
 directed have not iinfrcquently proved a positive injury. 
 Adverse elements have always been at work to thwart the 
 ■wishes of the government and counteract the labors of the 
 philanthropist; and these have unfortunately been hut too 
 often successful. Our former policy, and the inveterate de- 
 termination of the Indian to resist domestication, have com- 
 bined to place him in a situation where the lawless and un- 
 principled could always have access to him; and such per- 
 sons have, through all periods of our history, availed them- 
 selves of every opportunity to advise the ignorant and un- 
 lettered child of the forest against his best interests, and 
 have but too successfully instilled into his mind prejudices 
 against those who were laboring for his good. 
 
 Thus have the merciless and heartless followed in his 
 path ; flattered his vanity, corrupted his morals, impressed 
 upon and confirmed him in the belief that labor and the 
 arts of peace are degrading, and liis submission to them 
 offensive to the Great Spirit ; and directed and controlled 
 his action and made him the victim of their avaiice. 
 
 Such influences are believed to be as formidable, and more 
 unscrupulous now than at any former period of our history; 
 and when we add to them the train of ever-recurring and 
 ni^er-ending difficulties that beset the path of the weaker 
 in the battle of life with the stronger race, we perceive in 
 the present condition of the red man, and the dangers that 
 encompass him, additional motives to call into active exer- 
 cise in his behalf all the energies of the benevolent and 
 good of the land. 
 
 As a Christian government and people, our obligations 
 and duties are of the highest and holiest character, and we 
 are accountable to the Maker of all men for the manner in 
 which we discharge them. Having faithfully employed all 
 the means placed within our reach to improve the Indian 
 race, and preserve it from extinction, we can, with a good 
 conscience and strong faith, leave the issue in the hands of 
 our common Father. 
 
 Respectfully submitted : 
 
 GEO. W. MANYrENNY, 
 
 Co7)U7iissioiier. 
 
 Hon. R. McClelland, 
 
 Secretary of the Interior. 
 
IX.-THE PENSION OmCE. 
 
 ilEPORT OF THE COMMISSIONER OF PENSIONS. 
 
 Pension Office, 
 Odoher 10, 1854. 
 
 Sir: In pursuing the business of this bureau since my last 
 annual report, the division into classes therein indicated has 
 been observed. The result of our operations in applications 
 relating to pensions, during the year ending June 30, 1854, 
 and in apj^lications relating to bounty lands_, ending Sep- 
 tember 30, 1854, is as follows: 
 
 I. — Revolutionary Pensions. 
 
 There has been no adjudication of cases under the act of 
 March 18, 1818. The whole number of pensioners under 
 this act now upon the list is 175. The semi-annual pay- 
 ments during the year have been made to 206 pensioners. 
 
 There have been six cases admitted under the act of May 
 15, 1828, in which the annual alloAvances amounted to |656. 
 The arrearages due upon these claims, and paid during the 
 year, amount to the sum of $6,228. The number of pension- 
 ers now upon the list, under this act, is eighteen. The num- 
 ber paid during the year is twenty-six. 
 
 One hundred and seven original applications have been 
 admitted under the act of June 7, 1832. The annual stipend 
 of all these applications was $8,602 73. Fifty-four applica- 
 tions have been increased under this act; the annual increase 
 of all being $3,205 75. The arrearages due upon these seve- 
 ral applications, and paid during the year, amount to the 
 sum of $90,356 56. The number of pensioners now upon 
 the list under this act, is 876. The number jiaid during the 
 year is 847. 
 
 Two applications have been increased under the act of July 
 5, 1832 ; and the arrearages, amounting to the sum of $297 46, 
 have been paid. There are no pensioners under this act now 
 upon tlie list. The persons who rendered the service which 
 entitled them to the provisions of this act are all deceased, 
 
 206 
 
THE PENSION OFFICE. 207 
 
 and the applications that now remain unsatisfied are pre- 
 ented and prosecuted by their legal representatives. It is 
 y''eved that most of the real claims under this act have 
 b> ;i adjudicated; yet inquiries are often made in relation to 
 applications on file, and the suspended applications, number- 
 ing about one hundred, are the subject of frequent and often 
 laborious examinations. 
 
 Fifty-seven original applications have been allowed under 
 the third section of the act of July 4, 1836. The annual pay 
 in these apiDlications was $6,284 97. Twenty-five applica- 
 tions under this section have been increased, amounting to the 
 sum of $2,504 05 annually. The arrearages under this 
 section found due and paid, during the year, amount to 
 the sum of $71,304 45. The number of pensioners now 
 upon the list, under this section, is two hundred and eighty- 
 eight. 
 
 One hundred and sixty-nine original applications have 
 been admitted under the act of July 7, 1838. The annual 
 pay was $12,598 44. Thirty-four applications have been in- 
 creased, amounting to the sum of $2,337 35 annually. Un- 
 der the acts of March 3, 1843, and June 17, 1844, which are 
 a continuation of the act of July 7, 1838, one hundred and 
 fifty-seven applications have been admitted, at the annual 
 stim of $10,618 44; and thirty-one applications have been 
 increased the sum of $1,662 29 annually. Under the act of 
 February 2, 1848, one hundred and sixty-five applications 
 have been admitted at the annual sum of $9,172 37; and 
 forty-four applications have been increased the sum of 
 $1,353 53 annually. Under the act of July 29, 1848, and 
 the resolution of July 1, 1848, one hundred and ten appli- 
 cations have been admitted at the annual sum of $6,897 40. 
 The arrearages of pension found due in the applications 
 under the five last named acts, and which have been paid 
 during the year, amount to the sum of $178,040 57. As the 
 acts of July 7, 1838, March 3, 1843, and June 17, 1844, give 
 a pension for a limited number of years, which have already 
 expired, the payments under them are now made to each re- 
 cipient at one time; consequently, there are no pensioners 
 now on the list under these several acts. 
 
 The acts of February 2, 1848, and July 29, 1848, continue 
 the pensions during widowhood. The whole number of 
 pensioners under these two acts upon the list is three thou- 
 sand three hundred and seventy-five. The number paid 
 during the year is three thousand one hundred and twenty - 
 five. 
 
 Two thousand and forty applications have been admitted 
 
203 THE PENSION OFFICE. 
 
 under the second section of the act of Fehruary 3, 1853, at 
 the yearly sum of $102,763 58; and fourteen have been in- 
 creased $784 38 annually. The arrearages found due upon 
 these applications, and paid during the year, amount to the 
 sum of $180,750 94. The whole number of pensioners un- 
 der this section now upon the list is two thousand three 
 hundred and nineteen. 
 
 In my last annual report I noticed the fact that the widows 
 of the officers, non-commissioned officers, mariners, and ma- 
 rines, who served in the navy of the United States during 
 the revolutionary war, were not provided for by this act. I 
 then had no doubt, and still remain of the same opinion, 
 that this omission was purely accidental. In all other pen- 
 sion acts relating to revolutionary service no distinction is 
 made between sea and land service; nor can it be supposed 
 that it was the intention of Congress to make any invidious 
 distinction in this act. As this omission is one which Con- 
 gress only can remedy, I would most earnestly recommend 
 that the matter be presented to their early notice. The 
 number of persons to be benefited by this addition is very 
 small, and cannot exceed twenty-five; but whether the num- 
 ber be small or large, it is an act of justice that should be no 
 longer delayed. 
 
 From the preceding statements it will be seen that thr.ee 
 thousand and thirteen applications for pensions under the 
 acts relating to revolutionary services have been favorably 
 adjudicated during the year, and that upon these applica- 
 tions the arrearages of pension found due and paid amount 
 to the sum of $529,295 63. Of these applications one hun- 
 and sixty-seven were in the names of the soldiers of the re- 
 volution, upon which the arrearages amount to the sum of 
 $96,584 56, and two thousand eight , hundred and forty-six 
 applications were in behalf of the widows of revolutionary 
 soldiers, upon which the arrearages amount to the sum of 
 $432,711 07. By arrearages of pension is meant the sum 
 that is due upon the claim at the time it is adjudicated. The 
 whole number of male pensioners under these various acts 
 now upon the list is one thousand and sixty-nine. The 
 whole number of females is five thousand nine hundred and 
 eighty-two. 
 
 The whole amount paid to revolutionary pensioners, whose 
 names were upon the list at the commencement of the last 
 fiscal year, by the agents for paying pensions, is $378,975 33. 
 The amount paid by the Treasurer to those pensioners who 
 had neglected to apply to the usual paying agents for four- 
 teen months is $12,368 85. The whole amount paid during 
 
THE PENSION OFFICE. 
 
 the year on account of revolutionary services is $920,639 81. 
 As the sum due pensioners at the expiration of the fiscal 
 year, which will be paid during the current year, is sup- 
 posed to be as large as the suui due pensioners at the com- 
 mencement of the fiscal year and paid by the Treasurer, tlie 
 sum last mentioned may be assumed as an approximation 
 to the exact sum due pensioners for revolutionary service 
 during the last fiscal year. When it is considered that the 
 war in which these services were rendered terminated more 
 than seventy years ago, and that but very few who were even 
 cotempary with these services now survive, it must be con- 
 ceded that this is a very liberal disbursement from the trea- 
 sury by Avay of pensions, and will be conclusive that this 
 government is not justly chargeable with the sin of in- 
 gratitude. 
 
 Much of the labor in this division now consists in answer- 
 ing inquiries of persons relating to the revolutionary ser- 
 vices of their ancestors, and giving them information in 
 respect to the condition of the applications by them hereto- 
 fore presented. Many of these inquiries are prompted by 
 curiosity, but more from interest, with a hope tliat some ar- 
 rearages remain unpaid. These inquiries should be promptly 
 and correctly answered. To enable us to do so, a well ar- 
 ranged index of all the adjudicated claims is indispensable. 
 The only substitutes now in use are hasty and imperfectly 
 prepared registers, well calculated to mislead those that are 
 not well versed in all their intricacies. Feeling the importance 
 of some better guide, I early obtained your consent to have a 
 systematic arrangement of these claims so made that the 
 history of eacli could be traced from its commencement to its 
 close at a single glance. This work has been commenced 
 under the superintendence of a gentleman well fitted for the 
 task, who has nearly completed the arrangement in three of 
 the States. The great advantages expected from tliis ar- 
 rangement are more than realized in the examination of ap- 
 plications in these States, and urge us to a more vigorous 
 prosecution of the work. As the ordinary business in this 
 division diminishes, more attention can be given to this mat- 
 ter, and the whole be completed at no distant day. 
 
 II. — Half-pay Pensions for Five Years. 
 
 The acts relating to this class of pensions now executed 
 in this bureau are those of March 19, 183(5, July 4, 1836, 
 July 21, 1848, February 22, 1849, and February 3, 1853. 
 Eleven original applications have been admitted under the 
 1st section of the act of Julv 4, 1836. The annual payments 
 27 
 
210 THE PENSION OFFICE. 
 
 in these cases amount to |420. One application has been 
 increased eighteen dollars annually. One hundred and fifty- 
 two applications have been admitted under the acts of July 
 21, 1848, and February 22, 1849, the annual payments of 
 which amount to |9,946. One thousand four hundred and 
 thirty-nine applications have been admitted under the 1st 
 section of the act of February 3, 1853, at the annual sura of 
 $92,900. The whole number of pensioners now upon the 
 list under these various acts is two thousand and eight. As 
 most of the pensioners under the preceding acts are paid 
 from the same appropriation as the revolutionary pensioners, 
 under the acts of July 4, 183G, and February 3, 1853, the 
 precise number of each class that have been paid during the 
 past year cannot be readily ascertained. 
 
 It is to be observed that the widows of the officers and 
 soldiers of the regular army, whose husbands died in service 
 in time of peace, are not entitled to the provisions of these 
 acts; while the widows of seamen under similar circumstances 
 are entitled to benefits of a kindred character. It is a no- 
 torious fact that the widow of the soldier is often left in des- 
 titute circumstances, and his minor children cast upon the 
 charities of the world. The occupation and pay of a soldier 
 are incompatible with the acquisition of wealth, and he is 
 often destitute of that providence which secures a competen- 
 cy for future wants. He seldom serves his country under the 
 promptings of avarice, but for that love of honor and renown 
 which does not furnish aliment for the hungry or clothing 
 for the destitute. At the close of an eventful life it is often 
 a source of the bitterest anguish to the generous-hearted sol- 
 dier that he must leave the objects of his tenderest affection 
 without the means of a comfortable support. To remedy 
 these evils, and to place the soldier and sailor in this respect 
 upon the same footing, I would recommend the passage of a 
 law allowing the widows and minor children of the officers 
 and soldiers of the regular army who die in service half-pay 
 for five years, under the usual limitations and restrictions. 
 
 There are a number of acts of Congress giving half-pay 
 for five years to widows and orphans of officers and soldiers 
 of the army that are now executed in the office of the Third 
 Auditor of the Treasury. As these acts are of the same 
 general character as those above referred to, which are ex- 
 ecuted in this office, and as the applications under them are 
 not now very numerous, and oftimes intimately connected 
 with tlie applications here adjudicated, I would suggest that 
 the further execution of those acts be transferred to this 
 bureau. 
 
THE PENSION OFFICE. 211 
 
 III. — IiTVALiD Pensions. 
 
 Two Imndred and thirty-seven original applications have 
 been admitted to the list of invalid pensioners during the 
 year, at the annual sum of $20,688. One hundred and five 
 applications have been increased the sum of $4,10G 54 an- 
 nually. The whole number of invalid pensioners now upon 
 the list is five thousand and six. The number paid during 
 the year is four thousand four hundred and eighty-six. The 
 annual sum required to pay this class of pensioners is $444,- 
 V14 27. The number of suspended applications in this di- 
 vision is very large, and many of them of very ancient date. 
 The labor of adjudicating claims in this division is becoming 
 more difficult, and requires great discrimination and care. 
 "When the disability must have been occasioned by some 
 known wound received in the line of duty, the connexion be- 
 tween the cause and the effect was obvious and easily traced. 
 But since persons may receive pensions for disabilities aris- 
 ing from diseases contracted in the service, the task of con- 
 necting the result with the cause assigned is more perplex- 
 ing. We are often required to look for the cause of a present 
 disability to some disease the applicant may have contracted 
 in service more than forty years ago, and to distinguish be- 
 tween the infirmities incident to old age and the innovations 
 upon health resulting from the privations of military life. 
 In these cases much reliance must be placed upon the opin- 
 ions of medical gentlemen respecting the cause of the disa- 
 bility as well as its degree. We have derived essential aid 
 in these examinations from advice received from the office of 
 the surgeon general, for which our acknowledgments are due. 
 
 The people of this country have ever regarded it a duty 
 to sustain those who become disabled in military service. In 
 17*76 the Continental Congress promised pensions, during 
 the continuance of disability, to the officers and soldiers of 
 the army disabled in service. In 1785 the same body strongly 
 urged upon the State governments to make provision for such 
 invalids as were residents in their respective limits; and it 
 was among the first acts of the first Congress under the con- 
 stitution to provide for the payment of the pensions granted 
 by the States. Subsequently, the whole matter of invalid 
 pensions was assumed by the federal government, and ample 
 provision made not only for those that were disabled in the 
 war of the revolution, but also for those that were disabled 
 in subsequent wars and in the peace establishment. 
 
 The first appropriation by Congress for the payment of 
 invalid pensions was made July 16, 1790, and amounted to 
 
212 THE PENSION OFFICE. 
 
 the sum of $96,979 72. For the ten years next succeeding, 
 the annual appro})riations for this object averged $90,791 58. 
 From 1800 to 1803, inclusive, the annual appropriations 
 were $93,000. From 1804 to 1815, inclusive, tlic annual ap- 
 propriations were $98,000. For the first ten years after 1815, 
 the annual average appropriations vrcre about $256,000. 
 From 1826 to 1848, inclusive, the annual appropriations for 
 invalid pensions averaged about $180,000. Since the year 
 1848 the annual appropriations for this object amount to 
 nearly $405,000. From present indications, this sum cannot 
 for some years be materially diminished. 
 
 The persons who received invalid pensions for disabilities 
 incurred in the revolutionary Avar have, with one exception, 
 it is believed, ceased to be pensioners. Nearly the whole of 
 the present expenditure, therefore, for this class of pensions, 
 is for disabilities received in subsequent v/ars, and in the 
 peace establishment. A comparison of the present expen- 
 diture with that of any other period since the revolution, 
 leads to the conclusion that the facilities for obtaining in- 
 valid pensions have not been diminished, if, indeed, the 
 benevolent designs of the government have not been abused. 
 
 Further experience has confirmed the convictions ex- 
 pressed in my last annual report, that many persons are 
 improperly enjoying the beneficence of government, intended 
 only for the infirm and disabled. In cases where persons 
 have been placed upon the list through misrepresentation 
 and fraud, they can be stricken therefrom without ceremony; 
 but in cases where the applicant, at the time of his admis- 
 sion, was laboring under a disability supposed to have been 
 permanent, but which has yielded to the rcraperative power 
 of youth and a vigorous constitution, some further legisla- 
 tion is needed. If Congress is unwilling to re-enact the 
 provisions of the law of March 3, 1819, requiring biennial 
 examinations, it is hoped provision will be made for a re- 
 examination of those cases in which the Commissioner of 
 Pensions shall, from reliable information, have good reason 
 to believe the })ensioner has recovered from the disability 
 for which he was pensioned. It aftbrds me pleasure to say, 
 that in two instances where officers in the Mexican war Avere 
 placed upon the pension list for sui)posed ])ermanent disa- 
 bilities, from which they have recovered, tliey have volun- 
 tarily relinquished their pensions, and asked to have their 
 names stricken i'rom the roll. Such rare examj)les of strict 
 integrity and honesty should be placed before the public as 
 worthy of universal commendation — I allude to the cases of 
 
THE PENSION OFFICE. SlSt 
 
 Capt. Thomas H. Ford, of the State of Ohio, and Capt. John 
 L. McConnell, of the State of Illinois. 
 
 IV. — Navy Pensions. 
 
 In this division thirty-eight persons have heen admitted 
 to the list of invalid pensions at the annual sum of |2,034 50. 
 The amount of arrearages on these several claims, including 
 the current pension, is |1,756 79. The claims of thirty-two 
 widows have heen admitted amounting annually to the sura 
 of $4,404. The amount of arrearages found due on tliesc 
 claims, including the current ])ension, is .f 17, 184 28. Eleven 
 claims of orplians have been admitted, amounting annually 
 to the sum of |2,190. The arrearages in these cases, found 
 due and paid, including the current pension, amount to the 
 sum of $10,157 62. It will be observed that the arrearages 
 of pension in the invalid cases are less than the current 
 pension, while they greatly exceed the current pension in 
 the case df Avidows and orphans. The reason of this dif- 
 ference is, that invalid pensions are made to commence 
 at the date of completing the evidence in the case, while 
 the pensions to widows are made to commence from the 
 day of their husbands' death, and to orphans, from the 
 date of their fathers' decease, when no widow survives ; and 
 incase of a widow's surviving, from her death or marriage. 
 The number of invalid pensioners now upon the 
 
 roll is 497 
 
 The amount of money recjuired to pav these an- 
 nually is ". $30,558 95 
 
 The number of widows u})on the navy pension 
 
 list is 442 
 
 The sum required for their annual payment is... 91,176 00 
 
 The number of cases payable to orphans is 78 
 
 The amount of money neiicssary to pay them an- 
 nually is ". 9,510 00 
 
 In adjudicating claims in tliis division, it has been a pri- 
 mary object to make the practice correspond with the prac- 
 tice in other divisions of a similar character, in order to ob- 
 tain a more uniform system. To effect tliis, a declaration, 
 with proof of identity, in invalid applications, is now re- 
 quired; and the discretion heretofore exercised in fixing the 
 time when such pensions should commence, has yielded to 
 the long-established rule in other invalid applications. 
 
 A cursory glance at the laws relating to navy pensions 
 cannot fail to convince any person that some modification is 
 required, so that the practice of the office, which is believed 
 to be in accordance with the benevolent spirit in which they 
 
214 THE PENSION OFFICE. 
 
 were passed, may not conflict with the letter of the law. For 
 example: the act of June 30, 1834, contains a provision that 
 "the pensions of such widows shall commence from the pas- 
 sage of this act." A literal compliance with this provision 
 would give a widow wliose husband died after the passage 
 of the law a pension for the time he received his pay in the 
 service. This provision is construed to mean from the death 
 of the haishand, or from the expiration of a former 'pension^ in- 
 stead of from the passage of said act. The act of March 3, 
 1845, intended to authorize the renewal of certain pensions, 
 uses this language: "which pensions have ceased in conse- 
 quence of the expiration of the period for which they were 
 originally granted." This expression was first construed to 
 embrace only such pensions as had expired at the date of 
 such act, but is now construed to include all pensions of that 
 class, whether they expired before or after the date of said 
 act. The act of August 11, 1848, provides for the payment 
 of the pension to the orphan children of deceased parents, 
 "after the death of the widow;" but makes no provision, in 
 terms, for the orphan, when no widow has survived. This 
 act is now construed so as to give a pension to the orphan 
 children where the father has died without leaving a widow.' 
 All navy pensions are graduated by the pay of the navy, as 
 it existed on the first day of January, 1835. Since that date 
 changes have been made, by introducing new grades of offi- 
 cers into the service. It is obvious that pensions on account 
 of the services of these officers cannot be graduated by any 
 positive provision of law. 
 
 Tbe only effective remedy for these various defects, and 
 others not here noticed, is the passage of an act, simple in its 
 provisions and clear in its details, embracing the principles 
 and carrying out the manifest intention of Congress in its 
 previous action upon this subject. 
 
 The pensions of petty oflicers, seamen, ordinary seamen, 
 landsmen, boys of the nav}^, marines, and their widows and 
 orphans, are disproportionate to other pensions. For exam- 
 ple: if a seaman be totally disabled he can only receive three 
 dollars and fifty cents a month, while a marine, for the same 
 disability, can receive six dollars a month, and a private sol- 
 dier of the army can receive eight dollars a month. This 
 subject attracted the favorable notice of the Senate Committee 
 on Pensions during the last session of Congress, and should 
 receive prompt legislative action. 
 
 The widows and orphans of those who serve in the navy 
 are entitled to pensions only when tlieir husbands or fathers 
 have died in service. There are instances where officers and 
 
THE PENSION OFFICE. 215 
 
 jseamen have been compelled to leave the service on account 
 of wounds received or of diseases contracted in the line of 
 duty, and have died from those wounds or of those diseases. 
 It is respectfully submitted that the benefits of the pension 
 laws for naval service be extended to the widows and or- 
 phans of those who may die from wounds received or of dis- 
 eases contracted in service, though they may not be in actual 
 service at the time of their decease. The act of May 31, 1854, 
 made an appropriation for the payment of the arrears due 
 those persons who had been placed upon the invalid privateer 
 pension list between July 1, 1851, and June 30, 1854, inclu- 
 sive. There is no provision for the payment of this class of 
 pensions subsequent to the day last mentioned. Only nine- 
 teen applications have been made under the last-mentioned 
 act, and two of those were in right of deceased pensioners. 
 The number of those that might present claims should fur- 
 ther provision be made for their payment cannot be accu- 
 rately stated, but from the best data we have it will not ex- 
 ceed twenty-two. The annual payments to this number will 
 probably amount to |2,200. No further payments can be 
 made to this class of pensioners without further legislation. 
 
 V. — Bounty Lands. 
 
 1. Bounties for revolutionary services and service during 
 the war of 1812. 
 
 The business of this desk was suspended from June 26, 
 
 1853, to February 8, 1854, because there was no law in force 
 during that time under which these claims could have been 
 adjudicated. On said 8th day of February a bill for a public 
 act reviving and extending former acts upon this subject for 
 a period of five years from June 26, 1853, was approved. 
 From the 8th day of February to the 30th of September, 1854, 
 we have issued five warrants, amounting to seven hundred 
 and twenty acres, for revolutionary services. Sixty-seven 
 warrants for one hundred and sixty acres each, and one war- 
 rant for three hundred and twenty acres — making a total of 
 eleven thousand and forty acres — have been issued for ser- 
 vices in the war of 1812 during the same time. Eighteen 
 new certificates of right to locate warrants of one hundred 
 and sixty acres each, one new certificate of right to locate a 
 V. arrant of three hundred and twenty acres, which Avarrants 
 were previously issued, but not patented, have been issued 
 during the time aforesaid. The total amount of acres con- 
 tained in warrants issued under the acts of 1811, 1812, and 
 1814, for services during the war of 1812, to September 30, 
 
 1854, is four million eight hundred and thirty -four tliousand 
 
216 THE PENSION OFFICE. 
 
 nine hundred and seventy-two. One hundred and twenty- 
 seven existing claims for one hundred and sixty acres each, 
 under these acts, have heen established, and warrants will 
 he issued as soon as the evidence of heirship is furnished. 
 The number of suspended claims under these acts is four 
 hundred and fifty. 
 
 2. Bounties under the act of February 11, 1847. 
 The whole number of applications for land under this act for 
 
 the year ending September 30, 1854, is 1,522 
 
 The number for money in lieu of land is 1 
 
 Total 1,523 
 
 Seven hundred and fifty-four warrants for 160 acres each, 
 five hundred and forty-one for 40 acres each, and one certifi- 
 cate for |100 in lieu of land, have been issued on these ap- 
 plications, and two hundred and twenty-seven have been 
 suspended or rejected. 
 The whole number of applications under this act for 
 
 land is 93,144 
 
 The whole number of applications for money in lieu 
 
 of land is 4,340 
 
 Total 97,484 
 
 These applications have been disposed of as follows: 
 
 Cases. 
 
 Warrants for 160 acres each have been issued in 79,483 
 
 Do. 40 do. do 7,289 
 
 Certificates for scrip of |100 each in lieu of land in.... 2,269 
 
 Do. do. 25 do. do. 460 
 
 Do. money 100 do. do. 450 
 
 Do. do. 25 do. do. 59 
 
 Applications suspended or rejected 7,474 
 
 97,484 
 The total amount of land-warrants already issued under 
 
 this act for service in the Mexican war Avill cover 13,008,840 
 
 acres. 
 
 The amount of money paid iu lieu of land is $3,238. 
 
 3. Bounties under the acts of September 28, 1850, and 
 
 March 22, 1852. 
 
 The number of applications in the hands of the ex- 
 aminers, and at the rolls on the 30th day of Septem- 
 ber, 1853, was 3,619 
 
 Applications under the act of September 28, 
 1850, have been received during the year 
 ending September 30, 1854, as follows: 
 
THE PENSION OFFICE. 217 
 
 For service in the war of 1812 9,854 
 
 For service in the Florida and other Indian 
 
 wars 604 
 
 For services as commissioned officers in Mexi- 
 can war , 183 
 
 10,641 
 
 The whole number of applications under the 
 
 act of March 22, 1852, is 1,328 
 
 Applications on the suspended files September 
 30, 1853 50,713 
 
 66,301 
 These applications have been thns disposed of: 
 The number of warrants issued upon tliera, 
 
 under act of September 28, 1850, to Septem- 
 ber 30, 1854, is 13,773 
 
 The number issued under act of March 22, 1852, 
 
 is 2,593 
 
 Applications in hands of examiners and at 
 
 rolls 188 
 
 Applications on suspended files September 30, 
 
 1854 49,747 
 
 66,301 
 
 Duplicate and triplicate warrants have been issued during 
 the year as follows : 
 
 Under act of September 28, 1850, seventy-three for 160 
 acres each, one hundred and fifty for 80 acres each, and one 
 hundred and eighty-four for forty acres each; under act of 
 March 22, 1852, four for 160 acres each, three for 80 acres 
 each, and sixteen for 40 acres each — making a total of four 
 hundred and thirty warrants. 
 
 Warrants have been cancelled during the year as follows, 
 to wit: 
 
 Under act of September 28, 1850, ninety warrants for 160 
 acres each, two hundred and forty-seven for 80 acres each, 
 and five hundred and forty-three for 40 acres each; under act 
 of March 22, 1852, ten warrants for 160 acres each, fourteen 
 for 80 acres each, and thirty for 40 acres each. The Avhole 
 number of warrants cancelled is nine hundred and thirty- 
 four, for fifty-nine thousand eight hundred acres of land. 
 
 The whole number of applications for land boimty, under 
 the act of September 28, 1850, to September 30, 1854, is as 
 follows: 
 
 For services in the war of 1812 181,726 
 
 Do in the Indian wars since 1790..., 47,705 
 
 Do in the war with Mexico by officers 3,734 
 
 28 
 
218 THE PENSION OFFICE. 
 
 The number under act of March 22, 1852, to same 
 
 date 13,966 
 
 Total 247,131 
 
 Upon these applications the following action has been 
 had: 
 
 Warrants issued for 160 acres each 27,997 
 
 Do. do. 80 do 58,408 
 
 Do. do. 40 do 110,791 
 
 Number of applications in hands of examiners and 
 
 at rolls 188 
 
 Applications on suspended files September 30, 1854, 49,747 
 
 Total 247,131 
 
 Warrants covering 13,583,800 acres of land have already 
 l)een issued under the acts of September 28, 1850, and 
 March 22, 1852. The total amount of land warrants issued 
 to the soldiers of all the wars since 1790 contain 31,427,612 
 acres. 
 
 The practice of presenting duplicate applications for land 
 from different States, or for different periods of service from 
 the same State, by the same person, has been detected in this 
 division. Instances have been discovered where the same 
 individual has obtained two and tliree warrants in this way. 
 To guard against this abuse, and for other purposes, it has 
 been deemed advisable to make a complete alphabetical index 
 of all applications presented to this office, with an analysis 
 of the service and the action of the office in each case. This 
 work has been commenced, and, though it is one of great 
 labor, yet it has been found, so far as completed, of greater 
 assistance in detecting attempts at fraud in this branch of 
 our business than was expected, and of sufficient importance 
 to Avarrant its completion. 
 
 The subject of the frauds upon tliis bureau attracted the 
 attention of Congress during its hist session, and a call was 
 made upon the Secretary of the Interior for information 
 concerning them. In answer to this call, a detailed report 
 from this office was, on the 15th day of May last, submitted 
 to you, giving a statement of the operation of this bureau 
 from the 1st of April, 1853, to that date. The following ex- 
 tracts from that report give a summary of the number and 
 extent of the frauds in revolutionary cases, and the number 
 of persons detected in fraudulent practices, then discovered : 
 "From the preceding statements it will be seen that frauds 
 in revolutionary cases have been detected in ten States, that 
 fifty-four cases have been found to be fraudulent, of which 
 
THE PENSION OFFICE. 219 
 
 twenty-nine have been admitted and twenty-five rejected. 
 The amount of money abstracted from the treasury in these 
 cases is $68,232, and the amount claimed in cases tliat have 
 been rejected because of their being fraudulent is $44,0-i2." 
 * * * "The whole number of persons connected with 
 the frauds upon this bureau that have been detected under 
 such circumstances as to leave no reasonable doubt of their 
 guilt is twenty-six. Of this number seven have been con- 
 victed, and sentenced to hard labor in the penitentiary; one 
 has died; one has committed suicide; six have forfeited their 
 bonds and fled their country ; nine are now waiting their 
 final trial; and two, against whom bills of indictment have 
 been found, have not yet been arrested." 
 
 Since the date of this report six fraudulent revolutionary 
 cases have been detected, and traced to one person, who has 
 been arrested, held to bail, and has forfeited his bond, amount- 
 ing to the sum of $5,000. Three persons have been detected 
 in presenting fraudulent papers in applications for bounty 
 land, and have been arrested and held to bail. One of them 
 has forfeited his bond. The number of persons against 
 whom bills of indictment have been found, up to September 
 30, 1854, is thirty. Nine of these have been convicted; eight 
 have forfeited their bonds and fled; one has died; one has 
 committed suicide; two have not yet been arrested; and nine 
 await their final trial. 
 
 Several cases have been discovered which are clearly 
 fraudulent, but which have not been prosecuted, because the 
 fraudulent acts were committed more than two years before 
 the discovery was made. The importance of changing the 
 statute of limitations in regard to these ofiences was noticed 
 in my last annual report. I can only repeat the earnest re- 
 commendation then made. 
 
 The current business of this bureau was brought up to 
 date about the first of December last, and has been kept up 
 since that time. The attainment of this desirable object is 
 mainly attributable to the energy and industry of the cleri- 
 cal force, Avhich is now fully adequate for all the service re- 
 quired of this bureau. The general fidelity of the gentlemen 
 composing this force deserves and receives my commendation. 
 
 I have the honor to be, very respectfully, your obedient 
 servant, L. P. WALDO, 
 
 Commissioner of Pensions, 
 
 Hon, K. McClelland, 
 
 Secretary of the Interior. 
 
X.-INTEUNAL IMPEOVEMENTS. 
 
 SPECIAL MESSAGE OF THE PRESIDENT. 
 
 To the Senate and House of Representatives : 
 
 In retuvning to the House of Representatives, in which it 
 originated, a bill entitled "An act making appropriations for 
 the repair, preservation, and completion of certain public 
 works, heretofore commenced under authority of law," it be- 
 came necessary for me, owing to the late day at which the 
 bill was passed, to state my objections to it very briefly, an- 
 nouncing, at the same time, a purpose to resume the subject 
 for more deliberate discussion, at the present session of Con- 
 gress; for, while by no means insensible of the arduousness 
 of the task thus undertaken by me, I conceived that the two 
 Houses were entitled to an exposition of the considerations 
 M'hich had induced dissent, on my part, from their conclu- 
 sions in this instance. 
 
 The great constitutional question, of the power of the gen- 
 eral government in relation to internal improvements, has 
 been the subject of earnest difference of opinion, at every pe- 
 riod of the history of the United States. Annual and special 
 messages of successive Presidents have been occu])ied with it, 
 sometimes in remarks on the general topic, and frequently in 
 objection to particular bills. The conflicting sentiments of 
 eminent statesmen, expressed in Congress, or in conventions 
 called ex]n-essly to devise, if possible, some plan calculated to 
 relieve the subject of the embarrassments with which it is 
 environed, while they have directed public attention strongly 
 to the magnitude of the interests involved, have yet left un- 
 settled the limits, not merely of expediency, but of constitu- 
 tional power, in relation to works of this class by the general 
 government. 
 
 What is intended by the phrase "internal improvements?" 
 What does it embrace, and what exclude? No such lan- 
 guage is found in the Constitution. Not only is it not an 
 expression of ascertainable constitutional power, but it has 
 no sufficient exactness of meaning to be of any value as the 
 basis of a safe conclusion, either of constitutional lavi^ or of 
 practical statesmanship. 
 
 President John Quincy Adams, in claiming, on one occa- 
 
 220 
 
INTERNAL IMPROVEMENTS. 221 
 
 sion, after his retirement from office, the authorship of the 
 idea of introducing into the administration of the affairs of 
 the general government "a permanent and regular system" 
 of internal improvements, speaks of it as a system by whicli 
 "the whole Union would have been checkered over with rail- 
 roads and canals," aftbrding "high wages and constant em- 
 ployment to himdreds of thousands of laborers;" and he 
 places it in express contrast with the construction of such 
 works by the legislation of the States and by private enter- 
 prize. 
 
 It is quite obvious, that, if there be any constitutional 
 power which authorizes the construction of "railroads and 
 canals" by Congress, the same power must comprehend turn- 
 pikes and ordinary carriage roads; nay, it must extend to 
 the construction of bridges, to the draining of marshes, to 
 the erection of levees, to the construction of canals of irriga- 
 tion — in a word, to all the possible means of the material im- 
 provement of the earth, by developing its natural resources, 
 anywhere and everywhere, even within the proper jurisdic- 
 tion of the several States. But if there be any constitutional 
 power, thus comprehensive in its nature, must not the same 
 power embrace within its scope other kinds of improvement 
 of equal utility in themselves, and equally important to the 
 welfare of the whole country? President Jefferson, Avhile 
 intimating the expediency of so amending the Constitution 
 as to comi)rise objects of physical progress and well-being, 
 does not fail to ])erceive that "other objects of public im- 
 provement," including "public education," by name, belong- 
 to the same class of powers. In fact, not only public in- 
 struction, but hospitals, establishments of science and art, 
 libraries, and indeed everything appertaining to the internal 
 welfare of the country, are just as much objects of internal 
 improvement, or, in other words, of internal utility, as canals 
 and railways. 
 
 The admission of the power in either of its senses, im|)lies 
 its existence in the other; and since, if it exists at all, it in- 
 volves dangerous augmentation of the political functions and 
 of the patronage of the federal government, we ought to see 
 clearly by what clause or clauses of the Constitution it is 
 conferred. 
 
 I have had occasion more than once to ex|)ress, and deem 
 it proper now to repeat, that it is, in my judgment, to be ta- 
 ken for granted, as a fundamental 2>roposition not requiring 
 elucidation, that the federal government is the creature of 
 the individual States, and of the peoi)le of the States severally; 
 that the sovereign power was in them alone; that all the 
 
222 INTERNAL IMPROVEMENTS. 
 
 powers of the federal government are derivative ones, the 
 enumeration and limitations of which are contained in the 
 instrument which organized it; and by express terras, "The 
 powers not delegated to the United States by the Constitu- 
 tion, nor prohibited by it to the States, are reserved to the 
 States respectively or to the people." 
 
 Starting from this foundation of our constitutional faith, 
 and proceeding to inquire in what part of the Constitution 
 the power of making appropriations for internal improve- 
 ments is found, it is necessary to reject all idea of there being 
 any grant of power in the preamble. When that instrument 
 says: "We, the people of the United States, in order to form 
 a more perfect union, establish justice, insure domestic tran- 
 quillity, provide for the common defence, promote the general 
 welfare, and secure the blessings of liberty to ourselves and 
 our posterity," — it only declares the inducements and the an- 
 ticipated results of the things ordained and established by it. 
 To assume that anything more can be designed by the lan- 
 guage of the preamble, would be to convert all the body of 
 the Constitution, with its carefully weighed enumerations 
 and limitations, into mere surplusage. The same may be 
 said of the phrase in the grant of the power to Congress, "to 
 pay the debts and provide for the common defence and gen- 
 eral welfare of the United States;" or, to construe the words 
 more exactly, they are not significant of grant or concession, 
 but of restriction of the specific grants, having the effect of 
 saying that, in laying and collecting taxes for each of the 
 precise objects of power granted to the general government, 
 Congress must exercise any such definite and undoubted 
 power in strict subordination to the purpose of the common 
 defence and general welfare of all the States. 
 
 There being no specific grant in the Constitution of a 
 power to sanction appropriations for internal improvements, 
 and no general provision broad enough to cover any such 
 indefinite object, it becomes necessary to look for particular 
 powers, to which one or another of the things included in 
 the phrase "internal improvements," may be referred. 
 
 In the discussions of this question by the advocates of the 
 organization of a "general system of internal improve- 
 ments" under the auspices of the federal government, reli- 
 ance is had, for the justification of the measure, on several 
 of the powers expressly granted to Congress: such as to es- 
 tablish post offices and post roads; to declare war; to pro- 
 vide and maintain a nav}'; to raise and support armies; to 
 regulate commerce; and to dispose of the territory and other 
 public property of the United States. 
 
INTERNAL IMPROVEMENTS. 223 
 
 As to the last of tliese sources of power, that of disposinigj 
 of tlie territory and other public property of the United 
 States, it may be conceded, that it authorizes Congress, in 
 the management of the public property, to make improve- 
 ments essential to the successful execution of the trust; but 
 this must be the primary object of any such improvement, 
 and it would be an abuse of the trust to sacrifice the interest 
 of the property to incidental purposes. 
 
 As to the other assumed sources of general power over in- 
 ternal improvements, they being specific powers, of which 
 this is supposed to be the incident, if the framers of the Con- 
 stitution, wise and thoughtful men as they were, intended 
 to confer on Congress the power over a subject so wide as 
 the whole field of internal improvements, it is remarkable 
 that they did not use language clearly to express it; or, in 
 other words, that they did not give it as a distinct and sub- 
 stantive power, instead of making it the implied incident of 
 some other one. For such is the magnitude of the supposed 
 incidental power and its capacity of expansion, that any system 
 established under it would exceed each of the others, in the 
 amount of expenditure and number of the persons employed, 
 which would thus be thrown upon the general government. 
 
 This position may be illustrated by taking, as a single ex- 
 ample, one of the many things comprehended clearly in the 
 idea of "a general system of internal improvements," namely, 
 roads. Let it be supposed that the power to construct roads 
 over the whole Union, according to the suggestion of Presi- 
 dent J. Q. Adams, in 1807, whilst a member of the Senate 
 of the United States, had been conceded. Congress would 
 have begun, in pursuance of the state of knowledge at tlie 
 time, by constructing turnpikes. Then, as knowledge ad- 
 vanced, it would have constructed canals; and at the present 
 time, it would have been embarked in an almost limitless 
 scheme of railroads. 
 
 Now, there are in the United States, the results of State or 
 private enterprize, upwards of 17,000 miles of railroads, and 
 5,000 miles of canals, in all 22,000 miles, the total cost of 
 which may be estimated at little short of six hundred mil- 
 lions of dollars; and if the same works had been constructed 
 by the federal government, supposing the thing to have been 
 practicable, the cost would have probably been not less than 
 nine hundred millions of dollars. The number of persons 
 employed in superintending, managing, and keeping up 
 these canals and railroads may be stated at one hundred and 
 twenty-six thousand, or thereabouts; to which are to be 
 added seventy thousand or eighty thousand employed on the 
 
224 INTERNAL IMPROVEMENTS. 
 
 railroads in construction, making a total of at least two hun- 
 dred thousand persons, representing in families nearly a mil- 
 lion of souls, employed on or maintained by this one class of 
 public works in tlie United States. 
 
 In view of all this, it is not easy to estimate the disastrous 
 consequences Avhich must have resulted from such extended 
 local improvements being undertaken by the general gov- 
 ernment. State legislation upon this subject would have 
 been suspended, and private enterprize paralyzed, while ap- 
 plications for appropriations would have perverted the legis- 
 lation of Congress, exhausted the national treasury, and left 
 the people burdened with a heavy public debt, beyond the 
 capacity of generations to discharge. 
 
 Is it conceivable that the framers of the Constitution in- 
 tended that authority, drawing after it such immense conse- 
 quences, should be inferred by implication as the incident of 
 enumerated powers? I cannot think this; and the impossi- 
 bility of supj)osing it would be still more glaring, if similar 
 calculations were carried out in regard to the numerous ob- 
 jects of material, moral, and political usefulness, of Avhich 
 the idea of internal improvement admits. It may be safely 
 inferred, that if the framers of the Constitution had intended 
 to confer the power to make appropriations for the objects 
 indicated, it would have been enumerated among the grants 
 expressly made to Congress. When, therefore, any one of 
 the powers actually enumerated is adduced or referred to, as 
 the ground of an assumption to warrant the incidental or 
 implied power of "internal improvement," that hypothesis 
 must be rejected, or at least can be no further admitted than 
 as the particular act of internal improvement may happen to 
 be necessary to the exercise of the granted power. Thus, 
 when the object of a given road, the clearing of a particular 
 channel, or the construction of a particular harbor of refuge, 
 is manifestly required by the exigencies of the naval or mili- 
 tary service of the country, then it seems to me undeniable 
 tliat it may be constitutionally comprehended in the powers 
 to declare war, to provide and maintain a navy, and to raise 
 and support armies. At the same time, it would be a mis- 
 use of these powers, and a violation of the Constitution, to 
 undertake to build upon them a great system of internal im- 
 provements. And similar reasoning applies to the assump- 
 tion of any such power as involved in that to establish 
 post roads and to regulate commerce. If the particular 
 improvement, whether by laud or sea, be necessary to the 
 execution of the enumerated powers, then, but not otherwise, 
 it falls within the jurisdiction of Congress. To this extent 
 
INTERNAL IMPROVEMENTS. 225 
 
 only can the power be claimed as the incident of any express 
 grant to the federal government. 
 
 But there is one clause of the Constitution in which it 
 has been suggested, that express authority to construct 
 works of internal improvement has been conferred on Con- 
 gress, namely, that wliich empowers it " to exercise exclusive 
 legislation, in all cases whatsoever, over such district (not 
 exceeding ten miles square) as may, by cession of particular 
 States, and the acceptance of Congress, become the seat of 
 the government of the United States, and to exercise like 
 authority over all places purchased by the consent of the le- 
 gislature of the State in which tlie same shall be, for the 
 erection of forts, magazines, arsenals, dock-yards, and other 
 needful buildings." But any such supposition will be seen 
 to be groundless, when this provision is carefully examined, 
 and compared Avith other parts of the Constitution. 
 
 It is undoubtedly true, that " like authority" refers back 
 to "exclusive legislation in all cases whatever," as applied to 
 the District of Columbia ; and tliere is, in the District, no di- 
 vision of powers as between the general and the State gov- 
 ernments. 
 
 In those places which the United States has purchased or 
 retains within any of the States — sites for dock-yards or 
 forts, for example — legal process of the given State is still 
 permitted to run for some purposes, and therefore tlie juris- 
 diction of the United States is not absolutely perfect. But 
 let us assume, for the argument's sake, that the jurisdiction 
 of the United States in a tract of land ceded to it for the 
 purpose of a dock-yard or fort, by Virginia or Maryland, is 
 as complete as in that ceded by them for the seat of govern- 
 ment, and then proceed to analyze this clause of tlie Con- 
 stitution. 
 
 It provides that Congress sliall have certain legislative 
 authority over all places purchased by the United States for 
 certain purposes. It imi)lies that Congress has otherwise 
 the power to purchase. But where does Congress get the 
 })ower to purchase ? Manifestly it must be from some other 
 clause of the Constitution, for it is not conferred by this one. 
 Now, as it is a fundamental j^i'inciple that the Constitution 
 is one of limited powers, the authority to purchase must be 
 conferred in one of the enumerations of legislative power. 
 So that the power to purchase is itself not an unlimited one, 
 but is limited by the objects in regard to which legislative 
 authority is directly conferred. 
 
 The other expressions of the clause in question confirm 
 this conclusion, since the jurisdiction is given as to places 
 29 
 
226 INTERNAL IMPROVEMENTS. 
 
 purchased for certain enumerated objects or purposes. Of 
 these, the first great division, forts, magazines, arsenals and 
 dock-yards are obviously referable to recognized lieads of 
 specific constitutional power. There remains only the phrase 
 "and other weerf/'^fnjuildings." Wherefore needful? Need- 
 ful for any possible purpose Avithin the whole range of the 
 business of society and of government? Clearly not; but 
 only such " buildings" as are " needful" to the United States 
 in the exercise of any of the powers conferred on Congress. 
 
 Thus the United States need, in the exercise of admitted 
 powers, not only forts, magazines, arsenals and dock-yards, 
 but also court-houses, prisons, custom-houses, and post- 
 offices, within the respective States. Places for the erection 
 of such buildings the general government may constitu- 
 tionally purchase, and, having purchased them, the jurisdic- 
 tion over them belongs to the United States. So, if the 
 general government has the power to build a light-house or 
 a beacon, it may purchase a ])lace for that object ; and hav- 
 ing purchased it, then this clause of tlie Constitution gives 
 jurisdiction over it. Still the power to purchase for the 
 l^urpose of erecting a light-house or beacon, must depend on 
 the existence of the power to erect ; and if that power exists, it 
 must be sought after in some other clause of the Constitution. 
 
 From whatever point of view, therefore, the subject is re- 
 garded, whether as a question of express or implied poAver, 
 the conclusion is the same, that Congress has no constitu- 
 tional authority to carry on a system of internal improve- 
 ments ; and in this conviction the system has been steadily 
 opposed by the soundest expositors of the functions of the 
 government. 
 
 It is not to be suj^posed that in no conceivable case shall 
 there be doubt as to whether a given object be, or not, a 
 necessary incident of the military, naval, or any other 
 power. As man is imperfect, so are his methods of utter- 
 ing his thoughts. Human language, save in expressions 
 for the exact sciences, must always fail to preclude all possi- 
 bility of controversy. Hence it is that, in one branch of the 
 subject — the question of the power of Congress to make ap- 
 propriations in aid of navigation — there is less of positive 
 conviction than in regard to the general subject; and it 
 therefore seems proper, in this respect, to revert to the his- 
 tory of the practice of the government. 
 
 Among the very earliest acts of the first session of Con- 
 gress, was that for the establishment and support of light- 
 houses, approved by President Washington on the 7th of 
 August, 1789, which contains the following provisions : 
 
INTERNAL IMPROVEMENTS. 227 
 
 " That all expenses which shall accrue, from and after the 
 fifteenth day of August, one thousand seven hundred and 
 eighty-nine, in the necessary support, maintenance, and 
 repairs of all light-houses, beacons, buoys and public piers, 
 erected, j^laced, or sunk before the passing of this act, at tlie 
 entrance of or within any bay, inlet, harbor, or port of the 
 United States, for rendering the navigation thereof easy and 
 safe, shall be defrayed out of the treasury of the United 
 States : Provided, nevertheless, That none of the said ex- 
 penses shall continue to be so defrayed, after the expiration 
 of one year from the day aforesaid, unless such light-houses, 
 beacons, buoys, and public piers shall, in the meantime, be 
 ceded to, and vested in the United States, by the State or 
 States, respectively, in which the same may be, together 
 M'ith the lands and tenements tliereunto belonging, and to- 
 gether with the jurisdiction of the same." Acts containing 
 appropriations for this class of public works were passed in 
 1791, 1792, 1793, and so on, from year to year, down to the 
 present time ; and the tenor of these acts, when examined 
 with reference to other parts of the subject, is worthy of 
 special consideration. 
 
 It is a remarkable fact that, for a period of more than 
 thirty years after the adoption of the Constitution, all appro- 
 priations of this class were confined, with scarcely an ajipa- 
 rent exception, to the construction of light houses, beacons, 
 buoys, and public piers, and the stakeage of channels: — to 
 render navigation "safe and easy," it is true, but only by 
 indicating to the navigator obstacles in his waj^, not by 
 removing those obstacles, nor in any other respect changing 
 artificially the pre-existing natural condition of the earth 
 and sea. It is obvious, however, that works of art for the 
 removal of natural impediments to navigation, or to prevent 
 their formation, or for supplying harbors where these do not 
 exist, are also means of rendering navigation safe and easy; 
 and may, in supposable cases, be the most efficient, as well 
 as the most economical, of such means. Nevertheless, it is 
 not until the year 1824 that, in an act to improve the navi- 
 gation of the rivers Ohio and Mississippi, and in another act 
 making appropriations for deepening the cliaunel leading 
 ,into the harbor of Presque Isle, on Lake Erie, and for re- 
 pairing Plymouth Beach, in Massachusetts Bay, we have any 
 example of an appropriation for the improvement of harbors, 
 in the nature of those provided for in the bill returned by me 
 to the House of Representatives. 
 
 It appears not probable that the abstinence of Congress in 
 this respect is attributable altogether to considerations of 
 
228 INTERNAL IMPROVEMENTS. 
 
 economy, or to any failure to perceive that the removal of an 
 obstacle to navigation might be not less useful than the in- 
 dication of it for avoidance; and it may be well assumed 
 that the course of legislation, so long pursued, was induced, 
 in whole or in part, by solicitous consideration in regard to 
 the constitutional power over such matters vested in Congress. 
 
 One other peculiarity in this course of legislation is not 
 less remarhahle. It is, that when the general government 
 first took charge of light houses and beacons, it required the 
 works themselves, and tlie lands on which they were situa- 
 ted, to be ceded to the United States. And although for a 
 time this precaution was neglected in the case of new works, 
 in the sequel it was provided by general laws that no light 
 house should he constructed on any site previous to the ju- 
 risdiction over the same being ceded to the United States. 
 
 Constitutional authority for the construction and support 
 of many of the public works of this nature, it is certain, may 
 be found in the power of Congress to maintain a navy and 
 provide for the general defence; but their number, and, in 
 many instances, their location, preclude the idea of their 
 being fully justified as necessary and proper incidents of that 
 power. And they do not seem susceptible of being referred 
 to any other of the specific powers vested in Congress by the 
 Constitution, unless it be that to raise revenue, in so far as 
 this relates to navigation. The practice under all my pre- 
 decessors in office, the express admissions of some of them, 
 and absence of denial by any, sufiiciently numifest their 
 belief that the power to erect light houses, beacons, and piers, 
 is possessed by the general government. In the acts of Con- 
 gress, as we have already seen, the inducement and object of 
 the appropriations are expressly declared: those appropria- 
 tions being for "light houses, beacons, buoys, and public 
 piers" erected or placed "within any bay, inlet, harbor, or 
 port of the United States for rendering the navigation thereof 
 easy and safe." 
 
 If it be contended that tliis review of tlie history of appro- 
 priations of this class leads to the inference, that, beyond the 
 purposes of national defence and maintenance of a navy, 
 there is authority in the Constitution to construct certain 
 works in aid of navigation, it is at the same time to be re- 
 membered that the conclusions tlius deduced from cotem 
 poraneous construction and long continued acijuiescence are 
 themselves directly suggestive of limitations of constitution- 
 ality, as well as expediency, regarding the nature and the 
 description of those aids to navigation which Congress may 
 provide as incident to the revenue power. For, at this point 
 
INTERNAL IMPROVEMENTS. 22^ 
 
 controversy begins, not so much as to the principle as to its 
 application. 
 
 In accordance with long established legislative usage, 
 Congress may construct light houses and beacons, and pro- 
 vide, as it does, other means to prevent shipwrecks on the 
 coasts of the United States. But the general government 
 cannot go beyond this, and make improvements of rivers and 
 harbors of the nature, and to the degree, of all the provisions 
 of the bill of the last session of Congress. 
 
 To justify such extended power, it has been urged that, if 
 it be constitutional to appropriate money for the purpose of 
 pointing out, by the construction of light houses or beacons, 
 where an obstacle to navigation exists, it is equall)^ so to 
 remove such obstacle, or to avoid it by the creation of an 
 artificial channel; that if the object be lawful, then the means 
 adopted solely with reference to the end must be lawful, and 
 that therefore it is not material, constitutionally speaking, 
 whether a given obstruction to navigation be indicated for 
 avoidance, or be actually avoided by excavating a new chan- 
 nel; that if it be a legitimate object of expenditure to preserve 
 a ship from wreck, by means of a beacon, or of revenue 
 cutters, it must be not less so to provide places of safety by 
 the improvement of harbors, or, where none exist, by tlieir 
 artificial construction; and thence the argument naturally 
 passes to the jjropriety of improving rivers for the benefit 
 of internal navigation: because all these objects are of more 
 or less importance to the commercial, as well as the naval, 
 interests of the United States. 
 
 The answer to all this is, that the question of opening 
 speedy and easy communication to and through all parts of 
 the country, is substantiall}^ the same, whether done by land 
 or water ; that the uses of roads and canals in facilitating 
 commercial intercourse, and uniting by community of inter- 
 ests the most remote quarters of the country by land com- 
 munication, are the same in their nature as the uses of navi- 
 gable waters ; and that therefore, the question of the facili- 
 ties and aids to be provided to navigation, by wliatsocver 
 means, is but a sub-division of the great question of the con- 
 stitutionality and expediency of internal improvements by 
 the general government In confirmation of this, it is to be 
 remarked, that one of the most important acts of appropri- 
 ation of this class, that of the year 1833, under the admin- 
 istration of President Jackson, by including together and 
 providing for, in one bill, as well river and harbor works, as 
 road works, impliedly recognizes the fact that they are alike 
 branches of the same great subject of internal improvements. 
 
230 INTERNAL IMPROVEMENTS. 
 
 As the population, territory and wealth of the country 
 increased, and settlements extended into remote regions, the 
 necessity I'or additional means of communication impressed 
 itself upon all minds with a force which had not been expe- 
 rienced at the date of the formation of the Constitution, and 
 more and more embarrassed those who were most anxious to 
 abstain, scrupulously, from any exercise of doubtful power. 
 Hence the recognition, in the messages of Presidents Jeffer- 
 son. Madison, and Monroe, of the eminent desirableness of such 
 works, with admission that some of them could lawfully and 
 should be conducted by the general government, but with 
 obvious uncertainty of opinion as to the line between such 
 as are constitutional and such as are not; such as ought to 
 receive appropriations from Congress, and such as ought to 
 be consigned to private enterprize, or the legislation of the 
 several ►States. 
 
 This uncertainty has not been removed by the practical 
 working of our institutions in later times; for although the 
 acquisition of additional territory, and the application of 
 steam to the propulsion of vessels, have greatly magnified 
 the importance of internal commerce, this fact has, at the 
 same time, complicated the question of the power of the 
 general government over the present subject. 
 
 In fine, a careful review of the opinions of all my prede- 
 cessors, and of the legislative history of the country, does 
 not indicate any fixed rule by which to decide what, of the 
 infinite variety of possible river and harbor improvements, 
 are within the scope of the power delegated by the Consti- 
 tution; and the question still remains unsettled. President 
 Jackson conceded the constitutionality, under suitable cir- 
 cumstances, of the improvement of rivers and harbors 
 through the agency of Congress; and President Polk ad- 
 mitted the propriety of the establishment and support, by ap- 
 propriations from the treasury, of light houses, beacons, 
 buoys, and other improvements, within the bays, inlets, and 
 harbors of the ocean and lake coasts immediately connected 
 with foreign commerce. 
 
 But, if the distinction thus made rests upon the differences 
 between foreign and domestic commerce, it cannot be re- 
 stricted thereby to the bays, inlets, and harbors of the oceans 
 and lakes, because foreign commerce has already j)enetrated 
 thousands of miles into the interior of the continent by 
 means of our great rivers, and will continue so to extend 
 itself with the progress of settlement, until it reaches the 
 limit of navigability. 
 
 At the time of the adoption of the Constitution, the vast 
 
INTERNAL IMPROVEMENTS. 231 
 
 valley of the Mississippi, now teeming with population, and 
 supplying almost boundless resources, was literally an un- 
 explored wilderness. Our advancement has outstripped even 
 the most sanguine anticipations of the fathers of the Re- 
 public; and it illustrates the fact, that no rule is admissible 
 which undertakes to discriminate, so far as regards river and 
 harbor improvements, between the Atlantic or Pacific coasts, 
 and the great lakes and rivers of the interior regions of North 
 America. Indeed, it is quite erroneous to suppose that any 
 such discrimination has ever existed in the practice of the 
 government. To the contrary of which, is the significant 
 liact before stated, that when, after abstaining from all such 
 appropriations for more than thirty years, Congress entered 
 upon the policy of improving the navigation of rivers and 
 harbors, it commenced with the rivers Slississippi and Ohio. 
 
 The Congress of the Union, adopting, in this respect, one 
 of the ideas of that of the Confederation, has taken heed to 
 declare, from time to time, as occasion required, either in 
 acts for disposing of the public lands in the Territories, or 
 in acts for admitting new States, that all navigable rivers 
 within the same "shall be deemed to be and remain public 
 highways." 
 
 Out of this condition of things arose a question which, at 
 successive periods of our public annals, has occupied the at- 
 tention of the best minds in the Union. This question is, 
 what waters are public navigaable waters so as not to be of 
 State character and jurisdiction, but of Federal jurisdiction 
 and character, in the intent of the Constitution and of Con- 
 gress? A proximate, but imperfect, answer to this important 
 question is furnished by the acts of Congress and the decisions 
 of the Supreme Court of the United States, defining the con- 
 stitutional limits of the maritime jurisdiction of the general 
 government. That jurisdiction is entirely independent of the 
 revenue power. It is not derived from that, nor is it mea- 
 sured thereby. 
 
 In that act of Congress which, in the first year of the 
 government, orgauized our judicial system, and which, 
 whether we look to the subject, the comprehensive wisdom 
 Avith which it was treated, or the deference with which its 
 provisions have come to be regarded, is only second to the 
 Constitution itself, — there is a section in Avhich the states- 
 men who framed the Constitution have placed on record their 
 construction of this matter. It enacts that the district courts 
 of the United States "shall have exclusive cognizance of all 
 civil cases of admiralty and maritime jurisdiction, including 
 all seizures under the law of impost, navigation, or trade of 
 
232 INTERNAL IMPROVEMENTS. 
 
 the United States, when the seizures are made on waters 
 which are navigahle from the sea hy vessels of ten or more 
 tons hurden, within their respective districts, as well as npon 
 the high seas." In this cotemporaneous exposition of the 
 Constitution, there is no traceof suggestion, that nationality 
 of jurisdiction is limited to the sea, or even to tide-waters. 
 The law is marked hy a sagacious apprehension of the fact 
 that the great Lakes and the Mississippi were navigable 
 waters of the United States even then, before the oacquisition of 
 Louisiana had made wholly our own the territorial greatness 
 of the West. It repudiates, unequivocally, the rule of the 
 common law, according to which the question of whether a 
 water is public navigable water or not, depends on whether 
 it is salt or not, and therefore, in a river, confines that quality 
 to tide water: a rule resulting from tlie geographical condition 
 of England, and applicable to an island with small and nar- 
 row streams, the only navigable portion of which, for ships, 
 is in immediate contact with the ocean, but wholly inappli- 
 cable to the great inland fresh water seas of America, and 
 its mighty rivers, with secondary branches exceeding in 
 magnitude the largest rivers of G-reat Britain. 
 
 At a later period, it is true, that, in disregard of the more 
 comprehensive definition of . navigability afforded by that 
 act of Congress, it was for a time held by many, that the 
 rule established for England was to be received in the Uni- 
 ted States; the effect of which was to exclude from the ju- 
 risdiction of the general government, not only the wiiters of 
 the Mississippi, but also those of the great Lakes. To this 
 construction it Avas with truth objected, that, in so far as con- 
 cerns the Lakes, they are in fact seas, although of fresh wa- 
 ter; that they are the natural marine communications be- 
 tween a series of populous States, and between them and the 
 possessions of a foreign nation; that they are actually navi- 
 gated by ships of commerce of the largest capacity; that they 
 had once been, and might again be, the scene of foreign war; 
 and that therefore it was doing violence to all reason to 
 undertake, by means of an arbitrary doctrine of technical 
 foreign law, to exclude such waters from the jurisdiction of 
 the general government. In regard to the river Mississi])pi, 
 it was objected that, to draw a line across that river at the 
 point of ebb and flood of tide, and say that the part below 
 was public navigable water, and the part above not, while in 
 the latter the water was at least equally deep and navigable, 
 and its commerce as rich as in the former, with numerous 
 ports of foreign entry and delivery, was to sanction a distinc- 
 
INTERNAL UrPROVEMENTS, 233 
 
 tion artificial and unjust, "because regardless of the real fact 
 of navigability. 
 
 We may conceive that some such considerations led to the 
 enactment, in the year 1845, of an act, in addition to that of 
 1789, declaring that "the district courts of the United States 
 shall have, possess, and exercise the same jurisdiction in 
 matters of contract and tort, arising in, npon, or concerning 
 steamboats, and other vessels of twenty tons burden and up- 
 wards, enrolled and licensed for the coasting trade, and at 
 the time employed in business of commerce and navigation 
 betAveen ports and places in different States and Territories 
 upon the Lakes, and navigable waters connecting said Lakes, 
 as is now possessed and exercised by the said courts in cases 
 of the like steamboats and other vessels employed in naviga- 
 tion and commerce upon the high seas or tide-waters, within 
 the admiralty and maritime jurisdiction of the United 
 States." 
 
 It is observable that the act of 1*789 applies the jurisdic- 
 tion of the United States to all "waters which are navigable 
 from the sea" for vessels of ten tons burden; and that of 1845 
 extends the jurisdiction to enrolled vessels of twenty tons 
 burden, on the Lakes, and navigable waters connecting said 
 Lakes, though not waters navigable from tlie sea, provided 
 such v.essels be employed between places in different States 
 and Territories. 
 
 Thus it appears that these provisions of law, in effect, pre- 
 scribe conditions by which to determine whether any waters 
 are public navigatjle waters, subject to the authority of the 
 federal government. The conditions include all waters, 
 whether salt or fresh, and whether of sea, lake, or river, pro- 
 vided they be capable of navigation by vessels of a certain 
 tonnage, and for commerce, either between the United States 
 and foreign countries, or between any two or more of 
 the States or Territories of the Union. This excludes water 
 wholly within any particular State, and not used as the 
 means of commercial communication with any other State, 
 and subject to be improved or obstructed, at will, by the 
 State within which it may happen to be. 
 
 The constitutionality of these provisions of statute has been 
 called in question. Their constitutionality has been main- 
 tained, however, by repeated decisions of the Supreme Court 
 of the United States, and they are, therefore, the law of the 
 land by the concurrent act of the legislative, the executive^ 
 and the judicial departments of the government. Regarded 
 as affording a criterion of what is navigable water, and as 
 such subject to the maritime jurisdiction of the Supreme 
 30 
 
234 INTERNAL IMPROVEMENTS. 
 
 Court and of Congress, these acts are objectionable in this, 
 that the rule of navigability is an arbitrary one; that Con- 
 gress may repeal the present rule, and adopt a new one; and 
 that thus a legislative definition will be able to restrict or 
 enlarge the limits of constitutional })ower. Yet this variable- 
 ness of standard seems inherent in the nature of things. At 
 any rate, neither the first Congress, composed of the states- 
 men of the era when the Constitution was adopted, nor any 
 subsequent Congress, has afforded us the means of attaining 
 greater precision of constriiction as to this part of the Con- 
 stitution. 
 
 This reflection may serve to relieve from undeserved re- 
 proach an idea of one of the greatest men of the Republic, 
 President Jackson. He, seeking amid all tlie difficulties of 
 the subject for some practical rule of action in regard to ap- 
 propriations for the improvement of rivers and harbors, pre- 
 scribed for his own official conduct the rule of confining such 
 appropriations to -'ijlaces below the ports of entry or delivery 
 established by law." He saw clearly, as the authors of the 
 above mentioned acts of 1789 and 1845 did, that there is no 
 inflexible natural line of discrimination between what is na- 
 tional and what local, by means of which to determine ab- 
 solutely and unerringly at what point on a river the juris- 
 diction of the United States shall end. He perceived, and of 
 course admitted, that the Constitution, while conferring on 
 the general government some power of action to render navi- 
 gation safe and easy, had of necessity left to Congress much 
 of discretion in this matter. He confided in the patriotism 
 of Congress to exercise that discretion wisely, not permitting 
 himself to suppose it possible that a port of entry or delivery 
 would ever be established by law for the express and only 
 purpose of evading the Constitution. 
 
 It remains, therefore, to consider the question of the mea- 
 sure of discretion in the exercise by Congress of the power to 
 provide for the improvement of rivers and harbors, and also 
 that of the legitimate responsibility of the Executive in the 
 same relation. 
 
 In matters of legislation of the most unquestionable con- 
 stitutionality, it is always material to consider what amount 
 of public money shall be appropriated for any particular ob- 
 ject. The same consideration applies with augmented force 
 to a class of appropriations which are in their nature i)ecu- 
 liarly prone to run to excess, and which, being made in the 
 exercise of incidental powers, have intrinsic tendency to 
 overstep the bounds of constitutionality. 
 
 If an appropriation for improving the navigability of a 
 
INTERNAL IMPROVEMENTS. 235 
 
 river, or deepening or protecting a harbor, have reference to 
 military or naval purposes, then its rightfulness, whether in 
 amount or in the objects to which it is applied, depends, 
 manifestly, on the military or naval exigency; and the sub- 
 ject matter affords its own measure of legislative discretion. 
 But if the a]ipropriation for such an object have no distinct 
 relation to the military or naval wants of the country, and is 
 wholly, or even mainly, intended to promote the revenue 
 from commerce, then the very vagueness of the proposed pur- 
 pose of the expenditure constitutes a perpetual admonition 
 of reserve and caution. Through disregard of this, it is un- 
 deniable that, in many cases, appropriations of this nature 
 have been made unwisely, without accomplishing beneficial 
 results commensurate with the cost, and sometimes for evil, 
 rather than good, independently of their dubious relation to 
 the Constitution. 
 
 Among the radical changes of the course of legislation 
 in these matters, which, in my judgment, the public interest 
 demands, one is a return to the primitive idea of Congress, 
 which required in this class of public works, as in all others, 
 a conveyance of the soil, and a cession of the jurisdiction to 
 the United States. I think this condition ought never to 
 have been waived in the case of any harbor improvement of 
 a permanent nature, as where piers, jettees, sea-walls, and 
 other like works are to be constructed and maintained. It 
 would powerfully tend to counteract endeavors to obtain ap- 
 propriations of a local character, and chiefly calculated to 
 promote individual interests. The want of such a provision 
 is the occasion of abuses in regard to existing works, ex- 
 posing them to private encroachment without sufficient 
 means of redress by law. Indeed, the absence, in such 
 cases, of a cession of jurisdiction, has constituted one of the 
 constitutional objections to appropriations of this class. It 
 is not easy to jierceive any sulficient reason for requiring it 
 in the case of arsenals or forts, which does not equally apply 
 to all other public works ; if to be constructed and main- 
 tained by Congress in the exercise of a constitutional j^iower 
 of appropriation, they should be brought within the juris- 
 diction of the United States. 
 
 There is another measure of precaution, in regard to sucli 
 appropriations, which seems to me to be worthy of the con- 
 sideration of Congress. It is, to make appropriation for 
 every work in a separate bill, so that each one shall stand 
 on its own independent merits ; and if it pass, shall do so 
 imder circumstances of legislative scrutiny, entitling it to 
 
236 INTERNAL IMPROVEJIENTS. 
 
 "be regarded as of general interest, and a proper subject of 
 charge on the treasury of the Union. 
 
 During that period of time in which the country had not 
 come to look to Congress for appropriations of this nature.; 
 several of the States, whose productions or geographical po- '. 
 sition invited foreign commerce, had entered upon phans for 
 the improvement of their harbors by themselves, and through 
 means of support drawn directly from that commerce, in 
 virtue of an express constitutional power, needing for its ex- 
 ercise only the permission of Congress. Harbor improve- 
 ments thus constructed and maintained, the expenditures 
 upon them being defrayed by the very facilities they afford, 
 are a voluntary charge on those only who see fit to avail 
 themselves of such facilities, and can be justly complained of 
 by none. On the other hand, so long as these improve- 
 ments are carried on by appropriations from the treasury, 
 the benefits will continue to inure to those alone who enjoy 
 the facilities afforded, while the expenditure will be a bur- 
 den upon the whole country, and the discrimination a double 
 injury to places equally requiring improvement, but not 
 equally favored by appropriations. 
 
 These considerations, added to the embarrassments of the 
 whole question, amply suffices to suggest the policy of con- 
 fining appropriations by the general government to works 
 necessary to the execution of its undoubted powers, and of 
 leaving all others to individual enterprize, or to the separate 
 States, to be provided for out of their own resources, or by 
 recurrence to the provision of the Constitution, which au- 
 thorizes the States to lay duties on tonnage with the consent 
 of Congress. 
 
 FRANKLIN PIERCE. 
 
 Washington, December 30, 1854. 
 
XI.-THE COAST SURVEY. 
 
 The survey of the Coast bep;iin by Mr. F. E. Hassler, in 
 1832, (after some fruitless earlier operations) has since his 
 death in 1843, been under the charge of Prof. A. D. Bache, 
 the present Superintendent. It is conducted under the 
 Treasury Department, but is not a Bureau, being of a tem- 
 porary character, and not possessing an organic structure 
 adapted to that designation. The office is situated on Capi- 
 tol Hill, some 300 yards from tlie Capitol, down New Jersey 
 Avenue. During the portion of the year when the Super- 
 intendent is not in the field, he has his office in the Coast 
 Survey buildings, and in his absence he is represented by 
 the Assistant in charge of the office. 
 
 The coast is divided into eleven sections, extending in 
 order from Maine around to Texas, and thence up the Pa- 
 cific Coast. Operations are noAv in progress in all these 
 sections, and thus the widest development of these labors 
 is now nearly reached. The order of field work is essen- 
 tially the following : 
 
 1st. Reconnoissaxce. — By this is meant that preliminary 
 exploration Avhich is requisite to determine the proper points 
 to be occupied as stations for observations, the sites of base 
 lines, and the facilities and obstacles to the i'utnre conduct 
 of 0})erations. 
 
 2d. Base Line Measurements. — Each section has at least 
 one base of from five to ten miles long, which is measured 
 by a very accurately compensating standard base apparatus 
 of some 20 feet in length. From this base, all the other dis- 
 tances in the section are deduced by a continuation of angle 
 observations and computations. 
 
 3d. Astronomical and Magnetic Observations. — A limited 
 number of the primary stations in each section are occupied 
 for very accurate and detailed observations for latitude, lon- 
 gitude and azimuth, whereby their positions on the earth 
 are very precisely determined, and the bearings of the va- 
 rious lines between the stations made known. The mag- 
 netic elements are so observed as to serve botli practical and 
 theoretical purposes. 
 
 4th. Triangulation. — Intervisible stations are successively 
 occupied so as to spread along the entire coast a connected 
 net work of triangles, all the angles in which are mea- 
 
 237 
 
238 THE COAST SURVEY. 
 
 sured by accurate theodolite observations. The main tri- 
 angulation, whose sides are the longest, is called the pri- 
 mary, and is carried from the base over the section, with as 
 few stations as possible. The secondary and tectiary trian- 
 gulations work down from the primary to all the points 
 whose positions are to be determined. By discussing the 
 astronomical and primary triangulation observations, the 
 geodetic results concerning the lengths of latitude and lon- 
 gitude degrees, and the figure of the earth, are finally to be 
 brought out. 
 
 5th. Topography. — Having by the triangulation deter- 
 mined so many points that a convenient sized field sheet on 
 the scale of j-sin-s will contain some three or more of these 
 points, the country under survey is distributed into a series 
 of sheets, on which these points being accurately plotted, it 
 only remains to fill in all the details of surface in their cor- 
 rect relation to these points. This is done by the plane 
 table and other instruments, so that a series of sheets is 
 produced giving all the accidents of ground, the shore lines, 
 the hill slopes, &c., graphically located and represented. All 
 these topographical distances refer back to the section base 
 line. 
 
 Gtli. Hydrography. — Having a correct shore line from the 
 topographical sheets, and points fixed by the triangulation, 
 these are plotted on large sheets for the hydrographic parties. 
 These proceed to execute a series of soundings, located by 
 the signals on shore, or new ones referred to the given points, 
 so that all the soundings can be plotted in correct relation 
 to the shore line. A series of tidal observations is made at 
 the same time, by which all soundings are referred to the 
 same plane of reference which is usually that of mean low 
 water. Current observations are also made, so as to de- 
 velop all the essential hydrographic features of the water 
 surveyed. Soundings are conducted by shore references, by 
 intermediate signal vessels, or by latitude and longitude 
 observations to such a distance ofi' the shore as is needed to 
 unfold all the main peculiarities of the bottom within prac- 
 ticable soundings. The Gulf Stream has been observed also, 
 especially in relation to temperature. Thus all the hydro- 
 graphic operations proceed in tlie train of the triangulation, 
 each sounding being located by reference to the same con- 
 nected scheme of fixed points. 
 
 Passing now to the Office operations, wliich are necessary 
 to make all these observations available for charts and other 
 I)urposes, we find a similar train of processes is still to be 
 gone through, which is briefly the following: 
 
THE COAST SURVEY. 239 
 
 1st. The Archives. — All the journals of astronomical, 
 magnetic and triangulation observations, all the topographic 
 and hydrographic sheets, all the note books of soundings, 
 sextant angles, &c., all the special records of longitude ope- 
 rations by telegraph and chronometers, the specimens of 
 bottoms, &c., indeed all records of observations of whatever 
 sort, are brought together and arranged systematically in 
 one fire proof repository called the Archives. Here also the 
 library of the survey is kept. All these materials require to 
 be so administered as to make all and each at once available. 
 
 2d. Computations. — The astronomical, magnetic, triangu- 
 lation and tidal observations, require to be subjected to the 
 process of computation, to bring out the final results required 
 for use, in the shape of latitudes, longitudes, azimuths, dis- 
 tances, &c. Two sets of computations are made as a check 
 on each other. 
 
 3d. Drawing. — Preparatory to the final charts, drawings 
 are made in which the points are accurately plotted, and the 
 topography and hydrography from the several sheets re- 
 duced to the publication scale and accurately combined. 
 Skill, taste, and fidelity to the originals are first requisites, 
 and all measures are taken to ensure superior style and great 
 accuracy in the drawings. 
 
 4th. Engraving. — The drawing of a chart being completed, 
 it is placed in the engraver's hands, to be transferred by the 
 graver into the copper plates. Careful tracings of the parts, 
 being made on fish glue or tracing paper, the outlines are re- 
 versed on a wax coating and then drawn into the copper. 
 The style is elaborated in the engraver's execution of hills, 
 woods, marshes, &c., so as to unite beauty and truth. Sail- 
 ing directions, notes, titles, &c., are added, and at last the 
 engraved plate is finished. 
 
 5th. Electrotyping. — Before proceeding to the printing 
 it is essential to procure copies of the finished plate by 
 means of the electrotype art, as otherwise the costly originals 
 would soon be worn out and re-engraving would be neces- 
 sary. By galvanic action, a cojiper case of the plate is made, 
 on which all the graver lines appear in relief, and casts be- 
 ing again taken from this, come out perfect duplicates of the 
 original. These are then employed by the printer. The art 
 of electroty})ing copper plates is in the very highest perfection 
 at the Coast Survey office. 
 
 6th. Printing. — The printer from the electrotype copper 
 plates proceeds to work off the impressions required to meet 
 the demands for sale and distribution. The plates in the 
 
240 THE COAST SURVEY. 
 
 Coast Survey Eeports are printed by transfer on to stone, as 
 the number is too great for copper-plate printing. 
 
 Thus, the long train of field and office operations reach 
 their culmination in the series of general coast and harbor 
 charts, many of which have already appeared, and to the list 
 of which each year is steadily adding. They embrace all the 
 best elements of perfect charts, and when our entire sea- 
 board is thus pictorially presented, nothing will be lacking 
 to the hydrographic facilities for commerce and navigation 
 along our extensive coast. 
 
 From the annual report of the Superintendent for 1854, 
 in a summary view of the progress of the survey up to this 
 time, we learn that the chain of triangulation of the Coast 
 Survey now extends, with a single broken link of fifteen 
 miles, from Penobscot bay, in Maine, to Bogue sound, in 
 North Carolina. South of this it crosses Cape Fear entrance, 
 and passes up the river to Wilmington, includes Winyah 
 bay and Georgetown harbor, and the coast from the Ashley 
 river to St. Helena sound, Calibogue sound and the Savan- 
 nah river to the head of Argyle island, and St. John's river 
 entrance; connects the Florida reefs and keys from Cape 
 Florida to Key Roderiguez, and from the Pine islands to Key 
 West; extends from Crystal river offing to Cedar Keys, in- 
 clusive, on the western coast of the Florida peninsula, over 
 Ocilla river entrance; connects Mobile with New Orleans 
 and passes from Mobile to the Gulf, and across Mississippi 
 sound, and through Lake Borgne and Lake Ponchartrain to 
 New Orleans; includes Galveston Lower and Upper bays, and 
 East and West bays, and passes the coast to the head of Ma- 
 tagorda bay, and covers the entrance of the Rio Bravo del 
 Norte. 
 
 In some cases the main triangulation leads and in others 
 follows, affording first and last the check which the minor 
 work requires. It rests upon carefully measured bases which, 
 when imited, serve as bases of verification. 
 
 A preliminary triangulation is made whenever a specially 
 im})ortant locality requires survey out of the regular course, 
 and is brought subsequently into the general scheme. 
 
 Upon this series of points determined by the triangula- 
 rion, the plane table surveys rest, furnishing the shore line 
 and details of topography, and with these the hydrography 
 is readily and accurately executed. It gives the sound- 
 ings, pointing out shoals and rocks to be avoided and chan- 
 nels to be followed, the set and drift of currents, and the rise 
 and fall of tides. It would be difficult to find a country 
 which presents a greater variety in the coast, to wbich dif- 
 
THE COAST SURVEY. 2^^ "T 
 
 ferent plans of survey should be adapted, or more varied fea- 
 tures in the oceans which wash it, in all their relations of 
 depth, of current, and of tide. 
 
 The land work finds its most interesting applications 
 amongst the hills and mountains of the eastern coast and on 
 the islands and adjacent main of the Grulf of Mexico, and the 
 hydrography in that great stream which connects the Gulf 
 of Mexico with the northern seas; in exploring the shoals 
 and depths of the great Gulf in which it has its source, and 
 the depths and shoals of tlie nortli and east whence return is 
 made for its flow. It might at first be supposed that in the 
 beaten tracks of commerce and navigation, such a survey had 
 merely to map down accurately and laboriously what, was 
 before imperfectly known and carelessly traced. But, even 
 the approaches to our great marts of commerce have not 
 failed to yield actual discoveries or developments so near 
 akin to theni that it is difficult to draw the line between them. 
 Gedney's channel off New York has associated the name of 
 that veteran hydrographer Avith discovery in the most fre- 
 quented port of the Union. Blake's channel, in the Dela- 
 ware, Davis' shoal, and Davis' bank, near Nantucket, Stell- 
 wagen's bank at the entrance of Massachusetts bay, Almy's 
 shoal, off Cape Charles, Jenkins' channel, across Cape Fear 
 shoals, Maffitt's channel, at Charleston, and Rodger's chan- 
 nel, at Key West, have connected their skill and patient re- 
 search with the most thronged routes and customary ap- 
 proaches. The pilot or navigator follows the middle way 
 without seeking to the right or to the left, sounding only 
 when necessity requires, his object being to carry his single 
 vessel into port; the surveyor explores tlie entire approach, 
 carrying his vessel into places deemed both safe and unsafe, 
 that he may develop their facilities or discover their dangers. 
 
 The result of this exploration for the last year exhibits the 
 following list of developments and discoveries: 
 
 List of Coast Survoj Discoveries and Developments for 1854. 
 
 1. Determination of the dimensions of Alden's rock, near 
 Cape Elizabeth, Maine. 
 
 2. A bank (Stellwagen's bank) with ten and a half to four- 
 teen and a half fathoms of w^ater on it, at the entrance to 
 Massaciiusctts bay, and serving as an imjiortant mark for 
 approaching Boston and other harbors. 
 
 3. A dangerous sunken ledge (Davis' ledge) to the east- 
 ward and in the neighborhood of Minot's ledge. 
 
 4. Several rocks in the fair channel way, in Boston harbor 
 entrance. 
 
 31 
 
242 THE COAST SURVEY. 
 
 5. The tidal currents of Xantucket shoals and the ap- 
 proaches. 
 
 6. The tidal currents of Long Island sound. 
 
 7. The changes in New York harbor near the citv between 
 1845 and 1854. 
 
 8. The general permanence of the Bodkin channel, and 
 shoals in its vicinity, at the entrance of the Patapsco river, 
 between 1844 and 1854. 
 
 9. A shoal (New Point shoal) in Chesapeake bay with six- 
 teen feet water on it, S. E. from New Point Comfort light- 
 house, off Mobjack ba}'. 
 
 10. A reconnoissance of the Wimble shoals, near Nag's 
 head, coast of North Carolina. 
 
 11. The general permanence in depth on the bar of Beau- 
 fort, N. C, witli the change of position of the channel. 
 
 12. The changes in Matfit's channel, Charleston harbor, S. 
 C, from 1852 to 1854. 
 
 13. A harbor of refuge (Turtle harbor) to the northward 
 and westward of Carysport light-house, Florida reef, with a 
 depth of water of twenty-six feet at the entrance. 
 
 14. A safe rule for crossing the Florida reef, near Indian 
 
 15. Cotidal lines for the Atlantic coast of the United 
 States. 
 
 16. An increase of depth of water on the bar at Pass Four- 
 chon, Louisiana. 
 
 17. A shoal at the entrance to the Straits of Rosario, 
 Washington Territory, giving good holding ground in thirty- 
 three feet. 
 
 18. Belle rock, in the middle of Piosario strait, Washing- 
 ton Territory, visible only at extreme low tides. 
 
 19. Entrance rock at the entrance of Rosario strait. 
 
 20. Unit rock, in the Canal de Haro, Washington Terri- 
 tory. 
 
 21. A five fathom shoal in the strait of Juan de Fuca, be- 
 tween Canal de Haro and Rosario strait. 
 
 22. The non-existence of two islands at the northern en- 
 trance of Canal de Haro, laid down on charts. 
 
 23. The non-existence of San Juan island, usually laid 
 among the Santa Barbara group. 
 
 24. Tides of San Diego, San Francisco and Astoria. 
 
 A statement of the Coast Survey field work, in each of the 
 eleven sections during the year 1854, is contained in the 
 following summary: 
 
 Section I. — Coast of Maine, Neiv Hanipsliire, Massacliu- 
 setfs, and Rhode Idand. — Ragged mountain, near Camdeu, 
 
THE COAST SURVEY. 243 
 
 Maine, has been occupied as a priraary station, astronomical 
 and magnetic observations being also made tliere. The lines 
 of sight reach forward to Mt. Desert and Humpback mountain 
 in Brewster. The reconnoissance has been continued to the 
 eastern boundary. The triangulation of C-asco bay has been 
 extended to Cape Small Point, entrance of the Kennebeck. 
 The topography of Baker's island, part of Cape Small Point, 
 of the approaches to Portland harbor, of Cape Neddick, and 
 to include Ognnquit harbor, in Maine, of the vicinity of 
 Newbury port, Massachusetts, from the connection with the 
 former work south of it, of part of the vicinity of Boston to 
 determine certain changes for the State Commissioners, and 
 of the approaches to Plymouth harbor, has been executed. 
 A hydrographic reconnoissance of the eastern part of Egge- 
 moggiu reach, Maine, has been made; some additional hydro- 
 graphy in and near Portland harbor for the City Commission 
 has been executed. The hydrography of Massachusetts bay 
 has been commenced, including the sounding out of a four- 
 teen fathom bank at the entrance. The inshore Avork from 
 Nahant to Marblehead has been completed. A dangerous ledge 
 oif the Minot's and several rocks at the entrance of Boston 
 harbor have been determined. The oftshore work from the 
 'northward of Cape Cod to Monomoy has been commenced. 
 Deep sea soundings have been made from the Nantucket 
 shoals outwards, from S. E. round to George's bank. The hy- 
 drography of the north side of the Vineyard and Nantucket 
 sounds, and eastward from the former work, including the 
 sounding out of Horse Shoe, Luccowesset and L'Homme 
 Dieu shoals, has been completed. A jiortion of a section 
 from Nantucket south eastwardly across the Gulf Stream has 
 been run. The tides of these sounds and their approaches 
 have been investigated. The regular tidal station at Boston 
 has been kept up. The current observations of the Nantucket 
 shoals and in Muskeget channel have been worked up. Views 
 have been taken for the sheets of Salem and Gloucester har- 
 bors. The discussion of the results of the chronometer 
 expeditions between Cambridge and Liverpool has been 
 completed. Examinations in regard to the necessity for 
 light houses and the selection of sites have been made, under 
 the law, at Baker's island, Eggemoggin Reach, Isle au Haut 
 Thoroughfare, Castine, Tenant's harbor. South island, Dama- 
 riscotta river entrance. Wood island near Cape Small Point, 
 and Keunebunk pier, Maine, and at Westport, Massachusetts. 
 The computations and reductions of the season's work have 
 been kept up. The following maps, charts and sketches be- 
 longing to this section have been drawn or are in progress: — 
 
244 THE COAST SURVETT. 
 
 Portland harbor, York harbor and Cape Neddick, Annisquam 
 and Ipswich harl)ors, Gloucester harbor, Plymouth harbor, 
 Monoinoy shoals, Nantucket shoals, Bass river harbor, Mus- 
 kep;et channel, eastern series Nos. 2 and 3, and current chart 
 of Nantucket shoals. The engraving of the following plates 
 has been completed during the year: — Alden's rock, Minot's 
 ledge, Wellfleet harbor, Nantucket shoals and sound, Pig's 
 reef off Cuttyhunk; and tlie ibllowing are in progress, Ports- 
 mouth harbor, Newburyport harbor, Salem harbor, Boston 
 harbor, Monomoy harbor, Muskeget channel, and eastern 
 series from Point Judith to Nantucket shoals, three plates. 
 
 Section II. — Coast of Connecticut, New York, Neio Jersey, 
 Pennsi/lvanm and Delaivare. — Observations for latitude, azi- 
 muth and magnetic elements have been made at Mount 
 Rose station, N. J. and at Yard station, Penna. The trian- 
 gulation of the Hudson has been carried from the limits of 
 last year to Blue Point Hill, Ulster Co., N. Y., and the topo- 
 graphy and hydrography to near Fort Montgomery, and 
 including the wide part of the river known as the Haverstraw 
 bay. The east and north rivers have been re-surveyed to 
 determine the changes there, and systematic observations of 
 currents made. The city shore has been re-determined to 
 connect with the survey just mentioned. Tidal observations 
 have been continued at Governor's island with the self regis- 
 tering gauge. Special current observations have been made 
 at sea off the south shore of Long Island. Examinations of 
 light house sites have been made at Pine island, Niautic, 
 Black Point and Southport, Conn., and Race Point and Hor- 
 ten's Point, N. Y., and others are in i)rogress at Absecum bar. 
 Bower's beach, and mouth of Old Duck creek. Drawings 
 have been made of Long Island sound No. 1, re-drawn in 
 part, comparative chart of Romer shoals and Flynn's knoll, 
 1835 to 1854, shore line of part of Manhattan island, chart 
 of currents of Long Island sound. The engraving is in 
 progress or completed of Long Island sound. No. 1 south 
 side of Long island, Nos. 2 and 3 current cliart of Long island 
 sound and of Romer shoal and Flynn's knoll. 
 
 Section III. — Coast of JJelaiunre, Maryland ami Virginia. — 
 Observations of the solar eclipse of May 2Gth were made at 
 the Seaton station, Washington, and Roslyn station, Peters- 
 burg. Telegraphic differences of longitude have been deter- 
 mined between Petersburg, Va. and Wilmingt )n, N. C. The 
 stations of the main triangulation of t!ie Chesapeake coui- 
 pk'ted last year have been generally secured. The secondary 
 triangulation of James river from Richmond to Harrison's 
 bar has been completed and its extension is in progress. The 
 
THE COAST SURVEY. 245 
 
 topography of the ocean shore near Drnmniondtown has 
 heen continued from Metorakin to Wachapreague inlets; 
 that of the Chesapeake has furnished the shoreline of York. 
 Pocosin and Back river entrances, has been carried up James 
 river from its mouth to Warwick river on one side and to 
 Day's [loint on the other, has included the muutli of Nanse- 
 mond river and extended up Elizabeth river beyond Ports- 
 mouth and Norfolk, and along the shore to Turner's creek. 
 The topography of the immediate shores of the Rappahannock 
 lias been carried from Port Ptoyal to Ta]ipal)annock. Veri- 
 fication work has been done on Back river, Maryland, and 
 Meekin's neck. The hydrography of Chesapeake bay proper 
 lias been completed, including the sounding of Hampton 
 Roads and of the Elizabeth river, and harbor of Norfolk. 
 The hydrography of the Ra})pahannock has been carried to 
 Port Royal, and that of James river entrance has been com- 
 menced and extended to the limits already stated for the 
 topography. A re-survey has been made off the Bodkin 
 channel and approaches, at the entrance of the Patapsco 
 river, to test changes there. The tidal station at Old Point 
 Comfort has been continued, and tem2)orary stations on the 
 James river have been occupied. Drawings have been made 
 or are in progress of Chesapeake bay, sheets Nos. 1, 2 and 3, 
 first series, and Nos. 1 and 2 of second series, a general chart 
 of the bay, preliminary charts of the James and Appomattox 
 rivers, and of the Rappahannock river, and sea coast of Vir- 
 ginia No. 2. Sketches have been engraved of the sea coast 
 of Virginia No. 2, Wachapreague, Machipungo, and Metora- 
 kin inlets, Virginia, of Ship and Sand shoal inlets, of Cape 
 Charles and the vicinity, and Cherrystone inlet, and Pungo- 
 teague creek, Virginia, and maps of the Chesapeake bay, No. 
 1 and No. 2, and of Patapsco river, re-engraving, are in 
 progress. 
 
 Section IV. — Coast of Virginia and North Carolina. — The 
 difference of longitude of Raleigh, Nortli Carolina, and Co- 
 lumbia, South Carolina, has been determined as part of the 
 connection between Washington and New Orleans, and the 
 latitude and magnetic elements measured at Raleigh. Wil- 
 mington, North Carolina, has been connected with Peters- 
 burg, Virginia, for difference of longitude I'rom Washing- 
 ton, and its latitude and magnetic elements determined. 
 The secondary triangulation has been carried north of Cur- 
 rituck sound to within fifteen miles of Cape Henry, and south- 
 ward over Bogue sound towards New river. The topography 
 of Cape Fear river has been finished, that of Currituclj: 
 sound has made some progress in connection with the tri- 
 
246 THE COAST SUU\'EY. 
 
 angulation, and that of Beaufort harbor has been completed. 
 The hydrography of Beaufort harbor and its dependencies 
 and approaches has been completed. A reconnoissance of the 
 Wimble shoals has also been executed. Tidal observations 
 have been made at Cape Hatteras, at Cape Lookout, and 
 Beaufort entrance, and at Bald Head, Cape Fear. A line of 
 levels for connecting the tidal stations, has been run from 
 Wilmington to Smithville, North Carolina. Maps and charts 
 have been finished or are in progress, of Beaufort harbor, 
 Cape Fear river, reconnoissance of Wimble shoals, of the 
 Gulf Stream, with diograms of temperatures on different 
 sections, charts of Albemarle sound. One sheet preliminary 
 of tlie same sound, Nos. 1 and 2 of Beaufort harbor, of Wim- 
 ble slioals reconnoissance, of Ca})e Fear entrance and New 
 Inlet, new edition, of the Cxulf Stream explorations and the 
 diagrams, and of cotidal lines of the Atlantic coast, have 
 been engraved during the year or are in progress. 
 
 Section V. — Coast of South Carolina and Georgia. — A gen- 
 eral reconnoissance has been made from the Santee river to 
 the Ashley. The latitude of Allston station, near George- 
 town, South Carolina, approximate longitude, and the mag- 
 netic elements have been determined. The telegraphic dif- 
 ference of longitude between Columbia, South Carolina, and 
 Kaleigh, North Carolina, part of the line from Washington 
 to New Orleans, and the latitude and magnetic elements at 
 Columbia have been determined. Astronomical observations 
 at Charleston were continued during part of the year. The 
 primary triangulation between the Edisto base and Charles- 
 ton has made some progress, and the secondary triangula- 
 tion connected with it, has been executed up the Mundo 
 river to Donnell's island. The secondary triangulation east 
 of Charleston, has been extended. That of Savannah river 
 entrance and Calibogue sound to May river, has been com- 
 pleted. The topography of Seabrooks and Kiawah island, 
 of the mouths of the Stono and Kiawah rivers, of Cove 
 island and part of John's and Folly islands, has been com- 
 pleted. Mafiitt's channel has been re-surveyed, and the im- 
 portant changes develoi)ed. The hydrography of the entrance 
 to Savannah river has been completed. The tidal station in 
 Charleston harbor has been kept u}), and temporary stations 
 there and at St. Simons established. A comparative map 
 of Mafiitt's channel in 1852 and 1851, has been made, and 
 one of Winyah bay and Georgetown harbor and of Savan- 
 nah river commenced. The preliminary map of Charleston 
 harbor is nearly completed ; North Edisto river, new edition, 
 is engraved. 
 
THE COAST SURVEY. 247 
 
 Section VI. — Coast, Keys and Beefs of Florida. — A re- 
 connoissance has been carried from the St. John's river to Ju- 
 piter inlet on the eastern coast of the peninsula of Florida. 
 Astronomical observations have been made to connect Key 
 AVest and Mobile for difference of longitude. The secondary 
 trianp:nlation has been extended from East harbor key to 
 near Loggerhead key, outside of the keys, and inside over 
 Card's and Barnes' sound, to Grassy Point, and has fur- 
 nished points near Collin's Patches. The topography has 
 been carried from Old Rhodes key westward to Wednesday 
 Point, and from Boca Chica north and east over several 
 keys, marking them for the Land Office. The hydrogra- 
 phy of the reef has been executed from Pacific reef to near 
 Key Eodriguez, and a reconnoissance of Collin's Patches, 
 has been made. Turtle harbor, near Carysfort reef has been 
 surveyed. A winter exi)loration of the Oulf Stream has been 
 made across it on the St. Simon's and Cape Canaveral sec- 
 tions. Tides have been observed at St. Augustine harbor 
 and entrance, at Cape Florida, and at Eganouk key, Tampa 
 bay. Drawings are completed of the reconnoissance of the 
 eastern coast of the Florida Peninsular, of Turtle harbor, 
 Florida reef, and of Collin's Patches, and the first sheet of 
 the chart of Florida reefs, has been commenced. The maps 
 of St. John's river entrance and of Key West harbor, have 
 been engraved. A sketch of the reconnoissance of the western 
 coast of the peninsula of Florida, and tidal diograms for 
 Key West harbor have been engraved during the year. 
 
 Section VII. — Part of the Coast of Florida. — A prelimi- 
 nary base has been measured at St. Andrew's bay, and a tri- 
 angulation laid out. Determinations of latitude and longi- 
 tude have been made at Cape San Bias and at St. Andrew's 
 bay, and azimuth observations at tlie latter place. A small 
 triangulation and topographical survey of Ocilla river en- 
 trance has been made. The topography of Cedar keys and 
 approaches has been completed, and the hydrography has 
 made considerable progress. Tidal observations have been 
 taken near St. Marks. The reconnoissance of the middle or 
 main and western entrances of St. George's sound has been 
 engraved. 
 
 Section VIII. — Coast of Alabama, 3Iississippi and, Loiiisi^ 
 ana. — A reconnoissance has been made for the main trian- 
 gulation from lake Borgne to the delta of the Mississippi, 
 and from New Orleans to Barataria bay. Also for the trian- 
 gulation from Atchafalaya to Vermillion bay. A special 
 reconnoissance of Pass Fourchou entrance to Bayou La 
 
248 THE COAST SURVEY. 
 
 Fourche has also been made. The primary trianpjulation of 
 Mississippi sound has been resumed. Tlie secondary trian- 
 gulation from Lake Ponchartrain to New Orleans has been 
 completed so far as to connect Mobile and New Orleans. 
 The inshore hydrography of the Gulf has been completed 
 from tlie meridian of Round island westward to Chandeleur 
 sound, and of Mississippi sound to the former work at Cat 
 and Ship islands. Search has been made for a shoal re- 
 ported south of the Belize, and its site has been sounded 
 over. Tidal observations have been taken at Calcasieu. 
 Drawings have been executed of the progress sketch of a 
 chart of deep sea soundings off the Mississippi and of Pass 
 Fourchon. The charts and sketches engraved during the 
 year have been, besides the progress sketches, Horn Island 
 Pass, new edition, Pascagoula river entrance, and Ship Island 
 shoal or Isle Deruiere. Mobile bay, Nos. 1 and 2, are in 
 progress. 
 
 Section IX. — Coast of Louisiana and Texa^. — A triangu- 
 lation and topographical survey of the entrance of the Rio 
 Bravo del Norte, and for four miles up tlie river liavc been 
 made, and the h3'drography of the entrance and approaches 
 executed for the boundary commissioii. The tidal observa- 
 tions at Galveston and at Bolivar point have been completed. 
 The hydrography of Galveston bay near Red Fish bar, and 
 of part of East and West bays has been completed. Tidal 
 observations have been taken at Aransas pass and at the 
 Brazos St. Jago, belonging to the general series for the Gulf 
 of Mexico. The progress sketch and a topographical sheet 
 of the mouth of the Rio Grande have been drawn. The 
 sketches of Sabine pass, of Galveston bay entrance, of San 
 Louis pass, of Aransas pass, and of the Rio Grande entrance, 
 have been engraved within the year, or are in progress. 
 
 Sections X and XL — Coast of California, and of Ore- 
 gon and Washington Territories. — Observations for latitude 
 and azimuth and magnetic elements liave been made at 
 Humboldt bay. Magnetic observations have also been 
 made at San Diego, San Pedro, San Luis Obispo and at 
 Monterey. The primary trianguiation and secondary con- 
 nected with it, resting on the Pulgas preliminary base, have 
 been carried north to Ballonas bay and south to Monterey, 
 and the tertiary trianguiation along the immediate shore lias 
 been ccnnmenced. A tertiary trianguiation has been carried 
 over Ballenas bay and to Duxbury reef The trianguia- 
 tion for connecting the Santa Barbara Islands and main, rest- 
 ing on the Los An*ades base, has been carried from Las Bol- 
 
THE COAST SURVEY. 249 
 
 sas to Point Duma, and Santa Catalina island has been 
 connected with the main. The triangulation of the Gulf of 
 Georgia and approaches has made good progress. The to- 
 pography of 8an Francisco bay has been continued and ex- 
 tended to Point San Matteo, and that of the coast north to 
 Duxbury reef, completed. The topography of Monterey bay 
 has been completed from the Salinas river on the south to 
 the north of Ano Nuevo, and a party is at work towards 
 Point Lobos, San Francisco entrance. The hydrography of 
 Toinales bay has been executed. That of Humboldt bay 
 from Eureka, to include the entrance and north to Eel river, 
 has been finished. That of Lummi, and other islands in the 
 Gulf of Georgia, executed. The hydrography of San Fran- 
 cisco entrance and approaches has been nearly completed. 
 That of the inner bay has made some progress. Um(|uali 
 river entrance has been sounded out. A bank off the coast 
 of Oregon has been explored. Seattle harbor and Port 
 Townsend, Puget's sound, Wasliington Territory, have been 
 sounded out. The hydrography of the Straits of Rosario and 
 approaches has been completed, and that of the Gulf of 
 Georgia continued. Examinations for light houses have 
 been made at Aiio Nuevo, and Anacapa island, and others 
 for Punta de los Reyes, Point Lobos, harbor of San Pedro, 
 harbor of Santa Cruz, bay of Monterev, harbor of Santa Bar- 
 bara, Umquah, Blunt's or Smith's island. New Dungeness 
 and Cape Shoalwater are in progress. Permanent tide gauges 
 have been established at San Diego, San Francisco and As- 
 toria, and temporary ones at San Pedro, San Luis (3bispo, 
 Monterey, Humboldt bay, and Port Oxford. Drawings liave 
 been completed of Alden's reconnoissance, Nos. 2 and 3, of 
 Santa Cruz harbor, of Point Ano Nuevo^, of Pulgas base, of 
 Shelter cove, Mendocina city, Port Oxford or Ewing harbor, 
 and Crescent city, of Umquah river and of tidal diagrams. 
 The following maps and charts are in progress: Alden's re- 
 connoissance No. 2, Santa Cruz, Point Aiio Neuvo, Shelter 
 cove, Mendocina city, Port Oxford or Ewing harbor, and 
 Crescent city harbor and anchorages, and of Umquah river 
 entrance. The following have been engraved during the 
 year: Alden's reconnoissance, San Diego to San Francisco, 
 new edition, the Cortez bank, San Diego harbor entrance, 
 tidal diagrams for Rincon point, the site of the Pulgas 
 base, the tidal diagrams for San Diego, San Francisco, and 
 Astoria. 
 
 The observations of the field parties, as they have been 
 turned into the office, have been computed, and when ap- 
 32 
 
250 THE COAST SURVEY. 
 
 proved, passed into the arcliivcs. The topographical maps 
 and hydrographical charts with the computed results have 
 furnished the data from which the new maps and sketches 
 referred to have been drawn and engraved. Some plates 
 liave been jirepared for the annual report not coming under 
 the head of any of the sections. The engraved maps 
 have been electrotyped, and from these plates impressions 
 taken for publication. Tlie numerous sketches of progress 
 and others accompanying the report are in part from this 
 data. 
 
 The operations of the survey for the last two years have 
 been so seriously embarrassed by the general advance of 
 prices, as to call for a reduction of the scale of surveying 
 operations, or an increase of the several appropriations. 
 The Superintendent has therefore estimated the appropria- 
 tions for the next year at an advance of twenty per cent, for 
 the Atlantic coast, and somewhat more than tliat for the 
 Florida reefs and keys. No increase is asked for the western 
 coast, and it is suggested that the appropriation for publish- 
 ing records and results may be diminished. 
 
 The Report of 1854 is more abundant in the results of the 
 Coast Survey observations, disciLs.sions and researches, than 
 any of its predecessors. Its contributions to geodesy and 
 the related sciences are exceedingly rich and varied, and we 
 regret that our limits will not permit us to avail ourselves 
 more largely of its contents. 
 
 Among tlie valuable results embodied in the Report, to 
 which we can only allude, are a table showing the de])ths 
 which can be carried into some of the principal harbors, 
 bays, &c., on the coast of the United States; a table of Mag- 
 netic Declinations, one of the most extensive and laborious 
 contributions ever made to the physical science of our coun- 
 try ; accounts of the several discoveries and developments 
 of the year; several reconnoissances; reports on the com- 
 mercial facilities of Chesapeake bay, Tampa bay. Cedar 
 keys, and Humboldt bay; various tidal papers; an elabo- 
 rate geodetic paper on the application of the method of least 
 squares to the primary triangulatiou; Captain Crane's re- 
 port on the methods of measuring heights; a description of 
 Professor Bache's base apparatus; Professors Pierce, Bond, 
 and Kendall on the longitudes by moon culminations; ob- 
 servations on the solar eclipse of 1854; Doctor Gould's re- 
 ports ou telegraphic longitude and Pierce' criterion; a dis- 
 cussion of cotidal lines on the Atlantic coast, and of the 
 diurnal inequality of the Pacific coast tides; a paper on Grulf 
 
THE COAST SURVEY. 251 
 
 stream temperatures; discussions of the currents of Nan- 
 tucket shoals, Muskeget channel, and Long Island sound; 
 tide tables for the United States coast; very extensive and 
 complete descriptions of Mitchell's tide gauge and Craven's 
 sounding box; a report ou Mr. Mathiot's self sustaining- 
 battery, and a report on the art of engraving. 
 
 To these might be added sundry special reports on light 
 house examinations and other incidents of the year's opera- 
 tions; also, a full consolidated index of the Coast Survey 
 Keports for the last ten years. 
 
XII.-ORGANIZATION OF TERRITORIES. 
 
 Tliirty-TMrd Congress, Sess, I. Cli. 59, 1854. 
 
 AN ACT TO ORGANIZE THE TERRITORIES OF NEBRASKA AND 
 
 KANSAS. 
 
 Be it enacted by the Senate and House of Representatives 
 of the United States of America in Congress assembled, That 
 all that part of the territory of the United States included 
 within the following limits, except such portions thereof as 
 are hereinafter expressly exempted from the operations of 
 this act, to wit: beginning at a point in the Missouri River 
 where the fortieth parallel of north latitude crosses the same; 
 thence west on said parallel to the east boundary of the Ter- 
 ritory of Utah, on the summit of the Rocky Mountains; thence 
 on said summit northward to the forty-ninth parallel of north 
 latitude; thence east on said parallel to the western boun- 
 dary of the territory of Minnesota; thence southward on said 
 boundary to the Missouri River; thence down the main chan- 
 nel of said river to the place of beginning, be, and the same 
 is hereby, created into a temporary government by the name 
 of the Territory of Nebraska; and when admitted as a State 
 or States, the said Territory, or any portion of the same, shall 
 be received into the Union with or without slavery, as their 
 constitution may prescribe at the time of their admission: Pro- 
 vided, That nothing in this act contained shall be construed 
 to inhibit the government of the United States from dividing 
 said Territory into two or more Territories, in such manner 
 and at such times as Congress shall deem convenient and 
 proper, or from attaching any portion of said Territory to 
 any other State or Territory of the United States: Provided 
 further, That nothing in this act contained shall be construed 
 to impair the rights of person or property now pertaining to 
 the Indians in said Territory, so long as such right shall re- 
 main unextinguished by treaty between the United States and 
 such Indians, or to include any territory wdiich, by treaty 
 with any Indian tribe, is not, without the consent of said 
 tribe, to be included within the territorial limits or jurisdic- 
 tion of any State or Territory; but all such territory shall be 
 excepted out of the boundaries, and constitute no part of the 
 Territory of Nebraska, until said tribe shall signify their 
 
 252 
 
ORGANIZATION OF TERRITORIES. 253 
 
 assent to the President of the United States to be included 
 within the said Territory of Nebraska, or to affect the au- 
 thority of the government of tlie United States to make any 
 reguhations respecting such Indians, their lands, ])roperty, 
 or other riglits, by treaty, law, or otherwise, which it would 
 have been competent to the government to make if this act 
 had never ]vassed. 
 
 Sec. 2. And he it further enacted, That the executive power 
 and authority in and over said Territory of Nebraska shall 
 be vested in a Governor, who shall hold his office for four 
 years, and until his successor shall be appointed and quali- 
 fied, unless sooner removed by the President of the United 
 States. The Governor shall reside within said Territory, 
 and shall be commander-in-chief of the militia thereof He 
 may grant pardons and respites for offences against the laws 
 of said Territory, and reprieves for offences against the laws 
 of the United States, until the decision of the President can 
 be made known thereon; he shall commission all officers 
 who shall be appointed to office under the laws of the said 
 Territory, and shall take care that the laws be faithfully exe- 
 cuted. 
 
 Sec. 3. And he it further enacted, That there shall be a Sec- 
 retary of said Territory, who slmll reside therein, and hold 
 his office for five years, unless sooner removed by the Presi- 
 dent of the United States; he shall record and preserve all 
 the laws and ]iroceedings of the Legislative Assembly herein- 
 after constituted, and all the acts and proceedings of the 
 Governor in his executive department; he sliall transmit one 
 co]\v of tlie laws and journals of the Legislative Assembly 
 Avithin thirty days after the end of each session, and one copy 
 of the executive proceedings and official corres])ondence semi- 
 annually, on the first days of January and July in each year 
 to the President of the LTnited States, and two co})ies of tlie 
 laws to the President of the Senate and to tlie Sjieaker of the 
 House of Representatives, to be deposited in the libraries of 
 Congress; and in case of the death, removal, resignation, or 
 absence of the Governor from the Territory, the Secretary 
 shall be, and he is hereby, authorized and required to exe- 
 cute and perform all the powers and duties of the Governor 
 during such vacancy or absence, or until another Governor 
 shall be duly appointed and qualified to fill such vacancy. 
 
 Sec. .4. And: he it further enacted. That the legislative power 
 and authority of said Territory shall be vested in the Gov- 
 ernor and a Legislative Asseml)ly. The Legislative Assembly 
 shall consist of a Council and House of Rei^resentatives. The 
 Council shall consist of thirteen members, having the quali- 
 
254 ORGANIZATION OF TERRITORIES. 
 
 fications of voters, as hereinafter prescribed, whose term of 
 service shall continue two years. The House of Representa- 
 tives shall, at its first session, consist of twenty-six members, 
 possessinj^ the same qualifications as prescribed for members 
 of the Council, and whose term of service shall continue one 
 year. The number of representatives may be increased by 
 the Legislative Assembly, from time to time, in proportion 
 to the increase of qualified voters: Provided, That the whole 
 number shall never exceed tliirty-nine. An apportionment 
 shall be made, as nearly equal as jiracticable, among the 
 several counties or districts, for the election of the council 
 and representatives, giving to each section of the Territory 
 representation in the ratio of its qualified voters as nearly 
 as may be. And the members of the Council and of the 
 House of Representatives shall reside in, and be inhabitants 
 of, the district or county, or counties for which they may be 
 elected, respectively. Previous to the first election, the Gov- 
 ernor shall cause a census, or enumeration of the inhabitants 
 and qualified voters of the several counties and districts of 
 the Territory, to be taken by such persons and in such mode 
 as the Governor shall designate and appoint; and the per- 
 sons so appointed shall receive a reasonable compensation 
 therefor. And the first election shall be held at such time 
 and places, and l)e conducted in such manner, both as to the 
 l^ersons wlio shall superintend such election and the returns 
 thereof, as the Governor shall appoint and direct; and he 
 sliall at the same time declare the number of members of the 
 Council and House of Representatives to Avhich each of the 
 counties or districts shall be entitled under this act. The 
 ])ersons having the highest number of legal votes in each of 
 said council districts for members of the Council, shall be de- 
 clared by the Governor to be duly elected to the Council; and 
 the persons having the highest number of legal votes for the 
 House of Representatives, shall be declared by the Governor 
 to be duly elected members of said house: Provided, That 
 in case two or more persons voted for shall have an equal 
 number of votes, and in case a vacancy shall otherwise occur 
 in either branch of the Legislative Assembly, tlie Governor 
 shall order a new election; and the persons thus elected to 
 the Legislative Assembly shall meet at such place and on 
 such day as the Governor shall api)oint; but thereafter, the 
 time, place, and manner of holding and conducting all elec- 
 tions by the people, and the apportioning the representation 
 in the several counties or districts to the Council and House 
 of Representatives, according to the number of rj[ualified vo- 
 ters, shall be prescribed by law, as well as the day of the 
 
ORGANIZATION OF TERRITORIES. 255 
 
 commencement of the regular sessions of the Legislative As- 
 sembly: Provided, That no session in anyone year shall ex- 
 ceed the term of forty dfiys, except the first session, wliich 
 may continue sixty days. 
 
 Sec. 5. Awl he it further enacted, That every free white 
 male inhabitant above the age of twenty-one j^ears, who shall 
 be an actual resident of said Territory, and shall possess 
 the qualifications hereinafter prescribed, shall be entitled to 
 vote at the first election, and shall be eligible to any office 
 Avithin the said Territory ; but the qualifications of voters, 
 and of holding office, at all subsequent elections, shall be 
 such as shall be prescribed by the Legislative Assembly : 
 Provided, That the right of suffrage and of holding office 
 shall be exercised only by citizens of the United States and 
 those who shall have declared on oath their intention to be- 
 come such, and shall have taken an oath to support the Con- 
 stitution of the United States and the provisions of this act : 
 And provided fui-tlter, That no officer, soldier, seaman, or 
 marine, or other person in the army or navy of the LTnitcd 
 States, or attached to troops in the service of the United 
 States, shall be allowed to vote or hold office in said Terri- 
 tory, by reason of being on service therein. 
 
 Sec. 6. And he it further enacted, That the legislative 
 power of the Territory shall extend to all rightful subjects 
 of legislation consistent with the Constitution of the United 
 States and the provisions of this act ; but no law shall be 
 passed interfering w^ith the primary disposal of the soil ; no 
 tax shall be imposed upon the property of the United States; 
 nor shall the lands or other property of non-residents be 
 taxed higher than the lands or other property of residents. 
 Every bill which shall have passed the Council and House 
 of Representatives of the said Territory shall, before it be- 
 come a law, be presented to the Governor of the Territory ; 
 if he approve, he shall sign it; but if not, he shall return it 
 with his objections to the house in which it originated, who 
 shall enter the objections at large on their journal, and 
 proceed to reconsider it. If, after such reconsideration, two 
 thirds of that house shall agree to pass the bill, it shall be 
 sent, together with the objections, to the other house, by 
 which it shall likewise be reconsidered, and if approved by 
 two thirds of that house, it shall become a law. But in all 
 such cases the votes of both houses shall be determined by 
 yeas and nays, to be entered on the journal of each house 
 respectively. If any bill shall not be returned by the Gov- 
 ernor within three days (Sundays excepted) after it shall 
 have been presented to him, the same shall be a law in like 
 
256 ORGANIZATION OF TERRITORIES. 
 
 manner as if he had signed it, unless the Assembly, by ad- 
 journment, prevents its return, in which case it shall not be 
 a law. 
 
 Sec. T. And he if further enacted, That all townsliip, dis- 
 trict, and county officers, not herein otherwise provided for, 
 sliall be appointed or elected, as the case may be, in such 
 manner as shall be provided by the Governor and Legislative 
 Assembly of the Territory of Nebraska. The Governor shall 
 nominate, and, by and with the advice and consent of tlie 
 Legislative Council, appoint all officers not herein other- 
 wise provided for ; and in the first instance the Governor 
 alone may appoint all said officers, who shall hold their of- 
 fices until the end of the first session of the Legislative As- 
 sembly ; and shall lay off the necessary districts for mem- 
 bers of the Council and House of Representatives, and all 
 other officers. 
 
 Sec. 8. And he it further enacted, That no member of the 
 Legislative Assembly shall hold, or be appointed to, any 
 office which shall have been created, or the salary or einolu- 
 ments of which shall have been increased, Avliile he was a 
 member, during the term for which he was elected, and for 
 one year after the expiration of such term ; but this restric- 
 tion shall not be applicable to members of the first Legisla- 
 tive Assembly ; and no person holding a commission or ap- 
 pointment under the United States, except Postmasters, 
 shall be a member of the Legislative Assembly, or hold any 
 office under the government of said Territory. 
 
 Sec. 9. And he it further enacted, That the judicial power 
 of said Territory shall be vested in a Supreme Court, Dis- 
 trict Courts, Probate Courts, and in Justices of the Peace. 
 The Supreme Court shall consist of a chief justice and two 
 associate justices, any two of whom shall constitute a quorum, 
 and who shall hold a term at the seat of government of said 
 Territory annually, and they shall hold their offices during 
 the period of four years, and until their successor shall be 
 appointed and qualified. The said Territory shall be divided 
 into three judicial districts, and a district court shall be held 
 in each of said districts by one of the justices of the Su- 
 preme Court, at such times and places as may be prescribed 
 by law; and the said judges shall, after their appointments, 
 respectively reside in the districts which shall be assigned 
 them. The jurisdiction of the several courts herein j)rovided 
 for, botli appellate and original, and that of the probate 
 courts and of justices of the peace, shall be as limited by 
 law : Provided, That justices of the peace shall not have 
 jurisdiction of any matter in controversy when the title or 
 
ORGANIZATION OF TERRITORIES. 257 
 
 boundaries of land may he in dispute, or where the debt or 
 sum claimed shall exceed one hundred dollars ; and the said 
 supreme and district courts, respectively, shall possess chan- 
 cery as well as common law jurisdiction. Each District 
 Court, or the judge thereof, shall appoint its clerk, who 
 shall also be the register in chancery, and shall keep his 
 office at the place where the court may be held. Writs of 
 error, bills of exception, and appeals shall be allowed in all 
 cases from the final decisions of said district courts to the 
 Supreme Court, under such regulations as may be pre- 
 scribed by law ; but in no case removed to the Supreme 
 Court shall trial by jury be allowed in said court. The Su- 
 preme Court, or the justices thereof, shall appoint its own 
 clerk, and every clerk shall hold his office at the pleasure 
 of the court for which he shall have been appointed. Writs 
 of error, and appeals from the final decisions of said Su- 
 preme Court, shall be allowed, and may be taken to the Su- 
 preme Court of the United States, in the same manner and 
 under the same regulations as from the circuit courts of the 
 United States, where the value of the property, or the 
 amount in controversy, to be ascertained by the oath or af- 
 firmation of either party, or other competent witness, shall 
 exceed one thousand dollars ; except only that in all cases 
 involving title to slaves, the said writs of error, or appeals 
 shall be allowed and decided by the said Supreme Court, 
 without regard to the value of the matter, property, or title 
 in controversy ; and except also that a writ of error or appeal 
 shall also be allowed to the Supreme Court of the United 
 States, from the decision of the said Supreme Court created 
 by this act, or of any judge thereof, or of the district courts 
 created by this act, or of any judge thereof, upon any writ 
 of habeas corpus, involving the question of personal free- 
 dom : Provided, that nothihg herein contained shall be con- 
 strued to apply to or affect the provisions to the "act respect- 
 ing fugitives from justice, and persons escaping from the 
 service of their masters," approved February twelfth, seven- 
 teen hundred and ninety-three, and the " act to amend and 
 supplementary to the aforesaid act," approved September 
 eighteen, eighteen hundred and fifty ; and each of the said 
 district courts shall have and exercise the same jurisdiction 
 in all cases arising under the Constitution and Laws of the 
 United States as is vested in the Circuit and District Courts 
 of the United States ; and the said Supreme and District 
 Courts of the said Territory, and the respective judges 
 thereof, shall and may grant writs of habeas corpus in all 
 cases in which the same are granted by the judges of the 
 33 
 
258 ORGANIZATION OF TERRITORIES. 
 
 United States in the District of Columbia ; and the first six 
 days of every term of said courts, or so much thereot as 
 shall he necessary, shall he appropriated to the trial of causes 
 arising under the said constitution and laws, and writs ot 
 error and appeal in all such cases shall he made to the bu- 
 preme Court of said Territory, the same as in other cases. 
 The said clerk shall receive in all such cases the same tees 
 which the clerks of thedistrict courts of Utah Territory now 
 receive for similar services. . . 
 
 Sec. 10. And be it further enacted, That the provisions ot 
 an act entitled "An act respecting fugitives from justice, and 
 persons escaping from the service of their masters," approved 
 February twelve, seventeen hundred and ninety-three, and 
 the provisions of the act entitled "An act to amend and sup- 
 plementary to, the aforesaid act," approved September eigh- 
 teen, eighteen hundred and fifty, be, and the same are hereby, 
 declared to extend to and be in full force withm the limits 
 of said Territory of Nebraska. 
 
 Sec. 11. And be it further enacted, That there shall be ap- 
 pointed an Attorney for said Territory, who shall continue 
 in office for four years, and until his successor shall be ap- 
 pointed and qualified, unless sooner removed by the President, 
 and who shall receive the same fees and salary as the Attorney 
 of the United States for the present Territory of Utah. There 
 shall also be a Marshal for the Territory appointed, who 
 shall hold his office for four years, and until his successor 
 shall be appointed and qualified, unless sooner removed by 
 the President, and who shall execute all processes issuing 
 from the said courts when exercising their jurisdiction as 
 Circuit and District Courts of the United States; he shall 
 perform the duties, be subject to the same regulation and 
 penalties, and be entitled to the same fees, as the Marshal ot 
 the District Court of the United* States for the present ier- 
 ritory of Utah, and shall, in addition, be paid two hundred 
 dollars annually as a compensation for extra services. 
 
 Sec 12. And be it further enacted, That the Governor, 
 Secretary Chief Justice, and Associate Justices, Attorney and 
 Marshal, shall be nominated, and, by and with the advice 
 and consent of the Senate, appointed by the President ot the 
 United States. The Governor and Secretary to be appointed 
 as aforesaid, shall, before they act as such, respectively take 
 an oath or affirmation before the District Judge or some 
 Justice of the Peace in the limits of said Territory, duly 
 authorized to administer oaths and affirmations by the laws 
 now in force therein, or before the Chief Justice, or some 
 Associate Justice of the Supreme Court of the United States, 
 
ORGAXIZATION OP TERRITORIES. 259 
 
 to support the Constitution of the United States, and faith- 
 fully to discharge the duties of their respective offices, which 
 said oaths, when so taken, shall he certified by the person by 
 whom the same shall have been taken; and such certificates 
 shall be received and recorded by the said Secretary among 
 the Executive proceedings; and the Chief Justice and Asso- 
 ciate Justices, and all other civil officers in said Territory, 
 before they act as such, shall take a like oath or affirmation 
 before the said Governor or Secretary, or some Judge or 
 Justice of the Peace of the Territory, who may be duly com- 
 missioned and qualified, Avhich said oath or affirmation shall 
 be certified and transmitted by the person taking the same 
 to the Secretary, to be by him recorded as aforesaid; and, 
 afterwards, the like oath or affirmation shall be taken, certi- 
 fied, and recorded, in such manner and form as may be pre- 
 scribed by law. The Governor shall receive an annual salary 
 of two thousand five hundred dollars. The Chief Justice 
 and Associate Justices shall each receive an annual salary 
 of two thousand dollars. The Secretary shall receive aia 
 annual salary of two thousand dollars. The said salaries 
 shall be paid quarter-yearly, from the dates of the respective 
 appointments, at the Treasury of the United States; but no 
 such payment shall be made until said officers shall have 
 entered upon the duties of their respective appointments. 
 The members of the Legislative Assembly shall be entitled 
 to receive three dollars each per day during their attendance 
 at the sessions thereof, and three dollars each for every twenty 
 miles' travel in going to and returning from the said sessions, 
 estimated according to the nearest usually travelled route; 
 and an additional allowance of three dollars shall be paid to 
 the presiding officer of each house for each day he shall so 
 preside. And a chief clerk, one assistant clerk, a sergeant- 
 at-arms, and doorkeeper may be chosen for each house; and 
 the chief clerk shall receive four dollars per day, and the 
 said other officers three dollars per day, during the session 
 of the Legislative Assembly; but no other officers shall l)e 
 paid by the United States : Provided, That there shall be 
 out one session of the legislature annually, unless, on an 
 extraordinary occasion, the Governor shall think proper to 
 call the legislature together. There shall be appropriated, 
 annually, the usual sum, to be expended by the Governor, 
 to defray the contingent expenses of the Territory, including 
 the salary of a clerk of the Executive Department; and 
 there shall also be apjiropriated, annually, a sufficient sum, 
 to be expended by the Secretary of the Territory, and upon 
 an estimate to be made by the Secretary of the Treasury of 
 
260 . ORGANIZATION OF TERRITORIES. 
 
 the United States, to defray the expenses of the Legislative 
 Assembly, the printing of the laws, and other incidental 
 expenses; and the Governor and Secretary of the Territory 
 shall, in the disbursement of all moneys intrusted to them, 
 be governed solely by the instructions of the Secretary of 
 the Treasury of the United States, and shall, semi-annually, 
 account to the said Secretary for the manner in which the 
 aforesaid moneys shall have been expended; and no expen- 
 diture shall be made by said Legislative Assembly for ob- 
 jects not specially authorized by the acts of Congress, ma- 
 king the appropriations, nor beyond the sums thus appro- 
 priated for such objects. 
 
 Sec. 13. A7id he it further enacted, That the Legislative 
 Assembly of the Territory of Nebraska shall hold its first 
 session at such time and place in said Territory as the Grov- 
 ernor thereof shall appoint and direct; and at said first ses- 
 sion, or as soon thereafter as they shall deem expedient, the 
 Governor and Legislative Assembly shall proceed to locate 
 and establish the seat of government for said Territory at 
 such place as they may deem eligible; which place, however, 
 shall thereafter be subject to be changed by the said Governor 
 and Legislative Assembly. 
 
 " Sec. 14. And be it further enacted, That a delegate to the 
 House of Kepresentatives of the United States, to serve foi 
 the term of two years, who shall be a citizen of the United 
 States, may be elected by the voters qualified to elect mem- 
 bers of the Legislative Assembly, who shall be entitled to 
 the same rights and privileges as are exercised and enjoyed 
 by the delegates from the several other Territories of the 
 United States to the said House of Kepresentatives, but the 
 delegate first elected shall hold his seat only during the term 
 of the Congress to which he shall be elected. The first election 
 shall be held at such time and places, and be conducted in 
 such manner, as the Governor shall appoint and direct; and 
 at all subsequent elections the times, places, and manner of 
 holding the elections, shall be prescribed by law. The per- 
 son having the greatest number of votes shall be declared 
 by the Governor to be duly elected; and a certificate thereof 
 shall be given accordingly. That the Constitution and all 
 Laws of the United States which are not locally inapplicable, 
 shall have the same force and efiect within the said Terri- 
 tory of Nebraska as elsewhere within the United States, ex- 
 cept the eighth section of the act preparatory to the admis- 
 sion of Missouri into the Union, approved March sixth, eigh- 
 teen hundred and twenty, which, being inconsistent with the 
 principle of non-intervention by Congress with slavery in the 
 
ORGANIZATION OF TERRITORIES. 261 
 
 States and Territories, as recognized by the legislation of 
 eighteen hundred and fifty, commonly called the Compro- 
 mise Measures, is hereby declared inoperative and void; it 
 being the true intent and meaning of this act not to legis- 
 late slavery into any Territory or State, nor to exclude it 
 therefrom, but to leave the people thereof perfectly free to 
 form and regulate their domestic institutions in their own 
 way, subject only to the Constitution of the United States : 
 Provided, that nothing herein contained shall be construed 
 to revive or put in force any law or regulation which may have 
 existed prior to the act of sixth March, eighteen hundred and 
 twenty, either protecting, establishing, prohibiting, or abol- 
 ishing slavery. 
 
 Sec. 15. And he it further enacted, That there shall hereaf- 
 ter be appropriated, as has been customary for the Territorial 
 governments, a sufficient amount, to be expended under the 
 direction of the said Governor of the Territory of Nebraska, 
 not exceeding the sums heretofore appropriated for similar 
 objects, for the erection of suitable public buildings at the 
 seat of government, and for the purchase of a library, to be 
 kept at the seat of government for the use of the Governor, 
 Legislative Assembly, Judges of the Supreme Court, Secre- 
 tary, Marshal, and Attorney of said Territory, and such 
 other persons, and under such regulations, as shall be pre- 
 scribed by law. 
 
 Sec 16. And he it further enacted, That when the lands in 
 the said Territory shall be surveyed under the direction of 
 the government of the United States, preparatory to bring- 
 ing the same into market, sections numbered sixteen and 
 thirty-six in each township in said Territory shall be, and 
 the same are hereby, reserved for the purpose of being ap- 
 plied to schools in said Territory, and in the States and Ter- 
 ritories hereafter to be erected out of the same. 
 
 Sec. 17. And he it further enacted, That, until otherwise 
 provided by law, the Governor of said Territory may define 
 the Judicial Districts of said Territory, and assign the 
 judges who may be appointed for said Territory to the seve- 
 ral districts; and also appoint the times and places for hold- 
 ing courts in the several counties or subdivisions in each of 
 said Judical Districts by proclamation, to be issued by him; 
 but the Legislative Assembly, at their first or any subse- 
 quent session, may organize, alter, or modify such Judicial 
 Districts, and assign the judges, and alter the times and 
 places of holding the courts, as to them shall seem proper 
 and convenient. 
 
 Sec. 18. A^id he it further enacted, That all officers to be 
 
262 ORGANIZATION OF TERRITORIES. 
 
 appointed by the President, by and with the advice and con- 
 sent of the Senate, for the Territory of Nebraska, who, by 
 virtue of the provisions of any law now existing, or which 
 may be enacted during the present Congress, are required 
 to give security for moneys that may be intrusted with them 
 for disbursement, shall give such security, at such time and 
 place, and in such manner, as the Secretary of the Treasury 
 may prescribe. 
 
 Sec. 19. Aiid be it further enacted, That all that part of the 
 Territory of the United States included within the following 
 limits, except such portions thereof as are hereinafter ex- 
 pressly exempted from the operations of this act, to wit, be- 
 ginning at a point on the western boundary of the State of 
 Missouri, Avhere the thirty-seventh parallel of north latitude 
 crosses the same; thence west on said parallel to the eastern 
 boundary of New Mexico; thence nortli on said boundary 
 to latitude thirty-eight ;' thence following said boundary 
 westward to the east boundary of the Territory of Utah, on 
 the summit of the Kocky Mountains; thence northward on 
 said summit to the fortieth parallel of latitude; thence 
 east on said parallel to the western boundary of the State 
 of Missouri; thence south Avith the western boundary of 
 said State to the place of beginning, be, and the same 
 is hereby, created into a temporary government by the 
 name of the Territory of Kansas; and when admitted 
 as a State or States, the said Territory, or any portion of 
 the same, shall be received into the Union with or with- 
 out slavery, as their Constitution may prescribe at the time 
 of their admission: Provided, That nothing in this act con- 
 tained shall be construed to inhibit the government of the 
 United States from dividing said Territory into two or more 
 Territories, in such manner and at such times as Congress 
 shall deem convenient aud proper, or from attaching any 
 portion of said Territory to any other State or Territory of 
 the United States : Provided further, That nothing in this 
 act contained shall be construed to impair the rights of per- 
 son or property now pertaining to the Indians in said Ter- 
 ritory, so long as such rights shall remain unextinguished 
 by treaty between the United States and such Indians, or to 
 include any territory which, by treaty with any Indian tribe, 
 is not, without the consent of said tribe, to be included 
 within the territorial limits or jurisdiction of any State or 
 Territory; but all such territory shall be excepted out of the 
 boundaries, and constitute no part of tlie territory of Kansas, 
 until said tribe shall signify their assent to the President 
 of the United States to be included within the said Terri- 
 
ORGANIZATION OF TERRITORIES. 263 
 
 tory of Kansas, or to affect the authority of the govern- 
 ment of the United States to make any regulation respecting 
 such Indians, their lands, property, or other rights, by 
 treaty, hxw, or otherwise, which it would have been com- 
 petent to the government to make if this act had never 
 passed. 
 
 Sec. 20. And be it further enacted, That the executive 
 power and authority in and over said Territory of Kansas shall 
 be vested in a G-overnor, who shall hold his office for four 
 years, and until his successor shall be appointed and quali- 
 fied, unless sooner removed by the President of the United 
 States. The Governor shall reside within said Territory, 
 and shall be commander-in-chief of the militia thereof He 
 may grant pardons and respites for offences against the 
 laws of said Territory, and reprieves for offences against 
 the laws of the United States, until the decision of the Pre- 
 sident can be made known thereon; he shall commission all 
 officers who shall be appointed to office under the laws of the 
 said Territory, and shall take care that the laws be faithfully 
 executed. 
 
 Sec. 21. And he it further enacted, That there shall he a 
 Secretary of said Territory, who shall reside therein, and 
 hold his office for five years, unless sooner removed by the 
 President of the United States; he shall record and preserve 
 all the laws and proceedings of the Legislative Assembly 
 hereinafter constituted, and all the acts and proceedings of 
 the Governor in his Executive Department; he shall trans- 
 mit on© copy of the laws and journals of the Legislative As- 
 sembly within thirty days after the end of each session, and 
 one copy of the executive proceedings and official correspon- 
 dence semi-annually, on the first days of January and July 
 in each year, to the President of the United States, and two 
 copies of the laws to the President of the Senate and to the 
 Speaker of the House of Representatives, to be deposited in 
 the libraries of Congress; and, in case of the death, removal, 
 resignation, or absence of the Governor from the Territory, 
 the Secretary shall be, and he is hereby, authorized and re- 
 quired to execute and perform all the powers and duties of 
 the Governor during such vacancy or absence, or until an- 
 other Governor shall be duly appointed and qualified to fill 
 such vacancy. 
 
 Sec. 22. And he it further enacted, That the legislative 
 power and authority of said Territory shall be vested in the 
 Governor and a Legislative Assembly. The Legislative As- 
 sembly shall consist of a Council and House of Representa- 
 tives. The Council shall consist of thirteen members^ having 
 
264 ORGANIZATION OF TERRITORIES. 
 
 the qualifications of voters, as hereinafter prescribed, whose 
 term of service shall continue two years. The House of Re- 
 presentatives shall, at its first session, consist of twenty-six 
 members, possessing^ the same qualifications as prescribed 
 for members of the Council, and whose term of service shall 
 continue one year. The number of representatives may be 
 increased by the Legislative Assembly, from time to time, in 
 proportion to the increase of qualified voters : Provided, That 
 the whole number shall never exceed thirty-nine. An ap- 
 portionment shall be made, as nearly equal as practicable, 
 among the several counties or districts, for the election of 
 the Council and Representatives, giving to each section of 
 the Territory representation in the ratio of its qualified 
 voters, as nearly as may be. And the members of the Council 
 and of the House of Representatives shall reside in, and be 
 inhabitants of, the district or county, or counties, for which 
 they may be elected, respectively. Previous to the first elec- 
 tion, the Governor shall cause a census, or enumeration of 
 the inhabitants and qualified voters of the several counties 
 and districts of the Territory, to be taken by such persons 
 and in such mode as the Governor shall designate and ap- 
 point ; and the persons so appointed shall receive a reason- 
 able compensation therefor. And the first election shall be 
 held at such time and places, and be conducted in such man- 
 ner, both as to the persons who shall superintend such elec- 
 tion and the returns thereof, as the Governor shall appoint 
 and direct ; and he shall at the same time declare the num- 
 ber of members of the Council and House of Representatives 
 to which each of the counties or districts shall be entitled 
 under this act. The persons having the highest number of 
 legal votes in each of said Council districts for members of 
 the Council, shall be declared by the Governor to be duly 
 elected to the Council ; and the persons having the highest 
 number of legal votes for the House of Representatives, shall 
 be declared by the Governor to be duly elected members of 
 said house : Provided, That in case two or more persons voted 
 for shall have an equal number of votes, and in case a va- 
 cancy shall otherwise occur in either branch of the Legisla- 
 tive Assembly, the Governor shall order a new election ; and 
 the persons thus, elected to the Legislative Assembly shall 
 meet at such place and on such day as the Governor sliall 
 appoint ; but thereafter, the time, place, and manner of hold- 
 ing and conducting all elections by the people, and the ap- 
 portioning the representation in the several counties or dis- 
 tricts to the Council and House of Representatives, according 
 to the number of qualified voters, shall be prescribed by law, 
 
OKGANIZATION OF TERRITORIES. 265 
 
 as well as the day of the commencement of the regular ses- 
 sions of the Legislative Assembly : Provided, That no ses- 
 sion in any one year shall exceed the term of forty days, ex- 
 cept the first session, which may continue sixty days. 
 
 Sec. 23. And he it further enacted, That every free white 
 male inhabitant above the age of twenty-one years, who shall 
 he an actual resident of said Territory, and shall possess the 
 qualifications hereinafter prescribed, shall be entitled to vote 
 at the first election, and shall be eligible to any office within 
 the said Territory ; but the qualifications of voters, and of 
 holding office, at all subsequent elections, shall be such as 
 shall be prescribed by the Legislative Assembly : Provided, 
 That the right of suffrage and of holding office shall be ex- 
 ercised only by citizens of the United States, and those who 
 shall have declared, on oath, their intention to become such, 
 and shall have taken an oath to support the Constitution of 
 the United States and the provisions of this act : And, provi- 
 ded further. That no officer, soldier, seaman, or marine, or 
 other person in the army or navy of the United States, or at- 
 tached to troops in the service of the United States, shall be 
 allowed to vote or hold office in said Territory by reason of 
 being on service therein. 
 
 Sec. 24. And he it furtJier enacted. That the legislative 
 power of the Territory shall extend to all rightful subjects 
 of legislation consistent with the Constitution of the United 
 States and the provisions of this act ; but no law shall be 
 passed interfering with the primary disposal of the soil ; no 
 tax shall be imposed upon the projierty of the United States; 
 nor shall the lands or other property of non-residents be 
 taxed higher than the lands or other property of residents. 
 Every bill Avhich shall have passed the Council and House 
 of Representatives of said Territory shall, before it become 
 a law, be presented to the Governor of the Territory ; if he 
 approve, he shall sign it; but if not, he shall return it with 
 his objections to the house in which it originated, Avho shall 
 enter the objections at large on their journal, and proceed 
 to reconsider it. If, after such reconsideration, two-thirds 
 of that house shall agree to pass the bill, it shall be sent, 
 together with the objections, to the other house, by which it 
 shall likewise be reconsidered, and, if approved by two-thirds 
 of that house, it shall become a law. But in all such cases 
 the votes of both houses shall be determined by yeas and 
 nays, to be entered on the journal of each house, respective- 
 ly. If any bill shall not be returned by tbe Governor within 
 three days (Sundays excepted) after it shall have been pre- 
 sented to him, the same shall be a law in like manner as if 
 34 
 
266 ORGANIZATION OF TERRITOIITES. 
 
 lie had signed it, unless the Assembly, by adjournment, pre- 
 vent its return, in which case it shall not be a law. 
 
 Sec. 25. And he it further enacted, That all township, dis- 
 trict, and county officers, not herein otherwise provided for, 
 shall be appointed or elected, as the case may be, in such 
 manner as shall be provided by the Governor and Legisla- 
 tive Assembly of the Territory of Kansas. The G-overnor 
 shall nominate, and, by and with the advice and consent of 
 the Legislative Council, appoint all officers not herein other- 
 wise provided for ; and, in the first instance, the Governor 
 alone may appoint all said officers, who shall hold their 
 offices until the end of the first session of the Legislative 
 Assembly ; and shall lay off the necessary districts for mem- 
 bers of the Council and House of Representatives, and all 
 other officers. 
 
 kSec. 26. And he it further enacted, That no member of the 
 Legislative Assembly shall hold, or be appointed to, any 
 office which shall have been created, or the salary or emolu- 
 ments of which shall have been increased, while he was a 
 member, during the term for which he was elected, and for 
 one year after the expiration of such term ; but this restric- 
 tion shall not be applicable to members of the first Legisla- 
 tive Assembly; and no person holding a commission or ap- 
 pointment under the United States, except postmasters, shall 
 be a member of the Legislative Assembly, or shall hold any 
 office under the government of said Territory. 
 
 Sec. 27. And he it further enacted, That the judicial power 
 of said Territory shall be vested in a supreme court, district 
 courts, probate courts, and in justices of the peace. The Su- 
 preme Court shall consist of a chief justice and two associate 
 justices, any two of whom shall constitute a quorum, and 
 who shall hold a term at the seat of government of said Ter- 
 ritory annually ; and they shall hold their offices during the 
 period of four years, and until their successors shall be ap- 
 pointed and qualified. The said Territory shall be divided 
 into three judicial districts, and a district court shall be held 
 in each of said districts by one of the justices of the Su- 
 preme Court, at such times and places as may be prescribed 
 by law ; and the said judges shall, after their appointments, 
 respectively, reside in the districts which shall be assigned 
 them. The jurisdiction of the several courts herein provided 
 for, both appellate and original, and that of the probate 
 courts and of justices of the peace, shall be as limited by 
 law : Provided, That justices of the peace shall not have 
 jurisdiction of any matter in controversy when the title or 
 boundaries of land may be in dispute, or where the debt or 
 
ORGANTZATION OF TERRITORIES. 267 
 
 sum claimed shall exceed one hundred dollars ; and the said 
 supreme and district courts, respectively, shall possess chan- 
 cer}'" as well as common law jurisdiction. Each District 
 Court, or the judge thereof, shall appoint its clerk, who sliall 
 also be the register in chancery, and shall keep his office at 
 the place where the court may be held. Writs of error, bills 
 of exception, and appeals, shall be allowed in all cases from 
 the final decisions of said district courts to the Supreme 
 Court, under such regulations as may be prescribed by law ; 
 but in no case removed to the Supreme Court shall trial by 
 jury be allowed in said court. The Supreme Court, or the jus- 
 tices thereof, shall appoint its own clerk, and every clerk shall 
 hold his office at the pleasure of the court for which he shall 
 have been appointed. Writs of error, and appeals from the 
 final decisions of said Supreme Court, shall be allowed, and 
 may be taken to the Supreme Court of the United States, in 
 the same manner and under tlie same regulations as from 
 the Circuit Courts of the United States, where tlie value of 
 the property, or the amount in controversy, to be ascertained 
 by the oath or affirmation of either party, or other compe- 
 tent witness, shall exceed one thousand dollars ; except only 
 that in all cases involving title to slaves, the said writs of 
 error or appeals shall be allowed and decided by said supreme 
 court, without regard to the value of tlie matter, property, 
 or title in controversy ; and except also that a writ of error 
 or appeal shall also be allowed to the Supreme Court of the 
 United States, from the decision of the said supreme court 
 created by this act, or of any judge thereof, or of the district 
 courts created by this act, or of any judge thereof, upon any 
 writ of habeas corpus, involving the question of personal 
 freedom : Provided, That nothing herein contained shall be 
 construed to apply to or affect the provisions of the " act re- 
 specting fugitives from justice, and persons escaping from 
 the service of their masters," apjjroved February twelfth, 
 seventeen hundred and ninety-three, and the "act to amend 
 and supplementary to the aforesaid act," approved September 
 eighteenth, eighteen hundred and fifty ; and each of the said 
 district courts shall have and exercise the same jurisdiction 
 in all cases arising under the Constitution and laws of the 
 United States as is vested in the Circuit and District Courts 
 of the United States ; and the said supreme and district 
 courts of the said Territory, and the respective judges thereof, 
 shall and may grant writs of habeas corpus in all cases in 
 which the same are granted by the judges of the United 
 States in the District of Columbia; and the first six days of 
 every term of said courts, or so much thereof as may be ne- 
 
268 ORGANIZATION OF TERRITOBIES. 
 
 cessar}-, shall be appropriated to the trial of causes arising 
 under the said Constitution and laws, and writs of error and 
 ap[)oal in all snch eases shall l)e made to tlie Supreme Court 
 of said Territory, the same as in other cases. The said clerk 
 shall receive the same fees, in all such cases, which the clerks 
 of the district courts of Utah Territory now receive for sim- 
 ilar services. 
 
 8eo. 28. Jlnd he it further enacted, That the provisions of 
 the act entitled "An act respecting;' fu<2;itives from justice, 
 and persons escapin<; from the service of tlieir masters," ap- 
 proved February twelfth, seventeen hundred and ninety- 
 three, and the provisions of the act entitled "An act to 
 amend, and supplementary to, the aforesaid act," approved 
 September eighteenth, eighteen hundred and fifty, be, and 
 the same are hereby, declared to extend to and be in full 
 force within the limits of the said Territory of Kansas. 
 
 Sec. 29. And he it further enacted, That there shall be ap- 
 pointed an attorney for said Territory, who shall continue in 
 office for lour years, and until his successor shall be ap- 
 pointed and qualified, unless sooner removed by the Presi- 
 dent, and who shall receive the same fees and salary as 
 the Atti)rney of the United States for the present Territory 
 of Utah. There shall also be a marshal for the Territory 
 appointed who shall hold his office for four years, and until 
 his successor shall be appointed and qualified, unless sooner 
 removed by the President, and Avho shall execute all pro- 
 cesses issuing from the said courts when exercising their ju- 
 risdiction as Circuit and District Courts of the United States; 
 he shall perform the duties, be subject to the same regula- 
 tions and penalties, and be entitled to the same fees, as the 
 Marshal of the District Court of the United States for the 
 present Territory of Utah, and shall, in addition, be paid 
 two hundred dollars annually as a compensation for extra 
 services. 
 
 Sec. oO. And he it further enacted, That the Governor, 
 Secretary, Chief Justice, and Associate Justices, Attorney, 
 and Marshal, shall be nominated, and, by and with the ad- 
 vice and consent of the Senate, appointed by the President 
 of the United States. The Governor and Secretary to be 
 appointed as aforesaid shall, before they act as such, respec- 
 tively take an oath or affirmation before the district judge 
 or some justice of the peace in the limits of said Territory, 
 duly authorized to administer oaths and affirmations by the 
 laws now in force therein, or before the Chief Justice or 
 some As.sociate dustice of the Supreme Court of the United 
 States, to support the Constitution of the United States, and 
 
ORGANIZATION OF TERRITORIES. 269 
 
 faithfully to discharge the duties of their respective offices, 
 which said oaths, when so taken, shall he certified by the 
 person by whom the same shall have been taken; and such 
 certificates shall be received and recorded by the said secre- 
 tary amono; the executive proceedings; and the Chief Justice 
 and Associate Justices, and all other civil officers in said 
 Territory, before they act as such, shall take a like oath or 
 affirmation before the said Governor or Secretary, or some 
 Judge or Justice of the Peace of the Territory who may be 
 duly commissioned and qualified, which said oath or affir- 
 mation shall be certified and transmitted by the person 
 taking the same to the Secretary, to be by him recorded as 
 aforesaid; and, afterwards, the like oath or affirmation shall 
 be taken, certified, and recorded, in sucli manner and form 
 as may be prescribed by law. The Governor shall receive an 
 annual salary of two thousand five hundred dollars. The 
 Chief Justice and Associate Justices shall receive an annual 
 salary of two thousand dollars. The Secretary shall receive 
 an annual salary of two thousand dollars. The said salaries 
 shall be paid quarter-yearly, from the dates of the respective 
 appointments, at the Treasury of the United States; but no 
 such payment shall be made until said officers shall have 
 entered upon the duties of their respective appointments. 
 The members of the Legislative Assembly shall be entitled 
 to receive three dollars each per day during their attendance 
 at the sessions thereof, and three dollars each for every 
 twenty miles' travel in going to and returning from the said 
 sessions, estimated according to the nearest usually travelled 
 route; and an additional allowance of three dollars shall be 
 paid to the presiding officer of each house for each day he 
 shall so preside. And a chief clerk, one assistant clerk, a 
 sergeant-at-arms, and door-keeper, may be chosen for each 
 house ; and the chief clerk shall receive four dollars per day, 
 and the said other officers three dollars per day, during the 
 session of the Legislative Assembly; but no other officers 
 shall be paid by the United States : Provided, That there 
 shall be but one session of the Legislature annually, unless, 
 on an extraordinary occasion, the Governor shall think proper 
 to call the Legislature together. There shall be appropriated, 
 annually, the usual sum, to be expended by the Governor, 
 to defray the contingent expenses of the Territory, including 
 the salary of a clerk of the Executive Department, and there 
 shall also be appropriated, annually, a sufficient sum, to be 
 expended by the Secretary of the Territory, and upon an es- 
 timate to be made by the Secretary of the Treasury of the 
 United States, to defray the expenses of the Legislative As- 
 
2T0 ORGANIZATION OP TERRITORIES. 
 
 sembly, the printing of the laws, and other incidental ex- 
 penses; and the Governor and Secretary of the Territory 
 shall, in the disbnrsement of all moneys intrusted to them, 
 be governed solely by the instructions of the Secretary of the 
 Treasury of the United States, and shall, semi-annually, ac- 
 count to the said Secretary for the manner in which the 
 aforesaid moneys shall have been expended; and no expen- 
 diture shall be madeby said Legislative Assembly for objects 
 not specially authorized by the acts of Congress making the 
 appropriations nor beyond the sums thus appropriated for 
 such objects. 
 
 Sec. 31. And be it further enacted, That the seat of gov- 
 ernment of said Territory is hereby located temporarily at 
 Fort Leavenworth; and that such portions of the public 
 buildings as may not be actually used and needed for military 
 purposes, may be occupied and used, under the direction of 
 the Grovernor and Legislative Assembly, for such public 
 purposes as may be required under the provisions of this act. 
 
 Sec. 32. And he it farther enacted, That a delegate to the 
 House of Representatives of the United States, to serve for 
 the term of two years, who shall be a citizen of the United 
 States, may be elected by the voters qualified to elect 
 members of the Legislative Assembly, who shall be entitled 
 to the same rights and privileges as are exercised and en- 
 joyed by the delegates from the several other Territories of 
 the United States to the said House of Representatives, but 
 the delegate first elected shall hold his seat only during the 
 term of the Congress to which he shall be elected. The first 
 election shall be held at such time and places, and be con- 
 ducted in such manner, as the Grovernor shall appoint and 
 direct; and at all subsequent elections, the times, places, and 
 manner of holding the elections shall be prescribed by law. 
 The person having the greatest number of votes shall be de- 
 clared by the Governor to be duly elected, and a certificate 
 thereof shall be given accordingly. That the Constitution, 
 and all laws of the United States which are not locally in- 
 applicable, shall have the same force and effect within the 
 said Territory of Kansas as elsewhere within the United 
 States, except the eighth section of the act preparatory to 
 the admission of Missouri into the Union, approved March 
 sixth, eighteen hundred and twenty, which, being incon- 
 sistent with the principle of non-intervention by Congress 
 with slavery in the States and Territories, as recognized by 
 the legislation of eighteen hundred and fifty, commonly 
 called the Compromise Measures, is hereby declared inope- 
 rative and void; it being the true intent and meaning of this 
 
ORGANIZATION OF TERRITORIES. 271 
 
 act not to legislate slavery into any Territory or State, nor 
 to exclude it therefrom, but to leave the people thereof per- 
 fectly free to form and regulate their domestic institutions 
 in their own way, subject only to the Constitution of the 
 United States: Provided, That nothing herein contained 
 shall be construed to revive or put in force any law or regu- 
 lation which may have existed prior to the act of sixth of 
 March, eighteen hundred and twenty, either protecting, estab- 
 lishing, prohibiting, or abolishing slavery. 
 
 Sec. 33. And he it further enacted, That there shall here- 
 after be appropriated, as has been customary for the territo- 
 rial governments, a sufficient amount, to be expended under 
 the direction of the said Governor of the Territory of Kan- 
 sas, not exceeding the sums heretofore appropriated for simi- 
 lar objects, for the erection of suitable public buildings at 
 the seat of government, and for the purchase of a library, to 
 be kept at the seat of government for the use of the Gfov- 
 ernor. Legislative Assembly, Judges of the Supreme Court, 
 Secretary, Marshal, and Attorney of said Territory, and such 
 other persons, and under such regulations, as shall be pre- 
 scribed by law. 
 
 Sec. 34. And he it further enacted, That when the lands in 
 the said Territory shall be surveyed under the direction of 
 the government of the United States, preparatory to bring- 
 ing the same into market, sections numbered sixteen and 
 thirt3^-six in each township in said Territory shall be, and 
 the same are hereby, reserved for the purpose of being ap- 
 plied to schools in said Territory, and in the States and Ter- 
 ritories hereafter to be erected out of the same. 
 
 Sec. 35. And he it further enacted, That until otherwise 
 provided by law, the Governor of said Territory may define 
 the Judicial Districts of said Territory, and assign the judges 
 who may be appointed for said Territory to the several dis- 
 tricts; and also appoint the times and places for holding 
 courts in the several counties or subdivisions in each of said 
 judicial districts by proclamation to be issued by him; but 
 the Legislative Assembly, at their first or any subsequent 
 session, may organize, alter, or modify such judicial dis- 
 tricts, and assign the judges, and alter the times and places 
 of holding the courts as to them shall seem proper and 
 convenient. 
 
 Sec 36. And he it further enacted, That all officers to be 
 appointed by the President, by and with the advice and con- 
 sent of the Senate, for the Territory of Kansas, who, by virtue 
 of the provisions of any law now existing, or which may be 
 enacted during the present Congress, are required to give 
 
2*72 ORGANIZATION OF TERRITORIES. 
 
 security for moneys that may be intrusted with them for dis- 
 bursement, shall give such security, at such time and place, 
 and in such manner as the Secretary of the Treasury may 
 prescribe. 
 
 Sec. 37. And be it further enacted, That all treaties, laws, 
 and other engagements made by the government of the 
 United States with the Indian tribes inhabiting the territo- 
 ries embraced within this act, shall be faithfully and rigidly 
 observed, notwithstanding any thing contained in this act; 
 and that the existing agencies and superintendencies of said 
 Indians be continued with the same powers and duties which 
 are now prescribed by law, except that the President of the 
 United States may, at his discretion, change the location of 
 the office of superintendent. 
 
 Approved, May 30, 1854. 
 
XIII.-rOPvEIGN ArrAins. 
 
 DENMARK AND THE SOUND DUES. 
 
 [Ex. Doc. No. 108, House of Representatives, 1st Session 33d Congress.] 
 
 3Ir. Jackson to the Secretary of State. 
 
 [No. 6.] Legation of the U. States, Copenhagen, 
 
 December 1, 1841. 
 
 Sir: Iu compliance with the instructions contained in your 
 despatch No. 6, I have made minute inquiries in lehxtion 
 to the practical effect of the new tarifl' of Sound dues on 
 American commerce, and more especially as to the duty im- 
 posed by this tariti' upon the two items named by you — to 
 wit, raw sugar and rice in paddy. I hasten to lay before you 
 the result of my investigation. 
 
 The proposed object of the new tariff was to correct the 
 arbitrary and indefinite mode of ascertaining the Sound dues 
 on certain articles not enumerated in the tariff of the treaty 
 of Christianople, and to correct the ad valorem duty calcu- 
 lated on those articles, according to the rule laid down in 
 the od section of the treaty of 1715, into a specific duty l)y 
 the means of a fixed valuation. 
 
 The treaty of Christianople, to which reference has been 
 made in all subsequent treaties in relation to the Sound dues, 
 was concluded on the IGth of August, in the year 1G45, be- 
 tween Denmark and the Netherlands, 
 
 It is the earliest treaty between Denmark and any foreign 
 power in which the amount of duty to be paid on the passage 
 of the Sound and the Belts was fixed with any degree of 
 certainty. By this convention a tariff of specific duties was 
 established on nearly three hundred enumerated articles; 
 and it was further agreed that "all merchandise not specified 
 in this list should be reckoned after mercantile usage, and 
 as had been the custom from time immemorial.' That is to 
 say, according to the best Danish writers on the subject, 
 "conformably to the denomination of these non-specified 
 articles," they should either be compared with tliose specified 
 to which they bore the greatest resemblance, and tbe calcu- 
 tion to be made on that basis, or they should be reckoned 
 according to their value, and tlie duty to be paid thereon at 
 the rate of one per centum. 
 
 As the articles not enumerated in this tarifi' grew into 
 commercial importance, it was found necessary to clear up 
 
 35 273 
 
274 FOREIGN AFFAIRS. 
 
 tlio ol)sciirity in wliicli tliey wqvq left by this treaty, and to 
 establish some more definite mode of ascertaining the amount 
 of duties to be levied njion them. 
 
 Anotlier treaty was consequently made between Denmark 
 and the Low Countries, at Co[)enhag^en, on the 15th of June, 
 in the year 1701. By the 3d article of this treaty, it was 
 declared tliat the wares and i!;oods which are not specified in 
 the aforesaid taritf of the year llUo, shall })ay the same 
 Sound duty according:: to their value — that is to say, the 
 value of the same shall be reckoned according to the place 
 whence they came, and they shall pay one per centum of that 
 value. 
 
 The great change wliich has taken place in the commerce 
 of the world since the date of tlicse two treaties, the immense 
 increase in tlie trade of the Baltic, but more especially the 
 tall in the price of those commodities which constitute the 
 basis of that trade, had caused the Sound dues to vary very 
 essentially from the sjurit of those treaties, as declared in 
 the 3d section of the treaty of ITOl. The Danish govern- 
 ment had made no correspt)nding change in the mode t)f cal- 
 culating those dues, but still continued to levy them accord- 
 ing to their long-established custom. In this maimer a duty 
 of fiom two to six per cent, ad valorem was often levied upo'u 
 commodities which should have paid but one per centum. 
 
 Against these abuses the merchants of the United States, 
 of Great Britain, and of Sweden, had often remonstrated; 
 but it is worthy of remark that the government of the United 
 States was the iirst that publicly declared its intention to 
 have these abuses corrected. This intention it clearly set 
 forth in the very able paper on the subject issued from the 
 State Department, and laid before Congress at the opening 
 of the late extra session. 
 
 Moved by the complaints of the English merchants, the 
 government of Great Britain entered into a negotiation with 
 that of Denmark in relation to the Sound dues, which ter- 
 minated in the establishment of the new tariff, declared by 
 his Danish ]\Iajesty's envoy extraordinary and minister pleni- 
 potentiary at the Cotirt of St. James and her Britannic Ma- 
 jesty's Principal Secretary of State for Foreign Affairs, to be 
 adopted by their respective governments for the space of ten 
 years from the loth day of June. 1841, "and further until 
 the end of twelve months after either of the respective gov- 
 ernments shall have given notice to the other of its intention 
 no longer to abide by this agreement."' 
 
 The avowed intention of this new tariff' was to reduce the 
 duty on all articles not enumerated in the tariff' of the treaty 
 
FOREIGN AFFAIRS. 27.' 
 
 of Christianople to one per cent, ad valorem. The commis- 
 sioner.s appointed to arrange the mode of calculating this 
 duty, Mr. Macgregor, the British consul at Elsinore, on the 
 part of Grreat I3ritain, and Mr. We.ssel and Mr. Olrik. officers 
 in the Danish custom-house, on the part of Denmark, wore 
 selected for this purpose, as being especially well qualified 
 therefor Ijy their long official residence at Elsinore, and their 
 familiarity with everything connected with the levying uri'l 
 collecting of the Sound dues. 
 
 It was at first proposed to charge a duty of one per cent. 
 ad valorem on the invoices of all cargoes passing the Sound 
 or the Belts, taking the original cost of the various commo- 
 dities at the place whence they were shipped, as the amount 
 on which the one per cent, should be calculated. But to this 
 mode, although apparently the plainest and most sim]de, 
 many strong objections were made; the principal of which 
 were, the difficulty of ascertaining at all times the original 
 cost of various articles, and the vexktious delays that would 
 frequently and unavoidably occur in the slow and laborious 
 process ot" levying the dues in this manner at Elsinore, where 
 sometimes forty or fifty vessels arrive in a single day. After 
 much discussion, the commissioners finally agreed upon a 
 tariff founded on the principle of converting the ad valorem 
 duty of one per cent, on articles not enumerated in the treaty 
 of Christianople, into a specific duty to be equivalent to one 
 per cent, upon a fixed valuation on those articles. The tariff 
 thus agreed upon by the commissioners is the new tariff 
 adopted by the respective governments of Great Britain aud 
 Denmark. 
 
 The effect of the new tariff on the two articles named in 
 your dispatch No. 6, viz: raw sugar and rice in paddy, has 
 been to reduce the duty on the former from nine to five sti- 
 vers on the hundred pounds; and, on the latter, from one 
 and a half stiver the bushel,* to six stivers the four hun'lred 
 pounds. 
 
 In fixing the specific duty of five stivers per hundred 
 pounds on raw sugars, ten specie dollars is assumed as the 
 original cost of this article. This appeared to be so high a 
 valuation for raw sugars in general, as to lead me to make 
 very particular inquiries into the mode by whicli this valu- 
 ation was arrived at. I ascertained that with regard to this, 
 as well as other commodities, the commissioners have taken, 
 as near as they could learn it, the original cost of the article 
 at the pla ce whence it was shipped, for the past ten years, 
 
 *A bushel of paddy -weighs, upon an average, about 40 pounds Dani=h, is-cich 
 is 44j pounds American. 
 
9^6 FOREIGN AFFAIRS. 
 
 iliiiiSliitip 
 
 Sd are thf fi S k nds' of white Havana sngars-the 
 Wor Tfriced^Xw sugars being now very rarely sent up 
 th BaCin American^essels, simidy because, as they pay 
 precisely the same duties with the finer white sugars, the) 
 
 ^^^^"he ;:r.^:nrn^nerf ting to the uncertain state of 
 the^'motyCrket, and the .---j/i^-Xer^lealL'^at 
 of trade, the price of sugars, as well ^'f^^^'];'^'^^^^ 
 +iplp«s of commerce is unusually low, not only m i^tum.Miv 
 and throuZu the north of Europe, hut likewise at the 
 po^sot original shipment. The present price, therefore, 
 .?n form no criterion for the fair average value o/ such su- 
 gars as are now ent up the Baltic. The cost of the finer 
 lh?te su 'ars for the past ten years, has varied rom eight 
 Tnc .a 1 ff to'ieven dollars per hundred VO^n^f^^nR^^ 
 Zm which place, or from the neighboring P^^^'t ^[/^l^l":'^- ; 
 the o-reater portion of the sugars sent up the Baltic i 
 lme?icTn veslels is originallv^shipped f ^-^ . -PP^:; J^" 
 a reference to the "statement ' appended to ^^^^^^^i;^^^^^^^ 
 
 The ayera<'-e of these prices would make the valuation ot 
 the om'mTssioners appear to be a fair one; and, c^^f^, 
 tlie specific duty of five stivers per hundred pounds, it at 
 ail too 1 i>h would certainly be only a small fraction- ot 
 one per c Jn t' more, upon an ^average, than the ad yalorem 
 dut/of one per cent, to be levied according to the thud 
 
 "^^-^ t^X ^v'l^'-^- tariii; the Sound dues are 
 reduced from Ce aml'a half stiver per bushel to six stivers 
 ;fr four iiundred pounds-a reduction o -^^^P;^^^ 
 of the old duty. The original cost ot all the American iicc 
 h^ has paid the Sound dues, for the Past^n J-J ha. 
 averaged about eighty-five cents per bushel. At this ati. t le 
 spec fie duty of six stivers per ibur Inindred pounds, is alK^^^ 
 Te and a half per cent, on the average ^^^S-^^^ ^^ 
 article- an evident excess, therefore, so far as Amaican rice 
 i fpaddyTs concerned^ofW^ha^^ 
 
 -^__— ^-^^r— ^^^^ live stivers .s 
 
 ^e-i/?rof a stiver mo're than one per cent, ou ten spee.o dollars. 
 
FOREIGX AFFAIRS. 277 
 
 ad valorem duty agreed upon in the third section of the 
 treaty of 1715. 
 
 Your instructions rendered it my duty to obtain the pro- 
 per information to transmit to the department in relation 
 to the effect of the new tariff on the second item named iu 
 your despatch No. 6. In the course of my investigation. 
 however, I have ascertained tliat the duty on this com- 
 modity is one of very little importance to American com- 
 merce. Clean rice is now invariably preferred to rice in 
 paddy by the Baltic mercliants ; and Copenhagen and 8tras- 
 burg (a town of considerable commerce in the Duchy of 81es- 
 wick) are the only places east of the Sound where mills are 
 now in operation to clean rice from its husk. A reference 
 to the "statement" appended to this despatch, will show that 
 but one small cargo of rice in paddy has passed the Sound 
 in an American vessel for the past four years — beyond which 
 my research has not extended ; and even this one cargo, 
 though freighted in an American ship, was wholly owned 
 by a Dane, by whom the Sound dues were paid. 
 
 By the new tariff, the duty on some other articles of more 
 importance to American commerce is greatly reduced. On 
 dye-iooods, with wliich American vessels are sometimes 
 freighted up the Baltic, the duty is reduced from thirty sti- 
 vers to eight stivers per thousand pounds, of certain kinds ; 
 and from thirty-six stivers to twelve stivers for the remain- 
 der. On coffee, the duty is reduced from twenty-four stivers 
 to six stivers per hundred pounds. The effect of this latter 
 reduction will probably be to cause this very important ar- 
 ticle to be hereafter shipped directly up the Baltic, instead 
 of being sent, as heretofore, to liambarg, and thence by 
 land, across to Lubec, to avoid the heavy Sound dues. 
 
 The general effect of the new tariff will, I have no doubt, 
 prove beneficial to American commerce. The profit on each 
 individual cargo passing the Sound may be no greater to 
 the American shipi)er, as the price of the various commodi- 
 ties affected by this tariff will probably fall in the Baltic 
 markets, in proportion to the reduction of the duty thereon; 
 but a lower price will, as a matter of course, increase the 
 consumption of those commodities, and will, therefore, create 
 a demand for a greater supply. Of the advantages arising 
 from this increased demand, the well-known enterprise of 
 American merchants will no doubt give them a full share. 
 
 I have the honor to be, very respectfully, vour obedient 
 servant, ' J. R. JACKSON. 
 
 To the Hon. Secretary of State 
 
 of the United States. 
 
27S FOREIGN AFFAIRS. 
 
 Mr. Webster to 3Ir. Jackson. 
 
 [Extract.] 
 
 [Fo. 11.] Departmext of State, 
 
 Washington, Junt _^, xo42. 
 
 [«^rp^ . -(; ;|< * * * * 5): 
 
 Copies of the new tcariif of Sound dues have just been com- 
 municated to the department by the charge d'affaires of Den- 
 mark near this government, with a note explanatory of its 
 favorable operation upon American commerce. 
 
 These provisions have proved very satisfactory to this 
 government, and you will take a fit opportunity for com- 
 municating the expression of this satisfaction to the govern- 
 ment of Denmark. 
 
 I have pleasure in adding, that your diligence and fidelity 
 in discharging your duties in regard to this subject, meet the 
 President's approbation. 
 
 I am, sir, respectfully, your obedient servant, 
 
 DANIEL WEBSTER. 
 
 Isaac Rand Jackson, Esq., dx:, dr., 
 
 Copenhagen. 
 
 Mr. Irwin to the Secretary of State. 
 
 [Extract.] 
 
 [No. IS.] Legation of the United States, 
 
 Copenhagen, i^eftrwar?/ 10, 1844. 
 
 Your observations witli regard to the Sound dues and the 
 treaties with the Northern powers, have given rise to much 
 comment and speculation on tlie part of my diplomatic col- 
 leagues ; but all remark on those subjects has been studi- 
 ously avoided by every one connected with the administra- 
 tion of this government. Although the payment of the 
 Sound dues has been guarantied by several of the European 
 powers in their treaties with Denmark, I have no doubt that 
 the example of our government in refusing longer submis- 
 sion to the exaction would be soon foUoAved by Prussia and 
 other States, who look upon it as a burden on their trade in 
 the Baltic. These dues yield a very considerable revenue to 
 Denmark, any diminution of which, in the present condition 
 of her finances, would subject her to great inconvenience. 
 She claims them by virtue of long established usage, and 
 uu(hn' the pretence of protecting the commerce and vessels 
 of otlier nations, at her sole expense, by furnishing an ade- 
 quate number of lights and safe pilotage in an extremely 
 difficult and hazardous navigation. I have heard it also in- 
 
FOREIGN AFFAIRS. 279 
 
 timated that she maintains her right by the allegation that 
 the Baltic has been iramemorially regarded as a mare 
 clausum. Denmark will doubtless, therefore, seek to fortify 
 her position by alliance and treaty with other nations ; and, 
 if it is contemplated by our government to give the notice 
 stipulated in our treaty with this government, with a view 
 to some new arrangement, or to the resistance of any further 
 exaction of this tribute, I would respectfully suggest the in- 
 expediency of any unnecessary delay on our part. If it is ex- 
 pected that I shall make any movement in this matter, or in 
 reference to a new treaty, I shall be glad to be furnished 
 wath full instructions by your department. With the view 
 of placing you in possession of as much information as I 
 could readily command with regard to the number of Ameri- 
 can vessels, and those of other nations which had passed the 
 Sound during a series of years, and the amount of dues paid 
 by our vessels during the same period, I have the honor to 
 enclose herewith three lists which have been furnished, at 
 my instance, hj our consul at Elsinore. The lists embrace 
 the years 1837, 1838, 1839, 1810, 1811, 1812, 1813, and are 
 as follows: 
 
 1. List of American vessels that have passed the Sound at 
 Elsinore, to and from the Baltic. 
 
 2. Specifications of ships of all nations that liave passed 
 the Sound at Elsinore, to and from the Baltic. 
 
 3. Specification of Sound dues 2)aid on goods shipped by 
 American vessels to and irom the Baltic. 
 
 In the last mentioned list, the amount is given in species, 
 each species being equal to two rigsbank dollars Danish, or 
 one hundred and seven cents of our money. I regret that it 
 has not been in ni}^ power to furnish you Avith a statement 
 of the tonnage of the above vessels, being informed that no 
 register of the tonnage is k(^pt at Elsinore. 
 
 [Enclosed in despatch No. 18.] 
 
 1. List of American vessels that have passed the Sound at 
 Elsinore, to and from the Baltic sea, during the following 
 years, viz: 
 
 Years. Vessels. 
 
 1837 104 
 
 1838 153 
 
 1839 114 
 
 1840 143 
 
 1841 122 
 
 1842 113 
 
 1843 152 
 
280 FOREIGN AFFAIRS. 
 
 [Enclosed in despatch No. 18.] 
 
 Specification of ships of all nations that have passed the Sound 
 at Elsinore, to and from the Baltic sea, during the following 
 years, viz: 
 
 1837. 1838. 1839. 1840. 1841. 1842. 1843. 
 
 American... 104 153 114 143 122 113 152 
 
 Belgian 43 25 34 20 11 6 6 
 
 Bremen 40 45 05 58 68 56 36 
 
 Danish 1,125 1,019 1,139 1,045 1,032 1,070 1,410 
 
 Dutch 848 955 1,192 950 970 917 1,236 
 
 English 3,417 4,009 4,498 3,972 3,777 3,519 3,515 
 
 French 130 268 240 239 218 238 179 
 
 Hamburgh.. 40 29 18 23 20 14 27 
 
 Hanoverian 471 528 819 768 823 765 837 
 
 Lubeck 93 107 108 96 88 77 76 
 
 Mecklenb'g. 763 842 970 953 958 826 840 
 
 Neapolitan. 27 28 44 48 15 51 67 
 
 Norwegian. 1,843 1,497 1,691 2,082 1,666 1,848 1.635 
 
 Oldenburg.. 56 59 125 83 132 142 183 
 
 Portuguese. 4 3 4 3 2 2 
 
 Prussian 2,319 2,491 3,045 2,996 2,850 2,311 2,582 
 
 Ptussian 735 759 837 820 831 757 738 
 
 Spanish 14 17 20 18 14 4 8 
 
 Swedish 1,043 1,152 1,252 1,384 1,182 1,278 1,451 
 
 Total 13,115 13,983 16,214 15,702 14,780 13 994 14,980 
 
 [Enclosed in despatch No. 18.] 
 Specification of Sound dues paid on goods shipped hy Ameri- 
 can vessels to and from the Baltic sea in the following years, 
 viz : 
 
 SUM.MARY. Specks. 
 
 1837 90,224 01 
 
 1838 128,165 40 
 
 1839 84,119 33 
 
 1840 113,414 46 
 
 1841 90,514 32 
 
 1842 67,144 14 
 
 1843 81513 42 
 
 Mr. Irwin to 3Ir. Buchanan. 
 [Extract.] 
 
 [No. 81.] Legation of the United States, 
 
 Copenhagen, June 1, 1846. 
 
 Sir : I have the honor to inform you that on the 29th ult. 
 
FOREIGN AFFAIRS. 281 
 
 I received a note from his Danish Majesty's Minister of 
 Foreign Affairs, bearing date the day previous (copies of 
 which, and of my reply thereto, are herewith transmitted,) 
 communicating copies of proclamations, by order of his 
 Danish Majesty, respecting sundry modifications in the 
 tariff of Sound dues, and of tolls on certain articles of mer- 
 chandise i)assing the Sleswick-Holstein canal. 
 
 Enclosed you will find translations from the German and 
 Danish of these proclamations, from which it will be perceived 
 that a reduction has been made in tlie Sound tolls on cotton- 
 wool (raw,) from 18 to 10 stivers per 100 lbs., on spirits (dis- 
 tilled from potatoes and grain,) from 4 to 3 stivers per 
 barrel, and on raw sugar from 5 to 4 stivers per 100 lbs. 
 The stiver, according to the convention on the Sound toll 
 with Great Britain, of the 13th August, 1841, is computed 
 at 4 rigsbank shillings, Danish, or a little more than two 
 cents of our money ; so that the duty on our great staple, 
 raw cotton, is reduced from about 36 to about 20 cents per 
 100 lbs. in Sound toll, and a similar reduction is made on 
 that article with respect to the tolls on the Sleswick-Holstein 
 canal. The reduction commences this day. 
 
 Mr. Flenniken to 3Ir. Buchanan. 
 
 [Extract.] 
 
 [No. 45.] Legation of the United States, 
 
 Copenhagen, September 8, 1848. 
 gjj^. * * * * * * 
 
 I would respectfully draw the attention of the department 
 to the question of the Sound dues. I think it not improb- 
 able that Germany, in negotiating a permanent treaty of 
 peace with Denmark, will insist upon the abolishment of 
 these dues, which, in my opinion, she would have a very 
 just right to do, for surely this exaction is a most oftensive 
 burden upon the commerce of the world, and wholly inde- 
 fensible upon any princijde of international right. I have 
 recently introduced this question twice in my interviews 
 with the Minister of Foreign Affairs, who, with the charac- 
 teristic frankness of his nature, admits to me that he cannot 
 defend the principle upon which these dues are exacted, 
 but begged me to delay pressing the question until they got 
 rid of their war with Germany. I told him it was by no 
 means my intention to add to the embarrassments of the 
 ministry by the addition of this question during the pen- 
 dency of hostilities, but might perhaps more formally intro- 
 duce the subject upon the conclusion of a general armistice. 
 36 
 
282 FOREIGN AFFAIRS. 
 
 3Ir. Buchanan to Mr. Flennihen. 
 [No. 7.] Department of State, 
 
 WasJiington^ October 14, 1848. 
 
 Sir: From your despatch No. 45, of the 8th Septemher, 
 as well as from your private letter, I am happy to learn that 
 there is now a reasonable prospect that our commerce may 
 he relieved from the " Sound dues" paid to Denmark. The 
 admission of the Danish Minister for Foreign Affairs, in 
 conversation with you, " that he cannot defend the principle 
 upon which these dues are exacted," is certainly a favorable 
 indication. 
 
 You acted properly in not pressing the question whilst 
 Denmark was engaged in hostilities with Germany ; but as 
 the armistice concluded between the King of Prussia and 
 his Danish Majesty has now been finally ratified at Frank- 
 fort, I agree with you " that the present may, perhaps be an 
 auspicious period to introduce this question formally and 
 with determination to the Danish government." 
 
 Under the public law of nations, it cannot be pretended 
 that Denmark has any right to levy duties on vessels pass- 
 ing through the Sound from the North Sea to the Baltic. 
 Under that law, the navigation of the two seas connected 
 with this strait is free to all nations ; and therefore tlie nav- 
 igation of the channel by which they are connected ought 
 also to be free. In the language employed by Mr. Wheaton, 
 " even if such strait be bounded on both sides by the terri- 
 tory of the same sovereign, and is at the same time so nar- 
 row as to be commanded by cannon-shot from both shores, 
 tbe exclusive territorial jurisdiction of that sovereign over 
 such strait is controlled by the right of other nations to com- 
 municate with the seas thus connected." But the Sound is 
 not bounded on both its shores by Danish territory, nor has it 
 been since the treaty of Eoeskild, in 1658, by which all the 
 Danish provinces beyond the Sound were ceded to Sweden. 
 So that even tliis pretext for levying the Sound dues has 
 ceased to exist for nearly two centuries. 
 
 It is true that for several centuries Denmark has continued 
 to levy these dues ; and she now claims this as a right, 
 " upon immemorial prescription, sanctioned by a long suc- 
 cession of treaties with foreign powers." But the foundations 
 of this claim were laid in a remote and barbarous age, even 
 before the discovery of America ; and the reasons which are 
 now alleged in its support have no application whatever to 
 the United States. They apply exclusively to the nations of 
 Europe. 
 
FOREIGN AFFAIRS. 283 
 
 It may be said that the 5th article of our treaty with 
 Denmark of the 26th of April, 1826, gives an indirect 
 sanction to this practice, hy providing that " neither the 
 vessels of the United States nor their cargoes shall, when 
 they pass the Sound or the Belts, pay higher or other duties 
 than those which are or may be paid by the most fevored 
 nation." But this article does not recognize the right of 
 Denmark to levy these duties. It is a mere submission to 
 the practice for a period of ten years ; and the government 
 of the United States may now at any moment give the no- 
 tice required by the treaty, and thus terminate it at tlie end 
 of one year. 
 
 These duties are both vexatious and onerous to our naviga- 
 tion. The loss of time and delay of our vessels at Cronberg 
 castle, whilst the duties are assessed and paid, constitute a 
 serious annoyance and injury to our commerce. Besides, 
 the amount of duties is so great as to be a heavy burden 
 upon our trade to the Baltic. Your predecessor, Mr. Irwin, 
 in a despatch under date of the 3d June, 1847, (No. 121) to 
 which I refer you, has furnished the department with tabular 
 statements of the amount of these duties exacted from Ameri- 
 can vessels for a period of sixteen years, from 1828 to 1843, 
 both inclusive ; from which it appears that the average for 
 each year would amount to $107,467 71. According to 
 these statements, the average tonnage of our vessels going 
 through the Sound during these years was 21,415, and that 
 returning was 21,108 tons. This sum would, therefore, bo 
 about equal to an average tonnage duty upon each vessel for 
 passing and repassing the Sound of $5 per ton, including 
 both voyages. Besides, there are other charges for light- 
 money, fees, &c. This large tax is paid by vessels of the 
 United States for liberty to pass through a strait between 
 two seas, which, by the law of nature and of nations, is free 
 and open to all mankind! The United States have thus 
 long submitted to the exaction from deference and respect 
 for Denmark ; but it cannot be expected, great as is our re- 
 gard for that ancient and respectable power, that we shall 
 submit to it much longer. 
 
 The 11th article of our existing treaty with Denmark 
 provides " that the present convention shall be in force for 
 ten years from the date hereof, (26th April, 1826 ;) and, 
 further, until the end of one year after either of the con- 
 tracting parties shall have given notice to the other of its 
 intention to terminate the same." Congress may, therefore, 
 at any moment, authorize the President to terminate this 
 convention — a convention, I venture to say, more favorable 
 30 
 
284 FOKEIGN AFFAIRS. 
 
 in its terms to the commerce and navigation of Denmark 
 than any which noAv exists, or has existed, between her and 
 any other nation. 
 
 Perfect reciprocity in the direct trade between any two 
 countries is always jnst. The vessels of both, carrying the 
 productions of either between the ports of these countries, 
 ought to be placed upon the same footing. Be the amount 
 of this trade great or small, they ought equally to partici- 
 pate in its benefits. This rule, however, is based upon the 
 presumption that the one party shall not, on its part, have 
 restricted the mutual trade by establishing unreasonable 
 and extravagant import duties upon the productions of the 
 other. Whilst this rule is just in regard to the direct trade 
 between any two countries, let us examine the question for 
 a few moments in regard to the indirect or triangular trade 
 between Denmark and the United States. Our convention 
 with Denmark opens to her navigation not only the direct 
 trade, but it enables her vessels to go all over the world, 
 and bring the productions of every clime to this cpuntry 
 upon the same terms with American vessels. But it may be 
 said that similar advantages are secured by the same con- 
 vention to vessels of the United States in the ports of Den- 
 mark. Whilst this cannot be denied, it is yet manifest that 
 such a concession to our vessels is far, very far, from being a 
 fair equivalent for the privileges which Danish vessels enjoy 
 in our ports. The United States now extend across the 
 whole continent of North America, and have a front of 
 twenty-two degrees of latitude upon the Atlantic, and seven- 
 teen degrees upon the Pacific ocean. On both oceans we 
 have numerous and excellent harbors inviting foreign trade. 
 We now number at least twenty millions of industrious and 
 prosperous people, able and willing to pay for foreign com- 
 modities, whilst our exports are immense. The vessels of 
 Denmark enjoy the privilege, under the convention, of trans- 
 porting from all other foreign countries to the United States 
 every article required for the consumption of our popula- 
 tion, and of exporting from the United States to all foreign 
 countries our productions, upon the same terms with our 
 own vessels. 
 
 Now, what is the supposed equivalent? Denmark is com- 
 paratively a small and poor country, in a high and severe 
 northern latitude. Its population does not much exceed two 
 millions. Its exports are not great, and its people consume 
 comparatively but a small amount of foreign productions. 
 American vessels may, it is true, under the convention, trans- 
 port to and from Denmark the productions of third countries 
 
FOREIGN AFFAIRS. 285 
 
 upon the same terms with Danish vessels ; and this is the 
 compensation which we receive for all the superior advan- 
 tages which we confer. It would perhaps not be extrava- 
 gant to assert, although I have not made the calculation, 
 that, under the present convention, we offer to Denmark ten 
 times the quantity of productions for the employment of 
 her navigation in the indirect or triangular carrying trade, 
 which she can offer to the navigation of the United States. 
 The truth is, that, so far as regards this trade, the recipro- 
 city of the convention is hut a mere name. 
 
 But to make the inequality still greater, the fith article of 
 the convention excepts from its provisions Iceland, the Fer- 
 roe Islands, Greenland, and her colonial possessions beyond 
 the Cape of Good Hope. 
 
 It is not my purpose to enumerate the immense advan- 
 tages, present and prospective, which Denmark enjoys, under 
 this convention, in the encouragement of her commercial and 
 military marine, and in the promotion of her national wealth 
 and pi:osperity. 
 
 It is certain that we shall hei'eafter conclude no such une- 
 qual treaties with foreign 2:)0wers like Denmark, without 
 equivalents to the United States to compensate in some degree 
 for the superior advantages which we may grant over those 
 whicli we receive. The late treat}^ with Hanover (of which I 
 transmit you a copy, with the accompanying correspondence 
 sent to the Senate) was the commencement of a new era in 
 our commercial polic^y. This will sufficiently explain itself 
 without any observations on my part. Under its provisions, 
 3'ou will perceive that we have obtained equivalents for the 
 advantages which we have conferred. 
 
 It will be admitted by all that the commercial marine of 
 Denmark is much more capable than that of Hanover of 
 availing itself of these advantages, and of becoming successful 
 competitors with us in the indirect trade. Why, then, sliould 
 not Denmark grant us also fair equivalents for these advan- 
 tages? We desire to accept as an equivalent from Denmark 
 the abrogation of the Sound and Belt dues, rather than as- 
 sert our rights against her under the law of nations. Let 
 Denmark perform this act of justice, and the President is 
 willing that you shall conclude a new commercial treaty 
 with the Danish government, upon the same terms with the 
 present convention, to continue for a period of ten or twelve 
 years, reserving the usual right to either of the parties to 
 terminate it at the end of this period by giving a year's 
 notice. 
 
 Instead of the 5th article of the present convention, some- 
 
286 FOREIGN AFFAIRS. 
 
 thinor like the followins; mis-ht be inserted in the new 
 treaty : 
 
 Article 5. Vessels of the United States, in passing and 
 repassing the Sonnd and the Belts, shall be forever exempt 
 from the payment of any duties, either upon their tonnage 
 or their cargoes. 
 
 Light-money, and other reasonables charges noAv existing, 
 if disconnected irom charges or fees for levying and collect- 
 ing the Hound and Belt dues may still be continued. Of 
 these, you will be the best judge. 
 
 It would be desirable that the proposed fifth article should 
 be expressly excepted from the operation of any notice Avhich 
 may be given by either party to terminate the new treaty, 
 and be thus rendered perpetual. Upon this, however, you 
 are not to insist as a sine qua non; because, if the Sound 
 dues should be suspended for a period of ten or twelve years, 
 it is highly im})robable that they can ever afterwards be 
 revived. 
 
 But the President is willing to proceed still further, if the 
 object cannot otherwise be accomplished. It is probable that 
 two years might elapse before the existing convention could 
 be terminated, as an act must first pass Congress to enable 
 the I'resident to give the required notice, after which a year 
 must expire before it could be rendered effectual. During 
 the whole period our vessels would be subject to the Sound 
 dues under the present convention. For this reason, if you 
 should find it indispensable to success, but not otherwise, 
 you may stipulate to pay the government of Denmark a sum 
 not exceeding $250,000; but, in that event, the abrogation 
 of the Sound and Belt dues must be made i)erpetual, and 
 must be excluded, in express terms, from any notice which 
 may hereafter be given by either party to terminate the 
 treaty. 
 
 From the enclosed tables, Avhich I have just received from 
 the Treasury Department, you will perceive how very incon- 
 siderable our direct trade is with Denmark in Europe; whilst 
 in the year 1847, forty-four Danish vessels entered our ports, 
 all of which, with three exceptions, arrived from other por- 
 tions of the world, and were engaged in the triangular or 
 indirect trade. It is also worthy of remark, that since the 
 tariff of 1846, the Danish tonnage employed in this trade 
 for 1847 has nearly doubled. 
 
 For highly important information on the subject of these 
 dues, I refer you to Macgregor's Commercial Regulations, 
 vol. 1, chapter 3, title Denmark; or the same author's Com- 
 mercial Statistics, vol. 1, page 165. 
 
FOREIGN AFFAIRS. 287 
 
 If you could procure from the Danish government the 
 abolition of its transit duties on American productions in the 
 Duchies, and wherever else they may exist, this would he 
 very desirable ; and for this purpose you can use our treaty 
 with Hanover to great advantage. 
 
 I would tliank you to complete Mr. Irwin's tables up to the 
 present time, and transmit copies to the department. 
 
 Should it become expedient to address a note to the Danisli 
 Minister for Foreign Affairs on the subject of the Sound 
 dues, you may quote such portions of this despatch as you 
 may, in your discretion, deem appropriate and useful. But 
 this is left entirely to your own judgment. 
 
 You are now intrusted by the President with a most im- 
 portant negotiation. Should you prove successful, this will 
 reflect high honor upon 3'ourself, and promote the best inter- 
 ests of your country. May success attend you. 
 I am, sir, respectfully, your obedient servant, 
 
 JAMES BUCHANAN. 
 
 Egbert P. Flenniken, Esq., dc, t&c, 
 
 Cope7iJiage7i, 
 
 [In compliance with the instructions of Mr. Buchanan, Mr. 
 Flenniken had several interviews with Count Maltke, who 
 had succeeded Count Knath in the Foreign Office, and for- 
 mally introduced to him the subject of a treaty in relation to 
 the Sound and Belt dues. At these interviews, and in a 
 written despatch, he communicated the substance of Mr. Bu- 
 chanan's views, and his proposition for a pecuniary compro- 
 mise. These negotiations were fruitless, and on the 13th of 
 February, 1839, Mr. Flenniken wrote to the Secretary of State 
 that until peace were established between Denmark and Ger- 
 many he should be unable to resume the subject of the treaty 
 relating to the Sound dues.] 
 
 — y 
 
 Mr. Ma7-cy to Mr. Bedinger. 
 
 [Extract.] 
 
 Department op State, 
 
 Washingtrm, July 18, 1853. 
 gjj^. ***** * * 
 
 The subject of the "Sound dues," collected at Cronberg Cas- 
 tle, from American vessels, has been repeatedly brougiit to 
 the notice of the Danish government by your predecessors, 
 under instructions from this department. The President in- 
 tends that this subject, aifecting so injuriously important in- 
 terests of the United States, shall be pressed to a conclusion, 
 and you are accordingly instructed to obtain an early inter- 
 
288 FOREIGN AFFAIRS. 
 
 view, after your official reception, with the Minister of For- 
 eign Affairs of Denmark, to commirnicate to him in em- 
 })]iatic, hut respectful terms, the intention thus entertained. 
 
 In 1848, the Minister of Foreign AiFairs admitted to Mr. 
 Flenniken, our then representative near the government of 
 that kingdom, as reported by him to Mr. Buchanan, that 
 "the princii\leu])on which those dues are collected cannot be 
 defended." This is assuredly the case. It is clear that no 
 defence can he made in behalf of a "y)rinciple" so flagrantly 
 at variance with the established right of each of the nations 
 of the earth to the liberum mare. 
 
 It has been alleged by Denmai'k that our acquiescence, 
 until recent years, in the Elsineur exactions, was a tacit 
 sanction of their legitimacy, as "established by usage." It 
 is true that, down even to the present moment, Ave have of- 
 fered no positive resistance to the collection of the "dues;" 
 but our forbearance heretofore in this respect does not justify 
 the inference that we regarded them as rightfully imposed, 
 and would forever acquiesce in the continuance of this bur- 
 den upon our commerce. 
 
 Our mercantile marine measures at this time not less than 
 4,500,000 tons, and in our rapidly extending trade and in- 
 tercourse with the world, it is a paramount object of this 
 government, as it is its imperative duty, to remove every ob- 
 struction to free commerce by vessels sailing under our flag. 
 We can recognize no "immemorial usage" as obligatory when 
 it conflicts with natural privileges and international law. 
 These ancient customs have, in many instances, been found 
 to be inconsistent with rights now generally recognized in 
 tlie more liberal and reasonable practice of commercial na- 
 tions, and have been made to yield to views better suited to 
 the improved system of foreign trade. A burdensome impo- 
 sition upon that trade, which has for its support nothing but 
 anti(]uity, and is so directly opposed to modern policy, Avill 
 not, it is hoped, be longer insisted on by Denmark. 
 
 The date of the origin of the Sound tolls has never been, 
 as far as is known to this government, authentically ascer- 
 tained. They are presumed to be the relics of exactions by 
 the Norman pirates of the dark ages. As civilization ad- 
 vanced, they were enforced under the plea of protecting the 
 lucrative herring-fishery at Sclionen. The coasts of the three 
 straits (Sliaggcrack, Cattegat, and the Sound) were owned 
 T)y Denmark until 1658, (with the exception of thirty-six 
 years in tlie 14th century,) when, by the treaty of peace of 
 Rothschild, the east coast of the Great Belt, including the 
 fortifications of Helsinburg, was transferred to Sweden, and 
 
FOREIGN AFFAIRS. 289 
 
 is still owned by her. The right of sovereignty upon which 
 Denmark presumed, in consequence of her ownership on ei- 
 ther side of this connecting link of ocean water, necessarily 
 ceased after this occurrence, even if it had been before in the 
 slightest degree in conformity with national law. But, 
 nevertheless, she persisted at Cronberg, the key to the Sound, 
 in extorting large sums from every bottom that passed. Pre- 
 vious to the treaty with Sweden in the 14th century, the col- 
 lection of the Sound tolls was resolutely and successfully re- 
 sisted by the Hanseatic league. Then, as now, they came in 
 direct conflict with the interests of all the cities upon the 
 Baltic; and that powerful confederacy, at that time in the 
 meridian of its greatness, obtained a free passage for its 
 ships and cargoes through the Sound. In the year 1491, 
 Denmark, perceiving that the Hanseatic league held her au- 
 thority over the straits in utter contempt, deemed it judicious 
 to invite other nations to engage in the trade of the Baltic, 
 and a convention was entered into with England, and sub- 
 sequently Avith Holland, by which their vessels Avere per- 
 mitted to pass through the Sound by the payment of mere 
 nominal tolls. In 1515 it appears that the latter country 
 paid no tolls whatever, but stipulated to give a small sura 
 instead thereof This was, as intended, a blow at the Han- 
 seatic cities; and in their' name Lubec demanded the imme- 
 diate exclusion of the Dutch from the Baltic; a demand, how- 
 ever, that was not complied with. In 1544 a treaty of com- 
 merce was concluded between Christian III of Denmark and 
 Charles V, (regent of the Netherlands,) by which the subjects 
 of the high contracting parties were permitted to trade with 
 each other, by paying the Sound dues Avhich had been levied 
 "since days of old." The Dutch at this period were a great 
 navigating and commercial people, and the stipulations 
 which they entered into imparted dignity to the jurisdiction 
 claimed by the Danes over the Sound. The influence of the 
 Hanse towns began to decline about the beginning of the 
 15th century, but they exercised a supremacy over the North 
 and Baltic seas until the middle of the 15th. I'rom their un- 
 ceasing quarrels with Denmark, relative to the Sound tolls, 
 recourse Avas had to negotiation; and, in 1560, "the King of 
 Denmark and his subjects on the one part, and the right 
 honorable Hanseatic cities and the merchants thereof on the 
 other part," concluded the treaty of the Odensee. In 1563, 
 Denmark was involved in a Avar with Sweden, and she made 
 this circumstance a pretext to increase the Sound tolls 
 against the Hanse towns, notwithstanding her coA'enant to 
 the contrary three vears before, which was still in force; but 
 37 
 
290 FOREIGN AFFAIRS. 
 
 the Hanse towns, in their declininf;; power, were compelled to 
 sulimit to this violation of her obligations. In 1570 a treaty 
 was contracted between Denmark and Sweden at Stettin, by 
 which it was agreed that the latter nation shonld be ex- 
 empted from the Sound dues ; but this was evaded from time 
 to time by Denmark, in levying the toll upon the wines in- 
 tended for Queen Christina's own private use, and by the 
 prohibition of ammunition when Sweden was in absolute 
 want of it for prosecuting the thirty years' war. At length 
 Denmark became so intolerant as to search Swedish vessels, 
 unnecessarily detain them, and, in some instances, convey 
 them to Copenhagen. The Netherlands experienced but little 
 better treatment. The Stadtholder complained, and he was 
 put off with promises. In 1G40, the year after the dissolu- 
 tion of the Hanseatic league, the United Netherlands, which 
 liad secured their independence, formed a compact with Swe- 
 den for the maintenance of their respective rights; and in 
 1645 a new treaty was concluded between Denmark and 
 Sweden, and on the same day, August 13, one between Den- 
 mark and the Netherlands. In the negotiations which con- 
 cluded them, the Dutch and Swedish plenipotentiaries de- 
 manded free navigation through the Sound for all nations. 
 The Danish plenipotentiaries contended that the Sound was 
 a "Danish canal," and that the tolls collected were of a simi- 
 lar character to those exacted at the mouths of certain rivers 
 in Germany and Holland. France, acting as a mediator, 
 held the question under consideration to be decided at a more 
 convenient period; and subsequently she sustained the in- 
 terests of Denmark, for which she was rewarded by the be- 
 stowal of the same advantages to her flag as had been be- 
 stowed upon the Netherlands, and without any limit as to 
 duration. In 1G54, Great Britain concluded a treaty with 
 Denmark, which was renewed in 1670, by which all the ad- 
 vantages were to be enjoyed by her which had been con- 
 ferred upon the Netherlands. Previous to 1720, (from 1647,) 
 Denmark fixed the toll, in her treaties with other countries, 
 "in conformity to the terms granted to the Netherlands;" 
 but after that time she placed them upon the footing of "the 
 most favored nations." Sweden, in consideration of the res- 
 toration of her provinces, Avhich had been conquered by Den- 
 mark, stipulated to pay in future, by the treaty of Frederics- 
 burg of June 3, 1720, the same rate of Sound dues that were 
 collected upon the ships and cargoes of the most favored na- 
 tions, reserving to herself the right to establish a commis- 
 sary at Elsinore, to prevent impositions upon her navigation 
 and commerce. These conditions and obligations (although 
 
FOREIGN AFFAIRS. 291 
 
 several treaties have been made between the two nations 
 since) continue to he observed. During the 18th century, 
 Sweden havinji; been quieted, the Sound tolls seem to have 
 been submitted to by other Powers and States without oppo- 
 sition. Denmark concluded several new treaties, but none 
 of them contained provisions prohibitory of the exaction of 
 the dues demanded at Elsinore. 
 
 This was the condition in which Denmark was found when 
 the Congress of Vienna assembled. It was quite naturally 
 expected, at that time, that the Danish Sound tolls would 
 present a legitimate subject for the deliberations of that body, 
 and that, in the settlement of the affairs of Europe, they 
 would be entirely abrogated. But Frederick VI of Denmark 
 was present at Vienna, and the object of compassion with 
 the representatives of the sovereigns most interested, on ac- 
 count of the bombardment of Copenhagen and the destruction 
 of his fleet a few years before; and out of tenderness to him, 
 as it is reasonable to suppose, this question was permitted to 
 remain in statu quo. Vague intimations, it is stated, have 
 occasionally been given at Copenhagen, that the Sound tolls 
 were guarantied to Denmark by the Congress of Vienna, as 
 an indemnity for the surrender of Norway to Sweden. Ad- 
 mitting the truth of this, and that every European govern- 
 ment was irrevocably bound by such proceeding, the United 
 States were not a party to it in any way, and no obligation 
 is imposed upon them to respect the arrangement. Nothing 
 has been more remote from the purpose of our government, 
 from the day on which it was ushered into existence, than 
 that of surrendering to any power its right of using the 
 ocean as the highway of commerce. This right it claims. 
 and will use all proper means to secure to itself the full en- 
 joyment of in every quarter of the globe. 
 
 The fact is notorious that the Sound dues affect us more 
 sensibly than any European nation. Under their operation, 
 Great Britain has a decided advantage over us, as concerns 
 our chief staple. Raw cotton, according to the most relia- 
 ble statements before the department,, is charged with about 
 three per cent, ad valorem in its transit through the Sound ; 
 while cotton twist, of which Great Britain ships from oO,- 
 000,000 to 50,000,000 pounds to ports of the Baltic, pays 
 only one per cent, ad valorem! If we quietly submit to such 
 a tax upon the raw material of our fields, Great Britain, as 
 a matter of profit, can well afford to consent to the compar- 
 atively moderate one upon the article manufactured from it, 
 because she cannot fail to perceive that, were the dues abol- 
 ished, we should as certainly gain markets for the raw pro- 
 
202 FOREIGN AFFAIRS. 
 
 duct, as she would lose them for the manufacture of her spin- 
 neries. 
 
 For the five years terminating the 31st December, 1848, 
 2G4 American vessels entered the Baltic, upon the tonnage 
 and cargoes of which the Sound tolls amounted to 570,473 
 Danish bank rix dollars. Since then no tabular statements 
 have been received of our vessels passing Elsinore, nor the 
 sums annually paid. 
 
 The Sound toll levied upon our chief products, which find 
 a market in the countries bordering upon the Baltic and be- 
 yond them, according to the most reliable information on 
 the subject, is as follows: 
 
 Eaw cotton, per 100 lbs 20 cents. 
 
 Rice, per 100 lbs 11 " 
 
 Paddy, (rice in husk,) per 100 lbs 3| " 
 
 Raw tobacco, per 100 lbs 17J " 
 
 Whale oil, per bbl 6|- " 
 
 Consequently a cargo of 2,000 bales of cotton pays a tax 
 of about |1,720; a cargo of 800 hhds. of tobacco, |1,400; a 
 cargo of 1,000 tierces of rice, $'700. In addition to the toll 
 on tonnage, the cost of pilotage, for a ship drawing eighteen 
 feet water, from Dragon to Elsinore, varies, according to the 
 season of the year, from $20 to $30. 
 
 In 1829, an ordinance was issued by the King of Denmark 
 subjecting all vessels i)assing through the Sound to useless, 
 not to say ridiculous, observances, always very annoying, 
 and sometimes injurious, by the delays resulting from the 
 necessity of conforming to them. Should you find this ordi- 
 nance still in force, you Avill represent the effects of it upon 
 our vessels passing the Sound, and endeavor to procure their 
 exemption from it. It cannot be that, at this day, a govern- 
 ment so enlightened as that of Denmark will insist upon 
 the observance of ceremonies of this kind — useless to it, and 
 hardly compatible Avith the self-respect of those required to 
 perform them. That you may know to what ceremonies 1 
 allude, I herewith send you a cojjy of the ordinance pre- 
 scribing the observance. 
 
 You are at liberty to communicate any facts or statements 
 contained in this despatch to the Danish Minister of Foreign 
 Afiairs. 
 
 I am, sir, respectfullv, your obedient servant. 
 
 W. L. MARCY. 
 Henry Bedinger, Esq., dc, &c. 
 
 Copenhagen. 
 
FOREIGN AFFAIRS. 293 
 
 3Ir. Bedinger to 3Ir. Marcy. 
 
 [Extract.] 
 
 Copenhagen, Ocfoher 13, 1853. 
 gjj^' ******* 
 
 Of course I have not yet broached the subject of the 
 "Sound dues," but I shall seek an early opportunity to do 
 so; and I respectfully desire to be instructed whether I may 
 be allowed to offer anything, either in the form of some ad- 
 ditional commercial privilege, or other matter as an equiva- 
 lent for those dues, in case the Danish government shall 
 consent to abandon them, so far as our vessels are con- 
 cerned. If I remember correctly, in a despatch of Mr. Buch- 
 anan's to one of my predecessors, something of that sort is 
 authorized to be done; and I respectfully request that I may 
 be particularly instructed upon this point at as early a day 
 
 as possible. 
 ******** 
 
 I have the honor, &c., &c., 
 
 HENRY BEDINGER. 
 Hon. W. L. Marcy, 
 
 Secretary of State. 
 
 Mr. Marcy to Mr. Bedinger. 
 
 [No. 3.] Department op State, 
 
 JFashington, November 8, 1853. 
 Sir: Your despatch of the 13tli ultimo was received at the 
 Department on the 5th instant, and I am directed by the 
 President to inform you, in reply to your question respect- 
 ing an equivalent to Denmark for the abolition of the 
 "Sound dues," that he declines authorizing you to offer to 
 that power any compensation for the removal of that as a 
 favor which we have demanded as a right. 
 
 I am, sir, respectfully, your obedient servant, 
 
 W. L. MARCY. 
 Henry Bedinger, Esq., &c., &c., 
 
 Copenhagen. 
 
 Mr. Bedinger to Mr. Marcy. 
 
 [Extract] 
 
 [No. 2.] Legation of the United States, 
 
 Copenhagen, December 3, 1853. 
 Sir: ******* 
 
 The Minister of Foreign Affairs has beeen suffering with 
 an attack of the gout for several weeks past, and, in conse- 
 quence, I was not able to procure an interview with him 
 
294 FOREIGN AFFAIRS. 
 
 upon the subject of the "dues" until the 1st instant. On 
 that day I spoke to him on the subject. I stated, briefly, the 
 principal objections to the continuance of that burthen upon 
 our commerce, and respectfully informed him, that it was 
 absolutely necessary that the matter should, at once, be 
 pressed to a conclusion, &c., &c. 
 
 He replied, at some length, that it was a matter of very 
 great importance; that the right to levy the "dues" had 
 been exercised by Denmark since "time immemorial;" that 
 all other nations had tacitly assented to her right to levy 
 them ; that our trade in the Baltic was much less than that 
 of other nations, and, consequently, we had the less cause 
 of complaint; that Denmark could not exempt one nation 
 from the payment of the tolls without exempting all others, 
 which would cause a ruinous reduction in the revenue of the 
 State, &c. 
 
 I combatted, to the best of my ability, the positions which 
 he had taken, and which I had fully anticipated ; and he 
 then said, if I would address him in writing upon the sub- 
 ject, he would lay the matter before His Majesty's govern- 
 ment in council, and inform me of the determination to which 
 they should come in regard to it. But I understood him to 
 say, distinctly, tliat in his oivn opinion Denmark would never 
 colunfariJi/ consent to remit the tolls. The next day I ad- 
 dressed a note to him, in which I quoted the principal ob- 
 jections to the imposition of the "dues" — as set forth in my 
 instructions, and asked that the subject might be brought to 
 the notice of the Danish government, with a request on the 
 part of the United States to have the tolls remitted in future. 
 
 3Ir. Bedinger to 3Ir. 3Iaraj. 
 [Extract.] 
 
 Legation of the United States, 
 
 Copenhagen, February 26, 1854. 
 
 Sir: I have the honor to inform you that I have received 
 your communication of the 2d instant, informing me tliat 
 my despatches, Nos. 2 and 3, liad been received, and enclos- 
 ing the resolution of the House of Kepresentatives of tlie 
 30th of December, 1853, upon the subject of the "Sound 
 dues." 
 
 A few days before I received tliis communication, I had 
 called again upon the Minister of Foreign Affairs, to inquire 
 wliether lie had received the note I had addressed him upon 
 the subject, and when I might hope to receive his reply. He 
 apologized for having been compelled so long to delay his 
 
FOREIGN AFFAIRS. 295 
 
 answer, and begged me to attribute it, not to any disposition 
 upon his part to retard the action upon the application of the 
 United States, but simply to the fact of the great increase of 
 business in his department in consequence of the pending 
 crisis in Eurojiean politics, and to the condition of his own 
 health, which had been but feeble. He stated, however, that 
 he Avas then preparing a statement in reply to my note, which 
 would embrace the whole subject of the "Sound dues," to- 
 gether with certain facts, statistics, &c., which he deemed 
 important, and certain propositions, also, which it was de- 
 signed to make to our government upon the subject; that I 
 should receive this statement as soon as he could possibly 
 complete it ; and that a copy of the same would likewise be 
 transmitted to our government through the Danish charge 
 d'affaires in the United States. 
 
 I do not know whether I ought to express any further 
 opinion upon this subject, until after I shall have received 
 the statement referred to. But I cannot help thinking that 
 there is no intention upon the part of this government to 
 abandon tliat unjustifiable source of revenue, until induced 
 to do so by measures more to be regarded than mere diplo- 
 matic conversations and verbal objections; for, if I am cor- 
 rectly informed, Denmark is at present upheld by Eussia in 
 the imposition of those burdens upon the commerce of other 
 nations. From such information as I have been able to 
 gather upon the subject, it appears that Russia, while she 
 does not attempt actually to compel submission to those exac- 
 tions, sanctions them nevertheless, by requiring her ports to 
 refuse to receive the cargo of any vessel which has not paid 
 them, thus lending very effectual assistance to the imposi- 
 tions of Denmark. Mr. Raynal, our consul at Elsinore, 
 tells me that he has prepared a very full statement of the 
 amount of these tolls paid to Denmark within the last two 
 or three years ; the amount paid by different nations, the 
 burdens imposed upon the several most important articles 
 of commerce, &c., with a copy of which he will furnish me 
 in a short time, and will also forward a copy to your de- 
 partment. 
 
 Mr. Bedinger to 3fr. 3Iarcy. 
 
 Legation of the United States, 
 
 Copenhagen, April 1, 1854. 
 
 Sir: I have the honor to inform you that, since the date 
 of my last despatch, I have had another interview with his 
 excellency the Minister of Foreign Affairs upon the subject 
 
296 FOREIGN AFFAIRS. 
 
 of the "Sound dues." It was not much more satisfactory, 
 however, than the others; but I deem it proper to state, that 
 upon this occasion his excellency, after having again apolo- 
 gized for not having replied to my note, said that he had 
 written to the Danish charge d'affaires to the United States, 
 instructing him respectfully to urge our government to defer 
 pressing this question until the jiolitical horizon in Europe 
 shall assume a more tranquil aspect. 
 
 He assured me that, so soon as it could possibly be done, 
 it was the intention of the Danish government to enter into 
 certain arrangements with the other nations interested in 
 the subject, by Avhich the right of collecting the "tolls" 
 would be abandoned by Denmark, upon receiving from the 
 other powers a certain compensation, which he did not dis- 
 tinctly explain, in lieu thereof. He said he hoped I would 
 perceive how utterly impossible it would be to effect any 
 thing of that sort during the present state of public affairs; 
 but he reiterated the assurance that negotiations upon the 
 subject should be commenced at the very earliest period that 
 would afi^'ord hopes of their successful termination, &c. 
 
 I thought it proper to inform him, lest he should argue 
 from my silence that the United States would consent to the 
 '•compensation" of which he had spoken, that it would not 
 be proper to reckon upon any thing of the sort. 
 
 He replied, that he had strong reasons for believing that 
 we would assent to the arrangement which he hoped to be 
 able to make; that, in the mean time, he would complete 
 his reply to my note, and transmit the same to Washington. 
 
 The difficulties which have recently arisen between the 
 Danish Diet and the ministry, growing out of certain efforts 
 on the part of the latter to frame a constitution suitable to 
 the whole monarchy, have given rise to some excitement, 
 and tended considerably to retard the execution of public 
 business. 
 
 The Diet, however, has now adjourned; the present min- 
 istry is to be retained, I believe; and affairs will probably 
 assume again their wonted tranquillity. 
 
FOREIGN AFFAIBS. 297 
 
 AFFAIRS IN CENTRAL AMERICA. 
 
 [The difficulties between the Nicaragua Transit Company and the Settlement 
 at the mouth of the San Juan, and the occurrences referred to in the Presidents 
 Message, (page 10) are fully set forth in the following documents, communicated 
 to the Senate in compliance with a call for information in regard to the trans- 
 actions between Captain Hollins, of the U. S. Ship Cyane and the authorities 
 at San Juan de Nicaragua. 33d Con. 1st Sess. Senate Doc. Ex. No. 8.] 
 
 POLITICAL ORGANIZATION OF GREYTOWN. 
 
 City Council of Greytown to the Secretarij of State of the 
 United States. 
 
 Council Chamber, 
 Greytotun, or San Juan del Norte, Feb. 19, 1853. 
 
 The legislative council of the city of Greytown, or San 
 Juan del Norte, respectfully heg leave to represent to you, 
 and through you to the President of the United States, the 
 following statement in relation to the condition of affairs as 
 they now exist in this city. 
 
 In March last, the Mosquito authorities, then governing 
 at this place, called on the people by a proclamation, issued 
 by James Green, Esq., her Britannic Majesty's acting agent 
 and consul general to Mosquito, to form a constitution, elect 
 officers, and enact such laws as they might deem necessary 
 for the future welfare of the city and its inhabitants. 
 
 In accordance with this proclamation, the people met in 
 convention on the 29th day of March, 1852, and appointed a 
 committee to draft a constitution ; the result was the present 
 constitution, which was adopted unanimously at a general 
 meeting of the citizens, held in the said city of Greytown, 
 or San Juan del Norte, on the 5th day of April, a. d. 1852. 
 
 A copy of the constitution, together with a copy of the 
 proclamation of James Green, Esq., her Britannic Majesty's 
 agent, &c., was transmitted to the office of the Secretary of 
 State of the United States by Commander Green, of the 
 United States vessel-of-war Decatur, then lying in this 
 harbor. 
 
 In compliance with the constitution, an election was held 
 on the 15tli day of April last, and resulted in tlie choice of 
 a mayor, five members for a legislative council, three su- 
 preme judges, and subordinate officers. 
 38 
 
FOREIGN AFFAIRS. 
 
 The new government came into power on the first day of 
 May, A. D. 1852, and on that day the Mosquito authorities 
 surrendered their power and authority to the officers elected 
 under the new constitution, and retired from office. 
 
 Since that period, the government thus chosen by the 
 people has been in power, have enacted such laws as they 
 deemed necessary for the welfare of the city^ and exercised 
 all the rights and privileges usually exercised by a free and 
 independent State, and have thus far been successful in pre- 
 serving order and affording protection to person and property. 
 
 They beg leave to further state, that they consider this 
 government fully ably to maintain its present position; all 
 that is necessary being the approval of the respective gov- 
 ernments of the United States and Great Britain. 
 
 Every facility and encouragement in the power of this 
 government is oifered to the commerce of all nations ; Grrey- 
 town, or San Juan del Norte, being declared a free port for- 
 ever, subject only to light harbor dues and pilotage. 
 
 The present inhabitants, residing here, found this place a 
 small collection of huts ; by enterprize and industry they 
 have transformed it into a flourishing city. 
 
 The authorities have been formally acknowledged by the 
 government of Great Britain ; and the letter of Vice-Admi- 
 ral Sir George Seymour (a copy of which is herewith trans- 
 mitted) will show that his government deems it no longer 
 necessary to maintain ships of war on this station, thereby 
 virtually confirming in the hands of, and acknowledging 
 the ability of this government to maintain its laws, and all 
 the powers heretofore possessed by the Mosquito authorities 
 in full sovereignty. 
 
 The people of this city look with confidence for a similar 
 recognition on the part of the United States, and would view 
 with deep concern any treaty, in relation to the territory 
 which they now occupy, to Avhich they are not made a party, 
 or their interests fully considered. 
 
 A copy of the answer of the council to the letter from Ad- 
 miral Seymour is also herewith transmitted. 
 Eespectfully submitted. 
 
 By order of the council : 
 
 SAMUEL S. WOOD, 
 
 President of the Council. 
 EGBERT D. LEES, 
 
 Secretary of the Council. 
 
FOREIGN AFFAIRS. 299 
 
 [Letters No. 1 and No. 2 enclosed in the above.] 
 
 No. 1. 
 
 Vice Admiral and Commander in Chief, Sir G. II. Seymour, to J. Green, Esq., her 
 
 Majesty's consul general at Greytown. 
 
 Cdmberland at Jamaica, 
 
 January 12, 1853. 
 
 Sir: I beg to acquaint you that I have roceived no information of the proposed 
 arrangement for the future position of Greytown being likely to be concluded, 
 and being much impressed with the losses the shij^s under my command have 
 suffered from their detention at Greytown, I request you will give the mayor and 
 council to understand that I do not consider the chance of an attack from the 
 Nicaraguans on the town (which if their government is well advised will not 
 occur) furnishes a sufficient reason for now keeping British ships of war at Grey- 
 town to the prejudice of the health of their officers and crews, when a municipality 
 has been formed and acknowledged which is able to protect the place and property 
 of the inhalntants. 
 
 It is the more advisable that they themselves should be prepared to resist any 
 sudden attack, as it would be the duty of the naval officer commanding in the 
 West Indies to send a force to dispossess any persons who might obtain possession 
 of the place, before a definitive arrangement has been made for its future position, 
 and any contests for the possession of the town would be injurious to its welfare 
 and the property of the inhabitants. 
 
 I am, sir, your obedient servant, 
 
 G. H. SEYMOUR. 
 No. 2. 
 
 Council Chamber, 
 Greyloum, or San Juan del Norte, February IG, 1853. 
 
 At a meeting of the legislative council of the city of Greytown, or San .Juan 
 del Norte, held at the council chamber, on Monday, February 14, 1853, your letter 
 to James Green, Esq., her Majesty's consul general, dated Cumberland at Jamaica, 
 12th January, 1853, was read to the council by Henry Grant Foote, Esq., her Ma- 
 jesty's vice consul for this port. 
 
 This council takes pleasure in acknowledging and appreciating the interest 
 manifested in your letter towards the citizens and government of this city, and in 
 reply to your remark, that "a municipality has been formed and acknowledged 
 which is alile to protect the place and property of the inhabitants," would state 
 that, notwithstanding the anomalous position in which this government is placed, 
 it has been enabled thus far to maintain the supremacy of its laws, and afford 
 ample protection to person and property, nor has it any doubt of being able suc- 
 cessfuU}- to resist any attack from the quarters mentioned in your letter, and more 
 especiallj' as this government is acknowledged and protected by the governments 
 of Great Britain and that of the United States. 
 
 This council regrets to add that some embarrassments have lately arisen in re- 
 lation to the jurisdiction of the territory, especially in regard to the Nicaragua 
 Accessory Transit Company, which now occupies a portion of land on the north 
 side of the harbor known as Punta Arenas, to the serious detriment of the city, 
 and which said company has refused on several occasions to obey and acknow- 
 ledge the jurisdiction of the laws of the city over it. 
 
 The authorities of this city, anxious to maintain friendly relations with all par- 
 ties, have submitted to this illegal occupancy of lands on the part of the company, 
 under the impression that the question was on the point of being settled definitely 
 by the respective governments of England and tlie United States: but, after a 
 period of nearly a year, the matter appears to be as far from a final arrangement 
 as ever. They have therefore taken steps to eflectually maintain their rights, and 
 cause their laws to be acknowledged and respected by all parties within their 
 jurisdiction, and trust that, proceeding strictly in accordance with law, to merit 
 and receive the approbation of the protecting governments. 
 
 The council sought an interview, private and unofKcial, with the commander of 
 her Majesty's vessel of war, now in port, at which interview it took occasion to 
 state fully its present position. 
 
 Respectfully submitted. 
 
 By order of the council. 
 
 32 
 
300 FOREIGN AFFAIRS. 
 
 ARRIVAL OF THE CYANE AT GREYTOWN AND SUBSEQUENT OCCUR- 
 RENCES THERE. 
 
 Commander Hollins to the Secretary of the Navy. 
 
 United States ship "Cyane," 
 
 Harbor of San Juan de Nicaragua, March 18, 1853. 
 
 Sir: I have the honor to report my arrival at this port 
 from Pensacola, on the 10th ultimo, after a passage of four- 
 teen days. 
 
 Upon coming to anchor, a boat was despatched to Henry 
 L. Stevenson, Esq., the commercial agent of the United States 
 at San Juan, with "orders" to place the same at his disposal. 
 No attention was paid to the offer, and I have not had the 
 pleasure, thus far, of a visit from him. 
 
 At the same time I was served with a "copy of a protest," 
 before the commercial agent of the United States, from 
 Thomas Baldwin, Esq., as agent of the Accessory Transit 
 Company, of Nicaragua, against the proceedings of the "coun- 
 cil" of San Juan de Nicaragua, as set forth in the accompa- 
 nying document, marked A, accompanied with a demand 
 through his attorney, F. A. Nenninger, Esq., (Mr. Baldwin 
 being absent,) for protection of the persons and property of 
 the Accessor}' Transit Company of Nicaragua, located upon 
 Punta Arenas, opposite the town of San Juan de Nicaragua, 
 as set forth in the accompanying document, marked B. And 
 also a "request" and "protest" of H. W. Wagner, as attorney 
 for G. W. McCerren, Esq., before the commercial agent of the 
 United States, addressed to the "council" of San Juan de 
 Nicaragua, for a "stay of jiroceedings" upon their part in 
 reference to a " resolution" passed by the council, on February 
 8, 1853, said McCerren having an interest in a portion of the 
 property located on Punta Arenas, included in said "resolu- 
 tion," as found on the third page of the accompanying docu- 
 ment, marked C* 
 
 No attention was paid to the "request" and "protest" of 
 McCerren, and the property Avas destroyed by tearing down 
 the buildings, as set forth in the accompanying document, 
 from Thomas Baldwin, Esq., agent of the Accessory Transit 
 Company, marked D. The "copy of correspondence," refer- 
 red to in document D, will be found attached, marked E.f 
 
 *The nature and contents of these documents are so sufficiently set forth in the 
 text, as to render their reproduction superfluous. The resolution, or ordinance 
 referred to is printed on a subsequent page. 
 
 fThe correspondence mentioned iucludeg the replies of the United States Com- 
 mercial Agency and of the British Consulate to the appeal of Mr. Baldwin for 
 protection. These are given entire. The rest of the correspondence shows the 
 unavailing efforts of Mr. Baldwin to procure delay from the authorities of Grey- 
 tOAvn in the execution of their ordinance, and is not otherwise important. 
 
FOREIGN AFFAIES. 301 
 
 I was also informed that the writ of ejectment against 
 the persons of the Accessory Transit Company Avould be 
 enforced on the morrow at eleven o'clock, A. M., and that 
 the balance of the property would be destroyed in accord- 
 ance with a "city ordinance/' passed at a meeting of the 
 " council," on the evening of February 7, 1853, a copy of 
 which will be found on the 2d and 3d pages of the accom- 
 panying, marked E. 
 
 Agreeable to ray " orders" I promised the required pro- 
 tection, and despatched Mr. Theodore P. Green, the first 
 lieutenant of this ship, to the Mayor of San Juan de Nica- 
 ragua with "orders" to state that information had been 
 lodged with me, that on the succeeding day (March 11) a 
 writ of ejectment woidd be served upon the Accessory Transit 
 Oompanv, and in case of their refusal to remove the pro- 
 jierty, force would be used to compel them. 
 
 He found the council assembled, the mayor presiding, 
 made the statement, and requested their answer. He was 
 desired to inform me the process was a legal one, and that 
 they should carry the same into effect on the succeeding 
 day at 11 o'clock, A. M., unless prevented by a stronger 
 force. 
 
 On the morning of the eleventh, at nine o'clock, I pro- 
 ceeded ashore to pay my respects to the mayor, and was re- 
 ceived in the " council chamber," the " council" being as- 
 sembled, when the mayor stated I had, on the previous af- 
 ternoon, sent Mr. Green, the first lieutenant of the ship 
 under my command, with a statement as recorded in the 
 foregoing ; I replied, I had so done, and that in accordance 
 with my "orders" I should be compelled to put a stop to 
 any depredations upon the property of the Accessory Tran- 
 sit Company. The mayor replied " no depredations Avould 
 be committed, they only intended to pull the buildings 
 doAvn." He then requested a statement in writing of my 
 intentions to prevent the execution of the "process" which I 
 acceded to, and withdrew to the ship. 
 
 The accompanying letter dated harbor of San Juan del 
 Norte, or Greytown, United States ship "Cyane," March 11, 
 1853, was despatched at once, the reply it received is also 
 attached. [1 and 2.] 
 
 Purser Charles C. Upham and acting Lieutenant William 
 H. Parker, of this ship, shortly afterwards returned from a 
 visit to the town, bringing information that the troops were 
 under arms and preparations making to proceed against 
 Point Arenas and its occupants appertaining to the Ac- 
 
302 FOREIGN AFFAIRS. 
 
 cessory Transit Company, and that threats wereheing made 
 of destruction of the property by fire. 
 
 "Orders" were then given to land a marine guard on 
 Point Arenas, nnder the command of Lieutenant William 
 Decatur Hurst, with instructions to inform the " marshal" 
 that the property could not he molested, and to warn off all 
 suspected persons, to prevent the execution of any threats 
 as stated above. The " marshal" landed, and upon being 
 asked his business by Lieutenant Hurst, he replied " to tear 
 down the buildings." Lieutenant Hurst then informed the 
 " marshal" of his " orders" to protect the property of the 
 Accessory Transit Company of Nicaragua, and that he in- 
 tended to obey and cari-y out the same; upon the receipt of 
 this information the "marshal" mustered his "posse of car- 
 jienters," and left for San Juan de Nicaragua. 
 
 On the 13th ult., I had the honor of a visit from her Bri- 
 tannic Majesty's Vice Consul, Henry G-rant Foot, Esq., who 
 had just returned from a visit to Bluefields, having been ab- 
 sent some days : he brought with him " despatches" from 
 Vice Admiral Seymour, and Commodore McQuhae of her 
 Britannic Majesty's naval forces in the West Indies^ directed 
 to F. A. Parker, commander-in-chief of the naval forces of 
 the United States in the West Indies, with directions to place 
 them in the hands of the senior officer in command, should 
 Commodore Parker be absent. Copies are herewith enclosed, 
 marked F. He also informed me that the previously exist- 
 ing government of San Juan de Nicaragua had become dis- 
 solved by their own act, in consequence of their inability to 
 carry out their intended course with the occupants and pro- 
 perty of Point Arenas. 
 
 From the many threats and manifest excitement among 
 the citizens of San Juan de Nicaragua, I deem it necessary 
 to continue the guard upon Point Arenas, about the pro- 
 perty of the Accessory Transit Companv, particularly at 
 night, and shall continue so to do until the necessity ap- 
 pears no longer to exist. I have also thought j^roper to 
 warn the citizens of San Juan de Nicaragua of my inten- 
 tions as to the persons and property of citizens of the United 
 States Avho might be molested, as in the accompanying com- 
 plaint from one already assaulted, marked G. Accordingly 
 I dispatched liieut. Hurst to the town with the accompany- 
 ing communication, addressed to the citizens of San Juan 
 de Nicaragua, marked H, with " orders to advise with her 
 Britannic Majesty's vice consul as to its effect;" the accom- 
 panying letter marked I, is his reply, and in accordance it 
 
FOKEIGN AFFAIRS. 303 
 
 was SO modified as to include all, as set forth in the accom- 
 panying document, marked J. 
 
 Owing to the unsettled condition of aflfliirs at this port, 
 I do not deem it prudent to absent myself from the ship 
 to communicate with Mr. Kerr, the charge of the United 
 States to Nicaragua, and have therefore ordered Dr. George 
 Peck, the assistant surgeon of this ship, to represent me on 
 this occasion. The officers and crew thus far continue in 
 good health, but I am informed by the surgeon of the ship, 
 (Dr. W. A. Spotswood,) from the prevalence of fever around 
 us, we cannot expect to remain so for any length of time. I 
 deem it necessary, hoAvever, to remain here until further 
 "orders" from your honored self 
 
 Copies of this correspondence have been sent to Commo- 
 dore Newton, at Pensacola. 
 
 In closing my communication, permit me to refer to the 
 correct deportment of all under my command ; the officers 
 having been in consultation of the greatest service, and the 
 crew under such perfect discipline, and so well exercised 
 with "small arms," through the efficiency of Mr. Green, the 
 1st lieutenant, as to render themselves uniformly obedient 
 and quick in their movements. Hoping my conduct may 
 have been such as to meet your unqualified aj)proval, I anx- 
 iously await your pleasure. 
 
 I have the honor to be, with the greatest respect, sir, your 
 most obedient servant, GEO. N. HOLLINS, 
 
 Com'g U. S. Ship Cyane. 
 
 ORDINANCE OF THE CITY COUNCIL. 
 [Referred to as "E," ia Captain Hollins' despatch.] 
 
 "February 8, 1853. 
 
 '^Besolved, That the Mayor be directed to notify the Ac- 
 cessory Transit Company to remove within five days the 
 buildings lately erected by the said company on the city lands, 
 and also within thirty days to remove their entire establish- 
 ment, as said lands are required for the use of the city ; and 
 in case of the said company not complying within the speci- 
 fied time, that summary measures be taken for tlieir ejection. 
 
 "R. D. LEES, Sec. C. C" 
 
 [ Against the execution of this ordinance of the City Coun- 
 cil, Thomas Baldwin as agent of the American Transit Com- 
 pany, filed a written prot'est at the Commercial Agency of 
 the United States at San Juan, setting forth that the Acces- 
 sory Transit Company of Nicaragua hold the lands now 
 
304 FOEEIGN AFFAIRS. 
 
 occupied by them, by virtue of a charter or title from the State 
 of Nicaragua, and are guaranteed in the possession and occu- 
 pation of said lands by a treaty between the governments 
 of the United >>tates and Great Britain, and that the gov- 
 ernment of San Juan de Nicaragua have no control over the 
 same, and have no power beyond municipal authority.] 
 
 [Letter and Reply referred to in the despatch of Commander Hollins.] 
 No. 1. 
 
 United States ship Cyane, 
 nm'hor of San Juan del Norte, or Greytoivn, 
 
 March 11, 1853. 
 Sir: After the interview I had with your honor this morn- 
 ing, before your honorable council assembled, I have to state, 
 most respectfully, that I cannot permit any depredations on 
 the property of the Accessory Transit Company, w^hose 
 depot is located upon Punta Arenas, at the entrance of this 
 harbor. 
 
 1 am, very respectfully, vour obedient servant, 
 
 GEO. N. HOLLINS, 
 Commander United States ship Cyane. 
 To his honor the Mayor, 
 
 Of San Juan del Norte, or Greytoion, Nicaragua. 
 
 No. 2. 
 
 San Juan del Norte, or Greytown, 
 
 3Iarch 11, 1853. 
 Sir: 1 have the honor to acknowledge the receipt of your 
 communication of this date, and in reply have to state that 
 no "depredations," have been or will be made upon the 
 ''property of the Accessory Transit Company, whose depot 
 is located upon Point Arenas, at the entrance of this har- 
 bor;" and that I shall proceed to eject the said company ac- 
 cording to law, unless illegally prevented by a superior 
 force. 
 
 I have the honor to be, vour obedient servant, 
 
 T. J. MARTIN, Mayor. 
 To Geo. N. Hollins, Esq., 
 
 Commander United States ship Cyane. 
 
 execution of the ordinance at punta arenas. 
 D. 
 San Juan, March 14, 1853. 
 Sir: Having reference to the copy of the correspondence 
 lately carried on between the authorities of Greytown, the 
 
FOREIGN AFFAIRS. 305 
 
 United States Vice Commercial Agent, her Britannic Ma- 
 jesty's Vice Consnl, and myself, with which I have furnished 
 yon, I now heg leave to wait upon you with the following state- 
 ment of the manner in which the writ of ejectment was car- 
 ried into effect upon the property of the Accessory Transit 
 Company of Nicaragua, as well as how the property of Cap- 
 tain George W. McCerren (an American citizen) was de- 
 stroyed without having heen included in the writ of eject- 
 ment, or heing in any way connected with the property of 
 the Accessory Transit Company. 
 
 On Monday, the twenty-first day of February, at about 
 half-past eleven o'clock, A. M., a party of armed men, accom- 
 panied by the marshal of Greytown, and jointly under the 
 commands of one certain Benjamin Moony, a member of the 
 city council of Greytown, and that of one James Lyons, a co- 
 lored man of said town, who is styled "Major Lyons," landed 
 upon Punta Arenas, and proceeded, without furthermore ado, 
 or explanations of any kind, to demolish some buildings be- 
 longing to the Accessory Transit Company of Nicaragua, 
 said buildings being used for boarding and lodging the em- 
 ployees of said company, thus depriving said employees of 
 their comfortable, and, in this climate, most necessary quar- 
 ters, subjecting them to the disagreeable necessity of quar- 
 tering themselves, in a crowded and unhealthy manner, on 
 board of one of the smallest river steamers belonging to the 
 company. Those men next proceeded to a newly erected 
 brick oven, the property of Captain George W. McCerren, 
 who had never even been served with a notice that a writ of 
 ejectment would be issued against his property; these build- 
 ings were destroyed amidst the cheers and yells of this 
 armed body, horrible to listen to. 
 
 I omitted mentioning to you previously, that, according to 
 instructions received by me from the President and Directors 
 of the Accessory Transit Company, at New York, advising 
 me that I could call upon any British vessel of war for pro- 
 tection in case of necessity, I felt it incumbent upon myself, 
 in the absence of such vessel, to call upon Mr. Foote, her 
 Britannic Majesty's Vice Consul, requesting his aid and pro- 
 tection; this gentleman replied that it was out of Ids power 
 to grant me any, as his instructions from the British govern- 
 ment only referred to protecting the interests of the Atlantic 
 Pacific Canal Company, and not those of the Accessory Tran- 
 sit Company of Nicaragua; he remarked, however, that he 
 expected a British steamer of war to arrive, and, upon her 
 arrival, requested me to call upon him, and he would then 
 lay the matter before the captain and see what could be done 
 39 
 
W& FOREIGN ArrAIRS. 
 
 in the premises. Upon the arrival of her Britannic Majesty's 
 steamer Gazer, I immediately proceeded to Greytown, and 
 whilst awaiting tlie proposed interview I was arrested, and 
 whilst under arrest Ca])tain Wilson, of her Britannic Majes- 
 ty's steamer Gazer, called upon me and informed me that he 
 could render me no assistance. Some days afterwards, Mr. 
 Foote and Captain Wilson called upon me, and, in the course 
 of conversation, produced some documents purporting to be 
 a copy of the instructions of the late Honorable Daniel Web- 
 ster, Secretary of State of the United States, to Commodore 
 Parker, of the United States Navy, with regard to the affairs 
 of the city of Greytown; ujion my making a request to allow 
 Mr. Nenninger, Secretary of the Accessory Transit Company, 
 at this place, to read the same, Mr. Foote replied that he 
 would read them himself, and proceeded to do so, the pur- 
 port of which did not directly apply or allude to the Acces- 
 sory Transit Company; whether or not Mr. Foote readever}^- 
 thing contained in the documents he was reading, I am un- 
 able to say. 
 
 In conclusion allow me, sir, in behalf of the Accessory 
 Transit Company, as well as in behalf of the employees of 
 the company, to render you their most sincere and grateful 
 thanks for the very j^rompt and efficient manner you have 
 acted in protecting their interests, and it shall afford me 
 great pleasure to acquaint the government of the United 
 States with the fact. 
 
 With the highest consideration, I am, sir, your most obe- 
 dient servant, THOMAS BALDWIN, 
 
 Agent Accessory Transit Co., Nicaragua. 
 
 Captain Hollins, 
 
 U. S. Sloop of War Cyane, San Juan del Noi'te. 
 
 REPLIES TO MR, BALDWIN'S APPEAL FOR PROTECTION. 
 
 E. 
 
 Commercial Agency of the United States of America, 
 Fo7-t of Sa7i Juan de Nicaragua, February 13_, 1853. 
 
 Dear Sir: Your note of 12th instant, in reply to mine of 
 the 11th, informing me that in compliance with my recom- 
 mendation you had made a formal application to the city 
 council of San Juan del Norte, or Greytown, for a stay of 
 proceedings, has been received. 
 
 You request to know what course I intend to pursue in 
 the matter, " as it may become necessary to repel force by 
 force, and how far such a course will be justified by the Gov- 
 ernment of the United States of America." 
 
FOREIGN AFFAIRS. 307 
 
 In reply I have to say, tliat I will be governed by such 
 circumstances as may arise in the course of the controversy — 
 that as Vice Commercial Agent of the United States of 
 America, my power and duties are of an advisory character, 
 and that I shall seek to avert a collision between the local 
 authorities and the Accessory Transit Company. 
 
 I have moreover to inform you that, inasmuch as the gov- 
 ernment of the United States of America have recognized 
 the "local government" of this port, as the legal govern- 
 ment thereof, either ad interim or otherwise, both through 
 the commanders of their vessels of war, which have visited 
 the port, and by accrediting a " commercial agent" to the 
 posts, that the question at issue between the local authorities 
 and Accessory Transit Company of Nicaragua, is in my 
 opinion " at present" a local question, and that the govern- 
 ment of the United States of America will not justify you in 
 a forcible resistance (involving the sacrifice of life) to these 
 authorities. 
 
 But if the city council of San Juan del Norte, or Grey- 
 town, exceed their authority, and violate the rights of the 
 " Accessory Transit Company of Nicaragua," either under 
 cover of their laws or otherwise, that they are amenable to 
 you for all damages or injury which you may sustain at their 
 hands. 
 
 I have also to assure you that the government Avhich I 
 represent shall be promptly and fully advised of all the pro- 
 ceedings in this matter, in order to enable them to pursue 
 such a course as to them may seem right and just. 
 
 I had an interview with two members of the " city coun- 
 cil" last evening, and I expected that your application for a 
 stay of proceedings would have been granted. 
 
 Respectfully yours, HENRY L. STEVENSON, 
 
 U. S. Vice Commercial Agent. 
 
 Thomas Baldwin, Esq., Agent, &c. 
 
 British Consulate, 
 
 Grey town, February 9, 1853. 
 
 Sir: I have to acknowledge the receipt of j^our letter of 
 this day's date, enclosing the copy of a protest entered by 
 you at the office of the United States Commercial Agency, 
 against the carrying into effect of an ordinance passed by 
 the city council of Greytown, or San Juan del Norte. 
 
 You also request my friendly offices in assisting you to 
 protect the interests of the company you represent. 
 
 Situated as we are at present, I can but advise you to ap- 
 
308 FOREIGN AFFAIRS. 
 
 peal to the supreme court of the municipality, so that judg- 
 ment might be delayed, and that an opportunity might be 
 given you to explain to the de facto authorities the nature 
 of the title, or by what authority you occupy the position 
 in dispute. I remain, sir, with the highest consideration, 
 yours, very respectfully, HENRY GRANT FOOT, 
 
 British Vice Consul. 
 Thomas Baldavin, Esq., Agent, dec- 
 Vice Admiral Seymour to Commodore Parker. 
 F. 
 Her Britannic Majesty s Ship Cumberland, 
 
 At Bermuda, May 6, 1852. 
 
 Sir : I have the honor to inform you that I have received 
 the directions of her Majesty's government to place myself 
 either personally, or through some judicious officer of the 
 squadron under my orders, in communication with the com- 
 mander-in-chief of the United States naval forces oif Grey- 
 town, and to concert and conclude with him such arrange- 
 ment as shall appear to both, conjointly, best suited to carry 
 out the views of the two governments for the recognition of 
 the de facto governing authorities of the port, until some 
 permanent arrangement shall have been concluded for the 
 general and final settlement of the Mosquito and Central 
 American question now pending between Great Britain, the 
 United States, and certain of the Central American States. 
 
 I beg, in consequence, to acquaint you, that, as circum- 
 stances prevent my proceeding at present to the West In- 
 dies, I have delegated the execution of the above order to 
 Commodore McQuhae, commanding the Jamaica division 
 of the naval forces under my orders, in whose judgment and 
 temper I have the utmost confidence. 
 
 The Commodore has my directions to lose no time in pla- 
 cing himself in communication with yourself, and I liave 
 every confidence that you will, conjointly, cause such regu- 
 lations to be firmly maintained as will answer the objects 
 of our governments, and prevent any interruption to the 
 order and peace of the city and port, pending the settlement 
 of the question in course of negotiation. 
 
 I have the honor to be, sir, with high respect and consid- 
 eration, your most obedient servant, G. F. SEYMOUR, 
 Vice Admiral and Commander-in-chief of her B. Majesty's 
 Naval Forces on the N. American and West India Station. 
 Commodore F. A. Parker, Commander-dn-chief 
 
 of the U. S. naval forces in the W. Indies. 
 
FOREIGN AFFAIRS. 309 
 
 Comiruinder McQuhae to Commodore Parker. 
 Her Britannic Majesty's steam tender Alban, 
 
 At Greytown, June 9, 1852. 
 
 Sir : Having been instructed by Vice Admiral Sir Greo. F. 
 Seymour, K. C. B., commander-in-chief, to repair to this 
 place and to enter into communication with you for the pur- 
 pose of conjointly agreeing upon such arrangement as may 
 seem to us to be requisite in consequeuce of the provisional 
 recognition, by the United States Government, of the au- 
 thorities now de facto existing at Greytown, I conceive that 
 the duty that has been delegated to us may be easily dis- 
 posed of; there appearing to me, after a careful examina- 
 tion of the revised constitution and port regulations, and of 
 the municipal laws established by the city council elected 
 under the same, little upon Avhich a difference of opinion 
 can exist, particularly as we are only called upon to recom- 
 mend such alterations and modifications of these laws and 
 regulations as may appear to us, conjointly, to act partially 
 or unreasonably. 
 
 I greatly regret that I have not had the honor of meeting 
 you here, as I believe the service entrusted to us Avould 
 have been executed with perfect cordiality and speedily 
 brought to a conclusion. 
 
 Referring to the several points of the instructions ad- 
 dressed to you by the United States Secretary of State, Mr. 
 Webster : 
 
 1st. I am of opinion that the municipal laws and regula- 
 tions are reasonable and well adapted to the rapidly chang- 
 ing social condition of the district, and that they have not 
 been improperly enforced. 
 
 2d. There are no tonnage duties imposed. 
 
 3d. The port charges are probably as moderate as the pre- 
 sent circumstances of the settlement will admit of, and are 
 I believe strictly appropriated to the purjioses for which they 
 are indiscriminately levied. 
 
 4th. The assumed boundaries of the settlement I consider 
 absolutely required, to authorize the council of Greytown to 
 extend provisionally their jurisdiction and the power of law, 
 for the protection of life and property along the great tho- 
 roughfare of the San Juan up to the undisputed boundary 
 of the Republic of Nicaragua at the head of the Machuca 
 rapid. 
 
 Should you coincide with me in these opinions, the service 
 entrusted to us becomes limited to the duty of framing and 
 agreeing upon the instructions to be issued conjointly to the 
 
310 FOREIGN AFFAIRS. 
 
 captains and commanders of the vessels of war of our respec- 
 tive nations which may he stationed here, so that in accord- 
 ance with the friendly spirit existing between the United 
 States government and that of her Britannic Majesty those 
 officers may, on all occasions, act in unison and with cordi- 
 ality, in giving such aid and assistance to the authorities 
 de facto as the circumstances and emergencies of the case 
 might urgently demand, for the preservation of the peace 
 and tranquillity of the city and district. 
 
 I have drawn up the directions for the guidance of the se- 
 nior officer of her Majesty's ships stationed here for the pre- 
 sent, under the impression that you may concur with the 
 oinnions as ahove stated, but should you take different views 
 on any points to which our respective instructions have re- 
 ference, I shall be most ready to take into my immediate and 
 respectful consideration any alteration or modification of the 
 same which you may think it your duty to suggest. 
 
 Commander Camj)bell, who is left in charge of this part 
 of the station, will forward to me, or bring to Port Royal, 
 any despatches you may think proper to commit to his care. 
 
 You will perceive that my instructions are formed in a 
 great measure upon the principle of non-interference with the 
 management of the body corporate, in matters purely local, 
 and of granting aid only when there might be real danger 
 to life and property from serious rioting or tumultuous pro- 
 ceedings in the conduct of the numerous passers through 
 Greytown, almost constantly in transit between the Atlantic 
 and Pacific; in short generally to leave the authorities de 
 facto to carry out their laws and regulations, and only to 
 help them Avhen a chance might exist of the force at their 
 disposal being inadequate to the imminence of a temporary 
 danger. 
 
 I again express my great regret at not meeting you here, 
 and I have the honor to be, with the greatest respect, sir, 
 your most obedient humble servant, 
 
 P. McQUHAE, 
 Commander in command of the Jamaica Division 
 
 of the North American and West India Station. 
 
 To Commodore F. A. Parker, 
 
 Commander-in-cliief of the United States 
 
 Naval Forces in the West Indies. 
 
 G. 
 
 This communication to Captain HoUins states that the 
 writer H. W. Wagner, M. D., was violently assaulted on the 
 14th March, at !San Juan, by three individuals belonging to 
 
FOREIGN AFFAIRS. 311 
 
 the militia of tlie town, alleging that he had made false 
 statements with regard to the destruction of property by the 
 authorities at Punta Arenas. He claimed the protection of 
 Captain Hollins, as in consequence of the threats of these 
 assailants he considered his life in danger when he was com- 
 pelled to visit San Juan. 
 
 H. 
 
 United States ship Cyane, 
 Harbor of San Juan de Nicaragua, March 14, 1853. 
 
 Information having been lodged with me that an assault 
 was committed upon the person of a citizen of the United 
 States, by some person or persons in the town of San Juan 
 de Nicaragua, I hereby Avarn all persons, in said town, that 
 in case of any future molestation of any citizen of the United 
 States, or property belonging to the same, I shall take such 
 steps as to bring the offender to punishment. 
 
 And further, that all boats passing to and from Point 
 Arenas and San Juan de Nicaragua, will pass within hail 
 of the ship under my command. 
 
 GEO. N. HOLLINS, 
 Commanding Uiiited States ship Cyane. 
 
 I. 
 
 British Consulate, March 15, 1853. 
 
 My dear Sir: I see no necessity for any alteration in the 
 programme of the notice you have sent for my perusal, 
 further than an allusion which might be made to the resig- 
 nation of the municipal authorities, and the consequent ab- 
 sence of any court whereby an American citizen or any other 
 might obtain redress. 
 
 A notice to this effect might be posted at any public place, 
 at this consulate, and also the commercial agency of the 
 United States, also at the old Station House. 
 
 I have endeavored to induce a few of the inhabitants to act 
 as magistrates for a short time, but Avithout effect. They 
 seem to have organized a party for their own protection, 
 Martin having been elected, what they denominate, a chief 
 I shall look further into this matter, however, and see what 
 can be done. In the meantime your proclamation, I think, 
 will be of infinite service. 
 
 I remain, sir, yours, most repectfuUy, 
 
 HENPtY GPiANT FOOTE. 
 
 Commander Geo. N. Hollins, 
 
 Commanding United States ship Cyane, d'c, d:c., &c. 
 
312 FOREIGN AFFAIRS. 
 
 J. 
 
 To the Citizens of San Jtian de Nicaragua. 
 
 Inasmucli as no competent authority is in existence in the 
 town of San Juan del Nicaragua, to protect the property or 
 persons of American or other citizens, and information hav- 
 ing; been lodged with me that an assault was committed upon 
 the person of an American citizen by some person or persons 
 in said town, I hereby warn all jjersons in said town that, in 
 case of any future molestation of any citizen or property, I 
 shall take such steps as to bring the offender to i^unishment. 
 
 And, further, that all boats to and from Point Arenas and 
 San Juan de Nicaragua, will pass within hail of the ship 
 under my command, GEO. N. HOLLINS, 
 
 Commanding U. 8. S. Cyane. 
 
 U. S. Ship Cyane, March 14, 1853. 
 
 Harbor of San Juan de Nicaragua. 
 
 REPLY OF THE NAVY DEPARTMENT. 
 Mr. Secretary Bobbin to Commander George N HoUins. 
 U. S. Navy Department, 
 
 Washington, April 4, 1853. 
 
 Sir: Your despatches of the 18th ultimo have been re- 
 ceived. As the steamer leaves at so early a day after theii 
 receipt, it is impracticable to communicate to you at length 
 the views of the administration in relation to the complicated 
 questions touching the present affairs in Central America. 
 By the next steamer, which leaves on the 15th instant, you 
 may expect further despatches. 
 
 The IJnited States will be represented in Central America 
 immediately by a Minister Plenipotentiary. In the mean- 
 time you will consider it as the desire of the government that 
 you should remain in the vicinity of San Juan, or Greytown, 
 so long as your presence may be deemed necessary to pro- 
 tect tlie property and persons of American citizens. 
 
 Your prompt and prudent action, thus far, is approved 
 It is of course very important, in order to avoid collision, 
 that your course should be marked with caution; but, at the 
 same time, the impression should be very distinctly made, 
 that the United States are both able and determined to pro- 
 tect the property and rights of American citizens. Of course 
 you will confine yourself to that one duty, carefully avoiding 
 any act committing your Government in any of the con- 
 tested questions of jurisdiction at present disturbing that 
 country. 
 
FOREIGN AFFAIRS. 313 
 
 The department is gratified to learn of the good conduct 
 of those under your command. 
 
 I am, very respectfully, your obedient servant, 
 
 J. C. DOBBIN. 
 Commander George N. Hollins, 
 
 Com'g TJ. S. S. Cyane, San Juan de Nicaragua. 
 
 3fr. Bobbin to Commander Thos. A. Dornin. 
 
 Navy Department, April 13, 1853. 
 
 Sir: Your letters written at San Juan del Sud, 9th of 
 February last, and at Panama, 21st ultimo, were duly re- 
 ceived. 
 
 The department approves your proceedings as indicated 
 therein, and has but to remark that your course should be 
 marked with caution, but at the same time the impression 
 should be very distinctly made that the United States are 
 both able and determined to protect tlie property and rights 
 of American citizens. 
 
 You will continue, wliilst separated from the commander- 
 in-chief of the U. S. squadron in the Pacific, to communicate 
 all matters of importance direct to the department. 
 
 Very respectfully, your obedient servant, 
 
 J. C. DOBBIN. 
 
 Commander Thos. A. Dornin, 
 
 Com'g U. S. /S'Ai/J Portsmouth, San Juan del Sud. 
 
 VISIT OF H. B. M.'S WAR-STEAMER GEYSER AT GREYTOWN. 
 Commander Hollins to the Secretary of the Navy, 
 United States ship Cyane, 
 San Juan de Nicaragua, March 30, 1853. 
 
 Sir: Since my last communication of the 18th instant, her 
 Britannic Majesty's war steamer Geyser arrived here under 
 orders from Commodore McQuhae, who, I understand, has 
 received a despatch from Mr. Martin, the late mayor and 
 governor of this place, informing him that I had landed the 
 marines of this ship, hauled down the Musquito flag, taken 
 charge of the town, and blockaded the harbor. 
 
 Under this false report the commodore has sent the com- 
 mander of the Geyser to inquire into the facts of the case, to 
 whom I have given all the particulars; and as he desired 
 my views in writing, I gave them to him — a copy of which 
 you will find marked (a,) and his reply to same marked (6,) 
 from which it appears plainly that he is acting under in- 
 structions from his commodore, who has assumed to himself 
 40 
 
314 FOREIGN AFFAIRS. 
 
 tlie right to district the limits of this city, as will appear 
 from his letter to Commodore Parker, enclosed in my former 
 communication to the department, and which was never re- 
 ceived hy him. 
 
 On my arrival here, not having any authority hy which I 
 could he guided, I obeyed strictly the orders from the Navy 
 Department to protect the property of the Accessory Transit 
 Company, and also took for my guide the instructions of the 
 late honorable Daniel Webster, which prescribes no special 
 limits to this town, nor recognizes any jurisdiction of its 
 court other than for its own police purposes, but at the same 
 time gives to commanders of both American and English 
 vessels of war full power to correct abuses and settle all diffi- 
 culties. 
 
 I deem it my duty to communicate to the department that 
 the commander of the Geyser was at anchor in this port on 
 the evening previous to which a posse was sent from Grey- 
 town to Point Arenas, for the purpose of tearing down one 
 of the buildings, and was informed by the agent of the Ac- 
 cessory Transit Company of the intended destruction of said 
 property; but, instead of interposing his protection, sailed 
 from the port, leaving the employees and property of the 
 company to the mercy of a reckless and lawless band of men, 
 who acted in a most outrageous manner, not even jjermitting 
 the clerks of the company to save the property in the house, 
 and actually imprisoned and fined one of them for attempt- 
 ing to rescue some valuable articles from destruction. 
 
 If, according to the instructions of the late honorable Dan- 
 iel Webster, referred to in this letter, the commanders of 
 English men-of-war have orders similar to those given to our 
 naval commanders, it would seem from the course adopted 
 by the present commander of the Geyser, that he must be 
 acting under orders from Commodore McQuhae, entirely at 
 variance with those by which I have deemed it my duty to 
 be guided. 
 
 In conclusion, I will call the attention of the department 
 to the fact, that Commodore McQuhae has given very exten- 
 sive boundaries to a place that is only recognized pro tem- 
 pore by the governments of the United States and Great 
 Britain; and includes Point Arenas within the jurisdiction 
 of the city of San Juan de Nicaragua, giving the right to 
 said city to execute any decree of their court, let it be ever so 
 unjust to either persons or property. And I am fully con- 
 vinced from what I have seen and heard, that the whole 
 cause of this hostility towards the company proceeds from 
 their refusing to move their depot and steamers to the city 
 
FOREIGN AFFAIRS. 
 
 315 
 
 of San Juan de Nicaragua, wliicli would be injurious to all 
 tlieir best interests. 
 
 The United States commercial agent, Mr. Stevenson, has 
 not honored me with a visit up to the time I write. 
 
 I am also happy to inform you that the officers and men 
 enjoy good health. 
 
 While I have the honor to be, with the greatest respect 
 sir, your obedient servant, 
 
 GEORGE N. HOLLINS, Commander. 
 
 To the honorable Secretary of the Navy. 
 
 [Enclosed.] 
 a. 
 U. S. Ship Cyane, San Juan de Nicaragua, March 21, 1853. 
 Sir: After the conversation I had with you yesterday, I have thought it would 
 be better to inform you in writing bow I have construed the instructions of the 
 late honorable Daniel Webster, Secretary of State of the United States. 
 
 Viewing those instructions as explicit in reference to all difficulties that might 
 occur at San Juan de Nicaragua, I will now state plainly that all property belonn- 
 ing to either English or American citizens, lying in or out of said city limits, is 
 to be protected from any injury attempted on the same by the inhabitants of that 
 town, ''peaceably if we can, forcibly if we must;" and so long as they conduct 
 themselves properly, it is our duty to assist them in sustaining such municipal 
 laws as they may deem it necessary to make for their better government. Beyond 
 this I will not recognize any right on the part of their court, to exercise jurisdic- 
 tion over the persons and property of the Accessory Transit Company at Point 
 Arenas. 
 
 These are my views, and I shall wait for further instructions from my govern- 
 ment. 
 By giving me yours on the same subject, you will oblige your obedient servant 
 
 GEORGE N. HOLLINS, 
 Commanding U. S. Ship Cyaiie. 
 Captain Wilson, 
 
 Covimanding H. B. 31. Steamer Geyser. 
 
 b. 
 Her Majesty's Ship Geyser, Greytown, March 28, 1853. 
 
 Sir: In reply to your communication of yesterday's date, I beg to state that, 
 as the existing authorities of Greytown have been recognized pro tempore by the 
 governments of Great Britain and the United States, and as I understand Point 
 Arenas to be within the limits of their jurisdiction, any means taken by me to 
 put a stop to their proceedings against the Accessory Transit Company's estab- 
 lishment on that point, would be an unnecessary interference in their affairs, 
 which I have express instructions to avoid. 
 
 I conceive those proceedings to be legal, and the persons and property of the 
 Accessory Transit Company to be as amenable to the laws of the Greytown 
 government as the humblest individual in the community. 
 
 During my late service here iu the month of February, when the j)roceedings 
 against the company were first instituted, I acted in accordance with these views. 
 
 As, however, you consider your instructions to enjoin a different line of conduct, 
 and as you have thought it your duty to arrest the proceedings of the munici- 
 pality, until the arrival of further instructions from Washington, 1 beg to state 
 that, in the meantime, until I receive further instructions from Commodore 
 McQuhae, I will co-operate with you heartily in endeavoring to preserve the peace 
 of the town, and affording protection to life and property. 
 
 I have the honor to be, sir, your obedient servant, 
 
 THOiMAS WILSON, Commander. 
 
 Captain Holliss, Commanding the United States Frigate Cyane. 
 
 34 
 
316 FOREIGN AFFAIRS. 
 
 VIEWS OF THE ADMINISTRATION. 
 Secretary of the Navy in reply to Commander Hollins. 
 U. S. Navy DeparTxMent, 
 
 Washington, April 14, 1853. 
 
 Sir: Your communication from San Juan de Nicaragua, 
 bearing date March 30, 1853, covering a correspondence 
 with the commander of her majesty's war steamer, the Gey- 
 ser, has been received. 
 
 I apprehend you have, ere this, received a communication 
 from this department approving your conduct as reported in 
 your despatches bearing date United States ship Cyane, 
 harbor of San Juan de Nicaragua, March 18, 1853. While, 
 however, your prompt interposition to protect the property 
 of American citizens interested in the Accessory Transit 
 Company meets with the entire approbation of the govern- 
 ment, it is deemed proper to put you in full possession of the 
 grounds on which that approval is based, and the views and 
 policy of the government in relation to certain questions bear- 
 ing on the subject matter more immediately under consider- 
 ation. 
 
 You seem to entertain the opinion that it was the duty of 
 the commander of the British war steamer, the Geyser, to 
 interpose also for the protection of the property of the Ac- 
 cessory Transit Company, and express surprise that he should 
 have sailed from the port on the evening before the destruc- 
 tion of the buildings, although "he was informed by the 
 agent of the intended destruction." Your opinion seems to 
 be based on the supposition that, by the convention between 
 Great Britain and the United States of the 19th of April, 
 1850, it became the duty of those two powers to afford that 
 protection. It is proper to suggest to you, that the conven- 
 tion of the 19th of April, 1850, stipulates that any company 
 formed to promote a communication "by ship canal, which 
 may be constructed between the Atlantic and Pacific oceans, 
 shall receive the protection of Great Britain and the United 
 States." It is true, therefore, that there is nothing in that 
 treaty, expi'essly in so many icords, guaranteeing tlieir joint 
 protection to the "Accessory Transit Company," formed since 
 "the American Atlantic and Pacific Ship Canal Company," 
 whose proposed mode of inter-oceanic communication is not 
 by "ship canal." 
 
 It is further true, however, that in the 8tli article of said 
 treaty, the two governments do "agree to extend their pro- 
 tection by treaty stipulations to any other practicable commu- 
 nications, whether by canal or railway;" but whether, under 
 
FOREIGN AFFAIRS. 317 
 
 the spirit and true meaning of that convention, it is the duty 
 of the two governments to protect the "Accessory Transit 
 Company" as a company, is a question in regard to which 
 you need not embarrass yourself, as the propriety of your 
 action is justified on principles entirely distinct. If any of 
 the subjects of her Britannic Majesty were interested as 
 stockholders in said company, and the commander of the 
 British war steamer declined interposition to save their pro- 
 perty from destruction, it is a position in regard to which 
 the United States have no desire, perhaps to disposition, to 
 complain. 
 
 Your conduct in affording protection, and saving from de- 
 struction the property of that company, is commended not 
 because of any supposed stipulation for that purpose, by con- 
 vention between Great Britain and the United States, hut 
 because American citizens are largely and chiefly interested in 
 said company, the charter of wliich was granted and guar- 
 anteed by the State of Nicaragua, within the limits of which 
 State the town of San Juan is situated, and which charter 
 was granted even long before any attempt was made to con- 
 vert Greytown into what is now alleged to be an independ- 
 ent city. The authorities of Greytown have no right to 
 interfere with rights and privileges thus granted by the 
 State of Nicaragua. When, they, thereibre, attempted to 
 destroy the property of the company, your interference is 
 justified and approved, solely, because it is regarded as an 
 unauthorized attempt to disturb the rights of American citi- 
 zens, and the United States desire that the American citizen 
 ''shall realize that, upon every sea and on every soil where 
 our enterprize may rightfully seek the protection of our flag, 
 American citizenship is an inviolable panoply for the secu- 
 rity of American rights." 
 
 These suggestions are probably sufficient to inform you 
 of the proper grounds on which the approval of your con- 
 duct is based, and on which it is desired you should place 
 your justification. But as it is not possible to foresee what 
 state of events may arise near that country, it is perhaps 
 proper to give you somewhat more fully the views of the 
 government touching some of the more prominent questions 
 Avhich may possibly engage your attention. 
 
 San Juan de Nicaragua, or Greytown, is regarded by the 
 United States as within the limits of the State of Nicaragua. 
 It has never been recognized by the United States as an in- 
 dependent government; no consul has been sent there, but 
 on the contrary merely a commercial agent recognized, in 
 whose commission San Juan de Nicaragua is expressly 
 
318 FOREIGN AFFAIRS. 
 
 stated to be within tlie limits of the State of Nicaragua. It 
 is understood that this town claims its independence under 
 a charter from a personage at the head of a tribe of Indians, 
 called the Mosquito King. The United States have never 
 recognized the government of the Mosquito King; and does 
 not recognize the validity of his charter to the few settlers 
 in Greytown; but, at the same time, you are expressly in- 
 structed to respect the police regulations of any temporary 
 organization there, and not to molest them in the slightest 
 degree, except under the contingencies previously mentioned. 
 
 It is not understood by the United States that Great Bri- 
 tain has any greater interests or rights in that or any other 
 portion of Central America than the United States, but on 
 the contrary it is understood that by the convention of the 
 19tb of April she retired from the Mosquito Protectorate, 
 and agreed "not to assume or exercise any dominion over 
 Nicaragua, Costa Rica, the Mosquito coast, or any part of 
 Central America." It is, therefore, to be assumed that the 
 interest manifested by Commander Thomas Wilson, of Her 
 Majesty's ship Geyser, in his communication to you of the 
 28th of March last, was not with a view to interfere with 
 your interposition in behalf of American citizens, nor to ex- 
 ercise any peculiar guardianship over the authorities of 
 Greytown, but merely with a view to the single point of 
 inquiry as to the duty of both Great Britain and the United 
 States, under the convention of April, 1850, to protect the 
 Accessory Transit Company. Until the contrary appears 
 you will, therefore, in any further communications with 
 Commander Wilson, assume that to be the position of her 
 Majesty's government. 
 
 A portion of the property attempted to be destroyed is 
 on Point Arenas. Now Point Arenas is either a part of 
 Costa Rica, or Nicaragua. If it be within the limits of 
 Costa Rica, it is manifest that the authorities of Greytown, 
 in the State of Nicaragua, have no right to molest persons 
 or property there. If it be within the limits of Nicaragua, 
 then the authorities of Greytown have no right to inter- 
 fere, because of the privilege granted by the State govern- 
 ment of Nicaragua prior even to any attempted separate or- 
 ganization at that town. It is not apprehended, however, 
 that any further difficulty will occur with the authorities 
 of Greytown, nor is it supposed that her Majesty's govern- 
 ment will improperly interfere. 
 
 So soon as there is no apparent necessity for your remain- 
 ing at San Juan, the health of your crew would, perhaps, be 
 promoted by cruising from that station to Pensacola. 
 
FOREIGN AFFAIRS. 319 
 
 Commodore Newton will be instructed as to the future 
 movements of the home squadron. 
 
 I am, respectfully, your obedient servant, 
 
 J. C. DOBBIN. 
 Commodore George N. Hollins, 
 
 Commanding U. S. Ship Cyane, San Jiian de Nicaragua. 
 
 3Ir. Dobbin to Commodore Newton. 
 
 [Enclosing the foregoing despatch.] 
 
 Navy Department, 
 
 April 15, 1853. 
 
 Sir: For your information and guide you will receive, 
 herewith enclosed, copy of a letter addressed to Commander 
 George N. Hollins, of the U. S. ship Cyane, at San Juan de 
 Nicaragua, touching his duties and the state of events at 
 that port. 
 
 The department has deemed it proper in approving the 
 conduct of Commander Hollins, as indicated in his despatches 
 from San Juan de Nicaragua, to state to him the views and 
 policy of the Government in relation to certain questions 
 bearing on the subject matter, and the grounds on wliich 
 that approval is based. Further instructions to the Com- 
 mander-in-chief of the home squadron are not considered 
 necessary at this time, but your attention is again invited 
 to the orders of the department requiring occasional visits, 
 by the vessels of the home squadron to the port of San Juan 
 de Nicaragua, for the j)urpose of affording full protection to 
 the rights and interests of all our citizens engaged in law- 
 ful trade between the Atlantic and Pacific coasts of the 
 United States. 
 
 Very respectfully, your obedient servant, 
 
 J. C. DOBBIN. 
 
 Commodore J. S. Newton, 
 
 Commanding U. S. Home Squadron, 
 
 U. S. Frigate Columbia, Pensacola, Florida. 
 
 U. S. Ship Cyane, 
 San Juande Nicaragua, April \Q, 1853. 
 
 Sir : I have the honor to acknowledge the receipt of your 
 despatch of the 4th instant. 
 
 Enclosed, I send you a communication from our commer- 
 cial agent, marked A,* and my reply marked B. 
 
 * A enclosed the documents C and D, which Commander Hollins in B declined 
 to receive from Mr. Henry L. Stevenson, the United States Commercial Agent. 
 
320 FOREIGN AFFAIRS. 
 
 His never having called upon, or written to, me during 
 all these difficulties, under the pretence of sickness, and as 
 I am well informed did not use any means to stop the de- 
 predations upon the Accessory Transit Company, further- 
 more, having been one of those who, on a previous occasion, 
 signed a petition from an English man-of-war to fire into 
 the Prometheus, and his conduct altogether being so noto- 
 rious, I decline having any thing to do with him in his 
 official capacity. 
 
 The document marked C is a correct copy of the rosolu- 
 tions passed by the people of Greytown, or San Juan del 
 Norte, on the evening of the 31st ultimo; the one marked 
 D is the Mayor's letter, enclosing the resolutions and my 
 answer to the same, marked E. 
 
 At present all is quiet, but I have heard they threaten 
 the destruction of the property as soon as I leave the har- 
 bor. Under such a threat, I do not deem it advisable to 
 leave the harbor before being relieved, or some positive ar- 
 rangement can be made with the authorities, by which the 
 property of the company will be respected. 
 
 The English commanders in this region have received or- 
 ders from their minister at Washington, not to permit the 
 property of the company to be molested, but at the same 
 time their orders from the commodore of the station are for 
 them not to remain in port over forty-eight hours, on ac- 
 count of preserving the health of their crew. 
 
 There are men in San Juan so determined on the removal 
 or destruction of the company's property, for their own per- 
 sonal interests, that little or no faith can be put in any 
 promises they may make, so long as there is not some force 
 to keep them in check. 
 
 It is with great regret I have to inform you that several 
 of the crew have been sick, but under the kind and constant 
 attention of the surgeon, Dr. Spotswood, who has thus far 
 kept the disease under his control, it has not proved fatal; 
 but persons suifering from sickness in this climate require a 
 long time to recover their usual strength. 
 
 I am, sir, verv respectfully, your obedient servant, 
 
 GEOEaE N. HOLLINS, 
 Commanding United States Ship Cyane. 
 Hon. J. C. Dobbin, Sec'ry of Navy, Washington, D. C. 
 
 C. 
 
 Greytown, or San Juan dki, Norte. 
 Dear sir: The following^ are true copies of the resolutions passed by the peo- 
 ple of Greytown, or San Juan del Norte, on the evening of the 31st March inst. 
 Respectfully, yours, &c., T. J. MARTIN, Mayor elect. 
 
 To Geo. N. Hollins, Esq., Commatider United States ship Cyane. 
 
FOREIGN AFFAIRS. 321 
 
 [Copy.] 
 
 " Whereas, we, the citizens of San Jiiaa del Norte, in convention assembled, 
 consider our present unsettled condition and want of government as injurious to 
 our interest, daily subjecting us to great inconvenience and to future evils, and 
 in view of the necessity which may shortly arise for a government of this city, do 
 
 " Resolve, That the citizens of San Juan del Norte, or Greytown, do hereliy 
 authorize and ratify the organization of a provisional government ; and that the 
 former members of the government, who resigned, be hereby appointed by the 
 people to resume their functions, and that the said provisional government be 
 governed by the constitution. 
 
 " Resolved, That the vacancies oct-asioned by the resignation of Mr. J. V. 
 Perrez, and the departure of S. S. Wood from this territory, be filled by Messrs. 
 F. Mancho and A. Sigaud. 
 
 '• The preamble and resolutions were accordingly put to vote and carried by 
 universal acclamation. 
 
 "Resolved, That the provisional authorities commence their government to- 
 morrow morning. 
 
 " .Messrs. Sigaud and Mancho signified their willingness to act. 
 
 "On motion, the meeting adjourned. 
 
 " W. H. DE FORREST, Chairman. 
 "F. S.SALTER, Secretary. 
 " GEO. M. USHER, Interpreter. 
 
 '' San Juan dki, Norte, or Greytown." 
 
 D. 
 
 Greytown, or San Juan del Norte, April 1, 1853. 
 Sir: Having received notice from H. L. Stevenson, Esq., United States commer- 
 cial agent, that you are ready to receive communications direct, I have the honor 
 to enclose yon a copy of resolutions passed by the citizens of Greytown, or Sun 
 Juan del Norte, last evening, March 31, 1853, also a list of officers of the provis- 
 ional government, and I am desirous of knowing if the same meets your appro- 
 val. I have already communicated the above to her Brittannic Majesty's consul 
 and the commander of her Brittannic Majesty's ship Geyser. 
 
 I have the honor to be, your obedient servant, 
 
 T. J. MARTIN, Mai/or elect. 
 To George N. Hollins, Escj., Commander of United Sales ship Cyane. 
 
 list of officers elect : 
 Mayor. — T. J. Martin. 
 
 Cilij Council. — W. Geering, B. Mooney, W. P. Kirkland, A. Sigaud, and F. 
 Mancho. 
 
 Judges of Supreme Court. — I*". Codv, J. Reddy, and P. Castillan. 
 Health Officer.— Vl. A. Richards. 
 
 E. 
 
 U. S. Ship Cyane, Off Point Arenas, Ajml 1, 1853. 
 
 Sir : I have the honor to acknowledge the receipt of your letter of this date, 
 enclosing the resolutions passed bv the citizens of San Juan on the evening of 
 the 31st of March, 1853. 
 
 I will acknowledge your authority and the officers named in your letter, as 
 ele;ted by the citizens of San Juan, so far as my instructions will allow, and no 
 further. 
 
 That there may be no misunderstanding between us, I send you the words of 
 the late Daniel Webster, by which I am guided . " Meanwhile a temporary re- 
 cognition of the existing authorities of the i)lace. sufficient to countenance any 
 well intended endeavors on its part to preserve the public peace and punish wrong 
 doers, would not be inconsistent with tlie policy and honor of the United States." 
 
 I am pleased to hear you have again formed a government. The persons select- 
 ed to fill the various offices are their own choice, of course I make no objection 
 to them. I am, sir, very respectfully, &c., 
 
 GEORGE N. hollins, Commanding U. S. ship Cyane. 
 
 T. J. Martin, Esq., Mayor elect of San Juan del Norte. 
 
 41 
 
THE CENTRAL AMERICAN QUESTION. 
 
 THE OCCURRENCES AT SAN JUAN, AND THE TREATY OF 1850. 
 
 [The following correspondeuce, which treats of the preceding transactions at 
 San Juan de Nicaragua, was communicated to the Senate in compliance with a 
 resolution of that body calling for any communication or correspondence with 
 the British government growing out of the treaty of Washington of July 4, 1850, 
 since the message of the President of the United States of January 4, 1853; and 
 also copies of all instructions to our minister in England and all correspondence 
 in relation thereto, that could be transmitted compatibly with the public interest. 
 The negotiations on the subject to which they relate are still pending. President's 
 Message, page lo. 33d Cong. 1st Suss., Senate Doc. Ex. No. 8.] 
 
 THE TREATY OF 1850. 
 
 Mr. Crampton to 3Ir. Marcy. 
 
 [Private and confidential.] 
 
 British Legation^ Washington, May 19, 1853. 
 
 My Dear Sir: With reference to our conversation, yester- 
 day, I enclose, for communication to the President, a copy of 
 the dispatch from Lord Chxrendon, which I had tlie honor 
 to read to you, in regard to the Central American question. 
 
 I also send you a copy of the opinion of the queen's advo- 
 cate, in relation to the construction of the 1st article of the 
 treaty of April, 1850, of which I sj^oke to you. 
 
 I would desire that the communication of these papers 
 should be regarded, for the present, as confidential. 
 
 In compliance with your wish, I send you all the documents 
 of which I am in possession in regard to the proposed canal, 
 from ocean to ocean, by the Isthmus of Darien; these are, 
 the engineer's report, his journal, a map of Central America, 
 with notes and a prospectus of the company. 
 
 Believe me, my dear sir, with much respect, yours very 
 faithfully, JOHN F. CRAMPTON. 
 
 Hon. W. L. Marcy, &c., &c. 
 
 OPINION OP THE QUEEN'S ADVOCATE. 
 Mr. Harding to the Earl of Clarendon. 
 
 Doctors' Commons, April 15, 1853. 
 My Lord: I am honored with your Lordship's commands, 
 signified in Mr. Addington's letter of the 7th instant, stating 
 that ho was directed to transmit to me a dispatch from Mr. 
 Crampton, her Majesty's minister at Washington, enclosing 
 a report of a speech made in the Senate of the United States 
 by Mr. Clayton, by whom, when Secretary of State for the 
 
 322 
 
FOREIGN AFFAIRS. 32,"] 
 
 United States, the treaty for the construction of an inter- 
 oceanic ship canal between the Atlantic and Pacific oceans, 
 across the Isthmus of Nicaragua, was signed with Sir Henry 
 Bulwer, at that time her Majesty's minister at Washington, 
 and with reference to the construction put by Mr. Clayton 
 uj)on the 1st article of that treaty, namely, that Great 
 Britain is thereby prohibited from protecting by force of 
 arms any state in Central America, notwithstanding any 
 alliance between her Majesty and either of those States. Mr. 
 Addington is pleased to request that I would report to your 
 lordship my opinion upon the interpretation given by Mr. 
 Clayton to the provisions of that article. 
 
 In obedience to your lordship's commands, I have taken 
 the matter into consideration, and have the honor to report, 
 that I am of opinion that the interpretation given by Mr. 
 Clayton to the provisions of the 1st article of the enclosed 
 treaty (convention signed at Washington, April 19, 1850) is 
 in some respects incorrect. 
 
 His statement that Grreat Britain cannot place "an armed 
 soldier on the territory without violating the treaty," is, in 
 my opinion, incorrect; and I can see nothing in the treaty 
 which affords any foundation or color for such a statement. 
 The first article expressly recognizes the fact, that Great 
 Britain has and may have alliances with, and afibrds and 
 may afford, protection to States and people in Central Amer- 
 ica, and only stipulates that neither shall be made use of for 
 the particular purposes therein forbidden, and the maxim of 
 construction "Exprcssio luiius est exclusio alterias" ap})lies 
 to this article. 
 
 Great Britain, therefore, may, in ra}^ opinion, i^rotect any 
 State or people (including Indian tribes) in Central America, 
 even by force of arms, if needful, without violating the 
 treaty, provided only that she, in atibrding such protection, 
 wholly abstains from occupying, fortifying, colonizing, or 
 assuming, or exercising any dominion beyond her own terri- 
 tory in Central America. Neither does there appear to me 
 to be anything in the treaty which would necessarily prevent 
 Great Britain from sending a fleet or army, if necessary, into 
 any part of Central America, or from conducting any naval 
 or military operations, either aggressive or defensive, and 
 either alone or in alliance with any other nations or States, 
 in any part of Central America. She may certainly do so if 
 she abstains from "occupying" or "fortifying, or assuming 
 or exercising dominion" therein beyond her own territory. 
 
 There is not in the treaty any stipulation (for instance) 
 that Great Britain shall abstain from preventing, by forc<i 
 
324 FOREIGN AFFAIRS. 
 
 of arms, other nations from occupying, or fortifying, or as- 
 suming dominion over any portion of Central America; or 
 that she shall not destroy such fortifications, or subvert such 
 dominion if once established therein. 
 
 I understand Mr. Clayton, also, to assert that, by the treaty, 
 Creat Britain '^las abandoned all dominion in the whole of 
 Central America," which assertion is, in my opinion, incor- 
 rect, and at variance with the fact, at least as regards Belize 
 and its dependencies, if, indeed, this exception was not 
 intended by him. 
 
 I have, &c., 
 
 J. D. HARDING. 
 
 The Earl of Clarendon, &c. 
 
 FIRST ARTICLE OF THE TREATY. 
 
 31)'. Crampton to Mr. Marcy. 
 
 Washington, December 15, 1853. 
 
 Sir: With reference to our conversation of yesterday, in 
 regard to the construction of the first article of the treaty 
 signed at Washington, on the 19th of April, 1850, I beg to 
 state, in reply to tlie inquiry you then made of me, that 1 
 feel no objection to ])lacing at your disposal the copy of the 
 opinion of the queens advocate on this subject, drawn up by 
 liim for the information of her Majesty's government, and 
 which, at your request, I communicated to you, unofficially, 
 in the course of a conversation which I had the honor of 
 holding with you, on the same subject, in the month of May 
 last. 
 
 I would remark, that I was not instructed by her Majes- 
 ty's government to make any official representation to the 
 government of the United States, with respect to the inter- 
 pretation given to the first article of the treaty by Mr. Clay- 
 ton in the Senate of the United States ; the correctness of 
 which, in some respects, is combatted by the queen's advo- 
 cate. As the queen's advocate's opinion, however, consti- 
 tutes a clear statement of the construction of the article in 
 question, held by her Majesty's government to be sound in- 
 ternational law, I can perceive no good reason for withhold- 
 ing it from tlie official knowledge of the government of the 
 United States. 
 
 I avail myself of this occasion to renew to you, sir, tlie as- 
 surance of my highest consideration. 
 
 JOHN F. CRAMPTON. 
 
 Hon. William L. Marcy, &c. 
 
FOREIGN AFFAIRS. 325 
 
 THE OCCURRENCES AT GREYTOWN— THE TITLE OF MOSQUITO. 
 Lord Clarendon to Mr. Crampton. 
 
 Foreign Office, April 29, 1853. 
 
 Sir: — I have received and laid before the (Hieeii your dis- 
 patch No. — , in which you describe the occurrences which 
 had taken phxce at Greytown, in the month of February, and 
 in which the commander of the United States ship of v»'ar 
 " Cyane" had taken a conspicuous part. Those occurrences, 
 like all recent proceedings connected with Greytown, and 
 the settlement of the Central American question, are of a 
 complicated and not very intelligible nature: but it is unne- 
 cessary that I should, at the present moment, enter into a 
 consideration of their details. It will be sufficient to say 
 that her Majesty's government deeply regret what has hap- 
 pened at Greytown, as tending to complicate still further a 
 question already sufficiently embarrassing and difficult of 
 solution. 
 
 However questionable in law the retention of the posses- 
 sion of Punta Arenas by the Accessory Transit Company 
 may have been, it is to be regretted that the town council of 
 Greytown should have proceeded to acts of forcible ejection 
 against that company, and, on the other hand, however jus- 
 tifiable may have been the interposition of the commander 
 of the "^ Cyane" to prevent acts of violence against the com- 
 pan}', her Majesty's government cannot but consider that 
 that officer should, in the first instance, at least, have con- 
 fined that interposition to a warning to the town council of 
 Greytown to desist from those forcible proceedings, under 
 pain of compelling him, if they were persisted in, to inter- 
 lere by force of arms in ])rotection of the company, until the 
 question of lawiul or unlawful occupancy should have been 
 fairly decided. Her Majesty's government have no doubt 
 that Capt Hollins acted with perfect honesty of intention, 
 and to the best of his judgment, in a situation of much dif- 
 ficulty; but they consider that in landing an armed force 
 and taking actual possession of territory, if not demonstrably 
 belonging to, at least claimed, with every appearance of right, 
 by the de facto council of Greytown, many meml)crs of 
 which were United States citizens, he acted in a manner not 
 warranted by his instructions. Certain, at all events, it is, 
 that if the commander of an English ship-of-war had acted 
 in similar circumstances like the United States commander, 
 but one voice of condemnation of such a proceeding would 
 have resounded from one end of the United States to the 
 other. 
 
326 FOREWN AFFAIRS. 
 
 I have but little doubt that before this dispatch can reach 
 you, you will have expressed an opinion in this sense to the 
 United States s^overnraont. If you should not, however, 
 have done so, I have to desire that you will, forthwith, in 
 temperate terms, make known the feelin,2;s and views of her 
 Majesty's <]i:overnment to tlie United States Secretary of 
 State ; but in so doing you will be careful to say, that under 
 the peculiar circumstances in which Capt. Hollins was 
 placed, her Majesty's government are not disposed to con- 
 demn his conduct. They merely wish to express their regret 
 that he should have thought it necessary to put his measures 
 of coercion against the constituted authorities of Greytown 
 to the extent to which he carried them. And they further 
 wish that stringent instructions should be issued to the 
 United States naval commanders on that station, to abstain 
 carefnlly and constantly from all acts of force which may 
 tend to weaken the autliority of the de facto government of 
 (ireytown, Avhich has been temporarily established by the 
 mutual consent, and under the protection, of the govern- 
 ments of Great Britain and the United States. 
 
 But her Majesty's government more especially desires to 
 impress, in the most earnest manner, on the government of 
 the United States, the paramount importance of finally set- 
 tling the hazardous question of the future position of Grey- 
 town and the Mosquito kingdom and Conti'al America gen- 
 wally, a question fraught Avith embarrassment and even 
 danger, which cannot fail to increase daily so long as the 
 points at issue remain in abeyance. 
 
 We have already made the fairest proposals to the United 
 States government for the settlement of this important mat- 
 ter, and we are prepared to carry out those proposals in jier- 
 fect sincerity of purpose, Avhenever the United States gov- 
 ernment may tliink j)roper to enter upon the question with 
 U.S. We the more especially desire that these negotiations 
 should not be delayed, because we have of late but too 
 clearly seen how completely the rights of the question at 
 issue, and the intentions of Great Britain, may be misunder- 
 stood and misrepresented in the United States, until the 
 matter be finally disposed of by a convention or formal 
 agreement between Great Britain and the United States in 
 concert, if practicable, witli the Central American States 
 more nearly concerned in the question, but, if not practi- 
 cable, without such concert. Great. Britain must necessarily 
 retain the position which she has always held with regard 
 to Mosquito, and which the convention of 1850 was calcu- 
 lated and intended, when practically carried out, to modify, 
 
FOREIGN AFFAIRS. 327 
 
 but wliicli, as its provisions have not Leen carried out, it lias 
 not as yet altered. Great Britain must also continue under 
 the same conditions to assert the title of Mosquito to those 
 boundaries which have always been claimed by that terri- 
 tor}^, and in so asserting those boundaries Great Britain 
 must still repel any ao;o;re6sion within those limits which 
 may be committed by Nicaragua, Honduras, or any other 
 Central American power. 
 
 But, so iar from being desirous of assuming voluntarily 
 this attitude of protector, her Majesty's government anx- 
 iously wish to be relieved from so irksome and embarrass- 
 ing a position by an honorable act of settlement which shall 
 dispose of the question forever. 
 
 You will read this dispatch to the United States Secretary 
 of State, or to the President, if desired, and you will urge 
 the President and the Secretary of State to lose no time in 
 meeting our views for finally disposing of a question, which 
 if suffered to remain open, cannot fail to be productive of se- 
 rious danger to both countries. I am, &c., 
 
 CLAEENDON. 
 
 THE TREATY OF 1850— THE MOSQUITO TERRITORY. 
 Lord Clarendon to Mr. Crampton. 
 
 Foreign Office, May 21, 1853. 
 
 Sir: As great misconception appears to prevail, not only 
 among the people of the United States, but also among per- 
 sons placed in high and responsible situations in the govern- 
 ment of that country, with regard to the true nature of the 
 engagements into wiiich Great Britain entered, by the con- 
 vention of Washington, of April 19th, 1850, with respect to 
 her ])resent and future relations with Mosquito, and the 
 other nations of Central America, and as that misconception, 
 if not immediately corrected, might lead to serious misun- 
 derstanding between Great Britain and the United States, I 
 think it highly desirable that that question should, without 
 delay, be put upon its right footing, by a clear and distinct 
 exi)lanation of the view which her Majesty's government 
 takes of it, and of the conduct which they intend to ])ursue 
 with regard to it. 
 
 The article (1) in the treaty which treats of this matter, 
 I'UiKS thus: 
 
 "The governments of Great Britain and the United States 
 hereby declare that neither the one nor the other will ever 
 obtain, or maintain for itself anv exclusive control over the 
 
328 FOREIGN AFFAIRS. 
 
 said ship canal;" agreeing that neither will erect or maintain 
 "any fortifications commanding tlie same or in the vicinity 
 thereof, or occupy, or fortify, or colonize, or assume, or exer- 
 cise any dominion over Xicaragiia, Costa Rica, or the Mos- 
 quito Coast, or any part of Central America; nor will either 
 make use of any protection which either affords or may af- 
 ford, nor any alliance which either has or may have, to or 
 with any State or people, for the purpose of erecting or main- 
 taining any sncli fortifications, or of occupying or fortifying, 
 or colonizing Nicaragua, Costa Rica, or the Mosquito Coast, 
 or any part of Central America, or of assuming or exercising 
 dominion over the same." 
 
 To every stipulation contained in this article, her Majes- 
 ty's government will faithfully adhere. They will neither 
 seek to obtain any exclusive control over the ship canal if 
 ever formed, nor will they erect any fortification command- 
 ing, or in the vicinity of that canal; nor will occupy, or for- 
 tify, or colonize, or assume, or exercise any dominion over 
 any part of Central America; nor will they make use of any 
 ])rotection Avhich they afford or may afford, or any alliance 
 which they have or may have, to, or v,'ith any State or peo- 
 ple, for the purpose of occupying, fortifying, or colonizing 
 any part of Central America, or of assuming or exercising 
 dominion over the same. 
 
 All these engagements Great Britain will religiously keep, 
 as she does not doubt that they will be religiously kept by 
 the United States. But Great Britain has nowhere in the 
 treaty of April, 1850, renounced, nor ever had any intention 
 to renounce, the full and absolute right which slie possesses 
 over her own lawful territories in Central America, such as 
 that designation was distinctly understood and declared by 
 the negotiators of the treaty; nor has Great Britain renounced 
 by the treaty the protection which she has for centuries past 
 afforded, and still affords, to the Mosquito territory. With 
 a view to relieve the question of the Mosquito territory of 
 Avhatever there may be of indefinite about it, and to place it 
 upon a clear and stable footing, which will be equally advan- 
 tageous to Mosquito itself, and to all the powers which are 
 in any way connected with or concerned in it, her Majesty's 
 government have already, on many occasions within the last 
 twelvemonths, made overtures of the fairest and most liberal 
 and i)ractical character to the United States government, in- 
 viting that government to go hand in hand with the govern- 
 ment of Great Britain, in devising and establishing a scheme 
 of adjustment by which the affairs of Central America, Mos- 
 quito included, shall be satisfactorily and permanently set- 
 
FOREIGN AFFAIRS. 329 
 
 tied, and the honor of G-reat Britain, as ancient protector of 
 Mosquito, shall be preserved intact. 
 
 Her Majesty's government are still ready and desirous, at 
 any moment, to enter into friendly communication with the 
 United States Government on this important matter; and 
 they are of opinion that the sooner such negotiation is opened 
 and terminated the better it will he for all parties concerned, 
 and the greater will he the security for the maintenance of 
 the friendly relations which now so happily subsist between 
 Great Britain and the United States. 
 
 But until such settlement be finally concluded it is obvious 
 that Great Britain cannot abandon her present position with 
 regard to Mosquito, nor can she permit either Nicaragua or 
 Honduras to assert, and still less to attempt to establish by 
 force of arms, over any part of j\[osquito, a right of posses- 
 sion which Great Britain has always denied, and still denies. 
 And if either Nicaragua or Honduras were still to continue 
 to make aggressions on the Mosquito territory with that ob- 
 ject, it must be at their own peril. 
 
 Such are the views which her Majesty's government enter- 
 tain Avith respect to Central America, as affected by the treaty 
 of Washington of the 19th of April, 1850, and such is the 
 course of conduct Avhich her Majesty's government propose 
 to pursue with respect to that country, and to the various 
 questions which have arisen, or may arise, under the treaty. 
 I will, however, add that her Majesty's government have no 
 intention of disturbing, or departing in any way from, the ar- 
 rangement entered into between the two governments for the 
 maintenance of the de facto government and position of Grey- 
 town. 
 
 You will read this dispatch to the United States Secretary 
 of State, and you will, at the same time, repeat to him the 
 earnest desire which is felt by her Majesty's government to 
 proceed throughout the whole of this matter cordially and 
 in the most unreserved manner with the government of the 
 United States. 
 
 I am, with great truth and regard, sir, your most obedient, 
 humble servant, ' CLARENDON. 
 
 THE TRANSACTIONS AT SAN JUAN— TITLE OF THE MOSQUITO 
 
 INDIANS. 
 
 Mr. Marcy to 3Ir. Ingcrsoll. 
 Department of State, Washington, June 9, 1853. 
 Sir: Some days since, Mr. Crampton, her Britannic Ma- 
 jesty's minister, read to me a dispatch of the 29th of April 
 42 
 
330 FOREIGN AFFAIRS. 
 
 last, addressed to him by Lord Clarendon, her Majesty's 
 })riucipal secretary of state for foreign affairs, relative to 
 the occurrences in March last, at San Jnan, (called Grey- 
 town in tliat dispatch.) Having afterwards been furnished 
 by Mr. Cranipton with a copy of the dispatch, the President 
 has been made acquainted with the views which it presents. 
 He does not discover in those occurrences, and, if fully 
 known to her Majesty's government, he j^resumes it would 
 not discover, anything that could give rise to the apprehen- 
 sion of Lord Clarendon, that they tend " to complicate still 
 further a question already sufficiently embarrassing and dif- 
 ficult of solution:" the Central American question. As the 
 President has not seen anything to disapprove in the pro- 
 ceedings of Captain Hollins, on the occasion referred to, he 
 has instructed me to communicate his views to you on that 
 subject, in order that they may be ])resented to her Majesty's 
 government ; and he is quite confident that the transaction 
 at San Juan, when all tlie facts in relation to it are known, 
 will appear in a light very different from that in which it 
 has been viewed by Lord Clarendon. There is probably 
 some difference of opinion between the two governments as 
 to the right of the Accessory Transit Company to retain 
 ])ossession of Punta Arenas against the people of San Juan. 
 The dwellers at that place were not, when these occurrences 
 lux})pened, and, as tlie President believes, never were, in ac' 
 tual possession of Punta Arenas; nor, as the case is under- 
 stood here, have they any title to it, or any right to disturb 
 that company in the occupancy thereof. 
 
 If this point of land is within the territorial limits of Ni- 
 caragua, as that republic claims it to be, the right of the 
 Accessory Transit Company can hardly be drawn in ques- 
 tion. It is derived from an express grant in their charter 
 from the government of Nicaragua, li, on the other hand, 
 it is within the territorial limits of Costa Rica, as that State 
 asserts, the company can retain their possession, as against 
 the people at San Juan, who do not pretend to hold the 
 town of San Juan, or any otlier property, by grant or per- 
 mission from the government of Costa llica. 
 
 The LTnited States cannot recognise as valid any title set 
 up by the people at San Juan, derived from the Mosquito 
 Indians. It concedes to this tribe of Indians only a posses- 
 sory right — a right to occupy and use for themselves the 
 country in their possession, but not the right of sovereignty 
 or eminent domain over it. 
 
 It is not now made known, for the first time, to her Ma- 
 jesty's government, that the United States denies that these 
 
FOREIGN AFFAIRS. 331 
 
 Indians liare any sovereignty over the country they occupy. 
 Our f;'OA"crnnient does not make — nor does it ])erceive any 
 g'ood reason for making — any distinction between this tribe 
 of savages and those which occupied parts of our territories, 
 or the territories of the British provinces in North America. 
 I am aware that her Majesty's government regard the Mos- 
 quito Indians as an exceptional case to the rule generally 
 acted on by itself, as well as other nations ; but in this claim 
 the United >States has never acquiesced. It is not i)roposed, 
 on tliis occasion, to discuss this question; for, however de- 
 cided, it cannot change the aspect of the transaction alluded 
 to. It is not ])robable that any attempt will be made to 
 claim for the people at San Juan any authority over Punta 
 Arenas — derived from the Mosquito Indians, even if it Avero 
 possible to invest them "with sovereign authority over the 
 country tliey have occupied. Punta Arenas, it will be re- 
 collected, is on the southern bank of the river San Juan. 
 At the tiiue when the Accessory Transit Company took pos- 
 session of it, there was scarcely the foreshadowing of a pre- 
 tension to a claim for these Indians to any territory what- 
 ever on the south side of that river. 
 
 With such a title, and actual possession under it, by the 
 Accessory Transit Company, the extraordinary proceedings 
 of tlie people at San Juan to destroy the company's property 
 at Punta Arenas seems to me to deserve no countenance 
 from any quarter ; nor does the assistance rendered to the 
 com]iany, being composed of citizens of the United States, 
 by the commanding officer of one of our national vessels, 
 merit rebuke or require justification. 
 
 I am quite sure her Majesty's Secretary of State would not 
 have commented as he has upon the transaction, if all the 
 facts had been known to him. The main, if not the only 
 ground of objection presented by her Majesty's government 
 to the conduct of the commander of the Cyane, is not. as I 
 understand tlie dispatch of Lord Clarendon, that Capt. Hollins 
 interposed to prevent acts of violence from being per])otrated 
 against the company, "but that he did not, in the lirst in- 
 stance, at least," confine "that inter})osition to a umrnhuj 
 to the town council of Greytown to desist from those forcible 
 proceedings, under pain of compelling him, if they were 
 persisted in, to interfej-e by force of arms, in protection of 
 the company, until the question of lawful or unlawful occu- 
 pancy should have been fairly decided." 
 
 Lord Clarendon assumes that no such warning was given; 
 and the omission to give it appears to be the only ground 
 for his animadversions on the conduct of the commander of 
 
332 FOREIGN AFFAIRS. 
 
 the Cyanc. This ground is entirely swept away by the facts 
 of the case. The icanving to the full extent suggested urns 
 given to the town council of 8an Juan, over and over again. 
 The day before that fixed on for the demolition of the build 
 ings on Punta Arenas by the people at San Juan, Captain 
 Hollins, hearing of their intention to commit that act of vio- 
 lence, sent Theodore P. Green, his first lieutenant, on. shore, 
 with directions to inform the people of San Juan that if 
 they attcm])ted to carry their resolution to destroy the pro- 
 perty at Punta Arenas into effect, he should resist them by 
 force. Lieutenant G-reen gave this warning to the mayor 
 and common council, while in session at their council cham- 
 ber. He, in fact, did all that Lord Clarendon suggests as 
 proper to have been done ])rior to an allowable interposition 
 l»y an armed force. But Captain Hollins' precautionary 
 steps went much further. In the morning of the same day 
 on which the attempt was made to destroy the property at 
 Punta Arenas by tlie people of San Juan, being informed 
 that they did not intend to heed this warning and desist, but 
 were preparing to execute the threatened outrage, he went 
 himself on shore, and in person to the common council, then 
 in session, and notified them " that he should be compelled 
 to put a stop to any depredations they might attemj^t upon 
 the property of the Accessory Transit Company." Captain 
 Hollins' efforts to prevent the violent proceedings of the 
 people at San Juan, did not cease with this twice-repeated 
 "Avarning;" but, after his return on board of the Cyane, he 
 issued a written warning, addressed to the mayor of that 
 place, of which the following is a correct copy. 
 
 United States Ship Cyane, 
 Harbor of San Juan del Norte, or Gret/town, March 11, 1853. 
 Sir: After the interview I had with jour "honor" this morning, before yonr 
 honorable council assembled, I have to state, most respectfully that I cannot per- 
 mit any depredations on the property of the Accessory Transit Company whose de- 
 j)Ot is located upon Punta Arenas, at the entrance of this harbor. 
 I am, verv respectfuUv, your obedient servant, 
 
 GEO. N. ITOLLTNS, 
 
 Commander U. S. S. Ci/ane. 
 To his Honor, the Mayor of San Juan del Norte, or Greytown, Nicaragua. 
 
 These facts, Avhen brought to its notice, must, as the Pre- 
 sident believes, convince her Majesty's government that there 
 is no cause for taking the exception which it has taken to 
 Captain Hollins' conduct at San Juan in March last; they 
 must remove from Lord Clarendon's mind all feelings of re- 
 gret, and all apprehension that the occurrences to which he 
 refers will, in any way complicate "the already sufficiently 
 embarrassing and difficult question" between the two gov- 
 ernments in res'ard to Central America. 
 
FOREIGN AFFAIRS. 333 
 
 The President considers it to have been the unquestionable 
 duty of the commander of the Cyano to afford tlie protection 
 he did to the Accessory Transit Company against tlie threat- 
 ened outrage of the people at San Juan; and he cannot dis- 
 cover anything in the manner of ])erlbrming that duty to 
 which any exception ought to be taken. 
 
 If there be anything in the transactions at Han J nan at 
 that time to be regretted, it is the course whicli the com- 
 mander of the British steamer Geyser saw fit to pursue, in 
 regard to this movement of tlie p()])ulace at that jdace, a sliort 
 time previous to that of the 11th March, against the servants 
 and property of the Accessory Transit Company, on Punta 
 Arenas. On the evening previous to the day when an attack 
 upon both was made by a party from San Juan, the captain 
 of the Geyser Avas at anchor in the harbor, and was notified 
 by the company's agent of the intended attack tlie next day 
 on the property of that company at Punta Arenas; but, in- 
 stead of interposing to prevent the meditated destruction of 
 it, or to dissuade the reckless meu engaged in that project, 
 from an act so outrageous — so likely to lead to violence and 
 civil confusion — he departed temporarily from the port, 
 leaving the servants and pro])erty of the com))a!iy at the 
 mercy of their assailants. It is reasonable to conclude that, 
 if the kind offices of that officer had been tiien vigorously in- 
 terposed, and his departure from the port at that crisis had 
 not given some plausibility to the inference— d()ul)tless un- 
 just towards Captain Wilson — that he did not disa})prove of 
 the movement, no force would have been requii'od to prevent 
 difficulties at that or any subsequent period. 
 
 It is proper to say, in conclusion, that tlie President does 
 not authorize me to say in reply to the dispatch of her Bri- 
 tannic Majesty's princijjal secretary of state for foreign af- 
 fairs, anything which maybe construed into a recognition on 
 his part, of the claim set up by the people at San Juan to 
 sovereign authority in themselves over any territory what- 
 ever, or to any municipal or corporate powers, or political or- 
 ganization derogatory to the sovereign rights of either Nica- 
 ragua or Costa Pica; nor does he regard any instructions 
 heretofore issued from this or the Navy Department to our 
 naval officers, for the temporary recognition of an authority 
 for the mere purpose of preserving the public peace, and pun- 
 ishing wrong doers, by the anomalous settlement at San Juan 
 as sanctioning the pi'etensions of the people of that place to 
 be considered a de facto government, indepen<lent of the 
 State within the territorial limits of whicli the town of San 
 Juan is situated. 
 
334 FOREIGN AFFAIRS. 
 
 In order to apprise her Majesty's government of the views 
 of the President in regard to the occurrences at San Juan in 
 ^larch Last, you vr\\\ read this dispatch to the Secretary of 
 State for Foreign Affairs, and also furnish him with a cc>pv 
 of it, if a copy shouhl he requested. 
 
 I am, sir, resi)ectfully, vour ohedient servant. 
 
 W. L. MARCY. 
 
 Joseph R. Ln'(;eksoll. Esq.. S:c. 
 
 CONDUCT OF CAPTAIN IIpLLINS— THE MOSQUITO COUNTRY. 
 Lord Clarendon to Mr. Crampton. 
 
 Foreign Office, Juhj 22. 1853. 
 
 Sir: I transmit to you herewith the copy of a dispatch ad- 
 dressed hy the United States Secretary of State to the Uni- 
 ted States Minister in this country, which, hy the direction 
 of his government, the latter gentleman has put into my 
 hands. That dispatch has reference to the recent occur- 
 rences at (xrey town and Punta Arenas, and to the conduct of 
 Captain HoUins, the commander of the U. States ship "Cy- 
 ane," on that occasion. 
 
 The tone of that dis])atch, if not hostile, is certainly not 
 such as her Majesty's government had hoped ibr from tlie 
 United States government, after the many fair and friendly 
 efforts which, at some sacrifice of feeling, with respect to tlie 
 Mosquito country, they have for some time past made with 
 the United States government, in order to hring ahout in 
 concert with them, a mutually advantageous and equitahle 
 settlement of the affairs of Central America, more especially 
 in reference to (xrey town and the Mosquito country. 
 
 In justifying the conduct of Cajitain Hollins, in the dis- 
 ]>ute which occurred in the month of Fehruary last, between 
 the Accessory Transit Company and the de facto government 
 of Greytown, the United States Secretary of State applies tlie 
 word rehuke to tlie re[)resentation Avliich, in ray dispatch 
 No. 21, of the 29th of April last, I directed you to make, on 
 the part of her Majesty's government, to the government of 
 the United States on the subject of the proceedings of that 
 officer ; but I neither rebuked, nor invited a rebuke upon 
 Captain Hollins. I merely pointed out, in temperate lan- 
 guage, the erroneous position in which, in my view of the 
 matter, that officer had placed himself; and in order to 
 avoid all danger of future misunderstanding, I requested 
 that stringent instructions might be conveyed to the United 
 States commanders on that station, for the guidance of their 
 conduct on similar occasions, in a sense different from tliat 
 
FOREIGN AFFAIRS. 335 
 
 pursued by Captain Hollins. That request was grounded on 
 the instructions wliich were furnished in the spring of 1852, 
 by the British and United States governments to their respec- 
 tive naval commanders in Central America, directing them 
 to support, in conjunction, and pending the negotiations for 
 the settlement of the Central American question, the de facto 
 government of Greytown. Now, that government claimed a 
 right to the Isthmus called Punta Arenas, over against Grey- 
 town, on the other side of the mouth of the river San Juan; 
 and on the written request of the Accessory Transit Com- 
 pany, dated the 11th of June, 1851, to the effect that the 
 company desired the use of a portion of the land on the other 
 side of the harbor, near Punta Arenas, measuring two hun- 
 dred feet east to west, and four hundred feet north to south, 
 the government of Greytown had ceded that portion of land 
 to the company, at a nominal rent, " until the land in ques- 
 tion might be required for the purposes of the Mosquito 
 government." This agreement, therefore, clearly shows that 
 the Accessory Transit Company considered the land in ques- 
 tion as dependent on Greytown, and that they were bound to 
 evacuate it whenever required by the government of Grey- 
 town. They were so required in Pe])ruary last, and refused ; 
 and the United States commander, not only supported them 
 in that refusal, but landed an armed force to protect them 
 against the authorities of Greytown. It was this act that 
 her Majesty's government considered as oppose'd to the mu- 
 tual instructions given, and the understanding entered into 
 in 1852 between tlie governments of Great Britain and the 
 United States, and they instructed you accordingly to make 
 a representation against it, and to request that fresh instruc- 
 tions might be sent out to prevent a recurrence of sucli })ro- 
 ceedings. 
 
 Her Majesty's government fully admit that the conduct of 
 the government of Greytown, in tlie violent measures wliich 
 they took for forcibly ejecting the Accessory Transit Company 
 from Punta Arenas, was injudicious and intemperate : and 
 they have made known that opinion to tliose authorities. 
 But that conduct does not, in the judgment of her Majesty's 
 government, justify the strong measures of coercion adopted 
 by Captain Hollins against the Greytown government. In 
 fact, nothing could, in the opinion of her Majesty's govern- 
 ment, warrant either an United States or a Britisli naval 
 officer, under tlieir mutual instructions, in landing armed 
 men from their ships at Punta Arenas, for the i)rotection of 
 the Accessory Transit Company against the enforcement of 
 the terms of a written agreement by the de facto government 
 
336 FOREIGN AFFAIRS. 
 
 of Grreytown, with which the agreement had been volunta- 
 rily made. It was competent to the United States commander 
 to use the most urgent means of persuasion with the govern- 
 ment of Greytown, to induce them to desist from their ill- 
 judged course of violence, hut not to employ an armed force 
 for that purpose. 
 
 Mr. Marcy observes that if, as Nicaragua asserts, Punta 
 Arenas is within the territorial limits of Nicaragua, the right 
 of the Accessory Transit Company can hardly be drawn in 
 question, because they hold their charter I'rom the govern- 
 ment of Nicaragua. But the fact of the company having 
 rented Punta Arenas, as above described, from Greytown by 
 a voluntary written agreement, founded on their own appli- 
 cation, sets this question at rest, for having acknowledged 
 the right of Greytown, and held under that acknowledgment, 
 the company cannot now turn round, and acknowledge the 
 opposite right of Nicaragua. 
 
 Her Majesty's government deeply regret the language 
 which the United States Secretary of State has thought it 
 expedient to employ in his dispatch, in speaking of the Mos- 
 quito country and of Nicaragua. Her Majesty's government 
 were necessarily conscious of the light in which the govern- 
 ment of the United States had always, and, it is admitted, 
 consistently, viewed the Mosquito country. But the United 
 States government were equally cognizant of the long stand- 
 ing relations of Great Britain with that country, and of the 
 moral impossibility of her abandoning that country and its 
 ruler, after ages of protection afforded to them, without 
 making such terms in their favor as should be consistent 
 with their own lair claims, and with the dignity and honor 
 of the British crown. 
 
 Under this well known difference of views, it were the 
 more to be desired that both governments should sedulously 
 abstain from all language calculated to bring that difference 
 more prominently into view; and that they should, on the 
 contrary, employ their best efforts to throw that difference 
 into the shade, and to settle the question at issue in a manner 
 equally beneficial and creditable to both. 
 
 1 have already stated, in my dispatch. No. 36, of the 27th 
 of May, that, until the general Central American question 
 shall have been finally determined, her Majesty's government 
 must regard the territorial rights of Mosquito, including 
 Greytown (saving the de facto arrangement entered into with 
 regard to the latter,) in the same light in which they have 
 always been regarded by Great Britain; and that her Majes- 
 ty's government cannot recognize any pretension on the part 
 
FOREIGN AFFAIRS. 337 
 
 of Nicaragua or of Honduras to any part of that territory. 
 They must, on the contrary, continue to resist any such pre- 
 tension. In repeating tliis declamtion, however, her Majesty's 
 government again, and in the most cordial manner, invite 
 the United States government to join with them in devising 
 and carrying out such an arrangement, with regard to the 
 Mosquito country and Central America generally, as shall 
 botli tend to remove any chance of future misunderstanding 
 between two great and kindred countries, and shall also aiford 
 a better prospect than now exists of l)ringing into the pale 
 of political and commercial enlightenment a vast and noble 
 region lying between the northern and southern continents of 
 America, which, to all practical interests, is now lost to the 
 world. 
 
 I am, &c., 
 
 CLARENDON. 
 J. F. Crampton, Esq., dc, dc. . 
 
 MR. REVERDY JOHNSON'S OPINION. 
 
 Letter from the late Attorney General of the United States, 
 giving his opinion on the construction of the treaty of Wash- 
 ington, of July 4, 1850.* 
 
 Washington, December 30, 1853. 
 My Dear Sir : I cannot hesitate to comply with your re- 
 quest to give you my opinion on the construction of the 
 treaty of Washington, of the 19th of April, 1850. Pending 
 the negotiation of this treaty, I exerted myself in personal 
 conferences with Sir Henry L. Bulwer, to bring about an 
 agreement between you and him, and, on several occasions, 
 I had tlie honor to be consulted by you both, particularly in 
 reference to the declarations made on both sides, at or about 
 the time of the exchange of ratifications. 
 
 In tlie first draft of the first article of the treaty, pre- 
 sented by you for the consideration of the President, the 
 contracting parties were obligated not "to occupy, or fortify, 
 or colonize, or assume, or exercise any dominion over Nica- 
 ragua, Costa Rica, the Mosquito coast, or any part of Cen- 
 tral America." I thought then, as you did, that these words 
 were sufficient to exclude any nation disposed to observe the 
 faith of treaties, from occupying, fortifying colonizing, or 
 assuming, or exercising any dominion, under any pretext or 
 for any purpose. I still think so; but I remember well that 
 other gentlemen, who were consulted at the time, desired, 
 
 * Submitted to the Senate by Mr. Clayton, January 3, 1854, and ordered to be 
 printed. v . 
 
338 FOREIGN AFFAIRS. 
 
 from abundant caution, that Great Britain should pledge 
 herself not to make use of any protection which she af- 
 forded, or might afford, or any alliance which she had, or 
 might have, to or with any State or peoj)le, for the purpose 
 of occupying, fortifying, or colonizing, or of assuming, or 
 exercising dominion over that country. And, in conse- 
 quence, the provision to that effect was introduced as a part 
 of that article. The object of this was, still more especially 
 to disarm the Mosquito protectorate of Great Britain in 
 Central America. 
 
 My opinion was then, and it now is, that this provision 
 was not at all necessary. You thought as I did. But as it 
 could not possibly weaken the force or the effect of the pre- 
 ceding words, and, if effective at all, could only serve to 
 render them more forcible and operative, we did not object 
 to its insertion. If the former words prohibited, as they 
 clearly did of themselves, the doing any of the particular 
 acts specified, an express stipulation that such acts should 
 not be done, by or under cover of protectorates or alli- 
 ances, could only operate still more effectively and absolutely 
 to prohibit them. 
 
 As one of the advisers of the President, I unhesitatingly 
 gave him my opinion, that the treaty did effectually, to all 
 intents 'and purposes, disarm the British protectorate in 
 Central America and the Mosquito coast, although it did not 
 abolish the protectorate in terms, nor was it thought ad- 
 visable to do so "I'rt ipsissimis verbis." All that was desired 
 by us was, to extinguish British dominion over that country, 
 whether held directly or indirectly — whether claimed by 
 Great Britain in her own right, or in the right of the In- 
 dians. But our government had no motive and no desire to 
 prevent Great Britain from performing any of the duties 
 which charity or compassion for a fallen race might dictate 
 to her, or to deprive ourselves of the power to interfere to 
 the same extent in the cause of humanity. We never de- 
 signed to do anything which could enable the enemies of this 
 miserable remnant of Indians to butcher or starve them, and 
 we thought that both Great Britain and the United States 
 owed it to their high character for civilization and humanity 
 to interfere so far in their behalf as to prevent the extirpa- 
 tion of the race, or the expulsion of them from the lands they 
 occupied, without extinguishing, by a reasonable indemnity, 
 the Indian title according to the rules of justice, which have 
 been admitted both by the English and ourselves. But we 
 did intend (and the treaty contains every thing for that pur- 
 pose that could be desired) to prevent the British govern- 
 
FOREIGN AFFAIRS. 339 
 
 ment from using any armed force, without our consent, within 
 the prohibited region under pretext or cover of her pretended 
 protectorate. And when now reviewing what was done I 
 say upon my responsibility as a lawyer, and as the legal ad- 
 viser of the President at the time, that, in my judgment, 
 human language could not be more properly and admirably 
 selected for the purpose than that which you employed when 
 you signed the treaty. It has been said, but I can hardly 
 accredit it, that Great Britain now contends_, in virtue of 
 the phraseology of the last part of the first article inciden- 
 tally speaking of the protection which either party may use, 
 that the treaty acknowledges the protectorate over the In- 
 dians. If so, it equally acknowledges our protectorate over 
 the same Indians, or over Nicaragua, or any State which we 
 may choose to protect. The same words apply to both par- 
 ties, and it is a bad rule that does not work equally for both. 
 The moment Great Britain threatens with arms to defend 
 the Indians, and claims a right to do so in virtue of the 
 treaty, we may claim, by the same instrument, with equal 
 justice, the right to take arms in defence of Honduras and 
 Nicaragua. But, in my judgment, the treaty, which was 
 meant for peaceful purposes, denies both to Great Britain and 
 the United States the right to interfere by force of arms 
 for any such purpose, or for any other purposes, except by 
 mutual consent. If Great Britain may send an army into 
 Nicaragua to defend the Indians without violating the treaty, 
 which binds her not to occupy that country, then, by the same 
 rule of construction, she may also fortify the whole of Cen- 
 tral America, or introduce a colony there under the same 
 pretext. Any adverse possession of Great Britain in Cen- 
 tral America, without our consent, is an occupation in viola- 
 tion of her national faith. The construction which would 
 allow her to place an armed soldiery on the territory, for the 
 purpose of protecting the Indians, would also allow her to 
 assume absolute dominion there for the same purpose, and 
 thus annul the whole treaty. 
 
 But it may be said that some other nation may invade 
 Central America, and that this construction would deprive 
 both the contracting parties of the power to defend it. Not 
 at all. Both parties have bound themselves to protect the 
 canal, and all canals and all railroads that can be made, not 
 only in Central America, but in any part of the isthmus 
 which separates North from South America. In virtue of 
 this obligation it would be the duty of both to resist, by the 
 most effective means in their power, all invasions and other 
 acts hostile to their great and philanthropic common purpose. 
 
840 FOREIGN AFFAIRS. 
 
 So, too, injuries or torts inflicted either by the Indians or by 
 any Central American State, upon either American citizens 
 or British subjects, may be punished by their respective 
 governments without vioLating the treaty ; and no one of 
 these states, by means of a convention, which is marked in 
 every line by a devotion to the true principles of commerce, 
 civilization, and equal justice to all men, can escape punish- 
 ment for her injustice or oppression. This treaty is the first 
 instance, within my knowledge, in which two great nations 
 of the earth have thus endeavored to combine peacefully 
 for the jarosecution and accomplishment of an object which, 
 when completed, must advance the happiness and prosperity 
 of all men ; and it would be a matter of deep regret if the 
 philanthropic and noble objects of the negotiators should 
 now be defeated by petty cavils and special pleading, on 
 either side of the Atlantic. 
 
 As to the declaration of Sir Henry L. Bulwer, and the 
 counter declaration made by you at the time of the exchange 
 of the ratifications, I probably had a better opportunity of 
 understanding the views and objects of both of you than 
 any other. I assisted, by your request, in the arrangement 
 of the phraseology of the counter declaration, dated the 
 fourth of July, 1850, to Sir Henry L. Bulwer's declaration 
 of the 29th of June. By your request also, I examined Sir 
 Henry L. Bulwer's powers, and conversed with him freely 
 and fully on the whole subject, at the very moment when, in 
 consequence of his dechiration, you threatened to break ofi" 
 the whole negotiation. 
 
 I remember well that after his declaration was received, 
 there was a period when you had resolved to abandon the 
 treaty in consequence of it ; but wlien Sir Henry consented 
 to receive your counter declaration of the fourth of July, in 
 which you expressly limited the term " her Majesty's settle- 
 ment at Honduras," to that country which is known as 
 British Honduras, as contra-distinguished or distinct from 
 the state of Honduras, and also confined the word " depen- 
 dencies" in his declaration to those " small islands" knoivn 
 at the time to he such ; in Avhich also, while admitting Belize 
 or British Honduras not to be included in the treaty, you 
 disavowed all purpose of admitting any British title even 
 there ; in which, too, you declared that tlie treaty did include 
 '■ all the Central American States within their just limits 
 and proper dependencies,'" and in which you expressly stated 
 to him that no alteration could be iriade in the treaty Avith- 
 out the consent of the Senate, and that he was understood 
 as not even proposing any such alteration, — you then con- 
 
FOREIGN AFFAIRS. 341 
 
 sented to exchange upon that counter declaration, which, 
 in your judgment, and in mine too, completely annulled 
 every pretext for asserting that the declarations of the nego- 
 tiators had altered the convention, or fixed an interpretation 
 upon it contrary to the meaning of the President and Senate. 
 We hoth considered then, and as a jurist I now hold it to be 
 perfectly clear, that the exchange of the ratifications on that 
 counter declaration was, on the part of the British minister, 
 a complete waiver of every objection that could be taken to 
 any statement contained in it. 
 
 In point of law, the declarations of the negotiators, not 
 submitted to the Senate, Avere of no validity, and could not 
 afiect the treaty. Both understood that. This government 
 had decided that question in the case of the Mexican proto- 
 col, and the British government was officially informed of 
 their decision. The very power to exchange ratifications 
 gave them the same information, and it is absolutely impos- 
 sible that the British minister could have been deceived on 
 that subject. 
 
 I remember well that you steadily refused every effort on 
 the part of Sir Henry to induce you to recognize the Mos- 
 quito title. The treaty left us at liberty to recognize the 
 title of Nicaragua or any other Central American State, and 
 left the British government the right to recognize the title 
 of the Mosquito King. On these points the parties agreed 
 to disagree. But the right to recognize is a very difierent 
 affair from the right to compel others to recognize. The 
 British protectorate was, I repeat, entirely disarmed by the 
 treaty. How is it possible for Great Britain to protect if 
 she cannot " occupy, or fortify, or assume any dominion 
 whatever" in any part of the territory ? She is equally pro- 
 hibited, in my opinion, from occupying for the purpose of 
 protection, or protecting for the purpose of occupation. If 
 she observes the treaty, her protectorate " stands (as you 
 once well said of it in a dii)lomatic note) the shadow of a 
 name." 
 
 With regard to the British colony said to have been es- 
 tablished on the 17th of July, 1852, in the islands of Ruatan, 
 Bonacca, Utilla, Barbarat, Helena, and Morat, and desig- 
 nated as the colony of the Bay of Islands, the question 
 whether by establishing such a colony, Great Britain has 
 violated the treaty of 1850, depends entirely upon facts in 
 regard to which there are different opinions. The only 
 islands known to this government on the 4th of July, 1850, 
 to be dependencies of British Honduras or Belize, were 
 those referred to in the fourth and fifth articles of the treaty 
 
342 FOREIGN AFFAIRS- 
 
 of London of the 14th of July, 1786. The fourth article pro- 
 vides that " the English shall be permitted to occupy the 
 small island known by the names of Casina, St. George's 
 Key, or Cayo Catina," and by the fifth article, they " have 
 the liberty of refitting their merchant ships in the southern 
 triangle included between the point of Cayo Cafina and the 
 cluster of small islands which are situated opposite that part 
 of the coast occupied by the cutters, at the distance of eight 
 leagues from the river Wallis, seven from Cayo Cafina, and 
 three from the river Sibun, a place which has alwa3's been 
 found well adapted for that purpose. For which end, the 
 edifices and storehouses absolutely necessary for that service 
 shall be allowed to be built." These articles in the treaty 
 of 1786 give us the only knowledge of any small islands, 
 which were, on the 4th of July, 1850, " dependencies" of 
 British Honduras. I repeat, that the counter declaration ac- 
 knowledges no other dependencies of British Honduras but 
 those small islands Avhich were known to be sucli at its date. 
 We knew, indeed, that Great Britain as well as Honduras 
 had laid claim to Kuatan, but Ave had no information as to 
 the ground on which the former rested her claim. Your 
 reply to Sir Henry L. Bulwer avoided any recognition of the 
 British claim to it, or other allusion to it than could be in- 
 ferred from the positive assertion that the treaty did include 
 all the Central American States "with their just limits and 
 proper dependencies." If these islands were a part of any 
 Central American State at the time of the treaty, the subse- 
 quent colonization of them by Great Britain is a clear vio- 
 lation of it. If, on the other hand, they did not then belong 
 to any Central American State, it would be gross injustice 
 on our part to pretend that the treaty did include them. 
 My impression is, that Kuatan belongs to the State of Hon- 
 duras, but my knowledge of the facts is too limited to enable 
 me to express it without diffidence. 
 
 'During the administration of President Taylor, there was 
 no new aggression by Great Britain in any part of the isth- 
 mus which was not promptly met and resist<?d. He had 
 firmly resolved by all constitutional means in his power, to 
 prevent such aggression if any should be attempted, con- 
 sidering as he did, that all the passages through the isthmus 
 should be kept free, to enable us to retain our possessions on 
 the Pacific. I pretend to know nothing of what has occurred 
 there since his day, but neither he nor his advisers could be 
 held responsible if the treaty negotiated by his orders has 
 been at any time violated since his death. 
 
 I can scarcely suppose it possible that Great Britain in 
 
FOREIGN AFFAIRS. 343 
 
 tends serionp:ly to interpose her protectorate again to obtain 
 dominion over the isthmus. I am assured that whatever 
 may be contained to the contrary in any dispatches emana- 
 ting from the British foreign office, of which rumor speaks, 
 the fact is that a portion (represented to be one half) of the 
 chaim of the Mosquito king has been lately bought up In' 
 American citizens, with the concurrence and ai^probation of 
 the British government, and tliat negotiations are on foot, 
 with a fair prospect of success, for the purchase by the same 
 persons of the residue of that claim. 
 
 Before closing this letter, I would congratulate you and 
 our country on the brightening prospects of a speedy con- 
 struction of the great work to promote which you have de- 
 voted yourself so long and so faithfully. American and 
 English gentlemen of high character have, it seems, inter- 
 ested themselves in the exploration of a canal route indicated 
 by Humboldt across the isthmus at Darien. Their engineers 
 have reported the route from the Savannah river, emptying 
 into the harbor of Darien and the gulf of St. Miguel, on the 
 Pacific, to C-aledonia bay, on the Atlantic, as being certainly 
 practicable for less than seventy-five millions of dollars, 
 and that the harbors on each side are admirably formed by 
 nature for the purpose, being sufficient to contain the navies 
 of the world. The deepest cut on this route, which extends 
 but for a very small distance, is represented to be only about 
 150 feet, and the whole distance, from a point on the Savan- 
 nah river, seven miles from the harbor of Darien, where the 
 depth of water is 36 feet, to the noble Bay of Caledonia, is 
 only 33 miles. In consequence of your negotiation the 8th 
 article of the treaty of the 19th of April, 1850, binds both 
 Great Britain and the United States to protect this route as 
 well as all other canals and every railroad across the istli- 
 mus while in or out of Central America. I understand that, 
 pursuing the spirit of the treaty, engineers under the sanc- 
 tion of the government of Great Britain and the United 
 States are now actually engaged in surveying and exploring 
 this Darien canal route, and that we may, during the next 
 year, expect their official reports. American citizens and 
 British subjects are to be equally concerned in the manage- 
 ment of the canal. The British exploration, pursuant to the 
 understanding between the two governments, is proceeding 
 on the Pacific, and the Cyane (United States ship-of-war) 
 sailed not many days ago from Philadelphia, for the purpose 
 of aiding in surveying Caledonia bay and exploring the route 
 on the Atlantic side. The protection of New Granada would 
 be indeed utterly insufficient to induce capitalists to under- 
 
3^^ FOREIGN AFFAIRS. 
 
 000 miles, and '!><= 'V™Ser of tl e Cap<, OTOKteU V^caloulable 
 
 ;r„sS;^, T^ 't i:l>^gt l su.ed a s^ape promising the 
 
 realization of your brightest lo^- . ^ 
 
 I am, dear s,r, sincerely yom '^^"^^'''ioHNSON. 
 
 Hon. John M. Clayton, 
 
 Pwierf States Senate, Washington. 
 
THE BOMBATIDMENT OF GREYTOWN. 
 
 [From documents communicated by the President, July 31, 1854, in compliance 
 with a resolution of the Senate calling for all the information in his possession 
 respecting the bombardment of Greytown or San Juan de Nicaragua by Captain 
 Hollins, in command of the United States ship Cyane, with copies of all orders 
 or instructions, if any, given by the Executive to said Hollins in relation thereto.] 
 
 OUTRAGE ON THE AMERICAN MINISTER. 
 3Ir. Borland to 3Ir. 3Iarcy. 
 
 Washington, May 30, 1854. 
 
 Sir: Having arrived in this city from my mission in-Cen- 
 tral America, I beg leave to submit the following statement 
 of occurrences, which I regard as important, and ask for it 
 your early consideration. 
 
 Inclosed herewith and marked (A,) is a printed slip, cut 
 by me, from a New York newspaper, which purports to be a 
 statement of those occurrences, prepared by the officers of 
 the steamer Northern Light, and which I find to be correct 
 in all material particulars. I present it in lieu of any separ- 
 ate statement of my own, and adopt it as such. 
 
 Inclosed, also, marked (B,) I hand you a copy of the agree- 
 ment made by me with the persons I employed to remain at 
 Punta Arenas, as a guard over the persons and property of 
 our citizens. 
 
 In addition, I deem it proper to remark: That although I 
 was personally cognizant of the conduct of Captain Smith, 
 for which he was charged with murder, and sought to be 
 arrested by the so-called authorities of San Juan, or Grey- 
 town, and was (as I now am) clearly and decidedly of opinion 
 that he was justifiable in all he did, the question of his guilt 
 or innocence did not enter into the considerations for which 
 I interposed to protect him. He was a citizen of the United 
 States, and the persons who sought to arrest and claimed the 
 right to punish him, Avere not recognized by the United 
 States as a government possessed of the right, or invested 
 with the power, to exercise jurisdiction over any portion of 
 Central America, or to determine any question involving the 
 persons or property of our citizens. This ground I was not 
 only authorized but required to assume, as well by the pre- 
 cedents of interposition to protect our citizens at the same 
 place and against the same persons, heretofore directed and 
 sanctioned by our government, as by the special instructions 
 under which my mission was undertaken. Besides, even 
 
 44 345 
 
346 FOREIGN AFFAIRS. 
 
 supposing the so-called authorities of San Juan, or Greytown, 
 to be a government invested with the rights and powers I 
 have denied over the territory embraced within their town 
 limits, they certainly had no jurisdiction over that portion 
 of territory upon which the obnoxious act of Captain Smith 
 had been clone, as that was, although on the north bank, yet 
 some ten or twelve miles above the mouth of the San Juan 
 river. So of the place where his arrest was attempted (Punta 
 Arenas,) on the south bank of the San Juan river, and the 
 opposite side of the bay from San Juan, or Greytown. The 
 act, then, of Captain Smith, whether criminal or not, was 
 done within the territory of Nicaragua, and for it he is 
 amenable to Nicaragua alone, if to any authority ; and the 
 place of his attempted arrest (Punta Arenas) is territory in 
 dispute between Nicaragua and Costa Rica, so that no legal 
 2)rocess, civil or criminal, could rightfully be executed there, 
 unless by authority of one or the other of those powers. 
 
 It will be observed that at one moment I resorted to a 
 threat of violence to repel the armed men of San Juan from 
 the steamer. I wish it to be distinctly understood that I 
 did this from no impulse of passion, nor with the expectation 
 that my threat would have to be executed, though, if unheeded, 
 it would have been. My course was adopted from a convic- 
 tion of its necessity as the only mode then at my choice to 
 prevent a collision which could hardly have ended without 
 the destruction of many lives. 
 
 It is true that the mayor (Sigaud) came to me and disa- 
 vowed the acts of those who arrested and assaulted me. But 
 it is equally true that he presided at the meeting at the sta- 
 tion house, (town hall,) in which it was proposed (by Martin, 
 the ex-mayor,) and resolved to arrest me; that the authori- 
 ties took no steps to prevent it ; and that armed men who 
 arrested me were composed, mainly, of the police guard of 
 the town, and were armed with the muskets of the corpora- 
 tion. Their leader declared that he came by order of the 
 mayor to arrest me. 
 
 From the best information I could obtain, the population 
 of San Juan, or Greytown, numbers about three hundred, of 
 all sorts, and consists of a few Englishmen, Frenchmen, 
 Germans, and men from the United States, but mainly of 
 negroes from Jamaica, and some natives of the Mosquito 
 shore. There are also some two or three natives from the 
 interior of Nicaragua. When I reached that place, last Sep- 
 tember, the number of negroes Avas much smaller than at 
 
 resent. This number has been increased, as I am informed, 
 y recent arrivals from Jamaica; until now they constitute 
 
FOREIGN AFFAIRS, 347 
 
 t^o majority, and exercise the greater influence. At the last 
 elections and corporate organization, no American (except 
 one mulatto man from New Orleans) was included. 
 
 Of these peoj)lp, I am informed that some seventy-five to 
 one hundred can he mustered for military service, and they 
 have in their possessi(m three hrass cannon — one 18-])onnder 
 and two 1 2-ponuders, and some two hundred muskets. With 
 the exception of a few persons, these people own no property, 
 and have no ostensihle means of livelihood. In their ano- 
 malous condition, M'ithout a government which any civilized 
 nation recognizes — indeed, occupying, hy usurpation, terri- 
 tor}^ which our government recognizes as belonging to Nica- 
 ragua; being persons, almost without exception, of noto- 
 riously bad character — some of them discharged peniten- 
 tiary convicts and refugees from justice, habitually mani- 
 festing evil dispositions towards our citizens, and indulging 
 those dispositions to the injury of persons and property, 
 whenever they are not restrained by force, I am unable 
 to regard them in any other light than as pirates and out- 
 laws, upon whom punishment, to the extent of extermina- 
 tion, may be rightfully inflicted by any hand that has the 
 power; and, in my opinion, the interests of good government 
 and humanity impose the duty, upon any offended party, of 
 inflicting such punishment in a manner at once summary and 
 eftective. Heretofore, when these persons have committed 
 their lawless acts upon our citizens, the armed hand of our 
 government has been interposed, not to punish for the past 
 offence, but only to prevent its threatened repetition. As a 
 consequence, as soon as the restraining force was withdrawn, 
 the offence was repeated. Until now, they have got to be- 
 lieve that restraint for the time, and not punishment, is the 
 worst they will have to suffer for their worst acts. When I 
 warned them of the consequences of their bad conduct, they 
 boldly told me they intended to do as they pleased, and were 
 reckless of consequences. 
 
 Under these circumstances, and informed by our commer- 
 cial agent, Mr. Fabens, as also by Mr. Scott, the agent of the 
 Accessory Transit Company, who has under his care many 
 thousand dollars worth of property, that, in view of the evil 
 dispositions of those persons, as manifested for some time 
 past, and then in a state of high excitement, they did not 
 consider that the persons and property of our citizens would 
 be safe after the steamers had left, unless protected by an 
 adequate force, I deemed it my duty to employ the services 
 of the men, as set forth in the printed slip and the agree- 
 ment inclosed, in order to afford that protection. As these 
 
348 FOREIGN Af FAIRS. 
 
 circumstauces are, so far as I am informed, without prece- 
 dent, so, I presume, is the course of conduct I pursued under 
 them. What I did I found to be necessary, and believed to 
 be right. I therefore assumed the responsibility, not doubt- 
 ing that it would be approved by my government. 
 
 It will be observed that the compensation I agreed to pay 
 is large — that is, it would be considered so under ordinary 
 circumstances; but, under the circumstances of the time 
 and place, added to the fact that the men employed were 
 our citizens, who had been long from home, and Avere anx- 
 ious to return — some of them being half-way the voyage — I 
 do not think the amount can be deemed unreasonable. The 
 refunding passage money, provided for in the agreement, 
 was superceded subsequently by the stipulation in the post- 
 script to pay fifty dollars in addition to the one hundred first 
 agreed upon. The reason for adding the fifty dollars was 
 the difficulty I had in getting the requisite number of men, 
 after a few had enlisted for the hundred. Without this ad- 
 dition, I could not have made up the number. The free pas- 
 sage home is still provided for by the agreement of the Tran- 
 sit Company to receive the tickets for the remainder of the 
 trip. 
 
 An additional item of expense — the amount of which could 
 not be ascertained at the time, and which I do not yet know — 
 is the cost of arms to supply a portion of the men. These 
 purchases I authorized the Agent of the Transit Company 
 to make. The subsistence of the men will be furnished on 
 account by the agent of the company. If the service shall 
 continue longer than one month, the rate of compensation 
 for the additional time will be $100 per month. 
 
 I expressed the confident opinion to the men employed, 
 that they would not be detained longer than one month, and 
 I promised that they should be paid, through our commer- 
 cial agent, Avhen their service expired, at Punta Arenas. 
 For tliis opinion and promise, I confidently relied upon the 
 approval and co-operation of my government. 
 
 I have the honor to be, most respectfully, vour ob't serv't, 
 
 SOLON' BORLAND. 
 
 Hon. W. L. Marcy, 
 
 Secretary of State. 
 
 Arrival of the Northern Light. — Serious trouble at Nicaragita. — Arrest of 3Ir. Bor- 
 land^ U. S. Minister. 
 The purser of the steamer, by authority of Captain Churchill, furnishes the 
 following report of extraordinary proceedings at iSan Juan, involving the arrest 
 of Mr. Borland, the American minister. The purser says : 
 
FOREIGN AFFAIRS. 349 
 
 On the evening of the 16th instant the river steamer Ronth, Capt. T. T. Smith, 
 arrived at Punta Arenas, and was lying alongside the Northern Light to deliver 
 her passengers. About dusk, while the passengers were passing from one steamer 
 to the other, a bungo, having on board some twenty-five or thirty armed men, 
 mostly Jamaica negroes, headed by a mulatto man calling himself the marshal, 
 came over from San Juan or Greytown. ami ranged uj) alongside the steamer 
 Routh. The so-called luarshal, accompanied by several of his armed men, jump- 
 ed on board the steamer and announced their purpose to arrest Capt. Sujith, by 
 virtue of a warrant from the mayor of Greytown, upon the charge of murder. 
 Ca])t. Smith refused to be arrested, and armed himself for resistance. 
 
 At this stage of the proceedings, Jlr. Borland, the American minister, who was 
 at the time on board the Northern Light, was informed of what was going on. 
 He immediately went on l)oard of the Routh, where he tbuud a crowd of per- 
 sons, among them a number of the armed men from the bungo, in a high state of 
 excitement. The marshal, with his men, was attempting to arrest Capt. Smith ; 
 and the latter, standing at the cabin door, was keeping them at bay. Jlr. Borland 
 at once interposed, telling the marshal that no authority, recognized I)}- the Uni- 
 ted States, existed at Greytown to arrest, or in any way to interfere with any 
 American citizen, and ordering hini to withdraw his men from the steamer, and 
 go away. 
 
 The marshal proposed to exhibit the mayor's warrant, under which he was 
 acting. This Mr. Borland declined to examine. After some hesitation the mar- 
 shal announced his intention to withdraw, as advised by Mr. Borland. While 
 this was going on, and before the marshal and his men had left the steamer, 
 much excitement was manifested among the men who had remained on Iward the 
 bungo ; loud threatening language was used b}- them, and l)randishing their 
 weapons, several at once rushed on board the steamer. At this moment. Mr. 
 Borland, taking a rifle from the hands of a bystander, step]ied over the railing 
 upon the guards, warned the luen in the bungo to keej) off, and at their peril not 
 to put a foot on the steamer. Upon this the movement towards boarding the 
 steamer ceased, and in a few minutes the marshal and his men returned to the 
 bungo, and she returned to the opposite side of the harbor. 
 
 About dark, Mr. Borland, accompanied by Mr. Scott, a son of the agent of the 
 Transit Company, on board of one of the boats of the Northern Light, went 
 across the harbor to San Juan, or Greytown, to visit Mr. Fabens, our commercial 
 agent. Soon after arriving there, Mr. Borland lieard that, at a meeting of the 
 people of the town, held at the station-house, presided over by the mayor, it had 
 been proposed and seemingly agreed to, that he (Mr. Borland) should be arrested. 
 In a few minutes the execution of this ])roposition was attempted. A loud knock- 
 ing was heard at the lower doors of Mr. Faliens' bouse, and upon his going to 
 ascertain the cause, a body of men, armed with muskets, consisting in part of the 
 regular police of the town, and headed by a Jamaica negro, inquired for Mr. Bor- 
 land, and declared their purpose to arrest him. 
 
 Mr. Borland, hearing this, went down stairs, confronted these men, and demand- 
 ed their business with him. Their leader informed him that thej' came, by order 
 of the mayor, to arrest him, because of his preventing the arrest of Capt. Smith. 
 Mr. Borland then repeated to them what he had said to the marshal about their 
 want of authority, &c., and inquired of them if they were not aware of his ex- 
 emption from arrest in his ca[)acity of minister of the United States. To this 
 they answered, they cared nothing for all that, but that they had come to arrest 
 him, and meant to do it. He then warned them of the serious consequences to 
 themselves and to all concerned with them, if they proceeded to the extremities 
 they i)roposed. They replied, that they knew the consequences, and were pre- 
 pared to meet them. 
 
 Mr. Borland said to them, that they must proceed at their jieril, and called 
 several gentlemen, who were in an upper room, to come down and be witnesses 
 of the threatened assault ujion him. 
 
 Upon this the leader of the armed force called Mr. Martin, (ex-mayor,) as if 
 for the purpose of consultation, and Martin not answering, they went off a little 
 from the door, in the direction where, from their manner, they expected to find 
 him. 
 
 About this time, Mr. Borland still standing at the door, the mayor (a French- 
 man) came up and said these proceedings had been without his order and an- 
 
350 FOREIGN AFFAIRS. 
 
 thority ; and, while the conversation was going on, some one from the crowd 
 threw the fragments of a broken glass bottle, which struck Mr. Borland, and 
 slightly wounded him in the face. The particular person who threw this missile 
 was not recognized, as the night was dark, and a crowd in the porch and about 
 the door. Soon after this blow was inflicted upon Mr. Borland the crowd dis- 
 persed. 
 
 Mr. Fabens, the commercial agent, procured a canoe, and passed the harbor to 
 the Northern Light, to make known to Captain Churchill and the passengers the 
 state of afiViirs on the other side. A meeting was held, at which it was agreed to 
 send a committee of three gentlemen to consult with Mr. Borland, as to the best 
 steps to be taken ; these gentlemen, with Mr. Fabens, proceeded in one of the 
 steamer's boats to the town ; but, upon approaching the shore, they were hailed 
 by a number of armed men, who fired one gun over the boat, and threatened to 
 fire into them if they attempted to land ; and this, although informed that Mr. 
 Fabens was on board, and desired to go to his consulate. Thus forcibly prevented 
 from landing, the boat returned to the Northern Light. During the night the 
 town was occupied by armed men, whose sentinels were stationed between the 
 American consulate, where Mr. Borland was, and the harbor, challenging all who 
 attempted to pass, preventing boats from landing or leaving the shore, and thus 
 keeping Mr. Borland a prisoner all night 
 
 The ne.xt morning he procured a boat and returned on board the Northern 
 Light, when he was informed by Mr. Fabens, our commercial agent, and Mr. 
 Scott, the agent of the Transit Company, of the violent and lawless disposition 
 manifested by the people of San Juan. They did not deem the persons and pro- 
 ])erty of our citizens safe from aggression, or even destruction, in the absence of 
 force sufficient to protect them, Mr. Borland, concurring in this opinion, called 
 a meeting of the passengers, and proposed to engage the servic-es of fifty men to 
 remain and afford the necessary protection, until our government, informed of 
 the stiite of affairs, should send a proper force for the purpose. 
 
 The requisite number of men volunteered, and were organized under the com- 
 mand of Crawford Fletcher, Esq., formerly from Tennessee, and now on his re- 
 turn from Cjilifornia. 
 
 Mr. Fabens. our commercial agent, has taken up his abode under their protec- 
 tion, and Mr. Borland embarked on the Northern Light, to proceed forthwith to 
 Washington, to lay this matter before the government. 
 
 The undersigned agree with Solon Borland, U. S. Minister Plenipotentiary in 
 Central America, to remain at Punta Arenas, on the harbor of San Juan del 
 Norte, as an armed guard, to be duly organized, until he can have them relieved 
 by the orders of the U. S. government. The compensation to be one hundred 
 dollars a month — a full month to be paid for, even if the service shall be of 
 shorter duration ; subsistence and quarters, and a free passage to either of the 
 ports of New York or New Orleans, at the expiration of the service ; that is to 
 say, the proportion of passage money already paid from Punta Arenas to New 
 York or New Orleans, shall be refunded. 
 
 Payment of the cash compensation to be made at the expiration of the service. 
 The purpose of this service is the protection of the U. S. commercial agent and 
 agency, and of the agent, agency, and employees of the Accessory Transit Company. 
 
 P. S. — Tn addition to the above cash compensation, fifty dollars will be paid to 
 each of the undersigned. (Signed,) Solon Borland, U. S. Minister. 
 
 George Ilosmer, Paul Brown, 
 
 Jas. B. Stringham, Eli Eiscnhartz, 
 
 John Brown, &c. &c. 
 
 INSTRUCTIONS OF THE STATE DEPARTMENT. 
 il/r. Marcy to Mr. Fabens. 
 Department of State, Washington, June 3, 1854. 
 Sir : I presume an order will be sent out by the steamer 
 which will leave New York on the 5th instant for San Juan, 
 
FOREIGN AFFAIRS. 351 
 
 to discliarge the men who were employed hy Mr. Borland for 
 the protection of the life and property of American citizens, 
 at that place. The condnct of the people there towards our 
 citizens 1ms attracted the attention of this government, and 
 will not he passed imnoticed. The inhabitants of that place 
 will be expected to make reparation for the wrongs and out- 
 rages they have committcfl. The case stated in your commu- 
 nication to this department, of the 15th ultimo, (No. 8,) pre- 
 sents a wrong wliich requires immediate reparation. As the 
 pretended authorities of the town have volunteered to protect 
 those who had stolen the property of the Accessory Transit 
 Company, when brought within the territories over Avhich 
 they assume to exercise authority, they will be held respon- 
 sible to the amount thereof, and to make due reparation 
 therefor. You will lose no time in notifying them that this 
 government will require a restoration of, or payment for, the 
 property taken to their town, and all damages sustained by 
 their outrageous conduct in preventing the company from 
 repossessing itself of it. In other respects their conduct has 
 been such towards our citizens as to require the interposi- 
 tion of this government for obtaining redress, and it is ex- 
 pected the people at that place will be prepared to make it 
 in a satisfactory manner. I shall communicate with you 
 more fully on this subject, by the opportunity which will be 
 aiforded bv the national ship about to be sent to San Juan. 
 
 I am sir, &c., W. L. MARCY. 
 
 Joseph W. Fabens, Esq., 
 
 United States Commercial Agent at San Juan de Nicaragua. 
 
 Mr. Mctrcy to Mr. Fabens. 
 Department of State, Washington, June 9, 1854. 
 
 Sir: Commander Hollins, of the United States navy, will 
 immediately proceed in a national ship to San Juan de Ni- 
 caragua, for the purpose, in part indicated, in my communi- 
 cation to you of the 3d instant. 
 
 The rumor which has just reached here embarrasses the 
 government in indicating the course which it will be proper 
 for him to pursue on arriving at that place. It is said that 
 the pretended political and civil authority at that place is 
 dissolved. Should this prove to be true, there Avill be no 
 organized body upon which a demand for redress can be 
 made, or from which a proper indenmity for injuries or in- 
 sults can be received. But the individuals who have parti- 
 cipated in the infliction of the wrongs, cannot escape from 
 
352 FOREIGN AFFAIRS. 
 
 the responsibilities resulting from the conduct of the late 
 political organization at that place. 
 
 You were instructed in my former letter, to notify the 
 jieople of San Juan to repair the injury they have caused to 
 the Accessory Transit (Jonipany, by withholding from it 
 the property which had been stolen and taken to San Juan, 
 and by protecting the persons who were guilty of the felony. 
 It is hoped that the town will have adjusted that matter to 
 the entire satisfaction of the company; and, in that way, 
 Commander Hollins will be relieved from the disagreeable 
 necessity of taking any action in regard to that subject. 
 You will, on the arrival of Commander Hollins, explain to 
 him wluit has been done in that matter. 
 
 Mr. Borland, our minister to Central America, has repre- 
 sented to this government that, while recently at San Juan, 
 he was insulted by the authorities or people of that place. 
 An indignity offered to the nation, as well as to him indi- 
 vidually, cannot be permitted to pass unnoticed. If done 
 by order of the authorities of the place, they must answer 
 for it in their assumed political character. Nothing short 
 of an apology for the outrage will save the place from the 
 infliction that such an act justly merits. It is expected that 
 this apology will be promptly made, and satisfactory assu- 
 rances given to Commander Hollins of future good conduct 
 towards the United States and public functionaries who may 
 in future be at that place. 
 
 If the outrage was committed by lawless individuals, 
 without the authority or connivance of the town, then it is 
 clearly the duty of those who exercise the civil power at 
 San Juan to inflict upon them exemplary punishment. The 
 neglect to bring them to justice is assuming on the part of 
 the nominal magistrates there, the responsibility for the 
 acts of these individuals. In such a case, not to punish is 
 an implied sanction of the acts of the transgressors. It is 
 hoped that the authorities will be prej)ared to satisfy Com- 
 mander Hollins, that they have done what was incumbent 
 on them, in the way of bringing the offenders to punish- 
 ment. 
 
 You will confer freely with Commander Hollins, and 
 furnish liim with all the information you possess in relation 
 to the condition of things at San Juan. 
 
 I am, sir, respectfully, your obedient servant, 
 
 W. L. MARCY. 
 
 Joseph W. Fabens, Esq., 
 
 U. S. Commercial Agent at San Juan del Norte. 
 
FOREIGN AFFAIRS. 353 
 
 DIFFICULTIES AT SAX JUAN DE NICARAGUA. 
 3Ir. Fabens to Mr. Maraj. 
 
 COMxMERCIAL AgENCY, U. S. A., 
 
 San Juan del Norte, Nicaragua., May 15, 1854. 
 
 Sir: I have the honor to acknowledge the receipt of flag 
 and arms of the United States for this agency, per steamship 
 "Star of the West," on the 2d of March last. 
 
 I have also to acknowledge the receipt of your dispatch, 
 dated March 22, granting me leave of absence for six weeks, 
 agreeably to my request, and it is my present intention to 
 leave per steamship "Northern Light," on or about the first 
 proximo. 
 
 Since my last dispatch, (No. 7,) of 3d March, there have 
 been some matters of difference between the people of this 
 town and the Accessory Transit Company of Nicaragua. Mr. 
 Joseph L. White, Agent of the company, left here on the 
 17th of March, without having effected any settlement of ex- 
 isting difficulties between the company and the town. Be- 
 fore leaving he gave instructions to the captains and pursers 
 of the steamship to pay no more port charges at San Juan 
 del Norte, and take no letters, or other packages, or freight 
 for, and have no communication of any nature whatever 
 with the people of said town. This proceeding on the part 
 of the company exasperated much the people of the town. 
 
 The ground taken by the company in this matter was, that 
 the territoi-y which they occupied, known as Point Arenas, 
 was held by them by virtue of their charter from Nicaragua, 
 and was a portion of that State; that their steamships did not 
 come within the jurisdiction of the municipal authorities of 
 San Juan del Norte, and were, consequently, not to be held 
 liable for any port charges levied by the authorities of that 
 town. 
 
 On the 15th of April an election of town officers was held, 
 which resulted in the choice of an administration, supposed 
 to be friendly to the Transit Company, and prepared to settle 
 all differences with the said company upon the terms set 
 forth by Mr. White while here. 
 
 But on the evening of the 5th instant a disturbance took 
 place upon the shores of the harbor, the details of which are 
 fully, and, as I believe, correctly set fortli in the accompany- 
 ing document, marked A; and on the evening of the 6th 
 instant another and more serious difficulty occurred, which 
 is correctly described in document B. The facts set forth in 
 these two protests of Mr. Scott, general agent of the Acces- 
 sory Transit Company of Nicaragua, are substantiated by 
 45 
 
354 FOREIGN AFFAIRS. 
 
 depositions taken before me of several of the employees of the 
 company. The point of contention between the parties is, 
 as will be seen, the right of jurisdiction on the part of 
 the municipal authorities of San Juan del Norte over Point 
 Arenas. 
 
 Since the occurrences described in the above named docu- 
 ments affairs have gone on quietly. On the 12th Mr. Scott 
 appeared in court, that his bail might not be forfeited, but 
 declined contesting the case, having already protested. 
 After a brief examination of the person presenting the 
 complaint, he, Mr. Scott, was discharged. The trial of 
 Sloman will take place on the 20th instant, when, as he ac- 
 knowledges the offence with which he is charged, he will 
 probably be condemned to pay a few dollars fine and costs 
 of the court. 
 
 I have brought this matter to your notice, because I believe 
 that until after affairs are arranged between the Nicaragua 
 Transit Company and the town of San Juan del Norte, or 
 until the question of sovereignty over this town and the ter- 
 ritory of Point Arenas is settled, there can be no permanent 
 tranquillity or well-being on either side. I do not appre- 
 hend that any serious disturbances Avill arise for the present, 
 but I am, nevertheless, of opinion that the frequent visits to 
 our harbor of vessels of war of the United States will exer- 
 cise a beneficial influence upon the interests of all concerned. 
 
 I am, sir, with great respect, your very obedient servant, 
 
 JOSEPH W. FABENS. 
 
 Hon. W. L. Marcy, Secretary of State 
 
 of the United States, Washington, D. C. 
 
 A. 
 
 This document is a protest of Joseph N. Scott, anient &c., settinjr forth on his 
 o.ath that on the evening of the 5th of May, about 11 o'clock, P. M., William 
 Creighton, mate of the steamer H. L. Bulwer, belonging to the Transit Company, 
 being at the company's station, at Point Arenas, observed four men loading a 
 yawl boat belonging to the company with merchandise, (consisting of flour, corn, 
 meal, &c.,) and informed deponent of the fact. These men were Robert Reed, J. 
 Magraw, and two others, all at the time or previously employees of the company. 
 Deponent immediately proceeded to the beach and hailed them to return, but 
 they took no notice of him. He then dispatched a boat with Creighton, Robert 
 BuUis, and Wm. Sloman, all employees of the company, in pursuit. The first 
 boat arrived at San Juan, where the men left her, with the excei)lion of Reed, 
 who offered some resistance, and was struck on the head by Sloman, who attempt- 
 ed to shove the boat off shore. While thus engaged, the soldiers from the station- 
 house threatened to lire on him, and thus compelled him to return to the shore 
 with the boat. In the meantime, the men who had escaped from the first boat 
 took refuge in the station house. 
 
 Soon after, Mr. Hutchinson, clerk of the Transit Company, acting under Scott's 
 orders, arrived on the spot with three men and took possession of the stolen boat. 
 In attem[)ting to shove her off shore, Hutchinson was ordered by a policeman, 
 with a musket, to stop ; but no attention being ])aid to this order, the man dropped 
 his musket and called on the crowd to assist him in taking possession of the boat 
 
FOREIGN AFFAIRS. 355 
 
 which being of the strongest party, they succeeded in doing. Hutchinson then 
 observing F. Duzman, " captain of the port of San Juan del Norte,'' called upou 
 him to deliver over the boat; agreeing at the same time to leave in his charge, 
 the merchandise until the following morning, that it might then be identified, 
 with the express understanding that this property was not to be in anj- other way 
 disposed of until such examination was made. Hutchinson, with Slom.in, Bullis, 
 and Creighton, having the three boats in charge, then left the port of San Juau 
 on their return to Point Arenas. 
 
 On the following morning, Hutchinson returned to San Juan, with Creighton, 
 to identify the property, in accordance with the agreement made with Duzman, 
 but Duzinan had not the property in charge, and said that he had handed it over 
 to the " marshal." Hutchinson then accompanied the marshal to a house, in the 
 open yard of which were some articles, said by the marslial, to he the articles in 
 question. Hutchinson seeing that the Hour and other articles taken were missing, 
 and that the wife of Magraw was apparently in charge of the goods, declined 
 making any further examination and left on his return to the point. 
 
 On the same morning, A. Sigaud, " Mayor of San Juan del Norte,'' issued a 
 warrant for the arrest of Sloman, charged with an assault and battery upon Reed, 
 which warrant was served by the " marshal.'' Sloman requested the marshal to 
 accompany him to the office of Scott, the agent of the Transit Company, who told 
 the marshal the company did not recognize the jurisdiction of the authorities of 
 San Juan, over Point Arenas, and that he should not permit the arrest of Sloman 
 except by force and under protest. The marshal then departed, but returned in 
 the afternoon with an armed force, and took Sloman, Scott protesting verbally 
 against the act at the time, and notifying the marshal of his determination to 
 send in his written protest to the authorities of San Juan, at his earliest conve- 
 nience. 
 
 B. 
 
 This document is a protest of Joseph N. Scott, agent, &c., in which he sets forth 
 on oath, that on the evening of the day in which Sloman was carried to San Juan 
 del Norte by persons claiming to be in authority there, under the protection of 
 the Mosquito flag, he (the deponent) proceeded to the said city, for the purpose 
 of obtaining Sloman's release. 
 
 While at the station-house with J. W. Fabens, commercial agent, after having 
 obtained the discharge of Sloman, under bond, he (the deponent) was declared a 
 prisoner, and held to examination on a charge preferred against him by the '' mar- 
 shal," of having, while at Point Arenas, objected to the taking of Sloman by the 
 "authorities of the city of San Juan del Norte," on the ground that the said '•au- 
 thorities" had no authority or jurisdiction over the said point. The deponent 
 was then held to bail for his appearance for trial within six days. 
 
 THE ATTEMPT TO SEIZE THE AMERICAN MINISTER. 
 3Ir. Fahens to 3Ir. Marcy. 
 
 Commercial Agency, U. 8. A., 
 San Juan del Norte, May oO, 1854. 
 
 Sir: Since my last dispatch, No. 8, dated May 15, 1854, 
 accompanying protests of the general agent of the Accessory 
 Transit Company of Nicaragua, very serious difficulties have 
 arisen, growing out of an attempt made hy the people of this 
 town to seize the person of the American minister in Cen- 
 tral America, Mr. Borland, while on his return to the United 
 States. This extraordinary measure Avas undertaken, as I 
 am informed, in consequence of the ground taken hy the 
 minister, that the people now occupying this town had no 
 
356 FOREIGN AFFAIRS. 
 
 jurisdiction over Point Arenas or the steamers of the Transit 
 Company. 
 
 You have doul)tless before this received full details of this 
 afftiir from Mr. Borland himself, and I will merely state briefly 
 the facts in the case as they fell under my own personal 
 observation. 
 
 On the evening of the 16th instant, at about the hour of 
 6 P. M., Mr. Borland arrived at my house. He informed me 
 that a native boatman had been shot upon the river by the 
 captain of the steamer in which he (Mr. B.) was a passenger; 
 that upon arriving in our harbor an armed force boarded 
 the steamer and demanded the person of the said captain; 
 that he (Mr. B.) told them they liad no authority or juris- 
 diction in the matter, and that he should not permit the 
 captain to be arrested by them. While we were conversing 
 upon this subject, information was brought by a friend that 
 the authorities of San Juan had decided upon the arrest of 
 the American Minister, and in about five minutes' time an 
 armed force of some six or seven men, mostly, it appeared, 
 Jamaica negroes, with muskets in their hands, drew up in 
 front of the consulate, and, in a very excited manner, de- 
 manded the American minister. I proceeded to the door, 
 and wliile endeavoring to learn more in detail the character 
 ot tliis movement, Mr. Borland himself came forward. He 
 spoke to the group — (at this time, in addition to the six or 
 seven men with muskets already mentioned, there were some 
 thirty or forty others, principally blacks, from Jamaica and 
 San Domingo, and all in a state of intense excitement) — in 
 a calm, dignified manner asked them if they were aware of 
 the consequences of these proceedings, &c.; to which reply 
 was made that tliey were fully aware, and liad been pre- 
 pared to die since 4 o'clock, P. M. Mr. Borland then spoke 
 to me apart, requesting me to leave immediately for the 
 steamship Northern Light, lying in the harbor at the time, 
 and, if possible, return with aid. As I left the house, in 
 obedience to this request, a fragment of a broken bottle was 
 thrown at Mr. Borland, striking him in the face, and draw- 
 ing blood therefrom. I will here add, that I never saw a 
 more infuriated mass of liuman beings than were on that 
 occasion in forcible possession of the consulate ; and so great 
 was the excitement in town against the Transit Company, 
 from the moment when the information of the death of the 
 above mentioned boatmen arrived, tliat it is my firm belief 
 that if the captain who committed the act had been delivered 
 up he would have been torn in pieces, or hung immediately, 
 without trial or examination. 
 
FOREIGN AFFAIRS. 357 
 
 When I arrived on board the Northern Light I stated the 
 case to Captain Churchill, who gave me permission to lay it 
 before the passengers. It was then decided, after mature 
 deliberation, that a committee of three should be appointed 
 to return with me to San Juan, communicate with the min- 
 ister, and agree upon the most proper course to take under 
 the circumstances. In company with this committee I set 
 out on my return to town, but on approaching the shore we 
 were ordered off. The quartermaster replied that the "con- 
 sul" was on board, and going to his house. The answer to 
 this was, "He can't land." Upon our venturing to proceed, 
 a shot was fired by one of the party above our heads, while 
 three others pointed their muskets directly into the boat. 
 We then put about and returned to the ship. It was then 
 past midnight. All this time we had been under great anx- 
 iety as to the personal safety of Mr. Borland, and it was to 
 assure ourselves upon this point that the steps last described 
 above were taken. 
 
 On the following morning, between the hours of seven 
 and eight, A. M., Mr, Borland, taking advantage of a mo- 
 mentary lull of the excitement, left the consulate for the 
 steamship, in company with Mr. E. F. Mason, an American 
 gentleman residing with me. He was received on board the 
 Northern Light with every manifestation of sympathy and 
 joy on the part of his countrymen. What followed, you are 
 doubtless aware of A consultation was subsequently held 
 at which Mr. Borland, CoL Fremont, Mr. J. N. Scott, agent 
 of the Accessory Transit Company, Capt. Churchill, and 
 myself were j^resent, and it was decided as necessary, under 
 the circumstances, to leave an armed force at Point Arenas, 
 for the protection of the Accessory Transit Company, and 
 the American interests at San Juan del Norte. Fifty men 
 were enrolled, of whom Mr. Crawford Fletcher was unan- 
 imously elected captain. These men are now on duty at 
 Point Arenas, and I am convinced that their presence at 
 that point has kept in check the violent passions of a portion 
 of the lower class of the people of this town, and prevented 
 further and yet more serious disturbances. Many rumors 
 of what was contemplated have reached me, but as I have 
 no positive proof of the matter, I defer communicating them 
 until I can do so personally. 
 
 The Northern Light sailed on the evening of the ITth in- 
 stant. On the next morning the British war steamer " Ar- 
 gus" arrived in our harbor. The people of this town, as I 
 learn, applied to the commander for an order to disperse the 
 force at Point Arenas, which he declined giving. This 
 
358 FOREIGN AFFAIRS. 
 
 vessel remained in port four clays, and then sailed for Port 
 Eoyal, in Jamaica. I did not have the pleasure of seeing 
 her commander wliile here, neither did he communicate with 
 the agent or any officer of the Transit Company, or take 
 any steps, so far as I am aware, to inform himself of the 
 American side of the affair in question. On the morning of 
 the arrival of this vessel, all the authorities of this town 
 resigned their offices, and the place remains to this time 
 without any form of government. The station-house, with 
 the arms and ammunition belonging to the town, is in pos- 
 session of the Jamaica negroes, (the same jmrties who com- 
 mitted the outrage previously spoken of) 
 
 I am of opinion that there can he no permanent peace in 
 this place, until the question of sovereignty is definitely 
 settled, and a responsible government established. 
 
 I am, sir, with great respect, your very obedient servant, 
 
 JOSEPH W. FABENS. 
 
 Hon. W. L. Marcy, 
 
 Secretary of State of the United States. 
 
 INDEMNITY FOR THE OUTRAGE SUGGESTED. 
 
 3Ir. Fahens to 3Ir. Marcy. 
 
 Commercial Agency, U. S. A. 
 San Juan del Norte, June 16, 1854. 
 
 Sir: I have the honor to acknowledge the receipt of your 
 dispatch of the 3d inst. 
 
 I am very much gratified to learn that the conduct of the 
 pcoide of this town towards our citizens, will not be passed 
 over unnoticed. 
 
 My last dispatch, dated May 30, (No. 9,) gave a brief 
 statement of affairs since the departure of the " Northern 
 Light," 17th ultimo. There is but little change to the pre- 
 sent time. Some of the aiders and abettors in the outrage 
 perpetrated upon Mr. Scott, agent of the Accessory Transit 
 Company, as well as upon Mr. Borland, United States Min- 
 ister to Central America, have escaped per British steamer 
 to Jamaica, via Navy Bay ; but I believe that the chief insti- 
 gators are yet among us. 
 
 With regard to the losses suffered by the Accessory Tran- 
 sit Company, I am of an opinion that no suitable indemnity 
 can be obtained from the parties now in possession of affairs, 
 except by taking possession of, and liolding the territory of 
 Mosquito, so called, beneath whose flag the outrages in ques- 
 tion were perpetrated. 
 
FOREIGN AFFAIRS. 359 
 
 With the hope of receiving further instruction by the na- 
 tional vessel soon to arrive, 
 
 I am, sir, very respectfully, your obedient servant, 
 
 JOSEPH W. FABENS. 
 
 P. S. — Mr. Scott, agent of the Accessory Transit Company 
 has notified me that he does not consider it advisable or safe, 
 under the circumstances, to leave Point Arenas unprotected, 
 and requests me to keep the guard now there on service 
 until the arrival of an armed vessel of the United States, 
 which request (as it is in perfect accordance with my own 
 opinion in the case) I have complied with, by giving an 
 order to Captain Fletcher, in command of the forces, to re- 
 main until the arrival of the next steamship, due here 30th 
 June, previous to which date I hope the United States vessel 
 will be here. 
 
 Very respectfullv, your obedient servant, 
 
 JOSEPH W. FABENS. 
 
 Hon. William L. Marcy, 
 
 Secretary of State, U. S. A., Washington, D. C. 
 
 ARRIVAL OF CAPTAIN IIOLLINS. 
 Mr. Fahens to 3Ir. llarcy. 
 
 United States ship Cyane, 
 Of Sa7i Juan del Norte, July 15, 1854. 
 
 Sir: ]\Iy last dispatch of 16th ult., advised you of the de- 
 tention of the armed force left by Mr. Borland at Point Are- 
 nas for an additional half month. This was done with the 
 understanding with Mr. Scott, agent of the Transit Company, 
 that if the United States government did not recognize the 
 necessity of this measure, the expenses thereof would be paid 
 by the Transit Company. The half month expired on the 
 2d inst., but as the Kew York steamship did not arrive in 
 our harbor until 3d, the men were not disbanded until that 
 day, and received in settlement pay for one day extra. 
 
 I have now the honor to acknowledge receipt of your dis- 
 patch of 9th ult., per Commander Hollins, of the United 
 States ship "Cyane," who arrived in our harbor on the 11th 
 instant.* ***** 
 
 I regret to have to say, that the proclamation of Com- 
 mander Hollins produced no eifect upon the people of the 
 town. Not one of its inhabitants paid to him the courtesy 
 
 ® Tbe passage oniUted is a repetition of the facts stated in Commander Hollins 
 dispatch of the IGth July to the Navy Department 
 
360 FOREIGN AFFAIRS. 
 
 of a visit; and no word of explanation of affairs, or remon- 
 strance against the proceedings of the United States govern- 
 ment, was forAvarded either to Commander Hollins or my- 
 self, except a brief protest from James Geddes, Esq., acting 
 vice consnl of her Britannic Majesty at Greytown, "Mos- 
 quito." 
 
 I will here mention, however, that on the occasion of the 
 outrage committed by the town, presented in my dispatch of 
 15th May, a protest from the house of A. de Barwell & Co., 
 French merchants, against the "authorities," was duly de- 
 posited on the archives of this agency, and that, on the occa- 
 sion of the subsequent outrage upon the person of Mr. Bor- 
 land, a protest of the same tenor was received from the 
 house of H. S. Wood & Son, American merchants at San 
 Juan. 
 
 Finding that no intention was manifest on the part of the 
 pe ople of the town to explain, furnish redress, or apologize 
 for their past misconduct, and that all demands and notices 
 served upon them by the United States government were 
 treated with derision and contempt, Commander Hollins pre- 
 pared his shi]) for action on the morning of the 13th instant, 
 and opened the bombardment, according to notice, at 9 
 o'clock, A. M. The report of the engagement, &c., will be 
 found in his dispatches to the Navy Department. 
 
 The considerate and generous course of Mr. Joseph N. 
 Scott, agent of the Accessory Transit Company, from the 
 time the proclamation of Commander Hollins was posted 
 until the ju-esent moment, is truly worthy of mention. In- 
 vitations were extended by him, on the part of the corapan}', 
 to the old and infirm, the women and children, as well as to 
 all who were willing to declare themselves to be friendly dis- 
 posed towards the United States, to repair on board the river 
 steamers of the Transit Company with their most valuable 
 effects. Two steamers M'ere sent to San Juan for this pur- 
 pose, the latter on the morning preceding the bombardment, 
 at which time she remained two hours at the wharf; some 
 twelve persons only availed themselves of this kind pro- 
 vision. 
 
 In view of the present condition of affairs at San Juan del 
 Norte, which seems to render my further presence at that 
 port inexpedient for the time being, and with the hope of 
 being serviceable to my fellow-citizens by proceeding to the 
 United States with Commander Hollins, I have asked and 
 obtained that officer's permission to remove, with the archives 
 of my agency and personal effects, to his ship, and hope to 
 
FOREIGN AFFAIRS. 361 
 
 have the honor of reporting myself to you at Washington 
 soon after the receipt of this dispatch. 
 
 I am^ sir, with profound respect, your very oh't serv't, 
 
 JOSEPH W. FABENS. 
 Hon. W. L. Marcy, 
 
 Secretary of State of tJie U. S. of America, 
 
 Wasliington, D. C. 
 
 INSTRUCTIONS OF THE NAVY DEPARTMENT. 
 
 Navy Department, June 12, 1851. 
 
 Sir: Enclosed herewith you will receive a copy of a com- 
 munication from the Department of State to Jose])li W. Fa- 
 bens, Esq., United States commercial agent at San Juan del 
 Norte, dated 9th of June, 1854. 
 
 Yerv respectfully vom' obedient sei-vant, 
 
 J. C. DOBBIN. 
 Commander George N. Hollins, 
 
 Commanding U. S. ship Cyane, New York. 
 
 Navy Department, June 10, 1854. 
 
 Sir: Tlie government has recently received intelligence 
 that the interests of our countrymen require the pi'csence of 
 a national vessel at San Juan or (xreytov/n, and from your 
 exi)erience in that region, and confidence in your energy and 
 prudence, and in pursuance of the wishes of the President, 
 the department has concluded to direct that you proceed 
 with the Cyane to that port so soon as she can be fully ready 
 for the cruise. 
 
 The property of the American citizens interested in the 
 Accessory Transit Company, it is said, has been unlawfully 
 detained by persons residing in Greytown. Apprehension 
 is felt that further outrages Avill be committed. Our min- 
 ister, Mr. Borland, has been treated Avith rudeness and dis- 
 respect. 
 
 You will, however, learn from llv. Fabens, commercial 
 agent at Greytown, more particularly the conduct of those 
 people, and the views of our government, which have been 
 communicated to him from the State Department. You Avill 
 consult with him freely, and ascertain the true state of the 
 facts. Now, it is very desirable that these people should be 
 taught that the United States will not tolerate these out- 
 rages, and that they have the power and the determination 
 to check them. It is, however, very much to he hoped that 
 you can effect the j^urposes of vour visit without a resort to 
 46 
 
362 FOREIGN AFFAIRS. 
 
 violence and destruction of property and loss of life. The 
 presence of your vessel will, no douLt, work much good. 
 The department rej^oses much in your prudence and good 
 sense. 
 
 Former dispatches have acquainted you with the peculiar 
 political position of tliis town, and of the relations of our 
 government to it. You will remain there no longer than you 
 may deem necessary, as it is a warm and unhealthy climate. 
 You will advise the department of your movements, and, 
 after leaving Greytown, you will touch at Pensacola and re- 
 ceive orders from Commodore Newton there if not earlier, as 
 you will constitute a part of his squadron. 
 •I am, respectfully, your obedient servant, 
 
 J. C. DOBBIN. 
 Commander George N. Hollins, 
 
 Commanding U. S. ship Cyane, Neiu York. 
 
 THE BOMBARDMENT OF GREYTOWN. 
 Commander Hollins to the Secretary of the Navy. 
 
 U. S. Ship " Cyane," 
 At Anchor, Harbor of San Juan del Norte, 
 
 Nicaragua, July 16, 1854. 
 
 Sir: I have the honor to report my arrival at this port on 
 tlie 11th instant, after a tedious passage of twenty-two days. 
 On the 28th ult., when off the "Bermudas," the "small pox," 
 in its most virulent form, made its appearance on hoard in 
 the person of one of the crew, who is now in a precarious 
 condition. The usual measures have been taken to prevent, 
 if possible, the extension of the disease, which I hope may 
 prove successful. 
 
 Immediately on my arrival I communicated with Mr. Jo- 
 seph W. Fabens, the representative of the United States at 
 this place, and delivered into his hands the dispatch for- 
 warded through me from the Hon. W. L. Marcy, Secretary 
 of the Department of State, of which I had been honored 
 with a copy. After due consultation with Mr. Fabens, I 
 learned the demand by him made, by order of the State De- 
 ])artment, upon the town of San Juan had not only been 
 treated with contempt, but threats of future violence towards 
 American citizens and property were publicly made, if an 
 opi)()rtunity should oifer. After due deliberation, it was 
 thought expedient to make a final demand upon the inhabi- 
 tants ibr an indemnity for injuries sustained by citizens of 
 the United States, and for an apology of a satisfactory char- 
 
FOREIGN AFFAIRS. 363 
 
 acter for the insult recently given to Mr. Borland, our min- 
 ister to Central America. In accordance with this decision, 
 Mr. Fahens was directed to communicate with the agents of 
 the Transit Company, and determine upon the amount of 
 indemnity commensurate with their losses, and the sum of 
 sixteen thousand [dollars] was agreed upon as the smallest 
 sum admissahle under the circumstances, which, with a pre- 
 vious demand already made of eight thousand, made the sum 
 total of twenty-four thousand dollars. From my knowledge 
 of the injuries, &c., sustained, and the future detriment to 
 the company, &c., this sum seemed to he no more than just, 
 and I directed Mr. Fahens to make a last appeal to the 
 people of San Juan, hefore decisive measures were taken. 
 This was done on the afternoon of the lltli inst., as will he 
 seen in his communication dated 12th instant, [B,] with its 
 contenl^•, in answer to mine [A] of the day preceding.* 
 
 As the result of the demand was entirely unsatisfactory 
 in my answer (C) to Mr. Fahens to his communication, I en- 
 closed him a copy of a proclamation (D) to the people of the 
 town, which was posted in the most puhlic places, and pe- 
 rused hy all. Shortly after, on the morning of the 12th, as 
 an earnest of my intentions as set forth in the proclamation, 
 at the request of Mr. Fahens, a guard of marines and sea- 
 men, under the command of Lieutenants Pickering and 
 Fauntleroy, were ordered on shore to secure the arms and 
 ammunition, as an evident disposition was existing among 
 the people to make an improper use of them, and also to 
 assist and protect Mr. Fahens and others in the removal of 
 their property. 
 
 This duty was quickly performed hy the officers of the 
 command, and the arms, &c., deposited on Point Arenas in 
 charge of the agent of the Transit Company to await future 
 disposition. At the same time foreigners generally, and 
 those favorahle to the United States, were notified that a 
 steamer would he in readiness on the morning of the day of 
 the homhardment, to convey such as were disposed to a place 
 of safety. 
 
 Commander and Lieutenant Jolly, of her Britannic Ma- 
 jesty's schooner Bermuda, at anchor in this harhor, was also 
 notified by me, in person, of my intentions on the morrow, 
 and a tender of assistance was made to him for the purpose 
 of removing any pro})erty or persons of Great Britain. This 
 ofier Avas met hy iiis communication, (D,) and responded to 
 
 ■■■ A, B and C are formal notes coverinfr the rc^ective proclamations of the U. S. 
 commercial agent and of Commander HoUins. hereinafter inserted, and marked 
 A*, B*, and D. 
 
364 FOREIGN AFFAIRS. 
 
 as in my letter (E.) Agreeable to promise a steamer was 
 sent to the town at dayliglit on the morning of the 13th, ro 
 assist such as were disposed to take advantage of the oppor- 
 tunity. A few only accepted the proffered assistance, and 
 were conveyed to Point Arenas; the majority of the inhabi- 
 tants, either from fright, or a wish to set at defiance the 
 threats made against the town, had left, or were willing to 
 remain and risk the consequences. I had hoped the show 
 of determination on the part of the ship would, at this stage 
 of the proceedings, have brought about a satisfactory ad- 
 justment of the differences in question, but a total disregard 
 'and contempt toward the government of the United States, 
 determined me to execute my threats to the letter. 
 
 At y A. M., on the morning of the 13th instant, our bat- 
 teries were opened on the town with shot and shell for three- 
 quarters of an hour, followed by an intermission of the same 
 time, when they were opened again for half an hour, fol- 
 lowed by a second intermission of three hours. At the ex- 
 piration of this interval the firing was recommenced and 
 continued for twenty minutes, when the bombardment ceased. 
 The object of these several intervals in the bombardment 
 was that an opportunity to treat and satisfactorily arrange 
 matters might be furnished the inhabitants of the town. 
 No advantage was taken of the consideration sliown them, 
 and at 4 o'clock, P. M. a command under Lieutenants Pick- 
 ering and Fauutleroy was sent on shore to complete the 
 destruction of the town by fire. The property of Mr. De 
 Barwell, a Frenchman, was directed to be exempted from 
 destruction, if possible, as I had learned he had protested 
 and held himself aloof, as far as possible, against any co- 
 operation with the towns people or pretended authorities of 
 San Juan. The town was thus destroyed for the greater 
 part in the short space of two hours. No lives were lost, 
 although an attack was made by an armed party on the 
 command of Lieutenants Pickering and Fauntleroy, but, on 
 the volley being returned, the attacking party fled. The 
 shots were returned more for the purpose of frightening than 
 destroying life, and had the desired effect. 
 
 The execution done by our shot and shells amounted to 
 the almost total destruction of the buildings, but it was 
 thought best to make the punishment of such a character as 
 to inculcate a lesson never to be forgotten by those who have 
 for so long a time set at defiance all warnings and satisfy the 
 whole world that the United States have the power and de- 
 termination to enforce that reparation and respect due them 
 as a government in whatever quarter the outrages may be 
 
FOREIGN AFFAIRS. 365 
 
 committed. The royal mail packet "Dee" arrived in the 
 harhor during tlie conflagration of the town, but left imme- 
 diately, taking with her in tow H. B. M. schooner "Bermu- 
 da," thus leaving the English subjects referred to in the 
 communication of Commander Jolly without any assistance 
 should it be required. No communication from Commander 
 Jolly of the "Bermuda" was made with the "Cyane" prior 
 to his departure, but I am informed he carried with him a 
 number of the principal participators in the outrages that 
 have been committed by the town of San Juan, and among 
 them the former mayor, a Mr. Martin. 
 
 I shall^ in accordance with the. order of the department, 
 leave this place immediately for Boston direct, being sat- 
 isfied the department will sanction this course, taking into 
 consideration the application of Mr. Fabens [F,] the present 
 unseaworthy condition of the " Cyane," and the condition 
 of the crew favorable to the development of fever by a pro- 
 tracted stay in a warm climate at this early season of the 
 year. 
 
 I have incidentally learned that the remains of Purser 
 Ashman, interred at this place some two years since, have 
 not received that attention a decent respect for the dead 
 would seem to demand, and I [have] therefore taken the 
 liberty to exhume them for transportation to the north, 
 being satisfied the step will be gratifying to the friends of 
 the deceased, and will meet with the approbation of the de- 
 partment. 
 
 Permit me to call the attention of the department to the 
 handsome and orderly manner in which the officers and 
 crew of the ship I have the honor to command have executed 
 all orders and duties assigned them during our recent diffi- 
 culties. None could have done better. 
 
 I may also refer to the attention and kindness of the 
 agents of the Transit Company towards the ship and such 
 unfortunates of San Juan as were worthy of their hospi- 
 tality and kindly offers. 
 
 Trusting the course I have pursued in relation to the af- 
 fairs of this place and my intention of proceeding direct to 
 the north may meet with the unqualified approval of the 
 department, I will bring my communication to a close, re- 
 spectfully asking orders in company with Mr. Fabens to 
 Washington, on the announcement of the arrival of the ship 
 by telegraph. 
 
 I have the honor to be, sir, very respectfully, &c., your 
 most obedient servant, GEO. N. HOLLINS, 
 
 Commander. 
 
366 FOREIGN AFFAIRS. 
 
 \_Proclamation and Corrapondencc enclosed in the foregoing Dispatch.J 
 
 A.« 
 
 Commercial Agency, U. S. A. 
 San Juan del Norle, Nicaragua, June 24, 1854. 
 
 To those now, or lately pretending to, and exercising authority in San Juan del Norte. 
 
 Gentlemen: I am instructed by the government of the United States, at Wash- 
 ington, to notify you that the said government will require of the pretended au- 
 thorities "of the town of San Juan del Norte, restoration of, or pa; ment for, the 
 property brought within the territories over which they assume to exercise au- 
 thority," as set forth in protest of Mr. Scott, general agent of the Accessory Transit 
 Company, dated May 12, 1854, "and all damages sustained by their outrageous 
 conduct in preventing the said company from re-possessing itself of it." 
 
 I do, therefore, hereby demand of you immediate restoration of the aforesaid 
 property. I am not prepared to put an estimate upon it at this moment, or to 
 name the amount of damages suffered by the Transit Companj', in consequence 
 of your outrageous conduct towards their agent and employees, while endeavoring 
 to retake possession of the same, and upon subsequent occasions connected there- 
 with. It is expected that for this, as well as for their conduct in other respects 
 towards American citizens, the people of the town will be prepared to aiford 
 redress in a satisfactory manner. There is likewise an outstanding claim of the 
 Accessory Transit Company versus the acting authorities of San Juan del Norte, 
 for the sum of eight thousand dollars, as a remuneration for the loss sustained 
 by the company in consequence of the destruction of their building on Point 
 Arenas, in the month of March, 1853, by the said acting authorities, which claim 
 was duly presented by Abraham Banker, agent of said company, on the 25th 
 June, 1853. 
 
 I am, gentlemen, your obedient servant, 
 
 JOSEPH W. FABENS, U. S. Commercial Agent. 
 
 B.* 
 
 Commercial A(;ency, United States op America, 
 
 San Juan del Norte, Nicaragua, July 11, 1854. 
 
 To those now or lately pretending to and exercising authority in and to the peoptle of 
 San Juan del Norte: 
 
 Gentlemen: On the 24th ultimo, in accordance with the instructions of the 
 government of the United States of America, I notified you that the said govern- 
 ment would require of you immediate reparation for the property belonging to 
 the Accessory Transit Company, which was stolen from the said company and 
 received by you, as specified in my letter of that date, as well as for all damages 
 suffered by their agents and employees while endeavoring to repossess themselves 
 of the same. I have now, acting in concert with Commander Hollins, of the 
 United States ship Cyane, at present in this harbor, to demand of you immediate 
 payment of the sum of sixteen thousand dollars, which has been adjudged to be 
 the proper sum for you to pay for the said property and the gross outrages per- 
 petrated by you upon the persons of American citizens, as set forth in protests of 
 Mr. Scott, of the 12lh May last — copies of which have already been served upon you. 
 
 There is likewise a claim of the Accessory Transit Company i^ersus the "Acting 
 Authorities of San Juan del Norte," for the sum of eight thousand dollars, as spe- 
 cified in my letter to you of 24th ultimo. This you will be likewise expected to 
 pay tbrlhwith. 
 
 For the indignity offered to the United States of America, in the conduct of the 
 authorities and people of this town towards their minister, Mr. Borland, while 
 recently in this place, nothing short of an apology, promptly made, and satisfac- 
 tory assurances given to Commander llollins of future good behavior on the part of 
 the said authorities and people towards the United States and her public func- 
 tionaries who may in future be here, will save the place from the infliction which 
 its late acts justly merit. 
 
 Your obedient servant, 
 
 JOSEPH W. FABENS, United States Commercial Agent. 
 
FOREIGN AFFAIRS. 367 
 
 D. 
 
 PROCLAMATION 
 
 To all me?i to whom these presents shall co7ne, or to tvhom they may concern, greeting : 
 
 Know _ye that, whereas certain gross outrages have at sundry limes been per- 
 petrated by the "authorities" (so called) and people of San Juan del Norte upon 
 the persons and property of American citizens at that place and vicinity; and 
 whereas a serious insult and indignity has been offered to the United States in the 
 conduct of the said authorities and people towards Mr. Borland, United States 
 minister to Central America, for which outrage and insult no indemnity has been 
 given, and no satisfactory reply returned to demands already made: 
 
 Now, therefore, I, George N. Hollins, commander of the United States ship-of- 
 war Cyane, by virtue of my instructions from the United States government at 
 Washington, do hereby solemnly proclaim and declare, that if the demands for 
 satisfaction in the matters above named, specified in the letter of Mr. Fabens, 
 United States commercial agent, dated 1 1th instant, are not forthwith complied 
 with, I shall, at 9 A. M. of to-morrow, 13th instant, proceed to bombard the town 
 of San Juan del Norte aforesaid, to the end that the rights of our country and 
 citizens may be vindicated, and as a guarantee for future protection. 
 
 GEORGE N. HOLLINS, Commamkr. 
 
 U. S. Ship Cyane, Harbor of San Juan del Norte, 
 
 Nicaragua^ 9 A. M., July 12, 1854. 
 
 D. 
 
 Her Majesty's Schooner Brr.muda, 
 
 Grcytown, Mosquito, July 12, 1854. 
 Sir: After due deliberation upon the communication which I this morning had 
 the honor to receive from you alongside her Majesty's schooner under my com- 
 mand, I consider it my duty to enter my most solemn protest against tlie course 
 you then intimated to me that you intended to pursue towards the city of Grey- 
 town. 
 
 The inhabitants of this city, as well as the houses and property, are entirely 
 defenceless and quite at your mercy. I do, therefore, notify you that such an act 
 will be without precedent among civilized nations, and I beg to call your attention 
 to the fact that a large amount of property of British subjects, as well as others, 
 which it is my duty to protect, will be destroyed; but the force under my com- 
 mand is so totally inadequate for this protection against the Cyane, I can only 
 enter this my protest. 
 
 I have the honor to be, sir, your obedient servant, 
 
 W. D. JOLLY, 
 Lieutenant and Commandant. 
 Commander Hollins, 
 
 United States ship-of-war Cyane. 
 
 E. 
 
 United States Ship Cyane, 
 At anchor, San Juan del Norte, Nicaragva, July 12, 1854. 
 Sir: I have the honor to acknowledge the receipt of your communication of 
 this date, and sincerely regret you should feel yourself necessitated to protest 
 against the action I am about to take in relation to the city of San Juan del Norte. 
 The people of San Juan del Norte have seen fit to commit outrages upon the 
 property and persons of citizens of the United States, after a manner only to bo 
 regarded as piratical, and I am directed to enforce that reparation demanded by 
 my government. Be assured I sympathize with yourself in the risk of English 
 subjects and property under the circumstances, and regret exceedingly the force 
 under your command is not doubly equal to that of the "Cyane." 
 I have the honor to be, sir, your obedient servant, 
 
 GEO. N. HOLLINS, Commander. 
 To W. D. JOLLY, 
 
 Lieutenant and Commander H. B. M. S. Bermuda, 
 
368 FOREiaX AFFAIRS. 
 
 F. 
 
 Point Arexas, July 14, 1854. 
 Sir: In view of the existing state of affairs at San Juan del Norte, the place 
 of my late official residence, I have the honor to inform you that my further pre- 
 sence at that port is no longer expedient or possible, and would respectfully ask 
 of you permission to remove the archives of my consulate to your ship for safe 
 keeping, and conveyance for myself, my official and personal effects to the United 
 States, that I may co-operate the more fully with yourself in placing our govern- 
 ment at Washington in possession of the details of the recent proceedings in this 
 vicinity. 
 
 I am, sir, with great respect, your very obedient servant, 
 
 JOS. W. FABENS, 
 United States Commercial Agent. 
 Gko. N. Hollins, Esq., Commander U. S. Ship Cyane, 
 
 Harbor of San Juan del Norte, Nicaragua. 
 
FOREIGN AFFAIRS. 
 
 SPAIN. 
 
 J69 
 
 MESSAGE FROM THE PRESIDENT. 
 
 To the Senate of the United States : 
 
 I hasten to respond briefly to the resolution of the Senate 
 of this date, ^; requesting the President to inform te Senate 
 f in his opinion it be not incompatible with the public^ 
 
 of Spain whidi, in h5 opinil^JlrlZ .i;:,^LS wSr^he'r 
 gestions therein contained touching tlie prop ie y^ 
 visional measures' by Congress to meet any eXency hat' 
 may arise m the recess of Congress affecting thoshehSions'' 
 
 In the message to the House of Repres?ntathVs ^"ed 
 to I availed mysell of the occasion to present the fo lowin^ 
 reflections and suggestions : ^^ ^ut ioiio\Mng 
 
 '; In view of the position of the Island of Cuba its nrov 
 
 mea uies as the exigency may seem to demand." 
 
 1 i» uuL uie lact. ihe lormal demand for immpdiifp r«T. 
 Do been^met on the part of Spain by prompt satisfaction, 
 
370 FOREIGN AFFAIRS. 
 
 has only served to call forth a justification of the local au- 
 thorities of Cuba, and thus to transfer the responsibility for 
 their acts to the Spanish government itself 
 
 Meanwhile, information, not only reliable in its nature, 
 but of an official character, was received, to the effect that 
 preparation was making within the limits of the United 
 States, by private individuals, under military organization, 
 for a descent upon the island of Cuba, with a view to wrest 
 that colony from the dominion of Spain. International 
 comity, the obligations of treaties and the express provisions 
 of law, alike required, in my judgment, that all the constitu- 
 tional power of the Executive should be exerted to prevent 
 the consummation of such a violation of positive law and of 
 that good faith on which mainly the amicable relations of 
 neighboring nations must depend. lu conformity with 
 these convictions of public duty, a proclamation was issued, 
 to warn all persons not to participate in the contemplated en- 
 terprize, and to invoke the interposition in this behalf of the 
 proper officers of the government. No provocation whatever 
 can justify private expeditions of hostility against a country 
 at peace with the United States. The power to declare war 
 is vested by the Constitution in Congress, and the experience 
 of our past history loaves no room to doubt that the wisdom 
 of this arrangement of constitutional power will continue to 
 be verified whenever the national interest and honor shall 
 demand a resort to ultimate measures of redress. Pending 
 negotiations by the Executive, and before the action of Con- 
 gress, individuals could not be permitted to embarrass the 
 operations of the one and usurp the powers of the other of 
 these depositaries of the functions of government. 
 
 I have only to add that nothing has arisen since the date 
 of my former message to " dispense with the suggestions 
 therein contained touching the propriety of provisional mea- 
 sures by Congress." 
 
 FRANKLIN PIERCE. 
 
 Washington, August I, 1854. 
 
FOREiaN AFFAIRS. 
 
 RUSSIA. 
 
 TREATY BETWEEN THE UNITED STATES OF AMERICA AND HIS 
 MAJESTY THE EMPEROR OF RUSSIA. 
 
 Signed at Washington 22d July, 18^4:. 
 
 The United States of America and 
 his Majesty the Emperor of all the Rus- 
 sias, equally animated with a desire to 
 maintain, and to preserve from all harm, 
 the relations of good understanding 
 which have at all times so happily sub- 
 sisted between themselves, as also be- 
 tween the inhabitants of their respec- 
 tive States, have mutually agreed to 
 perpetuate, by means of a formal con- 
 vention, the principles of the right of 
 neutrals at sea, which they recognise as 
 indispensable conditions of all freedom 
 of navigation and maritime trade. For 
 this purpose, the President of the United 
 States has conferred full powers on 
 William L. Marcy, Secretary of State of 
 the United States ; and his Majesty the 
 Emperor of all the Russias has con- 
 ferred like powers on Mr. Edward de 
 Stoeckl, Counsellor of State, knight of 
 the orders of Ste. Anne, of the 2d class, 
 of St. Stanislas, of the 4th class, and of 
 the Iron Crown of Austria, of the 3d 
 class, his Majesty's charge d'affiiires near 
 the Government of the United States of 
 America : and said plenipotentiaries af- 
 ter having exchanged their full powers, 
 found in good and due form, have con- 
 cluded and signed the following arti- 
 cles : 
 
 ARTICLE I. 
 
 The two high contracting parties re- 
 cognise as permanent and immutable 
 the following principles, to wit : 
 
 1st. That free ships make free goods — 
 that is to say, that the effects or goods 
 belonging to subjects or citizens of a 
 Power or State at war are free from 
 capture and confiscation when found on 
 board of neutral vessels, with the ex- 
 ception of articles contraband of war. 
 
 2d. That the property of neutrals on 
 board an enemy's vessel is not subject 
 to confiscation, unless the same be con- 
 traband of war. They engage to apply 
 these principles to the commerce and 
 navigation of all such Powers and 
 States as shall consent to adopt them on 
 their part as permanent and immutable. 
 
 Les Etats-Unis d'Amerique et sa Ma- 
 jeste I'Empereur de toutes les Russies 
 animes d'un egal desir de maintenir et 
 de preserver de toute atteinte les rap- 
 ports de bonne intelligence qui ont de 
 tout temps si heureusement subsiste en- 
 tre eux-memes, comme entres les habi- 
 tans de leurs Etats respectifs, ont resolii 
 d'un commun accord de consacrer, par 
 une convention formelle, les principes 
 du droit des neutres sur mer qu'ils re- 
 connaissent pour conditions indispensa- 
 bles de toute liberte de navigation et de 
 commerce maritime. A cet effet, le Pre- 
 sident des Etats-Unis a muni de ses pleins 
 pouvoirs le Sr. William L. Marcy Secre- 
 taire d'Etat des Etats-Unis ; et sa Ma- 
 jeste I'Empereur de toutes les Russies a 
 muni des memes pouvoirs le Sr. Edward 
 de Stoeckl, Counseiller d'Etat, chevalier 
 des orders de Ste. Anne de la 2"'« classe, 
 de St. Stanislas de la 4™ classe, et de la 
 Couronne de fer d'Autriche de la 3""= 
 classe, charge d'affaires de sa Majeste 
 prt's du gouvernement des Etats-Unis 
 d'Amerique: lesquels plenipotentiaries, 
 apres avoir echange leurs pleins pou- 
 voirs, trouves en bonne et due forme, 
 ont arrete et signe les articles suivans : 
 
 Les deux hautes parties contractantes 
 reconnaissent comme permanent et im- 
 muable le principe qui suit, savoir : 
 
 1°. Que le pavilion convre la mar- 
 chandise, (that free ships make free 
 goods,) c'est k dire, que les effets on mar- 
 chandises, qui sont la propriete des su- 
 jets ou citoyens d'une Puissance ou Etat 
 en guerre, sont exempts de capture ou 
 confiscation sur les vaisseaux neutres, 4 
 I'exception des objets contrabande de 
 guerre. 
 
 2° Que la propriete neutre, a bord 
 d'un navire ennemi, n'est pas sujette k 
 confiscation, i\ moins qu'elles ne soit 
 contrabande de guerre. EUes s'engagent 
 h. appliquer ces principes an commerce 
 et i\ la navigation de toute Puissance.'' et 
 Etats qui voudront les adopter de leur 
 cdte comme permanautes et immuables. 
 
m 
 
 FORKiaN AFFAIRR 
 
 The two high contracting parties re- 
 serve themselves to conie to an ulterior 
 understanding as circumstances may re- 
 quire, with regard to the application 
 and extension to be given, if there be 
 any cause for it, to the principles laid 
 down in. the 1st article. But they de- 
 clare from this time that they will take 
 the stipulations contained in said arti- 
 cle 1st as a rule, whenever it shall be- 
 come a question, to judge of the rights 
 of neutrality. 
 
 Les deux hautes parties contractantea 
 se rescrventde s'entendreulterieurement 
 selon que les circonstances pourront 
 I'exiger sur I'application et I'extension k 
 donner, s'il y a lieu, aux principes con- 
 venus h I'article 1. Mais elles declarant 
 des a present qu'elles prendront les 
 stipulations que renferme le dit article 
 1, pour r^gle, toutes les fois qu'il s'agira 
 d'aprecier les droits de neutralite. 
 
 ARTICLE III. 
 
 It is agreed by the high contracting 
 parties that all nations which shall or 
 may consent to accede to the rules of 
 the first article of this convention, by a 
 formal declaration stipulating to observe 
 them, shall enjoy the rights resulting 
 from such accession as they shall be en- 
 joyed and observed by the two Powers 
 signing this convention. They shall 
 mutually communicate to each other 
 the results of the steps ■which may 
 be taken on the subject. 
 
 ARTICLE ITI. 
 
 II est convenu entre les haute parties 
 contractantes que toutes les nations qui 
 voudraient consentir h acceder aux re- 
 gies contenues dans I'article P'' de cette 
 convention par une declaration formelle 
 stipulante qu'elles s'engagent a les ob- 
 server, jouiront des droits resultant de 
 cette accession comme les deux Puissan- 
 ces signataires de cette convention joui- 
 ront de ces droits et les observeront. 
 Elles se communiqueront reciproque- 
 ment le resultat des demarches qui seront 
 faites k ce sujet. 
 
 ARTICLE IV. 
 
 The present convention shall be ap- 
 proved and ratified by the President of 
 the United States of America, by and 
 with the advice and consent of the Sen- 
 ate of said States, and by his Majesty 
 the Emperor of all the Russias, and the 
 ratifications of the same shall be ex- 
 changed at Washington within the pe- 
 riod of ten months, counting from this 
 day. or sooner, if possible. 
 
 In faith whereof, the respective pleni- 
 potentiaries have signed the present 
 convention, in duplicate, and thereto 
 affixed the seal of their arms. 
 
 Done at Washington the twenty-se- 
 cond day of July, the year of Grace 
 1854. 
 
 W. L. MARCY, [l. s.] 
 
 EDWARD STOECKL. [l. s.J 
 
 La presente convention seri approu- 
 vee et ratifiee par le President des Etats- 
 Unis d'Amerique, par et avec I'avis et le 
 consentment du Senat des dits Etats, et 
 par sa Majeste I'Empereur de toutes les 
 Russies, et les ratifications, en seront 
 echangces h Washington dans I'espace 
 de dix mois, a compter de ce jour, ou 
 plus tot, si faire se pent. 
 
 En foi de quoi les plenipotentiaries re- 
 spectifs ont signe la presente convention, 
 en duplicata, et y ont appose le cachet 
 de leurs armes. 
 
 Fait a Washington, le vingt-deuxi(^me 
 de Juillet, I'an de Grace 1854. 
 W. L. MARCY, 
 EDWARD STOECKL. 
 
 KL. [l. s!J 
 
FOREIG^r AFFAIRS. 
 
 378 
 
 MEXICO. 
 
 TREATY BETWEEN THE UNITED STATES OF AMERICA AND THE 
 MEXICAN REPUBLIC. 
 
 Dated at the City of Mexico, ZMh December, 1853.— RaHfied by the President U. S. 
 29ih June, 1854. — Exchanged at Washington, ZQth June, 1854. — Proclaimedby ike 
 President U. S. 30th June, 1854. 
 
 BY THE PRESIDENT OF THE UNITED STATES OF AMERICA: 
 
 A PROCLAMATION. 
 
 Whereas, a treaty between the United States of America and the Mexican Re- 
 public, was concluded and signed at the city of Mexico, on the thirtieth day of 
 December, one thousand eight hundred and fifty-three : which treaty, as amend- 
 ed by the Senate of the United States, and being in the English and Spanish 
 languages, is word for word as follows : 
 
 In the name of Almighty God : 
 
 The Republic of Mexico and the Uni- 
 ted States of America, desiring to remove 
 every cause of disagreement which might 
 interfere in any manner with the better 
 friendship and intercourse between the 
 two countries, and especially in respect 
 to the true limits which should be estab- 
 lished, when, notwithstanding what was 
 covenanted in the treaty of Guadalupe 
 Hidalgo, in the year 1848, opposite inter- 
 pretations have been urged, which might 
 give occasion to questions of serious mo- 
 ment : to avoid these, and to strengthen 
 and more firmly maintain the peace 
 which happily prevails between the two 
 republics, the President of the United 
 States has, for this purpose, appointed 
 James Gadsden, Envoy Extraordinary 
 and Minister Plenipotentiary of the same, 
 near the Mexican government, and the 
 President of Mexico has appointed as 
 Plenipotentiary '^ad fioc" his excellency 
 Don Manuel Diez de Bonilla, cavalier 
 grand cross of the national and distin- 
 guished order of Guadalupe, and Secre- 
 tary of State, and of the office of Foreign 
 Relations, and Don Jose Salazar Ylar- 
 regui and General Mariano Monterde, as 
 scientific commissioners, invested with 
 full powers for this negotiation, who, 
 having communicated their respective 
 full powers, and finding them in due and 
 proper form, have agreed upon the arti- 
 cles following : 
 
 ARTICLE I. 
 
 The Mexican Republic agrees to desig- 
 nate the following as her true limits 
 with the United States for the future : 
 retaining the same dividing line between 
 the two Californias as already defined 
 
 En el nombre de Dios Todopoderoso : 
 
 La Repuiiblica de Mexico y los Estados 
 Unidos de America, deseando remover 
 toda causa de desacuerdo que pudiera 
 influir en algun modo en contra de la me- 
 jor amistad y correspondencia entre am- 
 bos paises,y especialmente por lo respec- 
 tivo a los verdaderos limites que deben 
 fijarse, cuando no obstante lo pactado en 
 el tratado de Guadalupe Hidalgo en el 
 ano de 1848, aun se han suscitado algu- 
 nas interpretaciones encontradas que pu- 
 dieran ser ocasion de cuestiones de grave 
 trascendencia, para evitarlas, y afirmar y 
 corroborar mas la paz que felizmente rei- 
 na entre ambas republicas, el Presideute 
 del Mexico ha nombrado (i este fin con el 
 caracter de plenipotenciario ad hoc al 
 Exmo. Sr. D. Manuel Diez de Bonilla, 
 caballero gran ceuz de la uacional y dis- 
 tinguida orden de Guadalupe, y Secre- 
 tario de Estado y del Despacho de Rela- 
 ciones Exteriores, y a los Senores D. Jose 
 Salazar Ylarregui y General D. Mariano 
 Monterde, como comisarios peritos inves- 
 tidos con plenos poderes para esta nego- 
 ciacion, y el Presidente de los Estadcs 
 Unidos a S. E. el Sr. Santiago Gadsden, 
 EnviadoExtraordinarioyMinistro Plen- 
 ipotenciario de los mismos Estados Uni- 
 dos cerca del gobierno Mexicano; quienes 
 habiendose comunicado sus respectivos 
 plenos poderes, y halladolos en buena y 
 debida forma, han conveuido en los ar- 
 ticulos siguientes : 
 
 ARTICDLO I. 
 
 La Republica Mexicana conviene en s<^ 
 galar para lo succesivo como verdaderos 
 limites con los Estados Unidos los si- 
 guientes : Subsistiendo la misma linea di- 
 visoria entre las dos Californias, tal cual 
 
374 
 
 FOREIGN AFFAIRS, 
 
 and established, according to the 5th ar- 
 ticle of the treaty of Guadalupe Hidalgo, 
 the limits between the two republics 
 shall he as follows: Beginning in the 
 Gulf of Mexico, three leagues from land, 
 opposite the mouth of the Rio Grande, as 
 provided in the 5th article of the treaty 
 of Guadalupe Hidalgo ; thence, as defi- 
 ned in the said article, up the middle of 
 that river to the point where the parallel 
 of 31° 41' north latitude crosses the 
 same; thence due west one hundred 
 miles; thence south to the parallel of 
 31° 20' north latitude ; thence along the 
 said parallel of 31° 20' to the 111th me- 
 ridian of longitude west of Greenwich ; 
 thence in a straight line to a point on 
 the Colorado river twenty English miles 
 below the junction of the Gila and Colo- 
 rado rivers ; thence up the middle of the 
 said river Colorado until it intersects 
 the present line between the United 
 States and Mexico. 
 
 For the performance of this portion of 
 the treaty, each of the two governments 
 shall nominate one commissioner, to the 
 end that, by common consent, the two 
 thus nominated, having met in the city 
 of Paso del Norte, three months after the 
 exchange of the ratifications of this 
 treaty, may proceed to survey and mark 
 out upon tile land the dividing line stip- 
 ulated by this article, where it shall not 
 have already been surveyed and estab- 
 lished by the mixed commission, accord- 
 ing to the treaty of Guadalupe, keeping 
 a journal and making proper plans of 
 their operations. For this purpose, if 
 they should judge it necessary, the con- 
 tracting parties shall be at liberty, each 
 to unite to its respective commissioner, 
 scientific or other assistants, such as 
 astronomers and surveyors, whose con- 
 currence shall not be considered neces- 
 sary for the settlement and ratification 
 of a true line of division between the 
 two republics; that line shall be alone 
 established upon which the commission- 
 ers may fix, their consent in this parti- 
 cular being considered decisive and an 
 integral part of this treaty, without ne- 
 cessity of ulterior ratification or ap- 
 proval, and without room for interpre- 
 tation of any kind by either of the par- 
 ties contracting. 
 
 The dividing line thus established 
 shall, in all time, be faithfully respected 
 by the two governments, without any 
 variation therein, unless of the ex[)ress 
 and free consent of the two, given in 
 conformity to the jjrinciples of the law of 
 nations, and in accordance with the con- 
 stitution of each country respectively. 
 
 esta ya definida y marcada conforme al 
 articulo quinto del tratado de Guadalupe 
 Hidalgo, los limites entrelas dos repiib- 
 licas seran los que siguen: Comenzando 
 en el golfo de Mexico a tres leguas de 
 distancia de la costa, frente a la desem- 
 bocadura del Rio Grande, como se esti- 
 pulo en el articulo quinto del tratado de 
 Guadalupe Hidalgo ; de alii, segun se fija 
 en dicho articulo, hasta la mitad de aquel 
 rio al punto donde la paralela de 31° 4*7'' 
 de latitud norte atraviesa el mismo rio ; 
 de alii, cien millas en linea recta al 
 oeste ; de alii, al sur a la paralela del 31° 
 20' de latitud norte ; de alii, siguiendo la 
 dicho paralela de 31° 29' hasta el Til del 
 meridiano de longitud oeste de Green- 
 wich ; de alii, en linea recta k un punto 
 en el rio Colorado, veinte millas inglesaa 
 abajo de la union de los rios Gila y Co- 
 lorado ; de alii, por la mitad del dicho rio 
 Colorado, rio arriba, hasta donde encuen- 
 tra la actual linea divisoria entre los 
 Estados Unidos y Mexico. Para la eje- 
 cucion de esta parte del tratado, cada uno 
 de los gobiernos nombrara un comisario, 
 k fin de que por comun acuerdo los dos 
 asi nombra dos, que se reuniran en la 
 ciudad del Paso del Norte, tres meses 
 despues del cange de las ratificaciones de 
 este tratado, procedan a recorrer y de- 
 marcar sobre el terreno la linea divisoria 
 estipulada por este articulo, en lo que no 
 estuviere ya reconocida y establecida por 
 la comision mixta segun el tratado de 
 Guadalupe, Uevando al efecto dLarios de 
 sus procedimientos, y levantando los 
 pianos convenientes. A este efecto, si lo 
 juzgaren necesario las partes contratan- 
 tes, podran anadir a su respective comis- 
 ario alguno 6 algunos auxiliares, bien 
 fiicultativos 6 no, como agrimensores, 
 astrdnomos, &c.; pero sin que por esto 
 su concurrencia se considere necesaria 
 para la fijacion y ratificacion como ver- 
 dadera linea divisoria entre ambas re- 
 publicas ; pues dicha linea solo sera es- 
 tablecida por lo que convengan los com- 
 isarios, reputandose su conformidad en 
 este punto como decisiva parte integrante 
 de este tratado, sin necesidad de ulterior 
 ratificacion 6 aprobacion, y sin lugar a 
 interpretacion de ningum gcnero por 
 cualqiiiera de las dos partes contra tantes. 
 La linea divisoria establecida de este 
 modo, sera en todo tiempo fielmente re- 
 si)etada por los dos gobiernos, sin permi- 
 lirse ninguna variacion en ella, sino es 
 de expreso y libre consentimiento de los 
 dos, ortorgado de conformidad con los 
 principios del derecho de gentes, y con 
 arreglo a la constitucion de cada paii 
 respectivamente. En consecuencia, lo es- 
 
FOREIGN AFFAIRS. 
 
 375 
 
 In consequence, the stipulation in the 
 5th article of the treaty of Guadalupe 
 upon the boundary line therein descri- 
 bed is no longer of any force, wherein 
 it may conflict with that here establish- 
 ed, the said line being considered annull- 
 ed and abolished wherever it may not 
 coincide with the present, and in the 
 same manner remaining in full force 
 where in accordance witli the same. 
 
 ARTICLE II. 
 
 The government of Mexico herebj' re- 
 leases the United States from all liability 
 on account of the obligations contained 
 in the eleventh article of the treaty of 
 Guadalupe Hidalgo ; and the said article 
 and the thirty-third article of the treaty 
 of amity, commerce, and navigation be- 
 tween the United States of America and 
 the United Mexican States, concluded at 
 Mexico, on the fifth day of April, 1831, 
 are hereby abrogated. 
 
 ARTICLE ui. 
 
 In consideration of the foregoing stip- 
 ulations, the government of the United 
 States agrees to pay to the government 
 of Mexico, in the city of New York, the 
 sum of ten millions of dollars, of which 
 seven millions shall be paid immediate- 
 ly upon the exchange of the ratifica- 
 tions of this treaty, and the remaining 
 three millions as soon as the boundary 
 line shall be surveyed, marked, and es- 
 tablished. 
 
 ARTICLE IV. 
 
 The provisions of the 6th and 7th ar- 
 ticles of the treaty of Guadalupe Hidalgo 
 having been rendered nugatory, for the 
 most part, by the cession of territory 
 granted in the first article of this treaty, 
 the said articles are hereby abrogated 
 and annulled, and the provisions as 
 herein expressed substituted therefor. 
 The vessels and citizens of the United 
 States shall, in all time, have free and 
 uninterrupted passage through the gulf 
 of California, to and from their posses- 
 sions situated north of the boundary line 
 of the two countries. It being understood 
 that this passage is to be by navigating 
 the gulf of California and the river Co- 
 lorado, and not by land, without the ex- 
 press consent of the Mexican govern- 
 ment ; and precisely the same provisions, 
 stipulations, and restrictions, in all re- 
 spects, are hereby agreed upon and 
 adopted, and shall be scrupulously ob- 
 served and enforced by the two con- 
 tracting governments in reference to the 
 Rio Colorado, so tar and for such dis- 
 
 tipulado en el articulo quinto del tratado 
 de Guadalupe sobre la lineadivisoriaen 
 el descrita, queda sin valor en lo que re- 
 pugne con la establecida aqui ; dandose 
 por lo mismo por derogada y anulada 
 dicha linea en la parte en que no es con- 
 forme con la presente, ;isi como perma- 
 necera en todo su vigor en la parte en 
 que tuviere dicha conformidad con ella. 
 
 ARTICULO II. 
 
 El gobierno de Mexico por este arti- 
 culo exime al de los Estados Unidos de 
 las obligaciones del articulo 1 1 del tra- 
 tado de Guadalupe Hidalgo, y dicho ar- 
 ticulo, y el 33 del tratado de amistad 
 comercio y navegacion entre los Estados 
 Unidos Mexicanos y los Estados Unidos 
 de America, y concluido en Mexico el 
 dia 5 de Abril de 1831, quedan por este 
 derogados. 
 
 ARTICULO III. 
 
 En consideracion A las anteriores esti- 
 pulaciones el gobierno de los Estados 
 Unidos conviene en pagar al gobierno de 
 Mexico, en la ciudad de Nueva York, la 
 suma de diez millones de pesos, de los 
 cuales, siete millones se pagaran luego 
 que se verifique el cange de las ratifiea- 
 ciones de este tratado, y los tres mil- 
 lones restantes tan pronto como se re- 
 conozca, marque y fije la linea divisoria. 
 
 ARTICULO IV. 
 
 Habiendose hecho en su mayor parte 
 nugatorias las estipulaciones de los arti- 
 culos sexto y septimo del tratado de 
 Guadalupe Hidalgo por la cession de ter- 
 ritorio hecha en el articulo primero de 
 este tratado, aquellos dichos articulos 
 quehan por este derogados y anulados, y 
 las estipulaciones que a continuacion se 
 espresan, substituidas en lugar de aquel- 
 las. Los buques y ciudadanos de los 
 Estados Unidos tendran en todo tiempo 
 libre y no interrumpido tr/insito per el 
 golfo de California para sus posesiones 3' 
 desne sus posesiones sitas al norte de la 
 linea divisoria de los dos paises ; enten- 
 diendose que ese triinsito se ha de hacer 
 navegando por el golfo de California y 
 per el rio Colorado, y no por tierra, sin 
 expreso consentimiento del gobierno 
 Mexicano. Y precisamente, y hajo todos 
 respectos, las mismas disposiciones, esti- 
 pulaciones y restricciones queden con- 
 venidas y adoptadas por este articulo, y 
 seran escrupulosamentc observadas y 
 bechat efectivas por los dos gobieruos 
 
376 
 
 FOREIGN AFFAIRS. 
 
 tance as the middle of that river is made 
 their common boundary line by the first 
 article of this treaty. 
 
 The several provisions, stipulations, 
 and restrictions contained in the 7th 
 article of the treaty of Guadalupe Hi- 
 dalgo shall remain in force only so far 
 as regards the Rio Bravo del Norte, be- 
 low the initial of the said boundary pro- 
 vided in the first article of this treaty : 
 that is to say, below the intersection of 
 the 31° 47' 30'^ parallel of latitude, with 
 the boundary line established by the late 
 treaty dividing said river from its mouth 
 upwards, according to the 5th article of 
 the treaty of Guadalupe. 
 
 ARTICLE V. 
 
 All the provisions of the eighth and 
 ninth, sixteenth and seventeenth articles 
 of the treaty of Guadalupe Hidalgo, shall 
 apply to the territory ceded by the Mex- 
 ican republic in the first article of the 
 present treaty, and to all the rights of 
 persons and property, both civil and 
 ecclesiastical, within the same, as fully 
 and as effectually as if the said articles 
 were herein again recited and set forth. 
 
 ARTICLE VI. 
 
 No grants of land within the territory 
 ceded by the first article of this treaty 
 bearing date subsequent to the day — 
 twenty-fifth of September — when the 
 minister and subscriber to this treaty on 
 the part of the United Slates proposed to 
 the government of Mexico to terminate 
 the question of boundarj^, will be con- 
 sidered valid or be I'ecognised by the 
 United States, or will any grants made 
 previously be respected or be consider- 
 ed as obligatory Avhich have not been 
 located and duly recorded in the ar- 
 chives of Mexico. 
 
 ARTICLE VII. 
 
 Should there at any future period 
 (v?hich God forbid) occur any disagree- 
 ment between the two nations which 
 might lead to a rupture of their relations 
 and reciprocal peace, tliey bind them- 
 selves in like manner to procure by every 
 possible method the adjustment of every 
 ditference; and should they still in this 
 manner not succeed, never will they 
 proceed to a declaration of war, without 
 having previously paid attention to what 
 has been set forth in article twenty-one 
 of the treaty of Guadalupe for similar 
 
 contratentes, con referenda al rio Colo- 
 ado por tal distancia, y en tanto que la 
 mediania de ese rio queda como su linea 
 divisoria comun por el articulo primero 
 de este tratado. Las diversas disposi- 
 cioncs, estipulaciones y restricciones con- 
 tenidas en el articulo si'ptimo del tratado 
 de Guadalupe Hidalgo, solo perraanece- 
 riin en vigor en lo relativo al Rio Bravo 
 del Norte abajo del punto inicial de dicho 
 limite estipulado en el articulo primero 
 de e5te tratado ; es decir, abajo de la in- 
 terseccion del paralelo de 31° 47' SO'' de 
 latitud con la linea divisoria establecida 
 por el reciente tratado que divide dicho 
 rio desde su embocadura arriba de com- 
 formidad con el articulo quinto del 
 tratado de Guadalupe. 
 
 ARTICOLO T. 
 
 Todas las estipulaciones de los arti- 
 culos, octavo, noveno, decimosexto y 
 decimo setimo del Tratado de Guadalupe 
 Hidalgo, se aplioaran al territorio cedido 
 por la Ilepfiblica Mexicana en el articulo 
 primero del presente tratado, y k todos 
 los derechos de persona y bienes, tanto 
 civiles como ecclesiasticos, que se encu- 
 entren dentro de dicho territorio, tan 
 plena y tan eficazmente commo si dichos 
 articulos de nuevo se insertaran e in- 
 cluyeran li la letra en este. 
 
 ARTICULO VI. 
 
 No se consideraran validas, ni se re- 
 conoceran por los Estados Unidos ningu- 
 nas concesiones de tierras en el territorio 
 cedido por el articulo primero de este 
 tratado, de fecha subsecuente al dia 
 veinte y cinco de Septiembre en que el 
 ministro y signatario de este tratado por 
 parte de los Estados Unidos propuso al 
 Gobierno de Mexico dirimir la cuestion 
 de limites ; ni tampoco se respetaran, ni 
 consideraran como obligatorias ningu- 
 nas concesiones hechas con anterioridad 
 que no hayan sido inscritas y debida- 
 raente registradas en los archives de 
 Mexico. 
 
 ARTICULO VII. 
 
 Si en lo fnturo (que Dios no permita) 
 se suscitare algun desacuerdo entre las 
 dos naciones, que pudiera Uevarlas a un 
 rompimiento en sus relaciones }' paz rc- 
 ciproca, se comprometen asi mismo a 
 procurar por todos los medios posibles 
 el allanamiento de cualquiera diferencia ; 
 y si aun de esta manera no seconsiguiere, 
 jamas se llegara a una declaracion de 
 guerra sin haber observado previamente 
 euanto en el articulo veintiuno del tra- 
 tado de Guadalupe quedd establecido 
 para scmeiantes cases, ycuyo articulo se 
 
FOREIGN AFFAIRS. 
 
 377 
 
 cases ; which article, as well as the da por reafirmado en esto tratado asi 
 twenty-second, is here reaffirmed. como el veintidos. 
 
 ARTicuLo vni. 
 Habiendo autorizado el pobierno Mex- 
 icano en 5 de Febrero de 1 S53, la pronta 
 construccion de un camino de madera y 
 de un ferro carril en el istmo de Tehaun- 
 tepec, para asegurar de una manera es- 
 table los beneficios de dicha via de comu- 
 nicacion a las personas j- ruercancias de 
 los ciudadanos de Mexico y de los Esta- 
 dos Unidos, se estipula que ninguno de 
 los dos gobiernos pondra obstaculo al- 
 guno al transito de personas y mercan- 
 cias de ambas naciones y que en ningun 
 tieinpo se impondrdn cargas por el tran- 
 sito de personas y propriedades de ciu- 
 dadanos de los Estados Unidos majores 
 que las que se impongan a las personas 
 y propiedades de otras naciones extran- 
 geras ; ni ningun interes en dicha via 
 de comunicacion 6 en sus productos, se 
 transferin'i ;i un gobierno extrangero. 
 
 Los Estados Unidos tendn'm derecho 
 de transportar por el istmo por medio de 
 sus agentes y en balijas cerradas, las 
 nialas de los Estados Unidos que no ban 
 de distribuirseen la extension de la linea 
 de comunicacion, y tambien los efectos 
 del Gobierno de los Estados Unidos y 
 sus ciudadanos que solo vayan de tran- 
 sito y no para distribuirse en el istmo 
 estartin libres de los derechos de aduana 
 11 otros, irapuestos por el gobierno Mexi- 
 cano. No se exigira a las personas que 
 atraviesen el istmo y no permanezcan en 
 el pais, pasaportes ni cartas de seguri- 
 dad. 
 
 Cuando se concluya la construccion 
 del ferro carril, el Gobierno Mexican 
 oconviene en abrir un puerto de entrada, 
 ademas del de Veracruz, en donde ter- 
 niina dicho ferro carril en el Golfo de 
 Mexico 6 ccrca de ese punto. 
 
 Los dos gobiernos celebrar/in un ar- 
 reglo para el pronto transito de tropasy 
 municiones de los Estados Unidos, que 
 este gobierno tenga ocasion de enviar de 
 una parte de su territorio a otra, situadas 
 en lados opuestos del continente. 
 
 Habiendo convenido el Gobierno Mex- 
 icano en proteger con todo su poder la 
 construccion, conservacion y seguridad 
 de la obra, los Estados Unidos de su parte 
 podran impartirle su proteccion sienipre 
 que fuere apoyado y arreglado al derecho 
 de gentes. 
 
 ARTICCLO IX. 
 
 ARTICLE nil. 
 
 The Mexican government having on 
 the 5th of FeV)ruary," 1853, authorized 
 the early construction of a plank and 
 railroad across the isthmus of Tehuante- 
 pec, and to secure the stable benefits of 
 said transit way to the persons and mer- 
 chandise of the citizens of Mexico and 
 the United States, it is stipulated that 
 neither government will interpose any 
 obstacle to the transit of persons and 
 merchandise of both nations ; and at no 
 time shall higher charges be made on 
 the transit of persons and property of 
 citizens of the United States than may 
 be made on the persons and property of 
 other foreign nations, nor shall any in- 
 terest in said transit way, nor in the 
 proceeds thereof, be transferred to any 
 foreign government. 
 
 The United States, by its agents, shall 
 have the right to transport across the 
 isthmus, in closed bags, the mails of the 
 United States not intended for distribu- 
 tion along the line of communication ; 
 also the effects of the United States gov- 
 ernment and its citizens, which may be 
 intended for transit, and not for distri- 
 bution on the isthmus, free of custom- 
 house or other charges by the Mexican 
 government. Neither passports nor let- 
 ters of security will be required of per- 
 sons crossing the isthmus and not re- 
 maining in the country. 
 
 When the construction of the railroad 
 shall be completed, the Mexican govern- 
 ment agrees to open a port of entry in 
 addition to the port of Vera Cruz, at or 
 near the terminus of said road on the 
 Gulf of Mexico. 
 
 The two governments will enter into 
 arrangements for the prompt transit of 
 troops and munitions of the United 
 States, which that government may have 
 occasion to send from one part of its 
 territory to another, lying on opposite 
 sides of the continent. 
 
 The Mexican government having 
 agreed to protect with its whole power 
 the prosecution, preservation, and secu- 
 rity of the work, the United States may 
 extend its protection as it shall judge 
 wise to it when it may feel sanctioned 
 and warranted by the public or inter- 
 national law. 
 
 ARTICLE IX. 
 
 This treaty shall be ratified, and the Este tratado sera ratiiicado, y las rati- 
 
 reepective ratifications shall be exchang- ficaciones respectivas cangeadas en la 
 
 ed at the city of Washington within the Cuidad de Washington, en el precise ter- 
 48 
 
378 FOREIGN AFFAIRS. 
 
 exact period of six months from the mino do seis meses, 6 antes si fuere posi- 
 
 date of its signature, or sooner, if possi- ble, contado ese termino desde su fecha. 
 
 ble. En fe de lo cual, nosotros los Plenipo- 
 
 In testimony whereof, we, the pleni- tenciarios de las partes contratantes lo 
 
 potentiaries of the contracting parties, hemos firmado y sellado en Mexico, el 
 
 have hereunto affixed our hands and dia treinta de Diciembre del ano de nu- 
 
 seals at Mexico, the thirtieth (30th) day estro oeiior mil, ochocientos, cincuenta 
 
 of December, in the year of our Lord y tres, trigesimo tercero de la indepen- 
 
 one thousand eight liundred and fifty- dencia, de la republica Mexicana, y sep- 
 
 three, in tlie thirty-third year of the in- tuagesimo octavo do la de los Estados 
 
 dependence of tiie Mexican republic, Unidos. 
 and the seventy-eighth of that of the 
 United States. 
 
 JAMES GADSDEN, [l. s.] MANUEL DIEZ DE BONILLA, [l. s.] 
 
 MANUEL DIEZ DE BONILLA, [l. s.J J. MARIANO MONTERDE, [l. s.] 
 JOSE SALAZAR YLARREGUI, [l. s.J JOSE SALAZAR YLARREGUI, [l. s.1 
 J. MARIANO MONTERDE. [l. s.] JAMES GADSDEN. [l. a] 
 
 And whereas the said treaty, as amended, has been duly ratified on both parts, 
 and the respective ratifications of the same have this day been exchanged at Wash- 
 ington, by William L. Marcy, Secretary of State of the United States, and Seiior 
 General Don Juan N. Almonte, Envoy Extraordinary and Minister Plenipotentiary 
 of the Mexican Republic, on the part of their respective governments: 
 
 Now, therefore, be it known that I, FRANKLIN PIERCE, President of the 
 United States of America, have caused the said treaty to be made public, to the 
 end that the same, and every clause and article thereof, may be observed and 
 fulfilled with good faith by the United States and the citizens thereof. 
 
 In witness whereof, I have hereunto set my hand, and caused the seal of the 
 United States to be affixed. 
 
 Done at the city of Washington, this thirtieth day of June, in the year 
 [seal.] of our Lord one thousand eight hundred and fifty-four, and of the 
 Independence of the United States the seventy-eighth. 
 
 FRANKLIN PIEROE. 
 By the President : 
 
 W. L. Marcy, Secretary of State, 
 
 GllEAT BRITAIN. 
 
 RECIPROCITY TREATY BETWEEN THE UNITED STATES OF AMERICA 
 AND HER BRITANNIC MAJESTY. 
 
 Concluded Uh June, 18.')4/ ratified by the United States 9th August, 1854; exchanged 
 9th September, 1854; and proclaimed lUh September, 1854. 
 
 BY THE PRESIDKXT OF THE UNITED STATES OF AMERICA. 
 
 A PROCLAMATION. 
 
 Whereas a treaty between the United States of America and her Majesty the 
 Queen of the United Kingdom of Great Britain and Ireland, was concluded and 
 signed by their respective plenipotentiaries at Washington on the 5th day of June 
 last, which treaty is, word for word, as follows: 
 
 The government of the United States being equally desirous with her Majesty 
 the Queen of Great Britain to avoid further misunderstanding between their 
 respective citizens and subjects in regard to the extent of the right of fishing on 
 the coasts of TJritish North America, secured to each by article 1 of a convention 
 between the United States and Great Britain, signed at London on the 20th day 
 of October, 1818 : and being also desirous to regulate the commerce and naviga- 
 tion between their respective territories and people, and more especially between 
 
FOREIGN APPAIHS. 379 
 
 her Majesty's possessions in North America and the United States, in such manner 
 as to render the same reciprocally beneficial and satisfactorj-, have, respectively. 
 named plenipotentiaries to confer and agree thereupon — that is to say, the Presi- 
 dent of the IJnited States of America, William L. Marcy. Secretary of State of the 
 United States, and her Majesty the Queen of the United Kingdom of Great Britain 
 and Ireland, James, Earl of Elgin and ICincardine, Lord Bruce and Elgin, a pe^r 
 of the United Kingdom, Knight of the most ancient and most nolile Order of the 
 Thistle, and governor general in and over all her Britanni(; Jlajcsty's provinces 
 on the continent of North America, and in and over the island of Prince Edward, 
 who, after having communicated to each other their respective full powers, found 
 in good and due form, have agreed upon the following articles : 
 
 Article 1. It is agreed by the high contracting parties that, in addition to the 
 liberty secured to the United States fishermen by the above-mentioned convention 
 of October 20, 1818, of taking, curing, and drying fish on certain coasts of the 
 British North American colonies therein defined, the inhaliitants of the United 
 States shall have, in common with the subjects of her Britannic Majesty, the liberty 
 to take fish of every kind, except shell-fish, on the sea-coasts and shores, and in 
 the bays, harbors, and creeks of Canada, New Brunswick, Nova Scotia, Prince 
 Edward's island, and of the several islands thereunto adjacent, without being re- 
 stricted to any distance from tlie shore, with permission to land upon the coasts 
 and shores of those colonies and the islands thereof, and also upon the Magdalen 
 islands, for the purpose of drying their nets and curing their fish ; provided that, 
 in so doing, they do not interfere with the rights of private property, or with 
 British fishermen, in the peaceable use of any part of the said coast in their 
 occupancy for the same purpose. 
 
 It is understood that the above-mentioned liberty applies solely to the sea fish- 
 ery, and that the salmon and shad fisheries, and all fisheries in rivers and the 
 mouths of rivers, are hereby reserved, exclusively, for British fishermen. 
 
 And it is further agreed, that in order to prevent or settle any disputes as to 
 the places to which the reservation of exclusive right to British fishermen, con- 
 tained in this article, and that of fishermen of the United Slates, contained in the 
 next succeeding article, apply, each of the high contracting parties, on the appli- 
 cation of either to the other, shall, within six months thereafter, appoint a com- 
 missioner. The said commissioners, before proceeding to any l)usincss, shall make 
 and subscribe a solemn declaration that they will impartially and carefully examine 
 and decide, to the best of their judgment, and according to justice and equity, 
 without fear, favor, or affection to their own country, upon all such places, as are 
 intended to be reserved and excluded from the common liberty of fishing under 
 this and the next succeeding article, and such declaration shall be entered on the 
 record of their proceedings. 
 
 The commissioners shall name some third person to act as an arbitrator or 
 umpire in any case or cases on which they may themselves differ in opinion. If 
 they should not be able to agree upon the name of such third person, they shall 
 each name a person, and it shall be determined by lot which of the two' persons 
 so named shall be the arbitrator or umpire in cases of difference or disagreement 
 between the commissioners. The person so to be chosen to be arbitrator or umpire 
 shall, before proceeding to act as such in any case, make and subscribe a solemn 
 declaration in a form similar to that which shall already have been made and 
 subscribed by the commissioners, which shall be entered on the record of their 
 proceedings. In the event of the death, absence, or incapacity of either of the com- 
 missioners, or of the arbitrator or umpire, or of their or his omitting, declining, 
 or ceasing to act as such commissioner, arbitrator, or umpire, another and diS'er- 
 ent person shall be appointed or named as aforesaid to act as such commissioner, 
 arbitrator, or umpire, in the place and stead of the person so origmally appointed 
 or named as aforesaid, and shall make and subscribe such declaration as afore- 
 said. 
 
 Such commissioners shall proceed to examine the coasts of the North American 
 provinces and of the United StJites embraced within the provisions of the first and 
 second articles of this treaty, and shall designate the places reserved by the said 
 articles from the common right of fishing therein. 
 
 The decision of the commissioners and of the arbitrator or umpire shall be given 
 in writing in each case, and shall be signed by them respectively. 
 
 The high contracting parties hereby solemnly engage to consider the decision 
 
380 FOREIGN AFFAIRS. 
 
 of the commissioners conjointly, or of the arbitrator or umpire, as the case may 
 be, as absolutely final and conclusive in each case decided upon by them or him 
 respectively. 
 
 Article 2. It is agreed by the high contracting parties that British subjects 
 shall have, in common with the citizens of the United States, the liberty to take 
 fish of every kind, except shell-fish, on the eastern sea-roasts and shores of the 
 United States north of the 36th parallel of north latitude, and on the shores of 
 the several islands thereunto adjacent, and in the bays, harbors, and creeks of the 
 said sea-coasts and shores of the United States and of the said islands, without 
 being restricted to any distance from the shore, with permission to land upon the 
 said coasts of the United States and of the islands aforesaid, for the purpose of 
 drying their nets and curing their fish ; provided that, in so doing, they do not 
 interfere with the rights of private property, or with the fishermen of the United 
 States in the peaceable use of any part of the said coasts in their occupancy for 
 the same purpose. 
 
 It is understood that the above mentioned liberty applies solely to the sea fish- 
 ery, and that salmon and shad fisheries, and all fisheries in rivers and mouths of 
 rivers, are hereby reserved exclusively for fishermen of the United States. 
 
 Article 3. It is agreed that the articles enumerated in the schedule hereunto 
 annexed, being the growth and produce of the aforesaid British colonies or of the 
 United States, shall be admitted into each country respectively free of duty : 
 
 SCHEDULE. 
 
 Grain, flour, and breadstuflfs, of all kinds; animals of all kinds; fresh, smoked, 
 and salted meats; cotton-wool, seeds, and vegetables; undried fruits, dried fruits; 
 fish of all kinds; products of fish, and of all other creatures living in the water; 
 poultry, eggs; hides, furs, skins, or tails, undressed ; stone or marble, in its crude 
 or unwroaght state; slate; butter, cheese, tallow; lard, horns, manures; ores of 
 metals, of all kinds ; coal; pitch, tar, turpentine, ashes ; timber and lumber of all 
 kinds, round, hewed, and sawed, unmanufactured in whole or in part; firewood ; 
 plants, shrubs, and trees; pelts, wool; fish oil; rice, broom-corn, and bark; gyp- 
 sum, ground or unground ; hewn, or wrought, or unwrought burr or grindstones ; 
 dye-stuffs; flax, hemp, and tow, unmanufactured ; unmanufactured tobacco; rags. 
 'Article 4, It is agreed that the citizens and inhabitants of the United States 
 shall have the right to navigate the river St. Lawrence, and the canals in Canada 
 used as the means of communicating between the great lakes and the Atlantic 
 ocean, with their vessels, boats, and crafts, as fully and freely as the sulijects of 
 her Britannic Majesty, subject only to the aime tolls and other assessmenis as now 
 are, or may hereafter be, exacted of her Majesty's said subjects ; it being understood, 
 however, that the British government retixins the right of suspending this privi- 
 lege on giving due notice thereof to the government of tlie United States. 
 
 It is further agreed, that if at any time the British government should exercise 
 the said reserved right, the government of the United Slates shall have the right 
 of suspending, if it think fit, the operation of article 3 of the present treaty, in 
 so far as the province of Canada is afi"ected thereby, for so long as the suspension 
 of the free navigation of the river St, Lawrence or the canals may continue. 
 
 It is further agreed that British subjects shall have the right freely to navigate 
 Lake Michigan with their vessels, boats, and crafts, so long as the privilege of 
 navigating the river St. Lawrence, secured to American citizens by the above 
 clause of the present article, shall continue; and the government of the United 
 States further engages to urge upon the SUxte governments to secure to the sub- 
 jects of her Britannic Majesty the use of the several State canals, on terms of 
 equality with the inhabitants of the United States. 
 
 And'it is further agreed, that no export duty, or other duty, shall be levied on 
 lumber or timber of any kind cut on that portion of the American territory in 
 the State of Maine watered by the river St. John and its tnljutaries, and floated 
 down that river to the sea, when the same is shipped to the United States from 
 the province of New Brunswick. 
 
 Article 5. The present treaty shall take effect as soon as the laws required to 
 carry it into operation shall have been passed by the Imperial Parliament of Great 
 Britain and by the Provincial Parliaments of those of the British North American 
 colonies which are affected by this treaty on the one hand, and by the Congress 
 of the United States on the other. Such assent having been given, the treaty 
 
FOREIGN AFFAIRS, 381 
 
 shall remain in force for ten years from the date at which it may come into opera- 
 tion, and further, until the expiration of twelve months after either of the high 
 contracting parties shall give notice to the other of its wish to terminate the 
 same; each of the high contracting parties being at liberty to give such notice to 
 the other at the end of the said term of ten years, or at any time afterwards. 
 
 It is clearly understood, however, that this stipulation is not intended to affect 
 the reservation made by article 4 of the present treaty, with regard to the right 
 of temporarily suspending the operation of articles 3 and 4 thereof 
 
 Article 6. And it is hereby- further agreed, that the provisions and stipulations 
 of the foregoing articles shall extend to the island of Newfoundland, so far as 
 they are applicable to that colony. But if the Imperial Parliament, the Pro- 
 vincial Parliament of Newfoundland, or the Congress of the United States, shall 
 not embrace in their laws, enacted for carrying this treaty into effect, the colony 
 of Newfoundland, then this article shall be of no effect; but the omission to make 
 provision by law to give it effect, by either of the legislative bodies aforesaid, 
 shall not in any way impair the remaining articles of this treaty. 
 
 Article 7. The present treaty shall be duly ratified, and the mutual exchange 
 ■of ratifications shall take place in "Washington within six months from the date 
 hereof, or earlier if possible. 
 
 In faith whereof, we, the respective plenipotentiaries, have signed this treaty, 
 and have hereunto affixed our seals. 
 
 Done in triplicate, at Washington, the fifth day of June, Anno Domini one 
 thousand eight hundred and fifty-four. 
 
 AY. L. MARCY. [l. s.] 
 
 ELGIN AND KINCARDINE, [l. s.J 
 
 And whereas the said treaty has been duly ratified on both parts, and the 
 respective ratifications of the same were exchanged in this city on the 9th instant, 
 by William L. Marcy, Secretary of State of the United States, and John F. 
 Crampton, Esq., her Britannic Majesty's envoy extraordinary and minister pleni- 
 potentiary to this government, on the part of their respective governments: 
 
 Now, therefore, be it known, that I, FRANKLIN PIERCI^ President of the 
 United States of America, have caused the said treaty to be made public, to the 
 end that the same, and every clause and article thereof, may be observed and ful- 
 liUed with good faith by the United States and the citizens thereof. 
 
 In testimony whereof, I have hereunto set my hand and caused the seal of the 
 United States to be afifLxed. 
 
 Done at the city of Washington, this eleventh day of September, in the 
 j SEAL.] year of our Lord one thousand eight hundred and fifty-four, and of the 
 independence of the United States the seventy-ninth. 
 
 FRANKLIN PIERCE. 
 By the President : 
 
 W. L. Marcv, Secretary of State. 
 
APPENDIX. 
 
 II. -THE TREASURY. 
 
 STATEMENTS, TABLES AND ABSTRACTS OF DOCUMENTS ANNEXED 
 
 TO THE REPORT ON FINANCES. 
 
 No. 1. 
 
 Statement of Duties, Revenues, and Public Expenditures, during the fiscal year end- 
 ing June 30, 1854, agreeably to warrants issued, exclusive of trust funds and Treas- 
 ury notes funded. 
 
 RECEIPTS. 
 
 The receipts into the treasury during the fiscal year ending June 
 30, 1854, were as follows: 
 
 From customs, vizi 
 During the quarter ending September 30, 1853 $19, '718,822 00 
 During the quarter ending December 31, 1853.. 13,587,821 27 
 
 During the quarter ending March 31, 1854 16,896,724 83 
 
 During the quarter ending June 30, 1854 14,020,822 17 
 
 $64,224,190 27 
 
 From sales of public lands, viz: 
 During the quarter ending September 30, 1853. 1,489,562 05 
 During the quarter ending December 31, 1853.. 2,223,076 39 
 
 During tlie quarter ending March 31, 1854 2,012,908 36 
 
 During the quarter ending June 30, 1854 2,745,251 59 
 
 8,470,798 39 
 
 From miscellaneous and incidental sources 854,716 54 
 
 Total receipts 73,549,705 20 
 
 Balance in the treasury July 1, 1853 21,942,892 56 
 
 Total means 95,492,597 76 
 
 EXPENDITURES. 
 
 The expenditures for the fiscal year ending June 30, 1854, exclu- 
 sive of trust funds and treasury notes funded, were as follows : 
 
 CIVIL. 
 
 Legislative, including books... $1,656,102 47 
 
 Executive 1,683,154 09 
 
 Judiciary 886,386 37 
 
 Governments in the Territories of the U. States... 186,110 86 
 
 Surveyors and their clerks, &c 134,581 95 
 
 OflScers of the mint and branches 73,675 00 
 
 Commissioner of Public Buildings, and clerk 2,750 00 
 
 Secretary to sign patents for public lands 1,500 00 
 
 Aeeifitant treasurers, and their clerks 25,124 24 
 
 Total civil 4,649,384 98 
 
 FOBEIGN INTERC0UR8K. 
 
 Salaries, outfits, and return allowances of minis- 
 ters and charges des affaires 257,035 46 
 
 Salary, outfit, and return alloVance of minister 
 resident to Turkey 12,000 QO 
 
 Salaries of secretaries of legation 15,125 76 
 
 383 
 
384 EXPENDITURES. 
 
 Salary and outfit of commissioner to reside in 
 
 China $11,454 61 
 
 Commissioner to the Sandwich Islands 12,824 14 
 
 Dragoman and assistant dragoman to Tiirliey 5,821 96 
 
 Secretary and interpreter to Chinese mission 2,250 00 
 
 Contingent expenses of all tlie missions abroad... 82,863 08 
 
 Contingent expenses of foreign intercourse 59,757 48 
 
 Salary of consul at London 1,000 00 
 
 Clerlv-hire and office-rent of consul at London 4,309 25 
 
 Clerk to legation to London 800 00 
 
 Siilary of consul at Alexandria 3,750 00 
 
 Salary o*" consul at Beyrout 125 00 
 
 Salaries of consuls at Kwang-Chow, &c., China... 15,840 90 
 
 Office-rent of consul at Basle, Switzerland 117 00 
 
 Relief and protection of American seaman 131,164 77 
 
 Intercourse with the Barbary powers 17,271 77 
 
 Interpreters, guards, and other expenses of the con- 
 sulates in the Turkish dominions 4,492 02 
 
 Compensation for certain diplomatic services 6,895 53 
 
 Payment in relation to certain French seamen 
 
 killed or wounded at Toulon, and their families.. 1,000 00 
 Awards under 15th article of treaty between the 
 
 United States and Mexico, of February 2, 1848.. 10,000 00 ^ 
 To enable the President to conclude a treaty of 
 
 peace with Mexico 64,361 7') 
 
 Contingent expenses of the late feoard of commis- 
 sioners under treaty with Mexico 4,416 64 
 
 To fulfil 3d article of treaty between the United 
 
 States and Mexico, of December 13, 1853 7,000,000 00 
 
 Expenses acknowledging services of masters and 
 crews of foreign vessels in rescuing American 
 
 citizens, &c 2,000 00 
 
 Total foreign intercourse $7,726,677 i: 
 
 MISCELLANEOUS. 
 
 Mint establishment 294,900 35 
 
 Establishing branch mint at San Francisco, Cali- 
 fornia 298,399 59 
 
 Establishing an essay office in New York 81,214 79 
 
 Compensation of half per centum to each desig- 
 nated depository 16,090 34 
 
 Contingent expenses under act for collecting, &c., 
 
 public revenue 23,766 63 
 
 Compensation to special agents to examine books, 
 
 &c., in the several depositories 2,249 60 
 
 Expenses incident to loans and treasury notes 2,916 84 
 
 Survey of the coast of the United States 186,000 00 
 
 Survey of the western coast of the United States... 150,000 00 
 
 Survey of Florida reefe and keys 30,000 00 
 
 Repairs of vessels employed on coast survey 10,000 00 
 
 Results and accounts of the exploring expedition.. 28,000 00 
 
 Fuel and quarters of ofiBcers of the army serving 
 
 on the coast survey 10,000 00 
 
 Documentary History of the United States, 5th se- 
 ries 25,435 00 
 
 To purchase 250 copies of the Statutes at Large 
 
 and Synoptical Index 8,750 <io 
 
 Expenses of codifying and revising revenue laws. 4,156 -lo 
 
 Erection of public buildings and penitentiary in 
 
 Oregon Territory 40,000 00 
 
 Public buildings in Minnesota Territory 18,982 55 
 
EXPENDITURES. 385 
 
 Library to be kept at seat of government of Wash- 
 ington Territory $1,000 00 
 
 Expenses incurred by provisional government of 
 Oregon, in defending the people of the Territory 
 
 from the Cayuse Indians 15,614 12 
 
 Payment for suppressing Indian disturbances in 
 
 Minnesota Territory 6^0 21 
 
 Paj-ment on account of Cherokee Indians in North 
 
 Carolina, per 4th section act July 29, 1848 5,566 69 
 
 Relief of the several corporate cities of the Dis- 
 trict of Columbia 31,681 04 
 
 Payment of horses and other property lost or des- 
 troyed in the military service of the United 
 
 States 1,044 44 
 
 Claims not otherwise provided for 9,059 63 
 
 Purchase, &c., of land near city of Mexico for a 
 
 cemetery 1,000 00 
 
 To aid the directors of the Washington infirmary 
 to enlarge their accommodations for sick tran- 
 sient paupers 20,000 00 
 
 Colossal statue of Washington 20,000 00 
 
 Equestrian statue of Jackson 20,000 00 
 
 Freight and transportation of group of statuary. 7,000 00 
 
 Printing obituary notices of the deceased Gen. 
 
 Taylor 3,893 12 
 
 Salaries of nine superintending and fifty local in- 
 spectors, with travelling and other expenses 82,341 44 
 
 Expenses of the Smithsonian Institution, per act 
 
 August 10, 1846 30,910 14 
 
 To supply a deficiency in the revenues of the Post 
 Office Department, per acts of March 3, 1853, 
 
 and May 31, 1854 671,695 63 
 
 To supply any deficiency in the revenues of the 
 Post Office Department, for the year ending 
 
 June 30, 1854 1,800,000 00 
 
 For mail services performed for the several depart- 
 ments of government, per 12th section act 3d 
 
 March, 1847 200,000 00 
 
 For further compensation to the Post Office De- 
 partment for the mail service performed for the 
 two houses of Congress, per act March 3, 1851.. 500,000 00 
 For a tri-monthly mail by steam vessels between 
 
 New Orleans and Vera Cruz 35,650 00 
 
 Per centage oh salaries of officers attached to coast 
 
 survey 1,527 98 
 
 Consular receipts 377 04 
 
 Expenses of collecting revenue from customs 2,705,907 76 
 
 Repayments to importers of excess of deposites for 
 
 unascertained duties 1,025,349 70 
 
 Debentures or drawbacks, bounties or allowances.. 488,485 56 
 Refunding duties on foreign merchandise imported. 29,948 70 
 
 Debentures and other charges 137,211 59 
 
 Construction and equipment of not less than six 
 
 revenue cutters 58,623 76 
 
 Salaries of special examiners of drugs and medi- 
 cines 8,459 48 
 
 Salaries of deputy surveyors of Boston, New 
 
 York, &c 831 50 
 
 Additional compensation to collectors, naval offi- 
 cers, &c 17,325 31 
 
 Additional compensation to officers and men of 
 the revenue service who served in the Pacific 
 ocean and on the coasts of California and Mexico. 5, 557 27 
 
 49 
 
386 EXPENDITURES. 
 
 Fuel and quarters for officers of the army serving 
 
 on light-house duty $3,303 01 
 
 Support and maintenance of light-houses, &c..... "758,354 29 
 
 Building light-houses, &c 556,098 08 
 
 Marine hospital establishment 292,825 69 
 
 Building marine hospitals, &c 183,874 14 
 
 Building custom-houses, &c 660,560 17 
 
 Life-boats, and other means of rendering assist- 
 ance to wrecked mariners and others, on the 
 
 coast of the United States 11,116 13 
 
 Expenses of collecting revenue from sales of pub- 
 lic lands 281,280 76 
 
 Surveys of public lands 351,390 87 
 
 Survey of mineral lands 7,016 27 
 
 Continuing survey of islands on the coast of Cal- 
 ifornia * 30,p00 00 
 
 Continuing survey of keys on the Florida coast. . 20,'000 00 
 Running and marking the northern boundary of 
 
 Iowa 2,553 08 
 
 Repayments for lands erroneously sold 39,946 65 
 
 Refunding moneys where certain lands have been 
 
 entered in Greensburg district. La 303 83 
 
 Distribution of the proceeds of the sales of public 
 
 lands 14,088 14 
 
 Debentures and other charges, (lands) 913 98 
 
 Services heretofore performed by registers and re- 
 ceivers of land offices 4,806 58 
 
 Payment of war bounty land certificates 2,592 02 
 
 Patent fund 143,319 40 
 
 Collecting agricultural statistics 1,000 00 
 
 Salaries and incidental expenses of commissioners 
 
 for settling land claims in California 114,520 74 
 
 Expenses of taking the Seventh Census 10,184 00 
 
 Public buildings, grounds, &c., in the city of 
 
 Washington 169,747 94 
 
 East and west wings of the Patent Office building. 194,834 63 
 Compensation of public gardener, gate-keepers, 
 
 laborers, &c 11,463 04 
 
 Compensation and contingent expenses of the Aux- 
 iliary Guard 12,000 00 
 
 Compensation of drawkeepers, &c., of the Poto- 
 mac bridge 1,016 83 
 
 Repairs of the Potomac and Eastern Branch 
 
 bridges 17,000 00 
 
 Bridge across the Potomac, at the Little Falls .... 19,000 00 
 
 Furnishing the President's House 24,000 00 
 
 Furnishing rooms in new wing of the Patent Of- 
 fice building 20,000 00 
 
 Completing grades in the city of Washington 2,200 00 
 
 Penitentiary in the District of Columbia 8,881 66 
 
 Support, &c., of insane paupers in the District of 
 
 Columbia 9,493 53 
 
 Support of twelve transient paupers 1,000 00 
 
 Purchase of site, and erection, &c., of an asylum 
 
 for the insane in the District of Columbia 60,000 00 
 
 To pay clerks for services performed in Chicka- 
 saw Indian business 6,187 50 
 
 Wood-cuts purchased by the Commissioner of 
 
 Patents 1,500 00 
 
 Two and three per centum to Alabama 10,194 67 
 
 Two and three per centum to Mississippi 1,876 05 
 
 Three per centum to Indiana 32,372 28 
 
 Three per centum to Missouri 8,457 63 
 
EXPENDITURES. 387 
 
 Three per centum to Illinois $49,252 23 
 
 Five per centum to Arkansas 3,271 60 
 
 Five per centum to Florida 1,065 89 
 
 Five per centum to Iowa 1,697 68 
 
 Five per centum to Louisiana 2,334 24 
 
 Five per centum to Michigan 959 51 
 
 Relief of sundry individuals 201,580 01 
 
 Sundry miscellaneous items 2,221 38 
 
 Total miscellaneous $13,531,310 33 
 
 UNDER THE DIRECTION OF THE DEPARTMENT OF THE INTERIOR. 
 
 Indian department 1,344,876 68 
 
 Pensions, military 1,147,077 74 
 
 Pensions, naval 91,016 41 
 
 Claims of the State of Virginia 296 99 
 
 Relief of sundry individuals 25,786 97 
 
 Total under Department of the Interior 2,609,054 79 
 
 UNDER THE DIRECTION OP THE WAR DEPARTMENT. 
 
 Army proper 8,747,541 18 
 
 Military academy 122,634 68 
 
 Fortifications and other works of defence 913,284 84 
 
 Armories, arsenals, and munitions of war 584,113 84 
 
 Harbors, rivers, roads, &c 956,699 85 
 
 Surveys 134,237 21 
 
 Arming and equipping militia 162,992 02 
 
 Pay of volunteers, &c 19,426 28 
 
 Relief of sundry individuals, and miscellaneous... 92,699 57 
 
 Total under the War Department 11,733,629 48 
 
 UNDER THE DIRECTION OF THE NAVY DEPARTMENT. 
 
 Pay and subsistence, including medicines, &c 3,928,192 42 
 
 Increase, repairs, ordnance and equipments 2,139,534 67 
 
 Contingent expenses 566,211 68 
 
 Navy-yards 948,032 57 
 
 Hospitals 56,193 31 
 
 Magazines 3,677 13 
 
 Steam mail service 1,534,769 14 
 
 Relief of sundry individuals, and miscellaneous... 1,229,619 91 
 
 Marine corps 361,962 06 
 
 Total under the Navy Department 10,768 192 89 
 
 PUBLIC DEBT. 
 
 Interest on the public debt, including treasury 
 
 notes 3,071,016 60 
 
 RedemptLon of stock loan of 1842 2,813,769 62 
 
 Do do 1843 1,397,831 35 
 
 Do do 1846 2,283,435 59 
 
 Do do 1847 7,899,950 00 
 
 Do do 1848 2,656,958 20 
 
 Redemption of Texan indemnity stock 520,000 00 
 
 Redemption of debt contracted by the cities of 
 
 Washington, Georgetown, and Alexandria 712,800 00 
 
 Premium, &c., on stock redeemed 2,901,668 69 
 
 Reimbursement of treasury notes, under acts prior 
 
 to July 22, 1846, paid in specie 150 00 
 
 Reimbursement of treasury notes, per act of July 
 
 22. 1846, paid in specie 100 00 
 
 24,347,680 14 
 
388 PUBLIC DEBT. 
 
 Deduct repayments under heads where there were 
 no expenditures, or where the amount of re- 
 payments exceeded the expenditures Sll,299 48 
 
 Total public debt $24,33tJ,380 6G 
 
 Total expenditures 75,354,630 2G 
 
 Balance in the treasury July 1, 1854 20,137,967 50 
 
 No. 2. 
 
 Receipts and expenditures for the quarter ending September 30, 1854, exclusive of 
 
 trust funds. 
 
 RECEIPTS. 
 
 From customs $18,639,798 45 
 
 From sales of lands 2,731,654 12 
 
 From miscellaneous and incidental sources 149,850 28 
 
 21,521,302 85 
 
 EXPEyOITURBS. 
 
 Civil — miscellaneous and foreign intercourse 5,456,081 01 
 
 Expenses of collecting revenue from customs 683,319 75 
 
 Expenses of collecting revenue from lands 102,348 55 
 
 Interior — pensions $735,442 74 
 
 Indian department 1,440,294 39 
 
 2,175,737 13 
 
 "War— army proper, &c 2,972,605 10 
 
 fortifications, ordnance, &c 394,434 82 
 
 3,367,039 92 
 
 Navy 2,508,791 09 
 
 Redemption of stock, loan of 1842 229,500 00 
 
 Redemption of stock, loan of 1843 25,500 00 
 
 Redemption of stock, loan of 1846 242,600 00 
 
 Redemption of stock, loan of 1847 841,450 00 
 
 Redemption of stock, loan of 1848 172,550 00 
 
 Redemption of Texan indemnity stock 90,000 00 
 
 Redemption of debt contracted by the corporate 
 
 cities of Washington, Georgetown, and Alex- 
 andria 1,200 00 
 
 Premium on stock redeemed 219,315 50 
 
 Interest on the public debt 53,897 67 
 
 1,876,013 17 
 
 16,169.330 62 
 
 No. 3. 
 
 Public Debt of the United States, July 1, 1853. 
 
 Loan of 1842 $8,022,277 54 
 
 Loan of 1843 3,18.5,531 35 
 
 Loan of 1846 4,939,5,39 71 
 
 Loan of 1847 24,703,6.50 00 
 
 Loan of 1848 15,540,050 00 
 
 Te.xan indemnity 5.000,000 00 
 
 Texan indemnity not issued 5,000,000 00 
 
PUBLIC DEBT. — TONNAGE. 389 
 
 Old funded and unfunded debt $114,118 54 
 
 Treasury notes outstanding: 115,461 64 
 
 Debt of corporate cities of the District of Columbia V20,000 00 
 
 67,340,628 78 
 
 No. 4. 
 
 Public Debt of the United Stales, July 1, 1854. 
 
 Lo.in of 1842 $5,217,420 81 
 
 Loan of 1843 27,900 00 
 
 Loan of 1846 2,647,213 26 
 
 Loan of 1847 16,745,350 00 
 
 Loan of 1848 12,889,741 80 
 
 Texan indemnity 4,480,000 00 
 
 Texan indemnity not issued 5,000,000 00 
 
 Old funded and unfunded debt 114,118 54 
 
 Treasury notes outstanding: 113,201 G4 
 
 Debt of the corporate cities of the District of Columbia 7,200 00 
 
 47,242,206 05 
 
 Interest paid during the fiscal year upon the public debt out- 
 
 st.'inding June 30, 1854 *2, 717,140 15 
 
 Amount of stock redeemed during the fiscal year ending June 30, 
 
 1854 20,098,422 73 
 
 Amount of premium paid on stock redeemed during the year 2,991,668 69 
 
 Amount of interest paid on stock redeemed during the year *353,876 54 
 
 No. 5. 
 
 Principal, premium, and interest, paid of the public debt, from July 1 to November 
 20, 1854, and amount outstanding Novemtjer 20, 1854. 
 
 Loan. Principal. Premium. Interest. Outstanding. 
 
 1842 $394,250 00 $46,720 00 $7,577 93 $4,823,170 81 
 
 1843 25,500 00 637 50 2,400 00 
 
 1846 379,200 00 11,976 00 6,172 86 2,268,013 26 
 
 1847 1,035,000 00 177,175 00 18,434 44 15,710,500 00 
 
 1848. 313,150 00 53,009 00 6,951 80 12,576,591 80 
 
 Texan indemnity 116,000 00 7,680 00 1,614 93 4,364,000 00 
 
 Texan indemnity not issued 5,000,000 00 
 
 Old funded and unfunded 
 
 debt 114,118 54 
 
 Treasury notes 50 00 4 05 113,061 64 
 
 Debt of corporate cities 3,600 00 500 00 *3,600 00 
 
 2,266,750 00 296,560 00 40,893 51 44,975,456 06 
 
 No. 6. 
 rhe Tonnage of the United States, from 1789 to 1854. 
 
 Years. Registered. Enrolled and licensed. Total. 
 
 Eec.Sl, 1789 123,893 77,669 201,503 
 
 1790 346,254 132,128 274,377 
 
 1791 363,110 139,036 502,146 
 
 1792 411,438 153,019 564,457 
 
 1793 367,734 153,030 520,764 
 
 1794 438,363 189,755 628,613 
 
 * Of this amount $2,800 is for principal, and the balance for premium and interest. 
 
390 TONNAGE. 
 
 No. 6 — Continued. 
 
 Years. Registered. Enrolled and licensed. Total. 
 
 Dec. 31,1795 529,471 218,494 747,965 
 
 1796 576,733 255,166 831,899 
 
 1797 597.777 299,136 876,913 
 
 1798 603,376 294,952 898,328 
 
 1799 662.197 277,212 939,409 
 
 1800 669.921 302,571 972,492 
 
 1801 632,907 314,670 947,577 
 
 1802 560.380 331,724 892,104 
 
 1803 597^157 352,015 949,172 
 
 1804 672,530 369,874 1,042,404 
 
 ' 1805 749,341 391,027 1,140,368 
 
 1806 808,265 400,451 1,208,716 
 
 1807 848,307 420.241 1,268,548 
 
 1808 769,054 473,542 1,242,596 
 
 1809 910,059 440,222 1,350,281 
 
 1810 984,269 440,515 1,424,784 
 
 1811 768,852 463,650 1,232,502 
 
 1812 760,624 509,373 1,269,997 
 
 1813 674.853 491,776 1,166,629 
 
 1814 674,633 484,577 1,159,201 
 
 1815 854,295 513,833 1,368,128 
 
 1816 800.760 571,459 1,372,219 
 
 1817 809,725 590,187 1,399,912 
 
 1818 606.089 619,096 1,225,185 
 
 1819 612,930 647,821 1,260',751 
 
 1820 619,048 661,119 1,280,167 
 
 1821 619,896 679,062 1,298,958 
 
 1822 628,150 696,549 1,324,699 
 
 1823 639.921 696,645 1,336,566 
 
 1824 669!973 719,190 1,389,163 
 
 1825 700'788 722,324 1,423,112 
 
 1826 739,978 796,213 1,534,191 
 
 1827 747,178 873,438 1,620,608 
 
 ' 1828 812,613 928,773 1,741,392 
 
 1829 650.143 610,655 1,260,798 
 
 1830 576,475 615,301 • 1,191,776 
 
 1831 620,453 647,395 1,267,847 
 
 1832 686,990 752,460 1,439,450 
 
 1833 750,027 856,124 1,606,151 
 
 1834 857,438 901,469 1,758,907 
 
 Sept.30, 1835 885,821 939,119 1,824,940 
 
 1836 897,775 984.328 1,882,103 
 
 1837 810,447 1,086,237 1,896,684 
 
 1838 822,592 1,173,048 1,995,640 
 
 1839 834,245 1,262,234 2,096,479 
 
 1840 899,765 1,280,999 2,180,764 
 
 1841 945.803 1,184,941 2,130,744 
 
 1842 975,359 1,117,032 2,092,391 
 
 Jaue30, 1843 1,009,305 1,149,298 2,158,603 
 
 ' 1844 1,068,765 1,211,330 2,280,095 
 
 1845 1,095,172 1,321,830 2,417,002 
 
 1846 1,130.286 1,431,798 2,562,084 
 
 1847 1.241,313 1,597,733 2,839,046 
 
 1848 1^360,887 1,793,155 3,154,042 
 
 1849 1,438.942 1,895,074 3,334,016 
 
 18.50 1,58.5,711 1,949,743 3,535,454 
 
 1851 1,726,307 2,046,132 3,772,439 
 
 1852 6.899,448 2,238,992 4,138,440 
 
 1853 2,103,674.20 2,303.336.23 4,407,010.43 
 
 1854 233,819.16 2,469,083.47 4,802,902.63 
 
EXPORTS AND IMPORTS. 391 
 
 Na 7. 
 
 Gross value of Exports and Imports from the heginmrtg of the Government to the 
 
 30ih of Juney 1854 
 
 EXPORTS. 
 
 Years ending : Domestic pro- Foreign mer- Total. Imports 
 
 duce. chandise. total. 
 
 Sept. 30, 1790 $19,666,000 $539,156 $20,205,156 $23,000,000 
 
 1791 18,500,000 512,041 19,012,041 29,200,000 
 
 1'792 19,000,000 1,753,098 20,753,098 31,500,000 
 
 1793 24,000,000 2,109,572 26,109,572 31,100,000 
 
 1794 26,500,000 6,526,233 33,020,233 34,600,000 
 
 1795 39,500,000 8,489,472 47,989,472 69,756,268 
 
 1796 40,764,097 26,300,000 67,064,097 81,436,164 
 
 1797 29,850,206 27,000,000 56,850,206 75,379,406 
 
 1798 28,527,097 33,000,000 61,527,097 68,551,700 
 
 1799 33,142,522 45,523,000 78,665,522 79,069,148 
 
 1800 31,840,903 39,130,877 70,971,780 91,252,768 
 
 1801 47,473,204 46,642,721 94,115,925 111,363,511 
 
 1802 36,708,189 35,774,971 72,483,160 76,333,333 
 
 1803 42,205,961 13,594,072 55,800,033 64,666,666 
 
 1804 41,467,477 36,231,597 77,699,074 85,000,000 
 
 1805 42,387,002 53,179,019 95,566,021 120,600,000 
 
 1806 41,253,727 60,283,236 101,536,963 129,410,000 
 
 1807 48,699,592 59,643,558 108,343,150 138,500,000 
 
 1808 9,433,546 12,997,414 22,430,960 56,990,000 
 
 1809 31,405,702 20,797,531 52,203,233 59,400,000 
 
 1810 42,366,675 24,391,295 66,657,970 85,400,000 
 
 1811 45,294,043 16,022,790 61,316,833 53,400,000 
 
 ■812 30,032,109 8,495,127 38,527,236 77,030,000 
 
 1813 25,008,132 2,847,865 27,855,997 22,005,000 
 
 1814 6,782,272 145,169 6,927,441 12,965,000 
 
 1815 45,974,403 6,583,350 52,557,753 113,041,274 
 
 1816 64,781,896 17,138,156 81,920,452 147,103,000 
 
 1817 68,313,500 19,358,069 87,671,560 99,250,000 
 
 1818 73,854,437 19,426,696 93,281,133 121,750,000 
 
 1819... ..« 50,976,838 19,165,683 70,142,521 87,125,000 
 
 1820 51,683,640 18,008,029 69,691,669 74,450,000 
 
 1821 43,671,894 21,302.488 64,974,382 62,585,724 
 
 1822 49,874,079 22,286,202 72,160,281 83,241,541 
 
 1823 47,155,408 27,543,622 74,699,030 77,579,207 
 
 1824 50,649,500 25,337,157 75,986,657 80,549,007 
 
 1825 66,944,745 32,590,643 99,535,388 96,340,075 
 
 1826 53,055,710 24,539,612 77,595,322 84,974,477 
 
 1827 58,921,691 23,403,136 82,324,827 79,484,068 
 
 1828 50,669,669 21,595,017 72,264,686 88,509,824 
 
 1829 55,700,193 16,658,478 72,358,671 74,492,527 
 
 1830 59,462,029 14,387,479 73,849,508 70,876,920 
 
 1831 61,277,057 20,033,526 81,310,583 103,191,124 
 
 1832 63,137,470 24,039,473 87,176,943 101,029,266 
 
 1833 70,317,698 19,822,735 90,140,443 108,118,311 
 
 1834 81,024,102 23,312,811 104,336,973 126,521,332 
 
 1835 101,189,082 20,504,495 121,693,577 149,895,742 
 
 1836 106,916,680 21,746,360 128,663,040 189,980,035 
 
 1837 95,564,414 21,854,962 117,419,376 140,989,217 
 
 1838 90,033,821 12,452,795 108,486,616 113,717,404 
 
 1839 103,533,891 17,494,525 121,028,416 162,092,132 
 
 1840 113,895,634 18,190,312 132,085,946 107,141,519 
 
 1841 106,382,722 15,469,081 121,851,803 127,946,177 
 
 1842 92,969,996 11,721,538 104,691,534 100,162.087 
 
 1843 77,793,783 6,552,697 84,346,480 64,7531799 
 
 1844 99,715,179 11,484,867 111,200,040 108,435,035 
 
392 EXPORTS AND IMPORTS. 
 
 No. 7 — Continued. 
 
 EXPORTS. 
 
 Years ending : Domestic pro- Foreign mer- Total. Importg — 
 
 duce. chandise. total. 
 
 Sept 30, 1845 $99,299,776 $15,346,830 $114,646,606 $117,254,564 
 
 1846 102,141,893 11,346,623 113,488,516 121,691,797 
 
 1847 150,637,464 8,011,158 158,648,622 146,545,0.38 
 
 1848 132,904,121 21,128,010 154,032,131 154,998,928 
 
 1849 132,666,955 13.088,865 145,755,820 147,857,439 
 
 1850 136,946,912 14^951,808 151,898,720 178,138,318 
 
 1851 196,689,718 21,698,293 218,388,011 216,224,932 
 
 1852 192,368,984 17,289,382 209,658,366 212.945,442 
 
 1853 213.417,697 17.558,460 230,976,157 267i978,647 
 
 1854 253!390,870 24^850,194 278,241,064 304,562,381 
 
 4,573,714,067 1,321,203,831 5,894,917,898 6,721432,934 
 
 Note. — Prior to 1821, the Treasury reports did not give the value of .mports. 
 To that period their value, and also the value of domestic and foreign exports, 
 
 have been estimated from sources believed to be authentic. From 1821 to 1854, 
 inclusive, their value has been taken from official documents. 
 
RECEIPTS AND EXPENDITURES. 
 
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396 THE TARIFF. 
 
 No. 10. — Abstract. 
 
 The following articles, used in the manufactures and arts, or medicinally, and 
 now paving duties from 5 to 40 per cent., (as stated in No. 11,) are recommended 
 by the Secretary for free admission : 
 
 Acids, boracic, citric, tartaric; alum; amber; ambergris; angora, or thibet. and 
 other goat's hair or mohair ; annato, rocou, or Orleans ; animal carbon, (bone black ;) 
 antimony, crude, or regulus of; argol, or crude tartar; arsenic; asphaltum; 
 barks; barytes, sulphate, (ground ;) barilla, or soda ash; bells, old and bell met- 
 al, none; berries, nuts, and vegetables; berries, flowers, and barks ; bismuth, (un- 
 der ores ;) bleaching powder; blue or Roman vitriol, or sulphate of copper; 
 borax ; brass, in liars, pigs, plates, or sheets ; brass, when old and fit only to be re- 
 manufactured ; Brazil wood, Brazilletto, and all other dyewoods in sticks ; brecia, 
 f none ,) brimstone, unrefined or in rolls ; bristles ; bronze liquor, (none ;) bronze pow- 
 aer; burr-stones ; cadmium, (none ;) calamine ; cameos and mosaics, not set ; cassia 
 buds ; chalk ; clay, wrought or unwrought; cobalt; cochineal ; cocoa and cocoa 
 shells; codilla, or tow of hemp or flax ; copper, in pigs, bars, plates, or sheets; 
 copper, when old and fit only to be remanufactured ; copper for sheathing ves- 
 sels, (free in part;) copper, or green vitriol, or sulphate of iron ; cork-tree bark; 
 cream of tartar ; cudbear, vegetable ; chromate, bichromate, hydriodate, and prus- 
 siate of potash; diamonds, gems, pearls, rubies, and other precious stones and 
 imitations thereof, set and not set ; dragon's blood ; emery in lump, not pulver- 
 ized ; extract of indigo ; extract and decoctions of logwood and other dyewoods ; 
 extract of madder; flaxseed; flints; fuller's earth; furs, dressed or undressed, 
 when on the skin; furs, hatters', dressed or undressed, not on the skin; gamboge; 
 gold-beater's skin ; gums : arable, 10 per cent. — Barbary, none — East India, none— 
 Jedda, 10 per cent. — Senegal, 10 per cent.-^substitute, 10 per cent. — tragacanth, 
 10 per cent. ; gutta percha, unmanufactured ; hair of all kinds, uncleaned and un- 
 manufactured ; horus, horn-tips, bones, bone-tips, and teeth, unmanufactured ; 
 India rubber, in bottles, slabs, or sheets, unmanufactured ; India rubber, milk of, 
 (none;) indigo; iridium; ivory, unmanufactured ; ivory nuts, or vegetable ivory; 
 kelp; kermes ; lac-dye; lac-spirits; lastings for shoes, slippers, boots, and buttons, 
 exclusively; lemon juice; lime juice; linseed ; madder, ground, and madder root; 
 manganese; manufactures of mohair cloth, silk, twist, or other manufactures of 
 cloth suitable for the manufacture of shoes, boots, bootees, or buttons, exclusive- 
 ly; marble, in the rough slab or block, unmanufactured; marine coral, unmanu- 
 factured ; moss and other vegetable substances used for mattresses ; natron, (none;) 
 nickel ; nutgalls ; ochres and ochrey earths, whether dry or in oil ; medicinal 
 roots, leaves, gums, and resins, in a crude state; paving stones and tiles, roofing 
 tiles, and bricks; oils, palm, cocoanut, and olive; olive when pure and not other- - 
 wise; orpiment (and realgar) — arsenic; osier, or willow, prepared or unprepared; 
 palm-leaf, unmanufactured ; pearls, set and not set, and mother of pearl ; pewter, 
 when old and fit only to be remanufactured; plumbago, or graphite; polishing 
 stones ; pumice and pumice stones ; patent mordant ; quicksilver ; rags, of whatever 
 material; ratans and reeds, unmanufactured; rottenstone; red and white lead, 
 and litharage and sugar of lead; safflower ; saffron and saffron cake; sal amomo- 
 nia; saltpetre, or nitrate of soda or potash, refined, or crude; seedlac; shellac; 
 silk, raw not more advanced in mauufivcture than singles, tram, or organzine ; 
 skins and hides, raw of all kinds, whether dried, salted, or pickled; smalts; 
 sheathing metal ; sheathing paper ;. seeds of all kinds ; slates and slate pencils ; 
 sponges ; steel in bars, cast, shear, or German ; substances expressly used for 
 manures; sumac; tallow, marrow, and all other grease, and soap stocks and soap 
 stuffs ; terne tin plates ; terra japonica, or catechu ; tin foil ; tin in jil.ates or sheets ; 
 tin plates, galvanized ; tin in pigs, bars, or blocks ; tortoise and other shells, un- 
 manufactured ; turmeric ; type metals, and old types fit only to be manufactured ; 
 watch materials of all kinds ; waste or shoddy ; weld ; whiting, or Paris white ; 
 woad, or pastel; woods, namely, cedar, lignumvitw, ebony, box, granadilla, ma- 
 hogany, rosewood, satinwood, and all cabinet woods ; wool, costing less than ten 
 cents per pound ; zinc, spelter, or teuteneque, in sheets or pigs. 
 
 As articles of general tise and consumption. — Anchovies; animals, living; books, 
 magazines, pamphlets, periodicals, and illustrated newspapers, bound or un- 
 bound, being editions printed prior to the year 1830; coffee, from whatever coun- 
 try imported ; earthen and stone ware : engravings and etchings or plates, bound 
 
THE TARIFF. 397 
 
 or unbound ; fruit, green, ripe, dried, preserved or pickled ; green turtle ; pearl or 
 hulled barley ; marble, manufactures of; music and music paper, with lines, 
 bound or unbound ; salt of all kinds ; spices of all kinds ; tea, from whatever 
 country imported ; watches ; wines of all kinds ; sardines j sago ; tapioca ; vanilla 
 beans. 
 
 Articles viewed in the light of machinery. — Bolting cloths; burr-stones, wrought 
 orunwrought; chronometers, box or ships', and parts thereof; diamonds, gla- 
 ziers', set or not set; machinery exclusively designed and expressly imported for 
 the manufacture of flax and linen goods ; maps and charts. 
 
 Principally as medicine. — Aloes ; alcornoque ; aniseed ; arrow-root ; asafoetida • 
 bitter apples; boucha leaves; burgundy pitch; calomel and other mercurial pre- 
 parations; camphor, crude ; cantharides ; castorum; cubebs ; ginger, green, ripe, 
 dried, preserved, or pickled ; ipecacuanha ; iris or oris root ; jalap ; liquorice root ; 
 nux vomica; opium; orange and lemon peel; rhubard; salts, epsom, glauber, 
 rochelle ; sarsaparilla ; spunk ; squills. 
 
 [The above articles are admitted into England, by the tariff of 1853, free of 
 duty, with the following exceptions : Cocoa and cocoa-shells, subject to a duty 
 of ^percent; lastings lor shoes, &c. 5 per cent, ad valorem; manuflictures of 
 mohair cloth, silk, twist, or other cloth suitable for the manufacture of shoes, 
 boots, bootees, or buttons, exclusively — of silk, 15 per cent., others 5 per cent.; 
 slates and slate pencils, 10s. per ton ; tallow, marrow, and other soap stuffs. Is. 6d. 
 the cwt. ; terne tin plates, 10s. the cwt. ; tin foil, tin in plates, 10s. tlie cwt. ; coffee, 
 3d. per lb. ; earthen and stone ware, lOd. per cwt. ; engravings, 3d. per lb. ; fruit, 
 various low duties ; barley, 4jd. per cwt. ; watches, from 2s. 6d. to £1 each ; wines, 
 from 2s. 9d. to 5s. 6d. per gall. ; machinery, for flax and linen goods, 2s. 6d. per 
 cwt. ; arrow root, 4Ad. per cwt; ginger, \\A. and 2d. per lb., 5s and lOs. per cwt.; 
 liquorice root, 5s. per cwt.; nux vomica, 2s. per cwt.; opium, Is. per lb.] 
 
 No. II. 
 
 Ccmiparative statement of the worldng of the present tariff, the project of the Secretary 
 of the Treasury, and of the hill of the Committee of Ways and 3Ieans,for the year 
 ending June 30, 1853, and the annual average for the six years ending ai that date, 
 with the per centage of each article. 
 
 ABSTRACT. 
 
 Table I. — The proposed Tariffs make no change in the articles enumerated in 
 this table. 
 
 Table II. — The articles denoted by an asterisk in the second table, the secretary 
 proposes to admit free. On all other articles in this table he contemplates an 
 uniform duty of 25 per cent. The committee bill proposes an uniform duty of 
 20 per cent, on the same articles, except in regard to bolting cloths, which it pro- 
 poses to admit free. 
 
 Table III. — The articles denoted by an asterisk in this table, the secretary pro- 
 poses to admit free; as also liquorice root, steel in bars, cast, shear and German; 
 and wool unmanufactured under 1(5 and above 50 cents. On the latter article he 
 estimates a duty for 1853, at $-11*7,429 50 ; and the annual average of six years at 
 $316,G01 83. 
 
 On all other articles in this table the secretary's project contemplates an uniform 
 duty of 25 per cent, and the committee's bill an uniform duty of 15 per cent. 
 
 Table IV. — The secretary proposes to admit all the articles in this table free, 
 excepting those marked by a cross, on which he proposes a duty of 25 per cent 
 
 The committee's bill contemplates an uniform duty of 10 per cent. 
 
 Table V. — The secretary contemplates the admission of all the articles in this 
 table free ; the committee's bill an uniform duty of 5 per cent 
 
398 COMPARATR^E TARIFFS. 
 
 EXISTING TARIFF. 
 
 TABLE L 
 
 Articles. Rate One Year. Average 
 
 per ct. of six years. 
 
 Brandy, and other spirits distilled from 
 
 grain or other materials 100 $3,'782,54'7 00 $2,509,386 00 
 
 Cordials, absjnthe, arrack, curacoa, kir- 
 chenwasser, liquors, maraschino, ratifia, 
 and all other spirituous beverages of a 
 similar character 100 45,251 00 32,653 00 
 
 3,827,798 00 2,542,039 00 
 
 TABLE IL 
 
 Alabaster and spar ornaments 40 
 
 Ale, beer, and porter, in casks or bottles.... 30 109,647 60 65,762 03 
 
 *Almonds 40 121,981 60 77,192 26 
 
 *Anchovics, preserved in pickle, salt, or oil ; 
 sardines, and all other fish preserved in 
 oil 40 57,042 87 
 
 Argentine, albata, or German silver, man- 
 ufactured or unmanufactured 30 
 
 Articles embroidered with gold, silver, or 
 
 other metal 30 
 
 Asses' skins 30 
 
 Balsams, cosmetics, essences, extracts, 
 pastes, perfumes, and tinctures, used either 
 for the toilet or for medicinal purposes.. 30 i<».«.. •••.......•.......> 
 
 Baskets, and all other articles, composed of 
 grass, ozier, palm-leaf, straw, whalebone 
 or willow, not otherwise provided for.... 30 «•..• 
 
 Bay rum 30 
 
 Beads of amber, composition, or wax, and all 
 
 other beads 30 
 
 Benzoates 30 
 
 Bologna sausages 30 
 
 Bracelets, braids, chains, curls, or ringlets, 
 composed of hair, or of which hair is a 
 component part 30 
 
 Braces, suspenders, webbing, or other fabrics 
 composed wholly or in part of India rub- 
 ber, not otherwise provided for 30 
 
 Brooms and brushes of all kinds 30 59,934 00 44,939 35 
 
 Buttons and button-moulds of all kinds.... 25 190,598 50 129,598 54 
 
 Cameos, real and imitation, and mosaics, 
 real and imitation, when set in gold, sil- 
 ver, or other metal 30 See diamonds. 
 
 Camphor refined 40 126 40 185 06 
 
 Canes and sticks for walking, finished or 
 
 unfinished 30 
 
 Capers, pickles, and sauces of all kinds, 
 
 not otherwise provided for SO 
 
 Caps, hats, muffs, and tippets, of fur, and all 
 other manufactures of fur, or of which 
 fur shall be a component material 30 4,239 60 5,663 34 
 
 Card-cases, pocket-books, shell boxes, souve- 
 nirs, purses, reticules, and all articles 
 worn or carried on the person as orna- 
 ments, of whatever material composed... 30 
 
 Carriages and parts of carriages 30 
 
COMPARATIVE TARIFFS. 
 
 399 
 
 Articles. Rate 
 
 per ct. 
 
 f 30 
 *Cassia and cinnamon < .„ 
 
 Cayenne pepper 30 
 
 Cheese 30 
 
 *Cbina, earthen, and stoneware, and all 
 other wares composed of earthy and 
 mineral substances, not otherwise provi- 
 ded for 30 
 
 Clocks and parts of clocks 30 
 
 Clothing:, ready made, and wearing appa- 
 rel of every description, of whatever ma- 
 terial composed, and all other articles 
 worn or carried on the person, made up 
 or manufactured, wholly or in part, 
 either by the tailor, seamstress, or man- 
 ufacturer, not otherwise expressly enu- 
 
 . merated and provided for 30 
 
 *Cloves 40 
 
 Coach and harness furniture of all kinds... 30 
 
 Coal 30 
 
 Coke and culm of coal 30 
 
 Combs of all kinds 30 
 
 Comfits, sweetmeats, or fruit preserved in 
 sugar, brandy, alcohol, or other spirits, 
 molasses, or in their own juice, and" con- 
 fectionary of all kinds 40 
 
 Composition tops for tables, or other arti- 
 cles of furniture 40 
 
 ^Compositions of glass or paste, when set.. 30 
 
 Coral, cut or manufactured 30 
 
 Corks 30 
 
 Court-plaister 30 
 
 Crayons of all kinds 30 
 
 *Currants 40 
 
 Cutlery of all kinds 30 
 
 «Dates 40 
 
 Diamonds, gems, pearls, rubies, and other 
 precious stones, and imitations of pre- 
 cious stones, when set in gold, silver, or 
 other metal, and all manufactures of 
 agate, cornelian, or other precious stones, 
 and all articles of jewelry, real or imita- 
 tion, including gold and silver buttons.. 30 
 
 Dolls and toys, of all kinds 30 
 
 Epaulettes, galloons, laces, knots, stars, tas- 
 sels, tresses, and wings, of gold, silver, 
 
 or other metal 30 
 
 Fans and fire-screens, of every description, 
 
 of whatever material composed 30 
 
 Feathers and flowers, artificial or ornamen- 
 tal, and parts thereof, of whatever mate- 
 rial composed 30 
 
 *Figs 40 
 
 Fire-crackers 30 
 
 Flats, braids, plaits, sparterre and willow 
 
 squares, used for making hats or bonnets. 30 
 Floss silks, feather beds, feathers for beds, 
 
 and downs of all kinds 25 
 
 Frames and sticks, for umbrellas and par- 
 asols and sun-shades, finished or unfin- 
 ished 30 
 
 One year. 
 
 $3,025 50 
 "71,276 00 
 13.G42 50 
 21,158 40 
 
 952,165 20 
 24,627 60 
 
 692,140 50 
 19,134 00 
 
 147,003 00 
 4 80 
 
 53,496 30 
 
 16,357 20 
 
 610,511 40 
 
 5,916 80 
 
 164,303 60 
 
 10,043 40 
 
 49,885 20 
 
 Average of 
 six years. 
 $3,220 70 
 52,773 00 
 8,981 29 
 12,193 51 
 
 857,721 06 
 18,573 90 
 
 331,122 36 
 
 19,734 80 
 
 131,127 07 
 
 12 49 
 
 42,087 05 
 
 39,351 92 
 
 445,508 00 
 
 4,230 52 
 
 88,796 61 
 
 7,372 50 
 
 42,752 00 
 
 2,514 00 
 
 5,687 49 
 
400 
 
 COMPARATIVE TARIFFS. 
 
 Articles. 
 
 *Ginger root, dried or green 
 
 Ginger, ground 
 
 Glass, cut 
 
 Glass crystals for watches 
 
 Glasses or pebbles for spectacles 
 
 Glass, paintings on 
 
 Glass, porcelain, colored, stained, or paintfid 
 
 *Gum Benzoin, or Benjamin 
 
 Hair-cloths, hair-seating, and all other 
 manufactures of hair* not otherwise pro- 
 vided for 
 
 Hair pencils 
 
 Hat bodies, of cotton 
 
 Hats and bonnets, composed of straw, satin- 
 straw, chip, grass, palm-leaf, willow, or 
 any other vegetable substance, or of hair, 
 whalebone, or other material not other- 
 wise provided for 
 
 Hemp, unmanufactured 
 
 Honey 
 
 Human hair, cleaned or prepared for use... 
 
 Ink and ink powder 
 
 Iron in bars, blooms, bolts, loops, pigs, 
 rods, slabs, or other form, not otherwise 
 provided for 
 
 Iron, castings of. 
 
 Iron, galvanized, in sheets or plates 
 
 Iron, old or scrap 
 
 Iron, vessels of. 
 
 Japanned ware of all kinds, not otherwise 
 provided for 
 
 Jet and manufactures of jet, and imita- 
 tions thereof. 
 
 Jute, sisal grass, coir, and other vegetable 
 substances, unmanufactured, not other- 
 wise provided for 
 
 Lead pencils 
 
 Maccaroni, vermicelli, gelatine, jellies, and 
 all similar preparations 
 
 Mace. 
 
 Manufactures of the bark of the cork tree.. 
 
 Manufactures of bone, shell, horn, pearl, 
 ivory, or vegetable ivory 
 
 Manufactures, articles, vessels, and wares 
 of brass, copper, gold, iron, lead, pewter, 
 platina, silver, steel, and tin, or other 
 metal, or of which either of those metals 
 or any other metal shall be a component 
 material, not otherwise provided for 
 
 Manufactures of cedar wood, granadilla, 
 ebony, mahogany, rosewood, and satin- 
 wood 
 
 Manufactures and articles of cotton, flax, 
 hemp, grass, goats' or other hair, mohair, 
 silk, wool, or worsted, or of either of 
 these articles combined, or of which either 
 of these articles shall be a component 
 material, not otherwise enumerated and 
 provided for.** 
 
 Rate 
 
 One year. 
 
 Average of 
 
 perct 
 
 
 SIX years. 
 
 40 
 
 $24,065 20 
 
 $23,307 32 
 
 30 
 
 215 00 
 
 5,675 11 
 
 40 
 
 30,713 20 
 
 24,337 66 
 
 30 
 
 11,426 40 
 
 6,564 84 
 
 30 
 
 1,651 20 
 
 1,902 91 
 
 30 
 
 473 70 
 
 2,231 14 
 
 30 
 
 
 
 25 
 
 70,080 75 
 
 63,060 04 
 
 30 
 
 
 
 20 
 
 11,210 80 
 
 8,423 45 
 
 30 
 
 491,744 40 
 
 426,485 40 
 
 25 
 30 
 30 
 30 
 30 
 
 397,947 75 
 98,736 60 
 
 176,723 46 
 97,185 63 
 
 30 
 30 
 30 
 30 
 30 
 
 5,739,380 10 
 26,793 00 
 
 43,517 70 
 
 3,296,724 15 
 14,534 64 
 
 40,291 09 
 
 30 
 
 17,518 80 
 
 17,014 85 
 
 30 
 
 
 
 25 
 30 
 
 24,635 25 
 19,666 20 
 
 58,686 12 
 13,524 39 
 
 30 
 40 
 30 
 
 437 60 
 45 00 
 
 5,512 40 
 92 64 
 
 30 
 
 30 1,786,557 65 1,503,669 81 
 
 40 22,531 20 
 
 20 2,451,987 80 
 
 25 15,455,028 75 
 
 30 5,226,312 60 
 
 20,159 00 
 
 1,969,819 35 
 
 11,000,118 13 
 
 3,678,769 25 
 
 ** Both thf; Secretary's project and tlie committee's bill propose the admission of bolting 
 cloths free. 
 
COMPARATIVE TARIFFS. 
 
 401 
 
 Articles. 
 
 Rate 
 per ct. 
 
 One year. 
 
 Manufactures of cotton, linen, -silk, wool, 
 ■worsted, or any other material embroi- 
 dered or tambored, either by hand or in 
 the loom, or by machinery or any other 
 process 30 $1,364,065 80 
 
 Manufactures, articles, vessels, and wares 
 of glass, or of which glass shall be a 
 component material, not otherwise pro- 
 vided for 30 131, en 40 
 
 Manufactures and articles of leather, or of 
 which leather shall be a component part, 
 not otherwise provided for 30 524,174 10 
 
 ♦Manufactures and articles of marble, mar- 
 ble paving tiles, and all other marble 
 more advanced in manufacture than in 
 slabs or blocks in the rough 30 36,364 20 
 
 Manufactures of paper, or of which paper 
 is a corajjonent material, not otherwise 
 provided for 30 35,923 80 
 
 Manuf^ictures, articles, and wares of papier 
 mache 30 13,086 60 
 
 Manufactures of wood, or of which wood 
 is a component part, not otherwise pro- 
 vided for 30 126,745 50 
 
 Matting, Chinese and other floor matting 
 
 and mats made of flags, jute, or grass.... 25 59,349 25 
 
 Medical preparations, not otherwise provi- 
 ded for 30 
 
 Metallic pens 30 32,574 60 
 
 Mineral waters 30 
 
 Molasses 30 1,105,466 40 
 
 Musical instruments of all kinds, and 
 strings for musical instruments, of whip- 
 gut, or cat-gut, and all other strings of 
 tJie same material 20 
 
 Muskets, rifles, and other fire-arms 30 148,904 10 
 
 *Nutmegs 40 35,223 60 
 
 ^Nuts, not otherwise provided for 30 43,458 30 
 
 *Ochres and ochrey earths, used in the 
 composition of painters' colors, whether 
 dry or ground in oil 30 10,157 40 
 
 Oil-cloth of every description, of whatever 
 material composed 30 12,711 90 
 
 Oils, volatile, essential or expressed, not 
 otherwise provided for 30 
 
 Olive oil in casks, salad oil, and all other 
 olive oil, not otherwise provided for 30 
 
 Olives 30 
 
 Paper — antiquarian, demy, drawing, ele- 
 phant, foolscap, imperial, letter, and all 
 other paper, not o\herwise provided for. 30 80,452 05 
 
 Paper boxes, and all other fancy boxes 30 7,996 20 
 
 Paper envelopes 30 
 
 Parasols and sun-shades 30 See umbrellas. 
 
 Parchmeut 30 
 
 *Pepper 30 54,508 20 
 
 •s-Pimento 30 74,004 40 
 
 Plate glass, whether silvered or otherwise. 30 196,619 70 
 
 Plated and gilt ware of all kinds 30 107,368 50 
 
 Plaving cards 30 2,999 40 
 
 »Prums and prunes 40 45,507 60 
 
 51 
 
 Average of 
 six years. 
 
 $874,300 84 
 
 102,458 86 
 400,174 31 
 
 12,087 84 
 
 27,980 55 
 15,145 25 
 
 89,807 60 
 42,497 11 
 
 23,806 80 
 1,004,582 89 
 
 122,842 54 
 89,128 80 
 33,308 85 
 
 7,480 85 
 10,109 70 
 
 68.373 81 
 13,878 20 
 
 41,968 90 
 46,441 69 
 163,827 60 
 84,704 43 
 2,880 24 
 25 989 20 
 
402 
 
 COMPARATIVE TARIFFS. 
 
 Articles. Rate 
 per ct. 
 
 *Potatoes 30 
 
 Prepared vegetables, meats, poultry, and 
 game, sealed or enclosed in cans or other- 
 wise , 40 
 
 *Raisins 40 
 
 Red chalk pencils 30 
 
 *Roofing slates, and slates other than roof- 
 ing slates 25 
 
 Saddlery of all kinds, not otherwise pro- 
 vided for 30 
 
 Salmon preserved 20 
 
 Scagliola tops for tables, or other articles 
 
 of furniture 40 
 
 Sealing-wax 30 
 
 Segars, snuff, paper segars, and all other 
 
 manufactures of tobacco 40 
 
 Sewing-silk, in the gum or purified 30 
 
 Shoes composed wholly of India rubber.... 30 
 
 Side-arms of every description 30 
 
 Silk twist, and twist composed of silk and 
 
 mohair 30 
 
 Silver-plated metal, in sheets or other form. 30 
 Soap — Castile, perfumed, Windsor, and all 
 
 other kinds 30 
 
 Sugar of all kinds 1 „„ 
 
 Syrup of sugar j 
 
 *Tobacco, unmanufactured 30 
 
 Umbrellas, parasols, and sun-shades 30 
 
 Vellum 30 
 
 Vinegar ,..,. 30 
 
 Wafurs 30 
 
 Water-colors 30 
 
 * Wines : Burgundy, champagne, claret, Ma- 
 deira, port, sherry, and all other wines 
 
 and imitations of wines 30 
 
 One year. 
 $27,861 00 
 
 TABLE III. 
 
 * Ambergris 20 
 
 ® Arrow-root 20 
 
 Bacon and hams 20 
 
 Barley 20 
 
 Beef and pork 20 
 
 Beeswax 20 
 
 *Berrie3, vegetables, flowers, and barks,... \ 20 
 
 not otherwise provided for / 15 
 
 Blank books, bound or unbound 20 
 
 Boards, planks, staves, laths, scantling, 
 spars, hewn and sawed timber, and tim- 
 ber to be used in building wharves 20 
 
 *Borax or tincal 25 
 
 Burlaps, unbleached and uncolored 20 
 
 *Bronzo liquor 20 
 
 *Bronze powder 30 
 
 *Burgundy pitch 25 
 
 Butter 20 
 
 Cables and cordage, tarred or untarred 25 
 
 *Calomel, and other mercurial preparations 25 
 
 *CamDhor. crude 25 
 
 Average ot 
 
 six years. 
 $19,516 05 
 
 358,413 60 307,045 00 
 
 27,338 00 
 
 66,367 20 
 18,868 20 
 
 38,359 79 
 
 54,414 80 
 17,472 00 
 
 1,327,774 00 
 
 875,110 86 
 
 3,870 30 
 482 10 
 
 10,632 00 
 1,106 10 
 
 6,938 10 
 
 2,839 08 
 
 24,127 20 
 
 21,672 80 
 
 4,497,890 90 
 
 3,432,359 30 
 
 256,740 90 
 17,510 70 
 
 148,182 25 
 12,649 56 
 
 2,092 50 
 
 1,910 44 
 
 888,340 20 680,704 17 
 
 47,022,357 65 33,817,216 24 
 
 8 20 
 2,736 20 
 1,491 00 
 7,952 80 
 5,353 20 
 
 49,538 40 
 3,395 00 
 
 34,263 25 
 See osnaburgs. 
 None. 
 
 48 25 
 
 66,065 20 
 
 30,415 00 
 
 4,202 75 
 
 3,585 25 
 
 1,622 89 
 5,511 17 
 2,397 21 
 
 1,771 4& 
 
 None. 
 
 18,001 86 
 49,340 61 
 
 7,530 26 
 
COMPARATIVE TARIFFS. 
 
 403 
 
 Articles. 
 
 Caps, gloves, leggins, mits, socks, stockings, 
 wove shirts, and drawers, made on frames, 
 composed wholly of cotton, worn by 
 men, women, or children 
 
 *Cedar wood, ebony, granadilla, mahoga- 
 ny, rosewood, and satinwood, unmanu- 
 factured 
 
 Chocolate 
 
 Chromateof lead 
 
 *Chromate, bichromate, hydriodate, and 
 prussiate of potash 
 
 Cobalt 
 
 Coculus Indicus 
 
 Copperas, or green vitsol, or sulphate of 
 iron 
 
 Copper rods, bolts, nails, and spikes 
 
 Copper bottoms 
 
 Copper in sheets or plates, called braziers' 
 copper, and other sheets of copper not 
 otherwise provided for 
 
 *Cotton bagging 
 
 Diamonds, glaziers', set or not set 
 
 Felspar 
 
 Fig blue 
 
 Fish, foreign, whether fresh, smoked, salted, 
 dried, or pickled, not otherwise provided 
 for 
 
 Fish glue, or isinglass 
 
 Fish skins 
 
 ^Flaxseed 
 
 Flax unmanufactured 
 
 Flour of sulphur 
 
 Frankfort black 
 
 French chalk 
 
 Fulminates, or fulnunating power 
 
 *Furs dressed on the skin 
 
 Glue 
 
 *Green turtle 
 
 Gunny cloth and gunny bags 
 
 Gunpowder 
 
 Hams 
 
 Hats of wool , 
 
 Hat bodies made of wool, or of which wool 
 shall be a component material 
 
 Hempseed or linseed and rapeseed oil, and 
 all other oils used in painting 
 
 Indian corn and corn meal 
 
 *Iris, or orris root..., 
 
 Iron liquor 
 
 *Ivory, or bone-black 
 
 Juniper berries 
 
 *Lac spirits 
 
 Lac sulphur 
 
 Lamp-black 
 
 Lard 
 
 Leather, tanned, bend or sole 
 
 Leather, upper, of all kinds 
 
 Lead in pigs, bars, or sheets 
 
 Leaden pipes 
 
 Leaden shot 
 
 *Liquorice paste, juice, or root 
 
 late 
 
 One year. 
 
 Average of 
 
 er ct. 
 
 
 SIX years. 
 
 20 
 
 $600,526 20 
 
 $358,756 40 
 
 20 
 
 92,563 60 
 
 75,604 83 
 
 20 
 
 442 00 
 
 257 63 
 
 20 
 
 
 
 20 
 
 
 
 20 
 
 2T9 80 
 
 
 20 
 
 
 
 20 
 
 327 00 
 
 730 40 
 
 20 
 
 6 00 
 
 8,114 75 
 
 20 
 
 2,844 00 
 
 2,291 35 
 
 20 
 
 None. 
 
 305 73 
 
 20 
 
 2,820 20 
 
 18,580 00 
 
 15 
 
 113 to 
 
 170 80 
 
 20 
 
 
 
 20 
 
 
 
 20 
 
 158,502 66 
 
 125,162 44 
 
 20 
 
 
 
 20 
 
 
 
 20 
 
 126,679 00 
 
 82,198 53 
 
 20 
 
 20,352 60 
 
 21,156 50 
 
 20 
 
 
 
 20 
 
 
 
 20 
 
 
 
 20 
 
 
 
 20 
 
 18,470 20 
 
 14,490 98 
 
 20 
 
 2,190 40 
 
 3.139 25 
 
 20 
 
 305 60 
 
 
 20 
 
 167,822 80 
 
 123,948 33 
 
 20 
 
 538 00 
 
 363 03 
 
 20 
 
 
 
 30 
 
 
 
 20 
 
 
 
 20 
 
 237,964 40 
 
 194,352 60 
 
 20 
 
 None. 
 
 None. 
 
 20 
 
 89 20 
 
 
 20 
 
 
 
 20 
 
 57 40 
 
 216 67 
 
 20 
 
 
 
 20 
 
 None. 
 
 None. 
 
 20 
 
 
 
 20 
 
 
 
 20 
 
 189 20 
 
 250 85 
 
 20 
 
 0,653 40 
 
 4,325 89 
 
 20 
 
 309,013 20 
 
 186,407 89 
 
 20 
 
 323,611 60 
 
 189,774 80 
 
 20 
 
 24 00 
 
 34 60 
 
 20 
 
 None. 
 
 373 91 
 
 20 
 
 
 
48,012 20 
 
 42,739 47 
 
 35,804 20 
 
 20,522 97 
 
 54,024 20 
 
 11,539 06 
 
 16,003 CO 
 
 15,899 93 
 
 25,165 00 
 34 00 
 
 19,624 76 
 529 37 
 
 404 COMPARATIVE TARIFFS. 
 
 Articles. Rate Qne year. Average of 
 per ct. six years. 
 
 Litharge 20 $87 20 $54 65 
 
 Malt 20 
 
 -Marble in the rough, slab, or block, un- 
 manufactured 20 35,398 00 23,749 96 
 
 ^-Marine coral, unmanufactured 20 
 
 Metals, Dutch and bronze, in leaf. 20 
 
 Metals, unmanufactured, not otherwise pro- 
 vided for 20 
 
 ^'Mineral and bituminous substances in a 
 
 crude state, not otherwise provided for... 20 
 Needles of all kinds, for sewing, darning, 
 
 knittina:, or otherwise 20 
 
 Nitrate of lead , 20 
 
 Oats and oatmeal 20 
 
 Oils, neatsfoot, and other animal oil, sper- 
 maceti, whale, and otlier fish oil, the pro- 
 duce of foreign fisheries 20 
 
 Osnaburgs, unbleached and uncolored, 
 
 ticklenburgs and burlaps 20 
 
 Paints, dry or ground in oil, not otherwise 
 
 provided for 20 
 
 Paper-hangings, and paper for screens or 
 
 fire-boards 20 
 
 *Pearl or hulled barley 20 
 
 Periodicals, and other works in course of 
 
 printing and republication in the United 
 
 States 20 719 40 376 29 
 
 Pitch 20 
 
 Plaster of Paris, when ground 20 
 
 Pork. (See beef.) 20 
 
 Potassium 20 
 
 Prussian blue 20 
 
 Putty 20 
 
 Quills 20 
 
 Red chalk 20 
 
 Rice or paddy 20 
 
 ■■■Roll brimstone 20 
 
 Roman cement 20 
 
 Rye .and rye flour 20 36500 1,55169 
 
 Saddler}^, common, tinned, or jappanned... 30 31,452 00 22,487 49 
 
 ■*Sago 20 4,409 40 
 
 Sal soda ; and all cai'bonates of soda, by 
 
 whatever name designated, not otherwise 
 
 provided for 20 
 
 *Silk, advanced in manufacture, but not 
 
 further than singles, tram, and organzine, 
 
 in the gum, not otherwise provided for.. 15 
 ••■Skins, tanned and dressed, of all kinds, 
 
 not otherwise provided for 20 
 
 *Skins of all kinds, not otherwise provided 
 
 for , 20 
 
 •■■'Slate pencils 20 
 
 Spermaceti candles and tapers. (See wax 
 
 candles.) 20 
 
 ■"■Sponges 20 10,117 20 
 
 *Spunk 20 6 00 
 
 Starch 20 G,038 40 1,408 16 
 
 .-^tearine candles and tapers 20 882 80 772 28 
 
 *Steel, in bars, cast, shear or German, and in "I 15 351,58170 203,024 52 
 
 plates, sheets or otherwise J 20 125,287 00 65,557 73 
 
 Stereotype plates 20 
 
COMPARATIVE TARIFFS. 
 
 405 
 
 Articles. Rate 
 
 per ct. 
 
 Still bottoms. — (See copper bottom.) 20 
 
 *Sulphate of barytas, crude or refined 20 
 
 Tallow candles 20 
 
 *Tapioca 20 
 
 Tar 20 
 
 Ticklenburgs. — (See osnaburgs.) 20 
 
 *Type metal 1 20 
 
 *Types, new or old J 
 
 *Vanilla beans 20 
 
 Verdigris 20 
 
 Velvet in the piece, composed wholly of 
 
 cotton 20 
 
 Vermillion 20 
 
 Wax candles and tapers, and spermaceti 
 
 ditto 20 
 
 Whalebone, the produce of foreign fisheries. 20 
 
 Wheat, and wheat flour 20 
 
 White and red lead 20 
 
 Whiting or Paris white 20 
 
 White vitrol or sulphate of zinc 20 
 
 Window glass of every description, inclu- 
 ding broad, crown, cylinder, sheet, or 
 rough glass, and not otherwise provided 
 
 for 20 
 
 *Wood, unmanufactured, not otherwise 
 
 provided for, and firewood .^0 
 
 Wool, unmanufactured 30 
 
 Woollen listings 20 
 
 One year. 
 
 ^2,883 40 
 
 603 40 
 
 1,230 00 
 
 1,355 20 
 396 60 
 
 61,117 80 
 
 96,546 60 
 
 123,769 80 
 800,915 40 
 
 Average of 
 six years. 
 
 $2,176 30 
 112 30 
 
 39,173 13 
 
 1,240 80 
 
 925 87 
 
 139 20 
 
 60 13 
 
 339,310 20 
 
 257,229 55 
 
 13,811 60 
 
 7,624 69 
 
 1,246 00 
 
 2,242 21 
 
 57,341 00 
 
 79,294 82 
 607,482 90 
 
 4,499,383 36 2,980,243 86 
 
 TABLE IV. 
 
 Acids — acetic, benzoic, boracic, chromic, 
 citric, muriatic, white and yellow, nitric, 
 oxalic, pyroligneous, and tartaric, and 
 all other acids of every description, used 
 for chemical or medicinal purposes, or 
 for manufacturing, or in the fine arts, not 
 
 otherwise provided for 20 
 
 Aloes 20 
 
 Alum 20 
 
 Amber 20 
 
 Angora, Thibet, and other goats' hair or 
 
 mohair, unmanufactured 20 
 
 Aniseed 20 
 
 Animal carbon 20 
 
 Antimony, crude and regulus of. 20 
 
 Arsenic 15 
 
 Articles, not in a crude state, used in dye- 
 ing or tanning, not otherwise provided 
 
 for 20 
 
 Asafoetida 20 
 
 Bark, quilla 15 
 
 Bismuth 20 
 
 Bitter apples 20 
 
 Blue or Roman vitriol or sulphate of copper 20 
 
 Boucho leaves 20 
 
 Brazil paste. — (See diamonds.) 15 
 
 Breccia 20 
 
 1,071 00 
 1,141 20 
 None. 
 
 1,310 02 
 
 1,777 60 
 1,719 20 
 None. 
 4,561 00 
 4,697 10 
 
 1,401 16 
 
 165 20 
 
 1,002 40 
 268 60 
 1,174 60 
 None. 
 
 None. 
 
 1,547 92 
 
406 
 
 comparatrt; tariffs. 
 
 Articles. Rate 
 
 per ct. 
 
 Brimstone, crude, in bulk 20 
 
 Bromine 20 
 
 Cadmium 20 
 
 Calamine 20 
 
 Cameos and mosaics, and imitations there- 
 of, not set 10 
 
 Cantharides 20 
 
 tCarbonatc of ammonia 20 
 
 Cassia buds 20 
 
 fCastor oil 25 
 
 Castorum 20 
 
 Chronometers, box or ships, and parts 
 
 thereof 10 
 
 Codilla, or tow of hem or flax 15 
 
 Compositions of glass or paste, not set. — 
 
 (See diamonds, &c.) 10 
 
 Cork tree bark, unmanufactured 15 
 
 Cream of tartar 20 
 
 Cubebs 20 
 
 Diamonds, gems, pearls, rubies, and other 
 precious stones and imitations thereof, 
 
 when not set 10 
 
 Dragon's blood 15 
 
 Dried pulp 20 
 
 Emery 20 
 
 Engravings or plates, bound or unbound.. 10 
 
 fEther 20 
 
 Extract of indigo 20 
 
 Extracts and decoctions of logwood and 
 other dye-woods, not otherwise provided 
 
 for 20 
 
 Extract of madder 20 
 
 Furs, hatters', dressed or undressed, not on 
 
 the skin 10 
 
 Furs, undressed, when on the skin 10 
 
 Gamboge 20 
 
 fGold and silver leaf. 15 
 
 Gutta percha 20 
 
 Hair, curled, moss, seaweed, and all other 
 vegetable substances used for beds or 
 
 mattresses 20 
 
 Hair of all kinds, uncleaned and unmanu- 
 factured 10 
 
 Hempseed, linseed, and rapeseed 10 
 
 India rubber in bottles, slabs, or sheets, 
 unmanufactured, and the milk of India 
 
 rubber 10 
 
 flodine 20 
 
 Ipecacuanha 20 
 
 Iridium 20 
 
 Jalap 20 
 
 Manganese 20 
 
 Manna 20 
 
 Medicinal drugs, roots, barks, and leaves, in 
 
 a crude state, not otherwise provided for. 20 
 
 Mineral kermes 15 
 
 Music and music paper, with lines, bound 
 
 or unbound 10 
 
 Opium 20 
 
 Osier or willow prepared for basket ma- 
 ker's use 20 
 
 One year. 
 $9,349 60 
 
 Average of 
 six years. 
 
 None. 
 45 60 
 
 
 See diamonds, &c. 
 2,023 80 
 
 
 301 80 
 
 8,056 00 
 
 47 20 
 
 $2,872 17 
 
 2,210 00 
 2,539 65 
 
 1,710 70 
 6,474 13 
 
 2,069 70 
 
 79,056 00 
 
 1,455 80 
 
 2,292 52 
 
 6,223 90 
 
 63 60 
 
 None. 
 
 5,917 20 
 
 10,743 00 
 
 8,832 55 
 
 1,236 60 
 
 118 00 
 997 80 • 
 
 
 106,430 00 
 
 56,273 70 
 
 121 20 
 
 561 90 
 
 583 40 
 
 66,848 61 
 28,501 33 
 
 279 16 
 
 33,045 10 
 
 63,023 50 
 
 1,887 80 
 
 None. 
 
 1,219 00 
 
 68 00 
 
 665 60 
 
 None. 
 
 2,424 50 
 69,328 60 
 
 6,154 60 
 
 40,078 41 
 
1,600 40 
 
 373 40 
 
 3,511 60 
 
 
 1,404 20 
 12,666 00 
 
 
 None. 
 657 60 
 
 2 66 
 
 4 60 
 124 00 
 
 7,040 80 
 
 40,654 80 
 
 706,482 60 
 
 3,536 40 
 
 4 00 
 
 4,689 82 
 
 11,247 00 
 
 437,420 80 
 
 3,010 36 
 
 COMPARATIVE TARIFFS. 407 
 
 Articles. Rate One year. Average 
 
 per ct. of six years. 
 
 Patent mordant 20 None. 
 
 Pavincc stones... ... I 20 $126 00 
 
 Paving and rooting tiles and bricks j 
 
 fPhosphate of ammonia 20 
 
 Plumbago 20 
 
 Quicksilver 20 3,491 80 9,362 00 
 
 Rags, woolen and worsted. (Raised to 10 
 per cent) 5 
 
 Rhubarb 20 
 
 Sattron and saifrou cake 20 
 
 Sitl ammoniac 10 
 
 Salts — Epsom, Glauber, Rochelle, and all 
 other salts and preparations of salts, not 
 
 otherwise provided for 20 
 
 Sarsaparilla 20 
 
 tSeppia 20 
 
 Sheathing paper 20 
 
 Smalts 20 
 
 fSpirits of ammonia 20 
 
 fSpirits of turpentine 20 
 
 Squills 20 
 
 fSugar of lead 20 
 
 tSulphate of quinine 20 
 
 Terne tin-plates 15 
 
 tTin foil 15 
 
 Tin, in plates or sheets. (See tin plates).. 30 
 
 Tin plates galvanized, not otherwise pro- 
 vided for. (See tin, in plates or sheets). 30 
 
 Waste or shoddy. (Raised from 5 to 10 
 
 per cent.) 5 
 
 Watches and parts of watches \ ,„ 
 
 Watch materials of all kinds J 
 
 Zinc, spelter, and teuteneque, in sheets 15 
 
 TABLE V. 
 
 Alcornoque 5 
 
 Annato, rancon, or Orleans 10 
 
 Argol, or crude tartar 5 
 
 Barilla 10 
 
 Bells, when old, or bell-metal fit only to be 
 
 remanufactured 5 
 
 Bleaching powder, or chloride of lime 10 
 
 Books printed, magazines, pamphlets, pe- 
 riodicals, and illustrated newspapers, 
 bound or unbound, not otherwise provi- 
 ded for 10 
 
 Brass in pigs or bars 5 
 
 Brass when old, and fit only to be reman- 
 ufactured 
 
 Bristles 5 
 
 Building-stones 10 
 
 Chalk, not otherwise provided for 10 114 80 
 
 5 
 
 Clay, unwrought 10 2,876 80 
 
 20 
 
 Cochineal 10 41,561 30 
 
 Cocoa \ jQ 16,98100 11,243 08 
 
 Cocoa shells j 
 
 5,452 25 
 
 
 321,212 90 
 
 230,368 82 
 
 1,600,159 40 
 
 858,254 14 
 
 None. 
 
 None. 
 
 2,375 30 
 
 
 9,019 80 
 
 
 16,166 80 
 
 14,598 86 
 
 71,962 40 
 
 .58,776 20 
 
 606 45 
 
 604 86 
 
 12,686 55 
 
 10,229 55 
 
408 
 
 COMPARATIVE TARIFFS. 
 
 Articles. 
 
 Copper ia pigs or bars "j 
 
 Copper when old, and fit only to be reman- >• 
 
 utactured J 
 
 Cudbear 
 
 Flints 
 
 Fuller's earth 
 
 Gold-heaters' skins 
 
 Granilla. (See cochineal.) 
 
 Grindstones, wrought or unwrought 
 
 Gum arable and gum Senegal 
 
 GuraBarbary 
 
 Gum copal 
 
 Gum East India 
 
 Gum Jedda 
 
 Gum substitute, or burnt starch 
 
 Gum tragac\anth 
 
 Horns, horn-tips, bones, bone-tips, and teeth, 
 
 unmanufactured 
 
 Indigo 
 
 Ivory unmanufactured 
 
 Ivory nuts, or vegetable ivory 
 
 Kelp 
 
 Kermes 
 
 Lac-dye 
 
 Lemon and lime juice 10 
 
 Lime 10 
 
 Madder, ground 5 
 
 Madder root 5 
 
 Maps and charts, not otherwise provided for. 10 
 
 Natron 10 
 
 Nickel 5 
 
 Nutgalls 5 
 
 Nux vomica 10 
 
 Oils, palm, and cocoanut 10 
 
 Orpiment 10 
 
 Palm-leaf, unmanufactured 10 
 
 Pearl, mother of. 5 
 
 Pewter, when old and fit only to be reman- 
 
 ufactured 5 
 
 Polishing stones 10 
 
 Pumice and pumice-stone 10 
 
 Rags, not otherwise provided for 5 
 
 Ralans and reeds, unmanufactured, not i>'^ 
 
 otherwise provided for 10 
 
 Rotten-3tone 10 
 
 R;iw-hides and skins of all kinds, whether 
 dried, salted, or pickled, not otherwise 
 
 provided for 5 
 
 Safflowcr 5 
 
 Sal ammonia 10 
 
 Saltpetre, (or nit'te of soda or potash,) re- "I 5 
 
 fined, partially refined, or crude J 10 
 
 Seedlac 5 
 
 Shellac 5 
 
 Silk, raw, with or without the gum, im- 
 ported in the condition in which it comes 
 from the cocoon, not being doubled, 
 twisted, or advanced in manufacture in 
 
 any way 15 
 
 Soda ash 10 
 
 Sulphuric acid, or oil of vitriol 20 
 
 Rite 
 
 One year. 
 
 Average 
 
 per ct. 
 
 
 of six years 
 
 5 
 
 $76,464 75 
 
 $61,822 28 
 
 10 
 
 438 70 
 
 
 5 
 
 125 45 
 
 
 10 
 
 40 30 
 
 
 10 
 
 85 80 
 
 
 10 
 
 
 
 5 
 
 
 
 10 
 
 18,461 00 
 
 
 10 
 
 None. 
 
 
 20 
 
 
 
 10 
 
 None. 
 
 
 10 
 
 178 30 
 
 
 10 
 
 2,199 30 
 
 
 10 
 
 4,783 10 
 
 
 5 
 
 1,821 75 
 
 
 10 
 
 128,236 70 
 
 87,926 66 
 
 5 
 
 6,524 85 
 
 
 5 
 
 51 95 
 
 
 10 
 
 None. 
 
 
 5 
 
 None. 
 
 
 5 
 
 8,061 90 
 
 
 1,373 70 
 
 None. , 
 
 2,805 50 
 
 172 15 
 
 34 90 
 
 
 18 90 
 3,778 30 
 
 
 274 70 
 
 217 10 
 
 216 30 
 
 49,141 85 
 
 112 80 
 45,524 68 
 
 3,273 00 
 21 50 
 
 
 295,969 55 
 170 20 
 
 220,031 56 
 
 32,151 85 
 
 76 70 
 
 4 85 
 
 1,977 00 
 
 33,458 35 
 800 03 
 
 106,813 80 
 
 84,544 30 
 
 22 20 
 
 G5,359 80 
 
 70.162 12 
 
 18 27 
 
COMPARATIVE TARIFFS. 
 
 409 
 
 Articles. Rate 
 per ct. 
 
 Sumac 5 
 
 Tallow, marrow, and all other grease and 
 soap stocks and soap stuffs, not other- 
 wise provided,for 10 
 
 Terra japonica, or catechu 20 
 
 Tin, in pigs, bars, or blocks 5 
 
 Tortoise and other shells, unmanufactured, 
 
 not otherwise provided for. 5 
 
 Turmeric ; 5 
 
 Weld 5 
 
 Woad, or pastel „ 10 
 
 Zinc, spelter, or teuteneque, unmanufac-") 15 
 
 tured, not otherwise provided for j 5 
 
 One year. Average 
 
 of six years. 
 9,838 90 
 
 12,143 20 2,909 92 
 
 134 20 
 
 36,211 65 25,576 33 
 
 155 10 
 
 None 
 
 209 90 210 26 
 
 56,415 50 
 
 1,122,691 85 
 
 109,965 05 
 
 RECAPITULATION. 
 
 committee's bill. 
 
 R;ite per ct. One year. 
 
 100 ; $3,82'7,'798 00 
 
 20 34,666,437 74 
 
 15 3,209,178 85 
 
 10 1,229,993 40 
 
 5 823,673 17 
 
 Total 43,757,081 16 
 
 Avt,'r;i..;c Ibr six years. 
 
 $3,542,039 00 
 
 24,476,181 20 
 
 2,100,143 11 
 
 071,883 52 
 
 543,064 86 
 
 30,333,311 75 
 
 Rate per ct. 
 
 40. 
 30. 
 25. 
 20. 
 15. 
 10. 
 5. 
 
 EXISTING TARIFF. 
 
 One year. Average for sis years, 
 
 _ $2,827,798 00 $3,542,039 00 
 
 - 54,244,592 26 38,365,679 29 
 
 Total 58,072,390 26 
 
 40,907,718 29 
 
 Rate per ct, 
 25 
 
 secretary's PROJECT. 
 
 One year. 
 $3,827,798 00 
 43,881,522 51 
 
 Total 47,709,320 51 
 
 Average for six years. 
 $2,542,039 00 
 31,100,978 93 
 
 33,643,017 93 
 
 Note. — The revenue collected during the year ending June 30, 1853, as stated 
 in the Report on the Finances, was $60,964,929 15, though a (small) part of that 
 amount was derived from importations made previous to that period. The dif- 
 ference between that sum and $58,072,390 26, the product of the existing tariff of 
 preceding table for one year, is due to the amounts collected on many articles 
 known as " non-enumerated," which are not given. The revenue collected on 
 these articles does not enter into the calculations for the average of six years of 
 either of the schemes, but the various rates of admission are given in all instances 
 
 52 
 
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 EXPORTS. 
 
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412 IMPORTS. 
 
 No. 13. 
 
 Statement exhibiting the value and amoimt of duties on articles which were imported 
 during the fiscal year ending June 30, 1854, and now made free by the reciprocity 
 treaty. 
 
 Articles. Rate of Value of Duties, 
 
 duty per ct. articles. 
 
 Grain, flour, and breadstufifs 20 $3,906,0^.3 GO $781,214 60 
 
 Animals, free T5,406 00 
 
 ■ dutiable 20 225,642 00 45,128 40 
 
 Fresh, smoked, and salted meat 20 5,184 00 1,036 80 
 
 Cotton-wool, free 125 00 
 
 Seeds, plants, shrubs, &c., free 18,210 00 
 
 dutiable 20 555 00 111 00 
 
 Vegetables 20 102,806 00 20,561 00 
 
 Undried fruits 20 13,692 00 2,'738 40 
 
 Dried fruits 20 3100 6 20 
 
 Fish of all kinds 20 901,67100 180,334 20 
 
 Products of fish and of all other crea- 
 tures living in the -water. 
 
 Poultry 20 1,016 00 203 20 
 
 Errgs 20 5,500 00 1,100 00 
 
 nfdes and skins 5 34, -729 00 1,734 45 
 
 Furs, undressed 10 13,920 00 1,392 00 
 
 Tails, undressed 20 8 00 1 60 
 
 Unwrought stone 10 10,758 00 1,075 80 
 
 Unwrought marble 4 4 00 80 
 
 Butter 20 126,811 00 25,362 20 
 
 Cheese 30 127 00 88 10 
 
 Tallow 10 37 00 3 70 
 
 Lard 20 837 00 167 40 
 
 Horns 5 1,421 00 71 05 
 
 Ores of metois, free 18,790 00 
 
 dutiable 20 516 00 103 20 
 
 Coal 30 254,775 00 76,432 50 
 
 Pitch, tar, and turpentine 20 75 00 15 00 
 
 Ashes 20 4,441 00 888 20 
 
 Fire and other wood 30 728,688 00 218,606 40 
 
 All other wood 20 574,05100 114,810 20 
 
 Pelts .■ 20 24,639 00 4,927 80 
 
 Wool 30 69,182 00 20,754 60 
 
 Fish oil 20 110,402 00 22,080 40 
 
 Rice 
 
 Broom corn 
 
 Bark 20 978 00 195 60 
 
 Gypsum, ground 20 353 00 70 60 
 
 free, unground 113,312 00 
 
 Grindstones 5 23,265 00 1,163 25 
 
 Dye-stuffs 5 14,717 00 735 85 
 
 Hemp, flax, tow, unmanufactured 
 
 Tobacco, unmanufactured 30 2,915 00 874 50 
 
 Rags 5 12,696 00 634 80 
 
 Total 7,398,358 00 1,524,457 40 
 
TREASURY BUREAUS. 
 
 413 
 
 No. 14. 
 
 REPORT OF THE FIRST AUDITOR.— Abstract. 
 
 It is the duty of the First Auditor to receive all accounts accruing in the Trea- 
 sury Department, and after examination to certify the balance, and transmit the 
 accounts with the vouchers and certificates to the First Comptroller, for his de- 
 cision thereon ; except in relation to the receipts from the customs and the 
 accounts of custom-house otficers, the supervision of which has liecn transferred 
 to the Commissioner of Customs, to whom the First Auditor reports. 
 
 Slatement of accounts accruing in the First Auditor's Office, adjusted and reported 
 from 1st July, 1853, to June 30, 1854. 
 
 RECAPITULATION. 
 
 Accounts. No. ofacc'ts. Receipts. 
 
 Accounts of collectors of the customs, as such 1,810 $89,739,221 16 
 
 Accounts of collectors under steamboat act 163 43,209 75 
 
 Payments. 
 $5,627,541 35 
 
 Accounts of collectors as disbursing agents of the treasury 851 
 Accounts of official emoluments of collectors, naval offi- 
 cers, and surveyors 317 
 
 Accounts of additional compensation to ditto 96 
 
 Claims for the refunding of duties illegally exacted 309 
 
 Judgments against revenue officers, with costs of suits, 
 
 and claims for net proceeds of unclaimed merchandise. 27 
 Claims for duties on goods destroyed by fire while in 
 
 United States bonded warehouses 2 
 
 Judiciary accounts 643 
 
 Accounts for the payment of interest on the public debt.. 45 
 
 Treasury notes presented for funding and redemption.... 22 
 
 Accounts for payment of interest on treasury notes 6 
 
 Redemption of United States war bounty scrip 24 
 
 Mexican indemnity stock redeemed 5 
 
 Claims for property lost in the military service of the U. S. 14 
 
 Accounts of inspectors of steam vessels 143 
 
 Salaries of officers of civil list, paid directly from treasury 1, 123 
 
 Accounts for the redemption of United States stock 1,947 
 
 Accounts of superintendents of lights 416 
 
 Accounts of agents of marine hospitals 474 
 
 Accounts of Commissioner of Public Buildings 150 
 
 Accounts of contingent expenses of the Senate and House, 
 
 and of the departments and bureaus, &c 462 
 
 Accounts of Coast Survey 31 
 
 Accounts of the Treasurer of the United States for gen- 
 eral receipts and expenditures 4 
 
 Accounts of the Treasurer of U. States for pay and mileage 
 
 of the members of the House of Representatives 2 
 
 Accounts of designated depositaries for additional com- 
 pensation 29 
 
 Accounts for construction and repair of public buildings 434 
 
 Accounts, territorial 42 
 
 Accounts, miscellaneous 402 
 
 Accounts of disbursing clerks for payment of salaries 252 
 
 Accounts of disbursing agent of California land commis- 
 sioners 4 
 
 Accounts, mint (52 
 
 Accounts of withdrawal of application for patents, &c.... 8 
 
 Accounts for penalties imposed under the 21st section of 
 
 the act of March 2, 1799 7 
 
 Number of letters written 5 760 
 
 Number of accounts recorded 10 326 
 
 663,790 18 
 
 22,330 90 
 
 102,384 99 
 
 21,854 32 
 
 8,404 19 
 
 718,084 83 
 
 9,114,980 38 
 
 2,300 66 
 
 32 43 
 
 4,425 00 
 
 903 27 
 
 925 26 
 
 17,322 04 
 
 250,068 87 
 
 21,649,340 58 
 
 816,431 95 
 
 286,927 12 
 
 556,441 95 
 
 1,008,435 98 
 457,236 75 
 
 70,780,779 20 
 
 321,342 57 
 
 19,349 45 
 
 1,862,616 05 
 
 161,946 95 
 
 4,595,316 79 
 
 1,505,258 14 
 
 95,739 47 
 
 701,099 74 
 
 20,470 31 
 
 Penalties. 
 
 $32,000 00 
 
414 TREASURY BtTREAUS. J 
 
 No. 15. 
 REPORT OF THE SECOND AUDITOR. 
 
 This report shows the number of money accounts settled, and the number of 
 property accounts examined and adjusted "during the fiscal year ending the 30th 
 June, 1854. 
 
 The number of the money accounts, erabracingf the pay of the several depart- 
 ments of the army, the recruiting; service, volunteers, military asylum, Indian 
 affairs, and private claims, was 2,097, and the amount of payments made 
 $6,308,416 18. 
 
 The number of property accounts examined and adjusted was 1,863. Besides 
 these important items, tlie business of the office was to repister recruits of the 
 army to the number of 3,C08. requisitions on the Treasury to the number of 1,739, 
 letters, &c.. received to the number of 11,104, dead and discharged soldiers to the 
 number of 1,705, and private claims to the number of 1;195. It had also to write, 
 record and mail 5 438 letters. 
 
 No. IC 
 REPORT OF THE THIRD AUDITOR. 
 This report shows that the business of the office during the past fiscal year has 
 been arduous and extensive. The number of accounts examined was upwards of 
 8,000, besides 21,125 bounty land cases. 3,486 letters were written and recorded. 
 The amount paid on the whole number of accounts settled in the office to 30th 
 June, 1854, or the last fiscal year, was $17,360,098 12. Prior to the 1st July, 
 1853, there were outstanding balances on the docket to the amount of $7, 189,787 53. 
 This sum included the amount on the books prior to 1820. During the year these 
 balances have beea reduced $996,174 42, leaving the amount of balances out- 
 standing oa the 1st July, 1854, $6,193,613 11. 
 
 No. 17. 
 
 REPORT OF THE FOURTH AUDITOR. 
 
 By this report, it appears that the whole number of accounts audited during 
 
 the fiscal year, embracing those of pursers, navy agents, in and out of the United 
 
 States, disbursing officers of the marjne corps, navy pension agents, timber agents, 
 
 mail steamers, and miscellaneous, was 782, involving a disbursement of $15,003,487. 
 
 No. 18. 
 REPORT OF .THE FIFTH AUDITOR. 
 In this office the number of accounts examined and adjusted was 745. They 
 consisted of the accounts of the Foreign Missions of every class, including consuls 
 and commercial agents, the claims of owners and masters of vessels for bringing 
 home destitute seamen, of citizens for indemnities awarded them under conven- 
 tions with foreign governments, of persons employed on the boundary survey 
 between the United States and Mexico, of citizens of Oregon for services and losses 
 in wars with the Cayuse Indians, of the disbursing agents of the Departments of 
 State and Post Office, and those for expenses of the Census and Patent OflBces. 
 Three hundred and twenty letters on the business of the office were written and 
 recorded, in addition, and all effected by six clerks. 
 
 No. 19. 
 REPORT OF THE SIXTH AUDITOR. 
 The number of accounts examined, adjusted and settled in this office during the 
 year was 153,319. The settlement of these accounts involved the receipt of 
 122,653 letters and the preparation and transmission of 70,785 letters and pack- 
 ages, the issuing of 65,187 collective orders and 13,092 error accounts to postmas- 
 ters, besides making reports and answering calls in obedience to resolutions of 
 Congress. This amount of business has been effected by a force of 110 clerks. 
 The auditor asks for five additional clerks, six assistant messengers, and further 
 accommodation for his clerks and for the filing and safe-keeping of the accounts 
 of the office. 
 
TREASURY BUREAUS. 415 
 
 No. 20. 
 REPORT OF THE FIRST COMPTROLLER. 
 The number of accounts revised by this officer during the year was 10,267. 
 The number of warrants, countersigned by him and entered in the appropriate 
 books of his office, was 18,652. The amount drawn from the Treasury by these 
 warrants was $76,660,026 38, and the amount of the warrants for conveying 
 money into the Treasury from the customs, lands, and other sources $73,802,291 40. 
 The Comptroller asks for additional clerks, and states that the public service 
 would be greatly promoted by having the head of a bureau and the clerks, if not 
 over fifty, in the same room. 
 
 No. 21. 
 REPORT OF THE SECOND COMPTROLLER. 
 
 In this office there have been 5,400 accounts revised and entered upon the books, 
 6,528 requisitions examined, countersigned and entered, and official letters written 
 covering 555 pages of folio post. During the same time more than 100 decisions 
 have been made in appeal cases, many of them requiring elaborately written opin- 
 ions and the examination of numerous vouchers. 
 
 The Comptroller recommends a change in the policy of appointing clerks to his 
 office. He thinks it would promote the public interest if the salaries were of a 
 higher grade, so as to make the transfer of clerks from the several auditors to his 
 office a promotion. The nature of the business in the offices of the former being 
 the same, those clerks who have become familiar with it. should look forward to 
 a transfer to the Comptroller's office as a reward for faithful services ; and thus 
 the policy would in the end prove economical to the government. 
 
 No. 22. 
 REPORT OF THE COMMISSIONER OF CUSTOMS. 
 In this office the accounts of Collectors of the Customs, embracing receipts and 
 expenditures of revenue, an examination of the estimates upon which the monthly 
 remittances are made to disbursing agents, the quarterly accounts of these agents, 
 marine hospital, light-house, and special accounts, and the correspondence grow- 
 ing out of these several subjects, form the duties of the Commissioner and his 
 clerks. There is no statistical account of the number of the several items, but it 
 is stated that " no portion of the business of the office has been suffered to 
 fall into arrears." 
 
 No. 23. 
 
 REPORT OF THE FIRST COMPTROLLER ON OLD BALANCES. 
 
 The purpose of this report will be more distinctly shown by the following : 
 
 RECAPITULATION. 
 
 Total amount referred to this office for examination and settle- 
 ment $76,320,358 41 
 
 This amount has been closed $65,237,291 47 
 
 Permanent investments 3,340,058 77 
 
 Post Office appropriation 482,657 00 
 
 Due from banks 2,146,020 07 
 
 Referred to the Commissioner of Customs 66,875 18 
 
 Referred to the Second Comptroller 130,582 26 
 
 Action of Congress necessary 333,545 44 
 
 This amount will be probably collected 191,299 36 
 
 This amount will probably be reduced by accounts 
 
 rendered and to be rendered 885,667 12 
 
 This amount desperate, or nearly so 583,075 77 
 
 Emolument accounts 49,877 81 
 
 Internal revenue, generally desperate 546,085 07 
 
 Land Office balances 1,326,293 09 
 
 Corrections 1,001,020 00 
 
 $76,320,358 41 
 
416 TREASURY BUREAUS. 
 
 No. 24. 
 REPORT OF THE SECOND COMPTROLLER ON OLD BALANCES. 
 In the Second Comptroller's office, balances due on the books of the 2d, 3d, and 
 4th Auditors respectively, are examined, and suits instituted against disbursing 
 agents who fail to render their accounts and vouchers. By this report it appears 
 that in Novcmlier, 1853, these balances amounted to $14,741,254 14; which, on 
 the 30th of Septemlier, 1854, had been reduced to $9,640,266 43; showing a re- 
 duction, by settlement of accounts, of $5,100,988 3L Many suits for amounts 
 still due are now pending before the courts. 
 
 No. 25. 
 REPORT OF THE COMMISSIONER OF CUSTOMS OF OLD BALANCES. 
 
 SOMMART STATEMENT. 
 
 Amount of balances outstanding on the books of the treasury, as per certifi- 
 cate of Register, November, 1853, viz: 
 
 Bonds in suit $5,585,340 92 
 
 From collectors and disbursing agents 4,608,651 54 
 
 From persons acting in other capacities 1,698,497 49 
 
 11,892,489 95 
 Amount oustanding on the books of the treasury, on the 1st Sep- 
 tember, 1854, viz: 
 
 Bonds in suit $5,585,340 92 
 
 Balance due on old accounts, which had been put in 
 
 suit prior to April 1, 1853 3,359,834 31 
 
 Due from collectors and disbursing agents 283,385 00 
 
 Due from persons acting in other capacities 140,057 00 
 
 9,368,617 23 
 
 Showing a decrease since November 1, 1853, of. 2,523,872 72 
 
 No. 26. 
 REPORT OF THE REGISTER. 
 The business of this office has been augmented, nearly fourfold within the last 
 ten years. It consists chiefly in registering warrants of every description. The 
 following comparative view will show^ the increase in twenty years: 
 In 1834, the number of warrants issued to cover moneys paid into the treasury 
 on account of receipts from customs, lands, and miscellaneous sources, 
 
 was 765 
 
 In 1844, the number was 876 
 
 In ISj-J, it was 3,217 
 
 All these are entered five times in the various books of the office. 
 The number of warrants for expenditures under the head of Civil, Miscellane- 
 ous, Foreign Intercourse, and Public Debt, was as follows : 
 
 In 1834 2,564 
 
 In 1844 3,314 
 
 In 1854 9,518 
 
 These are all copied in full and afterwards entered in three appropriate books. 
 The personal accounts under the above heads have been also increased in the 
 same ratio : 
 
 In 1834 they amounted to 526 
 
 In 1844 " " 586 
 
 In 1854 " " 2,475 
 
 The number of personal accounts is greatly increased also by the augmentation 
 in the number of specific appropriations within the last few jears. 
 
 All the appropriation accounts are kept in this office — these are divided into 
 six ledgers, embracing about 1,700 specific accounts. 
 
 Powers of attorney and other evidences for collection of interest on United States 
 stock, are forwarded to this office for record, and acknowledgment made of their 
 receipt. 
 
REPORT OF THE TREASURER. 417 
 
 An alphabetical arrangement of unclaimed dividends 13 also prepared in this 
 offic«, together with transcripts for suit, manv of which last call for much labor 
 and time. 
 
 No. 27. 
 
 REPORT OF THE SOLICITOR. 
 
 This report shows by two voluminous tabular statements the number of suits 
 brou<iht by the United States in the several States and Territories, the present 
 condition of these suits, and the amount collected within the fiscal year. 
 
 The amount collected on suits brought during the year is $118,520. 11 
 
 The amount collected during tlie year on suits brought previous 
 
 to its commencement, is 232, T09 48 
 
 Making the total collected during the year 351,235 59 
 
 The number of suits brought during the year is 580, of these 281 have been 
 tried and decided — 142 for, and 145 against the United States. 
 
 Besides the account of suits brought, this office keeps a register of the lands 
 purchased by agents of the United States or set otT by extent under laws of the 
 States, in payment of debts due the United States, as well as lands sold by special 
 agents, and lands still in charge of the solicitor. This is also a tabular statement 
 occupying nearly 100 pages. 
 
 No. 29. 
 REPORT OF THE TREASURER. 
 
 The following tables will show the nature of the duties, and the results of the 
 operations, of this office during the fiscal year. 
 
 Tiie receipts of money covered into the treasury during the past year, by 4,T81 
 warrants, were : 
 
 For custcms, lands, and miscellaneous $75,023,370 40 
 
 For interior de])artment 528,495 74 
 
 For military department 8,800,941 72 
 
 For naval department 950,565 73 
 
 Total 85 ,303,37 3 59 
 
 The payments out during the same time on 13,898 warrants, and about the 
 same number of drafts, were : 
 
 For civil, miscellaneous, diplomatic, and public debt $51,505,061 29 
 
 For interior department 3,319,405 82 
 
 For military department 20,534,571 20 
 
 For naval department 11,749,151 26 
 
 Total 87,108,789 57 
 
 The amount deposited with sundry depositories to the credit of 
 
 the Treasurer, for the service of the Post Office Department, w.as $4,382,946 10 
 And payments made on 5,578 post office warrants 3,703,838 06 
 
 Balance at close of fiscal year 679,108 06 
 
 The following is an exhibit of the operations of the money branch of this office 
 for the last fiscal year, and, for the reason that its expansion is of a recent date, 
 it is extended over the first quarter of the present fiscal year, for the purpose of 
 showing more satisfactorily its present condition and increasing importance. 
 
 For fiscal year ending June 30, 1854: 
 Receipts. — For transfer drafts, and from collectors, postmasters, and 
 
 other officers and persons $4,564,444 07 
 
 Payments.— On drafts drawn by Treasurer United States $4,462,999 24 
 
 53 ' — 
 
418 
 
 REPORT ON THE PUBLIC DEPOSITORIES. 
 
 Payments. — For disbursing ofiScers, including compensation of 
 members of House of Representatives, 10,013 checks 
 
 and Speaker's certificates $3,011,657 78 
 
 Interest on loans, 6,426 coupons 170,870 00 
 
 Interest transferable stock 79,632 01 
 
 $3,262,159 79 
 
 The following summary for the quarter ending 30th September, 1854, will 
 show the progressive increase of business consequent upon keeping accounts with 
 disbursing officers. 
 
 Payments.— Oi b,ObQ checks $1,679,114 10 
 
 Interest on loans, 2,428 coupons 62,200 00 
 
 Interest transferable stock 34,981 98 
 
 $1,776,296 08 
 
 No. 30. 
 REPORT ON THE PUBLIC DEPOSITORIES. 
 This report embraces the instructions of the Secretary of the Treasury to the 
 several special agents appointed to examine the books, accounts, and money on 
 hand in the offices of all the assistant treasurers and designated depositories, con- 
 sisting of twenty-four, and the report of the examinations made by Mr. M. Gouge. 
 This report shows that the amount of money found in each depository corres- 
 ponded with the amount called for by the books and returns, except that at Pitts- 
 burg, which had been robbed of $9,956 62. 
 
 No. 31. 
 
 Statement exhibiting the amouiit qf coin and bnllioji imported and exported annually, 
 from 1821 to 1854 inclusive ; and also the amount of importation over exportation, 
 and of exportation over importation, during the same years. 
 
 
 Coin and bullion. 
 
 Years ending : 
 
 Imported. 
 
 Exported. 
 
 Excess of im- 
 portat'n over 
 exportation. 
 
 Excess of ex- 
 portat'n over 
 importation. 
 
 September 30 1821 
 
 1822 
 
 $8,064,890 
 
 3,369,846 
 
 5,097,896 
 
 8,379,835 
 
 6,150,765 
 
 6,880,966 
 
 8,151,130 
 
 7,489,741 
 
 7,403,612 
 
 8,155,964 
 
 7,305,945 
 
 5,907,504 
 
 7,070,368 
 
 17,911,632 
 
 13,131,447 
 
 13,400,881 
 
 10,516,414 
 
 17,747,116 
 
 5,595,176 
 
 8,882,813 
 
 -4,988,633 
 
 4,087,016 
 
 $10,478,059 
 10,810,180 
 6,372,987 
 7,014,552 
 8,932,031 
 4,704,-533 
 8,014,880 
 8,243,476 
 4,924,020 
 2,178,773 
 9,014,931 
 5,656,340 
 2,611,701 
 2,076,758 
 6,477,775 
 4,324,336 
 5,976,249 
 3,508,046 
 8,776,743 
 8,417,014 
 10,034,:!32 
 4.813,539 
 
 
 $2,413,169 
 
 
 7,440,-334 
 1,275,091 
 
 1823 
 
 
 1824 
 1825 
 
 $1,365,283 
 
 2,781,269 
 
 753,735 
 
 1,708,986 
 
 3,181,567 
 
 1826 
 1827 
 1828 
 
 2,176,433 
 136,250 
 
 1829 
 1830 
 1831 
 
 2,479,592 
 5,977,191 
 
 1832 
 1833 
 1834 
 1835 
 1836 
 1837 
 1838 
 
 251,164 
 4,458,667 
 
 15,834,874 
 6,653,672 
 9,076,545 
 4,540,165 
 
 14,239,070 
 
 1840 
 1841 
 1842 
 
 465,799 
 
 5,045,699 
 
 
 726,523 
 
UNITED STATES COINAGE. 
 No. 31 — Continued. 
 
 419 
 
 
 Coin and bullion. 
 
 Years ending : 
 
 Imported. 
 
 Exported. 
 
 Excess of im- 
 portat'n over 
 exportation. 
 
 Excess of ex- 
 portat'n over 
 importation. 
 
 9 months to June 30, 1843 
 
 v-^n, ^r,rV,nc^ June 30, 1844 
 
 1845 
 
 $22,390,559 
 5,830,429 
 4,070,242 
 3,777,732 
 24,121,289 
 6,360,224 
 6,651,240 
 4,628,792 
 5,453,592 
 5,505,044 
 4,201,382 
 6,758,587 
 
 $1,520,791 
 
 5,454,214 
 
 8,606,495 
 
 3,905,268 
 
 1,907,024 
 
 15,841,616 
 
 5,404,648 
 
 7,522,994 
 
 29,472,752 
 
 42,674,135 
 
 27,486,875 
 
 41,197,300 
 
 $20,869,768 
 376,215 
 
 $4,536,253 
 127,536 
 
 1846 
 
 
 1847 
 
 1848 
 
 22,214,265 
 
 9 481 392 
 
 1849 
 1850 
 
 1,246,592 
 
 2 894 202 
 
 1851 
 
 
 24 019 160 
 
 1852 
 
 
 37 169 091 
 
 1853 
 
 
 23,285,493 
 
 1854 
 
 
 34.438,713 
 
 
 
 
 Total 
 
 285,438,702 
 
 334,355,370 
 
 , 112,361,545 
 
 . 161,278,213 
 
 
 
 No. 32. 
 
 Gold and silver coinage at the Mint of the Uriited States in the several years, from its 
 
 establishment, in 1792, and including the coinage of the branch mints from 1838, 
 to September 30, 1854. 
 
 Years. Gold. Silver. Aggregate. 
 
 1793 ) 
 
 1794 } $71,485 GO $379,683 80 $442,168 80 
 
 1795 J 
 
 1796 102,727 50 79,077 50 181,805 00 
 
 1797 103,422 50 12,591 45 116,013 95 
 
 1798 205,610 00 330,291 00 535,901 00 
 
 1799 213,285 00 423,515 00 636,800 00 
 
 1800 317,760 00 224,296 00 542,056 00 
 
 1801 422,570 00 74,758 00 497,328 00 
 
 1802 423,310 00 58,343 00 481,653 00 
 
 1803 258,377 50 87,118 00 345,495 50 
 
 1804 258,642 50 100,340 50 358.983 00 
 
 1805 170,367 50 149,388 50 319^756 00 
 
 1806 324,505 00 471,319 00 795.824 00 
 
 1807 437,495 00 597,448 75 1.034,943 75 
 
 1808 284,665 00 684,300 00 968,965 00 
 
 1809 169,375 00 707,376 00 876.751 00 
 
 1810 501,435 00 638,773 50 1,140,208 50 
 
 1811 497,905 00 608,340 00 1,106,245 00 
 
 1812 290,435 00 814,029 80 1.104,464 50 
 
 1813 477,140 00 620,951 50 1,098,091 50 
 
 1814 77,270 00 561,687 .50 '638,957 50 
 
 1815 3,175 00 17,308 00 20,483 00 
 
 1816 28,575 75 28,575 75 
 
 1817 607,783 50 607,783 50 
 
 1818 242,940 00 1,070,454 50 1.313,394 50 
 
 1819 258,615 00 1,140,000 00 1,398,615 00 
 
 1820 1,319,030 00 501,680 70 1,820,710 70 
 
420 UXTTED STATES COINAGE. 
 
 No. 32 — Continued. 
 
 Years. Gold. Silver. Aggregate. 
 
 1821 $189,325 00 $825,762 45 $1,015,087 45 
 
 1822 88,980 00 805,806 50 894,786 50 
 
 1823 72,425 00 895,550 00 967,975 00 
 
 1824 93,200 00 1,752,477 00 1,845,677 00 
 
 1825 156,385 00 1,564,583 00 1,720,968 00 
 
 1826 92,245 00 2,002,090 00 2,094,335 00 
 
 1827 131.565 00 2,869,200 00 3,000,765 00 
 
 1828 140,145 00 1,575,600 00 1,715,745 00 
 
 1829 295,717 50 1,994,578 00 2,290,295 50 
 
 1830 643,105 00 2,495,400 00 3,138,505 00 
 
 1831 714,270 00 3.175,600 00 3,889,870 00 
 
 1832 798,435 00 2,579.000 00 3,377,435 00 
 
 1833 978,550 00 2.759.000 00 3,737,550 00 
 
 1834 3,954,270 00 3,515,002 00 7,369,272 00 
 
 1835 2,186.175 00 3,443,003 00 5,629,178 00 
 
 1836 4,135J700 00 3,606.100 00 7,741,800 00 
 
 1837 1,148,305 00 2,096,010 00 3,244,315 00 
 
 1838 1,809,595 00 2,333,243 00 4,142,838 00 
 
 1839 1,355,885 00 2,189,296 00 3,545il81 00 
 
 1840 1,675.302 50 1.726,703 00 3,402.005 50 
 
 1841 1,091,597 50 1^32,750 00 2,224,347 50 
 
 1842 1,834,170 50 2,332,750 00 4,166,920 50 
 
 1843 8.108,797 50 3,834,750 00 11.943,547 50 
 
 1844 5,428,230 00 2,235,550 00 7,663,780 00 
 
 1845 3.756,447 50 1,873.200 00 5,629.647 50 
 
 1846 4.038,177 50 2,558.580 00 6,592^757 50 
 
 1847 20,221,385 00 2,374,450 00 22,595,835 00 
 
 1848 3,775.512 50 2.040,050 00 5.815,562 50 
 
 1849 9,007,761 50 2,114.950 00 11,122,711 50 
 
 1850 31,981.738 50 1,866.100 00 33,847,838 50 
 
 1851 62.6141492 00 774,397 00 63,388,889 00 
 
 1852 56.846.187 50 999.410 00 57,845,597 50 
 
 1853 46.998,945 60 6.996,255 00 53,995,200 60 
 
 1854 66,302,388 85 14,072,400 00 80,374,788 86 
 
 Total 350,092,954 46 100,290,020 90 450,382,981 36 
 
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 REPORTS OF VARIOUS OFFICERS. 
 
 No. 34. 
 
 Estimates of the amount of gold a?id silver in the United States at different periods. 
 
 Year. Specie in cir- Specip in the Total in the Authorities, 
 
 culation. banks. country. 
 
 Millions. Millions. 3Iillions. 
 
 1816 $7^ $15 to 19 $22^ to 26 Crawford and Gallatin. 
 
 1819 8 29 37 Crawford. 
 
 1819 15i Congressional report. 
 
 1820 19j Gallatin. 
 
 1829 8^ 22§ 31^ Woodbury. 
 
 1830 10 22 32 Gallatin. 
 
 1830 8 15 23 Sanford. 
 
 1833 12 30§ 42f Congressional report. 
 
 1833 4 25 29 Taney. 
 
 1836 25 40 65 Woodbury. 
 
 1837 35 38 73 Woodbury. 
 
 1838 52§ 35 87^ Woodbury. 
 
 1839 42' 45 87 Hazard, (Commercial Register.) 
 
 1840 50 33 83 Woodbury. 
 
 1841 35 to 45 35 70 to 80 Gouge, (Journal of Banking.) 
 
 1844 50 50 100 Hunt, (Merchants' Magazine.) 
 
 1845 52 44 96 Bank returns and estimates. 
 
 1846 55 42 97 Bank returns and estimates. 
 
 1847 85 35 120 Bank returns and estimates. — 
 
 (Constitutional treasury be- 
 gan to operate.) 
 
 1848 66 46 112 Bank returns and estimates. 
 
 1849 77 43 120 Bank returns and estimates. 
 
 1850 109 45 154 Bank returns and estimates. 
 
 1851 138 48 186 Bank returns and estimates. 
 
 1852 204 Estimates. 
 
 1853 236 Estimates. 
 
 1854 181 60 241 Bank returns and estimates. 
 
 No. 35 
 
 Is a tabular statement, showing the number of disbursing officers having pul)- 
 lic money to their credit, with the depositories at the principal cities in the Uni- 
 ted States, and the amounts so held by each depository according to returns 
 made for dates specified. 
 
 The aggregate number of disbursing officers, according to the table, is 221, and 
 the aggregate of amounts held by the depositories, $3,217,211 90. 
 
 No. 37. 
 
 REPORT OF THE LIGHT HOUSE BOARD. 
 
 This report, of 63 pages, with its accompaniments, shows the gradual increase 
 in the number of lights and beacons, the annual increase in the consumption of 
 oil and in its price. On the 31st of August, 1852, there were 349 light houses 
 and beacon lights existing, or authorized, of which 5 were filled with lens appar- 
 atus. By the 30th June, 1856, there will be 510 light houses and beacon lights 
 for the Atlantic, Gulf and Lake coast, viz: Lights of the first class 45 ; of the 2d 
 class, 30 ; of the 3d class, 21 ; of the 4th class, 225; of the 5th class, 103; and of 
 the 6th class, 86. On the Pacific coast, (In California, Oregon and Washington,) 
 there will be a total of 21. Which, together with 47 light vessels, will make an 
 aggregate of 578 lights; but as it is probable that about 21 of these lights will 
 be discontinued as unnecessary for the interests of navigation, there will be for 
 the entire coast of the United States, 557 lights, to be annually provided for. 
 
 The aggregate appropriations for the current fiscal year, for the entire coast, 
 Atlantic, Gulf, Lake and Pacific, amount to $911,561 43. 
 
REPORTS OP VARIOUS OFFICERS. 423 
 
 No. 38. 
 REPORT OF THE ENGINEERS IN CHARGE OF BUILDINGS UNDER THE 
 SUPERVISION OF THE TREASURY DEPARTMENT. 
 This report shows the progress which has been made in the construction of 
 custom houses, mints, marine hospitals, and other public edifices, in the several 
 States and Territories, the amounts expended, balances available, and debts due 
 on each. 
 
 No. 39 
 Is a report of the same engineer on the selection of sites for custom houses, &c. 
 
 No. 40 
 Is a list of sites recommended by the engineer for custom houses in eight 
 several cities. 
 
 No. 41. 
 Instructions of the Secretary of the Treasury to Richard Smith and J. C. Pickett, 
 Esquires, with the report of those gentlemen of their examination of the mint at 
 Philadelphia. The principle object of this examination was to ascertain the ex- 
 tent and manner of a fraud committed by the weigh-clerk employed in the mint, 
 and to inquire into the system of accountability prevailing in the operations ot 
 that establishment The document embraces also the general regulations for the 
 mint and its branches and the assay ofiBce, from the director of the mint. 
 
 No. 43 
 Is a tabular statement of the operations of marine hospitals, including other 
 arrangements (where there are no hospitals) for affording relief to seamen in 
 ports of the United States, during the fiscal year ending June 30th, 1854. This 
 table shows the amount of money received at the various ports, the amount ex- 
 pended for relief, the average number of patients relieved, the number of days 
 relief waa afforded, and the cost per day for each patient 
 
iU 
 
 REPORTS OF VARIOUS OFFICERS. 
 
 No. 44. 
 
 REPORT OF THE BOARD OF SUPERVISING INSPECTORS OF STEAM- 
 BOATS. 
 
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 Mobile 
 
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 Galveston 
 
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 Wheeling 
 
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 3 
 
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 40,150 
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 Cleveland 
 
 
 
 
 
 
 
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 * Report not complete. | No report received, on account of prevalence of vellow fever. 
 
 No. 45. 
 
 A REPORT ON EXPERIMENTS IN FUSIBLE ALLOYS. 
 
 These experiments had for their object the safety of steamers, the alloys being 
 intended for use in the construction of steam boilers. The result, thus fiir, has 
 been the discovery of ten alloys, -which are considered of sufficient reliability for 
 ordinary use. 
 
 No. 46» 
 
 This is a tabular statement of the steamboats destroyed by rarious causes, from 
 January to June, 1854. By this it appears that the whole number of steamers 
 destroyed was 63, the number of lives lost 516, and the amount of property lost 
 $2,244,500. The causes of the accidents were collision 10, fire 17, ice 5, snag- 
 ged 23, explosion 8. 
 
TREASURY BUREAUS. 425 
 
 No. 47. 
 
 Statement exhibiting the total value of imports, and the imports consumed in 
 the United States, exclusive of specie, during each fiscal year, from 1821 to 1854* 
 showing also the value of foreign and domestic exports, exclusive of specie, and 
 the tonnage employed during the same periods. 
 
 In 1821. In L854. 
 
 The total imports, including specie, was $62,585,524 $304,562,381 
 
 Do. imports entered for consumption, exclu- 
 sive of specie 43,696,405 275,987,839 
 
 Do. domestic produce exported, exclusive of 
 
 specie 43,671,894 215,157,504 
 
 Do. foreign merchandise imported, exclusive 
 
 of specie 10,824,429 21,691,922 
 
 Do. exports, including specie 64,974,382 278,241,064 
 
 Do. tonnage 1,298,958 4,802,903 
 
 No. 48. 
 
 Statement exhibiting the value of foreign merchandise imported, re-exported, 
 and consumed, annually, from 1821 to 1854, inclusive; and, also, the estimated 
 
 J)opulation and rate of consumption, per capita, during the same period. The 
 bllowing is the result of the first and last of these years : 
 
 In 1821. In 1854. 
 
 Imported $62,585,724 $.•^04,562,381 
 
 Re-exported $21,302,488 $24,850,194 
 
 Consumed and on hand $11,283,236 $279,712,187 
 
 Population 9,960,974 25,750,000 
 
 Consumption per capita $414 $10.00 
 
 No. 49. 
 
 Statement exhibiting the quantity and value of tobacco and rice exported annu- 
 ally, from 1821 to 1854, inclusive. The following is a comparison between the 
 first and last mentioned era : 
 
 Tobacco, hhds. Value. Rice, tierces. Value. 
 
 1821 66,858 $5,648,962 88,221 $1,494,307 
 
 1854 126,107 10,016,046 105,121 2,634,127 
 
 Aggregate for the whole ^ 
 
 series of years, from V 3,683,479 253,594,632 3,958,232 74,810,800 i 
 
 1821 to 1854, inclusive, J 
 
 No. 50. 
 
 Statement showing the aggregate value of breadstuffs and provisions exported 
 annually from 1821 to 1854. The following will show the same for the first and 
 last of these years and the aggregate of the whole series : 
 In 1821, the amount was $12,341,901 
 1854 do. 65,901,240 
 
 Aggregate for the 34 years, 681,899,525, or more than 20 millions annual average. 
 
 No. 51. 
 
 Statement exhibiting the quantity and value of cotton exported annually from 
 1821 to 1854. The following abstract shows the same for the first and last year 
 mentioned, the aggregate for the whole series of years, and the average prices per 
 pound: 
 
 Pounds. Value. 
 
 In 1821. cotton of all sorts 124.893,405 $20,157,484 
 
 1854 do. 987,833,106 93,596,220 
 
 Aggregate of all the years 17,466,839,639 1,742,103,898 
 
 Average price per pound annually for the whole period a little more than 10 cts. 
 
426 TREASURY BUREAUS. 
 
 No. 52. 
 Statement exhibiting the value of imports, annually, from 1821 to 1854. The 
 following abstract shows the value for the first and last years, and the aggregate 
 of the whole number of years embraced in the table. The imports were specie 
 and bullion, merchandise free of duty, and merchandise paying duty. 
 For 1821, the whole amount of imports under those heads, was... $62,585, ^24 
 
 1854 do. do 305,'780,253 
 
 The aggregate amount for the whole period 4,372,022,569 
 
 Or, an annual average of. 128,588^889 
 
 No. 53. 
 
 Statement exhibiting the value of dutiable merchandise re-exported, annually, 
 from 1821 to 1854, inclusive; and showing also the value re-exported from ware- 
 houses, under the act of August 6, 1846. This abstract gives the amounts for the 
 two years as above, and the aggregate for the whole period ; 
 In 1821, the value of dutiable merchandise re-exported, was. ..$10,537, 731 
 
 1854 do. do. 17,406,172 
 
 And the value re-exported from warehouses in this year 14,500,136 
 
 The aggregate value of merchandise re-exported, not from ware- 
 houses, was $347,737,176 
 
 The aggregate value of merchandise re-exported, from warehouses, 47,471,675 
 
 Making the total of dutiable merchandise re-exported, for the 
 
 34 years $395,208,851 
 
 No. 54. 
 
 Statement showing the value of goods remaining in warehouses at the close 
 of each quarter from September 30, 1847, to June 30, 1854, as exhibited by the 
 quarterly returns of the collectors of the customs, under the provision of the act 
 of August 6, 1846, and also the amount of duties payable thereon. 
 
 From this statement it appears that the average quarterly value of goods re- 
 maining in warehouses is $8,625,642 00, and the average duties payable thereon 
 $2,913,463 54. 
 
 No. 55. 
 
 Statement exhibiting the quantity of wine, spirits, &c,, imported annually from 
 1843 to 1854, inclusive. 
 
 By this statement it appears that there were imported during the twelve years, 
 of wine in casks, of all qualities, 51,867,411 gallons, or an annual average of 
 4,322,284^ gallons ; that the aggregate value of this wine was $14,198,248, or an 
 average yearly value of $1,133,187 33. That there were imported of distilled 
 spirits 36,711,441 gallons, or an average of 3,059,286| gallons per annum ; the 
 aggregate value of which was $22,794,452, or an average yearly value of 
 $1,899,577 66. That there were of beer, ale and porter, from England and Scot- 
 land 3,594,455 gallons, the total value of which was $2,408,617. 
 
TREASURY BUREAUS. 
 
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COMMERCE AND NAVIGATION 431 
 
 No. 59. 
 
 Statement of the number of persons employed in each district of the United 
 States for the collection of customs, for the fiscal year ending June 30, 1854, with 
 their occupation and compensation, per act March 3, 1849. 
 
 According to this statement there are 111 persons with the rank of collectors, 
 and 2,705 of subordinate rank, such as deputy collectors, surveyors, naval officers, 
 inspectors, clerks, boatmen, &c. The compensation varies from $6,400 to less than 
 $100 per annum. 
 
 No. 60. 
 
 CIRCULARS ISSUED SINCE THE DATE OF THE LAST REPORT. 
 
 This embraces general instructions to collectors of the customs ; general regu- 
 lations for their government; general instructions to consuls of the United States 
 in the island of Porto Rico ; forms of estimates for the use of collectors, superin- 
 tendents of light houses, agents of marine hospitals, and other disbursing agents ; 
 forms of accounts current, of the various bonds required, of reports to be 
 made, together with copies of the acts of Congress on the subject. Following 
 these are four tables — the 1st, containing a list of free goods imported in Ameri- 
 can and foreign vessels, also of those re-exported in American and foreign ves- 
 sels, in the order in which returns are to be made; 2d, a list of articles, the 
 growth, produce, and manufacture of the United States, exported as above, in 
 the order in which returns are to be made; 3d, a table of countries and places 
 from and to which the imports and exports are to be entered and returned ; and, 
 4th, a table of flags designating the nationality of foreign vessels. 
 
 COMMERCE AND NAVIGATION. 
 
 Report from the Register of the Treasury of the Covimerce and Navigation of the 
 United States for the year ending June 30, 1854. 
 
 This report consists of 18 tabular statements enumerating every article of exports 
 and imports, the countries to and from which they are exported or imported, their 
 several quantities and values ; and showing the number and nationality of the 
 vessels employed in their conveyance. 
 
 Table No. 1, gives a general statement of domestic exports. By this it is shown 
 
 that the total value of these exports was $252,047,806 
 
 Of this amount, was exported in American vessels 176,100,273 
 
 And in foreign vessels 75,947,533 
 
 Table No. 2, is a summary statement of the value of the exports of the growth 
 
 produce and manufacture of the United States. 
 
 The products of the sea amounted to $3,044 301 
 
 " " of the forest " ll,64o'571 
 
 " " of agriculture " 170,512 460 
 
 " " of manufactures " 60,844.374 
 
 Table No. 3, is a general statement of goods, wares, and merchandise of the 
 growth, produce, and manufacture of foreign countries exported from the United 
 States. This embraces merchandise paying duties ad valorem, such as is free of 
 duty, entitled to drawback, from warehouse and not from warehouse. 
 
 Table No. 4, is a summary of the above table, from which are derived the fol- 
 lowing results : 
 
 Total value of merchandise paying duties ad valorem $17,406,172 
 
 Total value of merchandise free of duty 6,342 342 
 
 Total value of exports 23,748 514 
 
 To which add value exported from San Francisco, and not received 
 in time to be included in this statement 1,101,680 
 
 24,850,194 
 
432 COMMERCE AND NAVIGATION. 
 
 Total value of domestic exports brought from state- 
 ment 2 $252,047,806 
 
 To ■which add value exported from San Francisco, and 
 
 not received in time to be included 1,343,064 
 
 253,390,870 
 
 Total value of exports 278,241,064 
 
 Table No. 5, is a general statement of merchandise of the character specified in 
 tat)le 3, imported into the United States ; and 
 
 Table No. 6, is a summary of the same, for which we have the following totals : 
 
 Paying duties $208,975,060 
 
 Free of duty 32,519,034 
 
 Total 301,494,094 
 
 To which add value imported into Sati Francisco and not received in 
 
 time to be included in this statement 3,068,287 
 
 Total 304,562,381 
 
 Table No. 7, is a statement exhibiting the number of American and foreign 
 vessels with their tonnage and crews, which cleared from the United States for 
 foreign countries during the fiscal year. By this table it appears that there were : 
 
 Tonnage. 
 
 Of American vessels 9,570 3,911,392 
 
 With crews of men 141,028 
 
 " " ofboys 797 
 
 Of foreign vessels 9,503 2,107,802 
 
 With crews of men 98,647 
 
 " " ofboys 1,196 
 
 Total number of vessels 19,073 6,019,194 
 
 " " of men 239,645 
 
 " " ofboys 1,993 
 
 Table No. 8, is a statement exhibiting the same thing in regard to vessels which 
 entered into the United States from foreign countries during the same time ; the 
 totals of which are as follows: 
 
 Tonnage. 
 
 American vessels 9,455 3,752,115 
 
 Crews of men 135,927 
 
 " ofboys 726 
 
 Foreign vessels 9,648 2,132,224 
 
 Crews of men 100,243 
 
 " of boys 1,212 
 
 Total of both descriptions of vessels 19,103 5,884,339 
 
 Total of seamen 236,170 
 
 Total ofboys 1,938 
 
 Table No. 9, is a statement of the national character of the foreign vessels which 
 entered into and cleared from the United States for foreign countries during the 
 year. By this table it appears that the number of vessels which entered wag 
 9,648, of 35 different national characters, and that the number which cleared for 
 foreign countries was 9,503. 
 
 Tabic No. 10, is a statistical view of the commerce of the United States, exhi- 
 biting the value of exports to and imports from each foreign country, and the 
 tonnage of American and foreign vessels arriving from and departing to each 
 foreign country, during the year. 
 
 From this table it appears that the total balance of exports embracing domestic 
 
 and foreign produce was $275,796,320 
 
 And that the amount of imports was 301,494,094 
 
 Being an access of the latter over the former of. 26,697,774 
 
 Table No. 11, gives a detailed statement of the commerce of each State and Ter- 
 ritory, the results of which are of course the same as those already given in other 
 tables, with the exception that in this table th« portions belonging to each State 
 and Territory respectively are separately shown. 
 
COxMMERCE AND NAVIGATION. 433 
 
 Table No. 12, is a statement exhibiting the number of American and foreign 
 vessels, with their tonnage and crews, which cleared from each district of the 
 United States fur foreign countries, during the yejir. 
 
 The results of this table are the same with those of No. 7, apportioning to each 
 district separately the number of vessels, quantify of tonnage and number of crews. 
 
 Table No. 13, is a similar statement of vessels that entered into each district 
 from foreign countries during the same period. 
 
 Table No. 14, is a statement ot the tounage of the United States as apportioned 
 to the several districts. The following abstract will show the aggregate tonnage 
 of the United States on the 30th June, 1854. 
 
 Permanent registered tonnage 1,829,286 56 
 
 Temporary registered tonnage 504,532 55 
 
 Total registered tonnage '. 2,333,819 IG 
 
 Permanent enrolled tonnage 2,397,357 76 
 
 Temporary enrolled tonnage 13,778 01 
 
 Total enrolled tonnage 2,411,135 77 
 
 Licensed tonnage under twenty tons employed in the 
 
 coasting trade 48,214 32 
 
 Licensed tonnage under twenty tons employed in the 
 
 cod fishery 9,733 33 
 
 Total licensed tonnage under twenty tons 57,947 65 
 
 4,802,902 63 
 
 Of the enrolled and licensed tonnage, there were employed in the — 
 
 Coasting trade 2,273,900 48 
 
 Cod fishery 102,194 15 
 
 Mackerel fishery ; 35,041 14 
 
 Whale fishery 
 
 2,411,135 77 
 Ofthe registered tonnage, (amounting as above stated, to 2,333,8 19 16,) 
 
 there were employed in steam navigation 95,036 30 
 
 Of the enrolled tonnage, (amounting as above stated, to 2,411,135 77,) 
 
 there were employed in steam navigation 581,570 77 
 
 Total steam tonnage 676,607 12 
 
 Table No. 15, a statement giving a condensary view of the tonnage of the several 
 districts of the United States on the same day. A few of the commercial cities, 
 as exhibited below, will furnish an opportunity of comparing the importance of 
 their respective trades. 
 
 Tons and 95ths. 
 The city of New York has of registered, enrolled and licensed tonnage.. 1,262, 798. 08 
 " Boston " " " " 495,879.51 
 
 " Philadelphia " " " " 268,746.62 
 
 " New Orleans " " " " 183,818.08 
 
 '■ Baltimore " " " " 170,835.35 
 
 " New Bedford " " " " 165,910.28 
 
 '= Bath " " " " 154,501.27 
 
 " Portland " " " " 123,672.48 
 
 " Waldsborough " " " " 122,735.80 
 
 No other city in the United States reaches 100,000 tons. 
 
 The aggregate are, of registered tonnage 2,333,819.16 
 
 Of enrolled and licensed tonnage 2,469,083.47 
 
 Total .4,802,902.6 3 
 
 55 — 
 
434 
 
 COMMERCE AND NAVIGATION. 
 
 Table No. 16, a statement showing tlie number and class of vessels built, and 
 the tonnage thereof, in each State and Territory of the United States during the 
 year ending 30th June, 1854. The totals in some of the States are as follows: 
 
 Maine, the largest number 343 
 
 New York, next largest number V.Ol 
 
 Pennsylvania " " 2.37 
 
 Massachusetts " " 180 
 
 Maryland " " 122 
 
 No other State reaches the number of 100. 
 
 The aggregate number of all the vessels, of ever_v class, built in the several 
 States and Territories is 1,774, of which 334 were ships and barques. Their ton- 
 nage amounted to 535,636.01 95ths 
 
 Table No. 17. — A comparative vieio of the registered and enrolled tonnage of the 
 United States, shoiiing the tonncge employed in the u-hale fishery, also the propor- 
 tion of the enrolled and licensed to7tna,c employed in the coasting trade, cod fishery, 
 mackerel fishery, and whale fishery, from 1815 Co 1854, inclusive. 
 
 1815. 
 
 1816. 
 
 1817. 
 
 1818. 
 
 1819. 
 
 1820. 
 
 1821. 
 
 1822. 
 
 1823. 
 
 1824. 
 
 1825. 
 
 1820. 
 
 1827. 
 
 1828. 
 
 1829. 
 
 1830. 
 
 1831. 
 
 1832. 
 
 1833. 
 
 1834. 
 
 1835. 
 
 1836. 
 
 1837. 
 
 1838. 
 
 1839. 
 
 1840. 
 
 1841. 
 
 1842 
 
 1843 
 
 1844. 
 
 1845. 
 
 1846. 
 
 1847. 
 
 1848. 
 
 1849. 
 
 1850. 
 
 1851. 
 
 1852. 
 
 1853. 
 
 1854. 
 
 Rpfjistered 
 loniiaxe. 
 
 Enrolled Total ton-' K<'gi>^t\l|Tonnace,P''"P°'"°"g„fp,J5.^^^,«';,'';^^*'^ '""""8 
 
 ton iiacevniploy'ili 
 
 n wlialein steam Coasting .Codfish- M^'ck"! Wh'le 
 tisliery. i.aviijal'n trade. ery. Hslierj-. fis.r 
 
 854,294 
 800.759 
 809,724 
 606.088 
 612,930 
 919,047 
 619.896 
 628J150 
 639,920 
 609,972 
 700,787 
 737,978 
 747.170 
 812,619 
 6.50,142 
 576,675 
 620,451 
 086i989 
 750;026 
 857,438 
 885,520 
 897,774 
 810,447 
 822,591 
 834.244 
 899i 764 
 845,803 
 975,358 
 1.009,305 
 1J068,764 
 1,095,172 
 1,131.286 
 
 i,24i;3r. 
 
 1,360,886 
 1,438.941 
 1,585J711 
 1,726.307 
 1,899', 448 
 2,103.674' 
 2,333,819 
 
 513,833 
 
 571,4.->8| 
 
 590,186! 
 
 619,095 
 
 647,821 
 
 661,118 
 
 679,062 
 
 696,548 
 
 696,644 
 
 729,190 
 
 722,323 
 
 796,210 
 
 873,437 
 
 928,772 
 
 610.654 
 
 6151311 
 
 647^394 
 
 752^460 
 
 856,123 
 
 901.468 
 
 939^118 
 
 984,328 
 
 1,086,238 
 
 1,173,047 
 
 1.262,234 
 
 1,280,999 
 
 1,184,940 
 
 1,117,031 
 
 1,149,297 
 
 1,211,330 
 
 1,321,829 
 
 1,431,798 
 
 1,. 597, 732 
 
 1,793,155 
 
 1,895,073 
 
 1,949^743 
 
 2,046,123 
 
 2,238,99 
 
 2,303,336 
 
 2,469,083 
 
 1,368,127 
 1,372,218 
 1,399,921 
 1,225,184 
 1,260,751 
 1,280,166 
 i;298,958 
 1,324; 699 
 1,. 336, 565 
 1,389,163 
 1,423,110 
 1,5.34,189 
 1,620,607 
 1,741,391 
 1,260,797 
 1,191,776 
 1,267,846 
 1,439,450 
 1,606,149 
 1,758,907 
 1,824,940 
 1,820,132 
 1,896,685 
 1,995,639 
 096,478 
 2.180,764 
 i! 130, 744 
 2^092,390 
 2,158,6(tl 
 2,280,095 
 2,417,002 
 2,562, 084j 
 2,839,045 
 3, 154, 041 1 
 3,.334,015| 
 3,535,454, 
 3,772,439 
 4,138^440 
 4,407,010 
 4,802,902 
 
 8,471 
 
 16,134 
 
 31,700 
 
 35,391 
 
 26,070 
 
 45,449 
 
 39,918 
 
 33,165 
 
 35,379 
 
 41^757 
 
 45,653 
 
 54,621 
 
 57,284 
 
 38,911 
 
 82,315 
 
 72,868 
 
 101,158 
 
 108,060 
 
 97^640 
 
 144,680 
 
 127,241 
 
 119,629 
 
 131,845 
 
 136,926 
 
 157,405 
 
 151,612 
 
 152,374 
 
 168,293 
 
 190,695 
 
 189,980 
 
 193,858 
 
 192,179 
 
 180,186 
 
 146,016 
 
 181,644 
 
 193,79 
 
 193,203 
 
 181,90 
 
 24,879 
 
 21,609 
 
 23,061 
 
 34,058 
 
 40,197 
 
 39,418 
 
 54,036 
 
 64,471 
 
 34,445 
 
 90,813 
 
 101,849 
 
 122,815 
 
 122,815 
 
 145,556 
 
 154,764 
 
 193,413 
 
 204,938 
 
 202,339 
 
 175,088 
 
 229,661 
 
 236,867 
 
 272,179 
 
 326.018 
 
 347,893 
 
 404,841 
 
 427,891 
 
 462,394 
 
 525,946 
 
 583,60 
 
 643,240 
 
 514,097 
 
 676,607 
 
 435,066' 
 
 479,979 
 
 481,457 
 
 503^140 
 
 523^556 
 
 539,080 
 
 559,435 
 
 573,080 
 
 566,408 
 
 589,223 
 
 587,273 
 
 666,420 
 
 732,937 
 
 758,922 
 
 508,858 
 
 516.978 
 
 539,723 
 
 649,627 
 
 744^198 
 
 783,618 
 
 792,301 
 
 873,023 
 
 956,980 
 
 1,041,105 
 
 1,153,551 
 
 1,176,694 
 
 1,107,067 
 
 1,045,753 
 
 1,076,155 
 
 1,109,614 
 
 1,190,898 
 
 1,289,870 
 
 1,452,623 
 
 1,620,988 
 
 1,730,410 
 
 1,755,796 
 
 1,854,317 
 
 2,008,021 
 
 2,134,256 
 
 2,273,900 
 
 26 
 37 
 53 
 58 
 65 
 60 
 51 
 58 
 67 
 68 
 70 
 63 
 74 
 74 
 101 
 61 
 60 
 54 
 62 
 54 
 72 
 62 
 80 
 70 
 72 
 76 
 66 
 54, 
 61 
 85 
 69 
 72: 
 70: 
 82 
 42 
 85 
 87 
 102 
 109 
 102 
 
 510 
 
 879 
 
 990 
 
 551 
 
 044 
 
 842 
 
 351 
 
 405 
 
 621 
 
 419 
 
 626 
 
 761 
 
 048 
 
 94 
 
 796 
 
 554 
 
 977 
 
 027 
 
 720 
 
 403 
 
 374 
 
 307 
 
 551 
 
 064 
 
 258 
 
 035 
 
 551 
 
 804 
 
 224 
 
 224 
 
 825 
 
 516 
 
 1 
 
 651 
 
 970 
 
 646 
 
 475 
 
 659 
 
 227 
 
 194 
 
 35,973 
 40,210 
 47,427 
 48,725 
 61.082 
 64,443 
 64,425 
 46,810 
 56,649 
 35,983 
 28,269 
 11,321 
 16.096 
 11^775 
 16,170 
 21,413 
 6,463 
 31,451 
 43.558 
 73,853 
 58,111 
 50,539 
 72,546 
 ,59,850 
 35,041 
 
 1,229 
 
 i,168 
 
 349 
 
 614 
 
 686 
 
 1,053 
 
 1,924 
 
 3,133 
 
 585 
 
 180 
 
 226 
 328 
 180 
 
 792 
 481 
 377 
 478 
 364 
 
 1,573 
 
 1,894 
 
 5,229 
 
 439 
 
 377 
 143 
 321 
 206 
 439 
 
 432 
 
COMMERCE AND NAVIGATION. 
 No. 18. 
 
 435 
 
 Statement showiug the number and class of vessels built, and the tojmage thereof, in 
 the several States and Territories of the IJnited States, from 1815 to 1854, inclusive. 
 
 Years. 
 
 Class of vessels. 
 
 1815. 
 1816. 
 1817. 
 1818. 
 1819. 
 1820. 
 1821. 
 1822. 
 1823. 
 1824. 
 1825. 
 1826. 
 1827. 
 1828. 
 1829. 
 1830. 
 1831. 
 1832. 
 1833. 
 1834., 
 1835., 
 1836.. 
 1837., 
 1838., 
 1839., 
 1840., 
 1841., 
 1842.. 
 1843., 
 1844.. 
 1845.. 
 1846.. 
 1847.. 
 1848.. 
 1849. 
 1850.. 
 1851.. 
 1852.. 
 1853., 
 1854.. 
 
 136 
 
 76 
 
 34 
 
 53 
 
 53 
 
 21 
 
 43 
 
 64 
 
 55 
 
 56 
 
 56 
 
 71 
 
 55 
 
 72 
 
 44 
 
 25 
 
 72 
 
 132 
 
 144 
 
 98 
 
 25 
 
 93 
 
 67 
 
 66 
 
 83 
 
 97 
 
 114 
 
 116 
 
 58 
 
 73 
 
 124 
 
 100 
 
 151 
 
 254 
 
 198 
 
 247 
 
 211 
 
 255 
 
 269 
 
 334 
 
 224 
 
 122 
 
 86 
 
 85 
 
 82 
 
 60 
 
 89 
 
 131 
 
 127 
 
 156 
 
 197 
 
 187 
 
 1.53 
 
 108 
 
 68 
 
 56 
 
 95 
 
 143 
 
 169 
 
 94 
 
 50 
 
 65 
 
 72 
 
 79 
 
 89 
 
 109 
 
 101 
 
 91 
 
 34 
 
 47 
 
 87 
 
 164 
 
 168 
 
 174 
 
 148 
 
 117 
 
 65 
 
 79 
 
 95 
 
 112 
 
 681 
 781 
 559 
 428 
 473 
 301 
 248 
 260 
 260 
 377 
 538 
 482 
 464 
 474 
 485 
 403 
 416 
 568 
 625 
 497 
 301 
 444 
 507 
 501 
 439 
 378 
 310 
 273 
 138 
 204 
 322 
 576 
 689 
 701 
 623 
 547 
 522 
 584 
 681 
 661 
 
 O OS 
 
 o a 
 
 274 
 424 
 394 
 332 
 242 
 152 
 127 
 168 
 165 
 166 
 168 
 227 
 241 
 196 
 145 
 116 
 94 
 122 
 1 
 
 180 
 100 
 164 
 168 
 153 
 122 
 224 
 157 
 404 
 173 
 279 
 342 
 355 
 392 
 547 
 370 
 290 
 326 
 267 
 394 
 386 
 
 15 
 
 26 
 
 35 
 
 45 
 
 38 
 
 33 
 
 43 
 
 37 
 
 34 
 
 100 
 
 65 
 
 68 
 
 30 
 
 124 
 
 135 
 
 90 
 
 125 
 
 64 
 
 78 
 
 137 
 
 79 
 
 163 
 
 163 
 
 225 
 
 198 
 
 175 
 
 208 
 
 159 
 
 233 
 
 259 
 
 271 
 
 281 
 
 Total ton- 
 nage. 
 
 1,314 
 
 1,403 
 
 1,073 
 
 898 
 
 850 
 
 534 
 
 507 
 
 623 
 
 622 
 
 781 
 
 994 
 
 1,012 
 
 934 
 
 884 
 
 785 
 
 637 
 
 711 
 
 1,065 
 
 1,188 
 
 937 
 
 507 
 
 890 
 
 949 
 
 898 
 
 858 
 
 872 
 
 762 
 
 1,021 
 
 482 
 
 766 
 
 1,038 
 
 1,420 
 
 1,598 
 
 1,851 
 
 1,547 
 
 1,360 
 
 1,367 
 
 1,444 
 
 1,710 
 
 1,774 
 
 1.54 
 131 
 
 86 
 
 ,624 39 
 668 04 
 ,393 37 
 ,421 20 
 ,817 86 
 784 01 
 856 01 
 346 93 
 ,007 57 
 ,939 00 
 ,997 25 
 ,4.38 35 
 342 67 
 58 
 098 65 
 094 24 
 ,962 68 
 539 16 
 626 36 
 ,330 37 
 !8 52 
 ,627 49 
 ,987 22 
 135 44 
 989 34 
 309 23 
 ,893 71 
 ,083 64 
 617 77 
 537 29 
 ,018 02 
 203 93 
 243.732 67 
 318,075 54 
 256,577 47 
 272,218 54 
 298,203 60 
 351,493 41 
 425,572 49 
 535,616 01 
 
 75 
 
 90 
 
 114 
 
 126 
 
 104 
 
 98 
 
 77 
 
 58, 
 
 85: 
 
 144 
 161 
 118 
 
 46 
 113 
 122 
 113 
 120 
 118 
 118 
 129, 
 
 63 
 103 
 146, 
 188 
 
III. -THE ARMY. 
 
 [Abstract of Documents accompanying the Report of the Secretary of War.] 
 
 Nos. 1, 2, 3. 
 Documents annexed to this report numbered one, two, and three, are reports — 
 1. From the Department of Texas — 2. Of New Mexico — 3. Of the West. The 
 report of the Commanding General, which we give below, and the report of the 
 Commissioner of Indian Affairs, embrace as full an account of the matters treated 
 in these documents, as is consistent with the plan of our work. 
 
 No. 4, 
 Covers instructions from the Secretary of War, respecting the construction of 
 military roads in Washington Territory, and in the territories of New Mexico and 
 Utah. 
 
 No. 5, 
 Is Captain Meigs's report on the progress of the works for the extension of the 
 U. S. Capitol. For this edifice, appropriations have been made to the amount of 
 $2,350,000; of which there has been expended $1,267,869 33; leaving available 
 for the fiscal year ending 30th June, 1855, $1,082,130 67. Required for the year 
 ending 30th June, 1856, the sum of $325,000. 
 
 No. 6.— REPORT OF THE COMMANDING GENERAL. 
 
 Head Quarters of the Army, 1 
 New York, November 18, 1854. J 
 Sir: — I beg to offer the following professional suggestions on matters touching 
 the "discipline and military control" of the army, with which (and in those 
 terras) I am charged by the army regulations. 
 
 In my last annual report (Ex. Doc. I, House of Representatives, 33d Congress, 
 1st session, pp. 96 and 97,) I invited attention to the dispersed condition of the 
 troops, as being highly unfavorable to instruction and discipline, and suggested, 
 that something might be done to improve the morale of the army by — 
 
 1. A revision of the rules and articles of war, incorporating a system of reivards 
 tvith punishments ; harmonizing material discrepancies, the result of many hasty 
 enactments, and more clearly defining rights and duties, as well as crimes, and 
 affixing definite and appropriate punishments, according to the nature and degree 
 of the offences. 
 
 2. A radical change in the system of recruiting, which would leave, with every 
 regiment (by dividing it into service and depot companies — alternating in 
 duty) the filling up its own ranks, and thus establishing an early acquaintance 
 and sympath}' between officers and non-commissioned officers and their men. 
 
 3. A retired list for snperanuated and disabled officers, recommended with 
 much force by many administrations and always favorably reported upon by the 
 militar}' committees of the two Houses of Congress; and 
 
 4. Placing the pensions of the army on the same footing with those of the navy. 
 Reflection and experience have strengthened the conviction that such measures 
 
 would much improve the well being and efficiency of the army. To that end, 
 Congress, at its last session, gave additional pay to enlisted men and authorized 
 promotion to commissions from the ranks — enactments which will, no doubt, 
 heighten the moral condition of our non-commissioned officers and privates. 
 Something more, however, is still needed to secure the enlistment of a sufficient 
 number of young men, of respectable character and attainment, (for promotion to 
 lieutenancies) under the standard (not too high) established by the War Depart- 
 ment. I allude to the suggestions above, and more i)articularly to the revision 
 of the code, including a" fence of law around the rights of inferiors, beginning 
 with privates, against caprice and violence on the part of authority. Such is the 
 circle of ameliorations I beg earnestly to recommend in order to render the mili- 
 tary career eligible from the beginning, and to give to the whole army the high- 
 est efficiencv. 
 
 436 
 
THE ARMY. 437 
 
 During the past j-ear, the troops in the Department of the West, the Depart- 
 ment ofTexas, the Department of New Mexico, and the Department of the Pacific, 
 have been most actively engaged in endeavoring to protect our settlements on the 
 Indian borders, and emigrants passing through the Indian country. The bad 
 feeling shown by many of the Indian tribeS; and continued acts of open hostility 
 on the part of others, have cost our small detachments much arduous service, 
 with severe sufferings, including the loss of many valuable officers and men. 
 With them, the campaigns hardly ever intermit, and although the conflicts have 
 been on a small scale, our troops, on every occasion, have displayed a noble zeal 
 and daring, which seem to me worthy of being better known and better rewarded. 
 I ha\'e, heretofore, presented the names of a few of the more distinguished officers 
 in these combats, for brevets. The number might now, perhaps, be doubled. 
 This reward of merit, though cheap to the Grovernment, is always coveted by the 
 noblest spirits. At least it is hoped that the number of our regiments in the pre- 
 sence of active, numerous, hostile and treacherous bands, may, at length, be sen- 
 sibly increased, in order to secure the defence and protection contemplated, and 
 with, on our part, a smaller sacrifice of life., which is always greatest with inade- 
 quate numbers, even when most triumphant. This is an argument dictated by 
 humanity, and policj' is ecjually on the side of a considerable augmentation ; for 
 there is not a petty tribe, in the interior, that does not believe itself^ — ^judging 
 from the handfuls of troops we exhibit here and there — equal in numbers to the 
 people of the United States ! 
 
 With four (perhaps, three) additional regiments, most of the small posts on 
 Indian borders might be withdrawn and the troops, in battalions, held in good 
 strategicivl positions. When at rest, instruction and discipline would be advanc- 
 ed, and each battalion, leaving a small guard behind, might, in colunm, com- 
 posed of at least, a portion of cavalry, be instructed to make an annual circuit 
 through the nearest Indian country — always seen in a condition to pursue and to 
 strike — in order to overawe hostile machinations, and to punish violations of 
 peace. Similar views have often been presented in my annual reports, beginning 
 with 1842; but from the want of troops they have been only partially put into 
 practice. 
 
 It is with some diffidence that I beg a renewed consideration of another subject 
 that received the favor of the War Department in its last annual report. I 
 allude to tliepay of army officers. 
 
 Out of the service, it does not seem to be understood or felt, that the success 
 of the United States in the recent war with Jlexico, by flooding the country with 
 gold and prosperity, and thence bringing about an enormous increase in the price 
 of every necessary and comfort of life, has, practically, imposed a tax (by that 
 increase) of forty dollars in every hundred on the annual pay and emoluments 
 of the officers who won those successes! ! (The enlisted men, it has been seen, 
 have had their proportionate augmentation of pay.) 
 
 I have the honor to remain, with high respect, your most obedient servant, 
 
 W INFIELD SCOTT. 
 
 Hon. J. Davis, Secretary of War, Washington, D. C. 
 
 No. '7.— REPORT OF THE QUARTERMASTER GENERAL. 
 
 The balance on the books of this office, to be accounted for at the commence- 
 ment of the fiscal year, was $954,937 51. 
 
 Deducting from this, however, certain accounts no longer under the control of 
 the office, and others in a state of adjustment under acts of Congress, there will 
 be left a positive balance of $731,143 91. 
 
 Of this sum $89,027 09 are in the hands of nineteen officers and agents, who 
 have failed to render their accounts at the close of the year. The remainder i? 
 distributed among 169 disbursing officers, as applicable to the payment of out- 
 standing claims against the Department at the end of the year, and to the service 
 of the current year. 
 
 The report states that supplies, consisting of fuel, forage, straw for bedding, 
 stationery, medicines for horses and mules, travelling forges, blacksmith's tools, 
 clothing and dragoon equipments, camp and garrison equipage, and small supplies 
 for the mounted service, costing in the aggregate $1,128,281 63, have been 
 promptly furnished to those entitled to receive them. 
 
438 
 
 THE ARMY. 
 
 Transportation for these supplies, for recruits from their various depots, and 
 for troops from station to station, amounted to $1,839,376 11. 
 
 Repairs of buildings have cost $301,335. 
 
 Rent of quarters, barracks, storehouses, wharves, grounds for military stations 
 in the new territories, and in Texas and California, have required an expenditure 
 ot $115,415. 
 
 The report asks for an increase of storekeepers, and of compensation to ord- 
 nance sergeants, together with an enlargement of the duties of the latter; it asks, 
 also, that a single auditor may be charged with the settlement of all accounts of 
 the Quartermaster's Department, and for an allowance of a reasonable extra com- 
 pensation to ofticers of the line, temporarily employed as disbursing oflRcers. It 
 adverts, also, to the expediencj- of improving the roads and other avenues of 
 communicatioa to and between the posts on the frontiers. 
 
 No. 8.— REPORT OF THE COxMMISSARY GENERAL. 
 At all points the troops have been amply supplied with good and wholesome 
 provisions. Issues have been made to Indians at many of our posts, with a ben- 
 eficial influence. The experiments to test the comparative value of the solar 
 evaporated salt of Syracuse, and Turk's Island salt, are approaching their termi- 
 nation, and the results will be reported in a few months. The estimated price of 
 the ratio is the same as of the present year. The accounts of officers in this de- 
 partment have generally been punctually rendered. 
 
 No. a— REPORT OF THE PAYMASTER GENERAL. 
 In the hands of paymasters, and received by them to be accounted for, $3,065,- 
 070 39; expended as follows: 
 
 Payments to regular troops $2,608,330 24 
 
 Payments to volunteers 41,053 90 
 
 3 months' extra pay to regulars 5,214 90 
 
 3 months' extra pay to volunteers 8,241 50 
 
 In paying to military academy 86,591 52 
 
 Total expended $2,749,432 06 
 
 Leaving a balance of. 315,638 33 
 
 These balances have, as far as heard from, been expended and accounted for since 
 the commencement of ^he present fiscal year. As far as returns have been re- 
 ceived, the troops have all been paid to 31st of August last. 
 
 No. 10.— REPORT OF THE SURGEON GENERAL. 
 
 The amount of expenditures, on account of the medical department of the 
 army,fortheyearending June 30, 1854, was $52,666 65; of which sum $15,299 20 
 was paid for the services of private physicians. Deducting this amount, together 
 with $4,616 51 tor medical and hospital supplies, both of which accounts origi- 
 nated prior to the commencement of the last fiscal year, there will remain as the 
 proper expenditure of the year, $32,750 94. 
 
 It appears from this report that 25,656 cases of disease have been under medical 
 treatment during the fiscal year; that the mean strength of the army, for the 
 same period was 8,095 ; and that consequently every individual in it must have 
 been sick at least three limes during the year. 
 
 The meteorological observations under the ausjjices of this bureau, from 1842 to 
 135U, have been arranged and tabulated, and are now ready fcr the press. 
 
 No. 11.— REPORT OF THE CHIEF ENGINEER. 
 Fortifications. 
 In this document the importance of sea-coast defence, as illustrated during the 
 present season, is exhibited in detail. A short statement of the present condition 
 of the several fortifications is given under the head of each. 
 Military Acadkmy. 
 This establishment continues to work successfully, and with constant progress. 
 The course of studies has been extended to five years. The academical arrange- 
 
THE ARMY. 439 
 
 mcnts and progress of the elder cadets will not he disturbed by the chanpe. In- 
 creased attention will be given to military engineering, reconnoissances, artiller}-, 
 the tactics of special arms, and their subdivisions. An appropriation of $20,000 
 is recoramendcd for commencing the erection of officers' quarters. A professor- 
 ship of etliics, independent of the chaplaincy, is recommended; and the separa- 
 tion of the instruction in artillery and cavalry. An appropriation of $5,000, to 
 complete tlic extension of the buildings occupied by the professors, is urged, 
 together with an increase in the pay of the professors of French and drawing. 
 
 The report of the Board of Visitors, dated June 22d, 1854, is highly commenda- 
 tory of llie condition of the institution. The board regard the extension of the 
 period of study as the only alternative of requiring a higher standard of qualifi- 
 cation on entering the academy, which latter course would cut off from its bene- 
 fits the sons of that large and highly respectable class of citizens who cannot 
 command the means necessary to educate their children to that standard. 
 
 An increase in the compensation of acting assistant professors is recommended, 
 and, in an even more emphatic manner, an increase in the jjay of cadets. P^or the 
 latter, it is stated, such sum should be allowed as will place the cadet, " with 
 proper economy, beyond the reach of want." 
 
 Small appropriations are recommended for supplying the academy with water 
 and for furnishing the hospital for cadets. A high compliment is paid to the 
 superintendent of the academy ; and the gentlemen at the head of the several de- 
 partments under him arc earnestly commended. 
 
 The report of the committee on finance shows that the amount unexpended of 
 the appropriation for the fiscal year ending June 30, 1853, is $31,501 74. Tlie 
 amount of the appropriation for the fiscal year ending June 30, 1854, is $54,180 00, 
 the amounts received from other sources $1,339 52, making the whole available 
 funds for the fiscal year ending June 30, 1854, the sum of $87,021 20. 
 
 A statement of the rank, pay, and emoluments, of the officers, professors, in- 
 structors, cadets, and employes at the academy, shows that five of the professors 
 receive each the sum of $2,000 p>er annum, while the professors of drawing and 
 French, are in the annual receipt of only $1,500 each. It is recommended that 
 the pay of the last two be increased. 
 
 After a careful examination of the accounts exhibited, together with their own 
 observations^ and inquiries, the committee is satisfied that even with the rigid sys- 
 tem of economy and accountahUity now practised by the cadet, he cannot meet 
 the necessary expense of the course with the pay he now receives, and they there- 
 fore recommend that his pay be raised to $33 per month, in accordance with the 
 bill reported to the iSenate of the United States. 
 
 In the report of the committee on instruction appointed by the Board of Visitors, 
 a suggestion is made that if the period of instruction in the academy be no 
 prolonged, a preparatory .school may be established with advantage. 
 
 Appended to the report of the board is an act approved May 10th, 1854, making 
 appropriations for the year ending June 30, 1855, for ordinary expenses and 
 improvements, amounting to $101,281 ; also, a letter explanatory of thej?stimatcs 
 for the year ending June 30, 1856. In this letter an appropriation of $15,000 is 
 recommended, for the purpose of providing illuminating gas for the establishment. 
 
 An interesting talde is also appended, exhibiting the condition in life of the 
 cadets for the last thirteen years, and giving the occupations of their fathers, and 
 the number of orphans, the number whose parents were in moderate, reduced, 
 indigent, and independent circumstances. 
 
 ■Rivers and nAKBOR.s, &c. 
 
 The works of this character, in charge of this department, have been prosecuted 
 during the year with vigor and general success. The surveys in hand have, with 
 four or five"^exceptions, where uncontrollable difficulties intervene, been iirosecuted 
 to completion ; and projects of improvement, based upon them, have been fur- 
 nished by the surveying officers for the consideration of Congress. 
 
 The works of improvement directed by the law have, most of them, been car- 
 ried as far as the appropriations would go. A few are still in progress, being of 
 a nature where more rapid advancement could only be effected by unwarrantable 
 expenditures. The work thus tiir done, though generally incomplete, is, in many 
 cases, affording valuable aid to commercial i)ursuits. 
 
440 THE ARMY. 
 
 Washington Aq0eduot. 
 
 The lands for the line from the Great Falls to the District boundary have been 
 condemned under a law of JIaryland ; qiiaries for the cut stone and rough stone 
 requisite have been purchased, with a site for the Virginia abutment with the con- 
 pent of the State; and a final location of the site completed. The first three tunnels 
 have been begun, and 450 feet of them completed. The water flowing in the 
 river is found to be more than thirteen times the quantity needed for the aqueduct. 
 Appropriation called for $1,000,000. 
 
 No. 12.— REPORT OF THE COLONEL OF TOPOGRAPHICAL ENGINEERS. 
 
 This document communicates the detailed reports of the several ofiBcers in the 
 actual command or direction of operations in the field. 
 
 A. 
 
 Is the annual report on the survey of the north and northwestern Lakes, by 
 Capt. J. N. Macomb. From the abstracts furnished, it appears that in all upwards 
 of one hundred thousand soundings have been made this year. The actual number 
 recorded is 101,105, which may be laid down upon the charts. In addition to these, 
 many others are made in preliminary examinations to guide in laying out the 
 work. 
 
 B. 
 
 Is a report of Brevet Colonel Turnbull, in relation to the progress of the several 
 works committed to his care on Lake Champlain, Lake Ontario, and Lake Erie. 
 
 Among these is the breakwater at Burlington, Vermont, the completion of which 
 is important to the whole commerce and navigation of Lake Champlain ; which, 
 it is supposed will quadruple within eighteen months after the reciprocity treaty 
 between the United States and the British provinces goes into effect. 
 
 This report gives an account of the state of the harbor works at Oswego, Sodar 
 Bay, Buffalo, Dunkirk, and Erie. 
 
 C. 
 
 Is the annual report of Capt. Stansbury, on all other works on Lake Erie, em- 
 braced in his district, which extends from Conneaut, near the eastern boundary 
 of the State of Ohio, to Monroe, at the mouth of the river Raisin, and embraces 
 nine harbors, viz : Conneaut, Ashtabula, Grand River, Cleveland, Black River, 
 Vermillion, Huron, Sandusky Bay, and the harbor of Monroe. 
 
 D. 
 
 The report of Lieut. Col. Graham, on the works on Lake Michigan and Lake 
 SSt. Clair, not received at the bureau in season for communication. 
 
 E. 
 
 Is the annual report of Brevet Lieut. Col. Johnson, in relation to the improve- 
 ment of the weeteru rivers. 
 
 F. 
 
 Embraces the various reports of the board of engineers, subsequent to the annual 
 
 reports of last year. 
 
 G. 
 
 Is the report of Capt. Thomas J. Lee, on the measurement of a base line for 
 the survev of the lakes. 
 
 H. 
 
 Is tlie report of Lieut. M. L. Smith, of operations connected with the Florida 
 canal survey during the past year. 
 
 The number of miles measured and levelled on the main line, was 377 
 
 Do. do. of offsets measured and levelled, was 17 
 
 Do. points, the heights of which were determined aud record- 
 ed, was 12,948 
 
 In addition, the river St. John was sounded from Falatka to Lake Jesup and 
 the Ocklawaha, and examined for a distance of 85 miles up from its mouth. 
 
THE ARMY. 441 
 
 I. 
 
 Is the report of Captain J. H. Simpson, of the operations durinfr the year, on 
 the Point Douglass and St. Louis railroad ; the Point Douglass and Fort Ripley 
 road ; and the Wabash and Mendota, road ; all in Minnesota Territory. 
 
 No. 13— REPORT OF THE CHIEF OF ORDNANCE. 
 
 This report commences with a statement of the amounts drawn from the Trea- 
 sury, expended, and remaining in the hands of disbursing oflicers, on the oOth 
 June, 1854. The aggregate to be accounted for at the commencement of the 
 year, was $1,61G,166 51 ; remaining in the hands of disbursing otficcrs, at its 
 close, $170,807 90. The report then gives a detailed account of articles pur- 
 chased and fabricated for the use of the army, to wit : Armament for fortifica- 
 tions, ordnance, ordnance stores and supplies, expenditures at the national armo- 
 ries, for arming and equipping militia, for arsenals and depots. Then follow state- 
 ments showing the apportionment of arms to the militia, the distribution of ord- 
 nance and ordnance stores to the same, those also issued to the army, the princi- 
 pal operations at the armories and arsenals, aud the improvements in the build- 
 ings and grounds of the same. 
 
 56 
 
IV. -THE NAVY. 
 
 [Documents accompanying the Report of the Secretary of the Navy.] 
 EXPLORATION OF THE ISTHMUS OF DARIEN. 
 
 Report of Lieutenant J. G. Strain, in relation to a reconnoissaiice of the Isthmus of 
 
 Darien. 
 
 Washington, October 25, 1854. 
 
 Sir: I have the honor to inform you that, in obedience to your order, I organ- 
 ized my party for the exploration of the Isthmus of Darien, between Caledonia 
 bay on the Caribbean sea, and the gulf of San Miguel, on the Pacific, and report- 
 ing myself and party to Commander George N. Hollins, of the U. S. ship Cyane, 
 sailed from the port of Philadelphia, on the 29th of December last. 
 
 Touching at Carthageua, to communicate with the New Grenadian authorities, 
 we arrived ai Caledonia bay on the morning of the 17th of January of the pre- 
 sent year. Since the breaking up of the Spanish establishments, in this portion 
 of the Isthmus, in about 1*788, the Indians had shown an invincible repugnance 
 io permitting access to their territory, which had effectually prevented any one 
 from making a satisfactory examination, and we have no account of any one 
 having landed on the shores, except Messrs. Cullen and Gisborne, each of whom 
 published reports, which exjjerience has shown to have been utterly fallacious. 
 Finding that we had arrived in force, the Indians showed us more than ordinary 
 courtesy, but begged that we would not land until the arrival of their chiefs, or 
 "old men." 
 
 On the 18th a large number of the principal men came on board the Cyane, 
 where a councii was held by Commander Hollins, which lasted some eighteen 
 hours. For a long time the Indians most tenaciously opposed our landing, but 
 finally conceded the permission to traverse the country, stipulating that their 
 private property, and especially their women, should be religiously respected. 
 
 On the evening of the 19th of January, my party landed and quartered for the 
 night at the mouth of the Caledonia river, in an Indian fishing village, which 
 had been deserted before our arrival. Some provisions having been lost by the 
 capsizing of a boat in our debarkation, we were detained until meridian, January 
 20th, when we commenced our march up the valley of the Caledonia, one party 
 following the bank, while another, which I accompanied, ascended the river in a 
 canoe, which we were soon compelled to abandon, owing to the shallowness of 
 the river. 
 
 The party, when they left the beach, consisted of passed midshipman Wm. T. 
 Truxtun, 1st assistant engineer John M. Maury and midshipman H. M. Garland, 
 U. S. Navy. The civil engineers and assistants were, A. F. Boggs, S. H. Kettle- 
 well, Sterret Hollins, G. U. Mayo; Dr. J. C. Bird, was surgeon of the party; 
 Theodore Winthrop, Mr. Holcomb, and Frederick Avery, were volunteers, serving 
 without pay, but performing the duties of assistant engineers. In addition to 
 these gentlemen were thirteen of the crew of the Cyane — volunteers, who had 
 been permitted to accompany me by Commander Hollins. 
 
 Messrs. Ramon Castillo Rada and Bernardo Polanco, commissioners, sent by 
 the Government of New Grenada in advance of the Cyane, to explain our peace- 
 able intentions to the Indians, had also joined our party — which numbered, in 
 all, twenty-seven men, well armed with carbines and muskets, and forty rounds 
 of ammunition each. 
 
 With the exception of the seamen of the Cyane, the party were armed with 
 Colt's pistols, with fifty rounds of ammunition for each. Every member of the 
 party carried a blanket and a haversack, containing ten days' provisions, which, 
 depending upon the official statements of Jlr. Gisborne, I supposed would be 
 sufficient to carry us across the country and back, although we had reason to 
 believe that we could supply anj' deficiency from H. B. Majesty's steam sloop 
 Virago, which had been stationed in Darien harbor, on the Pacific. 
 
 442 
 
EXPLORATION OF THE ISTHMTTS. 443 
 
 Our first day's? jonrncv terminated at a deserted Indian rancho, where we pass- 
 ed the nioht, and rontinucd our jonrney early on the followinsr niominp-. Aliout 
 8, A. M.. on the 21st, we arrived at a small branch of the river, which entered from 
 the southward and westward, from which, owing; to the scanty vegetation, which 
 appeared to he destroyed by the inundations of the rainy season, we had a fair 
 view of a larp^-e portion of the Caledonia valley. Very "much to mv surprise 1 
 found the whole valley enclosed bv a semi-circular range of mountains, abutting 
 upon the sea coast range, and forming a barrier, ranging in height from ;!r)00 to 
 about 1000 feet. Carefully examining the whole range, with an e.Kcellent spy- 
 glass, I could find no opening in any direction, but as Lionel Gisborne, civil en- 
 gineer, whose report and maps were in ray possession, had stated above his pro- 
 fessional signature to his employers in England, and had i)roniulgated to the 
 world, that the summit level between the two oceans was but one hundred and 
 fifty feet, I was convinced that there must be some lower point which we had not 
 discovered. As the eastern branch of the river was much the largest and most 
 likely to cut through the Cordillera, I determined to follow it, which I did until 
 about meridian, when, finding that it was leading us, by a series of rapids and 
 cascades, into t^e highest range of mountains and away from, the Pacific, I de- 
 termined to retrace my steps and follow the southwest branch, which we had 
 passed in the morning. In our ascent, upon the eastern branch of the river, we 
 bad marched through an Indian village, capable of containing some eight hun- 
 dred inhabitants, but was entirely deserted in anticipation of our arrival. Above 
 the village we met three Indians, one of whom wished to prevent our ascending 
 the eastern branch of the Caledonia, and attempted to lead us toward the south- 
 west branch, but I, believing that he only wished to get us away from their vil- 
 lage, refused to accompany him. Subsec(uent events tend to convince me that he 
 acted in good faith, and would have shown us the path leading to the Pacific 
 water shed. 
 
 Following the southwest branch until about sunset, we encamped on its bank 
 and on the following morning continued ascending until our progress was barred 
 by a caiion too deep to ford, with high and scar]ied banks on each side. The 
 party surmounted this obstacle by different routes — some climbihg the steep bank 
 near the canon, while I with the majority of the officers and men, sought an easier 
 ascent about one hundred yards below. While ascending at this point I was for- 
 tunate enough to discover an Indian trail, which I was convinced led to the Pa- 
 cific side of the Cordillera, and making the customary recall, soon had all the 
 party collected, except Messrs. Holcomb, Bird, Winthrop and HoUins, and a seaman 
 from the Cyane named Roscoe. 
 
 I caused three carbines to be fired in quick succession, which was a positive 
 signal for the recall of all parties. This signal was answered apparently some 
 distance up the river and supposing that they were looking for some easier ascent 
 to rejoin, we continued on the Indian trail to the westward, occasionally firing 
 carbines and receiving responses. 
 
 Following the path and crossing three peaks increasing in height as we advanc- 
 ed, we descended the western slope and at 1.15 P. M., found ourselves on a stream 
 running to the westward, which I was convinced had its embouchure in Darien 
 Harbor, and according to the maps of Messrs. Cullen and Gisborne, who each 
 projected maps as the result of their own personal observation, ought to have 
 been a branch of the Savaua. While crossing the Cordillera and having arrived 
 at the summit of the first peak, one of the seamen of the Cyane climbed a tree to 
 obtain if possible a view of the country, but reported nothing but high mountains 
 in every direction. The highest peak over which we crossed was between 1,400 
 and 1,500 feet above the level of the sea, but a lower summit of about 1000 feet 
 existed on the left of our path, which was impassable, owing to the scarped por- 
 phyntic rocks and its general ruggedness. This point I believe to be the lowest 
 summit between the Caledonia valley and the Pacific, and in itself is a sufficient 
 obstacle to place a canal of any kind utterly out of the question, even if no others 
 existed. Arriving at the stream already alluded to on the western slope of the 
 Cordillera, we waited until 10, A. M., the following morning, hoping that our five 
 companions might rejoin us, but despairing of a reunion and feeling the impor- 
 tance of pushing on as rapidly as possible, we followed the bed of the river, first 
 leaving a note giving the names of the missing and directing them to return to 
 the ship if they should receive my letter after that day. 
 
444 EXPLORATION OF THE ISTHMUS. 
 
 On the day on which that note was written they liad already commenced their 
 return to the Cyane, which they reached in safety and never rejoined us after- 
 wards. The small stream which we had first met soon led ns to a larger river, 
 which proved to be the Sucubti, an important tributary of the Chucunaqua, 
 utterly itinored by Mr. Gisborne in his engineer's report, by which I had expected 
 to be guided. 
 
 Until the 25th of January we followed this stream, generally wading in its 
 bed as an easier means of locomotion than to cut our way through the dense 
 jungle on its banks. Indians were almost always in our vicinity, especially at 
 night, but never attempted an attack, although they burnt their houses and re- 
 moved all their provisions and canoes as we advanced. 
 
 Arriving at the Sucubti village, one of the most important in this part of the 
 Isthmus, we found it unburnt but deserted, and on a shingle beach near to it, 
 were seven canoes which had been recently destroyed, and so effectually that it 
 was utterly impossible to repair them. Fording the river which had now become 
 a con.siderable stream, with some difficulty, we met in the forest, near the other 
 bank, five Im'iians who offered to guide us to the Savana. The leader of the 
 party spoke Hpa»ish intelligibly and had been on board the C^ane, before we 
 left iier in Caledonia bay. 
 
 I determined to trust myself to their guidance, but took every possible pre- 
 caution secretly to enable us to return to the river in the event that they should 
 abandon us in the forest. We slept that night in a deep ravine, the Indians in- 
 sisting upon returning to their habitations, but in accordance with their promise, 
 they rejoined us the next morning, when we continued our march crossing two 
 hills of the height respectively' of 800 and 600 feet. From the summit of the first 
 we had an open view to the westward, the portion of country through which the 
 straight line of Messrs. Cullen and Gisborne would have to pass, and we saw 
 nothing but high mountain ranges. Soon after, we met several Indians belonging 
 to the Chucuna tribe, the most hostile and perhaps the most numerous on the 
 whole Isthmus. Their chief addressed a long speech to me, apparently opposing 
 our passage, but as my guide and interpreter refused to interpret it, we remain 
 up to the present time in profound ignorance as to its tenor. The march of this 
 Any was the most painful which we had yet made and some of our party among 
 whom were the Grenadian commissioners, were thoroughly broken down. At 
 sunset we encamped on an island in a river about equal in the body of water to 
 the Sucubti, at the point at which we had left it. Our interpreter was unable to 
 give me its name, but it subsequently proved to be the Chucunaqua — the princi- 
 pal river on the Isthmus. To my surprise and annoyance, our guide notified me 
 on this evening that he must return to Caledonia bay, but assured me that his 
 friends would guide us to the Savana, which we would reach in two days, and 
 supply us with canoes, with which we could reach Darien harbor on the evening 
 of the third day. His refusal to take a letter for me to Commander Hollins, did 
 not increase my confidence in our new guides, and when, knowing that a large 
 body of Indians were in the vicinity, I carefully stationed the camp guard for the 
 night, it was with no very agreeable anticipation for the future. The next morn- 
 ing we were eight days from the beach, and I was informed that some of the men 
 were totally without provisions. Ascertaining the truth of this report, I ordered 
 the officers to divide their food, which they had more carefully used, when we 
 found that for the whole party we had provisions for only one day. Plantains 
 and bananas were abundant in the vicinity of the camp, but the Indians would 
 neither sell or give, and as I felt bound by my promise made to the chiefs on 
 board the Cyane, 1 determined to await a greater emergency before supplying the 
 party by force. Our former guide left us on this morning without taking leave, 
 and refused all compensation for his past services, while the five new guides made 
 their appearance armed with their bows and steel pointed arrows, which they use 
 only in war — pointed arrows of very hard wood being only used in hunting. 
 
 From the moment thej' appeared, I suspected them of treacherous intent and 
 was not greatly surprised, when after leading us down the river about two miles, 
 they led us olf into the forest by a path which led to the westward and aban- 
 doned us. 
 
 We continued to follow the path until it terminated at a deserted hut, when 
 we countermarched and with some difficulty found our way back to the river. 
 Here I called my first and last council, when it was determined unanimously by 
 
EXPLORATION OP THE ISTHMUS. 445 
 
 the officers, New Grenadian commissioners, and civil engineers, that it was most 
 expedient to follow the river on which we tlicn were. We were inclined to be- 
 lieve that the course of the river iiiicrht prove to be a tedious route to the Pacific, 
 but were certain of one fact, that it emptied into Darien harbor, wliicli is the 
 common receptacle of all the rivers in this portion of the Isthmus. The nearest 
 route to our destination was certainly by tlie river Savana, but as it was in tlie 
 height of the dry season, there was no probability of obtaining water in tlie in- 
 tervening country which it would require some four or five days to traverse, as 
 some of the party — especially the Grenadian commissioners — suffered very much 
 from fatigue and sore feet. Having been abandoned by the Indians, there wa3 
 not the slightest probability of our obtaining canoes, and we would still have 
 had a journey of some thirty or forty miles along the bank of that river con- 
 stantly within the limits of tide water and among mangrove swamps where game 
 would not be found, and where a half mile a day Mould have been good average 
 marching. The character of the growth in a mangrove swamp placed the con- 
 struction of a raft utterly out of the question, as the timber is invariably too 
 heavy to float and support any additional weight. 
 
 Even allowing that we had not been much reduced by thirst while traversing 
 the space intervening between the two rivers, our position on the Savana without 
 game or food of any kind, without fresh water, and without either canoes or a 
 raft to enable us to reach Darien harbor, would I am confident have proved fatal 
 to the great majority, if not all of our ])arty. 
 
 These were the principal reasons which determined the council in their unani- 
 mous decision to follow the river upon whose banks we then were, which would 
 certainly lead us to our destination, though probably by a very circuitous route. 
 
 From the ■2Tth of January, until the ?>]st. we continued to follow the banks of 
 this river, subsisting upon plantains and bananas, which were found in deserted 
 plantations along the banks. 
 
 On the 31st of January in attempting to shorten our route by running compass 
 courses across the bends of the river, we became separated from it, owing to an 
 entire change in its course, and did not regain it until the od of February. As a 
 large portion of the country which we traversed while separated from the river, 
 was swampy in its character and liable to overflow during the rainy season, we 
 were so fortunate as to obtain a su]iply of water sufficient to meet our wants. 
 
 Some wild turkeys, smaller birds and a monkey, were killed during this period, 
 so that although we were very short of provisions, we had sufficient to support 
 our strength for marching and cutting our way through the forest. A small 
 quantity of palmetto or cabbage palm and acid nuts from a species of palm, served 
 to eke out our scanty supply of animal food. 
 
 On the 4th of February, finding that the river was pursuing a northeasterly 
 course, we halted until about meridian on the 6th, for the construction of a raft, 
 which, when all the appropriate timber we could find was consumed, had suffi- 
 cient buoyancy to support Mr. Truxton, whom 1 placed in command, the two 
 Grenadian commissioners, Messrs. Hoggs and Kettlewell, and one of the crew of 
 the Cyane. With the main body of the party I followed the banks of the river 
 until nearly sunset, when the signal of distress called me to the raft which was 
 some distance above us. 
 
 To my great disappointment I found her progress checked by a large quantity 
 of drift wood extending entirely across the river, and which would have required 
 many days to remove. The depth of the water and the high scarped banks on 
 eachside, placed it out of the question to take the raft to pieces and reconstruct 
 it below, and I was reluctantly obliged to give the order to abandon it. 
 
 From that day until the 12th of February, we continued our march, generally 
 cutting our way through the thick jungle. Game was very scarce and we sns- 
 tainedlife principally on the acid covering of the jialm nuts. 
 
 Want of proper food began to t.ell severely ujion the physiqne of the ])arty and 
 each day our marches became shorter. On the 12th we halted early in the after- 
 noon on account of the debility of the Grenadian commissioners, not having 
 made more than two miles. 
 
 Feeling aware that we must all perish before we would probablj- emerge from 
 the forest at this slow rate of travelling, I attempted to construct a raft which 
 would have buoyancy sufficient to support three men, whom I intended to send 
 down the river to obtain canoes and provisions. Cutting down a tree of the most 
 
446 EXPLORATION OF THE ISTHMUS. 
 
 Mioyant wood we could find, we discovered upon trial that though it would float, 
 it would support no ndditional weifrht. and we were ajrain oblifced to abandon 
 the projoct of a raft. On the next morninp;, (13th of February,) I called the party 
 tocrether and stating my intention to advance in person in search of canoes and 
 provisions, called for volunteer.?, and of some five or six of the stronoest who 
 offered their services, sclefted Mr. Frederick Avery, (volunteer) Golden and Wil- 
 son, two of the crew of the Cyane. Placin<r the partv formal! v under command 
 of Mr. Trnxtun. we set out on our lonely journey and were fortunate enough to 
 accomplish some eighteen miles before dark. At our camp of this night I left a 
 note for Mr. Truxtun, which he found upon the arrival of the main body four 
 days afterwards. 
 
 Tlie next day swamps and almost impenetrable jungle impeded our progress, 
 and in the evening we halted near some drift-wood, of which we constructed a 
 raft. Here also we found some acid nuts, which was the first food of any kind 
 that we had eaten for two days. 
 
 After two days' navigation, during which time we were several times wrecked 
 and twice narrowly escaped with our lives, we were compelled to abandon the 
 raft and continue our journey hj^ land. Boils and sores now made their appear- 
 ance among us and impeded our progress, as they generally attacked tlie feet and 
 legs. Mr. Avery suffered most severely from tliis cause, but the men became 
 much dcl/ilitated, and Golden was kept up with the greatest difficulty. 
 
 Finding the river as we advanced increased by tributaries and comparatively 
 free from rapids and snags, we constructed another raft on the 2d of March with 
 which we started on the 3d. On the 4th, discovered tide waf«r, and on the eve- 
 ning of the Sth, arrived at the Grenadian village of Yarvisa, the first settlement on 
 the Chucunaqua, 
 
 Here we learned that H. B. Majesty's steam sloop Virago, was at Darien harbor 
 but expected to sail in three days for Panama, and as it was all important to in- 
 tercept her to obtain provisions and money — of which we had brought but a 
 small sum across the Isthmus, I accepted Mr. Avery's offer to return for the party, 
 and determined to set off at once for Darien harbor. 
 
 Four canoes were hired and men employed the night of our arrival, but the 
 difficulty and delay in obtaining the necessary provisions prevented the relief 
 party from setting out until about 9 o'clock, P. il., on the following evening. It 
 con.sisted of Mr. Avery, a Mr. Noriega, whom I had employed as interpreter, and 
 the men with a supply of provisions sufficient for about ten days. The main 
 body of the party having orders to follow down the river by easy marches, I had 
 no doubt of their being relieved and brought down even before I could return 
 from the Virago. 
 
 As there was a scarcity of canoes in the village, I had to wait until the next 
 day, (11th,) and then take a very small canoe to reach Santa Maria de Real, some 
 twelve miles below, and there obtained a canoe of sufficient capacity to navigate 
 the lower waters of the river. At daylight on the r2th, we arrived at the village 
 of Chapigana, at the mouth of the river, where 1 was informed by an old resident, 
 Mr. TIassack, a Scotchman, that the Virago had sailed for Panama two days 
 before, to be absent six days. He also informed me that the Atlantic and Pacific 
 Junction Company, whose engineers and employees were under the control of 
 Mr. Gisborne, had a depot of provisions about thirty-five miles distant, on the 
 river Savana at the mouth of the Lara. 
 
 The violent wind that day prevented my obtaining boatmen willing to croBS 
 the bay, but was enabled to set out the next morning before day-light, and in the 
 afternoon arrived at the depot where I obtained j)rovisions and money from W. 
 C. Bennet, civil engineer, and at 1, A. M. on the 14th, returned to Chapigana, 
 where the difficulty of obtaining boatmen, and the strong tides prevented my setr 
 ting out until 11, P. M. of the same evening. The next night I arrived at Yarvisa, 
 where I waited for intelligence from above during the ITjth. 
 
 At about 4, A. M. on the 16th, Mr. Avery returned unsuccessful. He had arriv- 
 ed at the lowest camp of the main bod}', where suspended to a cross over the 
 grave of Holmes, one of the crew of the Cyane, he found a letter from Mr. Trux- 
 tun to me, dated JIarch 5th, in which I was informed that despairing of my safety, 
 they had determined to return to the banana plantations to recruit, and thence 
 by crossing the mountains to attempt to regain the ship. 
 
 At this point the Grenadian boatmen, alleging a fear of Indians, positively re- 
 
EXPLORATION OF THE ISTHMUS. 447 
 
 fused to proceed, and none of the pecuniar}- inducements offered by Mr. Avery, 
 could indwce them to change their determination. Mr. Noriega used all bis influ- 
 ence but without success, and this party whicli was certainly within one day's 
 journey of the main body, returned unsuccessful. On their descent and about 
 ten miles below the last camp, Parks, one of the crew of the Cyane, who had been 
 accidentally separated from Truxtun's party, was found in a state of utter ex- 
 haustion. • 
 
 He stated that he had been nine days without water and had only arrived on 
 the banks of the river the day before he was found. When he arrived at Yarvisa 
 he was perfectly' delirious and died within an hour. 
 
 I immediately demanded of the authorities a levy of thirteen men, to be placed 
 under military discipline, and hiring canoes, directed Mr. Avery to embark the 
 provisions which I had brought up, and set off up the river as soon as the men 
 could be collected from Yarvisa and the three adjoining villages of Santa Maria, 
 Pinogana, and Molineca. 
 
 Determining not again to trust the safety of my party to the cowardly natives 
 ■who had once fiiiled, I embarked in the canoe Mhich I had retained to convey it 
 to Darien harbor, and set out at once to meet the Virago, Mhich vessel was ex- 
 pected on the day previous. The funeral of Parks I entrusted to Mr. Avery and 
 the Padre, who was paid for giving him all the rites of the Catholic church. 
 
 About eighteen miles below Yarvisa, I met the boat of the Virago in charge of 
 Lieutenant W. C. Forsyth, which, upon information given by Mr. Bennet, had 
 been despatched the night before at midnight. Embarking in her, I arrived at 
 Yarvisa soon after dark, and after much delay in obtaini)ig canoes which I had 
 engaged, we set off up the river at about 11, A. M. on the ITth. 
 
 As the native levies had not yet made their appearance, I left orders for them 
 to follow us. Soon after noon on the 18th, eleven joined us which increased the 
 number of our canoes to six. A shallow rapid effectually baring our ]>rogress in 
 the Virago's boat, she was anchored and left in charge of nine men, while the re- 
 mainder of the party embarked in canoes and prosecuted our journey up the river. 
 
 The next morning a more flivorable disposition was made of our force, and the 
 Grenadians, who are very skilful in the management of canoes, were ])laced in 
 each to assist the English seamen. At the same time that I pay this justly merited 
 tribute' to their skill and dexterity, I must condemn their cowardice and want of 
 good faith, as they wished to return on several occasions, and were only prevent- 
 ed by fear that force would be used to oppose it. On the morning of the last day 
 of our ascent, they notified me that they would proceed no longer than that eve- 
 ning. 
 
 They were essential to us and should not have left without a struggle which 
 might have cost many lives, but this was fortunately prevented by our overtaking 
 the main party under Mr. Truxtun al)out sunset on the 2.3d of March. 
 
 On the morning of the same day, we discovered the remains of the junior New 
 Grenadian commissioner, Mr. Bernardo Polanco, lying upon the grave of his 
 senior, ^h. Castillo, who had died and was buried by Mr. Truxtun's party. We 
 buried him in the same grave and continued our journey. 
 
 The main body when found were in the last stage of distress. Emaciated to 
 the last degree by fatigue and starvation, not more than three or four could have 
 reached the plantain fields, and none could possibly have regained the ship._ _At 
 least four and perhaps five would never have been able to have left the position 
 on which they were then encamped. 
 
 Early the next morning we set out on our return and arrived at Yarvisa on 
 the 27th of March. On the evening of the same day Philip Vermelyea, one of the 
 crew of the Cyane, departed this life and was buried on the following morning 
 (28th,) with the services of the church, alongside of his shipmate Parks. 
 
 The Grenadians were paid off and discharged, when I hired a large canoe with 
 an awning, to convey the party to Palma, a small village near the Boca Chica, 
 or small entrance into Darien harbor, where I had ascertained that houses might 
 be rented for our accommodation. They arrived the next night at their destina- 
 tion, while I went on board the Virago to return my thanks to ("ommander Mar- 
 shall, for the assistance which he had rendered us, and to make some arrange- 
 ment by which our party should be rationed from his ship. Finding my party 
 in pleasant quarters, with abundant supplies of all kinds, and assiduously attend- 
 ed by the medical ofhcers of the Virago, I again left it in charge of Mr. Truxtun, 
 
448 
 
 EXPLORATION OF THE TSTHMUg. 
 
 nnd emViarked in a canoe for Panama. Upon my arrival I met Lieutenant Faiin- 
 tleroy, of the Cyane. who, acoompanied by the Swedish consul at Panama, Mr. 
 Charles Zachrisson, had made a search for our party on the river Chepo or Bay 
 Ano. 
 
 From Mr. Fanntleroy T obtained the necessary money to meet m}- expenses in 
 tlie neigrhborhood of the Gulf of San Miguel, and to repay those who had so 
 kindly advanced funds to me during my necessities; ari^ hearing of the arrival 
 of the Cyane at Aspinwall, I immediately crossed the Isthmus to commnnicate 
 with Commander Hollins. 
 
 Setting out on my return the next morning after my arrival, I chartered a sloop 
 at Panama and sailed for Darien harbor, with the intention of bringing up my 
 party in case the Virago was not ready to sail. 
 
 After a passage of four days, we met the Virago with the party on board, all 
 much improved except Mr. A. F. Boggs, who was sinking very rapidly. Arriving 
 next morning at Panama, he was landed at the American Hospital, where, not- 
 withstanding all the care and attention which was lavished upon him, he died 
 between 10 and 11 o'clock, that night. Mr. Maury and myself had remained in 
 Panama to await the result of his illness, while the party under charge of Mr. 
 Truxtun, had set out soon after their debarkation from the Virago. 
 
 My object was to give them two days to cross the Isthmus so that they might 
 not be unnecessarily fatigued. On the following morning, having made all the 
 necessary arrangements for Mr. Boggs' funeral, Mr. Maury and myself set off, and 
 having missed the regular train at Obispo, arrived at Aspinwall about 11, P. M., 
 in a hand car kindly supplied and conducted by the railroad superintendent at 
 Obispo. 
 
 Early the next morning, I reported myself to Commander Hollins, of the Cyane, 
 when we immediately got under way for Havana via Porto Bello. 
 
 This, sir, ends the brief narrative of the Darien Expedition. For the details of 
 our journey, I must refer you to my private notes, already deposited in the Navy 
 Department. The map of the country which accompanies it, is only a rough 
 compass survey, but I believe is sufficiently accurate for all practical purposes. I 
 also accompany ray narrative by a copy of Mr. Gisborne's map, which will fully 
 explain what might appear errors in judgment on my part, when you remember 
 how highly this person was endorsed in England, and that I trusted implicitly to 
 his official report. 
 
 To Commander Edward Marshall, and the officers and crew, of the Virago, but 
 especially to Lieutenant W. C. Forsyth, Assistant Surgeon William Ross, and 
 Paymaster W. H. Hills, who accompanied me in ray search for my party, I address- 
 ed a letter of thanks while in Darien harbor, and have been exceedingly gratified 
 to learn that you had officially recognized their services as well as those of W. 
 C. Bennet. civil engineer, to whom my party and myself are so deeply indebted. 
 
 Any further action that might be taken by our Government to express its sense 
 of the services rendered by these officers and men at the peril of their lives and 
 health to aid our countrymen, would be most gratefully welcomed by my party 
 and myself. 
 
 For an account of the kind efforts of the Swedish Consul, at Panama, Mr. 
 Charles Zachrisson, to discover and assist our party, I will take the liberty to 
 refer you to a letter addressed to Commander Hollins, by Lieutenant Fauntleroj', 
 dated Aspinwall, April 17, 18r)4. 
 
 1 would also respectfully beg leave to call your attention to the liberality dis- 
 played by Mr. A. J. Center, Col. Totten, ard other employees, of the Panama Rail- 
 road, who refused to receive any pay from me upon the occasion of my three 
 transits across the Isthmus, or for the transportation of my party. For other acta 
 of courtesy and kindness we were under many obligations to them, and when it 
 is considered that the service upon which I w.as employed was, to a certain extent, 
 antagonistic to their interests, I do not doubt you will recognize their magna- 
 nimitj' and liberality. 
 
 I would respectfully recommend the members of my i)arty to j'our favorable 
 consideration, on account of their general good conduct and quiet endurance of 
 the greatest privations. For endurance and thorough discipline under the most 
 trving circumst!\nces, I feel assured that few former expeditions present a parallel. 
 The conduct of Passed Midshipman W. M. Truxtun, and 1st Assistant Engineer 
 J. SL Maury, U. S Navy, was beyond all praise, while their self sacrifice in pro- 
 
THE NAVY. 449 
 
 viding for the wants of the feeble, while they themselves were upon the verge o( 
 starvation, is something superior to any commendation which I could bestow 
 upon it Midshipman W. H. Garland, rendered to the other officers all the assist- 
 ance which his own debilitated condition would permit. Those three officers I 
 would respectfully recommend to the flivorable consideration of the department. 
 
 My passing descriptions will give you a tolerably correct idea of the face of th« 
 country, and the feasibility of the project of a ship canal route. The reports of 
 Dr. CuUen and Mr. Gisborne, were not founded as they promulgated to the 
 world, upon personal observation, and were found upon an examination of the 
 country to be utterly incorrect. 
 
 Instead of a summit level of one hundred and fifty feet, near the centre of the 
 Isthmus, as stated by Mr. Gisborne, in his official report, the valley of the Cale- 
 donia is enclosed by a semi-circular range of mountains, varying in height from 
 about 3,500 to 1,000 feet. The lowest point, which is some five miles from Cale- 
 donia Bay, is inaccessible and composed of primary rock of the hardest character. 
 The project promulgated by Cullen and Gisborne, of cutting through in a straight 
 line from Caledonia to a navigable point on the river Savana, a reported distance 
 of thirty miles, is utterly impracticable, as it would involve the necessity of ca- 
 nalizing two or three mountain ranges in addition to that A\hich encloses Cale- 
 donia Bay. The important rivers Sucubti, Chucunaqua, and others which would 
 prove formidable obstacles to a canal for ships, are utterly ignored by Mr. Gis- 
 borne in his plan of a route. 
 
 The shortest distance by which a canal could possibly be cut across this portion 
 of the Isthmus, I believe to be about 53 miles, with a cutting of about 250 feet to 
 which must be added the 30 feet necessary for the depth of the canal. My con- 
 clusions are, sir, that the route between Caledonia Bay and San Miguel or Darien 
 harbor, is utterly impracticable, and that sufficient treasure is not in circulation 
 to meet the expenses of the work. For more satisfactory details, I will be obliged 
 to refer you to the narrative which has been transmitted to the Navy Department 
 for a thorough elucidation of this question. 
 
 Hoping, sir, that though we were unsuccessful in discovering a route for a shij) 
 canal, that our efibrts, and which only resulted in disproving a grand and attrac- 
 tive scheme founded upon ignorance or imposture, will meet your approbation, 
 I reihain, sir, very respectfully, your obedient servant, 
 
 J. G. STRAIN, Lieut. U. S. Navy. 
 
 Hon. James C. Dobbin, Secretary of the Navy, Washington, D. C. 
 
 Abstracts. 
 
 A. 
 
 A list of deaths, resignations and dismissions in the navy, as ascertained at the 
 Department, since 1st December, 1853, shows that, of deaths there were 31, of 
 resignations 53. 
 
 B. 
 
 This is a report from the board of examiners on the course of instructions, dis- 
 cipline, police, accommodations, health, &c., at the Naval Academy, at Annapolis. 
 It speaks in the most commendatory terms of the proficiency made by the pupils 
 in general in all the branches of naval education, and more especially of the senior 
 class of acting midshipmen, consisting of six selected individuals, who have in 
 three years accomplished the course of study prepared for four years. In all that 
 pertains to the operations of this institution, the report expresses the highest de- 
 gree of satisfaction. It recommends some changes in the regulations as to a fi^vr 
 particulars, which have been, since the date of the report, June 19, 1854, partially 
 adopted and acted upon by the Navy Department. 
 
 C. 
 
 This is the report of the commander of the practice ship, of his last cruise. 
 The crew consisted of the second and fourth classes of the naval students. The 
 ship sailed from Annapolis on the 20th of June, 1854, touched at Hamjiton Koads 
 for supplies of wood, water, and provisions, and left the Chesapeake bav on the 
 28th of the same month. They visited the dock-yards of Plymouth, in England, 
 and of Charbourg and Brest, in France, at all which places they were received 
 57 
 
450 THE NAVY. 
 
 politely and kindly, and had every facility afforded them of viewing and exam- 
 ining those celebrated naval stations. While at sea they were exercised in every 
 branch of seamanship, gunning and navigation, and the report speaks in the 
 most favorable manner of the results of the cruise, and the advantages accruing 
 to the pupils. 
 
 D. 
 
 This is the report of Commander C. H. Davis, who was detailed, some time ago, 
 to superintend ihe preparation and publication of the nautical almanac. That for 
 1856 has already been published ; and more than 400 pages of that for 1857 have 
 been printed, or are in the hands of the printer ; the remainder of the work is 
 said to be in a very advanced state of forwardness. The preparation of the 
 volume for 1858, is also already commenced. The report gives a most satisfac- 
 tory account of the valuable services rendered by the several professors and ofiB- 
 cers employed to assist the superintendent in this scientific work. 
 
 E. 
 Is the report of Lieut. J. G. Strain, in relation to a reconnoissance of the Isth- 
 mus of Darien, given in full in the preceding pages. 
 
 F. 
 This is a report from J. H. Alexander, of Baltimore, who was employed by the 
 department to institute a series of analytical inquiries into the best kinds of, and 
 best means of preserving, alimentary substances for the use of the navy. The 
 report is dated 17th October, 1854, and gives a brief account of the progress of 
 the experiments which had, to that time, been made on several substances. 
 
 No. 1. 
 Estimates the sum required for the support of the office of the Secretary of the 
 Navy for the fiscal year 1855-56 at $32,136; for the pay of the Navy at $458,550; 
 for the transportation of the mail in ocean steamers $1,408,850; for the Nautical 
 Almanac $20,880; for the southwest Executive building $6,515. 
 
 No. 2. 
 
 Is a letter from the Chief of the Bureau of Ordnance and Hydrography, trans- 
 mitting estimates for the armaments of vessels of the navy, the naval observatory, 
 and the naval academy for the fiscal year ending June 30, 1856, together with a 
 report of the favorable results attending the course of instruction and discipline 
 as now estiiblished at the Naval Academy. 
 
 The estimates for the next fiscal year, shows a total of. $828,864 22 
 
 The amount appropriated for the current fiscal year for the same 
 
 branches of the service, is 459,609 00 
 
 Or an excess of $369,255 22 
 
 The principal part of which is accounted for by the proposed armament of the 
 six new vessels, the extension of the grounds of the Naval Academy, the erection 
 of new buildings for the accommodation of the increased number of pupils, and 
 the necessity of an iron fence around the grounds of the observatory, the pur- 
 chase of nautical instruments and books, printing charts, &c. 
 
 Annexed is a statement of the estimated value of stores on hand at the several 
 navy yards July 1st, 1853, of articles received and expended from June 30, 1853, 
 to Juiie 30th, 1854, and of those remaining on hand July 1st, 1854, which are 
 under the direction of the Bureau of Ordnance and Hydrography. 
 
 The amount on hand, July 1st, 1853, was $2,066,234 15 
 
 The amount received 418,131 61 
 
 Totil to be accounted for $2,484,365 76 
 
 E.xpenditures during the fiscal year 435,171 50 
 
 Leaving on hand July 1st, 1854 $2,049,194 26 
 
THE NAVY. 451 
 
 No. 3.— REPORT FROM THE BUREAU OF YARDS AND DOCKS. 
 
 This report exhibits the progress made in the improvements of the several yards 
 and docks, and shows the necessity of further extension and improvement. The 
 documents accompanying the report embrace estimates for the fiscal year ending 
 30th June, 1856, for yards and docks, for support of the Bureau, recruiting stations, 
 ofHcers and others at j-ards and stations, improvements and repairs at yards, sta- 
 tions, hospitals, asylums and magazines, amounting in the whole to $3, 227, 858 00 
 The appropriation for the year ending 30th June, 1855, was 2,364,472 00 
 
 Excess required for the next year $863,386 00 
 
 ■which is explained and accounted for in the report. 
 
 No. 4.— REPORT OF THE BUREAU OF CONSTRUCTION. 
 
 [Extract.] 
 
 Number and Condition op the Ships of the Navy. 
 
 The ships of the line, ten in number, were commenced about the years 1818 to 
 1822, and four of them are at this time on the stocks. 
 
 The Pennsylvania, thd only three deck ship in the Navy, was launched in 1837, 
 previous to which it was necessary to remove much of the work which had de- 
 cayed during the sixteen yeixrs she had been on the stocks. This ship could not 
 now be sent to sea Avithout being rebuilt; the frame of live oak being probably 
 the only part that would be found in good condition, and which has a considera- 
 ble value as it stands in place. 
 
 The Delaware and North Carolina., launched in 1820, are likewise unfit for sea 
 service, and require extensive repairs or rebuilding. 
 
 The Ohio, launched about the same time, having been more recently rebuilt, is 
 in a better condition, and might, at moderate cost, be made available for service 
 at home. 
 
 The Pennsylvania, Ohio, and North Carolina are at present in commission as 
 receiving ships. 
 
 The Columbus, launched in 1819, is of smaller dimensions than the other ships 
 of the line, and therefore her services in time of war would be much i-estricted. 
 She likewise requires to be rebuilt before she can again go to sea. 
 
 The Vermont, commenced in 1818, and launched 1848, is the only ship of the 
 line that can be at once made available for foreign service. 
 
 The Alabama, Virginia and Neiv York, on the stocks since 1818, are about two- 
 thirds completed in their hulls ; but a portion of the work already done must be 
 renewed. These vessels being under cover, their deterioration has been much less 
 than that of the ships afloat. 
 
 The Neic Orleans, on the stocks at "Sackett's Harbor," was commenced in 
 1815, and is not half built. For several years the name of this vessel was omitted 
 in the Navy Register, and it is probable she will never be of any service to the 
 Navy. Steam vessels will take the place of sailing vessels on these lakes. 
 
 There has been no ship of the line at sea since the return of the Ohio in 1850. 
 
 The ships of war of all nations constructed about the period the ships above 
 named were built, were designed with a view to numerous and heavy armaments, 
 which arc continued far to the extremities of the ship. Whilst this is desirable in 
 some points of view, it produces a form which is not so well calculated for speed ; 
 yet these vessels combine many nautical qualities to a very high degree. 
 
 The difficulty of converting sailing ships into efficient auxiliary steamers, arises 
 from the want of capacity or internal space, and the change can be effected with 
 greater success in large than in small ships. The additional weight required to 
 be carried causes a greater immersion, and impairs their nautical qualities; but 
 this can to some extent be remedied by reducing their rate. 
 
 The Pennsylvania and the Columbus are the two ships which in this way could 
 be most advantageously converted, the former into an auxiliary screw steam fri- 
 gate, and the latter into an auxiliary spar deck sloop. 
 
 The frigates on the Navy register are thirteen in number, of which two are at 
 present on the stocks. 
 
 The largest ship of this class, the Independence, was built in 1814 as a ship of 
 the line, and in 1837 was converted into a frigate. She has been recently repaired, 
 but upon her return from the present cruise in the Pacific will require to be rebuilt. 
 
452 THE NAAT. 
 
 The Constitution and United States were originally built in 179Y, but hare both 
 been rebuilt many times. The Constitution was repaired in 1848, at a cost of 
 $198,000. The United States was rebuilt in 1823, at an expense of $222,083, and 
 again in 1832, at $208,148, from which latter period up to 1846, her repairs have 
 amounted to $335,427. This ship has not been to sea since her return in 1849, 
 and must be rebuilt at a cost equal to that of a new ship. The dimensions of 
 both these ships are much smaller than those of the frigates they would have to 
 encounter in the next war. 
 
 The Brand 1/ wine, Potomac, Columbia, Cumberland, Savannah, Raritan, and St. 
 Lawrence were commenced about the year 1821. These ships have all been exten- 
 sively repaired several times, the cost of which is constantly increasing as they 
 become older. To repair the Brandywine would, as in the case of the United States, 
 be at the cost of a new ship. 
 
 The Congress is a vessel of larger dimensions and in better condition than most 
 of those just named. She was launched in 1841, as soon as completed, has been 
 continually in service, and is at present ready for sea. 
 
 The Saritee, commenced in 1820, and the Sabine, commenced in 1822, are the 
 two frigates on the stocks. Under the act of Congress for building six steam fri- 
 gates, these ships have been directed to be launched and equipped. 
 
 The general principle upon which the aforenamed ships were planned was in a 
 great measure that of the English ships of the time, with relatively sharp after 
 ends and full fore ends, and not as the superior French ships of an earlier date. 
 
 From the length of time the Santee and Sabine have been on the stocks, and the 
 consequent necessity of removing many of the plank and some of the principal 
 pieces, it has been taken advantage of to improve the form of the fore end, and 
 there is no doubt but that the result will show that the constructors at the different 
 yards where they are building have successfully carried out the views of the 
 Department. These ships are ready for launching, and can be immediately fitted 
 for service. 
 
 Two of the frigates being represented as unworthy of repair, there will thus be 
 eleven frigates afloat with which to keep seven at sea, but of the four in reserve 
 there will be two that will require heavy repairs before they could be sent abroad. 
 
 The sloops of war are twenty in number. The largest of these ships, the 
 Constellation, was built in ITQT, as a frigate of the second class, and has been 
 many times rebuilt. Being found altogether unworthy of further repair, she has 
 been rebuilt as a spar deck sloop, and will be fully equal to the razee sloops of 
 other nations. 
 
 The Macedonian was also a frigate of the second class, built in 1836, and has 
 been converted into a spar deck sloop. These two ships may be considered as 
 among the most efficient in the navy. 
 
 The Portsmouth, Plymouth, St. Mary^s, Jamestown, Germantown, and Saratoga 
 were launched from 1842 to 1845, and are the sailing ships of the latest date that 
 have been built in the navy. The repairs on these ships have already become 
 very costly, and some of them will require rebuilding. 
 
 The John Adams, Vincennes, Falmouth, Vandalia, St. Louis, Cyane, and Levant 
 are generally old ships, some of them having been built in 1826, and others as 
 late as 1838. In some cases the repairs of these ships have been very costly ; 
 that of the St. Louis, 1839, being $116,205, since which there has been expended 
 $127,845, and on her return she will require rebuilding. The Vincennes, in 1849, 
 cost $99,861, the Vandalia, in 1849, the sum of $109,683. 
 
 The remaining sloops of war, the Decatur, Marion, Dale, and Preble, are of a 
 small class, and were built in 1839. Taking into consideration their size and effi- 
 ciency there will be no advantage in continuing them in the service when they 
 again require expensive repairs. 
 
 The several squadrons requiring that 18 sloops of war be kept at sea, there will 
 be but two ships available for any sudden emergency. It is now necessary when 
 a ship of this class returns from a cruise, immediately to commence the repair, 
 however disadvantageous the time or circumstances may be. 
 
 The brigs, four in number, are too small to be of much service. To be efficient 
 they should be of larger size. 
 
 The steamers, that may be considered ships of war, are eight in number — of 
 which the San Jacinto and Princeton are screw steamers, and the Mississippi, Sus- 
 quehanna, Poichatan, Saranac, Michigan and Fulton, arc side wheel steamers. 
 
THE NAVY. 453 
 
 The Michigan is confined to Lake Erie, and the Fulton is only useful for harbor 
 or coast sprvice. The Mississippi, Susquehanna, and Powhatan, will require re- 
 pairs to their hulls, and most of them repairs on their machinery. Wheu this 
 becomes necessary to an expensive degree in the Poivhatan and Susquehanna, 
 there will be an advantage in converting them into screw steamers, and as such 
 they will be more efficient than at present. 
 
 The remaining vessels on the register can only be considered as transports or 
 tenders. 
 
 From the above statement there would be effective for foreign or sea service, 2 
 ships of the line, 9 frigates, 18 sloops of war, 4 brigs, and 6 steamers — that is, 39 
 ves.-iels of the 12 which appear on the register. 
 
 With a view to a comparison between the tonnage of the navy and that of llie 
 mercliant marine, the following st;itcment is given : 
 
 In 1802, when the navy was re-organized, and the useless vessels sold, the total 
 tonnage of the merchant service was 892,104 tons, and that of the navy 14,268 
 tons, or the l-62d part. 
 
 In 1853, the total tonnage of the merchant service was 4,407,010 tons, and that 
 of the 39 efficient ships above named as available for sea service is 48,903 tons, 
 or the l-90th part. 
 
 In addition to the ships before mentioned, there are at present in construction 
 the six steam frigates authorized by the act of Congress approved April Glh, 1854 ; 
 the steam frigate Franklin, rebuilding, is also of the same class. 
 
 For the purpose of carrying out the act of Congress for the construction of six 
 steam frigates, and launching and equipping the frigates Santee and Sabine, the 
 further sum of three million dollars will be required. 
 
 No. 5. 
 
 Tliis is the report from the bureau of provisions and clothing. It begins with 
 estimates for the service of the fiscal year ending 30th June, 185G, and states that 
 the expenses of the bureau have not exceeded the estimates of the last year, and 
 that sufficient balances remain on hand under all heads of appropriation. 
 
 In consequence of the repeated failures of contractors to comply with their 
 contracts, particularly in the supply of navy bread, the bureau recommends the 
 establishment of a bakery for that purpose. It recommends, also, the appoint- 
 ment of 16 additional pursers, to take the place of officers of other classes in the 
 navy now compelled to do the duty of pursers. 
 
 A, B, C, are the estimates mentioned for the fiscal j-ear ending 30th June, 1856. 
 They embrace the balances and contingent expenses of the office, provisions for 
 officers and men of the navy, freight, transportation, &c., in all $744,716. 
 
 D — Statement showing the value of provisions, clothing, and small stores, on 
 hand at the navy yards and naval depots or foreign stations, on the 1st July, 1854, 
 the aggregate of which is $463,183 29. 
 
 E — Statement showing the value of shipment of provisions, &c., to the naval 
 squadrons on foreign stations, made by the bureau during the past fiscal year, 
 amounting in the whole to $212,311 70. 
 
 F — A statement of the provisions, &c., condemned, to the value of $44,204 38. 
 
 G to N inclusive — Are abstracts of proposals to supply the various stores re- 
 quired by the bureau. 
 
 — Is a statement of contracts made during the year 1854. 
 
 No. 6.— REPORT FROM THE BUREAU OF MEDICINE AND SURGERY. 
 
 From this report it appears there were admitted into the several receiving ships 
 and hospitals, from all the squadrons, during the year ending 30th September, 
 1854, patients to the number of 9,495, which added to the number remaining in the 
 beginning of year, 414, made 9,909. Of these, 44 died, and 215 remained on the 
 30th of September, 1854. 
 
 The report recommends the appointment of an additional numl)er of medical 
 officers, and estimates the expenses of the Bureau for the year ending 30th June, 
 1856, at $43,791 00. 
 
454 THE INTERIOR. 
 
 No. 7.— REPORT OF THE COMMANDANT OF THE MARINE CORPS. 
 
 The aggregate number of this corps on the 6th November, 1854, including ofiB- 
 cers of every grade and privates, was 1,452. 
 
 Of which number 1,035 were on sea duty on the 30th of September, 1854, leav 
 ing 417 on shore for the supply of guards, sentinels, &c., at all the varions yards 
 and stations. 
 
 This report is also accompanied by estimates for the year ending 30th June, 
 1856, amounting to $323,233 94. 
 
 V.-THE POST OITICE. 
 
 On page 131 of this volume the reader will find the entire cost of the mail 
 steamer lines, amounting to $2,623,010 29. 
 
 The total amount of postage received by the same lines was $879,570 61. The 
 •imount of letter postage on British mails collected in the United States and Great 
 Britain, was $979,648 30. 
 
 The statistical tables referred to in the report of the Postmaster General, contain 
 very minute details, of value for purposes of legislation, and international ar- 
 rangement ; but sufficient is stated in the report itself for the information of the 
 general reader. 
 
 VI.-THE INTERIOR. 
 
 [Abstracts of documents annexed to the Report of the Secretary of the Interior.] 
 REPORT OF CALIFORNIA LAND COMMISSIONERS. 
 
 Various circumstances have retarded the prosecution of the labors of this com- 
 mission. The character and extent of the claims are such that their adjudication 
 involves much time and labor. They involve tlie title to an area of country 
 larger than that contained within the jurisdictional limits of almost any one of the 
 older States of the Union, and embracing the choicest parts of California, now the 
 sites of villages and cities. A single case is mentioned in which the value of the 
 premises involved is not less than $35,000,000. 
 
 In the investigation of these cases under the national and civil law; under the 
 Spanish law ; under the laws and decrees of independent Mexico, after the do- 
 minion of Old Spain was cast off; under the acts of the Territories and depart- 
 mental authorities of California ; under the militarj' rule which succeeded the 
 conquest in July, 1846; under the anomalous authority, half civil and half mili- 
 tary, which succeeded the close of hostilities and continued until the State organ- 
 ization of California ; under the common law, after its adoption here in 1850 ; 
 aad under the statute laws of the State, Avhich are applicable to all questions re- 
 garding the more recent conveyances of the premises claimed. 
 
 The commissioners are of opinion that all the cases pending can be adjudicated, 
 and the records and transcripts completed within one year from the 4th of March 
 next. 
 
 FIRST COJIPTROLLER'S REPORT ON THE FEE BILL. 
 
 As the contents of this report are chiefly matters of speculation and opinion, 
 it does not fall within the plan of our work, the object of which is mainly to pre- 
 sent facts. 
 
 REPORT OF THE LAND OFFICE. 
 
 The Report of the Commissioner of the General Land Office treats of subjects 
 of so much interest and importance that we have given it a place in the body of 
 the work, where it may be found at page 158. 
 
THE INTERIOR. 455 
 
 EEPORT ON INDIAN AFFAIRS. 
 
 The same remarks apply to this document as to that mentioned in the preceding 
 paragraph. See page 180. " 
 
 REPORT OF THE PENSION OFFICE. 
 This important document is also given in full. See page 206. 
 
 REPORT OF THE COMMISSIONER OF PUBLIC BUILDINGS. 
 
 This report shows that Mr. B. B. French, the Commissioner, had expended be- 
 tween January 1, 1854, and June 30, 1854, $158,008 39, in payment of specific 
 appropriations. It states that the east wing of the Patent Office is so far com- 
 pleted as to be occupied by the Secretary of the Interior and the Patent Office, 
 and that the work on the west wing is progressing rapidly. It gives particulars 
 of repairs on the Capitol, the Potomac Bridge and the President's House. Of the 
 improvement of the public grounds commenced by the lamented Mr. Downing, it 
 states that the care of them was subsequently given to Mr. Brackenridge, and 
 that they are now in a good state of improvement, and that many thousand trees 
 And shrubs were to be planted during the autumn. It treats also of miscellaneous 
 topics of merely local interest, and suggests the propriety of placing the salary 
 of the Commissioner on an equality with those of other officers of similar standing. 
 
 OTHER REPORTS. 
 
 The substance of the reports of the Warden of the Penitentiary, and of the 
 Superintendent of the National Hospital of the Insane, is embodied in the Report 
 of the Secretary. 
 
 THE PATENT OFFICE. 
 
 The Report of the Commissioner of Patents will not he perfected for presenta- 
 tion to Congress prior to the last of January ; but we are fortunately enabled to 
 present a concise statement of its contents as rendered by the Commissioner to 
 the Secretary of the Interior, on the 1st of November, 1854, and subsequently re- 
 viewed and corrected at the Patent Office. 
 
 The business of the Patent Office is now in a more satisfactory condition than 
 at any previous period since the connection of the present Commissioner witli it. 
 
 The number of cases undisposed of in the office on the first day of January last 
 was reported to be five hundred and eighty-two. That number, however, was as- 
 certained through an erroneous method of computation. By an actual count, the 
 number of cases on hand at that time was ascertained to be eight hundred and 
 twenty-three. A correct mode of computation was then introduced, so that the 
 exact condition of the business of the office can hereafter be readily calculated 
 from the monthly reports. 
 
 This arrearage in the business of the office, though much less than it had been 
 six months previous, was such that several months always elapsed after the making 
 of an application before it could be disposed of. 
 
 During the first three months of the year 1854, the increase in the business 
 of the office was such that no sensible diminution in the arrearages was effected. 
 In order to accomplish so desirable an object, it was deemed expedient to place 
 several of the assistant examiners in the performance of the duties of principal 
 examiners. In that manner the end sought has been attained. 
 
 Instead of six principal examiners, each with two assistants, there have been, 
 since the first of April, practically eleven principal examiners, each with one as- 
 sistant. The number of applications filed during the year 1854 was 3,324; the 
 number of caveats filed, 868 ; the number of patents issued, a little less than 
 1,900, or about double the number patented in 1853; the number of cases on 
 hand and not acted on, January 1, 1855, 89. Applications are generally acted 
 upon within a few days after they are made. The arrangement bj which thi.s 
 result has been produced, I think should be continued as the only method of dis- 
 posing of the increasing business of the office with the proper promptitude and 
 despatch. 
 
456 THE INTERIOR. 
 
 About one year since, the Commissioner invited attention to the importance of 
 several proposed amendments to the patent laws, which invitation is renewed. 
 The amendments of most immediate and pressing necessity are those making pro- 
 vision for talving testimony — those in relation to appeals, and those prescribing a 
 new rate of fees. 
 
 Many questions of great moment ai-e frequently pending before the Patent Of- 
 fice, depending for a correct decision upon the testimony of witnesses, and there 
 is no power provided to compel a Avitness to give testimony. 
 
 The law allows any person who appeals from the decision of the Commissioner, 
 to select which of the three judges of the Circuit Court he chooses before whom 
 to bring the appeal. The chief justice of that court will probably never again be 
 able to entertain an appeal, so that bringing an appeal before him is tantamount 
 to its postponement during the twm of his natural life, and even after his death 
 there may be some question as to whether the delay will be at an end. By an 
 abuse of this law a case has been suspended in this manner for near two years, 
 and is threatened with indefinite postponement, to the great detriment of the 
 party who is probably entitled to the patent. 
 
 The rate of ftes was fixed at a time when the real value of money was much 
 greater in proportion to its nominal value than at present. The pay of the clerks 
 and laborers employed in the office has been very much increased by Congress, 
 and in various other ways the expenses of the office have been greatly augmented, 
 while the fees have remained unchanged. In addition to these causes the force 
 of the office has been considerably increased during the past year, in order to 
 dispose of the accumulation of business above referred to. 
 
 The expenses of the office have therefore been exceeding the revenues. 
 
 The permanent augTQentation of the examining corps, or rather such a reor- 
 ganization as will place all its members on a proper footing, is recommended. 
 
 A bill was framed by the Senate committee at the last session of Congress, pro- 
 viding for these and many other amendments ; or rather it amounted to a general 
 reorganization of the whole Patent Office system, including the above named 
 provisions as a portion thereof. The passage of that bill, or of some other which 
 shall at least embrace the features above alluded to, is regarded an object of prime 
 importiince to the proper administration of the affairs of the office. 
 
THE PUBLIC LANDS. 
 
 457 
 
 VII. -THE PUBLIC LANDS. 
 
 Abstract of documents annexed to the Report of the Commissioner of the Gen- 
 eral Land Office. 
 
 INSTRUCTIONS TO THE SURVEYOR GENERAL OF NEW MEXICO. 
 
 These detailed^instructions are issued in compliance with the 8th section of the 
 act of July 22d, 1854. They are designed as an official guide to the Surveyor 
 General in carrying out the provisions of that section, 
 
 INSTRUCTIONS TO THE SURVEYORS GENERAL OF NEBRASKA, KAN- 
 SAS AND WASHINGTON TERRITORIES. 
 These are instructions to the officers named, giving them detailed information 
 as to their authority, powers and duties, and have been already communicated to 
 those who are chiefly interested in them. 
 
 A. — Slatemeiit of Public Lands sold, amounts received therefor, and incidental ex- 
 penses thereon, in the first half of fiscal year ending June 30, 1854. 
 
 STATES. 
 
 Gross amount of lands 
 sold in the first half of 
 the fiscal year. 
 
 Am'nt rec'd 
 in cash and 
 Treasurer's 
 receipts.* 
 
 Amount received in 
 forfeited land stooii 
 and military scrip. 
 
 "a 
 a 
 
 'Z i) 
 C 'ii 
 
 s 
 < 
 
 paid into the 
 V during the 
 If of the fis- 
 r. 
 
 
 Acres. 
 
 Purchase 
 money. 
 
 Cash. 
 
 Forfeit'd 
 landst'k 
 
 Military 
 land scrip. 
 
 Amount 
 trensut 
 first ha 
 cal yea 
 
 Ohio 
 
 38, ,590. 48 
 
 45,961.27 
 
 527,898.43 
 
 560,194.71 
 
 21 7, 767.. 58 
 
 134,716.37 
 
 87,260.32 
 
 204, 692.. 34 
 
 98,693.97 
 
 44,669.33 
 
 777, 214.. 59 
 
 286,199.97 
 
 $75,780 74 
 .58,407 46 
 843,613 62 
 701,180 95 
 280,184 12 
 186,511 28 
 109,075 66 
 262,280 91 
 123,373 41 
 55,8,37 60 
 971,710 92 
 357,787 24 
 
 $75,780 74 
 58.407 46 
 807,707 34 
 700,905 95 
 280,184 12 
 186,511 28 
 109.075 66 
 2,54.958 82 
 
 
 
 $.3,7.57 92 
 .3,812 53 
 2.5,005 57 
 30,416 98 
 11,913 33 
 7,498 44 
 6,948 88 
 13, .345 43 
 7,7*2 05 
 1,937 46 
 18,373 67 
 13,215 22 
 16, .302 69 
 2,754 68 
 
 $75,047 75 
 47,745 44 
 
 Indiana 
 
 
 
 Ilhnois 
 
 Missouri 
 
 Alabama . . . 
 
 ,'5!607 16 
 
 .f35,299 12 
 275 00 
 
 793,741 67 
 638,794 80 
 2S5,,57.T 20 
 
 Mississippi. . 
 Louisiana . . 
 
 
 
 147^8,')2 75 
 
 
 
 91,212 27 
 
 
 
 7,322 09 
 
 Q.')2,424 67 
 
 Arltansas. . . 
 
 123,373 41 
 
 55,837 60 
 
 933,470 50 
 
 339,046 43 
 
 
 88,448 01 
 
 Florida 
 
 
 
 47,179 38 
 
 Iowa 
 
 Wisconsin... 
 
 't42l"o0 
 
 38,240 42 
 18,319 81 
 
 893,585 .56 
 313,248 15 
 
 Minnesota T 
 
 34,197.30 
 
 42,749 15 
 
 41,700 16 
 
 
 1,048 99 
 
 37.784 79 
 
 Grand total 
 
 3,058,056.66 
 
 4,068,493 06 
 
 3,966,959 47 
 
 1,028 16 
 
 100,505 43 
 
 163,074 8.=; 
 
 3,712,638 44 
 
 B. — [Last half of the Fiscal Year.] 
 
 Ohio 
 
 Indiana 
 
 Illinois 
 
 Missouri.... 
 Alabama . . . 
 Mississippi.. 
 Louisiana . . 
 
 Michigan 
 
 Arkansas. . . 
 
 Florida 
 
 Iowa 
 
 Wisconsin. . 
 California... 
 Minnesota T 
 Oregon Ter. 
 
 49,0.55, 
 55,363, 
 
 571,011. 
 
 413,631, 
 
 141,655, 
 56,106, 
 50,262. 
 
 2,55,782. 
 
 66,870. 
 
 45,798. 
 
 1,718,757. 
 
 466,308, 
 
 8,5,409. 
 1,685, 
 
 $76,305 
 69,701 
 929,144 
 517,6,55 
 179, 136 
 74,174 
 62, 828 
 324, .520 
 83,708 
 57, .31 2 
 ,149,034 
 584,674 
 
 106.760 
 2,082 
 
 .$76, 
 69, 
 889, 
 513, 
 179, 
 74, 
 62, 
 317 
 83, 
 57, 
 2.026, 
 574, 
 
 166 01 
 701 49 
 644 85 
 064 81 
 136 93 
 174 36 
 828 08 
 698 72 
 708 34 
 312 18 
 295 70 
 677 71 
 
 106,760 72 
 2,082 44 
 
 Grand total 3,977,678.41 5,217,040 525,033 252 34 }460 00 183,328 18148,863 39^4,754,948 95 
 
 $160 00 
 
 .50 00 
 tl50 00 
 
 $139 5: 
 
 .39,3.39 84 
 4,590 8: 
 
 6,721 88 
 
 122.688 89 
 9,847 18 
 
 $74, 
 81. 
 
 888, 
 
 201^ 
 114. 
 95, 
 
 3:;o. 
 
 129. 
 
 .57, 
 
 ,625. 
 
 538, 
 
 ,.526 
 ,040 
 
 58 
 
 * No Treasurer's receipts received. 
 
 f This amount in Wisconsin refunding certificates. 
 
 I Includes $150 in Wisconsin refunding certitiuates. 
 
458 INDIAN AFFAIRS. 
 
 C. 
 
 This exhibit shows that 8,189,017 acres of public lands, (exclusive of the six- 
 teenth or school sections,) were advertised for sale in 1854; that during this pe- 
 riod there were 9,270,691 acres prepared for market and not advertised at the 
 date of the report ; and that the plats of survey of 13,600,000 (including 6,000,000 
 returned and surveyed in California, Oregon Territory and Washington Territory) 
 are expected to be returned in the year 1855. 
 
 D. • 
 
 Is a sj'nopsis of public lands advertised for sale since date of last report, and 
 sTiows 8,190,017 acres under proclamation exclusive of school lands. 
 
 E, F, and G, are estimates of appropriations for the General Land Office, the 
 offices of the Surveyor Generals and for surveying the public lands in the several 
 land States. 
 
 H, refers to the report of the Surveyor Generals of the several land States, the 
 substance of which, as far as it is of general interest is sufficiently set forth in the 
 reports of the Secretary of the Interior and of the Commissioner of the General 
 Land Office. 
 
 VIII. -INDIAN AFFAIRS. 
 
 Annexed to the report of the Commissioner on Indian Affiiirs, are one hundred 
 reports and other communications from the difierent superintendents, agents, sub- 
 agents, teachers of schools in the Indian country, &c., containing minute details 
 of local interest. The result of the whole is stated so fully in the report of the 
 Commissioner, that it is not necessary to make any particular reference to these 
 communications. The same may be said of the papers accompanying the report 
 marked A to H, inclusive, which are accessible in the documents at large to all 
 to whom they are likely to be of importance. 
 
THE PENSION OFFICE. 
 
 459 
 
 IX. -THE PENSION OFFICE. 
 
 The general results in the operation of the pension system are given with suffi- 
 cient fulness in the report of the commissioner. Of the tabular statements annexed 
 the following is the only one of suflicient general interest to justify its reproduc- 
 tion in this summary. 
 
 Statemeiit showing the number of pensioners in ike differeni States and Territories on 
 the 30th September, 1854. 
 
 States. 
 
 00 22 
 
 CO O) , 
 
 ■t--'cqor 
 
 m ^' — 
 
 (^ 3 
 
 Total. 
 
 Maine 
 
 New Hampshire 
 
 Vermont 
 
 Massachusetts 
 
 Rhode Island 
 
 Conuecticut 
 
 New Yorli 
 
 New Jersey 
 
 Pennsylvania 
 
 Delaware 
 
 Maryland 
 
 Virginia 
 
 North Carolina 
 
 South Carolina 
 
 Georgia 
 
 Alabama 
 
 Mississippi 
 
 Louisiana 
 
 Ohio 
 
 Kentucky 
 
 Tennessee 
 
 Indiana 
 
 Illinois 
 
 Missouri 
 
 Arkansas 
 
 Michigan 
 
 Florida 
 
 Iowa 
 
 Wisconsin 
 
 California 
 
 District of Columbia 
 Oregon Territory 
 
 Total 
 
 202 
 
 145 
 
 134 
 
 151 
 
 11 
 
 4*7 
 
 939 
 
 24 
 
 450 
 
 4 
 
 91 
 
 91 
 
 42 
 
 63 
 
 102 
 
 51 
 
 23 
 
 94 
 
 410 
 
 245 
 
 518 
 
 254 
 
 320 
 
 182 
 
 48 
 
 181 
 
 32 
 
 49 
 
 10 
 
 1 
 
 96 
 6 
 
 11 
 
 57 
 32 
 To 
 11 
 12 
 44 
 198 
 13 
 36 
 
 5,106 
 
 176 
 
 20 88,' 
 
 423 
 
 180 
 218 
 236 
 359 
 
 68 
 225 
 721 
 
 99 
 
 188 
 
 1 
 
 28 
 1 
 136 
 
 49 
 
 64 
 6 
 7 
 
 172 
 
 177 
 
 126 
 
 43 
 
 32 
 
 18 
 
 2 
 
 26 
 
 60 
 
 250 
 
 207 
 
 204 
 
 315 
 
 75 
 
 216 
 
 680 
 
 76 
 
 333 
 
 1 
 
 61 
 
 260 
 
 169 
 
 76 
 
 120 
 
 46 
 
 20 
 
 27 
 
 284 
 
 193 
 
 28 
 
 11 
 
 176 
 
 C2 
 
 21 
 
 81 
 
 9 
 
 20 
 
 12 
 
 1 
 
 60 
 
 722 
 
 635 
 
 686 
 
 951 
 
 178 
 
 564 
 
 2,674 
 
 220 
 
 1,045 
 
 8 
 
 194 
 
 608 
 
 410 
 
 211 
 
 331 
 
 121 
 
 52 
 
 144 
 
 946 
 
 702 
 
 1,005 
 
 450 
 
 542 
 
 278 
 
 73 
 
 303 
 
 44 
 
 73 
 
 97 
 
 14 
 
 227 
 
 "7 
 
 3,445 
 
 4,460 
 
 14,515 
 
460 THE SMITHSONIAN INSTITUTION. 
 
 THE SMITHSONIAN INSTITUTION. 
 
 The ninth Annual Report of the Smithsonian Institution will be made to Con 
 gress after the meeting of the Regents in January. 
 
 The amount of the bequest of James Smithson, received into the Treasury of 
 tlie United States, was $515,109 00. The interest on this fund to July 1st, 1846, 
 was §242, 129 00. The annual interest is $30,910 14. This fund is regarded as a 
 perpetual loan to the United States, for the purpose of founding "an establish- 
 ment for the increase and diffusion of knowledge among men." The edifice which 
 has been erected has cost about $300,000. Much has been done toward finishing 
 and furnishing it during the past year. 
 
 The financial affairs of the Institution are in good condition. The library, 
 consisting principally of transactions of learned societies, is valued at $40,000; 
 the i\Iuseum at .$30,000; the apparatus for original research and illustration at 
 $15,000. Besides this accumulation of property, while the amount of the original 
 bequest remains intact, there is on hand nearly $140,000 of the interest unex- 
 pended. It will thus be perceived that there is at present an aggregate in pro- 
 perty and monej' of more than one million of dollars. 
 
 The completion of the building appears to have been delayed for two reasons : 
 firstl}^, that the interior arrangements might be adapted to the wants of the Insti- 
 tution; and secondly, that there might be an accumulation of the income. An 
 application is now before Congress, asking that the amount thus accumulated 
 may be received into the treasury of the United States as an addition to the 
 principal. 
 
 The Institution has published a large number of original memoirs, products of 
 the ingenuity and research of citizens of the United States. Copies of these me- 
 moirs, are sent to all the principal librai-ies and many other institutions of the old 
 world, and in the United States. The seventh quarto volume of the series is now 
 in press, and Avill soon be ready for distribution. In it is contained an account 
 of the Effigy Mounds of Wisconsin. Several memoirs, comprising part of the 
 eighth volume, have also been printed and partially distributed. 
 
 The library has received 6,172 additions during the past year: by purchase, 
 920; by exchange, 3,642; by cojjy-right contributions, 1,610. 
 
 The Institution has established, in connexion with the distribution of its own 
 productions, an extended system of exchanges by which it is enabled to transmit 
 to foreign countries, duty free, the works of American authors, and to receive the 
 works of foreign authors in like manner. The Prussian Minister near this gov- 
 ernment has just communicated to it the agreeable intelligence that the Congress 
 of the Zollverein has entered into this arrangement, which now embraces all the 
 civilized nations of the world. 
 
 A large amount of information on the subject of Meteorology has been col- 
 lected by the Institution, and will be published as soon as it can be reduced to 
 form, and means shall be provided. A series of lectures has been delivered during 
 the past year by le»arned and distinguished men. Three national associations 
 have also held their meetings in the halls of the Institution, the American Agri- 
 cultural Society, the American Association for the Advancement of Science, and 
 the American Association for the Advancement of Education. The interior of 
 the u])per part of the edifice is admiralily adapted for the accommodation of such 
 bodies, containing a very large and convenient lecture hall, to the east and west 
 of which are two rooms, each fifty feet square, twenty-five feet high, and well 
 lighted. 
 
 As it is probable that the proceedings of the Regents, during the month of Jan- 
 uary, will be of an interesting character, their report for the last year is looked 
 for with anxiety by both the friends and opponents of the present direction. It 
 wiU not appear in season, however, to enable us to avail ourselves of its contents, 
 for the first editioa of our work 
 
.INDEX. 
 
 INDEX. 
 
 A. 
 
 ^fcademy, Military. See Military Academy. 
 ^Accommodations — 
 
 the want of, for the several bureaux., 44 
 iMccounts — 
 
 division of, recommended 44 
 
 of disbursing officers of ttie army 79 
 
 American prisoners at Mazatlan — 
 
 discharged at the instance of Com- 
 mander Dornin 94 
 
 Apaches — 
 
 the amendments of the Senate to the 
 Arkansas treaty not yet assented to 
 
 by the 190 
 
 Apprentices — 
 
 enhstmentof boys in the navy recom- 
 mended gg 
 
 Appropriations — 
 
 of the last session 15 
 
 Archives — 
 
 what so called in the Coast Survey 
 
 Office 239 
 
 Ardent spirits — 
 
 evils brought upon the Indians by the 
 
 traffic in . , '.,... 199 
 
 Arkansas — 
 
 something necessary to ward off the 
 impending fate of the Indians of, in 
 consequence of the rapid disappear- 
 ance of the buffalo 191 
 
 discovery of frauds in former surveys 
 which require correction, delays the 
 close of the business of the survey- 
 or general of 168 
 
 Armaments of vessels, ^-c 
 
 estimates for, from the Bureau of Ord- 
 nance and Hydrography 450 
 
 Arms — 
 
 improvement in small 76 
 
 Army of the United States — 
 
 its services ; reforms recommended ; 
 
 organization and increase of. . . . 17—19 
 abstract of documents accompanying 
 
 the report of the Secretary of War. 436 
 (See Report of the Secretary of War.) 
 Articles enumerated — 
 
 tabular statement of the value of cer- 
 tain, imported 427,428 
 
 Aspinwall — 
 
 change mad.3 in the mail line between 
 
 New Orleans and 135 
 
 Astronomical and magnetic observations — 
 
 necessity of, in the coast survey 237 
 
 Australia Pioneer Line — 
 
 of monthly packets, arrangement 
 made with the, for the conveyance 
 of mails between New York and 
 Port Philip 138 
 
 B. 
 
 Bache, Professor A. D. — 
 
 abstract of the report on the coast 
 survey, by 337 
 
 Balances — 
 
 amount of, in the treasury July 1, 1853 33 
 
 estimated for 1854 32 
 
 actual, in the treasury July 1, 1854. . . 33 
 
 Baldwin, Thomas — 
 
 agent of the Accessory Transit Com- 
 pany of Nicaragua, appeal of, to 
 Capt. HoUins, for protection ....... 304 
 
 replies of the American and British 
 
 vice consuls to 305 
 
 Baltic Sea — 
 
 letter from Mr. Jackson to the Secre- 
 tary of State in relation to the trade 
 
 of the 273 
 
 Banks — 
 
 report of the Secretary of the Trea- 
 sury on the increase of 47 
 
 Base line measurements — 
 
 explanation of the phrase, in coast 
 
 survey 237 
 
 Bedinger, Henry — 
 
 instructions from the Secretary of 
 State to, on the subject of the Sound 
 
 dues 287 
 
 extract of a letter from, to Secretary 
 
 ofState 293,294,295 
 
 Belgium — 
 
 pending negotiation with, on postal 
 
 arrangements 137 
 
 Blackfeet and other Indians — 
 
 of the Upper Missouri, a council with 
 tile, proposed to be held early next 
 
 year 195 
 
 Borland, Solon — 
 
 letter from, to the Secretary of State, 
 giving an account of tlie outrage 
 
 committed on him at Greytown 345 
 
 arrest of, at Nicaragua 343 
 
 Boundaries — 
 
 between the United States and Mexi- 
 co, by the 1st article of the treaty 
 
 of Washington 373 
 
 Bounty lands — 
 
 amount of acres granted for revolu- 
 tionary services 215 
 
 number of applications for, under the 
 
 act of February, 1847 216 
 
 number of applications for, under the 
 
 acts of 1850 and 1852 216 
 
 whole number of warrants for, under 
 
 all the acts 2I8 
 
 fraudulent applications for, detected. 219 
 Bounty land warrants — 
 
 a table showing the present condition 
 
 of the 161 
 
 Breadsluffs and provisions — 
 
 statement of the aggregate value of, 
 
 annually exported 425 
 
 British colonies — 
 
 schedule of articles the growth and 
 produce of, admitted into the United 
 
 States free of duty 380 
 
 Buffalo— 
 
 the, rapidly disappearing from the In- 
 dian lands in Arkansas 191 
 
 Buildings — 
 
 progress of, at the arsenals, &c. . 360, 361 
 
 C. 
 
 California — 
 
 private land claims in 143 
 
 encouraging aspect of our Indian rela- 
 tions in. 196 
 
462 
 
 INDEX. 
 
 California — 
 
 embarrassments tlirown in the way 
 
 of the surveyor general of 169 
 
 California Land CoTnmissioners — 
 
 abstract of the report of the 454 
 
 Camels and dromedaries — 
 
 their introd uction recommended 62 
 
 Canals of Canada — 
 
 free navigation of the, granted to citi- 
 zens of the U. S. by the reciprocity 
 
 treaty 360 
 
 Capitol — 
 
 notice of extension of the 83 
 
 abstract of Captain Meigs's report on 
 the progress of the extension of the 436 
 Cettsus — 
 
 compendium of the Seventh 151 
 
 Central Jlmerica — 
 
 affairs in 297—321 
 
 Central American question — 
 
 diplomatic correspondence and legal 
 
 opinions upon 322 — 344 
 
 Checks — 
 
 on quarterly returns, the Postmaster 
 
 General 's remarks upon 128 
 
 Cheboygan district — 
 
 sales under the law organizing the, 
 require confirmation by act of Con- 
 gress 169 
 
 Cherokees, Creeks, Choctaws, and Chicka- 
 saws — 
 gradual improvement in the condition 
 
 of the..:. 192 
 
 the political separation between the 
 two latter tribes not yet adjusted... 193 
 Cheyennes, Jlra-pahoes, and Siouw — 
 
 starving condition of the, in conse- 
 quence of the scanty supply of buf- 
 falo 191 
 
 the colonization of them suggested as 
 
 a means of preservation, &.C 192 
 
 Chief Engineer — 
 
 abstract of the report of the 438 
 
 Chippeuas — 
 
 unfortunate situation of the, in Mich- 
 igan 180 
 
 unwilhngness of the, in Wisconsin, 
 
 to leave their present residences.. . 182 
 of Minnesota, unwilling to cede any 
 portion of their territory west of the 
 
 Mississippi 182 
 
 Choctaw schools — 
 
 want of means for the full accom- 
 plishment of the system of 193 
 
 a suggestion that the unclaimed " or- 
 phan fund " be appropriated to that 
 
 object, as desired by the tribes 194 
 
 Civil List — 
 
 usual and ordinary expenditures for 
 
 the fiscal year 1854 34 
 
 Clarendon, the Earl of — 
 
 his instructions to Mr. Crampton on 
 
 the subject of the Greytown atlair. 325 
 letter from, to Mr. Crampton, on tlie 
 
 subject of the treaty of 1850 327 
 
 letter from, to Mr. Crampton, on the 
 conduct of Capt. UoUins, and on 
 
 the Mosquito country 334 
 
 Classification of lands — 
 
 the work of, necessarily tedious and "'" 
 
 slow 179 
 
 Clayton, Hon. J. M. — 
 
 letter from Reverdy Johnson to, com- 
 municated to the Senate in support 
 of his construction of the treaty 
 
 with Mr. Bulwer 337 
 
 Clerk— 
 
 of United States court in District of 
 Columbia , 150 
 
 Clerks— 
 
 increase in the number of, recom- 
 mended 43 
 
 advantages of the system of classifi- 
 cation of 53, 54 
 
 complimentary notices of the, in the 
 
 Land Office 160 
 
 Coast Survey — 
 
 progress of the 49 
 
 duties performed in the office of 239 
 
 present extent of the 240 
 
 list of discoveries and developments 
 
 in the, for 1854 241 
 
 field-work in the various sections of 
 
 the 242 
 
 Coffee— 
 
 reduction of the Danish Sound duty 
 
 on 277 
 
 Columbia, District of — 
 
 President's former recommendations 
 
 renewed 24 
 
 inquests in 24 
 
 clerk of United Slates court in 24 
 
 costs of criminal complaints in 150 
 
 improvements in 151 
 
 national hospital for the insane..'. .. ■ 153 
 
 penitentiary 153 
 
 Columbia, the — 
 
 flag-ship of the Home squadron 85 
 
 Commanding General — 
 
 report of the, on the state of the 
 
 army 436 
 
 Commerce — 
 
 magnitude and extent of our for- 
 eign 3 
 
 Commerce and Navigation — 
 
 the Register's report of, commended. 44 
 statement of the, of the United 
 
 States 431 to 435 
 
 Commissary General — 
 
 abstract of the report of the 438 
 
 Commissioner of the General Land Office — 
 
 report of the 138 
 
 Commissioner of Customs — 
 
 abstract of the report of 415 
 
 old balances on the books of the 416 
 
 Commissions to postmasters — 
 
 the Postmaster General's remarks 
 
 upon 125 
 
 Comptrollers, First and Second — 
 
 abstracts of the reports ot.. 415 
 
 old balances reported by the 415-416 
 
 Computations — 
 
 two sets of, made in the Coast Survey 
 
 Office 239 
 
 Construction — 
 
 iibstract of the report from the Bureau , 
 
 of 451 
 
 Contracts for steam machinery — 
 
 for five of the frigates made with pri- 
 vate establishments 97 
 
 Contracts, lettings of — 
 
 in the Post Office Department 114 
 
 manner of awarding in the same de- 
 partment 119 
 
 enhanced prices demanded 126 
 
 Cotton — 
 
 quantity and value of, exported an- 
 nually 425 
 
 Council Bluff agency — 
 
 ^tipulation to urotect the Omahas of 
 
 the, against the Sioux, &.C 186 
 
 Courts of the United States — 
 
 terms and places of holding them.... 150 
 report of First Comptroller on this and 
 
 kindred subjects 151 
 
 Crampton, John F. — 
 
 British minister, letter from, to the 
 Secretary of State 322, 324 
 
INDEX. 
 
 Crops- 
 failure of the Indian,{n Nebraska and 
 
 Kansas, from drought 185 
 
 application of the money annuities 
 recommended for the purchase of 
 
 supphes, &c 186 
 
 Costs — 
 
 of criminal complaints in the District 
 
 of Columbia 150 
 
 Cunard line of steamers — 
 
 amount paid by Great Britain to the, 
 compared with that paid by the Uni- 
 ted States to the Collins line 134 
 
 Custom-houses — 
 
 selection of sites for 50 
 
 Customs — 
 
 receipts from, for the fiscal year 1854. 33 
 Cyane, the — 
 
 mission of the 6 
 
 in Caledonia bay .*. . 87 
 
 atSanJuande Nicaragua 88 
 
 out of commission 89 
 
 (See Hollins, Commander.) 
 
 D. 
 
 Darien — 
 
 exploration of the isthmus of 87, 442 
 
 Defences, seacoast — 
 
 policy of continuing them 75 
 
 their design and importance 76 
 
 De VHuys, M. Drouyn — 
 
 his letter to Mr. Mason on the ex- 
 clusion of Mr. Pierre Soule from 
 
 France 28 
 
 Denmark — 
 
 the Sound tolls ; notice of an inten- 
 tion to terminate our treaty with, 
 
 recommended 7 
 
 diplomatic correspondence respecting 
 
 the Sound dues 273 
 
 Discipline — 
 
 of seamen in the navy 99 
 
 Dobbin, J. C, Secretary of the Navy — 
 
 report of 85 
 
 reply of, to the report of Commander 
 
 Holhns 312 
 
 letter from, to Commander Dornin. ., 313 
 letter from, in reply to the second com- 
 munication of Commander Hollins. 316 
 letter from, to Commodore Newton, 
 enclosing the letter above mention- 
 ed • 319 
 
 letter from, to Commander Hollins. . . 361 
 Domestic produce — 
 
 summary view of the exports of. .429, 430 
 Donation claims in Orc/iOn — 
 
 instructions not complied with in 
 transmitting certificates of, to the 
 
 Land Office 166 
 
 Dornin, Commomder — 
 
 in command of the Portsmouth 93 
 
 suppresses an unlawful expedition on 
 
 the Pacific 93 
 
 procures the release of American pri- 
 soners at Mazatlan 94 
 
 Dulany, Commodore — 
 
 in command of the Pacific squadron. 93 
 Duties — 
 
 the Secretary of the Treasury recom- 
 mends a reduction of 39 
 
 Dyewoods — 
 
 the new Danish duty on, in American 
 vessels trading in the fialtic 277 
 
 E. 
 Electrotyping — 
 
 high perfection of the art of, in the 
 Coast Survey Office 239 
 
 Etsinore — 
 
 list of American vessels passing the 
 
 Sound at 279 
 
 specification of ships of all nations 
 that have passed, to and from the 
 
 Baltic, for seven years 280 
 
 Embezzlement of bullion — 
 
 examination of the mint at Philadel- 
 phia, consequent upon the 51 
 
 Estimates — 
 
 of the last session 15 
 
 for tlie year ending June 30, 1855. . 34, 35 
 
 for the support of the army 61 
 
 navy and marine corps no 
 
 of probable receipts and expenditures 
 in the Post Olflce Department for 
 
 the current fiscal year 127 
 
 Executory contracts — 
 
 necessity of prohibiting under severe 
 penalties, and of declaring null and 
 void by law all, made by Indian 
 
 tribes with claim agents, &.c 204 
 
 Expansion, territorial — 
 
 of the United States, how regarded by 
 
 European powers 3 
 
 Expenditures — 
 
 actual andestimated, toJune30, 1854. 32 
 
 actual, for the same period 33 
 
 estimated, for the year ending June 
 
 30, 1855 34,35 
 
 naval, for the fiscal year 110 
 
 of the Post Office Department 120 
 
 of judicial officers and for judicial 
 
 purposes.. 149 
 
 in ditail of the several depart- 
 ments 383 — 388 
 
 total, and balance in the trcasurv July 
 
 1, 1854 .■ 388 
 
 Expenses — 
 
 of Indian wars 60 
 
 Experiments — 
 
 by the Ordnance department 77 
 
 Exports and imports — 
 
 tabular statement of. . 391,392; 410— 41 J 
 
 F. 
 
 Fabens, Joseph W. — 
 
 commercial agent at San Juan de Ni- 
 caragua, letter to, from the Secre- 
 tary of State 350,351 
 
 letters from, to the Secretary of 
 
 State 353, 355, 358, 359 
 
 Fee bill— 
 
 notice of the First Comptroller's re- 
 port on the 454 
 
 Fifteen-mile limit — 
 
 table showing the quantity of land .sold 
 
 within the 177 
 
 Fifth Jiuditor— 
 
 abstract of the report of the 414 
 
 Finances — 
 
 report ofthe Secretary of the Treasury 
 
 on the state of the 32 
 
 Financial condition — 
 
 ofthe United States 14 
 
 Fines and deductions — 
 
 amount of, during the past fiscal year. 139 
 Fire-jrroof buildings— 
 
 recommended for the departments. . . 151 
 First Jiuditor — 
 
 abstract of the report of the 413 
 
 Fisheries — 
 
 on the coasts of the North American 
 provinces, recommendations in re- 
 gard to 6 
 
 Fishing — 
 
 right of, on the British coasts of North 
 America, secured to the United 
 Slates by the treaty of Washington . 378 
 
464 
 
 INDEX. 
 
 Flenni':en, Mr.— 
 
 extract of a letter from, to the Secre- 
 tary of State 281 
 
 instructions of the Secretary of State 
 to, on the subject of Sound dues. . . 282 
 Florida — 
 
 arrana;einents for organizing a new 
 
 land office in the southern part of.. 166 
 surveys closed on the line between 
 
 Alabama and 168 
 
 Florida Indians — 
 
 removal of the 56 
 
 Ford, Capt. Thomas H. — 
 
 relinquishment of his invalid pension, 
 
 by 213 
 
 Foreign Affairs— 
 
 negotiations with Denmark 27J— sab 
 
 Sute of intercourse with Central 
 
 America 297-320 
 
 Foreign intercourse — 
 
 amount of expenditures on, for 1854. 34 
 Foreign mails — 
 
 statistical information on the subject 
 
 of, referred, &c 139 
 
 Foreign merchandise — 
 
 table showing the value of, imported, 
 re-exported, and consumed annually 425 
 Foreign Powers — 
 
 complaints of, in regard to the affair 
 
 of Greytown 14 
 
 Fort Laramie — 
 
 massacre of Lieutenant Grattan and 
 
 his men by the Sioux 197 
 
 Fourth Auditor — 
 
 abstract of the report of the 414 
 
 Prance — 
 
 relations with ' 
 
 Free goods — 
 
 remarks of the Secretary of the Treas- 
 ury on 40 
 
 Free ships makejree goods — 
 
 the bill considered 3 
 
 views of Russia on this subject 4 
 
 of the King of the Two Sicilies 4 
 
 of the King of Prussia 4 
 
 the principle recognised in the 1st ar- 
 ticle of the treaty between the 
 
 United States and Russia 371 
 
 French consul — 
 
 at San Francisco 7 
 
 Frontiers — 
 
 extent of our 59 
 
 Fulton, the — 
 
 of the Home squadron 86 
 
 Fusible alloys— 
 
 report of experiments in 424 
 
 G. 
 
 Gadsden, Mr. — 
 
 conveyed by the Fulton to Mexico... 86 
 General Council — 
 
 a, recommended, ofthescmi-civilized 
 tribes of the southern superintend- 
 ency and the wild tribes of the 
 
 prairies 199 
 
 General Land Office, report of the Com- 
 missioner of the — 
 
 number of acres surveyed for the year 
 ending 30th of September 158 
 
 quantity sold for cash and located 
 with warrants 158 
 
 number of patents written and re- 
 corded during the year 159 
 
 other business of the office performed 
 during the year 159 
 
 ooinniendatory notice of the clerks.. 160 
 
 tabic showing the present condition 
 of bounty land warrants 161 
 
 General Land [Office, report of the Com- 
 missioner of the — 
 table showing the grants to each of the 
 States for internal improvements.. 162 
 
 grants to railroads and canals 162 
 
 number of acres withdrawn from 
 
 market in anticipation of grants. . . 163 
 notice of the grants of swamp lands 163 
 Virginia revolutionary bounty land 
 
 claims 164 
 
 suggestion as to proper allowances to 
 
 land officers 165 
 
 return of certificates for donation 
 lands for want of proper accompani- 
 ments, required by instructions .... 166 
 the surveyors general of Kansas and 
 Nebraska instructed and despatched 
 
 to their respective duties 166 
 
 appointment and instruction of land 
 • officers for Washington and Oregon 
 
 Territories 166 
 
 reports of the several surveyors gen- 
 eral 167, 163 
 
 confirmations required to sales made 
 in the land district of Cheboygan, 
 
 in Michigan 169 
 
 necessity of an act of Congress to 
 
 render valid certain sales under a 
 
 misapprehension of the relief laws. 170 
 
 remarks on the security of titles, and 
 
 necessity of an act of limitation in 
 
 relation to surveys and sales 170 
 
 the aid given by all the States to edu- 
 cation by donations of public lands, 
 recommended to the consideration 
 of Congress in reference to the city 
 ot Washington and District of Co- 
 lumbia 171 
 
 defects in the law to graduate and 
 reduce the price of the public lands 
 to actual settlers and cultivators. . . 171 
 remarks on the pre-emption clause of 
 
 the law 1"2 
 
 origination of the present land system. 173 
 examination of the change made in 
 
 this system by the graduation act. . 174 
 comparison of the benefits to the old 
 and new States respectively, under 
 
 the present system 175 
 
 the true policy of the land system.. . 176 
 tabular statements showing the quan- 
 tity of land sold, &c., within the 
 six-mile limit and within the fifteen- 
 mile limit 177 
 
 amendments in the graduation law* 
 
 recommended 178 
 
 progress in the classification of the 
 
 lands 178 
 
 Gcrni, Commander — 
 
 ill command of the Albany 86 
 
 Gold ami silver currency — 
 
 advantages of, maintained 48 
 
 Graduation jirinciple — 
 
 o|)eration of the 140 
 
 Grants of land — 
 
 fwr iriilitary warrants and Virginia scrip 141 
 
 for railroads 141 
 
 to each of the States for internal im- 
 provements, a table exhibiting the 
 
 present condition of the 162 
 
 Grattan, Lieutenant — 
 
 melancholy fate of, near Fort Lara- 
 mie 197 
 
 Great Britain — 
 
 reciprocity treaty between the United 
 
 States and 378 
 
 Great Ncmahaw agency — 
 
 salutary change in the habits of the 
 tribes of the 186 
 
INDEX. 
 
 4()5 
 
 Greytown — 
 
 reference in the President's message 
 to 10, 12 
 
 political organization of 297 
 
 arrival of the Cyane, and subsequent 
 occurrences at 301 
 
 visit of tlie British war steamer Gey- 
 ser at 313 
 
 views of the administration in relation 
 to the conduct of Commander Hol- 
 linsat 31C 
 
 bombardment of 36"i 
 
 Guadalupe Hidalgo — 
 
 provisions of the 6th and 7th articles 
 of the treaty of, rendered nugatory by 
 the treaty of Washington 375 
 
 H. 
 
 Half-pay pensions for five years — 
 
 enumeration of the acts granting.... 009 
 the number of pensioners entered on 
 
 the lists under those acts 210 
 
 Harding, J. D., Queen's advocate — 
 
 letter from, to the Earl ot Clarendon, 
 giving his opinion on Mr. Clayton-s 
 construction of the 1st article of 
 the Clayton and Bulwer treaty.... 322 
 Hassler, F. R.— 
 
 the United States coast survey com- 
 menced under 237 
 
 Hemp — 
 
 American water-rotted 110 
 
 History, ^'c, of the Indian Tribes — 
 
 the last volume of the, now in the 
 
 press 200 
 
 Hollins, Commander — 
 
 in command of the Cyane 87 
 
 in Caledonia bay ". 87 
 
 bombards San Juan de Nicaragua. .. 88 
 letter from, to the Secretary of the 
 Navy, giving an account of the state 
 
 of things at Greytown 301 
 
 correspondence of, with the mayor of 
 
 Greytown 304 
 
 proclamation by, in consequence of 
 
 an assault upon an American citizen 311 
 letter from the British vice-consul to, 
 
 applauding the same 311 
 
 letter from, to the Secretary of the 
 Navy, giving an account of the visit 
 
 of the Geyser, &c 313 
 
 Home Squadron 85 
 
 Hudson Bay Company — 
 
 un appropriation for efteeting an ex- 
 tinguishment of its rights to the 
 navigation of the Columbia, and 
 other possessory rights, recom- 
 mended by the President 6 
 
 Hydrography — 
 
 the application of, to the operations of 
 the coast survey 238 
 
 I. 
 Illinois and Missouri — 
 
 rapid progress of the surveyor general 
 
 of 167 
 
 Importations — 
 
 the great excess of, over exportations, 
 
 accounted for 37 
 
 Imports coyisumcd — 
 
 table showing the value of 425 
 
 Itnpro vements — 
 
 in small-arms 76 
 
 rivers and harbors 80 
 
 Increase — 
 
 of the pay of army otiicers, recom- 
 mended 60 
 
 of the navy, recommended 95 
 
 59 
 
 Independent Treasury — 
 
 favorable operations of the 48 
 
 Indian Affairs — 
 
 number of communications annexed 
 to the report of the Commissioner 
 
 of 458 
 
 Indian affairs, report of Commissioner of — 
 
 the reumants of the i<ix Nations 180 
 
 peculiar situation of the Indians in 
 Michigan 180 
 
 exchange of lands with the Menonio- 
 nees 181 
 
 sum stipulated to be paid for the ex- 
 change 161 
 
 embarrassment created by refusal of 
 the Stoekbridge Indians to ac- 
 cept the tract of land selected for 
 them 181 
 
 advanced civilization of the Oneidas 180 
 
 destitute: condition of a portion of the 
 Chippewas iiorlli of the headwaters 
 of Mississippi 183 
 
 arrangements to settle the Winneba- 
 goes not yet consummated 183 
 
 settlement of the ditticulties connect- 
 ed with the Sioux of Minnesota ... 183 
 
 conventions with the tribes in Ne- 
 braska and Kansas 183 
 
 prices allowed to the Indians of those 
 Territories for their lands 184 
 
 mode of payment recommended with 
 regard to these tribes 1 S4 
 
 convention with the Shawnoes 184 
 
 failure of crops in the Central su. er- 
 intendency 185 
 
 treaty with the tribes in the Council 
 Blutf agency 186 
 
 favorable accounts of tribes in the 
 Great Nemaliaw agency 166 
 
 early surveys in the Kansas Territory 
 recommended 187 
 
 unlawful proceedings of an associa- 
 tion on lands ceded by the Dela- 
 wares 187 
 
 smrgeslions in relation to the tribes of 
 the Kansas Territory 188—190 
 
 character of the tribes of the Upper 
 Platte and Arkansas agency 190 
 
 starving condition of certain tribes in 
 the same agency 191 
 
 colonization suggested as a means of 
 relievitig them 192 
 
 prosperous condition of Ch((rokees, 
 Creeks, Choctaws, and Chickasaws 192 
 
 debased character of the Seminoles 
 within the same agency 192 
 
 comfortable circumstances of the Uni- 
 ted Senecas and Shawnees. &c.... 193 
 
 proposed political separation between 
 the Choctaws and Chickasaws not 
 yet consummated 193 
 
 a similar separation desirable between 
 the Creeks and Seminoles 193 
 
 a suggestion that the balance of the 
 orphan fund remaining in the hands 
 ot the Choctaws should bi; paid 
 over to them for the benefil of their 
 general system of common schools 193 
 
 proposed colonization of the Texas 
 Indians 194 
 
 conventional arrangements recom- 
 meniled with the Indians of New 
 Mexico and Utah 194 
 
 the appropriations to negotiate trea- 
 ties with these tribes del lyed too 
 long to send out the requisite goods 
 
 and presents ] 95 
 
 a similar reason previ'Uted treaties 
 with the Blackfeet Indians 1S6 
 
466 
 
 INDEX. 
 
 IndUm Affairs, report of Ccmmissioncr of — 
 
 preparations lor treaties with the 
 tribes ol' Oregon and Wasliingf.on 
 Territories 196 
 
 eiieouriigirig aspect of Indian relations 
 in I'aliiornia 196 
 
 massacre of Lieut. Grattan and liis 
 men near Fort Laramie 197 
 
 the Indiajis break open the ware- 
 houses and distribute their goods... 198 
 
 change in the policy observed towards 
 the Indians reeoniniended 198 
 
 injury done to the Indians by traffic 
 in ardent sniiits 199 
 
 a general council of ihe semi-civil- 
 ized and wild tribes of the t>outhern 
 supcrintendency urged upon Con- 
 gress 199 
 
 investment of the Indian fuird in Uni- 
 ti;d States stocks reconmiended.. . 200 
 
 the fifth volume of the History, &e., 
 of the fiidian Tribes, in press 200 
 
 claim-* of Indians for bounty lands 
 for military services 200 
 
 binds of strolling Indians in the west- 
 ern States and Territories 200 
 
 projected speculation discovered on 
 the claims of the Menomonees.,.. 201 
 
 means taken to defeat the same, and 
 secure justit^e to the tribe 202 
 
 dismissal of one of the sub-ngeiits for 
 concern in the attempted fr:>ud.... 203 
 
 imemperale and demoralized habits 
 of Osh-kosh, the principal chief. .. 204 
 
 similar speculations not confined to 
 the Menomonees, hut a general and 
 growing evil, wliieh ought to be 
 lemedied 204 
 
 suggestion of means in some meas- 
 ure to put a stop to it 205 
 
 Indiiiii — 
 
 atrocities 16 
 
 collisions and depredations 56—60 
 
 hidiuns — 
 
 Florida 56 
 
 Indian trihes — 
 
 treaties with, annuities, agents, con- 
 dition, crops, hunters, coloniza- 
 tion and civilization 154 — 157 
 
 till' claims of the, upon the gov- 
 crnmint, lor protection, strongly 
 
 urged ' 205 
 
 Inquer.ts — 
 
 in the city of Washington 150 
 
 Inspectors of steamboats — 
 
 losses reported by the, &c 52 
 
 report of tile board of supervising 4Q1 
 
 Iideriar Depurtmcnt — 
 
 amount of expenditures in the, for the 
 fiscal year 1854 34 
 
 abstracts of doeuments annexed to the 
 
 report of the .Secretary of the 454 
 
 Interior, report of the Senetury of Ihe — 
 
 business of the General Land Office ; 
 operation of graduation principle.. 140 
 
 surveys and sales ol last year. . . 140 — 141 
 
 land granted to satisfy mi'itiU-y war- 
 rants and Vii-ffinia scrip; grants of 
 land for railroads 141 
 
 proliibition on public officers in the 
 purchase! of lands reeommended ; 
 priv.ite entry of swamp binds 142 
 
 private land claims in Californiii 143 
 
 I'en^ion Uureau — omissions and ine- 
 qualities in the pension laws; in- 
 crease in the aafffcgati^ amount of 
 pensions; changes in tlie laws and in 
 theirexecution recommended. 143 — 145 
 
 invalid pensioners 145 
 
 Interior, report of the Secretary of the — 
 
 modification of the acts liniiting to two 
 years prosecutions for frauds in 
 j)ension and land-warrant cases ; 
 necessity of a revision of the pen- 
 sion laws 145 
 
 clerical force of the department ; 
 ledgers and books ; funds with dis- 
 bursing agents 146 
 
 Mexican boundary survey; north- 
 west boundary ; Territory of Wash- 
 ington , 147 
 
 Patent Office — amendment of the pa- 
 tent laws ; reorganization of the ex- 
 amining corps 148 
 
 law department recommended ; ex- 
 penditures of judicial officers, and 
 for judicial purposes 149 
 
 inquests in the city of Washington ; 
 clerk of United States court, and 
 costs of criminal complaints, in the 
 Ijistrict of Columbia; terms and 
 seat- of United States courts 150 
 
 report of First Comptroller on this and 
 other subjects; compendium of 
 seventh census; improvements in 
 the District; fire-proof buildings for 
 the departments recommended.... 151 
 
 public grounds and government lots 
 in the city of Washington ; Little 
 Falls bridge 152 
 
 national hospital for the insane; pen- 
 itentiary of the District 153 
 
 chief clerk 154 
 
 Indian treaties, annuities, agents, 
 condition, crops, hunters, coloniza- 
 tion, and civilization 154 — 157 
 
 Internal improveinents — 
 
 President's objections to be made the 
 subject of a special message 23 
 
 special n»essage of the President, with 
 iiis objections to the bill making ap- 
 propriations for, &.C 220 
 
 the constitutional power of, argued .. 221 
 
 International relations 1 
 
 Inter-oci.-anic ccmimunication 9 
 
 Invalid pensions — 
 
 number i>laeed on the list for, and 
 annual sum p\id 211 
 
 voluntary relmquishinent of", by two 
 
 officers of the Mexican war 212 
 
 Investtnent of Indian appropriations — 
 
 in stocks bearing interest, the policy 
 01", suggested lor the consideration 
 
 of Conuiress 200 
 
 Iron war steamer — 
 
 constructing by K. L. Stevens 109 
 
 Iruin, Mr. — 
 
 extract of a letter from, at Copen- 
 hagen, to the Secretary of State. 278-280 
 Isthynus of Darien — 
 
 reference to the passage of the, in the 
 President's message 9 
 
 report of Lieut. J. G. Strain, in rela- 
 tion to a reconiioissance of the 442 
 
 J. 
 
 Japrn — 
 
 reference to the expedition to, in the 
 President's message 8 
 
 expedition of Commodore Perry 91 
 
 treaty with '. 91 
 
 Johnson, Rcverdy — 
 
 late Attorney General of the United 
 States, btler from, to the Hon. J. 
 M. Clayton, siviiig his opinion on 
 the construction of the treaty of 
 1850 337 
 
INDEX. 
 
 Jiuli;es Of district courts— 
 
 salaries of, inadequate i.n 
 
 Judicial csttiUuhment— ^^^ 
 
 467 
 
 Liahilily — 
 
 Kansas — 
 
 no report yet received from tlie «iir 
 
 veyor general of. ... . "^ ,p„ 
 
 convention witli tlie tril)es'in"the"i';;- 
 
 price stipulated for theVmiiun ianrlVi,"i iKa 
 an^earlystuveyof thelan's';"'-;;;-''' 
 
 executive poww aiid a'uthoj'iVy'/ho;' ^^~ 
 
 to be exercised ^' q^^ 
 
 elections in, how to be conducted' .' " ' 5^4 
 no officer, soldier, seaman, or marine" 
 . &C-, entitled to vote... ofi=; 
 
 judicial power of said Territo'ry. .' .' .' " ' ofiS 
 proviMons of tlie act concerninff fuVil 
 tives Iroiu justice or slavery ex- 
 
 teii'led to ofis 
 
 salaries of the several oliie;^ of s'aid 
 1 crritory _ _ ^ , 
 
 Fort Leavenworth made 'tii'e Vc"aV of 
 Sovernment of. . . 
 
 '"'"ihf^lV *^'"'^''*''' *''om; howto"b; 
 
 the question of slavery VnVleVt 'to 
 
 of the United States under the treatv 
 
 o:.^ji::i'>'T^H'''«'«">re„;;:vnn;-: 
 
 ^,=^';^';^;';_';^tl"' treaty of U-ash 
 Li^t- house Board— 
 , abstract of the r 
 Lighthouses — 
 
 375 
 
 port of the 42.3 
 
 ''uleCr"'°""''''''''^'^»'"-''y 
 
 "'^r."r^°'o??!r'"'""""''"^'"^'''- '! 
 Limitation — 22i 
 
 the necessity of an act of, in r. lation 
 
 appropriation for completin" 
 ^ c*,. ^completing, on or,gh.ai 
 
 the prevalence of siekne.ss in, inter 
 fered materially with Held opJia. 
 
 ]ry> 
 
 plan.. 152 
 
 16H 
 
 M. 
 
 270 
 
 270 
 
 decision of the inhabitants 271 
 
 Labor — 
 
 a stati.stical table showing the amovni 
 
 naval, at Brooklyn ,,1 
 
 Lake Michigan— ^ 
 
 right of navigating, secured to British 
 Land- ''"'^'' ^ ''"^ '■'^•^'Pf^'-ity treaty... 380 
 
 quantity of, sold, located, granted, &c. 158 
 tlie number of patents l^.ue.l durin^ 
 
 the year under the various laws k^q 
 
 quantity of, withdrawn Irom marke't 
 ui anticipation of grants int 
 
 Land Office, Generals ^ ^^^ 
 
 business of the ,.„ 
 
 notice of the report of'ihe'com.'nVsl 
 
 sionerot the " .-, 
 
 Land officers— ^-^^ 
 
 propriety of making provisions to re- 
 eonipense the, for thegreat increase 
 
 ot their business igr 
 
 intiuctions transmitted " to "t'h'o'se" of 
 Land SS-"" ^^^'''"«'°»T-ritories 166 
 
 origination of the 2-3 
 
 pr«.sei,t operation of thej ' c'o'n't'rasted 
 
 with lormer periods 1-4 
 
 .n.parative results of the, to 'the old 
 
 175 
 
 uggested 176 
 
 Mail lines — 
 
 result of propo..als for e.tabhshment 
 
 Mail steamer iines— "^ 
 
 MaUsT'"' '"'' '"■' '" ^'"''"■'^ States 454 
 
 MaJ^J^ZeT-'^ "' transportation of... 113 
 
 grean-ncrcase in the export of Ameri- 
 Marai, mn. '£'.— ''1 
 
 letter from, to Mr." 'I'n'ge^so'll, on the 
 
 su.jectsofthe trans?,e,ion.sa S;m 
 Juan and the title of the M, 
 
 287— S93 
 subjects of the transaetion.s I 
 Jua-i and Uie title of the Mosqnito 
 
 Marine Corps— •'~'^ 
 
 Its increase recommended.... im 
 
 "''^'Tf^^f !^"i'"p"" "'■ the ■;;,;,;: ""^ 
 
 Mart 
 
 niandant of the. 
 
 hment... 
 
 rtin, E7igincer-in-chie/'— '' 
 
 Jiis visit to Europe..... „. 
 
 Mason, John V. ^^ 
 
 letter.s to Mr. Marcy and M. Drouvn 
 de I'Huys, on the exclusion fro, 
 
 France of Mr. Soule ,. 05 ^, 
 
 massacre — ~'' — ■'" 
 
 ofLiout. Grattan'sdetael 
 Jlutl/icirs, Lieutenant 
 
 lost, with fliirteen of the creu- of ,h, 
 
 Plymouth 
 
 Mayo, Commodore — 
 
 in cmimand of the African squadron, 
 checksthe slave trade.... 
 Medicine and Surgery 
 
 abstract of the report from the liurean 
 Menomonees — 
 
 197 
 
 91 
 
 89 
 
 453 
 
 con 
 
 and new States.".! 
 the true policy of the, 
 Lands — 
 
 La Plata-^ ''''°"'' ^°' *'"' '"'''^•'" ^^'^ l^^^- =3 
 
 navigation of, secured to the United 
 
 states g 
 
 Law Department— 
 
 revenue from, to the Post Office 123 
 
 exchange of lands with the jsi 
 
 d.^teetion of a desperate ..cheme'io 
 delraiidtlic, and ibe tr.'asurv 0,1, 
 
 "'n;a;t;;;':'!:'::'.r:!'::^''"' '•-■""---'!! 
 
 Mexican boundary— ' 
 
 *:urvey of, recommenced. 11- 
 
 Mexiro — '■'' 
 
 "s'^'i'T"''^''* '"' '" ""^ '''■''■-^i'lenfs mes- 
 pvogre.ss of po.st'al'an'anion'.en'ti'wilh" rj! 
 copy ,^ the treaty between the Uill: 
 ,,. . . t*'" States and the republic of 
 Michigan — 
 
 sub.stance of the report of the surveyor 
 g<!neral ot • 
 
 373 
 
468 
 
 INDEX. 
 
 Military Academy— ^ 
 
 iiitormation concerning tne 'i 
 
 report of the chief engineer on the 
 
 condition of the 4J» 
 
 Militnry divisions— 
 
 »tlie" five geographical commands ot the 
 
 United States ^° 
 
 Military establishment— 
 
 in peace 
 
 Military force— _ „„ 
 
 insufficiency of our a») 3»j °" 
 
 Military — ,<, 
 
 on the frontiers ^" 
 
 Military sites — _„ 
 
 sale of useless 
 
 Military warrants— . ^ . - „„ 
 
 land granted to satisfy them since 
 
 1790 ^^^ 
 
 Militia — , 70 
 
 arms and books for the '" 
 
 Mint- 
 
 inage at the, and branch at New 
 
 cornels'^ "'^ "'^' """ Aft 
 
 Orleans •••• ^" 
 
 tmount of gold of domestic produc 
 
 tlon in the 
 
 Miscellaneous — . . ^ „, 
 
 sources, receipts from, for the fiscal 
 
 year 1854 :"^*V 
 
 expenditures under the head of, tor 
 
 the same period 
 
 Mission schools — • .>,„ 
 
 flourishing condition of the, m tne 
 
 Central superintendency 
 
 Money remitted by mail— 
 
 remarks of the Postmaster General 
 
 on the subject of '^^'' 
 
 the registration of money letters rec- 
 
 ommended vy"'i' 
 
 Moneii stipulated to be paid to Mexico, by 
 the' third article of the treaty ot Wash- 
 ington 
 
 Monthly settlements- 
 
 beneficial effects of 
 Mormons — . 
 complaint of the, against the Sioux 
 encamped near Fort Laramie la 
 
 Stortar — . , 
 experiments with a view to provide a, 
 for throwing a line to vessels in dis- 
 tress ' 
 
 Mosquito territory— 
 
 Lord Clarendon asserts the title ot 
 
 421 
 
 187 
 
 375 
 44 
 
 50 
 
 the, to certain 
 
 boundaries 327 
 
 McConnell, Captain John I.— 
 
 relinfiuishment of his invalid pension 
 
 by. 
 
 213 
 
 N. 
 
 Nautical Mmanac— 
 
 reference to the .-.. ••• ^" 
 
 abstract of the report of Commander 
 
 Davis on the progress ot the -JoU 
 
 Naval Academy at Annapolis— 
 
 abstract of the report ot the Board of 
 
 Kxamineis for the ^^^ 
 
 estimates for the service ot the 'i^^ 
 
 Navulforce — _ 
 
 in peace „_ 
 
 actual condition of our »' 
 
 Naval Observatory- mn 
 
 achievements of Lieutenant Maury. . |ua 
 
 wind and current charts loa 
 
 estimates for the ^au 
 
 Navy, report of the Secretary of the— 
 
 vessels, commanders, and cruises of 
 
 the Home squadron °^ 
 
 survey of the bay of Samana 85 
 
 exploration of the isthmus of Uarien . . i* 
 
 V. report of the Secretary of the— 
 "g<Microus conduct of British officers.. 87 
 the Cyane ordered to San Juan de 
 
 Nicaragua °^ 
 
 bombardment of the town bo 
 
 vessels, commanders, and cruises of 
 
 the Brazil squadron • 89 
 
 vessels, commanders, and cruises of 
 
 the African squadron 89 
 
 engaged in checking the slave trade. . 90 
 expedition to Japan, and treaty ...••• ^^ 
 the Mediterranean and East 1""'^ 
 
 squadrons 'oi 
 
 loss of Lieut. Matthews and men ... . 91 
 surveying expedition to the Pacific ... 92 
 protection of American citizens and 
 their property in China by Com- 
 
 mander Ringgold ^ 
 
 his return to the United States 9a 
 
 expedition placed in charge of Lieut. 
 
 Rodg-^rs °^ 
 
 the Pacific squadron • . • • ^^ 
 
 stationary store-ships on the Pacific.. 9J 
 Commander Dornin, in the Ports- 
 mouth, arrests an unlawful expedi- 
 
 tion on the Pacific »" 
 
 unlawful expedition on the Pacific. .. 9J 
 discharge of American prisoners at 
 
 Mazatlan •• ^ 
 
 visit of the St. Mary's to the Chincha 
 
 islands ^ 
 
 steamer on the northern lakes 94 
 
 the San Jacinto ■•".••• nl 
 
 increase of the navy recommended. . . 95 
 
 its present actual strength 97 
 
 six steam-frigates building in the navy 
 
 yards ~J. 
 
 contracts for their steam-machinery. . 97 
 visit of Engineer-in-chief to Europe. 98 
 progress in construction of the frigates 
 
 Sabine, Santee, and Franklin 98 
 
 reorganization suggested 98 
 
 reforms mentioned in previous report. 9a 
 
 retired list and promotions 98 
 
 discipline ot seamen • • 99 
 
 their permanent connexion with the 
 
 service indispensable 101 
 
 enlistment of boys lUl 
 
 increase of the marine corps recom- 
 mended • • • JOl 
 
 yards and docks 102, 106 
 
 necessity of a basin and railway to a 
 
 sectional dock \'^ 
 
 tests of the balance dock at Pensacola lUb 
 surrender of the navy yard at Mem- 
 
 phis...* ■••••• 108 
 
 condition and advantages ot the Naval 
 
 Acfld^ni V •••• •••• l"o 
 
 cruise of the Preble practice-ship 108 
 
 naval observatory J09 
 
 achievements of Lieut. Maury 109 
 
 wind and current charts 109 
 
 iron war steamer 1"^ 
 
 American water-rotted hemp 110 
 
 estimates and expenditures 110 
 
 reference to bureau reports Ill 
 
 ordnance llj 
 
 laboratory at Brooklyn IJi 
 
 Nautical Almanac m 
 
 Navy — ,„ 
 
 discipline and increase of the la 
 
 documents accompanying the report 
 
 of the Secretary of the 442 
 
 list of deaths, resignations, and dis- 
 
 missions in the ^'♦" 
 
 ostimate for the support of the office 
 
 of the Secretary of the 450 
 
 number and condition of the ships of 
 
 the 451 
 
INDEX. 
 
 for 
 
 Navy Department— 
 
 amount of expenditures in tile 
 the h.cal year 1854... . n. 
 
 ly avy pensions — "'■^ 
 
 miiiiher of persons on the list of on 
 
 am,ua. sum required for the payni;;,; ^'^ 
 
 eonvemion with the Indian tribes in 
 
 tlie Territory of., 
 price stipulated for the Indian "iaVids 
 
 .184 
 
 469 
 
 Outrage — 
 
 O..ZSS"!"^-'-' America., u 
 
 . ■ balances — 
 reduotion of, hy 
 tioiis, &c 
 
 settlements, collor. 
 
 183 
 
 132 
 
 an early survey of the lands" 
 vised . 
 
 Zl7^r "nl'eg'r'ativeauthonties^f §3 
 tfei^'is^Td'^'r ;'■'''>'"■'-•« t" '- 
 jiidi.ml power of.'how cVnsVit'uteVi: '. '. 256 
 ''■-aeo,,cerning,ugitives,&c.,e.x- ^ 
 
 258 
 
 tlie governor and legislative council 
 to locate and establish the sea of 
 government sc.ii oi 
 
 '^'cS'™'": '" co,;g;;;s;h;;c,"to-b; 
 
 Nebraska and Kama's— ~^ 
 
 an act to organi 
 Neutral property/- 
 
 ''"from"7'V'"P'' '*«""'» ''e exempt 
 troni confiscation... ^ r, 
 
 not subject to contiscation*;' "li^st'.i^'i- 
 ceo the treaty between the Uni- 
 
 te.i States and Russia n^, 
 
 Acutraln^/Us '••• "" } 
 
 '^ New Era"— ^ 
 
 remarks on the disaster to the ^n 
 
 teuton, Comvwilore— '^ "' ""^ -^0 
 
 AW«l:T'r!f '"' "'■ ""^ "•''ne squadron . . 85 
 
 j.\itaias;ua Company 
 
 offers Of the, for carrying the mail be- 
 ^.c.,5rS^:-.^i;X!^'"-.a...l33 
 
 difficulties between tlie,"and the settle- 
 "'delav^'' 'f^'^'-'' »"d I'arked without 
 
 Omahas — 
 
 stipulation to protect the, against the 
 n,,.,- / "r\?,"'' """'■■ ''°«t''« tribes. . . ]8(J 
 0«ei*« 01 Wisconsin, hope expres;;d of 
 
 pay of this department of the army fi'J 
 
 "'offiee'C' '™"^'"'"'^'' to the land 
 
 "?rcei ved'f.'r'^'^ °''" ^"'""^' '°'''""t 
 Ore<40n a,id IVasMngion 'Territories— "" 
 preparatory measures lor holdin.. a 
 ecmncil with the Indians of, ..." 1% 
 
 Organization of Territories- 
 
 an act of Congress for the. . . o-,o 
 
 Usages, Pau nccs, ^c ~ 
 
 annoyances and depredaiions on eini- 
 
 O.y^-.o^r'^^''^""^ 191 
 
 principal chief of the Menomonces, 
 demoralized habits of... ' .i„4 
 
 Ottawas a,ul Chippeu;ts in Miehi^iiV.'uii- 
 
 Jortunute situation of the jyo 
 
 166 
 169 
 
 P. 
 
 Pacific Mail Steamship Comnam,- 
 changes made in the 
 
 oflers of the Nicaragua Conmanv " vu 
 Pacific and Mississippi— ' ^ '"'■! 
 
 pressing necessity of a commiinicalion 
 l)otween the, becoming daily more 
 
 apparent " ^ ' '^ ,.^ 
 
 Parker, Commodore F. Jl — ^ ^ 
 
 letter tirom Vice Admiral Sevmour to ^fl8 
 
 mended; reorganization of the ev- 
 amining corps ..^ 
 
 '':^^:^o[[|;r^""""'''-^--'- 
 
 Patents — "1^^ 
 
 '"thew'aj'''' "'''"'''■'"'''''''''•' '^'''"'" 
 Pay— • 159 
 
 of army officers p, 
 
 ol ordnance V" 
 
 Paymaster General- 
 
 abstract of the report of the ^-ik 
 
 Payments J or Indian lands— 
 
 in the new territorit s, mode of 184 
 
 Pension Bureau— "^ 
 
 conducted with order and regularity 
 Pension laws — r, "■'■'!_> , 
 
 143 
 
 omissions and inequalities in the.... M4 
 cliaiigisin ilinn and in their execu- 
 tion rc-oniinendfd I4-)_14-. 
 
 modiliealionofthca.thmitingiolwo 
 jears pio,s,.,.,itions li.r frauds in pen- 
 sion and land-warrant cases recom- 
 
 1-17 Pe 
 
 mended .. 
 " Uws"^ "f revision of 'the pension 
 
 Pension Office 
 
 general results in the operation of tlie 
 
 pension sy>.tein, with a tabic 
 
 fusions, report of the Commissioner 'o'f- 
 
 I. Kevolutionarv pmsions— 
 
 number of such „„ ,|,e lisf-nnmbrr 
 
 adnuKcd under Hie act of 18;i2_tlie 
 
 niiiMhrr paid ilnrjng the veai-no' 
 
 pensioner under that act ii'ow upon 
 
 annual payments' VimVe'r* 'tliV 'aet " o'f 
 ibJb_numberof pension.Ts now on 
 till' hst under that aet-niiinber of 
 appheations under llie act of 18;iS_ 
 annual p,jv iiieb-r the saine-nnm. 
 bero,,,,,,,|,.;,„„ns under the a,-tsol 
 1843 and KS.I4. and ■•innnal pay under 
 H4^"~ ','■""" '""'•■r tl'c actsor 
 1848— number paid during the year 
 mider the acts of February and July, 
 
 ni.iMijer of 'apidi;;;,;,;;,;" ;,;•;;; ;;,;;;;; ■ 
 
 Ol F.bniary, IHVi, and varlv sun. 
 paid-number of pensioners now on 
 the list under Ibat a<-t— acnlc-ntal 
 omission in Ibat a.t of officer^ &e 
 ot lb.' revoliKionary navy— who|J 
 ipphe.itHJiis a.ljndicated 
 
 i.-,„i . 1 ' ^'''".' '."''■■*• ami amount 
 I-, -males and lemal.s enumer- 
 ated— amount paid during the la-t 
 year by agents and at the 
 
 145 
 
 206 
 
 number i 
 iimler the 
 
 fiscal 
 treasury 
 
 208 
 
470 
 
 INDEX. 
 
 Pensions, report of the Commissioner of— 
 
 amount of revoliitiniiiiry pensions 
 paid, a proof that the government 
 is not charKeable with ingratitude — 
 labor of answering inquiries on the 
 suliject of pensions — a well-arranged 
 
 index under preparation 209 
 
 I[. Half-pay pensions for five years — 
 
 enumeration of the aets granting 
 them — number of applications ad- 
 mitted under them, and amounts 
 annually paid — difference between 
 the widows of officers and soldiers 
 of the regular army and those of the 
 navy adverted to, and its correction 
 recommended — the transfer of acts 
 giving half-pay pensions from the 
 office of the Third Auditor to the 
 
 Pension Bureau recommended UIO 
 
 III. Invalid pensions- 
 number of applications, and annual 
 sum required — whole number now 
 on the li^t — labor of adjudicating 
 claims in this division becoming 
 more difficult — acknowledgment to 
 the Surgeon General for his advice — 
 first appropriation by <;ongress for 
 payment of fnvalid pensions 211 
 
 amount of annual appropriations for 
 that object since 1848 — but a single 
 case remaining of revolutionary in- 
 valid i)ensions — liability of decep- 
 tion and fraud in cases of invalid^ — 
 two instances of voluntary relin- 
 quishment of pensions, for supposed 
 permanent disabilities, by officers in 
 the Mexican war, mentioned as rare 
 examples of integrity and honesty,, 212 
 
 names of the officers alluded to 213 
 
 IV'. Navy pensions — 
 
 number of invalids, and annual sum 
 required — number of widows on the 
 navy pension list — number of cases 
 payable to orphans, and amount re- 
 quired for each — declarations which 
 the office ri-quires in these cases — 
 some modification of the laws neces- 
 sary 213 
 
 incongruities involved in the literal 
 construction — navy pensions dis- 
 proportionate to other pensions. . . . 214 
 
 extension of the benefits of navy pen- 
 sion laws recommended 215 
 
 V. Bounty lands — 
 
 1st, number of warrants for revolu- 
 tionary services from 8tli February 
 to 30th September, 1854 — Dumber 
 in the same time for war of 1812 — 
 total amount of acres contained in 
 warrants under the acts of 1811, 
 1812, and 1814, to 30th September, 
 1854 215 
 
 number of suspended claims under 
 those acts — 2d, under the act of 
 1847 — whole fiumber of applica- 
 tions, number suspended, warrants 
 issued, and amount of money paid 
 in lieu of land 216 
 
 applications under the act of 18.50, tor 
 services in the war of 1812, in the 
 Indian wars since 1790, and in the 
 war with Mexico 217 
 
 number underthe act of March, 1852 — 
 nu tuber of warrants issued , of appli- 
 cations in the hands of examiners 
 and at rolls, and number suspend- 
 e t — abuses practised and detected — 
 an alphabetical index of applications 
 niiidc necessary, a work of great 
 
 labor, not yet completed — report of 
 these frauds to Congress at its last 
 
 session 218 
 
 amountof money abstracted from the 
 treasury by these fraudulent claims, 
 and amount rejected after the dis- 
 covery of the frauds — number of 
 persons connected with the frauds — 
 number convicted, &c. — six fraud- 
 ulent revolutionary claims detected 
 and traced to one person — three 
 others arrested, &.c. — a change sug- 
 gested in the statute of limitations 
 in regard to these oflences— com- 
 plimentary notice of the clerical 
 
 force in the bureau 219 
 
 Philadelphia — 
 
 the post office at, constituted by 
 agreement an office of exchange 
 for the United States and British 
 
 mails 138 
 
 Pierce, President — 
 
 special message of, on intetnal im- 
 provements 220 
 
 Policy — 
 
 of the United States, pacific 1 
 
 Policy towarih the Indians— 
 
 suggestions as to the true 198 
 
 Postal conventions — 
 
 consummated and pending 135 
 
 Postmaster General's report — 
 
 number of post offices; number and 
 length of mail-routes; transportatiou 
 by steamboats, railroads, coaches, 
 
 and other modes, in detail 113 
 
 lettings of contracts 114 
 
 number of route-agents 115 
 
 state of mail lines to connect Cairo 
 
 with New Orleans 116 
 
 difficulty of adjusting the rate per mile 
 
 with railroads 117 
 
 manner of awarding contracts 119 
 
 expenditure of the department for the 
 
 last fiscal year 120 
 
 revenue of the department 121 
 
 deficiency of revenue 122 
 
 revenue derived from stamps 123 
 
 rates of postage on printed matter. . . . 12 1 
 commissions allowed to postmasttri. 125 
 
 ertV'Ct of (iiliaMced prices 125 
 
 estimate of exiienditures lor 1855 127 
 
 estimated revenue and surplus for the 
 
 same period 128 
 
 defect in the modes of cheeking quar- 
 terly returns 128 
 
 pre-piyment of postage necessary to 
 
 eftect a radical remedy 128 
 
 l«gislalion recommended respecting 
 the transmission of monev through 
 
 the mails ' 129 
 
 the registration of such letters in Great 
 
 Britain for a specified fee 130 
 
 cost of the steamship lines 131 
 
 duration of contracts with the owners 
 
 of steamships 132 
 
 additional contract with the Pacific 
 
 Mail Steamship Company 132 
 
 purchase of the steamers reconi- 
 
 iiiended 133 
 
 offer made by the Nicaragua Company 
 to carrv the mail between N. York 
 
 and Ciilitornia 133,134 
 
 testimony to the fidelity of the con- 
 tractor's 1.34 
 
 dirt'erencc in the atnounts paid by 
 Great Britain to the Cunard line... 134 
 
 the wreck of two steamers 134 
 
 change in the line between New Or- 
 leans and Aspinwall 135 
 
INDEX. 
 
 4T 
 
 Postmaster GcneraVs report — 
 
 France not yet in tln^ postal arranfie- 
 Hient Itetween the United States and 
 Great Britain 135 
 
 negotiation with Great Brit tin on the 
 transit of closed mails 136 
 
 no satir^factory progress in the arrange- 
 ment contemplated with Belginm.. 137 
 
 progress of postal convention with 
 Mexico 138 
 
 the post office at Philadelphia consti- 
 tuted an office of exchange for Uni- 
 ted States and British mails 138 
 
 arrangeirient made with the proprie- 
 tors of the Australia Pioneer Line of 
 monthly packets hetween N. York 
 and Port Philip 538 
 
 amount of fines and deductions 13!) 
 
 testimony to the tidelily of the clerks. 1.39 
 Post Office— 
 
 reference to, in the President's mes- 
 sage 20 
 
 Post Office Department — 
 
 report of the Postmaster General on 
 the affairs of the 112 
 
 manner of awarding contracts in the. 119 
 
 expenditures in the, for the past fiscal 
 year 120 
 
 gross revenue of tlie 121 
 
 Post offices — 
 
 number of, in the United States 112 
 
 Practice ship — 
 
 abstract of the report of the comman- 
 der of the 449 
 
 Pre-emption rights — 
 
 evil consequences arising from the 
 clause relating to, in the law ol 4th 
 
 of August last 1:2 
 
 Prepayment of postage — 
 
 recommended by the Postmaster Gen- 
 eral 128 
 
 Preservation of provisions — 
 
 progress of experiments made with 
 
 several substances for the 4.i0 
 
 Presidenfs message — 
 
 brief revi(^w of our domestic condition 
 for the past year; our country un- 
 aflected by European convulsions . 1 
 
 our desire to avoid all entangling alli- 
 ances has not preserved us from the 
 disposition of soine governments of 
 Europe to direct our foreign policy. Q 
 
 our right of exemption from their in- 
 terference 2 
 
 our territorial expansion regarded by 
 them with concern 3 
 
 magnitude of our foreign commerce 3 
 
 rights of neutral nations endangered 
 by the wars of European powers. . . 3 
 
 the principle that free ships make free 
 goods, except contrabaini of war. . . 3 
 
 conceded by Great Britain and Fraiii-e 
 for the time being only 4 
 
 a proposition embracing this rule, and 
 that of exempting neutral property 
 from confiscation, submitted to Eu- 
 ropean governments 4 
 
 convention with Russia on this basis 4 
 
 its reception by the King of the Two 
 Sicilies 4 
 
 approved by the King of Prussia, who 
 submits an additional article which 
 provides for the renunciation of pri- 
 vateeiing 4 
 
 views of the President on this subject 5 
 
 ratification of our reciprocity treaty 
 with Great Britain 5 
 
 free navigation of the St. Lawrence 
 opened 5 
 
 President's message — 
 
 recommendation to refund duties on 
 fishcaugliton tliecoasi ofilie Itrilish 
 Provinces and brought by British 
 subjects to our markets (i 
 
 legislative arrang nts of Canada 
 
 and New Brunswi* k on this subject (> 
 
 boundary line of the Territory of 
 Washington (I 
 
 importance of extingtiisbiiig certain 
 territorial rights of the Hudson's Bay 
 Company, and the Puget's Sound 
 Company (> 
 
 our relations with France; the French 
 consul at San Francisco ; the Anie- 
 riean minister to Spain excludi d 
 friiiii France 7 
 
 our relations with .**pain as they were 
 at the close of the last s(!Ssion 7 
 
 Denmark and the Sound tolls — our 
 treaty 7, « 
 
 expedition to Japan; treaty with 
 Mexico; hostile expeditions against 
 Mexico S 
 
 boundary commission ; the La Plata 
 ami the Amazon ; inter-oceani<' 
 communication; Central America: 
 passage of the isthmus 9 
 
 Greytown and the Nicaragua Transit 
 Company 10 
 
 outrage on the Ainerii-an niinister; 
 organization of a temporary lorce ; 
 the community at Greytowti 11 
 
 bombardment of Greytown ; mission 
 of the Cyane 12 
 
 complaints of foreign powers; finan- 
 cial condition of the Union 14 
 
 public debt; estimates and appropria- 
 tions If) 
 
 laws recommended for the protc^ctinn 
 of public r(!cords, to prevent frauds 
 on the revenue, ami fo; other i)iir- 
 poses If) 
 
 increase of military lorce in the Indian 
 territory recommended Kl 
 
 Indian atrocities 17 
 
 the army — its services and reform, pay 
 of officers, organization and in- 
 crease 18 
 
 tin; navy — its discipline and increase — 
 apprentice system approved 19 
 
 revision of the laws tiir the proieeiidti 
 of life and property at sea suggested 2(1 
 
 I'o-t ( »tfiee '. 20 
 
 puldi<' lands — hounty lands — grants for 
 railroads 22 
 
 internal improvements — subject re- 
 served for a special message 23 
 
 judicial establishment 24 
 
 District of Columbia 24 
 
 trusts and duties of the republic 2.^ 
 
 eorrespiuidence ae<>iinipanying the 
 message in relation to the exdusiiui 
 
 of Mr. Sonle fr<im France 25—31 
 
 Price of pnhlic lands — 
 
 the act of August last to graduate and 
 reduce the, to actual settlers and 
 cultivators, productive of fraud and 
 perjury 171 
 
 necessity of a radical ainemlnient of 
 
 the act of 4th of August la>t 178 
 
 Priming — 
 
 new mode of 78 
 
 Princeton, tlic — 
 
 of the Home squadron 85 
 
 Privateering — 
 
 proposal of the King of Prussia for the 
 renunciation o' — President's views 
 of the subject 3 
 
472 
 
 INDEX. 
 
 Private property — 
 
 oil the ucean. .-. 5 
 
 Proiiiotion — 
 
 in tlie army ~-3 
 
 in tlie n.ivy 98 
 
 Protection from shipwreck — 
 
 what has been effected to secure.... 49 
 Provisions and Clothing — 
 
 abstract of the report from the Bureau 
 
 of 453 
 
 Pi.hlic Buildings — 
 
 abstract of the report of tlie Commis- 
 sioner of 455 
 
 under charge of the Treasury Depart- 
 ment, abstracts of the reports of en- 
 gineers engaged on 423 
 
 Pv.hlic debt— 
 
 amount of, outstanding on the 1st of 
 
 July, 1853 and 1854 36 
 
 particulars o( the, to be found in table 
 No. 3, as per report of the Secretary 
 
 of the Treasury .38 
 
 statement of the 388 
 
 Public depositories — 
 
 abstract of the report on 418 
 
 Public lands — 
 
 surveys and sales of the past year. 140, 141 
 recommendation that officers connect- 
 ed with should be prohibited from 
 
 purchasing 142 
 
 abstract ot documents annexed to the 
 report of the Commissioner ol the 
 
 General Land Office 457 
 
 statement of, sold, and amounts re- 
 ceived therefor 457 
 
 (^ee General Land Office.) 
 Public records and papers — 
 
 provision for their bettter security re- 
 commended 16 
 
 Punta Arenas — 
 
 execution of the writ of ejectment 
 against the Accessory Transit Com- 
 pany, at 304 
 
 a. 
 
 ^uapaws and Senccas — 
 
 comparatively comfortable circum- 
 stances of the 193 
 
 Quartermaster General — 
 
 abstract of the report of the, to the 
 Secretary of War 437 
 
 K. 
 
 Railroads — 
 
 grants for 22 
 
 condition of the grants for certain .... 162 
 Railroad companies — 
 
 difficulties attending arrangements 
 
 with, for carrying the mail. 117 
 
 Ran!:— 
 
 brevet, double 64 
 
 in the line of the army 65 
 
 Rank and command 63 
 
 Rates of postage — 
 
 on printed matter, remarks of the Post- 
 master General upon the 124 
 
 Raii' •>ugar, ami rice in paddy — 
 
 ( ffect of the new Uanisli tariff on ... . 275 
 Receipts — 
 
 actual, into the treasury for the fiscal 
 
 year ending June 30, 1854 33 
 
 sources of. 33 
 
 estimated for the year ending June 30, 
 
 1855 34 
 
 Rccivrocal trade — 
 
 between the United States and Great 
 Britain 5 
 
 Reciprocity treaty — 
 
 effectof the, on the amount of receipts 
 
 from customs 42 
 
 the Washington, between the Uni- 
 ted States and Great Britain, in 
 
 force 378 
 
 Reconnoissance — 
 
 definition of, as used in the coast sur- 
 vey 237 
 
 Records and hooks of collectors — 
 
 no existing law to enforce the delivery 
 
 of to successors 53 
 
 Recruiting service — 
 
 state of, satisfactory 61 
 
 Redemption of public debt — 
 
 interest and premium, amount paid on 34 
 Reforms — 
 
 recommended bv the Secretary of the 
 
 Navy ; 98 
 
 Regiments — 
 
 proposed reform in their organization. 72 
 Register — 
 
 abstract of the report of the 416, 431 
 
 Registration of letters — 
 
 the Postmaster General recommends 
 the, containing money, to be trans- 
 mitted by mail 130 
 
 Relations — 
 
 international 1 
 
 Relief laws — 
 
 an act of Congress necessary to make 
 valid patents and sales of land un- 
 der a misapprehension of the pro- 
 visions of the 169 
 
 Reynoval — 
 
 of the Florida Indians 56 
 
 Report — 
 
 of the Commissioner of Public Lands. 158 
 ot the Commissioiier of Indian Affairs 180 
 of the Commissioner of Pensions .... 206 
 Republic — 
 
 trusts and duties of the 24 
 
 Retired list — 
 
 for the army 74 
 
 recommended for the navy 98 
 
 Revenue — 
 
 the sources of 33 
 
 gross, of the Post Office Department. 121 
 
 deficiencies in the same 1^ 
 
 Revision of the laws, for the protection ol 
 
 life and property at sea, suggested. .. 20 
 Revolutionary pensions — 
 
 applications for, and amount of. 206 — ^209 
 the labor of answering inquiries con- 
 cerning 209 
 
 Rifle tactics — 
 
 a work on the subject in preparation. 78 
 Ringgold, Commander — 
 
 in charge of the surveying expedition 
 
 to the Pacific 92 
 
 protects American citizens and pro- 
 perty 92 
 
 River and harbor improvements — 
 
 unsettled state of the question as to 
 
 the |)ower of Congress over 230 
 
 President Jackson's opinion on the 
 
 subject of 234 
 
 iiifcrs and harbors — 
 
 progress of works of improvement on 439 
 Roads — 
 
 in the Territories 81 
 
 Road wells — 
 
 on the route for the Pacific railroad, 
 
 and military roads 82 
 
 Rodgers, Lieutenant — 
 
 is placed in charge of the surveying 
 
 expedition to the Pacific 92 
 
 Route agents — 
 
 for the mails, number of, in service.. 115 
 
INDEX. 
 
 413 
 
 Russia — 
 
 copy of tlio treaty between the United 
 States of America and his Majesty 
 the Emperor of 371 
 
 S. 
 
 Salter, Commodore — 
 
 in command of tlie Brazil squadron.. 89 
 San Jacinto, the — 
 
 cruises to test her macliinery 94 
 
 Sault de Ste. Marie canal — 
 
 present condition of the grant of land 
 
 lor the 162 
 
 Second Jluditor — 
 
 abstract of the report of the 414 
 
 Second Comptroller — 
 
 abstract of the reports of 415,416 
 
 Seminoles — 
 
 ign&rant,debased,and dissipated char- 
 acter of the 192 
 
 political union belweiMi the Creeks 
 
 and. dissatisiactory to tlie 193 
 
 Seymour, Sir G. H. — • 
 
 Vice Admiral, &c., letter from, to the 
 
 British consul general at Grcytown. 299 
 letter from, to Commodore Parlier . . . 308 
 Shau.nccs — 
 
 their acceptance of the stipulations of 
 the convention, with certain condi- 
 tions 184 
 
 Shellfish— 
 
 the right of taking, on the eastern 
 seacoasts of the United States, ex- 
 cepted in the reciprocal rights grant- 
 ed to British sulijects 380 
 
 Sick and disabled seamen — • 
 
 extent of accomniniodation provided 
 
 for 51 
 
 Sio^ix — 
 
 of Minnesota, settlement of the diffi- 
 culties heretofore existing with the. 183 
 massacre and robbery by the, near 
 
 Fort Laramie 197 
 
 Sir inilc limit — 
 
 table showing the quantity of land 
 
 sold, &c., within the 177 
 
 " Six Nations'' — 
 
 present condition of the remnant of 
 
 the, in New York 180 
 
 Six steam frigates — 
 
 building in the navy y.irds 97 
 
 Sirth Auditor — 
 
 abstract of the report of the 414 
 
 Smithsonian Institution — 
 
 a brief notice of the operations of the 460 
 Solicitor — 
 
 the Secretarj' of the Treasury notices 
 
 tlie report ol the 44 
 
 abstiact of the report of the 417 
 
 Soule, Pierre — 
 
 diplomatic correspondence on his ex- 
 clusion from France 25—31 
 
 Sonnd dues — 
 
 specification of, paid by Ann-rican ves- 
 sels to and fioui theBaltic 280 
 
 Sjiain— 
 
 exclusion of our minister to, from 
 
 France; our relations «Jth 7 
 
 message from the President in response 
 to a resolution of the Senate respect- 
 ing our relations with 369 
 
 Squadrons — 
 
 Home 85 
 
 Brazil 89 
 
 African 89 
 
 Mediterranean 90 
 
 East India 90 
 
 Pacific 92 
 
 Steamboats — 
 
 number of, destroyed from various 
 
 causes 424 
 
 Steamship mail lines — 
 
 an ac<(iunt of the cost of 131 
 
 long duration of the contracts with . . 1.32 
 the purchase of the, recommended. . . 133 
 Storkl)rids:e Imiians — 
 
 at Lake Winnebago, difficulty of set- 
 tling them to their satisfaction 181 
 
 Strain, Lieutenant — 
 
 explores the isthmus of Darien, and 
 reports a canal communication im- 
 
 piacticable — his report in full 87 
 
 Strolling Indians — 
 
 Ue])lorable condition of certain banrls 
 ot, in the Western States and Ter- 
 ritories -JOO 
 
 Suits and law expenses of the War Depart- 
 ment 80 
 
 Stimmary court martial — 
 
 for the trial of seamen and petty offi- 
 cers, recommended 100 
 
 Survcji — 
 
 of the lakes 81 
 
 of the route to the Pacific 82 
 
 of the bay of Saniana 85 
 
 of the rivers Uruguay and Parana ... 89 
 Surieyors General — 
 
 the reportsof the, eonimended as able 
 
 and lucid 167 
 
 notice of instructions to the, of the 
 
 new Territories 457 
 
 Sivainp lands — 
 
 private entry of 142 
 
 surveys and selections of 163 
 
 St. Liiirrcncc — 
 
 right of iiaviL-ating the river, &c., se- 
 cund to ritizriis oftlie United States 
 
 by the reciprocity treaty 380 
 
 St. Mary's, the — 
 
 visit to the Chincha islands 94 
 
 protects an English shi|). 94 
 
 T. 
 
 Tables— 
 
 explanation by the Secretary of the 
 Treasury of the, accompanying his 
 
 report 38 
 
 Tariff— 
 
 remarks oftlie Secictaryof the Treas- 
 ury on till' ciglil schedules of tlii' .. 39 
 enumeration of articles recoinniended 
 
 for free adiiiis>ion 396 
 
 coinparisoii of the existing with the 
 
 proposed 397 to 409 
 
 Tchuanlcpcc — 
 
 authoiity given by the Mexican gov- 
 ernment lor the early construction 
 of a plank and rail road across the 
 
 isthmus of 377 
 
 Texas— 
 
 outrages of the Iiidi;iiis of, upon fron- 
 tier citizens, and steps taken to pre- 
 vent th.iii 194 
 
 Third ..liiditor— 
 
 abstract of the report of the 414 
 
 Tobacco and rice — 
 
 statement of the value of, annually 
 
 exi)orted 42." 
 
 Tonnage — 
 
 statement of registi'red, enrolled, and 
 licensed, of the United States.. 389, 390 
 Topographical Krigincers — 
 
 report of the colonel of, with various 
 
 documents 440 
 
 Topography— 
 
 uses of", in the coast survey 238 
 
474 
 
 IXDEX. 
 
 Trade and intercourse with the Indian tribes — 
 nfcessity of revising the act to regu- 
 late 198 
 
 Transit of closed mails — 
 
 (tiMidins negotiations relating to the . . 136 
 Transportation — 
 
 nu-ans of, in the army 62 
 
 Treasurer — 
 
 an additional clerk recommended for 
 
 the office of the 46 
 
 abstract and tabular statement from 
 
 the report of the 417 
 
 Treasury, report of the Secretary of the, 
 on the state of the fi'ianres — 
 
 bal.iiicr iiithe tr<'asury July 1, 1853; 
 actual and estimated receipts for 
 the year ; expenditurt-s, actual and 
 
 estimated 32 
 
 actual receipts into the treasury for 
 the fiscal year endin;; June 30, 1854. 33 
 
 actual expenditure 33 
 
 objects of expenditure; balance in 
 treasuiy July 1, 1854 ; estimated re- 
 ceipts for tlie fiscal vear ending 
 
 June 30, 1855 ' ". 34 
 
 estmiated receipts for the fiscal year 
 
 ending June 30, 185G 36 
 
 causes of excess in importations 37 
 
 explanation of tables accompanying 
 
 the rrport 38 
 
 recommends a reductiim of duties. . . 39 
 
 free list pi-oposed 40 
 
 increase in the exportation of domes- 
 tic manufactures 41 
 
 effect of the reciprociiy treaty in re- 
 ducing the revenue . 42 
 
 out>tinding balances of 1853 and 1854 
 
 compared 42 
 
 increase of force in Ihe offices of 
 Sixth Auditor and First Comptroller 
 
 recommended 43 
 
 recommends all the accounts of the 
 Interior Department to Uf given to 
 the Second Auditor, amd iliose of 
 the War Dt'partment to the Third 
 
 Auditor, for examination 44 
 
 additional accommodations for several 
 
 bureaus recomm"nded 44 
 
 beneficial effect of monthly settle- 
 ments 44 
 
 states the value of the Register's re- 
 port on commerce and navigation.. 44 
 
 speak-! of the Solicitor's report 44,45 
 
 report of the Treasurer 46 
 
 operations of the mint 46 
 
 notices of brinks 47 
 
 remarks on the currency of gold and 
 
 silver '. 48 
 
 operations of the independent treasury 48 
 
 prosress of the coast survev '. 49 
 
 report of Licbt-house Board 49 
 
 jirotection from shipwreck 49 
 
 report on the con^t nctlon of custoni- 
 
 hou-es, marine hospitals, &c 50 
 
 enibezzlemcnt of bullion at the mint, 
 and resniations for the govertnnent 
 
 of if and its branches 51 
 
 reli<'f prepared for sick and riis;ibled 
 
 se.imen 51 
 
 notice of the report of supervising in- 
 spectors of slenmhoats 52 
 
 want of a law compelling collectors 
 lo hami over their books and records 
 
 to their successors 53 
 
 regulation regarding the promotion of 
 
 clerks .54 
 
 ftatejnent of expenditures 385—387 
 
 statement of receipts and expendi- 
 tures 388, 393, 394, 395 
 
 Trians,ulaiion — 
 
 explanation of the term as used in 
 coast survey 237 
 
 U. 
 
 United States coinage — 
 
 tabular statements of 419, 420 
 
 Unlauful expedition — 
 
 against Mexico, suppressed 93 
 
 Unlauful settlements — 
 
 on land ceded by the Delawares, 
 
 fronting on Missouii river 187 
 
 suggestions on the subject of such 
 
 settlements 188 
 
 Upper Missouri agency — 
 
 the discontents of some of the tribes 
 
 in the, require prompt action 186 
 
 Upper Platte Jls^eney — 
 
 little respect of the tribes in the, for 
 
 the United States 190 
 
 Utah and New Mexico — 
 
 necessity of conventional arrange- 
 ments with the tribes of 194 
 
 the colonization of them recom- 
 mended 195 
 
 V. 
 
 Virginia scrip — 
 
 lands iiranted to satisfy, since 1790. . . 141 
 Virginia revolutionary bounty land claims — 
 
 difficulty of arriving at" any satisfac- 
 tory conclusion in many cases of.. 164 
 
 W. 
 
 JVagner, Dr. H. W. — ■ 
 
 assault npim, at San Juan de Nica- 
 
 ragui 310 
 
 Walker, Commander — 
 
 his views on flogging in the navy 100 
 
 War. report of the Secretary of — 
 
 strength and distribution of the army. 55 
 
 removal of Florida Indians 56 
 
 Indian depredations and collisions in 
 the Department of the West, in 
 Texas, in New Mexico, and on the 
 
 Pacific 56, 57 
 
 depredationsof the Sioux Indians.... 57 
 massacre of Jjieuteiiant Grattan's de- 
 tachment 57 
 
 insufficiency of our military force.. 58, 60 
 
 five military divisions 58 
 
 extent of our frontiers 59 
 
 effective force of the army at its great- 
 est limit 59 
 
 a reaular force the cheap and consti- 
 lufional means of protecting our In- 
 dian frontier 59 
 
 the power lo call out the militia lim- 
 ited to invasion and insurrection, 
 not to preserve police among the In- 
 dian tribes 60 
 
 the increase of our force called for by 
 economy, as illustrated in the ex- 
 penses and conduct of our Indian 
 
 wars 60 
 
 aggregate of expenditures on Indian 
 hostilities for twenty-two years. . . . 60 
 
 state of the recruiting service 61 
 
 estimates for the support of the army. 61 
 means of transportation, an appropria- 
 tion recoinmeiidcd for the introduc- 
 lioii of camels and dromedaries.... 62 
 increase of tin; pay of officers recom- 
 mended 62 
 
 extension of the increased pay to all 
 enlisti'd men of the army recom- 
 mended 62 
 
INDEX. 
 
 475 
 
 War, report of the Sccrel:.ry of — 
 
 that the widows and orphans of ofli- 
 cers and soldiers of the army bo 
 pla(*ed on an equality with those of 
 
 tlie navy, recommended 62 
 
 legislation as to rank and command, 
 
 and to organization, needs revision. 62 
 double rank ; brevet rank ; rank in the 
 
 line of the army 62, 65 
 
 organization of the general staff 66 
 
 European stati" systems 67 
 
 comparative advantages of the French 
 
 and English systems 69 
 
 organization proposed 69, 72 
 
 proposed reform in the organization of 
 
 the regiments 72 
 
 ])romotion and retired list 73, 74 
 
 Military Academy 74 
 
 seacoast defences 75 
 
 improvements in small arms 70 
 
 experiments by the Ordnance depart- 
 ment 77 
 
 new mode of priming; ritie tactics; 
 arms and books for the nulitia ; sale 
 
 of useless military sites 78 
 
 accounts of disbursing otiicers 79 
 
 suits and law e.vpenses of the depart- 
 ment; harbor & river improvements 80 
 survey of the lakes; roads in the Ter- 
 ritories 81 
 
 road wells; surveys lor a railroad to 
 
 the Pacific ; surveys in progress.. . . 82 
 Capitol extension ; water-works ; de- 
 partment buildings 83 
 
 reference to accompanying reports. . . 84 
 Warehouses — 
 
 value of geods remaining in 426 
 
 WasliiiXi^ton aqueduct — 
 
 progress of the work on the 440 
 
 ll'usliiii^ton, citij of— 
 
 operations on the works to supp'y the 
 city with water suspended 83 
 
 Washiii!:tcn. litv of— 
 
 lire-proof buildings in, recommended 
 
 for the departmt Ills 151 
 
 public grounds and gnveriiiuent lots in 152 
 ^U2g<■stiolls Its to the propriety of 
 iiiakiiig doiKitinus of l:uid tothe.for 
 purposes of cducaiionias elsewhere 171 
 Washington Tcrritorii — 
 
 boundary line of 6 
 
 in process of settlemeiii 1J7 
 
 instructions transniirt(<l to the land 
 
 offices for 166 
 
 Watson, Liciiletiant — 
 
 in command of the Fulton 85 
 
 Wehsler, Daniel— 
 
 Secretary of S-tate. letter from, to the 
 American charge d'alfaires at Co- 
 
 ])(M hagen 278 
 
 Wikon, Commander Thomas — 
 
 of the British ship Geyser, corres- 
 pondence of, with Commander Hol- 
 
 liiis 315 
 
 Wines, spirits, \e. — 
 
 (|iiaiuity and value of, imported an- 
 nually 42o 
 
 ll'innehiii^oes — 
 
 arranceiiients for the permanent es- 
 tahlishmeiit of, not yet complete. . . 183 
 Wiieonsin — 
 
 substance of the report of the sur- 
 veyor general of. 167 
 
 Wreck of steamers — 
 
 notice oi the 134 
 
 i'ariis niul Docks — 
 
 at Mare island, California 102 
 
 ill I'hiladelplii i 105 
 
 111 Pensarola 106 
 
 abstract ol' the report Iroiii the liiireau 
 
 of. 4Jl 
 
31^77-1