第27章

IdeemitofimportancethattheloyalregionsofeastTennesseeandwesternNorthCarolinashouldbeconnectedwithKentuckyandotherfaithfulpartsoftheUnionbyrail—road。Ithereforerecommend，asamilitarymeasure，thatCongressprovidefortheconstructionofsuchrail—roadasspeedilyaspossible。Kentuckywillnodoubtco—operate，andthroughherLegislaturemakethemostjudiciousselectionofaline。Thenorthernterminusmustconnectwithsomeexistingrailroad，andwhethertherouteshallbefromLexingtonorNicholasvilletotheCumberlandGap，orfromLebanontotheTennesseeline，inthedirectionofKnoxville，oronsomestilldifferentline，caneasilybedetermined。KentuckyandtheGeneralGovernmentco—operating，theworkcanbecompletedinaveryshorttime，andwhendoneitwillbenotonlyofvastpresentusefulnessbutalsoavaluablepermanentimprovement，worthitscostinallthefuture。

Sometreaties，designedchieflyfortheinterestsofcommerce，andhavingnogravepoliticalimportance，havebeennegotiated，andwillbesubmittedtotheSenatefortheirconsideration。

Althoughwehavefailedtoinducesomeofthecommercialpowerstoadoptadesirablemeliorationoftherigorofmaritimewar，wehaveremovedallobstructionsfromthewayofthishumanereformexceptsuchasaremerelyoftemporaryandaccidentaloccurrence。

IinviteyourattentiontothecorrespondencebetweenherBritannicMajesty’sministeraccreditedtothisgovernmentandtheSecretaryofStaterelativetothedetentionoftheBritishshipPerthshireinJunelastbytheUnitedStatessteamerMassachusettsforasupposedbreachoftheblockade。Asthisdetentionwasoccasionedbyanobviousmisapprehensionofthefacts，andasjusticerequiresthatweshouldcommitnobelligerentactnotfoundedinstrictrightassanctionedbypubliclaw，Irecommendthatanappropriationbemadetosatisfythereasonabledemandoftheownersofthevesselforherdetention。

IrepeattherecommendationofmypredecessorinhisannualmessagetoCongressinDecemberlastinregardtothedispositionofthesurpluswhichwillprobablyremainaftersatisfyingtheclaimsofAmericancitizensagainstChina，pursuanttotheawardsofthecommissionersundertheactofthe3dofMarch，1859。If，however，itshouldnotbedeemedadvisabletocarrythatrecommendationintoeffect，Iwouldsuggestthatauthoritybegivenforinvestingtheprincipal，ortheproceedsofthesurplusreferredto，ingoodsecurities，withaviewtothesatisfactionofsuchotherjustclaimsofourcitizensagainstChinaasarenotunlikelytoarisehereafterinthecourseofourextensivetradewiththatempire。

Bytheactofthe5thofAugustlastCongressauthorizedthePresidenttoinstructthecommandersofsuitablevesselstodefendthemselvesagainstandtocapturepirates。Hisauthorityhasbeenexercisedinasingleinstanceonly。ForthemoreeffectualprotectionofourextensiveandvaluablecommerceintheEasternseasespecially，itseemstomethatitwouldalsobeadvisabletoauthorizethecommandersofsailingvesselstorecaptureanyprizeswhichpiratesmaymakeofUnitedStatesvesselsandtheircargoes，andtheconsularcourtsnowestablishedbylawinEasterncountriestoadjudicatethecasesintheeventthatthisshouldnotbeobjectedtobythelocalauthorities。

IfanygoodreasonexistswhyweshouldperseverelongerinwithholdingourrecognitionoftheindependenceandsovereigntyofHaitiandLiberia，Iamunabletodiscernit。Unwilling，however，toinaugurateanovelpolicyinregardtothemwithouttheapprobationofCongress，Isubmitforyourconsiderationtheexpediencyofanappropriationformaintainingacharged’affairesneareachofthosenewStates。Itdoesnotadmitofdoubtthatimportantcommercialadvantagesmightbesecuredbyfavorabletreatieswiththem。

Theoperationsofthetreasuryduringtheperiodwhichhaselapsedsinceyouradjournmenthavebeenconductedwithsignalsuccess。Thepatriotismofthepeoplehasplacedatthedisposalofthegovernmentthelargemeansdemandedbythepublicexigencies。Muchofthenationalloanhasbeentakenbycitizensoftheindustrialclasses，whoseconfidenceintheircountry’sfaithandzealfortheircountry’sdeliverancefrompresentperilhaveinducedthemtocontributetothesupportofthegovernmentthewholeoftheirlimitedacquisitions。Thisfactimposespeculiarobligationstoeconomyindisbursementandenergyinaction。

Therevenuefromallsources，includingloans，forthefinancialyearendingonthe30thofJune，1861，was$86，835，900。27，andtheexpendituresforthesameperiod，includingpaymentsonaccountofthepublicdebt，were$84，578，834。47，leavingabalanceinthetreasuryonthe1stofJulyof$2，257，065。80。Forthefirstquarterofthefinancialyearendingonthe3othofSeptember，1861，thereceiptsfromallsources，includingthebalanceofthe1stofJuly，were$102，532，509。27，andtheexpenses$98，239733。09，leavingabalanceonthe1stofOctober，1861，of$4，292，776。18。

Estimatesfortheremainingthreequartersoftheyearandforthefinancialyear1863，togetherwithhisviewsofwaysandmeansformeetingthedemandscontemplatedbythem，willbesubmittedtoCongressbytheSecretaryoftheTreasury。Itisgratifyingtoknowthattheexpendituresmadenecessarybytherebellionarenotbeyondtheresourcesoftheloyalpeople，andtobelievethatthesamepatriotismwhichhasthusfarsustainedthegovernmentwillcontinuetosustainittillpeaceandunionshallagainblesstheland。

IrespectfullyrefertothereportoftheSecretaryofWarforinformationrespectingthenumericalstrengthofthearmyandforrecommendationshavinginviewanincreaseofitsefficiencyandthewell—beingofthevariousbranchesoftheserviceintrustedtohiscare。Itisgratifyingtoknowthatthepatriotismofthepeoplehasprovedequaltotheoccasion，andthatthenumberoftroopstenderedgreatlyexceedstheforcewhichCongressauthorizedmetocallintothefield。

Ireferwithpleasuretothoseportionsofhisreportwhichmakeallusiontothecreditabledegreeofdisciplinealreadyattainedbyourtroopsandtotheexcellentsanitaryconditionoftheentirearmy。

TherecommendationoftheSecretaryforanorganizationofthemilitiauponauniformbasisisasubjectofvitalimportancetothefuturesafetyofthecountry，andiscommendedtotheseriousattentionofCongress。

Thelargeadditiontotheregulararmy，inconnectionwiththedefectionthathassoconsiderablydiminishedthenumberofitsofficers，givespeculiarimportancetohisrecommendationforincreasingthecorpsofcadetstothegreatestcapacityoftheMilitaryAcademy。

Bymereomission，Ipresume，Congresshasfailedtoprovidechaplainsforhospitalsoccupiedbyvolunteers。Thissubjectwasbroughttomynotice，andIwasinducedtodrawuptheformofaletter，onecopyofwhich，properlyaddressed，hasbeendeliveredtoeachofthepersons，andatthedatesrespectivelynamedandstatedinaschedule，containingalsotheformoftheletter，markedA，andherewithtransmitted。

Thesegentlemen，Iunderstand，entereduponthedutiesdesignatedatthetimesrespectivelystatedintheschedule，andhavelaboredfaithfullythereineversince。Ithereforerecommendthattheybecompensatedatthesamerateaschaplainsinthearmy。Ifurthersuggestthatgeneralprovisionbemadeforchaplainstoserveathospitals，aswellaswithregiments。

ThereportoftheSecretaryoftheNavypresentsindetailtheoperationsofthatbranchoftheservice，theactivityandenergywhichhavecharacterizeditsadministration，andtheresultsofmeasurestoincreaseitsefficiencyandpowersuchhavebeentheadditions，byconstructionandpurchase，thatitmayalmostbesaidanavyhasbeencreatedandbroughtintoservicesinceourdifficultiescommenced。

Besidesblockadingourextensivecoast，squadronslargerthaneverbeforeassembledunderourflaghavebeenputafloatandperformeddeedswhichhaveincreasedournavalrenown。

IwouldinvitespecialattentiontotherecommendationoftheSecretaryforamoreperfectorganizationofthenavybyintroducingadditionalgradesintheservice。

Thepresentorganizationisdefectiveandunsatisfactory，andthesuggestionssubmittedbythedepartmentwill，itisbelieved，ifadopted，obviatethedifficultiesalludedto，promoteharmony，andincreasetheefficiencyofthenavy。

TherearethreevacanciesonthebenchoftheSupremeCourt——twobythedeceaseofJusticesDanielandMcLeanandonebytheresignationofJusticeCampbell。IhavesofarforbornemakingnominationstofillthesevacanciesforreasonswhichIwillnowstate。TwooftheoutgoingjudgesresidedwithintheStatesnowoverrunbyrevolt，sothatifsuccessorswereappointedinthesamelocalitiestheycouldnotnowserveupontheircircuits；andmanyofthemostcompetentmenthereprobablywouldnottakethepersonalhazardofacceptingtoserve，evenhere，upontheSupremebench。Ihavebeenunwillingtothrowalltheappointmentsnorth—ward，thusdisablingmyselffromdoingjusticetotheSouthonthereturnofpeace；althoughImayremarkthattotransfertotheNorthonewhichhasheretoforebeenintheSouthwouldnot，withreferencetoterritoryandpopulation，beunjust。

DuringthelongandbrilliantjudicialcareerofJudgeMcLeanhiscircuitgrewintoanempire—altogethertoolargeforanyonejudgetogivethecourtsthereinmorethananominalattendance——risinginpopulationfrom1，470，018in1830to6，151，405in1860。

Besidesthis，thecountrygenerallyhasoutgrownourpresentjudicialsystem。Ifuniformitywasatallintended，thesystemrequiresthatalltheStatesshallbeaccommodatedwithcircuitcourts，attendedbySupremejudges，while，infact，Wisconsin，Minnesota，Iowa，Kansas，Florida，Texas，California，andOregonhaveneverhadanysuchcourts。Norcanthiswellberemediedwithoutachangeinthesystem，becausetheaddingofjudgestotheSupremeCourt，enoughfortheaccommodationofallpartsofthecountrywithcircuitcourts，wouldcreateacourtaltogethertoonumerousforajudicialbodyofanysort。Andtheevil，ifitbeone，willincreaseasnewStatescomeintotheUnion。Circuitcourtsareusefulortheyarenotuseful。Ifuseful，noStateshouldbedeniedthem；ifnotuseful，noStateshouldhavethem。Letthembeprovidedforallorabolishedastoall。

Threemodificationsoccurtome，eitherofwhich，Ithink，wouldbeanimprovementuponourpresentsystem。LettheSupremeCourtbeofconvenientnumberineveryevent；then，first，letthewholecountrybedividedintocircuitsofconvenientsize，theSupremejudgestoserveinanumberofthemcorrespondingtotheirownnumber，andindependentcircuitjudgesbeprovidedforalltherest；or，secondly，lettheSupremejudgesberelievedfromcircuitdutiesandcircuitjudgesprovidedforallthecircuits；or，thirdly，dispensewithcircuitcourtsaltogether，leavingthejudicialfunctionswhollytothedistrictcourtsandanindependentSupremeCourt。

IrespectfullyrecommendtotheconsiderationofCongressthepresentconditionofthestatutelaws，withthehopethatCongresswillbeabletofindaneasyremedyformanyoftheinconveniencesandevilswhichconstantlyembarrassthoseengagedinthepracticaladministrationofthem。SincetheOrganizationofthegovernment，Congresshasenactedsome5000actsandjointresolutions，whichfillmorethan6000closelyprintedpagesandarescatteredthroughmanyvolumes。Manyoftheseactshavebeendrawninhasteandwithoutsufficientcaution，sothattheirprovisionsareoftenobscureinthemselvesorinconflictwitheachother，oratleastsodoubtfulastorenderitverydifficultforeventhebest—informedpersonstoascertainpreciselywhatthestatutelawreallyis。

Itseemstomeveryimportantthatthestatutelawsshouldbemadeasplainandintelligibleaspossible，andbereducedtoassmallacompassasmayconsistwiththefullnessandprecisionofthewilloftheLegislatureandtheperspicuityofitslanguage。Thiswelldonewould，Ithink，greatlyfacilitatethelaborsofthosewhosedutyitistoassistintheadministrationofthelaws，andwouldbealastingbenefittothepeople，byplacingbeforetheminamoreaccessibleandintelligibleformthelawswhichsodeeplyconcerntheirinterestsaridtheirduties。

IaminformedbysomewhoseopinionsIrespectthatalltheactsofCongressnowinforceandofapermanentandgeneralnaturemightberevisedandrewrittensoastobeembracedinonevolume(oratmosttwovolumes)ofordinaryandconvenientsize；andIrespectfullyrecommendtoCongresstoconsiderofthesubject，andifmysuggestionbeapprovedtodevisesuchplanastotheirwisdomshallseemmostproperfortheattainmentoftheendproposed。

Oneoftheunavoidableconsequencesofthepresentinsurrectionistheentiresuppressioninmanyplacesofalltheordinarymeansofadministeringciviljusticebytheofficersandintheformsofexistinglaw。Thisisthecase，inwholeorinpart，inalltheinsurgentStates；andasourarmiesadvanceuponandtakepossessionofpartsofthoseStatesthepracticalevilbecomesmoreapparent。

TherearenocourtsorofficerstowhomthecitizensofotherStatesmayapplyfortheenforcementoftheirlawfulclaimsagainstcitizensoftheinsurgentStates，andthereisavastamountofdebtconstitutingsuchclaims。Somehaveestimateditashighas$200，000，000，dueinlargepartfrominsurgentsinopenrebelliontoloyalcitizenswhoareevennowmakinggreatsacrificesinthedischargeoftheirpatrioticdutytosupportthegovernment。

UnderthesecircumstancesIhavebeenurgentlysolicitedtoestablish，bymilitarypower，courtstoadministersummaryjusticeinsuchcases。Ihavethusfardeclinedtodoit，notbecauseIhadanydoubtthattheendproposed——thecollectionofthedebts——wasjustandrightinitself，butbecauseIhavebeenunwillingtogobeyondthepressureofnecessityintheunusualexerciseofpower。ButthepowersofCongress，Isuppose，areequaltotheanomalousoccasion，andthereforeIreferthewholemattertoCongress，withthehopethataplanmaybedevisedfortheadministrationofjusticeinallsuchpartsoftheinsurgentStatesandTerritoriesasmaybeunderthecontrolofthisgovernment，whetherbyavoluntaryreturntoallegianceandorderorbythepowerofourarms；this，however，nottobeapermanentinstitution，butatemporarysubstitute，andtoceaseassoonastheordinarycourtscanbereestablishedinpeace。

Itisimportantthatsomemoreconvenientmeansshouldbeprovided，ifpossible，fortheadjustmentofclaimsagainstthegovernment，especiallyinviewoftheirincreasednumberbyreasonofthewar。

Itisasmuchthedutyofgovernmenttorenderpromptjusticeagainstitselfinfavorofcitizensasitistoadministerthesamebetweenprivateindividuals。Theinvestigationandadjudicationofclaimsintheirnaturebelongtothejudicialdepartment。Besides，itisapparentthattheattentionofCongresswillbemorethanusuallyengagedforsometimetocomewithgreatnationalquestions。ItwasintendedbytheorganizationoftheCourtofClaimsmainlytoremovethisbranchofbusinessfromthehallsofCongress；but，whilethecourthasprovedtobeaneffectiveandvaluablemeansofinvestigation，itingreatdegreefailstoeffecttheobjectofitscreationforwantofpowertomakeitsjudgmentsfinal。

Fullyawareofthedelicacy，nottosaythedangerofthesubject，I

commendtoyourcarefulconsiderationwhetherthispowerofmakingjudgmentsfinalmaynotproperlybegiventothecourt，reservingtherightofappealonquestionsoflawtotheSupremeCourt，withsuchotherprovisionsasexperiencemayhaveshowntobenecessary。

IaskattentiontothereportofthePostmastergeneral，thefollowingbeingasummarystatementoftheconditionofthedepartment：

TherevenuefromallsourcesduringthefiscalyearendingJune30，1861，includingtheannualpermanentappropriationof$700，000forthetransportationof"freemailmatter，"was$9，049，296。40，beingabout2percent。lessthantherevenuefor1860。

Theexpenditureswere$13，606，759。11，showingadecreaseofmorethan8percent。ascomparedwiththoseofthepreviousyearandleavinganexcessofexpenditureovertherevenueforthelastfiscalyearof$4，557，462。71。

ThegrossrevenuefortheyearendingJune30，1863，isestimatedatanincreaseof4percent。onthatof1861，making$8，683，000，towhichshouldbeaddedtheearningsofthedepartmentincarryingfreematter，viz。，$700，000，making$9，383，000。

Thetotalexpendituresfor1863areestimatedat$12，528，000，leavinganestimateddeficiencyof$3，145，000tobesuppliedfromthetreasuryinadditiontothepermanentappropriation。

Thepresentinsurrectionshows，Ithink，thattheextensionofthisDistrictacrossthePotomacRiveratthetimeofestablishingthecapitalherewaseminentlywise，andconsequentlythattherelinquishmentofthatportionofitwhichlieswithintheStateofVirginiawasunwiseanddangerous。IsubmitforyourconsiderationtheexpediencyofregainingthatpartoftheDistrictandtherestorationoftheoriginalboundariesthereofthroughnegotiationswiththeStateofVirginia。

ThereportoftheSecretaryoftheInterior，withtheaccompanyingdocuments，exhibitstheconditionoftheseveralbranchesofthepublicbusinesspertainingtothatdepartment。ThedepressinginfluencesoftheinsurrectionhavebeenspeciallyfeltintheoperationsofthePatentandGeneralLandOffices。Thecashreceiptsfromthesalesofpubliclandsduringthepastyearhaveexceededtheexpensesofourlandsystemonlyabout$200，000。ThesaleshavebeenentirelysuspendedintheSouthernStates，whiletheinterruptionstothebusinessofthecountryandthediversionoflargenumbersofmenfromlabortomilitaryservicehaveobstructedsettlementsinthenewStatesandTerritoriesoftheNorthwest。

ThereceiptsofthePatentOfficehavedeclinedinninemonthsabout$100，000。00renderingalargereductionoftheforceemployednecessarytomakeitself—sustaining。

ThedemandsuponthePensionOfficewillbelargelyincreasedbytheinsurrection。Numerousapplicationsforpensions，baseduponthecasualtiesoftheexistingwar，havealreadybeenmade。Thereisreasontobelievethatmanywhoarenowuponthepensionrollsandinreceiptofthebountyofthegovernmentareintheranksoftheinsurgentarmyorgivingthemaidandcomfort。TheSecretaryoftheInteriorhasdirectedasuspensionofthepaymentofthepensionsofsuchpersonsuponproofoftheirdisloyalty。IrecommendthatCongressauthorizethatofficertocausethenamesofsuchpersonstobestrickenfromthepensionrolls。

TherelationsofthegovernmentwiththeIndiantribeshavebeengreatlydisturbedbytheinsurrection，especiallyinthesouthernsuperintendencyandinthatofNewMexico。TheIndiancountrysouthofKansasisinthepossessionofinsurgentsfromTexasandArkansas。

TheagentsoftheUnitedStatesappointedsincethe4thofMarchforthissuperintendencyhavebeenunabletoreachtheirposts，whilethemostofthosewhowereinofficebeforethattimehaveespousedtheinsurrectionarycause，andassumetoexercisethepowersofagentsbyvirtueofcommissionsfromtheinsurrectionists。IthasbeenstatedinthepublicpressthataportionofthoseIndianshavebeenorganizedasamilitaryforceandareattachedtothearmyoftheinsurgents。Althoughthegovernmenthasnoofficialinformationuponthissubject，lettershavebeenwrittentotheCommissionerofIndianAffairsbyseveralprominentchiefsgivingassuranceoftheirloyaltytotheUnitedStatesandexpressingawishforthepresenceofFederaltroopstoprotectthem。ItisbelievedthatupontherepossessionofthecountrybytheFederalforcestheIndianswillreadilyceaseallhostiledemonstrationsandresumetheirformerrelationstothegovernment。

Agriculture，confessedlythelargestinterestofthenation，hasnotadepartmentnorabureau，butaclerkshiponly，assignedtoitinthegovernment。Whileitisfortunatethatthisgreatinterestissoindependentinitsnatureasnottohavedemandedandextortedmorefromthegovernment，IrespectfullyaskCongresstoconsiderwhethersomethingmorecannotbegivenvoluntarilywithgeneraladvantage。

Annualreportsexhibitingtheconditionofouragriculture，commerce，andmanufactureswouldpresentafundofinformationofgreatpracticalvaluetothecountry。WhileImakenosuggestionastodetails，Iventuretheopinionthatanagriculturalandstatisticalbureaumightprofitablybeorganized。

TheexecutionofthelawsforthesuppressionoftheAfricanslavetradehasbeenconfidedtotheDepartmentoftheInterior。Itisasubjectofgratulationthattheeffortswhichhavebeenmadeforthesuppressionofthisinhumantraffichavebeenrecentlyattendedwithunusualsuccess。Fivevesselsbeingfittedoutfortheslavetradehavebeenseizedandcondemned。Twomatesofvesselsengagedinthetradeandonepersoninequippingavesselasaslaverhavebeenconvictedandsubjectedtothepenaltyoffineandimprisonment，andonecaptain，takenwithacargoofAfricansonboardhisvessel，hasbeenconvictedofthehighestgradeofoffenseunderourlaws，thepunishmentofwhichisdeath。

TheTerritoriesofColorado，Dakota，andNevada，createdbythelastCongress，havebeenorganized，andciviladministrationhasbeeninauguratedthereinunderauspicesespeciallygratifyingwhenitisconsideredthattheleavenoftreasonwasfoundexistinginsomeofthesenewcountrieswhentheFederalofficersarrivedthere。

TheabundantnaturalresourcesoftheseTerritories，withthesecurityandprotectionaffordedbyorganizedgovernment，willdoubtlessinvitetothemalargeimmigrationwhenpeaceshallrestorethebusinessofthecountrytoitsaccustomedchannels。IsubmittheresolutionsoftheLegislatureofColorado，whichevidencethepatrioticspiritofthepeopleoftheTerritory。SofartheauthorityoftheUnitedStateshasbeenupheldinalltheTerritories，asitishopeditwillbeinthefuture。IcommendtheirinterestsanddefensetotheenlightenedandgenerouscareofCongress。

IrecommendtothefavorableconsiderationofCongresstheinterestsoftheDistrictofColumbia。Theinsurrectionhasbeenthecauseofmuchsufferingandsacrificetoitsinhabitants，andastheyhavenorepresentativeinCongressthatbodyshouldnotoverlooktheirjustclaimsuponthegovernment。

AtyourlatesessionajointresolutionwasadoptedauthorizingthePresidenttotakemeasuresforfacilitatingaproperrepresentationoftheindustrialinterestsoftheUnitedStatesattheexhibitionoftheindustryofallnationstobeholdenatLondonintheyear1862。

IregrettosayIhavebeenunabletogivepersonalattentiontothissubject——asubjectatoncesointe