Evening Star Newspaper, December 2, 1854, Page 5

———— ee MESSAGE. Fellow-Citizens of the Senate and of the House of Representatives : The past has been an eventful year, and will be hereafter referred to as a marked epoch in the history of the world. While we have been happily preserved from 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 toa greater ex- tent than nsual, and the sacrifice of human life, through casualities by sea and land, is without a parallel. But the pestilence has swept by, and restored salubrity invites the absent to their homes, and the return of business to its or- dinary 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 exportation. In the present, therefore, as in the past, we find ample grounds for reverent thankful- ness to the God of Grace and Providence, for his protect- ing care and merciful dealings with us as apeople. 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 emnot 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 of Christen- dom, tends, more or less, to involve our own. The condi- tion of states is not ualike that of individuals. They are mutually dependent upon each other. Amicable relations between them, and reciprocal good will, are essential fur the promotion of whatever is desirable in their moral, social, and political condition. Hence, it has been my earnest en- deavor to maintain peace and friendly intercourse with all nations. The wise theory of this government, so early a ppted and steadily pursued, of avoiding al! entangling alliances, has hitherto exempted it from many complications, in which it would otherwise have become involved. Notwithstanding this our clearly defined and well-sustained course of action, and our geographical position so remote from Europe, in- ereasing disposition has been manifested, by some of its governments, to supervise, and, in certain respects, to di- Feet, our foreign policy. In plans for adjusting the balance of power among themselves, they have assumed to take us into account, and would constrain us to conform our conduct to their views. One or another of the powers of Europe has, from time to time, undertaken to enforce arbitrary reg- ulations, contrary in many respects to established princi- ples of international law. That law, the United States have, in their foreign intercourse, uniforimly respected and observed, and they cannot recognise any such interpola- tions therein, as the temporary interests of others may suggests. They do not admit, that the sovereigns of one continent, or of a particular community of states, can legislate for all others. Leaving the trane-atlantic nations to adjust their politi cal system in the way they may think best for their com- mon welfare, the independent powers of this continent may well assert the right to be exempt from all annoying inter- ference on their part. Systematic abstinence from inti- mate political connexion with distant foreign nations, does not conflict with giving the widest range to our foreign commerce. This distinction, so clearly marked in history. seems to have been overlooked, or disregarded, by some leading foreign states. Our refusal to be brought within,’ and subjected to, their peculiar system, has, I fear, creftted ajealous distrust of our conduct, and induced, on their part, occasional acts of disturbing effect upon our foreign relations. Our present attitude and past course give as- surances, which should not be questioned, that our pur- poses are not aggressive, nor threatening to the safety and welfare of other nations. Our itary establishment, in time of peace, is adapted to maintain exterior defences, and to preserve order among the aboriginal tribes within the limits of the Union. Our naval force is intended only for the protection of our citizens abroad, and of our com- merce, diffused as it is, over all the seas of the globe. The government of the United States, being essentially pacific in policy, stands prepared to repel invasion by the volunta- Ty service of a patriotic people, and provides no permanent means of foreign aggression. These considerations should allay all apprehension, that we are disposed to encroach on the rights, or endanger the security of other States. Some European powers have regarded, with disquieting concern, the territorial expansion of_the United States. This rapid growth has resulted from the legitimate exercise of sovereign rights, belonging alike to all nations, and by many liberally exercised. Under such circumstances, it could hardly have been expected that those among them, which have, within a comparatively recent period, subdued and absorbed ancient kingdoms, planted their standards on every continent, and now possess, or claim the control of, the islands of every ocean 2s their appropriate domain, would look with unfriendly sentiments upon the acquisi- tions of this country, in every instance honorably obtained, or would feel themselves justified in imputing our advance- ment to a spirit of aggression or to a passion for political predominance. Our foreign commerce has reached # maguitude and ex- tent nearly equal to that of the first maritime power of the earth,and exceeding that of any other. Over this great interest, in which not only our merchants, but all classes The proposition to enter into engagements to forego re- Pepa rivateers, in case this coentry earl 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 patriotism 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 te surrender the right to employ privateers is ywofessedly founded upon the principle, that private property of unoffending non-combat- ants, though enemies, 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 shipsof war. Should the leading powers of Europe concur in proposing, as a rule of international law, to ex- empt private property, 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 the British North American provinces, have been exchanged, and some of its anticipated advantages are already enjoyed by us, although its fall execution was to abide certain acts of legislation not yet fully performed. So soon as it was ratified, Great Britain opened to our commerce the free navigatiou of the river 8t. Lawrence, and to our fishermen unmolested access to the shores and bays, from which they had been previously excluded, on the coasts of her North American provinces; in return for which, she asked for the introduction, free of duty, into the ports of the United States, of the fish caught on the same coast by British fish- ermen. This being the compensation stipulated in the treaty, for privileges of the highest 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 ascertaining the duties paid or se- cured by bonds on fish caught on the coasts of the British provinces, and brought to our markets by British subjects, after ‘the fishing grounds had been made fally accesible to the citizens of the United States. I recommend to your favorable consideration a preposition, which will be sub- mitted to you, for authority to refund the duties and cancel the bonds thus recelved. The provinces of Canada and New Brunswick have also anticipated the full operation of | the treaty, by legislative arrangemente, respeetively, to ad- mit, free of duty, the products of the United States men- tioned in the free list of the treaty; and an arrapgement, 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 introduced 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 «f Washington adjoining the British possessions on the Pa- cific, which has already le d to difficulties on the part of the citizens and local authorities of the two governments. I recommend that provision be made for a commission, to be Joined by one on the part of her Britannic Majesty, for the purpose of running and establishing the linein 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 Company, and property of the Puget’s Sound Agricultural Company, have given rise to serious disputes, and it is im- portant to all concerned, that summary means of settling them amicably should be devised. I have reason to believe, that an arrangement can be made on just terms, for the extinguishment of the rights in question, embracing, also, the right of the Hudson’s Bay Company to the navigation of the river Columbia; and I therefore suggest to your con- sideration, the expediency of making a contingent appro- priation for that purpose. France was the early and efficient ally of the United States in their struggle fur independence. From that time to the present, with occasional slight interruptions, cordial relations of friendehip have existed between the govern- ments and people of the two countries. The kindly eenti- ments, cherished alike by both nations, have led to exten- sive social and commercial intercourse, which, I trust, will not be interrupted or checked by any casual event of an apparently unsatisfactory character. The French consul at San Francisco was, not long since, brought into the United States district court at that place, by compulsory process, as a witness in favor of another foreign consul, in violation, as the French government conceives, of his pri- vileges under our consular convention with Frane-. ‘There being nothing in the transaction which could imply any dis- respect, to France or its consul, such explanation has been made, as I hope will be satisfactory. Subsequently, imis- understanding arose on the subject of the French govern- ment having, as it appeared, abruptly excluded the Ameri- can minister to Spain from passing through France, on his way from London to Madrid. But that government has unequivocally disavowed any design to deny the right of transit to the minister of the United States; and, after ex- of citizens at least indirectly, are concerned, it is the duty of the executive and legislative branches of the govern- ment to exercise a careful supervision, and adopt: proper measures for its protection. The policy which I have bad in view, in regard to this interest, embraces its future as well as its present security. planations to this effect, he has resumed his journey, and actually returned through France to Spain. I herewith lay before Congress the correspondence on this subject be- tween our envoy at Paris, and the minister of foreign rela- tions of the French Government. The position of our affairs with Spain remains as at the Our treaties with the Argentine Confederation, and with the Republies of Urogang and Paraguay, 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 endeavors 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 Bra-il, it may be expected that pending negotiations will, eventu- ally, 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 exi-tence under one government. Scparated 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 re- mote divisions of the Republic. At the present time, the most practicable and only commodious routes for commu- nication between themare by the way of the Isthmus of Cen- tral America. It is the duty of the government to secure these avenues against all danger of interruption. In relation to Central America, perplexing questions existed between the United States and Great Britain at the time of the cession of California. These, as well as ques- tions which subsequently arose concerning inter-oceanic communicatién acrose the Isthmus, were, as it was su; posed, adjusted by the treaty of April 19, 1850: but, un- tunately, they have been re-opened by serious misunder- standing ‘as to the import of some of ita provisions, a re- adjustment of which is now under consideration. Our minister at London has made strenuous efforts to accom- plish this desirable object, but has not yet found it possible to bring the negotiations to a termination. As incidental to these questions, I deem it proper to no- tice an occurrence which happened in Central America, near the cloee of the last session of Congress. So soon as the necessity was perceived of establishing inter-oceanic communications across the Isthmus, a company was organ- ized, under authority of the State of Nicatagua, but com- posed, for the most part, of citizens of the United States, for the purpose of opening such a transit way, by the river San Juan and Lake Nicaragua, which soon became an eligible defiance, on their part, is imputable chiefly to the delusive idea that the American government would be deterred from| The bill of the last session, punishing them, through fear of displeasing a formidable the pay of the rank and file of foreign power, which, they presumed to think, looked with | results, not in complacency upon their aggressive and insulting deport-| vious improvement in the class of men who enter the eer- ment towards the United States. The “Cyane” at length| vice. I regret that corresponding conside fired upon the town. Before much injury had been done,| bestowed on the officers, who, in view of the fire was twice suspended, in order to afford opportunity | and services, and the expenses to which they for an arrangement; but this was declined. Most of the| ily aubject, receive at present what is, in my j buildings of the place, of little value generally, were, in the | adequate compensation. sequel, destroyed; but, owing to the considerate precau-| The valuable services ly rendered by the army, | history tions ns by our Naval Commander, there was no des ruc-} and its inestimable importance, asthe neuclus around which | for the tion of life. When the “ Cyane™ was ordered to Central Ame quarters of the Inst year, thus increasing an extent unparallelld during any like the amount of revenue ; Federal Treasury. the volunteer forces of the nation can promptly gather in| The commendable rica, it} the hour of dange! petiod in our past provided from this source tions which I submitted in my annual message in reference to grants of land in aid of the con- railways, were leer full and explicit than the of the subject and subsequent developments 'm to render proper and desirable. Of the sound- Fequisite had not the people themselves, by their extraordi-| While scrupulously adhering to this principle, I find, in |of last year, nary conduct in the affair, frustrated all the possible mild | existing circumstances, a necessity for increase of dur mil-| struction of measures for obtaining satisfaction. A withdrawal from |itary force, and it is believed that four new regiments, two{ magnitude the place, the object of his visit entirely defeated, would, | Of infantry and two of mounted men, will be sufficient to} would see: p-| couraged in these lawless men a spirit of insolence and under the circumstances in which the commander of the | meet the present exigency. If it were necessary carefully “Cyane” found himself, have been absolute abandonment of| to weigh the cost in a case of such urgency, it would be all claim of our citizeris for indemnification, and submissive om that the additional expense would be comparatively acquiescence in national indignity. ight. q ial indignity. It would have ee thn tatrenen of tho, sumerieal foros ot the sy rapine most dangerous to the lives and property of our| should, I think, be combined certain measures of reform in citizens at Punta Arenas, and probably ‘cunbordened them | its organic ent and administration. The present to grasp at the treasures and valuable merchandise con- | Organization is the result of partial legislation often directod tinually passing over the Nacaragua route. It certainly |t0 special objects and interests ; and the laws regulating would have been most satisfactory to me if the objects of|Tank and command, having been adopted many years ago the “Cyane’s” mission could have been consummated | from the British code, are not always applicable to our ser- without any act of publie force; but the urrogant contu-| Vice. It ie not surprising, therefore, that the system macy of the offenders rendered it impossible to avoid the | should be deficient in the symmetry and simplicity essential alternative, either.to break up their establishment, or to| to the harmoneous working of its several parts, and require leave them impressed with the idea that they might perse-|® careful revision. ee vere with impunity in a career of insolence and plunder. The present organization, by maintaining large staff corps This transaction has been the subject of complaint on the |°T departments, separates many officers from that close part of some foreign powers, and has been characterized | Comexion with troops, and thore active duties in the field, with more of harshness than of justice. If comparisons | Which are deemed requisite to qualify them for the varied Were to be instituted, it would not be difficult to present | Tesponsibilities of high command. Were the duties of the Yepeated instances in the history of States, atanding in the] 4™™y staff mainly discharged by officers detached from their ness of the principle then asserted with regard to the limi- tation of the power of I entertain no doubt; but in its application it is not enough that the value of lands in 4 particular loeality may be enhanced; that, in fact, a lar- ger amount of money may probably be received, in a given time, for alternate sections, than could have been realised for all the sections, without the impulse and influence of the Propoeed improvements. A prudent proprietor looks be- yond limited sections of his domain, beyond present re sults, to the ultimate effect which a particular line of policy is likely to produce upon all his possessions and interests. The government, which is trustee, in this matter, for the people of the States, is bound to take the same wire and comprehensive view. Prior to and during the last session of Congress, upwards of thirty millions of acres of lund were withdrawn from publi sale with a view to appli- cations for grants of this character pending before Con- gress. A careful review of the whole subject led me to direct that all such orders be abrogated, and the lands re- stored to market; and instructions were immediately given to that effect. The applications at the last session contem- and much used route in the transportation of our citizens| very front of modern civilization, where communities, far | Tgimente, it is believed that the special service would be ~— chy construction of more than five thousand miles of and their property between the Atlantic and Pacific. Mean-| less offending and more defenceless than Greytown, have | ©qually well performed, and the discipline and instruction of » and grants to the amount of nearly twenty millions while, and in anticipation of the completion and importance of this transit way, a number of adventurers had taken pos- } session of the old Spanish port at the mouth of the river San Juan, in open defiance of the State or States of Central America, which, upon their becoming independent, had rightfully succeeded to the local sovereignty and jurisdic- been chastiaed with much greater severity, and whei the army be improved.’ While due regard to the security Jof acres of the public dowaain. Even admitting the right cities only have been Iaid in ruins, bat hurian life hen beg [OF tho tighta of officers, and to tho nice seusc of bonor|on the part of Congress t0 be ungestionsble, ‘is it quite recklessly sacrificed, and the blood of the innocent made| “hich should be cultivated among them, would seem to exact | Clear that the proposed grants would be productive of good, profusely to mingle with that of the guilty. compliance with the established rule of promotion in ordi-|and not evil? The different Projects are confined, for the Passing from foreign to domestic affairs, your attention | "TY cases, still it can hardly be doubted that the range of| present. to eleven States of this Union, and one Territory. is naturally directed to the financial condition of the| Promotion by selection, which is now practically confined | The reasons assigned for the grants, show that it is pro- tion of Spain. These adventurers undertook to change the | country, always a subject of general interest. For com-| the grade of general officers, might be somewhat ex- name of the place from San Juan del Norte to Greytown, and, though at first pretending to act as the subjects of the fictitious sovereign of the Mosquito Indians, they subse- quently repudiated the control of any power whatever, as- sumed to adopt a distinct: political organization, and de- clared themselves an independent sovereign State. If, at some time, a faint hope was entertained that they might become a stable and respectable community, that hope soon vanished. They proceeded to assert unfounded claims to civil jurisdiction over Punta Arenas, a position on the opposite side of the river San Juan, which was in possos- sion, under a title wholly independent of them, of citizens of the United States, interested in the Nicaragua Transit Company, and which was indispensably necessary to the prosperous operation of that route across the Isthmus. The company resisted their groundless claims; whereupon they proceeded to destroy some of its buildings, and at- tempted violently to dispossess it. At a later period they organized a strong force for the purpose of demolishing the establishment of Punta Arenas, but this mischievous design was defeated by the interposi- tion of one of our ships of war, at that time in the harbor of San Juan. Subsequently to this, in May last, a body of, men from Greytown crossed over to Punta Arenas, arro- plete and exact information regarding the finances, and the | ‘ended with benefit to the public service. Observance of posed to put the works speedily in process of construction. When we reflect, that since the commencement of the con- various branches of the public eervi nnec' ith, | the rule of seniority sometimes leads, especially in time of} struction of railways in the United States, stimulated as Leche joa'toithe Soy af the Beseoaiy or oes Tissot | pence, to the promotion of officers who, after meritoriousand| they have been by the large dividends reslieed. from the from which it will appear, that the amount of revenue | @veH distinguished service, may have been rendered by ago |eurlier works over the great thoroughfares, and between during the last fiscal year, from all sources, was seventy-| °F infirmity incapable of performing active duty, and whose |the most important points of commerce and population, three million five hundred and forty-nine thousand seven | *dvancement, therefore, would tend to impair the efficiency | encouraged by State legislation, and pressed forward by hundred and five dollars: and that the public expenditures|0f the army. Suitable provision for this class of officers, |the amazing energy of private enterprise, only seventeen for the same period, exclusive of payments on account of| by the creation of a retired list, would remedy the evil, | thousand miles have been completed in all the States in a the public debt, amounted to fifty-one million eighteen | *ithout wounding the just pride of men who, by past ser-| quarter of a century;—when we see the crippled condition of thousand two hundred and forty-nine dollars. During the | Vices, have established a claim to high consideration. In] many works commenced and prosecuted upon what were same period, the payments made in redemption of the |#S#a commending this measure to the favorable considera-| deemed to be sound principles, and rafe calculations ;— public debt, including interest and premium, amounted to] tion of Congress, I would suggest that the power of placing | when we contemplate the enormous absorption of cap- twenty-four million three hundred and thirty-six thousand | icers on the retired list be limited to one year. ‘The|ital withdrawn from the ordinary channels of business, three hundred and eighty dollars. To the sum total of the | Practical operation of the measure would thus be tested, | the extravagant rates of interest at this moment paid to receipts of that year is to be added a balance remaining in | "4 if, after the lapse of years, there should be occasion to | continue operations, the bankruptcies not merely in money, the Treasury at the commencement thereof, amounting to|Tenew the provision, it can be reproduced with any im-| but in character, and the inevitable effect upon finances twenty-one million nine hundred and forty-two thousand | PTovements which experience may indicate. The present | generally;—ean it be doubted that the tendency ix to run eight hundred and ninety-two dollars; and at the clos» of | o¢nization of the artillery into regimeuts is liable to ob-| to excess in this matter? Is it wise to augment this excess the same year, a corresponding balance amounting to| Viens objections. The sorvice of artillery is that of batte-| by encouraging hopes of sudden wealth expected to flow twenty-million one hundred and thirty-seven thousand nine | Ties, aud an organization of batteries into a corps of artil-| fram magnificent schemes dependent upon the action of hundred and sixty-seven dollars of receipts above expendi- | ery would be more consistent with the nature of their du-| Congress? Does the spirit, which has produced such re- tures, also remained in the Treasury. Although, in the | ties. A large part of the croops now called artillery are,| sults, need to be stimulated or checked! Is it not the opinion of the Secretary of the Treasury, the receipts of the | ®"d have been, on duty as infantry; the distinction between | better rule to leave all these works to private enterprise, current fiscal year are not likely to equal in amount those | ‘he two arms being merely nominal. This nominal artil-| regulated, and, when expedient, aided, by the co-operation gating authority to arrest, on the charge of murder, a cap-| of the last, yet they will undoubtedly exceed the amount of| lery in our service is entirely disproportionate to the whole tain of one of the steamboats of the Transit Company. | expenditures by at least fifteen millions of dollars. I shall, | ree, and greater than the wants of the country demand. Being well aware that the claim to exercise jurisdiction | therefore, continue to direct that the surplus revenue be |! therefore commend the discontinuance of a distinction, of States? If constructed by private capital, the atinsulant and the check go together, and furnish a salutary restraint against speculative schemes and extravagance But it is Long experience has shown that, in general, when the} close of your last session. Internal agitation, assuming Principal powers of Europe are engaged in war, the rights| very nearly the character of political revolution, has re- of neutral nations are endangered. This consideration led,| cently convulsed that country. The late ministers were in the progress of the war of our independence, to the| violently expelled from power, and men, of very different formation of the celebrated confederacy of armed neutral- ity, a primary object of which was, to assert the doctrine, that free ships make free goods, except in the case of arti- eles contraband of 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, recognised that principle; and it might have been hoped that it would come to be universally received and reepected as # rule of international law. But the refusal of one power prevented this, and in the next great war which ensued, that of the French revolution, it failed to be eted among the belligerent States of Europe. Notwithstanding this, the principle is generally admitted to be a sound and salutary one; so much so, that, at the com- mencement of the existing war in Europe, Great Britain and France announced thelr purpose tu observe it for the Present; not, however, as a recognised international right, but as & mere concession for the time being. The co-ope- ration, however, of these two powerful maritime nations in the interest of neutral rights, sppeared to me to afford an oceasion, inviting and justifying, on the part of the United States, a renewed effort to make the doctrine in question a principle of international law, by means of special conven- tions between the several powers of Europe and America Accordingly, a proposition, embracing not only the rule, that free ships make free goods, except contraband articles, but also the less contested one, that neutral property, other than contraband, though on board enemy’s ships, shall be exempt from confiseation, has been submitted by this government to those of Europe énd America. ia 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 stipula- tions. None of the other powers have as yet taken final action on the subject. I am not aware, however, that apy objection to the proposed stipulations has been wade ; but, on the contrary, 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 encumbered by inadmissible conditions. The King of the Two Sicilies has expressed to our mia- ister at Naples his readiness to coneur in our proposition relative to neutral rights, and to enter into a convention on that subject. The King of Prussia entirely approves of the project of & treaty to the same effect, submitted to him, but proposes an additional article providing fur the renunciation of pri- vateering. Such an article, fur most obvious reasons, is much desired by nations having naval establishments, large in proportion to their foreign commerce. If it were adopted as an international rule, the commerce of a nation having comparatively a small naval force, would be very much at the mercy of its enemy, in case of war with a power of decided naval superiority. 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 eupremacy, willshow that this government could never listen to such & proposition. The navy of the first maritime power in Eu- rope is at least ten times as large as that of the United States. The foreign commerce of the two countries is nearly equal, and about equally exposed to hostile depre- dations. In war between that power and the United States, without resort on our part to our mercantile 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 condition, with such an enemy, unless we at once departed from our pres- ent peaceful policy, and became a great naval power. Nor would this country be better situated in war with one of| the secondary naval powers. Though the naval disparity views in relation 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 questions of difficulty between the Spanish govern- ment and the United States. There is reason to believe that our minister will find the present government more favorably inclined thanithe preceding to comply with our just demands, and to make suitable arrangements for restoring harmony, and preserving peace, between the two countries. Negotiations are pending with Demark to discontinue the practice of levying tolls on our vessels nd their car- goes passing through the Sound I do not doubt that we can claim exemption therefrom, as a mattey of right. It is admitted on all hands, that this exaction is sanctioned, not by the general priuciples of the law of nations, but only by special conventions, which most of the commercial na- tions have entered into with Denmark. The fifth article of our treaty of 1826, with Denmark, provides, 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 re- garded as an implied agreement to submit to the tolls dur- ing the continuance of the treaty, and, consequently, may embarrass the assertion of our right to be released there- from. There are also other provisions in the treaty which ought to be modified. It was to remain in force for ten years, and until one year after either party should give no- tice to the other of intention to terminate it. I deem it expedient that the contemplated notice should be given to the government of Denmark. The naval expedition, despatched about two years since for the purpose of establishing relations with the empire of Japan, has been ably and skilfully conducted to a suc- cessful 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 ef- fect 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 difficul- ties 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 for- mer list of grievances. Our legation has been earnest in its endeavors to obtain, from the Mexican government, a favorable consideration of these claims, but hitherto with- out success. This failure is, probably, in some measure, to be ascribed to the disturbed condition of that country. It bas been my anxious desire to maintain friendly rela- tions with the Mexican republic, and to cause its rights and terr.tories to be respected, not only by our citizens, but by foreigners, who have resorted to the United States for the purpose of organizing hostile expeditions against some of the States of that Republic. The defenceless con- dition, in which its frontiers have been left, has stimulated lawless adventurers to embark in these enterprises, and greatly increase 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 powers with which I am invested to defeat such criminal proceed- ings, and bring to punishment those who, by taking a part therein, violated our laws. The energy and activity of our civil aud 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 gov- ernment itself, it having been deceived as to their real ob- ject. The other, small in number, eluded the vigilance of] the magistrates at San Francisco, and succeeded in reach- ing the Mexican territories; but the effective measures taken by this government compelled the abandonment of there would be resisted then, as it had been on previous} applied, so far as it can be judiciously and economically | Which has no foundation in either the arma used or the| manifest that, with the most effective guards, there is occasions, they went prepared to assert it by force of arms.| done, to the reduction of the public debt, the amount of | ¢hatacter of the service expected to be performed. Our minister to Central America happened to be present which, at the commencement of the last fiscal year, was danger of going too fast and too far. In connexion with the proposition for the increase of the| | We may well pause before a proposition contemplating & on that oceasion. Believing that the captain of the steam-| sixty-seven million three hundred and forty thousand six|#y, I have presented these suggestions with regard to| simultaneous movement for the construction of railroads, boat was innocent, for he witnessed the transaction on which | hundred and twenty-eight dollars ; of which there had been | Certain measures of reform, as the complement of a system | Which, in extent, will equal, exclusive of the great Pacific the charge was founded, and believing, also, that the intru | paid on the twentieth day of November 1854, the sum of | Which would produce the happiest results from # given ex- ding party, having no jurisdiction over the place where they | twenty-two million three hundred and sixty-five thousand | Penditure, and which I hope may attract the early attention, proposed to make the arrest, would encounter desperate | one hundred and seventy-two dollars; leaving a balance of | 824 be deemed worthy of the approval, of Congress. resistance if they persisted in their purpose, he interposed, effequally, to prevent violence and bloodshed. ‘The Amer. functionaries of the place, surrounded the house in which he was, avowing that they had come to arrest , by or- der of some person exercising the chief auth While parleying with them he was wounded by a missile frgm the crowd. A boat, despatched from the American Bimer “Northern Light,” to release him from the perilous situa- tion in which he was understood to be, was fired into by the town guard, and compelled to return. These incidents, to- gether with the known chnracter of the population of Grey- town, and their excited state, induced just apprehensions that the lives and property of our citizens at Punta Arenas would be in imminent danger after the departure of the steamer, with her passengers, for New York, unless a guard was left for their protection. For this purpose, and in or- der to ensure the safety of passengers and property passing over the route, a temporary force was organized, at consid- erable expense to the United States, fur which provision was made at the last session of Congress. This pretended community, a heterogenous assemblage gathered from various countries, and composed, for the most part, of blacks and persons of mixed blood, had pre- viously given other indications of mischievous and danger- ous propensities. Early in the same month, property was clandestinely abstracted. from the depot of the Transit Company, and taken to'Greytown. The plunderers ob- tained shelter there, and their pursuers were driven back by its people, who 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 con- sideration, and proved by trustworthy evidence. I could not doubt that the case demanded the interposition of this government. Justice required that reparation should be made for s0 many and such gross wrongs, and that a course of insolence and plunder, tending directly to the insecurity of the lives of numerous travellers, and of the rich treasure belonging to our citizens, passing over this transit way, should be peremptorily arrested. Whatever it might be, in other respects, 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 prop- erty, which passed almost daily within its reach. It did not profess to belong to any regular government, and had, in fact, no recognised dependence on, or connexion with, any one to which the United States or their injured citizens might apply for redress, or which could be held responsi- ble, in any way, for the outrages committed. Not standing before the world in th» attitude of an organized political society, being neither competent to exercise the rights nor to discharge the obligations of a government, it was, in fact, a maurauding establishment, too dangerous to be disre- garded, and too guilty to pass unpunished, and yet incapa- pable of being treated in any other way than as a piratical resort of outlaws, or a camp of savages, depredating on emigrant trains or caravans and the frontier settlements of civilized states. Seasonable notice was given to the people of Greytown that this government required them to repair the injuries they had 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 de- mands, But the notice passed unheeded. Thereupon, a commander of the navy, in charge of the sloop-of-war “Cy- ane,” was ordered to repeat the demands, and to insist upon a compliznce therewith. Finding that neither the populace, nor those assuming to have authority over them, manifested any disposition to make the required reparation, or even to offer excuse for their conduct, he warned them, by a public proclamation, that if they did not give satisfac- tion within a time specified, he would bombard the town. By this procedifte he afforded them opportunity to pro- vide for their personal safety. To those also who d-sired to avoid loss of property, in the punishment about to be in- flicted on the offending town, he furnished the means of re- moving their effects, by the boats of his awn ship, and of a steamer which he procured and tendered to them for that purpose. At length, perceiving no disposition on the part of the town to comply with his requisitions, he ap- pealed to the commander of her Britannic Majesty’s sci ooner “ Bermuda,” who was seen to have intercourse, and apparently much influence with the leaders among them,—to interpose, and persuade them to take some course calculated to save the necessity of resorting to the extreme measure indicated in his proclamation; but that officer, instead ef acceding to the request, did nothing more than to protest against the catenpae bombard- ment. No steps of any sort were taken, by the people, to give the satiefaction required. No individuals, if any there were, who regarded themselves as not responsible for the misconduct of the community, adopted any means to sep- arate themselves from the fate of the guilty. ‘The several charges, on which the demands for redress the undertaking. The commission to establish the new line between the would be less, the greater extent, and more exposed condi- tiou of our wide-spread commerce, would give any of them| the treaty of the 30th of December last, has been organ-| nothing to bot any hater sity tha bo der|I am sure, will perceive that the plainest duties and re-| The numberjof acres sold is seven 0 like advantage over us. United States and Mexico, according to the provisions of| ized, and the work is already time, and were again deny any of these charges; they offered no in extenuation of their conduct; but contuma- outstanding public debt of only forty-four million nine hun- dred and seventy-five thousand four hundred and fifty-six stocks, wost of which are already due, and on which the in- terest has ceased, but which have not yet been presented for payment, amounting to two hundred and thirty-three thousand one dred 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 pay- ment has not yet matured, and it cannot be discharged at once, except at the option of public creditors, who prefer to retain the securities ef 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 different Executive 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 fifty-eight million one hundred aud sixteen thousand nine hundred and fifty-eight dollars. Of this excess of appropriations over estimates, however, more than twenty millions was applicable to extraordinary ob- jects, having no reference to the usual annual expenditures. Among these objects was embraced ten millions to meet the third article of the treaty between the United States and Mexico; so that, in fact, for objects of ordinary ex- penditure, the appropriations were limited to considerably legs than forty millions of dollars. I therefore renew my recommendation for a reductiou of the duties on imports. The report of the Secretary of the Treasury presents a se- ries of tables, showing the operation of the revenue system for several successive years, and as the general principle road and all its branchas, nearly one-third of the entire length of such works, now completed in the United States, and which cannot cost, with equipments, less than one hun- The recommendation of the Secretary of the Navy,|dred and fifty millions of dollars. The dangers likely to having reference to more ample provisions for the discipline | result from combinations of interest of this character, can ican minister afterwards visited Greytown, and whilst he| dollars, redeemable at different periods within fourteen | 4 general improvent in character of seamen, and the for re-|hardly be over estimated. But, independently of there con- was there, a mob, including certain of the so-called public| years. There aro also remnants of other government | Tsenization and gradual increase of the navy, I deem emi- | siderations, where is the accurate knowledg:, the compre- nently worthy of your fayorable consideration. The prin-| hensive intelligence, which shall discriminate between the ciples, which have controlled our policy in relation to the|Telative claims of these twenty-eight proposed roads, in permanent military force, by sea and land, are sound, con-| eleven States and one Territory! Where will you begin, sistent with the theory of our eystem, and should by no|and where end? If to enable these compa execute means be disregarded. But, limiting the force tothe objects | their proposed works, it is necessary that the the gen- particularly set forth in the preceding part of this message, | eral government be primarily given, the policy will present we should uot overlook the present magnitude and pros-| problem so comprebensive in its bearings, and so impor- pective extension of our commercial marine, nor fail to| tant to our political and sogial well being, as to claim, in an- give due weight to the fact that, besides the two thousand | ticipation, the severest analysis. Entertaining these views, miles of Atlantic seaboard, we have now a Pacific coast,|I recur with satisfaction to the experience and action of the stretching from Mexico to the British possessions in the | last session of Congress, as farnishing assurance that the north, teeming with wealch and enterprise, and demanding | subject will not fail to elicit a careful re-examination and the constant presence of ships-of-war. The augmentation | rigid scrutiny. . . . of the navy has not kept pace with the duties properly and] It was my intention to present, on this occasion, some profitably assigned to it in time of peace, and it is inade-| suggestions regarding internal improvements by the gene- quate for the large field of its operations, not merely in the | ral government, which want of time at the close of the last present but still more in the progressively increasing exi- session prevented my submitting on the return to the House gencies of the wealth and commerce of the United States. | of Representativer, with objections, of the bill entitled,“ an I cordially approve of the proposed apprentice system for | act making appropriations for the repair, preservation, and our national vessels, recommended by the Secretary of the | completion of certain publ ¢ works heretofore commenced Navy. under authority of law;” but the space in this communica The occurence, during the last few months, of marine | tion already occupied with other matter of immediate public disasters of the most tragic nature, involving great loss of] €Xigency constrains me to reserve that subject for a special buman life, has produced intense emotions of sympathy and | message, which will be tranamitted to the two houses of sorrow throughout the country. It may well be doubted | Congress at an early day. whether all these calamitous events are wholly attributable} The judicial establishment of the United States requires to the necessary and inevitable dangers of the sea. The | modification, and certain reforms in the manner of conduct- merchants, mariners, and ship-builders of the United States, | ing the legal business of the government are alo mach are, it is true, unsurpassed in far-reaching enterprise, skill, needed; but as I have addressed you upon botb of these intelligence, and courage, by any others in the world. But, | Subjects at length before, I have only to call your attention with the inereasing amount of our commercial in | to the suggestions then made. the aggregate, and the larger size and improved equipment] _My former recommendations, in relation to suitable pro- of reduction of duties with a view to revenue and not pro- tection may now be regarded as the settled policy of the country, I trust that little difficulty will be encountered in settling the details of a measure to that effect. of the ships now constructed, a deficiency in the supply of| vision for various objectsof deep interest to the inhabitant« relialte seamen begine to be very seriously felt. The in-| of the District of Columbia, are renewed. Many of these convenience may, perhaps, be met, in part, by due regala-| objects partake largely of a national charracter, and are tion for the introduction, into our merchant ships, of in-| important, independently of their relation to the prosperity In connexion with this subject, I recommend a change | dented apprentices ; which, while it would afford usefal and | of the ouly considerable organized community in the Union, in the lawa, which recent experience has shown to bo es-| eligible occupation to numerous young men, would have aj entirely unrepresented in Congress. J sential to the protection of the government. ‘There is no| tendency to raise the character of seamen asa class. And| Ihave thus presented suggestions on such subjects ax express provision of law, requiring the records and papers | it is deserving of serious reflection, whether it may not be| appear to me to be of particular interest or importance, of'a public character, of the several officers of the govern- | desirable to revise the existing laws for the maintenance of| abd therefore most worthy of consideration during the short ment, to be left in their offices for the use of their succes- | discipline at sea, upon which the security of life and prop- sors, nor any provision declaring it felony on their part to| erty on the ocean must to so great an extent depend. Al- remaining period allotted to the labors of the present Con- make false entries in the books, or return falae accounts. | though much attention has already bren given by Congress} Our forefathers of the thirteen United Colonies, in ac- In the absence of such express provision by law, the outgo- ing officers, in many instances, have claimed and exercised the right to take into their own possession, important books and papers,on the ground that these were their private property; and have placed them beyond the reach of the government. Conduct of this character, brought in several instances to the notice of the present Secretary of the Treasury, naturally awakened his suspicion, and re- sulted in the disclosure that at four ports, 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 difficulty with which the detection of these frauds has been attended, in consequence of the abstraction of books and papers by the retiring officers, and the facility with which eimilar frauds in the public service may be perpetrated, render the ne- cessity of new legal enactments, in the respects above re- ferred to, quite obvious. For other material modifications of the revenue laws which seem to me desirable, I refer you to the report of the Secretary of the Treasury. That Teport, and the tables which accompany it, furnish ample proofs of the solid foundation on which the financial secu- rity of the country reste, and of the salutary influence of the independent treasury system upon commerce and all monetary operations. The ae of the last year furnishes additional rea- sons, I regret to say, of a painful character, for the recom- mendation heretofore made, to provide for increasing the military force employed in the territory inhabited by the Indians. The settlers on the frontier have suffered much from the incursions of predatory bands, and large parties of emigrants to our Pacific possessions have been massa- cred with impunity. The recurrence of such scenes can only be prevented by teaching these wild tribes the power of, and their responsibility to, the United States. From the garrisons of our frontier poste, itis only possible to de- tach troops in bodies; and though these have on all occasions displayed a gallantry and a stern devotion to duty, which on a larger field would have commanded uni- versal admiration, they have usually suffered severely in these conflicts with superior numbers, and have sometimes to the proper construction and arrangement of steam ves-| quiring their independence, and in founding this Republic sels and all passenger ships, still it is believed that the| of the United States of America, have devolved upon us, achievements of science and mechanical skill in this direc-| their descendants, the greatest and the most noble trust tion have not been exhausted. No good reason exista for | ever committed to the hands of man, imposing upon all, the marked distinction, which appears upon our statutes,| and especially such as the public will may have invested, between the laws for protecting life and property at sea, | for the time being, with political functions, the most racred and those for protecting them on land. In most of the| obligations. We have to maintain inviolate the great doc- States severe penalties are provided to punish conductors | trine of the inherent right of popular self-government ; to of trains, engineers, and others posited 2 in the ti rta-| reconcile the largest liberty of the individual citizen, with tion of persons by railway, or by steamboats on rivers.| complete security of the public order; to render cheerful Why should not the eame principle be applied to acts of| obedience to the laws of the land, to unite in forcing insubordination, cowardice, or other misconduct on the part| their execution, and to frown indignantly on all combina- of masters and mariners, producing injury or death to pas-| tions to resist them; to harmonize a sincere and ardent sengers on the high seas, beyond the jurisdiction of any of| devotion to the institutions of religious faith with the moxt the States, and where such delinquencies can be reached | universal religious toleration ; to preserve the rights of all only by the power of Congress? The whole subject is} by causing each to respect those of the other; to carry earnestly commended to your consideration. forward every social improvement to the uttermost limit of The report of the Postmaster General, to which you are| human perfectibility, by the free action of mind upon referred for many interesting details in relation to mind, not by the obtrusive intervention of misapplied portant and rapidly extending branch of the public service, | force; to uphold the integrity and guard the limitations shows that the expenditure of the year ending June 30,| of our organic law: to preserve sacred from all touch 1854, including one hundred and thirty-three thousand,four}of usurpation, as the very palladium of our political hundred and eighty-three dollars of balance due to foreign] salvation, the reserved powers of the several States offices, amounted to eight million seven hundred and ten|and the of people; to cherish, with loyal feality and thousand nine hundred and seven dollars. The gross re-| devoted affection, this Union, as the only sure founda- ceipts during the same period amounted to six million| tion on which the hopes of civil liberty rest; to administer nine hundred and fifty-five thousand five hundred andj government with vigilant integrity and rigid economy; to eighty-six dollars: exhibiting an expeuditure over income| cultivate peace and friendship with foreign nations, and to of one million seven hundred and fifty-five thousand three| demand and exact equal justice from all, but to do wrong hundred and twenty-one dollars, and a diminution of de-| to none; to eschew intermeddling with the national policy ficiency, as compared with the last year, ef three hundred | and the domestic repose of other governments, and to re- and sixty-one thousand seven hundred and fifty-six dollars.| pel it from our own; never to ehrink from war whan the The increase of the revenue of the department, for the year] rights and the honor of the country call us to arms, but to ending June 30, 1854, over the preceding year, was nine| cultivate in preference the arts of peace, seek enlargement hundred and seventy thousand three hundred apd ninety-| of the rights of neutrality, and elevate and liberalize the nine dollars. No proportionate increase, hot , can be| intercourse of nations; and by such just and honorable anticipated for the current year, in consequence of the act | means, and such only, whilst exalting the condition of the of Congress of June 23, 1854, providing for increased Republic, to assure to it the legitimate influenee and the pensativa to all postmasters. an 5 Vitis se these statements it ie benign authority of a great example amongst all the powers fraying ite expenses, according to the = its creation, is now, and under existing been entirely sacrificed. All the disposable force of the army is already employed on this service, and is known to be wholly inadequate to the protection which should be afforded. The public mind of the country has béen re- cently shocked by savage atrocities committed upon de- fenceless emigrants and border settlements, and hardly less by the unnecessary destruction of valuable lives, where in- |, had been publicly ki to all for some| adequate detachments of troops have undertaken to furnish} During the last fiscal year eleven million sev. thous- halenegate anneal is ‘aah: They did not| the needed aid. Without increase of the military force, | 804 nine hundred on a larger ee ume repere Sie be maee: scale, and with more consequences, Congress, to be, ope suiall extoat, 6 charge ury. cost of mail transportation, during the year. ing June 30, 1854, exceeds the cost of eoaaiting by four hundred and ninety-five thousand and lars. T again call your attention to the transportation by ocean steamers, and commend geationsof the Postmaster Genoral to your early attention. the promotion of the supreme good of these : FRANKLIN PIERCE, Wasnixctos, December 4, 1854. and thirty-five acres of the have been ed, and million ninety thousand cad soventeea actos