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You can also find out about how to make a +donation to Project Gutenberg, and how to get involved. + + +**Welcome To The World of Free Plain Vanilla Electronic Texts** + +**eBooks Readable By Both Humans and By Computers, Since 1971** + +*****These eBooks Were Prepared By Thousands of Volunteers!***** + + +Title: State of the Union Addresses of Andrew Johnson + +Author: Andrew Johnson + +Release Date: February, 2004 [EBook #5025] +[Yes, we are more than one year ahead of schedule] +[This file was first posted on April 11, 2002] + +Edition: 10 + +Language: English + +Character set encoding: ASCII + +*** START OF THE PROJECT GUTENBERG EBOOK OF ADDRESSES BY ANDREW JOHNSON *** + + + + +This eBook was produced by James Linden. + +The addresses are separated by three asterisks: *** + +Dates of addresses by Andrew Johnson in this eBook: + December 4, 1865 + December 3, 1866 + December 3, 1867 + December 9, 1868 + + + +*** + +State of the Union Address +Andrew Johnson +December 4, 1865 + +Fellow-Citizens of the Senate and House of Representatives: + +To express gratitude to God in the name of the people for the preservation +of the United States is my first duty in addressing you. Our thoughts next +revert to the death of the late President by an act of parricidal treason. +The grief of the nation is still fresh. It finds some solace in the +consideration that he lived to enjoy the highest proof of its confidence by +entering on the renewed term of the Chief Magistracy to which he had been +elected; that he brought the civil war substantially to a close; that his +loss was deplored in all parts of the Union, and that foreign nations have +rendered justice to his memory. His removal cast upon me a heavier weight +of cares than ever devolved upon any one of his predecessors. To fulfill my +trust I need the support and confidence of all who are associated with me +in the various departments of Government and the support and confidence of +the people. There is but one way in which I can hope to gain their +necessary aid. It is to state with frankness the principles which guide my +conduct, and their application to the present state of affairs, well aware +that the efficiency of my labors will in a great measure depend on your and +their undivided approbation. + +The Union of the United States of America was intended by its authors to +last as long as the States themselves shall last. "The Union shall be +perpetual" are the words of the Confederation. "To form a more perfect +Union," by an ordinance of the people of the United States, is the declared +purpose of the Constitution. The hand of Divine Providence was never more +plainly visible in the affairs of men than in the framing and the adopting +of that instrument. It is beyond comparison the greatest event in American +history, and, indeed, is it not of all events in modern times the most +pregnant with consequences for every people of the earth? The members of +the Convention which prepared it brought to their work the experience of +the Confederation, of their several States, and of other republican +governments, old and new; but they needed and they obtained a wisdom +superior to experience. And when for its validity it required the approval +of a people that occupied a large part of a continent and acted separately +in many distinct conventions, what is more wonderful than that, after +earnest contention and long discussion, all feelings and all opinions were +ultimately drawn in one way to its support? The Constitution to which life +was thus imparted contains within itself ample resources for its own +preservation. It has power to enforce the laws, punish treason, and insure +domestic tranquillity. In case of the usurpation of the government of a +State by one man or an oligarchy, it becomes a duty of the United States to +make good the guaranty to that State of a republican form of government, +and so to maintain the homogeneousness of all. Does the lapse of time +reveal defects? A simple mode of amendment is provided in the Constitution +itself, so that its conditions can always be made to conform to the +requirements of advancing civilization. No room is allowed even for the +thought of a possibility of its coming to an end. And these powers of +self-preservation have always been asserted in their complete integrity by +every patriotic Chief Magistrate by Jefferson and Jackson not less than by +Washington and Madison. The parting advice of the Father of his Country, +while yet President, to the people of the United States was that the free +Constitution, which was the work of their hands, might be sacredly +maintained; and the inaugural words of President Jefferson held up "the +preservation of the General Government in its whole constitutional vigor as +the sheet anchor of our peace at home and safety abroad." The Constitution +is the work of "the people of the United States," and it should be as +indestructible as the people. + +It is not strange that the framers of the Constitution, which had no model +in the past, should not have fully comprehended the excellence of their own +work. Fresh from a struggle against arbitrary power, many patriots suffered +from harassing fears of an absorption of the State governments by the +General Government, and many from a dread that the States would break away +from their orbits. But the very greatness of our country should allay the +apprehension of encroachments by the General Government. The subjects that +come unquestionably within its jurisdiction are so numerous that it must +ever naturally refuse to be embarrassed by questions that lie beyond it. +Were it otherwise the Executive would sink beneath the burden, the channels +of justice would be choked, legislation would be obstructed by excess, so +that there is a greater temptation to exercise some of the functions of the +General Government through the States than to trespass on their rightful +sphere. The "absolute acquiescence in the decisions of the majority" was at +the beginning of the century enforced by Jefferson as "the vital principle +of republics;" and the events of the last four years have established, we +will hope forever, that there lies no appeal to force. + +The maintenance of the Union brings with it "the support of the State +governments in all their rights," but it is not one of the rights of any +State government to renounce its own place in the Union or to nullify the +laws of the Union. The largest liberty is to be maintained in the +discussion of the acts of the Federal Government, but there is no appeal +from its laws except to the various branches of that Government itself, or +to the people, who grant to the members of the legislative and of the +executive departments no tenure but a limited one, and in that manner +always retain the powers of redress. + +"The sovereignty of the States" is the language of the Confederacy, and not +the language of the Constitution. The latter contains the emphatic words-- +This Constitution and the laws of the United States which shall be made in +pursuance thereof, and all treaties + +made or which shall be made under the authority of the United States, shall +be the supreme law of the land, + +and the judges in every State shall be bound thereby, anything in the +constitution or laws of any State to the + +contrary notwithstanding. Certainly the Government of the United States is +a limited government, and so is every State government a limited +government. With us this idea of limitation spreads through every form of +administration--general, State, and municipal--and rests on the great +distinguishing principle of the recognition of the rights of man. The +ancient republics absorbed the individual in the state--prescribed his +religion and controlled his activity. The American system rests on the +assertion of the equal right of every man to life, liberty, and the pursuit +of happiness, to freedom of conscience, to the culture and exercise of all +his faculties. As a consequence the State government is limited--as to the +General Government in the interest of union, as to the individual citizen +in the interest of freedom. + +States, with proper limitations of power, are essential to the existence of +the Constitution of the United States. At the very commencement, when we +assumed a place among the powers of the earth, the Declaration of +Independence was adopted by States; so also were the Articles of +Confederation: and when "the people of the United States" ordained and +established the Constitution it was the assent of the States, one by one, +which gave it vitality. In the event, too, of any amendment to the +Constitution, the proposition of Congress needs the confirmation of States. +Without States one great branch of the legislative government would be +wanting. And if we look beyond the letter of the Constitution to the +character of our country, its capacity for comprehending within its +jurisdiction a vast continental empire is due to the system of States. The +best security for the perpetual existence of the States is the "supreme +authority" of the Constitution of the United States. The perpetuity of the +Constitution brings with it the perpetuity of the States; their mutual +relation makes us what we are, and in our political system their connection +is indissoluble. The whole can not exist without the parts, nor the parts +without the whole. So long as the Constitution of the United States +endures, the States will endure. The destruction of the one is the +destruction of the other; the preservation of the one is the preservation +of the other. + +I have thus explained my views of the mutual relations of the Constitution +and the States, because they unfold the principles on which I have sought +to solve the momentous questions and overcome the appalling difficulties +that met me at the very commencement of my Administration. It has been my +steadfast object to escape from the sway of momentary passions and to +derive a healing policy from the fundamental and unchanging principles of +the Constitution. + +I found the States suffering from the effects of a civil war. Resistance to +the General Government appeared to have exhausted itself. The United States +had recovered possession of their forts and arsenals, and their armies were +in the occupation of every State which had attempted to secede. Whether the +territory within the limits of those States should be held as conquered +territory, under military authority emanating from the President as the +head of the Army, was the first question that presented itself for +decision. + +Now military governments, established for an indefinite period, would have +offered no security for the early suppression of discontent, would have +divided the people into the vanquishers and the vanquished, and would have +envenomed hatred rather than have restored affection. Once established, no +precise limit to their continuance was conceivable. They would have +occasioned an incalculable and exhausting expense. Peaceful emigration to +and from that portion of the country is one of the best means that can be +thought of for the restoration of harmony, and that emigration would have +been prevented; for what emigrant from abroad, what industrious citizen at +home, would place himself willingly under military rule? The chief persons +who would have followed in the train of the Army would have been dependents +on the General Government or men who expected profit from the miseries of +their erring fellow-citizens. The powers of patronage and rule which would +have been exercised under the President, over a vast and populous and +naturally wealthy region are greater than, unless under extreme necessity, +I should be willing to intrust to any one man. They are such as, for +myself, I could never, unless on occasions of great emergency, consent to +exercise. The willful use of such powers, if continued through a period of +years, would have endangered the purity of the general administration and +the liberties of the States which remained loyal. + +Besides, the policy of military rule over a conquered territory would have +implied that the States whose inhabitants may have taken part in the +rebellion had by the act of those inhabitants ceased to exist. But the true +theory is that all pretended acts of secession were from the beginning null +and void. The States can not commit treason nor screen the individual +citizens who may have committed treason any more than they can make valid +treaties or engage in lawful commerce with any foreign power. The States +attempting to secede placed themselves in a condition where their vitality +was impaired, but not extinguished; their functions suspended, but not +destroyed. + +But if any State neglects or refuses to perform its offices there is the +more need that the General Government should maintain all its authority and +as soon as practicable resume the exercise of all its functions. On this +principle I have acted, and have gradually and quietly, and by almost +imperceptible steps, sought to restore the rightful energy of the General +Government and of the States. To that end provisional governors have been +appointed for the States, conventions called, governors elected, +legislatures assembled, and Senators and Representatives chosen to the +Congress of the United States. At the same time the courts of the United +States, as far as could be done, have been reopened, so that the laws of +the United States may be enforced through their agency. The blockade has +been removed and the custom-houses reestablished in ports of entry, so that +the revenue of the United States may be collected. The Post-Office +Department renews its ceaseless activity, and the General Government is +thereby enabled to communicate promptly with its officers and agents. The +courts bring security to persons and property; the opening of the ports +invites the restoration of industry and commerce; the post-office renews +the facilities of social intercourse and of business. And is it not happy +for us all that the restoration of each one of these functions of the +General Government brings with it a blessing to the States over which they +are extended? Is it not a sure promise of harmony and renewed attachment to +the Union that after all that has happened the return of the General +Government is known only as a beneficence? + +I know very well that this policy is attended with some risk; that for its +success it requires at least the acquiescence of the States which it +concerns; that it implies an invitation to those States, by renewing their +allegiance to the United States, to resume their functions as States of the +Union. But it is a risk that must be taken. In the choice of difficulties +it is the smallest risk; and to diminish and if possible to remove all +danger, I have felt it incumbent on me to assert one other power of the +General Government--the power of pardon. As no State can throw a defense +over the crime of treason, the power of pardon is exclusively vested in the +executive government of the United States. In exercising that power I have +taken every precaution to connect it with the clearest recognition of the +binding force of the laws of the United States and an unqualified +acknowledgment of the great social change of condition in regard to slavery +which has grown out of the war. + +The next step which I have taken to restore the constitutional relations of +the States has been an invitation to them to participate in the high office +of amending the Constitution. Every patriot must wish for a general amnesty +at the earliest epoch consistent with public safety. For this great end +there is need of a concurrence of all opinions and the spirit of mutual +conciliation. All parties in the late terrible conflict must work together +in harmony. It is not too much to ask, in the name of the whole people, +that on the one side the plan of restoration shall proceed in conformity +with a willingness to cast the disorders of the past into oblivion, and +that on the other the evidence of sincerity in the future maintenance of +the Union shall be put beyond any doubt by the ratification of the proposed +amendment to the Constitution, which provides for the abolition of slavery +forever within the limits of our country. So long as the adoption of this +amendment is delayed, so long will doubt and jealousy and uncertainty +prevail. This is the measure which will efface the sad memory of the past; +this is the measure which will most certainly call population and capital +and security to those parts of the Union that need them most. Indeed, it is +not too much to ask of the States which are now resuming their places in +the family of the Union to give this pledge of perpetual loyalty and peace. +Until it is done the past, however much we may desire it, will not be +forgotten, The adoption of the amendment reunites us beyond all power of +disruption; it heals the wound that is still imperfectly closed: it removes +slavery, the element which has so long perplexed and divided the country; +it makes of us once more a united people, renewed and strengthened, bound +more than ever to mutual affection and support. + +The amendment to the Constitution being adopted, it would remain for the +States whose powers have been so long in abeyance to resume their places in +the two branches of the National Legislature, and thereby complete the work +of restoration. Here it is for you, fellow-citizens of the Senate, and for +you, fellow-citizens of the House of Representatives, to judge, each of you +for yourselves, of the elections, returns, and qualifications of your own +members. + +The full assertion of the powers of the General Government requires the +holding of circuit courts of the United States within the districts where +their authority has been interrupted. In the present posture of our public +affairs strong objections have been urged to holding those courts in any of +the States where the rebellion has existed; and it was ascertained by +inquiry, that the circuit court of the United States would not be held +within the district of Virginia during the autumn or early winter, nor +until Congress should have "an opportunity to consider and act on the whole +subject." To your deliberations the restoration of this branch of the civil +authority of the United States is therefore necessarily referred, with the +hope that early provision will be made for the resumption of all its +functions. It is manifest that treason, most flagrant in character, has +been committed. Persons who are charged with its commission should have +fair and impartial trials in the highest civil tribunals of the country, in +order that the Constitution and the laws may be fully vindicated, the truth +dearly established and affirmed that treason is a crime, that traitors +should be punished and the offense made infamous, and, at the same time, +that the question may be judicially settled, finally and forever, that no +State of its own will has the right to renounce its place in the Union. + +The relations of the General Government toward the 4,000,000 inhabitants +whom the war has called into freedom have engaged my most serious +consideration. On the propriety of attempting to make the freedmen electors +by the proclamation of the Executive I took for my counsel the Constitution +itself, the interpretations of that instrument by its authors and their +contemporaries, and recent legislation by Congress. When, at the first +movement toward independence, the Congress of the United States instructed +the several States to institute governments of their own, they left each +State to decide for itself the conditions for the enjoyment of the elective +franchise. During the period of the Confederacy there continued to exist a +very great diversity in the qualifications of electors in the several +States, and even within a State a distinction of qualifications prevailed +with regard to the officers who were to be chosen. The Constitution of the +United States recognizes these diversities when it enjoins that in the +choice of members of the House of Representatives of the United States "the +electors in each State shall have the qualifications requisite for electors +of the most numerous branch of the State legislature." After the formation +of the Constitution it remained, as before, the uniform usage for each +State to enlarge the body of its electors according to its own judgment, +and under this system one State after another has proceeded to increase the +number of its electors, until now universal suffrage, or something very +near it, is the general rule. So fixed was this reservation of power in the +habits of the people and so unquestioned has been the interpretation of the +Constitution that during the civil war the late President never harbored +the purpose--certainly never evowed the purpose--of disregarding it; and in +the acts of Congress during that period nothing can be found which, during +the continuance of hostilities much less after their close, would have +sanctioned any departure by the Executive from a policy which has so +uniformly obtained. Moreover, a concession of the elective franchise to the +freedmen by act of the President of the United States must have been +extended to all colored men, wherever found, and so must have established a +change of suffrage in the Northern, Middle, and Western States, not less +than in the Southern and Southwestern. Such an act would have created a new +class of voters, and would have been an assumption of power by the +President which nothing in the Constitution or laws of the United States +would have warranted. + +On the other hand, every danger of conflict is avoided when the settlement +of the question is referred to the several States. They can, each for +itself, decide on the measure, and whether it is to be adopted at once and +absolutely or introduced gradually and with conditions. In my judgment the +freedmen, if they show patience and manly virtues, will sooner obtain a +participation in the elective franchise through the States than through the +General Government, even if it had power to intervene. When the tumult of +emotions that have been raised by the suddenness of the social change shall +have subsided, it may prove that they will receive the kindest usage from +some of those on whom they have heretofore most closely depended. + +But while I have no doubt that now, after the close of the war, it is not +competent for the General Government to extend the elective franchise in +the several States, it is equally clear that good faith requires the +security of the freedmen in their liberty and their property, their right +to labor, and their right to claim the just return of their labor. I can +not too strongly urge a dispassionate treatment of this subject, which +should be carefully kept aloof from all party strife. We must equally avoid +hasty assumptions of any natural impossibility for the two races to live +side by side in a state of mutual benefit and good will. The experiment +involves us in no inconsistency; let us, then, go on and make that +experiment in good faith, and not be too easily disheartened. The country +is in need of labor, and the freedmen are in need of employment, culture, +and protection. While their right of voluntary migration and expatriation +is not to be questioned, I would not advise their forced removal and +colonization. Let us rather encourage them to honorable and useful +industry, where it may be beneficial to themselves and to the country; and, +instead of hasty anticipations of the certainty of failure, let there be +nothing wanting to the fair trial of the experiment. The change in their +condition is the substitution of labor by contract for the status of +slavery. The freedman can not fairly be accused of unwillingness to work so +long as a doubt remains about his freedom of choice in his pursuits and the +certainty of his recovering his stipulated wages. In this the interests of +the employer and the employed coincide. The employer desires in his workmen +spirit and alacrity, and these can be permanently secured in no other way. +And if the one ought to be able to enforce the contract, so ought the +other. The public interest will be best promoted if the several States will +provide adequate protection and remedies for the freedmen. Until this is in +some way accomplished there is no chance for the advantageous use of their +labor, and the blame of ill success will not rest on them. + +I know that sincere philanthropy is earnest for the immediate realization +of its remotest aims; but time is always an element in reform. It is one of +the greatest acts on record to have brought 4,000,000 people into freedom. +The career of free industry must be fairly opened to them, and then their +future prosperity and condition must, after all, rest mainly on themselves. +If they fail, and so perish away, let us be careful that the failure shall +not be attributable to any denial of justice. In all that relates to the +destiny of the freedmen we need not be too anxious to read the future; many +incidents which, from a speculative point of view, might raise alarm will +quietly settle themselves. Now that slavery is at an end, or near its end, +the greatness of its evil in the point of view of public economy becomes +more and more apparent. Slavery was essentially a monopoly of labor, and as +such locked the States where it prevailed against the incoming of free +industry. Where labor was the property of the capitalist, the white man was +excluded from employment, or had but the second best chance of finding it; +and the foreign emigrant turned away from the region where his condition +would be so precarious. With the destruction of the monopoly free labor +will hasten from all pans of the civilized world to assist in developing +various and immeasurable resources which have hitherto lain dormant. The +eight or nine States nearest the Gulf of Mexico have a soil of exuberant +fertility, a climate friendly to long life, and can sustain a denser +population than is found as yet in any part of our country. And the future +influx of population to them will be mainly from the North or from the most +cultivated nations in Europe. From the sufferings that have attended them +during our late struggle let us look away to the future, which is sure to +be laden for them with greater prosperity than has ever before been known. +The removal of the monopoly of slave labor is a pledge that those regions +will be peopled by a numerous and enterprising population, which will vie +with any in the Union in compactness, inventive genius, wealth, and +industry. + +Our Government springs from and was made for the people--not the people for +the Government. To them it owes allegiance; from them it must derive its +courage, strength, and wisdom. But while the Government is thus bound to +defer to the people, from whom it derives its existence, it should, from +the very consideration of its origin, be strong in its power of resistance +to the establishment of inequalities. Monopolies, perpetuities, and class +legislation are contrary to the genius of free government, and ought not to +be allowed. Here there is no room for favored classes or monopolies; the +principle of our Government is that of equal laws and freedom of industry. +Wherever monopoly attains a foothold, it is sure to be a source of danger, +discord, and trouble. We shall but fulfill our duties as legislators by +according "equal and exact justice to all men," special privileges to none. +The Government is subordinate to the people; but, as the agent and +representative of the people, it must be held superior to monopolies, which +in themselves ought never to be granted, and which, where they exist, must +be subordinate and yield to the Government. + +The Constitution confers on Congress the right to regulate commerce among +the several States. It is of the first necessity, for the maintenance of +the Union, that that commerce should be free and unobstructed. No State can +be justified in any device to tax the transit of travel and commerce +between States. The position of many States is such that if they were +allowed to take advantage of it for purposes of local revenue the commerce +between States might be injuriously burdened, or even virtually prohibited. +It is best, while the country is still young and while the tendency to +dangerous monopolies of this kind is still feeble, to use the power of +Congress so as to prevent any selfish impediment to the free circulation of +men and merchandise. A tax on travel and merchandise in their transit +constitutes one of the worst forms of monopoly, and the evil is increased +if coupled with a denial of the choice of route. When the vast extent of +our country is considered, it is plain that every obstacle to the free +circulation of commerce between the States ought to be sternly guarded +against by appropriate legislation within the limits of the Constitution. + +The report of the Secretary of the Interior explains the condition of the +public lands, the transactions of the Patent Office and the Pension Bureau, +the management of our Indian affairs, the progress made in the construction +of the Pacific Railroad, and furnishes information in reference to matters +of local interest in the District of Columbia. It also presents evidence of +the successful operation of the homestead act, under the provisions of +which 1,160,533 acres of the public lands were entered during the last +fiscal year--more than one-fourth of the whole number of acres sold or +otherwise disposed of during that period. It is estimated that the receipts +derived from this source are sufficient to cover the expenses incident to +the survey and disposal of the lands entered under this act, and that +payments in cash to the extent of from 40 to 50 per cent will be made by +settlers who may thus at any time acquire title before the expiration of +the period at which it would otherwise vest. The homestead policy was +established only after long and earnest resistance; experience proves its +wisdom. The lands in the hands of industrious settlers, whose labor creates +wealth and contributes to the public resources, are worth more to the +United States than if they had been reserved as a solitude for future +purchasers. + +The lamentable events of the last four years and the sacrifices made by the +gallant men of our Army and Navy have swelled the records of the Pension +Bureau to an unprecedented extent. On the 30th day of June last the total +number of pensioners was 85,986, requiring for their annual pay, exclusive +of expenses, the sum of $8,023,445. The number of applications that have +been allowed since that date will require a large increase of this amount +for the next fiscal year. The means for the payment of the stipends due +under existing laws to our disabled soldiers and sailors and to the +families of such as have perished in the service of the country will no +doubt be cheerfully and promptly granted. A grateful people will not +hesitate to sanction any measures having for their object the relief of +soldiers mutilated and families made fatherless in the efforts to preserve +our national existence. + +The report of the Postmaster-General presents an encouraging exhibit of the +operations of the Post-Office Department during the year. The revenues of +the past year, from the loyal States alone, exceeded the maximum annual +receipts from all the States previous to the rebellion in the sum of +$6,038,091; and the annual average increase of revenue during the last four +years, compared with the revenues of the four years immediately preceding +the rebellion, was $3,533,845. The revenues of the last fiscal year +amounted to $14,556,158 and the expenditures to $13,694,728, leaving a +surplus of receipts over expenditures of $861,430. Progress has been made +in restoring the postal service in the Southern States. The views presented +by the Postmaster-General against the policy of granting subsidies to the +ocean mail steamship lines upon established routes and in favor of +continuing the present system, which limits the compensation for ocean +service to the postage earnings, are recommended to the careful +consideration of Congress. + +It appears from the report of the Secretary of the Navy that while at the +commencement of the present year there were in commission 530 vessels of +all classes and descriptions, armed with 3,000 guns and manned by 51,000 +men, the number of vessels at present in commission is 117, with 830 guns +and 12,128 men. By this prompt reduction of the naval forces the expenses +of the Government have been largely diminished, and a number of vessels +purchased for naval purposes from the merchant marine have been returned to +the peaceful pursuits of commerce. Since the suppression of active +hostilities our foreign squadrons have been reestablished, and consist of +vessels much more efficient than those employed on similar service previous +to the rebellion. The suggestion for the enlargement of the navy-yards, and +especially for the establishment of one in fresh water for ironclad +vessels, is deserving of consideration, as is also the recommendation for a +different location and more ample grounds for the Naval Academy. + +In the report of the Secretary of War a general summary is given of the +military campaigns of 1864 and 1865, ending in the suppression of armed +resistance to the national authority in the insurgent States. The +operations of the general administrative bureaus of the War Department +during the past year are detailed and an estimate made of the +appropriations that will be required for military purposes in the fiscal +year commencing the 1st day of July, 1866. The national military force on +the 1st of May, 1865, numbered 1,000,516 men. It is proposed to reduce the +military establishment to a peace footing, comprehending 50,000 troops of +all arms, organized so as to admit of an enlargement by filling up the +ranks to 82,600 if the circumstances of the country should require an +augmentation of the Army. The volunteer force has already been reduced by +the discharge from service of over 800,000 troops, and the Department is +proceeding rapidly in the work of further reduction. The war estimates are +reduced from $516,240,131 to $33,814,461, which amount, in the opinion of +the Department, is adequate for a peace establishment. The measures of +retrenchment in each bureau and branch of the service exhibit a diligent +economy worthy of commendation. Reference is also made in the report to the +necessity of providing for a uniform militia system and to the propriety of +making suitable provision for wounded and disabled officers and soldiers. + +The revenue system of the country is a subject of vital interest to its +honor and prosperity, and should command the earnest consideration of +Congress. The Secretary of the Treasury will lay before you a full and +detailed report of the receipts and disbursements of the last fiscal year, +of the first quarter of the present fiscal year, of the probable receipts +and expenditures for the other three quarters, and the estimates for the +year following the 30th of June, 1866. I might content myself with a +reference to that report, in which you will find all the information +required for your deliberations and decision, but the paramount importance +of the subject so presses itself on my own mind that I can not but lay +before you my views of the measures which are required for the good +character, and I might almost say for the existence, of this people. The +life of a republic lies certainly in the energy, virtue, and intelligence +of its citizens; but it is equally true that a good revenue system is the +life of an organized government. I meet you at a time when the nation has +voluntarily burdened itself with a debt unprecedented in our annals. Vast +as is its amount, it fades away into nothing when compared with the +countless blessings that will be conferred upon our country and upon man by +the preservation of the nation's life. Now, on the first occasion of the +meeting of Congress since the return of peace, it is of the utmost +importance to inaugurate a just policy, which shall at once be put in +motion, and which shall commend itself to those who come after us for its +continuance. We must aim at nothing less than the complete effacement of +the financial evils that necessarily followed a state of civil war. We must +endeavor to apply the earliest remedy to the deranged state of the +currency, and not shrink from devising a policy which, with-out being +oppressive to the people, shall immediately begin to effect a reduction of +the debt, and, if persisted in, discharge it fully within a definitely +fixed number of years. + +It is our first duty to prepare in earnest for our recovery from the +ever-increasing evils of an irredeemable currency without a sudden +revulsion, and yet without untimely procrastination. For that end we must +each, in our respective positions, prepare the way. I hold it the duty of +the Executive to insist upon frugality in the expenditures, and a sparing +economy is itself a great national resource. Of the banks to which +authority has been given to issue notes secured by bonds of the United +States we may require the greatest moderation and prudence, and the law +must be rigidly enforced when its limits are exceeded. We may each one of +us counsel our active and enterprising countrymen to be constantly on their +guard, to liquidate debts contracted in a paper currency, and by conducting +business as nearly as possible on a system of cash payments or short +credits to hold themselves prepared to return to the standard of gold and +silver. To aid our fellow-citizens in the prudent management of their +monetary affairs, the duty devolves on us to diminish by law the amount of +paper money now in circulation. Five years ago the bank-note circulation of +the country amounted to not much more than two hundred millions; now the +circulation, bank and national, exceeds seven hundred millions. The simple +statement of the fact recommends more strongly than any words of mine could +do the necessity of our restraining this expansion. The gradual reduction +of the currency is the only measure that can save the business of the +country from disastrous calamities, and this can be almost imperceptibly +accomplished by gradually funding the national circulation in securities +that may be made redeemable at the pleasure of the Government. + +Our debt is doubly secure--first in the actual wealth and still greater +undeveloped resources of the country, and next in the character of our +institutions. The most intelligent observers among political economists +have not failed to remark that the public debt of a country is safe in +proportion as its people are free; that the debt of a republic is the +safest of all. Our history confirms and establishes the theory, and is, I +firmly believe, destined to give it a still more signal illustration. The +secret of this superiority springs not merely from the fact that in a +republic the national obligations are distributed more widely through +countless numbers in all classes of society; it has its root in the +character of our laws. Here all men contribute to the public welfare and +bear their fair share of the public burdens. During the war, under the +impulses of patriotism, the men of the great body of the people, without +regard to their own comparative want of wealth, thronged to our armies and +filled our fleets of war, and held themselves ready to offer their lives +for the public good. Now, in their turn, the property and income of the +country should bear their just proportion of the burden of taxation, while +in our impost system, through means of which increased vitality is +incidentally imparted to all the industrial interests of the nation, the +duties should be so adjusted as to fall most heavily on articles of luxury +leaving the necessaries of life as free from taxation as the absolute wants +of the Government economically administered will justify. No favored class +should demand freedom from assessment, and the taxes should be so +distributed as not to fall unduly on the poor, but rather on the +accumulated wealth of the country. We should look at the national debt just +as it is--not as a national blessing, but as a heavy burden on the industry +of the country, to be discharged without unnecessary delay. + +It is estimated by the Secretary of the Treasury that the expenditures for +the fiscal year ending the 30th of June, 1866, will exceed the receipts +$112,194,947. It is gratifying, however, to state that it is also estimated +that the revenue for the year ending the 30th of June, 1867, will exceed +the expenditures in the sum of $111,682,818. This amount, or so much as may +be deemed sufficient for the purpose, may be applied to the reduction of +the public debt, which on the 31st day of October, 1865, was +$2,740,854,750. Every reduction will diminish the total amount of interest +to be paid, and so enlarge the means of still further reductions, until the +whole shall be liquidated; and this, as will be seen from the estimates of +the Secretary of the Treasury, may be accomplished by annual payments even +within a period not exceeding thirty years. I have faith that we shall do +all this within a reasonable time; that as we have amazed the world by the +suppression of a civil war which was thought to be beyond the control of +any government, so we shall equally show the superiority of our +institutions by the prompt and faithful discharge of our national +obligations. + +The Department of Agriculture under its present direction is accomplishing +much in developing and utilizing the vast agricultural capabilities of the +country, and for information respecting the details of its management +reference is made to the annual report of the Commissioner. + +I have dwelt thus fully on our domestic affairs because of their +transcendent importance. Under any circumstances our great extent of +territory and variety of climate, producing almost everything that is +necessary for the wants and even the comforts of man, make us singularly +independent of the varying policy of foreign powers and protect us against +every temptation to "entangling alliances," while at the present moment the +reestablishment of harmony and the strength that comes from harmony will be +our best security against "nations who feel power and forget right." For +myself, it has been and it will be my constant aim to promote peace and +amity with all foreign nations and powers, and I have every reason to +believe that they all, without exception, are animated by the same +disposition. Our relations with the Emperor of China, so recent in their +origin, are most friendly. Our commerce with his dominions is receiving new +developments, and it is very pleasing to find that the Government of that +great Empire manifests satisfaction with our policy and reposes just +confidence in the fairness which marks our intercourse. The unbroken +harmony between the United States and the Emperor of Russia is receiving a +new support from an enterprise designed to carry telegraphic lines across +the continent of Asia, through his dominions, and so to connect us with all +Europe by a new channel of intercourse. Our commerce with South America is +about to receive encouragement by a direct line of mail steamships to the +rising Empire of Brazil. The distinguished party of men of science who have +recently left our country to make a scientific exploration of the natural +history and rivers and mountain ranges of that region have received from +the Emperor that generous welcome which was to have been expected from his +constant friendship for the United States and his well-known zeal in +promoting the advancement of knowledge. A hope is entertained that our +commerce with the rich and populous countries that border the Mediterranean +Sea may be largely increased. Nothing will be wanting on the part of this +Government to extend the protection of our flag over the enterprise of our +fellow-citizens. We receive from the powers in that region assurances of +good will; and it is worthy of note that a special envoy has brought us +messages of condolence on the death of our late Chief Magistrate from the +Bey of Tunis, whose rule includes the old dominions of Carthage, on the +African coast. + +Our domestic contest, now happily ended, has left some traces in our +relations with one at least of the great maritime powers. The formal +accordance of belligerent rights to the insurgent States was unprecedented, +and has not been justified by the issue. But in the systems of neutrality +pursued by the powers which made that concession there was a marked +difference. The materials of war for the insurgent States were furnished, +in a great measure, from the workshops of Great Britain, and British ships, +manned by British subjects and prepared for receiving British armaments, +sallied from the ports of Great Britain to make war on American commerce +under the shelter of a commission from the insurgent States. These ships, +having once escaped from British ports, ever afterwards entered them in +every part of the world to refit, and so to renew their depredations. The +consequences of this conduct were most disastrous to the States then in +rebellion, increasing their desolation and misery by the prolongation of +our civil contest. It had, moreover, the effect, to a great extent, to +drive the American flag from the sea, and to transfer much of our shipping +and our commerce to the very power whose subjects had created the necessity +for such a change. These events took place before I was called to the +administration of the Government. The sincere desire for peace by which I +am animated led me to approve the proposal, already made, to submit the +question which had thus arisen between the countries to arbitration. These +questions are of such moment that they must have commanded the attention of +the great powers, and are so interwoven with the peace and interests of +every one of them as to have insured an impartial decision. I regret to +inform you that Great Britain declined the arbitrament, but, on the other +hand, invited us to the formation of a joint commission to settle mutual +claims between the two countries, from which those for the depredations +before mentioned should be excluded. The proposition, in that very +unsatisfactory form, has been declined. + +The United States did not present the subject as an impeachment of the good +faith of a power which was professing the most friendly dispositions, but +as involving questions of public law of which the settlement is essential +to the peace of nations; and though pecuniary reparation to their injured +citizens would have followed incidentally on a decision against Great +Britain, such compensation was not their primary object. They had a higher +motive, and it was in the interests of peace and justice to establish +important principles of international law. The correspondence will be +placed before you. The ground on which the British minister rests his +justification is, substantially, that the municipal law of a nation and the +domestic interpretations of that law are the measure of its duty as a +neutral, and I feel bound to declare my opinion before you and before the +world that that justification can not be sustained before the tribunal of +nations. At the same time; I do not advise to any present attempt at +redress by acts of legislation. For the future, friendship between the two +countries must rest on the basis of mutual justice. + +From the moment of the establishment of our free Constitution the civilized +world has been convulsed by revolutions in the interests of democracy or of +monarchy, but through all those revolutions the United States have wisely +and firmly refused to become propagandists of republicanism. It is the only +government suited to our condition; but we have never sought to impose it +on others, and we have consistently followed the advice of Washington to +recommend it only by the careful preservation and prudent use of the +blessing. During all the intervening period the policy of European powers +and of the United States has, on the whole, been harmonious. Twice, indeed, +rumors of the invasion of some parts of America in the interest of monarchy +have prevailed; twice my predecessors have had occasion to announce the +views of this nation in respect to such interference. On both occasions the +remonstrance of the United States was respected from a deep conviction on +the part of European Governments that the system of noninterference and +mutual abstinence from propagandism was the true rule for the two +hemispheres. Since those times we have advanced in wealth and power, but we +retain the same purpose to leave the nations of Europe to choose their own +dynasties and form their own systems of government. This consistent +moderation may justly demand a corresponding moderation. We should regard +it as a great calamity to ourselves, to the cause of good government, and +to the peace of the world should any European power challenge the American +people, as it were, to the defense of republicanism against foreign +interference. We can not foresee and are unwilling to consider what +opportunities might present themselves, what combinations might offer to +protect ourselves against designs inimical to our form of government. The +United States desire to act in the future as they have ever acted +heretofore; they never will be driven from that course but by the +aggression of European powers, and we rely on the wisdom and justice of +those powers to respect the system of noninterference which has so long +been sanctioned by time, and which by its good results has approved itself +to both continents. + +The correspondence between the United States and France in reference to +questions which have become subjects of discussion between the two +Governments will at a proper time be laid before Congress. + +When, on the organization of our Government under the Constitution, the +President of the United States delivered his inaugural address to the two +Houses of Congress, he said to them, and through them to the country and to +mankind, that-- The preservation of the sacred fire of liberty and the +destiny of the republican model of government are justly + +considered, perhaps, as deeply, as finally, staked on the experiment +intrusted to the hands of the American + +people. And the House of Representatives answered Washington by the voice +of Madison: We adore the Invisible Hand which has led the American people, +through so many difficulties, to cherish a + +conscious responsibility for the destiny of republican liberty. More than +seventy-six years have glided away since these words were spoken; the +United States have passed through severer trials than were foreseen; and +now, at this new epoch in our existence as one nation, with our Union +purified by sorrows and strengthened by conflict and established by the +virtue of the people, the greatness of the occasion invites us once more to +repeat with solemnity the pledges of our fathers to hold ourselves +answerable before our fellow-men for the success of the republican form of +government. Experience has proved its sufficiency in peace and in war; it +has vindicated its authority through dangers and afflictions, and sudden +and terrible emergencies, which would have crushed any system that had been +less firmly fixed in the hearts of the people. At the inauguration of +Washington the foreign relations of the country were few and its trade was +repressed by hostile regulations; now all the civilized nations of the +globe welcome our commerce, and their governments profess toward us amity. +Then our country felt its way hesitatingly along an untried path, with +States so little bound together by rapid means of communication as to be +hardly known to one another, and with historic traditions extending over +very few years; now intercourse between the States is swift and intimate; +the experience of centuries has been crowded into a few generations, and +has created an intense, indestructible nationality. Then our jurisdiction +did not reach beyond the inconvenient boundaries of the territory which had +achieved independence; now, through cessions of lands, first colonized by +Spain and France, the country has acquired a more complex character, and +has for its natural limits the chain of lakes, the Gulf of Mexico, and on +the east and the west the two great oceans. Other nations were wasted by +civil wars for ages before they could establish for themselves the +necessary degree of unity; the latent conviction that our form of +government is the best ever known to the world has enabled us to emerge +from civil war within four years with a complete vindication of the +constitutional authority of the General Government and with our local +liberties and State institutions unimpaired. + +The throngs of emigrants that crowd to our shores are witnesses of the +confidence of all peoples in our permanence. Here is the great land of free +labor, where industry is blessed with unexampled rewards and the bread of +the workingman is sweetened by the consciousness that the cause of the +country "is his own cause, his own safety, his own dignity." Here everyone +enjoys the free use of his faculties and the choice of activity as a +natural right. Here, under the combined influence of a fruitful soil, +genial climes, and happy institutions, population has increased +fifteen-fold within a century. Here, through the easy development of +boundless resources, wealth has increased with twofold greater rapidity +than numbers, so that we have become secure against the financial +vicissitudes of other countries and, alike in business and in opinion, are +self-centered and truly independent. Here more and more care is given to +provide education for everyone born on our soil. Here religion, released +from political connection with the civil government, refuses to subserve +the craft of statesmen, and becomes in its independence the spiritual life +of the people. Here toleration is extended to every opinion, in the quiet +certainty that truth needs only a fair field to secure the victory. Here +the human mind goes forth unshackled in the pursuit of science, to collect +stores of knowledge and acquire an ever-increasing mastery over the forces +of nature. Here the national domain is offered and held in millions of +separate freeholds, so that our fellow-citizens, beyond the occupants of +any other part of the earth, constitute in reality a people. Here exists +the democratic form of government; and that form of government, by the +confession of European statesmen," gives a power of which no other form is +capable, because it incorporates every man with the state and arouses +everything that belongs to the soul." + +Where in past history. does a parallel exist to the public happiness which +is within the reach of the people of the United States? Where in any part +of the globe can institutions be found so suited to their habits or so +entitled to their love as their own free Constitution? Every one of them, +then, in whatever part of the land he has his home, must wish its +perpetuity. Who of them will not now acknowledge, in the words of +Washington, that "every step by which the people of the United States have +advanced to the character of an independent nation seems to have been +distinguished by some token of providential agency"? Who will not join with +me in the prayer that the Invisible Hand which has led us through the +clouds that gloomed around our path will so guide us onward to a perfect +restoration of fraternal affection that we of this day may be able to +transmit our great inheritance of State governments in all their rights, of +the General Government in its whole constitutional vigor, to our posterity, +and they to theirs through countless generations? + +*** + +State of the Union Address +Andrew Johnson +December 3, 1866 + +Fellow-Citizens of the Senate and House of Representatives: + +After a brief interval the Congress of the United States resumes its annual +legislative labors. An all-wise and merciful Providence has abated the +pestilence which visited our shores, leaving its calamitous traces upon +some portions of our country. Peace, order, tranquillity, and civil +authority have been formally declared to exist throughout the whole of the +United States. In all of the States civil authority has superseded the +coercion of arms, and the people, by their voluntary action, are +maintaining their governments in full activity and complete operation. The +enforcement of the laws is no longer "obstructed in any State by +combinations too powerful to be suppressed by the ordinary course of +judicial proceedings," and the animosities engendered by the war are +rapidly yielding to the beneficent influences of our free institutions and +to the kindly effects of unrestricted social and commercial intercourse. An +entire restoration of fraternal feeling must be the earnest wish of every +patriotic heart; and we will have accomplished our grandest national +achievement when, forgetting the sad events of the past and remembering +only their instructive lessons, we resume our onward career as a free, +prosperous, and united people. + +In my message of the 4th of December, 1865, Congress was informed of the +measures which had been instituted by the Executive with a view to the +gradual restoration of the States in which the insurrection occurred to +their relations with the General Government. Provisional governors had been +appointed, conventions called, governors elected, legislatures assembled, +and Senators and Representatives chosen to the Congress of the United +States. Courts had been opened for the enforcement of laws long in +abeyance. The blockade had been removed, custom-houses reestablished, and +the internal-revenue laws put in force, in order that the people might +contribute to the national income. Postal operations had been renewed, and +efforts were being made to restore them to their former condition of +efficiency. The States themselves had been asked to take Dart in the high +function of amending the Constitution, and of thus sanctioning the +extinction of African slavery as one of the legitimate results of our +internecine struggle. + +Having progressed thus far, the executive department found that it had +accomplished nearly all that was within the scope of its constitutional +authority. One thing, however, yet remained to be done before the work of +restoration could be completed, and that was the admission to Congress of +loyal Senators and Representatives from the States whose people had +rebelled against the lawful authority of the General Government. This +question devolved upon the respective Houses, which by the Constitution are +made the judges of the elections, returns, and qualifications of their own +members, and its consideration at once engaged the attention of Congress. + +In the meantime the executive department--no other plan having been +proposed by Congress--continued its efforts to perfect, as far as was +practicable, the restoration of the proper relations between the citizens +of the respective States, the States, and the Federal Government, extending +from time to time, as the public interests seemed to require, the judicial, +revenue, and postal systems of the country. With the advice and consent of +the Senate, the necessary officers were appointed and appropriations made +by Congress for the payment of their salaries. The proposition to amend the +Federal Constitution, so as to prevent the existence of slavery within the +United States or any place subject to their jurisdiction, was ratified by +the requisite number of States, and on the 18th day of December, 1865, it +was officially declared to have become valid as a part of the Constitution +of the United States. All of the States in which the insurrection had +existed promptly amended their constitutions so as to make them conform to +the great change thus effected in the organic law of the land; declared +null and void all ordinances and laws of secession; repudiated all +pretended debts and obligations created for the revolutionary purposes of +the insurrection, and proceeded in good faith to the enactment of measures +for the protection and amelioration of the condition of the colored race. +Congress, however, yet hesitated to admit any of these States to +representation, and it was not until toward the close of the eighth month +of the session that an exception was made in favor of Tennessee by the +admission of her Senators and Representatives. + +I deem it a subject of profound regret that Congress has thus far failed to +admit to seats loyal Senators and Representatives from the other States +whose inhabitants, with those of Tennessee, had engaged in the rebellion. +Ten States--more than one-fourth of the whole number--remain without +representation; the seats of fifty members in the House of Representatives +and of twenty members in the Senate are yet vacant, not by their own +consent, not by a failure of election, but by the refusal of Congress to +accept their credentials. Their admission, it is believed, would have +accomplished much toward the renewal and strengthening of our relations as +one people and removed serious cause for discontent on the part of the +inhabitants of those States. It would have accorded with the great +principle enunciated in the Declaration of American Independence that no +people ought to bear the burden of taxation and yet be denied the right of +representation. It would have been in consonance with the express +provisions of the Constitution that "each State shall have at least one +Representative" and "that no State, without its consent, shall be deprived +of its equal suffrage in the Senate." These provisions were intended to +secure to every State and to the people of every State the right of +representation in each House of Congress; and so important was it deemed by +the framers of the Constitution that the equality of the States in the +Senate should be preserved that not even by an amendment of the +Constitution can any State, without its consent, be denied a voice in that +branch of the National Legislature. + +It is true it has been assumed that the existence of the States was +terminated by the rebellious acts of their inhabitants, and that, the +insurrection having been suppressed, they were thenceforward to be +considered merely as conquered territories. The legislative, executive, and +judicial departments of the Government have, however, with Heat +distinctness and uniform consistency, refused to sanction an assumption so +incompatible with the nature of our republican system and with the +professed objects of the war. Throughout the recent legislation of Congress +the undeniable fact makes itself apparent that these ten political +communities are nothing less than States of this Union. At the very +commencement of the rebellion each House declared, with a unanimity as +remarkable as it was significant, that the war was not "waged upon our part +in any spirit of oppression, nor for any purpose of conquest or +subjugation, nor purpose of overthrowing or interfering with the rights or +established institutions of those States, but to defend and maintain the +supremacy of the Constitution and all laws made in pursuance thereof, and +to preserve the Union, with all the dignity, equality, and rights of the +several States unimpaired; and that as soon as these objects" were +"accomplished the war ought to cease." In some instances Senators were +permitted to continue their legislative functions, while in other instances +Representatives were elected and admitted to seats after their States had +formally declared their right to withdraw from the Union and were +endeavoring to maintain that right by force of arms. All of the States +whose people were in insurrection, as States, were included in the +apportionment of the direct tax of $20,000,000 annually laid upon the +United States by the act approved 5th August, 1861. Congress, by the act of +March 4, 1862, and by the apportionment of representation thereunder also +recognized their presence as States in the Union; and they have, for +judicial purposes, been divided into districts, as States alone can be +divided. The same recognition appears in the recent legislation in +reference to Tennessee, which evidently rests upon the fact that the +functions of the State were not destroyed by the rebellion, but merely +suspended; and that principle is of course applicable to those States +which, like Tennessee, attempted to renounce their places in the Union. + +The action of the executive department of the Government upon this subject +has been equally definite and uniform, and the purpose of the war was +specifically stated in the proclamation issued by my predecessor on the 22d +day of September, 1862. It was then solemnly proclaimed and declared "that +hereafter, as heretofore, the war will be prosecuted for the object of +practically restoring the constitutional relation between the United States +and each of the States and the people thereof in which States that relation +is or may be suspended or disturbed." + +The recognition of the States by the judicial department of the Government +has also been dear and conclusive in all proceedings affecting them as +States had in the Supreme, circuit, and district courts. In the admission +of Senators and Representatives from any and all of the States there can be +no just ground of apprehension that persons who are disloyal will be +clothed with the powers of legislation, for this could not happen when the +Constitution and the laws are enforced by a vigilant and faithful Congress. +Each House is made the "judge of the elections, returns, and qualifications +of its own members," and may, "with the concurrence of two-thirds, expel a +member." When a Senator or Representative presents his certificate of +election, he may at once be admitted or rejected; or, should there be any +question as to his eligibility, his credentials may be referred for +investigation to the appropriate committee. If admitted to a seat, it must +be upon evidence satisfactory to the House of which he thus becomes a +member that he possesses the requisite constitutional and legal +qualifications. If refused admission as a member for want of due allegiance +to the Government and returned to his constituents, they are admonished +that none but persons loyal to the United States will be allowed a voice in +the legislative councils of the nation, and the political power and moral +influence of Congress are thus effectively exerted in the interests of +loyalty to the Government and fidelity to the Union. Upon this question, so +vitally affecting the restoration of the Union and the permanency of our +present form of government, my convictions, heretofore expressed, have +undergone no change, but, on the contrary, their correctness has been +confirmed by reflection and time. If the admission of loyal members to +seats in the respective Houses of Congress was wise and expedient a year +ago, it is no less wise and expedient now. If this anomalous condition is +right now--if in the exact condition of these States at the present time it +is lawful to exclude them from representation--I do not see that the +question will be changed by the efflux of time. Ten years hence. if these +States remain as they are, the right of representation will be no stronger, +the right of exclusion will be no weaker. + +The Constitution of the United States makes it the duty of the President to +recommend to the consideration of Congress "such measures as he shall judge +necessary and expedient." I know of no measure more imperatively demanded +by every consideration of national interest, sound policy, and equal +justice than the admission of loyal members from the now unrepresented +States. This would consummate the work of restoration and exert a most +salutary influence in the reestablishment of peace, harmony, and fraternal +feeling. It would tend greatly to renew the confidence of the American +people in the vigor and stability of their institutions. It would bind us +more closely together as a nation and enable us to show to the world the +inherent and recuperative power of a government founded upon the will of +the people and established upon the principles of liberty, justice, and +intelligence. Our increased strength and enhanced prosperity would +irrefragably demonstrate the fallacy of the arguments against free +institutions drawn from our recent national disorders by the enemies of +republican government. The admission of loyal members from the States now +excluded from Congress, by allaying doubt and apprehension, would turn +capital now awaiting an opportunity for investment into the channels of +trade and industry. It would alleviate the present troubled condition of +those States, and by inducing emigration aid in the settlement of fertile +regions now uncultivated and lead to an increased production of those +staples which have added so greatly to the wealth of the nation and +commerce of the world. New fields of enterprise would be opened to our +progressive people and soon the devastations of war would be repaired and +all traces of our domestic differences effaced from the minds of our +countrymen. + +In our efforts to preserve "the unity of government which constitutes as +one people" by restoring the States to the condition which they held prior +to the rebellion, we should be cautious, lest, having rescued our nation +from perils of threatened disintegration, we resort to consolidation, and +in the end absolute despotism, as a remedy for the recurrence of similar +troubles. The war having terminated, and with it all occasion for the +exercise of powers of doubtful constitutionality, we should hasten to bring +legislation within the boundaries prescribed by the Constitution and to +return to the ancient landmarks established by our fathers for the guidance +of succeeding generations. The constitution which at any time exists till +changed by an explicit and authentic act of the whole people is + +sacredly obligatory upon all. If in the opinion of the people the +distribution or modification of the + +constitutional powers be in any particular wrong, let it be corrected by an +amendment in the way which the + +Constitution designates; but let there be no change by usurpation, for it +is the customary weapon by which + +free governments are destroyed. Washington spoke these words to his +countrymen when, followed by their love and gratitude, he voluntarily +retired from the cares of public life. "To keep in all things within the +pale of our constitutional powers and cherish the Federal Union as the only +rock of safety" were prescribed by Jefferson as rules of action to endear +to his "countrymen the true principles of their Constitution and promote a +union of sentiment and action, equally auspicious to their happiness and +safety." Jackson held that the action of the General Government should +always be strictly confined to the sphere of its appropriate duties, and +justly and forcibly urged that our Government is not to be maintained nor +our Union preserved "by invasions of the rights and powers of the several +States. In thus attempting to make our General Government strong we make it +weak. Its true strength consists in leaving individuals and States as much +as possible to themselves; in making itself felt, not in its power, but in +its beneficence; not in its control, but in its protection; not in binding +the States more closely to the center, but leaving each to move +unobstructed in its proper constitutional orbit." These are the teachings +of men whose deeds and services have made them illustrious, and who, long +since withdrawn from the scenes of life, have left to their country the +rich legacy of their example, their wisdom, and their patriotism. Drawing +fresh inspiration from their lessons, let us emulate them in love of +country and respect for the Constitution and the laws. + +The report of the Secretary of the Treasury affords much information +respecting the revenue and commerce of the country. His views upon the +currency and with reference to a proper adjustment of our revenue system, +internal as well as impost, are commended to the careful consideration of +Congress. In my last annual message I expressed my general views upon these +subjects. I need now only call attention to the necessity of carrying into +every department of the Government a system of rigid accountability, +thorough retrenchment, and wise economy. With no exceptional nor unusual +expenditures, the oppressive burdens of taxation can be lessened by such a +modification of our revenue laws as will be consistent with the public +faith and the legitimate and necessary wants of the Government. + +The report presents a much more satisfactory condition of our finances than +one year ago the most sanguine could have anticipated. During the fiscal +year ending the 30th June, 1865 (the last year of the war), the public debt +was increased $941,902,537, and on the 31st of October, 1865, it amounted +to $2,740,854,750. On the 31st day of October, 1866, it had been reduced to +$2,552,310,006, the diminution during a period of fourteen months, +commencing September 1, 1865, and ending October 31, 1866, having been +$206,379,565. In the last annual report on the state of the finances it was +estimated that during the three quarters of the fiscal year ending the 30th +of June last the debt would be increased $112,194,947. During that period, +however, it was reduced $31,196,387, the receipts of the year having been +$89,905,905 more and the expenditures $200,529,235 less than the estimates. +Nothing could more clearly indicate than these statements the extent and +availability of the national resources and the rapidity and safety with +which under our form of government, great military and naval establishments +can be disbanded and expenses reduced from a war to a peace footing. + +During the fiscal year ending June 30, 1866, the receipts were $558,032,620 +and the expenditures $520,750,940, leaving an available surplus of +$37,281,680. It is estimated that the receipts for the fiscal year ending +the 30th June, 1867, will be $475,061.386, and that the expenditures will +reach the sum of $316,428,078, leaving in the Treasury a surplus of +$158,633,308. For the fiscal year ending June 30, 1886, it is estimated +that the receipts will amount to $436,000,000 and that the expenditures +will be $350,247,641, showing an excess of $85,752,359 in favor of the +Government. These estimated receipts may be diminished by a reduction of +excise and import duties, but after all necessary reductions shall have +been made the revenue of the present and of following years will doubtless +be sufficient to cover all legitimate charges upon the Treasury and leave a +large annual surplus to be applied to the payment of the principal of the +debt. There seems now to be no good reason why taxes may not be reduced as +the country advances in population and wealth, and yet the debt be +extinguished within the next quarter of a century. + +The report of the Secretary of War furnishes valuable and important +information in reference to the operations of his Department during the +past year. Few volunteers now remain in the service, and they are being +discharged as rapidly as they can be replaced by regular troops. The Army +has been promptly paid, carefully provided with medical treatment, well +sheltered and subsisted, and is to be furnished with breech-loading small +arms. The military strength of the nation has been unimpaired by the +discharge of volunteers, the disposition of unserviceable or perishable +stores, and the retrenchment of expenditure. Sufficient war material to +meet any emergency has been retained, and from the disbanded volunteers +standing ready to respond to the national call large armies can be rapidly +organized, equipped, and concentrated. Fortifications on the coast and +frontier have received or are being prepared for more powerful armaments; +lake surveys and harbor and river improvements are in course of energetic +prosecution. Preparations have been made for the payment of the additional +bounties authorized during the recent session of Congress, under such +regulations as will protect the Government from fraud and secure to the +honorably discharged soldier the well-earned reward of his faithfulness and +gallantry. More than 6,000 maimed soldiers have received artificial limbs +or other surgical apparatus. and 41 national cemeteries, containing the +remains of 104,526 Union soldiers, have already been established. The total +estimate of military appropriations is $25,205,669. + +It is stated in the report of the Secretary of the Navy that the naval +force at this time consists of 278 vessels, armed with 2,351 guns. Of +these, 115 vessels, carrying 1,029 guns, are in commission, distributed +chiefly among seven squadrons. The number of men in the service is 13,600. +Great activity and vigilance have been displayed by all the squadrons, and +their movements have been judiciously and efficiently arranged in such +manner as would best promote American commerce and protect the rights and +interests of our countrymen abroad. The vessels unemployed are undergoing +repairs or are laid up until their services may be required. Most of the +ironclad fleet is at League Island, in the vicinity of Philadelphia, a +place which, until decisive action should be taken by Congress, was +selected by the Secretary of the Navy as the most eligible location for +that class of vessels. It is important that a suitable public station +should be provided for the ironclad fleet. It is intended that these +vessels shall be in proper condition for any emergency, and it is desirable +that the bill accepting League Island for naval purposes, which passed the +House of Representatives at its last session, should receive final action +at an early period, in order that there may be a suitable public station +for this class of vessels, as well as a navy-yard of area sufficient for +the wants of the service on the Delaware River. The naval pension fund +amounts to $11,750,000, having been increased $2,750,000 during the year. +The expenditures of the Department for the fiscal year ending 30th June +last were $43,324,526, and the estimates for the coming year amount to +$23,568,436. Attention is invited to the condition of our seamen and the +importance of legislative measures for their relief and improvement. The +suggestions in behalf of this deserving class of our fellow-citizens are +earnestly recommended to the favorable attention of Congress. + +The report of the Postmaster-General presents a most satisfactory condition +of the postal service and submits recommendations which deserve the +consideration of Congress. The revenues of the Department for the year +ending June 30, 1866, were $14,386,986 and the expenditures $15,352,079, +showing an excess of the latter of $965,093. In anticipation of this +deficiency, however, a special appropriation was made by Congress in the +act approved July 28, 1866. Including the standing appropriation of +$700,000 for free mail matter as a legitimate portion of the revenues, yet +remaining unexpended, the actual deficiency for the past year is only +$265,093--a sum within $51,141 of the amount estimated in the annual report +of 1864. The decrease of revenue compared with the previous year was 1 1/5 +per cent, and the increase of expenditures, owing principally to the +enlargement of the mail service in the South, was 12 per cent. On the 30th +of June last there were in operation 6,930 mail routes, with an aggregate +length of 180,921 miles, an aggregate annual transportation of 71,837,914 +miles, and an aggregate annual cost, including all expenditures, of +$8,410,184. The length of railroad routes is 32,092 miles and the annual +transportation 30,609,467 miles. The length of steamboat routes is 14,346 +miles and the annual transportation 3,411,962 miles. The mail servce is +rapidly increasing throughout the whole country, and its steady extension +in the Southern States indicates their constantly improving condition. The +growing importance of the foreign service also merits attention. The +post-office department of Great Britain and our own have agreed upon a +preliminary basis for a new postal convention, which it is believed will +prove eminently beneficial to the commercial interests of the United +States, inasmuch as it contemplates a reduction of the international letter +postage to one-half the existing rates: a reduction of postage with all +other countries to and from which correspondence is transmitted in the +British mail, or in closed mails through the United Kingdom; the +establishment of uniform and reasonable charges for the sea and territorial +transit of correspondence in closed mails; and an allowance to each +post-office department of the right to use all mail communications +established under the authority of the other for the dispatch of +correspondence, either in open or closed mails, on the same terms as those +applicable to the inhabitants of the country providing the means of +transmission. + +The report of the Secretary of the Interior exhibits the condition of those +branches of the public service which are committed to his supervision. +During the last fiscal year 4,629,312 acres of public land were disposed +of, 1,892,516 acres of which were entered under the homestead act. The +policy originally adopted relative to the public lands has undergone +essential modifications. Immediate revenue, and not their rapid settlement, +was the cardinal feature of our land system. Long experience and earnest +discussion have resulted in the conviction that the early development of +our agricultural resources and the diffusion of an energetic population +over our vast territory are objects of far greater importance to the +national growth and prosperity than the proceeds of the sale of the land to +the highest bidder in open market. The preemption laws confer upon the +pioneer who complies with the terms they impose the privilege of purchasing +a limited portion of "unoffered lands" at the minimum price. The homestead +enactments relieve the settler from the payment of purchase money, and +secure him a permanent home upon the condition of residence for a term of +years. This liberal policy invites emigration from the Old and from the +more crowded portions of the New World. Its propitious results are +undoubted, and will be more signally manifested when time shall have given +to it a wider development. + +Congress has made liberal grants of public land to corporations in aid of +the construction of railroads and other internal improvements. Should this +policy hereafter prevail, more stringent provisions will be required to +secure a faithful application of the fund. The title to the lands should +not pass, by patent or otherwise, but remain in the Government and subject +to its control until some portion of the road has been actually built. +Portions of them might then from time to time be conveyed to the +corporation, but never in a greater ratio to the whole quantity embraced by +the grant than the completed parts bear to the entire length of the +projected improvement. This restriction would not operate to the prejudice +of any undertaking conceived in good faith and executed with reasonable +energy, as it is the settled practice to withdraw from market the lands +falling within the operation of such grants, and thus to exclude the +inception of a subsequent adverse right. A breach of the conditions which +Congress may deem proper to impose should work a forfeiture of claim to the +lands so withdrawn but unconveyed, and of title to the lands conveyed which +remain unsold. + +Operations on the several lines of the Pacific Railroad have been +prosecuted with unexampled vigor and success. Should no unforeseen causes +of delay occur, it is confidently anticipated that this great thoroughfare +will be completed before the expiration of the period designated by +Congress. + +During the last fiscal year the amount paid to pensioners, including the +expenses of disbursement, was $13,459,996, and 50,177 names were added to +the pension rolls. The entire number of pensioners June 30, 1866, was +126,722. This fact furnishes melancholy and striking proof of the +sacrifices made to vindicate the constitutional authority of the Federal +Government and to maintain inviolate the integrity of the Union They impose +upon us corresponding obligations. It is estimated that $33,000,000 will be +required to meet the exigencies of this branch of the service during the +next fiscal year. + +Treaties have been concluded with the Indians, who, enticed into armed +opposition to our Government at the outbreak of the rebellion, have +unconditionally submitted to our authority and manifested an earnest desire +for a renewal of friendly relations. + +During the year ending September 30, 1866, 8,716 patents for useful +inventions and designs were issued, and at that date the balance in the +Treasury to the credit of the patent fund was $228,297. + +As a subject upon which depends an immense amount of the production and +commerce of the country, I recommend to Congress such legislation as may be +necessary for the preservation of the levees of the Mississippi River. It +is a matter of national importance that early steps should be taken, not +only to add to the efficiency of these barriers against destructive +inundations, but for the removal of all obstructions to the free and safe +navigation of that great channel of trade and commerce. + +The District of Columbia under existing laws is not entitled to that +representation in the national councils which from our earliest history has +been uniformly accorded to each Territory established from time to time +within our limits. It maintains peculiar relations to Congress, to whom the +Constitution has granted the power of exercising exclusive legislation over +the seat of Government. Our fellow-citizens residing in the District, whose +interests are thus confided to the special guardianship of Congress, exceed +in number the population of several of our Territories, and no just reason +is perceived why a Delegate of their choice should not be admitted to a +seat in the House of Representatives. No mode seems so appropriate and +effectual of enabling them to make known their peculiar condition and wants +and of securing the local legislation adapted to them. I therefore +recommend the passage of a law authorizing the electors of the District of +Columbia to choose a Delegate, to be allowed the same rights and privileges +as a Delegate representing a Territory. The increasing enterprise and rapid +progress of improvement in the District are highly gratifying, and I trust +that the efforts of the municipal authorities to promote the prosperity of +the national metropolis will receive the efficient and generous cooperation +of Congress. + +The report of the Commissioner of Agriculture reviews the operations of his +Department during the past year, and asks the aid of Congress in its +efforts to encourage those States which, scourged by war, are now earnestly +engaged in the reorganization of domestic industry. + +It is a subject of congratulation that no foreign combinations against our +domestic peace and safety or our legitimate influence among the nations +have been formed or attempted. While sentiments of reconciliation, loyalty, +and patriotism have increased at home, a more just consideration of our +national character and rights has been manifested by foreign nations. + +The entire success of the Atlantic telegraph between the coast of Ireland +and the Province of Newfoundland is an achievement which has been justly +celebrated in both hemispheres as the opening of an era in the progress of +civilization. There is reason to expect that equal success will attend and +even greater results follow the enterprise for connecting the two +continents through the Pacific Ocean by the projected line of telegraph +between Kamchatka and the Russian possessions in America. + +The resolution of Congress protesting against pardons by foreign +governments of persons convicted of infamous offenses on condition of +emigration to our country has been communicated to the states with which we +maintain intercourse, and the practice, so justly the subject of complaint +on our part, has not been renewed. + +The congratulations of Congress to the Emperor of Russia upon his escape +from attempted assassination have been presented to that humane and +enlightened ruler and received by him with expressions of grateful +appreciation. + +The Executive, warned of an attempt by Spanish American adventurers to +induce the emigration of freedmen of the United States to a foreign +country, protested against the project as one which, if consummated, would +reduce them to a bondage even more oppressive than that from which they +have just been relieved. Assurance has been received from the Government of +the State in which the plan was matured that the proceeding will meet +neither its encouragement nor approval. It is a question worthy of your +consideration whether our laws upon this subject are adequate to the +prevention or punishment of the crime thus meditated. + +In the month of April last, as Congress is aware, a friendly arrangement +was made between the Emperor of France and the President of the United +States for the withdrawal from Mexico of the French expeditionary military +forces. This withdrawal was to be effected in three detachments, the first +of which, it was understood, would leave Mexico in November, now past, the +second in March next, and the third and last in November, 1867. Immediately +upon the completion of the evacuation the French Government was to assume +the same attitude of nonintervention in regard to Mexico as is held by the +Government of the United States. Repeated assurances have been given by the +Emperor since that agreement that he would complete the promised evacuation +within the period mentioned, or sooner. + +It was reasonably expected that the proceedings thus contemplated would +produce a crisis of great political interest in the Republic of Mexico. The +newly appointed minister of the United States, Mr. Campbell, was therefore +sent forward on the 9th day of November last to assume his proper functions +as minister plenipotentiary of the United States to that Republic. It was +also thought expedient that he should be attended in the vicinity of Mexico +by the Lieutenant-General of the Army of the United States, with the view +of obtaining such information as might be important to determine the course +to be pursued by the United States in reestablishing and maintaining +necessary and proper intercourse with the Republic of Mexico. Deeply +interested in the cause of liberty and humanity, it seemed an obvious duty +on our part to exercise whatever influence we possessed for the restoration +and permanent establishment in that country of a domestic and republican +form of government. + +Such was the condition of our affairs in regard to Mexico when, on the 22d +of November last, official information was received from Paris that the +Emperor of France had some time before decided not to withdraw a detachment +of his forces in the month of November past, according to engagement, but +that this decision was made with the purpose of withdrawing the whole of +those forces in the ensuing spring. Of this determination, however, the +United States had not received any notice or intimation, and so soon as the +information was received by the Government care was taken to make known its +dissent to the Emperor of France. + +I can not forego the hope that France will reconsider the subject and adopt +some resolution in regard to the evacuation of Mexico which will conform as +nearly as practicable with the existing engagement, and thus meet the just +expectations of the United States. The papers relating to the subject will +be laid before you. It is believed that with the evacuation of Mexico by +the expeditionary forces no subject for serious differences between France +and the United States would remain. The expressions of the Emperor and +people of France warrant a hope that the traditionary friendship between +the two countries might in that case be renewed and permanently restored. + +A claim of a citizen of the United States for indemnity for spoliations +committed on the high seas by the French authorities in the exercise of a +belligerent power against Mexico has been met by the Government of France +with a proposition to defer settlement until a mutual convention for the +adjustment of all claims of citizens and subjects of both countries arising +out of the recent wars on this continent shall be agreed upon by the two +countries. The suggestion is not deemed unreasonable. but it belongs to +Congress to direct the manner in which claims for indemnity by foreigners +as well as by citizens of the United States arising out of the late civil +war shall be adjudicated and determined. I have no doubt that the subject +of all such claims will engage your attention at a convenient and proper +time. + +It is a matter of regret that no considerable advance has been made toward +an adjustment of the differences between the United States and Great +Britain arising out of the depredations upon our national commerce and +other trespasses committed during our civil war by British subjects, in +violation of international law and treaty obligations. The delay, however, +may be believed to have resulted in no small degree from the domestic +situation of Great Britain. An entire change of ministry occurred in that +country during the last session of Parliament. The attention of the new +ministry was called to the subject at an early day, and there is some +reason to expect that it will now be considered in a becoming and friendly +spirit. The importance of an early disposition of the question can not be +exaggerated. Whatever might be the wishes of the two Governments, it is +manifest that good will and friendship between the two countries can not be +established until a reciprocity in the practice of good faith and +neutrality shall be restored between the respective nations. + +On the 6th of June last, in violation of our neutrality laws, a military +expedition and enterprise against the British North American colonies was +projected and attempted to be carried on within the territory and +jurisdiction of the United States. In obedience to the obligation imposed +upon the Executive by the Constitution to see that the laws are faithfully +executed, all citizens were warned by proclamation against taking part in +or aiding such unlawful proceedings, and the proper civil, military, and +naval officers were directed to take all necessary measures for the +enforcement of the laws. The expedition failed, but it has not been without +its painful consequences. Some of our citizens who, it was alleged, were +engaged in the expedition were captured, and have been brought to trial as +for a capital offense in the Province of Canada. Judgment and sentence of +death have been pronounced against some, while others have been acquitted. +Fully believing in the maxim of government that severity of civil +punishment for misguided persons who have engaged in revolutionary attempts +which have disastrously failed is unsound and unwise, such representations +have been made to the British Government in behalf of the convicted persons +as, being sustained by an enlightened and humane judgment, will, it is +hoped, induce in their cases an exercise of clemency and a judicious +amnesty to all who were engaged in the movement. Counsel has been employed +by the Government to defend citizens of the United States on trial for +capital offenses in Canada, and a discontinuance of the prosecutions which +were instituted in the courts of the United States against those who took +part in the expedition has been directed. + +I have regarded the expedition as not only political in its nature, but as +also in a great measure foreign from the United States in its causes, +character, and objects. The attempt was understood to be made in sympathy +with an insurgent party in Ireland, and by striking at a British Province +on this continent was designed to aid in obtaining redress for political +grievances which, it was assumed, the people of Ireland had suffered at the +hands of the British Government during a period of several centuries. The +persons engaged in it were chiefly natives of that country, some of whom +had, while others had not, become citizens of the United States under our +general laws of naturalization. Complaints of misgovernment in Ireland +continually engage the attention of the British nation, and so great an +agitation is now prevailing in Ireland that the British Government have +deemed it necessary to suspend the writ of habeas corpus in that country. +These circumstances must necessarily modify the opinion which we might +otherwise have entertained in regard to an expedition expressly prohibited +by our neutrality laws. So long as those laws remain upon our statute books +they should be faithfully executed, and if they operate harshly, unjustly, +or oppressively Congress alone can apply the remedy by their modification +or repeal. + +Political and commercial interests of the United States are not unlikely to +be affected in some degree by events which are transpiring in the eastern +regions of Europe, and the time seems to have come when our Government +ought to have a proper diplomatic representation in Greece. + +This Government has claimed for all persons not convicted or accused or +suspected of crime an absolute political right of self-expatriation and a +choice of new national allegiance. Most of the European States have +dissented from this principle, and have claimed a right to hold such of +their subjects as have emigrated to and been naturalized in the United +States and afterwards returned on transient visits to their native +countries to the performance of military service in like manner as resident +subjects. Complaints arising from the claim in this respect made by foreign +states have heretofore been matters of controversy between the United +States and some of the European powers, and the irritation consequent upon +the failure to settle this question increased during the war in which +Prussia, Italy, and Austria were recently engaged. While Great Britain has +never acknowledged the right of expatriation, she has not for some years +past practically insisted upon the opposite doctrine. France has been +equally forbearing, and Prussia has proposed a compromise, which, although +evincing increased liberality, has not been accepted by the United States. +Peace is now prevailing everywhere in Europe, and the present seems to be a +favorable time for an assertion by Congress of the principle so long +maintained by the executive department that naturalization by one state +fully exempts the native-born subject of any other state from the +performance of military service under any foreign government, so long as he +does not voluntarily renounce its rights and benefits. + +In the performance of a duty imposed upon me by the Constitution I have +thus submitted to the representatives of the States and of the people such +information of our domestic and foreign affairs as the public interests +seem to require. Our Government is now undergoing its most trying ordeal, +and my earnest prayer is that the peril may be successfully and finally +passed without impairing its original strength and symmetry. The interests +of the nation are best to be promoted by the revival of fraternal +relations, the complete obliteration of our past differences, and the +reinauguration of all the pursuits of peace. Directing our efforts to the +early accomplishment of these great ends, let us endeavor to preserve +harmony between the coordinate departments of the Government, that each in +its proper sphere may cordially cooperate with the other in securing the +maintenance of the Constitution, the preservation of the Union, and the +perpetuity of our free institutions. + +*** + +State of the Union Address +Andrew Johnson +December 3, 1867 + +Fellow-Citizens of the Senate and House of Representatives: + +The continued disorganization of the Union, to which the President has so +often called the attention of Congress, is yet a subject of profound and +patriotic concern. We may, however, find some relief from that anxiety in +the reflection that the painful political situation, although before +untried by ourselves, is not new in the experience of nations. Political +science, perhaps as highly perfected in our own time and country as in any +other, has not yet disclosed any means by which civil wars can be +absolutely prevented. An enlightened nation, however, with a wise and +beneficent constitution of free government, may diminish their frequency +and mitigate their severity by directing all its proceedings in accordance +with its fundamental law. + +When a civil war has been brought to a close, it is manifestly the first +interest and duty of the state to repair the injuries which the war has +inflicted, and to secure the benefit of the lessons it teaches as fully and +as speedily as possible. This duty was, upon the termination of the +rebellion, promptly accepted not only by the executive department, but by +the insurrectionary States themselves, and restoration in the first moment +of peace was believed to be as easy and certain as it was indispensable. +The expectations, however, then so reasonably and confidently entertained +were disappointed by legislation from which I felt constrained by my +obligations to the Constitution to withhold my assent. + +It is therefore a source of profound regret that in complying with the +obligation imposed upon the President by the Constitution to give to +Congress from time to time information of the state of the Union I am +unable to communicate any definitive adjustment satisfactory to the +American people, of the questions which since the close of the rebellion +have agitated the public mind. On the contrary, candor compels me to +declare that at this time there is no Union as our fathers understood the +term, and as they meant it to be understood by us. The Union which they +established can exist only where all the States are represented in both +Houses of Congress; where one State is as free as another to regulate its +internal concerns according to its own will, and where the laws of the +central Government, strictly confined to matters of national jurisdiction, +apply with equal force to all the people of every section. That such is not +the present "state of the Union" is a melancholy fact, and we must all +acknowledge that the restoration of the States to their proper legal +relations with the Federal Government and with one another, according to +the terms of the original compact, would be the greatest temporal blessing +which God, in His kindest providence, could bestow upon this nation. It +becomes our imperative duty to consider whether or not it is impossible to +effect this most desirable consummation. + +The Union and the Constitution are inseparable. As long as one is obeyed by +all parties, the other will be preserved; and if one is destroyed, both +must perish together. The destruction of the Constitution will be followed +by other and still greater calamities. It was ordained not only to form a +more perfect union between the States, but to "establish justice, insure +domestic tranquillity, provide for the common defense, promote the general +welfare, and secure the blessings of liberty to ourselves and our +posterity." Nothing but implicit obedience to its requirements in all parts +of the country will accomplish these great ends. Without that obedience we +can look forward only to continual outrages upon individual rights, +incessant breaches of the public peace, national weakness, financial +dishonor, the total loss of our prosperity, the general corruption of +morals, and the final extinction of popular freedom. To save our country +from evils so appalling as these, we should renew our efforts again and +again. + +To me the process of restoration seems perfectly plain and simple. It +consists merely in a faithful application of the Constitution and laws. The +execution of the laws is not now obstructed or opposed by physical force. +There is no military or other necessity, real or pretended, which can +prevent obedience to the Constitution, either North or South. All the +rights and all the obligations of States and individuals can be protected +and enforced by means perfectly consistent with the fundamental law. The +courts may be everywhere open, and if open their process would be +unimpeded. Crimes against the United States can be prevented or punished by +the proper judicial authorities in a manner entirely practicable and legal. +There is therefore no reason why the Constitution should not be obeyed, +unless those who exercise its powers have determined that it shall be +disregarded and violated. The mere naked will of this Government, or of +some one or more of its branches, is the only obstacle that can exist to a +perfect union of all the States. + +On this momentous question and some of the measures growing out of it I +have had the misfortune to differ from Congress, and have expressed my +convictions without reserve, though with becoming deference to the opinion +of the legislative department. Those convictions are not only unchanged, +but strengthened by subsequent events and further reflection The +transcendent importance of the subject will be a sufficient excuse for +calling your attention to some of the reasons which have so strongly +influenced my own judgment. The hope that we may all finally concur in a +mode of settlement consistent at once with our true interests and with our +sworn duties to the Constitution is too natural and too just to be easily +relinquished. + +It is clear to my apprehension that the States lately in rebellion are +still members of the National Union. When did they cease to be so? The +"ordinances of secession" adopted by a portion (in most of them a very +small portion) of their citizens were mere nullities. If we admit now that +they were valid and effectual for the purpose intended by their authors, we +sweep from under our feet the whole ground upon which we justified the war. +Were those States afterwards expelled from the Union by the war? The direct +contrary was averred by this Government to be its purpose, and was so +understood by all those who gave their blood and treasure to aid in its +prosecution. It can not be that a successful war, waged for the +preservation of the Union, had the legal effect of dissolving it. The +victory of the nation's arms was not the disgrace of her policy; the defeat +of secession on the battlefield was not the triumph of its lawless +principle. Nor could Congress, with or without the consent of the +Executive, do anything which would have the effect, directly or indirectly, +of separating the States from each other. To dissolve the Union is to +repeal the Constitution which holds it together, and that is a power which +does not belong to any department of this Government, or to all of them +united. + +This is so plain that it has been acknowledged by all branches of the +Federal Government. The Executive (my predecessor as well as myself) and +the heads of all the Departments have uniformly acted upon the principle +that the Union is not only undissolved, but indissoluble. Congress +submitted an amendment of the Constitution to be ratified by the Southern +States, and accepted their acts of ratification as a necessary and lawful +exercise of their highest function. If they were not States, or were States +out of the Union, their consent to a change in the fundamental law of the +Union would have been nugatory, and Congress in asking it committed a +political absurdity. The judiciary has also given the solemn sanction of +its authority to the same view of the case. The judges of the Supreme Court +have included the Southern States in their circuits, and they are +constantly, in banc and elsewhere, exercising jurisdiction which does not +belong to them unless those States are States of the Union. + +If the Southern States are component parts of the Union, the Constitution +is the supreme law for them, as it is for all the other States. They are +bound to obey it, and so are we. The right of the Federal Government, which +is clear and unquestionable. to enforce the Constitution upon them implies +the correlative obligation on our part to observe its limitations and +execute its guaranties. Without the Constitution we are nothing; by, +through, and under the Constitution we are what it makes us. We may doubt +the wisdom of the law, we may not approve of its provisions, but we can not +violate it merely because it seems to confine our powers within limits +narrower than we could wish. It is not a question of individual or class or +sectional interest, much less of party predominance, but of duty--of high +and sacred duty--which we are all sworn to perform. If we can not support +the Constitution with the cheerful alacrity of those who love and believe +in it, we must give to it at least the fidelity of public servants who act +under solemn obligations and commands which they dare not disregard. + +The constitutional duty is not the only one which requires the States to be +restored. There is another consideration which, though of minor importance, +is yet of great weight. On the 22d day of July, 1861, Congress declared by +an almost unanimous vote of both Houses that the war should be conducted +solely for the purpose of preserving the Union and maintaining the +supremacy of the Federal Constitution and laws, without impairing the +dignity, equality, and rights of the States or of individuals. and that +when this was done the war should cease. I do not say that this declaration +is personally binding on those who joined in making it, any more than +individual members of Congress are personally bound to pay a public debt +created under a law for which they voted. But it was a solemn. public, +official pledge of the national honor, and I can not imagine upon what +grounds the repudiation of it is to be justified. If it be said that we are +not bound to keep faith with rebels, let it be remembered that this promise +was not made to rebels only. Thousands of true men in the South were drawn +to our standard by it, and hundreds of thousands in the North gave their +lives in the belief that it would be carried out. It was made on the day +after the first great battle of the war had been fought and lost. All +patriotic and intelligent men then saw the necessity of giving such an +assurance, and believed that without it the war would end in disaster to +our cause. Having given that assurance in the extremity of our peril, the +violation of it now, in the day of our power, would be a rude rending of +that good faith which holds the moral world together; our country would +cease to have any claim upon the confidence of men; it would make the war +not only a failure, but a fraud. + +Being sincerely convinced that these views are correct, I would be +unfaithful to my duty if I did not recommend the repeal of the acts of +Congress which place ten of the Southern States under the domination of +military masters. If calm reflection shall satisfy a majority of your +honorable bodies that the acts referred to are not only a violation of the +national faith, but in direct conflict with the Constitution, I dare not +permit myself to doubt that you will immediately strike them from the +statute book. + +To demonstrate the unconstitutional character of those acts I need do no +more than refer to their general provisions. It must be seen at once that +they are not authorized. To dictate what alterations shall be made in the +constitutions of the several States; to control the elections of State +legislators and State officers, members of Congress and electors of +President and Vice-President, by arbitrarily declaring who shall vote and +who shall be excluded from that privilege; to dissolve State legislatures +or prevent them from assembling; to dismiss judges and other civil +functionaries of the State and appoint others without regard to State law; +to organize and operate all the political machinery of the States; to +regulate the whole administration of their domestic and local affairs +according to the mere will of strange and irresponsible agents, sent among +them for that purpose--these are powers not granted to the Federal +Government or to any one of its branches. Not being granted, we violate our +trust by assuming them as palpably as we would by acting in the face of a +positive interdict; for the Constitution forbids us to do whatever it does +not affirmatively authorize, either by express words or by clear +implication. If the authority we desire to use does not come to us through +the Constitution, we can exercise it only by usurpation, and usurpation is +the most dangerous of political crimes. By that crime the enemies of free +government in all ages have worked out their designs against public liberty +and private right. It leads directly and immediately to the establishment +of absolute rule, for undelegated power is always unlimited and +unrestrained. + +The acts of Congress in question are not only objectionable for their +assumption of ungranted power, but many of their provisions are in conflict +with the direct prohibitions of the Constitution. The Constitution commands +that a republican form of government shall be guaranteed to all the States; +that no person shall be deprived of life, liberty, or property without due +process of law, arrested without a judicial warrant, or punished without a +fair trial before an impartial jury; that the privilege of habeas corpus +shall not be denied in time of peace, and that no bill of attainder shall +be passed even against a single individual. Yet the system of measures +established by these acts of Congress does totally subvert and destroy the +form as well as the substance of republican government in the ten States to +which they apply. It binds them hand and foot in absolute slavery, and +subjects them to a strange and hostile power, more unlimited and more +likely to be abused than any other now known among civilized men. It +tramples down all those rights in which the essence of liberty consists, +and which a free government is always most careful to protect. It denies +the habeas corpus and the trial by jury. Personal freedom, property, and +life, if assailed by the passion, the prejudice, or the rapacity of the +ruler, have no security whatever. It has the effect of a bill of attainder +or bill of pains and penalties, not upon a few individuals, but upon whole +masses, including the millions who inhabit the subject States, and even +their unborn children. These wrongs, being expressly forbidden, can not be +constitutionally inflicted upon any portion of our people, no matter how +they may have come within our jurisdiction, and no matter whether they live +in States, Territories, or districts. + +I have no desire to save from the proper and just consequences of their +great crime those who engaged in rebellion against the Government, but as a +mode of punishment the measures under consideration are the most +unreasonable that could be invented. Many of those people are perfectly +innocent; many kept their fidelity to the Union untainted to the last; many +were incapable of any legal offense; a large proportion even of the persons +able to bear arms were forced into rebellion against their will, and of +those who are guilty with their own consent the degrees of guilt are as +various as the shades of their character and temper. But these acts of +Congress confound them all together in one common doom. Indiscriminate +vengeance upon classes, sects, and parties, or upon whole communities, for +offenses committed by a portion of them against the governments to which +they owed obedience was common in the barbarous ages of the world; but +Christianity and civilization have made such progress that recourse to a +punishment so cruel and unjust would meet with the condemnation of all +unprejudiced and right-minded men. The punitive justice of this age, and +especially of this country, does not consist in stripping whole States of +their liberties and reducing all their people, without distinction, to the +condition of slavery. It deals separately with each individual, confines +itself to the forms of law, and vindicates its own purity by an impartial +examination of every case before a competent judicial tribunal. If this +does not satisfy all our desires with regard to Southern rebels, let us +console ourselves by reflecting that a free Constitution, triumphant in war +and unbroken in peace, is worth far more to us and our children than the +gratification of any present feeling. + +I am aware it is assumed that this system of government for the Southern +States is not to be perpetual. It is true this military government is to be +only provisional, but it is through this temporary evil that a greater evil +is to be made perpetual. If the guaranties of the Constitution can be +broken provisionally to serve a temporary purpose, and in a part only of +the country, we can destroy them everywhere and for all time. Arbitrary +measures often change, but they generally change for the worse. It is the +curse of despotism that it has no halting place. The intermitted exercise +of its power brings no sense of security to its subjects, for they can +never know what more they will be called to endure when its red right hand +is armed to plague them again. Nor is it possible to conjecture how or +where power, unrestrained by law, may seek its next victims. The States +that are still free may be enslaved at any moment; for if the Constitution +does not protect all, it protects none. + +It is manifestly and avowedly the object of these laws to confer upon +Negroes the privilege of voting and to disfranchise such a number of white +citizens as will give the former a clear majority at all elections in the +Southern States. This, to the minds of some persons, is so important that a +violation of the Constitution is justified as a means of bringing it about. +The morality is always false which excuses a wrong because it proposes to +accomplish a desirable end. We are not permitted to do evil that good may +come. But in this case the end itself is evil, as well as the means. The +subjugation of the States to Negro domination would be worse than the +military despotism under which they are now suffering. It was believed +beforehand that the people would endure any amount of military oppression +for any length of time rather than degrade themselves by subjection to the +Negro race. Therefore they have been left without a choice. Negro suffrage +was established by act of Congress, and the military officers were +commanded to superintend the process of clothing the Negro race with the +political privileges torn from white men. + +The blacks in the South are entitled to be well and humanely governed, and +to have the protection of just laws for all their rights of person and +property. If it were practicable at this time to give them a Government +exclusively their own, under which they might manage their own affairs in +their own way, it would become a grave question whether we ought to do so, +or whether common humanity would not require us to save them from +themselves. But under the circumstances this is only a speculative point. +It is not proposed merely that they shall govern themselves, but that they +shall rule the white race, make and administer State laws, elect Presidents +and members of Congress, and shape to a greater or less extent the future +destiny of the whole country. Would such a trust and power be safe in such +hands? + +The peculiar qualities which should characterize any people who are fit to +decide upon the management of public affairs for a great state have seldom +been combined. It is the glory of white men to know that they have had +these qualities in sufficient measure to build upon this continent a great +political fabric and to preserve its stability for more than ninety years, +while in every other part of the world all similar experiments have failed. +But if anything can be proved by known facts, if all reasoning upon +evidence is not abandoned, it must be acknowledged that in the progress of +nations Negroes have shown less capacity for government than any other race +of people. No independent government of any form has ever been successful +in their hands. On the contrary, wherever they have been left to their own +devices they have shown a constant tendency to relapse into barbarism. In +the Southern States, however, Congress has undertaken to confer upon them +the privilege of the ballot. Just released from slavery, it may be doubted +whether as a class they know more than their ancestors how to organize and +regulate civil society. indeed, it is admitted that the blacks of the South +are not only regardless of the rights of property, but so utterly ignorant +of public affairs that their voting can consist in nothing more than +carrying a ballot to the place where they are directed to deposit it. I +need not remind you that the exercise of the elective franchise is the +highest attribute of an American citizen, and that when guided by virtue, +intelligence, patriotism, and a proper appreciation of our free +institutions it constitutes the true basis of a democratic form of +government, in which the sovereign power is lodged in the body of the +people. A trust artificially created, not for its own sake, but solely as a +means of promoting the general welfare, its influence for good must +necessarily depend upon the elevated character and true allegiance of the +elector. It ought, therefore, to be reposed in none except those who are +fitted morally and mentally to administer it well; for if conferred upon +persons who do not justly estimate its value and who are indifferent as to +its results, it will only serve as a means of placing power in the hands of +the unprincipled and ambitious, and must eventuate in the complete +destruction of that liberty of which it should be the most powerful +conservator. I have therefore heretofore urged upon your attention the +great danger-- to be apprehended from an untimely extension of the elective +franchise to any new class in our country, + +especially when the large majority of that class, in wielding the power +thus placed in their hands, can not be + +expected correctly to comprehend the duties and responsibilities which +pertain to suffrage. Yesterday, as it + +were, 4,000,000 persons were held in a condition of slavery that had +existed for generations; to-day they are + +freemen and are assumed by law to be citizens. It can not be presumed, from +their previous condition of + +servitude, that as a class they are as well informed as to the nature of +our Government as the intelligent + +foreigner who makes our land the home of his choice. In the case of the +latter neither a residence of five years + +and the knowledge of our institutions which it gives nor attachment to the +principles of the Constitution are the + +only conditions upon which he can be admitted to citizenship; he must prove +in addition a good moral character, + +and thus give reasonable ground for the belief that he will be faithful to +the obligations which he assumes as a + +citizen of the Republic. Where a people--the source of all political +power--speak by their suffrages through the + +instrumentality of the ballot box, it must be carefully guarded against the +control of those who are corrupt in + +principle and enemies of free institutions, for it can only become to our +political and social system a safe + +conductor of healthy popular sentiment when kept free from demoralizing +influences. Controlled + +through fraud and usurpation by the designing, anarchy and despotism must +inevitably follow. In the hands of + +the patriotic and worthy our Government will be preserved upon the +principles of the Constitution inherited + +from our fathers. It follows, therefore, that in admitting to the ballot +box a new class of voters not qualified for + +the exercise of the elective franchise we weaken our system of government +instead of adding to its strength + +and durability. + +I yield to no one in attachment to that rule of general suffrage which +distinguishes our policy as a nation. But + +there is a limit, wisely observed hitherto, which makes the ballot a +privilege and a trust, and which requires of + +some classes a time suitable for probation and preparation. To give it +indiscriminately to a new class, wholly + +unprepared by previous habits and opportunities to perform the trust which +it demands, is to degrade it, and + +finally to destroy its power, for it may be safely assumed that no +political truth is better established than that + +such indiscriminate and all-embracing extension of popular suffrage must +end at last in its destruction. I repeat the expression of my willingness +to join in any plan within the scope of our constitutional authority which +promises to better the condition of the Negroes in the South, by +encouraging them in industry, enlightening their minds, improving their +morals, and giving protection to all their just rights as freedmen. But the +transfer of our political inheritance to them would, in my opinion, be an +abandonment of a duty which we owe alike to the memory of our fathers and +the rights of our children. + +The plan of putting the Southern States wholly and the General Government +partially into the hands of Negroes is proposed at a time peculiarly +unpropitious. The foundations of society have been broken up by civil war. +Industry must be reorganized, justice reestablished, public credit +maintained, and order brought out of confusion. To accomplish these ends +would require all the wisdom and virtue of the great men who formed our +institutions originally. I confidently believe that their descendants will +be equal to the arduous task before them, but it is worse than madness to +expect that Negroes will perform it for us. Certainly we ought not to ask +their assistance till we despair of our own competency. + +The great difference between the two races in physical, mental, and moral +characteristics will prevent an amalgamation or fusion of them together in +one homogeneous mass. If the inferior obtains the ascendency over the +other, it will govern with reference only to its own interests for it will +recognize no common interest--and create such a tyranny as this continent +has never yet witnessed. Already the Negroes are influenced by promises of +confiscation and plunder. They are taught to regard as an enemy every white +man who has any respect for the rights of his own race. If this continues +it must become worse and worse, until all order will be subverted, all +industry cease, and the fertile fields of the South grow up into a +wilderness. Of all the dangers which our nation has yet encountered, none +are equal to those which must result from the success of the effort now +making to Africanize the half of our country. + +I would not put considerations of money in competition with justice and +right; but the expenses incident to "reconstruction" under the system +adopted by Congress aggravate what I regard as the intrinsic wrong of the +measure itself. It has cost uncounted millions already, and if persisted in +will add largely to the weight of taxation, already too oppressive to be +borne without just complaint, and may finally reduce the Treasury of the +nation to a condition of bankruptcy. We must not delude ourselves. It will +require a strong standing army and probably more than $200,000,000 per +annum to maintain the supremacy of Negro governments after they are +established. The sum thus thrown away would, if properly used, form a +sinking fund large enough to pay the whole national debt in less than +fifteen years. It is vain to hope that Negroes will maintain their +ascendency themselves. Without military power they are wholly incapable of +holding in subjection the white people of the South. + +I submit to the judgment of Congress whether the public credit may not be +injuriously affected by a system of measures like this. With our debt and +the vast private interests which are complicated with it, we can not be too +cautious of a policy which might by possibility impair the confidence of +the world in our Government. That confidence can only be retained by +carefully inculcating the principles of justice and honor on the popular +mind and by the most scrupulous fidelity to all our engagements of every +sort. Any serious breach of the organic law, persisted in for a +considerable time, can not but create fears for the stability of our +institutions. Habitual violation of prescribed rules, which we bind +ourselves to observe, must demoralize the people. Our only standard of +civil duty being set at naught, the sheet anchor of our political morality +is lost, the public conscience swings from its moorings and yields to every +impulse of passion and interest. If we repudiate the Constitution, we will +not be expected to care much for mere pecuniary obligations. The violation +of such a pledge as we made on the 22d day of July, 1861, will assuredly +diminish the market value of our other promises. Besides, if we acknowledge +that the national debt was created, not to hold the States in the Union, as +the taxpayers were led to suppose, but to expel them from it and hand them +over to be governed by Negroes, the moral duty to pay it may seem much less +clear. I say it may seem so, for I do not admit that this or any other +argument in favor of repudiation can be entertained as sound; but its +influence on some classes of minds may well be apprehended. The financial +honor of a great commercial nation, largely indebted and with a republican +form of government administered by agents of the popular choice, is a thing +of such delicate texture and the destruction of it would be followed by +such unspeakable calamity that every true patriot must desire to avoid +whatever might expose it to the slightest danger. + +The great interests of the country require immediate relief from these +enactments. Business in the South is paralyzed by a sense of general +insecurity, by the terror of confiscation, and the dread of Negro +supremacy. The Southern trade, from which the North would have derived so +great a profit under a government of law, still languishes, and can never +be revived until it ceases to be fettered by the arbitrary power which +makes all its operations unsafe. That rich country--the richest in natural +resources the world ever saw--is worse than lost if it be not soon placed +under the protection of a free constitution. Instead of being, as it ought +to be, a source of wealth and power, it will become an intolerable burden +upon the rest of the nation. + +Another reason for retracing our steps will doubtless be seen by Congress +in the late manifestations of public opinion upon this subject. We live in +a country where the popular will always enforces obedience to itself, +sooner or later. It is vain to think of opposing it with anything short of +legal authority backed by overwhelming force. It can not have escaped your +attention that from the day on which Congress fairly and formally presented +the proposition to govern the Southern States by military force, with a +view to the ultimate establishment of Negro supremacy, every expression of +the general sentiment has been more or less adverse to it. The affections +of this generation can not be detached from the institutions of their +ancestors. Their determination to preserve the inheritance of free +government in their own hands and transmit it undivided and unimpaired to +their own posterity is too strong to be successfully opposed. Every weaker +passion will disappear before that love of liberty and law for which the +American people are distinguished above all others in the world. + +How far the duty of the President "to preserve, protect, and defend the +Constitution" requires him to go in opposing an unconstitutional act of +Congress is a very serious and important question, on which I have +deliberated much and felt extremely anxious to reach a proper conclusion. +Where an act has been passed according to the forms of the Constitution by +the supreme legislative authority, and is regularly enrolled among the +public statutes of the country, Executive resistance to it, especially in +times of high party excitement, would be likely to produce violent +collision between the respective adherents of the two branches of the +Government. This would be simply civil war, and civil war must be resorted +to only as the last remedy for the worst of evils. Whatever might tend to +provoke it should be most carefully avoided. A faithful and conscientious +magistrate will concede very much to honest error, and something even to +perverse malice, before he will endanger the public peace; and he will not +adopt forcible measures, or such as might lead to force, as long as those +which are peaceable remain open to him or to his constituents. It is true +that cases may occur in which the Executive would be compelled to stand on +its rights, and maintain them regardless of all consequences. If Congress +should pass an act which is not only in palpable conflict with the +Constitution, but will certainly, if carried out, produce immediate and +irreparable injury to the organic structure of the Government, and if there +be neither judicial remedy for the wrongs it inflicts nor power in the +people to protect themselves without the official aid of their elected +defender--if, for instance, the legislative department should pass an act +even through all the forms of law to abolish a coordinate department of the +Government--in such a case the President must take the high +responsibilities of his office and save the life of the nation at all +hazards. The so-called reconstruction acts, though as plainly +unconstitutional as any that can be imagined, were not believed to be +within the class last mentioned. The people were not wholly dis-armed of +the power of self-defense. In all the Northern States they still held in +their hands the sacred right of the ballot, and it was safe to believe that +in due time they would come to the rescue of their own institutions. It +gives me pleasure to add that the appeal to our common constituents was not +taken in vain, and that my confidence in their wisdom and virtue seems not +to have been misplaced. + +It is well and publicly known that enormous frauds have been perpetrated on +the Treasury and that colossal fortunes have been made at the public +expense. This species of corruption has increased, is increasing, and if +not diminished will soon bring us into total ruin and disgrace. The public +creditors and the taxpayers are alike interested in an honest +administration of the finances, and neither class will long endure the +large-handed robberies of the recent past. For this discreditable state of +things there are several causes. Some of the taxes are so laid as to +present an irresistible temptation to evade payment. The great sums which +officers may win by connivance at fraud create a pressure which is more +than the virtue of many can withstand, and there can be no doubt that the +open disregard of constitutional obligations avowed by some of the highest +and most influential men in the country has greatly weakened the moral +sense of those who serve in subordinate places. The expenses of the United +States, including interest on the public debt, are more than six times as +much as they were seven years ago. To collect and disburse this vast amount +requires careful supervision as well as systematic vigilance. The system, +never perfected, was much disorganized by the "tenure-of-office bill," +which has almost destroyed official accountability. The President may be +thoroughly convinced that an officer is incapable, dishonest, or unfaithful +to the Constitution, but under the law which I have named the utmost he can +do is to complain to the Senate and ask the privilege of supplying his +place with a better man. If the Senate be regarded as personally or +politically hostile to the President, it is natural, and not altogether +unreasonable, for the officer to expect that it will take his part as far +as possible, restore him to his place, and give him a triumph over his +Executive superior. The officer has other chances of impunity arising from +accidental defects of evidence, the mode of investigating it, and the +secrecy of the hearing. It is not wonderful that official malfeasance +should become bold in proportion as the delinquents learn to think +themselves safe. I am entirely persuaded that under such a rule the +President can not perform the great duty assigned to him of seeing the laws +faithfully executed, and that it disables him most especially from +enforcing that rigid accountability which is necessary to the due execution +of the revenue laws. + +The Constitution invests the President with authority to decide whether a +removal should be made in any given case; the act of Congress declares in +substance that he shall only accuse such as he supposes to be unworthy of +their trust. The Constitution makes him sole judge in the premises, but the +statute takes away his jurisdiction, transfers it to the Senate, and leaves +him nothing but the odious and sometimes impracticable duty of becoming a +prosecutor. The prosecution is to be conducted before a tribunal whose +members are not, like him, responsible to the whole people, but to separate +constituent bodies, and who may hear his accusation with great disfavor. +The Senate is absolutely without any known standard of decision applicable +to such a case. Its judgment can not be anticipated, for it is not governed +by any rule. The law does not define what shall be deemed good cause for +removal. It is impossible even to conjecture what may or may not be so +considered by the Senate. The nature of the subject forbids clear proof. If +the charge be incapacity, what evidence will support it? Fidelity to the +Constitution may be understood or misunderstood in a thousand different +ways, and by violent party men, in violent party times, unfaithfulness to +the Constitution may even come to be considered meritorious. If the officer +be accused of dishonesty, how shall it be made out? Will it be inferred +from acts unconnected with public duty, from private history, or from +general reputation, or must the President await the commission of an actual +misdemeanor in office? Shall he in the meantime risk the character and +interest of the nation in the hands of men to whom he can not give his +confidence? Must he forbear his complaint until the mischief is done and +can not be prevented? If his zeal in the public service should impel him to +anticipate the overt act, must he move at the peril of being tried himself +for the offense of slandering his subordinate? In the present circumstances +of the country someone must be held responsible for official delinquency of +every kind. It is extremely difficult to say where that responsibility +should be thrown if it be not left where it has been placed by the +Constitution. But all just men will admit that the President ought to be +entirely relieved from such responsibility if he can not meet it by reason +of restrictions placed by law upon his action. + +The unrestricted power of removal from office is a very great one to be +trusted even to a magistrate chosen by the general suffrage of the whole +people and accountable directly to them for his acts. It is undoubtedly +liable to abuse, and at some periods of our history perhaps has been +abused. If it be thought desirable and constitutional that it should be so +limited as to make the President merely a common informer against other +public agents, he should at least be permitted to act in that capacity +before some open tribunal, independent of party politics, ready to +investigate the merits of every case, furnished with the means of taking +evidence, and bound to decide according to established rules. This would +guarantee the safety of the accuser when he acts in good faith, and at the +same time secure the rights of the other party. I speak, of course, with +all proper respect for the present Senate, but it does not seem to me that +any legislative body can be so constituted as to insure its fitness for +these functions. + +It is not the theory of this Government that public offices are the +property of those who hold them. They are given merely as a trust for the +public benefit, sometimes for a fixed period, sometimes during good +behavior, but generally they are liable to be terminated at the pleasure of +the appointing power, which represents the collective majesty and speaks +the will of the people. The forced retention in office of a single +dishonest person may work great injury to the public interests. The danger +to the public service comes not from the power to remove, but from the +power to appoint. Therefore it was that the framers of the Constitution +left the power of removal unrestricted, while they gave the Senate a fight +to reject all appointments which in its opinion were not fit to be made. A +little reflection on this subject will probably satisfy all who have the +good of the country at heart that our best course is to take the +Constitution for our guide, walk in the path marked out by the founders of +the Republic, and obey the rules made sacred by the observance of our great +predecessors. + +The present condition of our finances and circulating medium is one to +which your early consideration is invited. + +The proportion which the currency of any country should bear to the whole +value of the annual produce circulated by its means is a question upon +which political economists have not agreed. Nor can it be controlled by +legislation, but must be left to the irrevocable laws which everywhere +regulate commerce and trade. The circulating medium will ever irresistibly +flow to those points where it is in greatest demand. The law of demand and +supply is as unerring as that which regulates the tides of the ocean; and, +indeed, currency, like the tides, has its ebbs and flows throughout the +commercial world. + +At the beginning of the rebellion the bank-note circulation of the country +amounted to not much more than $200,000,000; now the circulation of +national-bank notes and those known as "legal-tenders" is nearly seven +hundred millions. While it is urged by some that this amount should be +increased, others contend that a decided reduction is absolutely essential +to the best interests of the country. In view of these diverse opinions, it +may be well to ascertain the real value of our paper issues when compared +with a metallic or convertible currency. For this purpose let us inquire +how much gold and silver could be purchased by the seven hundred millions +of paper money now in circulation. Probably not more than half the amount +of the latter, showing that when our paper currency is compared with gold +and silver its commercial value is compressed into three hundred and fifty +millions. This striking fact makes it the obvious duty of the Government, +as early as may be consistent with the principles of sound political +economy, to take such measures as will enable the holder of its notes and +those of the national banks to convert them without loss into specie or its +equivalent. A reduction of our paper circulating medium need not +necessarily follow. This, however, would depend upon the law of demand and +supply, though it should be borne in mind that by making legal-tender and +bank notes convertible into coin or its equivalent their present specie +value in the hands of their holders would be enhanced 100 per cent. + +Legislation for the accomplishment of a result so desirable is demanded by +the highest public considerations. The Constitution contemplates that the +circulating medium of the country shall be uniform in quality and value. At +the time of the formation of that instrument the country had just emerged +from the War of the Revolution, and was suffering from the effects of a +redundant and worthless paper currency. The sages of that period were +anxious to protect their posterity from the evils that they themselves had +experienced. Hence in providing a circulating medium they conferred upon +Congress the power to coin money and regulate the value thereof, at the +same time prohibiting the States from making anything but gold and silver a +tender in payment of debts. + +The anomalous condition of our currency is in striking contrast with that +which was originally designed. Our circulation now embraces, first, notes +of the national banks, which are made receivable for all dues to the +Government, excluding imposts, and by all its creditors, excepting in +payment of interest upon its bonds and the securities themselves; second, +legal-tender notes, issued by the United States, and which the law requires +shall be received as well in payment of all debts between citizens as of +all Government dues, excepting imposts; and, third. gold and silver coin. +By the operation of our present system of finance, however, the metallic +currency, when collected, is reserved only for one class of Government +creditors, who, holding its bonds, semiannually receive their interest in +coin from the National Treasury. They are thus made to occupy an invidious +position, which may be used to strengthen the arguments of those who would +bring into disrepute the obligations of the nation. In the payment of all +its debts the plighted faith of the Government should be inviolably +maintained. But while it acts with fidelity toward the bondholder who +loaned his money that the integrity of the Union might be preserved, it +should at the same time observe good faith with the great masses of the +people, who, having rescued the Union from the perils of rebellion, now +bear the burdens of taxation, that the Government may be able to fulfill +its engagements. There is no reason which will be accepted as satisfactory +by the people why those who defend us on the land and protect us on the +sea; the pensioner upon the gratitude of the nation, bearing the scars and +wounds received while in its service; the public servants in the various +Departments of the Government; the farmer who supplies the soldiers of the +Army and the sailors of the Navy; the artisan who toils in the nation's +workshops, or the mechanics and laborers who build its edifices and +construct its forts and vessels of war, should, in payment of their just +and hard-earned dues, receive depreciated paper, while another class of +their countrymen, no more deserving, are paid in coin of gold and silver. +Equal and exact justice requires that all the creditors of the Government +should be paid in a currency possessing a uniform value. This can only be +accomplished by the restoration of the currency to the standard established +by the Constitution; and by this means we would remove a discrimination +which may, if it has not already done so, create a prejudice that may +become deep rooted and widespread and imperil the national credit. + +The feasibility of making our currency correspond with the constitutional +standard may be seen by reference to a few facts derived from our +commercial statistics. + +The production of precious metals in the United States from 1849 to 1857, +inclusive, amounted to $579,000,000; from 1858 to 1860, inclusive, to +$137,500,000, and from 1861 to 1867, inclusive, to $457,500,000--making the +grand aggregate of products since 1849 $1,174,000,000. The amount of specie +coined from 1849 to 1857 inclusive, was $439,000,000; from 1858 to 1860, +inclusive, $125,000,000, and from 1861 to 1867, inclusive, +$310,000,000--making the total coinage since 1849 $874,000,000. From 1849 +to 1857, inclusive, the net exports of specie amounted to $271,000,000; +from 1858 to 1860, inclusive, to $148,000,000, and from 1861 to 1867, +inclusive, $322,000,000--making the aggregate of net exports since 1849 +$741,000,000. These figures show an excess of product over net exports of +$433,000,000. There are in the Treasury $111,000,000 in coin, something +more than $40,000,000 in circulation on the Pacific Coast, and a few +millions in the national and other banks--in all about $160,000,000. This, +however, taking into account the specie in the country prior to 1849 leaves +more than $300,000,000 which have not been accounted for by exportation, +and therefore may yet remain in the country. + +These are important facts and show how completely the inferior currency +will supersede the better, forcing it from circulation among the masses and +causing it to be exported as a mere article of trade, to add to the money +capital of foreign lands. They show the necessity of retiring our paper +money, that the return of gold and silver to the avenues of trade may be +invited and a demand created which will cause the retention at home of at +least so much of the productions of our rich and inexhaustible gold-bearing +fields as may be sufficient for purposes of circulation. It is unreasonable +to expect a return to a sound currency so long as the Government by +continuing to issue irredeemable notes fills the channels of circulation +with depreciated paper. Notwithstanding a coinage by our mints, since 1849, +of $874,000,000, the people are now strangers to the currency which was +designed for their use and benefit, and specimens of the precious metals +bearing the national device are seldom seen, except when produced to +gratify the interest excited by their novelty. If depreciated paper is to +be continued as the permanent currency of the country, and all our coin is +to become a mere article of traffic and speculation, to the enhancement in +price of all that is indispensable to the comfort of the people, it would +be wise economy to abolish our mints thus saving the nation the care and +expense incident to such establishments, and let all our precious metals be +exported in bullion. The time has come, however, when the Government and +national banks should be required to take the most efficient steps and make +all necessary arrangements for a resumption of specie payments at the +earliest practicable period. Specie payments having been once resumed by +the Government and banks, all notes or bills of paper issued by either of a +less denomination than $20 should by law be excluded from circulation, so +that the people may have the benefit and convenience of a gold and silver +currency which in all their business transactions will be uniform in value +at home and abroad. Every man of property or industry, every man who +desires to preserve what he honestly possesses or to obtain + +what he can honestly earn, has a direct interest in maintaining a safe +circulating medium--such a medium as + +shall be real and substantial, not liable to vibrate with opinions, not +subject to be blown up or blown down by the + +breath of speculation, but to be made stable and secure. A disordered +currency is one of the greatest political + +evils. It undermines the virtues necessary for the support of the social +system and encourages propensities + +destructive of its happiness; it wars against industry, frugality, and +economy, and it fosters the evil spirits of + +extravagance and speculation. It has been asserted by one of our profound +and most gifted statesmen that-- Of all the contrivances for cheating the +laboring classes of mankind, none has been more effectual than that + +which deludes them with paper money. This is the most effectual of +inventions to fertilize the rich man's fields + +by the sweat of the poor man's brow. Ordinary tyranny, oppression, +excessive taxation--these bear lightly on + +the happiness of the mass of the community compared with a fraudulent +currency and the robberies committed + +by depreciated paper. Our own history has recorded for our instruction +enough, and more than enough, of the + +demoralizing tendency, the injustice, and the intolerable oppression on the +virtuous and well disposed of a + +degraded paper currency authorized by law or in any way countenanced by +government. It is one of the most successful devices, in times of peace or +war, expansions or revulsions, to accomplish the transfer of all the +precious metals from the great mass of the people into the hands of the +few, where they are hoarded in secret places or deposited in strong boxes +under bolts and bars, while the people are left to endure all the +inconvenience, sacrifice, and demoralization resulting from the use of a +depreciated and worthless paper money. + +The condition of our finances and the operations of our revenue system are +set forth and fully explained in the able and instructive report of the +Secretary of the Treasury. On the 30th of June, 1866, the public debt +amounted to $2,783,425,879; on the 30th of June last it was $2,692,199,215, +showing a reduction during the fiscal year of $91,226,664. During the +fiscal year ending June 30, 1867, the receipts were $490,634,010 and the +expenditures $346,729,129, leaving an available surplus of $143,904,880. It +is estimated that the receipts for the fiscal year ending June 30, 1868, +will be $417,161,928 and that the expenditures will reach the sum of +$393,269,226, leaving in the Treasury a surplus of $23,892,702. For the +fiscal year ending June 30, 1869, it is estimated that the receipts will +amount to $381,000,000 and that the expenditures will be $372,000,000, +showing an excess of $9,000,000 in favor of the Government. + +The attention of Congress is earnestly invited to the necessity of a +thorough revision of our revenue system. Our internal-revenue laws and +impost system should be so adjusted as to bear most heavily on articles of +luxury, leaving the necessaries of life as free from taxation as may be +consistent with the real wants of the Government, economically +administered. Taxation would not then fall unduly on the man of moderate +means; and while none would be entirely exempt from assessment, all, in +proportion to their pecuniary abilities, would contribute toward the +support of the State. A modification of the internal-revenue system, by a +large reduction in the number of articles now subject to tax, would be +followed by results equally advantageous to the citizen and the Government. +It would render the execution of the law less expensive and more certain, +remove obstructions to industry, lessen the temptations to evade the law, +diminish the violations and frauds perpetrated upon its provisions, make +its operations less inquisitorial, and greatly reduce in numbers the army +of taxgatherers created by the system, who "take from the mouth of honest +labor the bread it has earned." Retrenchment, reform, and economy should be +carried into every branch of the public service, that the expenditures of +the Government may be reduced and the people relieved from oppressive +taxation; a sound currency should be restored, and the public faith in +regard to the national debt sacredly observed. The accomplishment of these +important results, together with the restoration of the Union of the States +upon the principles of the Constitution, would inspire confidence at home +and abroad in the stability of our institutions and bring to the nation +prosperity, peace, and good will. + +The report of the Secretary of War ad interim exhibits the operations of +the Army and of the several bureaus of the War Department. The aggregate +strength of our military force on the 30th of September last was 56,315. +The total estimate for military appropriations is $77,124,707, including a +deficiency in last year's appropriation of $13,600,000. The payments at the +Treasury on account of the service of the War Department from January 1 to +October 29, 1867--a period of ten months--amounted to $109,807,000. The +expenses of the military establishment, as well as the numbers of the Army, +are now three times as great as they have ever been in time of peace, while +the discretionary, power is vested in the Executive to add millions to this +expenditure by an increase of the Army to the maximum strength allowed by +the law. + +The comprehensive report of the Secretary of the Interior furnishes +interesting information in reference to the important branches of the +public service connected with his Department. The menacing attitude of some +of the warlike bands of Indians inhabiting the district of country between +the Arkansas and Platte rivers and portions of Dakota Territory required +the presence of a large military force in that region. Instigated by real +or imaginary grievances, the Indians occasionally committed acts of +barbarous violence upon emigrants and our frontier settlements; but a +general Indian war has been providentially averted. The commissioners under +the act of 20th July, 1867, were invested with full power to adjust +existing difficulties, negotiate treaties with the disaffected bands, and +select for them reservations remote from the traveled routes between the +Mississippi and the Pacific. They entered without delay upon the execution +of their trust, but have not yet made any official report of their +proceedings. It is of vital importance that our distant Territories should +be exempt from Indian outbreaks, and that the construction of the Pacific +Railroad, an object of national importance, should not be interrupted by +hostile tribes. These objects, as well as the material interests and the +moral and intellectual improvement of the Indians, can be most effectually +secured by concentrating them upon portions of country set apart for their +exclusive use and located at points remote from our highways and +encroaching white settlements. + +Since the commencement of the second session of the Thirty-ninth Congress +510 miles of road have been constructed on the main line and branches of +the Pacific Railway. The line from Omaha is rapidly approaching the eastern +base of the Rocky Mountains, while the terminus of the last section of +constructed road in California, accepted by the Government on the 24th day +of October last, was but 11 miles distant from the summit of the Sierra +Nevada. The remarkable energy evinced by the companies offers the strongest +assurance that the completion of the road from Sacramento to Omaha will not +be long deferred. + +During the last fiscal year 7,041,114 acres of public land were disposed +of, and the cash receipts from sales and fees exceeded by one-half million +dollars the sum realized from those sources during the preceding year. The +amount paid to pensioners, including expenses of disbursements, was +$18,619,956, and 36,482 names were added to the rolls. The entire number of +pensioners on the 30th of June last was 155,474. Eleven thousand six +hundred. and fifty-five patents and designs were issued during the year +ending September 30, 1867, and at that date the balance in the Treasury to +the credit of the patent fund was $286,607. + +The report of the Secretary of the Navy states that we have seven squadrons +actively and judiciously employed, under efficient and able commanders, in +protecting the persons and property of American citizens, maintaining the +dignity and power of the Government, and promoting the commerce and +business interests of our countrymen in every part of the world. Of the 238 +vessels composing the present Navy of the United States, 56, carrying 507 +guns, are in squadron service. During the year the number of vessels in +commission has been reduced 12, and there are 13 less on squadron duty than +there were at the date of the last report. A large number of vessels were +commenced and in the course of construction when the war terminated, and +although Congress had made the necessary appropriations for their +completion, the Department has either suspended work upon them or limited +the slow completion of the steam vessels, so as to meet the contracts for +machinery made with private establishments. The total expenditures of the +Navy Department for the fiscal year ending June 30, 1867, were $31,034,011. +No appropriations have been made. or required since the close of the war +for the construction and repair of vessels, for steam machinery, ordnance, +provisions and clothing, fuel, hemp, etc., the balances under these several +heads having been more than sufficient for current expenditures. It should +also be stated to the credit of the Department that, besides asking no +appropriations for the above objects for the last two years, the Secretary +of the Navy, on the 30th of September last, in accordance with the act of +May 1, 1820, requested the Secretary of the Treasury to carry to the +surplus fund the sum of $65,000.000, being the amount received from the +sales of vessels and other war property and the remnants of former +appropriations. + +The report of the Postmaster-General shows the business of the Post-Office +Department and the condition of the postal service in a very favorable +light, and the attention of Congress is called to its practical +recommendations. The receipts of the Department for the year ending June +30, 1867, including all special appropriations for sea and land service and +for free mail matter, were $19,978,693. The expenditures for all purposes +were $19,235,483, leaving an unexpended balance in favor of the Department +of $743,210, which can be applied toward the expenses of the Department for +the current year. The increase of postal revenue, independent of specific +appropriations, for the year 1867 over that of 1866 was $850,040. The +increase of revenue from the sale of stamps and stamped envelopes was +$783,404. The increase of expenditures for 1867 over those of the previous +year was owing chiefly to the extension of the land and ocean mail service. +During the past year new postal conventions have been ratified and +exchanged with the United Kingdom of Great Britain and Ireland, Belgium, +the Netherlands, Switzerland, the North German Union, Italy, and the +colonial government at Hong Kong, reducing very largely the rates of ocean +and land postages to and from and within those countries. + +The report of the Acting Commissioner of Agriculture concisely presents the +condition, wants, and progress of an interest eminently worthy the +fostering care of Congress, and exhibits a large measure of useful results +achieved during the year to which it refers. + +The reestablishment of peace at home and the resumption of extended trade, +travel, and commerce abroad have served to increase the number and variety +of questions in the Department for Foreign Affairs. None of these +questions, however, have seriously disturbed our relations with other +states. + +The Republic of Mexico, having been relieved from foreign intervention, is +earnestly engaged in efforts to reestablish her constitutional system of +government. A good understanding continues to exist between our Government +and the Republics of Hayti and San Domingo, and our cordial relations with +the Central and South American States remain unchanged. The tender, made in +conformity with a resolution of Congress, of the good offices of the +Government with a view to an amicable adjustment of peace between Brazil +and her allies on one side and Paraguay on the other, and between Chile and +her allies on the one side and Spain on the other, though kindly received, +has in neither case been fully accepted by the belligerents. The war in the +valley of the Parana is still vigorously maintained. On the other hand, +actual hostilities between the Pacific States and Spain have been more than +a year suspended. I shall, on any proper occasion that may occur, renew the +conciliatory recommendations which have been already made. Brazil, with +enlightened sagacity and comprehensive statesmanship, has opened the great +channels of the Amazon and its tributaries to universal commerce. One thing +more seems needful to assure a rapid and cheering progress in South +America. I refer to those peaceful habits without which states and nations +can not in this age well expect material prosperity or social advancement. + +The Exposition of Universal Industry at Paris has passed, and seems to have +fully realized the high expectations of the French Government. If due +allowance be made for the recent political derangement of industry here, +the part which the United States has borne in this exhibition of invention +and art may be regarded with very high satisfaction. During the exposition +a conference was held of delegates from several nations, the United States +being one, in which the inconveniences of commerce and social intercourse +resulting from the diverse standards of money value were very fully +discussed, and plans were developed for establishing by universal consent a +common principle for the coinage of gold. These conferences are expected to +be renewed, with the attendance of many foreign states not hitherto +represented. A report of these interesting proceedings will be submitted to +Congress, which will, no doubt, justly appreciate the great object and be +ready to adopt any measure which may tend to facilitate its ultimate +accomplishment. + +On the 25th of February, 1862, Congress declared by law that Treasury +notes, without interest, authorized by that act should be legal tender in +payment of all debts, public and private, within the United States. An +annual remittance of $30,000, less stipulated expenses, accrues to +claimants under the convention made with Spain in 1834. These remittances, +since the passage of that act, have been paid in such notes. The claimants +insist that the Government ought to require payment in coin. The subject +may be deemed worthy of your attention. + +No arrangement has yet been reached for the settlement of our claims for +British depredations upon the commerce of the United States. I have felt it +my duty to decline the proposition of arbitration made by Her Majesty's +Government, because it has hitherto been accompanied by reservations and +limitations incompatible with the rights, interest, and honor of our +country. It is not to be apprehended that Great Britain will persist in her +refusal to satisfy these just and reasonable claims, which involve the +sacred principle of nonintervention--a principle henceforth not more +important to the United States than to all other commercial nations. + +The West India islands were settled and colonized by European States +simultaneously with the settlement and colonization of the American +continent. Most of the colonies planted here became independent nations in +the close of the last and the beginning of the present century. Our own +country embraces communities which at one period were colonies of Great +Britain, France, Spain, Holland, Sweden, and Russia. The people in the West +Indies, with the exception of those of the island of Hayti, have neither +attained nor aspired to independence, nor have they become prepared for +self-defense. Although possessing considerable commercial value, they have +been held by the several European States which colonized or at some time +conquered them, chiefly for purposes of military and naval strategy in +carrying out European policy and designs in regard to this continent. In +our Revolutionary War ports and harbors in the West India islands were used +by our enemy, to the great injury and embarrassment of the United States. +We had the same experience in our second war with Great Britain. The same +European policy for a long time excluded us even from trade with the West +Indies, while we were at peace with all nations. In our recent civil war +the rebels and their piratical and blockade-breaking allies found +facilities in the same ports for the work, which they too successfully +accomplished, of injuring and devastating the commerce which we are now +engaged in rebuilding. We labored especially under this disadvantage, that +European steam vessels employed by our enemies found friendly shelter, +protection, and supplies in West Indian ports, while our naval operations +were necessarily carried on from our own distant shores. There was then a +universal feeling of the want of an advanced naval outpost between the +Atlantic coast and Europe. The duty of obtaining such an outpost peacefully +and lawfully, while neither doing nor menacing injury to other states, +earnestly engaged the attention of the executive department before the +close of the war, and it has not been lost sight of since that time. A not +entirely dissimilar naval want revealed itself during the same period on +the Pacific coast. The required foothold there was fortunately secured by +our late treaty with the Emperor of Russia, and it now seems imperative +that the more obvious necessities of the Atlantic coast should not be less +carefully provided for. A good and convenient port and harbor, capable of +easy defense, will supply that want. With the possession of such a station +by the United States, neither we nor any other American nation need longer +apprehend injury or offense from any transatlantic enemy. I agree with our +early statesmen that the West Indies naturally gravitate to, and may be +expected ultimately to be absorbed by, the continental States, including +our own. I agree with them also that it is wise to leave the question of +such absorption to this process of natural political gravitation. The +islands of St. Thomas and St. John, which constitute a part of the group +called the Virgin Islands, seemed to offer us advantages immediately +desirable, while their acquisition could be secured in harmony with the +principles to which I have alluded. A treaty has therefore been concluded +with the King of Denmark for the cession of those islands, and will be +submitted to the Senate for consideration. + +It will hardly be necessary to call the attention of Congress to the +subject of providing for the payment to Russia of the sum stipulated in the +treaty for the cession of Alaska. Possession having been formally delivered +to our commissioner, the territory remains for the present in care of a +military force, awaiting such civil organization as shall be directed by +Congress. + +The annexation of many small German States to Prussia and the +reorganization of that country under a new and liberal constitution have +induced me to renew the effort to obtain a just and prompt settlement of +the long-vexed question concerning the claims of foreign states for +military service from their subjects naturalized in the United States. + +In connection with this subject the attention of Congress is respectfully +called to a singular and embarrassing conflict of laws. The executive +department of this Government has hitherto uniformly held, as it now holds, +that naturalization in conformity with the Constitution and laws of the +United States absolves the recipient from his native allegiance. The courts +of Great Britain hold that allegiance to the British Crown is indefensible, +and is not absolved by our laws of naturalization. British judges cite +courts and law authorities of the United States in support of that theory +against the position held by the executive authority of the United States. +This conflict perplexes the public mind concerning the rights of +naturalized citizens and impairs the national authority abroad. I called +attention to this subject in my last annual message, and now again +respectfully appeal to Congress to declare the national will unmistakably +upon this important question. + +The abuse of our laws by the clandestine prosecution of the African slave +trade from American ports or by American citizens has altogether ceased, +and under existing circumstances no apprehensions of its renewal in this +part of the world are entertained. Under these circumstances it becomes a +question whether we shall not propose to Her Majesty's Government a +suspension or discontinuance of the stipulations for maintaining a naval +force for the suppression of that trade. + +*** + +State of the Union Address +Andrew Johnson +December 9, 1868 + +Fellow-Citizens of the Senate and House of Representatives: + +Upon the reassembling of Congress it again becomes my duty to call your +attention to the state of the Union and to its continued disorganized +condition under the various laws which have been passed upon the subject of +reconstruction. + +It may be safely assumed as an axiom in the government of states that the +greatest wrongs inflicted upon a people are caused by unjust and arbitrary +legislation, or by the unrelenting decrees of despotic rulers. and that the +timely revocation of injurious and oppressive measures is the greatest good +that can be conferred upon a nation. The legislator or ruler who has the +wisdom and magnanimity to retrace his steps when convinced of error will +sooner or later be rewarded with the respect and gratitude of an +intelligent and patriotic people. + +Our own history, although embracing a period less than a century, affords +abundant proof that most, if not all, of our domestic troubles are directly +traceable to violations of the organic law and excessive legislation. The +most striking illustrations of this fact are furnished by the enactments of +the past three years upon the question of reconstruction. After a fair +trial they have substantially failed and proved pernicious in their +results, and there seems to be no good reason why they should longer remain +upon the statute book. States to which the Constitution guarantees a +republican form of government have been reduced to military dependencies in +each of which the people have been made subject to the arbitrary will of +the commanding general. Although the Constitution requires that each State +shall be represented in Congress, Virginia, Mississippi, and Texas are yet +excluded from the two Houses, and, contrary to the express provisions of +that instrument were denied participation in the recent election for a +President and Vice-President of the United States. The attempt to place the +white population under the domination of persons of color in the South has +impaired, if not destroyed, the kindly relations that had previously +existed between them: and mutual distrust has engendered a feeling of +animosity which leading in some instances to collision and bloodshed, has +prevented that cooperation between the two races so essential to the +success of industrial enterprise in the Southern States. Nor have the +inhabitants of those States alone suffered from the disturbed condition of +affairs growing out of these Congressional enactments. The entire Union has +been agitated by grave apprehensions of troubles which might again involve +the peace of the nation; its interests have been injuriously affected by +the derangement of business and labor, and the consequent want of +prosperity throughout that portion of the country. + +The Federal Constitution--the magna charta of American rights, under whose +wise and salutary provisions we have successfully conducted all our +domestic and foreign affairs, sustained ourselves in peace and in war, and +become a great nation among the powers of the earth--must assuredly be now +adequate to the settlement of questions growing out of the civil war, waged +alone for its vindication. This great fact is made most manifest by the +condition of the country when Congress assembled in the month of December, +1865. Civil strife had ceased, the spirit of rebellion had spent its entire +force, in the Southern States the people had warmed into national life, and +throughout the whole country a healthy reaction in public sentiment had +taken place. By the application of the simple yet effective provisions of +the Constitution the executive department, with the voluntary aid of the +States, had brought the work of restoration as near completion as was +within the scope of its authority, and the nation was encouraged by the +prospect of an early and satisfactory adjustment of all its difficulties. +Congress, however, intervened, and, refusing to perfect the work so nearly +consummated, declined to admit members from the unrepresented States, +adopted a series of measures which arrested the progress of restoration, +frustrated all that had been so successfully accomplished, and, after three +years of agitation and strife, has left the country further from the +attainment of union and fraternal feeling than at the inception of the +Congressional plan of reconstruction. It needs no argument to show that +legislation which has produced such baneful consequences should be +abrogated, or else made to conform to the genuine principles of republican +government. + +Under the influence of party passion and sectional prejudice, other acts +have been passed not warranted by the Constitution. Congress has already +been made familiar with my views respecting the "tenure-of-office bill." +Experience has proved that its repeal is demanded by the best interests of +the country, and that while it remains in force the President can not +enjoin that rigid accountability of public officers so essential to an +honest and efficient execution of the laws. Its revocation would enable the +executive department to exercise the power of appointment and removal in +accordance with the original design of the Federal Constitution. + +The act of March 2, 1867, making appropriations for the support of the Army +for the year ending June 30, 1868, and for other purposes, contains +provisions which interfere with the President's constitutional functions as +Commander in Chief of the Army and deny to States of the Union the right to +protect themselves by means of their own militia. These provisions should +be at once annulled; for while the first might, in times of great +emergency, seriously embarrass the Executive in efforts to employ and +direct the common strength of the nation for its protection and +preservation, the other is contrary to the express declaration of the +Constitution that "a well-regulated militia being necessary to the security +of a free state, the right of the people to keep and bear arms shall not be +infringed." + +It is believed that the repeal of all such laws would be accepted by the +American people as at least a partial return to the fundamental principles +of the Government, and an indication that hereafter the Constitution is to +be made the nation's safe and unerring guide. They can be productive of no +permanent benefit to the country, and should not be permitted to stand as +so many monuments of the deficient wisdom which has characterized our +recent legislation. + +The condition of our finances demands the early and earnest consideration +of Congress. Compared with the growth of our population, the public +expenditures have reached an amount unprecedented in our history. + +The population of the United States in 1790 was nearly 4,000,000 people. +Increasing each decade about 33 per cent, it reached in 1860 31,000,000, an +increase of 700 per cent on the population in 1790. In 1869 it is estimated +that it will reach 38,000,000, or an increase of 868 per cent in +seventy-nine years. + +The annual expenditures of the Federal Government in 1791 were $4,200,000; +in 1820, $18.200,000; in 1850, forty-one millions; in 1860, sixty-three +millions; in 1865, nearly thirteen hundred millions; and in 1869 it is +estimated by the Secretary of the Treasury, in his last annual report, that +they will be three hundred and seventy-two millions. + +By comparing the public disbursements of 1869, as estimated, with those of +1791, it will be seen that the increase of expenditure since the beginning +of the Government has been 8,618 per cent, while the increase of the +population for the same period was only 868 per cent. Again, the expenses +of the Government in 1860, the year of peace immediately preceding the war, +were only sixty--three millions, while in 1869, the year of peace three +years after the war it is estimated they will be three hundred and +seventy-two millions, an increase of 489 per cent, while the increase of +population was only 21 per cent for the same period. + +These statistics further show that in 1791 the annual national expenses, +compared with the population, were little more than $1 per capita, and in +1860 but $2 per capita; while in 1869 they will reach the extravagant sum +of $9.78 per capita. + +It will be observed that all these statements refer to and exhibit the +disbursements of peace periods. It may, therefore, be of interest to +compare the expenditures of the three war periods--the war with Great +Britain, the Mexican War, and the War of the Rebellion. + +In 1814 the annual expenses incident to the War of 1812 reached their +highest amount--about thirty-one millions--while our population slightly +exceeded 8,000,000, showing an expenditure of only $3.80 per capita. In +1847 the expenditures growing out of the war with Mexico reached fifty-five +millions, and the population about 21,000,000, giving only $2.60 per capita +for the war expenses of that year. In 1865 the expenditures called for by +the rebellion reached the vast amount of twelve hundred and ninety +millions, which, compared with a population of 34,000,000, gives $38.20 per +capita. + +From the 4th day of March, 1789, to the 30th of June, 1861, the entire +expenditures of the Government were $1,700,000,000. During that period we +were engaged in wars with Great Britain and Mexico, and were involved in +hostilities with powerful Indian tribes; Louisiana was purchased from +France at a cost of $15,000,000; Florida was ceded to us by Spain for five +millions; California was acquired from Mexico for fifteen millions, and the +territory of New Mexico was obtained from Texas for the sum of ten +millions. Early in 1861 the War of the Rebellion commenced; and from the +1st of July of that year to the 30th of June, 1865, the public expenditures +reached the enormous aggregate of thirty-three hundred millions. Three +years of peace have intervened, and during that time the disbursements of +the Government have successively been five hundred and twenty millions, +three hundred and forty-six millions, and three hundred and ninety-three +millions. Adding to these amounts three hundred and seventy-two millions, +estimated as necessary for the fiscal year ending the 30th of June, 1869, +we obtain a total expenditure of $1,600,000,000 during the four years +immediately succeeding the war, or nearly as much as was expended during +the seventy-two years that preceded the rebellion and embraced the +extraordinary expenditures already named. + +These startling facts clearly illustrate the necessity of retrenchment in +all branches of the public service. Abuses which were tolerated during the +war for the preservation of the nation will not be endured by the people, +now that profound peace prevails. The receipts from internal revenues and +customs have during the past three years gradually diminished, and the +continuance of useless and extravagant expenditures will involve us in +national bankruptcy, or else make inevitable an increase of taxes. already +too onerous and in many respects obnoxious on account of their +inquisitorial character. One hundred millions annually are expended for the +military force, a large portion of which is employed in the execution of +laws both unnecessary and unconstitutional; one hundred and fifty millions +are required each year to pay the interest on the public debt: an army of +taxgatherers impoverishes the nation, and public agents, placed by Congress +beyond the control of the Executive, divert from their legitimate purposes +large sums of money which they collect from the people in the name of the +Government. Judicious legislation and prudent economy can alone remedy +defects and avert evils which, if suffered to exist, can not fail to +diminish confidence in the public councils and weaken the attachment and +respect of the people toward their political institutions. Without proper +care the small balance which it is estimated will remain in the Treasury at +the close of the present fiscal year will not be realized, and additional +millions be added to a debt which is now enumerated by billions. + +It is shown by the able and comprehensive report of the Secretary of the +Treasury that the receipts for the fiscal year ending June 30, 1868, were +$405,638,083, and that the expenditures for the same period were +$377,340,284, leaving in the Treasury a surplus of $28,297,798. It is +estimated that the receipts during the present fiscal year, ending June 30, +1869, will be $341,392,868 and the expenditures $336,152,470, showing a +small balance of $5,240,398 in favor of the Government. For the fiscal year +ending June 30, 1870, it is estimated that the receipts will amount to +$327,000,000 and the expenditures to $303,000,000, leaving an estimated +surplus of $24,000,000. + +It becomes proper in this connection to make a brief reference to our +public indebtedness, which has accumulated with such alarming rapidity and +assumed such colossal proportions. + +In 1789, when the Government commenced operations under the Federal +Constitution, it was burdened with an indebtedness of $75,000,000, created +during the War of the Revolution. This amount had been reduced to +$45,000,000 when, in 1812, war was declared against Great Britain. The +three years' struggle that followed largely increased the national +obligations, and in 1816 they had attained the sum of $127,000,000. Wise +and economical legislation, however, enabled the Government to pay the +entire amount within a period of twenty years, and the extinguishment of +the national debt filled the land with rejoicing and was one of the great +events of President Jackson's Administration. After its redemption a large +fund remained in the Treasury, which was deposited for safe-keeping with +the several States. on condition that it should be returned when required +by the public wants. In 1849--the year after the termination of an +expensive war with Mexico--we found ourselves involved in a debt of +$64,000,000; and this was the amount owed by the Government in 1860, just +prior to the outbreak of the rebellion. In the spring of 1861 our civil war +commenced. Each year of its continuance made an enormous addition to the +debt: and when. in the spring of 1865, the nation successfully emerged from +the conflict, the obligations of the Government had reached the immense sum +of $2.873,992,909. The Secretary of the Treasury shows that on the 1st day +of November, 1867, this amount had been reduced to $2,491,504,450; but at +the same time his report exhibits an increase during the past year of +$35,625,102, for the debt on the 1st day of November last is stated to have +been $2,527,129,552. It is estimated by the Secretary that the returns for +the past month will add to our liabilities the further sum of $11,000,000, +making a total increase during thirteen months of $46,500,000. + +In my message to Congress December 4, 1865, it was suggested that a policy +should be devised which, without being oppressive to the people, would at +once begin to effect a reduction of the debt, and, if persisted in, +discharge it fully within a definite number of years. The Secretary of the +Treasury forcibly recommends legislation of this character, and justly +urges that the longer it is deferred the more difficult must become its +accomplishment. We should follow the wise precedents established in 1789 +and 1816, and without further delay make provision for the payment of our +obligations at as early a period as may be practicable. The fruits of their +labors should be enjoyed by our citizens rather than used to build up and +sustain moneyed monopolies in our own and other lands. Our foreign debt is +already computed by the Secretary of the Treasury at $850,000,000; citizens +of foreign countries receive interest upon a large portion of our +securities, and American taxpayers are made to contribute large sums for +their support. The idea that such a debt is to become permanent should be +at all times discarded as involving taxation too heavy to be borne. and +payment once in every sixteen years, at the present rate of interest, of an +amount equal to the original sum. This vast debt, if permitted to become +permanent and increasing, must eventually be gathered into the hands of a +few, and enable them to exert a dangerous and controlling power in the +affairs of the Government. The borrowers would become servants to the +lenders, the lenders the masters of the people. We now pride ourselves upon +having given freedom to 4,000,000 of the colored race; it will then be our +shame that 40,000,000 of people, by their own toleration of usurpation and +profligacy, have suffered themselves to become enslaved, and merely +exchanged slave owners for new taskmasters in the shape of bondholders and +taxgatherers. Besides, permanent debts pertain to monarchical governments, +and, tending to monopolies, perpetuities, and class legislation, are +totally irreconcilable with free institutions. introduced into our +republican system, they would gradually but surely sap its foundations, +eventually subvert our governmental fabric, and erect upon its ruins a +moneyed aristocracy. It is our sacred duty to transmit unimpaired to our +posterity the blessings of liberty which were bequeathed to us by the +founders of the Republic. and by our example teach those who are to follow +us carefully to avoid the dangers which threaten a free and independent +people. + +Various plans have been proposed for the payment of the public debt. +However they may have varied as to the time and mode in which it should be +redeemed. there seems to be a general concurrence as to the propriety and +justness of a reduction in the present rate of interest. The Secretary of +the Treasury in his report recommends 5 per cent; Congress, in a bill +passed prior to adjournment on the 27th of July last. agreed upon 4 and 4 +1/2 per cent; while by many 3 per cent has been held to be an amply +sufficient return for the investment. The general impression as to the +exorbitancy of the existing rate of interest has led to an inquiry in the +public mind respecting the consideration which the Government has actually +received for its bonds, and the conclusion is becoming prevalent that the +amount which it obtained was in real money three or four hundred per cent +less than the obligations which it issued in return. It can not be denied +that we are paying an extravagant percentage for the use of the money +borrowed, which was paper currency, greatly depreciated below the value of +coin. This fact is made apparent when we consider that bondholders receive +from the Treasury upon each dollar they own in Government securities 6 per +cent in gold, which is nearly or quite equal to 9 per cent in currency; +that the bonds are then converted into capital for the national banks, upon +which those institutions issue their circulation, bearing 6 per cent +interest; and that they are exempt from taxation by the Government and the +States, and thereby enhanced 2 per cent in the hands of the holders. We +thus have an aggregate of 17 per cent which may be received upon each +dollar by the owners of Government securities. A system that produces such +results is justly regarded as favoring a few at the expense of the many, +and has led to the further inquiry whether our bondholders, in view of the +large profits which they have enjoyed, would themselves be averse to a +settlement of our indebtedness upon a plan which would yield them a fair +remuneration and at the same time be just to the taxpayers of the nation. +Our national credit should be sacredly observed, but in making provision +for our creditors we should not forget what is due to the masses of the +people. It may be assumed that the holders of our securities have already +received upon their bonds a larger amount than their original investment, +measured by a gold standard. Upon this statement of facts it would seem but +just and equitable that the 6 per cent interest now paid by the Government +should be applied to the reduction of the principal in semiannual +installments, which in sixteen years and eight months would liquidate the +entire national debt. Six per cent in gold would at present rates be equal +to 9 per cent in currency, and equivalent to the payment of the debt one +and a half times in a fraction less than seventeen years. This, in +connection with all the other advantages derived from their investment, +would afford to the public creditors a fair and liberal compensation for +the use of their capital, and with this they should be satisfied. The +lessons of the past admonish the lender that it is not well to be +over-anxious in exacting from the borrower rigid compliance with the letter +of the bond. + +If provision be made for the payment of the indebtedness of the Government +in the manner suggested, our nation will rapidly recover its wonted +prosperity. Its interests require that some measure should be taken to +release the large amount of capital invested in the securities of the +Government. It is not now merely unproductive, but in taxation annually +consumes $150,000,000, which would otherwise be used by our enterprising +people in adding to the wealth of the nation. Our commerce, which at one +time successfully rivaled that of the great maritime powers, has rapidly +diminished, and our industrial interests are in a depressed and languishing +condition. The development of our inexhaustible resources is checked, and +the fertile fields of the South are becoming waste for want of means to +till them. With the release of capital, new life would be infused into the +paralyzed energies of our people and activity and vigor imparted to every +branch of industry. Our people need encouragement in their efforts to +recover from the effects of the rebellion and of injudicious legislation, +and it should be the aim of the Government to stimulate them by the +prospect of an early release from the burdens which impede their +prosperity. If we can not take the burdens from their shoulders, we should +at least manifest a willingness to help to bear them. + +In referring to the condition of the circulating medium, I shall merely +reiterate substantially that portion of my last annual message which +relates to that subject. + +The proportion which the currency of any country should bear to the whole +value of the annual produce circulated by its means is a question upon +which political economists have not agreed. Nor can it be controlled by +legislation, but must be left to the irrevocable laws which everywhere +regulate commerce and trade. The circulating medium will ever irresistibly +flow to those points where it is in greatest demand. The law of demand and +supply is as unerring as that which regulates the tides of the ocean; and, +indeed, currency, like the tides, has its ebbs and flows throughout the +commercial world. + +At the beginning of the rebellion the bank-note circulation of the country +amounted to not much more than $200,000,000; now the circulation of +national-bank notes and those known as "legal-tenders" is nearly seven +hundred millions. While it is urged by some that this amount should be +increased, others contend that a decided reduction is absolutely essential +to the best interests of the country. In view of these diverse opinions, it +may be well to ascertain the real value of our paper issues when compared +with a metallic or convertible currency. For this purpose let us inquire +how much gold and silver could be purchased by the seven hundred millions +of paper money now in circulation. Probably not more than half the amount +of the latter; showing that when our paper currency is compared with gold +and silver its commercial value is compressed into three hundred and fifty +millions. This striking fact makes it the obvious duty of the Government, +as early as may be consistent with the principles of sound political +economy, to take such measures as will enable the holders of its notes and +those of the national banks to convert them, without loss, into specie or +its equivalent. A reduction of our paper circulating medium need not +necessarily follow. This, however, would depend upon the law of demand and +supply, though it should be borne in mind that by making legal-tender and +bank notes convertible into coin or its equivalent their present specie +value in the hands of their holders would be enhanced 100 per cent. + +Legislation for the accomplishment of a result so desirable is demanded by +the highest public considerations. The Constitution contemplates that the +circulating medium of the country shall be uniform in quality and value. At +the time of the formation of that instrument the country had just emerged +from the War of the Revolution, and was suffering from the effects of a +redundant and worthless paper currency. The sages of that period were +anxious to protect their posterity from the evils which they themselves had +experienced. Hence in providing a circulating medium they conferred upon +Congress the power to coin money and regulate the value thereof, at the +same time prohibiting the States from making anything but gold and silver a +tender in payment of debts. + +The anomalous condition of our currency is in striking contrast with that +which was originally designed. Our circulation now embraces, first, notes +of the national banks, which are made receivable for all dues to the +Government, excluding imposts, and by all its creditors, excepting in +payment of interest upon its bonds and the securities themselves; second, +legal tender, issued by the United States, and which the law requires shall +be received as well in payment of all debts between citizens as of all +Government dues, excepting imposts; and, third, gold and silver coin. By +the operation of our present system of finance however, the metallic +currency, when collected, is reserved only for one class of Government +creditors, who, holding its bonds, semiannually receive their interest in +coin from the National Treasury. There is no reason which will be accepted +as satisfactory by the people why those who defend us on the land and +protect us on the sea; the pensioner upon the gratitude of the nation, +bearing the scars and wounds received while in its service; the public +servants in the various departments of the Government; the farmer who +supplies the soldiers of the Army and the sailors of the Navy; the artisan +who toils in the nation's workshops, or the mechanics and laborers who +build its edifices and construct its forts and vessels of war, should, in +payment of their just and hard-earned dues, receive depreciated paper, +while another class of their countrymen, no more deserving are paid in coin +of gold and silver. Equal and exact justice requires that all the creditors +of the Government should be paid in a currency possessing a uniform value. +This can only be accomplished by the restoration of the currency to the +standard established by the Constitution, and by this means we would remove +a discrimination which may, if it has not already done so, create a +prejudice that may become deep-rooted and widespread and imperil the +national credit. + +The feasibility of making our currency correspond with the constitutional +standard may be seen by reference to a few facts derived from our +commercial statistics. + +The aggregate product of precious metals in the United States from 1849 to +1867 amounted to $1,174,000,000, while for the same period the net exports +of specie were $741,000,000. This shows an excess of product over net +exports of $433,000,000. There are in the Treasury $103,407,985 in coin; in +circulation in the States on the Pacific Coast about $40,000,000, and a few +millions in the national and other banks--in all less than $160,000,000. +Taking into consideration the specie in the country prior to 1849 and that +produced since 1867, and we have more than $300,000,000 not accounted for +by exportation or by returns of the Treasury, and therefore most probably +remaining in the country. + +These are important facts, and show how completely the inferior currency +will supersede the better, forcing it from circulation among the masses and +causing it to be exported as a mere article of trade, to add to the money +capital of foreign lands. They show the necessity of retiring our paper +money, that the return of gold and silver to the avenues of trade may be +invited and a demand created which will cause the retention at home of at +least so much of the productions of our rich and inexhaustible gold-bearing +fields as may be sufficient for purposes of circulation. It is unreasonable +to expect a return to a sound currency so long as the Government and banks, +by continuing to issue irredeemable notes, fill the channels of circulation +with depreciated paper. Notwithstanding a coinage by our mints since 1849 +of $874,000,000, the people are now strangers to the currency which was +designed for their use and benefit, and specimens of the precious metals +bearing the national device are seldom seen, except when produced to +gratify the interest excited by their novelty. If depreciated paper is to +be continued as the permanent currency of the country, and all our coin is +to become a mere article of traffic and speculation. to the enhancement in +price of all that is indispensable to the comfort of the people. it would +be wise economy to abolish our mints, thus saving the nation the care and +expense incident to such establishments, and let our precious metals be +exported in bullion. The time has come, however, when the Government and +national banks should be required to take the most efficient steps and make +all necessary arrangements for a resumption of specie payments. Let specie +payments once be earnestly inaugurated by the Government and banks, and the +value of the paper circulation would directly approximate a specie +standard. + +Specie payments having been resumed by the Government and banks, all notes +or bills of paper issued by either of a less denomination than $20 should +by law be excluded from circulation, so that the people may have the +benefit and convenience of a gold and silver currency which in all their +business transactions will be uniform in value at home and abroad. Every +man of property or industry, every man who desires to preserve what he +honestly possesses or to obtain what he can honestly earn, has a direct +interest in maintaining a safe circulating medium--such a medium as shall +be real and substantial, not liable to vibrate with opinions, not subject +to be blown up or blown down by the breath of speculation, but to be made +stable and secure. A disordered currency is one of the greatest political +evils. It undermines the virtues necessary for the support of the social +system and encourages propensities destructive of its happiness; it wars +against industry, frugality, and economy, and it fosters the evil spirits +of extravagance and speculation. It has been asserted by one of our +profound and most gifted statesmen that-- Of all the contrivances for +cheating the laboring classes of mankind, none has been more effectual than +that which deludes them with paper money. This is the most effectual of +inventions to fertilize the rich man's fields by the sweat of the poor +man's brow. Ordinary tyranny, oppression, excessive taxation--these bear +lightly on the happiness of the mass of the community compared with a +fraudulent currency and the robberies committed by depreciated paper. Our +own history has recorded for our instruction enough, and more than enough, +of the demoralizing tendency, the injustice. and the intolerable oppression +on the virtuous and well-disposed of a degraded paper currency authorized +by law or in any way countenanced by government. It is one of the most +successful devices, in times of peace or war, of expansions or revulsions, +to accomplish the transfer of all the precious metals from the great mass +of the people into the hands of the few, where they are hoarded in secret +places or deposited under bolts and bars, while the people are left to +endure all the inconvenience, sacrifice, and demoralization resulting from +the use of depreciated and worthless paper. + +The Secretary of the Interior in his report gives valuable information in +reference to the interests confided to the supervision of his Department, +and reviews the operations of the Land Office, Pension Office, Patent +Office, and Indian Bureau. + +During the fiscal year ending June 30. 1868, 6,655,700 acres of public land +were disposed of. The entire cash receipts of the General Land Office for +the same period were $1,632,745, being greater by $284,883 than the amount +realized from the same sources during the previous year. The entries under +the homestead law cover 2,328,923 acres, nearly one-fourth of which was +taken under the act of June 21, 1866, which applies only to the States of +Alabama, Mississippi, Louisiana, Arkansas, and Florida. + +On the 30th of June, 1868, 169,643 names were borne on the pension rolls, +and during the year ending on that day the total amount paid for pensions, +including the expenses of disbursement, was $24,010,982, being $5,391,025 +greater than that expended for like purposes during the preceding year. + +During the year ending the 30th of September last the expenses of the +Patent Office exceeded the receipts by $171, and, including reissues and +designs, 14,153 patents were issued. + +Treaties with various Indian tribes have been concluded, and will be +submitted to the Senate for its constitutional action. I cordially sanction +the stipulations which provide for reserving lands for the various tribes, +where they may be encouraged to abandon their nomadic habits and engage in +agricultural and industrial pursuits. This policy, inaugurated many years +since, has met with signal success whenever it has been pursued in good +faith and with becoming liberality by the United States. The necessity for +extending it as far as practicable in our relations with the aboriginal +population is greater now than at any preceding period. Whilst we furnish +subsistence and instruction to the Indians and guarantee the undisturbed +enjoyment of their treaty rights, we should habitually insist upon the +faithful observance of their agreement to remain within their respective +reservations. This is the only mode by which collisions with other tribes +and with the whites can be avoided and the safety of our frontier +settlements secured. + +The companies constructing the railway from Omaha to Sacramento have been +most energetically engaged in prosecuting the work, and it is believed that +the line will be completed before the expiration of the next fiscal year. +The 6 per cent bonds issued to these companies amounted on the 5th instant +to $44,337,000, and additional work had been performed to the extent of +$3,200,000. + +The Secretary of the Interior in August last invited my attention to the +report of a Government director of the Union Pacific Railroad Company who +had been specially instructed to examine the location, construction, and +equipment of their road. I submitted for the opinion of the +Attorney-General certain questions in regard to the authority of the +Executive which arose upon this report and those which had from time to +time been presented by the commissioners appointed to inspect each +successive section of the work. After carefully considering the law of the +case, he affirmed the right of the Executive to order, if necessary, a +thorough revision of the entire road. Commissioners were thereupon +appointed to examine this and other lines, and have recently submitted a +statement of their investigations, of which the report of the Secretary of +the Interior furnishes specific information. + +The report of the Secretary of War contains information of interest and +importance respecting the several bureaus of the War Department and the +operations of the Army. The strength of our military force on the 30th of +September last was 48,000 men, and it is computed that by the 1st of +January next this number will be decreased to 43,000. It is the opinion of +the Secretary of War that within the next year a considerable diminution of +the infantry force may be made without detriment to the interests of the +country; and in view of the great expense attending the military peace +establishment and the absolute necessity of retrenchment wherever it can be +applied, it is hoped that Congress will sanction the reduction which his +report recommends. While in 1860 sixteen thousand three hundred men cost +the nation $16,472,000, the sum of $65,682,000 is estimated as necessary +for the support of the Army during the fiscal year ending June 30, 1870. +The estimates of the War Department for the last two fiscal years were, for +1867, $33,814,461, and for 1868 $25,205,669. The actual expenditures during +the same periods were, respectively, $95,224,415 and $123,246,648. The +estimate submitted in December last for the fiscal year ending June 30, +1869, was $77,124,707; the expenditures for the first quarter, ending the +30th of September last, were $27,219,117, and the Secretary of the Treasury +gives $66,000,000 as the amount which will probably be required during the +remaining three quarters, if there should be no reduction of the +Army--making its aggregate cost for the year considerably in excess of +ninety-three millions. The difference between the estimates and +expenditures for the three fiscal years which have been named is thus shown +to be $175,545,343 for this single branch of the public service. + +The report of the Secretary of the Navy exhibits the operations of that +Department and of the Navy during the year. A considerable reduction of the +force has been effected. There are 42 vessels, carrying 411 guns, in the +six squadrons which are established in different parts of the world. Three +of these vessels are returning to the United States and 4 are used as +storeships, leaving the actual cruising force 35 vessels, carrying 356 +guns. The total number of vessels in the Navy is 206, mounting 1,743 guns. +Eighty-one vessels of every description are in use, armed with 696 guns. +The number of enlisted men in the service, including apprentices, has been +reduced to 8,500. An increase of navy-yard facilities is recommended as a +measure which will in the event of war be promotive of economy and +security. A more thorough and systematic survey of the North Pacific Ocean +is advised in view of our recent acquisitions, our expanding commerce, and +the increasing intercourse between the Pacific States and Asia. The naval +pension fund, which consists of a moiety of the avails of prizes captured +during the war, amounts to $14,000,000. Exception is taken to the act of +23d July last, which reduces the interest on the fund loaned to the +Government by the Secretary, as trustee, to 3 per cent instead of 6 per +cent, which was originally stipulated when the investment was made. An +amendment of the pension laws is suggested to remedy omissions and defects +in existing enactments. The expenditures of the Department during the last +fiscal year were $20,120,394, and the estimates for the coming year amount +to $20,993,414. + +The Postmaster-General's report furnishes a full and clear exhibit of the +operations and condition of the postal service. The ordinary postal revenue +for the fiscal year ending June 30, 1868. was $16,292,600, and the total +expenditures, embracing all the service for which special appropriations +have been made by Congress, amounted to $22,730,592, showing an excess of +expenditures of $6,437,991. Deducting from the expenditures the sum of +$1,896,525, the amount of appropriations for ocean-steamship and other +special service, the excess of expenditures was $4,541,466. By using an +unexpended balance in the Treasury of $3,800,000 the actual sum for which a +special appropriation is required to meet the deficiency is $741,466. The +causes which produced this large excess of expenditure over revenue were +the restoration of service in the late insurgent States and the putting +into operation of new service established by acts of Congress, which +amounted within the last two years and a half to about 48,700 miles--equal +to more than one-third of the whole amount of the service at the close of +the war. New postal conventions with Great Britain, North Germany, Belgium, +the Netherlands, Switzerland, and Italy, respectively, have been carried +into effect. Under their provisions important improvements have resulted in +reduced rates of international postage and enlarged mail facilities with +European countries. The cost of the United States transatlantic ocean mail +service since January 1, 1868, has been largely lessened under the +operation of these new conventions, a reduction of over one-half having +been effected under the new arrangements for ocean mail steamship service +which went into effect on that date. The attention of Congress is invited +to the practical suggestions and recommendations made in his report by the +Postmaster-General. + +No important question has occurred during the last year in our accustomed +cordial and friendly intercourse with Costa Rica, Guatemala, Honduras, San +Salvador, France, Austria, Belgium, Switzerland, Portugal, the Netherlands, +Denmark, Sweden and Norway, Rome, Greece, Turkey, Persia, Egypt, Liberia, +Morocco, Tripoli, Tunis, Muscat, Siam, Borneo, and Madagascar. + +Cordial relations have also been maintained with the Argentine and the +Oriental Republics. The expressed wish of Congress that our national good +offices might be tendered to those Republics, and also to Brazil and +Paraguay, for bringing to an end the calamitous war which has so long been +raging in the valley of the La Plata, has been assiduously complied with +and kindly acknowledged by all the belligerents. That important +negotiation, however, has thus far been without result. + +Charles A. Washburn, late United States minister to Paraguay, having +resigned. and being desirous to return to the United States, the +rear-admiral commanding the South Atlantic Squadron was early directed to +send a ship of war to Asuncion, the capital of Paraguay, to receive Mr. +Washburn and his family and remove them from a situation which was +represented to be endangered by faction and foreign war. The Brazilian +commander of the allied invading forces refused permission to the Wasp to +pass through the blockading forces, and that vessel returned to its +accustomed anchorage. Remonstrance having been made against this refusal, +it was promptly overruled, and the Wasp therefore resumed her errand, +received Mr. Washburn and his family, and conveyed them to a safe and +convenient seaport. In the meantime an excited controversy had arisen +between the President of Paraguay and the late United States minister, +which, it is understood, grew out of his proceedings in giving asylum in +the United States legation to alleged enemies of that Republic. The +question of the right to give asylum is one always difficult and often +productive of great embarrassment. In states well organized and +established, foreign powers refuse either to concede or exercise that +right, except as to persons actually belonging to the diplomatic service. +On the other hand, all such powers insist upon exercising the right of +asylum in states where the law of nations is not fully acknowledged, +respected. and obeyed. + +The President of Paraguay is understood to have opposed to Mr. Washburn's +proceedings the injurious and very improbable charge of personal complicity +in insurrection and treason. The correspondence, however, has not yet +reached the United States. + +Mr. Washburn, in connection with this controversy, represents that two +United States citizens attached to the legation were arbitrarily seized at +his side, when leaving the capital of Paraguay, committed to prison, and +there subjected to torture for the purpose of procuring confessions of +their own criminality and testimony to support the President' s allegation. +against the United States minister. Mr. McMahon, the newly appointed +minister to Paraguay, having reached the La Plata, has been instructed to +proceed without delay to Asuncion, there to investigate the whole subject. +The rear-admiral commanding the United States South Atlantic Squadron has +been directed to attend the new minister with a proper naval force to +sustain such just demands as the occasion may require, and to vindicate the +rights of the United States citizens referred to and of any others who may +be exposed to danger in the theater of war. With these exceptions, friendly +relations have been maintained between the United States and Brazil and +Paraguay. + +Our relations during the past year with Bolivia, Ecuador, Peru, and Chile +have become especially friendly and cordial. Spain and the Republics of +Peru, Bolivia, and Ecuador have expressed their willingness to accept the +mediation of the United States for terminating the war upon the South +Pacific coast. Chile has not finally declared upon the question. In the +meantime the conflict has practically exhausted itself, since no +belligerent or hostile movement has been made by either party during the +last two years, and there are no indications of a present purpose to resume +hostilities on either side. Great Britain and France have cordially +seconded our proposition of mediation, and I do not forego the hope that it +may soon be accepted by all the belligerents and lead to a secure +establishment of peace and friendly relations between the Spanish American +Republics of the Pacific and Spain--a result which would be attended with +common benefits to the belligerents and much advantage to all commercial +nations. I communicate, for the consideration of Congress, a correspondence +which shows that the Bolivian Republic has established the extremely +liberal principle of receiving into its citizenship any citizen of the +United States, or of any other of the American Republics, upon the simple +condition of voluntary registry. + +The correspondence herewith submitted will be found painfully replete with +accounts of the ruin and wretchedness produced by recent earthquakes, of +unparalleled severity, in the Republics of Peru, Ecuador, and Bolivia. The +diplomatic agents and naval officers of the United States who were present +in those countries at the time of those disasters furnished all the relief +in their power to the sufferers, and were promptly rewarded with grateful +and touching acknowledgments by the Congress of Peru. An appeal to the +charity of our fellow-citizens has been answered by much liberality. In +this connection I submit an appeal which has been made by the Swiss +Republic, whose Government and institutions are kindred to our own, in +behalf of its inhabitants, who are suffering extreme destitution, produced +by recent devastating inundations. + +Our relations with Mexico during the year have been marked by an increasing +growth of mutual confidence. The Mexican Government has not yet acted upon +the three treaties celebrated here last summer for establishing the rights +of naturalized citizens upon a liberal and just basis, for regulating +consular powers, and for the adjustment of mutual claims. + +All commercial nations, as well as all friends of republican institutions, +have occasion to regret the frequent local disturbances which occur in some +of the constituent States of Colombia. Nothing has occurred, however, to +affect the harmony and cordial friendship which have for several years +existed between that youthful and vigorous Republic and our own. + +Negotiations are pending with a view to the survey and construction of a +ship canal across the Isthmus of Darien, under the auspices of the United +States. I hope to be able to submit the results of that negotiation to the +Senate during its present session. + +The very liberal treaty which was entered into last year by the United +States and Nicaragua has been ratified by the latter Republic. + +Costa Rica, with the earnestness of a sincerely friendly neighbor, solicits +a reciprocity of trade, which I commend to the consideration of Congress. + +The convention created by treaty between the United States and Venezuela in +July, 1865, for the mutual adjustment of claims, has been held, and its +decisions have been received at the Department of State. The +heretofore-recognized Government of the United States of Venezuela has been +subverted. A provisional government having been instituted under +circumstances which promise durability, it has been formally recognized. + +I have been reluctantly obliged to ask explanation and satisfaction for +national injuries committed by the President of Hayti. The political and +social condition of the Republics of Hayti and St. Domingo is very +unsatisfactory. and painful. The abolition of slavery, which has been +carried into effect throughout the island of St. Domingo and the entire +West Indies, except the Spanish islands of Cuba and Porto Rico, has been +followed by a profound popular conviction of the rightfulness of republican +institutions and an intense desire to secure them. The attempt, however, to +establish republics there encounters many obstacles, most of which may be +supposed to result from long-indulged habits of colonial supineness and +dependence upon European monarchical powers. While the United States have +on all occasions professed a decided unwillingness that any part of this +continent or of its adjacent islands shall be made a theater for a new +establishment of monarchical power, too little has been done by us, on the +other hand, to attach the communities by which we are surrounded to our own +country, or to lend even a moral support to the efforts they are so +resolutely and so constantly making to secure republican institutions for +themselves. It is indeed a question of grave consideration whether our +recent and present example is not calculated to check the growth and +expansion of free principles, and make those communities distrust, if not +dread, a government which at will consigns to military domination States +that are integral parts of our Federal Union, and, while ready to resist +any attempts by other nations to extend to this hemisphere the monarchical +institutions of Europe, assumes to establish over a large portion of its +people a rule more absolute, harsh, and tyrannical than any known to +civilized powers. + +The acquisition of Alaska was made with the view of extending national +jurisdiction and republican principles in the American hemisphere. +Believing that a further step could be taken in the same direction, I last +year entered into a treaty with the King of Denmark for the purchase of the +islands of St. Thomas and St. John, on the best terms then attainable, and +with the express consent of the people of those islands. This treaty still +remains under consideration in the Senate. A new convention has been +entered into with Denmark, enlarging the time fixed for final ratification +of the original treaty. + +Comprehensive national policy would seem to sanction the acquisition and +incorporation into our Federal Union of the several adjacent continental +and insular communities as speedily as it can be done peacefully, lawfully, +and without any violation of national justice, faith, or honor. Foreign +possession or control of those communities has hitherto hindered the growth +and impaired the influence of the United States. Chronic revolution and +anarchy there would be equally injurious. Each one of them, when firmly +established as an independent republic, or when incorporated into the +United States, would be a new source of strength and power. Conforming my +Administration to these principles, I have or no occasion lent support or +toleration to unlawful expeditions set on foot upon the plea of republican +propagandism or of national extension or aggrandizement. The necessity, +however, of repressing such unlawful movements clearly indicates the duty +which rests upon us of adapting our legislative action to the new +circumstances of a decline of European monarchical power and influence and +the increase of American republican ideas, interests, and sympathies. + +It can not be long before it will become necessary for this Government to +lend some effective aid to the solution of the political and social +problems which are continually kept before the world by the two Republics +of the island of St. Domingo, and which are now disclosing themselves more +distinctly than heretofore in the island of Cuba. The subject is commended +to your consideration with all the more earnestness because I am satisfied +that the time has arrived when even so direct a proceeding as a proposition +for an annexation of the two Republics of the island of St. Domingo would +not only receive the consent of the people interested, but would also give +satisfaction to all other foreign nations. + +I am aware that upon the question of further extending our possessions it +is apprehended by some that our political system can not successfully be +applied to an area more extended than our continent; but the conviction is +rapidly gaining ground in the American mind that with the increased +facilities for intercommunication between all portions of the earth the +principles of free government, as embraced in our Constitution, if +faithfully maintained and carried out, would prove of sufficient strength +and breadth to comprehend within their sphere and influence the civilized +nations of the world. + +The attention of the Senate and of Congress is again respectfully invited +to the treaty for the establishment of commercial reciprocity with the +Hawaiian Kingdom entered into last year, and already ratified by that +Government. The attitude of the United States toward these islands is not +very different from that in which they stand toward the West Indies. It is +known and felt by the Hawaiian Government and people that their Government +and institutions are feeble and precarious; that the United States, being +so near a neighbor, would be unwilling to see the islands pass under +foreign control. Their prosperity is continually disturbed by expectations +and alarms of unfriendly political proceedings, as well from the United +States as from other foreign powers. A reciprocity treaty, while it could +not materially diminish the revenues of the United States, would be a +guaranty of the good will and forbearance of all nations until the people +of the islands shall of themselves, at no distant day, voluntarily apply +for admission into the Union. + +The Emperor of Russia has acceded to the treaty negotiated here in January +last for the security of trade-marks in the interest of manufacturers and +commerce. I have invited his attention to the importance of establishing, +now while it seems easy and practicable, a fair and equal regulation of the +vast fisheries belonging to the two nations in the waters of the North +Pacific Ocean. + +The two treaties between the United States and Italy for the regulation of +consular powers and the extradition of criminals, negotiated and ratified +here during the last session of Congress, have been accepted and confirmed +by the Italian Government. A liberal consular convention which has been +negotiated with Belgium will be submitted to the Senate. The very important +treaties which were negotiated between the United States and North Germany +and Bavaria for the regulation of the rights of naturalized citizens have +been duly ratified and exchanged, and similar treaties have been entered +into with the Kingdoms of Belgium and Wurtemberg and with the Grand Duchies +of Baden and Hesse-Darmstadt. I hope soon to be able to submit equally +satisfactory conventions of the same character now in the course of +negotiation with the respective Governments of Spain, Italy, and the +Ottoman Empire. + +Examination of claims against the United States by the Hudsons Bay Company +and the Puget Sound Agricultural Company, on account of certain possessory +rights in the State of Oregon and Territory of Washington, alleged by those +companies in virtue of provisions of the treaty between the United States +and Great Britain of June 15, 1846, has been diligently prosecuted, under +the direction of the joint international commission to which they were +submitted for adjudication by treaty between the two Governments of July 1, +1863, and will, it is expected, be concluded at an early day. + +No practical regulation concerning colonial trade and the fisheries can be +accomplished by treaty between the United States and Great Britain until +Congress shall have expressed their judgment concerning the principles +involved. Three other questions, however, between the United States and +Great Britain remain open for adjustment. These are the mutual rights of +naturalized citizens, the boundary question involving the title to the +island of San Juan, on the Pacific coast, and mutual claims arising since +the year 1853 of the citizens and subjects of the two countries for +injuries and depredations committed under the authority of their respective +Governments. Negotiations upon these subjects are pending, and I am not +without hope of being able to lay before the Senate, for its consideration +during the present session, protocols calculated to bring to an end these +justly exciting and long-existing controversies. + +We are not advised of the action of the Chinese Government upon the liberal +and auspicious treaty which was recently celebrated with its +plenipotentiaries at this capital. + +Japan remains a theater of civil war, marked by religious incidents and +political severities peculiar to that long-isolated Empire. The Executive +has hitherto maintained strict neutrality among the belligerents, and +acknowledges with pleasure that it has been frankly and fully sustained in +that course by the enlightened concurrence and cooperation of the other +treaty powers, namely Great Britain, France, the Netherlands, North +Germany, and Italy. + +Spain having recently undergone a revolution marked by extraordinary +unanimity and preservation of order, the provisional government established +at Madrid has been recognized, and the friendly intercourse which has so +long happily existed between the two countries remains unchanged. + +I renew the recommendation contained in my communication to Congress dated +the 18th July last--a copy of which accompanies this message that the +judgment of the people should be taken on the propriety of so amending the +Federal Constitution that it shall provide-- + +First. For an election of President and Vice-President by a direct vote of +the people, instead of through the agency of electors, and making them +ineligible for reelection to a second term. + +Second. For a distinct designation of the person who shall discharge the +duties of President in the event of a vacancy in that office by the death, +resignation, or removal of both the President and Vice-President. + +Third. For the election of Senators of the United States directly by the +people of the several States, instead of by the legislatures; and + +Fourth. For the limitation to a period of years of the terms of Federal +judges. + +Profoundly impressed with the propriety of making these important +modifications in the Constitution, I respectfully submit them for the early +and mature consideration of Congress. We should, as far as possible, remove +all pretext for violations of the organic law, by remedying such +imperfections as time and experience may develop, ever remembering that +"the constitution which at any time exists until changed by an explicit and +authentic act of the whole people is sacredly obligatory upon all." + +In the performance of a duty imposed upon me by the Constitution, I have +thus communicated to Congress information of the state of the Union and +recommended for their consideration such measures as have seemed to me +necessary and expedient. If carried into effect, they will hasten the +accomplishment of the great and beneficent purposes for which the +Constitution was ordained, and which it comprehensively states were "to +form a more perfect Union, establish justice, insure domestic tranquillity, +provide for the common defense, promote the general welfare, and secure the +blessings of liberty to ourselves and our posterity." In Congress are +vested all legislative powers, and upon them devolves the responsibility as +well for framing unwise and excessive laws as for neglecting to devise and +adopt measures absolutely demanded by the wants of the country. Let us +earnestly hope that before the expiration of our respective terms of +service, now rapidly drawing to a close, an all-wise Providence will so +guide our counsels as to strengthen and preserve the Federal Unions, +inspire reverence for the Constitution, restore prosperity and happiness to +our whole people, and promote "on earth peace, good will toward men." + + + +*** END OF THE PROJECT GUTENBERG EBOOK OF ADDRESSES BY ANDREW JOHNSON *** + +This file should be named sujoh10.txt or sujoh10.zip +Corrected EDITIONS of our eBooks get a new NUMBER, sujoh11.txt +VERSIONS based on separate sources get new LETTER, sujoh10a.txt + +Project Gutenberg eBooks are often created from several printed +editions, all of which are confirmed as Public Domain in the US +unless a copyright notice is included. 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