The Senate and House of Representatives of the United States:

Circumstances, fellow citizens, which seriously threatened the peace of our
country have made it a duty to convene you at an earlier period than usual.
The love of peace so much cherished in the bosoms of our citizens, which
has so long guided the proceedings of their public councils and induced
forbearance under so many wrongs, may not insure our continuance in the
quiet pursuits of industry. The many injuries and depredations committed on
our commerce and navigation upon the high seas for years past, the
successive innovations on those principles of public law which have been
established by the reason and usage of nations as the rule of their
intercourse and the umpire and security of their rights and peace, and all
the circumstances which induced the extraordinary mission to London are
already known to you.

The instructions given to our ministers were framed in the sincerest spirit
of amity and moderation. They accordingly proceeded, in conformity
therewith, to propose arrangements which might embrace and settle all the
points in difference between us, which might bring us to a mutual
understanding on our neutral and national rights and provide for a
commercial intercourse on conditions of some equality. After long and
fruitless endeavors to effect the purposes of their mission and to obtain
arrangements within the limits of their instructions, they concluded to
sign such as could be obtained and to send them for consideration, candidly
declaring to the other negotiators at the same time that they were acting
against their instructions, and that their Government, therefore, could not
be pledged for ratification.

Some of the articles proposed might have been admitted on a principle of
compromise, but others were too highly disadvantageous, and no sufficient
provision was made against the principal source of the irritations and
collisions which were constantly endangering the peace of the two nations.
The question, therefore, whether a treaty should be accepted in that form
could have admitted but of one decision, even had no declarations of the
other party impaired our confidence in it. Still anxious not to close the
door against friendly adjustment, new modifications were framed and further
concessions authorized than could before have been supposed necessary; and
our ministers were instructed to resume their negotiations on these
grounds.

On this new reference to amicable discussion we were reposing in
confidence, when on the 22nd day of June last by a formal order from a
British admiral the frigate Chesapeake, leaving her port for a distant
service, was attacked by one of those vessels which had been lying in our
harbors under the indulgences of hospitality, was disabled from proceeding,
had several of her crew killed and four taken away. On this outrage no
commentaries are necessary. Its character has been pronounced by the
indignant voices of our citizens with an emphasis and unanimity never
exceeded. I immediately, by proclamation, interdicted our harbors and
waters to all British armed vessels, forbade intercourse with them, and
uncertain how far hostilities were intended, and the town of Norfolk,
indeed, being threatened with immediate attack, a sufficient force was
ordered for the protection of that place, and such other preparations
commenced and pursued as the prospect rendered proper. An armed vessel of
the United States was dispatched with instructions to our ministers at
London to call on that Government for the satisfaction and security
required by the outrage. A very short interval ought now to bring the
answer, which shall be communicated to you as soon as received; then also,
or as soon after as the public interests shall be found to admit, the
unratified treaty and proceedings relative to it shall be made known to
you.

The aggression thus begun has been continued on the part of the British
commanders by remaining within our waters in defiance of the authority of
the country, by habitual violations of its jurisdiction, and at length by
putting to death one of the persons whom they had forcibly taken from on
board the Chesapeake. These aggravations necessarily lead to the policy
either of never admitting an armed vessel into our harbors or of
maintaining in every harbor such an armed force as may constrain obedience
to the laws and protect the lives and property of our citizens against
their armed guests; but the expense of such a standing force and its
inconsistence with our principles dispense with those courtesies which
would necessarily call for it, and leave us equally free to exclude the
navy, as we are the army, of a foreign power from entering our limits.

To former violations of maritime rights another is now added of very
extensive effect. The Government of that nation has issued an order
interdicting all trade by neutrals between ports not in amity with them;
and being now at war with nearly every nation on the Atlantic and
Mediterranean seas, our vessels are required to sacrifice their cargoes at
the first port they touch or to return home without the benefit of going to
any other market. Under this new law of the ocean our trade on the
Mediterranean has been swept away by seizures and condemnations, and that
in other seas is threatened with the same fate.

Our differences with Spain remain still unsettled, no measure having been
taken on her part since my last communications to Congress to bring them to
a close. But under a state of things which may favor reconsideration they
have been recently pressed, and an expectation is entertained that they may
now soon be brought to an issue of some sort. With their subjects on our
borders no new collisions have taken place nor seem immediately to be
apprehended. To our former grounds of complaint has been added a very
serious one, as you will see by the decree a copy of which is now
communicated. Whether this decree, which professes to be conformable to
that of the French Government of November 21st, 1806, heretofore
communicated to Congress, will also be conformed to that in its
construction and application in relation to the United States had not
been ascertained at the date of our last communications. These, however,
gave reason to expect such a conformity.

With the other nations of Europe our harmony has been uninterrupted, and
commerce and friendly intercourse have been maintained on their usual
footing.

Our peace with the several states on the coast of Barbary appears as firm
as at any former period and as likely to continue as that of any other
nation.

Among our Indian neighbors in the northwestern quarter some fermentation
was observed soon after the late occurrences, threatening the continuance
of our peace. Messages were said to be interchanged and tokens to be
passing, which usually denote a state of restless among them, and the
character of the agitators pointed to the sources of excitement. Measures
were immediately taken for providing against that danger; instructions were
given to require explanations, and, with assurances of our continued
friendship, to admonish the tribes to remain quiet at home, taking no part
in quarrels not belonging to them. As far as we are yet informed, the
tribes in our vicinity, who are most advanced in the pursuits of industry,
are sincerely disposed to adhere to their friendship with us and to their
peace with all others, while those more remote do not present appearances
sufficiently quiet to justify the intermission of military precaution on
our part.

The great tribes on our southwestern quarter, much advanced beyond the
others in agriculture and household arts, appear tranquil and identifying
their views with ours in proportion to their advancement. With the whole of
these people, in every quarter, I shall continue to inculcate peace and
friendship with all their neighbors and perseverance in those occupations
and pursuits which will best promote their own well-being.

The appropriations of the last session for the defense of our sea port
towns and harbors were made under expectation that a continuance of our
peace would permit us to proceed in that work according to our convenience.
It has been thought better to apply the sums then given toward the defense
of New York, Charleston, and New Orleans chiefly, as most open and most
likely first to need protection, and to leave places less immediately in
danger to the provisions of the present session.

The gun boats, too, already provided have on a like principle been chiefly
assigned to New York, New Orleans, and the Chesapeake. Whether our movable
force on the water, so material in aid of the defensive works on the land,
should be augmented in this or any other form is left to the wisdom of the
Legislature. For the purpose of manning these vessels in sudden attacks on
our harbors it is a matter for consideration whether the sea men of the
United States may not justly be formed into a special militia, to be called
on for tours of duty in defense of the harbors where they shall happen to
be, the ordinary militia of the place furnishing that portion which may
consist of landsmen.

The moment our peace was threatened I deemed it indispensable to secure a
greater provision of those articles of military stores with which our
magazines were not sufficiently furnished. To have awaited a previous and
special sanction by law would have lost occasions which might not be
retrieved. I did not hesitate, therefore, to authorize engagements for such
supplements to our existing stock as would render it adequate to the
emergencies threatening us, and I trust that the Legislature, feeling the
same anxiety for the safety of our country, so materially advanced by this
precaution, will approve, when done, what they would have seen so important
to be done if then assembled. Expenses, also unprovided for, arose out of
the necessity of calling all our gun boats into actual service for the
defense of our harbors; all of which accounts will be laid before you.

Whether a regular army is to be raised, and to what extent, must depend on
the information so shortly expected. In the mean time I have called on the
States for quotas of militia, to be in readiness for present defense, and
have, moreover, encouraged the acceptance of volunteers; and I am happy to
inform you that these have offered themselves with great alacrity in every
part of the Union. They are ordered to be organized and ready at a
moment's warning to proceed on any service to which they may be
called, and every preparation within the Executive powers has been made to
insure us the benefit of early exertions.

I informed Congress at their last session of the enterprises against the
public peace which were believed to be in preparation by Aaron Burr and his
associates, of the measures taken to defeat them and to bring the offenders
to justice. Their enterprises were happily defeated by the patriotic
exertions of the militia whenever called into action, by the fidelity of
the Army, and energy of the commander in chief in promptly arranging the
difficulties presenting themselves on the Sabine, repairing to meet those
arising on the Mississippi, and dissipating before their explosion plots
engendering there. I shall think it my duty to lay before you the
proceedings and the evidence publicly exhibited on the arraignment of the
principal offenders before the circuit court of Virginia.

You will be enabled to judge whether the defect was in the testimony, in
the law, or in the administration of the law; and wherever it shall be
found, the Legislature alone can apply or originate the remedy. The framers
of our Constitution certainly supposed they had guarded as well their
Government against destruction by treason as their citizens against
oppression under pretense of it, and if these ends are not attained it is
of importance to inquire by what means more effectual they may be secured.

The accounts of the receipts of revenue during the year ending on the 30th
day of September last being not yet made up, a correct statement will be
hereafter transmitted from the Treasury. In the mean time, it is
ascertained that the receipts have amounted to near $16 millions, which,
with the $5.5 millions in the Treasury at the beginning of the year, have
enabled us, after meeting the current demands and interest incurred, to
pay more than $4 millions of the principal of our funded debt. These
payments, with those of the preceding five and a half years, have
extinguished of the funded debt $25.5 millions, being the whole which
could be paid or purchased within the limits of the law and of our
contracts, and have left us in the Treasury $8.5 millions.

A portion of this sum may be considered as a commencement of accumulation
of the surpluses of revenue which, after paying the installments of debt as
they shall become payable, will remain without any specific object. It may
partly, indeed, be applied toward completing the defense of the exposed
points of our country, on such a scale as shall be adapted to our
principles and circumstances. This object is doubtless among the first
entitled to attention in such a state of our finances, and it is one which,
whether we have peace or war, will provide security where it is due.
Whether what shall remain of this, with the future surpluses, may be
usefully applied to purposes already authorized or more usefully to others
requiring new authorities, or how otherwise they shall be disposed of, are
questions calling for the notice of Congress, unless, indeed, they shall be
superseded by a change in our public relations now awaiting the
determination of others. Whatever be that determination, it is a great
consolation that it will become known at a moment when the supreme council
of the nation is assembled at its post, and ready to give the aids of its
wisdom and authority to whatever course the good of our country shall then
call us to pursue.

Matters of minor importance will be the subjects of future communications,
and nothing shall be wanting on my part which may give information or
dispatch to the proceedings of the Legislature in the exercise of their
high duties, and at a moment so interesting to the public welfare.

TH. JEFFERSON