To the Senate and House of Representatives of the United States:

We have continued reason to express our profound gratitude to the Great
Creator of All Things for numberless benefits conferred upon us as a
people. Blessed with genial seasons, the husbandman has his garners filled
with abundance, and the necessaries of life, not to speak of its luxuries,
abound in every direction. While in some other nations steady and
industrious labor can hardly find the means of subsistence, the greatest
evil which we have to encounter is a surplus of production beyond the home
demand, which seeks, and with difficulty finds, a partial market in other
regions. The health of the country, with partial exceptions, has for the
past year been well preserved, and under their free and wise institutions
the United States are rapidly advancing toward the consummation of the high
destiny which an overruling Providence seems to have marked out for them.
Exempt from domestic convulsion and at peace with all the world, we are
left free to consult as to the best means of securing and advancing the
happiness of the people. Such are the circumstances under which you now
assemble in your respective chambers and which should lead us to unite in
praise and thanksgiving to that great Being who made us and who preserves
us as a nation.

I congratulate you, fellow-citizens, on the happy change in the aspect of
our foreign affairs since my last annual message. Causes of complaint at
that time existed between the United States and Great Britain which,
attended by irritating circumstances, threatened most seriously the public
peace. The difficulty of adjusting amicably the questions at issue between
the two countries was in no small degree augmented by the lapse of time
since they had their origin. The opinions entertained by the Executive on
several of the leading topics in dispute were frankly set forth in the
message at the opening of your late session. The appointment of a special
minister by Great Britain to the United States with power to negotiate upon
most of the points of difference indicated a desire on her part amicably to
adjust them, and that minister was met by the Executive in the same spirit
which had dictated his mission. The treaty consequent thereon having been
duly ratified by the two Governments, a copy, together with the
correspondence which accompanied it, is herewith communicated. I trust that
whilst you may see in it nothing objectionable, it may be the means of
preserving for an indefinite period the amicable relations happily existing
between the two Governments. The question of peace or war between the
United States and Great Britain is a question of the deepest interest, not
only to themselves, but to the civilized world, since it is scarcely
possible that a war could exist between them without endangering the peace
of Christendom. The immediate effect of the treaty upon ourselves will be
felt in the security afforded to mercantile enterprise, which, no longer
apprehensive of interruption, adventures its speculations in the most
distant seas, and, freighted with the diversified productions of every
land, returns to bless our own. There is nothing in the treaty which in the
slightest degree compromits the honor or dignity of either nation. Next to
the settlement of the boundary line, which must always be a matter of
difficulty between states as between individuals, the question which seemed
to threaten the greatest embarrassment was that connected with the African
slave trade.

By the tenth article of the treaty of Ghent it was expressly declared
that--

Whereas the traffic in slaves is irreconcilable with the principles of
humanity and justice, and whereas both His Majesty and the United States
are desirous of continuing their efforts to promote its entire abolition,
it is hereby agreed that both the contracting parties shall use their best
endeavors to accomplish so desirable an object.

In the enforcement of the laws and treaty stipulations of Great Britain a
practice had threatened to grow up on the part of its cruisers of
subjecting to visitation ships sailing under the American flag, which,
while it seriously involved our maritime rights, would subject to vexation
a branch of our trade which was daily increasing, and which required the
fostering care of Government. And although Lord Aberdeen in his
correspondence with the American envoys at London expressly disclaimed all
right to detain an American ship on the high seas, even if found with a
cargo of slaves on board, and restricted the British pretension to a mere
claim to visit and inquire, yet it could not well be discerned by the
Executive of the United States how such visit and inquiry could be made
without detention on the voyage and consequent interruption to the trade.
It was regarded as the right of search presented only in a new form and
expressed in different words, and I therefore felt it to be my duty
distinctly to declare in my annual message to Congress that no such
concession could be made, and that the United States had both the will and
the ability to enforce their own laws and to protect their flag from being
used for purposes wholly forbidden by those laws and obnoxious to the moral
censure of the world. Taking the message as his letter of instructions, our
then minister at Paris felt himself required to assume the same ground in a
remonstrance which he felt it to be his duty to present to Mr. Guizot, and
through him to the King of the French, against what has been called the
"quintuple treaty;" and his conduct in this respect met with the approval
of this Government. In close conformity with these views the eighth article
of the treaty was framed; which provides "that each nation shall keep
afloat in the African seas a force not less than 80 guns, to act separately
and apart, under instructions from their respective Governments, and for
the enforcement of their respective laws and obligations." From this it
will be seen that the ground assumed in the message has been fully
maintained at the same time that the stipulations of the treaty of Ghent
are to be carried out in good faith by the two countries, and that all
pretense is removed for interference with our commerce for any purpose
whatever by a foreign government. While, therefore, the United States have
been standing up for the freedom of the seas, they have not thought proper
to make that a pretext for avoiding a fulfillment of their treaty
stipulations or a ground for giving countenance to a trade reprobated by
our laws. A similar arrangement by the other great powers could not fail to
sweep from the ocean the slave trade without the interpolation of any new
principle into the maritime code. We may be permitted to hope that the
example thus set will be followed by some if not all of them. We thereby
also afford suitable protection to the fair trader in those seas, thus
fulfilling at the same time the dictates of a sound policy and complying
with the claims of justice and humanity.

It would have furnished additional cause for congratulation if the treaty
could have embraced all subjects calculated in future to lead to a
misunderstanding between the two Governments. The Territory of the United
States commonly called the Oregon Territory, lying on the Pacific Ocean
north of the forty-second degree of latitude, to a portion of which Great
Britain lays claim, begins to attract the attention of our fellow-citizens,
and the tide of population which has reclaimed what was so lately an
unbroken wilderness in more contiguous regions is preparing to flow over
those vast districts which stretch from the Rocky Mountains to the Pacific
Ocean. In advance of the acquirement of individual rights to these lands,
sound policy dictates that every effort should be resorted to by the two
Governments to settle their respective claims. It became manifest at an
early hour of the late negotiations that any attempt for the time being
satisfactorily to determine those rights would lead to a protracted
discussion, which might embrace in its failure other more pressing matters,
and the Executive did not regard it as proper to waive all the advantages
of an honorable adjustment of other difficulties of great magnitude and
importance because this, not so immediately pressing, stood in the way.
Although the difficulty referred to may not for several years to come
involve the peace of the two countries, yet I shall not delay to urge on
Great Britain the importance of its early settlement. Nor will other
matters of commercial importance to the two countries be overlooked, and I
have good reason to believe that it will comport with the policy of
England, as it does with that of the United States, to seize upon this
moment, when most of the causes of irritation have passed away, to cement
the peace and amity of the two countries by wisely removing all grounds of
probable future collision.

With the other powers of Europe our relations continue on the most amicable
footing. Treaties now existing with them should be rigidly observed, and
every opportunity compatible with the interests of the United States should
be seized upon to enlarge the basis of commercial intercourse. Peace with
all the world is the true foundation of our policy, which can only be
rendered permanent by the practice of equal and impartial justice to all.
Our great desire should be to enter only into that rivalry which looks to
the general good in the cultivation of the sciences, the enlargement of the
field for the exercise of the mechanical arts, and the spread of
commerce--that great civilizer--to every land and sea. Carefully abstaining
from interference in all questions exclusively referring themselves to the
political interests of Europe, we may be permitted to hope an equal
exemption from the interference of European Governments in what relates to
the States of the American continent.

On the 23d of April last the commissioners on the part of the United States
under the convention with the Mexican Republic of the 11th of April, 1839,
made to the proper Department a final report in relation to the proceedings
of the commission. From this it appears that the total amount awarded to
the claimants by the commissioners and the umpire appointed under that
convention was $2,026,079.68. The arbiter having considered that his
functions were required by the convention to terminate at the same time
with those of the commissioners, returned to the board, undecided for want
of time, claims which had been allowed by the American commissioners to the
amount of $928,620.88. Other claims, in which the amount sought to be
recovered was $3,336,837.05, were submitted to the board too late for its
consideration. The minister of the United States at Mexico has been duly
authorized to make demand for payment of the awards according to the terms
of the convention and the provisions of the act of Congress of the 12th of
June, 1840. He has also been instructed to communicate to that Government
the expectations of the Government of the United States in relation to
those claims which were not disposed of according to the provisions of the
convention, and all others of citizens of the United States against the
Mexican Government. He has also been furnished with other instructions, to
be followed by him in case the Government of Mexico should not find itself
in a condition to make present payment of the amount of the awards in
specie or its equivalent.

I am happy to be able to say that information which is esteemed favorable
both to a just satisfaction of the awards and a reasonable provision for
other claims has been recently received from Mr. Thompson, the minister of
the United States, who has promptly and efficiently executed the
instructions of his Government in regard to this important subject.

The citizens of the United States who accompanied the late Texan expedition
to Santa Fe, and who were wrongfully taken and held as prisoners of war in
Mexico, have all been liberated.

A correspondence has taken place between the Department of State and the
Mexican minister of foreign affairs upon the complaint of Mexico that
citizens of the United States were permitted to give aid to the inhabitants
of Texas in the war existing between her and that Republic. Copies of this
correspondence are herewith communicated to Congress, together with copies
of letters on the same subject addressed to the diplomatic corps at Mexico
by the American minister and the Mexican secretary of state.

Mexico has thought proper to reciprocate the mission of the United States
to that Government by accrediting to this a minister of the same rank as
that of the representative of the United States in Mexico. From the
circumstances connected with his mission favorable results are anticipated
from it. It is so obviously for the interest of both countries as neighbors
and friends that all just causes of mutual dissatisfaction should be
removed that it is to be hoped neither will omit or delay the employment of
any practicable and honorable means to accomplish that end.

The affairs pending between this Government and several others of the
States of this hemisphere formerly under the dominion of Spain have again
within the past year been materially obstructed by the military revolutions
and conflicts in those countries.

The ratifications of the treaty between the United States and the Republic
of Ecuador of the 13th of June, 1839, have been exchanged, and that
instrument has been duly promulgated on the part of this Government. Copies
are now communicated to Congress with a view to enable that body to make
such changes in the laws applicable to our intercourse with that Republic
as may be deemed requisite.

Provision has been made by the Government of Chile for the payment of the
claim on account of the illegal detention of the brig Warrior at Coquimbo
in 1820. This Government has reason to expect that other claims of our
citizens against Chile will be hastened to a final and satisfactory close.

The Empire of Brazil has not been altogether exempt from those convulsions
which so constantly afflict the neighboring republics. Disturbances which
recently broke out are, however, now understood to be quieted. But these
occurrences, by threatening the stability of the governments, or by causing
incessant and violent changes in them or in the persons who administer
them, tend greatly to retard provisions for a just indemnity for losses and
injuries suffered by individual subjects or citizens of other states. The
Government of the United States will feel it to be its duty, however, to
consent to no delay not unavoidable in making satisfaction for wrongs and
injuries sustained by its own citizens. Many years having in some cases
elapsed, a decisive and effectual course of proceeding will be demanded of
the respective governments against whom claims have been preferred.

The vexatious, harassing, and expensive war which so long prevailed with
the Indian tribes inhabiting the peninsula of Florida has happily been
terminated, whereby our Army has been relieved from a service of the most
disagreeable character and the Treasury from a large expenditure. Some
casual outbreaks may occur, such as are incident to the close proximity of
border settlers and the Indians, but these, as in all other cases, may be
left to the care of the local authorities, aided when occasion may require
by the forces of the United States. A sufficient number of troops will be
maintained in Florida so long as the remotest apprehensions of danger shall
exist, yet their duties will be limited rather to the garrisoning of the
necessary posts than to the maintenance of active hostilities. It is to be
hoped that a territory so long retarded in its growth will now speedily
recover from the evils incident to a protracted war, exhibiting in the
increased amount of its rich productions true evidences of returning wealth
and prosperity. By the practice of rigid justice toward the numerous Indian
tribes residing within our territorial limits and the exercise of a
parental vigilance over their interests, protecting them against fraud and
intrusion, and at the same time using every proper expedient to introduce
among them the arts of civilized life, we may fondly hope not only to wean
them from their love of war, but to inspire them with a love for peace and
all its avocations. With several of the tribes great progress in civilizing
them has already been made. The schoolmaster and the missionary are found
side by side, and the remnants of what were once numerous and powerful
nations may yet be preserved as the builders up of a new name for
themselves and their posterity.

The balance in the Treasury on the 1st of January, 1842, exclusive of the
amount deposited with the States, trust funds, and indemnities, was
$230,483.68. The receipts into the Treasury during the three first quarters
of the present year from all sources amount to $26,616,593.78, of which
more than fourteen millions were received from customs and about one
million from the public lands. The receipts for the fourth quarter are
estimated at nearly eight millions, of which four millions are expected
from customs and three millions and a half from loans and Treasury notes.
The expenditures of the first three quarters of the present year exceed
twenty-six millions, and those estimated for the fourth quarter amount to
about eight millions; and it is anticipated there will be a deficiency of
half a million on the 1st of January next, but that the amount of
outstanding warrants (estimated at $800,000) will leave an actual balance
of about $224,000 in the Treasury. Among the expenditures of this year are
more than eight millions for the public debt and about $600,000 on account
of the distribution to the States of the proceeds of sales of the public
lands.

The present tariff of duties was somewhat hastily and hurriedly passed near
the close of the late session of Congress. That it should have defects can
therefore be surprising to no one. To remedy such defects as may be found
to exist in any of its numerous provisions will not fail to claim your
serious attention. It may well merit inquiry whether the exaction of all
duties in cash does not call for the introduction of a system which has
proved highly beneficial in countries where it has been adopted. I refer to
the warehousing system. The first and most prominent effect which it would
produce would be to protect the market alike against redundant or deficient
supplies of foreign fabrics, both of which in the long run are injurious as
well to the manufacturer as the importer. The quantity of goods in store
being at all times readily known, it would enable the importer with an
approach to accuracy to ascertain the actual wants of the market and to
regulate himself accordingly. If, however, he should fall into error by
importing an excess above the public wants, he could readily correct its
evils by availing himself of the benefits and advantages of the system thus
established. In the storehouse the goods imported would await the demand of
the market and their issues would be governed by the fixed principles of
demand and supply. Thus an approximation would be made to a steadiness and
uniformity of price, which if attainable would conduce to the decided
advantage of mercantile and mechanical operations.

The apprehension may be well entertained that without something to
ameliorate the rigor of cash payments the entire import trade may fall into
the hands of a few wealthy capitalists in this country and in Europe. The
small importer, who requires all the money he can raise for investments
abroad, and who can but ill afford to pay the lowest duty, would have to
subduct in advance a portion of his funds in order to pay the duties, and
would lose the interest upon the amount thus paid for all the time the
goods might remain unsold, which might absorb his profits. The rich
capitalist, abroad as well as at home, would thus possess after a short
time an almost exclusive monopoly of the import trade, and laws designed
for the benefit of all would thus operate for the benefit of a few--a
result wholly uncongenial with the spirit of our institutions and
antirepublican in all its tendencies. The warehousing system would enable
the importer to watch the market and to select his own time for offering
his goods for sale. A profitable portion of the carrying trade in articles
entered for the benefit of drawback must also be most seriously affected
without the adoption of some expedient to relieve the cash system. The
warehousing system would afford that relief, since the carrier would have a
safe recourse to the public storehouses and might without advancing the
duty reship within some reasonable period to foreign ports. A further
effect of the measure would be to supersede the system of drawbacks,
thereby effectually protecting the Government against fraud, as the right
of debenture would not attach to goods after their withdrawal from the
public stores.

In revising the existing tariff of duties, should you deem it proper to do
so at your present session, I can only repeat the suggestions and
recommendations which upon several occasions I have heretofore felt it to
be my duty to offer to Congress. The great primary and controlling interest
of the American people is union--union not only in the mere forms of
government, forms which may be broken, but union rounded in an attachment
of States and individuals for each other. This union in sentiment and
feeling can only be preserved by the adoption of that course of policy
which, neither giving exclusive benefits to some nor imposing unnecessary
burthens upon others, shall consult the interests of all by pursuing a
course of moderation and thereby seeking to harmonize public opinion, and
causing the people everywhere to feel and to know that the Government is
careful of the interests of all alike. Nor is there any subject in regard
to which moderation, connected with a wise discrimination, is more
necessary than in the imposition of duties on imports. Whether reference be
had to revenue, the primary object in the imposition of taxes, or to the
incidents which necessarily flow from their imposition, this is entirely
true. Extravagant duties defeat their end and object, not only by exciting
in the public mind an hostility to the manufacturing interests, but by
inducing a system of smuggling on an extensive scale and the practice of
every manner of fraud upon the revenue, which the utmost vigilance of
Government can not effectually suppress. An opposite course of policy would
be attended by results essentially different, of which every interest of
society, and none more than those of the manufacturer, would reap important
advantages. Among the most striking of its benefits would be that derived
from the general acquiescence of the country in its support and the
consequent permanency and stability which would be given to all the
operations of industry. It can not be too often repeated that no system of
legislation can be wise which is fluctuating and uncertain. No interest can
thrive under it. The prudent capitalist will never adventure his capital in
manufacturing establishments, or in any other leading pursuit of life, if
there exists a state of uncertainty as to whether the Government will
repeal to-morrow what it has enacted to-day. Fitful profits, however high,
if threatened with a ruinous reduction by a vacillating policy on the part
of Government, will scarcely tempt him to trust the money which he has
acquired by a life of labor upon the uncertain adventure. I therefore, in
the spirit of conciliation, and influenced by no other desire than to
rescue the great interests of the country from the vortex of political
contention, and in the discharge of the high and solemn duties of the place
which I now occupy, recommend moderate duties, imposed with a wise
discrimination as to their several objects, as being not only most likely
to be durable, but most advantageous to every interest of society.

The report of the Secretary of the War Department exhibits a very full and
satisfactory account of the various and important interests committed to
the charge of that officer. It is particularly gratifying to find that the
expenditures for the military service are greatly reduced in amount--that a
strict system of economy has been introduced into the service and the
abuses of past years greatly reformed. The fortifications on our maritime
frontier have been prosecuted with much vigor, and at many points our
defenses are in a very considerable state of forwardness. The suggestions
in reference to the establishment of means of communication with our
territories on the Pacific and to the surveys so essential to a knowledge
of the resources of the intermediate country are entitled to the most
favorable consideration. While I would propose nothing inconsistent with
friendly negotiations to settle the extent of our claims in that region,
yet a prudent forecast points out the necessity of such measures as may
enable us to maintain our rights. The arrangements made for preserving our
neutral relations on the boundary between us and Texas and keeping in check
the Indians in that quarter will be maintained so long as circumstances may
require. For several years angry contentions have grown out of the
disposition directed by law to be made of the mineral lands held by the
Government in several of the States. The Government is constituted the
landlord, and the Citizens of the States wherein lie the lands are its
tenants. The relation is an unwise one, and it would be much more conducive
of the public interest that a sale of the lands should be made than that
they should remain in their present condition. The supply of the ore would
be more abundantly and certainly furnished when to be drawn from the
enterprise and the industry of the proprietor than under the present
system.

The recommendations of the Secretary in regard to the improvements of the
Western waters and certain prominent harbors on the Lakes merit, and I
doubt not will receive, your serious attention. The great importance of
these subjects to the prosperity of the extensive region referred to and
the security of the whole country in time of war can not escape
observation. The losses of life and property which annually occur in the
navigation of the Mississippi alone because of the dangerous obstructions
in the river make a loud demand upon Congress for the adoption of efficient
measures for their removal.

The report of the Secretary of the Navy will bring you acquainted with that
important branch of the public defenses. Considering the already vast and
daily increasing commerce of the country, apart from the exposure to
hostile inroad of an extended seaboard, all that relates to the Navy is
calculated to excite particular attention. Whatever tends to add to its
efficiency without entailing unnecessary charges upon the Treasury is well
worthy of your serious consideration. It will be seen that while an
appropriation exceeding by more than a million the appropriations of the
current year is asked by the Secretary, yet that in this sum is proposed to
be included $400,000 for the purchase of clothing, which when once expended
will be annually reimbursed by the sale of the clothes, and will thus
constitute a perpetual fund without any new appropriation to the same
object. To this may also be added $50,000 asked to cover the arrearages of
past years and $250,000 in order to maintain a competent squadron on the
coast of Africa; all of which when deducted will reduce the expenditures
nearly within the limits of those of the current year. While, however, the
expenditures will thus remain very nearly the same as of the antecedent
year, it is proposed to add greatly to the operations of the marine, and in
lieu of only 25 ships in commission and but little in the way of building,
to keep with the same expenditure 41 vessels afloat and to build 12 ships
of a small class.

A strict system of accountability is established and great pains are taken
to insure industry, fidelity, and economy in every department of duty.
Experiments have been instituted to test the quality of various materials,
particularly copper, iron, and coal, so as to prevent fraud and
imposition.

It will appear by the report of the Postmaster-General that the great point
which for several years has been so much desired has during the current
year been fully accomplished. The expenditures of the Department for
current service have been brought within its income without lessening its
general usefulness. There has been an increase of revenue equal to $166,000
for the year 1842 over that of 1841, without, as it is believed, any
addition having been made to the number of letters and newspapers
transmitted through the mails. The post-office laws have been honestly
administered, and fidelity has been observed in accounting for and paying
over by the subordinates of the Department the moneys which have been
received. For the details of the service I refer you to the report.

I flatter myself that the exhibition thus made of the condition of the
public administration will serve to convince you that every proper
attention has been paid to the interests of the country by those who have
been called to the heads of the different Departments. The reduction in the
annual expenditures of the Government already accomplished furnishes a sure
evidence that economy in the application of the public moneys is regarded
as a paramount duty.

At peace with all the world, the personal liberty of the citizen sacredly
maintained and his rights secured under political institutions deriving all
their authority from the direct sanction of the people, with a soil fertile
almost beyond example and a country blessed with every diversity of climate
and production, what remains to be done in order to advance the happiness
and prosperity of such a people? Under ordinary circumstances this inquiry
could readily be answered. The best that probably could be done for a
people inhabiting such a country would be to fortify their peace and
security in the prosecution of their various pursuits by guarding them
against invasion from without and violence from within. The rest for the
greater part might be left to their own energy and enterprise. The chief
embarrassments which at the moment exhibit themselves have arisen from
overaction, and the most difficult task which remains to be accomplished is
that of correcting and overcoming its effects. Between the years 1833 and
1838 additions were made to bank capital and bank issues, in the form of
notes designed for circulation, to an extent enormously great. The question
seemed to be not how the best currency could be provided, but in what
manner the greatest amount of bank paper could be put in circulation. Thus
a vast amount of what was called money--since for the time being it
answered the purposes of money--was thrown upon the country, an overissue
which was attended, as a necessary consequence, by an extravagant increase
of the prices of all articles of property, the spread of a speculative
mania all over the country, and has finally ended in a general indebtedness
on the part of States and individuals, the prostration of public and
private credit, a depreciation in the market value of real and personal
estate, and has left large districts of country almost entirely without any
circulating medium. In view of the fact that in 1830 the whole bank-note
circulation within the United States amounted to but $61,323,898, according
to the Treasury statements, and that an addition had been made thereto of
the enormous sum of $88,000,000 in seven years (the circulation on the 1st
of January, 1837, being stated at $149,185,890), aided by the great
facilities afforded in obtaining loans from European capitalists, who were
seized with the same speculative mania which prevailed in the United
States, and the large importations of funds from abroad--the result of
stock sales and loans--no one can be surprised at the apparent but
unsubstantial state of prosperity which everywhere prevailed over the land;
and as little cause of surprise should be felt at the present prostration
of everything and the ruin which has befallen so many of our
fellow-citizens in the sudden withdrawal from circulation of so large an
amount of bank issues since 1837--exceeding, as is believed, the amount
added to the paper currency for a similar period antecedent to 1837--it
ceases to be a matter of astonishment that such extensive shipwreck should
have been made of private fortunes or that difficulties should exist in
meeting their engagements on the part of the debtor States; apart from
which, if there be taken into account the immense losses sustained in the
dishonor of numerous banks, it is less a matter of surprise that insolvency
should have visited many of our fellow-citizens than that so many should
have escaped the blighting influences of the times.

In the solemn conviction of these truths and with an ardent desire to meet
the pressing necessities of the country, I felt it to be my duty to cause
to be submitted to you at the commencement of your last session the plan of
an exchequer, the whole power and duty of maintaining which in purity and
vigor was to be exercised by the representatives of the people and the
States, and therefore virtually by the people themselves. It was proposed
to place it under the control and direction of a Treasury board to consist
of three commissioners, whose duty it should be to see that the law of its
creation was faithfully executed and that the great end of supplying a
paper medium of exchange at all times convertible into gold and silver
should be attained. The board thus constituted was given as much permanency
as could be imparted to it without endangering the proper share of
responsibility which should attach to all public agents. In order to insure
all the advantages of a well-matured experience, the commissioners were to
hold their offices for the respective periods of two, four, and six years,
thereby securing at all times in the management of the exchequer the
services of two men of experience; and to place them in a condition to
exercise perfect independence of mind and action it was provided that their
removal should only take place for actual incapacity or infidelity to the
trust, and to be followed by the President with an exposition of the causes
of such removal, should it occur. It was proposed to establish subordinate
boards in each of the States, under the same restrictions and limitations
of the power of removal, which, with the central board, should receive,
safely keep, and disburse the public moneys. And in order to furnish a
sound paper medium of exchange the exchequer should retain of the revenues
of the Government a sum not to exceed $5,000,000 in specie, to be set apart
as required by its operations, and to pay the public creditor at his own
option either in specie or Treasury notes of denominations not less than $5
nor exceeding $100, which notes should be redeemed at the several places of
issue, and to be receivable at all times and everywhere in payment of
Government dues, with a restraint upon such issue of bills that the same
should not exceed the maximum of $15,000,000. In order to guard against all
the hazards incident to fluctuations in trade, the Secretary of the
Treasury was invested with authority to issue $5,000,000 of Government
stock, should the same at any time be regarded as necessary in order to
place beyond hazard the prompt redemption of the bills which might be
thrown into circulation; thus in fact making the issue of $15,000,000 of
exchequer bills rest substantially on $10,000,000, and keeping in
circulation never more than one and one-half dollars for every dollar in
specie. When to this it is added that the bills are not only everywhere
receivable in Government dues, but that the Government itself would be
bound for their ultimate redemption, no rational doubt can exist that the
paper which the exchequer would furnish would readily enter into general
circulation and be maintained at all times at or above par with gold and
silver, thereby realizing the great want of the age and fulfilling the
wishes of the people. In order to reimburse the Government the expenses of
the plan, it was proposed to invest the exchequer with the limited
authority to deal in bills of exchange (unless prohibited by the State in
which an agency might be situated) having only thirty days to run and
resting on a fair and bona fide basis. The legislative will on this point
might be so plainly announced as to avoid all pretext for partiality or
favoritism. It was furthermore proposed to invest this Treasury agent with
authority to receive on deposit to a limited amount the specie funds of
individuals and to grant certificates therefor to be redeemed on
presentation, under the idea, which is believed to be well founded, that
such certificates would come in aid of the exchequer bills in supplying a
safe and ample paper circulation. Or if in place of the contemplated
dealings in exchange the exchequer should be authorized not only to
exchange its bills for actual deposits of specie, but, for specie or its
equivalent, to sell drafts, charging therefor a small but reasonable
premium, I can not doubt but that the benefits of the law would be speedily
manifested in the revival of the credit, trade, and business of the whole
country. Entertaining this opinion, it becomes my duty to urge its adoption
upon Congress by reference to the strongest considerations of the public
interests, with such alterations in its details as Congress may in its
wisdom see fit to make.

I am well aware that this proposed alteration and amendment of the laws
establishing the Treasury Department has encountered various objections,
and that among others it has been proclaimed a Government bank of fearful
and dangerous import. It is proposed to confer upon it no extraordinary
power. It purports to do no more than pay the debts of the Government with
the redeemable paper of the Government, in which respect it accomplishes
precisely what the Treasury does daily at this time in issuing to the
public creditors the Treasury notes which under law it is authorized to
issue. It has no resemblance to an ordinary bank, as it furnishes no
profits to private stockholders and lends no capital to individuals. If it
be objected to as a Government bank and the objection be available, then
should all the laws in relation to the Treasury be repealed and the
capacity of the Government to collect what is due to it or pay what it owes
be abrogated.

This is the chief purpose of the proposed exchequer, and surely if in the
accomplishment of a purpose so essential it affords a sound circulating
medium to the country and facilities to trade it should be regarded as no
slight recommendation of it to public consideration. Properly guarded by
the provisions of law, it can run into no dangerous evil, nor can any abuse
arise under it but such as the Legislature itself will be answerable for if
it be tolerated, since it is but the creature of the law and is susceptible
at all times of modification, amendment, or repeal at the pleasure of
Congress. I know that it has been objected that the system would be liable
to be abused by the Legislature, by whom alone it could be abused, in the
party conflicts of the day; that such abuse would manifest itself in a
change of the law which would authorize an excessive issue of paper for the
purpose of inflating prices and winning popular favor. To that it may be
answered that the ascription of such a motive to Congress is altogether
gratuitous and inadmissible. The theory of our institutions would lead us
to a different conclusion. But a perfect security against a proceeding so
reckless would be found to exist in the very nature of things. The
political party which should be so blind to the true interests of the
country as to resort to such an expedient would inevitably meet with final
overthrow in the fact that the moment the paper ceased to be convertible
into specie or otherwise promptly redeemed it would become worthless, and
would in the end dishonor the Government, involve the people in ruin and
such political party in hopeless disgrace. At the same time, such a view
involves the utter impossibility of furnishing any currency other than that
of the precious metals; for if the Government itself can not forego the
temptation of excessive paper issues what reliance can be placed in
corporations upon whom the temptations of individual aggrandizement would
most strongly operate? The people would have to blame none but themselves
for any injury that might arise from a course so reckless, since their
agents would be the wrongdoers and they the passive spectators.

There can be but three kinds of public currency--first, gold and silver;
second, the paper of State institutions; or, third, a representative of the
precious metals provided by the General Government or under its authority.
The subtreasury system rejected the last in any form, and as it was
believed that no reliance could be placed on the issues of local
institutions for the purposes of general circulation it necessarily and
unavoidably adopted specie as the exclusive currency for its own use; and
this must ever be the case unless one of the other kinds be used. The
choice in the present state of public sentiment lies between an exclusive
specie currency on the one hand and Government issues of some kind on the
other. That these issues can not be made by a chartered institution is
supposed to be conclusively settled. They must be made, then, directly by
Government agents. For several years past they have been thus made in the
form of Treasury notes, and have answered a valuable purpose. Their
usefulness has been limited by their being transient and temporary; their
ceasing to bear interest at given periods necessarily causes their speedy
return and thus restricts their range of circulation, and being used only
in the disbursements of Government they can not reach those points where
they are most required. By rendering their use permanent, to the moderate
extent already mentioned, by offering no inducement for their return and by
exchanging them for coin and other values, they will constitute to a
certain extent the general currency so much needed to maintain the internal
trade of the country. And this is the exchequer plan so far as it may
operate in furnishing a currency.

I can not forego the occasion to urge its importance to the credit of the
Government in a financial point of view. The great necessity of resorting
to every proper and becoming expedient in order to place the Treasury on a
footing of the highest respectability is entirely obvious. The credit of
the Government may be regarded as the very soul of the Government itself--a
principle of vitality without which all its movements are languid and all
its operations embarrassed. In this spirit the Executive felt itself bound
by the most imperative sense of duty to submit to Congress at its last
session the propriety of making a specific pledge of the land fund as the
basis for the negotiation of the loans authorized to be contracted. I then
thought that such an application of the public domain would without doubt
have placed at the command of the Government ample funds to relieve the
Treasury from the temporary embarrassments under which it labored. American
credit has suffered a considerable shock in Europe from the large
indebtedness of the States and the temporary inability of some of them to
meet the interest on their debts. The utter and disastrous prostration of
the United States Bank of Pennsylvania had contributed largely to increase
the sentiment of distrust by reason of the loss and ruin sustained by the
holders of its stock, a large portion of whom were foreigners and many of
whom were alike ignorant of our political organization and of our actual
responsibilities.

It was the anxious desire of the Executive that in the effort to negotiate
the loan abroad the American negotiator might be able to point the money
lender to the fund mortgaged for the redemption of the principal and
interest of any loan he might contract, and thereby vindicate the
Government from all suspicion of bad faith or inability to meet its
engagements. Congress differed from the Executive in this view of the
subject. It became, nevertheless, the duty of the Executive to resort to
every expedient in its power to do so.

After a failure in the American market a citizen of high character and
talent was sent to Europe, with no better success; and thus the mortifying
spectacle has been presented of the inability of this Government to obtain
a loan so small as not in the whole to amount to more than one-fourth of
its ordinary annual income, at a time when the Governments of Europe,
although involved in debt and with their subjects heavily burthened with
taxation, readily obtained loans of any amount at a greatly reduced rate of
interest. It would be unprofitable to look further into this anomalous
state of things, but I can not conclude without adding that for a
Government which has paid off its debts of two wars with the largest
maritime power of Europe, and now owing a debt which is almost next to
nothing when compared with its boundless resources--a Government the
strongest in the world, because emanating from the popular will and firmly
rooted in the affections of a great and free people, and whose fidelity to
its engagements has never been questioned--for such a Government to have
tendered to the capitalists of other countries an opportunity for a small
investment in its stock, and yet to have failed, implies either the most
unfounded distrust in its good faith or a purpose to obtain which the
course pursued is the most fatal which could have been adopted. It has now
become obvious to all men that the Government must look to its own means
for supplying its wants, and it is consoling to know that these means are
altogether adequate for the object. The exchequer, if adopted, will greatly
aid in bringing about this result. Upon what I regard as a well-rounded
supposition that its bills would be readily sought for by the public
creditors and that the issue would in a short time reach the maximum of
$15,000,000, it is obvious that $10,000,000 would thereby be added to the
available means of the Treasury without cost or charge. Nor can I fail to
urge the great and beneficial effects which would be produced in aid of all
the active pursuits of life. Its effects upon the solvent State banks,
while it would force into liquidation those of an opposite character
through its weekly settlements, would be highly beneficial; and with the
advantages of a sound currency the restoration of confidence and credit
would follow with a numerous train of blessings. My convictions are most
strong that these benefits would flow from the adoption of this measure;
but if the result should be adverse there is this security in connection
with it--that the law creating it may be repealed at the pleasure of the
Legislature without the slightest implication of its good faith.

I recommend to Congress to take into consideration the propriety of
reimbursing a fine imposed on General Jackson at New Orleans at the time of
the attack and defense of that city, and paid by him. Without designing any
reflection on the judicial tribunal which imposed the fine, the remission
at this day may be regarded as not unjust or inexpedient. The voice of the
civil authority was heard amidst the glitter of arms and obeyed by those
who held the sword, thereby giving additional luster to a memorable
military achievement. If the laws were offended, their majesty was fully
vindicated; and although the penalty incurred and paid is worthy of little
regard in a pecuniary point of view, it can hardly be doubted that it would
be gratifying to the war-worn veteran, now in retirement and in the winter
of his days, to be relieved from the circumstances in which that judgment
placed him. There are cases in which public functionaries may be called on
to weigh the public interest against their own personal hazards, and if the
civil law be violated from praiseworthy motives or an overruling sense of
public danger and public necessity punishment may well be restrained within
that limit which asserts and maintains the authority of the law and the
subjection of the military to the civil power. The defense of New Orleans,
while it saved a city from the hands of the enemy, placed the name of
General Jackson among those of the greatest captains of the age and
illustrated one of the brightest pages of our history. Now that the causes
of excitement existing at the time have ceased to operate, it is believed
that the remission of this fine and whatever of gratification that
remission might cause the eminent man who incurred and paid it would be in
accordance with the general feeling and wishes of the American people.

I have thus, fellow-citizens, acquitted myself of my duty under the
Constitution by laying before you as succinctly as I have been able the
state of the Union and by inviting your attention to measures of much
importance to the country. The executive will most zealously unite its
efforts with those of the legislative department in the accomplishment of
all that is required to relieve the wants of a common constituency or
elevate the destinies of a beloved country.