situated in the midst of a fertile and productive country, where nearly all the supplies for the troops could be procured. Now, on the contrary, they are, for the most part, in one of the most unproductive regions in the world, which furnishes but a small portion of the necessary supplies for an army. Those supplies must, therefore, all be drawn from the older States and transported immense distances. The consequence is that, while in 1815 the cost of transportation (of troops and supplies) was $130,053.52, in 1850-1851 it amounted to $2,094,408.51. In the former the cost of forage was $99,794.20, in the latter it was $1,287,327.91. The great increase in this last item arises not only from the causes just mentioned, but also from the great increase of animals in the Quartermaster's department, which in 1815 amounted only to 17, and in 1850-51 to upwards of 8000; and also to the fact that the mounted force has been greatly increased.

4th. The great distance which troops have now to be transported in going to and from the several posts.

This is a very important item. Owing to the smallness of our army, changes of station are very frequent, and instead of being made, as they formerly were, by water, they are now made by land. When it is recollected what a vast amount of transportation is necessary for an army on a long march, when not only their baggage, but supplies of every kind (including provisions for their daily consumption,) must be carried with them, some idea may be formed of the expense attending these changes of station. The above facts will serve, in some degree, to explain the great increase that has taken place in the expenditures of that Department. For fuller explanations on this subject, I refer to the accompanying report of the quartermaster-general.

It is probable, however, that in some instances, the expenditures both of the quartermaster's and the commissary departments may have been increased by mal-administration. The transactions of both these departments involve such a variety of details, and their agents are so far removed from the supervision of their chiefs, that abuses may exist a long time before they are discovered. Every effort, however, has been used to detect these abuses, and to prevent their recurrence. Inspectors have been sent to the frontiers to inquire into the manner in which the affairs of these departments are administered, and a rigid scrutiny into accounts has been ordered. I regret to say that the department has some reasons to fear that its apprehensions on this subject were not altogether without foundation.

From statements carefully prepared by the different burcans of this department, it appears that the increased expenditures in the army, resulting from our newly-acquired territory, (including Texas) amounted to 1,556,709.75.

Congress, at their last session, omitted to provide for a deficiency which was ascertained to exist in the appropriations for the quartermaster's department for the year ending 30th June last. Serious embarrassment would have resulted to the service from this omission, had there not existed some unexpended balances of former appropriations, which, under the art of August 26, 1842, were transferred to the quartermaster's department. Congress also reduced all the items of appropriations but one, for the same departiment, for the current fiscal year ending 30th June next, fifty per cent. below the estimates; the consequence of which is, that the appropria tions for that department are entirely inadequate to its wants, and that Congress will be called upon, at an early period, to supply the deficiency.

Congress having clearly manifested a determination to reduce, as far as possible, the expenditures of the army, I felt it my duty, as far as was practicable, to carry their views into effect. I have accordingly labored to reform abuses, to enforce rigidly all regulations looking to economy, and to retrench every unnecessary expense. I will enumerate some of the measures adopted for this purpose:

The number of enlisted men in the ordnance department prior to the late war, amounted to two hundred and fifty (250) men, but during the war it was increased to five hundred and eighty-seven (587) men. By an order of the department they were reduced to their original number.

Prior to the late war there were only four light artillery companies; after the war broke out, four more of the artillery companies were converted into light artillery, making, in all, eight companies. This description of troops, although extremely effective in a regular war, are utterly useless in the kind of service in which the army is now employed. The department did not hesitate, therefore, to direct that six of these companies should be dismounted. Of this number, four will continue dismounted, unless Congress should otherwise direct; but as it is deemed important to preserve a portion of this description of force, the two remaining companies will be remounted as soon as the department is provided with the means of doing so. This will make, in all, four companies, or one to each of the regiments of artillery, which seems to have been contemplated by the act of 1821. A number of persons from civil life are employed in the service in various capacities, such as clerks, &c. An order was issued whereby their number has been greatly reduced, and their duties required to be performed by officers and soldiers.

An order was issued last spring, that at all the permanent posts on the frontier, where it was practicable, farms should be established, to be cultivated by the troops. Sufficient time has not yet elapsed to ascertain the result of the experiment. If it should prove successful, it will not only effect a considerable reduction of expenses in the quartermaster's and commissary's departments, but will greatly promote the health and comfort of the troops.

Besides these measures, various others, which it is needless to enumerate, have been adopted with a view to promote economy, and to insure fidelity and attention on the part of disbursing officers.

The fact is not to be disguised, that a great laxity of expense, and a disregard of the regulations looking to economy, had become somewhat prevalent in the army. The department has exerted itself to remedy this evil, and is gratified to say, that in all its efforts for this purpose it has received the aid and zealous coöperation of the superior officers. The effect of the measures it has adopted for this purpose is already discernible, in a considerable reduction of the expenditures; and I have the satisfaction to announce that the estimates of the department, for the next fiscal year, are considerably below the expenditures of the present and preceding years.

The expenditures for the support of the army, for the

fiscal year ending 30th June last, wereThe estimates for the next year are

Showing a reduction of...

$9,060,268 58

7,898,775 83

$1,161,492 75

There are some other measures of economy which the department would have carried out, had the aid of legislation not been necessary to enable it to do so.

A number of arsenals have from time to time been established at points where they were then needed, but where, in consequence of the extension of our frontier and the vastly increased facilities of transportation, they are now entirely useless. As it is doubtful whether it be competent for the executive to abolish these establishments, it is desirable that this authority be vested in it by law.

In my last report I recommended that the department should be authorized to enlist men specially as teamsters, and stated, at length, my reasons for this recommendation. Further experience confirms me in the opinion that this mode of obtaining the aid of this indispensable class of persons (of whom five or six hundred are constantly employed by the quartermaster's department) is far preferable to the plan now resorted to, of employing them sometimes at enormous wages. It has been suggested, however, that instead of enlisting men specially as teamsters, it would be better to increase the number of privates in each company on the frontier to one hundred, and to authorize the allowance of a higher rate of pay to such of them as should be detailed as teamsters. This arrangement would enable the officer in command to use them either as teamsters or as soldiers as circumstances might require.

The removal of the obstructions to the navigation of Red river and of the Rio Grande, would greatly reduce the expense of supplying many of the posts in Texas and New Mexico, by diminishing the amount of land transportation. I have little doubt that the amount that the government would save by means of this improvement in two or three years would defray the cost of the work.

But whatever efforts may be made, either by Congress or by the department, to curtail the expenditures of the army, they must continue to be enormous so long as it is necessary that so large a portion of it should be stationed on the frontier. The history of the world affords no instance of an army being permanently stationed at so great a distance from the main source of its supplies. It is evident, therefore, that Congress should resort to every means to diminish the necessity of regular troops for the defence of the frontiers. Permit me to offer a few suggestions on this point, though they do not immediately relate to the operations of this department.

In the first place, I would suggest that every facility and encouragement should be afforded to the formation of a local militia, in which our new possessions, like all the Mexican States, are very deficient. As the first step towards the accomplishment of this object, I would recommend that the executive be authorized to distribute arms among the inhabitants. I am fully persuaded that the advantages that would result from the adoption of this measure, in familiarizing the people with the use of arms, in inspiring them with confidence, and in encouraging the formation of militia companies, would more than compensate for the trifling expense that would attend it. The very fact that the inhabitants were known to be armed would tend to intimidate the Indians. The distribution should, of course, be made with such precautions as would prevent their being sold or converted to an improper use.

The quantity of arms to which the new States and Territories are respectively entitled under the act of 1808, is so small as to be of no practical

advantage, and as they have not participated in the issues heretofore made, it would seem to be but just that they should now receive more than their distributive share. At all events they might be permitted to receive their quota for several years in advance. As the arms are lying idle in the depots, no loss to the government would result from this course, and they will, probably, be never more needed than they are at present.

In the next place, policy and humanity both require that we should employ some other means of putting a stop to these depredations than the terror of our arms; we should try the effect of conciliatory measures. There is no doubt that the Indians are frequently impelled to commit depredations by despair and hunger. As the white population has advanced upon them, they have been compelled to recede before it. The lands that afford nourishment to cattle and game are also the best adapted to cultivation, and consequently the first to tempt the settler, so that the Indians are compelled to take refuge in arid plains and mountains that afford little sustenance to animal life, and even there the circle of white population seems rapidly closing around them. This is particularly the case in Texas. The United States, as the owners of the public domain, have always acted on the principle that the aboriginal race had, at least, a right of occupancy in the soil, and when it was needed for settlement, this right has been extinguished by voluntary sale. Texas, on the contrary, as the owner of all the vacant land within her limits, acknowledges, it is said, no such right, and she has from time to time taken possession of the territory occupied by the Indians— laid it off into counties, and proceeded to survey and sell it. Nothing could be more calculated to alarm and exasperate the Indians and to bring about collisions between them and the white settlers, than the adoption of this policy. That such has been and must continue to be its consequence, there can be no doubt. It would seem, therefore, to be for the advantage both of Texas herself, and of the United States, that these Indians should be left in undisturbed possession of a small portion of her vast territory.

I would also recommend that measures be taken to furnish, for a series of years, food and other necessaries to such Indians as will abandon their predatory habits and cultivate the soil. Authentic information, recently received at this Department, leads to the belief that these tribes are far less numerous than they are generally supposed to be, and I have no doubt (laying aside considerations of humanity) that it would be far less expensive to feed than to fight them.

During the last summer, the Florida Indians voluntarily surrendered up to the agent stationed among them, three of their people who had murdered the youth mentioned in my last report, The Secretary of the Interior, considering this act as an evidence of their desire to remain at peace with the whites, suggested that there was no longer any reason for their continuing under the charge of this Department; and upon his demand, they were placed in the charge of the Department over which he presides.

I took occasion, during the last summer, to visit the Military Academy, and am enabled, from personal observation, to bear testimony to the admirable method of instruction pursued, and the excellent discipline that prevails at this most useful institution. A building, in which lessons in horsemanship could be given, when the weather will not admit of this exercise in the open air, would greatly conduce both to the health and the improvement of the cadets.

I also visited the National Armories at Springfield and Harper's Ferry,

and I cannot speak in terms of too high praise of the order and regularity that prevail at those establishments, and of the admirable economy with which they are conducted.

The operations of the Bureau of Topographical Engineers have been various and important during the last year.

The survey of the northern lakes, a work of which the importance can hardly be estimated, has been prosecuted with great activity, and it would have advanced still more rapidly had the appropriations for that object admitted it. With a view to hasten the completion of the work, the estimates for it for the next year have been increased.

The survey of the creek boundary from the frontiers of Arkansas to nearly the one hundredth degree of longitude west, and that of a route for a road from St. Louis to the great bend of Red river, have been completed and are ready to be laid before Congress.

The expedition to the Salt Lake of the territory of Utah has also returned. The report which, by a resolution of the Senate at the last session, was ordered to be printed, will be ready for delivery during the approaching

session.

The expedition under Brevet Captain Sitgreaves, mentioned in my last annual report, from Santa Fé to the head waters of the Zuni, and down that river to its mouth, is still in the field.

The survey of the delta of the Mississippi, with a view to the prevention of overflows, for which an appropriation was made the session preceding the last, has been nearly completed. One of the gentlemen charged with this highly important work has made his report. That of the other has been delayed by his illness, but it is in course of preparation, and as soon as it is received, both reports will be laid before you.

In consequence of the numerous demands made on the corps of Topographical Engineers, not only for the duties that properly devolve on it, but to meet the demands of other departments under whose charge surveys are made, the head of that corps strongly urges that the number of the officers of that corps be increased. The remarks on this subject, contained in his report, which is hereto appended, are entitled to, and I hope will receive your attention.

regu

I beg leave, also, to call your attention to the laws organizing the Subsistence Department. It was the intention of Congress that this branch of of! the staff should consist of a fixed number of officers, who should be larly appointed by the President, and should give bonds before entering upon the discharge of their duties. This plan, however, has never been fully carried into effect. The number of assistant commissaries was limited by the act of 1821 to fifty, but this number being found insufficient, several | laws, subsequently passed, were so construed as to dispense with the limi-1 tation, and occasionally thrice that number have been in service. Notwithstanding this great increase, it not unfrequently happens that, by changes in the distribution of the troops, a post or detachment is left without any assistant commissary, in which case it is the practice for the commanding officer to designate some subaltern officer as acting Assistant Commissary.

As the posts where these officers are stationed are frequently very remote, it often happens that the assistant and acting assistant commissaries are in the actual discharge of their duties, and entrusted with money and property for a long time before they can receive regular appointments and furnish