34TH CONG....3D SESS. all seasons of the year. It is therefore recommended that another smaller national vessel-a steamer-be sent to visit the island at a different season of the year, so soon as the state of affairs at Panama and on the coast of Washington and Oregon will permit such a vessel to be spared. Arriving at Valparaiso on the 20th of June, the Independence proceeded to Panama, where she is for the present stationed. The St. Mary's, having cruised among the Marquesas, Society, Navigators', and Feejee Islands, arrived at Panama early in May, where she has remained since that time, Commander Bailey having, on several occasions, had it in his power to be of great assistance to our commerce and citizens during political excitements at that place. I have deemed it my duty to retain the Independence and St. Mary's at Panama, and a sloop of war at Aspinwall, to afford protection to the persons and property of the thousands of our countrymen crossing the Isthmus from the violence of an ungoverned population. I am assured that their presence alone has prevented a repetition of the horrible tragedy of the 15th of April last. The John Adams, after an active cruise, returned in the latter part of May to San Francisco, where she remained for some time, her presence being esteemed convenient for the public interest. The Decatur and Massachusetts have been actively employed in suppressing Indian disturbances in Washington Territory, and with the aid of the coast survey steamer Active, Commander J. Allen, were of great service in those troubles, so disastrous to the enterprising pioneers in that distant and very sparsely-settled region. The United States steamer John Hancock was also temporarily employed in this service, under the command of Lieutenant David McDougal. It is my opinion that the interests of our country would be promoted, and could be much better protected, by having two Pacific squadrons instead of one, as at present; and 1 recommend that, as soon as a sufficient number of vessels can be || These deep-sea soundings-this study of the winds and currents and temperature of the ocean -these gradual approaches to greater familiarity with the wonders of the great deep-are pregnant with incalculable usefulness to those who con duct mighty navies, as well as all who "go down to the sea in ships." Observatory, not content with aiding commerce Lieutenant Brooke, of the Navy, had invented a most ingenious yet simple contrivance, in con· nection with the shot used, by which the moment it touched the bed of the ocean it became detached, and carefully took up specimens of whatever it came in contact with, and brought them up safely to the operator. Many of our enterprising countrymen, very naturally desirous of seeing accomplished so grand an undertaking, were anxious that all doubts of practicability should, if possible, be removed by actual observation and examination. There was an act passed in 1849 giving authority to the Secretary of the Navy to use national vessels for "testing new routes and perfecting the discoveries made by Lieutenant Maury in the course of his investigations of the winds and currents of the ocean." I confess I felt some A considerable number of officers are engaged in useful hydrographical duty in connection with the coast survey; others are preparing charts of the North Pacífic and Behring's Straits; while others are soon to present us with the results of explorations of rivers and harbors of South America. ORDNANCE AND GUNNERY-PRACTICE-SHIP. I know of no part of the service more entitled to the liberal patronage of the Government than ordnance and practical gunnery. If the Navy be, indeed, the "right arm of defense," as is so often repeated, it may with great force be added that her guns and ordnance appliances are the main sinews and arteries, the neglect of which would soon render it feeble and palsied. Our national ship may attract admiration for the strength and beauty of her model, and the graceful ease with which she glides on the water; her men may be pride in having the science and naval genius of patterns of discipline, and her officers the bravest our own country to continue foremost in these and best; yet all this will avail naught in the great ocean surveys, and in illustrating the prac- dread hour of battle if either her guns refuse to be ticability of so grand a conception as harnessing faithful messengers, or are managed by those who the lightning, and making it obedient beneath the are untaught in practical gunnery. Americans profound depths of the great sea which Provi- are adepts in the use of the rifle and the musket dence has placed between the Old and New from their boyhood, and when thrown into the World. There was no difficulty in finding a field, no matter how suddenly, they are skillful, competent officer. Lieutenant Berryman, of large and their aim is as fatal as that of the trained experience and established reputation in deep- soldier. Of course, the case is very different in sea soundings, full of that enterprising spirit so regard to the management of a cannon, weighing characteristic of American officers, was not only thousands of pounds, upon a disturbed sea. In ready, but earnestly solicitous and eager to be the British service they have their gunnery pracpermitted to execute the task, assuring the De- tice-ship, where officers and men are trained to partment that, with a few officers and a very the use of cannon as thoroughly and as regularly small crew, he could accomplish it in a few weeks, as the soldier is drilled in the Army. We have without inconvenience to the service. The small thus far relied upon practicing at sea, and selectsteamer Arctic was lying idle at the Brooklyning from the crew for captains of guns those who navy-yard, and pronounced suitable. The order was issued; and Lieutenant Berryman, accompanied by Lieutenant Strain, Passed Midshipmen Mitchell and Thomas, Midshipman Barnes, and a few men, left New York on the 18th of July, crossed the ocean, and returned on the 14th of October, bringing with him abundant supplies of curious and interesting specimens from the bed of the ocean, and at the same time beautiful charts mapping out its various depths at distances of thirty, forty, sixty, and one hundred miles. In order to make his soundings approximate accuracy as nearly as possible, Lieutenant Berryman returned in the same latitude and reëxamined points where he had doubts. The length of the route surveyed is about one thousand six hundred miles; the greatest depth found was two thousand and seventy fathoms, (about two and a half miles,) the average, however, being much less. I have recently directed that search be thor- These charts and specimens have been turned oughly made in our forests on that coast, with a over to the Naval Observatory. The Superintendview to ascertain its ability to supply ship tim- ent has already caused the specimens to be anaber. lyzed; and in the hands of a learned professor, The expedition for the survey and reconnois-whose report is before me, they are made to tell sance of Behring's Straits, the North Pacific ocean, and China seas, having completed its work, Commander John Rodgers, who had charge of it, returned with the Vincennes to New York, July 13. The Fenimore Cooper was turned oyer to the navy-yard at Mare Island. assembled in that ocean, this additional squadron be established. Our commerce there has increased rapidly, and is now very large. The States of Central America are growing daily in importance. Their peculiar position is causing them to attract the attention of the world. The trade on the extensive coast of South America is very considerable. The islands scattered in that sea are full of interest, and then there are California, Washington, and Oregon. The least reflecting mind will appreciate at once the value of this suggestion, which, I trust, will, ere long, be consummated, as the navy-yard at Mare Island, California, will soon assume its position among the most useful and complete yards in the country. The chief difficulty of keeping permanently a large number of vessels in the Pacific will originate in the impossibility, for some few years, of procuring seamen on that coast. I have recently, however, transported a full crew to Aspinwall in the steam frigate Wabash, and have made a contract, very reasonable in its terms, for their passage across the Isthmus, and for the return of the relieved crew. If this experiment is found to work well, it will facilitate the proposed plan very much, and contribute largely to the ability of the Government to protect our Pacific possessions. DEEP-SEA SOUNDINGS, SUBMARINE TELEGRAPH, ETC. In addition to the duties performed by the vessels of the several squadrons, as above set forth, there are others executed, or in progress of execution, possessing sufficient interest to be worthy of a place in this report. The indefatigable superintendent of the Naval much of the character and mysteries of that It is affirmed now, that the developments of the I will leave it to others, sir, to lift the vail of the future, and to picture to the mind of the curious and speculatíve the influence to be exerted by such an event upon commerce and trade, upon peace and war, and the relationship of nations. may, from experience, be found best fitted. It is amazing, indeed, that, notwithstanding the importance of disseminating through the service a thorough knowledge of gunnery, no system for that purpose has ever been adopted. It is true that the orders of the Department of early date requiring practice at sea are now much respected by the officers, and executed with unusual fidelity; and Captain Ingraham, the chief of the Ordnance Bureau, states that " the reports from commanders of squadrons and single ships continue to show great attention on the part of the officers to the general preparation for battle, and to the instruction of the men in practical gunnery, and afford evidence that the armaments and ordnance equipments of our vessels are efficient and satisfactory;" still, I believe it is conceded by all officers that some system is needed to improve this part of the service. Surely, no man-of-war should go to sea without a certainty of having a supply of seamen qualified by training for being captains of guns; and, in my opinion, a vast improvement would follow if none went to sea without an officer designated especially as the ordnance officer of the ship. An effort is now being made to initiate a system as far as it can be done in the absence of legislation. The Plymouth sloop-of-war is now at the Washington navy-yard, placed under the command of Commander Dahlgren, and is being fitted out thoroughly for the purpose of a "gunnery practice-ship.' A few officers at present, and a number of select seamen, will be assigned to her, and she will bear an experimental armament of heavy and light guns. Under proper regulations and training, the hope is confidently indulged that this practice-ship will annually turn off seamen thoroughly trained to the manage 34TH CONG....3D SESS. ment of heavy ordnance in storm and in calm, and that our men-of-war may be supplied with officers and men familiarized with all the appliances of these great engines of destruction. I commend this subject to special consideration and encouragement, and have no doubt that, when enlarged and aided by the suggestions of experience, this gunnery practice-ship will prove an invaluable acquisition to the service. The recent changes in the armament of our vessels call for a somewhat detailed statement from the Department on that subject. In many of those most remarkable conflicts in which the American Navy won its proudest trophies, it is well settled that the superiority of the caliber of our guns contributed very much to the successful overpowering of the formidable adversary. In consideration of the comparative strength of our naval force, it becomes vastly important that we should call into exercise the inventive and suggestive genius of our countrymen; and strive not merely to keep pace with, but, if possible, in advance of others in the character of our engines of destruction in war. In this matter the Ordnance Bureau has not been idle. The progress in improving, modifying, and enlarging the guns of the service has been cautious and gradual, yet steady and impressive. The experimental establishment at the Washington navy-yard has been for many years an admirable adjunct to the bureau. Having at its head an officer of a high order of intellect and indefatigable energy, aided by a small corps of assistants, the Department has found it a shield of protection against the introduction of the novelties of visionary inventors. No innovation has been recommended until subjected to the severest tests; yet progress, and an eagerness to be in the foreground of improvement, have been manifest. The recent adoption on the new frigates of the nine, ten, and eleven-inch shell guns to the exclusion of shot, was by no means inconsiderately or hastily made. It was suggested by Commander Dahlgren, in 1850, that he could "exercise a greater amount of ordnance power with a given weight of metal, and with more safety to those who managed the gun, than any other piece then known of like weight." Commodore Warrington, then at the head of the Bureau of Ordnance, ordered the guns proposed. The proving and testing continued during the years 1852, 1853, and 1854. The points of endurance and accuracy were specially examined. The first gun stood five hundred rounds with shell, and five hundred shot, without bursting; and subsequently other guns were proved to the extreme, and endured one thousand six hundred and one thousand seven hundred rounds without bursting. Shells have been adopted, because they are deemed preferable, not because of any apprehension that shot cannot be used in these guns with perfect security, that point being settled by actual experiment. This fact is said to be attributable to the circumstance of there being thrown into the breech a very considerable additional weight of metal. If, therefore, it is at any time contemplated to attack the solid masonry of fortifications, several feet in thickness, solid shot can be used, although recent developments in the late European wars will hardly encourage such assaults to be often undertaken. It is probably true, as alleged, that as solid shot are driven by a larger charge of powder, their power is thereby proportionally greater; and that on striking a ship they may pass entirely through her, thus exposing her to the consequences of two serious breaches. These openings made by solid shot, however, are often easily repaired, even during an action; but if a vessel is struck and penetrated by one of these monster shells, which carries within itself the elements of explosion, one can hardly conceive of the crashing of timbers and the havoc and destruction which must inevitably ensue. And thus the work of one shell would be more fatal and disastrous than that of many shot. In addition to this heavy armament, our national vessels have, for a few years past, been supplied with boat guns-brass pieces, twelve and twentyfour-pounders. They are truly formidable, and, under the management of trained men, are often | Report of the Secretary of the Navy. discharged ten times in a minute. They are so constructed as to be easily placed in small boats, which can thus enable an approach to the enemy at points inaccessible to the large vessel, and when landed can be managed with facility and fatal effect. The reports of their great service recently in China very forcibly illustrate their great advantage as a portion of a ship's arma ment. But I forbear to pursue this subject, leaving it in the hands of able ordnance officers. The cautious and sound judgment of the late Commodore Morris approved the new ordnance. The six new frigates presented at once the question of supplying them with guns after the usual old model, or in accordance with the suggestions of our able ordnance officer, tested by years of much consideration. After investigation, I unhesitatingly sustained the recommendation to fit out the new frigates with their present formidable battery. It is true the guns are very heavy; but experience and practice, and the aid of labor-saving inventions daily made, will render them as manageable as thirty-two-pounders were twenty years ago. THE NEW FRIGATES-PROPOSED ADDITIONAL In my last annual report I informed you that three of the steam frigates ordered by Congress were afloat. It now affords me pleasure to state that they are all afloat. The machinery for each will be complete and ready for trial in a few days. The Merrimac and Wabash are now in commission. Thus far the most sanguine expectations of the Department have been fully realized. The performance of the Merrimac has impressed favorably the severest architectural critics. The machinery and boilers have exhibited remarkable evidence of power. The material and workmanship were superintended and approved by the engineers of the Government, although built of necessity in private establishments. The speed is greater than usual in auxiliary steamers, in which steam is by no means the chief motive power; but the great desideratum is attained of preserving unimpaired all the essential elements and capacity of the sailing vessel. SENATE & HO. OF REPS. ington navy-yard, the Department is persuaded that during the next year those in process of construction at Norfolk and Brooklyn will be finished. The difficulty of making a safe foundation will somewhat delay the foundery at Boston. When these are completed, the Government can repair and build its own machinery for national vessels. I take pleasure in stating that the boilers and entire machinery for the Minnesota were built at the Washington navy-yard, and have thus far reflected credit upon projectors and builders. SEAMEN. It is very important that such a policy should be adopted in regard to seamen as will insure a supply when needed for regular service, and promote the enlistment of our own countrymen, the considerations in favor of which latter proposition cannot but occur to the commonest observer. The recommendations of the Department of a system of honorable discharge, and of increased pay, have been generously adopted by Congress. The supply of provisions and clothing has for the last few years, been of the most substantial and wholesome products of the country. Since the introduction of the new system of inspection, the ear of the Department is no longer annoyed by complaints in regard to worthless clothing and spoiled provisions. The medicines are not spurious drugs, bought up in haste in the shops, but are carefully manufactured under the immediate supervision of the Bureau of Medicine and Surgery. The arrangements for berthing the men on our ships have been gradually improving, so as to render them comfortable and more secure from diseases and decay of constitution incident to the perils and privations of the sea. Excellent surgeons are assigned to every vessel. The following extract from the report of the chief of the Bureau of Medicine and Surgery attests the skill of our surgeons, and the excellence of the sanitary regulations on board of our national ships: "The Constitution frigate, with a complement of 475 officers and men, during a cruise of two years and five 1855, lost but one man by disease; thirty-six were sent months on that station, (African,) terminating in June, home as invalids. The same immunity from death was shared in a large degree by the other vessels composing the squadron. "The Cumberland, a frigate of the same complement, lost by death in thirty months-that is, from January, 1853, to July, 1855-eighteen of her crew while stationed in the Mediterranean; during the same period, the St. Lawrence, a frigate of the same class, cruising in the Pacific, lost but seven of her crew by death. The Powhatan, a steam Five of these frigates were modeled by the Chief of the Bureau of Construction, &c., and will each carry a battery of eight-inch guns on the spar deck, nine-inch on the gun-deck, with a ten-inch pivot gun, bow and stern. The Niagara, built in New York, was modeled and completed in the navy-yard by the late George frigate, with a complement of 320, cruising in the East Steers, whose genius and great capacity for shipbuilding were so highly recommended that he was appointed a temporary naval constructor for that purpose. She will carry the novel armament of twelve eleven-inch guns, each throwing a shell of one hundred and thirty-five pounds. The introduction of these magnificent vessels constitutes an era in the history of the United States Navy; and while they may well stimulate the energy and valor of its officers, they will also excite emotions of a just national pride in the bosom of every American beholder. I know of no reason for withdrawing the recommendation heretofore made to build additional sloops of war, capable, from their small draught of water, of entering such ports as New Orleans, Savannah, and Charleston, as well as New York and Boston. A formidable battery of from fifteen to twenty guns would render them very effective. They could annoy the enemy at sea, and penetrate and defend our harbors along the coast inaccessible to the larger class of heavier draught. The arguments and considerations for a steady and gradual enlargement of our Navy have lost none of their force. Our extended coast, our multiplied commerce, the maintenance of our rank among the great Powers of the earth, all speak loudly in favor of this policy. But I forWear the repetition of the views so often somewhat elaborately presented heretofore, I think it proper to remark, however, that even the passage of the bill for the construction of ten sloops of war will be but little, very little, actual increase, as many old vessels are now necessarily to be laid up as unworthy of repair. In addition to the establishment for building and repairing machinery and boilers at the Wash Indies during the years 1853, 1854, and 1855, lost but fourteen men by disease and accident. The Savannah, a frigate, with a complement of about 450, employed on the coast of Brazil, reports but five deaths during thirty months, between July, 1853, and January, 1856, though during this time a fever of a serious character prevailed at various parts of the station." Thus it seems that every incentive is held out to invite enlistments and secure experienced seamen abundantly for home and foreign service. I have no hesitation in stating-and the records and returns will sustain the statement-that there has been an improvement as to numbers and character. Still the wonderful increase of commerce and demand for sailors, the comparative shortness of the cruises of the merchant marine, and the very high price paid, render it no easy matter to keep on hand a steady and sufficient supply for the relief of squadrons. Such, too, are the wonderful attractions presented by our vast country, and so great the facility with which peaceful and happy homes are procured, that the increase of sailors has, among our own citizens especially, not kept pace with the progress of commerce. I am aware that occasionally the sailor has had cause to complain of being detained abroad beyond the term of his enlistment, although one fourth additional compensation is allowed for that period of detention. Every effort has been made since the return of the Japan expedition to remove this source of complaint. Had the rule been applied strictly to that squadron, the great purposes for which it was formed would inevitably have been postponed, and perhaps defeated forever. National vessels have only been detained by high considerations of public good, and then 34TH CONG....3D SESS. it was as painful to the Department as annoying to the sailor. It has not been, and is not now, the policy nor the practice of this Department to detain seamen on foreign stations indefinitely until they could be relieved. On the contrary, numerous vessels have been ordered home from distant stations before their reliefs were sent. The Cumberland, the flag-ship of the Mediterranean squadron, the Levant, and the St. Louis, of the same station, all returned before their reliefs had gone out. The Savannah, the flag-ship of the Brazil squadron, just returned, was ordered home in July last, but by some accident or irregularity of the transportation of the mails, the orders were not received until October. Her relief, the St. Lawrence, only left the United States on the 13th day of October. The Germantown, of the same squadron, has been ordered home without being relieved. The terms of the enlistment of the crew of the St. Mary's, of the Pacific squadron, have nearly all expired; but had the Department ordered her home from Panama, I have positive assurance that the consequences would have been fatal to the lives and property of the thousands of our countrymen passing over that route. Such, however, was the anxiety of the Department to relieve the seamen and officers of that ship, that officers and men have been sent in the steamer Wabash to Aspinwall, and arrangements have been effected with the railroad company, so that the present officers and men of the St. Mary's will reach their homes in the United States without the delay and exposure of a voyage around Cape Horn. I am, however, of opinion that the term of our cruises is too long, and that it should be reduced to two years instead of three; and I have determined and directed that it shall constitute a part of the sailing instructions to commanders in chief of the squadrons, that they shall see that, when the term of enlistment of the majority of the crew of any vessel attached to their squadron is about expiring, it shall return to the United States in due time for the discharge of the seamen, and that this rule shall never be deviated from except in an emergency involving the honor of the flag, or by the special orders of the Department. But I confess I look to the fostering care of the apprentice system, and its gradual enlargement, as the surest means of making a radical improvement of this branch of the service, and as the only mode of incorporating into the corps of seamen a fair proportion of our own countrymen. There are now enlisted, and in the service, several hundred boys, all born in the United States, and nearly the whole of them are now in active service in the various squadrons. Since the Department has introduced the system, its chief difficulty has not been in procuring enlistments, but in resisting importunities to be permitted to enlist-a point to be well guarded lest the system be crushed by its own weight before sufficiently perfected by experience. Their moral, intellectual, and professional training receive earnest attention; and I am gratified to be sustained in the effort by the officers of the Navy, all of whom manifest a deep interest in the success of the undertaking. While I admit that the chief, and indeed paramount, consideration in admitting apprentices is to make American sailors, I incline to the opinion that it might encourage the youths if it were known that the President had authority to appoint, annually, ten of the most meritorious midshipmen and pupils at the Naval Academy. I advise, therefore, the passage of a law giving this authority. I deem it my duty to cal your attention to the fact that there are at present several vacancies in some of the grades of the Navy, occasioned by deaths and resignations. Several of them occurred more than six months ago. I am not unmindful of the considerations which have, for this period, prompted a suspension of executive action. The interests of the service, however, induce me to advise that they be filled at the earliest day practicable, either by promotions in the usual way, or by nominating for restoration to the active list any reserved or dropped officer who may now be adjudged by you as worthy of, or entitled to, your interposition. I have heretofore said that I could not recommend "the Report of the Secretary of the Navy. adoption of any measure of repeal, or any course of proceeding in conflict with the general action of the board." But I also said then, and repeat now, "if the sword of any one of those gallant men has been incautiously taken from him, all right-minded men will say, let his country restore it to him with all the honors and reparation due to injured merit." There are three vacancies in the grade of captain, and fourteen in the grade of lieutenant. The reports of the chiefs of the several bureaus will advise you very fully of the condition of that portion of the public service respectively assigned to their special supervision. They present many useful suggestions, and enter much into details on many interesting subjects, which cannot be conveniently discussed and condensed in the Secretary's annual report. The duties of the chief of Bureau of Yards and Docks have become very onerous and gradually enlarged, in consequence of the increased work and extended operations in the navy-yards. Much progress has been made toward completing the navy-yard in California. The dock, basin, and railway are finished. The report of Commodore Smith is very elaborate, full of interesting details and suggestions, and discloses with clearness the condition of the works under his charge. The report from the Ordnance Bureau exhibits a satisfactory condition of that part of the service. I concur in the recommendations made, particularly those in regard to the Naval Academy, and the policy of an abundant supply of powder to meet any emergency. Many very useful reforms have been accomplished through new regulations made by the head of the Bureau of Provisions and Clothing. His suggestions in favor of a small corps of assistant pursers, with moderate compensation, are entitled to consideration. It has always been the practice (originating in necessity) to send store-ships and vessels on special service to sea without a purser. Then the officer in command performs the duty of purser, in addition to his military duty. Not being an accountant, he often, although perfectly honest, finds at the Auditor's office a large balance against him, and must sacrifice his hard earnings to pay it, or be reported and disgraced as a defaulter. SENATE & HO. OF REPS. her Majesty's Government. The bark Release, Lieutenant C. C. Simms, sailed from New York on the 7th day of November for Georgetown, Demarara, and La Guayra, Venezuela, having been by your direction_temporarily assigned to special duty under the Secretary of the Interior, with a view of accomplishing the liberal purposes of Congress in aiding to supply a portion of our country, where immense capital is invested in the culture of sugar, with fresh cuttings of the cane, and thus. if possible, arrest the rapid decline in the production of an article so universally one of consumption in our country. The Nautical Almanac is required by law to be under the charge of an officer of the Navy, not below the grade of lieutenant. It has hitherto been conducted by Commander Davis, who was peculiarly fitted by his scientific attainments for the task. He has, however, been detached recently, and ordered to sea, and, temporarily, it has been placed under the chief of the Bureau of Ordnance and Hydrography. Although an officer of the Navy can, without doubt, be found qualified for it, the other calls of the service suddenly detach him, and an untried successor enters upon the duty every few years, thus unquestionably impairing the claim of the work to the confidence of all men of science, who well know that the highest order of intellect, and years of mental training, are requisite to fit one for even an approach to proficiency in this difficult branch of learning. I recommend, therefore, a modification of the law, in order that this work, thus far so creditable to the country, may, in the discretion of the Executive, be placed under the charge of one of the naval professors of mathematics, who are never sent to sea. The Naval Academy continues to prosper and demonstrate its usefulness, by annually furnishing the service with a number of accomplished young officers, whose ambition animates them to solicit the Department to give them an opportunity of going to sea. With a view of improving the pupils in practical seamanship, fifty-two were sent to sea in the sloop of war Plymouth, and, after cruising during the summer months, returned to the Academy. The report of Commander Green is very favorable to the zeal and attainments, during the cruise, of the youths under his command. At the next annual examination I recommend that, in addition to the naval board of examiners, a board of visitors, composed of civilians, be appointed. It will stimulate the midshipmen, and at the same time inform Attention is invited to the report from the our leading men of the excellent character of the Bureau of Medicine and Surgery. I think action institution. The Naval Observatory is sustainshould be taken to restore to the hospital funding its high reputation, and, by its suggestions the value of the land recently conveyed to the Treasury Department for the purposes of a marine hospital. The fund by which this land was purchased was raised by small contributions, in the nature of deductions from the pay of the sailors, and it can hardly be appropriated to other purposes with justice. The report from the Bureau of Construction exhibits, very fully, the condition of our national vessels. The policy in favor of a small annual appropriation for keeping the yards supplied with ship-timber is, unquestionably, sound." and compilations, doing much indeed, not merely for those who follow the sea, but for science generally. I renew the expressions of my opinion of the usefulness of the Marine Corps. I have so often made recommendation for its enlargement, and for the adoption of some plan for appointing officers of military education, that I forbear to do more than to refer to my former reports. Attention is called to the detailed report of the commandant of the corps. While I am much opposed to multiplying bureaus and officers, I cannot allow that feeling to restrain me from recommending the creation of an additional office, which experience in the administration of this Department admonishes An act passed at the last session of Congress, me would be useful and promotive of discipline. directing that notice be given to E. K. Collins The prompt and careful enforcement of the law and his associates of the modification of the law authorizing courts-martial is one of the surest of July 21, 1852, in reference to compensation means of preserving efficiency. In order to effect for the transportation of the mails between New this, I am convinced that there should be a judge-York'and Liverpool, has been carried into execuadvocate, learned in the law, attached to the Department, to whom should be assigned the direction and management of all matters connected with courts-martial and courts of inquiry; subject, of course, to the supervision of the Secretary. It need not be a bureau; not even an additional clerk would be required, as one of the present clerks has now the business, in connection, with these courts, especially assigned to him. The Resolute, Commander Hartstene, having been thoroughly repaired at the Brooklyn navyyard, sailed from New York on the 13th day of November. Her commanding officer has instructions, and was the bearer of dispatches, for carrying into execution, with strict fidelity, the joint resolution of Congress, approved the 28th day of August, 1856, generously tendering the ship to tion. The notice was issued immediately after the passage of the law. The compensation of nearly all the public officers in the service of the Government has within the last few years been increased with the exception of that of the officers of the Army and the Navy. While I am of opinion that the pay of a portion of the officers of the Navy is sufficient, I deem it my duty also to express my conviction that the pay of some of the grades is entirely inadequate, and not properly regulated by considerations of the character of their services. I recommend legislation on this subject. The estimates for the support of the Navy and Marine Corps for the year ending June 30, 1858, and for all other objects coming under the control of this Department, are in the aggregate, (being a little over one million less than the aggregate POST OFFICE DEPARTMENT, Dec. 1, 1856. SIR: Since my last annual report, the post offices have been increased 1,155, and numbered on the 30th of June last, 25,565. Three hundred and thirty-nine postmasters were appointed by the President, by and with the advice and consent of the Senate, the yearly commissions exceeding one thousand dollars. On the 30th of June, 1852, the number of post offices in the United States was 20,901, showing an increase in the last four years of 4,664. On the 30th of June last there were in operation 7,972 mail routes. The number of contractors was 6,372. The length of these routes is estimated at 239,642 miles, divided as follows, viz: 20,323 miles of railroad; 14,951 miles of steamboat; 50,453 miles of coach; 153,915 miles of inferior grades. The total annual transportation of mails was 71,307,897 miles, costing $6,035,474, and divided as follows: 21,809,296 miles by railroad, at $2,310,389; about ten cents and six mills a mile; 4,240,170 miles by steamboat, at $860,755; about twenty cents and three mills a mile; 19,114,991 miles by coach, at $1,329,356; about seven cents a mile; 26,143,440 miles by modes not specified, at $1,534,974; 53 cents per mile. Compared with the service of June 30, 1855, there is an addition of 11,734 miles to the length of mail routes, 3,906,731 miles to the total annual transportation, being about 5 8-10 per cent., and of $690,236 to the cost, or 12 4-10 per cent. The aggregate length of railroad routes has been increased 1,990 miles, and the annual transportation thereon 2,606,827 miles, about 13 per cent., at a cost of $237,300, or 11 4-10 per cent. The length of steamboat routes has been increased 332 miles, and the cost $235,250, although the annual transportation is less by 219,657 miles. This resulted mainly from putting in operation in January last, a daily route between New Orleans and Cairo, Illinois, 1,075 miles, at a cost of $329,000 per annum. But for this route there would now appear a diminution of steamboat service, amounting to 743 miles in the length of routes, 1,002,257 in annual transportation, and $93,750 in cost. The addition to the length of coach routes has been 1,250 miles; to the annual transportation, 255,873 miles; and to the cost $113,377; or 9 3-10 per cent. The additional length of inferior routes is 8,162 miles; annual transportation, 1,263,688 miles; cost, $104,309, or about 5 per cent. in transportation, and 7 3-10 per cent. in cost. The portions of additional service in California are 706 miles in length of routes, and 135,274 miles in transportation, costing $8,223. In Oregon no material change has taken place; and no alterations or additions have been made to the service stated in my annual report of 1855 in New Mexico and Utah. Length of coach routes, 964 miles; annual transportation thereon, 115,648 miles; cost, $17,880, about 15 cents a mile. transportation, 210,186 miles; cost, $20,275, about Length of inferior routes, 2,152 miles; annual nine cents and six mills a mile. The total length is 3,116 miles; total transportation, 325,834; and the cost $38,155. The following table shows the extension of railroad service during the year, separately, in five groups of States, viz: Additional. Length of routes. New England and New York.. Miles annual transportation. Cost. 262,863 $16,940 67,911 150 New Jersey, Pennsylva nia, Delaware, Maryland, and Ohio.. 327 425,743 23,865 Virginia, North Carolina, South Carolina, and Georgia.. 168 Michigan, Indiana, Illi Kentucky, nois, and Wisconsin... 362 Tennessee, Alabama, Mississippi, and Louisiana... 396,804 1,045,496 483 475,921 2,606,827 82,575 46,009 $237,300 The railroad service within the last four years has increased at a very rapid rate - showing the growth of our country and the enterprise of our citizens. On the first of July, 1842, the total length of railroad routes was 3,191 miles, and the cost of service was $432,568. On the first day of July, 1852, the number of miles on which the mail was conveyed on railroad amounted to 10,146, costing $1,275,520-making an increase of 7,055 miles in ten years, at an additional cost of $842,952. Between the first of July, 1852, and the first of July, 1856, the railroad service was increased 10,177 miles, exhibiting the fact that within that time this description of service has been more than doubled. The table below shows the length of railroad routes and cost of mail service thereon at the end of each fiscal year from 1852 to 1856, inclusive: Year. service had increased to 21,310 miles, and the On the first of December, 1856, the railroad total cost for this service at that date amounted to $2,403,747. back, and by modes not specified in the contracts, Within the same period the service on horsewas increased 16,862 miles in length of routes, and 5,292,819 miles in annual transportation. The coach service, taken off in some localities, owing to the construction of railroads, has been given to other States and Territories, or other parts of the same State, as their growing popudemanded; so that, notwithstanding the great lation and consequent increase of mail matter extension of railroads, the coach service has been reduced but 202 miles. The steamboat service has been decreased 1,479 miles. The average cost of railroad service in 1852, estimated on the length of routes one way, was $125 71 a mile; in 1856, $101 45 a mile; being a decrease of $24 26 a mile. For other modes of conveyance the average rate of pay has largely beyond the power of the Department to control. advanced during the same period owing to causes The lettings of new contracts for the term commencing 1st July last embraced the States of New Jersey, Pennsylvania, Delaware, Maryland, In New Jersey the transportation is reduced 40,156 miles, and in Maryland 2,186 miles, although the expense is increased. On the 30th June there were in service 360 route agents, at a compensation of $265,429; 34 local agents at $21,738; and 1,108 mail messengers at $127,251-making a total of $414,438. This amount, with the increased cost of the new service, commencing 1st July last, ($126,116,) added to the cost of service as in operation on the 30th June last, ($6,035,474,) makes the total amount for the current year, $6,576,028. This is independent of the cost of ocean-mail service. The Panama Railroad Company has been paid for transportation of the mails across the Isthmus during the fiscal year ending June 30, 1856, the sum of $141,308 16. For the first quarter of the present fiscal year they received $44,659 34. At the last session of Congress I took occasion to call your attention to the large sums paid the company for this service, and transmitted to you the correspondence which had taken place between the Department and the company in relation to a proposed reduction in their charges. This report was laid by you before Congress, but no definite action was had thereon. În referring again to this subject, it will be necessary for me simply to repeat the reasons stated in my correspondence with the company, and in my letter to you of the 16th of April, 1856. Prior to the 1st of December, 1851, the mails were conveyed across the Isthmus under an arrangement with the New Granadian Government, and the average rate paid for transportation, including the expense of route agents in crossing the Isthmus, was a fraction over seventeen cents a pound. In October, 1851, a temporary arrangement was made with the Panama Company, by which they were allowed twenty-two cents a pound, the maximum rate authorized by law. At this time the amount of mail matter transported was comparatively small, and the service was performed partly by canoes and partly by mules. The greater the amount of mail matter carried, the greater would be the cost of transportation; and It therefore seemed to be but just to pay according to weight. though the cost of the service had increased from No attempt was made to reduce the price, al$40,387 in September, 1851, to $119,727 in September, 1854, until the railroad was completed, and the company had published their tariff of rates. Ten cents per pound was to be their charge on express freight for passenger trains, as well as for the "baggage of passengers;" but as the company alleged that this did not include the expense and responsibility of putting the goods on board of the steamers, or their conveyance from ship to shore, in which case their charge was allow them that price, but in view of the importfifteen cents a pound, I concluded not only to ance of the work, and wishing to deal with them in a liberal spirit, fixed the compensation at eighteen cents a pound. As announced in my last report, the company refused to acquiesce in that decision, but were paid at that rate until the 24th 1855. of Deceriler, lowing the difficulties in Nicaragua made it impossible for me to have the mails of had closed the route through that State, which the United States conveyed by any other route than via Panama; and I was then notified that, unless the Department should give them twentytwo cents a pound in the future, and pay them the amount ($18,093 88) withheld by my order reducing the price to eighteen cents a pound, the mails of the United States should not be taken across the Isthmus. In view of the financial troubles and probable bankruptcies which a discontinuance of the mail service would have caused 34TH CONG....3D SESS. to hundreds, if not thousands, of our citizens, on both our Atlantic and Pacific coasts, 1 was compelled to submit to what I considered a gross imposition, and the order of the Department reducing the rate was rescinded, and the company have continued to be paid at the rate of twentytwo cents a pound up to this time. The Panama railroad is forty-eight miles in length, and in its construction and equipments cost, it is said, eight millions of dollars. The service performed is twice a month each way. | To show the exorbitancy of the demand made || by the company, it will only be necessary for me to refer to one of the railroads in the United States, which receives an adequate compensation for the services rendered the Department; and a like reference could be made to the compensation received by other railroads, with a similar result. The New York and Erie railroad is four hundred and sixty miles in length, and cost over thirtyone millions of dollars. The service performed is nineteen trips a week, for which they receive $92,000 a year. The Panama company, with a road costing about one fourth as much as the New York and Erie, performing but a tithe of the service, received the last year $49,033 38 more compensation, and, for the present year, are likely to receive an amount nearly double that paid to the latter company. Viewing this as an attempt to draw from the Treasury more than was properly due, it ought, in my opinion, to be promptly rebuked; and I would, therefore, recommend the immediate passage of a law limiting the compensation to a sum not exceeding fifty thousand dollars per annum. This would be a liberal and just remuneration for all the services rendered to the Government. In my previous reports I have referred to the necessity for increased mail facilities between our Atlantic and Pacific coasts The great and increasing trade and correspondence between these important points demand a weekly service, and I would ask that power be conferred on the Department to enter into a contract to convey the mails twice a month, alternating with the line via Panama, by the route via Nicaragua or Tehuantepec, at a sum not exceeding two hundred thousand dollars a year. The expenditures of the Department for the past fiscal year amounted to $10,405,286 36, viz: closed by "bad" and "compromised debts,' less $612 96 for the amount of credit balances closed by "suspense account;" leaving the whole expenditure of the year, as stated by the Auditor, $10,407,868 18. Hence it appears that the excess of expenditures over the gross revenue of the year, was $2,787,046 52. The "act to reduce and modify the rates of postage, and for other purposes,' approved March 3, 1851, went into operation on the 1st of July, 1851. By this act the 5 and 10 cent rates for inland letters, established by the act of 1845,|| were reduced to 3 cents, prepaid, and 5 cents unpaid, for any distance under three thousand miles, and double for distances over three thousand miles within the United States. These rates continued until the 1st of April, 1855, when the law requiring prepayment of inland letters took effect, and established the present rates of 3 and 10 cents prepaid. In the fiscal year which ended June 30, 1852, the first after the adoption of the reduced rates, the revenue was diminished about 22 per cent.; and for the period of four years terminating on the 30th June, 1856, the average annual increase of revenue from letter postage and stamps sold, was only 9 33-100 per cent.; nearly four per cent. of which average was derived from the extraordinary increase in 1854, which exceeded the previous year 21 9-100 per cent. In 1853, 1855, and 1856, the business of the country was neither seriously depressed nor embarrassed, and yet the average increase in these years was less than 5 per cent., from which, it is fair to conclude, that low rates of postage have ceased to stimulate the correspondence of the country. It is estimated that the expenditures for the year 1857 will amount to $10,658,678, viz: For transportation of the mails, foreign and inland, and for local agents, route agents, and mail messengers,$6,675,000 For compensation of postmasters; ship, steamboat, and way letters; wrapping paper, office furniture, advertising, mail bags, blanks, mail locks, keys, and stamps; mail depredations and special agents; clerks for offices, postage stamps and stamped envelopes.. For various expenses, incidental to the service, For balances payable to foreign countries on postal accounts.. For letter carriers. 3,508,500 100,000 210,178 165,000 $10,658,678 Blanks... ed credit, about............ 48,563 94 Mail locks, keys, and stamps. 11,686 76 Probable available balance... Mail depredations and special agents.. 63,501 77 Clerks for offices... 758,080 80 Postage stamps............... 26,704 77 Gross revenue for 1857, estimated at.... Appropriations applicable to 1857, remaining in the Treasury undrawn 589,599 78 7,339,695 00 Stamped envelopes . 64,685 84 Payment to letter carriers............... 162,915 59 Miscellaneous payments.. 200,080 40 .... Balance due to Bremen.... Balance due to Great Britain 8,633 27 23,848 71 $10,405,286 36 Estimated deficiency in 1857 to be provided by Congress...... 2,063,500 00 $9,991,794 78 $666,883 22 If the permanent annual appropriation of $700,000, granted by Congress for services rendered to the Government in the transmission and distribution of free matter, be embraced in the revenue of each year, the annual excess of expenditure over revenue for four years past will be as follows, viz: Excess of expenditure year ending 74,800 03 162,915 59 8,383 50 14,714 96 5,513 04 $6,920,821 66 If to the gross revenue derived from postages, and the other sources embraced in the foregoing statement, be added the permanent annual ap propriation of $700,000, granted by the acts of 3d March, 1847, and 3d March, 1851, for mail service rendered to the Government in the transportation and delivery of free matter, the entire revenue of the year 1856 will amount to $7,620,821 66. The expenditures of the year, as before stated, were $10,405,286 36, to which is to be added the sum of $3,194 78, for accounts June 30, 1853, $2,042,364 67 1854, 1,666,224 82 1855, 2,626,856 15 1856, 2,787,046 52 The deficiency in 1853 was, as above stated, $2,042,364 67. When I came into the administration of the Department in March, 1853, the liabilities of the year had been chiefly incurred, and, of course, existing engagements were fully met. In the following year the Department was enabled, by the practice of a proper economy, and by the increase of its revenue, to enlarge its expenditures where the public service required it, and at the same time considerably to reduce the deficiency. But in the year 1855 the increase of revenue was small, and the additional burdens thrown upon the Department were very large. These were noticed in detail in my annual report of that year; but I deem it expedient again to refer to them. A considerable item of increase arose from the grant of larger commissions to postmasters, by the act of June 22, 1854, which amounted to about $316,493 30, to which are to be added various grants to mail contractors, amounting to $56,606 22, and other items, forming an aggregate increase of $442,264 09 in the deficiency of 1855. The deficiency in 1856 is in like manner enlarged by the operation of the act of June 22, 1854, granting increased commissions to postmasters, by the greater cost of the mail service on the Mississippi river, and by the rapid extension of the service generally. The additional compensation to postmasters in 1856, under the act mentioned, alone amounts to not less than $330,000, and without regarding the immense increase of service throughout the country since 1853, it will be seen that if the additional compensation allowed to postmasters alone be deducted from the expenditures, the whole deficiency of the year will not exceed that of 1850 more than $41,400. While the deficiency has been thus augmented, the increase of the service has been very great. During this period the railroad service was increased 7,908 miles, in length of routes, at a cost of $709,060. The increase of service, by modes not specified, in the different sections of the Union, in the same period, amounted to 19,722 miles in length, and 6,252,944 in annual transportation, the additional cost of which was $479,661. There was a reduction in coach and steamboat service, owing chiefly to the construction of railroads, but much higher prices had to be paid under the new lettings, and although the tables show a decrease of 5,731 miles in both descriptions of service during the three years, the increased cost amounted to $350,785. In my last annual report, in referring to the deficiency in the Post Office revenue, I expressed my regret that Congress had not abolished the franking privilege when they passed the act of 3d March, 1851, reducing the rates of postage. The experience of the last year has satisfied me more fully that this privilege should be speedily abolished. For months during this year free matter by the ton passed through the mails into every part of the United States, interfering greatly with the regular transmission of the correspondence of the country. When this free matter passes from the railroads, it is almost impracticable to forward it by the ordinary conveyances. The evil is yearly increasing, detracting largely from the revenues of the Department," and impairing its efficiency. By the act of 1825 the revenue of the Post Office Department was entirely in the control of the Postmaster General, the objects of expenditure being generally left to his discretion, and he was simply required to pay all the expenses. The extension of the postal system over our rapidly-growing country required a more thorough organization, which was effected by the act of July, 1836. That act required "specific estimates to be submitted at each session of Congress; and when an appropriation was made it was limited to the aggregate sum of those estimates, and there was no authority to exceed them. The appropriation was made out of the revenues of the Post Office Department, the theory being that the Department should sustain itself. The beneficial effects of this act, intended to secure a system of rigid accountability, have been impaired by various causes. After estimates have been submitted, additional service, involving large expenditures, has been required by law without any additional appropriation. The railroad service, which has been rapidly extended in every section of the country, though much more advantageous, is far more expensive than the old modes of service, and the increased revenue arising therefrom has not been in proportion to the increased outlay. The reduced rates of postage having largely reduced the revenue, it has not been possible to confine the expenditures of the Department within its income, and the Postmaster General has been compelled to apply to Congress annually to appropriate the deficiency from the general Treasury. These causes have removed in effect the salutary restraint imposed by the act of 1836, and left the head of this |