Another year of health and of sufficiently abundant harvests has passed. For these, and especially for the improved condition of our national affairs, our renewed and profoundest gratitude to God is due. We remain in peace and friendship with foreign powers. The efforts of disloyal citizens of the United States to involve us in foreign wars to aid an inexcusable insurrection have been unavailing. Her Britannic Majesty's Government, as was justly expected, have exercised their authority to prevent the departure of new hostile expeditions from British ports. The Emperor of France has by a like proceeding promptly vindicated the neutrality which he proclaimed at the beginning of the contest. Questions of great intricacy and importance have arisen out of the blockade and other belligerent operations between the Government and several of the maritime powers, but they have been discussed and, as far as was possible, accommodated in a spirit of frankness, justice, and mutual good will. It is especially gratifying that our prize courts, by the impartiality of their adjudications, have commanded the respect and confidence of maritime powers. The supplemental treaty between the United States and Great Britain for the suppression of the African slave trade, made on the 17th day of February last, has been duly ratified and carried into execution. It is believed that so far as American ports and American citizens are concerned that inhuman and odious traffic has been brought to an end. I shall submit for the consideration of the Senate a convention for the adjustment of possessory claims in Washington Territory arising out of the treaty of the 15th June, 1846, between the United States and Great Britain, and which have been the source of some disquiet among the citizens of that now rapidly improving part of the country. A novel and important question, involving the extent of the maritime jurisdiction of Spain in the waters which surround the island of Cuba, has been debated without reaching an agreement, and it is proposed in an amicable spirit to refer it to the arbitrament of a friendly power. A convention for that purpose will be submitted to the Senate. I have thought it proper, subject to the approval of the Senate, to concur with the interested commercial powers in an arrangement for the liquidation of the Scheldt dues, upon the principles which have been heretofore adopted in regard to the imposts upon navigation in the waters of Denmark. The long-pending controversy between this Government and that of Chile touching the seizure at Sitana, in Peru, by Chilean officers, of a large amount in treasure belonging to citizens of the United States has been brought to a close by the award of His Majesty the King of the Belgians, to whose arbitration the question was referred by the parties. The subject was thoroughly and patiently examined by that justly respected magistrate, and although the sum awarded to the claimants may not have been as large as they expected there is no reason to distrust the wisdom of His Majesty's decision. That decision was promptly complied with by Chile when intelligence in regard to it reached that country. The joint commission under the act of the last session for carrying into effect the convention with Peru on the subject of claims has been organized at Lima, and is engaged in the business intrusted to it. Difficulties concerning interoceanic transit through Nicaragua are in course of amicable adjustment. In conformity with principles set forth in my last annual message, I have received a representative from the United States of Colombia, and have accredited a minister to that Republic. Incidents occurring in the progress of our civil war have forced upon my attention the uncertain state of international questions touching the rights of foreigners in this country and of United States citizens abroad. In regard to some governments these rights are at least partially, defined by treaties. In no instance, however, is it expressly stipulated that in the event of civil war a foreigner residing in this country within the lines of the insurgents is to be exempted from the rule which classes him as a belligerent, in whose behalf the Government of   his country can not expect any privileges or immunities distinct from that character. I regret to say, however, that such claims have been put forward, and in some instances in behalf of foreigners who have lived in the United States the greater part of their lives. There is reason to believe that many persons born in foreign countries who have declared their intention to become citizens, or who have been fully naturalized, have evaded the military duty required of them by denying the fact and thereby throwing upon the Government the burden of proof. It has been found difficult or impracticable to obtain this proof, from the want of guides to the proper sources of information. These might be supplied by requiring clerks of courts where declarations of intention may be made or naturalizations effected to send periodically lists of the names of the persons naturalized or declaring their intention to become citizens to the Secretary of the Interior, in whose Department those names might be arranged and printed for general information. There is also reason to believe that foreigners frequently become citizens of the United States for the sole purpose of evading duties imposed by the laws of their native countries, to which on becoming naturalized here they at once repair, and though never returning to the United States they still claim the interposition of this Government as citizens. Many altercations and great prejudices have heretofore arisen out of this abuse. It is therefore submitted to your serious consideration. It might be advisable to fix a limit beyond which no citizen of the United States residing abroad may claim the interposition of his Government. The right of suffrage has often been assumed and exercised by aliens under pretenses of naturalization, which they have disavowed when drafted into the military service. I submit the expediency of such an amendment of the law as will make the fact of voting an estoppel against any plea of exemption from military service or other civil obligation on the ground of alienage. In common with other Western powers, our relations with Japan have been brought into serious jeopardy through the perverse opposition of the hereditary aristocracy of the Empire to the enlightened and liberal policy of the Tycoon, designed to bring the country into the society of nations. It is hoped, although not with entire confidence, that these difficulties may be peacefully overcome. I ask your attention to the claim of the minister residing there for the damages he sustained in the destruction by fire of the residence of the legation at Yedo. Satisfactory arrangements have been made with the Emperor of Russia, which, it is believed, will result in effecting a continuous line of telegraph through that Empire from our Pacific coast. I recommend to your favorable consideration the subject of an international telegraph across the Atlantic Ocean, and also of a telegraph between this capital and the national forts along the Atlantic seaboard and the Gulf of Mexico. Such communications, established with any reasonable outlay, would be economical as well as effective aids to the diplomatic, military, and naval service. The consular system of the United States, under the enactments of the last Congress, begins to be self-sustaining, and there is reason to hope that it may become entirely so with the increase of trade which will ensue whenever peace is restored. Our ministers abroad have been faithful in defending American rights. In protecting commercial interests our consuls have necessarily had to encounter increased labors and responsibilities growing out of the war. These they have for the most part met and discharged with zeal and efficiency. This acknowledgment justly includes those consuls who, residing in Morocco, Egypt, Turkey, Japan, China, and other Oriental countries, are charged with complex functions and extraordinary powers. The condition of the several organized Territories is generally satisfactory, although Indian disturbances in New Mexico have not been entirely suppressed. The mineral resources of Colorado, Nevada, Idaho, New Mexico, and Arizona are proving far richer than has been heretofore understood. I lay before you a communication on this subject from the governor of New Mexico. I again submit to your consideration the expediency of establishing a system for the encouragement of immigration. Although this source of national wealth and strength is again flowing with greater freedom than for several years before the insurrection occurred, there is still a great deficiency of laborers in every field of industry, especially in agriculture and in our mines, as well of iron and coal as of the precious metals. While the demand for labor is much increased here, tens of thousands of persons, destitute of remunerative occupation, are thronging our foreign consulates and offering to emigrate to the United States if essential, but very cheap, assistance can be afforded them. It is easy to see that under the sharp discipline of civil war the nation is beginning a new life. This noble effort demands the aid and ought to receive the attention and support of the Government. Injuries unforeseen by the Government and unintended may in some cases have been inflicted on the subjects or citizens of foreign countries, both at sea and on land, by persons in the service of the United States. As this Government expects redress from other powers when similar injuries are inflicted by persons in their service upon citizens of the United States, we must be prepared to do justice to foreigners. If the existing judicial tribunals are inadequate to this purpose, a special court may be authorized, with power to hear and decide such claims of the character referred to as may have arisen under treaties and the public law. Conventions for adjusting the claims by joint commission have been proposed to some governments, but no definitive answer to the proposition has yet been received from any. In the course of the session I shall probably have occasion to request you to provide indemnification to claimants where decrees of restitution have been rendered and damages awarded by admiralty courts, and in other cases where this Government may be acknowledged to be liable in principle and where the amount of that liability has been ascertained by an informal arbitration. The proper officers of the Treasury have deemed themselves required by the law of the United States upon the subject to demand a tax upon the incomes of foreign consuls in this country. While such a demand may not in strictness be in derogation of public law, or perhaps of any existing treaty between the United States and a foreign country, the expediency of so far modifying the act as to exempt from tax the income of such consuls as are not citizens of the United States, derived from the emoluments of their office or from property not situated in the United States, is submitted to your serious consideration. I make this suggestion upon the ground that a comity which ought to be reciprocated exempts our consuls in all other countries from taxation to the extent thus indicated. The United States, I think, ought not to be exceptionally illiberal to international trade and commerce. The operations of the Treasury during the last year have been successfully conducted. The enactment by Congress of a national banking law has proved a valuable support of the public credit and the general legislation in relation to loans has fully answered the expectations of its favorers. Some amendments may be required to perfect existing laws, but no change in their principles or general scope is believed to be needed. Since these measures have been in operation all demands on the Treasury, including the pay of the Army and Navy, have been promptly met and fully satisfied. No considerable body of troops, it is believed, were ever more amply provided and more liberally and punctually paid, and it may be added that by no people were the burdens incident to a great war ever more cheerfully borne. The receipts during the year from all sources, including loans and balance in the Treasury at its commencement, were $901,125,674.86, and the aggregate disbursements $895,796,630.65, leaving a balance on the 1st of July, 1863, of $5,329,044.21. Of the receipts there were derived from customs $69,059,642.40, from internal revenue $37,640,787.95, from direct tax $1,485,103.61, from lands $167,617.17, from miscellaneous sources $3,046,615.35, and from loans $776,682,361.57, making the aggregate $901,125,674.86. Of the disbursements there were for the civil service $23,253,922.08, for pensions and Indians $4,216,520.79, for interest on public debt $24,729,846.51, for the War Department $599,298,600.83, for the Navy Department $63,211,105.27, for payment of funded and temporary debt $181,086,635.07, making the aggregate $895,796,630.65 and leaving the balance of $5,329,044.21. But the payment of funded and temporary debt, having been made from moneys borrowed during the year, must be regarded as merely nominal payments and the moneys borrowed to make them as merely nominal receipts, and their amount, $181,086,635.07, should therefore be deducted both from receipts and disbursements. This being done there remains as actual receipts $720,039,039.79 and the actual disbursements $714,709,995.58, leaving the balance as already stated. The actual receipts and disbursements for the first quarter and the estimated receipts and disbursements for the remaining three quarters of the current fiscal year (1864) will be shown in detail by the report of the Secretary of the Treasury, to which I invite your attention. It is sufficient to say here that it is not believed that actual results will exhibit a state of the finances less favorable to the country than the estimates of that officer heretofore submitted, while it is confidently expected that at the close of the year both disbursements and debt will be found very considerably less than has been anticipated. The report of the Secretary of War is a document of great interest. It consists of-- 1. The military operations of the year, detailed in the report of the General in Chief. 2. The organization of colored persons into the war service. 3. The exchange of prisoners, fully set forth in the letter of General Hitchcock. 4. The operations under the act for enrolling and calling out the national forces, detailed in the report of the Provost-Marshal-General. 5. The organization of the invalid corps, and 6. The operation of the several departments of the Quartermaster-General, Commissary- General, Paymaster-General, Chief of Engineers, Chief of Ordnance, and Surgeon-General. It has appeared impossible to make a valuable summary of this report, except such as would be too extended for this place, and hence I content myself by asking your careful attention to the report itself. The duties devolving on the naval branch of the service during the year and throughout the whole of this unhappy contest have been discharged with fidelity and eminent success. The extensive blockade has been constantly increasing in efficiency as the Navy has expanded, yet on so long a line it has so far been impossible to entirely suppress illicit trade. From returns received at the Navy Department it appears that more than 1,000 vessels have been captured since the blockade was instituted, and that the value of prizes already sent in for adjudication amounts to over $13,000,000. The naval force of the United States consists at this time of 588 vessels completed and in the course of completion, and of these 75 are ironclad or armored steamers. The events of the war give an increased interest and importance to the Navy which will probably extend beyond the war itself. The armored vessels in our Navy completed and in service, or which are under contract and approaching completion, are believed to exceed in number those of any other power; but while these may be relied upon for harbor defense and coast service, others of greater strength and capacity will be necessary for cruising purposes and to maintain our rightful position on the ocean. The change that has taken place in naval vessels and naval warfare since the introduction of steam as a motive power for ships of war demands either a corresponding change in some of our existing navy-yards or the establishment of new ones for the construction and necessary repair of modern naval vessels. No inconsiderable embarrassment, delay, and public injury have been experienced from the want of such governmental establishments. The necessity of such a navy-yard, so furnished, at some suitable place upon the Atlantic seaboard has on repeated occasions been brought to the attention of Congress by the Navy Department, and is again presented in the report of the Secretary which accompanies this communication. I think it my duty to invite your special attention to this subject, and also to that of establishing a yard and depot for naval purposes upon one of the Western rivers. A naval force has been created on those interior waters, and under many disadvantages, within little more than two years, exceeding in numbers the whole naval force of the country at the commencement of the present Administration. Satisfactory and important as have been the performances of the heroic men of the Navy at this interesting period, they are scarcely more wonderful than the success of our mechanics and artisans in the production of war vessels, which has created a new form of naval power. Our country has advantages superior to any other nation in our resources of iron and timber, with inexhaustible quantities of fuel in the immediate vicinity of both, and all available and in close proximity to navigable waters. Without the advantage of public works, the resources of the nation have been developed and its power displayed in the construction of a Navy of such magnitude, which has at the very period of its creation rendered signal service to the Union. The increase of the number of seamen in the public service from 7,500 men in the spring of 1861 to about 34,000 at the present time has been accomplished without special legislation or extraordinary bounties to promote that increase. It has been found, however, that the operation of the draft, with the high bounties paid for army recruits, is beginning to affect injuriously the naval service, and will, if not corrected, be likely to impair its efficiency by detaching seamen from their proper vocation and inducing them to enter the Army. I therefore respectfully suggest that Congress might aid both the army and naval services by a definite provision on this subject which would at the same time be equitable to the communities more especially interested. I commend to your consideration the suggestions of the Secretary of the Navy in regard to the policy of fostering and training seamen and also the education of officers and engineers for the naval service. The Naval Academy is rendering signal service in preparing midshipmen for the highly responsible duties which in after life they will be required to perform. In order that the country should not be deprived of the proper quota of educated officers, for which legal provision has been made at the naval school, the vacancies caused by the neglect or omission to make nominations from the States in insurrection have been filled by the Secretary of the Navy. The school is now more full and complete than at any former period, and in every respect entitled to the favorable consideration of Congress. During the past fiscal year the financial condition of the Post-Office Department has been one of increasing prosperity, and I am gratified in being able to state that the actual postal revenue has nearly equaled the entire expenditures, the latter amounting to $11,314,206.84 and the former to $11,163,789.59, leaving a deficiency of but $150,417.25. In 1860, the year immediately preceding the rebellion, the deficiency amounted to $5,656,705.49, the postal receipts of that year being $2,645,722.19 less than those of 1863. The decrease since 1860 in the annual amount of transportation has been only about 25 per cent, but the annual expenditure on account of the same has been reduced 35 per cent. It is manifest, therefore, that the Post-Office Department may become self-sustaining in a few years, even with the restoration of the whole service. The international conference of postal delegates from the principal countries of Europe and America, which was called at the suggestion of the Postmaster-General, met at Paris on the 11th of May last and concluded its deliberations on the 8th of June. The principles established by the conference as best adapted to facilitate postal intercourse between nations and as the basis of future postal conventions inaugurate a general system of uniform international charges at reduced rates of postage, and can not fail to produce beneficial results. I refer you to the report of the Secretary of the Interior, which is herewith laid before you, for useful and varied information in relation to the public lands, Indian affairs, patents, pensions, and other matters of public concern pertaining to his Department. The quantity of land disposed of during the last and the first quarter of the present fiscal years was 3,841,549 acres, of which 161,911 acres were sold for cash, 1,456,514 acres were taken up under the homestead law, and the residue disposed of under laws granting lands for military bounties, for railroad and other purposes. It also appears that the sale of the public lands is largely on the increase. It has long been a cherished opinion of some of our wisest statesmen that the people of the United States had a higher and more enduring interest in the early settlement and substantial cultivation of the public lands than in the amount of direct revenue to be derived from the sale of them. This opinion has had a controlling influence in shaping legislation upon the subject of our national domain. I may cite as evidence of this the liberal measures adopted in reference to actual settlers; the grant to the States of the overflowed lands within their limits, in order to their being reclaimed and rendered fit for cultivation; the grants to railway companies of alternate sections of land upon the contemplated issues of their roads, which when completed will so largely multiply the facilities for reaching our distant possessions. This policy has received its most signal and beneficent illustration in the recent enactment granting homesteads to actual settlers. Since the 1st day of January last the before-mentioned quantity of 1,456,514 acres of land have been taken up under its provisions. This fact and the amount of sales furnish gratifying evidence of increasing settlement upon the public lands, notwithstanding the great struggle in which the energies of the nation have been engaged, and which has required so large a withdrawal of our citizens from their accustomed pursuits. I cordially concur in the recommendation of the Secretary of the Interior suggesting a modification of the act in favor of those engaged in the military and naval service of the United States. I doubt not that Congress will cheerfully adopt such measures as will, without essentially changing the general features of the system, secure to the greatest practicable extent its benefits to those who have left their homes in the defense of the country in this arduous crisis. I invite your attention to the views of the Secretary as to the propriety of raising by appropriate legislation a revenue from the mineral lands of the United States. The measures provided at your last session for the removal of certain Indian tribes have been carried into effect. Sundry treaties have been negotiated, which will in due time be submitted for the constitutional action of the Senate. They contain stipulations for extinguishing the possessory rights of the Indians to large and valuable tracts of lands. It is hoped that the effect of these treaties will result in the establishment of permanent friendly relations with such of these tribes as have been brought into frequent and bloody collision with our outlying settlements and emigrants. Sound policy and our imperative duty to these wards of the Government demand our anxious and constant attention to their material well-being, to their progress in the arts of civilization, and, above all, to that moral training which under the blessing of Divine Providence will confer upon them the elevated and sanctifying influences, the hopes and consolations, of the Christian faith. I suggested in my last annual message the propriety of remodeling our Indian system. Subsequent events have satisfied me of its necessity. The details set forth in the report of the Secretary evince the urgent need for immediate legislative action. I commend the benevolent institutions established or patronized by the Government in this District to your generous and fostering care. The attention of Congress during the last session was engaged to some extent with a proposition for enlarging the water communication between the Mississippi River and the northeastern seaboard, which proposition, however, failed for the time. Since then, upon a call of the greatest respectability, a convention has been held at Chicago upon the same subject, a summary of whose views is contained in a memorial addressed to the President and Congress, and which I now have the honor to lay before you. That this interest is one which ere long will force its own way I do not entertain a doubt, while it is submitted entirely to your wisdom as to what can be done now. Augmented interest is given to this subject by the actual commencement of work upon the Pacific Railroad, under auspices so favorable to rapid progress and completion. The enlarged navigation becomes a palpable need to the great road. I transmit the second annual report of the Commissioner of the Department of Agriculture, asking your attention to the developments in that vital interest of the nation. When Congress assembled a year ago, the war had already lasted nearly twenty months, and there had been many conflicts on both land and sea, with varying results; the rebellion had been pressed back into reduced limits; yet the tone of public feeling and opinion, at home and abroad was not satisfactory. With other signs, the popular elections then just past indicated uneasiness among ourselves, while, amid much that was cold and menacing, the kindest words coming from Europe were uttered in accents of pity that we were too blind to surrender a hopeless cause. Our commerce was suffering greatly by a few armed vessels built upon and furnished from foreign shores, and we were threatened with such additions from the same quarter as would sweep our trade from the sea and raise our blockade. We had failed to elicit from European Governments anything hopeful upon this subject. The preliminary emancipation proclamation, issued in September, was running its assigned period to the beginning of the new year. A month later the final proclamation came, including the announcement that colored men of suitable condition would be received into the war service. The policy of emancipation and of employing black soldiers gave to the future a new aspect, about which hope and fear and doubt contended in uncertain conflict. According to our political system, as a matter of civil administration, the General Government had no lawful power to effect emancipation in any State, and for a long time it had been hoped that the rebellion could be suppressed without resorting to it as a military measure. It was all the while deemed possible that the necessity for it might come, and that if it should the crisis of the contest would then be presented. It came, and, as was anticipated, it was followed by dark and doubtful days. Eleven months having now passed, we are permitted to take another review. The rebel borders are pressed still farther back, and by the complete opening of the Mississippi the country dominated by the rebellion is divided into distinct parts, with no practical communication between them. Tennessee and Arkansas have been substantially cleared of insurgent control, and influential citizens in each, owners of slaves and advocates of slavery at the beginning of the rebellion, now declare openly for emancipation in their respective States. Of those States not included in the emancipation proclamation, Maryland and Missouri, neither of which three years ago would tolerate any restraint upon the extension of slavery into new Territories, only dispute now as to the best mode of removing it within their own limits. Of those who were slaves at the beginning of the rebellion full 100,000 are now in the United States military service, about one-half of which number actually bear arms in the ranks, thus giving the double advantage of taking so much labor from the insurgent cause and supplying the places which otherwise must be filled with so many white men. So far as tested, it is difficult to say they are not as good soldiers as any. No servile insurrection or tendency to violence or cruelty has marked the measures of emancipation and arming the blacks. These measures have been much discussed in foreign countries, and, contemporary with such discussion, the tone of public sentiment there is much improved. At home the same measures have been fully discussed, supported, criticised, and denounced, and the annual elections following are highly encouraging to those whose official duty it is to bear the country through this great trial. Thus we have the new reckoning. The crisis which threatened to divide the friends of the Union is past. Looking now to the present and future, and with reference to a resumption of the national authority within the States wherein that authority has been suspended, I have thought fit to issue a proclamation, a copy of which is herewith transmitted.* On examination of this proclamation it will appear, as is believed, that nothing will be attempted beyond what is amply justified by the Constitution. True, the form of an oath is given, but no man is coerced to take it. The man is only promised a pardon in case he voluntarily takes the oath. The Constitution authorizes the Executive to grant or withhold the pardon at his own absolute discretion, and this includes the power to grant on terms, as is fully established by judicial and other authorities. It is also proffered that if in any of the States named a State government shall be in the mode prescribed set up, such government shall be recognized and guaranteed by the United States, and that under it the State shall, on the constitutional conditions, be protected against invasion and domestic violence. The constitutional obligation of the United States to guarantee to every State in the Union a republican form of government and to protect the State in the cases stated is explicit and full. But why tender the benefits of this provision only to a State government set up in this particular way ? This section of the Constitution contemplates a case wherein the element within a State favorable to republican government in the Union may be too feeble for an opposite and hostile element external to or even within the State, and such are precisely the cases with which we are now dealing. An attempt to guarantee and protect a revived State government, constructed in whole or in preponderating part from the very element against whose hostility and violence it is to be protected, is simply absurd. There must be a test by which to separate the opposing elements, so as to build only from the sound; and that test is a sufficiently liberal one which accepts as sound whoever will make a sworn recantation of his former unsoundness. But if it be proper to require as a test of admission to the political body an oath of allegiance to the Constitution of the United States and to the Union under it, why also to the laws and proclamations in regard to slavery? Those laws and proclamations were enacted and put forth for the purpose of aiding in the suppression of the rebellion. To give them their fullest effect there had to be a pledge for their maintenance. In my judgment, they have aided and will further aid the cause for which they were intended. To now abandon them would be not only to relinquish a lever of power, but would also be a cruel and an astounding breach of faith. I may add at this point that while I remain in my present position I shall not attempt to retract or modify the emancipation proclamation, nor shall I return to slavery any person who is free by the terms of that proclamation or by any of the acts of Congress. For these and other reasons it is thought best that support of these measures shall be included in the oath, and it is believed the Executive may lawfully claim it in return for pardon and restoration of forfeited rights, which he has clear constitutional power to withhold altogether or grant upon the terms which he shall deem wisest for the public interest. It should be observed also that this part of the oath is subject to the modifying and abrogating power of legislation and supreme judicial decision. The proposed acquiescence of the National Executive in any reasonable temporary State arrangement for the freed people is made with the view of possibly modifying the confusion and destitution which must at best attend all classes by a total revolution of labor throughout whole States. It is hoped that the already deeply afflicted people in those States may be somewhat more ready to give up the cause of their affliction if to this extent this vital matter be left to themselves, while no power of the National Executive to prevent an abuse is abridged by the proposition. The suggestion in the proclamation as to maintaining the political framework of the States on what is called reconstruction is made in the hope that it may do good without danger of harm. It will save labor and avoid great confusion. But why any proclamation now upon this subject? This question is beset with the conflicting views that the step might be delayed too long or be taken too soon. In some States the elements for resumption seem ready for action. but remain inactive apparently for want of a rallying point--a plan of action, Why shall A adopt the plan of B rather than B that of A? And if A and B should agree, how can they know but that the General Government here will reject their plan? By the proclamation a plan is presented which may be accepted by them as a rallying point, and which they are assured in advance will not be rejected here. This may bring them to act sooner than they otherwise would. The objections to a premature presentation of a plan by the National Executive consist in the danger of committals on points which could be more safely left to further developments. Care has been taken to so shape the document as to avoid embarrassments from this source. Saying that on certain terms certain classes will be pardoned with rights restored, it is not said that other classes or other terms will never be in included. Saying that reconstruction will be accepted if presented in a specified way, it is not said it will never be accepted in any other way  . The movements by State action for emancipation in several of the States not included in the emancipation proclamation are matters of profound gratulation. And while I do not repeat in detail what I have heretofore so earnestly urged upon this subject, my general views and feelings remain unchanged; and I trust that Congress will omit no fair opportunity of aiding these important steps to a great consummation. In the midst of other cares, however important, we must not lose sight of the fact that the war power is still our main reliance. To that power alone can we look yet for a time to give confidence to the people in the contested regions that the insurgent power will not again overrun them. Until that confidence shall be established little can be done anywhere for what is called reconstruction. Hence our chiefest care must still be directed to the Army and Navy, who have thus far borne their harder part so nobly and well; and it may be esteemed fortunate that in giving the greatest efficiency to these indispensable arms we do also honorably recognize the gallant men, from commander to sentinel, who compose them, and to whom more than to others the world must stand indebted for the home of freedom disenthralled, regenerated, enlarged, and perpetuated.
Another year of health and of sufficiently abundant harvests has passed. For these, and especially for the improved condition of our national affairs, our renewed and profoundest gratitude to God is due. We remain in peace and friendship with foreign powers. The efforts of disloyal citizens of the United States to involve us in foreign wars to aid an inexcusable insurrection have been unavailing. Her Britannic Majesty's Government, as was justly expected, have exercised their authority to prevent the departure of new hostile expeditions from British ports. The Emperor of France has by a like proceeding promptly vindicated the neutrality which he proclaimed at the beginning of the contest. Questions of great intricacy and importance have arisen out of the blockade and other belligerent operations between the Government and several of the maritime powers, but they have been discussed and, as far as was possible, accommodated in a spirit of frankness, justice, and mutual good will. It is especially gratifying that our prize courts, by the impartiality of their adjudications, have commanded the respect and confidence of maritime powers. The supplemental treaty between the United States and Great Britain for the suppression of the African slave trade, made on the 17th day of February last, has been duly ratified and carried into execution. It is believed that so far as American ports and American citizens are concerned that inhuman and odious traffic has been brought to an end. I shall submit for the consideration of the Senate a convention for the adjustment of possessory claims in Washington Territory arising out of the treaty of the 15th June, 1846, between the United States and Great Britain, and which have been the source of some disquiet among the citizens of that now rapidly improving part of the country. A novel and important question, involving the extent of the maritime jurisdiction of Spain in the waters which surround the island of Cuba, has been debated without reaching an agreement, and it is proposed in an amicable spirit to refer it to the arbitrament of a friendly power. A convention for that purpose will be submitted to the Senate. I have thought it proper, subject to the approval of the Senate, to concur with the interested commercial powers in an arrangement for the liquidation of the Scheldt dues, upon the principles which have been heretofore adopted in regard to the imposts upon navigation in the waters of Denmark. The long-pending controversy between this Government and that of Chile touching the seizure at Sitana, in Peru, by Chilean officers, of a large amount in treasure belonging to citizens of the United States has been brought to a close by the award of His Majesty the King of the Belgians, to whose arbitration the question was referred by the parties. The subject was thoroughly and patiently examined by that justly respected magistrate, and although the sum awarded to the claimants may not have been as large as they expected there is no reason to distrust the wisdom of His Majesty's decision. That decision was promptly complied with by Chile when intelligence in regard to it reached that country. The joint commission under the act of the last session for carrying into effect the convention with Peru on the subject of claims has been organized at Lima, and is engaged in the business intrusted to it. Difficulties concerning interoceanic transit through Nicaragua are in course of amicable adjustment. In conformity with principles set forth in my last annual message, I have received a representative from the United States of Colombia, and have accredited a minister to that Republic. Incidents occurring in the progress of our civil war have forced upon my attention the uncertain state of international questions touching the rights of foreigners in this country and of United States citizens abroad. In regard to some governments these rights are at least partially, defined by treaties. In no instance, however, is it expressly stipulated that in the event of civil war a foreigner residing in this country within the lines of the insurgents is to be exempted from the rule which classes him as a belligerent, in whose behalf the Government of his country can not expect any privileges or immunities distinct from that character. I regret to say, however, that such claims have been put forward, and in some instances in behalf of foreigners who have lived in the United States the greater part of their lives. There is reason to believe that many persons born in foreign countries who have declared their intention to become citizens, or who have been fully naturalized, have evaded the military duty required of them by denying the fact and thereby throwing upon the Government the burden of proof. It has been found difficult or impracticable to obtain this proof, from the want of guides to the proper sources of information. These might be supplied by requiring clerks of courts where declarations of intention may be made or naturalizations effected to send periodically lists of the names of the persons naturalized or declaring their intention to become citizens to the Secretary of the Interior, in whose Department those names might be arranged and printed for general information. There is also reason to believe that foreigners frequently become citizens of the United States for the sole purpose of evading duties imposed by the laws of their native countries, to which on becoming naturalized here they at once repair, and though never returning to the United States they still claim the interposition of this Government as citizens. Many altercations and great prejudices have heretofore arisen out of this abuse. It is therefore submitted to your serious consideration. It might be advisable to fix a limit beyond which no citizen of the United States residing abroad may claim the interposition of his Government. The right of suffrage has often been assumed and exercised by aliens under pretenses of naturalization, which they have disavowed when drafted into the military service. I submit the expediency of such an amendment of the law as will make the fact of voting an estoppel against any plea of exemption from military service or other civil obligation on the ground of alienage. In common with other Western powers, our relations with Japan have been brought into serious jeopardy through the perverse opposition of the hereditary aristocracy of the Empire to the enlightened and liberal policy of the Tycoon, designed to bring the country into the society of nations. It is hoped, although not with entire confidence, that these difficulties may be peacefully overcome. I ask your attention to the claim of the minister residing there for the damages he sustained in the destruction by fire of the residence of the legation at Yedo. Satisfactory arrangements have been made with the Emperor of Russia, which, it is believed, will result in effecting a continuous line of telegraph through that Empire from our Pacific coast. I recommend to your favorable consideration the subject of an international telegraph across the Atlantic Ocean, and also of a telegraph between this capital and the national forts along the Atlantic seaboard and the Gulf of Mexico. Such communications, established with any reasonable outlay, would be economical as well as effective aids to the diplomatic, military, and naval service. The consular system of the United States, under the enactments of the last Congress, begins to be self-sustaining, and there is reason to hope that it may become entirely so with the increase of trade which will ensue whenever peace is restored. Our ministers abroad have been faithful in defending American rights. In protecting commercial interests our consuls have necessarily had to encounter increased labors and responsibilities growing out of the war. These they have for the most part met and discharged with zeal and efficiency. This acknowledgment justly includes those consuls who, residing in Morocco, Egypt, Turkey, Japan, China, and other Oriental countries, are charged with complex functions and extraordinary powers. The condition of the several organized Territories is generally satisfactory, although Indian disturbances in New Mexico have not been entirely suppressed. The mineral resources of Colorado, Nevada, Idaho, New Mexico, and Arizona are proving far richer than has been heretofore understood. I lay before you a communication on this subject from the governor of New Mexico. I again submit to your consideration the expediency of establishing a system for the encouragement of immigration. Although this source of national wealth and strength is again flowing with greater freedom than for several years before the insurrection occurred, there is still a great deficiency of laborers in every field of industry, especially in agriculture and in our mines, as well of iron and coal as of the precious metals. While the demand for labor is much increased here, tens of thousands of persons, destitute of remunerative occupation, are thronging our foreign consulates and offering to emigrate to the United States if essential, but very cheap, assistance can be afforded them. It is easy to see that under the sharp discipline of civil war the nation is beginning a new life. This noble effort demands the aid and ought to receive the attention and support of the Government. Injuries unforeseen by the Government and unintended may in some cases have been inflicted on the subjects or citizens of foreign countries, both at sea and on land, by persons in the service of the United States. As this Government expects redress from other powers when similar injuries are inflicted by persons in their service upon citizens of the United States, we must be prepared to do justice to foreigners. If the existing judicial tribunals are inadequate to this purpose, a special court may be authorized, with power to hear and decide such claims of the character referred to as may have arisen under treaties and the public law. Conventions for adjusting the claims by joint commission have been proposed to some governments, but no definitive answer to the proposition has yet been received from any. In the course of the session I shall probably have occasion to request you to provide indemnification to claimants where decrees of restitution have been rendered and damages awarded by admiralty courts, and in other cases where this Government may be acknowledged to be liable in principle and where the amount of that liability has been ascertained by an informal arbitration. The proper officers of the Treasury have deemed themselves required by the law of the United States upon the subject to demand a tax upon the incomes of foreign consuls in this country. While such a demand may not in strictness be in derogation of public law, or perhaps of any existing treaty between the United States and a foreign country, the expediency of so far modifying the act as to exempt from tax the income of such consuls as are not citizens of the United States, derived from the emoluments of their office or from property not situated in the United States, is submitted to your serious consideration. I make this suggestion upon the ground that a comity which ought to be reciprocated exempts our consuls in all other countries from taxation to the extent thus indicated. The United States, I think, ought not to be exceptionally illiberal to international trade and commerce. The operations of the Treasury during the last year have been successfully conducted. The enactment by Congress of a national banking law has proved a valuable support of the public credit and the general legislation in relation to loans has fully answered the expectations of its favorers. Some amendments may be required to perfect existing laws, but no change in their principles or general scope is believed to be needed. Since these measures have been in operation all demands on the Treasury, including the pay of the Army and Navy, have been promptly met and fully satisfied. No considerable body of troops, it is believed, were ever more amply provided and more liberally and punctually paid, and it may be added that by no people were the burdens incident to a great war ever more cheerfully borne. The receipts during the year from all sources, including loans and balance in the Treasury at its commencement, were $901,125,674.86, and the aggregate disbursements $895,796,630.65, leaving a balance on the 1st of July, 1863, of $5,329,044.21. Of the receipts there were derived from customs $69,059,642.40, from internal revenue $37,640,787.95, from direct tax $1,485,103.61, from lands $167,617.17, from miscellaneous sources $3,046,615.35, and from loans $776,682,361.57, making the aggregate $901,125,674.86. Of the disbursements there were for the civil service $23,253,922.08, for pensions and Indians $4,216,520.79, for interest on public debt $24,729,846.51, for the War Department $599,298,600.83, for the Navy Department $63,211,105.27, for payment of funded and temporary debt $181,086,635.07, making the aggregate $895,796,630.65 and leaving the balance of $5,329,044.21. But the payment of funded and temporary debt, having been made from moneys borrowed during the year, must be regarded as merely nominal payments and the moneys borrowed to make them as merely nominal receipts, and their amount, $181,086,635.07, should therefore be deducted both from receipts and disbursements. This being done there remains as actual receipts $720,039,039.79 and the actual disbursements $714,709,995.58, leaving the balance as already stated. The actual receipts and disbursements for the first quarter and the estimated receipts and disbursements for the remaining three quarters of the current fiscal year (1864) will be shown in detail by the report of the Secretary of the Treasury, to which I invite your attention. It is sufficient to say here that it is not believed that actual results will exhibit a state of the finances less favorable to the country than the estimates of that officer heretofore submitted, while it is confidently expected that at the close of the year both disbursements and debt will be found very considerably less than has been anticipated. The report of the Secretary of War is a document of great interest. It consists of-- 1. The military operations of the year, detailed in the report of the General in Chief. 2. The organization of colored persons into the war service. 3. The exchange of prisoners, fully set forth in the letter of General Hitchcock. 4. The operations under the act for enrolling and calling out the national forces, detailed in the report of the Provost-Marshal-General. 5. The organization of the invalid corps, and 6. The operation of the several departments of the Quartermaster-General, Commissary- General, Paymaster-General, Chief of Engineers, Chief of Ordnance, and Surgeon-General. It has appeared impossible to make a valuable summary of this report, except such as would be too extended for this place, and hence I content myself by asking your careful attention to the report itself. The duties devolving on the naval branch of the service during the year and throughout the whole of this unhappy contest have been discharged with fidelity and eminent success. The extensive blockade has been constantly increasing in efficiency as the Navy has expanded, yet on so long a line it has so far been impossible to entirely suppress illicit trade. From returns received at the Navy Department it appears that more than 1,000 vessels have been captured since the blockade was instituted, and that the value of prizes already sent in for adjudication amounts to over $13,000,000. The naval force of the United States consists at this time of 588 vessels completed and in the course of completion, and of these 75 are ironclad or armored steamers. The events of the war give an increased interest and importance to the Navy which will probably extend beyond the war itself. The armored vessels in our Navy completed and in service, or which are under contract and approaching completion, are believed to exceed in number those of any other power; but while these may be relied upon for harbor defense and coast service, others of greater strength and capacity will be necessary for cruising purposes and to maintain our rightful position on the ocean. The change that has taken place in naval vessels and naval warfare since the introduction of steam as a motive power for ships of war demands either a corresponding change in some of our existing navy-yards or the establishment of new ones for the construction and necessary repair of modern naval vessels. No inconsiderable embarrassment, delay, and public injury have been experienced from the want of such governmental establishments. The necessity of such a navy-yard, so furnished, at some suitable place upon the Atlantic seaboard has on repeated occasions been brought to the attention of Congress by the Navy Department, and is again presented in the report of the Secretary which accompanies this communication. I think it my duty to invite your special attention to this subject, and also to that of establishing a yard and depot for naval purposes upon one of the Western rivers. A naval force has been created on those interior waters, and under many disadvantages, within little more than two years, exceeding in numbers the whole naval force of the country at the commencement of the present Administration. Satisfactory and important as have been the performances of the heroic men of the Navy at this interesting period, they are scarcely more wonderful than the success of our mechanics and artisans in the production of war vessels, which has created a new form of naval power. Our country has advantages superior to any other nation in our resources of iron and timber, with inexhaustible quantities of fuel in the immediate vicinity of both, and all available and in close proximity to navigable waters. Without the advantage of public works, the resources of the nation have been developed and its power displayed in the construction of a Navy of such magnitude, which has at the very period of its creation rendered signal service to the Union. The increase of the number of seamen in the public service from 7,500 men in the spring of 1861 to about 34,000 at the present time has been accomplished without special legislation or extraordinary bounties to promote that increase. It has been found, however, that the operation of the draft, with the high bounties paid for army recruits, is beginning to affect injuriously the naval service, and will, if not corrected, be likely to impair its efficiency by detaching seamen from their proper vocation and inducing them to enter the Army. I therefore respectfully suggest that Congress might aid both the army and naval services by a definite provision on this subject which would at the same time be equitable to the communities more especially interested. I commend to your consideration the suggestions of the Secretary of the Navy in regard to the policy of fostering and training seamen and also the education of officers and engineers for the naval service. The Naval Academy is rendering signal service in preparing midshipmen for the highly responsible duties which in after life they will be required to perform. In order that the country should not be deprived of the proper quota of educated officers, for which legal provision has been made at the naval school, the vacancies caused by the neglect or omission to make nominations from the States in insurrection have been filled by the Secretary of the Navy. The school is now more full and complete than at any former period, and in every respect entitled to the favorable consideration of Congress. During the past fiscal year the financial condition of the Post-Office Department has been one of increasing prosperity, and I am gratified in being able to state that the actual postal revenue has nearly equaled the entire expenditures, the latter amounting to $11,314,206.84 and the former to $11,163,789.59, leaving a deficiency of but $150,417.25. In 1860, the year immediately preceding the rebellion, the deficiency amounted to $5,656,705.49, the postal receipts of that year being $2,645,722.19 less than those of 1863. The decrease since 1860 in the annual amount of transportation has been only about 25 per cent, but the annual expenditure on account of the same has been reduced 35 per cent. It is manifest, therefore, that the Post-Office Department may become self-sustaining in a few years, even with the restoration of the whole service. The international conference of postal delegates from the principal countries of Europe and America, which was called at the suggestion of the Postmaster-General, met at Paris on the 11th of May last and concluded its deliberations on the 8th of June. The principles established by the conference as best adapted to facilitate postal intercourse between nations and as the basis of future postal conventions inaugurate a general system of uniform international charges at reduced rates of postage, and can not fail to produce beneficial results. I refer you to the report of the Secretary of the Interior, which is herewith laid before you, for useful and varied information in relation to the public lands, Indian affairs, patents, pensions, and other matters of public concern pertaining to his Department. The quantity of land disposed of during the last and the first quarter of the present fiscal years was 3,841,549 acres, of which 161,911 acres were sold for cash, 1,456,514 acres were taken up under the homestead law, and the residue disposed of under laws granting lands for military bounties, for railroad and other purposes. It also appears that the sale of the public lands is largely on the increase. It has long been a cherished opinion of some of our wisest statesmen that the people of the United States had a higher and more enduring interest in the early settlement and substantial cultivation of the public lands than in the amount of direct revenue to be derived from the sale of them. This opinion has had a controlling influence in shaping legislation upon the subject of our national domain. I may cite as evidence of this the liberal measures adopted in reference to actual settlers; the grant to the States of the overflowed lands within their limits, in order to their being reclaimed and rendered fit for cultivation; the grants to railway companies of alternate sections of land upon the contemplated issues of their roads, which when completed will so largely multiply the facilities for reaching our distant possessions. This policy has received its most signal and beneficent illustration in the recent enactment granting homesteads to actual settlers. Since the 1st day of January last the before-mentioned quantity of 1,456,514 acres of land have been taken up under its provisions. This fact and the amount of sales furnish gratifying evidence of increasing settlement upon the public lands, notwithstanding the great struggle in which the energies of the nation have been engaged, and which has required so large a withdrawal of our citizens from their accustomed pursuits. I cordially concur in the recommendation of the Secretary of the Interior suggesting a modification of the act in favor of those engaged in the military and naval service of the United States. I doubt not that Congress will cheerfully adopt such measures as will, without essentially changing the general features of the system, secure to the greatest practicable extent its benefits to those who have left their homes in the defense of the country in this arduous crisis. I invite your attention to the views of the Secretary as to the propriety of raising by appropriate legislation a revenue from the mineral lands of the United States. The measures provided at your last session for the removal of certain Indian tribes have been carried into effect. Sundry treaties have been negotiated, which will in due time be submitted for the constitutional action of the Senate. They contain stipulations for extinguishing the possessory rights of the Indians to large and valuable tracts of lands. It is hoped that the effect of these treaties will result in the establishment of permanent friendly relations with such of these tribes as have been brought into frequent and bloody collision with our outlying settlements and emigrants. Sound policy and our imperative duty to these wards of the Government demand our anxious and constant attention to their material well-being, to their progress in the arts of civilization, and, above all, to that moral training which under the blessing of Divine Providence will confer upon them the elevated and sanctifying influences, the hopes and consolations, of the Christian faith. I suggested in my last annual message the propriety of remodeling our Indian system. Subsequent events have satisfied me of its necessity. The details set forth in the report of the Secretary evince the urgent need for immediate legislative action. I commend the benevolent institutions established or patronized by the Government in this District to your generous and fostering care. The attention of Congress during the last session was engaged to some extent with a proposition for enlarging the water communication between the Mississippi River and the northeastern seaboard, which proposition, however, failed for the time. Since then, upon a call of the greatest respectability, a convention has been held at Chicago upon the same subject, a summary of whose views is contained in a memorial addressed to the President and Congress, and which I now have the honor to lay before you. That this interest is one which ere long will force its own way I do not entertain a doubt, while it is submitted entirely to your wisdom as to what can be done now. Augmented interest is given to this subject by the actual commencement of work upon the Pacific Railroad, under auspices so favorable to rapid progress and completion. The enlarged navigation becomes a palpable need to the great road. I transmit the second annual report of the Commissioner of the Department of Agriculture, asking your attention to the developments in that vital interest of the nation. When Congress assembled a year ago, the war had already lasted nearly twenty months, and there had been many conflicts on both land and sea, with varying results; the rebellion had been pressed back into reduced limits; yet the tone of public feeling and opinion, at home and abroad was not satisfactory. With other signs, the popular elections then just past indicated uneasiness among ourselves, while, amid much that was cold and menacing, the kindest words coming from Europe were uttered in accents of pity that we were too blind to surrender a hopeless because. Our commerce was suffering greatly by a few armed vessels built upon and furnished from foreign shores, and we were threatened with such additions from the same quarter as would sweep our trade from the sea and raise our blockade. We had failed to elicit from European Governments anything hopeful upon this subject. The preliminary emancipation proclamation, issued in September, was running its assigned period to the beginning of the new year. A month later the final proclamation came, including the announcement that colored men of suitable condition would be received into the war service. The policy of emancipation and of employing black soldiers gave to the future a new aspect, about which hope and fear and doubt contended in uncertain conflict. According to our political system, as a matter of civil administration, the General Government had no lawful power to effect emancipation in any State, and for a long time it had been hoped that the rebellion could be suppressed without resorting to it as a military measure. It was all the while deemed possible that the necessity for it might come, and that if it should the crisis of the contest would then be presented. It came, and, as was anticipated, it was followed by dark and doubtful days. Eleven months having now passed, we are permitted to take another review. The rebel borders are pressed still farther back, and by the complete opening of the Mississippi the country dominated by the rebellion is divided into distinct parts, with no practical communication between them. Tennessee and Arkansas have been substantially cleared of insurgent control, and influential citizens in each, owners of slaves and advocates of slavery at the beginning of the rebellion, now declare openly for emancipation in their respective States. Of those States not included in the emancipation proclamation, Maryland and Missouri, neither of which three years ago would tolerate any restraint upon the extension of slavery into new Territories, only dispute now as to the best mode of removing it within their own limits. Of those who were slaves at the beginning of the rebellion full 100,000 are now in the United States military service, about one-half of which number actually bear arms in the ranks, thus giving the double advantage of taking so much labor from the insurgent because and supplying the places which otherwise must be filled with so many white men. So far as tested, it is difficult to say they are not as good soldiers as any. No servile insurrection or tendency to violence or cruelty has marked the measures of emancipation and arming the blacks. These measures have been much discussed in foreign countries, and, contemporary with such discussion, the tone of public sentiment there is much improved. At home the same measures have been fully discussed, supported, criticised, and denounced, and the annual elections following are highly encouraging to those whose official duty it is to bear the country through this great trial. Thus we have the new reckoning. The crisis which threatened to divide the friends of the Union is past. Looking now to the present and future, and with reference to a resumption of the national authority within the States wherein that authority has been suspended, I have thought fit to issue a proclamation, a copy of which is herewith transmitted.* On examination of this proclamation it will appear, as is believed, that nothing will be attempted beyond what is amply justified by the Constitution. True, the form of an oath is given, but no man is coerced to take it. The man is only promised a pardon in case he voluntarily takes the oath. The Constitution authorizes the Executive to grant or withhold the pardon at his own absolute discretion, and this includes the power to grant on terms, as is fully established by judicial and other authorities. It is also proffered that if in any of the States named a State government shall be in the mode prescribed set up, such government shall be recognized and guaranteed by the United States, and that under it the State shall, on the constitutional conditions, be protected against invasion and domestic violence. The constitutional obligation of the United States to guarantee to every State in the Union a republican form of government and to protect the State in the cases stated is explicit and full. But why tender the benefits of this provision only to a State government set up in this particular way ? This section of the Constitution contemplates a case wherein the element within a State favorable to republican government in the Union may be too feeble for an opposite and hostile element external to or even within the State, and such are precisely the cases with which we are now dealing. An attempt to guarantee and protect a revived State government, constructed in whole or in preponderating part from the very element against whose hostility and violence it is to be protected, is simply absurd. There must be a test by which to separate the opposing elements, so as to build only from the sound; and that test is a sufficiently liberal one which accepts as sound whoever will make a sworn recantation of his former unsoundness. But if it be proper to require as a test of admission to the political body an oath of allegiance to the Constitution of the United States and to the Union under it, why also to the laws and proclamations in regard to slavery? Those laws and proclamations were enacted and put forth for the purpose of aiding in the suppression of the rebellion. To give them their fullest effect there had to be a pledge for their maintenance. In my judgment, they have aided and will further aid the because for which they were intended. To now abandon them would be not only to relinquish a lever of power, but would also be a cruel and an astounding breach of faith. I may add at this point that while I remain in my present position I shall not attempt to retract or modify the emancipation proclamation, nor shall I return to slavery any person who is free by the terms of that proclamation or by any of the acts of Congress. For these and other reasons it is thought best that support of these measures shall be included in the oath, and it is believed the Executive may lawfully claim it in return for pardon and restoration of forfeited rights, which he has clear constitutional power to withhold altogether or grant upon the terms which he shall deem wisest for the public interest. It should be observed also that this part of the oath is subject to the modifying and abrogating power of legislation and supreme judicial decision. The proposed acquiescence of the National Executive in any reasonable temporary State arrangement for the freed people is made with the view of possibly modifying the confusion and destitution which must at best attend all classes by a total revolution of labor throughout whole States. It is hoped that the already deeply afflicted people in those States may be somewhat more ready to give up the because of their affliction if to this extent this vital matter be left to themselves, while no power of the National Executive to prevent an abuse is abridged by the proposition. The suggestion in the proclamation as to maintaining the political framework of the States on what is called reconstruction is made in the hope that it may do good without danger of harm. It will save labor and avoid great confusion. But why any proclamation now upon this subject? This question is beset with the conflicting views that the step might be delayed too long or be taken too soon. In some States the elements for resumption seem ready for action. but remain inactive apparently for want of a rallying point--a plan of action, Why shall A adopt the plan of B rather than B that of A? And if A and B should agree, how can they know but that the General Government here will reject their plan? By the proclamation a plan is presented which may be accepted by them as a rallying point, and which they are assured in advance will not be rejected here. This may bring them to act sooner than they otherwise would. The objections to a premature presentation of a plan by the National Executive consist in the danger of committals on points which could be more safely left to further developments. Care has been taken to so shape the document as to avoid embarrassments from this source. Saying that on certain terms certain classes will be pardoned with rights restored, it is not said that other classes or other terms will never be in included. Saying that reconstruction will be accepted if presented in a specified way, it is not said it will never be accepted in any other way . The movements by State action for emancipation in several of the States not included in the emancipation proclamation are matters of profound gratulation. And while I do not repeat in detail what I have heretofore so earnestly urged upon this subject, my general views and feelings remain unchanged; and I trust that Congress will omit no fair opportunity of aiding these important steps to a great consummation. In the midst of other cares, however important, we must not lose sight of the fact that the war power is still our main reliance. To that power alone can we look yet for a time to give confidence to the people in the contested regions that the insurgent power will not again overrun them. Until that confidence shall be established little can be done anywhere for what is called reconstruction. Hence our chiefest care must still be directed to the Army and Navy, who have thus far borne their harder part so nobly and well; and it may be esteemed fortunate that in giving the greatest efficiency to these indispensable arms we do also honorably recognize the gallant men, from commander to sentinel, who compose them, and to whom more than to others the world must stand indebted for the home of freedom disenthralled, regenerated, enlarged, and perpetuated.
another year of health and of sufficiently abundant harvests has passed for these and especially for the improved condition of our national affairs our renewed and profoundest gratitude to god is due we remain in peace and friendship with foreign powers the efforts of disloyal citizens of the united states to involve us in foreign wars to aid an inexcusable insurrection have been unavailing her britannic majesty government as was justly expected have exercised their authority to prevent the departure of new hostile expeditions from british ports the emperor of france has by a like proceeding promptly vindicated the neutrality which he proclaimed at the beginning of the contest questions of great intricacy and importance have arisen out of the blockade and other belligerent operations between the government and several of the maritime powers but they have been discussed and as far as was possible accommodated in a spirit of frankness justice and mutual good will it is especially gratifying that our prize courts by the impartiality of their adjudications have commanded the respect and confidence of maritime powers the supplemental treaty between the united states and great britain for the suppression of the african slave trade made on the 17th day of february last has been duly ratified and carried into execution it is believed that so far as american ports and american citizens are concerned that inhuman and odious traffic has been brought to an end i shall submit for the consideration of the senate a convention for the adjustment of possessory claims in washington territory arising out of the treaty of the 15th june 1846 between the united states and great britain and which have been the source of some disquiet among the citizens of that now rapidly improving part of the country a novel and important question involving the extent of the maritime jurisdiction of spain in the waters which surround the island of cuba has been debated without reaching an agreement and it is proposed in an amicable spirit to refer it to the arbitrament of a friendly power a convention for that purpose will be submitted to the senate i have thought it proper subject to the approval of the senate to concur with the interested commercial powers in an arrangement for the liquidation of the scheldt dues upon the principles which have been heretofore adopted in regard to the imposts upon navigation in the waters of denmark the controversy between this government and that of chile touching the seizure at sitana in peru by chilean officers of a large amount in treasure belonging to citizens of the united states has been brought to a close by the award of his majesty the king of the belgians to whose arbitration the question was referred by the parties the subject was thoroughly and patiently examined by that justly respected magistrate and although the sum awarded to the claimants may not have been as large as they expected there is no reason to distrust the wisdom of his majesty decision that decision was promptly complied with by chile when intelligence in regard to it reached that country the joint commission under the act of the last session for carrying into effect the convention with peru on the subject of claims has been organized at lima and is engaged in the business intrusted to it difficulties concerning interoceanic transit through nicaragua are in course of amicable adjustment in conformity with principles set forth in my last annual message i have received a representative from the united states of colombia and have accredited a minister to that republic incidents occurring in the progress of our civil war have forced upon my attention the uncertain state of international questions touching the rights of foreigners in this country and of united states citizens abroad in regard to some governments these rights are at least partially defined by treaties in no instance however is it expressly stipulated that in the event of civil war a foreigner residing in this country within the lines of the insurgents is to be exempted from the rule which classes him as a belligerent in whose behalf the government of his country can not expect any privileges or immunities distinct from that character i regret to say however that such claims have been put forward and in some instances in behalf of foreigners who have lived in the united states the greater part of their lives there is reason to believe that many persons born in foreign countries who have declared their intention to become citizens or who have been fully naturalized have evaded the military duty required of them by denying the fact and thereby throwing upon the government the burden of proof it has been found difficult or impracticable to obtain this proof from the want of guides to the proper sources of information these might be supplied by requiring clerks of courts where declarations of intention may be made or naturalizations effected to send periodically lists of the names of the persons naturalized or declaring their intention to become citizens to the secretary of the interior in whose department those names might be arranged and printed for general information there is also reason to believe that foreigners frequently become citizens of the united states for the sole purpose of evading duties imposed by the laws of their native countries to which on becoming naturalized here they at once repair and though never returning to the united states they still claim the interposition of this government as citizens many altercations and great prejudices have heretofore arisen out of this abuse it is therefore submitted to your serious consideration it might be advisable to fix a limit beyond which no citizen of the united states residing abroad may claim the interposition of his government the right of suffrage has often been assumed and exercised by aliens under pretenses of naturalization which they have disavowed when drafted into the military service i submit the expediency of such an amendment of the law as will make the fact of voting an estoppel against any plea of exemption from military service or other civil obligation on the ground of alienage in common with other western powers our relations with japan have been brought into serious jeopardy through the perverse opposition of the hereditary aristocracy of the empire to the enlightened and liberal policy of the tycoon designed to bring the country into the society of nations it is hoped although not with entire confidence that these difficulties may be peacefully overcome i ask your attention to the claim of the minister residing there for the damages he sustained in the destruction by fire of the residence of the legation at yedo satisfactory arrangements have been made with the emperor of russia which it is believed will result in effecting a continuous line of telegraph through that empire from our pacific coast i recommend to your favorable consideration the subject of an international telegraph across the atlantic ocean and also of a telegraph between this capital and the national forts along the atlantic seaboard and the gulf of mexico such communications established with any reasonable outlay would be economical as well as effective aids to the diplomatic military and naval service the consular system of the united states under the enactments of the last congress begins to be and there is reason to hope that it may become entirely so with the increase of trade which will ensue whenever peace is restored our ministers abroad have been faithful in defending american rights in protecting commercial interests our consuls have necessarily had to encounter increased labors and responsibilities growing out of the war these they have for the most part met and discharged with zeal and efficiency this acknowledgment justly includes those consuls who residing in morocco egypt turkey japan china and other oriental countries are charged with complex functions and extraordinary powers the condition of the several organized territories is generally satisfactory although indian disturbances in new mexico have not been entirely suppressed the mineral resources of colorado nevada idaho new mexico and arizona are proving far richer than has been heretofore understood i lay before you a communication on this subject from the governor of new mexico i again submit to your consideration the expediency of establishing a system for the encouragement of immigration although this source of national wealth and strength is again flowing with greater freedom than for several years before the insurrection occurred there is still a great deficiency of laborers in every field of industry especially in agriculture and in our mines as well of iron and coal as of the precious metals while the demand for labor is much increased here tens of thousands of persons destitute of remunerative occupation are thronging our foreign consulates and offering to emigrate to the united states if essential but very cheap assistance can be afforded them it is easy to see that under the sharp discipline of civil war the nation is beginning a new life this noble effort demands the aid and ought to receive the attention and support of the government injuries unforeseen by the government and unintended may in some cases have been inflicted on the subjects or citizens of foreign countries both at sea and on land by persons in the service of the united states as this government expects redress from other powers when similar injuries are inflicted by persons in their service upon citizens of the united states we must be prepared to do justice to foreigners if the existing judicial tribunals are inadequate to this purpose a special court may be authorized with power to hear and decide such claims of the character referred to as may have arisen under treaties and the public law conventions for adjusting the claims by joint commission have been proposed to some governments but no definitive answer to the proposition has yet been received from any in the course of the session i shall probably have occasion to request you to provide indemnification to claimants where decrees of restitution have been rendered and damages awarded by admiralty courts and in other cases where this government may be acknowledged to be liable in principle and where the amount of that liability has been ascertained by an informal arbitration the proper officers of the treasury have deemed themselves required by the law of the united states upon the subject to demand a tax upon the incomes of foreign consuls in this country while such a demand may not in strictness be in derogation of public law or perhaps of any existing treaty between the united states and a foreign country the expediency of so far modifying the act as to exempt from tax the income of such consuls as are not citizens of the united states derived from the emoluments of their office or from property not situated in the united states is submitted to your serious consideration i make this suggestion upon the ground that a comity which ought to be reciprocated exempts our consuls in all other countries from taxation to the extent thus indicated the united states i think ought not to be exceptionally illiberal to international trade and commerce the operations of the treasury during the last year have been successfully conducted the enactment by congress of a national banking law has proved a valuable support of the public credit and the general legislation in relation to loans has fully answered the expectations of its favorers some amendments may be required to perfect existing laws but no change in their principles or general scope is believed to be needed since these measures have been in operation all demands on the treasury including the pay of the army and navy have been promptly met and fully satisfied no considerable body of troops it is believed were ever more amply provided and more liberally and punctually paid and it may be added that by no people were the burdens incident to a great war ever more cheerfully borne the receipts during the year from all sources including loans and balance in the treasury at its commencement were and the aggregate disbursements leaving a balance on the 1st of july 1863 of of the receipts there were derived from customs from internal revenue from direct tax from lands from miscellaneous sources and from loans making the aggregate of the disbursements there were for the civil service for pensions and indians for interest on public debt for the war department for the navy department for payment of funded and temporary debt making the aggregate and leaving the balance of but the payment of funded and temporary debt having been made from moneys borrowed during the year must be regarded as merely nominal payments and the moneys borrowed to make them as merely nominal receipts and their amount should therefore be deducted both from receipts and disbursements this being done there remains as actual receipts and the actual disbursements leaving the balance as already stated the actual receipts and disbursements for the first quarter and the estimated receipts and disbursements for the remaining three quarters of the current fiscal year 1864 will be shown in detail by the report of the secretary of the treasury to which i invite your attention it is sufficient to say here that it is not believed that actual results will exhibit a state of the finances less favorable to the country than the estimates of that officer heretofore submitted while it is confidently expected that at the close of the year both disbursements and debt will be found very considerably less than has been anticipated the report of the secretary of war is a document of great interest it consists of 1 the military operations of the year detailed in the report of the general in chief 2 the organization of colored persons into the war service 3 the exchange of prisoners fully set forth in the letter of general hitchcock 4 the operations under the act for enrolling and calling out the national forces detailed in the report of the 5 the organization of the invalid corps and 6 the operation of the several departments of the general chief of engineers chief of ordnance and it has appeared impossible to make a valuable summary of this report except such as would be too extended for this place and hence i content myself by asking your careful attention to the report itself the duties devolving on the naval branch of the service during the year and throughout the whole of this unhappy contest have been discharged with fidelity and eminent success the extensive blockade has been constantly increasing in efficiency as the navy has expanded yet on so long a line it has so far been impossible to entirely suppress illicit trade from returns received at the navy department it appears that more than vessels have been captured since the blockade was instituted and that the value of prizes already sent in for adjudication amounts to over the naval force of the united states consists at this time of 588 vessels completed and in the course of completion and of these 75 are ironclad or armored steamers the events of the war give an increased interest and importance to the navy which will probably extend beyond the war itself the armored vessels in our navy completed and in service or which are under contract and approaching completion are believed to exceed in number those of any other power but while these may be relied upon for harbor defense and coast service others of greater strength and capacity will be necessary for cruising purposes and to maintain our rightful position on the ocean the change that has taken place in naval vessels and naval warfare since the introduction of steam as a motive power for ships of war demands either a corresponding change in some of our existing or the establishment of new ones for the construction and necessary repair of modern naval vessels no inconsiderable embarrassment delay and public injury have been experienced from the want of such governmental establishments the necessity of such a so furnished at some suitable place upon the atlantic seaboard has on repeated occasions been brought to the attention of congress by the navy department and is again presented in the report of the secretary which accompanies this communication i think it my duty to invite your special attention to this subject and also to that of establishing a yard and depot for naval purposes upon one of the western rivers a naval force has been created on those interior waters and under many disadvantages within little more than two years exceeding in numbers the whole naval force of the country at the commencement of the present administration satisfactory and important as have been the performances of the heroic men of the navy at this interesting period they are scarcely more wonderful than the success of our mechanics and artisans in the production of war vessels which has created a new form of naval power our country has advantages superior to any other nation in our resources of iron and timber with inexhaustible quantities of fuel in the immediate vicinity of both and all available and in close proximity to navigable waters without the advantage of public works the resources of the nation have been developed and its power displayed in the construction of a navy of such magnitude which has at the very period of its creation rendered signal service to the union the increase of the number of seamen in the public service from men in the spring of 1861 to about at the present time has been accomplished without special legislation or extraordinary bounties to promote that increase it has been found however that the operation of the draft with the high bounties paid for army recruits is beginning to affect injuriously the naval service and will if not corrected be likely to impair its efficiency by detaching seamen from their proper vocation and inducing them to enter the army i therefore respectfully suggest that congress might aid both the army and naval services by a definite provision on this subject which would at the same time be equitable to the communities more especially interested i commend to your consideration the suggestions of the secretary of the navy in regard to the policy of fostering and training seamen and also the education of officers and engineers for the naval service the naval academy is rendering signal service in preparing midshipmen for the highly responsible duties which in after life they will be required to perform in order that the country should not be deprived of the proper quota of educated officers for which legal provision has been made at the naval school the vacancies caused by the neglect or omission to make nominations from the states in insurrection have been filled by the secretary of the navy the school is now more full and complete than at any former period and in every respect entitled to the favorable consideration of congress during the past fiscal year the financial condition of the department has been one of increasing prosperity and i am gratified in being able to state that the actual postal revenue has nearly equaled the entire expenditures the latter amounting to and the former to leaving a deficiency of but in 1860 the year immediately preceding the rebellion the deficiency amounted to the postal receipts of that year being less than those of 1863 the decrease since 1860 in the annual amount of transportation has been only about 25 per cent but the annual expenditure on account of the same has been reduced 35 per cent it is manifest therefore that the department may become in a few years even with the restoration of the whole service the international conference of postal delegates from the principal countries of europe and america which was called at the suggestion of the met at paris on the 11th of may last and concluded its deliberations on the 8th of june the principles established by the conference as best adapted to facilitate postal intercourse between nations and as the basis of future postal conventions inaugurate a general system of uniform international charges at reduced rates of postage and can not fail to produce beneficial results i refer you to the report of the secretary of the interior which is herewith laid before you for useful and varied information in relation to the public lands indian affairs patents pensions and other matters of public concern pertaining to his department the quantity of land disposed of during the last and the first quarter of the present fiscal years was acres of which acres were sold for cash acres were taken up under the homestead law and the residue disposed of under laws granting lands for military bounties for railroad and other purposes it also appears that the sale of the public lands is largely on the increase it has long been a cherished opinion of some of our wisest statesmen that the people of the united states had a higher and more enduring interest in the early settlement and substantial cultivation of the public lands than in the amount of direct revenue to be derived from the sale of them this opinion has had a controlling influence in shaping legislation upon the subject of our national domain i may cite as evidence of this the liberal measures adopted in reference to actual settlers the grant to the states of the overflowed lands within their limits in order to their being reclaimed and rendered fit for cultivation the grants to railway companies of alternate sections of land upon the contemplated issues of their roads which when completed will so largely multiply the facilities for reaching our distant possessions this policy has received its most signal and beneficent illustration in the recent enactment granting homesteads to actual settlers since the 1st day of january last the quantity of acres of land have been taken up under its provisions this fact and the amount of sales furnish gratifying evidence of increasing settlement upon the public lands notwithstanding the great struggle in which the energies of the nation have been engaged and which has required so large a withdrawal of our citizens from their accustomed pursuits i cordially concur in the recommendation of the secretary of the interior suggesting a modification of the act in favor of those engaged in the military and naval service of the united states i doubt not that congress will cheerfully adopt such measures as will without essentially changing the general features of the system secure to the greatest practicable extent its benefits to those who have left their homes in the defense of the country in this arduous crisis i invite your attention to the views of the secretary as to the propriety of raising by appropriate legislation a revenue from the mineral lands of the united states the measures provided at your last session for the removal of certain indian tribes have been carried into effect sundry treaties have been negotiated which will in due time be submitted for the constitutional action of the senate they contain stipulations for extinguishing the possessory rights of the indians to large and valuable tracts of lands it is hoped that the effect of these treaties will result in the establishment of permanent friendly relations with such of these tribes as have been brought into frequent and bloody collision with our outlying settlements and emigrants sound policy and our imperative duty to these wards of the government demand our anxious and constant attention to their material to their progress in the arts of civilization and above all to that moral training which under the blessing of divine providence will confer upon them the elevated and sanctifying influences the hopes and consolations of the christian faith i suggested in my last annual message the propriety of remodeling our indian system subsequent events have satisfied me of its necessity the details set forth in the report of the secretary evince the urgent need for immediate legislative action i commend the benevolent institutions established or patronized by the government in this district to your generous and fostering care the attention of congress during the last session was engaged to some extent with a proposition for enlarging the water communication between the mississippi river and the northeastern seaboard which proposition however failed for the time since then upon a call of the greatest respectability a convention has been held at chicago upon the same subject a summary of whose views is contained in a memorial addressed to the president and congress and which i now have the honor to lay before you that this interest is one which ere long will force its own way i do not entertain a doubt while it is submitted entirely to your wisdom as to what can be done now augmented interest is given to this subject by the actual commencement of work upon the pacific railroad under auspices so favorable to rapid progress and completion the enlarged navigation becomes a palpable need to the great road i transmit the second annual report of the commissioner of the department of agriculture asking your attention to the developments in that vital interest of the nation when congress assembled a year ago the war had already lasted nearly twenty months and there had been many conflicts on both land and sea with varying results the rebellion had been pressed back into reduced limits yet the tone of public feeling and opinion at home and abroad was not satisfactory with other signs the popular elections then just past indicated uneasiness among ourselves while amid much that was cold and menacing the kindest words coming from europe were uttered in accents of pity that we were too blind to surrender a hopeless because our commerce was suffering greatly by a few armed vessels built upon and furnished from foreign shores and we were threatened with such additions from the same quarter as would sweep our trade from the sea and raise our blockade we had failed to elicit from european governments anything hopeful upon this subject the preliminary emancipation proclamation issued in september was running its assigned period to the beginning of the new year a month later the final proclamation came including the announcement that colored men of suitable condition would be received into the war service the policy of emancipation and of employing black soldiers gave to the future a new aspect about which hope and fear and doubt contended in uncertain conflict according to our political system as a matter of civil administration the general government had no lawful power to effect emancipation in any state and for a long time it had been hoped that the rebellion could be suppressed without resorting to it as a military measure it was all the while deemed possible that the necessity for it might come and that if it should the crisis of the contest would then be presented it came and as was anticipated it was followed by dark and doubtful days eleven months having now passed we are permitted to take another review the rebel borders are pressed still farther back and by the complete opening of the mississippi the country dominated by the rebellion is divided into distinct parts with no practical communication between them tennessee and arkansas have been substantially cleared of insurgent control and influential citizens in each owners of slaves and advocates of slavery at the beginning of the rebellion now declare openly for emancipation in their respective states of those states not included in the emancipation proclamation maryland and missouri neither of which three years ago would tolerate any restraint upon the extension of slavery into new territories only dispute now as to the best mode of removing it within their own limits of those who were slaves at the beginning of the rebellion full are now in the united states military service about of which number actually bear arms in the ranks thus giving the double advantage of taking so much labor from the insurgent because and supplying the places which otherwise must be filled with so many white men so far as tested it is difficult to say they are not as good soldiers as any no servile insurrection or tendency to violence or cruelty has marked the measures of emancipation and arming the blacks these measures have been much discussed in foreign countries and contemporary with such discussion the tone of public sentiment there is much improved at home the same measures have been fully discussed supported criticised and denounced and the annual elections following are highly encouraging to those whose official duty it is to bear the country through this great trial thus we have the new reckoning the crisis which threatened to divide the friends of the union is past looking now to the present and future and with reference to a resumption of the national authority within the states wherein that authority has been suspended i have thought fit to issue a proclamation a copy of which is herewith transmitted on examination of this proclamation it will appear as is believed that nothing will be attempted beyond what is amply justified by the constitution true the form of an oath is given but no man is coerced to take it the man is only promised a pardon in case he voluntarily takes the oath the constitution authorizes the executive to grant or withhold the pardon at his own absolute discretion and this includes the power to grant on terms as is fully established by judicial and other authorities it is also proffered that if in any of the states named a state government shall be in the mode prescribed set up such government shall be recognized and guaranteed by the united states and that under it the state shall on the constitutional conditions be protected against invasion and domestic violence the constitutional obligation of the united states to guarantee to every state in the union a republican form of government and to protect the state in the cases stated is explicit and full but why tender the benefits of this provision only to a state government set up in this particular way this section of the constitution contemplates a case wherein the element within a state favorable to republican government in the union may be too feeble for an opposite and hostile element external to or even within the state and such are precisely the cases with which we are now dealing an attempt to guarantee and protect a revived state government constructed in whole or in preponderating part from the very element against whose hostility and violence it is to be protected is simply absurd there must be a test by which to separate the opposing elements so as to build only from the sound and that test is a sufficiently liberal one which accepts as sound whoever will make a sworn recantation of his former unsoundness but if it be proper to require as a test of admission to the political body an oath of allegiance to the constitution of the united states and to the union under it why also to the laws and proclamations in regard to slavery those laws and proclamations were enacted and put forth for the purpose of aiding in the suppression of the rebellion to give them their fullest effect there had to be a pledge for their maintenance in my judgment they have aided and will further aid the because for which they were intended to now abandon them would be not only to relinquish a lever of power but would also be a cruel and an astounding breach of faith i may add at this point that while i remain in my present position i shall not attempt to retract or modify the emancipation proclamation nor shall i return to slavery any person who is free by the terms of that proclamation or by any of the acts of congress for these and other reasons it is thought best that support of these measures shall be included in the oath and it is believed the executive may lawfully claim it in return for pardon and restoration of forfeited rights which he has clear constitutional power to withhold altogether or grant upon the terms which he shall deem wisest for the public interest it should be observed also that this part of the oath is subject to the modifying and abrogating power of legislation and supreme judicial decision the proposed acquiescence of the national executive in any reasonable temporary state arrangement for the freed people is made with the view of possibly modifying the confusion and destitution which must at best attend all classes by a total revolution of labor throughout whole states it is hoped that the already deeply afflicted people in those states may be somewhat more ready to give up the because of their affliction if to this extent this vital matter be left to themselves while no power of the national executive to prevent an abuse is abridged by the proposition the suggestion in the proclamation as to maintaining the political framework of the states on what is called reconstruction is made in the hope that it may do good without danger of harm it will save labor and avoid great confusion but why any proclamation now upon this subject this question is beset with the conflicting views that the step might be delayed too long or be taken too soon in some states the elements for resumption seem ready for action but remain inactive apparently for want of a rallying point a plan of action why shall a adopt the plan of b rather than b that of a and if a and b should agree how can they know but that the general government here will reject their plan by the proclamation a plan is presented which may be accepted by them as a rallying point and which they are assured in advance will not be rejected here this may bring them to act sooner than they otherwise would the objections to a premature presentation of a plan by the national executive consist in the danger of committals on points which could be more safely left to further developments care has been taken to so shape the document as to avoid embarrassments from this source saying that on certain terms certain classes will be pardoned with rights restored it is not said that other classes or other terms will never be in included saying that reconstruction will be accepted if presented in a specified way it is not said it will never be accepted in any other way the movements by state action for emancipation in several of the states not included in the emancipation proclamation are matters of profound gratulation and while i do not repeat in detail what i have heretofore so earnestly urged upon this subject my general views and feelings remain unchanged and i trust that congress will omit no fair opportunity of aiding these important steps to a great consummation in the midst of other cares however important we must not lose sight of the fact that the war power is still our main reliance to that power alone can we look yet for a time to give confidence to the people in the contested regions that the insurgent power will not again overrun them until that confidence shall be established little can be done anywhere for what is called reconstruction hence our chiefest care must still be directed to the army and navy who have thus far borne their harder part so nobly and well and it may be esteemed fortunate that in giving the greatest efficiency to these indispensable arms we do also honorably recognize the gallant men from commander to sentinel who compose them and to whom more than to others the world must stand indebted for the home of freedom disenthralled regenerated enlarged and perpetuated
another year health sufficiently abundant harvests passed especially improved condition national affairs renewed profoundest gratitude god due remain peace friendship foreign powers efforts disloyal citizens united states involve us foreign wars aid inexcusable insurrection unavailing britannic majesty government justly expected exercised authority prevent departure new hostile expeditions british ports emperor france like proceeding promptly vindicated neutrality proclaimed beginning contest questions great intricacy importance arisen blockade belligerent operations government several maritime powers discussed far possible accommodated spirit frankness justice mutual good especially gratifying prize courts impartiality adjudications commanded respect confidence maritime powers supplemental treaty united states great britain suppression african slave trade made 17th day february last duly ratified carried execution believed far american ports american citizens concerned inhuman odious traffic brought end shall submit consideration senate convention adjustment possessory claims washington territory arising treaty 15th june 1846 united states great britain source disquiet among citizens rapidly improving part country novel important question involving extent maritime jurisdiction spain waters surround island cuba debated without reaching agreement proposed amicable spirit refer arbitrament friendly power convention purpose submitted senate thought proper subject approval senate concur interested commercial powers arrangement liquidation scheldt dues upon principles heretofore adopted regard imposts upon navigation waters denmark controversy government chile touching seizure sitana peru chilean officers large amount treasure belonging citizens united states brought close award majesty king belgians whose arbitration question referred parties subject thoroughly patiently examined justly respected magistrate although sum awarded claimants may large expected reason distrust wisdom majesty decision decision promptly complied chile intelligence regard reached country joint commission act last session carrying effect convention peru subject claims organized lima engaged business intrusted difficulties concerning interoceanic transit nicaragua course amicable adjustment conformity principles set forth last annual message received representative united states colombia accredited minister republic incidents occurring progress civil war forced upon attention uncertain state international questions touching rights foreigners country united states citizens abroad regard governments rights least partially defined treaties instance however expressly stipulated event civil war foreigner residing country within lines insurgents exempted rule classes belligerent whose behalf government country expect privileges immunities distinct character regret say however claims put forward instances behalf foreigners lived united states greater part lives reason believe many persons born foreign countries declared intention become citizens fully naturalized evaded military duty required denying fact thereby throwing upon government burden proof found difficult impracticable obtain proof want guides proper sources information might supplied requiring clerks courts declarations intention may made naturalizations effected send periodically lists names persons naturalized declaring intention become citizens secretary interior whose department names might arranged printed general information also reason believe foreigners frequently become citizens united states sole purpose evading duties imposed laws native countries becoming naturalized repair though never returning united states still claim interposition government citizens many altercations great prejudices heretofore arisen abuse therefore submitted serious consideration might advisable fix limit beyond citizen united states residing abroad may claim interposition government right suffrage often assumed exercised aliens pretenses naturalization disavowed drafted military service submit expediency amendment law make fact voting estoppel plea exemption military service civil obligation ground alienage common western powers relations japan brought serious jeopardy perverse opposition hereditary aristocracy empire enlightened liberal policy tycoon designed bring country society nations hoped although entire confidence difficulties may peacefully overcome ask attention claim minister residing damages sustained destruction fire residence legation yedo satisfactory arrangements made emperor russia believed result effecting continuous line telegraph empire pacific coast recommend favorable consideration subject international telegraph across atlantic ocean also telegraph capital national forts along atlantic seaboard gulf mexico communications established reasonable outlay would economical well effective aids diplomatic military naval service consular system united states enactments last congress begins reason hope may become entirely increase trade ensue whenever peace restored ministers abroad faithful defending american rights protecting commercial interests consuls necessarily encounter increased labors responsibilities growing war part met discharged zeal efficiency acknowledgment justly includes consuls residing morocco egypt turkey japan china oriental countries charged complex functions extraordinary powers condition several organized territories generally satisfactory although indian disturbances new mexico entirely suppressed mineral resources colorado nevada idaho new mexico arizona proving far richer heretofore understood lay communication subject governor new mexico submit consideration expediency establishing system encouragement immigration although source national wealth strength flowing greater freedom several years insurrection occurred still great deficiency laborers every field industry especially agriculture mines well iron coal precious metals demand labor much increased tens thousands persons destitute remunerative occupation thronging foreign consulates offering emigrate united states essential cheap assistance afforded easy see sharp discipline civil war nation beginning new life noble effort demands aid ought receive attention support government injuries unforeseen government unintended may cases inflicted subjects citizens foreign countries sea land persons service united states government expects redress powers similar injuries inflicted persons service upon citizens united states must prepared justice foreigners existing judicial tribunals inadequate purpose special court may authorized power hear decide claims character referred may arisen treaties public law conventions adjusting claims joint commission proposed governments definitive answer proposition yet received course session shall probably occasion request provide indemnification claimants decrees restitution rendered damages awarded admiralty courts cases government may acknowledged liable principle amount liability ascertained informal arbitration proper officers treasury deemed required law united states upon subject demand tax upon incomes foreign consuls country demand may strictness derogation public law perhaps existing treaty united states foreign country expediency far modifying act exempt tax income consuls citizens united states derived emoluments office property situated united states submitted serious consideration make suggestion upon ground comity ought reciprocated exempts consuls countries taxation extent thus indicated united states think ought exceptionally illiberal international trade commerce operations treasury last year successfully conducted enactment congress national banking law proved valuable support public credit general legislation relation loans fully answered expectations favorers amendments may required perfect existing laws change principles general scope believed needed since measures operation demands treasury including pay army navy promptly met fully satisfied considerable body troops believed ever amply provided liberally punctually paid may added people burdens incident great war ever cheerfully borne receipts year sources including loans balance treasury commencement aggregate disbursements leaving balance 1st july 1863 receipts derived customs internal revenue direct tax lands miscellaneous sources loans making aggregate disbursements civil service pensions indians interest public debt war department navy department payment funded temporary debt making aggregate leaving balance payment funded temporary debt made moneys borrowed year must regarded merely nominal payments moneys borrowed make merely nominal receipts amount therefore deducted receipts disbursements done remains actual receipts actual disbursements leaving balance already stated actual receipts disbursements first quarter estimated receipts disbursements remaining three quarters current fiscal year 1864 shown detail report secretary treasury invite attention sufficient say believed actual results exhibit state finances less favorable country estimates officer heretofore submitted confidently expected close year disbursements debt found considerably less anticipated report secretary war document great interest consists 1 military operations year detailed report general chief 2 organization colored persons war service 3 exchange prisoners fully set forth letter general hitchcock 4 operations act enrolling calling national forces detailed report 5 organization invalid corps 6 operation several departments general chief engineers chief ordnance appeared impossible make valuable summary report except would extended place hence content asking careful attention report duties devolving naval branch service year throughout whole unhappy contest discharged fidelity eminent success extensive blockade constantly increasing efficiency navy expanded yet long line far impossible entirely suppress illicit trade returns received navy department appears vessels captured since blockade instituted value prizes already sent adjudication amounts naval force united states consists time 588 vessels completed course completion 75 ironclad armored steamers events war give increased interest importance navy probably extend beyond war armored vessels navy completed service contract approaching completion believed exceed number power may relied upon harbor defense coast service others greater strength capacity necessary cruising purposes maintain rightful position ocean change taken place naval vessels naval warfare since introduction steam motive power ships war demands either corresponding change existing establishment new ones construction necessary repair modern naval vessels inconsiderable embarrassment delay public injury experienced want governmental establishments necessity furnished suitable place upon atlantic seaboard repeated occasions brought attention congress navy department presented report secretary accompanies communication think duty invite special attention subject also establishing yard depot naval purposes upon one western rivers naval force created interior waters many disadvantages within little two years exceeding numbers whole naval force country commencement present administration satisfactory important performances heroic men navy interesting period scarcely wonderful success mechanics artisans production war vessels created new form naval power country advantages superior nation resources iron timber inexhaustible quantities fuel immediate vicinity available close proximity navigable waters without advantage public works resources nation developed power displayed construction navy magnitude period creation rendered signal service union increase number seamen public service men spring 1861 present time accomplished without special legislation extraordinary bounties promote increase found however operation draft high bounties paid army recruits beginning affect injuriously naval service corrected likely impair efficiency detaching seamen proper vocation inducing enter army therefore respectfully suggest congress might aid army naval services definite provision subject would time equitable communities especially interested commend consideration suggestions secretary navy regard policy fostering training seamen also education officers engineers naval service naval academy rendering signal service preparing midshipmen highly responsible duties life required perform order country deprived proper quota educated officers legal provision made naval school vacancies caused neglect omission make nominations states insurrection filled secretary navy school full complete former period every respect entitled favorable consideration congress past fiscal year financial condition department one increasing prosperity gratified able state actual postal revenue nearly equaled entire expenditures latter amounting former leaving deficiency 1860 year immediately preceding rebellion deficiency amounted postal receipts year less 1863 decrease since 1860 annual amount transportation 25 per cent annual expenditure account reduced 35 per cent manifest therefore department may become years even restoration whole service international conference postal delegates principal countries europe america called suggestion met paris 11th may last concluded deliberations 8th june principles established conference best adapted facilitate postal intercourse nations basis future postal conventions inaugurate general system uniform international charges reduced rates postage fail produce beneficial results refer report secretary interior herewith laid useful varied information relation public lands indian affairs patents pensions matters public concern pertaining department quantity land disposed last first quarter present fiscal years acres acres sold cash acres taken homestead law residue disposed laws granting lands military bounties railroad purposes also appears sale public lands largely increase long cherished opinion wisest statesmen people united states higher enduring interest early settlement substantial cultivation public lands amount direct revenue derived sale opinion controlling influence shaping legislation upon subject national domain may cite evidence liberal measures adopted reference actual settlers grant states overflowed lands within limits order reclaimed rendered fit cultivation grants railway companies alternate sections land upon contemplated issues roads completed largely multiply facilities reaching distant possessions policy received signal beneficent illustration recent enactment granting homesteads actual settlers since 1st day january last quantity acres land taken provisions fact amount sales furnish gratifying evidence increasing settlement upon public lands notwithstanding great struggle energies nation engaged required large withdrawal citizens accustomed pursuits cordially concur recommendation secretary interior suggesting modification act favor engaged military naval service united states doubt congress cheerfully adopt measures without essentially changing general features system secure greatest practicable extent benefits left homes defense country arduous crisis invite attention views secretary propriety raising appropriate legislation revenue mineral lands united states measures provided last session removal certain indian tribes carried effect sundry treaties negotiated due time submitted constitutional action senate contain stipulations extinguishing possessory rights indians large valuable tracts lands hoped effect treaties result establishment permanent friendly relations tribes brought frequent bloody collision outlying settlements emigrants sound policy imperative duty wards government demand anxious constant attention material progress arts civilization moral training blessing divine providence confer upon elevated sanctifying influences hopes consolations christian faith suggested last annual message propriety remodeling indian system subsequent events satisfied necessity details set forth report secretary evince urgent need immediate legislative action commend benevolent institutions established patronized government district generous fostering care attention congress last session engaged extent proposition enlarging water communication mississippi river northeastern seaboard proposition however failed time since upon call greatest respectability convention held chicago upon subject summary whose views contained memorial addressed president congress honor lay interest one ere long force way entertain doubt submitted entirely wisdom done augmented interest given subject actual commencement work upon pacific railroad auspices favorable rapid progress completion enlarged navigation becomes palpable need great road transmit second annual report commissioner department agriculture asking attention developments vital interest nation congress assembled year ago war already lasted nearly twenty months many conflicts land sea varying results rebellion pressed back reduced limits yet tone public feeling opinion home abroad satisfactory signs popular elections past indicated uneasiness among amid much cold menacing kindest words coming europe uttered accents pity blind surrender hopeless commerce suffering greatly armed vessels built upon furnished foreign shores threatened additions quarter would sweep trade sea raise blockade failed elicit european governments anything hopeful upon subject preliminary emancipation proclamation issued september running assigned period beginning new year month later final proclamation came including announcement colored men suitable condition would received war service policy emancipation employing black soldiers gave future new aspect hope fear doubt contended uncertain conflict according political system matter civil administration general government lawful power effect emancipation state long time hoped rebellion could suppressed without resorting military measure deemed possible necessity might come crisis contest would presented came anticipated followed dark doubtful days eleven months passed permitted take another review rebel borders pressed still farther back complete opening mississippi country dominated rebellion divided distinct parts practical communication tennessee arkansas substantially cleared insurgent control influential citizens owners slaves advocates slavery beginning rebellion declare openly emancipation respective states states included emancipation proclamation maryland missouri neither three years ago would tolerate restraint upon extension slavery new territories dispute best mode removing within limits slaves beginning rebellion full united states military service number actually bear arms ranks thus giving double advantage taking much labor insurgent supplying places otherwise must filled many white men far tested difficult say good soldiers servile insurrection tendency violence cruelty marked measures emancipation arming blacks measures much discussed foreign countries contemporary discussion tone public sentiment much improved home measures fully discussed supported criticised denounced annual elections following highly encouraging whose official duty bear country great trial thus new reckoning crisis threatened divide friends union past looking present future reference resumption national authority within states wherein authority suspended thought fit issue proclamation copy herewith transmitted examination proclamation appear believed nothing attempted beyond amply justified constitution true form oath given man coerced take man promised pardon case voluntarily takes oath constitution authorizes executive grant withhold pardon absolute discretion includes power grant terms fully established judicial authorities also proffered states named state government shall mode prescribed set government shall recognized guaranteed united states state shall constitutional conditions protected invasion domestic violence constitutional obligation united states guarantee every state union republican form government protect state cases stated explicit full tender benefits provision state government set particular way section constitution contemplates case wherein element within state favorable republican government union may feeble opposite hostile element external even within state precisely cases dealing attempt guarantee protect revived state government constructed whole preponderating part element whose hostility violence protected simply absurd must test separate opposing elements build sound test sufficiently liberal one accepts sound whoever make sworn recantation former unsoundness proper require test admission political body oath allegiance constitution united states union also laws proclamations regard slavery laws proclamations enacted put forth purpose aiding suppression rebellion give fullest effect pledge maintenance judgment aided aid intended abandon would relinquish lever power would also cruel astounding breach faith may add point remain present position shall attempt retract modify emancipation proclamation shall return slavery person free terms proclamation acts congress reasons thought best support measures shall included oath believed executive may lawfully claim return pardon restoration forfeited rights clear constitutional power withhold altogether grant upon terms shall deem wisest public interest observed also part oath subject modifying abrogating power legislation supreme judicial decision proposed acquiescence national executive reasonable temporary state arrangement freed people made view possibly modifying confusion destitution must best attend classes total revolution labor throughout whole states hoped already deeply afflicted people states may somewhat ready give affliction extent vital matter left power national executive prevent abuse abridged proposition suggestion proclamation maintaining political framework states called reconstruction made hope may good without danger harm save labor avoid great confusion proclamation upon subject question beset conflicting views step might delayed long taken soon states elements resumption seem ready action remain inactive apparently want rallying point plan action shall adopt plan b rather b b agree know general government reject plan proclamation plan presented may accepted rallying point assured advance rejected may bring act sooner otherwise would objections premature presentation plan national executive consist danger committals points could safely left developments care taken shape document avoid embarrassments source saying certain terms certain classes pardoned rights restored said classes terms never included saying reconstruction accepted presented specified way said never accepted way movements state action emancipation several states included emancipation proclamation matters profound gratulation repeat detail heretofore earnestly urged upon subject general views feelings remain unchanged trust congress omit fair opportunity aiding important steps great consummation midst cares however important must lose sight fact war power still main reliance power alone look yet time give confidence people contested regions insurgent power overrun confidence shall established little done anywhere called reconstruction hence chiefest care must still directed army navy thus far borne harder part nobly well may esteemed fortunate giving greatest efficiency indispensable arms also honorably recognize gallant men commander sentinel compose others world must stand indebted home freedom disenthralled regenerated enlarged perpetuated
another year health sufficiently abundant harvest pass especially improve condition national affair renew profound gratitude god due remain peace friendship foreign power effort disloyal citizen united state involve u foreign war aid inexcusable insurrection unavailing britannic majesty government justly expect exercised authority prevent departure new hostile expedition british port emperor france like proceed promptly vindicate neutrality proclaim begin contest question great intricacy importance arisen blockade belligerent operation government several maritime power discuss far possible accommodated spirit frankness justice mutual good especially gratify prize court impartiality adjudication command respect confidence maritime power supplemental treaty united state great britain suppression african slave trade make 17th day february last duly ratify carried execution believe far american port american citizen concerned inhuman odious traffic bring end shall submit consideration senate convention adjustment possessory claim washington territory arise treaty 15th june 1846 united state great britain source disquiet among citizen rapidly improve part country novel important question involve extent maritime jurisdiction spain water surround island cuba debate without reach agreement propose amicable spirit refer arbitrament friendly power convention purpose submit senate think proper subject approval senate concur interested commercial power arrangement liquidation scheldt dues upon principle heretofore adopt regard impost upon navigation water denmark controversy government chile touch seizure sitana peru chilean officer large amount treasure belong citizen united state bring close award majesty king belgian whose arbitration question refer party subject thoroughly patiently examine justly respect magistrate although sum award claimant may large expect reason distrust wisdom majesty decision decision promptly comply chile intelligence regard reach country joint commission act last session carry effect convention peru subject claim organize lima engaged business intrust difficulty concern interoceanic transit nicaragua course amicable adjustment conformity principle set forth last annual message receive representative united state colombia accredit minister republic incident occur progress civil war force upon attention uncertain state international question touch right foreigner country unite state citizen abroad regard government right least partially defined treaty instance however expressly stipulate event civil war foreigner reside country within line insurgent exempt rule class belligerent whose behalf government country expect privilege immunity distinct character regret say however claim put forward instance behalf foreigner live united state great part live reason believe many person bear foreign country declare intention become citizen fully naturalize evade military duty require deny fact thereby throw upon government burden proof find difficult impracticable obtain proof want guide proper source information might supply require clerk court declaration intention may make naturalization effected send periodically list name person naturalize declare intention become citizen secretary interior whose department names might arrange printed general information also reason believe foreigner frequently become citizen united state sole purpose evade duty impose law native country become naturalized repair though never return united state still claim interposition government citizen many altercation great prejudice heretofore arisen abuse therefore submit serious consideration might advisable fix limit beyond citizen united state reside abroad may claim interposition government right suffrage often assume exercised alien pretenses naturalization disavow drafted military service submit expediency amendment law make fact voting estoppel plea exemption military service civil obligation ground alienage common western power relation japan brought serious jeopardy perverse opposition hereditary aristocracy empire enlighten liberal policy tycoon design bring country society nation hop although entire confidence difficulty may peacefully overcome ask attention claim minister reside damage sustain destruction fire residence legation yedo satisfactory arrangement make emperor russia believe result effect continuous line telegraph empire pacific coast recommend favorable consideration subject international telegraph across atlantic ocean also telegraph capital national fort along atlantic seaboard gulf mexico communication establish reasonable outlay would economical well effective aid diplomatic military naval service consular system united state enactment last congress begin reason hope may become entirely increase trade ensue whenever peace restore minister abroad faithful defend american right protect commercial interest consuls necessarily encounter increased labor responsibility grow war part meet discharged zeal efficiency acknowledgment justly include consuls reside morocco egypt turkey japan china oriental country charge complex function extraordinary power condition several organize territory generally satisfactory although indian disturbance new mexico entirely suppress mineral resource colorado nevada idaho new mexico arizona prove far rich heretofore understood lay communication subject governor new mexico submit consideration expediency establish system encouragement immigration although source national wealth strength flow great freedom several year insurrection occur still great deficiency laborer every field industry especially agriculture mine well iron coal precious metal demand labor much increase ten thousand person destitute remunerative occupation throng foreign consulate offer emigrate united state essential cheap assistance afford easy see sharp discipline civil war nation begin new life noble effort demand aid ought receive attention support government injury unforeseen government unintended may case inflicted subject citizens foreign country sea land person service united states government expect redress power similar injury inflict person service upon citizen united state must prepare justice foreigner exist judicial tribunal inadequate purpose special court may authorize power hear decide claim character refer may arise treaty public law convention adjust claim joint commission propose government definitive answer proposition yet receive course session shall probably occasion request provide indemnification claimant decree restitution render damage award admiralty court case government may acknowledge liable principle amount liability ascertain informal arbitration proper officer treasury deem required law united state upon subject demand tax upon income foreign consuls country demand may strictness derogation public law perhaps exist treaty united state foreign country expediency far modify act exempt tax income consul citizen united state derive emolument office property situate united state submit serious consideration make suggestion upon ground comity ought reciprocate exempts consuls country taxation extent thus indicate united state think ought exceptionally illiberal international trade commerce operation treasury last year successfully conduct enactment congress national banking law prove valuable support public credit general legislation relation loan fully answer expectation favorers amendment may require perfect exist law change principle general scope believe need since measure operation demand treasury include pay army navy promptly meet fully satisfy considerable body troop believe ever amply provide liberally punctually pay may added people burden incident great war ever cheerfully borne receipt year source include loan balance treasury commencement aggregate disbursement leave balance 1st july 1863 receipt derive custom internal revenue direct tax land miscellaneous source loan make aggregate disbursement civil service pension indians interest public debt war department navy department payment fund temporary debt making aggregate leaving balance payment fund temporary debt make money borrow year must regard merely nominal payment moneys borrow make merely nominal receipt amount therefore deduct receipt disbursement do remain actual receipt actual disbursement leave balance already state actual receipt disbursement first quarter estimate receipt disbursement remain three quarter current fiscal year 1864 show detail report secretary treasury invite attention sufficient say believe actual result exhibit state finance less favorable country estimate officer heretofore submit confidently expect close year disbursement debt find considerably less anticipated report secretary war document great interest consist 1 military operation year detail report general chief 2 organization color person war service 3 exchange prisoner fully set forth letter general hitchcock 4 operation act enrol call national force detail report 5 organization invalid corp 6 operation several department general chief engineer chief ordnance appear impossible make valuable summary report except would extend place hence content ask careful attention report duty devolve naval branch service year throughout whole unhappy contest discharge fidelity eminent success extensive blockade constantly increase efficiency navy expand yet long line far impossible entirely suppress illicit trade return receive navy department appear vessel capture since blockade institute value prize already send adjudication amount naval force united state consist time 588 vessel complete course completion 75 ironclad armor steamer event war give increase interest importance navy probably extend beyond war armored vessel navy complete service contract approach completion believe exceed number power may rely upon harbor defense coast service others great strength capacity necessary cruising purpose maintain rightful position ocean change take place naval vessel naval warfare since introduction steam motive power ship war demand either correspond change exist establishment new one construction necessary repair modern naval vessel inconsiderable embarrassment delay public injury experience want governmental establishment necessity furnish suitable place upon atlantic seaboard repeat occasion bring attention congress navy department present report secretary accompanies communication think duty invite special attention subject also establish yard depot naval purpose upon one western river naval force create interior water many disadvantage within little two year exceed number whole naval force country commencement present administration satisfactory important performance heroic men navy interesting period scarcely wonderful success mechanic artisans production war vessel create new form naval power country advantage superior nation resource iron timber inexhaustible quantity fuel immediate vicinity available close proximity navigable water without advantage public work resource nation develop power display construction navy magnitude period creation render signal service union increase number seaman public service men spring 1861 present time accomplish without special legislation extraordinary bounty promote increase find however operation draft high bounty pay army recruit begin affect injuriously naval service correct likely impair efficiency detach seaman proper vocation induce enter army therefore respectfully suggest congress might aid army naval service definite provision subject would time equitable community especially interested commend consideration suggestion secretary navy regard policy foster train seaman also education officer engineer naval service naval academy render signal service prepare midshipman highly responsible duty life require perform order country deprive proper quota educate officer legal provision make naval school vacancy cause neglect omission make nomination state insurrection fill secretary navy school full complete former period every respect entitle favorable consideration congress past fiscal year financial condition department one increase prosperity gratify able state actual postal revenue nearly equal entire expenditure latter amount former leave deficiency 1860 year immediately precede rebellion deficiency amount postal receipt year less 1863 decrease since 1860 annual amount transportation 25 per cent annual expenditure account reduce 35 per cent manifest therefore department may become year even restoration whole service international conference postal delegate principal country europe america call suggestion meet paris 11th may last conclude deliberation 8th june principle establish conference best adapt facilitate postal intercourse nation basis future postal convention inaugurate general system uniform international charge reduce rate postage fail produce beneficial result refer report secretary interior herewith lay useful varied information relation public land indian affair patent pension matter public concern pertain department quantity land dispose last first quarter present fiscal year acres acre sell cash acre take homestead law residue dispose law grant land military bounty railroad purpose also appear sale public land largely increase long cherished opinion wise statesmen people united state higher endure interest early settlement substantial cultivation public land amount direct revenue derive sale opinion control influence shape legislation upon subject national domain may cite evidence liberal measure adopt reference actual settler grant state overflow land within limit order reclaim rendered fit cultivation grant railway company alternate section land upon contemplate issue road complete largely multiply facility reach distant possession policy receive signal beneficent illustration recent enactment grant homestead actual settler since 1st day january last quantity acre land take provision fact amount sale furnish gratify evidence increase settlement upon public land notwithstanding great struggle energy nation engage require large withdrawal citizen accustom pursuit cordially concur recommendation secretary interior suggest modification act favor engage military naval service unite state doubt congress cheerfully adopt measure without essentially change general feature system secure great practicable extent benefit leave home defense country arduous crisis invite attention view secretary propriety raise appropriate legislation revenue mineral land united state measure provide last session removal certain indian tribe carry effect sundry treaty negotiate due time submit constitutional action senate contain stipulation extinguish possessory right indians large valuable tract land hoped effect treaty result establishment permanent friendly relation tribes bring frequent bloody collision outlying settlement emigrant sound policy imperative duty ward government demand anxious constant attention material progress art civilization moral training bless divine providence confer upon elevate sanctifying influence hop consolation christian faith suggest last annual message propriety remodel indian system subsequent event satisfied necessity detail set forth report secretary evince urgent need immediate legislative action commend benevolent institution establish patronized government district generous foster care attention congress last session engage extent proposition enlarge water communication mississippi river northeastern seaboard proposition however fail time since upon call great respectability convention hold chicago upon subject summary whose view contain memorial address president congress honor lay interest one ere long force way entertain doubt submit entirely wisdom do augmented interest give subject actual commencement work upon pacific railroad auspex favorable rapid progress completion enlarge navigation becomes palpable need great road transmit second annual report commissioner department agriculture ask attention development vital interest nation congress assemble year ago war already last nearly twenty month many conflict land sea vary result rebellion press back reduce limit yet tone public feeling opinion home abroad satisfactory sign popular election past indicated uneasiness among amid much cold menace kind word come europe uttered accent pity blind surrender hopeless commerce suffer greatly arm vessel build upon furnished foreign shore threaten addition quarter would sweep trade sea raise blockade fail elicit european government anything hopeful upon subject preliminary emancipation proclamation issue september running assigned period begin new year month later final proclamation come include announcement color men suitable condition would receive war service policy emancipation employ black soldier give future new aspect hope fear doubt contend uncertain conflict accord political system matter civil administration general government lawful power effect emancipation state long time hop rebellion could suppress without resort military measure deem possible necessity might come crisis contest would present come anticipated follow dark doubtful day eleven month pass permitted take another review rebel border press still far back complete opening mississippi country dominate rebellion divide distinct part practical communication tennessee arkansas substantially clear insurgent control influential citizen owner slave advocate slavery begin rebellion declare openly emancipation respective state state include emancipation proclamation maryland missouri neither three year ago would tolerate restraint upon extension slavery new territory dispute best mode remove within limit slave begin rebellion full united state military service number actually bear arm rank thus give double advantage take much labor insurgent supply place otherwise must fill many white men far test difficult say good soldier servile insurrection tendency violence cruelty mark measure emancipation arm black measure much discuss foreign country contemporary discussion tone public sentiment much improve home measure fully discuss support criticise denounced annual election follow highly encourage whose official duty bear country great trial thus new reckon crisis threaten divide friend union past look present future reference resumption national authority within state wherein authority suspend thought fit issue proclamation copy herewith transmit examination proclamation appear believe nothing attempt beyond amply justified constitution true form oath give man coerce take man promise pardon case voluntarily take oath constitution authorize executive grant withhold pardon absolute discretion include power grant term fully establish judicial authority also proffer state name state government shall mode prescribe set government shall recognize guaranteed united state state shall constitutional condition protect invasion domestic violence constitutional obligation united state guarantee every state union republican form government protect state case state explicit full tender benefit provision state government set particular way section constitution contemplate case wherein element within state favorable republican government union may feeble opposite hostile element external even within state precisely case deal attempt guarantee protect revive state government construct whole preponderate part element whose hostility violence protect simply absurd must test separate oppose element build sound test sufficiently liberal one accept sound whoever make sworn recantation former unsoundness proper require test admission political body oath allegiance constitution united state union also law proclamation regard slavery law proclamation enact put forth purpose aid suppression rebellion give full effect pledge maintenance judgment aid aid intend abandon would relinquish lever power would also cruel astound breach faith may add point remain present position shall attempt retract modify emancipation proclamation shall return slavery person free term proclamation act congress reason think best support measure shall include oath believe executive may lawfully claim return pardon restoration forfeit right clear constitutional power withhold altogether grant upon term shall deem wise public interest observe also part oath subject modify abrogate power legislation supreme judicial decision propose acquiescence national executive reasonable temporary state arrangement freed people make view possibly modify confusion destitution must best attend class total revolution labor throughout whole state hop already deeply afflicted people state may somewhat ready give affliction extent vital matter leave power national executive prevent abuse abridge proposition suggestion proclamation maintain political framework state call reconstruction make hope may good without danger harm save labor avoid great confusion proclamation upon subject question beset conflict view step might delay long take soon states element resumption seem ready action remain inactive apparently want rally point plan action shall adopt plan b rather b b agree know general government reject plan proclamation plan present may accept rally point assure advance reject may bring act sooner otherwise would objections premature presentation plan national executive consist danger committal point could safely leave development care take shape document avoid embarrassment source say certain term certain class pardon right restore say class term never include say reconstruction accept present specified way say never accept way movement state action emancipation several state include emancipation proclamation matter profound gratulation repeat detail heretofore earnestly urge upon subject general view feeling remain unchanged trust congress omit fair opportunity aid important step great consummation midst care however important must lose sight fact war power still main reliance power alone look yet time give confidence people contest region insurgent power overrun confidence shall establish little do anywhere call reconstruction hence chief care must still direct army navy thus far borne hard part nobly well may esteem fortunate give great efficiency indispensable arm also honorably recognize gallant men commander sentinel compose others world must stand indebted home freedom disenthralled regenerate enlarged perpetuate