UNITED STATES, _November 22, 1797_.
_Gentlemen of the Senate and Gentlemen of the House of Representatives_:
I was for some time apprehensive that it would be necessary, on account
of the contagious sickness which afflicted the city of Philadelphia,
to convene the National Legislature at some other place. This measure
it was desirable to avoid, because it would occasion much public
inconvenience and a considerable public expense and add to the
calamities of the inhabitants of this city, whose sufferings must have
excited the sympathy of all their fellow-citizens. Therefore, after
taking measures to ascertain the state and decline of the sickness, I
postponed my determination, having hopes, now happily realized, that,
without hazard to the lives or health of the members, Congress might
assemble at this place, where it was next by law to meet. I submit,
however, to your consideration whether a power to postpone the meeting
of Congress, without passing the time fixed by the Constitution upon
such occasions, would not be a useful amendment to the law of 1794.
Although I can not yet congratulate you on the reestablishment of peace
in Europe and the restoration of security to the persons and properties
of our citizens from injustice and violence at sea, we have,
nevertheless, abundant cause of gratitude to the source of benevolence
and influence for interior tranquillity and personal security, for
propitious seasons, prosperous agriculture, productive fisheries, and
general improvements, and, above all, for a rational spirit of civil and
religious liberty and a calm but steady determination to support our
sovereignty, as well as our moral and our religious principles, against
all open and secret attacks.
Our envoys extraordinary to the French Republic embarked---one in July,
the other early in August--to join their colleague in Holland. I have
received intelligence of the arrival of both of them in Holland, from
whence they all proceeded on their journeys to Paris within a few days
of the 19th of September. Whatever may be the result of this mission,
I trust that nothing will have been omitted on my part to conduct the
negotiation to a successful conclusion, on such equitable terms as may
be compatible with the safety, honor, and interest of the United States.
Nothing, in the meantime, will contribute so much to the preservation of
peace and the attainment of justice as a manifestation of that energy
and unanimity of which on many former occasions the people of the United
States have given such memorable proofs, and the exertion of those
resources for national defense which a beneficent Providence has kindly
placed within their power.
It may be confidently asserted that nothing has occurred since the
adjournment of Congress which renders inexpedient those precautionary
measures recommended by me to the consideration of the two Houses at the
opening of your late extraordinary session. If that system was then
prudent, it is more so now, as increasing depredations strengthen the
reasons for its adoption.
Indeed, whatever may be the issue of the negotiation with France, and
whether the war in Europe is or is not to continue, I hold it most
certain that permanent tranquillity and order will not soon be obtained.
The state of society has so long been disturbed, the sense of moral and
religious obligations so much weakened, public faith and national honor
have been so impaired, respect to treaties has been so diminished, and
the law of nations has lost so much of its force, while pride, ambition,
avarice, and violence have been so long unrestrained, there remains no
reasonable ground on which to raise an expectation that a commerce
without protection or defense will not be plundered.
The commerce of the United States is essential, if not to their
existence, at least to their comfort, their growth, prosperity, and
happiness. The genius, character, and habits of the people are highly
commercial. Their cities have been formed and exist upon commerce. Our
agriculture, fisheries, arts, and manufactures are connected with and
depend upon it. In short, commerce has made this country what it is, and
it can not be destroyed or neglected without involving the people in
poverty and distress. Great numbers are directly and solely supported by
navigation. The faith of society is pledged for the preservation of the
rights of commercial and seafaring no less than of the other citizens.
Under this view of our affairs, I should hold myself guilty of a neglect
of duty if I forbore to recommend that we should make every exertion to
protect our commerce and to place our country in a suitable posture of
defense as the only sure means of preserving both.
I have entertained an expectation that it would have been in my power
at the opening of this session to have communicated to you the agreeable
information of the due execution of our treaty with His Catholic Majesty
respecting the withdrawing of his troops from our territory and the
demarcation of the line of limits, but by the latest authentic
intelligence Spanish garrisons were still continued within our country,
and the running of the boundary line had not been commenced. These
circumstances are the more to be regretted as they can not fail to
affect the Indians in a manner injurious to the United States. Still,
however, indulging the hope that the answers which have been given will
remove the objections offered by the Spanish officers to the immediate
execution of the treaty, I have judged it proper that we should continue
in readiness to receive the posts and to run the line of limits. Further
information on this subject will be communicated in the course of the
session.
In connection with this unpleasant state of things on our western
frontier it is proper for me to mention the attempts of foreign agents
to alienate the affections of the Indian nations and to excite them to
actual hostilities against the United States. Great activity has been
exerted by those persons who have insinuated themselves among the Indian
tribes residing within the territory of the United States to influence
them to transfer their affections and force to a foreign nation, to
form them into a confederacy, and prepare them for war against the
United States. Although measures have been taken to counteract these
infractions of our rights, to prevent Indian hostilities, and to
preserve entire their attachment to the United States, it is my duty to
observe that to give a better effect to these measures and to obviate
the consequences of a repetition of such practices a law providing
adequate punishment for such offenses may be necessary.
The commissioners appointed under the fifth article of the treaty of
amity, commerce, and navigation between the United States and Great
Britain to ascertain the river which was truly intended under the
name of the river St. Croix mentioned in the treaty of peace, met at
Passamaquoddy Bay in October, 1796, and viewed the mouths of the rivers
in question and the adjacent shores and islands, and, being of opinion
that actual surveys of both rivers to their sources were necessary,
gave to the agents of the two nations instructions for that purpose,
and adjourned to meet at Boston in August. They met, but the surveys
requiring more time than had been supposed, and not being then
completed, the commissioners again adjourned, to meet at Providence,
in the State of Rhode Island, in June next, when we may expect a final
examination and decision.
The commissioners appointed in pursuance of the sixth article of the
treaty met at Philadelphia in May last to examine the claims of British
subjects for debts contracted before the peace and still remaining due
to them from citizens or inhabitants of the United States. Various
causes have hitherto prevented any determinations, but the business is
now resumed, and doubtless will be prosecuted without interruption.
Several decisions on the claims of citizens of the United States for
losses and damages sustained by reason of irregular and illegal captures
or condemnations of their vessels or other property have been made by
the commissioners in London comformably to the seventh article of the
treaty. The sums awarded by the commissioners have been paid by the
British Government. A considerable number of other claims, where costs
and damages, and not captured property, were the only objects in
question, have been decided by arbitration, and the sums awarded to the
citizens of the United States have also been paid.
The commissioners appointed agreeably to the twenty-first article of our
treaty with Spain met at Philadelphia in the summer past to examine and
decide on the claims of our citizens for losses they have sustained
in consequence of their vessels and cargoes having been taken by the
subjects of His Catholic Majesty during the late war between Spain and
France. Their sittings have been interrupted, but are now resumed.
The United States being obligated to make compensation for the losses
and damages sustained by British subjects, upon the award of the
commissioners acting under the sixth article of the treaty with Great
Britain, and for the losses and damages sustained by British subjects by
reason of the capture of their vessels and merchandise taken within the
limits and jurisdiction of the United States and brought into their
ports, or taken by vessels originally armed in ports of the United
States, upon the awards of the commissioners acting under the seventh
article of the same treaty, it is necessary that provision be made for
fulfilling these obligations.
The numerous captures of American vessels by the cruisers of the French
Republic and of some by those of Spain have occasioned considerable
expenses in making and supporting the claims of our citizens before
their tribunals. The sums required for this purpose have in divers
instances been disbursed by the consuls of the United States. By means
of the same captures great numbers of our seamen have been thrown ashore
in foreign countries, destitute of all means of subsistence, and the
sick in particular have been exposed to grievous sufferings. The consuls
have in these cases also advanced moneys for their relief. For these
advances they reasonably expect reimbursements from the United States.
The consular act relative to seamen requires revision and amendment. The
provisions for their support in foreign countries and for their return
are found to be inadequate and ineffectual. Another provision seems
necessary to be added to the consular act. Some foreign vessels have
been discovered sailing under the flag of the United States and with
forged papers. It seldom happens that the consuls can detect this
deception, because they have no authority to demand an inspection of
the registers and sea letters.
_Gentlemen of the House of Representatives_:
It is my duty to recommend to your serious consideration those objects
which by the Constitution are placed particularly within your
sphere--the national debts and taxes.
Since the decay of the feudal system, by which the public defense was
provided for chiefly at the expense of individuals, the system of loans
has been introduced, and as no nation can raise within the year by taxes
sufficient sums for its defense and military operations in time of war,
the sums loaned and debts contracted have necessarily become the
subjects of what have been called funding systems. The consequences
arising from the continual accumulation of public debts in other
countries ought to admonish us to be careful to prevent their growth in
our own. The national defense must be provided for as well as the
support of Government; but both should be accomplished as much as
possible by immediate taxes, and as little as possible by loans.
The estimates for the service of the ensuing year will by my direction
be laid before you.
_Gentlemen of the Senate and Gentlemen of the House of Representatives_:
We are met together at a most interesting period. The situations of the
principal powers of Europe are singular and portentous. Connected with
some by treaties and with all by commerce, no important event there can
be indifferent to us. Such circumstances call with peculiar importunity
not less for a disposition to unite in all those measures on which the
honor, safety, and prosperity of our country depend than for all the
exertions of wisdom and firmness.
In all such measures you may rely on my zealous and hearty concurrence.