into the state of the public debts, the public expenditures, and the
public revenue; to digest and report plans for improving and
regulating the finances, and for establishing order and economy in the
expenditure of the public money; to direct the execution of all plans,
which shall be adopted by Congress respecting revenue and expenditure;
to superintend and control the settlement of all public accounts; to
direct and control all persons employed in procuring supplies for the
public service, and in the expenditure of public money; to obtain
accounts of all the issues of the specific supplies furnished by the
several States; to compel the payment of all moneys due to the United
States, and in his official character, or in such manner as the laws
of the respective States shall direct, to prosecute in behalf of the
United States, for all delinquencies respecting the public revenue and
expenditures; to report to Congress the officers who shall be
necessary for assisting him in the various branches of his Department.
_In Congress, February 20th._ Congress proceeded to the election of a
Superintendent of Finance; and the ballots being taken, Robert Morris
was unanimously elected.
* * * * *
TO THE PRESIDENT OF CONGRESS.
Philadelphia, March 13th, 1781.
Sir,
I had the honor to receive your Excellency's letter of the 21st of
last month, enclosing the Act of Congress of the 20th, whereby I am
appointed, by a unanimous election of that honorable body, to the
important office of SUPERINTENDENT OF FINANCE. Perfectly sensible of
the honor done me by this strong mark of confidence from the sovereign
authority of the United States, I feel myself bound to make the
acknowledgments due, by pursuing a conduct formed to answer the
expectations of Congress, and promote the public welfare. Were my
abilities equal to my desire of serving America, I should have given
an immediate determination after this appointment was made; but
conscious of my own deficiencies, time for consideration was
absolutely necessary. Little, however of that time, which has elapsed
have I been able to devote to this object, as the business before the
Legislature of Pennsylvania wherein I have the honor of a seat, has
demanded and continues to demand my constant attendance.
So far as the station of Superintendent of Finance, or indeed any
other public station or office, applies to myself I should without the
least hesitation have declined an acceptance; for after upwards of
twenty years assiduous application to business as a merchant, I find
myself at that period when my mind, body, and inclination combine to
seek for relaxation and ease. Providence had so far smiled on my
endeavors as to enable me to prepare for the indulgence of these
feelings, in such a manner as would be least injurious to the interest
of my family. If, therefore, I accept this appointment, a sacrifice of
that case, of much social and domestic enjoyment, and of every
material interest, must be the inevitable consequence; and as my
ambition was entirely gratified by my present situation and character
in life, no motive of that kind can stimulate me to the acceptance.
Putting myself out of the question, the sole motive is the public
good; and this motive I confess comes home to my feelings. The contest
we are engaged in appeared to me, in the first instance, just and
necessary; therefore, I took an active part in it. As it became
_dangerous_, I thought it the more _glorious_, and was stimulated to
the greatest exertions in my power, when the affairs of America were
at the worst. Sensible of the want of arrangement in our monied
affairs, the same considerations impel me to this undertaking, which I
would embark in without hesitation, could I believe myself equal
thereto; but fearing this may not be the case, it becomes
indispensably necessary to make such stipulations, as may give ease to
my feelings, aid my exertions, and tend to procure ample support to my
conduct in office, so long as it is founded in and guided by a regard
to the public prosperity.
In the first place then, I am to inform Congress, that the preparatory
steps I had taken to procure to myself relaxation from business, with
least injury to the interests of my family, were by engaging in
certain commercial establishments with persons, in whom I had perfect
confidence as to their integrity, honor, and abilities. These
establishments I am bound in honor and by contracts to support to the
extent agreed on. If, therefore, it be in the idea of Congress, that
the office of Superintendent of Finance is incompatible with
commercial concerns and connexions, the point is settled; for I cannot
on any consideration consent to violate engagements or depart from
those principles of honor, which it is my pride to be governed by. If,
on the contrary, Congress have elected me to this office under the
expectation, that my mercantile connexions and engagements were to
continue, an express declaration of their sentiments should appear on
the minutes, that no doubt may arise or reflections be cast on this
score hereafter.
I also think it indispensably necessary, that the appointment of all
persons who are to act in my office, under the same roof, or in
immediate connexion with, should be made by myself; Congress first
agreeing, that such secretaries, clerks, or officers, so to be
appointed are necessary, and fixing the salaries for each. I conceive,
that it will be impossible to execute the duties of this office with
effect, unless the absolute power of dismissing from office or
employment all persons whatever, that are concerned in the official
expenditure of public moneys, be committed to the Superintendent of
Finance. For unless this power can be exercised without control, I
have little hopes of efficacy in the business of reformation, which is
probably the most essential part of the duty.
These being the only positive stipulations that occur to me at this
time, the determination of Congress thereon will enable me to
determine whether to accept or decline the appointment. I must,
however, observe that the act of Congress of the 7th of February,
describing the duties of the Superintendent of Finance, requires the
execution of many things, for which adequate powers are not provided,
and it cannot be expected, that your officer can in such case be
responsible. These however may be the subjects of future discussions.
With sentiments of the highest respect, for you and Congress, I have
the honor to subscribe myself, your Excellency's most obedient and
most humble servant.
ROBERT MORRIS.[30]
FOOTNOTES:
[30] During the whole period in which Mr Morris held the office of
Superintendent of Finance, he kept a _Diary_, in which he entered
daily the principal transactions of his department. The following is
an extract from the Diary.
"On the 21st of February I received a letter from the President of
Congress, enclosing the resolves of the 20th, whereby I was
unanimously elected the Superintendent of Finance of the United
States. This appointment was unsought, unsolicited, and dangerous to
accept, as it was evidently contrary to my private interest, and if
accepted must deprive me of those enjoyments, social and domestic,
which my time of life required, and to which my circumstances entitled
me; and a vigorous execution of the duties must inevitably expose me
to the resentment of disappointed and designing men, and to the
calumny and detraction of the envious and malicious. I was therefore
determined not to engage in so arduous an undertaking. But the
solicitations of my friends, acquaintance, and fellow citizens, a full
conviction of the necessity, that some person should commence the work
of reformation in our public affairs, by an attempt to introduce
system and economy, and the persuasion, that a refusal on my part,
would probably deter others from attempting this work, so absolutely
necessary to the safety of our country; these considerations, after
much reflection and consultation with friends, induced me to write a
letter to the President of Congress, dated the 13th of March, 1781."
* * * * *
PROCEEDINGS IN CONGRESS.
_March 20th._ A letter of the 13th instant from Robert Morris was
taken into consideration, and it was
_Resolved_, that the United States in Congress assembled do not
require him to dissolve the commercial connexions referred to in the
said letter.
_March 21st._ The consideration of the letter of the 13th instant,
from Robert Morris being resumed, a motion was made, and it was
_Resolved_, that the Superintendent of Finance be, and he is hereby
empowered to appoint and remove at his pleasure, his assistants in his
peculiar office or chamber of business in immediate connexion with
him; it being first determined by the United States in Congress
assembled, that such assistants so to be appointed are necessary, and
what the salary of each shall be.
_Ordered_, that the remainder of Mr Morris's letter be referred to a
committee of three. The members appointed were Messrs Houston, Burke,
and Wolcott.
* * * * *
TO THOMAS BURKE, WILLIAM HOUSTON, AND OLIVER WOLCOTT, COMMITTEE OF
CONGRESS.
Date Uncertain.
Gentlemen,
When I had the honor of a visit from you on the subject of my
interview with Congress, it was agreed that I should make out and
deliver you a list of the several officers concerned in the
expenditure of public money, over whom I judged it necessary for the
Superintendent of Finance to have the uncontrolled power of
dismission. But on reflection I found it was not in my power to render
such a list, because I do not know the several degrees of officers now
in employment, and even if I did, such a list would not answer the
end, because others may hereafter be created, who should also be
subjected to the power of the Financier, and it would be very
troublesome for Congress on every such appointment to pass a
resolution for the purpose. There will also be appointments made
occasionally by the Commander in Chief, the Heads of Department, and
by other officers, in which the expenditure of public moneys will be
involved, and of course such appointments must also be subject to the
same authority. For these reasons, it seems proper that the power of
the Minister of Finance, with respect to the control and dismission
from office of all persons concerned in the expenditure of public
property, should be defined in one Act of Congress, vesting him with
that authority.
To me it appears absolutely necessary, that this power should be
vested in the Financier to enable him to remedy and prevent public
abuses; and the _extent_ should be measured by the _necessity_ and the
_use_. As to myself, I am far from desiring power for the sake of
power. Indeed I think it is generally more dangerous to the possessor
than to the objects of it. Consequently I cannot have a wish to extend
it beyond the necessity and utility mentioned.
The whole business of finance may be described in two short but
comprehensive sentences, if I have proper notions on the subject. _It
is to raise the public revenues, by such modes as may be most easy and
most equal to the people; and to expend them in the most frugal, fair,
and honest manner._ In our case the first part must ever be the
business of Congress, and the Legislatures of the respective States;
because the powers of taxation cannot be delegated. The second I take
to be the most essential part of the duty of the Superintendent of
Finance. He must ever have it in view to reduce the expenditures as
nearly as possible to what in justice and in reason they ought to be;
and to do this, he must be vested with power to dismiss from
employment those officers he shall find unnecessary, unequal to their
stations, inattentive to their duty, or dishonest in the exercise of
it.
In a monarchy this power need not be officially vested in a Minister,
because he can have constant intercourse with the Sovereign, and by
that means he is in the daily exercise of it. Where the sovereignty is
vested in a public body of men, such an intercourse is impracticable;
and I am persuaded that a Minister who would venture to execute the
duties of his office with vigor, without possessing uncontrolled the
power of dismission, would in a few months put it out of his power to
proceed in his business, and Congress would have full employment to
hear and determine between him and suspended officers. On the
contrary, if a dismissed officer can have no appeal but to the laws of
the land, Congress will not be troubled, business may be conducted
with decision, and the very knowledge that such a power exists, will
have a tendency to prevent the frequent exercise of it, after the
first reforms are effected.
I have been told, that some gentlemen considered the expressions in my
letter to Congress on this subject so general as that they might be
construed to comprehend the Commander in Chief, Heads of Department,
&c. But this cannot be. The Commander in Chief is not concerned
himself, but employs others in the expenditure of public money, to
whom he grants warrants or drafts on the military chest; and the
persons so employed ought to be accountable, and subject to
dismission. I suppose officers of the army may frequently be so
employed, and in that case it cannot be supposed, that the power of
the Financier extends to the military commission, for it certainly
must be confined to the money matters. There is one exception with
respect to what I have said of the Commander in Chief, and that is the
expenditures for secret service, and in this respect I think he should
be responsible to the Sovereign only.
The Quarter Master General, having a military as well as a civil duty,
he cannot be under the control of the Financier, for the first,
although he certainly ought to be the last, which has great connexion
with heavy expense, and perhaps it would be best, that he should
execute all the business of expenditures by one or more deputies,
which would exonerate him from that power, which they must be
subjected to. The Commissary General, and every person employed under
him, are the immediate objects of this power. The Paymaster General,
may be considered as a channel of conveyance, through which money
passes from the treasury to the army, and as he is subjected to the
law military, the Minister of Finance needs no other authority over
him and his officers, than the power of putting under arrest and
suspending for mal-conduct in office.
All persons employed as Commissaries of military stores, of clothing,
or any other denomination, wherein the expenditure of public money or
property is connected, ought to be subjected to this authority. The
expenses in the medical department are said to have exceeded those of
the like kind in any other country. It is, therefore, evident that the
Purveyors, Commissaries, &c. in this department should be subject to
the same immediate control as others; and although the Financier
cannot judge of the medical skill of the Director General and his
officers, yet if any waste or misapplication of public property in
their department should come to his knowledge, he should have
authority to bring offenders to a Court Martial.
There is no possibility of introducing public economy without the
frequent adjustment of accounts; and the more various these may be,
the greater is the necessity of constant attention to liquidate them
speedily and well. The Financier ought, therefore, to have the power
of removing any of the officers, whose business it is to examine and
settle the public accounts, that so he may be enabled to obtain a
proper and early settlement, and prevent the dangerous effects of
inattention or corruption on one hand, or of delay, insolence, and
tyranny to individuals concerned in such accounts, on the other. And
on account of this power the Financier should have no accounts with
the public himself, but wherever expenditures are necessary in his
department, he should employ proper persons therein, subject to the
same powers and modes of accounting with every other person employed
in expending public property; or if of necessity he shall at any time
have accounts with the public, Congress can appoint a committee, or
special board, to examine and settle his accounts.
From what I have already said, I think it is evident, that the power I
have stipulated for is absolutely necessary; and although it is not
possible to enumerate every object of that power, yet the general
lines within which they may be comprehended can be drawn from the
observations I have made, although I have said our foreign
departments, as these may be brought into consideration hereafter when
it shall appear necessary.
Whoever contemplates the extent of the United States, and the vast
amount of their present expenses, while at the same time all our
operations languish, must certainly be convinced that some immediate
remedy ought to be applied. The office of Superintendent of Finance I
suppose is meant as one means of restoring economy and vigor; and
nothing will keep up in the minds of the public servants such a
constant sense of their duty, as a knowledge of the power to remove
them in the hands of a person of vigilant and decisive character.
Whether I shall have sufficient courage and perseverance to act up to
that character, and whether my small abilities, supported by
application and attention, will enable me to render essential service
in the execution of this office, is become an object of great
consideration, that fills my mind with much apprehension, and induces
me to wish I had declined this arduous undertaking in the first
instance.
I have the honor to be, &c.
ROBERT MORRIS.
* * * * *
PROCEEDINGS IN CONGRESS.
_April 21st._ On a report of the committee, to whom was referred Mr
Morris's letter of the 13th of March,
_Resolved_, That the Superintendent of Finance be, and he is hereby
authorised, to remove from office or employment, for incapacity,
negligence, dishonesty or other misbehavior, such persons, not
immediately appointed by the United States in Congress assembled, as
are or may be officially intrusted with, and immediately employed in
the expenditure of the public supplies, stores, and other property; in
stating, examining and passing the public accounts, or in the receipt
of the continental revenues of the United States, and such of the said
persons as are or may be in his judgment unnecessary, reporting to
such authority, board, minister, or office, to whom it may belong to
supply the vacancy, the respective names of the persons so removed.
That he be authorised to suspend from office or employment, for
similar causes, persons officially employed and intrusted as
aforesaid, immediately appointed by the United States in Congress
assembled, reporting forthwith their names and the reason of
suspension.
Provided, that in all cases where any of the persons aforesaid, are or
may be amenable to the law martial, the Superintendent be, and he is
hereby authorised and directed, if he shall deem it most expedient for
the public service, to put them in arrest by order in writing, and to
apply to the officer whose duty it may be, to order a court martial;
and such officer is hereby directed to order proceedings on the arrest
accordingly.
That in every case of suspension, all pay and emoluments cease from
the date thereof, unless the persons suspended be, upon trial,
acquitted and restored; and the Superintendent shall have power to
supply the place when it may be necessary, by a temporary appointment,
to continue until the person suspended be restored or dismissed.
That the aforesaid powers shall not be construed to interfere with the
rank, commission, or military duty of any officer in the line of the
army, or those who may be duly intrusted with money for secret
services by Congress, or the Commander in Chief of the army, or
commanding officer of a separate department.
That the powers aforesaid be exercised during the pleasure of
Congress, but not to extend beyond the duration of the war.
_April 27th._ On a further report of the committee on Mr Morris's
letter of the 13th ultimo,
_Resolved_, that in order that the Superintendent of Finance may be at
liberty to devote his time and attention to the more immediate duties
of his office, he be, and hereby is authorised, to appoint by letter
of attorney, or otherwise, such person or persons, as he may think
proper, to prosecute or defend for him, in his official capacity, or
in behalf of the United States, in all places where the same may be
necessary.
* * * * *
TO THE PRESIDENT OF CONGRESS.
Philadelphia, May 14th, 1781.
Sir,
The honor conferred by Congress in appointing me Superintendent of
Finance, their several resolutions of the 20th of March, and the 21st
and 27th of April, which your Excellency has been pleased to transmit,
and a serious conviction of that duty, which every citizen owes to his
country, especially in times of public calamity, will no longer permit
me to hesitate about the acceptance of that office, although I must
again repeat, that I have the fullest sense of my own inability. I
shall, however, strive to find such assistance as will enable me, in
some measure, to answer the reasonable expectations of Congress, to
whom I can promise for myself nothing more than honest industry.
You will readily perceive, that much time must be consumed in
procuring proper officers; fixing on men for assistants, whose
abilities and integrity may be depended on; in laying plans for
obtaining money with the greatest ease to the people, and expending it
with the greatest advantage to the public; forming arrangements
necessary to carry these plans into execution; and obtaining
information as to the present state of things, in order that abuses
may be, if possible, speedily and effectually remedied.
Besides this, it will be necessary that I should confer with the
Commander in Chief, on the various expenditures of the war, and the
means of retrenching such as are unnecessary. Let me add, that the
accounts of my private business must be adjusted, so as that all my
affairs may be put into the hands of other persons, and subjected to
their management. My necessary commercial connexions, notwithstanding
the decided sense of Congress, expressed in their resolution of the
20th of March, might, if the business were transacted by myself, give
rise to illiberal reflections, equally painful to me and injurious to
the public. This reason alone would deserve great attention; but,
further, I expect that my whole time, study, and attention will be
necessarily devoted to the various business of my department.
Having thus stated some of the causes, which will prevent me from
immediately entering on the arduous task assigned me, I pray leave to
call the attention of Congress to the advanced season, and then I am
persuaded their own good sense will render it unnecessary for me to
observe, that very little can be expected from my exertions during the
present campaign; they will, therefore, easily perceive the propriety
of the request I am to make, that the business may go on according to
the present arrangements, or such other as Congress may devise, until
I can take it up, which I promise to do as speedily as possible. By
this means, I may be enabled so to dispose of the several members of
my department, as to form them into a regular system; whereas, by
throwing the whole immediately upon me, I shall be inevitably involved
in a labyrinth of confusion, from which no human efforts can ever
afterwards extricate me.