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constructed. It is not to be denied that the proper boundary between the magnitude and nature of the works necessary to attain the objects indicated, and those required to resist successfully a formal investment, will sometimes become a matter of doubt; nor that circumstances may not be stated which might induce an enemy to open his trenches against one of these works, because its capacity for defence was not greater. That capacity, however, with relation to the question under consideration, has a far more intimate connexion with the magnitude than with the form of the works, because, if unnecessarily large, they entail upon the country a serious evil in the increased means for their defence, independently of the additional expense in their construction. It is principally, therefore, in the latter point of view that I have presented the doubts which I have expressed upon this point.

Among the hypothetical cases heretofore stated by the board of engineers was one which supposed that an army of twenty thousand men might be assembled upon one of the flanks of our coast, and that we ought to be prepared, at every important point, to resist the first shock of such a force. I have already glanced at the reasons, geographical, political, financial, and prudential, which, in my opinion, leave little room to expect that any enemy will, hereafter, project an enterprise of this magnitude, so certain in its expense, so uncertain in its result, and so disproportioned to any object which could probably be attained. And the suggestion which was made by the board, of defending the city of Washington by works erected near the mouth of the Patuxent, proceeds upon similar views. Our navy, our floating batteries, our means of communication and concentration, seem to me far better adapted to the defence of this city than forts at the distance of nearly fifty miles, whose principal effect, if an enemy were resolved upon the enterprise, would be to compel him to make a detour in his expedition, or which would send him to some part of the coast of the bay between Patuxent and Annapolis, or into the Potomac, where his descent would be uninterrupted, and where he would be but little, if any, further from Washington than at the head of navigation of the Patuxent.

Even during the last war, when the navy of Great Britain rode triumphant upon the ocean, but one serious attempt was made to force an entrance into a fortified harbor, and that was unsuccessful. The greatest possible force which can be brought, and the greatest possible resistance which can be applied, do not constitute a practical rule for the construction of our fixed defences. Moral considerations must also have weight. Probabilities must be examined. The power of the permanent batteries is one of the elements of security. So are the dangers of dispersion and shipwreck, and all the hazards of a distant expedition, as these must operate on the councils of any country meditating such an enterprise, the efforts of our navy, the co-operation of the floating defences, and the troops which may be ready to meet the enemy upon his debarkation or

march.

In submitting these reflections, I am desirous only of discharging the duty I am gratified that the whole subject will be presented for the consideration of Congress in a systematic form, and that the principles of its future prosecution can now be settled. The plan originally devised was recommended upon great consideration, and, at the time its initiatory measures were adopted, was calculated for the state of the country. We had just come out of a severe struggle, and had felt the want of adequate preparation, and, above all, we had seen and deplored the circumstances which gave the enemy undisturbed possession of the Chesapeake, and its disastrous consequences. And it was to be expected that our arrangements for future defence should be planned upon the then existing state of things. I imagine there were few who did not concur in this sentiment. Because, therefore, some of our works, from the wonderful advancement of the country in all the element: of power, and from the development of new means of annoyance, are larger than are found necessary at this

time, still this does not bring into question the wisdom of the original measure. And, as it is, they are most valuable and useful; but the experience we have acquired may be profitably employed in re-examining the plans proposed for the prosecution of the system, and in inquiring whether the change which has taken place in the condition of the country will not justify a corresponding change in the nature of our preparations, and whether we may not depend more upon floating, and less upon stationary defences.

During the period which has intervened since the last war, we have nearly doubled in our population, and all our other resources have probably increased in a still greater ratio. Certainly, some of the facilities and means of defence are augmented beyond any rational expectations. The power of transporting troops and munitions of war has already opened new views upon this subject, and such is the progress and probable extent of the new system of intercommunication that the time will soon come when almost any amount of physical force may be thrown upon any point threatened by an enemy. Nashville may succor New Orleans in sixty hours; Cincinnati may aid Charleston in about the same time; Pittsburg will require but twenty-four hours to relieve Baltimore, and troops from that city and from Boston may leave each place in the morning, and meet in New York in the evening. This wonderful capacity for movement increases, in effect, some of the most important elements of national power It neutralizes one of the great advantages of an assailing force, choosing its point of attack, and possessing the necessary means of reaching it. Detachments liable, under former circumstances, to be cut off in detail, may now be concentrated without delay, and most of the garrisons upon the seaboard may be brought together, and, after accomplishing the object of their concentration, be returned to their stations in time to repel any attack meditated against them. The improvements which are making in the application of steam have furnished another most important agent in the work of national protection. There can be but little doubt that floating batteries, propelled by this agent, will be among the most efficient means of coast defence. In our large estuaries, such as the bays of New York, of the Delaware, and of the Chesapeake, they will be found indispensable; and one of the most important advantages to be anticipated from the works at Old Point Comfort is the security they will afford to the floating batteries co-operating with them, and which will find a secure shelter in Hampton roads. A hostile fleet about to enter the Chesapeake would cer tainly calculate the means of annoyance to which it would be exposed by these formidable vessels. During a calm they would take a distant position, insuring their own safety, while, with their heavy guns, they might cripple and destroy the enemy; and their power of motion would enable them, under almost all circumstances, to approach the fleet, and to retire, when necesary, where they could not be pursued. I think it doubtful whether a squadron would anchor in the Chesapeake, or proceed up it, if a competent number of these batteries were maintained and placed in proper positions.

These considerations may well lead us to doubt the necessity of such extensive permanent works, while their non-existence at the time the system was adopted, justifies the views which then prevailed; and without advancing any rash conjecture, we may anticipate such improvements in this branch of the public ser vice as will make it the most efficient means of coast defence. These vessels, properly constructed, may become floating forts almost equal to permanent fortifications in their power of annoyance and defence, and in other advantages far superior to them. Being transferable defences, they can be united upon any point, and a few of them be thus enabled to protect various places. We have been brought by circumstances to a more rigid investigation of our means of defence, and to a re-examination of the whole subject. After an interval of twenty years of tranquillity, public sentiment and the attention of the government were, by unexpected circumstances, more forcibly directed to this

matter. The result cannot fail to be advantageous. The whole subject can be now re-examined by Congress, with all the benefits which much experience has brought, and with the advantage of adapting a system to the advanced state of the country.

There are two bills for fortifications now pending before Congress. One before the House, amounting to $2,180,000, and intended to prosecute works actually already commenced. The estimates for this bill may therefore be considered necessary in themselves, under any view of the general subject, and not unreasonable in amount for the present year, because they include the operations of two years. The incidental expenses, however, may be safely reduced one-half, as it will not be necessary to make such extensive repairs as were considered requisite when the estimates were prepared.

The bill pending before the Senate contains appropriations for nineteen new works, and for the sum of $600,000 to be expended for steam batteries. The estimates on which this bill was founded were prepared at a time when prudence required that arrangements should be made for a different state of things from that which now exists. An examination of the general system of defence was not then expedient; and the means of protecting the most exposed points, agreeably to information previously collected, were asked of Congress. It was no time then to stop, and instead of prosecuting established plans vigorously, to lose the period of action by surveys, examinations, and discussions. But the opportunity is now afforded, without danger to the public interest, of applying the principles suggested to the works under consideration.

It cannot be doubted but that fortifications at the following places enumerated in this bill will be necessary:

At Penobscot bay, for the protection of Bangor, &c.

At Kennebec river.

At Portland.

At Portsmouth.

At Salem.

At New Bedford.

At New London.

Upon Staten Island.
At Sollers's Flats.

A redoubt on Federal Point.

For the Barrancas.

For Fort St. Philip.

These proposed works all command the approach to places sufficiently important to justify their construction under any circumstances that will probably exist. I think, therefore, that the public interest would be promoted by the passage of the necessary appropriations for them. As soon as these are made, such of these positions as may appear to require it can be examined, and the form and extent of the works adapted to existing circumstances, if any change be desirable. The construction of those not needing examination can commence immediately, and that of the others as soon as the plans are determined upon. By this proceeding, therefore, a season may be saved in the operations. The other works contained in this bill are:

For Provincetown.-And this proposition may be safely submitted to another inquiry, as the practicability of excluding an enemy from any shelter in Massachusetts bay, a matter of deep interest, and as a work at Provincetown, are closely connected.

For Rhode Island, Narraganset bay. This work may await the result of the views that may be eventually taken on the subject of fortifying this bay. For a work at the Delaware outlet of the Chesapeake and Delaware canal.— This may be postponed without injury till next season; and in the meantime a

project for the floating defences of the Delaware considered, and perhaps the size of the proposed work reduced.

For a work at the Breakwater.—Until the effect of the deposits which are going on in this important artificial harbor are fully ascertained, I consider it injudicious to erect a permanent work for its defence. Another year will, perhaps, settle the question, and if the result is favorable, an adequate fortification should be constructed here without delay.

For a fort on the Patuxent river, and a fort at Cedar Point.-Both of these works are liable to some of the objections stated, and I think they had better be postponed for more mature consideration.

For fortifications at the mouth of the St. Mary's, Georgia.-This proposition may also be safely submitted to examination.

The estimate for steam batteries may be reduced to $100,000. That sum can be profitably employed.

If these appropriations are early made, most if not all of these works can be put in operation this season, and the money usefully applied, as fast as their progress will justify. And I think the measure would be expedient. But it is to be remembered that the power of the department to push them, during the present year, will depend on the reorganization of the corps of engineers. If that corps is not increased, it will be unnecessary to make the appropriations in the bill before the Senate, as the objects contained in the other bill will be sufficient to occupy the time of the present officers of the corps.

Should it be deemed proper to re-examine the subject of the proposed fortifications generally, I would then recommend that an appropriation of $30,000 be made to defray the expenses of a board, including surveyors, &c.

My reflections upon the whole subject lead to the following practical suggestions on the great subject of the measures for the defence of the country: 1. An augmentation of the navy, upon the principles before stated. 2. The adoption of an efficient plan for the organization of the militia. Having already, in two of the annual reports I have had the honor to make to you, expressed my sentiments upon this subject, I have nothing new to lay before you, either with relation to its general importance, or to the necessary practical details. I consider it one of the most momentous topics that can engage the attention of Congress; and the day that sees a plan of organization adopted, suited to the habits of our people and the nature of our institutions, and fitted to bring into action the physical strength of the country, with a competent knowledge of their duty, and just ideas of discipline and subordination, will see us the strongest nation, for the purposes of self-defence, on the face of the globe. Certainly such an object is worthy the attention of the legislature.

3. The cultivation of military science, that we may keep pace with the improvements which are made in Europe, and not be compelled to enter into a contest with an adversary whose superior knowledge would give him pre-eminent advantages. War is an advancing science. Many an original genius and many an acute intellect are at all times at work upon it; and the European communities have such a relation to one another that the profession of arms is peculiarly encouraged, and every effort made to place their military establishments, not at the highest numerical point, but in the best condition for efficient service, both with respect to its morale and materiel. It is not by the mere reading of professional authors that the necessary instruction in this branch of knowledge can be obtained; there must be study and practice; a union of principles and details, which can best be obtained by a course of education directed to this object. This, I think, is one of the greatest advantages of the Military Academy. It cannot have escaped the recollection of those who were upon the theatre of action at the commencement of the last war, that the first year was almost spent in a series of disasters, which, however, brought their advantages. We were comparatively ignorant of the state of military science, and we did not fully recover

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our true position till we had received many severe lessons: at what an expense of life and treasure need not be stated.

4. The skeleton of a regular establishment, to which any necessary additions may be made, securing, at the same time, economy, with a due power of expinsion, and the means of meeting a war with all the benefit of a regularly organized force. This object is attained by our present army.

5. The preparation and proper distribution of all the munitions of war, agreeably to the views hereinafter submitted.

6. I think all the defensive works now in the process of construction should be finished, agreeably to the plans upon which they have been projected.

7. All the harbors and inlets upon the coast, where there are cities or towns whose situation and importance create just apprehension of attack, and particularly where we have public naval establishments, should be defended by works proportioned to any exigency that may probably arise.

Having already presented my general views upon this branch of the inquiry, I need not repeat the practical limitations which I propose for adoption. But before any expenditure is incurred for new works, I think an examination should be made, in every case, in order to apply these principles to the proposed plan of operations, and thus reduce the expense of construction where this can properly be done, and, also, the eventual expense of maintaining garrisons required to defend works disproportioned to the objects sought to be attained. I would organize a board for this object, with special instructions for its government.

S. Provision should be made for the necessary experiments, to test the superiority of the various plans that may be offered for the construction and use of steam batteries; I mean batteries to be employed as accessories in the defence of the harbors and inlets, and in aid of the permanent fortifications.

The progressive improvement in the application of the power of steam renders it inexpedient, at any given time, to make extensive arrangements, connected with this class of works, with a view to their future employment. The improvement of to-day may be superseded by the experience of to-morrow; and modes of application may be discovered before any exigency arises rendering a resort to these defences necessary, which may introduce an entire revolution into this department of art and industry. Still, however, experiments should be made, and a small number of these vessels constructed. Their proper draught of water, their form and equipment, the situation and security of their machinery, the number, calibre, and management of their guns, and the best form of the engines to be used, are questions requiring much consideration, and which can only be determined by experience. And there can be little doubt that suitable rewards would soon put in operation the inventive faculties of some of our countrymen, and lead to the tender of plans practically suited to the circumstances. As we acquire confidence by our experience, arrangements could be made for collecting and preparing the indestructible materials for the construction and equipment of these vessels, as far as such a measure may not interfere with any probable change, which at the time may be anticipated in the application of the power of

steam.

9. I recommend a reconsideration of the project for fortifying the roadsteads or open anchorage grounds, and its better adaptation to the probable future circumstances of the country.

And I would suggest that the works which are determined on be pushed with all reasonable vigor, that our whole coast may be placed beyond the reach of injury or insult as soon as a just regard to circunstances will permit. No objections can arise to this procedure on the ground of expense, because, whatever system may be approved by the legislature, nothing will be gained by delaying its completion beyond the time necessary to the proper execution of the work. In fact, the cost will be greater the longer we are employed in it, not only for H. Rep. Com. 86- -6

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