Chapter CXXI

NAVAL EXPENDITURES, AND ADMINISTRATION ATTEMPTS AT REFORM: ABORTIVE.

The annual appropriation for this branch of the service being under consideration, Mr. Parmenter, the chairman of the naval committee, proposed to limit the whole number of petty officers, seamen, ordinary seamen, landsmen and boys in the service to 7,500; and Mr. Slidell moved an amendment to get rid of some 50 or 60 masters' mates who had been illegally appointed by Mr. Secretary Henshaw, during his brief administration of the naval department in the interval between his nomination by Mr. Tyler and his rejection by the Senate. These motions brought on a debate of much interest on the condition of the navy itself, the necessity of a peace establishment, and the reformation of abuses. Mr. Cave Johnson, of Tennessee--

"Expressed himself gratified to see the limitation proposed by
the chairman of the Committee on Naval Affairs; that he had
long believed that we should have a peace establishment for the
navy, as well as the army; and that the number of officers and
men in each should be limited to the necessities of the public
service. Heretofore the navy had been left to the discretion
of the Secretary, only limited by the appropriation bills. He
urged upon the chairman of the Naval Committee the propriety
of reducing still further. If he did not misunderstand the
amendment, it proposed to man the number of vessels required
for the next year in the same way that we would do in time
of war, as we have heretofore done. He thought there should
be a difference in the complement of men required for each
ship in war and in peace. He read a table, showing that in
the British service, first class men-of-war of 120 guns, in
time of peace had on board (officers, men, and marines) 886
men, whilst the same class in our service had on board 1,200,
officers, men, and marines--near one-third more officers
and men in the American service than were employed in the
British. The table showed about the same difference in vessels
of inferior size. He thought the number of men and officers
should be regulated for a peace, and not a war establishment.
He expressed the hope that the chairman of the Naval Committee
would so shape his amendment as to fix the number of officers
and men for a peace establishment. He was desirous of having a
peace establishment, and the expenditures properly regulated.
This branch of the service, together with the army, were the
great sources of expenditure. He read a table, showing the
expenditures of these branches of the public service from 1821
to 1842, as follows: ($235,000,000.) He said the country would
be astonished to see the immense sums expended on the army and
navy; and, as he thought, without any adequate return to the
country. He could see no advantage to the country from this
immense expenditure--no adequate return. He was aware of the
excuse made for it--the protection of our commerce. This was a
mere pretext--an excuse for throwing upon the public treasury
an immense number of men, who might be much more profitably to
the country employed in other occupations. He alluded to the
Mediterranean squadron and the expenditures for the protection
of our commerce on that sea; and expressed the opinion that our
expenditures at that station equalled the whole of the commerce
east of the Straits of Gibraltar--that it would be better for
the country to pay for the commerce than protect it; that there
was no more need to protect our commerce in the Mediterranean
than there was in the Chesapeake Bay. Such a thing as pirates in
that sea had been scarcely heard of in the last twenty years.
He expressed his determination to vote for the amendment, but
hoped the chairman would so shape it as to make a regular peace
establishment."

The member from Tennessee was entirely right in his desire for a naval peace establishment, but the principle on which such an establishment should be formed, was nowhere developed. It was generally treated as a naval question, dependent upon the number of naval marine--others a commercial question, dependent upon our amount of commerce; while, in fact, it is a political question, dependent upon the state of the world. Protection of commerce is the reason always alleged: that reason, pursued into its constituent parts, would always involve two inquiries, and both of them to be answered in reference to the amount of commerce, and its dangers in any sea. To measure the amount of a naval peace establishment, and its distribution in different seas, the amount of danger must be considered: and that is constantly varying with the changing state of the world. The great seat of danger was formerly in the Mediterranean Sea; and squadrons proportioned to the amount of that danger were sent there: since the extirpation of the piratical powers on the coast of the sea, there is no danger to commerce there, and no need for any protection; yet larger squadrons are sent there than ever. Formerly there was piracy in the West Indies, and protection was needed there: now there is no piracy, and no protection needed, and yet a home squadron must watch those islands. So of other places. There is no danger in many places now in which there was much formerly; and where we have most commerce there is no danger at all. This protection, the object of a naval peace establishment, is only required against lawless or barbarian powers: such powers require the presence of some ships of war to restrain their piratical disposition. The great powers which recognize the laws of nations, need no such negotiators as men-of-war. They do not commit depredations to be redressed by a broadside into a town: if they do injury to commerce it is either accidental, or in pursuance to some supposed right: and in either case friendly ministers are to negotiate, and the political power to resolve, before cannon are fired. Here then is the measure of a peace establishment: it is in the number and power of the barbarian or half-barbarian powers which are not amenable to the laws of nations, and whose lawless propensities can only be restrained by the fear of immediate punishment. There are but few of these powers at present--much fewer than there were fifty years ago, and can only be found by going to the extremities of the globe--and are of no force when found, and can be kept in perfect order by cruisers. As for the squadrons kept up in the Mediterranean, the Pacific coast, Brazil, and East Indies, they are there without a reason, and against all reason--have nothing to do but stay abroad three years, and then come home--to be replaced by another for another three years: and so on, until there shall be reform. Better far, if all these squadrons are to be kept up, that they should remain at home, spending their money at home instead of abroad, and just as serviceable to commerce. As for the home squadron, that was established by law, without reason, and should be suppressed without delay: and as for the African squadron, that was established by treaty to please Great Britain, and ought, in the first place, not to have been established at all; and in the second place, should have been suppressed as soon as the five years' obligation to keep it up had expired.

Mr. Hamlin, of Maine, spoke to the body of the case, and with knowledge of the subject, and a friendly feeling to the navy--but not such feeling as could wink at its abuses. He said:

"He trusted he was the very last person who would detract from
the well-merited fame of the navy; but he had another rule
of action: he would endeavor so to vote in relation to this
subject, as to check, if possible, what he believed the gross
and extravagant expenditure of public money: and he referred
gentlemen, in corroboration of this assertion that there was
extravagance in the expenditures, to the report of the Committee
on Naval Affairs. The facts which stared them in the face
from every quarter justified him in the assertion that there
was gross extravagance. Mr. H. referred to various items of
expenditure, in proof of the existence of extravagance."

'Mr. Hamlin pointed to the enormous increase in the number of officers in the navy, constantly augmenting in a time of peace, instead of being diminished as the public good required:

"He produced tables, taken from official returns, to show
that the greater number of these officers were necessarily
unemployed, and were spending their time at home in idleness.
He had nothing to urge against any officer of the navy; they
could not be blamed for receiving the allowance which the law
gave them, whether employed or not;--but he asked gentlemen
to examine the great disparity between the number of naval
officers, as regulated by statute, and the number now in
existence."

This was said before the naval school was created: since the establishment of that school, enough are legally appointed to officer a great navy. Two hundred and fifty midshipmen constantly there, coming off by annual deliveries, and demanding more ships and commissions than the public service and the public Treasury can bear. Illegal appointments have ceased, but the evil of excessive appointments is greater than ever.

Mr. Hamlin produced some items of extravagance, one of which he summed up, showing as the result that $2,142 97 was expended at one hospital in liquors for the "sick," and $10,288 53 for provisions: and then went on to say:

"The amount expended within a period of one year on the coast
of Florida by the commander of this little squadron, was five
hundred and four thousand five hundred and eighty dollars; and
yet the gentleman from South Carolina found in this nothing to
induce the House to restrict the appropriations. Mr. H. said
he would go for the amendment. He would go for any thing to
stop the drafts these leeches were making on the Treasury.
His principal object, however, in rising, was to call on the
members to redeem the pledges of economy that they made at the
beginning of the session, and he trusted that now that they had
the opportunity they would redeem them. He was from a commercial
State, and would be the last man to do any act that would be
injurious to commerce; but he did not understand how commerce
could be benefited or protected by suffering this enormous and
profligate waste of public money to be continued. By introducing
a proper system of economy and accountability, the navy would be
more efficient, and the government would be able to employ more
ships and more guns to protect commerce than they now did."

Mr. Hale replied to several members, and went on to speak of abuses in the navy expenditures, and the irresponsibility of officers:

"There was an old maxim in the navy, that there was no law for
a post-captain, and really the adage seemed now to be verified.
The navy (said Mr. H.) is utterly without law, and the document
just read by the gentleman from Maine [Mr. HAMLIN] showing the
expenditures of the Florida squadron, proved it. Such conduct
as was described in that document ought to make every American
blush; but what was the result of it? Why, the officer came
forward and demanded of the Secretary of the Navy (Mr. Henshaw)
extra compensation as commander of a foreign squadron, and the
Secretary paid him from five to seven thousand dollars more. It
was to correct a thousand such abuses as this, that had crept
into the navy, that he would offer the amendment which had been
read for the information of the committee. Mr. H. went on to
comment on the large amount of money unnecessarily expended for
the navy. We have, said he, twice as many officers as there is
any use for, and they receive higher pay than the officers of
any navy in the world."

Mr. Hale believed we had too many navy-yards, and mentioned the condition of the one nearest his own home, as an exemplification of his opinion, Portsmouth, New Hampshire--

"Where were stationed twenty-six officers, at an expense of
$30,000 a year, and all to command six seamen and twelve
ordinary seamen. This yard was commanded by a post-captain;
and what duties had he to perform? Why, just nothing. What had
the commander to do? Why, to help the captain; and as for the
lieutenants, they had nothing to do but to give orders to the
midshipmen."

The movement ended without results, and so of all desultory efforts at reform at any time. Abuses in the expenditure of public money are not of a nature to surrender at the first summons, nor to yield to any thing but persevering and powerful efforts. A solitary member, or a few members, can rarely accomplish any thing. The ready and efficient remedy lies with the administration, but for that purpose a Jefferson is wanted at the head of the government--a man not merely of the right principles, but of administrative talent, to know how to apply his economical doctrines. Such a President would now find a great field for economy and retrenchment in reducing our present expenditures about the one-half--from seventy odd millions to thirty odd. Next after an administration should come some high-spirited and persevering young men, who would lay hold, each of some great abuse, and pursue it without truce or mercy--year in, and year out--until it was extirpated. Some such may arise--one to take hold of the navy, one of the army, one of the civil and diplomatic--and gain honor for themselves and good for their country at the same time.