rily at sea for six months. Before adopting any of the plans proposed, I thought proper, in consideration of the greater experience of England and France in the application of steam machinery to men-of-war, to order the Engineer-in-chief, Martin, to visit, Europe with a view to availing himself of any improvements which may have been made. The observations made during his visit, and the interesting reports of Lieutenant Walker, who had been similarly engaged, will prove useful to the service. The Santee and Sabine frigates will be completed and ready for being launched in a few weeks. The Franklin is progressing rapidly, and it is confidently expected that the six steam frigates will be launched certainly by the ensuing fall, if not earlier.

Reorganization of the Navy.-In my last annual report I ventured to express the opinion "that the present organization of the navy is not only essentially defective and unwise, but is, in its practical operation, working palpable and serious mischief to the efficiency and character of that branch of the public service," and "that a retired list on reduced pay for the faithful who have become infirm; the discharge of the inefficient who have no claim on the bounty of their government for services rendered; promotion regulated by capacity, merit, and not by mere seniority of commission; and pay to some extent controlled by sea-service, are reforms not only demanded by the condition of the service, by considerations of justice, but absolutely necessary to the preservation of efficiency and usefulness." Efforts were made, during the last session, to accomplish many of the desired reforms. No final action was taken. Subsequent reflection and experience of nearly two years' connexion with the navy, an extended acquaintance with the officers, and an attentive observation of the practical working of the present system, have not only confirmed me in the correctness of those views, but constrain me, at the hazard of the charge of pertinacity, to renew most earnestly my previous recommendations, and to urge their consideration and adoption with deep solicitude. So far as I have the authority at present, these views shall guide my action. I cannot recommend for promotion to higher rank and larger pay officers who do not merit it from incapacity, either moral or physical. I do not appreciate the justice or policy of promoting to a higher grade an officer who cannot perform its duties, unless in rare exceptional cases, as a complimentary reward for services rendered. It is neither more nor less than elevating the incompetent, and then ordering the unpromoted competent to do their work! Is there an alarm of fastening upon the government an odious pension system?

None can cherish a greater repugnance to that than myself; but none can be more fully convinced that it can be so well surrounded with safeguards, restrictions, and limitations, as to retain its virtues and reject its faults.

Is the particular plan of having the aid of a board of officers in ascertaining the incompetent and unworthy objected to? I am not wedded to that or any other scheme, provided the main object can be attained. I should be content to have the Secretary from time to time officially report to the President such names as he wishes should be retired or dropped; that the President should transmit, if he thinks proper, their names to the Senate, with a recommendation suited to each case. Thus the President and the Senate, the appointing power, will be the removing power, and the apprehension of Star Chamber persecution and being victimized by secret inquisition, now felt by some worthy officers, would be quieted. But I forbear to fatigue with details. The magic touch of reform is needed, and if skilfully applied will impart to the now drooping body of our navy a robust health and a new life. I believe that sound policy, stern justice, demand it; that true economy is not opposed to it. I shall be happy to co-operate with Congress in effecting it.

I have no hesitation in saying that there are many officers now in the navy whose names do not adorn the register. There are those incapable of performing duty from age or affliction. There are also many good officers resigning from time to time, because the path of promotion is "blocked up" by the incompetent, and the future seems to them so unpromising. But it is my pleasure, as well as my duty, to say that the corps is still full of chivalrous and gallant officers, who are not only ready for the post of danger, but would sustain the proud reputation of our navy, which has won so many laurels for our country, and by its brilliant victories cheered the heart of many a desponding patriot.

I will not, however, enlarge this report by repeating the views or reciting the various amendments and modifications of existing laws suggested in my last annual report, but content myself with renewing the recommendation.

Discipline of Seamen and the Enlistment of Boys as Apprentices. While the just and liberal action of Congress during the last session, authorizing an increase of pay of seamen corresponding to the compensation in the merchant service, has done much to encourage enlistments, and was received with grateful joy by many a veteran tar, much remains yet to be accomplished to give proper shape, vigor, character, and success to the system of discipline in this important

indeed vital part of the public service. Language cannot describe, the mind can scarcely grasp, how much of happiness and wretchedness hang around the fidelity, the discipline, of the neglected sailor. Property, life, victory, defeat, national honor and renown, have much to do with the character and cheerful obedience and home-love of seamen.

I am very far from recommending the restoration of punishment by flogging. In my opinion, the experience of the navy, at least, justifies its abrogation. The sloop-of-war Saratoga, Commander Walker, constituted a part of the squadron to Japan, left the United States in September, 1850, and returned in the same month of the present year, after cruising for four years beneath tropical suns and amid uncongenial people, thousands of miles from home. The term of the crew's enlistment expired while they were far in the east. They were informed while abroad that punishment by flogging was abolished. I allude to this case especially, as I think the test was a severe one. Yet, on their arrival at Boston, the most flattering reports reach me of the good conduct and discipline of the crew. I deemed it proper, also, to address an inquiry on the subject to Commander Walker. He responds thus: "In regard to the first question, whether it is desirable to restore corporeal punishment, I reply that, from experience as well as conviction, I do not believe it would be desirable, or for the interest of the service." And yet he and every officer concur in the necessity of prescribing and legalizing some substitute, accompanied, however, with a plan of reward as well as punishment; punishment prompt, sure, in order to restrain the offender and deter the inconsiderate; reward equally sure and generous, to encourage fidelity and promote respectability. It is not the severity, but the certainty and promptness of punishment, which promotes discipline. The sailor who now commits an offence aboard ship remote from home and the flag-ship, knows that he cannot be tried, possibly for months, until the vessel arrives in port or falls in with the commodore of the squadron.

I consider it all-important that the commander of any vessel should be authorized by law to order a summary court-martial for the trial of the petty officers and those below them; that they should have the power to punish by dishonorable discharge in any port; by confinement on reduced rations and without pay, with extra labor and denial of shore privilege. When the seaman knows that these punishments can be promptly inflicted by the officers in command of the ship, he has much to deter him from disobedience.

But, in order successfully to invite diligent and enterprizing men, they must know that their integrity will be commended, and their faithfulness remembered. An honorable discharge, leave-of-absence pay, shore privilege, and the confidence of the officers, will animate and encourage them. I hope I may be excused for repeating that "I deem it indispensable that some plan be adopted by which our seamen shall become more distinctly and permanently a part of the navy, and attached to the service. Whenever a shipof-war now returns from her three years' cruise, the officers are detached, and granted a leave of absence for three months, with leave-of-absence pay, but the seamen are peremptorily discharged-disconnected from the service. If they have been meritorious, I propose that on their return they be granted an 'honorable discharge,' (to be considered a leave of absence on pay,) if within a certain time they choose to re-enlist in the service. This would possess a two-fold virtue of fair and generous treatment at parting, an invitation to continue a member of a family caring for them during a temporary absence."

I wish to raise the standard of character among seamen. It is my design, also, immediately to adopt, in a modified form, the "Apprentice System," and encourage the enlistment of American boys from fourteen until they are twentyone years of age. The object in view will be to train them up at first on our large receiving ships, and transfer a certain number to each vessel starting on a cruise, to make them practical seamen, to teach them in their youth to become familiar with all the duties of a sailor, the requirements of the service, the sacredness of obedience to orders; to watch over their proper moral and mental training, and thus incorporate into the service gradually, but surely, a body of seamen to be proud of in times of peace, to be relied upon in times of danger. I am also very clearly of opinion that the number of men in the service should be increased at least twenty-five hundred.

Marine Corps.-The marine corps constitutes a most interesting, important, and useful portion of the naval force. Their service is equally effective on land and on sea. They are an armed and disciplined police on ship-board. Well trained and drilled before being detailed for duty at sea, aware of the fact that they are set apart to sustain the officers in command in the preservation of order and the suppression of mutiny, the first symptom of insubordination finds them ready, with strong hand and burnished arms, at the drumtap, to put down disorder or disobedience.

Recent occurrences at sea, painfully fresh in the recollection of all, impress the mind most vividly of the practical value of such a body of men on ship-board in moments of peril and alarm, when mere panic and disorder are so often unnecessarily fruitful of desolation and death. But on land also their services have ever been found efficient, either in the navy yards or on shore far from their country. This corps accompany our men-of-war in all their cruises in times of peace and war, and have signalized their valor in many a field.

Their number now is entirely too small, and I earnestly recommend an increase, by which more time would be allowed for their proper discipline and drilling before they are ordered to sea, and their efficiency rendered still more reliable. I am satisfied also that the corps could be improved and elevated in character by adopting some system of appointing officers of military education and training.

Yards and Docks.-We have now eight navy-yards, inclusive of the one now in rapid progress of construction at Mare island, California. To keep these yards in proper condition for useful service, and to erect on them the necessary buildings and fixtures, occasion the expenditure, annually, of large sums of money, notwithstanding the diligence and vigilance of the chief of that bureau. Large appropriations will be from time to time required for the yard in California, which it is presumed, will be a complete establishment, as it is the only one on the Pacific. The prices of labor and material and the necessaries of life in California are still far higher than on the Atlantic coast.

My immediate predecessor, (Hon. John P. Kennedy,) in his last annual report, recommended the construction of a basin and railway, in connexion with the floating sectional dock in California, thus: "No appropriation was made for the basin and railway, without which the dock cannot be safely or usefully employed. I submit it to the decision of Congress whether these structures should not be made without delay."

Congress subsequently, in the naval appropriation bill, approved March 3, 1853, adopted the following section:

And the Secretary of the Navy is hereby directed to complete and carry into execution the verbal contract for a basin and railway in California, in connexion with the floating dock, as made by the late Secretary, in pursuance of authority for that purpose, given by the act of September the twenty-eighth, one thousand eight hundred and fifty, entitled 'An act making appropriations for the naval ser