I did not enter into a more full detail upon the subject, because the business continued, to the time I left Congress, in an undecided state; and it was impossible to judge what views would finally prevail.
The concurrent resolutions of the two Houses had been immediately, on their receipt, referred to a committee appointed to report on a peace establishment, who had suspended their report on these resolutions, till it should appear, what would be the fate of a general plan which had been submitted.
As to the motives that influenced Congress in making the provision they did make, rather than immediately assenting to the application of the State; as far as I was able to collect them, they were these: The opinions of many were unsettled as to the most eligible mode of providing for the security of the frontiers, consistent with the Constitution, as well with respect to the general policy of the Union, as to considerations of justice to those States whose frontiers were more immediately exposed. A considerable part of the House appeared to think, from reasons of a very cogent nature, that the well-being of the Union required a federal provision for the security of the different parts; and that it would be a great hardship to individual States, peculiarly circumstanced, to throw the whole burthen of expense upon them, by recurring to separate provisions, in a matter, the benefit of which would be immediately shared by their neighbors, and, ultimately, by the Union at large: that, indeed, it was not probable particular States would be either able, or, upon experiment, willing, to make competent provision at their separate expense; and that the principle might eventually excite jealousies between the States unfriendly to the common tranquillity.
I freely confess I was one who held this opinion.
Questions naturally arose as to the true construction of the articles of Confederation upon this head; questions as delicate as interesting, and as difficult of solution.
On one hand, it was doubted whether Congress were authorized by the Confederation, to proceed upon the idea of a federal provision: on the other, it was perceived that such a contrary construction would be dangerous to the Union, including, among other inconveniences, this consequence: That the United States, in Congress, cannot raise a single regiment, nor equip a single ship, for the general defence, till after a declaration of war, or an actual commencement of hostilities.
In this dilemma, on an important constitutional question; other urgent matters depending before Congress; and the advanced season requiring a determination upon the mode of securing the western posts in case of a surrender this fall; all sides of the House concurred in making a temporary provision, in the manner which has been communicated.
My apprehension of the views of the Legislature was simply this: That, looking forward to a surrender of the posts, and conceiving, from some expressions in the articles of Confederation, that separate provision was to be made for the frontier garrisons; they had thought it expedient to apply the troops already on foot to that purpose, and to propose to Congress to give their sanction to it.
Under this apprehension; reflecting, besides, that those troops were engaged only for a short period, upon a very improper establishment to continue, on account of the enormous pay to the private men; and that the expense which is now shared by all, and which would have fallen solely upon the State, had the application been complied with; would probably be at the rate of nearly eighty thousand dollars per annum, a considerable sum for the State in its present situation; I acknowledge to your Excellency, that I saw with pleasure, rather than regret, the turn which the affair took. I shall be sorry, however, if it has contravened the intentions of the Legislature.
I will take the liberty to add, upon this occasion, that it has always appeared to me of great importance, to this State in particular, as well as to the Union in general, that Federal, rather than State, provision should be made for the defence of every part of the Confederacy, in peace as well as in war.