Without interfering with the modifications rendered necessary by the
defects or the inefficacy of the laws restrictive of commerce and
navigation, or with the policy of disallowing to foreign armed vessels
the use of our waters, it falls within my duty to recommend also that,
in addition to the precautionary measure authorized by that act and to
the regular troops for completing the legal establishment of which
enlistments are renewed, every necessary provision may be made for a
volunteer force of 20,000 men, to be enlisted for a short period and
held in a state of organization and readiness for actual service at the
shortest warning.

I submit to the consideration of Congress, moreover, the expediency of
such a classification and organization of the militia as will best
insure prompt and successive aids from that source, adequate to
emergencies which may call for them.

It will rest with them also to determine how far further provision may
be expedient for putting into actual service, if necessary, any part of
the naval armament not now employed.

At a period presenting features in the conduct of foreign powers toward
the United States which impose on them the necessity of precautionary
measures involving expense, it is a happy consideration that such is the
solid state of the public credit that reliance may be justly placed on
any legal provision that may be made for resorting to it in a convenient
form and to an adequate amount,

JAMES MADISON.