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purchase of Jefferson's manuscript papers. March 3, 1849, $20,000 was appropriated for the purchase of the Monroe papers. All of these historical papers are in the custody of the Bureau of Rolls and Library.

All payments of moneys under the Department's control are under the supervision of the Bureau of Accounts. It is described as follows:*

The work is of such a nature as to require separation into three distinct divisions, viz.:

1. Matters of accounts relating to the Department proper; 2. Matters relating to international indemnities;

3. Examination and regulation of diplomatic and consular accounts.

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All disbursements on account of the Department of State are made by the Chief of this Bureau, who is the disbursing clerk of the Department.

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The accounts of ministers for salary and contingent expenses, the salary accounts of secretaries of legation and chargés, the accounts of consuls for contingent expenses, clerk hire, compensation of interpreters, and guard, &c.,

*Methods of Business in the Executive Departments, III, 17 et seq.

and all special accounts of ministers and consuls for expenses incurred in pursuance of special authorization or by reason of emergencies in the service, are required to be approved by the Secretary of State before being admitted to settlement by the accounting officers of the Treasury. The Secretary's approval is not given until he has ascertained by means of an examination in this Bureau that the accounts are in every detail in accordance with law and regulations.

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The entire telegraphic correspondence of the Department of State is conducted by the clerks of this Bureau. *** The greater portion of these messages in quantity, though not in number, is in cipher.

This Bureau, as we have seen before, is also in charge of the distribution of the Federal Laws, and it also receives whatever funds come from the issuance of passports.

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The granting of passports to American citizens for their protection in traveling abroad was a function which fell to the Government under the general provisions of international law as soon as there was competent authority

*Ante, p. 167.

for the purpose. Naturally, it came under the supervision of the Department of Foreign Affairs and afterwards of the Department of State, but for some years it was not wholly within the Department's charge.

The treaty of 1778 with France provided for the form of passport to be given by the two Governments to their respective vessels; but there was no law at that time relative to the granting of passports to individuals, nor would a passport, if issued, have proved a protection, as no power, except France, had as yet acknowledged the independence of the United States.

After the peace passports were issued; and by Act of Congress approved April 30, 1790, it was provided that, if any person should violate a safe-conduct or passport issued under the authority of the United States, he should, upon conviction, suffer fine and imprisonment. Passports being issued only to American citizens, the Department necessarily required some evidence of citizenship. This was usually a certifi-'

cate of a notary public; but there was no fixed rule, nor was the Department the only authority which issued passports. In 1835 the Supreme Court described the situation thus:

There is no law of the United States, in any manner regulating the issuing of passports, or directing upon what evidence it may be done, or declaring their legal effect. It is understood, as matter of practice, that some evidence of citizenship is required, by the Secretary of State, before issuing a passport. This, however, is entirely discretionary with him.*

The lack of legal provision on the subject led to gross abuses, and "the impositions practiced upon the illiterate and unwary by the fabrication of worthless passports" + led finally to the passage of the Act of August 18, 1856. This provided that the Secretary of State be authorized to grant and issue passports, and cause them to be granted and verified in foreign countries by diplomatic and consular officers of the United States, under such rules as the President

*9 Peters, 699.

†Op. Atty. Genl., IX, 350.

might prescribe. No one else was to issue passports, and they must be issued to none but citizens of the United States. There was to be no charge, except in foreign countries, where the fee was to be $1. Any person not authorized to do so who granted a passport should, upon conviction of the offense, be deemed guilty of a misdemeanor and fined and imprisoned. All returns of passports issued abroad were to be made to the Secretary of State.

Such returns had, however, been made from the beginning; but it is probable that they were not made regularly or by all our agents abroad who granted passports. The early passports were not essentially different in form from those now used, but frequently a simple certificate of citizenship was made to do duty for a regular passport. An example may be cited:

William Deas, Chargé des Affaires of the United States of America to the Court of Great Britain.

I do certify, That Samuel Potts, sixty years of age, Five feet eight inches in height, blue eyes, ordy. sized mouth,

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