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Preventing “Those Terrible Disasters”: Steamboat Accidents and Congressional Policy, 1824-1860

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Preventing “Those Terrible Disasters”: Steamboat Accidents and Congressional Policy, 1824-1860 PREVENTING “THOSE TERRIBLE DISASTERS”: STEAMBOAT ACCIDENTS AND CONGRESSIONAL POLICY, 1824-1860 A Dissertation Presented to the Faculty of the Graduate School of Cornell University In Partial Fulfillment of the Requirements for the Degree of Doctor of Philosophy by Peter E. Maust August 2012 © 2012 Peter E. Maust ABSTRACT PREVENTING “THOSE TERRIBLE DISASTERS”: STEAMBOAT ACCIDENTS AND CONGRESSIONAL POLICY, 1824-1860 Peter E. Maust Ph.D. Cornell University 2012 Responding to public outrage over the dangers of steamboat travel and entreaties by the press, inventors, and interest groups in the years before the Civil War, Congress investigated accidents, published data about the science of steam power, and suggested ways to improve vessel construction and operation. It also had the government test mechanisms, mandated certain safety devices, contemplated subsidizing inventors, and, in 1838 and 1852, passed laws requiring safety inspections and punishing steamboat operators for misconduct. These actions lend support to revisionist scholars of public policy who argue that the national government was more active and interventionist during this era than conventional historical depictions have portrayed. Members of Congress believed that the government was responsible for the safety of passengers and had the authority to intervene. They often endorsed policies without contested votes and drew support from Whigs and Democrats, as well as all geographical sections. These circumstances are inconsistent with archetypes of nineteenth-century policymaking, such as the “party period” paradigm, sectional contests between North and South, or the Southern- Democratic alliance that sought to restrict government intervention. The idiosyncrasies of the legislative process were at least as important as outside forces in influencing the form, timing and disposition of steamboat legislation. Researchers should be alert to instances of energetic government, consensual policymaking, and the complex process of how Congress responded to persistent demands. BIOGRAPHICAL SKETCH Peter Maust earned his A.B. degree in Political Science from Middlebury College in 1985. He worked in the development offices of Boston University and Brown University and received his M.A. in American history from Cornell University in 1996. He served as a visiting professor in the government department at the State University of New York at Old Westbury and as an adjunct professor of history at Stony Brook University. He is an assistant professor in the history department at St. Joseph’s College in Brooklyn and Patchogue, New York. iii For Carolyn and Thomas iv ACKNOWLEDGMENTS Loved ones, friends, and colleagues too numerous to mention have aided me with this dissertation. My thanks go out to the staffs at the Callahan and McEntegart Libraries at St. Joseph’s College, as well as at the Patchogue-Medford Library. Staff at the National Archives, Library of Congress, American Antiquarian Society, Cornell University Libraries and Fogler Library at the University of Maine provided invaluable assistance. I am especially grateful to Ron Ross and Kristen Wilhelm at the Center for Legislative Archives at the National Archives. My wife, Carolyn, and father, Ralph B. Maust, helped with organization, provided constructive feedback and invaluable moral support. Kathleen Signorelli was a worthy research assistant who helped move the project forward during challenging times. Editors at Edit 911 made many suggestions to improve my prose and other aspects of the work. The Cornell University Graduate School, History Department, and Department of Science and Technology Studies provided financial assistance during my research. The administration of St. Joseph’s College, particularly Sister Margaret Buckley at the Brooklyn Campus, demonstrated remarkable forbearance through many detours and delays, while Dean Richard Greenwald and the Provost, Sister Loretta McGrann, helped me see the project through to completion. Special thanks are due to the members of my dissertation committee, both past and present. Professor Ron Kline guided my investigations into the history of technology during my early years at Cornell. Professor Edward Baptist generously agreed to serve on my committee when I restarted the project after an extended absence. Professor Richard Bensel helped inspire this inquiry and I am gratified by his ongoing interest and support. If there are virtues in this dissertation, a great deal of credit belongs to Professor Emeritus Joel H. Silbey, whose guidance, support, constructive criticism, and example as a scholar, leave me grateful to have been his student. I alone am responsible for any errors and oversights. v TABLE OF CONTENTS Biographical Sketch ..........................................................................................................................................iii Acknowledgments ..........................................................................................................................................v List of Abbreviations ..........................................................................................................................................vii Preface ..........................................................................................................................................viii A Note on Primary Sources and Research ..........................................................................................................................................xv Introduction: Steamboat Dangers and the Government’s Response ..............................................................................................................................1 Chapter 1. Steamboats and the National State ..............................................................................................................................21 Chapter 2. “The Great Schoolmaster of the People” ..............................................................................................................................40 Chapter 3. “The Knowledge We Obtain … from Experiment” ..............................................................................................................................105 Chapter 4. “So Give Me the Money” – Inventors and the Quest for Subsidies ..............................................................................................................................134 Chapter 5. “To Regulate and Improve” ..............................................................................................................................195 Chapter 6. Conclusion ..............................................................................................................................242 Appendix A – Bills and Joint Resolutions On Vessel Safety, 1790-1860 ..........................................................................................................................................258 Appendix B – Congressional Documents Relating to Steamboat Safety, 1824-1852 ..........................................................................................................................................283 Appendix C – Roll Call Votes ..........................................................................................................................................308 Bibliography ..........................................................................................................................................316 vi LIST OF ABBREVIATIONS ACG Appendix to the Congressional Globe ASP American State Papers, Naval Affairs CG Congressional Globe H. Doc. House Document H. Exec. Doc. House Executive Document H. Rept. House Report H.J.R. House Joint Resolution H.R. Bill introduced in the House of Representatives HJ Journal of the House of Representatives JFI Journal of the Franklin Institute NA National Archives and Records Administration NWR Niles’ Weekly Register & Niles’ National Register NYDT New York Daily Times RD Register of Debates in Congress RG Record Group, National Archives and Records Administration SA Scientific American S. Bill introduced in the Senate (e.g., S. 128 represents Senate Bill 128) S. Doc. Senate Document S. Exec. Doc. Senate Executive Document S. Misc. Doc. Senate Miscellaneous Document S. Rept. Senate Report S.J.R. Senate Joint Resolution SJ Journal of the Senate Stat. L. Statute Law vii PREFACE This work began as a paper for a graduate seminar on United States history during the Civil War era at Cornell University led by Professors Joel H. Silbey and Richard F. Bensel. I had been interested in the growth of government power for some time, especially the rise of the national “state” in American life. My curiosity developed from early experiences on Long Island’s South Shore, where I could see a lookout tower from one of the Lifesaving Service stations that had once guarded the approaches to the Port of New York. I was fascinated by an old wreck near my grandparents’ house and my father and grandfather told me stories about stranded vessels and the surf men who rescued passengers and crews. When I grew older, I puzzled over the contradiction between depictions of the United States as a country of self-reliant individualists whose government had done little for them and the still visible foundations of the old Lifesaving stations among the dunes of Fire Island. Hadn’t we done something for each other? In the seminar, I planned to investigate the government’s relationship to railroads in
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