this government is charged with the external and mutual relations only of these states, that the states themselves have principal care of our persons, our property, and our reputation, constituting the great field of human concerns, we may well doubt whether our organisation is not too complicated, too expensive; whether offices and officers have not been multiplied unnecessarily, and some times injuriously23 to the service they were meant to promote. I will cause to be laid before you an essay towards a statement, of those who, under public employment of various kinds, draw money from the treasury, or from our citizens.