As the representative of a constituency which was profoundly interested in the navigation of the great interior waterways of the continent, Douglas was a vigorous advocate of internal improvements, so far as his Democratic conscience would allow him to construe the Constitution in favor of such undertakings by the Federal government. Like his constituents, he was not always logical in his deductions from constitutional provisions. The Constitution, he believed, would not permit an appropriation of government money for the construction of the ship canal around the Falls of the St. Mary's; but as landowner, the Federal government might donate lands for that purpose.[600] He was also constrained to vote for appropriations for the improvement of river channels and of harbors on the lakes and on the ocean, because these were works of a distinctly national character; but he deplored the mode by which these appropriations were made.[601] Just when the Nebraska issue came to the fore, he was maturing a scheme by which a fair, consistent, and continuous policy of internal improvements could be initiated, in place of the political bargaining which had hitherto determined the location of government operations. Two days before he presented his famous Nebraska report, Douglas addressed a letter to Governor Matteson of Illinois in which he developed this new policy.[602] He believed that the whole question would be thoroughly aired in the session just begun.[603] Instead of making internal improvements a matter of politics, and of wasteful jobbery, he would take advantage of the constitutional provision which permits a State to lay tonnage duties by the consent of Congress. If Congress would pass a law permitting the imposition of tonnage duties according to a uniform rule, then each town and city might be authorized to undertake the improvement of its own harbor, and to tax its own commerce for the prosecution of the work. Under such a system the dangers of misuse and improper diversion of funds would be reduced to a minimum. The system would be self-regulative. Negligence, or extravagance, with the necessary imposition of higher duties, would punish a port by driving shipping elsewhere.