"Against the solidity of this hypothesis . . . very cogent reasons may be offered . . . [including] the strong influence of habit; the spirit of imitation; the fear of want of success in untried enterprises; the intrinsic difficulties incident to first essays towards [competition with established foreign players]: the bounties, premiums, and other artificial encouragements with which foreign nations second the exertions of their own citizens. . . . To produce the desirable changes as early as may be expedient may therefore require the incitement and patronage of government."