had limited success, due, in part, to the state's limited financial resources and Jennings's limited powers as governor. Jennings strongly condemned slavery in his inauguration speech and as governor, he refined his stance on the institution. On November 7, 1816, Jennings encouraged the state legislature to enact laws to prevent "unlawful attempts to seize and carry into bondage persons of color legally entitled to their freedom" while preventing "those who rightfully owe service to the citizens of any other State or Territory, from seeking, within the limits of this state, a refuge from the possession of their lawful owners." In 1817 Jennings acknowledged a moderation of his earlier position regarding fugitive slaves by claiming it was needed to "preserve harmony" among the states. Jennings agreed to allow citizens "the means of reclaiming any slave escaping to this State that may rightfully belong to them ... with as little delay as possible" after citizens of Kentucky had difficulty reclaiming their slaves who had escaped to Indiana. Internal improvements In 1818, Jennings began promoting a large-scale plan for internal improvements in the state. Most of the projects were directed toward construction of roads, canals, and other projects to enhance the commercial appeal and economic viability of the state. During Jennings's second term the state government continued to support public improvements, with new road construction and expanded settlement into central Indiana. After Indianapolis became the site for the state's permanent capital in 1821 and new settlers arrived in the area, the Indiana General Assembly appropriated $100,000 for new road construction and improvements to some of the more important routes, but it was considerably short of the amount needed. The state experienced budget shortages because of low tax revenues, which forced Jennings to pursue other means of financing the projects. The main sources of funds came from issuing government bonds to the state bank and sales of public lands. The state's spending and borrowing led to short-term budget problems, but despite early setbacks (poor access to capital eventually halted improvement programs and caused the Indiana Canal Company to fold because of lack of funds), the infrastructure improvements initiated by Jennings attracted new settlers to the state. By 1810 the Indiana Territory's population within the boundaries of the new state was 24, 520. In the decades following his governorship, Indiana's population grew from sixty-five thousand in 1816 to 147,178 in 1820 and surpassed one million