service. Navy enlistment was so small that state courts later recruited sailors by sentencing criminals to serve in the Navy. Meeting at Richmond On May 23, the Virginia Secession Convention voted to secede, and, shortly thereafter, the Virginia legislature invited the Confederate Congress to move to Richmond. After the state's voters overwhelmingly ratified the secession decisions a month later, the Congress ordered the next session to convene in Richmond on July 20. Because President Davis believed the Confederacy should embrace Kentucky and Missouri, the Provisional Congress appropriated $1 million each in late August to secure secession in those states. The Provisional Congress in the Fifth Session reached two of the most far-reaching decisions for the Confederacy, both politically and militarily. The border states of Missouri and Kentucky were admitted into the Confederate States of America, requiring offensive military decisions otherwise uncalled for in the western theater, including violating Kentucky's neutrality. Their admission also provided a solid two-state delegation support amounting to 17% of the House and 15% of the Senate backing the Jefferson Davis government throughout the existence of the Confederacy. Treaties with the Five Civilized Tribes also allowed for their seating non-voting representatives in the Confederate Congress, as did Arizona Territory. With the short-lived claim to the far-western Arizona Territory, by the end of 1861, the Confederacy had gained the greatest extent of its territorial expansion. After that point, its de-facto governance contracted as Union military actions prevailed. While the initial response to calls to rally to the Confederate army and state militias was overwhelming in the short run, Jefferson Davis foresaw that substantial numbers of the twelve-month volunteers would not re-enlist. Fully half of the entire Confederate army might vanish in the spring of 1862. In an effort to extend volunteer service, on December 11, 1861, Congress provided for a $50 reenlistment bounty and a 60-day furlough for an enlistment of three years or the duration. The measure destabilized the entire Provisional Army, resulting in the ousting of large numbers of serving officers in company and regimental election campaigns. Railroad transportation was snarled with the glut of furloughed soldiers coming and going. In the last of its actions, the Provisional Congress instructed the states in several duties. These included redrawing congressional districts to conform to the Confederate apportionment, reenacting election laws conforming to Confederate timetables, permitting out-of-state voting by soldiers and refugees, and electing two Confederate Congress senators