In December 1791, Hamilton published the Report on Manufactures, which recommended numerous policies designed to protect U.S. merchants and industries to increase national wealth, induce artisans to immigrate, cause machinery to be invented, and employ women and children. Hamilton called for federally-supervised infrastructure projects, the establishment of state-owned munitions factories and subsidies for privately owned factories, and the imposition of a protective tariff. Though Congress had adopted much of Hamilton's earlier proposals, his manufacturing proposals fell flat, even in the more-industrialized North, as merchant-shipowners had a stake in free trade. There were also questions raised about the constitutionality of these proposals, and opponents such as Jefferson feared that Hamilton's expansive interpretation of the Necessary and Proper Clause would grant Congress the power to legislate on any subject.