The probability of failing in any attempt to hold the mouth of the Mississippi by force, and the resentments against Great Britain which prevailed generally throughout the western country, diminished the danger to be apprehended from any machinations of that power, but against those of Spain the same security did not exist.
In contemplating the situation of the United States in their relations not purely domestic the object demanding most immediate consideration was the hostility of several tribes of Indians. The military strength of the nations who inhabited the country between the lakes, the Mississippi, and the Ohio was computed at 5,000 men, of whom about 1,500 were at open war with the United States. Treaties had been concluded with the residue, but the warlike disposition of the Indians, and the provocations they had received, furnished reasons for apprehending that these treaties would soon be broken.
In the South the Creeks, who could bring into the field 6,000 fighting men, were at war with Georgia. In the mind of their leader, M"Gillivray, the son of a white man, some irritation had been produced by the confiscation of the lands of his father who had resided in that State, and several other refugees, whose property had also been confiscated, contributed still further to exasperate the nation. But the immediate point in contest between them was a tract of land on the Oconee, which the State of Georgia claimed under a purchase, the validity of which was denied by the Indians.
The regular force of the United States was less than 600 men.
Not only the policy of accommodating differences by negotiation which the government was in no condition to terminate by the sword, but a real respect for the rights of the natives and a regard for the claims of justice and humanity, disposed Washington to endeavor, in the first instance, to remove every cause of quarrel by a treaty, and his message to Congress on this subject evidenced his preference of pacific measures.
Possessing many valuable articles of commerce for which the best market was often found on the coast of the Mediterranean, struggling to export them in their own bottoms, and unable to afford a single gun for their protection, the Americans could not view with unconcern the dispositions which were manifested toward them by the Barbary powers. A treaty had been formed with the Emperor of Morocco, but from Algiers, Tunis, and Tripoli peace had not been purchased, and those regencies considered all as enemies to whom they had not sold their friendship. The unprotected vessels of America presented a tempting object to their rapacity, and their hostility was the more terrible, because by their public law prisoners became slaves.
The United States were at peace with all the powers of Europe, but controversies of a delicate nature existed with some of them, the adjustment of which required a degree of moderation and firmness which there was reason to fear might not, in every instance, be exhibited.
The apprehensions with which Spain had contemplated the future strength of the United States, and the consequent disposition to restrict them to narrow limits, have been already noticed. After the conclusion of the war the attempt to form a treaty with that power had been repeated, but no advance toward an agreement on the points Of difference between the two governments had been made.
Circ.u.mstances attending the points of difference with Great Britain were still more serious, because, in their progress, a temper unfavorable to accommodation had been uniformly displayed.
The resentments produced by the various calamities war had occasioned were not terminated with their cause. The idea that Great Britain was the natural enemy of America had become habitual. Believing it impossible for that nation to have relinquished its views of conquest, many found it difficult to bury their animosities and to act upon the sentiment contained in the Declaration of Independence, "to hold them as the rest of mankind, enemies in war, in peace friends." In addition to the complaints respecting the violation of the treaty of peace events were continually supplying this temper with fresh aliment.
The disinclination which the cabinet of London had discovered to a commercial treaty with the United States was not attributed exclusively to the cause which had been a.s.signed for it. It was in part ascribed to that jealousy with which Britain was supposed to view the growing trade of America.
The general restrictions on commerce by which every maritime power sought to promote its own navigation, and that part of the European system in particular by which each aimed at a monopoly of the trade of its Colonies, were felt with peculiar keenness when enforced by England.
In this suspicious temper almost every unfavorable event which occurred was traced up to British hostility.
That an attempt to form a commercial treaty with Portugal had failed, was attributed to the influence of the cabinet of London, and to the machinations of the same power were also ascribed the danger from the corsairs of Barbary and the b.l.o.o.d.y incursions of the Indians. The resentment excited by these causes was felt by a large proportion of the American people, and the expression of it was common and public. That correspondent dispositions existed in England is by no means improbable, and the necessary effect of this temper was to increase the difficulty of adjusting the differences between the two nations.
With France the most perfect harmony subsisted. Those attachments which originated in the signal services received from the King of France during the war of the Revolution had sustained no diminution. Yet, from causes which it was found difficult to counteract, the commercial intercourse between the two nations was not so extensive as had been expected. It was the interest and, of consequence, the policy of France, to avail herself of the misunderstandings between the United States and Great Britain, in order to obtain such regulations as might gradually divert the increasing trade of the American continent from those channels in which it had been accustomed to flow, and a disposition was felt throughout the United States to cooperate with her in enabling her merchants, by legislative encouragements, to rival those of Britain in the American market.
A great revolution had commenced in that country, the first stage of which was completed by limiting the powers of the monarch, and by the establishment of a popular a.s.sembly. In no part of the globe was this revolution hailed with more joy than in America. The influence it would have on the affairs of the world was not then distinctly foreseen, and the philanthropist, without becoming a political partisan, rejoiced in the event. On this subject, therefore, but one sentiment existed.
The relations of the United States with the other powers of Europe did not require particular attention. Their dispositions were rather friendly than otherwise, and an inclination was generally manifested to partic.i.p.ate in the advantages which the erection of an independent empire on the western sh.o.r.es of the Atlantic held forth to the commercial world.
By the ministers of foreign powers in America it would readily be supposed that the first steps taken by the new government would not only be indicative of its present system, but would probably affect its foreign relations permanently, and that the influence of the President would be felt in the Legislature. Scarcely was the exercise of his executive functions commenced when Washington received an application from the Count de Moustiers, the minister of France, requesting a private conference. On being told that the Department of Foreign Affairs was the channel through which all official business should pa.s.s, the count replied that the interview he requested was not for the purpose of actual business, but rather as preparatory to its future transaction.
The next day, at 1 in the afternoon, was named for the interview. The count commenced the conversation with declarations of his personal regard for America, the manifestations of which, he said, had been early and uniform. His nation, too, was well disposed to be upon terms of amity with the United States, but at his public reception there were occurrences which he thought indicative of coolness in the Secretary of Foreign Affairs, who had, he feared, while in Europe, imbibed prejudices, not only against Spain, but against France also. If this conjecture should be right the present head of that department could not be an agreeable organ of intercourse with the President. He then took a view of the modern usages of European courts, which, he said, favored the practice he recommended, of permitting foreign ministers to make their communications directly to the chief of the executive. "He then presented a letter," says Washington in his private journal, "which he termed confidential, and to be considered as addressed to me in my private character, which was too strongly marked with an intention, as well as a wish, to have no person between the minister and President in the transaction of business between the two nations."
In reply to these observations Washington a.s.sured him that, judging from his own feelings and from the public sentiment, there existed in America a reciprocal disposition to be on the best terms with France. That whatever former difficulties might have occurred he was persuaded the Secretary of Foreign Affairs had offered no intentional disrespect either to the minister or to his nation. Without undertaking to know the private opinions of Mr. Jay he would declare that he had never heard that officer express, directly or indirectly, any sentiment unfavorable to either.
Reason and usage, he added, must direct the mode of treating national and official business. If rules had been established they must be conformed to. If they were yet to be framed it was hoped that they would be convenient and proper. So far as case could be made to comport with regularity and with necessary forms, it ought to be consulted, but custom, and the dignity of office, were not to be disregarded. The conversation continued upward of an hour, but no change was made in the resolution of the President.
During its first session the national Legislature was princ.i.p.ally occupied in providing revenues for the long-exhausted treasury, in establishing a judiciary, in organizing the executive departments in detail, and in framing amendments to the const.i.tution, agreeably to the suggestion of the President. The members immediately entered upon the exercise of those powers so long refused under the articles of confederation. They imposed a tonnage duty, as well as duties on various imported articles, steadily keeping in sight, however, the navigating interest of the country, which had hitherto been almost wholly at the mercy of other nations. Higher tonnage duties were imposed on foreign than on American bottoms, and goods imported in vessels belonging to citizens of the United States paid 10 per cent less duty than the same goods brought in those owned by foreigners. These discriminating duties were intended to counteract the commercial regulations of foreign nations and to encourage American shipping. To aid in the management of the affairs of government three executive departments were established, styled Departments of War, Foreign Affairs, and of the Treasury, with a secretary at the head of each.
The heads of these departments, in addition to the duties specially a.s.signed them, were intended to const.i.tute a council, to be consulted by the President whenever he thought proper, and the Executive was authorized by the const.i.tution to require the opinion, in writing, of the princ.i.p.al officers in the executive departments, on subjects relating to the duties of their offices. In framing the acts const.i.tuting these offices and defining their duties, it became an important subject of inquiry in what manner or by whom these important officers could be removed from office. This was a question as new as it was momentous and was applicable to all officers of executive appointment. In the long and learned debates on the subject in Congress, there arose a very animated opposition to such a construction of the const.i.tution as to give this power to any one individual. Whatever confidence might be placed in the chief magistrate then at the head of the government, equal confidence could not be expected in his successors, and it was contended that a concurrence of the Senate was as necessary and proper in the removal of a person from office as in his appointment. Some of the members of the House of Representatives were of opinion that they could not be removed without impeachment. The princ.i.p.al question, however, on which Congress was divided, was, whether they were removable by the President alone, or by the President in concurrence with the Senate. A majority, however, in both houses, decided that this power was in the President alone. In the House, the majority in favor of this construction was twelve. This decision of a great const.i.tutional question has been acquiesced in, and in its consequences has been of greater importance than almost any other since the establishment of the new government. From the manner in which this power has been exercised, it has given a tone and character to the executive branch of the government not contemplated, it is believed, by the framers of the const.i.tution or by those who const.i.tuted the first Congress under it. It has greatly increased the influence and patronage of the President and in no small degree made him the center around which the other branches of the government revolve. [4]
In a free country, where the private citizen has both the right and the inclination to take an interest in the public concerns, it is natural that political parties and civil contentions should arise. These will be more or less violent, angry, and hostile, according as a sense of common security from external dangers leaves no cause for united action, and little anxiety for the common peace. A natural consequence of this strife of parties is the exercise of the pa.s.sions--pride, interest, vanity, resentment, grat.i.tude--each contributing its share in irritating and prolonging the controversy. In the beginning of the Revolution, the people of the United States divided themselves into the two great cla.s.ses of Whigs and Tories; then they again separated upon the question of absolute independence. Other questions arose during the war, relative to its conduct, and the qualifications of the leaders of the army.
Independence achieved, the minds of the people were agitated about the nature of the government, which all saw to be necessary for their own happiness, and for the better enabling them to prosecute with foreign countries peaceful negotiations or the operations of war. Many saw, in too close a union, dangers as great and consequences as distasteful as in their entire separation. It was believed by many that the extent of the country, the great diversity of character, habits, and pursuits among the several States, presented insuperable obstacles to a closer union than that afforded by the articles of confederation. Some were almost exclusively commercial, others agricultural; some were disposed to engage in manufacturing pursuits; some had domestic slavery firmly connected with their domestic relations and were disposed to look favorably on the extension of the inst.i.tution; others regarded involuntary servitude as a curse, and desired its abolition.
It was not to be wondered at, that with such points of diversity, many should suppose that a single government could not administer the affairs of all, except by a greater delegation of power than would be submitted to by the American people. While some looked wholly to these apprehended consequences of a close union and a single government, others chiefly regarded the dangers arising from disunion, domestic dissensions, and even war. One party dreaded consolidation; the other, anarchy and separation. Each saw, in the object of its dread, the destruction of good government, though one party looked too exclusively to its characteristic of order, the other to that of civil liberty. These were the thoughts of the people, widely different, but all equally honest.
But the politicians addressed themselves to these prejudices, often with unworthy motives. Local prejudices, self-interest, fears, in some cases from an antic.i.p.ated loss of consequence, in the event of a transfer of sovereignty from the individual States to the general government, all combined to make many violent in their expressions of opposition to the plan. Apprehensions of violence and disorder, and fears from individual popularity in a circ.u.mscribed sphere, led others to desire consolidation. With these, ranked others who were fond of the pomp and show of authority which would attend a powerful government; and still others, who, having claims upon the country, supposed that they would have much stronger hopes of being paid themselves and of seeing the debts due abroad liquidated if a system of government were established which could be certain to raise a revenue for these objects. On the formation of the const.i.tution, the community settled down into two great parties, Federalists and Anti-Federalists, or Democrats; the first believing that the most imminent danger to our peace and prosperity was in disunion, and that popular jealousy, always active, would withhold the power which was essential to good order and national safety; the other party believing that the danger most to be apprehended was in too close a union, and that their most powerful opponents wished a consolidated and even a monarchial government.
There were many who had been accustomed to reflect upon government and political relations previously to the war of independence, when the const.i.tution of Great Britain being by far the best that had ever existed, they may naturally be supposed to have conceived for it a degree of homage and respect which it could not now inspire. The speculations on political rights, to which the contest with Great Britain and the debates on the question of independence gave rise, greatly favored the doctrines of political equality and the hatred of power in any form that could control the public will. There are, in the heart of every man, principles which readily prepare him for republican doctrines, and after a few years some of the speculative politicians began to think that the free, simple, and equal government which was suited to the tastes and habits of our people, was also the best in theory. The great body of the people were partial to the form of government to which they had been accustomed and wished for none other, though the leading statesmen differed upon this point. Some preferred the republican form in theory and believed that no other would be tolerated in practice, and others regretted that they were obliged to yield so far to popular prejudice as to forego the form they deemed best, but determined to avail themselves of every opportunity of improving the existing government into that form. Nor were they without hopes that by siding with the general government in every question of power between that and the separate States, and with the Executive in all questions between that and the Legislature, and by continually increasing the patronage of the executive by means of an army, a navy, and the multiplication of civil officers, they would ultimately obtain their object. [5]
It was in the midst of this society, so agitated and disturbed, that Washington, without ambition, without any false show, from a sense of duty rather than inclination and rather trusting in truth than confident of success, undertook actually to found the government decreed by the new-born const.i.tution. He rose to his high office invested with an immense influence, which was acknowledged and received even by his enemies.
Washington"s natural inclination, says Guizot, [7] was rather to a democratic social state than to any other. Of a mind just rather than expansive, of a temper wise and calm, full of dignity, but free from all selfish and arrogant pretensions--coveting rather respect than power--the impartiality of democratic principles and the simplicity of democratic manners, far from offending or annoying him, suited his tastes and satisfied his judgment. He did not trouble himself with inquiring whether more elaborate combinations, a division into ranks, privileges, and artificial barriers, were necessary to the preservation of society. He lived tranquilly in the midst of an equal and sovereign people, finding its authority to be lawful and submitting to it without effort.
But when the question was one of political and not social order, when the discussion turned upon the organization of the government, he was strongly federal, opposed to local and popular pretensions and the declared advocate of the unity and force of the central power.
He placed himself under this standard and did so to insure its triumph.
But still his elevation was not the victory of a party and awakened in no one either exultation or regret. In the eyes, not only of the public, but of his enemies, he was not included in any party and was above them all: "the only man in the United States," said Jefferson, "who possessed the confidence of all;--there was no other one who was considered as anything more than a party leader."
It was his constant effort to maintain this honorable privilege. "It is really my wish to have my mind and my actions, which are the result of reflection, as free and independent as the air. If it should be my inevitable fate to administer the government, I will go to chair under no pre-engagement of any kind or nature whatsoever. Should anything tending to give me anxiety present itself in this or any other publication, I shall never undertake the painful task of recrimination, nor do I know that I should ever enter upon my justification. All else is but food for declamation. Men"s minds are as various as their faces, and, where the motives of their actions are pure, the operations of the former are no more to be imputed to them as a crime than the appearance of the latter. Differences in political opinions are as unavoidable, as, to a certain point, they may, perhaps, be necessary." [8]
A stranger also to all personal disputes, to the pa.s.sions and prejudices of his friends, as well as his enemies, the purpose of his whole policy was to maintain this position and to this policy he gave the true name, "the just medium!"
It is much, continues the great statesman of France, to have the wish to preserve a just medium; but the wish, though accompanied with firmness and ability, is not always enough to secure it. Washington succeeded in this as much by the natural turn of his mind and character as by making it his peculiar aim; he was, indeed, really of no party, and his country in esteeming him so, did no more than pay homage to truth.
A man of experience and a man of action, he had an admirable wisdom, and made no pretension to systematic theories. He took no side beforehand; he made no show of the principles that were to govern him. Thus, there was nothing like a logical harshness in his conduct, no committal of self-love, no struggle of rival talent. When he obtained the victory, his success was not to his adversaries either a stake lost or a sweeping sentence of condemnation. It was not on the ground of the superiority of his own mind that he triumphed, but on the ground of the nature of things and of the inevitable necessity that accompanied them. Still, his success was not an event without a moral character, the simple result of skill, strength, or fortune. Uninfluenced by any theory he had faith in truth and adopted it as the guide of his conduct. He did not pursue the victory of one opinion against the partisans of another; neither did he act from interest in the event alone, or merely for success. He did nothing which he did not think to be reasonable and just; so that his conduct, which had no systematic character that might be humbling to his adversary, had still a moral character which commanded respect.
Men had, moreover, the most thorough conviction of his disinterestedness, that great light to which men so willingly trust their fate; that vast power which draws after it their hearts, while at the same time it gives them confidence that their interests will not be surrendered, either as a sacrifice or as instruments to selfishness and ambition. A striking proof of his impartiality was afforded in the choice of the persons who were to form his cabinet under the law for the formation of the executive departments.
The government being completely organized and a system of revenue established, the important duty of filling the offices which had been created remained to be performed. In the execution of this delicate trust the purest virtue and the most impartial judgment were exercised by Washington in selecting the best talents and the greatest weight of character which the United States could furnish. The unmingled patriotism of the motives by which he was actuated, receives its clearest demonstration from a view of all his private letters on this subject, and the success of his endeavors is attested by the abilities and reputation which he drew into the public service.
At the head of the Department of Foreign Affairs, since denominated the Department of State, he placed Jefferson, who had been bred to the bar, and at an early period of life had acquired considerable reputation for extensive attainments in the science of politics. He had been a distinguished member of the Second Congress and had been offered a diplomatic appointment, which he had declined. Withdrawing from the administration of Continental affairs, he had been elected Governor of Virginia, which office he filled for two years. He afterwards again represented his native State in the councils of the Union, and in the year 1784 was appointed to succeed Dr. Franklin at the court of Versailles. In that station he had acquitted himself much to the public satisfaction. His "Notes on Virginia," which were read with applause, were believed to evince the soundness of his political opinions, and the Declaration of Independence was universally ascribed to his pen. He had long been placed by America amongst the most eminent of her citizens, and had long been cla.s.sed by the President with those who were most capable of serving the nation. Having lately obtained permission to return for a short time to the United States, he was, while on his pa.s.sage, nominated to this important office, and, on his arrival in Virginia, found a letter from the President, giving him the option of becoming the Secretary of Foreign Affairs or of retaining his station at the court of Versailles. He appears rather to have inclined to continue in his foreign appointment, and, in changing his situation, to have consulted the wishes of the first magistrate more than the preference of his own mind. [8]
The task of restoring public credit, of drawing order and arrangement from the chaotic confusion in which the finances of America were involved, and of devising means which should render the revenue productive and commensurate with the demand, in a manner least burdensome to the people, was justly cla.s.sed among the most arduous of the duties which devolved on the new government. In discharging it, much aid was expected from the head of the treasury. This important, and at that time, intricate department, was a.s.signed to Colonel Hamilton.
This gentleman was a native of the Island of St. Croix, and at a very early period of life had been placed by his friends in New York.
Possessing an ardent temper, he caught fire from the concussions of the moment, and, with all the enthusiasm of youth, engaged first his pen, and afterwards his sword in the stern contest between the American Colonies and their parent State. Among the first troops raised by New York was a corps of artillery, in which he was appointed a captain. Soon after the war was transferred to the Hudson, his superior endowments recommended him to the attention of the Commander-in-Chief, into whose family, before completing his twenty-first year, he was invited to enter. Equally brave and intelligent, he continued in this situation to display a degree of firmness and capacity which commanded the confidence and esteem of his general and of the princ.i.p.al officers in the army.
After the capitulation at Yorktown, the war languished throughout the American continent and the probability that its termination was approaching daily increased.
The critical circ.u.mstances of the existing government rendered the events of the civil more interesting than those of the military department, and Colonel Hamilton accepted a seat in the Congress of the United States. In all the important acts of the day he performed a conspicuous part, and was greatly distinguished among those distinguished men whom the crisis had attracted to the councils of their country. He had afterwards been active in promoting those measures which led to the convention at Philadelphia, of which he was a member, and had greatly contributed to the adoption of the const.i.tution by the State of New York. In the preeminent part he had performed, both in the military and civil transactions of his country, he had acquired a great degree of well-merited fame, and the frankness of his manners, the openness of his temper, the warmth of his feelings, and the sincerity of his heart, had secured him many valuable friends.
To talents equally splendid and useful he united a patient industry, not always the companion of genius, which fitted him, in a peculiar manner, for subduing the difficulties to be encountered by the man who should be placed at the head of the American finances. [9]
The Department of War was already filled by General Knox, and he was again nominated to it.
Throughout the contest of the Revolution this officer had continued at the head of the American artillery, and from being the colonel of a regiment, had been promoted to the rank of a major-general. In this important station he had preserved a high military character, and on the resignation of General Lincoln had been appointed Secretary of War. To his past services and to unquestionable? integrity, he was admitted to unite a sound understanding, and the public judgment, as well as that of the chief magistrate, p.r.o.nounced him in all respects competent to the station he filled.
The office of attorney-general was filled by Edmund Randolph. To a distinguished reputation in the line of his profession, this gentleman added a considerable degree of political eminence. After having been, for several years the attorney-general of Virginia, he had been elected its Governor. While in this office he was chosen a member of the convention which framed the const.i.tution, and was also elected to that which was called by the State for its adoption or rejection. After having served at the head of the executive the term permitted by the const.i.tution of the State, he entered into its Legislature, where he preserved a great share of influence.
Such was the first cabinet council of the President. In its composition, public opinion as well as intrinsic worth had been consulted, and a high degree of character had been combined with real talent.
In the selection of persons for high judicial offices, the President was guided by the same principles. At the head of this department he placed John Jay.
From the commencement of the Revolution this gentleman had filled a large s.p.a.ce in the public mind. Remaining, without intermission, in the service of his country, he had pa.s.sed through a succession of high offices, and in all of them had merited the approbation of his fellow-citizens. To his pen, while in Congress, America was indebted for some of those masterly addresses which reflected most honor upon the government, and to his firmness and penetration was to be ascribed, in no inconsiderable degree, the happy issue of those intricate negotiations which were conducted, toward the close of the war, at Madrid and at Paris. On returning to the United States he had been appointed Secretary of Foreign Affairs, in which station he had conducted himself with his accustomed ability. A sound judgment improved by extensive reading and great knowledge of public affairs, unyielding firmness, and inflexible integrity, were qualities of which Mr. Jay had given frequent and signal proofs. Although for some years withdrawn from that profession to which he was bred, the acquisitions of his early life had not been lost, and the subjects on which his mind had been exercised were not entirely foreign from those which would, in the first instance, employ the courts in which he was to preside.
John Rutledge of South Carolina, James Wilson of Pennsylvania, William Gushing of Ma.s.sachusetts, Robert Harrison of Maryland, and John Blair of Virginia, were nominated as a.s.sociate justices. Some of these gentlemen had filled the highest law offices in their respective States, and all of them had received distinguished marks of the public confidence.