important services to the confederacy, and sustained with the greatest
distinction, the office of President of Congress, that body had
intrusted you with the important care of conducting their affairs in
Spain, and in the principal Courts of Europe.
I have resided in America five years, as Minister Plenipotentiary of
the King to Congress, and though indeed I cannot but be well satisfied
with the kindness and the confidence, which that illustrious body have
ever shown me, I have always regretted, that you were not during that
period one of its members. You departed from Europe when I returned to
it. At that time I flattered myself, that I should again see you in
America, and resume my duties there. But his Majesty has thought fit
to give me another destination. Will you have the goodness to present
to Congress my letters of recall, and to express to that body for me
the high sentiments of respect and veneration, with which I have long
regarded them. Allow me also to request your Excellency to accept the
assurances of the attachment and consideration, with which I have the
honor to be, &c.
LUZERNE.
THE
CORRESPONDENCE
OF
ROBERT R. LIVINGSTON;
SECRETARY OF FOREIGN AFFAIRS.
For more than five years from the commencement of the Revolution, the
foreign concerns of Congress were transacted through a committee,
which was first appointed on the 29th of November, 1775, and called
the _Committee of Secret Correspondence_. It was their duty to
correspond with all the American Agents, Commissioners, and Ministers
abroad, to report to Congress on these matters from time to time, and
receive such instructions from that body as occasion required. It is
to be understood, however, that in this respect they acted only a
subordinate part, for it was customary for the Ministers abroad to
direct their letters to the President of Congress. After having been
read in that Assembly, they were put into the hands of the Committee,
whose business it was to answer them. On account of the absence of the
members, the committee itself was frequently very thin, and sometimes
for weeks together not more than one member was present at the seat of
Government. Hence responsibility rested nowhere, and it is no wonder
that delays, neglect, and ill management were the consequences.
Various causes retarded the adoption of a better system, but chiefly
the warmth of party and internal jealousies, which prevailed within
the walls of Congress for a long time, and too often defeated measures
of essential importance, when there was a probability that they would
throw a new weight of power into a scale of doubtful preponderance. To
this state of circumstances it is in a great degree to be attributed,
that no plan for a regular Department of Foreign Affairs was resolved
upon till the 10th of January, 1781, and that no person was appointed
to fill the office thus created till seven months later. On the 10th
of August, ROBERT R. LIVINGSTON was chosen _Secretary of Foreign
Affairs_, but he did not enter upon the duties of the Department till
the 20th of October.
From this date a salutary change found its way into the management of
Foreign Affairs. To abilities and other qualifications well suited to
the station, Mr Livingston added energy, diligence, and promptitude,
as his numerous letters on a great variety of topics abundantly
testify. We hear no more complaints from the Ministers abroad, that
their letters are forgotten and unanswered, or that they receive no
intelligence nor instructions from home.
The details of the Department were so modified, after he accepted the
appointment, as to embrace Domestic Affairs to a certain extent. He
was to correspond with the President of Congress, the Governors of the
States, the Commander in Chief, and generally with all persons on
topics in any manner connected with the primary objects of his office.
His letters to the American Ministers at Foreign Courts, and to the
French Ministers in this country, have already been printed in the
correspondence of those persons respectively. This order was thought
preferable, as the continuity of the subjects embraced in the
different branches of correspondence would thus be more distinctly
preserved. The letters, which follow, are chiefly to the President of
Congress, and to other officers and persons, who were in the United
States at the time they were written.
Mr Livingston continued a little short of two years in the Department
of Foreign Affairs. He resigned in June, 1783.
THE
CORRESPONDENCE
OF
ROBERT R. LIVINGSTON.
* * * * *
ORGANIZATION OF A FOREIGN DEPARTMENT.
In Congress, January 10th, 1781.
Congress took into consideration the report of the committee appointed
to consider and report a plan for the Department of Foreign Affairs,
wherein they state,
That the extent and the rising power of these United States, entitle
them to a place among the great potentates of Europe, while our
political and commercial interests point out the propriety of
cultivating with them a friendly correspondence and connexion;
That to render such an intercourse advantageous, the necessity of a
competent knowledge of the interests, views, relations, and systems of
those potentates, is obvious;
That a knowledge, in its nature so comprehensive, is only to be
acquired by a constant attention to the state of Europe, and an
unremitted application to the means of acquiring well grounded
information;
That Congress are moreover called upon to maintain with our Ministers
at foreign Courts a regular correspondence, and to keep them fully
informed of every circumstance and event, which regards the public
honor, interest and safety;
That to answer those essential purposes, the committee are of opinion,
that a fixed and permanent office for the Department of Foreign
Affairs ought forthwith to be established, as a remedy against the
fluctuations, the delay and indecision to which the present mode of
managing our foreign affairs must be exposed; whereupon,
_Resolved_, That an office be forthwith established for the Department
of Foreign Affairs, to be kept always in the place where Congress
shall reside;
That there shall be a Secretary for the despatch of business of the
said office, to be styled "Secretary of Foreign Affairs;"
That it shall be the duty of the said Secretary to keep and preserve
all the books and papers belonging to the Department of Foreign
Affairs; to receive and report the applications of all foreigners; to
correspond with the Ministers of the United States at foreign Courts,
and with the Ministers of foreign powers and other persons, for the
purpose of obtaining the most extensive and useful information
relative to foreign affairs, to be laid before Congress when required;
also to transmit such communications, as Congress shall direct, to the
Ministers of the United States and others at foreign Courts, and in
foreign countries; the said Secretary shall have liberty to attend
Congress, that he may be better informed of the affairs of the United
States, and have an opportunity of explaining his reports respecting
his Department; he shall also be authorised to employ one, or, if
necessary, more clerks to assist him in the business of his office;
and the Secretary, as well as such clerks, shall, before the President
of Congress, take an oath of fidelity to the United States, and an
oath for the faithful execution of their respective trusts.
* * * * *
APPOINTMENT OF A SECRETARY OF FOREIGN AFFAIRS.
In Congress, August 10th, 1781.
Congress proceeded to the election of a Secretary of Foreign Affairs;
and, the ballots being counted, Robert R. Livingston was elected,
having been previously nominated by Mr Floyd.
* * * * *
TO MAJOR GENERAL NATHANIEL GREENE.
Philadelphia, October 20th, 1781.[20]
Dear Sir,
Congress having done me the honor to appoint me their Secretary of
Foreign Affairs, and made it my duty to collect and transmit such
intelligence as may be useful to our Ministers, I take the liberty to
open a correspondence with you. From the past, I have reason to hope,
that your future operations will furnish the most agreeable and useful
information at foreign Courts; for nothing is more incontrovertibly
true, than that splendid victories and a wise Administration at home,
are the best negotiators abroad.
Give me leave, Sir, to congratulate you upon your success. We have
reason to hope, that it will be attended with the most important
consequences, more especially, if as we may expect, the Commander in
Chief should be enabled to make a considerable addition to the brave
corps you command.
The enemy have sailed from New York with twentysix ships of the line,
including three of fifty guns, having on board their ships of war five
thousand land forces, in order to attempt the relief of Cornwallis.
For that, happily, they are too late; but as sympathising friends
afford consolation to the distressed, he may possibly derive some
comfort from their sharing, at least in part, his fate.
I have the honor to be, &c.
ROBERT R. LIVINGSTON.
FOOTNOTES:
[20] Although Mr Livingston was appointed Secretary of Foreign Affairs
on the 10th of August, he did not enter on the duties of the office
till this day. See his letter to John Adams, in Mr Adams's
_Correspondence_, Vol. VI. p. 178.
* * * * *
TO GOVERNOR GEORGE CLINTON OF NEW YORK.
Philadelphia, October 22d, 1781.
Dear Sir,
Give me leave to congratulate your Excellency, and through you the
Legislature of our State, on the success of our arms at the southward.
Cornwallis surrendered his army on the 17th of October. Count de
Grasse was employed on the 18th in taking his marines on board, which
I hope, by the blessing of Heaven, will be the prelude to a second
victory.
My removal being far from having in any manner lessened my attachment
to New York, I shall be anxious to hear that the present attempt of
the enemy upon our frontiers, has only added to their disgrace, and
enabled my countrymen to increase the reputation they have so justly
acquired. Your Excellency will do me the honor to give me the earliest
intelligence of the movements of the enemy.
I am, Sir, with the greatest respect and esteem, &c.
ROBERT R. LIVINGSTON.
* * * * *
TO THE PRESIDENT OF CONGRESS.
Philadelphia, October 29th, 1781.
Sir,
The business of the department in which Congress have been pleased to
place me, rendering it necessary to have recourse to the Secret
Journals, and other books and papers in the possession of their
Secretary, I take the liberty to request them by their order, to
enable Mr Thomson to admit me to examine, and copy from such books of
a secret nature in his possession, as may in anywise relate to the
department of Foreign Affairs.
I have the honor to be, &c.
ROBERT R. LIVINGSTON.
* * * * *
CIRCULAR TO THE GOVERNORS OF THE STATES.
Philadelphia, November 12th, 1781.
Sir,
Congress some time since, called upon the different States to make
returns of the damage done by the enemy within each of them, by the
wanton destruction of property, and no measures, that I can learn,
have as yet been taken to ascertain such damage, though as your
Excellency will easily conceive, it may become an important object of
inquiry, whenever a treaty shall be set on foot for a general
pacification, or be made to answer valuable purposes during the war,
by showing our enemies in their true light to the nations of Europe.
In this view, I think it my duty to endeavor to collect them, and you
will, Sir, I am persuaded, take the necessary measures to send as soon
as possible, returns from the State over which you preside. I could
wish to have the damages, (particularly that to real property,)
ascertained by the affidavits of people of known characters, and
duplicate copies of such affidavits transmitted to my officers, under
the great seal of your State, and, if possible, accompanied with a
short recital of each transaction, so that it may at once appear,
whether the injuries were such as the laws of war justified, or
whether they originated only in the malice and cruelty of the enemy.
Your Excellency will oblige me, and serve the public, by transmitting
to me accounts of every occurrence, in which the United States are
materially interested, which may arise within your government, or
which you may derive from your correspondents abroad.
I have the honor to be, with great respect and esteem, &c.
ROBERT R. LIVINGSTON.
* * * * *
TO THE PRESIDENT OF CONGRESS.
Philadelphia, November 18th, 1781.
Sir,
The subject mentioned in the letters of Mr Adams, and their
enclosures, requiring their express direction, I humbly submit to the
consideration of Congress.
In Dr Franklin's letter of the 6th of August to Mr Adams, he informs
him, "that he cannot depend on receiving any more money in France
applicable to the support of the Ministers of Congress, and that what
aids are thereafter granted, will probably be transmitted by the
government directly to America." Congress need no arguments to
convince them of the disgrace and danger of permitting their most
confidential servants to be necessitous in a foreign country.
I will with their approbation, concert with the Superintendent of
Finance, the means of supplying our Ministers, Agents, and
Secretaries. But to facilitate these means, and convince the powers to
whom we are indebted for money, that we know the value of their aids,
I would humbly submit to Congress the propriety of practising the
strictest economy, as far as it may be consistent with their honor,
and the justice due to those they employ. That Congress may determine
the more readily whether their establishment will admit of any
reduction, or devise the most effectual means of defraying the expense
of it, I take the liberty to lay before them the annual amount of the
salaries of their servants now abroad.
If I am well informed, it is usual to distinguish the allowances to
Ministers by the expenses of the country in which they live, and the
character they are obliged to support. Such a rule would be
productive of great saving to us, whose policy it is to have agents
without any acknowledged public characters, at Courts which refuse to
receive our Ministers. How far so important a station as that of
Secretary to an Embassy might be supplied by private secretaries with
moderate salaries, at least till the existence of the Embassy was
acknowledged, must be submitted to the wisdom of Congress. Certain it
is, that foreigners who may not be acquainted with the dignified
characters of those we employ abroad as secretaries, will be surprised
to find their emoluments equal, if not exceeding those allowed by the
richest potentates in Europe, and that too, when the great object of
the mission is to represent our wants, and solicit supplies for civil
and military establishments at home.
Perhaps, too, from the ground on which the successful issue of this
campaign has placed us, Congress may see it improper to solicit
Courts, who are so little disposed to serve us as those of Petersburg
and Lisbon, or to expend additional sums of money on agencies to
Russia or Portugal.
Another part of the despatches referred to me, are those that relate
to John Temple, to which Congress alone are competent to give
directions. The reports currently circulated in England relative to
his first mission, his coming by way of New York, his return to
England, his abode there, his present visit to America, render him an
object of attention, not only to the people of this country, but to
those of Europe, and give weight to those suspicions of attachment to
England, which, as it is her policy to keep up, it should be ours on
every occasion to discourage. Congress will judge how far it is proper
to suggest any measures to the State of Massachusetts. I take the
liberty to submit to them, whether at least it would not be expedient
to adopt such resolutions as would leave the Executive of that State
uninfluenced in their conduct towards him, by his being the bearer of
public despatches. Congress will observe, that I have no personal
acquaintance with Mr Temple, nor any knowledge of facts, which would
lead me to suspect his principles, other than the matters, which are
above stated and publicly known.
I have the honor to be, &c.
ROBERT R. LIVINGSTON.
* * * * *
TO THE PRESIDENT OF CONGRESS.
Philadelphia, November 25th, 1781.
Sir,
I enclose to Congress the heads of the communication, which I had the
honor to make to them on the 23d, as far as I could obtain permission
from the Minister of France to reduce them to writing. There is but
one omission, the reason of which was assigned at the time I made the
verbal communication. I also enclose an extract of a letter from the
Count de Vergennes to the Minister of France, as translated and
communicated to me by him, which I have thought it necessary to submit
to the perusal of the Superintendent of Finance.
I am at a loss to judge whether Congress intended in their reference
of General Duportail's letter, that I should report to them, or write
to Dr Franklin on the subject myself; supposing the latter to have
been the case, I have accordingly written; but lest I may have been
mistaken, I submit my letter to their inspection, and if it is not
conformable to their intentions, I beg to be honored with their
further direction.
I have the honor to be, &c.
ROBERT R. LIVINGSTON.
* * * * *
GENERAL GREENE TO ROBERT R. LIVINGSTON.
Camp Round O, South Carolina, }
December 13th, 1781. }
Dear Sir,
Your favor of the 22d of October came to hand a day or two since.
I shall be happy to communicate anything from this quarter, that may
be useful to you, or to our affairs abroad, and I have the pleasure to
inform you, that we have complete possession of all the Southern
States, Charleston and Savannah excepted.
Civil government is established in Georgia, and the Assembly of South
Carolina will set the 1st of next month, at Camden. We are making
preparations for the siege of Charleston, and are not altogether
without hopes of obliging the enemy to abandon the place, even if our
good ally should not be able to co-operate with us. The tyrant of
Syracuse was never more odious than the British army in this country.
Even the slaves rejoice, and feel a kind of freedom from oppression,
in the return of their masters.
I beg leave to congratulate you upon our late glorious success in
Virginia, and upon your own appointment of Minister of Foreign
Affairs.
I have the honor to be, &c.
NATHANIEL GREENE.
* * * * *
TO THE PRESIDENT OF CONGRESS.
Philadelphia, January 18th, 1782.
Sir,
I do myself the honor to submit to the inspection of the United
States, in Congress, an affidavit made by Mr Marshall on the subject
of Mr Deane's letters, and have directed copies of the letters and
affidavit to be made out for the Minister of his Most Christian
Majesty, and the Superintendent of Finance. Measures have long since
been taken to put our Ministers upon their guard against Mr Deane. I
shall add to them, as opportunities offer, the new proofs which these
letters furnish of his defection. Copies will also be sent to the
Governor of Connecticut, unless the Representatives of that State, in
Congress, who propose to make them the ground of judicial proceedings,
should prefer taking copies to be examined and compared with the
original, by a person who could prove such examination, or to
authenticate them in any other way, which will ensure their being
received as evidence conformably to the practice of their Courts.
I had proposed to mention them in my correspondence with the first
Magistrates of the respective States, as affording proofs of the
distant prospect of peace, and the necessity of relying only upon our
own exertions to procure it, but am deterred from this measure, by the
weight which it might possibly give to Mr Deane's ill founded
assertions.
I shall endeavor to conform to the views of the United States, in any
further direction with which they may please to honor me.
I have the honor to be, &c.
ROBERT R. LIVINGSTON.
* * * * *
TO GOVERNOR JONATHAN TRUMBULL OF CONNECTICUT.
Philadelphia, January 22d, 1782.
Sir,
I do myself the honor to enclose certified copies of two letters from
Silas Deane, which serve in some measure to authenticate those that
have been published in his name, and strongly mark such a change in
his sentiments and principles as is worthy of the attention of the
State of which he is a citizen. The originals are lodged in this
office, to which your Excellency may at any time apply, if such copies
should be required, as would amount to legal evidence; I have also
enclosed a copy of an affidavit of Mr Marshall to prove the identity
of the letters, and his having received them from Silas Deane.
I some time since did myself the honor to write to you, relative to
the damage done by the enemy in your State, to that letter I have not
been as yet favored with an answer. Your Excellency will easily see
the propriety of keeping up a correspondence with this office, since
there are so many inferior objects, which escape the general attention
of Congress, which it may be extremely useful to detail in our
negotiations. Such, for instance, as an authentic account of the
cruelties committed by the British at New Haven. Nor is it of less
moment to be minutely informed by every State of the resources for
carrying on the war, the means used to call out those resources, the
temper and disposition of the people with respect to them. With a view
of obtaining these from you at your leisure, I have taken the liberty
to open this correspondence with your Excellency. I persuade myself
you will not put the trouble it may give you in competition with the
slightest advantage, that our country may obtain from it. I shall in
return give you from time to time, such European news as we may
receive here, which I conceive will contribute either to your
amusement or the advantage of your State.
And as I have nothing positive at present, let me inform you, what I
would wish every State to know, that we have not as yet any
intelligence, that leads to a speedy peace, so that we have every
reason to expect another campaign, and a campaign too, that will call
for our greatest exertions.
I have the honor to be, &c.
ROBERT R. LIVINGSTON.
* * * * *
TO THE PRESIDENT OF CONGRESS.
Philadelphia, January 25th, 1782.
Sir,
In the first organization of a new Department, some things are
frequently omitted, which experience will show ought to be inserted,
and many inserted which might be omitted; it becomes the duty of
those, who are placed at the head of such Departments, to mention the
difficulties that may arise from these causes, and leave it to the
wisdom of Congress to alter them, or to judge whether they can be
changed without introducing greater inconveniences. Upon this
principle, Sir, I am induced to offer the following observations.
The Secretary of Foreign Affairs is to correspond with the Ministers
of the United States at foreign Courts, and with the Ministers of
foreign powers. This correspondence must necessarily detail such
sentiments as the sovereign wishes to have known, and lead to such
inquiries as they choose to make. An intimate knowledge of their
sentiments is, therefore, absolutely necessary to a discharge of this
duty; and we accordingly find, that the Minister of Foreign Affairs
is, in monarchical governments, considered as the most confidential
servant of the Crown. In Republics, it is much more difficult to
execute this task, as the sentiments of the sovereign sometimes change
with the members, which compose the sovereignty. It is more frequently
unknown, because no occasion offers, on which to call it forth. It is
never perfectly expressed but by some public act. Waiting for this
time, the advantages of embracing a favorable opportunity are
frequency lost. There are numberless minutiæ, upon which no act is
formed, and about which, notwithstanding their sentiments should be
known to their Ministers, there are even occasions, in which their
Secretary should speak a sentiment, which it would be improper for
them to declare by a public act.