For neither the English nation nor the English Government were wholehearted in the war. It was of the nature of a civil war, with little to appeal to on the English side. It is true that it was for a time popular in England, that the intervention of France prolonged its popularity, and that the outrageous extravagances of Fox and other extreme Whigs also tended to provoke honest patriotism in favour of the Government and their policy; but it was not truly a nation’s war, guided by the nation’s chosen leaders. Not only was there strong opposition to it in England, for reasons which have already been given, strong especially in the personality of men like Chatham and Burke who opposed it, but the ministry themselves showed that their heart was not in their work. Twice in the middle of the struggle they tried to make peace. In 1776, the brothers Howe at New York, Whigs themselves, were commissioned to open negotiations with the colonists: but their powers in granting concessions were far too limited to satisfy opponents, who had already, on the 4th of July in that year, declared for independence. Again in 1778, under an Act of Parliament, specially passed for the purpose, commissioners were appointed to negotiate for peace. They were five in number, two being, as before, the brothers Howe,[104] and the other three being delegates specially sent out from home. This time ample powers were given to make concessions, but the situation was wholly changed. Burgoyne had surrendered in the preceding autumn, the French had joined hands with the colonists, and Philadelphia was being evacuated by the British troops. Had the commissioners been sent out after some striking success on the side of England, offering generous terms from a strong and resolute nation, they might have gained a hearing, and the proffered concessions might have been accepted. Under the circumstances the mission was interpreted as a sign of weakness, and the messages which were brought were treated with contempt. [Sidenote: and of the generals.]