Some American policy must be formulated. War seemed to Jefferson unnecessary, and he therefore attempted three other remedies, which in a measure neutralized each other. The first was to provide some kind of defence. To build new vessels seemed to him an invitation to the English navy to swoop down and destroy them. To fortify the coasts and harbors properly would cost fifty millions of dollars. He proposed, therefore, to lay up the navy and to build a fleet of gunboats, to be hauled up under sheds in time of peace, but if war came, to be manned by a naval militia and to repel the enemy. Between 1806 and 1812 one hundred and seventy-six gunboats were built. They never rendered any considerable service, and took $1,700,000 out of Gallatin's surplus. [Sidenote: Pinkney treaty.] The second part of Jefferson's policy was to negotiate with England for a new treaty. The conditions upon which he insisted were impossible, and Pinkney and Monroe, therefore, in December, 1806, made the best terms they could: there was no article against impressment; they surrendered the principle that free ships make free goods; they practically accepted the rule of 1756. The treaty was so unacceptable that Jefferson never submitted it to the Senate; and thenceforward to the War of 1812 we had only such commercial privileges as England chose to grant. [Sidenote: Non-importation act.] The only remaining arrow in Jefferson's quiver was the policy of commercial restriction. On April 18, 1806, an act was Passed by which, after November 15, the importation of manufactured goods from England and English colonies was forbidden. Even this was suspended on December 29. [Sidenote: "Leopard" and "Chesapeake."] [Sidenote: The Americans aroused.]