Such a step was a menace of further action, for it was plain that America could not long remain in utter isolation, and that if she left it she must join one combatant or the other. But she had as yet shown no military power outside her own bounds, either by land or sea; and England looked with scorn on the threats of a state which possessed neither army nor fleet. "America," Lord Sidmouth wrote at this time, "is a bugbear: there is no terror in her threats!" Canning indeed saw in the embargo only a carrying out of his policy by the very machinery of the American Government. The commerce of America ceased to exist. Her seamen were driven to seek employment under the British flag; and Britain again absorbed the carrying-trade of the world. But what he really looked forward to was something far beyond this. He saw that the embargo was but a temporary expedient: and he believed that its failure would force the United States into union with England in her war with France. Nothing shows the world-wide nature of the struggle more than such a policy as this; but for a while it seemed justified by its results. After a year's trial America found it impossible to maintain the embargo: and at the opening of 1809 she exchanged it for an Act of Non-Intercourse with France and England alone. But this Act was as ineffective as the embargo. The American Government was utterly without means of enforcing it on its land frontier; and it had small means of enforcing it at sea. Throughout 1809 indeed vessels sailed daily for British ports. The Act was thus effective against France alone, and part of Canning's end was gained. At last the very protest which it embodied was given up, and in May 1810 the Non-Intercourse Act was repealed altogether. All that America persisted in maintaining was an offer that if either Power would repeal its edicts, it would prohibit American commerce with the other. [Sidenote: Napoleon and Spain.]