Merry’s suspicions that some assault was to be made upon England were strengthened when Madison, December 5, in pursuance of a call from the Senate, sent a list of impressments reported to the Department during the last year. According to this paper the whole number of impressments was forty-six,--three of which were made by France and her allies; while of the forty-three made by Great Britain twenty-seven of the seamen were not American citizens. Of the entire number, twelve were stated to have had American papers; and of the twelve, nearly half were impressed on land within British jurisdiction. The grievance, serious as it was, had not as yet reached proportions greater than before the Peace of Amiens. Merry drew the inference that Jefferson’s administration meant to adopt stronger measures than had hitherto been thought necessary. He soon began to see the scope which the new policy was to take. Dec. 22, 1803, Madison opened in a formal conference the diplomatic scheme which was the outcome of these preliminary movements.[282] Beginning with a repetition of complaints in regard to impressments, and dwelling upon the great irritation created by such arbitrary acts, the secretary next remonstrated against the extent given to the law of blockade by British cruisers in the West Indies, and at length announced that the frequent repetition of these grievances had rendered it necessary for the United States to take immediate steps to find a remedy for them. Instructions would therefore be shortly sent to Monroe at London to negotiate a new convention on these subjects. The American government would wish that its flag should give complete protection to whatever persons might be under it, excepting only military enemies of the belligerent. Further, it would propose that the right of visiting ships at sea should be restrained; that the right of blockade should be more strictly defined, and American ships be allowed, in consideration of the distance, to clear for blockaded ports on the chance of the blockade being removed before they arrived; and finally that the direct trade between the West Indies and Europe should be thrown open to American commerce without requiring it to pass through a port of the United States. In return Madison offered to the British government the unconditional surrender of deserters by sea and land, together with certain precautions against the smuggling of articles contraband of war.