Gallatin sent to the President a remarkable paper,[58] in substance an argument for peace, and in tenor a criticism of the grounds which Jefferson, Madison, Monroe, Livingston, and Pinckney had thought proper to take in their dispute with Spain. Gallatin held that, owing to the “unpardonable oversight or indifference” of Livingston and Monroe in failing to insist on a boundary to Louisiana, the United States government was debarred from holding Spain responsible for the inevitable consequences of its own fault. Neither Spain’s qualified refusal to ratify the claims convention of 1802 nor her rejection of the French spoliation claims would justify war. As a matter of abstract justice, war was not to be defended; as a matter of policy, it could not be recommended. The expense and loss would exceed the value of Florida; the political result would entangle America in alliance with England; and, “in fine, a subversion of all our hopes must be the natural consequence.” Renewal of negotiation was the proper step, with the Sabine and Perdido as boundaries and a temporary arrangement under the _status quo_, acceptance of the Spanish condition precedent to ratifying the claims convention, and insistence against the new spoliations which French and Spanish privateers were daily making on American commerce in the West Indies. Pending the result of this negotiation Congress might spend some money on the militia, and might appropriate a million dollars annually to build ships of the line. In effect, Gallatin threw his influence on the side of Madison against the President’s semi-warlike views. The opinion of Robert Smith did not weaken the force of Gallatin’s reasoning. Already a perceptible division existed in the Cabinet between the Treasury and the Navy. Hardly three months before the Spanish embarrassment, Gallatin had spoken to the President in strong terms of Robert Smith’s administration, and had added,[59]-- “On this subject,--the expense of the Navy greater than the object seemed to require, and a merely nominal accountability,--I have, for the sake of preserving perfect harmony in your councils, however grating to my feelings, been almost uniformly silent.” Smith’s present views tended to confirm Gallatin in his irritation, and to reconcile Jefferson to abandoning his energetic schemes. The Secretary of the Navy said that throughout these negotiations Spain had presumed much on American predilection for peace, and on the want of means to annoy her either by land or by water. He urged the necessity of working on her fears, and advised that Congress be recommended to provide additional gunboats, to put all the frigates in commission, and to build twelve seventy-fours. With these means he was disposed to take a commanding attitude; and if Spain were supported by France, to make an alliance with England.[60]