Madison, upon whose decision even more than on that of Congress the future policy of the Government depended, would not express an emphatic opinion. A glimpse of the chaos that prevailed in the Executive Department was given in a letter from Macon to Nicholson,[317] written December 4, after Macon had offered Resolutions in the House looking to a persistence in the system of embargo and peaceable coercion:-- “Gallatin is most decidedly for war, and I think that the Vice-President [Clinton] and W. C. Nicholas are of the same opinion. It is said that the President [Jefferson] gives no opinion as to the measures that ought to be adopted. It is not known whether he be for war or peace. It is reported that Mr. Madison is for the plan which I have submitted, with the addition of high protecting duties to encourage the manufacturers of the United States. I am as much against war as Gallatin is in favor of it. Thus I have continued in Congress till there is not one of my old fellow-laborers that agrees with me in opinion.” Indecision ruled everywhere at Washington down to the close of the year. Jefferson would say nothing at all; Madison would say nothing decisive;[318] and Gallatin struggled in vain to give a show of character to the Government. December 29 one of the Massachusetts representatives wrote to a correspondent the details of the secretary’s plan:[319]-- “Yesterday I spent an hour with Mr. Gallatin, when he unfolded to me his plan,--a plan which he thinks will finally prevail. It is this: That we immediately pass a non-intercourse Act to take effect, say, June 1 next; and as the bill now reads, that it become null toward that Power which may relax. Send out the Act forthwith to England and to France, together with an Act raising the embargo partially, say, at the same time, and arming, or granting letters of marque, etc. These being made known to Great Britain and France, it is expected that the obstinate Emperor will not alter his course, but it is expected that Great Britain, when she finds the stand we deliberately take,--that we have no rebellion; that Madison and a majority of Democrats are chosen; and that we shall be fighting a common enemy (France) with her,--and when she finds that we intend living without dishonorable purchases of her goods, etc., will study her interest and relax.” The same day Gallatin wrote confidentially to Nicholson, describing the extreme anxieties he felt:[320]-- “Never was I so overwhelmed with public business. That would be nothing if we went right; but a great confusion and perplexity reign in Congress. Mr. Madison is, as I always knew him, slow in taking his ground, but firm when the storm arises. What I had foreseen has taken place. A majority will not adhere to the embargo much longer, and if war be not speedily determined on, submission will soon ensue.”