“I believe that France ought not to take this declaration in its literal sense, because its apparent object would be only nominal, and not in the intention of the legislators. I know that such is now their disposition; and although it is conceded that the number of Federalists will be greater in the next Congress than in this, yet the Administration will always have a great majority in the House, and a still greater in the Senate. I am in such close relations with the greater number of senators as not to be deceived in regard to their intentions. But in this case, too, it would be necessary that France should not answer the challenge of war, and should wait until the first hostilities had taken place between England and the United States. Then I shall hope that the declaration against France will be immediately withdrawn. I have reason to believe that a declaration of war against France as well as against England will take place only with the intention of reaching this last Power without too much shocking public opinion, and in order to avoid the reproach of too much partiality toward the first. Your Excellency can, from this, form an idea of the weakness of Congress, and of the disposition of the American people.”[343] This despatch, written in the middle of January, completed the diplomatic manœuvres by which Madison hoped to unite his foreign with his domestic policy. The scheme was ingenious. Even if it should fail to wring concessions from Canning, hostilities would result only in a cheap warfare on the ocean, less wearisome than the embargo,--a war which, so far as concerned the continent of Europe, would rather benefit than injure commerce; but a policy like this, at once bold and delicate, required the steady support of a vigorous Congress. Neither Erskine nor Turreau told the full strength of the difficulties with which Madison and Gallatin struggled within their own party; or that while the new Administration was laboring to build up a new policy, the Federalists had already laid their hands on the material that the new policy needed for its use.