By the end of October all the Cabinet opinions were in Perceval’s hands, and he began the task of drafting the proposed orders. His original draft[69] contained an elaborate preamble, asserting that Napoleon’s decrees violated the laws of nations, which Perceval broadly maintained were binding on one belligerent only when the obligation was reciprocally acknowledged by the other; that neutrals had not resented and resisted the outrage, “nor interposed with effect for obtaining the revocation of those orders, but on the contrary the same have been recently reinforced;” that Lord Howick’s retaliatory order had served only to encourage Napoleon’s attempts; that his Majesty had a right to declare all the dominions of France and her allies in a state of blockade; but “not forgetting the interests of neutral nations, and still desirous of retaliating upon the commerce of his enemies with as little prejudice to those interests” as was consistent with his purpose, he would for the present prohibit only trade which neutrals might be disposed to pursue in submission to the French decrees, and require that such trade should pass to or from some British port. Then followed the order, which prohibited all neutral trade with the whole European sea-coast from Copenhagen to Trieste, leaving only the Baltic open. No American vessel should be allowed to enter any port in Europe from which British vessels were excluded, unless the American should clear from some British port under regulations to be prescribed at a future time. This draft was completed in the first days of November, and was sent to Lord Bathurst, President of the Board of Trade, who mercilessly criticised the preamble, and treated his colleague’s law with as little respect as though Bathurst were an American. “I wish the principle of retaliation,” wrote Lord Bathurst, “not to be unqualifiedly advanced, for which I think there is no necessity. May it not be said that in a contest with an unprincipled enemy the doctrine of retaliation is one dangerous to admit without qualifications? I own I do not like the word. If my enemy commits an act of injustice, I am not therefore justified in committing the same, except so far as may be necessary, in consequence of his act, either to protect myself from injury, or prevent a recurrence to, or continuance in, such acts of injustice. All operations of war are justified only on the principle of defence. Retaliation seems to admit something of a vindictive spirit.” The Board of Trade was not usually scrupulous in dealing with American commerce; but in this instance Earl Bathurst let it be plainly seen that he wished to have no share of responsibility for Perceval’s casuistry. The longer he studied the proposed order the less he liked it; and in the end he wrote an opinion contrary to his first. He withdrew his assent to the order altogether, and hinted some unpleasant truths in regard to it.