Neither the battle between the “Enterprise” and “Boxer,” nor any measures that could be taken by sea or land, prevented a constant traffic between Halifax and the New England ports not blockaded. The United States government seemed afraid to interfere with it. The newspapers asserted that hundreds of Americans were actually in Halifax carrying on a direct trade, and that thousands of barrels of flour were constantly arriving there from the United States in vessels carrying the Swedish or other neutral flag. In truth the government could do little to enforce its non-intercourse, and even that little might prove mischievous. Nothing could be worse than the spirit of the people on the frontier. Engaged in a profitable illicit commerce, they could only be controlled by force, and any force not overwhelming merely provoked violence or treason. The Navy Department had no vessels to send there, and could not have prevented their capture if vessels in any number had been sent. The Secretary of War had abandoned to the State governments the defence of the coast. When Armstrong allotted garrisons to the various military districts, he stationed one regiment, numbering three hundred and fifty-two effectives, besides two hundred and sixty-three artillerists, in Military District No. 1, which included the whole coast north of Cape Cod, with the towns of Boston, Marblehead, Salem, Gloucester, Portsmouth, Portland, and Eastport. Such a provision was hardly sufficient for garrisoning the fort at Boston. The government doubtless could spare no more of its small army, but for any military or revenue purpose might almost as well have maintained in New England no force whatever. CHAPTER XII. DURING the month of April, 1813, four American frigates lay in Boston Harbor fitting for sea. The “President” and “Congress” returned to that port Dec. 31, 1812. The “Constitution,” after her battle with the “Java,” arrived at Boston February 27, 1813. The “Chesapeake” entered in safety April 9, after an unprofitable cruise of four months. The presence of these four frigates at Boston offered a chance for great distinction to the British officer stationed off the port, and one of the best captains in the service was there to seize it. In order to tempt the American frigates to come out boldly, only two British frigates, the “Shannon” and “Tenedos,” remained off the harbor. They were commanded by Captain P. B. V. Broke of the “Shannon.” Broke expected Rodgers with his ships, the “President” and “Congress,” to seize the opportunity for a battle with two ships of no greater force than the “Shannon” and “Tenedos;” but either Rodgers did not understand the challenge or did not trust it, or took a different view of his duties, for he went to sea on the night of April 30, leaving Broke greatly chagrined and inclined to be somewhat indignant with him for escaping.[400]