Owing to this general negligence of the government, and also to its anxiety on the subject of the theoretic Right of Search, many officials were kept in a state of chronic deception in regard to the trade. The enthusiasm of commanders was dampened by the lack of latitude allowed and by the repeated insistence in their orders on the non-existence of a Right of Search.[33] When one commander, realizing that he could not cover the trading-track with his fleet, requested English commanders to detain suspicious American vessels until one of his vessels came up, the government annulled the agreement as soon as it reached their ears, rebuked him, and the matter was alluded to in Congress long after with horror.[34] According to the orders of cruisers, only slavers with slaves actually on board could be seized. Consequently, fully equipped slavers would sail past the American fleet, deliberately make all preparations for shipping a cargo, then, when the English were not near, "sell" the ship to a Spaniard, hoist the Spanish flag, and again sail gayly past the American fleet with a cargo of slaves. An English commander reported: "The officers of the United States' navy are extremely active and zealous in the cause, and no fault can be attributed to them, but it is greatly to be lamented that this blemish should in so great a degree nullify our endeavours."[35] 78. ~Responsibility of the Government.~ Not only did the government thus negatively favor the slave-trade, but also many conscious, positive acts must be attributed to a spirit hostile to the proper enforcement of the slave-trade laws. In cases of doubt, when the law needed executive interpretation, the decision was usually in favor of the looser construction of the law; the trade from New Orleans to Mobile was, for instance, declared not to be coastwise trade, and consequently, to the joy of the Cuban smugglers, was left utterly free and unrestricted.[36] After the conquest of Mexico, even vessels bound to California, by the way of Cape Horn, were allowed to clear coastwise, thus giving our flag to "the slave-pirates of the whole world."[37] Attorney-General Nelson declared that the selling to a slave-trader of an American vessel, to be delivered on the coast of Africa, was not aiding or abetting the slave-trade.[38] So easy was it for slavers to sail that corruption among officials was hinted at. "There is certainly a want of proper vigilance at Havana," wrote Commander Perry in 1844, "and perhaps at the ports of the United States;" and again, in the same year, "I cannot but think that the custom-house authorities in the United States are not sufficiently rigid in looking after vessels of suspicious character."[39]