But all of these proceedings displayed more alarm than courage, more desperation than intelligence. Many of the defensive points were found valueless. Tools, funds, engineers and laborers fell short. The meagre donations for continuing hostilities evinced a total want of enthusiasm. The problem of obtaining enough troops, provisions and artillery to defend the town seemed more and more insoluble, and the danger not only of bombardment but of sack more and more terrible. Grandees got out their old travelling coaches, and even plain citizens began to emigrate. The government itself decided that against an army represented by American deserters as more than 16,000 strong, fully equipped, shortly to be reinforced, and soon to advance, the city could not possibly be held; and the favorite plan of the administration, the most promising that could be devised, was to buy up Scott's Irish soldiers through the priest McNamara, recently conspicuous in California, and facilitate their desertion by having Santa Anna attack Puebla. Should this fail, submission and peace appear to have been deemed inevitable.[25.5] With some exceptions rulers and people alike, wearied by decades of dissensions, oppression, scheming, robbery and illusory promises, discouraged by the passive opposition of the clergy and the wealthy classes, overwhelmed by a series of military disasters, convinced that incompetent and perhaps traitorous generals led the armies, and powerless to discern any happy omens for the country, felt neither hope nor spirit; and the kindness of the Americans, added to their invincibility, had now overcome even the instinct of race.[25.5] To heighten the confusion, a state of governmental chaos reigned. Anaya had at most but little prestige or influence, and friends of Santa Anna, angry because excluded from office, created a friction between the two that weakened both. The ministers could not coöperate harmoniously. General Bravo was given command of all the troops in the Federal District and the state of México, and Santa Anna did not want him in that important position. Congress devoted itself, when not harassing the administration, to wrangling over a new constitution, substantially that of 1824, which finally was voted on the eighteenth of May. In conscious impotence the Puros writhed and snarled; and their enemies, the Moderados, after having triumphed and brought Santa Anna to their side, now boldly paraded their dislike of him, and, by showing no concern except about retaining their power, excited hostility and contempt. Common sense was no less wanting than patriotism; and when these two parties finally agreed to save the country, their plan was--to supplement the constitution with two more articles.[25.5]