The last struggle in the West Indies.—Yorktown was the last important event on the mainland, but the fighting continued in the West Indies. On January 11, 1782, De Grasse captured St. Christopher and on the twentieth took Nevis. After receiving reinforcements, he planned the conquest of Jamaica, but the arrival of twelve ships from England so strengthened the British fleet that the project was not carried out. On April 12 Rodney defeated De Grasse in a final engagement off Dominica, an event which profoundly influenced the peace negotiations.
THE TREATY OF PEACE
Western Questions.—The conquests of George Rogers Clark, the entrance of Spain into the war, and the operations of Gálvez turned the attention of congressional leaders to peace terms. Would Spain be willing to grant the United States free navigation of the Mississippi? How much territory in the Southwest would Spain demand? Would France support Spanish pretensions? Such were the questions which disturbed American statesmen. To advance the interests of the United States, on October 4, 1779, Congress appointed John Adams peace commissioner and John Jay representative at Madrid.
Adams and Vergennes.—Adams arrived at Paris in February, 1780. He surprised Vergennes by disclosing powers to conclude treaties of peace and commerce with Great Britain. The protests and arguments of the French minister finally convinced Adams that he had better wait until he received new instructions from Congress, but he offended Vergennes by charging that France was purposely not exerting herself to the utmost. Vergennes distrusted Adams, for he thought that he represented the New England viewpoint which, Vergennes had been led to believe, was friendly to Great Britain. He informed Adams that in the future he would deal with Franklin.
Congressional instructions of June 15, 1781.—La Luzerne, the French representative at Philadelphia, made great efforts to have Adams curbed and to prevent a premature negotiation with Great Britain. In this he was assisted by the low state of affairs in the fall and winter of 1780. Congress finally decided to place the negotiations in the hands of a commission composed of Franklin, Jefferson, Jay, Adams, and Henry Laurens. Jefferson did not leave the United States and Laurens, who was captured by the British, did not arrive at Paris in time to take an important part in the negotiations. The instructions of the commissioners gave them considerable liberty of action, but they were to undertake nothing without the knowledge of the French ministers and were ultimately to be governed by their advice and opinion.
Jay in Spain.—In the meantime Jay had been having a difficult time in Spain. He was not officially received, and though granted occasional interviews by Florida Blanca, he was unable to make any progress toward the formulation of a treaty. When he was called to Paris in the summer of 1782 to take part in the peace negotiations, he had no illusions concerning the objects of Spain, objects which he seems to have believed were seconded by France.
The changed situation in 1782.—The commissioners were in a far stronger position than their instructions of 1781 implied. Yorktown had proved that American independence was assured, and Rodney's recent victory had weakened France at a time when her apparent support of Spain was liable to become troublesome. The situation in England had also changed. Lord North had fallen from power and at the head of the new ministry was Rockingham. Shelburne held the portfolio for the home and colonial departments and Fox was secretary of state for foreign affairs. This ministry held together from March until July, 1782, when Rockingham died. Fox, who had been unable to agree with Shelburne regarding the handling of American affairs, resigned, and Shelburne became Prime Minister.
Opening of negotiations with Great Britain.—On July 9, when Adams was at The Hague and before Jay had arrived, Franklin opened the negotiation with Oswald, the British agent, by presenting the basis of a treaty by which Great Britain was asked to acknowledge the independence of the United States, to settle boundaries and confine Canada within the bounds which maintained before the passage of the Quebec Act, and to acknowledge the right of Americans to fish on the Newfoundland banks and elsewhere.
Jay's suspicions of Vergennes.—The first hitch in the negotiations occurred when it was found that Oswald was instructed to conclude a peace or truce with the "colonies or plantations." On August 10 Jay and Franklin conferred with Vergennes about Oswald's commission. Jay contended that independence should be acknowledged by Great Britain before a treaty was negotiated, but Vergennes thought that this was of little consequence. When the question of conflicting Spanish and American claims was brought up, Vergennes became reticent, but his principal secretary, Rayneval, said that he thought the United States claimed too much. On September 7 Rayneval presented a memorial which proposed that the lands west of the mountains be divided into three Indian territories; lands north of the Ohio to be under the protection of Great Britain; south of the river the territory to be divided so that Spain would control the southwestern portion and the United States the northeastern part. On September 9 Jay learned that Rayneval had left secretly for England. Jay became thoroughly alarmed, for he believed that if the United States would not yield territory to Spain, Vergennes was ready to force his views by negotiating with England. Whether or not Jay was right in his suspicions has been a much argued question. No matter what the ultimate answer may be, the views of Jay became the determining factor in the course pursued by the American commissioners. Without consulting Franklin, Jay prevailed upon Benjamin Vaughan to visit Shelburne with the object of counteracting Rayneval's supposed mission and to let Shelburne know that the American commissioners were not to be bound by French views. A satisfactory commission was immediately issued to Oswald and negotiations proceeded with seriousness.
Proposal of October 8, 1782.—In October the American commissioners submitted proposals to Oswald. This preliminary draught provided that the independence of the United States be recognized by Great Britain and that the boundaries were to be as follows: "The said States are bounded north by a line drawn from the northwest angle of Nova Scotia, along the highlands which divide those rivers which empty themselves into the river St. Lawrence, from those which fall into the Atlantic Ocean, to the northernmost head of Connecticut River; thence down along the middle of that river to the 45th degree of north latitude, and thence due west in the latitude 45 degrees north from the equator, to the northwesternmost side of the river St. Lawrence...; thence straight to the south end of the Lake Nipissing, and thence straight to the source of the river Mississippi; west by a line to be drawn along the middle of the river Mississippi, from its source to where the said line shall intersect the 31st degree of north latitude; south by a line to be drawn due east from the termination of the line last mentioned, in the latitude of 31 degrees north of the equator, to the middle of the river Apalachicola or Catahouchi; thence along the middle thereof to its junction with the Flint River; thence straight to the head of St. Mary's River; thence down along the middle of St. Mary's River to the Atlantic Ocean, and east by a line to be drawn along the middle of St. John's River from its source to its mouth in the bay of Fundy...." The subjects of Great Britain and the United States were to enjoy the use of the fisheries, common commercial privileges, and the free navigation of the Mississippi. No provision was made for compensation to Loyalists, or for the collection by English merchants of debts in America.