Meantime the army, by whose toils and sufferings the country had been carried through the perils of the Revolution, remained unpaid, apparently disregarded by Congress and by the people whom they had delivered from oppression. It seemed probable that they would speedily be disbanded, without any adequate provision being made by Congress for the compensation which was due to them, and which had been solemnly promised by repeated acts of legislation. They were very naturally discontented. Their complaints and murmurs began to be ominous of very serious consequences. They even began to question the efficiency of the form of government, which appeared to be unfitted for meeting the first necessities of the country—the maintenance and pay of its military force. They began to consider the propriety of establishing a more energetic form of government, while they still had their arms in their hands. Colonel Nicola, an able and experienced officer, who stood high in Washington's estimation, and had frequently been made the medium of communication between him and the officers, was chosen as the organ for making known their sentiments to him on the present occasion. In a letter carefully written, after commenting upon the gloomy state of public affairs, the disordered finances, and other embarrassments occasioned by the war, all caused by defective political organization, he proceeded to say: "This must have shown to all, and to military men in particular, the weakness of republics, and the exertions the army have been able to make by being under a proper head. Therefore, I little doubt that, when the benefits of a mixed government are pointed out and duly considered, such will be readily adopted. In this case it will, I believe, be uncontroverted that the same abilities which have led us through difficulties, apparently insurmountable by human power, to victory and glory, those qualities that have merited and obtained the universal esteem and veneration of an army, would be most likely to conduct and direct us in the smoother paths of peace. Some people have so connected the ideas of tyranny and monarchy as to find it very difficult to separate them. It may, therefore, be requisite to give the head of such a constitution as I propose some title apparently more moderate; but, if all things were once adjusted, I believe strong arguments might be produced for admitting the name of King, which I conceive would be attended with some material advantages."
The answer of Washington to this communication was in the following terms:
"NEWBURG, 22d May, 1782.
"SIR.—With a mixture of great surprise and astonishment, I have read with attention the sentiments you have submitted to my perusal. Be assured, sir, no occurrence in the course of the war has given me more painful sensations than your information of there being such ideas existing in the army as you have expressed, and I must view with abhorrence and reprehend with severity. For the present, the communication of them will rest in my own bosom, unless some further agitation of the matter shall make a disclosure necessary.
"I am much at a loss to conceive what part of my conduct could have given encouragement to an address, which to me seems big with the greatest mischiefs that can befall my country. If I am not deceived in the knowledge of myself, you could not have found a person to whom your schemes are more disagreeable. At the same time, in justice to my own feelings, I must add, that no man possesses a more sincere wish to see ample justice done to the army than I do; and as far as my powers and influence, in a constitutional way, extend, they shall be employed, to the utmost of my abilities, to effect it, should there be any occasion. Let me conjure you, then, if you have any regard for your country, concern for yourself or posterity, or respect for me, to banish these thoughts from your mind, and never communicate, as from yourself or any one else, a sentiment of the like nature.
"I am, sir, &c.,
"GEORGE WASHINGTON."
This was the language of Washington at a time when the army was entirely devoted to him, when his popularity was equal to that of Cromwell or Napoleon in their palmiest days. Certain officers of the army were ready, at a word, to make him king; and the acknowledged inefficiency of the existing government would have furnished a plausible reason for the act. But Washington was not formed of the material that kings are made of. Personal ambition he despised. To be, not to seem great and good was his aim. To serve, and not to rule his country was his object. He was too true a patriot to assume the power and title of a monarch.
Early in May (1782) Sir Guy Carleton, who had succeeded Sir Henry Clinton in the command of all the British forces in the United States, arrived at New York. Having been also appointed, in conjunction with Admiral Digby, a commissioner to negotiate a peace, he lost no time in conveying to Washington copies of the votes of the British Parliament, and of a bill which had been introduced on the part of the administration, authorizing the King to conclude a peace or truce with those who were still denominated "the revolted Colonies of North America." These papers, he said, would manifest the dispositions prevailing with the government and people of England toward those of America, and, if the like pacific temper should prevail in this country, both inclination and duty would lead him to meet it with the most zealous concurrence. He had addressed to Congress, he said, a letter containing the same communications, and he solicited a passport for the person who should convey it.