The Empress having projected the armed neutrality, she naturally wished it to have the appearance of a general regulation, and not of an attempt to serve one of the belligerent powers at the expense of the other. The strictest impartiality could alone give a dignity to her measures, or crown them with success. She further wished to be the means of re-establishing peace, and was perhaps influenced by the laudable ambition of being at the same time the great legislator and arbiter of Europe. At this critical moment it could hardly be expected, that she would publicly entertain a Minister from the United States. For though the powers at war have many collateral objects, yet it is well known, that American independence is the great question in controversy; and though a decision in favor of it might be worthy of the magnanimity of the Empress, yet it would certainly militate against her objects, and afford Great Britain an apology for considering the armed neutrality as a partial regulation; and for rejecting the mediation of a power, whom they would charge with having decided the very point in controversy. A secret agent, if his character was declared to the Russian Minister, would in a less degree have the same effects, and reduce them to the necessity of embarrassing themselves by dissimulation, or permitting us to entertain unfavorable sentiments of their impartiality by directing you to withdraw.
Your eager desire to render essential services to your country had in some measure biassed your judgment, and led you to see this matter in a different light from that in which it would have appeared to you, if your patriotism had permitted you coolly to weigh and consider circumstances. It appears by your letters of the 28th of July, the 15th of September, and 15th of October last, which have been received and read in Congress, that you entertain serious thoughts of making an immediate display of your powers to the Russian Ministry, notwithstanding the cautions given you by the Count de Vergennes, the opinion of Dr Franklin, and the advice of the Marquis de Verac, whom you are expressly directed to consult; whose lights you are interested to avail yourself of, and to sound the dispositions of the Court of Petersburg.
Congress, when they appointed you to the important and delicate mission in which you are engaged, discovered their respect for your abilities, while they meant by their instructions to guard against any inconvenience into which you might hastily run, by directing you before you declared your character, to take the advice of a Minister, whose residence at the Court of Petersburg (independent of other circumstances) gave him advantages, which an absolute stranger could not enjoy. The letters that have passed between you, confirm the propriety of this restriction. The conclusions of the Marquis de Verac on the plan of the proposed mediation are sound and just; and if you have disregarded them, there is no doubt but the event has before this time justified them to you. He has, probably, shown you the answer of France to the proposals of the mediators. You will have remarked therein, the same reasoning extended in such a manner, as fully to have convinced you that the distinction he has drawn between our treating at the same time, and our treating as an independent nation, are very well founded. It will serve too, Sir, to show that your suspicions on another point are groundless. To suppose that France would go to war for our independence, and yet not wish to see that independence recognised, is a solecism in politics. Surely every acknowledgment of this kind raises our hopes and depresses those of the enemy, and places the justice of the war, both on the part of France and of us, in a fairer point of view. But, Sir, I do not enlarge on this subject; your instructions ought to be your guide, and they evidently show, that at the time they were given, Congress meant that you should treat the Minister of France at the Court of Petersburg, with the most unreserved confidence, and that you should not declare your mission till he thought the moment favorable. They still retain the same sentiments, every day having convinced them that France makes but one interest with them in establishing their independence. That she should be delicate about advising us to solicit the notice of other Courts, is not to be wondered at, since she must partake, in some degree, of the humiliations that our ill-timed solicitations subject us to. The whole of your communications with the Count de Vergennes, marks a delicacy on the other side, about advising upon a measure, which the instructions of your sovereign should direct. It is easy to see his opinion and his apprehensions of appearing to have disapproved what Congress had thought might be advantageous to them. I conclude this, Sir, by requesting you, if you have not yet made a communication of your powers, to delay doing it till the Marquis de Verac shall agree in sentiment with you that it will be expedient, or until you shall receive farther instructions from Congress.
In the meanwhile you will employ yourself in the manner, which your instructions and my last letter advise. I can see no other line in which you can be useful in your present station. As you will have much leisure on hand, I must beg you to write weekly to this office in cypher, and to write with freedom whatever it may be useful for us to know, particularly all changes that may take place in the administration and the measures of Russia. I will not repeat what I have said on this subject in my last, a quadruplicate of which is enclosed, as is also a cypher. This letter will be consigned to Mr Adams, who will take means to forward it to you by a safe hand.
I am in great pain on account of your letter of the 28th of July, a duplicate of which is arrived. The original has miscarried; should it have fallen into improper hands it may do us very essential injury. I need not tell you how impatient I shall be to hear that this has reached you, since I cannot use my cypher till I receive a line from you written in it, nor can I write with freedom to you till I have a cypher.
Since the reduction of York, nothing important has passed in the military line. The enemy keep possession of New York, Charleston, and Savannah, though they have not strengthened either of the garrisons. They are consequently much weakened; if, as we expect, we shall have a naval support, we have no doubt of being able to expel them this campaign from the continent. Our effective force, exclusive of militia, which we can call in as we want them, including four thousand five hundred French troops, amounts to about twenty thousand men.
They are hardy veterans, well disciplined, well armed, well clad, and well fed. Our finances have assumed a new form, and are every day becoming more respectable by the total abolition of paper, except that of the bank, payable in specie at sight. You have doubtless heard of the late change in the British administration. Sir Guy Carleton has come out in the place of Sir Henry Clinton, and we have reason to believe, that the present system is to endeavor by lenient measures, to seduce us from our alliance with France, and to cajole us out of that freedom, which they find they cannot force us to relinquish. It is astonishing to see the contempt with which these attempts are received. The only effect they have, is to convince us of the declining strength of the enemy, and to excite a general determination to push them with vigor before they recover their late blow. I enclose the last resolution of Congress, organizing this office, that you may, by seeing my powers, know what attention you are to pay to my letters, which will consist of two sorts; the one written by me without consulting Congress, in which, however, I shall always govern myself by what I suppose to be their sentiments; the other, written and submitted to their inspection, so that you may have the highest evidence of its corresponding with their views. When this is the case, I shall always inform you of it. This letter has been read in Congress, and of course contains no instructions, which they disapprove. I shall send you a packet of newspapers with this.
I should have told you, that your salary will in future be paid here. I shall receive it as your agent, and vest it in bills on Dr Franklin, and remit them to him, so that you may draw upon him quarterly. I shall send him one quarter's salary by this conveyance, commencing the 1st of January last, and ending the 1st of April last, and considering myself as the agent of all our foreign Ministers, I shall follow your directions relative to the disposition of your appointment, until you shall think it expedient to name another.
Your most obedient humble servant,
ROBERT R. LIVINGSTON.