ORGANIZATION OF THE NEW GOVERNMENT.
The eyes of the world were upon Washington at the commencement of his administration. He had won laurels in the field; would they continue to flourish in the cabinet? His position was surrounded by difficulties. Inexperienced in the duties of civil administration, he was to inaugurate a new and untried system of government, composed of States and people, as yet a mere experiment, to which some looked forward with buoyant confidence, many with doubt and apprehension. The constitution had met with vehement opposition, when under discussion in the General and State governments. Only three States, New Jersey, Delaware and Georgia, had accepted it unanimously. Several of the most important States had adopted it by a mere majority; five of them under an expressed expectation of specified amendments or modifications; while two States, Rhode Island and North Carolina, still stood aloof.
The very extent of the country he was called upon to govern, ten times larger than that of any previous republic, must have pressed with weight upon Washington's mind. It presented to the Atlantic a front of fifteen hundred miles, divided into individual States, differing in the forms of their local governments, differing from each other in interests, in territorial magnitudes, in amount of population, in manners, soils, climates and productions, and the characteristics of their several peoples. Beyond the Alleghanies extended regions almost boundless, as yet for the most part wild and uncultivated. Vast tracts, however, were rapidly being peopled, and would soon be portioned into sections requiring local governments. The great natural outlet for the exportation of the products of this region of inexhaustible fertility, was the Mississippi; but Spain opposed a barrier to the free navigation of this river. Here was peculiar cause of solicitude. Before leaving Mount Vernon, Washington had heard that the hardy yeomanry of the far West were becoming impatient of this barrier, and indignant at the apparent indifference of Congress to their prayers for its removal. He had heard, moreover, that British emissaries were fostering these discontents, sowing the seed of disaffection, and offering assistance to the Western people to seize on the city of New Orleans and fortify the mouth of the Mississippi; while, on the other hand, the Spanish authorities at New Orleans were represented as intriguing to effect a separation of the Western territory from the Union, with a view or hope of attaching it to the dominion of Spain.
Great Britain, too, was giving grounds for territorial solicitude in these distant quarters by retaining possession of the Western posts, the surrender of which had been stipulated by treaty. Her plea was, that debts due to British subjects, for which by the same treaty the Union States were bound, remained unpaid. This the Americans alleged was a mere pretext; the real object of their retention being the monopoly of the fur trade; and to the mischievous influence exercised by these posts over the Indian tribes, was attributed much of the hostile disposition manifested by the latter along the Western frontier.
While these brooding causes of anxiety existed at home, the foreign commerce of the Union was on a most unsatisfactory footing, and required prompt and thorough attention. It was subject to maraud, even by the corsairs of Algiers, Tunis and Tripoli, who captured American merchant vessels and carried their crews into slavery; no treaty having yet been made with any of the Barbary powers excepting Morocco.
To complete the perplexities which beset the new government, the finances of the country were in a lamentable state. There was no money in the treasury. The efforts of the former government to pay or fund its debts, had failed; there was a universal state of indebtedness, foreign and domestic, and public credit was prostrate.
Such was the condition of affairs when Washington entered upon his new field of action. As yet he was without the support of constitutional advisers, the departments under the new government not being organized; he could turn with confidence, however, for counsel in an emergency to John Jay, who still remained at the head of affairs, where he had been placed in 1784. He was sure of sympathy also in his old comrade, General Knox, who continued to officiate as secretary of war; while the affairs of the treasury were managed by a board, consisting of Samuel Osgood, Walter Livingston, and Arthur Lee. Among the personal friends not in office, to whom Washington felt that he could safely have recourse for aid in initiating the new government, was Alexander Hamilton. It was also a great satisfaction to Washington, on looking round for reliable advisers at this moment, to see James Madison among the members of Congress: Madison, who had been with him in the convention, who had labored in "The Federalist," and whose talents as a speaker, and calm, dispassionate reasoner; whose extensive information and legislative experience destined him to be a leader in the House. Highly appreciating his intellectual and moral worth, Washington would often turn to him for counsel.
The moment the inauguration was over, Washington was made to perceive that he was no longer master of himself or of his home. "By the time I had done breakfast," writes he, "and thence till dinner, and afterwards till bedtime, I could not get rid of the ceremony of one visit before I had to attend to another. In a word, I had no leisure to read or to answer the despatches that were pouring in upon me from all quarters."
How was he to be protected from these intrusions? What, too, were to be the forms and ceremonials to be adopted in the presidential mansion that would maintain the dignity of his station, allow him time for the performance of its official duties, and yet be in harmony with the temper and feelings of the people, and the prevalent notions of equality and republican simplicity? Looking round upon the able men at hand, such as Adams, Hamilton, Jay, Madison, he propounded to them a series of questions as to a line of conduct proper for him to observe.
In regard to visitors, for instance, would not one day in the week be sufficient for visits of compliment, and one hour every morning (at eight o'clock for example) for visits on business? Might he make social visits to acquaintances and public characters, not as President, but as private individual? And then as to his table—under the preceding form of government, the Presidents of Congress had been accustomed to give dinners twice a week to large parties of both sexes, and invitations had been so indiscriminate, that every one who could get introduced to the President conceived he had a right to be invited to his board. Washington was resolved not to give general entertainments of this kind, but in his series of questions he asked whether he might not invite, informally or otherwise, six, eight, or ten official characters, including in rotation the members of both Houses of Congress, to dine with him on the days fixed for receiving company, without exciting clamors in the rest of the community.