well how to administer.

His annual report made to Congress on December 10 had clearly set forth
the situation, and, without recommending war, had pointed out how it
might be carried on. Macon wrote of him on December 4 to their mutual
friend, Joseph H. Nicholson, "Gallatin is decidedly for war." After his
report was sent in the situation became still more perplexing. Rumors
came of an intention to call a convention of the five New England
States, with New York, if possible, to take ground against the embargo.
As these indications of dissatisfaction became manifest, and the
contingency of the employment of force at home presented itself,
Gallatin made a careful balance of the advantages and inconveniences of
embargo, non-intercourse, and letters of marque. This paper, dated
February, 1809, and entitled, "Notes on the Political Situation," no
doubt served as a brief for consultation with Madison upon his inaugural
message, it being then understood that Gallatin was to be secretary of
state. As he states one of the advantages of letters of marque to be "a
greater chance of unity at home," this measure he probably preferred.
The Senate had already, on January 4, passed a bill ordering out the
entire naval force of the country, and on the 10th the House adopted the
same bill by a vote of 64 to 59. Mr. Gallatin opposed this action
strenuously. On February 2 the House voted by a large majority to remove
the embargo on March 4. Non-intercourse with Great Britain and France
and trade everywhere else were now the conditions. This significant
expression of the feeling of Congress no doubt determined Mr. Gallatin
to suggest letters of marque. Whether he pressed them upon Mr. Madison
or not is uncertain. Meanwhile Mr. Gallatin suffered the odium of
opposition to the will of Congress, and Mr. Madison's power was broken
before he took his seat. A few Republican senators inaugurated an
opposition to their chief after the fashion of modern days, and Mr.
Madison was given to understand that Mr. Gallatin would not be confirmed
if nominated as secretary of state. Mr. Madison yielded to this
dictation, and from that day forward was, as he deserved to be,
perplexed and harassed by a petty oligarchy. Mr. John Quincy Adams, in a
note on this affair, says that, "had Mr. Gallatin been appointed
secretary of state, it is highly probable war with Great Britain would
not have taken place." But it is improbable that any step in foreign
intercourse