n, and a campaign too, that will call
for our greatest exertions.

I have the honor to be, &c.

ROBERT R. LIVINGSTON.

* * * * *

TO THE PRESIDENT OF CONGRESS.

Philadelphia, January 25th, 1782.

Sir,

In the first organization of a new Department, some things are
frequently omitted, which experience will show ought to be inserted,
and many inserted which might be omitted; it becomes the duty of
those, who are placed at the head of such Departments, to mention the
difficulties that may arise from these causes, and leave it to the
wisdom of Congress to alter them, or to judge whether they can be
changed without introducing greater inconveniences. Upon this
principle, Sir, I am induced to offer the following observations.

The Secretary of Foreign Affairs is to correspond with the Ministers
of the United States at foreign Courts, and with the Ministers of
foreign powers. This correspondence must necessarily detail such
sentiments as the sovereign wishes to have known, and lead to such
inquiries as they choose to make. An intimate knowledge of their
sentiments is, therefore, absolutely necessary to a discharge of this
duty; and we accordingly find, that the Minister of Foreign Affairs
is, in monarchical governments, considered as the most confidential
servant of the Crown. In Republics, it is much more difficult to
execute this task, as the sentiments of the sovereign sometimes change
with the members, which compose the sovereignty. It is more frequently
unknown, because no occasion offers, on which to call it forth. It is
never perfectly expressed but by some public act. Waiting for this
time, the advantages of embracing a favorable opportunity are
frequency lost. There are numberless minutiae, upon which no act is
formed, and about which, notwithstanding their sentiments should be
known to their Ministers, there are even occasions, in which their
Secretary should speak a sentiment, which it would be improper for
them to declare by a public act.

Congress, sensible of the inconveniency, that the officer intrusted
with the management of their foreign affairs must labor under in the
execution of his duty, without a more perfect knowledge of their
sentiments, than can be obtained from their public acts, have been
pleased to admit him to attend Congress, that (as the ordinance