by a declaration of
neutrality[757]."

The perfected plan, thus outlined, had resulted from a communication to
Palmerston of Cowley's report together with a memorandum, proposed to be
sent to Cowley, but again _privately_[758], addressed to France alone.
Russell here also stated that he had explained his ideas to the Queen.
"She only wishes Austria, Prussia and Russia to be consulted. I said
that should be done, but we must consult France first." Also enclosed
was a letter from Stuart of September 9, reporting Mercier as just
returned from New York and convinced that if advantage were not taken of
the present time to do exactly that which was in Russell's mind, Europe
would have to wait for the "complete exhaustion" of the North[759].
Russell was now at home again and the next day Palmerston approved the
plans as "excellent"; but he asked whether it would not be well to
include Russia in the invitation as a compliment, even though "she might
probably decline." As to the other European powers the matter could wait
for an "after communication." Yet that Palmerston still wished to go
slowly is shown by a comment on the military situation in America:

"It is evident that a great conflict is taking place to the
north-west of Washington, and its issue must have a great
effect on the state of affairs. If the Federals sustain a
great defeat, they may be at once ready for mediation, and
the iron should be struck while it is hot. If, on the other
hand, they should have the best of it, we may wait awhile and
see what may follow[760]...."

Thus through Palmerston's caution Russia had been added to France in
Russell's proposed memorandum and the communication to Cowley had not
been sent off immediately--as the letter to Gladstone of September 26
indicates. But the plan was regarded as so far determined upon that on
September 24 Russell requested Lyons not to fix, as yet, upon a date for
his departure for America, writing, "M. Mercier is again looking out for
an opportunity to offer mediation, and this time he is not so much out
in his reckoning[761]." Curiously Mercier had again changed his mind and
now thought a proposal of an armistice was the best move, being
"particularly anxious that there should be no mention of the word
_separation_," but of this Russell had, as yet, no inkling[762]. With
full approval of the plan as now outlined, Palmerston wrote to
Gladstone, September 24, that he