Madison was a Federalist until, unfortunately, he drifted into the opposition. He was swept away partly, perhaps, by the influence of personal friends, particularly of Jefferson, and partly by the influence of locality,—that "go-with-the-State" doctrine, which is a harmless kind of patriotism when kept within proper limits, but dangerous in a mixed government like ours when unrestrained. Had he been born in a free State it seems more than probable that he would never have been President; but it is quite possible that his place in the history of his country would have been higher. The better part of his life was before he became a party leader. As his career is followed the presence of the statesman grows gradually dimmer in the shadow of the successful politician.

In the course of the three sessions of the First Congress the line was distinctly drawn between the Federal and Republican (or Democratic) parties. The Federalists, it was evident, had succeeded in firmly uniting thirteen separate States into one great nation, or into what, in due time, was sure to become a great nation. It was no[165] longer a loose assemblage of thirteen independent bodies, revolving, indeed, around a central power, but with a centrifugal motion that might at any time send them flying off into space, or destroy them by collisions at various tangents. Those who opposed the Federalists, however, had no fear of a tendency to tangents; the danger was, as they believed, of too much centripetal forces and that the circling planets might fall into the central sun and disappear altogether. Even if there were no flying off into space, and no falling into the sun, they had no faith in this sort of political astronomy. They were unwilling to float in fixed orbits obedient to a supreme law other than their own.

There is no need to doubt the honesty of either party then, whatever came to pass in later years. Nor, however, is there any more doubt now which was the wiser. Before the end of the century the administration of government was wrested from the hands of those who had created the union; and within fifteen years more the Federal party, under that name, had disappeared. It would not be quite just to say that they were opposed for no better reason than because they were in power. But it is quite true that the principles and the policy of the Federalists survived the party organization; and they not only survived, but, so far as the opposite party was ever of service to the country, it was when that party adopted the federal measures. It was in accordance with the early principles of Federalism that the republic[166] was defended and saved in the war of 1860-65; as it was the principles of the Democratic state-rights party, administered by a slaveholding oligarchy, that made that war inevitable.

Hamilton said, in the well-known Carrington letter in the spring of 1792, that he was thoroughly convinced by Madison's course in the late Congress that he, "co?perating with Mr. Jefferson, is at the head of a faction decidedly hostile to me and my administration, and actuated by views, in my judgment, subversive of the principles of good government, and dangerous to the union, peace, and happiness of the country." At first he was disposed to believe, because of his "previous impressions of the fairness of Mr. Madison's character," that there was nothing personal or factious in this hostility. But he soon changed his mind. Up to the time of the meeting of the First Congress there had always been perfect accord between them, and Hamilton accepted his seat in the cabinet "under the full persuasion," he said, "that from similarity of thinking, conspiring with personal good-will, I should have the firm support of Mr. Madison in the general course of my administration." But when he found in Madison his most determined opponent, either open or covert, in the most important measures he urged upon Congress,—the settlement of the domestic debt, the assumption of the debts of the States, and the establishment of a national bank,—he was compelled to seek for other than public motives for[167] this opposition. "It had been," he declared, "more uniform and persevering than I have been able to resolve into a sincere difference of opinion. I cannot persuade myself that Mr. Madison and I, whose politics had formerly so much the same point of departure, should now diverge so widely in our opinions of the measures which are proper to be pursued."

In the letter from which these extracts are made Jefferson and Madison are painted as almost equally black, though the color was laid the thicker on Jefferson, if there was any difference. Hamilton seemed to think that, if Jefferson was the more malicious, Madison was the more artful. He is accused of an attempt to get the better of the secretary of the treasury by a trick which was dishonorable in itself, and at the same time an abuse of the confidence reposed in him by Washington. Before sending in his message at the opening of the Second Congress the President submitted it to Madison, who, Hamilton declares, so altered it, by transposing a passage and by the addition of a few words, that the President was made to seem, unconsciously to himself, to approve of Jefferson's proposal to establish the same unit for coins as for weights. This would have been to disapprove of the proposal of the secretary of the treasury that the dollar should remain the unit of coinage. The statement rests on Hamilton's assertion; and as he had forgotten the words which made the change he complained of, and as the[168] message was restored to its original form by the President when its possible interpretation was pointed out to him, it is impossible now to judge whether Madison may not have been quite innocent of the intention imputed to him. It is plain enough, however, that Hamilton was sore and disappointed at Madison's conduct, and that he was quick to seize upon any incident that justified him in saying, "The opinion I once entertained of the candor and simplicity and fairness of Mr. Madison's character has, I acknowledge, given way to a decided opinion that it is one of a peculiarly artificial and complicated kind." To justify this opinion, and as an evidence of how bitter Madison's political and personal enmity toward him had become, he refers in the same letter to Madison's relation to Freneau and his paper, "The National Gazette." "As the coadjutor of Jefferson," he wrote, "in the establishment of this paper, I include Mr. Madison in the consequences imputable to it."

The story of Freneau need not be repeated here at length, having been already told in another volume of this series of biographies. If there were anything in that affair, however, for which Jefferson could be fairly called to account, Madison may be held as not less responsible. When the charge was made that he had a sinister motive in procuring for Freneau a clerkship in the State Department, and in aiding him to establish a newspaper, Madison frankly related the facts in a letter to[169] Edmund Randolph. He had nothing to deny except to repel with some indignation the charge that he had helped to establish the journal in order that it might "sap the Constitution," or that there was the slightest expectation or intention on his part of any relation between the State Department and the newspaper. Freneau was one of his college friends, a deserving man, to whom he was attached, and whom he was glad to help. There was nothing improper in commending one well qualified to discharge its duties for the post of translator in a government office; and as those duties, for which the yearly salary was only two hundred and fifty dollars, were light, there was no good reason why the clerk should not find other employment for leisure hours.

If Mr. Madison, having said this, had stopped there, his critics would have been silenced. But when he added that he advised his friend with another motive besides that of helping him to start a newspaper, then, as the expressive modern phrase is, he "gave himself away." There is a feeling, common even in those early and innocent days when such things were rare, that the editor, whose daily bread, whether it be cake or crust, comes from the bounty of the man in office or other place of power,—that an editor so fed, and perhaps fattened, is only a servant bought at a price. Madison said that to help a needy man whom he held in high esteem was his "primary and governing motive." But he adds: "That, as a[170] consequential one, I entertained hopes that a free paper ... would be an antidote to the doctrines and discourses circulated in favor of monarchy and aristocracy; would be an acceptable vehicle of public information in many places not sufficiently supplied with it,—this also is a certain truth." What was this but an acknowledgment of the essential truth of the charge brought against Jefferson and himself? Not that he might not devoutly hope for an antidote to the poisonous doctrines of monarchy and aristocracy, though in very truth the existence of any such poison was only one of the maggots which, bred in the muck of party strife, had found a lodgment in his brain; not that it was not a commendable public spirit to wish for a good newspaper to circulate where it was most needed; not that it was not a most excellent thing in him to hold out a helping hand to the friend who had been less fortunate than himself,—but that, in helping his friend to a clerkship in a department of the government, his motive was in part that the possession of a public office would enable the man to establish a party organ. That was precisely the point of the charge which he seems to have failed to apprehend,—that public patronage was used at his suggestion to further party ends.

Freneau had intended to start a newspaper somewhere in New Jersey. Whether or not that known intention suggested that the project could be better carried out in Philadelphia, and a clerkship[171] in the State Department would be an aid to it, the change of plan was adopted and the clerkship bestowed upon him. The paper—the first number of which appeared five days after his appointment—was, as it was known that it would be, an earnest defender of Jefferson and his friends, and a formidable opponent of Hamilton and his party. The logical conclusion was that the man, being put in place for a purpose, was diligent in using the opportunities the place afforded him to fulfill the hopes of those to whom he was indebted. Madison and Jefferson both denied, with much heat and indignation, that they had anything to do with the editorial conduct of the paper. No doubt they spoke the truth. They had to draw the line somewhere; they drew it there; and an exceedingly sharp and fine line it was. For it is plain that Freneau knew very well what he was about and what was expected of him, and his powerful friends knew very well that he knew it. They could feel in him the most implicit confidence as an untamed and untamable democrat, and one, perhaps, whose gratitude would be kept alive by the remembrance of poverty and the hope of future favors. There was clearly no need of a board of directors for the editorial supervision of "The National Gazette," and it was quite safe to deny that any existed. The fact, nevertheless, remained that a seat had been given the editor at Mr. Jefferson's elbow.

Three months before Madison heard that his[172] relation to Freneau was bringing him under public censure, he showed an evident interest in the "Gazette" hardly consistent with his subsequent avowal of having nothing to do with its management. In a letter to Jefferson he refers to the postage on newspapers established by the bill for the regulation of post-offices, and fears that it will prove a grievance in the loss of subscribers. He suggests that a notice be given that the papers "will not be put into the mail, but sent as heretofore," meaning by that, probably, that they would be sent under the franks of members of Congress, or by any other chance that might offer. "Will you," he adds, "hint this to Freneau? His subscribers in this quarter seem pretty well satisfied with the degree of regularity and safety with which they get the papers, and highly pleased with the paper itself." This was careful dry-nursing for the bantling which had been provided with so comfortable a cradle in the State Department.

The political casuist of our time may wonder at the importance which attached to this Freneau affair. We are taught that "there were giants in those days," but we may also remember that in the modern science of "practical politics" they were as babes and sucklings. Madison was making good his place as a leader of the opposition hardly second to Jefferson himself. As with Hamilton, so with the Federalists generally, he fell more even than Jefferson fell in their esteem. He fell more, because he had farther to fall. No man[173] had been more earnest than he for a consolidated government; no one had shown more activity to bring about a convention to frame a federal Constitution; and when at last that work was done, no one, not even Hamilton himself, was more zealous to convince his countrymen that national salvation depended upon union, and that union was hopeless unless the Constitution should be adopted. The disappointment and the shock were all the greater when he gradually drew off from those who had hitherto counted him as on their side. They could not understand how he could find so much to oppose in the legitimate administration—as they believed it to be—of a Constitution he had done so much to create, and the beneficent results of which he had foreseen and foretold. Or, if they understood him, it was on the supposition that he had thrown his convictions and his principles to the winds, abandoned his old friends and attached himself to new ones, from motives of personal ambition. This, of course, may not have been absolutely just. It is quite possible that he did not deliberately surrender his principles, but persuaded himself that he was as true as ever to the Constitution. It is, nevertheless, certainly true that the men with whom he was now acting were the men who, having failed to prevent the adoption of the Constitution, now aimed, by zealous endeavors for an assumed strict construction, to defeat the purpose for which it was framed.[14]

[174]

Naturally his motives were suspected, and his conduct narrowly watched. Jefferson's influence over him was known to be great,............