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officers accordingly, willing, as in all other cases, to risk CHAPTER his own popularity in promoting the public interests. His first care, after putting the troops in winter-quarters, was drawn to the completion of the army for the next Condition of campaign; and he wrote circular letters to the governors of the middle and eastern States, urging them in the strongest terms to adopt prompt and effectual methods for raising recruits and filling up their regiments. His efficient strength through the winter was so small, that prudence required him to use the expedient, to which he was often driven, of magnifying his numbers to the public, lest the enemy, becoming acquainted with his weakness, should make a sudden and rapid movement upon him, and obtain an easy victory. This deception, so essential to his safety, operated unfavorably; since it gave the impression that his army was much larger than it really was, and diminished the efforts of the States to provide seasonable reinforcements. It was only in the midst of a campaign, when the enemy were in motion, that the people thought of danger; and then it was often too late to make proper exertions for increasing the army. To stimulate the activity of the States, by forcible and reiterated representations to the governors and legislatures, by argument, persuasion, and appeals to every motive of pride, honor, and patriotism, was the task which he was obliged to repeat every winter; and this was a source of unceasing anxiety from the time the troops went into quarters, till they again took the field to combat the enemy. Congress, embarrassed by the novelty of their duties and the indefinite nature of their powers, deliberated with caution, and were seldom ready to act in military affairs, till incited by the counsels or earnest entreaties of the Commander-in-chief. For several months he had urged upon them the necessity of a larger number of general officers in the army, and in February five additional major-generals and ten brigadiers were appointed.

On this subject he always spoke with delicacy in his letters, rarely expressing an opinion as to the qualifica

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1777.

CHAPTER tions of individuals, and avoiding equally the appearance of partiality and of a wish to interfere in any degree with the appointing power. Various considerations produced delays and sometimes contentions in Congress respecting military appointments. Local predilections interposed the chief obstacles. The claims of the respective States were to be regarded, according to which the general officers were to be taken from each in proportion to the number of troops it furnished. By this rule the best officers in the country could not be selected, if it happened that more than one or two resided in the same State. Moreover there were frequent disagreements among the delegates of a particular State, in regard to the comparative merits of the candidates of such State, especially when the pretensions of each were supported by the influence of friends or parties. This mode of appointing officers not only brought some into the service, who were incompetent to their high station, but created dissensions in the army about rank, and added to the many troubles that harassed the Commander-in-chief.

Exchange of prisoners.

Soon after General Howe arrived at Staten Island from Halifax, a correspondence was opened between him and General Washington respecting the exchange of prisoners; and it was mutually agreed, that officers should be given for officers of equal rank, soldier for soldier, and citizen for citizen. Exchanges were effected upon this basis till the capture of General Lee. The British commander chose to consider that officer in the light of a deserter from the King's service, although he had resigned his commission before he joined the American army; and, in conformity with this view of his character, he was kept in more rigorous confinement than other prisoners of war. It was also understood, that he was to be tried by a court-martial. When these facts came to the knowledge of Congress, they thought it necessary, in support of their own dignity, and for the protection of their officers who might fall into the enemy's hands, to adopt energetic and decisive measures, and immediately resolved on severe retaliation.

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