Mr. Seward to Mr. Adams.
Sir: The treaty between the United States and the republic of New Granada, signed on the 12th day of December, 1846, contains a stipulation which it will be seen was made not for any special or peculiar interest or [Page 132] advantage of the United States, but for the benefit and advantage of all nations, and which is in the following words, contained in the 35th article of said treaty:
“And in order to secure to themselves the tranquil and constant enjoyment of these advantages, and as an especial compensation far the said advantages, and for the favors they have acquired by the 4th, 5th, and 6th articles of this treaty, the United States guarantee positively and efficaciously to New Granada, by the present stipulation, the perfect neutrality of the before-mentioned isthmus, with the view that the free transit from the one to the other sea may not be interrupted or embarrassed in any future time while this treaty exists; and, in consequence, the United States also guarantee, in the same manner, the rights of sovereignty and property which New Granada has and possesses over the said territory.”
On the 26th of June last Mr. P. A. Herran, minister plenipotentiary of the Granadian confederation near the government of the United States, transmitted to this department a note, of which a translation is hereto annexed, marked H.
In this note Mr. Herran gave information that Mosquera, a revolutionary chief, who is engaged in subverting the Granadian confederation, had sent an armed force to occupy the Isthmus of Panama, which proceeding was opposed by an unavailing protest of the governor of Panama, and Mr. Herran therefore invoked the interposition of this government in accordance with the treaty obligation above set forth.
Simultaneously with the reception of this note of Mr. Herran’s, substantially the same information which it gave was received from our consul residing at Panama; and the President therefore instructed our naval commander of that port to take care to protect and guarantee, at all hazards and at whatever cost, the safety of the railroad transit across the Isthmus of Panama. Mr. Herran now insists that, owing to the character of the population on the isthmus and the revolutionary condition of that region, the security of the transit across the isthmus cannot be adequately insured by the presence and activity of a mere naval force, and that the Granadian confederation is entitled, therefore, to the special aid of a land force to be sent from the United States, and suggests that it should be made to consist of three hundred cavalry.
This government has no interest in the matter different from that of other maritime powers. It is willing to interpose its aid in execution of its treaty and for the benefit of all nations. But if it should do so, it would incur some hazard of becoming involved in the revolutionary strife which is going on in that country. It would also incur danger of misapprehension of its objects by other maritime powers if it should act without previous consultation with them. The revolutionary disturbances existing in that quarter are doubtlessly as well known and understood by the governments of Great Britain and France as they are by this government, and they are probably also well informed of the proceeding of Mosquera, which has moved Mr. Herran’s application to the President. He desires an understanding with these two governments upon the subject, and you are therefore instructed to submit the matter to Earl Russell, as Mr. Dayton will likewise be instructed to confer with Mr. Thouvenel.
The points to be remembered are, first, whether any proceeding in the matter shall be adopted by the United States, with the assent and acquiescence of the British and French governments ?
Secondly, what should be the force and extent of the aid to be rendered to the Granadian confederation ?
Thirdly, whether these governments will unite with the United States in guaranteeing the safety of the transit under the authority of the Granadian [Page 133] confederation, or either of these objects, and the form and manner in which the parties shall carry out such agreement ?
I hardly need say that this government is not less anxious to avoid any such independent or hasty action in the matter as would seem to indicate a desire for exclusive or especial advantages in New Granada than the British government can be that we shall abstain from such a course.
I am, sir, your obedient servant,
Charles Francis Adams, Esq., &c., &c., &c.
The same, mutatis mutandis, to Mr. Dayton, No. 180.