In September, 1812, Count Romanzoff suggested to Mr. Adams the readiness of the Emperor to act as mediator in bringing about peace between the United States and England. The suggestion was promptly acted upon, but with no directly fortunate results. The American (p. 075) government acceded at once to the proposition, and at the risk of an impolitic display of readiness dispatched Messrs. Gallatin and Bayard to act as Commissioners jointly with Mr. Adams in the negotiations. These gentlemen, however, arrived in St. Petersburg only to find themselves in a very awkward position. Their official character might not properly be considered as attaching unless England should accept the offer of mediation. But England had refused, in the first instance, to do this, and she now again reiterated her refusal without regard for the manifestation of willingness on the part of the United States. Further, Mr. Gallatin's nomination was rejected by the Senate after his departure, on the ground that his retention of the post of Secretary of the Treasury was incompatible, under the Constitution, with this diplomatic function. So the United States appeared in a very annoying attitude, her Commissioners were uncomfortable and somewhat humiliated; Russia felt a certain measure of vexation at the brusque and positive rejection of her friendly proposition on the part of Great Britain; and that country alone came out of the affair with any self-satisfaction.
But by the time when all hopes of peace through the friendly offices of Russia were at an end, that stage of the conflict had been (p. 076) reached at which both parties were quite ready to desist. The United States, though triumphing in some brilliant naval victories, had been having a sorry experience on land, where, as the Russian minister remarked, "England did as she pleased." A large portion of the people were extremely dissatisfied, and it was impossible to ignore that the outlook did not promise better fortunes in the future than had been encountered in the past. On the other hand, England had nothing substantial to expect from a continuance of the struggle, except heavy additional expenditure which it was not then the fashion to compel the worsted party to recoup. She accordingly intimated her readiness to send Commissioners to Göttingen, for which place Ghent was afterwards substituted, to meet American Commissioners and settle terms of pacification. The United States renewed the powers of Messrs. Adams, Bayard, and Gallatin, a new Secretary of the Treasury having in the meantime been appointed, and added Jonathan Russell, then Minister to Sweden, and Henry Clay. England deputed Lord Gambier, an admiral, Dr. Adams, a publicist, and Mr. Goulburn, a member of Parliament and Under Secretary of State. These eight gentlemen accordingly met in Ghent on August 7, 1814.