The XYZ Affair was a political and diplomatic episode in 1797 and 1798, early in the presidency of John Adams, involving a confrontation between the United States and Republican France which led to the Quasi-War. The name derives from the substitution of the letters X, Y, and Z for the names of French diplomats Jean-Conrad Hottinguer (X), Pierre Bellamy (Y), and Lucien Hauteval (Z) in documents released by the Adams administration.
An American diplomatic commission was sent to France in July 1797 to negotiate a solution to problems that were threatening to break out into war. The diplomats, Charles Cotesworth Pinckney, John Marshall, and Elbridge Gerry, were approached through informal channels by agents of the French foreign minister, Charles Maurice de Talleyrand-Périgord. Talleyrand demanded bribes and a loan before formal negotiations could begin. Although it was widely known that diplomats from other nations had paid bribes to deal with Talleyrand at the time, the Americans were offended by the demands, and eventually left France without ever engaging in formal negotiations. Gerry, seeking to avoid all-out war, remained for several months after the other two commissioners left. His exchanges with Talleyrand laid groundwork for the eventual end to diplomatic affairs and a start to military hostilities.
The failure of the commission caused a political firestorm in the United States when the commission's dispatches were published. It led to the undeclared Quasi-War (1798–1800). Federalists, who controlled both houses of Congress and held the presidency, took advantage of the national anger to build up the nation's military. They also attacked the Democratic-Republicans for their pro-French stance, and Gerry (a nonpartisan at the time) for what they saw as his role in the commission's failure.
Background
In the wake of the 1789 French Revolution, relations between the new French Republic and U.S. federal government, originally friendly, became strained. In 1792, France and the rest of Europe went to war, a conflict in which President George Washington declared American neutrality. However, both France and Great Britain, the major naval powers in the war, seized ships of neutral powers (including those of the United States) that traded with their enemies. With the Jay Treaty, ratified in 1795, the United States reached an agreement on the matter with Britain that angered members of the Directory that governed France. The French Navy consequently stepped up its efforts to interrupt American trade with Britain. By the end of Washington's presidency in early 1797, the matter was reaching crisis proportions. Shortly after assuming office on March 4, 1797, President John Adams learned that Charles Cotesworth Pinckney had been refused as U.S. minister because of the escalating crisis, and that American merchant ships had been seized in the Caribbean. In response, he called upon Congress to meet and address the deteriorating state of French–American relations during a special session to be held that May.
Popular opinion in the United States on relations with France was divided along largely political lines: Federalists took a hard line, favoring a defensive buildup but not necessarily advocating war, while Democratic-Republicans expressed solidarity with the republican ideals of the French revolutionaries and did not want to be seen as cooperating with the Federalist Adams administration. Vice President Thomas Jefferson, himself a republican, looked upon Federalists as monarchists who were linked to Britain and therefore hostile to American values.
Commission to France
In late May 1797 Adams met with his cabinet to discuss the situation and to choose a special commission to France. Adams initially proposed that John Marshall and Elbridge Gerry join Pinckney on the commission, but his cabinet objected to the choice of Gerry because he was not a strong Federalist. Francis Dana was chosen instead of Gerry, but he declined to serve, and Adams, who considered Gerry one of the "two most impartial men in America" (he himself being the other), submitted his name to the United States Senate in Dana's stead without consulting his cabinet. Adams, in introducing the matter to Congress, made a somewhat belligerent speech in which he called for a vigorous defense of the nation's neutrality and expansion of the United States Navy, but stopped short of calling for war against France. Congress approved this choice of commissioners, and Adams instructed them to negotiate similar terms to those that had been granted to Britain in the Jay Treaty. The commissioners were also instructed to refuse loans, but to be flexible in the arrangement of payment terms for financial matters. Marshall left for Europe in mid-July to join Pinckney, with Gerry following a few weeks later. The political divisions in the commission's makeup were reflected in their attitudes toward the negotiations: Marshall and Pinckney, both Federalists, distrusted the French, while Gerry (who was then opposed to political parties) was willing to be flexible and unhurried in dealing with them.
The French Republic, established in 1792 at the height of the French Revolution, was by 1797 governed by a bicameral legislative assembly, with a five-member French Directory acting as the national executive. The Directory was undergoing both internal power struggles and struggles with the Council of Five Hundred, the lower chamber of the legislature. Ministerial changes took place in the first half of 1797, including the selection in July of Charles Maurice de Talleyrand as foreign minister. Talleyrand, who had recently spent a few years in the United States, was openly concerned about the establishment of closer ties between the U.S. and Britain. The Directory, generally not well-disposed to American interests, became notably more hostile to them in September 1797, when an internal coup propelled several anti-Americans into power. These leaders, and Talleyrand, viewed President Adams as hostile to their interests, but did not think that there was significant danger of war. In part based on advice imparted to French diplomats by Jefferson, Talleyrand decided to adopt a measured, slow pace to the negotiations.
The American commission arrived in Paris in early October, and immediately requested a meeting with Talleyrand. After an initial brief meeting (in which Talleyrand only provisionally accepted the commissioners' credentials), a longer meeting was held a week later. Talleyrand sought from the commissioners an explanation for the speech Adams had made in May, which had angered Directory members; his motivation was to determine how favorably the commissioners were disposed to the negotiations. If they responded in an unfavorable manner, the Directory would refuse to accept their credentials. The commissioners first learned of Talleyrand's expected demand on October 14 through an indirect channel. They decided that no explanation would be given for Adams' speech.
Initial meetings What followed were a series of meetings that took place outside formal diplomatic channels. On October 17, Nicholas Hubbard, an Englishman working for a Dutch bank used by the Americans (and who came to be identified as "W" in the published papers), notified Pinckney that Baron Jean-Conrad Hottinguer, whom Hubbard described only as a man of honor, wished to meet with him. Pinckney agreed, and the two men met the next evening. Hottinguer (who was later identified as "X") relayed a series of French demands, which included a large loan to the French government and the payment of a £50,000 bribe to Talleyrand. Pinckney relayed these demands to the other commissioners, and Hottinguer repeated them to the entire commission, which curtly refused the demands, even though it was widely known that diplomats from other nations had paid bribes to deal with Talleyrand. Hottinguer then introduced the commission to Pierre Bellamy ("Y"), whom he represented as being a member of Talleyrand's inner circle. Bellamy expounded in detail on Talleyrand's demands, including the expectation that "you must pay a great deal of money". He even proposed a series of purchases (at inflated prices) of currency as a means by which such money could be clandestinely exchanged. The commissioners offered to send one of their number back to the United States for instructions, if the French would suspend their seizures of American shipping; the French negotiators refused.
Not long after this standoff, Talleyrand sent Lucien Hauteval ("Z") to meet with Elbridge Gerry. The two men knew each other, having met in Boston in 1792. Hauteval assured Gerry of Talleyrand's sincerity in seeking peace, and encouraged him to keep the informal negotiations open. He reiterated the demands for a loan and bribe.
A week later (notably after the signing of the Treaty of Campo Formio, which ended the five-year War of the First Coalition between France and most of the other European powers), Hottinguer and Bellamy again met with the commission, and repeated their original demands, accompanied by threats of potential war, since France was at least momentarily at peace in Europe. Pinckney's response was famous: "No, no, not a sixpence!" The commissioners decided on November 1 to refuse further negotiations by informal channels. Publication of dispatches describing this series of meetings would form the basis for the later political debates in the United States.
Later negotiations The commissioners soon discovered that only unofficial channels were open to them. Over the next several months, Talleyrand sent a series of informal negotiators to meet with and influence the commissioners. Some of the informal avenues were closed down (Gerry, for instance, informed Hauteval that they could no longer meet, since Hauteval had no formal authority), and Talleyrand finally appeared in November 1797 at a dinner, primarily to castigate the Americans for their unwillingness to accede to the demand for a bribe.
In late November, Talleyrand began maneuvering to separate Gerry from the other commissioners. He extended a "social" dinner invitation to Gerry, which the latter, seeking to maintain communications, planned to attend. The matter heightened distrust of Gerry by Marshall and Pinckney, who sought guarantees that Gerry would limit any representations and agreements he might consider. Despite seeking to refuse informal negotiations, all of the commissioners ended up having private meetings with some of Talleyrand's negotiators.
The commissioners eventually divided over the issue of whether to continue informal negotiations, with the Federalists Marshall and Pinckney opposed, and Gerry in favor. This division was eventually clear to Talleyrand, who told Gerry in January 1798 that he would no longer deal with Pinckney. In February, Talleyrand gained approval from the Directory for a new bargaining position, and he maneuvered to exclude Marshall from the negotiations as well. The change in strategy alarmed a number of American residents of Paris, who reported the growing possibility of war. Around this time Gerry, at Talleyrand's insistence, began keeping secret from the other commissioners the substance of their meetings.