office of foreign affairs to be countersigned and for- warded. ' '
Congress therefore retained a very close control over this matter; a control which under the Con- stitution passed to the Senate, though in a re- stricted form. In no other country did a legisla- tive committee participate in the conduct of for- eign affairs with similar power and influence. The policy of the arrangements under the Con- stitution is explained by John Jay in the Feder- alist as follows :
"It seldom happens in the negotiation of treaties, of whatever nature, but that perfect secrecy and immedi- ate despatch are sometime requisite. There are cases where the most useful intelligency may be obtained, if the persons possessing it can be relieved from appre- hensions of discovery. Those apprehensions will oper- ate on those persons whether they are actuated by mer- cenary or friendly motives; and there doubtless are many of both descriptions, who would rely on the se- crecy of the President, but who would not confide in that of the Senate, and still less in that of a large ponu- lar assembly. ' '
Jay's explanation is dominated by the conception which the eighteenth century had of the functions of diplomacy and the conditions of its work. The constitutional system as conceiv
