RC in James Lovell's hand (Adams Papers); endorsed: “Instructions to J. Adams B Franklin J. Jay H. Laurens T. Jefferson”; notation: “Mr. J.A.”; enclosed with the president of Congress' letter of 5 July and filmed under that date (Adams Papers, Microfilms, Reel No. 355). JA apparently deciphered only parts of the enciphered text, interlining the letters above Lovell's numbers. These passages are indicated in the notes. Significant differences between the RC and the instructions as adopted by Congress are indicated in the notes.

Compare these instructions with those JA had previously received of 16 Oct. 1779 and 18 Oct. 1780 (JA, Diary and Autobiography, 4:181–183; vol. 10:278–280). See also notes 2, 9, and 14, below.

This instruction survived intact from introduction to adoption, but had no effect because when it reached Europe the Austro-Russian mediation was no longer an option. Its presence, however, indicated a decisive change in the way in which the U.S. would participate in peace negotiations. Unlike JA's instructions of 16 Oct. 1779, the new directions from Congress did not establish as a precondition to negotiations that Great Britain treat with the U.S. as a free and independent country. It was JA's uncertainty about the status of the U.S. at any negotiations conducted under the aegis of Austria and Russia that led him to reject the mediation when he met with the Comte de Vergennes in July, for which see his correspondence with Vergennes, below.

This word does not appear in the instructions as adopted by Congress ( JCC , 20:651).

The text in this paragraph to this point represents the only instance in which the instructions were strengthened in the course of the congressional debates. Initially it was joined to the first instruction and read “but to accede to any treaty of peace which may be the result thereof the Austro-Russian mediation in which the independence and sovereignty of the thirteen United States is effectually assured to them” (same, 20:605–606).

JA deciphered all of the enciphered passages in this paragraph to this point. He probably stopped because James Lovell left out the next two cipher numbers. As adopted by Congress the next word should read “left.”

This the only passage that JA deciphered in this paragraph. This is significant because this paragraph is the most important in the instructions, containing as it does the injunction to the peace commissioners that they fully inform the French ministers of the progress of the negotiations and govern themselves by the “advice & opinion” they received therefrom. It may explain why JA did not comment on that aspect of the instructions until after he reached Paris in 1782 to join the negotiations, and it substantiates his assertion in his journal that he had never seen that instruction until he arrived at Paris ( Diary and Autobiography , 3:38).

JA's instructions of 1779 were adopted on 14 Aug., but dated 16 Oct. ( JCC , 14:956–960; JA, Diary and Autobiography , 4:181). Congress issued additional instructions on 18 Oct. 1780, see vol. 10:278–280.

At this point Lovell omitted the word “perceive” ( JCC , 20:651).

This paragraph, to this point, is significant for two reasons. It represents an effort by Congress to avoid revisiting the question of national boundaries, a contentious issue for both interstate and Franco-American relations. On 7 and 8 June proposals to reopen the matter were rejected and the text of the instructions remained virtually the same throughout the debates; the only significant addition was the specific reference to JA's former instructions ( JCC , 20:608–609, 611–613).

Of even more importance, particularly for JA, was the statement that set down independence and the sanctity of the Franco-American treaties as the only ultimata for an Anglo-American peace treaty. This was a striking departure from JA's original instructions, which declared the northern boundary of the U.S. on the Great Lakes and the western boundary on the Mississippi River to be sine qua non for any treaty. This alteration was a severe blow to southern states, particularly Virginia, that claimed land bordering the Mississippi, and it created a sectional conflict because the preservation of U.S. fishing rights on the banks of Newfoundland remained the sine qua non for the Anglo-American commercial treaty for which JA also had received a commission in 1779 (JA, Diary and Autobiography , 4:183–184).

As adopted by Congress, the passage reads “candid and confidential communications upon all subjects to the ministers of” ( JCC , 20:651).

The passage beginning with the word “ultimately” and continuing to this point was inserted on 11 June, following a conference with the Chevalier de La Luzerne (same, 20:625– 627). For a detailed description of that meeting and its results see the Editorial Note, above.

At this point Lovell omitted the word “United” ( JCC , 20:652).

JA deciphered all of the enciphered passages in this paragraph.

JA's original instructions provided for the suspension of hostilities during negotiations on the condition that all British forces be withdrawn from the territory of the United States (JA, Diary and Autobiography , 4:183). In 1780 Congress responded to JA's request for guidance by modifying its position and authorizing a long truce if such would constitute Britain's “virtual relinquishment of the object of the war” (vol. 9:80–83; 10:278–280). This paragraph is a further modification that sets even looser parameters for a truce than the instructions of 1780.