Presidency of George Washington

The presidency of George Washington began on April 30, 1789, when Washington was inaugurated as the first president of the United States, and ended on March 4, 1797. Washington took office after the 1788–1789 presidential election, the nation's first quadrennial presidential election, in which he was elected unanimously. Washington was re-elected unanimously in the 1792 presidential election, and chose to retire after two terms. He was succeeded by his vice president, John Adams of the Federalist Party.

Washington, who had established his preeminence among the new nation's Founding Fathers through his service as Commander-in-Chief of the Continental Army during the American Revolutionary War and as president of the 1787 constitutional convention, was widely expected to become the first president of the United States under the new Constitution, though it was his desire to retire from public life. In his first inaugural address, Washington expressed both his reluctance to accept the presidency and his inexperience with the duties of civil administration, but he proved an able leader.

He presided over the establishment of the new federal government, appointing all of the high-ranking officials in the executive and judicial branches, shaping numerous political practices, and establishing the site of the permanent capital of the United States. He supported Alexander Hamilton's economic policies whereby the federal government assumed the debts of the state governments and established the First Bank of the United States, the United States Mint, and the United States Customs Service. Congress passed the Tariff of 1789, the Tariff of 1790, and an excise tax on whiskey to fund the government and, in the case of the tariffs, address the trade imbalance with Britain. Washington personally led federalized soldiers in suppressing the Whiskey Rebellion, which arose in opposition to the administration's taxation policies. He directed the Northwest Indian War, which saw the United States establish control over Native American tribes in the Northwest Territory. In foreign affairs, he assured domestic tranquility and maintained peace with the European powers despite the raging French Revolutionary Wars by issuing the 1793 Proclamation of Neutrality. He also secured two important bilateral treaties, the 1794 Jay Treaty with Great Britain and the 1795 Treaty of San Lorenzo with Spain, both of which fostered trade and helped secure control of the American frontier. To protect American shipping from Barbary pirates and other threats, he re-established the United States Navy with the Naval Act of 1794.

Greatly concerned about the growing partisanship within the government and the detrimental impact political parties could have on the fragile unity of the nation, Washington struggled throughout his eight-year presidency to hold rival factions together. He was, and remains, the only U.S. president never to be formally affiliated with a political party. Despite his efforts, debates over Hamilton's economic policy, the French Revolution, and the Jay Treaty deepened ideological divisions. Those that supported Hamilton formed the Federalist Party, while his opponents coalesced around Secretary of State Thomas Jefferson and formed the Democratic-Republican Party. While criticized for furthering the partisanship he sought to avoid by identifying himself with Hamilton, Washington is nonetheless considered by scholars and political historians as one of the greatest presidents in American history, usually ranking in the top three with Abraham Lincoln and Franklin D. Roosevelt.

Election of 1788–1789

Following the Philadelphia Constitutional Convention of 1787, a fatigued Washington returned to his estate in Virginia, Mount Vernon. He seemed intent on resuming his retirement and letting others govern the nation with its new frame of government. The American public at large, however, wanted Washington to be the nation's first president. The first U.S. presidential campaign was in essence what today would be called a grassroots effort to convince Washington to accept the office. Letters poured into Mount Vernon – from the people, from former comrades in arms, and from across the Atlantic – informing him of public sentiment and imploring him to accept. Gouverneur Morris urged Washington to accept, writing " mong thethirteen horses now about to be coupled together, there are some of every race and character. They will listen to your voice and submit to your control. You therefore must, I say must mount this seat." Alexander Hamilton was one of the most dedicated in his efforts to get Washington to accept the presidency, as he foresaw himself receiving a powerful position in the administration. The comte de Rochambeau urged Washington to accept, as did the Marquis de Lafayette, who exhorted Washington to "not to deny your acceptance of the office of President for the first years." Washington replied, "Let those follow the pursuits of ambition and fame, who have a keener relish for them, or who may have more years, in-store, for the enjoyment." In an October 1788 letter, Washington further expounded on his feelings regarding the election, stating,

Less certain was the choice for the vice presidency, which contained little definitive job description in the constitution. The only official role of the vice president was as the president of the United States Senate, a duty unrelated to the executive branch. The Constitution stipulated that the position would be awarded to the runner-up in the presidential election, or the person with the second highest number of electoral votes. Being from Virginia, Washington (who remained neutral on the candidates) assumed that a vice president would be chosen from Massachusetts to ease sectional tensions., p. 551 In an August 1788 letter, Thomas Jefferson wrote that he considered John Adams, John Hancock, John Jay, James Madison, and John Rutledge to be contenders for the vice presidency. In January 1789, upon hearing that Adams would probably win the vice presidency, Washington wrote to Henry Knox, saying " amentirely satisfied with the arrangement for filling the second office."

Each state's presidential electors gathered in their state's capital on February 4, 1789, to cast their votes for the president. As the election occurred before ratification of the Twelfth Amendment, each elector cast two votes for the presidency, though the electors were not allowed to cast both votes for the same person. Under the terms of the constitution, the individual who won the most electoral votes would become president while the individual with the second-most electoral votes would become vice president. Each state's votes were sealed and delivered to Congress to be counted., pp. 270–274

Before the votes were counted, Washington had declared his willingness to serve, and was preparing to leave Mount Vernon for New York City, the nation's temporary capital. On April 6, 1789, the House and Senate, meeting in joint session, counted the electoral votes and certified that Washington had been elected President of the United States with 69 electoral votes. They also certified that Adams, with 34 electoral votes, had been elected as vice president. The other 35 electoral votes were scattered. Informed of his election on April 14, Washington wrote in a letter to Edward Rutledge that in accepting the presidency, he had given up "all expectations of private happiness in this world."

Start of first presidential and vice-presidential terms

The Congress of the Confederation had set March 4, 1789 as the date for the beginning of operations of the new federal government under the new Constitution. Owing to the formidable difficulties of long-distance travel in 18th century America, Congress was unable to reach a quorum until April. The House finally achieved a quorum on April 1, and the Senate on April 6, at which time the electoral votes were counted. Washington and Adams were certified as elected.

Adams arrived in New York on April 20, and was inaugurated as vice president on the next day. On his way to New York City, Washington received triumphal welcomes in almost every town he passed through, including Alexandria, Virginia; Georgetown, Maryland; Baltimore; Philadelphia; and Trenton. He arrived in New York City on April 23, where he was greeted by New York Governor George Clinton as well as many congressmen and citizens. Washington was inaugurated as the first President of the United States on April 30, 1789, at Federal Hall in New York, then the nation's capitol. As judges of the federal courts had not yet been appointed, the presidential oath of office was administered by Chancellor Robert Livingston, the highest judicial officer in the state of New York. Washington took the oath on the building's second floor balcony, in view of throngs of people gathered on the streets. The Bible used in the ceremony was from St. John's Lodge No. 1, Ancient York Masons, and was opened at random to Genesis 49:13 ("Zebulun shall dwell at the haven of the sea; and he shall be for an haven of ships; and his border shall be unto Zidon"). Afterward, Livingston shouted "Long live George Washington, President of the United States!" Historian John R. Alden indicates that Washington added the words "so help me God" to the oath prescribed by the constitution.

In his inaugural address (), Washington again touched upon his reluctance to accept the presidency.

Election of 1792

As the presidential election of 1792 approached, Washington, pleased with the progress his administration had made in establishing a strong, stable federal government, hoped to retire rather than seek a second term. He complained of old age, sickness, the in-fighting plaguing his cabinet, and the increasing hostility of the partisan press. The members of his cabinet—especially Jefferson and Hamilton—worked diligently through the summer and autumn to persuade Washington not to retire. They apprised him of the potential impact the French Revolutionary Wars might have on the country and insisted that only someone with his popularity and moderation could lead the nation effectively during the volatile times ahead. In the end, "Washington never announced his candidacy in the election of 1792," wrote John Ferling in his book on Washington, "he simply never said that he would not consider a second term.", p. 312

The 1792 elections were the first ones in U.S. history to be contested on anything resembling a partisan basis. In most states, the congressional elections were recognized in some sense as a "struggle between the Treasury department and the republican interest", as Jefferson strategist John Beckley wrote. Because few doubted that Washington would receive the greatest number of electoral votes, the vice presidency became the focus of popular attention. The speculation here also tended to be organized along partisan linesHamiltonians supported Adams and Jeffersonians favored New York governor George Clinton. Both were technically candidates for president competing against Washington, as electoral rules of the time required each presidential elector to cast two votes without distinguishing which was for president and which for vice president. The recipient of the most votes would then become president, and the runner-up vice president.

Washington was unanimously re-elected president, receiving 132 electoral votes (one from each elector), and Adams was re-elected vice president, receiving 77 votes. The other 55 electoral votes were divided among: George Clinton (50), Thomas Jefferson (4), and Aaron Burr (1).

Washington's second inauguration took place in the Senate Chamber of Congress Hall in Philadelphia, Pennsylvania, on March 4, 1793. The presidential oath of office was administered by Supreme Court associate justice William Cushing. Washington's inaugural address was just 135 words, the shortest ever. The short and simple inauguration was viewed in a stark contrast to that of 1789, which was perceived by many as almost a monarchical coronation.

Although his second term began simultaneously with Washington's, John Adams was sworn into office for that term on December 2, 1793, when the Senate reconvened, in the Senate Chamber of Congress Hall. The vice-presidential oath was administered by the president pro tempore of the Senate John Langdon.

Administration

Cabinet

The new Constitution empowered the president to appoint executive department heads with the consent of the Senate. Three departments had existed under the Articles of Confederation: the Department of War, the Ministry of Foreign Affairs, and the Finance Office. The Ministry of Foreign Affairs was re-established on July 27, 1789, and would be renamed to the Department of State in September. The Department of War was retained on August 7, while the Finance office was renamed as the Department of the Treasury on September 2. Congress also considered establishing a Home Department to oversee Native American affairs, the preservation of government documents, and other matters, but the proposed department's duties were instead folded into the State Department. In September 1789, Congress established the positions of Attorney General, to serve as the chief legal adviser to the president; and Postmaster General, to serve as the head of the postal service. Initially, Washington met individually with the leaders of the executive departments and the Attorney General, but he began to hold joint meetings in 1791, with the first meeting occurring on November 26. The four positions of Secretary of War, Secretary of State, Secretary of the Treasury, and Attorney General became collectively known as the cabinet, and Washington held regular cabinet meetings throughout his second term.

Edmund Randolph became the first Attorney General, while Henry Knox retained his position as head of the Department of War. Washington initially offered the position of Secretary of State to John Jay, who had served as the Secretary of Foreign Affairs since 1784 and acted as the interim Secretary of State. After Jay expressed his preference for a judicial appointment, Washington selected Thomas Jefferson as the first permanent Secretary of State. For the key post of Secretary of the Treasury, which would oversee economic policy, Washington chose Alexander Hamilton, after his first choice, Robert Morris, declined. Morris had recommended Hamilton instead, writing "But, my dear general, you will be no loser by my declining the secretaryship of the Treasury, for I can recommend a far cleverer fellow than I am for your minister of finance in the person of your aide-de-camp, Colonel Hamilton." Washington's initial cabinet consisted of one individual from New England (Knox), one individual from the Mid-Atlantic (Hamilton), and two Southerners (Jefferson and Randolph).

Washington considered himself to be an expert in both foreign affairs and the Department of War, and as such, according to Forrest McDonald, "he was in practice his own Foreign Secretary and War Secretary." Jefferson left the cabinet at the end of 1793, and was replaced by Randolph, while William Bradford took over as Attorney General. Like Jefferson, Randolph tended to favor the French in foreign affairs, but he held very little influence in the cabinet. Knox, Hamilton, and Randolph all left the cabinet during Washington's second term; Randolph was forced to resign during the debate over the Jay Treaty. Timothy Pickering succeeded Knox as Secretary of War, while Oliver Wolcott became Secretary of the Treasury and Charles Lee took the position of Attorney General. In 1795, Pickering became the Secretary of State, and James McHenry replaced Pickering as Secretary of War., pp. 406–407

Hamilton and Jefferson had the greatest impact on cabinet deliberations during Washington's first term. Their deep philosophical differences set them against each other from the outset, and they frequently sparred over economic and foreign policy issues. With Jefferson's departure, Hamilton came to dominate the cabinet, and he remained very influential within the administration even after he left the cabinet during Washington's second term to practice law in New York City.

Vice presidency

During his two vice-presidential terms, Adams attended few cabinet meetings, and the President sought his counsel only infrequently. Nonetheless, the two men, according to Adams biographer, John E. Ferling, "jointly executed many more of the executive branch's ceremonial undertakings than would be likely for a contemporary president and vice-president." In the Senate, Adams played a more active role, particularly during his first term. He often participated in debates in the Senate. On at least one occasion, Adams persuaded senators to vote against legislation he opposed, and he frequently lectured the body on procedural and policy matters. He cast 29 tie-breaking votes.

His first incursion into the legislative realm occurred shortly after he assumed office, during the Senate debates over titles for the president and executive officers of the new government. Although the House of Representatives agreed in short order that the president should be addressed simply as ''George Washington, President of the United States,'' the Senate debated the issue at some length. Adams favored the adoption of the style of ''Highness'' (as well as the title of ''Protector of Their he United States'Liberties'') for the president. Others favored the variant of ''Electoral Highness'' or the lesser ''Excellency''., p. 86 Anti-federalists objected to the monarchical sound of them all. All but three senators eventually agreed upon ''His Highness the President of the United States and Protector of the Rights of the Same''. In the end, Washington yielded to the various objections and the House decided that the title of " Mr. President" would be used.

While Adams brought energy and dedication to the presiding officer's chair, he found the task "not quite adapted to my character." Ever cautious about going beyond the constitutional limits of the vice-presidency or of encroaching upon presidential prerogative, Adams often ended up lamenting what he viewed as the "complete insignificance" of his situation. To his wife Abigail he wrote, "My country has in its wisdom contrived for me the most insignificant office that ever the invention of man . . . or his imagination contrived or his imagination conceived; and as I can do neither good nor evil, I must be borne away by others and meet the common fate."

First presidential veto

The Constitution granted the president the power to veto legislation, but Washington was reluctant to encroach on legislative affairs,
and he only exercised his veto power twice. He exercised his presidential veto power for the first time on April 5, 1792, to stop an apportionment act from becoming law. The bill would have redistributed House seats among the states in a way that Washington considered unconstitutional. After attempting but failing to override the veto, Congress soon wrote new legislation, the Apportionment Act of 1792, which Washington signed into law on April 14.

Salary

On September 24, 1789, Congress voted to pay the president a salary of $25,000 a year, and the vice president an annual salary of $5,000. Washington's salary was equal to two percent of the total federal budget in 1789.

Judicial appointments

Article Three of the Constitution established the judicial branch of the federal government, but left several issues to the discretion of Congress or the president. Unresolved issues included the size of the Supreme Court, the identity of the first Supreme Court Justices, the number and establishment of federal courts below the Supreme Court, and the relationship between state and federal courts. In September 1789, Congress passed the Judiciary Act of 1789, primarily written by Connecticut Senator Oliver Ellsworth. Through the Judiciary Act, Congress established a six-member Supreme Court, composed of one Chief Justice and five Associate Justices. The act also created thirteen judicial districts, along with district courts and circuit courts for each district.

As the first president, Washington was responsible for appointing the entire Supreme Court. As such, he filled more vacancies on the Court than any other president in American history. On September 24, 1789, Washington nominated John Jay as the first Chief Justice and nominated John Rutledge, William Cushing, James Wilson, John Blair, and Robert Harrison as Associate Justices. All were quickly confirmed by the Senate, but after Harrison declined the appointment, Washington appointed James Iredell in 1790. The Court's first term began on February 2, 1790, at the Royal Exchange in New York City. With no cases on the docket and little pressing business (a few procedural matters decided and 26 attorneys and counselors admitted to the federal bar), the term lasted for only eight days.

As Associate Justices left the court in subsequent years, Washington appointed Thomas Johnson, William Paterson, and Samuel Chase. Jay stepped down as Chief Justice in 1795 and was replaced by Rutledge, who received a recess appointment as Chief Justice. Rutledge served for six months but resigned after his nomination was rejected by the Senate in December 1795; Rutledge had alienated several Senators with his criticism of the Jay Treaty. After the rejection of Rutledge's nomination, Washington appointed Oliver Ellsworth as the third Chief Justice of the United States.

The Judiciary Act also created 13 judicial districts within the 11 states that had then ratified the Constitution, with Massachusetts and Virginia each being divided into two districts. Both North Carolina and Rhode Island were added as judicial districts in 1790 after they ratified the Constitution, as were the subsequent states that Congress admitted to the Union. The act also established circuit courts and district courts within these districts. The circuit courts, which were composed of a district judge and (initially) two Supreme Court justices "riding circuit", had jurisdiction over more serious crimes and civil cases and appellate jurisdiction over the district courts, while the single-judge district courts had jurisdiction primarily over admiralty cases, along with petty crimes and lawsuits involving smaller claims. The circuit courts were grouped into three geographic circuits to which justices were assigned on a rotating basis., pp. 10–12 Washington appointed 38 judges to the federal district courts during his two terms in office.

Domestic affairs

Selection of permanent U.S. capital

The subject of a permanent capital city had been discussed several times, but the Continental Congress could never agree on a site due to regional loyalties and tensions., pp. 3–6 New York City had served as the nation's temporary capital since 1785 but had never been intended to serve as a permanent capital. The city made numerous improvements in preparation for the new government, and the old City Hall was remodeled by Pierre L'Enfant to become Federal Hall. The Constitution said nothing about where the permanent capital would be. Interest in attracting the capital grew as people realized the commercial benefits and prestige that were at stake. There was much maneuvering by interstate coalitions that were formed and dissolved almost daily, as Congress debated the matter. More than 30 locations, including the Hudson Valley; Trenton, New Jersey; Baltimore, Maryland; Norfolk, Virginia; and several locations in Pennsylvania, were proposed as the site of the capital. In 1789, discussions narrowed to a site on the Potomac River near Georgetown, a site on the Susquehanna River near Wrights Ferry (now Columbia, Pennsylvania), and a site on the Delaware River near Germantown, Pennsylvania. Both Pennsylvania sites nearly won congressional approval as the site of the permanent capital, but divisions between Pennsylvania's two senators, along with deft maneuvering by Congressman James Madison, postponed consideration of the topic into 1790.

Washington, Jefferson, and Madison all supported a permanent capital on the Potomac; Hamilton backed a temporary capital in New York City, and a permanent one in Trenton, New Jersey

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