In 1793, America had a significant problem. It had no navy. The ships that remained from the Continental Navy had been retrofitted as merchant vessels. America was interested in trade with the great and small powers on the other side of the Atlantic Ocean. At this time, Great Britain and France were again at war. The French Revolution had thrown Europe into turmoil. To trade with the British summoned the ire of the French, and vice versa. But there were other dangers the American sailing vessels faced, particularly pirates. The solution to the problem was obvious.
In a letter to Secretary of State Thomas Jefferson, the American consul in Lisbon, Edward Church, wrote: