S  166.  The  government  of  Massachusetts  was  never
a  national  government.  A  mere  citizen  of  Massachu-
setts had  no  nationality.  It  was  only  when  state  lines
disappeared,  and  the  citizens  of  all  the  states  stood
shouldier  to  shoulder  as  members  of  one  society,  with  a
common  interest  and  a  common  country,  that  nation-
whole  nation.  But  all  rulers  of  states  have  not  power  to  make  public  treaties
on  their  own  authority  alone ;  some  are  obliged  to  take  the  advice  of  a  senate,
or  of  the  representatives  of  the  nation.  It  is  from  the  fundamental  laws  of
eachstate— nation— that  we  must  learn  where  resides  the  authority  that  is
capable  of  contracting  with  validity  in  the  name  of  the  state."    (Vattel,  J  151.)

1  It  is  difficult  to  conceive  of  any  authority  or  power  essential  to  the  external
administraUcm  between  sovereign   and  independent  nations,  which  is   not

f ranted  in  the  constitution,  to  be  exercised  by  the  general  government,
Ivery  sort  of  compact  or  agreement  necessary  to  adjust  their  rights  and  Inter-
ests in  time  of  peace,  can  be  entered  into  by  the  general  government,  and
made  binding  upon  the  nation ;  and  when  war  threatens,  the  government  can
invoke  and  command  the  power  of  the  nation;  can  command  and  apply  the
means  necessary  for  raising  and  equipping  the  land  and  naval  forces ;  can
marshal  and  lead  them  against  the  enemy ;  in  short,  can  do  everything  neces-
sary to  be  done  in  war  and  peace.
