On the shore at Perth Amboy, New Jersey, a British officer stepped out of his boat to meet three American civilians. They were members of the Continental Congress, sent as a committee to talk with the British admiral — at his invitation — about the possibility of peace. The officer who met them was a sort of hostage: while the three crossed over to Staten Island to meet with Admiral Howe, he would stay behind as security for their safe-conduct. It was understandable for Admiral Howe to send the officer, but the three Americans considered a hostage unnecessary, and they insisted that the officer accompany them to meet the admiral on Staten Island.
Admiral Lord Richard Howe and his brother, General Sir William Howe, in addition to being the commanders of the British navy and army in America, were “peace commissioners”: that is, they had been given a mission to try to talk the Americans into ending the war, and had been authorized to grant pardons to those who had rebelled. But since the time when they were given that mission, the Americans had declared independence, which made the situation much more difficult: even before the declaration of independence, the British couldn’t negotiate with the Continental Congress, because that would be acknowledging the Congress as a legal body; and after the declaration, negotiating with them would be acknowledging the United States as independent — which the British could not do without giving up the war. As a result, the meeting was somewhat unofficial.
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