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Britain was playing on the same weakness in America, punishing American exporters in the confidence that all thirteen states, behaving as separate actors, could not retaliate. Spain was also busy pitting Northern and Southern states against each other in its attempt to wrest the Mississippi from America. One characteristic of the failed governments Madison studied, from the Achaean League to the Belgic Confederacy, was paralysis. They were unable to get things done. The Achaeans required the agreement of ten of twelve members, and the Belgic Confederacy required unanimous consent. The Belgic Confederacy consisted of fifty-two independent cities and seven provinces. Thus foreign powers and enemies needed to co-opt only one city or province out of fifty-nine to get their way.3 It was exactly what both Madison and Monroe had continually experienced in Congress.
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Chris DeRose (Founding Rivals: Madison vs. Monroe, The Bill of Rights, and The Election that Saved a Nation)