Following the failure of the Carlisle Commission, British policy changed from treating the Patriots as subjects who needed to be reconciled to enemies who had to be defeated. In 1778, Howe was replaced by Sir Henry Clinton, appointed instead of Carleton who was considered overly cautious. Regarded as an expert on tactics and strategy, like his predecessors Clinton was handicapped by chronic supply issues. As a result, he was largely inactive in 1779 and much of 1780; in October 1780, he warned Germain of "fatal consequences" if matters did not improve.