President Jefferson sent the Marines to clean up Tripoli as a means to protect American shipping.
If he had done that to protect Danish ships flagged in Bermuda or the Cayman Islands, with crews of Filipinos, carrying cargo from Asia to Europe ... he would have been set on fire on the front lawn of Monticello.
If he had done that to protect Danish ships flagged in Bermuda or the Cayman Islands.......
Irrelevant. Point is that foreign policy actions don’t require a giant bureaucracy.