Fotheringham John Knight
The Political History of England – Vol XI
ROYAL ASSENT TO THE BILL.
Anglesey, who had been recently dismissed from the lord-lieutenancy of Ireland, went beyond the duke in the use of purely military arguments; Grey ventured to prophesy not only a future reign of peace in Ireland, but an extension of protestantism, as the consequence of catholic emancipation. The hopeless attempt of Lyndhurst to vindicate his own consistency, and a forensic duel between Eldon and Plunket, who had been raised to the peerage in 1827, relieved the monotony of the debate, but probably did not influence a single vote. The old guard of the anti-catholic party remained firm, but the mass of tory peers followed their leader in his new policy, as they had followed him in his old, and the relief bill was read a third time in the house of lords on the 10th, by a majority of 104. Three days later it received the royal assent. Lord Eldon had virtually encouraged the king to refuse this, at the last moment, though he was too honest to accept the assurance of George IV. that the bill was introduced without his authority. But the son of George III. had not inherited his father's resolute character. After a few childish threats of retiring to Hanover and leaving the Duke of Clarence to make terms with the ministry, he abandoned further resistance and capitulated to Wellington, as Wellington had capitulated to O'Connell.
The disfranchisement of the forty-shilling freeholders and the substitution of a ten-pound suffrage was the price to be paid for catholic emancipation, and no time was lost in completing the bargain. In days when it is assumed that every change in the electoral franchise must needs be in a downward direction, it may well appear amazing that so wholesale a destruction of privileges enjoyed for thirty-six years should have provoked so feeble an opposition. It is still more amazing that it should have passed without a protest from O'Connell himself, who had solemnly vowed to perish on the field or on the scaffold rather than submit to it. Yet so it was. These ignorant voters, it is true, had never ventured to call their souls their own, and had only ceased to be the servile creatures of their landlords in order to become the servile creatures of their priests. Still, it was they who, by their action in the Waterford and Clare elections, had forced the hand of the government, and achieved catholic emancipation. It may safely be said that after the reform act of 1832 it would have been politically impossible to disfranchise them; and even in the unreformed parliament it would have been scarcely possible if gratitude were a trustworthy motive in politics. On the other hand, the government could never have secured a majority for catholic emancipation, unless it had been distinctly understood to carry with it the extinction of democracy in Ireland. This, rather than declarations and restrictions of doubtful efficacy, was the real "security" on which the legislature relied for disarming the disloyalty of Irish catholics. For some time it answered its purpose so far as to keep the representation of that disloyalty within safe limits in the house of commons. But it naturally produced a contrary effect in Ireland itself, and was destined to be swept away before a fresh wave of agitation.
A few days before the relief bill passed the house of commons an episode occurred which is chiefly interesting for the light which it throws on the ideas then prevalent in the highest society. In 1828 Wellington had presided at a meeting for the establishment of King's College, London, an institution which was to be entirely under the influence of the established church, and which was intended as a counterpoise to the purely secular institution which had been recently founded under the title of the "London University". The Earl of Winchilsea, a peer of no personal importance, but a stalwart upholder of Church and State, published in the Standard newspaper of March 16, 1829, a virulent letter, describing the whole transaction "as a blind to the protestant and high church party," and accusing the prime minister of insidious designs for the introduction of popery in every department of the state. The duke at once sent Hardinge with a note couched in moderate language, demanding an apology. Winchilsea made no apology, but offered to express regret for having mistaken the duke's motives, if the duke would declare that when he presided at the meeting in question he was not contemplating any measure of catholic relief. Whereupon the duke demanded "that satisfaction which a gentleman has a right to require, and which a gentleman never refuses to give". A hostile meeting took place on March 21 in Battersea fields. The duke intentionally fired wide, and Winchilsea, after discharging his weapon in the air, tendered a written apology, in conformity with the so-called rules of honour. The duke was conscious that his conduct must have "shocked many good men," but he always maintained that it was the only way, and proved an effectual way, of dispelling the atmosphere of calumny in which he was surrounded. It is probable that he judged rightly of his contemporaries, and that he gained rather than lost in reputation by an act which, apart from its moral aspect, risked the success of a great measure largely depending on the continuance of his own life. It may be noticed that he afterwards became not only the personal friend of his antagonist, but the most influential member of the Anti-Duelling Association.92
EXCLUSION OF O'CONNELL.
Another episode, or rather sequel, of the great contest on catholic relief had more serious political consequences. Though O'Connell was the undoubted leader of the movement, and might almost have claimed to be the father of the act, he was most unwisely but deliberately excluded from its benefits. His exclusion was effected by a clause which rendered its operation strictly prospective, for the very purpose of shutting out the one catholic who had been elected under the old law. It had been decided by a committee of the house of commons that he was duly returned, the only question being whether he could take his seat without subscribing the oath now abolished. This question was brought to a test by the appearance of O'Connell in person in the house itself. The speaker, Charles Manners-Sutton, declared that he could not properly be admitted to be sworn under the new law, upon which O'Connell claimed a hearing. A long and futile discussion followed as to whether he should be heard at the table or at the bar. In the end he was heard at the bar, and produced a very favourable impression upon his opponents as well as his friends by the ingenuity of his arguments and the studied moderation of his tone. His case, however, was manifestly untenable from a legal point of view, and a new writ was ordered to be issued for the county of Clare.
Then was shown both the folly of stirring up so needlessly the inflammable materials of Irish sedition and the futility of imagining that catholic emancipation, right or wrong, would prove a healing measure. Having exhibited the better side of his character in his speech before the house of commons, O'Connell exhibited its worst side without stint or shame in his addresses to the Irish peasantry. Skilfully avoiding the language of sheer treason, he set no bounds to his coarse and outrageous vituperation of the nation which had sacrificed even its conscience to appease Ireland; nor did he shrink from denouncing Wellington and Peel as "those men who, false to their own party, can never be true to us". The note which he struck has never ceased to vibrate in the hearts of the excitable people which he might have educated into loyal citizenship, and the spirit which he evoked has been the evil genius of Ireland from his day to our own. He openly unfurled the standard of repeal, but the repeal he demanded did not involve the creation of an Irish republic. Ireland was still to be connected with Great Britain by "the golden link of the crown," and though agitation was carried to the verge of rebellion, the great agitator never actually advised his dupes to rise in arms for a war of independence. Short of this he did all in his power, and with too much success, to inflame them with a malignant hatred of the sister country. If the promoters of catholic emancipation had ever looked for any reward beyond the inward satisfaction of having done a righteous act, they were speedily and wofully undeceived.
CHAPTER XII.
PORTUGAL AND GREECE
It is now time to turn to the general course of foreign policy during the closing years of the reign of George IV. The only foreign problems which gave serious trouble during this period were the Eastern and Portuguese questions. The influence which the former exercised on domestic policy has rendered it necessary to trace its course as far as the battle of Navarino in the last chapter. We must now take up the other question where we left it, at the recognition of the independence of Brazil and the expulsion of the Spanish troops from the mainland of America.
Peter I., Emperor of Brazil, though an independent sovereign, was still heir-apparent to the throne of Portugal, and the ultra-royalists hoped that, in spite of the provisions of the Brazilian constitution, his succession to his ancestral crown would restore the unity of the Portuguese dominions. The death of King John VI. on March 10, 1826, brought the matter to a crisis. Four days before his death he had appointed a council of regency which was to be presided over by his daughter, Isabella Maria, but from which the queen and Dom Miguel, then twenty-three, were both excluded. By this act the absolutist party were deprived of power until they should be restored to it by the action of the new king, or by a revolution. The regency wished the new king to make a speedy choice between the two crowns; and it was anticipated that he would abdicate the Portuguese crown in favour of his seven-year-old daughter, Maria da Gloria. The absolutists on the other hand hoped that the king might by procrastination avoid the separation of the crowns.
What was their surprise when they discovered that the king had indeed determined to procrastinate, but in such a way as to displease the absolutists as much as the friends of constitutional government? No sooner had the news of his father's death reached Peter at Rio Janeiro, than he issued a charter of 145 clauses, conferring a constitution on Portugal. This constitution which was destined to alternate for nearly a generation with absolute monarchy or with the revolutionary constitution of 1821, had the advantage of being the voluntary gift of the king. It was, however, composed in great haste, and, except that it retained the hereditary nobility as a first chamber in the cortes, was almost identical with the constitution established in Brazil in the previous December. Among other provisions it subjected the nobility to taxation and asserted the principle of religious toleration. A few days later, on the 2nd of May, King Peter executed an act of abdication in favour of his daughter Maria, providing, however, that the abdication should not come into effect until the necessary oaths had been taken to the new constitution and until the new queen should have been married to her uncle, Dom Miguel.
CIVIL WAR IN PORTUGAL.
This compromise pleased nobody. It is true that it seemed to make permanent the separation of Brazil from Portugal, since the former state was destined for Peter's infant son, afterwards Peter II.; but the Brazilian patriots would have preferred a more definite abandonment of the Portuguese throne, and Peter's half-measure of abdication was one of the main causes of the discontent which drove him to resign the Brazilian crown five years later. The Portuguese liberals were alarmed at the prospect of a restoration of Dom Miguel to power, while the absolutists were indignant at the imposition of a constitution. From the very first it encountered opposition. The new constitution was indeed proclaimed on July 13, and the necessary oaths were taken on the 31st. But on the same day a party, consisting mainly of Portuguese deserters in Spanish territory, proclaimed Miguel as king and the queen-mother as regent during his absence. Miguel, however, gave no open support to this party; on October 4 he actually took the oath to the new constitution, and on the 29th he formally betrothed himself at Vienna to the future Queen of Portugal. But the Portuguese insurgents were not deterred by the apparent defection of the prince whose claim to reign they asserted, and they received a thinly disguised encouragement from the Spanish government, which certainly did nothing to interfere with their organisation in Spanish territory. On the 10th the last insurgents had been expelled from Portuguese territory, but in November they were openly joined by some Spanish soldiers, and on the 22nd of that month they invaded the Portuguese province of Traz-os-Montes. Another division made a simultaneous irruption into the province of Alemtejo. This latter body was quickly expelled from the kingdom and marched through Spanish territory to join its more successful comrades in Northern Portugal. The whole province of Traz-os-Montes had fallen into the hands of the absolutists in a few days, and its defection was followed by that of the northern part of Beira, when the arrival of British forces gave the constitutional party the necessary encouragement to enable them to arrest the progress of the insurrection.
As in 1823, the Portuguese government, represented in London by Palmella, applied for British assistance against the ultra-royalists at home. But on the present occasion Portugal was able to appeal to something more than the general friendship of Great Britain. By the treaties of 1661 and 1703, renewed as recently as 1815, Great Britain was bound to defend Portugal against invasion, and Portugal now claimed the fulfilment of these treaties. The formal demand was received by the British ministry on December 3, but it was not till Friday, the 8th, that official intelligence was received of the invasion. Not a moment was lost in despatching 5,000 troops to Portugal. This resolution was formed by the cabinet on the 9th, approved by the king on the 10th, and communicated to parliament on the 11th. On the evening of the 12th Canning was able to inform the house of commons that the troops were already on the march for embarkation.
The debate in the house of commons on the address in answer to the royal message announcing the request of the Portuguese government, was the occasion of two of the most famous speeches that Canning ever delivered. After recounting the treaty obligations of this country to Portugal, and the circumstances of the Portuguese application for assistance, and disclaiming any desire to meddle with the domestic politics of Portugal, he referred to a previous anticipation that the next European war would be one "not so much of armies as of opinions". "Not four years," he proceeded, "have elapsed, and behold my apprehension realised! It is, to be sure, within narrow limits that this war of opinion is at present confined: but it is a war of opinion that Spain (whether as government or as nation) is now waging against Portugal; it is a war which has commenced in hatred of the new institutions of Portugal. How long is it reasonable to expect that Portugal will abstain from retaliation? If into that war this country shall be compelled to enter, we shall enter into it with a sincere and anxious desire to mitigate rather than exasperate, and to mingle only in the conflict of arms, not in the more fatal conflict of opinions. But I much fear that this country (however earnestly she may endeavour to avoid it) could not, in such case, avoid seeing ranked under her banners all the restless and dissatisfied of any nation with which she might come in conflict. It is the contemplation of this new power in any future war which excites my most anxious apprehension. It is one thing to have a giant's strength, but it would be another to use it like a giant. The consciousness of such strength is undoubtedly a source of confidence and security; but in the situation in which this country stands, our business is not to seek opportunities of displaying it, but to content ourselves with letting the professors of violent and exaggerated doctrines on both sides feel that it is not their interests to convert an umpire into an adversary."
In his reply at the close of the debate Canning vindicated his consistency in resisting Spanish aggression upon Portugal, while offering no resistance to the military occupation of Spain by France, which had not yet terminated. He pointed out that the Spain of his day was quite different from "the Spain within the limits of whose empire the sun never set – the Spain 'with the Indies' that excited the jealousies and alarmed the imaginations of our ancestors". He admitted that the entry of the French into Spain was a disparagement to the pride of England, but he thought it had been possible to obtain compensation without offering resistance in Spain itself. Then came the famous passage: "If France occupied Spain, was it necessary, in order to avoid the consequences of that occupation, that we should blockade Cadiz? No. I looked another way – I sought materials of compensation in another hemisphere. Contemplating Spain, such as our ancestors had known her, I resolved that if France had Spain, it should not be Spain 'with the Indies'. I called the new world into existence to redress the balance of the old."93
TROOPS SENT TO PORTUGAL.
The two speeches were greeted with applause both in parliament and in the country, but their vanity was excessive. So far from "creating the new world," Canning had merely recognised the existence of states which had already won their own independence, and even so he was only following the example of the United States. It was not only extremely foolish, but altogether disingenuous, to maintain that the recognition of the South American republics had been resolved on as a counterpoise to French influence in Spain. The reasons which prompted this recognition were commercial, not political, and it had been announced to the powers as our ultimate policy before any invasion of Spain had taken place. The king had only consented to the step on condition that it was not to be represented as a measure of retaliation, and Canning himself when he delivered these speeches knew that the French had promised to evacuate Spain in the following April.94 But however little justified by facts, the two speeches made a profound impression throughout Europe. Whatever Canning might desire, it was quite clear that he contemplated the possibility of a military alliance between this country and the revolutionary factions on the continent, and the impression gained ground that he desired to pose as the champion of liberalism against legitimate government.
The first detachment of the British army reached Lisbon on Christmas day. It was not destined, however, to play an active part in the Portuguese struggle. The insurgent army was as greatly discouraged as the loyal troops were elated by its arrival, and the government was moreover enabled to employ a larger force on the scene of hostilities. The insurgents were in consequence driven out of the province of Beira and the greater part of Traz-os-Montes. A new invasion from Spanish territory, supported by some Spanish soldiers and Spanish artillery, took place during January, 1827. The greater part of the province of the Minho fell into the hands of the rebels, and on February 2 they captured the important town of Braga. But the forces of the regency proved too strong for them, and early in March the insurgents evacuated Portugal altogether. The Spanish government, now that little could be effected by further assistance to the Portuguese refugees, determined at length to perform the duties of a neutral power, and disarmed them.
The British troops remained in Portugal till March, 1828. By that time the disturbances had assumed a purely domestic character, and it was ultimately decided to recall them. But a firmer policy than that actually followed would have been necessary in order to extricate Great Britain from the strife of Portuguese factions, in which her recent action had given a decided advantage to the constitutional party. That party had been driven into opposition before the British troops were recalled. On July 3, 1827, King Peter had issued a decree appointing Dom Miguel his lieutenant, and investing him with all the powers which belonged to him as king under the charter. Miguel, after visiting London, arrived at Lisbon on February 22, 1828, and was sworn in as regent four days later. As he was twenty-five years old, and therefore of full age according to Portuguese law, he could not with any show of equity have been kept out of the regency longer. Miguel's installation as regent was followed by a series of riots as well on the part of the absolutists, who desired to make him king, as on the part of the constitutionalists who feared that he would make himself king. It was not long before he definitely identified himself with the absolutist party.
MIGUEL'S USURPATION.
On March 14 the cortes were dissolved. On May 3 Miguel summoned the ancient cortes in his own name, and on June 26 they acknowledged him as king. The immediate result of this act was that all the ambassadors, except those of Spain and the Holy See, quitted Lisbon, and the lapse of time did not induce them to change their attitude towards Miguel. A further complication was introduced by Peter's definite abdication in favour of his daughter on March 3, executed before he had any suspicion of Miguel's designs, which placed Miguel in the position of regent for his infant niece instead of for his brother. After this formal abdication Peter despatched his daughter to Europe, intending that she should proceed to Vienna. When, however, she arrived at Gibraltar on September 2, her conductors, hearing of Miguel's usurpation, determined to take her to England, and she landed at Falmouth on the 24th. Peter, on hearing of Miguel's usurpation, naturally considered the regency terminated, and claimed to act as the guardian of the infant queen; the Brazilian ministers in Europe acted as his agents, while his partisans assembled in England and attempted to use this country as a basis for warlike operations in Portuguese territories.
The situation of 1826 was thus reversed. Instead of an ultra-royalist party resting on Spain, a constitutionalist party resting on Brazil and attempting to rest on England was now threatening the established government at Lisbon. Wellington was anxious to maintain a strict neutrality, but he failed to prevent a ship of war and supplies of arms and ammunition going from Plymouth to Terceira in the Azores, where Donna Maria was acknowledged as queen. He succeeded, however, in preventing a larger armament, which had been raised under the name of the Emperor of Brazil, with Rio Janeiro as its nominal destination, from landing at Terceira. This action, though the logical consequence of the British opposition to the conduct of Spain in 1826, was severely criticised in England as equivalent to an intervention on behalf of Miguel.
Meanwhile Canning's attempt to prevent the separate action of Russia in the Eastern question had been doomed to disappointment. The destruction of the Turkish navy at Navarino was naturally regarded at Constantinople as an outrage, and the Porte demanded satisfaction from the ambassadors of the allied powers. This they refused to grant on the ground that the Turks had been the aggressors, and they in their turn demanded an armistice between the Turkish troops and the Greek insurgents. As the Porte remained obdurate, the ambassadors of France, Great Britain, and Russia, acting in accordance with their instructions, left Constantinople on December 8, 1827. But though war seemed imminent, the tsar still disowned all idea of conquest, and professed to desire nothing further than the execution of the treaty of London. A protocol was accordingly signed on the 12th by which the three powers confirmed a clause in the treaty, providing that, in the event of war, none of them should derive any exclusive benefit, either commercial or territorial.
The British government imagined that the powers might still effect their object by diplomacy, and that it would not be necessary to abandon the Turkish alliance. But any such idea must have been rudely shaken by the hati-sherif of December 20. In that document the sultan enlarged on the cruelty and perfidy of the Christian powers and summoned the Muslim nations to arms: he denounced Russia in particular as the prime mover of the Greek rebellion, the instigator of the other powers, and the arch-enemy of Islam; and he declared the treaty of Akkerman, by which the outstanding disputes between Russia and the Porte had been settled in October, 1826, to have been extorted by force and only signed in order to save time. This defiance of Russia, if not of all Christendom, was followed by a levy of Turkish troops and the expulsion of most of the Christian residents from Constantinople. No course was now open to Russia but to make war. It remained to be seen whether any other power would join her. On January 6, 1828, a Russian despatch announced the tsar's intention of occupying the Danubian principalities, and suggested that France and Great Britain should force the Dardanelles and thus compel the Porte to comply with the provisions of the treaty of London.
WELLINGTON'S EASTERN POLICY.
It is possible that if the direction of British foreign policy had remained in the hands of Goderich and Dudley, our government might have lent its support to a settlement of the Eastern question which would in effect have been the work of Russia only. The more daring policy of Canning, by which Great Britain had attempted to take the lead as opportunity offered, either in active co-operation with Russia or in active opposition to her, could only be directed by a more versatile statesman than the nation now possessed. The accession to office of Wellington, though it left Dudley at the foreign office, was really marked by a return to the policy of Castlereagh, a policy which, if not brilliant, was at least honourable, consistent, and considerate, and which in the hands of Wellington was managed with a sufficient measure of firmness, though with less tact and insight than had been shown by Castlereagh. The first object of this policy was to keep the special grievances of Russia distinct from the complaints which Europe at large or, in the present situation, the three allied powers were able to bring against the Porte. By so doing the British government hoped to prevent Russia from dragging other powers into a war for her private benefit, and also to render it impossible for Russia to use her special grievances as a lever by which she might effect a separate settlement of the general question. For some years this policy was successful. Russia did indeed wage a separate war with the Turks, but the Greek question was settled by the three powers conjointly, and Great Britain rather than Russia took the lead in the settlement. It was only after Palmerston had succeeded to the direction of our foreign policy in 1830, that it was discovered how far the victory of Russia in war had placed her in a position to dictate the general policy of the Ottoman court.
Wellington experienced no difficulty in striking out a line of policy along which he could carry France with him. On February 21 De la Ferronays, who had been recalled from the French embassy at St. Petersburg to occupy the post of foreign minister in the new liberal administration, which had been formed in France in December, 1827, despatched a note urging the immediate employment of energetic measures against the Porte. He saw that the hati-sherif gave special occasion of war to Russia, and he was naturally anxious to anticipate her isolated action by combined measures of coercion. He had, however, nothing better to suggest than the execution of the Russian proposals of January 6. Wellington, in his reply, dated the 26th, rightly minimised the seriousness of the hati-sherif, and characterised the proposed measures of coercion as destined to be ineffectual. He also expressed the fear that if the three powers combined to make war on the Turks there would be a general insurrection of the subject races in the Turkish dominions which might last indefinitely. He therefore proposed first to settle the Greek question by local pressure, after which he anticipated no serious trouble about events at Constantinople. On the same day he drafted a memorandum to the cabinet in which he proposed that the allied squadrons should proceed to the Archipelago, blockade the Morea and Alexandria, destroy the Greek pirates, stop the warfare in Chios and Crete, and call upon the Greek government to withdraw the forces which were operating in western and eastern Greece respectively under the command of two foreign volunteers, General Church and Colonel Fabvier. In other words, he proposed to coerce not the Porte but the actual combatants, Greece and Egypt, and to check each party where it was the aggressor. If the prime object of the government in the eastern question was the maintenance of order, these proposals were excellent. The one capital defect of the whole scheme was that it ignored the Russian desire for war, which rendered it impossible for the tsar to postpone the settlement of his own grievances until an arrangement should be come to on the Greek question; on the other hand, by isolating the Greek question, it left it possible for the western powers to proceed with its solution in spite of the outbreak of hostilities between Russia and the Turks.95