Chapter V: The Reign of George IV (3)

Lord Eldon, who was by no means weary of political life, became uneasy about his position, and certain arrangements at which the king had mysteriously hinted. The Lord Chancellor religiously obeyed his injunction to abstain from speaking on politics to anybody. But he was revolving in his mind not less anxiously who was to be the new leader of the House of Commons, and how the Constitution in Church and State might be best protected against the spirit of innovation. On the king's return from his northern metropolis the Lord Chancellor was about to press upon him the promotion to the vacant leadership of the House of Commons of Mr. Peel, who had won high distinction in the late debate upon the Catholic peers, when he found, to his unspeakable chagrin, that Lord Liverpool himself had selected Mr. Canning, and overcome the royal objections to him on the ground of his having been formerly the champion of the queen. He had represented to the king that this was the only arrangement by which the Whigs could be effectually excluded, and he gave him an assurance that Catholic Emancipation, though left an open question, should be resolutely opposed. Great as Mr. Canning's talents for Parliament were, and great as was the want of talent on the Ministerial side of the House, it was not without the utmost reluctance that the Cabinet consented to receive him as an associate. They invited him to fill the place vacated by Lord Londonderry, because he was forced upon them by circumstances, and they felt that the Government could not go on without his aid. His only competitor was Mr. Peel, who had not yet had sufficient opportunity of evincing his great powers for the conduct and discussion of public affairs to command the station which many of his colleagues would have gladly seen assigned to him. Canning was unpopular with the anti-Catholic party in general, and particularly obnoxious to the Lord Chancellor; and, besides, there was the great objection of his having been the friend and adherent of the queen. But Lord Liverpool, the Premier, having been associated with him from early life, was so thoroughly convinced that he was the fittest man for the post, and so well acquainted with his transcendent powers of intellect, that he prevailed upon him to relinquish the Governor-Generalship of India, to which he had been appointed, and to accept the vacant Secretaryship for Foreign Affairs, together with the leadership of the Commons.

This was not the only bitter pill that poor Lord Eldon was compelled to swallow. Without one word of intimation from the king or the Prime Minister, he learnt for the first time from the _Courier_ that Mr. Huskisson had been introduced into the Cabinet. Mr. Huskisson was made President of the Board of Trade, and in his stead Mr. Arbuthnot became First Commissioner of the Land Revenues. Mr. Vansittart, who had proved a very inefficient Chancellor of the Exchequer, was raised to the peerage by the title of Lord Bexley, and got the quiet office of Chancellor of the Duchy of Lancaster. He was succeeded in the more important office by a much abler financier, Mr. Robinson.

It was very generally understood that it had been definitely arranged that Lord Londonderry should represent England at the Congress of Verona, and it was universally believed, as we have seen, that this fact weighed on his mind and led to his suicide; but Mr. Gleig states that in consequence of the reluctance expressed by Lord Londonderry to undertake the mission, it had for some time been settled that England should be represented there by the Duke of Wellington, and that he had begun to make his preparations, when a severe illness fell upon him, from which he did not sufficiently recover to set out upon his journey till after Lord Londonderry's death. The Duke of Wellington started for his mission when Mr. Canning had been only forty-eight hours in office. Stress has been laid upon the fact that he received his instructions from Mr. Canning, and this has been declared to be the turning-point in our foreign policy, when England began to disengage herself from the Holy Alliance. She was not formally a party to that alliance, but the despots composing it had counted on her aid and influence in keeping down the nations which they oppressed. But Mr. Gleig states that Lord Londonderry himself had compiled a letter of instruction for the representative of England at the Congress, and that this was transferred without a single alteration to the Duke of Wellington. It is, he says, "a very interesting document. It touches upon every point which could be expected to come under consideration at the Congress, and it handles them all so as to guard with scrupulous care not only the honour of Great Britain, but the rights of foreign peoples as well as of their Governments. It assumes that the subjects of general discussion would be three: first, the Turkish question, external and internal; secondly, the Spanish question, European and American; and, thirdly, the affairs of Italy. With this last question the representative of England was directed not to concern himself at all. As England had been no party to the military occupation of Naples and Sardinia--as she had merely acquiesced in it with a view to prevent worse things--so she felt herself precluded from advising upon the arrangement now that it was complete, lest by so doing she should appear to admit the justice of a proceeding against which from the outset she had protested. The representative of Great Britain was therefore instructed to hold aloof from all meetings at which Italian affairs were to be discussed, and, if possible, to avoid connecting himself with the Congress till these should have been settled."

With regard to the Turkish question, all possible measures were in the first instance to be tried, with a view to reconcile the differences between Russia and Turkey. These referred to the Russian protection of the Christian subjects of the Sultan, and the navigation of the Dardanelles and the Bosphorus. When these matters were disposed of, then, and not till then, was the condition of Greece to be considered, and in dealing with this question the British plenipotentiary was to use great caution, to avoid committing England either to the recognition or subjugation of that country.

The case of Spain was the most perplexing of all. The British Cabinet expressed the opinion that no foreign Power had any right whatever to interfere with any form of government which she had established for herself, and that her king and people were to be left to settle their own differences as best they could. The representative of Great Britain was directed to urge this point with all his influence upon the Allies, and especially upon France. But the case of her revolted colonies was different. It was evident, from the course of events, that their recognition as independent States was become a mere question of time. Over by far the greater portion of them Spain had lost all hold, and it had been found necessary, in order to admit their merchant vessels into British ports, to alter the navigation laws both of Britain and Spain. The letter of instructions accordingly directed the British plenipotentiary to advocate a removal of the difficulty on this principle: that every province which had actually established its independence should be recognised; that with provinces in which the war still went on no relation should be established; there was to be no concert with France, or Russia, or any extraneous power, in establishing relations with the new States. "The policy projected was exclusively English and Spanish, and between England and Spain alone its course was to be settled. Other nations might or might not come into the views which England entertained; but upon their approval or disapproval of her views England was not in any way to shape her conduct."

There were other matters which the British representative was to bring forward, and foremost among them all was the suppression of the slave trade, either by a general declaration from the Allies that it should be treated as piracy, or by obtaining from them an engagement that they would not admit into their markets any article of colonial produce which was the result of slave labour. "It will be seen," says Mr. Gleig, "that the recognition of the actual independence of many of the Spanish colonies had already been determined upon by Great Britain, and that the establishment of diplomatic relations with them all had come to be considered as a mere question of time. This is a point worthy of notice, because of the misunderstanding in regard to it which originated in a speech subsequently delivered by Mr. Canning in the House of Commons, and which still, to a considerable extent, prevails. It will be further noticed that the principle observed by Lord Londonderry as the true principle was that of non-interference by Great Britain in the internal affairs of foreign nations. That the Duke of Wellington entirely coincided with Lord Londonderry in this respect, his conduct both now and in the future stages of his career clearly demonstrates. The leading object of his political life was to preserve the peace at home and abroad which it had been the great aim of his military life to conquer."

The Sovereigns of the Holy Alliance, however, acted on principles and with designs very different. Their general principle was not to tolerate any change in the European Governments that did not emanate from themselves. The Greek Revolution they denounced as a rebellion against the legitimate authority of the Sultan. The actual Government of Spain they regarded as incompatible with the safety of monarchical power, and France called upon the Sovereigns to re-establish the despotism of Ferdinand. Russia, Austria, and Prussia took the same view of the Spanish Revolution, but were unwilling to interfere by force of arms. France was not so scrupulous upon that point. Chateaubriand and other votaries of absolutism in Church and State were busy fomenting conspiracies in Spain, and secretly supplying arms and ammunition to the priest-ridden enemies of constitutional government in that country. An army which during the previous year had been assembled on the frontier, under the ridiculous pretence of preventing the fever at Barcelona from spreading into France, changed its name from that of a sanitary cordon to an army of observation. M. de Villele, the new French Prime Minister, threw off the mask, and in a circular note stated that unless Spain altered her political constitution, France would use force to convert her from her revolutionary theories.

Such was the state of things with which the Duke of Wellington had to deal as British plenipotentiary when he left London on his mission early in September, taking Paris on his way. There he had some interesting conferences with the king and his Minister. The latter could hold out no hope that France would fulfil her engagements as to the slave trade. He spoke, indeed, of their African settlements as useless to the French people, and proposed to make them over to Britain in exchange for the Isle of France; but farther than this he declined to go, because there were too many interests, both public and private, engaged to thwart his efforts, should he be so unwise as to make any. His language with regard to South America was not less vague and unsatisfactory. He stated that France had not entered into relations with those provinces in any form, and did not intend to do so till they should have settled their differences with Spain one way or another. M. de Villele did not add, as he might have done, that France was feeling her way towards the severance of Spain from her colonies, and towards the establishment in the New World of one or two monarchies, with younger branches of the House of Bourbon at their head.

The third topic discussed at these conferences was the nature of the relations then subsisting between France and Spain, and the projects of the former power in reference to the latter. These were explained by the Minister without any reserve, and with no symptoms of apprehension that they would be disagreeable to Britain, or of anxiety as to the result, whether they were so or not. He frankly avowed that, under cover of the sanitary cordon, 100,000 French troops were assembled; that it was proposed to throw them in two columns into Spain; that one column, of 40,000 men, was to pass into Catalonia, while the other, of 60,000, was to march by the great road through Irun upon Madrid. He stated that the sole object of this invasion was to insure the personal safety of the king, to afford him the opportunity to collect a native force strong enough to enable him to protect himself against the schemes of the Revolutionists--that is, to put down the Constitution. Of course, France said she entertained no views of conquest or aggrandisement, or even of prolonged occupation. She would withdraw her troops whenever the King of Spain said he could do without them, and yield up every inch of territory. In reference to this matter the Duke of Wellington wrote home for instructions, and in reply Canning said:--"If there be a determined project to interfere by force or by menace in the present struggle in Spain, so convinced are his Majesty's Government of the uselessness and danger of any such interference--so objectionable does it appear to them in principle, as well as utterly impracticable in execution--that when the necessity arises--or, I would rather say, when the opportunity offers--I am to instruct your grace at once frankly and peremptorily to declare that to any such interference, come what may, his Majesty will not be a party." To say that England peremptorily declined "to be a party" to the invasion of an independent state, in order to force upon the people a government contrary to their will, was not saying very much, nor putting the objection very strongly. We are assured, however, that the Duke steadily set his face against the project, pointing out that the step would be not only unjust, but impolitic; that it would precipitate the catastrophe which the French Government feared; that the Revolutionists would probably remove Ferdinand from Madrid as soon as they heard of the passing of the frontier by the French troops, and that, even if these troops should reach the capital, the Spaniards would not therefore submit, nor would the king be set at liberty. He argued that a war between France and Spain for such a purpose would be pronounced a war to put down free institutions, and that if France sought the support of her allies, the only one amongst them that had free institutions would feel it her duty to meet such a request with a refusal. Europe would be ranged into two hostile camps, that of absolutism on the one side and of revolution on the other; amid which not thrones only, but settled governments in every form, might be overthrown. In reply to these arguments, both the king and his Minister stated that whatever France might do in the matter she would do single-handed, and that she would not only not apply for assistance from without, but that, if such assistance were offered, she would refuse it. The Duke could not, however, prevail upon the French Government to refrain from bringing the question between France and Spain before the Congress. The king and his Minister both contended that vast moral good would accrue from a joint remonstrance on the part of the Allies against the treatment to which the King of Spain was subjected, and a joint threat that if any violence were offered to his person or family all would unite to avenge the outrage.

Having reported to Mr. Canning the result of his diplomatic efforts at Paris, the Duke set out on his journey to Vienna, where he arrived on the 29th of September, and where he expected the Congress to be held. But there again England's plenipotentiary, the great conqueror of Napoleon, who had restored the legitimate despots to their thrones, was treated with as little consideration as at Paris. Not till his arrival did he learn that the Congress which he was invited to attend was not to be held at Vienna at all, but at Verona. Meanwhile, in the interval between the adjournment from one city to another, the Allied Sovereigns were paying a visit of friendship to the King of Bavaria, whose system of government no doubt met with their unqualified approval. As the Duke's instructions forbade him to meddle with Italian affairs, he tarried at Vienna till he should receive further instructions from his own Government. While awaiting an answer he had opportunities of conferring personally with the Czar, who had obtained an ascendency in the councils of the Holy Alliance which rendered him the virtual master of every situation. With regard to the affairs of Turkey, the Duke succeeded in obtaining from his Imperial Majesty an assurance that, unless driven to it by some unforeseen and irresistible necessity, he would not come to an open rupture with the Sultan. He was not so successful in his exertions with regard to the Spanish question, on which the Czar was in an irritable mood. He said that Spain was the very centre and focus of revolutionary principles, and he felt it to be the duty not less than the policy of the Allied Sovereigns to trample them out at their source, and for this purpose he had proposed to contribute 150,000 men, whom he intended to march into Spain through French territory. In reply to the Duke's earnest remonstrances against this course, the Czar put a question which betrays the aggressive policy of military despots. He asked what he was to do with his army. It insisted upon being led against Turkey, and was only restrained because he had expressed his determination of employing it in putting down what he called Jacobinism in the west.

The British Cabinet having come to the conclusion that the Duke of Wellington ought not to abstain from attending the Congress because of its meeting in an Italian city, and thinking so himself, he set out for Verona, after a fortnight's sojourn in Vienna.

Wellington acquitted himself as well as could be expected in the circumstances. Austria was induced to acknowledge an old debt to Britain, and to pay an instalment. The utmost which she could obtain from the Allies on the slave trade was a reissue of the joint condemnation of the traffic which had been pronounced in 1815 at Vienna, and a special assurance from France that as soon as public feeling would admit, steps would be taken to carry out the treaty with Great Britain. In the discussion of the affairs of Italy the Duke took no part; but the peace which he had urged upon Russia and Turkey was happily concluded, on terms honourable to both. With regard to the struggles for freedom in Spain and other countries, the Duke found the Allied Sovereigns in the worst possible temper. They had no patience with Britain on account of her dissent, however mild, from their policy. "Hence, though England never expressed her approval of the military revolts in Spain and Italy, or even in South America, still, because she declined to be a party to the suppression of the free institutions in which they issued, Austria, Prussia, and Russia spoke of her as the champion of revolutionary principles all over the world."

Accordingly, the Duke found himself alone in his opposition to the plan of an armed intervention in Spain. It was at first proposed that all the Allies should unite in this; but it was ultimately agreed that a _procès verbal_ should be jointly adopted, in which the King of Spain and his family should be declared to be under the protection of Europe, and Spain threatened with a terrible vengeance if any injury were done to them. This _procès verbal_ was addressed to the head of the Spanish Government, with an explanation of the reasons for its adoption. The Duke was disappointed and mortified at the obstinate self-will of the crowned despots. He had gone to Verona in the hope that they would at all events be open to arguments in favour of peace; he found them bent on such a course as would render its preservation impossible. When the Ministers reduced their ideas to a definite shape, the incidents which they agreed to accept as leading necessarily to war appeared to him fallacious in the extreme. They were these:--First, an armed attack by Spain upon France. Second, any personal outrage offered to Ferdinand VII., or to any member of the Spanish royal family. Third, an act of the Spanish legislature dethroning the king, or interfering in any way with the right of succession. Austria, Prussia, and Russia accepted the conditions readily, adhering, at the same time, to the substance of the notes which they had previously put in.

The Duke produced a paper of his own, in which the three hypothetical causes of war were considered separately. He showed, "First, that an attack by Spain upon France was an occurrence beyond the range of human probability; next, that though, according to the usages of civilised nations, the persons of monarchs were held to be sacred, to extend a character of sanctity to those of other members of the Royal Family was a thing never before heard of in the history of the world; and lastly, that, till the Allies should be informed on sufficient authority that a plan for dethroning Ferdinand or changing the succession in Spain was actually in progress, to assume that such crimes might be perpetrated was to insult the whole Spanish nation. For his own part, he must decline to have any share in the transaction, or to deliver an opinion upon purely hypothetical cases further than this--that if the independence of Spain were assailed without just cause, Great Britain would be no party to the proceeding."

So prejudiced were the Allied Sovereigns against England, that they were ready to believe any tale to her disadvantage. One story which was circulated amongst them at the time was that Great Britain had bound herself to support Spain against France in return for certain stipulated commercial advantages. Another was that she had entered into a secret treaty to defend Portugal against France, even though Portugal should join Spain in the war. After all the Duke's arguments, explanations, and remonstrances, the French plenipotentiary was about to set off for Paris, representing all the Powers as being perfectly unanimous on the policy adopted towards Spain, and the Duke was obliged to threaten him with a public contradiction if he did not alter that statement and except Great Britain.

The Duke withdrew much dissatisfied with the turn affairs had taken, and distrustful of the issue. In a parting interview with the Emperor of Russia, the latter spoke at length in strong disapprobation of the refusal of England to co-operate in putting down revolution, and said, in conclusion, that Russia was prepared for every eventuality. "She was able, with the support of Austria and Prussia, to crush revolution both in France and Spain; and, if the necessity should arise, she was determined to do so." The Duke heard his Imperial Majesty to an end, and then ventured to assure him that the only thing for which Great Britain pleaded was the right of nations to set up whatever form of government they thought best, and to manage their own affairs, so long as they allowed other nations to manage theirs. Neither he nor the Government which he represented was blind to the many defects which disfigured the Spanish Constitution; but they were satisfied that they would be remedied in time. The Emperor could not gainsay the justice of these remarks, but neither was he willing to be persuaded by them; so, after expressing himself well pleased with the settlement of the Turkish question which had been effected, he embraced the Duke, and they parted.

The Duke arrived at Paris on the 9th of December, having spent more than two months at diplomacy with very unsatisfactory results. He found the king and his Minister, M. de Villele, much cooled in their feelings towards the Spanish Government, in consequence of the tone of moderation it had assumed after its defeat of the Royalist insurgents. The king was now disposed to recall his army of observation, if he could do so with honour, and all he pressed for now was that Spain should so modify her system as to make the Constitution emanate from the king, by resting it upon a royal charter and not upon the will of the people. If this were done, and done in time for him to explain the case to the Parliament, when they met on the 28th of January, everything else, every matter of arrangement and detail, would be left to the undisturbed management of the Spanish Cabinet and Cortes. This was truly very accommodating. If Spain would only recant her constitutionalism, and adopt the absolutist creed of Divine Right, the Allies would not send their armies into the country for the protection of the king against his people. The Duke having reported the altered state of feeling in the French Government, and all that had passed, to Mr. Canning, the Foreign Secretary instructed him to deliver an official note to M. de Villele, containing a direct offer from England to mediate. This offer was declined. On the 20th of December the Duke quitted Paris, and arrived in London early in January. Subsequently the diplomatic war was carried on between M. Chateaubriand and Mr. Canning, both men of genius, and masters of a brilliant style of rhetoric, to which the Duke of Wellington had no pretensions. Mr. Canning, alluding to the proposed armed intervention in Spain, with a view to stamp out the revolution, said, "The spirit of revolution--which, shut up within the Pyrenees, might exhaust itself with struggles, trying indeed to Spain, but harmless to her neighbours, when restricted--if called forth from within these precincts by the provocation of foreign attack, might find, perhaps, in other countries fresh aliment for its fury, and might renew throughout Europe the misery of the five-and-twenty years which preceded the peace of 1815."

On the 29th of January, 1823, the King of France opened the Chambers with a speech of decidedly warlike tone. It spoke of 100,000 French soldiers prepared to march under a prince of the blood for the deliverance of Ferdinand VII. and his loyal people from the tyranny of a portion. A few weeks afterwards the march commenced, and from the Bidassoa to Madrid it was a continued triumph. The king was set at liberty, and the gates of Cadiz were opened. The Spaniards were not true to themselves, the mass of the people being unable to appreciate liberal institutions. There was also a counter-revolution in Portugal, aided by foreign bayonets, restoring the despotic system. These events produced great dissatisfaction in England, and the Duke was strongly censured for the timidity of his tone in the Congress. Replying to attacks made in the Upper House by Lords Ellenborough, Holland, and Grey, he asked whether it would be becoming in one who appeared in the character of a mediator to employ threats, especially if he had no power to carry them into effect:--"Were they for a policy of peace or a policy of war? If for the former, could he go farther than to declare that to any violent attack on the independence of Spain the king his master would be no party? If for the latter, all he had to say was that he entirely differed from them, and he believed that his views would be supported by all the intelligent portion of the community."

The conduct of the Government in reference to the Congress was the subject of an animated debate in the House of Commons, which began on April 28th and lasted three days. It was on a motion for a Vote of Censure for the feebleness of tone assumed by the Government in the negotiations with the Allies, an amendment having been proposed expressive of gratitude and approbation. In Mr. Canning's speech on the third day there was one remarkable passage, which clearly defined his foreign policy, and showed that it had a distinct purpose, and aimed at an object of the highest importance. He said:--"I contend, sir, that whatever might grow out of a separate conflict between Spain and France (though matter for grave consideration) was less to be dreaded than that all the Great Powers of the Continent should have been arrayed together against Spain; and that although the first object, in point of importance, indeed, was to keep the peace altogether, to prevent any war against Spain, the first in point of time was to prevent a general war; to change the question from one affecting the Allies on the one side and Spain on the other, to a question between nation and nation. This, whatever the result might be, would reduce the quarrel to the size of ordinary events, and bring it within the scope of ordinary diplomacy. The immediate object of England, therefore, was to hinder the impress of a joint-character from being affixed to the war, if war there must be, with Spain; to take care that the war should not grow out of an assumed jurisdiction of the Congress; to keep within reasonable bounds that predominating _areopagitical_ spirit which the memorandum of the British Cabinet of May, 1820, describes as beyond the sphere of the original conception and understood principles of the alliance--an alliance never intended as a union for the government of the world, or for the superintendence of the internal affairs of other states; and this, I say, was accomplished."

The sense of the House was so completely with the Government, that Mr. Brougham, who led the Opposition, declined to go to a division. A division having been called for, however, on the part of Ministers, the whole assembly poured into the lobby, till it could hold no more; and then the remaining members who were shut in were compelled to pass for an opposition, though there were Ministerialists among them. They amounted to twenty, in a House of three hundred and seventy-two.

The aggressive policy of the Holy Alliance, and the French invasion of Spain, despite England's remonstrances, provoked Mr. Canning to hasten the recognition of the revolted colonies in South America. It was in defending this policy that he uttered the memorable sentence so often quoted as a specimen of the sublime:--"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."