The History of England, from the Accession of James II — Volume 1

The English resident at Brussels, Sir William Temple, one of the most expert diplomatists and most pleasing writers of that age, had already represented to this court that it was both desirable and practicable to enter into engagements with the States General for the purpose of checking the progress of France. For a time his suggestions had been slighted; but it was now thought expedient to act on them. He was commissioned to negotiate with the States General. He proceeded to the Hague, and soon came to an understanding with John De Witt, then the chief minister of Holland. Sweden, small as her resources were, had, forty years before, been raised by the genius of Gustavus Adolphus to a high rank among European powers, and had not yet descended to her natural position. She was induced to join on this occasion with England and the States. Thus was formed that coalition known as the Triple Alliance. Lewis showed signs of vexation and resentment, but did not think it politic to draw on himself the hostility of such a confederacy in addition to that of Spain. He consented, therefore, to relinquish a large part of the territory which his armies had occupied. Peace was restored to Europe; and the English government, lately an object of general contempt, was, during a few months, regarded by foreign powers with respect scarcely less than that which the Protector had inspired.

At home the Triple Alliance was popular in the highest degree. It gratified alike national animosity and national pride. It put a limit to the encroachments of a powerful and ambitious neighbour. It bound the leading Protestant states together in close union. Cavaliers and Roundheads rejoiced in common: but the joy of the Roundhead was even greater than that of the Cavalier. For England had now allied herself strictly with a country republican in government and Presbyterian in religion, against a country ruled by an arbitrary prince and attached to the Roman Catholic Church. The House of Commons loudly applauded the treaty; and some uncourtly grumblers described it as the only good thing that had been done since the King came in.

The King, however, cared little for the approbation of his Parliament or of his people. The Triple Alliance he regarded merely as a temporary expedient for quieting discontents which had seemed likely to become serious. The independence, the safety, the dignity of the nation over which he presided were nothing to him. He had begun to find constitutional restraints galling. Already had been formed in the Parliament a strong connection known by the name of the Country Party. That party included all the public men who leaned towards Puritanism and Republicanism, and many who, though attached to the Church and to hereditary monarchy, had been driven into opposition by dread of Popery, by dread of France, and by disgust at the extravagance, dissoluteness, and faithlessness of the court. The power of this band of politicians was constantly growing. Every year some of those members who had been returned to Parliament during the loyal excitement of 1661 had dropped off; and the vacant seats had generally been filled by persons less tractable. Charles did not think himself a King while an assembly of subjects could call for his accounts before paying his debts, and could insist on knowing which of his mistresses or boon companions had intercepted the money destined for the equipping and manning of the fleet. Though not very studious of fame, he was galled by the taunts which were sometimes uttered in the discussions of the Commons, and on one occasion attempted to restrain the freedom of speech by disgraceful means. Sir John Coventry, a country gentleman, had, in debate, sneered at the profligacy of the court. In any former reign he would probably have been called before the Privy Council and committed to the Tower. A different course was now taken. A gang of bullies was secretly sent to slit the nose of the offender. This ignoble revenge, instead of quelling the spirit of opposition, raised such a tempest that the King was compelled to submit to the cruel humiliation of passing an act which attainted the instruments of his revenge, and which took from him the power of pardoning them.

But, impatient as he was of constitutional restraints, how was he to emancipate himself from them? He could make himself despotic only by the help of a great standing army; and such an army was not in existence. His revenues did indeed enable him to keep up some regular troops: but those troops, though numerous enough to excite great jealousy and apprehension in the House of Commons and in the country, were scarcely numerous enough to protect Whitehall and the Tower against a rising of the mob of London. Such risings were, indeed to be dreaded; for it was calculated that in the capital and its suburbs dwelt not less than twenty thousand of Oliver's old soldiers.

Since the King was bent on emancipating himself from the control of Parliament, and since, in such an enterprise, he could not hope for effectual aid at home, it followed that he must look for aid abroad. The power and wealth of the King of France might be equal to the arduous task of establishing absolute monarchy in England. Such an ally would undoubtedly expect substantial proofs of gratitude for such a service. Charles must descend to the rank of a great vassal, and must make peace and war according to the directions of the government which protected him. His relation to Lewis would closely resemble that in which the Rajah of Nagpore and the King of Oude now stand to the British Government. Those princes are bound to aid the East India Company in all hostilities, defensive and offensive, and to have no diplomatic relations but such as the East India Company shall sanction. The Company in return guarantees them against insurrection. As long as they faithfully discharge their obligations to the paramount power, they are permitted to dispose of large revenues, to fill their palaces with beautiful women, to besot themselves in the company of their favourite revellers, and to oppress with impunity any subject who may incur their displeasure. 18 Such a life would be insupportable to a man of high spirit and of powerful understanding. But to Charles, sensual, indolent, unequal to any strong intellectual exertion, and destitute alike of all patriotism and of all sense of personal dignity, the prospect had nothing unpleasing.

That the Duke of York should have concurred in the design of degrading that crown which it was probable that he would himself one day wear may seem more extraordinary. For his nature was haughty and imperious; and, indeed, he continued to the very last to show, by occasional starts and struggles, his impatience of the French yoke. But he was almost as much debased by superstition as his brother by indolence and vice. James was now a Roman Catholic. Religious bigotry had become the dominant sentiment of his narrow and stubborn mind, and had so mingled itself with his love of rule, that the two passions could hardly be distinguished from each other. It seemed highly improbable that, without foreign aid, he would be able to obtain ascendency, or even toleration, for his own faith: and he was in a temper to see nothing humiliating in any step which might promote the interests of the true Church.

A negotiation was opened which lasted during several months. The chief agent between the English and French courts was the beautiful, graceful, and intelligent Henrietta, Duchess of Orleans, sister of Charles, sister in law of Lewis, and a favourite with both. The King of England offered to declare himself a Roman Catholic, to dissolve the Triple Alliance, and to join with France against Holland, if France would engage to lend him such military and pecuniary aid as might make him independent of his parliament. Lewis at first affected to receive these propositions coolly, and at length agreed to them with the air of a man who is conferring a great favour: but in truth, the course which he had resolved to take was one by which he might gain and could not lose.

It seems certain that he never seriously thought of establishing despotism and Popery in England by force of arms. He must have been aware that such an enterprise would be in the highest degree arduous and hazardous, that it would task to the utmost all the energies of France during many years, and that it would be altogether incompatible with more promising schemes of aggrandisement, which were dear to his heart. He would indeed willingly have acquired the merit and the glory of doing a great service on reasonable terms to the Church of which he was a member. But he was little disposed to imitate his ancestors who, in the twelfth and thirteenth centuries, had led the flower of French chivalry to die in Syria and Egypt: and he well knew that a crusade against Protestantism in Great Britain would not be less perilous than the expeditions in which the armies of Lewis the Seventh and of Lewis the Ninth had perished. He had no motive for wishing the Stuarts to be absolute. He did not regard the English constitution with feelings at all resembling those which have in later times induced princes to make war on the free institutions of neighbouring nations. At present a great party zealous for popular government has ramifications in every civilised country. And important advantage gained anywhere by that party is almost certain to be the signal for general commotion. It is not wonderful that governments threatened by a common danger should combine for the purpose of mutual insurance. But in the seventeenth century no such danger existed. Between the public mind of England and the public mind of France, there was a great gulph. Our institutions and our factions were as little understood at Paris as at Constantinople. It may be doubted whether any one of the forty members of the French Academy had an English volume in his library, or knew Shakespeare, Jonson, or Spenser, even by name. A few Huguenots, who had inherited the mutinous spirit of their ancestors, might perhaps have a fellow feeling with their brethren in the faith, the English Roundheads: but the Huguenots had ceased to be formidable. The French, as a people, attached to the Church of Rome, and proud of the greatness of their King and of their own loyalty, looked on our struggles against Popery and arbitrary power, not only without admiration or sympathy, but with strong disapprobation and disgust. It would therefore be a great error to ascribe the conduct of Lewis to apprehensions at all resembling those which, in our age, induced the Holy Alliance to interfere in the internal troubles of Naples and Spain.

Nevertheless, the propositions made by the court of Whitehall were most welcome to him. He already meditated gigantic designs, which were destined to keep Europe in constant fermentation during more than forty years. He wished to humble the United Provinces, and to annex Belgium, Franche Comte, and Loraine to his dominions. Nor was this all. The King of Spain was a sickly child. It was likely that he would die without issue. His eldest sister was Queen of France. A day would almost certainly come, and might come very soon, when the House of Bourbon might lay claim to that vast empire on which the sun never set. The union of two great monarchies under one head would doubtless be opposed by a continental coalition. But for any continental coalition France singlehanded was a match. England could turn the scale. On the course which, in such a crisis, England might pursue, the destinies of the world would depend; and it was notorious that the English Parliament and nation were strongly attached to the policy which had dictated the Triple Alliance. Nothing, therefore, could be more gratifying to Lewis than to learn that the princes of the House of Stuart needed his help, and were willing to purchase that help by unbounded subserviency. He determined to profit by the opportunity, and laid down for himself a plan to which, without deviation, he adhered, till the Revolution of 1688 disconcerted all his politics. He professed himself desirous to promote the designs of the English court. He promised large aid. He from time to time doled out such aid as might serve to keep hope alive, and as he could without risk or inconvenience spare. In this way, at an expense very much less than that which he incurred in building and decorating Versailles or Marli, he succeeded in making England, during nearly twenty years, almost as insignificant a member of the political system of Europe as the republic of San Marino.

His object was not to destroy our constitution, but to keep the various elements of which it was composed in a perpetual state of conflict, and to set irreconcilable enmity between those who had the power of the purse and those who had the power of the sword. With this view he bribed and stimulated both parties in turn, pensioned at once the ministers of the crown and the chiefs of the opposition, encouraged the court to withstand the seditious encroachments of the Parliament, and conveyed to the Parliament intimations of the arbitrary designs of the court.

One of the devices to which he resorted for the purpose of obtaining an ascendency in the English counsels deserves especial notice. Charles, though incapable of love in the highest sense of the word, was the slave of any woman whose person excited his desires, and whose airs and prattle amused his leisure. Indeed a husband would be justly derided who should bear from a wife of exalted rank and spotless virtue half the insolence which the King of England bore from concubines who, while they owed everything to his bounty, caressed his courtiers almost before his face. He had patiently endured the termagant passions of Barbara Palmer and the pert vivacity of Eleanor Gwynn. Lewis thought that the most useful envoy who could be sent to London, would be a handsome, licentious, and crafty Frenchwoman. Such a woman was Louisa, a lady of the House of Querouaille, whom our rude ancestors called Madam Carwell. She was soon triumphant over all her rivals, was created Duchess of Portsmouth, was loaded with wealth, and obtained a dominion which ended only with the life of Charles.

The most important conditions of the alliance between the crowns were digested into a secret treaty which was signed at Dover in May, 1670, just ten years after the day on which Charles had landed at that very port amidst the acclamations and joyful tears of a too confiding people.

By this treaty Charles bound himself to make public profession of the Roman Catholic religion, to join his arms to those of Lewis for the purpose of destroying the power of the United Provinces, and to employ the whole strength of England, by land and sea, in support of the rights of the House of Bourbon to the vast monarchy of Spain. Lewis, on the other hand, engaged to pay a large subsidy, and promised that, if any insurrection should break out in England, he would send an army at his own charge to support his ally.

This compact was made with gloomy auspices. Six weeks after it had been signed and sealed, the charming princess, whose influence over her brother and brother in law had been so pernicious to her country, was no more. Her death gave rise to horrible suspicions which, for a moment, seemed likely to interrupt the newly formed friendship between the Houses of Stuart and Bourbon: but in a short time fresh assurances of undiminished good will were exchanged between the confederates.

The Duke of York, too dull to apprehend danger, or too fanatical to care about it, was impatient to see the article touching the Roman Catholic religion carried into immediate execution: but Lewis had the wisdom to perceive that, if this course were taken, there would be such an explosion in England as would probably frustrate those parts of the plan which he had most at heart. It was therefore determined that Charles should still call himself a Protestant, and should still, at high festivals, receive the sacrament according to the ritual of the Church of England. His more scrupulous brother ceased to appear in the royal chapel.

About this time died the Duchess of York, daughter of the banished Earl of Clarendon. She had been, during some years, a concealed Roman Catholic. She left two daughters, Mary and Anne, afterwards successively Queens of Great Britain. They were bred Protestants by the positive command of the King, who knew that it would be vain for him to profess himself a member of the Church of England, if children who seemed likely to inherit his throne were, by his permission, brought up as members of the Church of Rome.

The principal servants of the crown at this time were men whose names have justly acquired an unenviable notoriety. We must take heed, however, that we do not load their memory with infamy which of right belongs to their master. For the treaty of Dover the King himself is chiefly answerable. He held conferences on it with the French agents: he wrote many letters concerning it with his own hand: he was the person who first suggested the most disgraceful articles which it contained; and he carefully concealed some of those articles from the majority of his Cabinet.

Few things in our history are more curious than the origin and growth of the power now possessed by the Cabinet. From an early period the Kings of England had been assisted by a Privy Council to which the law assigned many important functions and duties. During several centuries this body deliberated on the gravest and most delicate affairs. But by degrees its character changed. It became too large for despatch and secrecy. The rank of Privy Councillor was often bestowed as an honorary distinction on persons to whom nothing was confided, and whose opinion was never asked. The sovereign, on the most important occasions, resorted for advice to a small knot of leading ministers. The advantages and disadvantages of this course were early pointed out by Bacon, with his usual judgment and sagacity: but it was not till after the Restoration that the interior council began to attract general notice. During many years old fashioned politicians continued to regard the Cabinet as an unconstitutional and dangerous board. Nevertheless, it constantly became more and more important. It at length drew to itself the chief executive power, and has now been regarded, during several generations as an essential part of our polity. Yet, strange to say, it still continues to be altogether unknown to the law: the names of the noblemen and gentlemen who compose it are never officially announced to the public: no record is kept of its meetings and resolutions; nor has its existence ever been recognised by any Act of Parliament.

During some years the word Cabal was popularly used as synonymous with Cabinet. But it happened by a whimsical coincidence that, in 1671, the Cabinet consisted of five persons the initial letters of whose names made up the word Cabal; Clifford, Arlington, Buckingham, Ashley, and Lauderdale. These ministers were therefore emphatically called the Cabal; and they soon made that appellation so infamous that it has never since their time been used except as a term of reproach.

Sir Thomas Clifford was a Commissioner of the Treasury, and had greatly distinguished himself in the House of Commons. Of the members of the Cabal he was the most respectable. For, with a fiery and imperious temper, he had a strong though a lamentably perverted sense of duty and honour.

Henry Bennet, Lord Arlington, then Secretary of State, had since he came to manhood, resided principally on the Continent, and had learned that cosmopolitan indifference to constitutions and religions which is often observable in persons whose life has been passed in vagrant diplomacy. If there was any form of government which he liked it was that of France. If there was any Church for which he felt a preference, it was that of Rome. He had some talent for conversation, and some talent also for transacting the ordinary business of office. He had learned, during a life passed in travelling and negotiating, the art of accommodating his language and deportment to the society in which he found himself. His vivacity in the closet amused the King: his gravity in debates and conferences imposed on the public; and he had succeeded in attaching to himself, partly by services and partly by hopes, a considerable number of personal retainers.

Buckingham, Ashley, and Lauderdale were men in whom the immorality which was epidemic among the politicians of that age appeared in its most malignant type, but variously modified by greet diversities of temper and understanding. Buckingham was a sated man of pleasure, who had turned to ambition as to a pastime. As he had tried to amuse himself with architecture and music, with writing farces and with seeking for the philosopher's stone, so he now tried to amuse himself with a secret negotiation and a Dutch war. He had already, rather from fickleness and love of novelty than from any deep design, been faithless to every party. At one time he had ranked among the Cavaliers. At another time warrants had been out against him for maintaining a treasonable correspondence with the remains of the Republican party in the city. He was now again a courtier, and was eager to win the favour of the King by services from which the most illustrious of those who had fought and suffered for the royal house would have recoiled with horror.

Ashley, with a far stronger head, and with a far fiercer and more earnest ambition, had been equally versatile. But Ashley's versatility was the effect, not of levity, but of deliberate selfishness. He had served and betrayed a succession of governments. But he had timed all his treacheries so well that through all revolutions, his fortunes had constantly been rising. The multitude, struck with admiration by a prosperity which, while everything else was constantly changing, remained unchangeable, attributed to him a prescience almost miraculous, and likened him to the Hebrew statesman of whom it is written that his counsel was as if a man had inquired of the oracle of God.

Lauderdale, loud and coarse both in mirth and anger, was, perhaps, under the outward show of boisterous frankness, the most dishonest man in the whole Cabal. He had made himself conspicuous among the Scotch insurgents of 1638 by his zeal for the Covenant. He was accused of having been deeply concerned in the sale of Charles the First to the English Parliament, and was therefore, in the estimation of good Cavaliers, a traitor, if possible, of a worse description than those who had sate in the High Court of Justice. He often talked with a noisy jocularity of the days when he was a canter and a rebel. He was now the chief instrument employed by the court in the work of forcing episcopacy on his reluctant countrymen; nor did he in that cause shrink from the unsparing use of the sword, the halter, and the boot. Yet those who knew him knew that thirty years had made no change in his real sentiments, that he still hated the memory of Charles the First, and that he still preferred the Presbyterian form of church government to every other.

Unscrupulous as Buckingham, Ashley, and Lauderdale were, it was not thought safe to intrust to them the King's intention of declaring himself a Roman Catholic. A false treaty, in which the article concerning religion was omitted, was shown to them. The names and seals of Clifford and Arlington are affixed to the genuine treaty. Both these statesmen had a partiality for the old Church, a partiality which the brave and vehement Clifford in no long time manfully avowed, but which the colder and meaner Arlington concealed, till the near approach of death scared him into sincerity. The three other cabinet ministers, however, were not men to be kept easily in the dark, and probably suspected more than was distinctly avowed to them. They were certainly privy to all the political engagements contracted with France, and were not ashamed to receive large gratifications from Lewis.

The first object of Charles was to obtain from the Commons supplies which might be employed in executing the secret treaty. The Cabal, holding power at a time when our government was in a state of transition, united in itself two different kinds of vices belonging to two different ages and to two different systems. As those five evil counsellors were among the last English statesmen who seriously thought of destroying the Parliament, so they were the first English statesmen who attempted extensively to corrupt it. We find in their policy at once the latest trace of the Thorough of Strafford, and the earliest trace of that methodical bribery which was afterwards practiced by Walpole. They soon perceived, however, that, though the House of Commons was chiefly composed of Cavaliers, and though places and French gold had been lavished on the members, there was no chance that even the least odious parts of the scheme arranged at Dover would be supported by a majority. It was necessary to have recourse to fraud. The King professed great zeal for the principles of the Triple Alliance, and pretended that, in order to hold the ambition of France in check, it would be necessary to augment the fleet. The Commons fell into the snare, and voted a grant of eight hundred thousand pounds. The Parliament was instantly prorogued; and the court, thus emancipated from control, proceeded to the execution of the great design.