Great Britain and the American Civil War Part 1

Great Britain and the American Civil War.

by Ephraim Dougla.s.s Adams.

PREFACE

This work was begun many years ago. In 1908 I read in the British Museum many newspapers and journals for the years 1860-1865, and then planned a survey of English public opinion on the American Civil War. In the succeeding years as a teacher at Stanford University, California, the published diplomatic correspondence of Great Britain and of the United States were studied in connection with instruction given in the field of British-American relations. Several of my students prepared excellent theses on special topics and these have been acknowledged where used in this work. Many distractions and other writing prevented the completion of my original plan; and fortunately, for when in 1913 I had at last begun this work and had prepared three chapters, a letter was received from the late Charles Francis Adams inviting me to collaborate with him in preparing a "Life" of his father, the Charles Francis Adams who was American Minister to Great Britain during the Civil War. Mr. Adams had recently returned from England where he had given at Oxford University a series of lectures on the Civil War and had been so fortunate as to obtain copies, made under the scholarly supervision of Mr. Worthington C. Ford, of a great ma.s.s of correspondence from the Foreign Office files in the Public Record Office and from the private papers in the possession of various families.

The first half of the year 1914 was spent with Mr. Adams at Was.h.i.+ngton and at South Lincoln, in preparing the "Life." Two volumes were completed, the first by Mr. Adams carrying the story to 1848, the second by myself for the period 1848 to 1860. For the third volume I a.n.a.lysed and organized the new materials obtained in England and we were about to begin actual collaboration on the most vital period of the "Life" when Mr. Adams died, and the work was indefinitely suspended, probably wisely, since any completion of the "Life" by me would have lacked that individual charm in historical writing so markedly characteristic of all that Mr. Adams did. The half-year spent with Mr.

Adams was an inspiration and const.i.tutes a precious memory.

The Great War interrupted my own historical work, but in 1920 I returned to the original plan of a work on "Great Britain and the American Civil War" in the hope that the English materials obtained by Mr. Adams might be made available to me. When copies were secured by Mr. Adams in 1913 a restriction had been imposed by the Foreign Office to the effect that while studied for information, citations and quotations were not permissible since the general diplomatic archives were not yet open to students beyond the year 1859. Through my friend Sir Charles Lucas, the whole matter was again presented to the Foreign Office, with an exact statement that the new request was in no way related to the proposed "Life" of Charles Francis Adams, but was for my own use of the materials. Lord Curzon, then Foreign Secretary, graciously approved the request but with the usual condition that my ma.n.u.script be submitted before publication to the Foreign Office. This has now been done, and no single citation censored. Before this work will have appeared the limitation hitherto imposed on diplomatic correspondence will have been removed, and the date for open research have been advanced beyond 1865, the end of the Civil War.

Similar explanations of my purpose and proposed work were made through my friend Mr. Francis W. Hirst to the owners of various private papers, and prompt approval given. In 1924 I came to England for further study of some of these private papers. The Russell Papers, transmitted to the Public Record Office in 1914 and there preserved, were used through the courtesy of the Executors of the late Hon. Rollo Russell, and with the hearty goodwill of Lady Agatha Russell, daughter of the late Earl Russell, the only living representative of her father, Mr. Rollo Russell, his son, having died in 1914. The Lyons Papers, preserved in the Muniment Room at Old Norfolk House, were used through the courtesy of the d.u.c.h.ess of Norfolk, who now represents her son who is a minor.

The Gladstone Papers, preserved at Hawarden Castle, were used through the courtesy of the Gladstone Trustees. The few citations from the Palmerston Papers, preserved at Broadlands, were approved by Lieut.-Colonel Wilfred Ashley, M.P.

The opportunity to study these private papers has been invaluable for my work. Shortly after returning from England in 1913 Mr. Worthington Ford well said: "The inside history of diplomatic relations between the United States and Great Britain may be surmised from the official archives; the tinting and shading needed to complete the picture must be sought elsewhere." (Ma.s.s. Hist. Soc. _Proceedings_, XLVI, p. 478.) Mr.

C.F. Adams declared (_ibid._, XLVII, p. 54) that without these papers "... the character of English diplomacy at that time (1860-1865) cannot be understood.... It would appear that the commonly entertained impressions as to certain phases of international relations, and the proceedings and utterances of English public men during the progress of the War of Secession, must be to some extent revised."

In addition to the new English materials I have been fortunate in the generosity of my colleague at Stanford University, Professor Frank A.

Golder, who has given to me transcripts, obtained at St. Petersburg in 1914, of all Russian diplomatic correspondence on the Civil War. Many friends have aided, by suggestion or by permitting the use of notes and ma.n.u.scripts, in the preparation of this work. I have sought to make due acknowledgment for such aid in my foot-notes. But in addition to those already named, I should here particularly note the courtesy of the late Mr. Gaillard Hunt for facilities given in the State Department at Was.h.i.+ngton, of Mr. Herbert Putnam, Librarian of Congress, for the transcript of the Correspondence of Mason and Slidell, Confederate Commissioners in Europe, and of Mr. Charles Moore, Chief of Ma.n.u.scripts Division, Library of Congress, for the use of the Schurz Papers containing copies of the despatches of Schleiden, Minister of the Republic of Bremen at Was.h.i.+ngton during the Civil War. Especially thanks are due to my friend, Mr. Herbert Hoover, for his early interest in this work and for his generous aid in the making of transcripts which would otherwise have been beyond my means. And, finally, I owe much to the skill and care of my wife who made the entire typescript for the Press, and whose criticisms were invaluable.

It is no purpose of a Preface to indicate results, but it is my hope that with, I trust, a "calm comparison of the evidence," now for the first time available to the historian, a fairly true estimate may be made of what the American Civil War meant to Great Britain; how she regarded it and how she reacted to it. In brief, my work is primarily a study in British history in the belief that the American drama had a world significance, and peculiarly a British one.

EPHRAIM DOUGLa.s.s ADAMS.

GREAT BRITAIN AND THE AMERICAN CIVIL WAR

CHAPTER I

BACKGROUNDS

In 1862, less than a year after he had a.s.sumed his post in London, the American Minister, Charles Francis Adams, at a time of depression and bitterness wrote to Secretary of State Seward: "That Great Britain did, in the most terrible moment of our domestic trial in struggling with a monstrous social evil she had earnestly professed to abhor, coldly and at once a.s.sume our inability to master it, and then become the only foreign nation steadily contributing in every indirect way possible to verify its judgment, will probably be the verdict made against her by posterity, on calm comparison of the evidence[1]." Very different were the views of Englishmen. The historian, George Grote, could write: "The perfect neutrality [of Great Britain] in this destructive war appears to me almost a phenomenon in political history. No such forbearance has been shown during the political history of the last two centuries. It is the single case in which the English Government and public--generally so meddlesome--have displayed most prudent and commendable forbearance in spite of great temptations to the contrary[2]." And Sir William Harcourt, in September, 1863, declared: "Among all Lord Russell's many t.i.tles to fame and to public grat.i.tude, the manner in which he has steered the vessel of State through the Scylla and Charybdis of the American War will, I think, always stand conspicuous[3]."

Minister Adams, in the later years of the Civil War, saw reason somewhat to modify his earlier judgment, but his indictment of Great Britain was long prevalent in America, as, indeed, it was also among the historians and writers of Continental Europe--notably those of France and Russia.

To what extent was this dictum justified? Did Great Britain in spite of her long years of champions.h.i.+p of personal freedom and of leaders.h.i.+p in the cause of anti-slavery seize upon the opportunity offered in the disruption of the American Union, and forgetting humanitarian idealisms, react only to selfish motives of commercial advantage and national power? In brief, how is the American Civil War to be depicted by historians of Great Britain, recording her att.i.tude and action in both foreign and domestic policy, and revealing the principles of her statesmen, or the inspirations of her people?

It was to answer this question that the present work was originally undertaken; but as investigation proceeded it became progressively more clear that the great crisis in America was almost equally a crisis in the domestic history of Great Britain itself and that unless this were fully appreciated no just estimate was possible of British policy toward America. Still more it became evident that the American Civil War, as seen through British spectacles, could not be understood if regarded as an isolated and unique situation, but that the conditions preceding that situation--some of them lying far back in the relations of the two nations--had a vital bearing on British policy and opinion when the crisis arose. No expanded examination of these preceding conditions is here possible, but it is to a summary a.n.a.lysis of them that this first chapter is devoted.

On the American War for separation from the Mother Country it is unnecessary to dilate, though it should always be remembered that both during the war and afterwards there existed a minority in Great Britain strongly sympathetic with the political ideals proclaimed in America--regarding those ideals, indeed, as something to be striven for in Britain itself and the conflict with America as, in a measure, a conflict in home politics. But independence once acknowledged by the Treaty of Peace of 1783, the relations between the Mother Country and the newly-created United States of America rapidly tended to adjust themselves to lines of contact customary between Great Britain and any other Sovereign State. Such contacts, fixing national att.i.tude and policy, ordinarily occur on three main lines: governmental, determined by officials in authority in either State whose duty it is to secure the greatest advantage in power and prosperity for the State; commercial, resulting, primarily, from the interchange of goods and the business opportunities of either nation in the other's territory, or from their rivalry in foreign trade; idealistic, the result of comparative development especially in those ideals of political structure which determine the nature of the State and the form of its government. The more obvious of these contacts is the governmental, since the att.i.tude of a people is judged by the formal action of its Government, and, indeed, in all three lines of contact the government of a State is directly concerned and frequently active. But it may be of service to a clearer appreciation of British att.i.tude and policy before 1860, if the intermingling of elements required by a strict chronological account of relations is here replaced by a separate review of each of the three main lines of contact.

Once independence had been yielded to the American Colonies, the interest of the British Government rapidly waned in affairs American.

True, there still remained the valued establishments in the West Indies, and the less considered British possessions on the continent to the north of the United States. Meanwhile, there were occasional frictions with America arising from uncertain claims drawn from the former colonial privileges of the new state, or from boundary contentions not settled in the treaty of peace. Thus the use of the Newfoundland fisheries furnished ground for an acrimonious controversy lasting even into the twentieth century, and occasionally rising to the danger point.

Boundary disputes dragged along through official argument, survey commissions, arbitration, to final settlement, as in the case of the northern limits of the State of Maine fixed at last by the Treaty of Was.h.i.+ngton of 1842, and then on lines fair to both sides at any time in the forty years of legal bickering. Very early, in 1817, an agreement creditable to the wisdom and pacific intentions of both countries, was reached establis.h.i.+ng small and equal naval armaments on the Great Lakes.

The British fear of an American attack on Canada proved groundless as time went on and was definitely set at rest by the strict curb placed by the American Government upon the restless activities of such of its citizens as sympathized with the followers of McKenzie and Papineau in the Canadian rebellion of 1837[4].

None of these governmental contacts affected greatly the British policy toward America. But the "War of 1812," as it is termed in the United States, "Mr. Madison's War," as it was derisively named by Tory contemporaries in Great Britain, arose from serious policies in which the respective governments were in definite opposition. Briefly, this was a clash between belligerent and neutral interests. Britain, fighting at first for the preservation of Europe against the spread of French revolutionary influence, later against the Napoleonic plan of Empire, held the seas in her grasp and exercised with vigour all the accustomed rights of a naval belligerent. Of necessity, from her point of view, and as always in the case of the dominant naval belligerent, she stretched principles of international law to their utmost interpretation to secure her victory in war. America, soon the only maritime neutral of importance, and profiting greatly by her neutrality, contested point by point the issue of exceeded belligerent right as established in international law. America did more; she advanced new rules and theories of belligerent and neutral right respectively, and demanded that the belligerents accede to them. Dispute arose over blockades, contraband, the British "rule of 1756" which would have forbidden American trade with French colonies in war time, since such trade was prohibited by France herself in time of peace. But first and foremost as touching the personal sensibilities and patriotism of both countries was the British exercise of a right of search and seizure to recover British sailors.

Moreover this a.s.serted right brought into clear view definitely opposed theories as to citizens.h.i.+p. Great Britain claimed that a man once born a British subject could never cease to be a subject--could never "alienate his duty." It was her practice to fill up her navy, in part at least, by the "impressment" of her sailor folk, taking them whenever needed, and wherever found--in her own coast towns, or from the decks of her own mercantile marine. But many British sailors sought security from such impressment by desertion in American ports or were tempted to desert to American merchant s.h.i.+ps by the high pay obtainable in the rapidly-expanding United States merchant marine. Many became by naturalization citizens of the United States, and it was the duty of America to defend them as such in their lives and business. America ultimately came to hold, in short, that expatriation was accomplished from Great Britain when American citizens.h.i.+p was conferred. On sh.o.r.e they were safe, for Britain did not attempt to reclaim her subjects from the soil of another nation. But she denied that the American flag on merchant vessels at sea gave like security and she a.s.serted a naval right to search such vessels in time of peace, professing her complete acquiescence in a like right to the American navy over British merchant vessels--a concession refused by America, and of no practical value since no American citizen sought service in the British merchant marine.

This "right of search" controversy involved then, two basic points of opposition between the two governments. First America contested the British theory of "once a citizen always a citizen[5]"; second, America denied any right whatever to a foreign naval vessel in _time of peace_ to stop and search a vessel lawfully flying the American flag. The _right of search in time of war_, that is, a belligerent right of search, America never denied, but there was both then and later much public confusion in both countries as to the question at issue since, once at war, Great Britain frequently exercised a legal belligerent right of search and followed it up by the seizure of sailors alleged to be British subjects. Nor were British naval captains especially careful to make sure that no American-born sailors were included in their impressment seizures, and as the accounts spread of victim after victim, the American irritation steadily increased. True, France was also an offender, but as the weaker naval power her offence was lost sight of in view of the, literally, thousands of _bona fide_ Americans seized by Great Britain. Here, then, was a third cause of irritation connected with impressment, though not a point of governmental dispute as to right, for Great Britain professed her earnest desire to restore promptly any American-born sailors whom her naval officers had seized through error. In fact many such sailors were soon liberated, but a large number either continued to serve on British s.h.i.+ps or to languish in British prisons until the end of the Napoleonic Wars[6].

There were other, possibly greater, causes of the War of 1812, most of them arising out of the conflicting interests of the chief maritime neutral and the chief naval belligerent. The pacific presidential administration of Jefferson sought by trade restrictions, using embargo and non-intercourse acts, to bring pressure on both England and France, hoping to force a better treatment of neutrals. The United States, divided in sympathy between the belligerents, came near to disorder and disruption at home, over the question of foreign policy. But through all American factions there ran the feeling of growing animosity to Great Britain because of impressment. At last, war was declared by America in 1812 and though at the moment bitterly opposed by one section, New England, that war later came to be regarded as of great national value as one of the factors which welded the discordant states into a national unity. Naturally also, the war once ended, its commercial causes were quickly forgotten, whereas the individual, personal offence involved in impressment and right of search, with its insult to national pride, became a patriotic theme for politicians and for the press. To deny, in fact, a British "right of search" became a national point of honour, upon which no American statesman would have dared to yield to British overtures.

In American eyes the War of 1812 appears as a "second war of Independence" and also as of international importance in contesting an unjust use by Britain of her control of the seas. Also, it is to be remembered that no other war of importance was fought by America until the Mexican War of 1846, and militant patriotism was thus centred on the two wars fought against Great Britain. The contemporary British view was that of a nation involved in a life and death struggle with a great European enemy, irritated by what seemed captious claims, developed to war, by a minor power[7]. To be sure there were a few obstinate Tories in Britain who saw in the war the opportunity of smas.h.i.+ng at one blow Napoleon's dream of empire, and the American "democratic system." The London _Times_ urged the government to "finish with Mr. Bonaparte and then deal with Mr. Madison and democracy," arguing that it should be England's object to subvert "the whole system of the Jeffersonian school." But this was not the purpose of the British Government, nor would such a purpose have been tolerated by the small but vigorous Whig minority in Parliament.

The peace of 1814, signed at Ghent, merely declared an end of the war, quietly ignoring all the alleged causes of the conflict. Impressment was not mentioned, but it was never again resorted to by Great Britain upon American s.h.i.+ps. But the principle of right of search in time of peace, though for another object than impressment, was soon again a.s.serted by Great Britain and for forty years was a cause of constant irritation and a source of danger in the relations of the two countries. Stirred by philanthropic emotion Great Britain entered upon a world crusade for the suppression of the African Slave Trade. All nations in principle repudiated that trade and Britain made treaties with various maritime powers giving mutual right of search to the naval vessels of each upon the others' merchant vessels. The African Slave Trade was in fact outlawed for the flags of all nations. But America, smarting under the memory of impressment injuries, and maintaining in any case the doctrine that in time of peace the national flag protected a vessel from interference or search by the naval vessels of any other power, refused to sign mutual right of search treaties and denied, absolutely, such a right for any cause whatever to Great Britain or to any other nation.

Being refused a treaty, Britain merely renewed her a.s.sertion of the right and continued to exercise it.

Thus the right of search in time of peace controversy was not ended with the war of 1812 but remained a constant sore in national relations, for Britain alone used her navy with energy to suppress the slave trade, and the slave traders of all nations sought refuge, when approached by a British naval vessel, under the protection of the American flag. If Britain respected the flag, and sheered off from search, how could she stop the trade? If she ignored the flag and on boarding found an innocent American vessel engaged in legal trade, there resulted claims for damages by detention of voyage, and demands by the American Government for apology and reparation. The real slave trader, seized under the American flag, never protested to the United States, nor claimed American citizens.h.i.+p, for his punishment in American law for engaging in the slave trade was death, while under the law of any other nation it did not exceed imprisonment, fine and loss of his vessel.

Summed up in terms of governmental att.i.tude the British contention was that here was a great international humanitarian object frustrated by an absurd American sensitiveness on a point of honour about the flag. After fifteen years of dispute Great Britain offered to abandon any claim to a right of _search_, contenting herself with a right of _visit_, merely to verify a vessel's right to fly the American flag. America a.s.serted this to be mere pretence, involving no renunciation of a practice whose legality she denied. In 1842, in the treaty settling the Maine boundary controversy, the eighth article sought a method of escape. Joint cruising squadrons were provided for the coast of Africa, the British to search all suspected vessels except those flying the American flag, and these to be searched by the American squadron. At once President Tyler notified Congress that Great Britain had renounced the right of search. Immediately in Parliament a clamour was raised against the Government for the "sacrifice" of a British right at sea, and Lord Aberdeen promptly made official disclaimer of such surrender.

Thus, heritage of the War of 1812 right of search in time of peace was a steady irritant. America doubted somewhat the honesty of Great Britain, appreciating in part the humanitarian purpose, but suspicious of an ulterior "will to rule the seas." After 1830 no American political leader would have dared to yield the right of search. Great Britain for her part, viewing the expansion of domestic slavery in the United States, came gradually to attribute the American contention, not to patriotic pride, but to the selfish business interests of the slave-holding states. In the end, in 1858, with a waning British enthusiasm for the cause of slave trade suppression, and with recognition that America had become a great world power, Britain yielded her claim to right of search or visit, save when established by Treaty.

Four years later, in 1862, it may well have seemed to British statesmen that American slavery had indeed been the basic cause of America's att.i.tude, for in that year a treaty was signed by the two nations giving mutual right of search for the suppression of the African Slave Trade.

In fact, however, this was but an effort by Seward, Secretary of State for the North, to influence British and European opinion against the seceding slave states of the South.

The right of search controversy was, in truth, ended when American power reached a point where the British Government must take it seriously into account as a factor in general world policy. That power had been steadily and rapidly advancing since 1814. From almost the first moment of established independence American statesmen visualized the separation of the interests of the western continent from those of Europe, and planned for American leaders.h.i.+p in this new world.

Was.h.i.+ngton, the first President, emphasized in his farewell address the danger of entangling alliances with Europe. For long the nations of Europe, immersed in Continental wars, put aside their rivalries in this new world. Britain, for a time, neglected colonial expansion westward, but in 1823, in an emergency of European origin when France, commissioned by the great powers of continental Europe, intervened in Spain to restore the deposed Bourbon monarchy and seemed about to intervene in Spanish America to restore to Spain her revolted colonies, there developed in Great Britain a policy, seemingly about to draw America and England into closer co-operation. Canning, for Britain, proposed to America a joint declaration against French intervention in the Americas. His argument was against the principle of intervention; his immediate motive was a fear of French colonial expansion; but his ultimate object was inheritance by Britain of Spain's dying influence and position in the new world.

Canning's overture was earnestly considered in America. The ex-Presidents, Jefferson and Madison, recommended its acceptance, but the Secretary of State, John Quincy Adams, opposed this, favouring rather a separate declaration by the United States, and of this opinion was also President Monroe. Thus arose the Monroe Doctrine announcing American opposition to the principle of "intervention," and declaring that the American continents were no longer to be regarded as open to further colonization by European nations. The British emergency situation with France, though already quieted, caused Monroe's Message to be greeted in England with high approval. But Canning did not so approve it for he saw clearly that the Monroe Doctrine was a challenge not merely to continental Europe, but to England as well and he set himself to thwart this threatening American policy. Had Canning's policy been followed by later British statesmen there would have resulted a serious clash with the United States[8].

In fact the Monroe Doctrine, imposing on Europe a self-denying policy of non-colonial expansion toward the west, provided for the United States the medium, if she wished to use it, for her own expansion in territory and in influence. But for a time there was no need of additional territory for that already hers stretched from the Atlantic to the Rocky Mountains, two-thirds of the way from ocean to ocean. Her population was growing fast. But four millions at the time of the Revolution, there were thirteen millions in 1830, and of these nearly a third were already across the Appalachian range and were constantly pressing on towards new lands in the South and West. The Monroe Doctrine was the first definite notice given to Europe of America's preconceived "destiny," but the earlier realization of that destiny took place on lines of expansion within her own boundaries. To this there could be no governmental objection, whether by Great Britain or any other nation.

But when in the decade 1840 to 1850, the United States, to the view of British statesmen, suddenly startled the world by entering upon a policy of further territorial expansion, forsaking her peaceful progress and turning toward war, there was a quick determination on a line of British policy as regards the American advance. The first intimation of the new American policy came in relation to the State of Texas which had revolted from Mexico in 1836, and whose independence had been generally recognized by 1842. To this new state Britain sent diplomatic and consular agents and these reported two factions among the people--one seeking admission to the American Union, one desiring the maintenance of independence.

In 1841 Aberdeen had sent Lord Ashburton to America with instructions to secure, if possible, a settlement of all matters in dispute. Here was a genuine British effort to escape from national irritations. But before the Treaty of 1842 was signed, even while it was in the earlier stages of negotiation, the British Government saw, with alarm, quite new questions arising, preventing, to its view, that harmonious relation with the United States the desire for which had led to the Ashburton mission. This new development was the appearance of an American fever for territorial expansion, turning first toward Texas, but soon voiced as a "manifest destiny" which should carry American power and inst.i.tutions to the Pacific and even into Central America. Among these inst.i.tutions was that of slavery, detested by the public of Great Britain, yet a delicate matter for governmental consideration since the great cotton manufacturing interests drew the bulk of their supplies of raw cotton from the slave-holding states of America. If Texas, herself a cotton state, should join the United States, dependence upon slave-grown cotton would be intensified. Also, Texas, once acquired, what was there to prevent further American exploitation, followed by slave expansion, into Mexico, where for long British influence had been dominant?

On the fate of Texas, therefore, centred for a time the whole British policy toward America. Pakenham, the British minister to Mexico, urged a British pressure on Mexico to forgo her plans of reconquering Texas, and strong British efforts to encourage Texas in maintaining her independence. His theory foreshadowed a powerful buffer Anglo-Saxon state, prohibiting American advance to the south-west, releasing Britain from dependence on American cotton, and ultimately, he hoped, leading Texas to abolish slavery, not yet so rooted as to be ineradicable. This policy was approved by the British Government, Pakenham was sent to Was.h.i.+ngton to watch events, a _charge_, Elliot, was despatched to Texas, and from London lines were cast to draw France into the plan and to force the acquiescence of Mexico.

In this brief account of main lines of governmental contacts, it is unnecessary to recite the details of the diplomatic conflict, for such it became, with sharp antagonisms manifested on both sides. The basic fact was that America was bent upon territorial expansion, and that Great Britain set herself to thwart this ambition. But not to the point of war. Aberdeen was so incautious at one moment as to propose to France and Mexico a triple guarantee of the independence of Texas, if that state would acquiesce, but when Pakenham notified him that in this case, Britain must clearly understand that war with America was not merely possible, but probable, Aberdeen hastened to withdraw the plan of guarantee, fortunately not yet approved by Mexico[9].

The solution of this diplomatic contest thus rested with Texas. Did she wish annexation to the United States, or did she prefer independence?

Elliot, in Texas, hoped to the last moment that Texas would choose independence and British favour. But the people of the new state were largely emigrants from the United States, and a majority of them wished to re-enter the Union, a step finally accomplished in 1846, after ten years of separate existence as a Republic. The part played by the British Government in this whole episode was not a fortunate one. It is the duty of Governments to watch over the interests of their subjects, and to guard the prestige and power of the state. Great Britain had a perfect _right_ to take whatever steps she chose to take in regard to Texas, but the steps taken appeared to Americans to be based upon a policy antagonistic to the American expansion policy of the moment. The Government of Great Britain appeared, indeed, to have adopted a policy of preventing the development of the power of the United States. Then, fronted with war, she had meekly withdrawn. The basic British public feeling, fixing the limits of governmental policy, of never again being drawn into war with America, not because of fear, but because of important trade relations and also because of essential liking and admiration, in spite of surface antagonisms, was not appreciated in America. Lord Aberdeen indeed, and others in governmental circles, pleaded that the support of Texan independence was in reality perfectly in harmony with the best interests of the United States, since it would have tended toward the limitation of American slavery. And in the matter of national power, they consoled themselves with prophecies that the American Union, now so swollen in size, must inevitably split into two, perhaps three, rival empires, a slave-holding one in the South, free nations in North and West.

The fate of Texas sealed, Britain soon definitely abandoned all opposition to American expansion unless it were to be attempted northwards, though prophesying evil for the American madness. Mexico, relying on past favours, and because of a sharp controversy between the United States and Great Britain over the Oregon territory, expected British aid in her war of 1846 against America. But she was sharply warned that such aid would not be given, and the Oregon dispute was settled in the Anglo-Saxon fas.h.i.+on of vigorous legal argument, followed by a fair compromise. The Mexican war resulted in the acquisition of California by the United States. British agents in this province of Mexico, and British admirals on the Pacific were cautioned to take no active steps in opposition.

Thus British policy, after Texan annexation, offered no barrier to American expansion, and much to British relief the fear of the extension of the American plans to Mexico and Central America was not realized.

The United States was soon plunged, as British statesmen had prophesied, into internal conflict over the question whether the newly-acquired territories should be slave or free.

The acquisition of California brought up a new problem of quick transit between Atlantic and Pacific, and a ca.n.a.l was planned across Central America. Here Britain and America acted together, at first in amity, though the convention signed in 1850 later developed discord as to the British claim of a protectorate over the Atlantic end of the proposed ca.n.a.l at San Juan del Nicaragua. But Britain was again at war in Europe in the middle 'fifties, and America was deep in quarrel over slavery at home. On both sides in spite of much diplomatic intrigue and of manifestations of national pride there was governmental desire to avoid difficulties. At the end of the ten-year period Britain ceded to Nicaragua her protectorate in the ca.n.a.l zone, and all causes of friction, so reported President Buchanan to Congress in 1860, were happily removed. Britain definitely altered her policy of opposition to the growth of American power.

In 1860, then, the causes of governmental antagonisms were seemingly all at an end. Impressment was not used after 1814. The differing theories of the two Governments on British expatriation still remained, but Britain attempted no practical application of her view. The right of search in time of peace controversy, first eased by the plan of joint cruising, had been definitely settled by the British renunciation of 1858. Opposition to American territorial advance but briefly manifested by Britain, had ended with the annexation of Texas, and the fever of expansion had waned in America. Minor disputes in Central America, related to the proposed ca.n.a.l, were amicably adjusted.

But differences between nations, varying view-points of peoples, frequently have deeper currents than the more obvious frictions in governmental act or policy, nor can governments themselves fail to react to such less evident causes. It is necessary to review the commercial relations of the two nations--later to examine their political ideals.