Great Britain and the American Civil War Part 33

"I said that we might propose an armistice without mediation, and that if the other Powers joined with us in doing so, and let it be seen that a refusal would be followed by the recognition of the Southern States, the certainty of such recognition by all Europe must carry weight with it."

Thouvenel saw some difficulties, especially Russia.

"...the French Government had some time back sounded that of Russia as to her joining France and England in an offer of mediation and had been met by an almost scornful refusal...."

"It appears also that there is less public pressure here for the recognition of the South than there is in England[756]."

Thouvenel's lack of enthusiasm might have operated as a check to Russell had he not been aware of two circ.u.mstances causing less weight than formerly to be attached to the opinions of the French Secretary for Foreign Affairs. The first was the well-known difference on American policy between Thouvenel and Napoleon III and the well-grounded conviction that the Emperor was at any moment ready to impose his will, if only England would give the signal. The second circ.u.mstance was still more important. It was already known through the French press that a sharp conflict had arisen in the Government as to Italian policy and all signs pointed to a reorganization of the Ministry which would exclude Thouvenel. Under these circ.u.mstances Russell could well afford to discount Thouvenel's opinion. The extent to which he was ready to go--much beyond either the offer of mediation, or of armistice evidently in Cowley's mind--is shown by a letter to Gladstone, September 26.

"I am inclined to think that October 16 may be soon enough for a Cabinet, if I am free to communicate the views which Palmerston and I entertain to France and Russia in the interval between this time and the middle of next month.

These views had the offer of mediation to both parties in the first place, and in the case of refusal by the North, to recognition of the South. Mediation on the basis of separation and recognition accompanied by a declaration of neutrality[757]."

The perfected plan, thus outlined, had resulted from a communication to Palmerston of Cowley's report together with a memorandum, proposed to be sent to Cowley, but again _privately_[758], addressed to France alone.

Russell here also stated that he had explained his ideas to the Queen.

"She only wishes Austria, Prussia and Russia to be consulted. I said that should be done, but we must consult France first." Also enclosed was a letter from Stuart of September 9, reporting Mercier as just returned from New York and convinced that if advantage were not taken of the present time to do exactly that which was in Russell's mind, Europe would have to wait for the "complete exhaustion" of the North[759].

Russell was now at home again and the next day Palmerston approved the plans as "excellent"; but he asked whether it would not be well to include Russia in the invitation as a compliment, even though "she might probably decline." As to the other European powers the matter could wait for an "after communication." Yet that Palmerston still wished to go slowly is shown by a comment on the military situation in America:

"It is evident that a great conflict is taking place to the north-west of Was.h.i.+ngton, and its issue must have a great effect on the state of affairs. If the Federals sustain a great defeat, they may be at once ready for mediation, and the iron should be struck while it is hot. If, on the other hand, they should have the best of it, we may wait awhile and see what may follow[760]...."

Thus through Palmerston's caution Russia had been added to France in Russell's proposed memorandum and the communication to Cowley had not been sent off immediately--as the letter to Gladstone of September 26 indicates. But the plan was regarded as so far determined upon that on September 24 Russell requested Lyons not to fix, as yet, upon a date for his departure for America, writing, "M. Mercier is again looking out for an opportunity to offer mediation, and this time he is not so much out in his reckoning[761]." Curiously Mercier had again changed his mind and now thought a proposal of an armistice was the best move, being "particularly anxious that there should be no mention of the word _separation_," but of this Russell had, as yet, no inkling[762]. With full approval of the plan as now outlined, Palmerston wrote to Gladstone, September 24, that he and Russell were in complete agreement that an offer of mediation should be made by the three maritime powers, but that "no actual step would be taken without the sanction of the Cabinet[763]." Two days later Russell explained to Gladstone the exact nature of the proposal[764], but that there was even now no thoroughly worked out agreement on the sequence of steps necessary is shown by Palmerston's letter to Gladstone of the twenty-fourth, in which is outlined a preliminary proposal of an armistice, cessation of blockade, and negotiation on the basis of separation[765].

Other members of the Cabinet were likewise informed of the proposed overture to France and Russia and soon it was clear that there would be opposition. Granville had replaced Russell in attendance upon the Queen at Gotha. He now addressed a long and careful argument to Russell opposing the adventure, as he thought it, summing up his opinion in this wise:

"...I doubt, if the war continues long after our recognition of the South, whether it will be possible for us to avoid drifting into it."

"...I have come to the conclusion that it is premature to depart from the policy which has. .h.i.therto been adopted by you and Lord Palmerston, and which, notwithstanding the strong antipathy to the North, the strong sympathy with the South, and the pa.s.sionate wish to have cotton, has met with such general approval from Parliament, the press, and the public[766]."

But Granville had little hope his views would prevail. A few days later he wrote to Lord Stanley of Alderley:

"I have written to Johnny my reasons for thinking it decidedly premature. I, however, suspect you will settle to do so! Pam, Johnny, and Gladstone would be in favour of it; and probably Newcastle. I do not know about the others. It appears to me a great mistake[767]."

Opportunely giving added effect to Granville's letter there now arrived confused accounts from America of the battles about Was.h.i.+ngton and of a check to the Southern advance. On September 17 there had been fought the battle of Antietam and two days later Lee, giving up his Maryland campaign, began a retreat through the Shenandoah valley toward the old defensive Southern lines before Richmond. There was no pursuit, for McClellan, again briefly in command, thought his army too shattered for an advance. Palmerston had been counting on a great Southern victory and was now doubtful whether the time had come after all for European overtures to the contestants. October 2 he wrote Russell:

"MY DEAR RUSSELL,

"I return you Granville's letter which contains much deserving of serious consideration. There is no doubt that the offer of Mediation upon the basis of Separation would be accepted by the South. Why should it not be accepted? It would give the South in principle the points for which they are fighting. The refusal, if refusal there was, would come from the North, who would be unwilling to give up the principle for which they have been fighting so long as they had a reasonable expectation that by going on fighting they could carry their point. The condition of things therefore which would be favourable to an offer of mediation would be great success of the South against the North. That state of things seemed ten days ago to be approaching. Its advance has been lately checked, but we do not yet know the real course of recent events, and still less can we foresee what is about to follow. Ten days or a fortnight more may throw a clearer light upon future prospects.

"As regards possible resentment on the part of the Northerns following upon an acknowledgment of the Independence of the South, it is quite true that we should have less to care about that resentment in the spring when communication with Canada was open, and when our naval force could more easily operate upon the American coast, than in winter when we are cut off from Canada and the American coast is not so safe.

"But if the acknowledgment were made at one and the same time by England, France and some other Powers, the Yankees would probably not seek a quarrel with us alone, and would not like one against a European Confederation. Such a quarrel would render certain and permanent that Southern Independence the acknowledgment of which would have caused it.

"The first communication to be made by England and France to the contending parties might be, not an absolute offer of mediation but a friendly suggestion whether the time was not come when it might be well for the two parties to consider whether the war, however long continued, could lead to any other result than separation; and whether it might not therefore be best to avoid the great evils which must necessarily flow from a prolongation of hostilities by at once coming to an agreement to treat upon that principle of separation which must apparently be the inevitable result of the contest, however long it may last.

"The best thing would be that the two parties should settle details by direct negotiation with each other, though perhaps with the rancorous hatred now existing between them this might be difficult. But their quarrels in negotiation would do us no harm if they did not lead to a renewal of war. An armistice, if not accompanied by a cessation of blockades, would be all in favour of the North, especially if New Orleans remained in the hands of the North.

"The whole matter is full of difficulty, and can only be cleared up by some more decided events between the contending armies...."

PALMERSTON[768]."

Very evidently Palmerston was experiencing doubts and was all in favour of cautious delay. American military events more than Granville's arguments influenced him, but almost immediately there appeared a much more vigorous and determined opponent within the Cabinet. Cornewall Lewis was prompt to express objections. October 2, Russell transmitted to Palmerston a letter of disapproval from Lewis. Russell also, momentarily, was hesitating. He wrote:

"This American question must be well sifted. I send you a letter of G. Lewis who is against moving ..."

"My only doubt is whether we and France should stir if Russia holds back. Her separation from our move would ensure the rejection of our proposals. But we shall know more by the 16th. I have desired a cabinet to be summoned for that day, but the summons will not go out till Sat.u.r.day. So if you wish to stop it, write to Hammond[769]."

From this it would appear that Russia had been approached[770] but that Russell's chief concern was the att.i.tude of France, that his proposed private communication to Cowley had been despatched and that he was waiting an answer which might be expected before the sixteenth. If so his expectations were negatived by that crisis now on in the French Ministry over the Italian question prohibiting consideration of any other matter. On October 15 Thouvenel was dismissed, but his formal retirement from office did not take place until October 24. Several Ministers abroad, among them Flahault, at London, followed him into retirement and foreign affairs were temporarily in confusion[771]. The Emperor was away from Paris and all that Cowley reported was that the last time he had seen Thouvenel the latter had merely remarked that "as soon as the Emperor came back the two Governments ought to enter into a serious consideration of the whole question[772]...." Cowley himself was more concerned that it was now becoming clear France, in spite of previous protestations, was planning "colonizing" Mexico[773].

Up to the end of September, therefore, the British Government, while wholly confident that France would agree in any effort whatsoever that England might wish to make, had no recent a.s.surances, either official or private, to this effect. This did not disturb Russell, who took for granted French approval, and soon he cast aside the hesitation caused by the doubts of Granville, the opposition of Lewis, and the caution of Palmerston. Public opinion was certainly turning toward a demand for Ministerial action[774]. Two days of further consideration caused him to return to the attack; October 4 he wrote Palmerston:

"I think unless some miracle takes place this will be the very time for offering mediation, or as you suggest, proposing to North and South to come to terms.

"Two things however must be made clear:

(i) That we propose separation,

(ii) That we shall take no part in the war unless attacked ourselves[775]."

How Russell proposed to evade a war with an angry North was not made clear, but in this same letter notice was given that he was preparing a memorandum for the Cabinet. Russell was still for a mediation on lines of separation, but his uncertainty, even confusion, of mind became evident but another two days later on receipt of a letter from Stuart, written September 23, in which he and Mercier were now all for a suggestion of armistice, with no mention of separation[776]. Russell now thought:

"If no fresh battles occur, I think the suggestion might be adopted, tho' I am far from thinking with Mercier that the North would accept it. But it would be a fair and defensible course, leaving it open to us to hasten or defer recognition if the proposal is declined. Lord Lyons might carry it over on the 25th[777]."

British policy, as represented by the inclinations of the Foreign Secretary, having started out on a course portending positive and vigorous action, was now evidently in danger of veering far to one side, if not turning completely about. But the day after Russell seemed to be considering such an attenuation of the earlier plan as to be content with a mere suggestion of armistice, a bomb was thrown into the already troubled waters further and violently disturbing them. This was Gladstone's speech at Newcastle, October 7, a good third of which was devoted to the Civil War and in which he a.s.serted that Jefferson Davis had made an army, was making a navy, and had created something still greater--a nation[778]. The chronology of s.h.i.+fts in opinion would, at first glance, indicate that Gladstone made this speech with the intention of forcing Palmerston and Russell to continue in the line earlier adopted, thus hoping to bolster up a cause now losing ground.

His declaration, coming from a leading member of of the Cabinet, was certain to be accepted by the public as a foreshadowing of governmental action. If Jefferson Davis had in truth created a nation then early recognition must be given it. But this surmise of intentional pressure is not borne out by any discovered evidence. On the contrary, the truth is, seemingly, that Gladstone, in the north and out of touch, was in complete ignorance that the two weeks elapsed since his letters from Palmerston and Russell had produced any alteration of plan or even any hesitation. Himself long convinced of the wisdom of British intervention in some form Gladstone evidently could not resist the temptation to make the good news known. His declaration, foreshadowing a policy that did not pertain to his own department, and, more especially, that had not yet received Cabinet approval was in itself an offence against the traditions of British Cabinet organization. He had spoken without authorization and "off his own bat."

The speculative market, sensitive barometer of governmental policy, immediately underwent such violent fluctuations as to indicate a general belief that Gladstone's speech meant action in the war. The price of raw cotton dropped so abruptly as to alarm Southern friends and cause them to give a.s.surances that even if the blockade were broken there would be no immediate outpouring of cotton from Southern ports[779]. On the other hand, Bright, staunch friend of the North, _hoped_ that Gladstone was merely seeking to overcome a half-hearted reluctance of Palmerston and Russell to move. He was sore at heart over the "vile speech" of "your old acquaintance and friend[780]." The leading newspapers while at first accepting the Newcastle speech as an authoritative statement and generally, though mildly, approving, were quick to feel that there was still uncertainty of policy and became silent until it should be made clear just what was in the wind[781]. Within the Cabinet it is to be supposed that Gladstone had caused no small stir, both by reason of his unusual procedure and by his sentiments. On Russell, however much disliked was the incursion into his own province, the effect was reinvigoration of a desire to carry through at least some portion of the plan and he determined to go on with the proposal of an armistice. Six days after Gladstone's speech Russell circulated, October 13, a memorandum on America[782].

This memorandum a.s.serted that the South had shown, conclusively, its power to resist--had maintained a successful defensive; that the notion of a strong pro-Northern element in the South had been shown to be wholly delusive; that the emanc.i.p.ation proclamation, promising a freeing of the slaves in the sections still in rebellion on January 1, 1863, was no humanitarian or idealistic measure (since it left slavery in the loyal or recognized districts) and was but an incitement to servile war--a most "terrible" plan. For these reasons Russell urged that the Great Powers ought seriously to consider whether it was not their duty to propose a "suspension of arms" for the purpose of "weighing calmly the advantages of peace[783]." This was a far cry from mediation and recognition, nor did Russell indicate either the proposed terms of an armistice or the exact steps to be taken by Europe in bringing it about and making it of value. But the memorandum of October 13 does clearly negative what has been the accepted British political tradition which is to the effect that Palmerston, angered at Gladstone's presumption and now determined against action, had "put up" Cornewall Lewis to reply in a public speech, thereby permitting public information that no Cabinet decision had as yet been reached. Lewis' speech was made at Hereford on October 14. Such were the relations between Palmerston and Russell that it is impossible the former would have so used Lewis without notifying Russell, in which case there would have been no Foreign Office memorandum of the thirteenth[784]. Lewis was, in fact, vigorously maintaining his objections, already made known to Russell, to _any_ plan of departure from the hitherto accepted policy of neutrality and his speech at Hereford was the opening gun of active opposition.

Lewis did not in any sense pose as a friend of the North. Rather he treated the whole matter, in his speech at Hereford and later in the Cabinet as one requiring cool judgment and decision on the sole ground of British interests. This was the line best suited to sustain his arguments, but does not prove, as some have thought, that his Cabinet acknowledgment of the impossibility of Northern complete victory, was his private conviction[785]. At Hereford Lewis argued that everyone must acknowledge a great war was in progress and must admit it "to be undecided. Under such circ.u.mstances, the time had not yet arrived when it could be a.s.serted in accordance with the established doctrines of international law that the independence of the Southern States had been established[786]." In effect Lewis gave public notice that no Cabinet decision had yet been reached, a step equally opposed to Cabinet traditions with Gladstone's speech, since equally unauthorized, but excusable in the view that the first offence against tradition had forced a rejoinder[787]. For the public Lewis accomplished his purpose and the press refrained from comment, awaiting results[788]. Meanwhile Palmerston, who must finally determine policy, was remaining in uncertainty and in this situation thought it wise to consult, indirectly, Derby, the leader of the opposition in Parliament. This was done through Clarendon, who wrote to Palmerston on October 16 that Derby was averse to action.

"He said that he had been constantly urged to _go in for_ recognition and mediation, but had always refused on the ground that recognition would merely irritate the North without advancing the cause of the South or procuring a single bale of cotton, and that mediation in the present temper of the Belligerents _must_ be rejected even if the mediating Powers themselves knew what to propose as a fair basis of compromise; for as each party insisted upon having that which the other declared was vitally essential to its existence, it was clear that the war had not yet marked out the stipulations of a treaty of peace.... The recognition of the South could be of no benefit to England unless we meant to sweep away the blockade, which would be an act of hostility towards the North[789]."

More than any other member of the Cabinet Lewis was able to guess, fairly accurately, what was in the Premier's mind for Lewis was Clarendon's brother-in-law, and "the most intimate and esteemed of his male friends[790]." They were in constant communication as the Cabinet crisis developed, and Lewis' next step was taken immediately after Palmerston's consultation of Derby through Clarendon. October 17, Lewis circulated a memorandum in reply to that of Russell's of October 13. He agreed with Russell's statement of the facts of the situation in America, but added with sarcasm:

"A dispa.s.sionate bystander might be expected to concur in the historical view of Lord Russell, and to desire that the war should be speedily terminated by a pacific agreement between the contending parties. But, unhappily, the decision upon any proposal of the English Government will be made, not by dispa.s.sionate bystanders, but by heated and violent partisans; and we have to consider, not how the proposal indicated in the Memorandum ought to be received, or how it would be received by a conclave of philosophers, but how it is likely to be received by the persons to whom it would be addressed."

Lincoln's emanc.i.p.ation proclamation, Lewis admitted, presumably was intended to incite servile war, but that very fact was an argument against, not for, British action, since it revealed an intensity of bitterness prohibitory of any "calm consideration" of issues by the belligerents. And suppose the North did acquiesce in an armistice the only peaceful solution would be an independent slave-holding South for the establishment of which Great Britain would have become intermediary and sponsor. Any policy except that of the continuance of strict neutrality was full of dangers, some evident, some but dimly visible as yet. Statesmans.h.i.+p required great caution; "... looking to the probable consequences," Lewis concluded, "of this philanthropic proposition, we may doubt whether the chances of evil do not preponderate over the chances of good, and whether it is not--

'Better to endure the ills we have Than fly to others which we know not of[791].'"

At the exact time when Lewis thus voiced his objections, basing them on the lack of any sentiment toward peace in America, there were received at the Foreign Office and read with interest the reports of a British special agent sent out from Was.h.i.+ngton on a tour of the Western States.

Anderson's reports emphasized three points:

(1) Emanc.i.p.ation was purely a war measure with no thought of ameliorating the condition of the slaves once freed;

(2) Even if the war should stop there was no likelihood of securing cotton for a long time to come;

(3) The Western States, even more then the Eastern, were in favour of vigorous prosecution of the war and the new call for men was being met with enthusiasm[792].