1814]

THE TREATY OF PARIS

1335

won from the Dutch, and now, to complete its naval stations on the road to India, it insisted on the surrender of the Isle of France. The bases for the forthcoming Treaty of Vienna were also roughly laid by this peace. The published articles declared the independence of the States of Germany, the augmentation of Holland under the rule of the Prince of Orange, the independence of Switzerland and of the Italian States outside the limits of the Austrian possessions. Secret articles explained what these loose expressions meant. Belgium was to form the promised increase of Holland, and thus form with it a kingdom absolutely in the interest of England; the left bank of the Rhine was to supply compensations for the German princes (which meant that it was to be given to Bavaria in exchange for the Tyrol); the Po, the Ticino, and Lago Maggiore were to form the boundaries of Austrian Italy, which thus included the territory of Venice; and Sardinia was to receive Genoa in exchange for the portion of Savoy ceded to France.

monarchs to

The difficulties which were sure to attend the forthcoming Congress were already felt, and it was thought that the solution visit of the would be rendered easier by the establishment of per- England. sonal relations between the powers of the coalition. Aug. 1814. The great monarchs of Eastern Europe were therefore invited to visit the Prince Regent in England. The Emperor of Austria declined to come, but the Czar and the King of Prussia accepted the invitation, and were received with great pomp and enthusiasm. Several weeks were passed in universal gaiety, but the political object of the visit was not attained. The Czar seemed more than ever to occupy the first place among crowned heads; and the dread of Russian influence, and the determination to oppose its claims in the Congress, were thus only rendered stronger.

The meetings at Vienna, at first appointed for August, had been postponed to September, and thither, after their visit

Congress at

Sept. 1814.

to England, the monarchs themselves, and the ministers Vienna. who represented the various countries of the Congress, betook themselves. The interests of England were intrusted to Lord Castlereagh, a man of considerable firmness, but of mediocre ability, without accurate knowledge or broad views of the politics of Europe, and deficient in the conciliatory deportment so necessary for a successful diplomatist. The negotiators approached their difficult work in a spirit which promised no very good results. Almost of necessity the character of the Congress, and of the treaty it produced, belonged rather to the past than to the future. It was rendered

The interests

of the various countries at the Congress.

necessary by the changes created by the French Revolution, and was in the hands of a coalition called into existence to oppose the Revolution, and consisting chiefly of monarchs whose views were both absolutist and dynastic. The Czar alone had certain liberal tendencies, but they were so mixed with personal ambition as to excite mistrust instead of co-operation among the assembled negotiators. The Congress therefore assumed the form of an old European congress. It was occupied with the personal and peculiar interest of each sovereign, the increase of territory and influence of each nation, instead of attempting a settlement of Europe in accordance with any enlarged or general theory suitable to the great change and growth of ideas which had been at once the cause and effect of the Revolution. As far as England was concerned, its interests had already been chiefly secured by the Treaty of Paris. The new kingdom of the Netherlands, it was thought, would be strong enough to hold the mouths of the great rivers of that country, and thus prevent any revival of the Continental System; the road to India was rendered safe by the possession of the Cape of Good Hope and the Mauritius, while Malta guarded English influence in the Mediterranean. The maintenance of the old European balance was therefore the chief object which Castlereagh had now in view, endangered chiefly by the overwhelming power of Russia, threatening alike the countries of Europe and our own Asiatic dominions. The haste with which the Treaty of Paris had been concluded tied the hands of France, which was represented by Talleyrand; and the very moderate ambition of Louis XVIII, limited the claims of that country to the completion of the downfall of the Napoleonic system by the removal of Murat from the kingdom of Naples, and the establishment of the Spanish Princess, the Queen of Etruria, in the Duchy of Parma, which had been promised to Maria Louisa, Napoleon's wife. Louis was also anxious to save if possible the kingdom of Saxony from annihilation. The really important questions at issue regarded the settlement of the East of Europe and the fate of Poland and Saxony, which appeared indissolubly connected, so closely were the Courts of Russia and Prussia united. The Emperor of Russia was a man of enthusiastic temperament and liberal theories, and at the same time of great ambition. He found satisfaction for both sides of his character in a plan for the reconstitution of the kingdom of Poland, with a liberal constitution, either under his own rule as king or under some prince of his house acknowledging his supremacy. To complete this project he required

1814]

THE CONGRESS AT VIENNA

1337

the possession of the whole of Poland, a reward which the overweening value he set on his own services to the coalition induced him to regard as by no means more than his due. Both Prussia and Austria would have been called upon to restore certain portions of Poland which had fallen to their lot in the different partition treaties, but he supposed that his own resignation of certain portions would counterbalance these sacrifices, while Austria would be well rewarded by the possession of Lombardy and Venice, and Prussia by the whole of Saxony. The adhesion of the Saxon king to Napoleon was thought to justify the sovereigns of the coalition in confiscating his country, which, with the approbation of Russia, was claimed in its entirety by the Prussian Government. It is plain that the claims of Russia and Prussia could not but be in the last degree objectionable to Austria. Absolutist in its tendencies, it cared nothing for the freedom of Poland, while the possession of territory conterminous with the hereditary states of Austria would render Russia a most dangerous rival. At the same time, Prussia, the constant object of Austrian jealousy, if Saxony passed into its hands, would at once lose that broken and dislocated shape which had hitherto been its weakness, and would acquire a position in Germany which Austria could scarcely hope to equal. The policy of Austria was therefore clearly marked. The position of England was not so obvious. It is possible to say now, guided by the light of subsequent events, and led by the spirit of freedom and nationality which has made England at such vast strides of late years, that the Government of England, the home of free institutions and avowedly the champion of national liberty, should have come forward even then in that capacity, should have rejoiced at the reconstitution of Poland, and have sought the unification of Germany by supporting the power of Prussia, and should have objected to the establishment of Austria in Italy, a country where her rule was certain to be disliked by the population. But the English Government at the time was a Tory Government, bent rather upon restraining than increasing popular tendencies, and under the dominion of three overmastering influences -the desire to secure England from any possibility of a renewal of the Continental System, an extreme jealousy of the pretensions and power of the Russian Emperor, and the wish to establish for some years at all events the peace of Europe. Its policy was therefore inconsistent and shortsighted, but sensible and practical; the fear of the advance of Russia made the English ministry blind to its duties towards Poland; the satisfaction and friendship of France

The policy of

the Congress.

were more important than the rights of Genoa; the immediate balance of the powers of Germany was more important than the national aspirations either of Italy or of Germany.

The policy of France.

It so happened that the views of France were at this instani similar to those of England. Before the formal opening of the Congress an attempt had been made by the four great powers to get the management of it entirely into their own hands. France would thus have been excluded from the settlement of Europe; but Talleyrand was not a man to bear quietly such an exclusion; he appeared as the champion of the smaller states, and succeeded in thwarting the efforts of the great powers. This, with other less important causes, had embroiled him with the Emperor of Russia, whose objects he was thus bent on thwarting. The King of Saxony was a friend and relative of Louis XVIII.; to save him and his country from destruction was a part of the French programme. It therefore suited Talleyrand to adopt the views of Castlereagh.

Division of

Thus Austria, France, and England, in conjunction with the smaller German powers, who looked with great dislike to the the Congress. annihilation of one of the chief among them, were thrown upon one side, in opposition to Russia and Prussia. The arrogant and high-handed manner in which those two powers proceeded to take temporary possession of the countries which they claimed still further excited the anger of their opponents. So severe did the dispute grow, so indissoluble did the knot appear, that war between the powers themselves seemed threatening. The Treaty of Ghent and the conclusion of the English war with America allowed Castlereagh to act with more vigour, and in January a secret treaty was entered into between France, Austria, and England, by which each country agreed to supply troops to compel, if necessary, the adoption of their combined policy. Although this treaty was kept a secret, the firm attitude and the combination of the three powers were so evident that, as neither party really wished for war, a comCompromise agreed to. promise was discovered. About half of Saxony, with a third of its population, was taken from the King and given to Prussia, while the Czar, withdrawing from his extreme demand with regard to Poland, allowed the Duchy of Posen to remain in the hands of the Prussians, and a considerable portion of Gallicia, together with the district of Tarnopol, to be retained by Austria, while Krakow was to become a free and neutral republic. Poland was thus in part reconstituted, but entirely in the hands of Russia. These great questions being settled, the arrangements upon the

1815]

ESCAPE OF NAPOLEON

1339

minor points proceeded with some rapidity; the left bank of the Rhine was given to Bavaria; Genoa passed into the hands of Sardinia; the two houses of Hesse were re-established; Luxemburg was given to the Low Countries; Mayence became a Federal fortress; the Tyrol was restored to Austria; Switzerland was reorganized chiefly in accordance with the arrangements France had made there; the conduct of Murat, who began to show a tendency towards Napoleonism, facilitated the restoration of the Bourbons in Naples; Parma was given to Maria Louisa for her life; and the Congress completed its work by two great declarations of principle, one securing the freedom of the navigation of rivers, the other expressing, what was very dear to Englishmen at the time, a universal disapprobation of the slave trade.

Escape of

Before the conclusion of these questions Castlereagh had been compelled by the meeting of Parliament to return to England, and the Duke of Wellington had taken his place at Vienna. His work there was not completed when the news arrived that Napoleon had broken loose from Elba, and the Duke was wanted to take command of the allied army in Belgium. The Napoleon from renewal of the common danger produced a temporary harmony among the negotiators at Vienna. The chief questions were rapidly settled, and a joint proclamation, issued by the eight powers which had signed the Peace of Paris, declared Napoleon the public enemy of Europe. The Congress continued its sittings, but military preparations for the time absorbed all attention.

Elba.

preparations

against

It was agreed to act in accordance with the Treaty of Chaumont, each of the four great powers supplying its quota of troops, or in the case of England an equivalent in money. While Military the Prussians and the English with their allies were to advance into France and the Netherlands, the other Napoleon. powers were to pass the Rhine and join in a great advance upon Paris. It was hoped that by the end of April 500,000 men would be ready for the great movement. The French Court had taken refuge in the Netherlands, and as the people of that country were already half inclined to join the French, it seemed certain that that country would be the chief seat of operations; the war there was intrusted to the Anglo-allies under Wellington, and the Prussians under Prince Blücher. The hope of speedy action was quickly seen to be vain. Since the peace many countries had disbanded their troops, many of the best English regiments had been sent to America, and in spite of its long experience, the English Government