He was also engaged in extreme and unwise deception. Shaftesbury had opposed the king’s measures in part because he had become acquainted, by one means or another, with the secret treaty whereby Charles became the pensionary of the king of France in exchange for his conversion to Catholicism. At the opening of parliament in January 1674, however, Charles stated that rumours of ‘secret articles of dangerous consequence’ were completely untrue and he declared, ‘I assure you, there is no other treaty with France, either before or since, not already printed, which shall not be made known.’ He was perceived to fumble with his notes at this point.
It had now become clear that the war against the Dutch could not be continued; the Spanish had now entered an alliance with the enemy and it was unthinkable that England would also declare war against Spain. Too much trade was at stake. So the Dutch now appointed the Spanish envoy in London as an arbitrator for peace. It could not come soon enough for all the participants. The Dutch agreed to pay an indemnity and consented to salute the English flag at sea; this was really a question of saving face, on the English side, and the outcome was hardly enough to justify a costly and bloody war of two years’ duration. The king announced the peace to parliament on 24 February, and then unexpectedly prorogued the session until November. The members of the Commons looked upon one another in amazement in light of the fact that, in the words of Lord Conway, ‘they had sat so long upon eggs and could hatch nothing’. Conway also observed that ‘now there will be a new game played at court, and the designs and interests of all men will be different from what they were’.
* * *
Thomas Osborne, who had emerged as the king’s principal minister, was created earl of Danby in the summer of the year. He was a determined and pugnacious Yorkshireman who firmly believed that the Anglican faith was of paramount importance in unifying the nation and who had as a result favoured alliances with the Protestant states of Europe. He was determined to reform royal finances, and to maintain control over parliament by any and every means possible; those methods included clandestine payments to members from secret service funds and the select distribution of various titles or offices. Danby did his best to demonstrate that the king was wholly in favour of the Anglican cause, and that Charles was determined to maintain an anti-French and an anti-Catholic stance.
As a pronounced royalist and courtier he was of course opposed by the earl of Shaftesbury and by the duke of Buckingham who, abandoned by the king, now joined together in the campaign against the court. It has been often observed that in the creation of these factions and interests we may see the modest beginnings of ‘party’ in the contemporary sense. From 1674 forward an ‘opposition’ to the royal cause began to emerge in the Commons, with the aim of imposing restrictions upon the king’s power and of upholding the supremacy of parliament.
Its members did not consider or call themselves a party, because the term implied disruption or disloyalty, yet in 1673 a member of parliament, Sir Thomas Meres, could speak of ‘this side of the house and that side’. The term was considered to be unparliamentary but it was observed, for example, that a cluster of members sat together in the ‘south-east corner’ of the chamber. The ‘court’ and ‘country’ parties were also distinguished. The former were intent upon maintaining all the rights and privileges of the throne while the latter wished, according to the parliamentarian Sir John Reresby, ‘to protect the country from being overburdened in their estates, in their privileges and liberties’.
In the spring of 1675 parliament reassembled. Here was another opportunity for Danby to reassert the primacy of orthodox Anglicanism at the court of Charles II. He had recently engaged in what Andrew Marvell called ‘window-dressing’ by taking in hand the rebuilding of St Paul’s Cathedral after the Great Fire; the first stone of Christopher Wren’s design was laid in the early summer. A brass statue of Charles I was also raised on its pedestal at Charing Cross.
Now in parliament, Danby wished to reintroduce a bill that compelled members of parliament and holders of public office to declare that resistance to the king was unlawful; they were also to be obliged to disown any alteration in Church or government. It was a measure designed to please what was still a ‘Cavalier Parliament’ in its fourteenth year. In a ‘Letter from a Person of Quality’ Shaftesbury denounced the proposal as a plot by ‘high episcopal men and cavaliers’ to establish an absolute government. In a speech to the Lords he had questioned that ‘if a king would make us a province, and tributary to France, and subdue the nation by a French army, or to the papal authority, must we be bound in that case tamely to submit’? The question was never answered. A formal battle between the Lords and the Commons, over the extent of their respective rights, meant that no business could be introduced. Danby’s measure failed, therefore, and the king prorogued parliament until October.
The summer of 1675 was spent in preparation and calculation. Some of the votes in the last session of parliament had been very close; there were occasions when frustration and anger erupted in mild violence as periwigs were pulled off and swords were drawn. On one occasion the Speaker had to bring the mace crashing down upon the table in order to restore order. Danby himself had been obliged to fight off charges of impeachment made against him by some of the Commons. So he was determined to create a majority for the court by what was called ‘high bribing’. Some thirty members were given pensions on the excise while others were granted minor offices.
In this same summer Charles also received another subsidy from the French king on condition that he further prorogued parliament or, in the event of a difficult session in October, dissolved the assembly altogether. Louis did not wish his cousin to be forced into measures against the French, while at the same time envoys from Spain, the United Provinces and elsewhere were busily bribing individual members of the parliament. Everyone was bribing everyone else.
The parliament of the autumn was not a success; the Commons voted £300,000 for the navy, but then vetoed the introduction of any new money bills. In the Lords the supporters of Shaftesbury and Buckingham argued for a dissolution, on the grounds that the ‘Cavalier Parliament’ was now old and corrupt. So on 22 November the king, without attempting to make a speech, prorogued parliament once more for a further fourteen months.
A report compiled for Danby, after the session was over, reveals the calculations of one of his managers.
Sir Nicholas Slanning. He was absent most part if not all last session. Lord Arundel should be sure to take care of him. Mr Josiah Child. I am loath to speak plain English, but if he were well observed he might be proved to be a capital offender. Mr Joseph Maynard. He seldom or never goes right. Mr John Grubham Howe. Your lordship knows who can influence him … Sir Thomas Bide is past cure. Sir John Cotton. He is a very good man, and rarely misses his vote, and then by mistake only. Some person (trusty) should always sit near him. Sir John Newton. I suspect he has been corrupted by Sir Robert Carr … Mr Henry Monson. Mr Cheney must take care of this gentleman, and that most particularly, for he is very uncertain unless one be at his elbow.
In the parliamentary recess Charles was angered into taking a clumsy and ill-considered measure to silence idle tongues. It was a winter of discontent at the failure of parliament and the maladministration of the king. So he agreed to issue a proclamation that closed all the coffee-houses of the city, in the knowledge that these were the places where his opponents gathered to plot and to plan. Those who followed Shaftesbury, for example, were accustomed to meet at Kid’s Coffee House otherwise known as the Amsterdam. The government employed at least one ‘coffee-house spy’ to keep an account of their proceedings.
Some observers blamed the appetite for news and scandal on the consumption of coffee. In the days of the tavern, sack and claret created an atmosphere of gaiety; but the city chamberlain, Sir Thomas Player, complained that ‘these sober clubs produce nothing but scandalous and censorious discourses, and at these nobody is spared’.
The king might also have taken th
e opportunity to close down the bookshops attended by the opposition which, in a memorandum, Danby described as devoted to spreading false news through city and country. The temperature of public debate and interest in the politics of the day was such that young law students flocked to the shops and stalls every afternoon, together with those citizens and gentry who were eager for the latest reports. The agents of every faction circulated among them, ready to lend their interpretation to any turn of events. The bookshops remained open, however, and such was the outcry over the closing of the coffee-houses that the proclamation was withdrawn. They had been shut down in January 1676, but were reopened ten days later. The volte-face was characteristic of the hesitation and confusion that beset all aspects of public policy.
At a later date, however, an attempt was made to exclude satires and newsletters that were composed, according to the king, by ‘sordid mechanic wretches who, to gain a little money, had the impudence and folly to prostitute affairs of state’. Yet the appetite for news could not be curbed or diminished. There was only one newspaper that was granted official authorization, the London Gazette, but this consisted mainly of proclamations, official pronouncements and advertisements.
Everybody needed news. Everybody wanted news. News was known as ‘hot’. It was a society of conversation so that rumour and gossip passed quickly through the streets. At times of more than usual excitement papers and pamphlets were dropped in the street and were eagerly snatched up and passed from hand to hand. Anonymous publications, without a printer’s imprint, were also widely circulated. One owner of a coffee-house trained his parrot to squawk ‘What’s the news?’ at his customers.
42
New infirmities
And what was the news? After the Commons had declined to pass any new money bills, Charles was once more compelled to turn to his French cousin for financial aid. It was agreed in the early months of 1676 that Louis would pay him a yearly pension, and that both kings would refrain from agreements with other powers without mutual consent. Charles told his brother about the arrangement and was congratulated for his fidelity to the Catholic sovereign. He also informed Danby, who was wholly opposed to any transactions with the French; he disapproved, and asked his master to take the advice of the privy council. Charles was in no mood to consult anyone, however; he wrote out the secret treaty in his own hand, and delivered it to the French ambassador. The king then retired to Windsor, where he supervised certain ‘improvements’ to the castle and went fishing.
When parliament reassembled in February 1677, after a prorogation of fifteen months, it was claimed by Shaftesbury and others that such a long suspension of proceedings was illegal; Buckingham proposed a motion to that effect and cited two statutes of Edward III, which ordained that parliament should meet ‘once a year, or oftener, if need be’. This was considered to be an affront to the royal prerogative. Shaftesbury and Buckingham were ordered to retract their ‘ill-advised’ action and to ask pardon of king and Lords. Both men refused and were promptly dispatched to the Tower for an indefinite period together with two other dissenting lords. Buckingham confessed his fault soon afterwards, and was released, while Shaftesbury preferred to remain in prison. ‘What, my lord,’ he called down to Buckingham as he departed the Tower, ‘are you leaving us so soon?’
‘Ay, my lord, you know that we giddy-pated fellows never stay long in one place at a time.’
France was still continuing its land war against the United Provinces, despite English withdrawal from the conflict, and in the spring of this year the French enjoyed a series of victories. The Commons reacted by reaffirming its animus against the French. The king was in any case suspect. He had in recent years acquired a French mistress, Louise de Kérouaille, made duchess of Portsmouth, thus binding his ties to the French court of which she was a prominent member as duchess of Aubigny. There is a famous story of the crowd threatening the coach of Nell Gwynn under the misapprehension that it contained the duchess; she called out, ‘Be silent, good people! I am the Protestant whore!’
Charles was in every sense a Frenchified king. An address was issued by both Houses of Parliament calling upon him to allay the anxieties of the nation by entering appropriate alliances with the opponents of Louis. At an audience with one of the ambassadors from the United Provinces, he threw his handkerchief into the air with the exclamation, ‘I care just that for parliament.’
On 23 May, however, the king invited the Commons to the Banqueting House in which he declared that ‘I do assure you on the word of a king that you shall not repent any trust you repose in me’; he then proceeded to ask for a further supply of money, ‘both to defend my subjects and offend my enemies’. They did not place very much faith in the king’s word, however, and two days later they found themselves ‘obliged (at present) to decline the granting your majesty the supply your majesty is pleased to demand’. They also called for the king to unite himself with the Dutch against the power of France.
An angry king then adjourned parliament on 28 May with a speech in which he said that ‘could I have been silent, I would rather have chosen to be so, than to call to mind things so unfit for you to meddle with’. He had told the French ambassador, the month before, that ‘I put myself in trouble with my subjects for love of the French king’. Soon enough he was negotiating for further supplies from his much loved cousin that would more than match the money withheld from him by parliament. He had adjourned that assembly to the summer, but in fact it did not meet again until the beginning of the following year.
In the meantime the earl of Danby endeavoured to burnish the Protestant credentials of the regime by furthering the scheme of marrying Mary, elder daughter of the duke of York and therefore niece of the king, to William of Orange. William was the leader of the United Provinces even then threatened by the French; since he was a Protestant champion, the union might have seemed unwise to a king who relied upon French money. Yet Charles assented to the match in part to placate the public clamouring for an alliance with the United Provinces, and in part with the hope that he might be able to negotiate some treaty of peace between William and Louis. He could then emerge as the saviour of Europe. He was, in short, looking both ways at once. The belief of Louis XIV that the English king was quite unreliable was amply confirmed. He suspended his financial subsidy, and rejected Charles’s proposal for an extended truce between France and the United Provinces. The marriage between William and Mary was solemnized at the beginning of November, to much public rejoicing. The Protestant powers were matched.
Parliament met finally in the last week of January 1678, in a more amenable atmosphere. In his opening speech the king confirmed that he ‘had made such alliances with Holland as are for the preservation of Flanders’, and that he now required ‘a plentiful supply’. The Commons resolved that all trade between England and France should be curtailed and that no peace could be made until France had withdrawn to its previous frontiers. In February the members proceeded to vote him £1 million for prosecuting the war against France. The money would not in fact be enough to wage a successful campaign, but Charles had in any case no intention of declaring war on Louis.
He was in a trap or, rather, by his double-dealing he had trapped himself. A period followed in which parliament was adjourned or reconvened on almost a monthly basis; the shortest session was 6 days and the longest 172 days while the recesses lasted from 10 days to 15 months. This aberrant pattern is a measure of the confusion into which public policy had fallen. Charles did not know where to turn. He wanted the French subsidy from Louis but he had also been promised by parliament £1 million to furnish the means to attack him. He was making active preparations for war against France, while at the same time assuring the French ambassador of his devotion to Louis.
Parliament was also thrown into doubt. It had voted funds to raise an army of 30,000 men, but what if the king should use that army for his own ends? Charles and Danby were consequently feared and distrusted. The French king was liberally distributin
g bribes to various parties, and all men complained that darkness and deep mist covered the affairs of state. Sir William Temple explained in his Memoirs that ‘from these humours arose those uncertainties in our counsels that no man, who was not behind the curtain, could tell what to make of’ the confused rumours and reports.
Towards the end of March 1678 the king instructed Danby to write to the English ambassador in Paris, Ralph Montagu, with an outline of possible peace proposals; Charles then demanded the payment of 6 million livres a year (more than £4,000 of gold) for three years, in return for using his influence with the Dutch to negotiate a treaty. The whole arrangement was to be hidden in the most complete secrecy and Montagu ‘must not mention a syllable of the money’. In his own hand the king added that ‘I approve of this letter’. It was perhaps the only way that he could have persuaded Danby to write it. Louis promptly refused the request, but Charles had left another hostage to fortune that would in time severely damage Danby himself.
Then Louis caught Charles unawares by making a separate peace with the United Provinces, leaving no room for the English king to manoeuvre himself into the good graces of one party or the other. He had in a sense been abandoned by his French cousin. This gave him pause for thought. He was walking through St James’s Park on a summer morning, in the middle of August, when he was approached by a chemist who worked in the royal laboratory. Charles, ever affable and courteous, greeted Christopher Kirkby with a salutation.
Kirkby then informed him that a Jesuit plot had been detected against his life; the sovereign was to be stabbed or poisoned so that the Catholic James, duke of York, could be raised to the throne. Charles, always inclined to dismiss such conspiracies as little more than hot air, advised Kirkby to consult his confidential secretary. Some desultory enquiries followed, in the course of which a long indictment against certain Jesuits was discovered. The supposed author of this indictment, Titus Oates, was then brought before a committee of the privy council to justify his accusations. Thus began the episode that became known as the ‘Popish Plot’.
Rebellion: The History of England from James I to the Glorious Revolution Page 48
