CHAPTER XII

THE PROTECTORATE

1653-1660

[Sidenote: The Sword unveiled.]

The thin screen which the continuance of a little knot of representatives had thrown over the rule of the sword was at last torn away. So long as an a.s.sembly which called itself a House of Commons met at Westminster, men might still cling to a belief in the existence of a legal government. But now that even this was gone such a belief was no longer possible. The army itself had to recognize its own position. The dispersion of the Parliament and of the Council of State left England without a government, for the authority of every official ended with that of the body from which his power was derived; and Cromwell, as Captain-General, was forced to recognize his responsibility for the maintenance of public order. The one power left in England was the power of the sword. But, as in the revolution of 1648, so in the revolution of 1653, no thought of military despotism can be fairly traced in the acts of the general or the army. They were in fact far from regarding their position as a revolutionary one. Though incapable of justification on any formal ground, their proceedings since the establishment of the Commonwealth had as yet been substantially in vindication of the rights of the country to representation and self-government; and public opinion had gone fairly with the army in its demand for a full and efficient body of representatives, as well as in its resistance to the project by which the Rump would have deprived half England of its right of election. It was only when no other means existed of preventing such a wrong that the soldiers had driven out the wrongdoers. "It is you that have forced me to this," Cromwell exclaimed, as he drove the members from the House; "I have sought the Lord night and day that He would rather slay me than put me upon the doing of this work." If the act was one of violence to the little group who claimed to be a House of Commons, the act which it aimed at preventing was one of violence on their part to the const.i.tutional rights of the whole nation. The people had in fact been "dissatisfied in every corner of the realm" at the state of public affairs: and the expulsion of the members was ratified by a general a.s.sent. "We did not hear a dog bark at their going," the Protector said years afterwards. Whatever anxiety may have been felt at the use which was like to be made of "the power of the sword," was in great part dispelled by a proclamation of the officers. They professed that their one anxiety was "not to grasp the power ourselves nor to keep it in military hands, no not for a day," and their promise to "call to the government men of approved fidelity and honesty" was to some extent redeemed by the nomination of a provisional Council of State, consisting of eight officers of high rank and four civilians, with Cromwell as their head, and a seat in which was offered, though fruitlessly, to Vane.

[Sidenote: The Convention.]

The first business of such a body was clearly to summon a new Parliament and to resign its trust into its hands. But the bill for Parliamentary reform had dropped with the expulsion of the Rump; and reluctant as the Council was to summon a new Parliament on the old basis of election, it shrank from the responsibility of effecting so fundamental a change as the creation of a new basis by its own authority. It was this difficulty which led to the expedient of a Const.i.tuent Convention. Cromwell told the story of this unlucky a.s.sembly some years after with an amusing frankness. "I will come and tell you a story of my own weakness and folly. And yet it was done in my simplicity--I dare avow it was. . . .

It was thought then that men of our own judgement, who had fought in the wars, and were all of a piece on that account--why, surely, these men will hit it, and these men will do it to the purpose, whatever can be desired! And surely we did think, and I did think so--the more blame to me!" Of the hundred and fifty-six men, "faithful, fearing G.o.d, and hating covetousness," whose names were selected for this purpose by the Council of State from lists furnished by the Congregational churches, the bulk were men, like Ashley Cooper, of good blood and "free estates"; and the proportion of burgesses, such as the leather-merchant, Praise-G.o.d Barebones, whose name was eagerly seized on as a nickname for the body to which he belonged, seems to have been much the same as in earlier Parliaments. But the circ.u.mstances of their choice told fatally on the temper of its members. Cromwell himself, in the burst of rugged eloquence with which he welcomed their a.s.sembling on the fourth of July, was carried away by a strange enthusiasm. "Convince the nation," he said, "that as men fearing G.o.d have fought them out of their bondage under the regal power, so men fearing G.o.d do now rule them in the fear of G.o.d. . . . Own your call, for it is of G.o.d: indeed it is marvellous, and it hath been unprojected. . . . Never was a supreme power under such a way of owning G.o.d and being owned by Him." A spirit yet more enthusiastic appeared in the proceedings of the Convention itself.

[Sidenote: Its work.]

The resignation of their powers by Cromwell and the Council into its hands left it the one supreme authority; but by the instrument which convoked it provision had been made that this authority should be transferred in fifteen months to another a.s.sembly elected according to its directions. Its work was, in fact, to be that of a const.i.tuent a.s.sembly, paving the way for a Parliament on a really national basis.

But the Convention put the largest construction on its commission, and boldly undertook the whole task of const.i.tutional reform. Committees were appointed to consider the needs of the Church and the nation. The spirit of economy and honesty which pervaded the a.s.sembly appeared in its redress of the extravagance which prevailed in the civil service, and of the inequality of taxation. With a remarkable energy it undertook a host of reforms, for whose execution England has had to wait to our own day. The Long Parliament had shrunk from any reform of the Court of Chancery, where twenty-three thousand cases were waiting unheard. The Convention proposed its abolition. The work of compiling a single code of laws, begun under the Long Parliament by a committee with Sir Matthew Hale at its head, was again pushed forward. The frenzied alarm which these bold measures aroused among the lawyer cla.s.s was soon backed by that of the clergy, who saw their wealth menaced by the establishment of civil marriage and by proposals to subst.i.tute the free contributions of congregations for the payment of t.i.thes. The landed proprietors too rose against a scheme for the abolition of lay-patronage, which was favoured by the Convention, and predicted an age of confiscation. The "Barebones Parliament," as the a.s.sembly was styled in derision, was charged with a design to ruin property, the Church, and the law, with enmity to knowledge, and a blind and ignorant fanaticism.

[Sidenote: Close of the Convention.]

Cromwell himself shared the general uneasiness at its proceedings. His mind was that of an administrator rather than that of a statesman, unspeculative, deficient in foresight, conservative, and eminently practical. He saw the need of administrative reform in Church and State; but he had no sympathy whatever with the revolutionary theories which were filling the air around him. His desire was for "a settlement" which should be accompanied with as little disturbance of the old state of things as possible. If Monarchy had vanished in the turmoil of war, his experience of the Long Parliament only confirmed him in his belief of the need of establishing an executive power of a similar kind, apart from the power of the legislature, as a condition of civil liberty. His sword had won "liberty of conscience"; but, pa.s.sionately as he clung to it, he was still for an established Church, for a parochial system, and a ministry maintained by t.i.thes. His social tendencies were simply those of the cla.s.s to which he belonged. "I was by birth a gentleman," he told a later Parliament, and in the old social arrangement of "a n.o.bleman, a gentleman, a yeoman," he saw "a good interest of the nation and a great one." He hated "that levelling principle" which tended to the reducing of all to one equality. "What was the purport of it," he asks with an amusing simplicity, "but to make the tenant as liberal a fortune as the landlord? Which, I think, if obtained, would not have lasted long. The men of that principle, after they had served their own turns, would then have cried up property and interest fast enough." To a practical temper such as this the speculative reforms of the Convention were as distasteful as to the lawyers and clergy whom they attacked.

"Nothing," said Cromwell, "was in the hearts of these men but 'overturn, overturn.'" In December however he was delivered from his embarra.s.sment by the internal dissensions of the a.s.sembly itself. The day after the decision against t.i.thes the more conservative members s.n.a.t.c.hed a vote by surprise "that the sitting of this Parliament any longer, as now const.i.tuted, will not be for the good of the Commonwealth, and that it is requisite to deliver up unto the Lord-General the powers we received from him." The Speaker placed their abdication in Cromwell's hands, and the act was confirmed by the subsequent adhesion of a majority of the members.

[Sidenote: The Instrument of Government.]

The dissolution of the Convention replaced matters in the state in which its a.s.sembly had found them; but there was still the same general anxiety to subst.i.tute some sort of legal rule for the power of the sword. The Convention had named during its session a fresh Council of State, and this body at once drew up, under the name of the Instrument of Government, a remarkable Const.i.tution which was adopted by the Council of Officers. They were now driven by necessity to the step from which they had shrunk, that of convening a Parliament on the reformed basis of representation, though such a basis had no legal sanction. The House was to consist of four hundred members from England, thirty from Scotland, and thirty from Ireland. The seats. .h.i.therto a.s.signed to small and rotten boroughs were transferred to larger const.i.tuencies, and for the most part to counties. All special rights of voting in the election of members were abolished, and replaced by a general right of suffrage, based on the possession of real or personal property to the value of two hundred pounds. Catholics and "Malignants," as those who had fought for the king were called, were excluded for the while from the franchise.

Const.i.tutionally all further organization of the form of government should have been left to this a.s.sembly; but the dread of disorder during the interval of its election, as well as a longing for "settlement,"

drove the Council to complete their work by pressing the office of "Protector" upon Cromwell. "They told me," he pleaded afterwards, "that except I would undertake the government they thought things would hardly come to a composure or settlement, but blood and confusion would break in as before." If we follow however his own statement, it was when they urged that the acceptance of such a Protectorate actually limited his power as Lord-General, and "bound his hands to act nothing without the consent of a Council until the Parliament," that the post was accepted.

The powers of the new Protector indeed were strictly limited. Though the members of the Council were originally named by him, each member was irremovable save by consent of the rest: their advice was necessary in all foreign affairs, their consent in matters of peace and war, their approval in nominations to the great offices of State, or the disposal of the military or civil power. With this body too lay the choice of all future Protectors. To the administrative check of the Council was added the political check of the Parliament. Three years at the most were to elapse between the a.s.sembling of one Parliament and another, and, once met, it could not be prorogued or dissolved for five months. Laws could not be made nor taxes imposed but by its authority, and after the lapse of twenty days the statutes it pa.s.sed became laws, even though the Protector's a.s.sent was refused to them. The new Const.i.tution was undoubtedly popular; and the promise of a real Parliament in a few months covered the want of any legal character in the new rule. The Government was generally accepted as a provisional one, which could only acquire legal authority from the ratification of its acts in the coming session; and the desire to settle it on such a Parliamentary basis was universal among the members of the new a.s.sembly which met in September 1654 at Westminster.

[Sidenote: The Parliament of 1654.]

Few Parliaments have ever been more memorable, or more truly representative of the English people, than the Parliament of 1654. It was the first Parliament in our history where members from Scotland and Ireland sate side by side with those from England, as they sit in the Parliament of to-day. The members for rotten boroughs and pocket-boroughs had disappeared. In spite of the exclusion of Royalists and Catholics from the polling-booths, and the arbitrary erasure of the names of a few ultra-republican members by the Council, the House had a better t.i.tle to the name of a "free Parliament" than any which had sat before. The freedom with which the electors had exercised their right of voting was seen indeed in the large number of Presbyterian members who were returned, and in the reappearance of Haselrig and Bradshaw, with many members of the Long Parliament, side by side with Lord Herbert and the older Sir Harry Vane. The first business of the House was clearly to consider the question of government; and Haselrig, with the fiercer republicans, at once denied the legal existence of either Council or Protector, on the ground that the Long Parliament had never been dissolved. Such an argument however told as much against the Parliament in which they sate as against the administration itself, and the bulk of the a.s.sembly contented themselves with declining to recognize the Const.i.tution or Protectorate as of more than provisional validity. They proceeded at once to settle the government on a Parliamentary basis. The "Instrument" was taken as the groundwork of the new Const.i.tution, and carried clause by clause. That Cromwell should retain his rule as Protector was unanimously agreed; that he should possess the right of veto or a co-ordinate legislative power with the Parliament was hotly debated, though the violent language of Haselrig did little to disturb the general tone of moderation. Suddenly however Cromwell interposed. If he had undertaken the duties of Protector with reluctance, he looked on all legal defects in his t.i.tle as more than supplied by the general acceptance of the nation. "I called not myself to this place," he urged, "G.o.d and the people of these kingdoms have borne testimony to it." His rule had been accepted by London, by the army, by the solemn decision of the judges, by addresses from every shire, by the very appearance of the members of the Parliament in answer to his writ. "Why may I not balance this Providence," he asked, "with any hereditary interest?" In this national approval he saw a call from G.o.d, a Divine Right of a higher order than that of the kings who had gone before.

[Sidenote: Cromwell's administration.]

But there was another ground for the anxiety with which Cromwell watched the proceedings of the Commons. His pa.s.sion for administration had far overstepped the bounds of a merely provisional rule in the interval before the a.s.sembling of the Parliament. His desire for "settlement" had been strengthened not only by the drift of public opinion, but by the urgent need of every day; and the power reserved by the "Instrument" to issue temporary Ordinances "until further order in such matters, to be taken by the Parliament," gave a scope to his marvellous activity of which he at once took advantage. Sixty-four Ordinances had been issued in the nine months before the meeting of the Parliament. Peace had been concluded with Holland. The Church had been set in order. The law itself had been minutely regulated. The union with Scotland had been brought to completion. So far was Cromwell from dreaming that these measures, or the authority which enacted them, would be questioned, that he looked to Parliament simply to complete his work. "The great end of your meeting,"

he said at the first a.s.sembly of its members, "is healing and settling." Though he had himself done much, he added, "there was still much to be done." Peace had to be made with Portugal, and alliance with Spain. Bills were laid before the House for the codification of the law.

The plantation and settlement of Ireland had still to be completed. He resented the setting these projects aside for const.i.tutional questions which, as he held, a Divine call had decided, and he resented yet more the renewed claim advanced by Parliament to the sole power of legislation. As we have seen, his experience of the evils which had arisen from the concentration of legislative and executive power in the Long Parliament had convinced Cromwell of the danger to public liberty which lay in such a union. He saw in the joint government of "a single person and a Parliament" the only a.s.surance "that Parliaments should not make themselves perpetual," or that their power should not be perverted to public wrong.

[Sidenote: Dissolution of the Parliament.]

But whatever strength there may have been in the Protector's arguments, the act by which he proceeded to enforce them was fatal to liberty, and in the end to Puritanism. "If my calling be from G.o.d," he ended, "and my testimony from the People, G.o.d and the People shall take it from me, else I will not part from it." And he announced that no member would be suffered to enter the House without signing an engagement "not to alter the Government as it is settled in a single person and a Parliament." No act of the Stuarts had been a bolder defiance of const.i.tutional law; and the act was as needless as it was illegal. One hundred members alone refused to take the engagement, and the signatures of three-fourths of the House proved that the security Cromwell desired might have been easily procured by a vote of Parliament. But those who remained resumed their const.i.tutional task with unbroken firmness. They quietly a.s.serted their sole t.i.tle to government by referring the Protector's Ordinances to Committees for revision, and for conversion into laws. The "Instrument of Government" was turned into a bill, debated, and after some serious modifications read a third time. Money votes, as in previous Parliaments, were deferred till "grievances" had been settled.

But Cromwell once more intervened. The Royalists were astir again; and he attributed their renewed hopes to the hostile att.i.tude which he ascribed to the Parliament. The army, which remained unpaid while the supplies were delayed, was seething with discontent. "It looks," said the Protector, "as if the laying grounds for a quarrel had rather been designed than to give the people settlement. Judge yourselves whether the contesting of things that were provided for by this government hath been profitable expense of time for the good of this nation." In January 1655, with words of angry reproach he declared the Parliament dissolved.

[Sidenote: The Major-Generals.]

The dissolution of the Parliament of 1654 was a turning-point in the relations of England and the army. As yet neither the people nor the soldiers had fairly recognized the actual state of affairs. From the revolution of 1648 the sword had been supreme, but its supremacy had been disguised by the continuance of the Rump. When the Rump was expelled, the military rule which followed still seemed only provisional. The bulk of Englishmen and the bulk of the army itself looked on its att.i.tude as simply imposed on it by necessity, and believed that with the a.s.sembly of a Parliament all would return to a legal course. But the Parliament had come and gone; and the army still refused to lay down the sword. On the contrary, it seemed at last to resolve to grasp frankly the power which it had so long shrunk from openly wielding. All show of const.i.tutional rule was now at an end. The Protectorate, deprived by its own act of all chance of legal sanction, became a simple tyranny. Cromwell professed indeed to be restrained by the "Instrument": but the one great restraint on his power which the Instrument provided, the inability to levy taxes save by consent of Parliament, was set aside on the plea of necessity. "The People," said the Protector in words which Strafford might have uttered, "will prefer their real security to forms." That a danger of Royalist revolt existed was undeniable, but the danger was at once doubled by the general discontent. From this moment, Whitelock tells us, "many sober and n.o.ble patriots," in despair of public liberty, "did begin to incline to the king's restoration." In the ma.s.s of the population the reaction was far more rapid. "Charles Stuart," writes a Cheshire correspondent to the Secretary of State, "hath five hundred friends in these adjacent counties for every one friend to you among them." But before the overpowering strength of the army even this general discontent was powerless. Yorkshire, where the Royalist insurrection was expected to be most formidable, never ventured to rise at all. There were risings in Devon, Dorset, and the Welsh Marches, but they were quickly put down, and their leaders brought to the scaffold. Easily however as the revolt was suppressed, the terror of the Government was seen in the energetic measures to which Cromwell resorted in the hope of securing order. The country was divided into ten military governments, each with a major-general at its head, who was empowered to disarm all Papists and Royalists, and to arrest suspected persons. Funds for the support of this military despotism were provided by an Ordinance of the Council of State, which enacted that all who had at any time borne arms for the king should pay every year a tenth part of their income, in spite of the Act of Oblivion, as a fine for their royalist tendencies. The despotism of the major-generals was seconded by the older expedients of tyranny.

The ejected clergy had been zealous in promoting the insurrection, and they were forbidden in revenge to act as chaplains or as tutors. The press was placed under a strict censorship. The payment of taxes levied by the sole authority of the Protector was enforced by distraint; and when a collector was sued in the courts for redress, the counsel for the prosecution were sent to the Tower.

[Sidenote: Settlement of Scotland.]

If pardon indeed could ever be won for a tyranny, the wisdom and grandeur with which he used the power he had usurped would win pardon for the Protector. The greatest among the many great enterprises undertaken by the Long Parliament had been the union of the three Kingdoms: and that of Scotland with England had been brought about, at the very end of its career, by the tact and vigour of Sir Harry Vane.

But its practical realization was left to Cromwell. In four months of hard fighting General Monk brought the Highlands to a new tranquillity; and the presence of an army of eight thousand men, backed by a line of forts, kept the most restless of the clans in good order. The settlement of the country was brought about by the temperance and sagacity of Monk's successor, General Deane. No further interference with the Presbyterian system was attempted beyond the suppression of the General a.s.sembly. But religious liberty was resolutely protected, and Deane ventured even to interfere on behalf of the miserable victims whom Scotch bigotry was torturing and burning on the charge of witchcraft.

Even steady Royalists acknowledged the justice of the Government and the wonderful discipline of its troops. "We always reckon those eight years of the usurpation," said Burnet afterwards, "a time of great peace and prosperity."

[Sidenote: Settlement of Ireland.]

Sterner work had to be done before Ireland could be brought into real union with its sister kingdoms. The work of conquest had been continued by Ireton, and completed after his death by General Ludlow, as mercilessly as it had begun. Thousands perished by famine or the sword.

Shipload after shipload of those who surrendered were sent over sea for sale into forced labour in Jamaica and the West Indies. More than forty thousand of the beaten Catholics were permitted to enlist for foreign service, and found a refuge in exile under the banners of France and Spain. The work of settlement, which was undertaken by Henry Cromwell, the younger and abler of the Protector's sons, turned out to be even more terrible than the work of the sword. It took as its model the Colonization of Ulster, the fatal measure which had destroyed all hope of a united Ireland, and had brought inevitably in its train the revolt and the war. The people were divided into cla.s.ses in the order of their a.s.sumed guilt. All who after trial were proved to have personally taken part in the "ma.s.sacre" were sentenced to banishment or death. The general amnesty which freed "those of the meaner sort" from all question on other scores was far from extending to the landowners. Catholic proprietors who had shown no goodwill to the Parliament, even though they had taken no part in the war, were punished by the forfeiture of a third of their estates. All who had borne arms were held to have forfeited the whole, and driven into Connaught, where fresh estates were carved out for them from the lands of the native clans. No such doom had ever fallen on a nation in modern times as fell upon Ireland in its new settlement. Among the bitter memories which part Ireland from England the memory of the bloodshed and confiscation which the Puritans wrought remains the bitterest; and the worst curse an Irish peasant can hurl at his enemy is "the curse of Cromwell." But pitiless as the Protector's policy was, it was successful in the ends at which it aimed. The whole native population lay helpless and crushed. Peace and order were restored, and a large incoming of Protestant settlers from England and Scotland brought a new prosperity to the wasted country. Above all, the legislative union which had been brought about with Scotland was now carried out with Ireland, and thirty seats were allotted to its representatives in the general Parliament.

[Sidenote: Settlement of England.]

In England Cromwell dealt with the Royalists as irreconcileable enemies; but in every other respect he carried fairly out his pledge of "healing and settling." The series of administrative reforms planned by the Convention had been partially carried into effect before the meeting of Parliament in 1654; but the work was pushed on after the dissolution of the House with yet greater energy. Nearly a hundred ordinances showed the industry of the Government. Police, public amus.e.m.e.nts, roads, finances, the condition of prisons, the imprisonment of debtors, were a few among the subjects which claimed Cromwell's attention. An ordinance of more than fifty clauses reformed the Court of Chancery. The anarchy which had reigned in the Church since the breakdown of Episcopacy and the failure of the Presbyterian system to supply its place, was put an end to by a series of wise and temperate measures for its reorganization. Rights of patronage were left untouched; but a Board of Triers, a fourth of whom were laymen, was appointed to examine the fitness of ministers presented to livings; and a Church board of gentry and clergy was set up in every county to exercise a supervision over ecclesiastical affairs, and to detect and remove scandalous and ineffectual ministers. Even by the confession of Cromwell's opponents the plan worked well. It furnished the country with "able, serious preachers," Baxter tells us, "who lived a G.o.dly life, of what tolerable opinion soever they were"; and, as both Presbyterian and Congregationalist ministers were presented to livings at the will of their patrons, it solved so far as practical working was concerned the problem of a religious union among Protestants on the base of a wide variety of Christian opinion. From the Church which was thus reorganized all power of interference with faiths differing from its own was resolutely withheld. Save in his dealings with the Episcopalians, whom he looked on as a political danger, Cromwell remained true throughout to the cause of religious liberty. Even the Quaker, rejected by all other Christian bodies as an anarchist and blasphemer, found sympathy and protection in the Protector. The Jews had been excluded from England since the reign of Edward the First; and a prayer which they now presented for leave to return was refused by a commission of merchants and divines to whom the Protector referred it for consideration. But the refusal was quietly pa.s.sed over, and the connivance of Cromwell in the settlement of a few Hebrews in London and Oxford was so clearly understood that no one ventured to interfere with them.

[Sidenote: Cromwell's foreign policy.]

No part of his policy is more characteristic of Cromwell's mind, whether in its strength or in its weakness, than his management of foreign affairs. While England had been absorbed in her long and obstinate struggle for freedom the whole face of the world around her had changed.

The Thirty Years War was over. The victories of Gustavus, and of the Swedish generals who followed him, had been seconded by the policy of Richelieu and the intervention of France. Protestantism in Germany was no longer in peril from the bigotry or ambition of the House of Austria; and the Treaty of Westphalia had drawn a permanent line between the territories belonging to the adherents of the old religion and the new.

There was little danger indeed now to Europe from the great Catholic House which had threatened its freedom ever since Charles the Fifth. Its Austrian branch was called away from dreams of aggression in the west to a desperate struggle with the Turk for the possession of Hungary and the security of Austria itself. Spain, from causes which it is no part of our present story to detail, was falling into a state of strange decrepitude. So far from aiming to be mistress of Europe, she was rapidly sinking into the almost helpless prey of France. It was France which had now become the dominant power in Christendom, though her position was far from being as commanding as it was to become under Lewis the Fourteenth. The peace and order which prevailed after the cessation of the religious troubles throughout her compact and fertile territory gave scope at last to the quick and industrious temper of the French people; while her wealth and energy were placed by the centralizing administration of Henry the Fourth, of Richelieu, and of Mazarin, almost absolutely in the hands of the Crown. Under the three great rulers who have just been named her ambition was steadily directed to the same purpose of territorial aggrandizement, and though limited as yet to the annexation of the Spanish and Imperial territories which still parted her frontier from the Pyrenees, the Alps, and the Rhine, a statesman of wise political genius would have discerned the beginning of that great struggle for supremacy over Europe at large which was only foiled by the genius of Marlborough and the victories of the Grand Alliance.

[Sidenote: Cromwell and Spain.]

But in his view of European politics Cromwell was misled by the conservative and unspeculative temper of his mind as well as by the strength of his religious enthusiasm. Of the change in the world around him he seems to have discerned nothing. He brought to the Europe of Mazarin the hopes and ideas with which all England was thrilling in his youth at the outbreak of the Thirty Years War. Spain was still to him "the head of the Papal Interest," whether at home or abroad. "The Papists in England," he said to the Parliament of 1656, "have been accounted, ever since I was born, Spaniolized; they never regarded France, or any other Papist state, but Spain only." The old English hatred of Spain, the old English resentment at the shameful part which the nation had been forced to play in the great German struggle by the policy of James and of Charles, lived on in Cromwell, and was only strengthened by the religious enthusiasm which the success of Puritanism had kindled within him. "The Lord Himself," he wrote to his admirals as they sailed to the West Indies, "hath a controversy with your enemies; even with that Romish Babylon of which the Spaniard is the great underpropper. In that respect we fight the Lord's battles." What Sweden had been under Gustavus, England, Cromwell dreamed, might be now--the head of a great Protestant League in the struggle against Catholic aggression. "You have on your shoulders," he said to the Parliament of 1654, "the interest of all the Christian people of the world. I wish it may be written on our hearts to be zealous for that interest." The first step in such a struggle would necessarily be to league the Protestant powers together, and Cromwell's earliest efforts were directed to bring the ruinous and indecisive quarrel with Holland to an end. The fierceness of the strife had grown with each engagement; but the hopes of Holland fell with her admiral, Tromp, who received a mortal wound at a moment when he had succeeded in forcing the English line; and the skill and energy of his successor, De Ruyter, struggled in vain to restore her waning fortunes. She was saved by the expulsion of the Long Parliament, which had persisted in its demand for a political union of the two countries; and the new policy of Cromwell was seen in the conclusion of peace. The peace indeed was dearly bought. Not only did the United Provinces recognize the supremacy of the English flag in the British seas, and submit to the Navigation Act, but Holland pledged itself to shut out the House of Orange from power, and thus relieved England from the risk of seeing a Stuart restoration supported by Dutch forces.

[Sidenote: War with Spain.]

The peace which was concluded with the Dutch in 1654 was followed by the conclusion of like treaties with Sweden and with Denmark; and on the arrival of a Swedish envoy with offers of a league of friendship Cromwell endeavoured to bring the Dutch, the Brandenburgers, and the Danes into a confederation of the Protestant powers. His efforts in this direction however, though they never wholly ceased, remained fruitless; but the Protector was resolute to carry out his plans single-handed. The defeat of the Dutch had left England the chief sea-power of the world; and in the first days of 1655, before the dissolution of the Parliament, two fleets put to sea with secret instructions. The first, under Blake, appeared in the Mediterranean, exacted reparation from Tuscany for wrongs done to English commerce, bombarded Algiers, and destroyed the fleet with which its pirates had ventured through the reign of Charles to insult the English coast. The thunder of Blake's guns, every Puritan believed, would be heard in the castle of St. Angelo, and Rome itself would have to bow to the greatness of Cromwell. But though no declaration of war had been issued against Spain, the true aim of both expeditions was an attack on that power; and the attack proved singularly unsuccessful. Though Blake sailed to the Spanish coast, he failed to intercept the treasure fleet from America; and the second expedition, which made its way to the West Indies, was foiled in a descent on St. Domingo. It conquered Jamaica in May; but the conquest of this lesser island, important as it really was in breaking through the monopoly of the New World in the South which Spain had till now enjoyed, seemed at the time but a poor result for the vast expenditure of money and blood. The leaders of the expedition, Blake and Venables, were committed to the Tower on their return in September; but Cromwell found himself at war with Spain, and thrown whether he would or no into the hands of Mazarin.

[Sidenote: Parliament of 1655.]

In October 1655 he was forced to sign a treaty of alliance with France; while the cost of his abortive expeditions drove him again to face a Parliament. But Cromwell no longer trusted, as in his earlier Parliament, to freedom of election. The sixty members who were returned under the Ordinances of union by Scotland and Ireland were simply nominees of the Government. Its whole influence was exerted to secure the return of the more conspicuous members of the Council of State. It was calculated that of the members returned one-half were bound to the Government by ties of profit or place. But Cromwell was still unsatisfied. A certificate of the Council was required from each member before admission to the House when it met in September 1656; and a fourth of the whole number returned--one hundred in all, with Haselrig at their head--were by this means excluded on grounds of disaffection or want of religion. To these arbitrary acts of violence the House replied only by a course of singular moderation and wisdom. From the first it disclaimed any purpose of opposing the Government. One of its earliest acts provided securities for Cromwell's person, which was threatened by constant plots of a.s.sa.s.sination. It supported him in his war policy, and voted supplies of unprecedented extent for the maintenance of the struggle. It was this att.i.tude of loyalty which gave force to its steady refusal to sanction the system of tyranny which had practically placed England under martial law. In his opening address Cromwell boldly took his stand in support of the military despotism wielded by the major-generals. "It hath been more effectual towards the discountenancing of vice and settling religion than anything done these fifty years. I will abide by it," he said, with singular vehemence, "notwithstanding the envy and slander of foolish men. I could as soon venture my life with it as with anything I ever undertook. If it were to be done again, I would do it." But no sooner had a bill been introduced into Parliament to confirm the proceedings of the major-generals than a long debate showed the temper of the Commons. They had resolved to acquiesce in the Protectorate, but they were equally resolved to bring it again to a legal mode of government. This indeed was the aim of even Cromwell's wiser adherents. "What makes me fear the pa.s.sing of this Act," one of them wrote to his son Henry, "is that thereby his Highness'

government will be more founded in force, and more removed from that natural foundation which the people in Parliament are desirous to give him, supposing that he will become more theirs than now he is." The bill was rejected, and Cromwell bowed to the feeling of the nation by withdrawing the powers of the major-generals.

[Sidenote: Offer of the Crown to Cromwell.]

But the defeat of the tyranny of the sword was only a step towards a far bolder effort for the restoration of the power of the law. It was no mere pedantry, still less was it vulgar flattery, which influenced the Parliament in their offer to Cromwell of the t.i.tle of king. The experience of the last few years had taught the nation the value of the traditional forms under which its liberties had grown up. A king was limited by const.i.tutional precedents. "The king's prerogative," it was well urged, "is under the courts of justice, and is bounded as well as any acre of land, or anything a man hath." A Protector, on the other hand, was new in our history, and there were no traditional means of limiting his power. "The one office being lawful in its nature," said Glynne, "known to the nation, certain in itself, and confined and regulated by the law, and the other not so--that was the great ground why the Parliament did so much insist on this office and t.i.tle." Under the name of Monarchy, indeed, the question really at issue between the party headed by the officers and the party led by the lawyers in the Commons was that of the restoration of const.i.tutional and legal rule. In March 1657 the proposal was carried by an overwhelming majority, but a month pa.s.sed in endless consultations between the Parliament and the Protector. His good sense, his knowledge of the general feeling of the nation, his real desire to obtain a settlement which should secure the ends for which Puritanism fought, political and religious liberty, broke, in conference after conference, through a mist of words. But his real concern throughout was with the temper of the army. Under whatever spurious disguises he cloaked the true nature of his government from the world, Cromwell knew well that it was a sheer government of the sword, that he was without hold upon the nation, and that the discontent of his soldiery would at once shake the fabric of his power. He vibrated to and fro between his sense of the political advantages of such a settlement, and his sense of its impossibility in face of the mood of the army. His soldiers, he said, were no common swordsmen. They were "G.o.dly men, men that will not be beaten down by a worldly and carnal spirit while they keep their integrity"; men in whose general voice he recognized the voice of G.o.d. "They are honest and faithful men," he urged, "true to the great things of the Government. And though it really is no part of their goodness to be unwilling to submit to what a Parliament shall settle over them, yet it is my duty and conscience to beg of you that there may be no hard things put upon them which they cannot swallow. I cannot think G.o.d would bless an undertaking of anything which would justly and with cause grieve them."

[Sidenote: Inauguration of the Protector.]

The temper of the army was soon shown. Its leaders, with Lambert, Fleetwood, and Desborough at their head, placed their commands in Cromwell's hands. A pet.i.tion from the officers to Parliament demanded the withdrawal of the proposal to restore the Monarchy, "in the name of the old cause for which they had bled"; and on the eighth of May Cromwell antic.i.p.ated the coming debate on this pet.i.tion, a debate which might have led to an open breach between the Army and the Commons, by a refusal of the crown. "I cannot undertake this Government," he said, "with that t.i.tle of king; and that is my answer to this great and weighty business." Disappointed as it was, the Parliament with singular self-restraint turned to other modes of bringing about its purpose. The offer of the crown had been coupled with the condition of accepting a const.i.tution, which was a modification of the Instrument of Government adopted by the Parliament of 1654, and this Const.i.tution Cromwell emphatically approved. "The things provided by this Act of Government,"

he owned, "do secure the liberties of the people of G.o.d as they never before have had them." With a change of the t.i.tle of king into that of Protector, the Act of Government now became law: and the solemn inauguration of the Protector by the Parliament on the twenty-sixth of June was a practical acknowledgement on the part of Cromwell of the illegality of his former rule. In the name of the Commons the Speaker invested him with a mantle of State, placed the sceptre in his hand, and girt the sword of justice by his side. By the new Act of Government Cromwell was allowed to name his own successor, but in all after cases the office was to be an elective one. In every other respect the forms of the older Const.i.tution were carefully restored. Parliament was again to consist of two Houses, the seventy members of "the other House" being named by the Protector. The Commons regained their old right of exclusively deciding on the qualification of their members.

Parliamentary restrictions were imposed on the choice of members of the Council, and Officers of State or of the army. A fixed revenue was voted to the Protector, and it was provided that no moneys should be raised but by a.s.sent of Parliament. Liberty of worship was secured for all but Papists, Prelatists, Socinians, or those who denied the inspiration of the Scriptures; and liberty of conscience was secured for all.