It was particularly regrettable that, while Douglas was passing through this domestic tragedy, he should have been drawn into a controversy relating to British claims in Central America. It was rumored that Great Britain, in apparent violation of the terms of the Clayton-Bulwer treaty, had taken possession of certain islands in the Bay of Honduras and erected them into the colony of "the Bay Islands." On the heels of this rumor came news that aroused widespread indignation. A British man-of-war had fired upon an American steamer, which had refused to pay port dues on entering the harbor of Greytown. Over this city, strategically located at the mouth of the San Juan River, Great Britain exercised an ill-disguised control as part of the Mosquito protectorate.
In the midst of the excited debate which immediately followed in Congress, Cass astonished everybody by producing the memorandum which Bulwer had given Clayton just before the signing of the treaty.[[398]] In this remarkable note, the British ambassador stated that his government did not wish to be understood as renouncing its existing claims to Her Majesty's settlement at Honduras and "its dependencies." And Clayton seemed to have admitted the force of this reservation. For his part, Cass made haste to say, he wished the Senate distinctly to understand that when he had voted for the treaty, he believed Great Britain was thereby prevented from establishing any such dependency. His object—and he had supposed it to be the object of the treaty—was to sweep away all British claims to Central America.
Behind this imbroglio lay an intricate diplomatic history which can be here only briefly recapitulated. The interest of the United States in the Central American States dated from the discovery of gold in California. The value of the control of the means of transportation across the isthmus at Nicaragua became increasingly clear, as the gold seekers sought that route to the Pacific coast. In the latter days of his administration, President Polk had sent one Elijah Hise to cultivate friendly relations with the Central American States and to offset the paramount influence of Great Britain in that region. Great Britain was already in possession of the colony of Belize and was exercising an ill-defined protectorate over the Mosquito Indians on the eastern coast of Nicaragua. In his ardor to serve American interests, Hise exceeded his instructions and secured a treaty with Nicaragua, which gave to the United States exclusive privileges over the route of the proposed canal, on condition that the sovereignty of Nicaragua were guaranteed. The incoming Whig administration would have nothing to do with the Hise entente, preferring to dispatch its own agent to Central America. Though Squier succeeded in negotiating a more acceptable treaty, the new Secretary of State, Clayton, was disposed to come to an understanding with Great Britain. The outcome of these prolonged negotiations was the famous Clayton-Bulwer treaty, by which both countries agreed to further the construction of a ship canal across the isthmus through Nicaragua, and to guarantee its neutrality. Other countries were invited to join in securing the neutrality of this and other regions where canals might be constructed. Both Great Britain and the United States explicitly renounced any "dominion over Nicaragua, Costa Rica, the Mosquito coast or any part of Central America."[[399]]
The opposition would have been something less than human, if they had not seized upon the occasion to discredit the outgoing administration. Cass had already introduced a resolution reaffirming the terms of the famous Monroe message respecting European colonization in America, and thus furnishing the pretext for partisan attacks upon Secretary of State Clayton. But Cass unwittingly exposed his own head to a sidelong blow from his Democratic rival from Illinois, who affected the rôle of Young America once more.
It is impossible to convey in cold print the biting sarcasm, the vindictive bitterness, and the reckless disregard of justice, with which Douglas spoke on February 14th. He sneered at this new profession of the Monroe Doctrine. Why keep repeating this talk about a policy which the United States has almost invariably repudiated in fact? Witness the Oregon treaty! "With an avowed policy, of thirty years' standing that no future European colonization is to be permitted in America—affirmed when there was no opportunity for enforcing it, and abandoned whenever a case was presented for carrying it into practical effect—is it now proposed to beat another retreat under cover of terrible threats of awful consequences when the offense shall be repeated? 'Henceforth' no 'future' European colony is to be planted in America 'with our consent!' It is gratifying to learn that the United States are never going to 'consent' to the repudiation of the Monroe doctrine again. No more Clayton and Bulwer treaties; no more British 'alliances' in Central America, New Granada, or Mexico; no more resolutions of oblivion to protect 'existing rights!' Let England tremble, and Europe take warning, if the offense is repeated. 'Should the attempt be made,' says the resolution, 'it will leave the United States free to adopt such measures as an independent nation may justly adopt in defense of its rights and honor.' Are not the United States now free to adopt such measures as an independent nation may justly adopt in defense of its rights and honor? Have we not given the notice? Is not thirty years sufficient notice?"[[400]]
He taunted Clayton with having suppressed the Hise treaty, which secured exclusive privileges for the United States over the canal route, in order to form a partnership with England and other monarchical powers of Europe. "Exclusive privileges" were sacrificed to lay the foundation of an alliance by which European intervention in American affairs was recognized as a right!
It was generally known that Douglas had opposed the Clayton-Bulwer treaty;[[401]] but the particular ground of his opposition had been only surmised. Deeming the injunction of secrecy removed, he now emphatically registered his protest against the whole policy of pledging the faith of the Republic, not to do what in the future our interests, duty, and even safety, might compel us to do. The time might come when the United States would wish to possess some portion of Central America. Moreover, the agreement not to fortify any part of that region was not reciprocal, so long as Great Britain held Jamaica and commanded the entrance to the canal. He had always regarded the terms of the British protectorate over the Mosquito coast as equivocal; but the insuperable objection to the treaty was the European partnership to which the United States was pledged. The two parties not only contracted to extend their protection to any other practicable communications across the isthmus, whether by canal or railway, but invited all other powers to become parties to these provisions. What was the purport of this agreement, if it did not recognize the right of European powers to intervene in American affairs; what then became of the vaunted Monroe Doctrine?
To the undiplomatic mind of Douglas, our proper course was as clear as day. Insist upon the withdrawal of Great Britain from the Bay Islands! "If we act with becoming discretion and firmness, I have no apprehension that the enforcement of our rights will lead to hostilities." And then let the United States free itself from entangling alliances by annulling the Clayton-Bulwer treaty.[[402]] Surely this was simplicity itself.
The return of Clayton to the Senate, in the special session of March, brought the accused before his accusers. An acrimonious debate followed, in the course of which Douglas was forced to state his own position more explicitly. He took his stand upon the Hise treaty. Had the exclusive control of the canal been given into our hands, and the canal thrown open to the commerce of all nations upon our own terms, we would have had a right which would have been ample security for every nation under heaven to keep peace with the United States. "We could have fortified that canal at each end, and in time of war could have closed it against our enemies." But, suggested Clayton, European powers would never have consented to such exclusive control. "Well, Sir," said Douglas, "I do not know that they would have consented: but of one thing I am certain I would never have asked their consent."[[403]] And such was the temper of Young America that this sledge hammer diplomacy was heartily admired.
It was in behalf of Young America again, that Douglas gave free rein to his vision of national destiny. Disclaiming any immediate wish for tropical expansion in the direction of either Mexico or Central America, he yet contended that no man could foresee the limits of the Republic. "You may make as many treaties as you please to fetter the limits of this giant Republic, and she will burst them all from her, and her course will be onward to a limit which I will not venture to prescribe." Why, then, pledge our faith never to annex any more of Mexico or any portion of Central America?[[404]]