The result of Santa Anna's downfall was the establishment of a provisional government under General Herrera, president of the council. This person is represented to have been a discreet officer, whose judgment naturally led him to see the wisdom of a pacific course towards the United States, but whose destiny was finally controlled by the rash and unprincipled conduct of insurrectionary demagogues.
Meanwhile the congress of the United States reconsidered the Texan question, and after a long and ardent debate, finally passed a joint resolution for annexation, with an alternative permission to the executive to negotiate; provided he thought proper to adopt that course. This was a solemn decision of the question by the representatives of the people, and it was sustained by the president who did not permit himself to be influenced by the threats of Mexico or the hostile preparations made by that country. In fact, Mr. Tyler had been careful to guard against military surprises, for, in consequence of the early menaces of Mexico, he deemed it his duty, as a precautionary measure, to concentrate in the gulf and its vicinity a large portion of the Home squadron under the command of Commodore Conner, and, at the same time to assemble at fort Jesup on the Texan border, as large a military force as the demands of the service at other encampments would allow.
Thus, the joint resolution for annexing Texas to the United States, with its alternative power to negotiate, came to President Tyler and was approved by him on the 1st of March, 1845. On the fourth of the same month, James K. Polk, who had been chosen president of the United States, at the last election, was to assume the reins of government. President Tyler believed that the necessity for annexation was immediate and urgent in consequence of the reasons he had already presented to congress in his several messages. The only doubt therefore, that he experienced in making his selection, arose from a point of delicacy to his successor. The first section of the joint resolution authorized the erection of a new State of our Union out of the republic of Texas under certain conditions contained in the second section; whilst the third authorized the president to negotiate with that republic for admission either by treaty to be submitted to the senate, or by articles of agreement to be presented to our houses of congress, as the president might direct.
Under these circumstances a cabinet council was summoned for the 2nd of March, and the point was resolved by informing the president's successor, Mr. Polk, of the proposed action, and, if he desired it, submitting to his perusal the despatch to Texas. Mr. Calhoun, our secretary of state, at the president's request, accordingly waited upon Mr. Polk, explained to him Mr. Tyler's selection of the first and second sections of the joint resolution, and expressed a readiness to exhibit the despatch to Mr. A. J. Donelson, who had been appointed chargé to Texas.[60] Mr. Polk courteously declined expressing an opinion concerning the executive action, accompanying his remark with some complimentary declaration; and, on that evening, a bearer of despatches with the requisite documents, was on his way to Mr. Donelson.[61]
This is a brief and accurate summary of the history of annexation so far as the action of our government is involved, and as is necessary for this narrative. The terms of annexation which were offered by the United States were accepted by Texas, and the public faith of both nations was solemnly pledged to a compact of union, which was finally consummated at the following session of congress, when Texas became a member of our confederacy.
There were other circumstances, however, which properly induced the prompt course of President Tyler in sending the joint resolution for the action of Texas; but, in order to understand these perfectly, it is necessary for us to direct our attention to the French and English negotiations between that republic and Mexico. In 1840, as we have seen, England preferred separate action on behalf of Texas, but she was now willing to unite with France against the aggrandizement of the United States. Monsieur de Saligny and the Hon. Mr. Elliott were the representatives of these European courts in Texas, and to the former of them was entrusted the active part of the diplomacy. Whilst the discussions were going on in the United States Mr. Elliott was never at rest. He was heard of in Charleston, in New Orleans, in Havana, in Mexico, and, again, in Texas. The restlessness of the agent denoted the anxiety of his government and of France.
The rejection of the annexation treaty by congress, in 1844, had almost deprived Texas of hope. She believed it impossible to expect a union with the United States, and was prepared to receive the mediation of France and England which would secure her independence. This was surely gratifying to the emissaries of these powers and they eagerly undertook the task of obtaining the coveted boon from Mexico. The Mexican ministry, ever anxious to thwart the union with our confederacy, was equally pleased to avert it by any diplomatic ruse that would save the point of honor, and place her erect before the world. Besides this, the Mexicans relied on a hope that increasing difficulties between the United States and England upon the Oregon boundary question, would make us loath to undertake a war with a southern neighbor whilst our north and our sea board were menaced by Great Britain. This hope of a counter-menace from England inspirited the Mexican cabinet and made it solicitous to resist us successfully. Herrera's ministry was composed of discreet and patriotic men; but, in the first moments of their power, they dared not oppose popular prejudices. The revolution which overthrew Santa Anna was one of the few that sprang from the popular branches of the nation, and originated neither in factions, the army, or the church, but derived its success from the universal feeling that existed against the oppressive misrule of the executive.[62] Nevertheless popular feeling was against our country, and the cabinet took its tone from its patrons.
There can be little doubt of the fact, that the notion of probable difficulties between the United States and England on the boundary question, was studiously fostered by emissaries who were hostile to us. Herrera's cabinet therefore hailed with delight the propositions which were brought to Mexico by Mr. Elliott, and were presented by the Hon. Charles Bankhead and Baron Alleye de Cyprey, the British and French ministers. These propositions, Señor Cuevas laid before the Mexican congress on the 21st of April, 1845. The preliminary conditions offered by Texas, under French and English mediation, and transmitted from that republic by President Jones, on the 29th of March, were the following:
1st. That Mexico shall consent to acknowledge the independence of Texas.
2nd. That Texas shall engage and stipulate in the treaty not to annex herself to or become subject to any country whatever.