‘Even supposing a sufficient energy of character in the native officer, he does not and will not, if he be not a Fidalgo himself, exercise coercive or strong measures to oblige one of that class to do his duty. He is aware that in doing so he makes a powerful enemy, and all the habits of thought in which he has been educated inspire him with such a dread of this, that no sense of duty will urge him to encounter it. Thus, whenever a regiment is commanded by a non-Fidalgo, it never fails to suffer extremely: for the noblemen are permitted to do as they please, and afford a very bad example, for they are at least as indolent as the ordinary Portuguese.
‘The English captains will be found invaluable, especially in the hands of an English commandant. Their example is infinitely useful. The Portuguese captains are piqued into activity and attention, when they see their companies excelled in efficiency by those of the English, and they do from emulation what a sense of duty would perhaps never bring them to. There are a variety of by-paths and oblique means by which the parts of a Portuguese corps are constantly, and almost insensibly, endeavouring to return to the old habits that they are so much attached to. To nip this, from time to time, in the bud, it is necessary to be aware of it: without the faithful surveillance of English subordinate officers (who, ever mixing with the mass of the men, can’t well be ignorant of what is going on) the commanding-officer can rarely be warned in time.’
Beresford replied that all this was true, but that ‘the national feeling required management,’ and that to place every regimental or brigade command in British hands would provoke such fierce jealousy that he was ‘compelled to humour the prejudices and satisfy the pride of the nation.’ His device for doing this was to make a general rule that wherever a Portuguese officer was in chief command he should have a British officer second in command under him, and vice versa[178]. When a brigade was given to a Portuguese, he managed that the two colonels of the regiments forming it should be Englishmen; similarly, if a Portuguese commanded a regiment his senior major was always an Englishman. By this means it was secured that a fair half of the higher pieces of promotion should be left to the native officers, but that every Portuguese placed in a responsible position should have a British officer at his back. In addition there were from two to four British captains in each battalion, but no subalterns; for, to encourage good men to volunteer into the Portuguese service, it was provided that all who did so should receive a step of promotion, and a British lieutenant became a Portuguese captain on exchange, and a British captain a Portuguese major. The system seems to have worked well, and with far less friction than might have been expected[179]. The better class of native officers were piqued into emulation, just as D’Urban had expected; the worst was gradually eliminated[180]. It must be noted that to every battalion there were added one or two British sergeants, whose services were needed for the drilling of the men in the English exercises, which now superseded the old German system left behind by La Lippe, the last reorganizer of the Portuguese army. For the whole drill of the infantry was changed, and the British formations and manœuvres introduced. Dundas’s ‘Eighteen Manœuvres’ were translated, and became the Bible of the Lusitanian no less than the British officer[181]. The employment of the two-deep line, the essential feature of the system, was made the base of all Portuguese drill; at Bussaco it justified itself. The Caçadores were trained on the ‘Rifle Regulations’ of Coote Manningham, and their uniform was modified in cut, though not in colour, to a close resemblance of that of the British rifleman[182]. The net result of all these changes was that for the future the British and Portuguese units of Wellington’s army could be moved by the same words of command, and in the same formations, and that all the disadvantages resulting from the coexistence of two different systems of drill disappeared.
Two principal difficulties still remained in the administration of the Portuguese army. The first was, what to do with the few senior officers of undoubted patriotism but more doubtful capacity, who were too important and influential to be placed upon the shelf, yet might cause a disaster if placed in a critical position of responsibility. The most notable of them was Silveira, who had acquired much popularity by his obstinate, if ill-managed, resistance to Soult in the spring of 1809. Wellington, with many searchings of heart, placed him in command of the Tras-os-Montes, where it was most unlikely that any serious irruption of the French would take place[183]. He had a large force placed under him, but it did not include a single regular regiment, and, with militia only at his disposition, it was hoped that he would be discouraged from attempting any hazardous experiments. Moreover, he was given a British second-in-command, first John Wilson and afterwards Miller, to curb his eccentricities so far as was possible. Baccelar, another officer of doubtful merit, but more dangerous from torpidity than from rashness, was given charge of the militia of the three northern provinces, so that Silveira was technically under his orders—though the nominal subordinate would seem to have paid little attention to his superior. The most important post, however, assigned to a Portuguese officer was the governorship of Elvas, the strongest fortress of Portugal, and one which would stand in the forefront of the battle if the French made the subsidiary invasion south of the Tagus, which Wellington was inclined to expect. The command of this great stronghold and the 6,000 men of its garrison (of whom half were regulars) was given to General Leite, an active and ingenious officer, and (what was more important) a man who obeyed orders. Of all the Portuguese he was the one whom Wellington most trusted; every British narrator of the war who came in contact with him has a word of praise in his behalf. Of the other native generals, Lecor, in command of a division, and Fonseca, in command of a brigade, were with the field army. Miranda was given charge of the militia of Northern Estremadura, who were likely to be in the thickest of the trouble. But the other Portuguese units of the allied host were under British officers: Pack, Archibald and Alexander Campbell, MacMahon, Coleman, Harvey, Collins, and Bradford had charge of the regular brigades of the field army. The native generals, save those above mentioned, were placed in administrative posts, or in charge of those sections of the militia which were probably destined to see no service.
The second point of difficulty in the organization of the Portuguese army was the commissariat. In the old days it had been a purely civilian branch of the service, non-military intendants dealing with contractors and merchants. For this had been substituted a Junta de Viveres mainly composed of officers, which proved as ineffective, if not as corrupt, as the body which had preceded it. The British government had taken over the responsibility of paying half the Portuguese army[184], but not that of feeding it, and despite of the handsome subsidies that it paid to the Regency for the general purposes of the war, the native troops, especially those quartered far from Lisbon, were often in a state of semi-starvation. ‘The Portuguese corps ought to have a commissariat attached to them, and I believe each brigade has a commissary,’ wrote Wellington, ‘but they have no magazines and no money to purchase supplies[185].’ One main difficulty arose from the fact that the Junta de Viveres shrank from the heavy expense of organizing a proper transport train, and tried to make shift with requisitioned carts and oxen, which were difficult to get (since the British army was competing with the Portuguese for draught animals) and still harder to retain—for the peasant driver always absconded with his beasts when he found an opportunity. Another difficulty was that the Junta tried to feed the troops with requisitioned corn, instead of paying for it with money down; hence it got grudging service. ‘I know from experience,’ observes Wellington, ‘that the Portuguese army could not be in the distress under which it suffers, from want of provisions, if only a part of the food it receives from the country were paid for.’ And he suggested as a remedy that the British ministers should earmark part of the subsidy for use on the commissariat and no other purpose[186]. It was long before this matter was set to rights. Beresford’s correspondence in 1810 bristles with complaints as to the inefficiency of the Junta de Viveres[187].
If the regular army was badly fed, so that desertion and sickness were both too prevalent in some corps, it was not to be expected that the militia would fare better. Wellington had ordered, and Beresford had arranged for, the embodiment of every one of the 48 militia regiments of the national establishment. They should properly have given 70,000 men, but such a figure was never reached. Some of the regimental districts were too thinly peopled to give the full 1,500 men at which each was assessed. In others the officers placed in charge were incapable, or the local magistrates recalcitrant. Many regiments could show only 500 or 600 bayonets in 1810, few over 1,000[188]. The total number under arms at the time of Masséna’s invasion may have reached 45,000 bayonets. Of the 48 regiments eight belonged to the lands south of the Tagus, and were never brought up to the front; they furnished the garrisons of Elvas and Campo Mayor, and a corps of observation on the lower Guadiana, destined to watch the French in the direction of Ayamonte and the Condado de Niebla, lest any unexpected raid might be made in that quarter[189]. The five regiments from the district immediately round the capital were at work on the ever-growing lines of Torres Vedras. One regiment was in garrison at Peniche, two at Abrantes, three at Almeida. The main force, consisting of the remaining units contributed by the North and the Beira, was divided into five corps, destined partly for active operations against the enemy’s flanks and rear, when he should enter Portugal, partly for the defence of Oporto and the Tras-os-Montes, if any assault should be threatened in that direction. These divisions stood as follows:—three regiments under Lecor were left in the Castello Branco country, to protect it against raids from Spanish Estremadura. Seven under Trant, all corps from the coast-land between the Douro and the Mondego, were to cover Oporto from the south, or to operate against the rear of the invading army, if it should leave that city alone and keep on the direct road to Lisbon. Six under Silveira guarded the Tras-os-Montes, and watched the French detachments in the northern part of the plains of Leon. Eight under Miller lay around Oporto, ready to support either Silveira or Trant if occasion should arise[190]. After the campaign began, and Masséna’s intention to leave the North alone became evident, half Miller’s division was placed under John Wilson (who had originally been Silveira’s chief-of-the-staff and second-in-command) and sent south into the Beira to co-operate with Trant. Finally, four regiments under the Portuguese brigadier Miranda lay at Thomar, apparently for the purpose of aiding Lecor or strengthening the garrison of Abrantes. This division ultimately retreated into the lines of Torres Vedras.
All these troops were entirely unfitted for a place in the line of battle; Wellington refused to mix them with the regular brigades, save in the garrisons of Almeida, Abrantes, and Elvas. He directed the brigadiers never to risk them in battle, even against a much inferior force of the French. Their sole purpose was to cut lines of communication, to render marauding by the enemy’s small detachments impossible, and to restrict his power of making reconnaissances far afield. They were told that they might defend a pass or a ford for a time, so as to delay the advance of a hostile column, but that they were never to commit themselves to a serious combat with any considerable body. Convoys, stragglers, small detachments, were the game on which they must prey. The programme was not a brilliant one to lay down before an ambitious officer, and more than once Silveira, Trant, and Wilson disobeyed orders, and tried to withstand a full French division in some chosen position. Such experiments almost always ended in a disaster. It was not surprising, for the militia were not troops from whom much could be expected. The best men in every district had been taken for the regular army; all the trained officers were also needed there. The militia cadres were composed of civilians who had to learn their duties just as much as the privates whom they were supposed to instruct. All the patriotic and energetic young men of the governing classes had sought commissions in the line; the less willing and active were driven into the militia. Service therein brought neither much credit nor much promotion. If the Regency half-starved the regulars, it three-quarter-starved the militia, which was normally in a state of destitution of clothing, shoes, and food. Hardly a regiment was provided with uniforms; as a rule only the officers showed the regulation blue and silver. As long as the corps was in its own district it was fed somehow, but when moved to some strategical point in the rugged mountains of the Beira, it was liable to go wholly to pieces from sheer privation. Fortunately the Portuguese peasant led a frugal life at all times, and expected little; the desertion, though large, was not nearly so great as might have been expected. The fact was that the men were essentially loyal, and hated the French with a perfect hatred. They might be very poor soldiers, but they were very bitter personal enemies of the invader. Nevertheless, they were liable to panics on very slight provocation. ‘At the best they are a very daily and uncertain sort of fighting people[191],’ remarked one of their leaders. Another wrote in a more forcible language, ‘Scripture says, Put not your trust in princes—I say, Fool is the man who puts his trust in a damnable militia.’ Each of these sentences was indited the day after a disastrous and wholly unnecessary rout.
Over and above the regular army and the militia, the Portuguese military system contemplated the utilization of the whole levée en masse of the nation under the name of the Ordenança. This was no foreshadowing of the modern idea of universal service, but a survival of the mediaeval practice which, in Portugal as in England, made every freeman liable to be called out in time of extremity, at his own cost and with his own weapons. Every peasant between sixteen and sixty was theoretically supposed to be enrolled in one of the companies of 250 which each group of villages was supposed to possess. The organization had been effective enough in the old mediaeval wars with Castile: it had even proved serviceable in the ‘War of Independence’ that followed the successful rising of 1640. But against modern regular armies it was comparatively useless; when called out in the war of 1762 the Ordenança had not justified its old reputation. Little could be expected of mobs armed with pikes and fowling-pieces, save that they should cut off a few convoys and stragglers, or occasionally obstruct a defile. A French officer who deeply studied this forgotten campaign wrote that, ‘whatever the Spaniards may say to the contrary, this war of the peasantry is by no means important, except against ignorant and undisciplined troops[192].’
When Wellington resolved to call out the Ordenança in 1810 he was ignorant of none of these facts. Nevertheless, he insisted that the Regency should issue the old royal ‘Ordinance’ to call out the levy. His object was threefold: from the political and moral point of view it was necessary to take this measure, because it was the ancient and established method of proclaiming that the country was in danger. It was so understood by the peasantry, in whose memories the traditions of the Spanish invasions were still fresh; they expected to be summoned, and would have doubted the imminence of the emergency if they had not been. The call was at once an appeal to their patriotism, and equivalent to a proclamation of martial law. Secondly, Wellington hoped to find assistance to a certain degree for the work which he had set aside for the militia, by the aid of the Ordenança. Pervading the whole country-side, and knowing every goat-track and inaccessible fastness, their motley companies would surround the invading army as it marched, prevent marauding by small parties, and render inter-communication between columns impossible, save by large detachments. French narrators of the campaign speak of ‘the cruel callousness with which Wellington exposed these half-armed peasants to the wrath of the most efficient army in the world,’ and wax sentimental over the miseries of the Portuguese. But sentiment from such a quarter is suspicious: it is absurd to find old soldiers writing as if the main duty of a general defending a country were to spare its peasantry as much inconvenience as possible. Did not Napoleon in 1814 make every endeavour to raise Lorraine and Champagne en masse in the rear of the Allies, and has any French critic ever blamed him for doing so? Was the actual misery suffered by the inhabitants of Beira so much greater than what they would have endured if they had remained at home, and offered no resistance? The country-side would have been stripped bare by an army forced to make ‘war support war,’ and one can hardly believe, judging from parallel incidents in Spain, that outrages would have been conspicuous by their absence.
But it would seem that the third of Wellington’s reasons for calling out the Ordenança was far more cogent, and lay nearer to the heart of his scheme than the other two. Throughout Portuguese history the summons to the levy en masse had always been combined with another measure, from which indeed it could not be disentangled—the order to the whole population to evacuate and devastate the land in face of the advancing enemy. The use of the weapon of starvation against the French was an essential part of Wellington’s plan for defending Portugal. When he told the British Ministry that he would undertake the defence of the realm, this was one of the main conditions of his pledge. He had realized the great fact that the conduct of the war in the Peninsula depended on supplies: the old aphorism that ‘beyond the Pyrenees large armies starve and small armies get beaten’ was at the back of all his schemes for the year 1810. He calculated that the French would find the greatest difficulty in accumulating stores sufficient to feed an army of invasion large enough to attack Portugal, and that, even if such stores could be gathered, there would be a still greater difficulty in getting them to the front as they were needed. For not only would it be hard to collect the mass of transport required for an army of 70,000, 80,000, or 100,000 men, but the convoys which it formed would find it impossible to move over the vast stretch of bad roads between Salamanca and Lisbon, when the communications were cut and the Militia and Ordenança were infesting every pass and hillside. It was almost certain that the invaders would make no such attempt to feed themselves from the rear, but would start with a moderate train, carrying no more than provisions for a week or two, and hoping to subsist (in the usual French style) on the resources of the invaded country. Such resources Wellington was determined that they should not find. They would ere long be starved out, and forced to fall back on their magazines, certainly losing a large proportion of their men from privations by the way. If this scheme had been carried out with rigid perfection, Masséna’s invasion would have amounted to no more than a promenade to Torres Vedras, and a prompt return to the borders of Spain with a famished army. Unfortunately the device, though it worked well and was ultimately quite successful, was not perfectly executed in every corner and by every subordinate, so that the French, showing a magnificent obstinacy, and suffering untold privations, remained before the Lines for three months before they retired. But retire they did, and with a loss of a third of their army, and a deplorable decadence of their morale, so that Wellington’s scheme was fully justified[193].