Meanwhile Cromwell, dissatisfied with the coolness of the French King and Mazarin, and also with the shuffling and timidity of the Swiss Cantons, had been taking the affair more and more into his own hands. He had despatched, late in July, another Commissioner, Mr. GEORGE DOWNING, to meet Morland at Geneva, help Morland to infuse some energy into the Cantons, and then proceed with him to Turin to bring matters to a definite issue. He had been inquiring also about the fittest place for landing an invading force against the Duke, and had thought of Nice or Villafranca. Blake's presence in the Mediterranean was not forgotten. All which being known to Mazarin, that wily statesman saw that no time was to be lost. While Mr. Downing was still only on his way to Geneva through France, Mazarin had instructed M. Servien, the French minister at Turin, to insist, in the French King's name, on an immediate settlement of the Vaudois business. The result was a Patente di Gratia e Perdono, or "Patent of Grace and Pardon," granted by Charles Emanuel to the Vaudois Protestants, Aug. 19, in terms of a Treaty at Pignerol, in which the French Minister appeared as the real mediating party and certain Envoys from the Swiss Cantons as more or less assenting. As the Patent substantially retracted the Persecuting Edict and restored the Vaudois to all their former privileges, nothing more was to be done. Cromwell, it is true, did not conceal that he was disappointed. He had looked forward to a Treaty at Turin in which his own envoys, Morland and Downing, and D'Ommeren, as envoy from the United Provinces, would have taken the leading part, and he somewhat resented Mazarin's too rapid interference and the too easy compliance of the envoys of the Cantons. The Treaty of Pignerol contained conditions that might occasion farther trouble. Still, as things were, he thought it best to acquiesce. Downing, who had arrived at Geneva early in September, was at once recalled, leaving Morland and Pell still there, to superintend the distribution of the English subscription-money among the poor Vaudois, instalment after instalment, as they arrived. The charitable work was to detain Morland in Geneva or its neighbourhood for more than a year, nor was the great business of the Piedmontese Protestants to be wholly out of Cromwell's mind to the day of his death.1
1: Morland, 605-673; Guigot, II. 220-225; Council Order Book, July 17.
Just at the date of the happy, though not perfect, conclusion of the Piedmontese business, came almost the only chagrin ever experienced by Cromwell in the shape of the failure of an enterprise. It was now some months since he had made up his mind in private to a rupture with Spain, intending that the fact should be first announced to the world in the actions of the fleet which he had sent with sealed orders to the West Indies under Penn's command. The instructions to Penn and to General Robert Venables, who went with him as commander of the troops, were nothing less, indeed, than that they should strike some shattering blow at that dominion of Spain in the New World which was at once her pride and the source of her wealth. It might be in one of her great West-India Islands, St. Domingo, Cuba, or Porto Rico, or it might be at Cartagena on the South-American mainland, where the treasures of Peru were amassed, for annual conveyance across the Atlantic. Much discretion was left to Penn and Venables, but on the whole St. Domingo, then called Hispaniola, was indicated for a beginning. Blake's presence in the Mediterranean with the other fleet had been timed for an assault on Spain at home when the news should arrive of the disaster to her colonies.1
1: Guizot, II. 184-186; Godwin, IV. 180-194.
Penn and Venables together were not equal to one Blake. They opened their sealed instructions at Barbadoes, one of the two or three small Islands of the West-Indies then possessed by the English, and, after counsel and preparation, proceeded to Hispaniola. The fleet now consisted of about sixty vessels, and there were about 9000 soldiers on board, some of them veterans, but most of them recruits of bad quality. They were off St. Domingo, the capital of the Island, on the 14th of April, 1655, and from that moment there was misunderstanding and blundering. Penn, Venables, and the Chief Commissioner who had been sent out with them, differed as to the proper landing point; the wrong landing point was chosen for the main body; the men fell ill and mutinied; the Spaniards, who might have been surprised at first by a direct assault on St. Domingo, resisted bravely, and poured shot among the troops from ambuscade. Two attempts to get into St. Domingo were both foiled with heavy loss, including the death of Major-General Heane and others of the best officers. The mortality from climate and bad food being also great, the enterprise on Hispaniola was then abandoned; but, dreading a return to England with nothing accomplished, Penn and Venables bethought themselves of Jamaica. Here, where they arrived May 10, they were rather more fortunate. The Spaniards, utterly unforewarned, deserted the coast, and fled inland. There was no difficulty, therefore, in taking nominal possession of the chief town, though even that was done in a bungling manner. Then, leaving the Island in charge of a portion of the troops, under Major-General Fortescue, with Vice-Admiral Goodson to sail about it with a protecting squadron, Penn hastened back to England, Venables quickly following him. They arrived in London, within a few days of each other, early in September, and were at once committed to the Tower for having returned without orders. The news of the failure of their enterprise had preceded them, and Cromwell was profoundly angry. A bilious illness which he had about this time was attributed by the French ambassador Bordeaux to his brooding over the West-Indian mischance. He was soon himself again, however, and Penn and Venables had nothing to fear. They were released after a few weeks. After all, Jamaica was better than nothing.1
1: Godwin, IV. 195-203; Carlyle, III. 122-123; Guizot, II. 226-231; Letters of Cromwell to Vice-Admiral Goodson and Major-General Fortescue (Carlyle, III. 126-132).
One result of the West Indian expedition was that the long-delayed alliance with France was now a settled affair. Cardenas had his pass-ports sent him, and on the 22nd of October, 1655, he left England. The Court of Madrid had already recalled him, laid an embargo on all English property in Spain, and conferred a Marquisate and pension on the Governor of Hispaniola. On the 24th of October the Treaty of Peace and Commerce between Cromwell and Louis XIV. was finally signed; and within a few days afterwards there was out in London an elaborate document entitled "Scriptum Domini Protectoris, ex consensu atque sententia Concilii sui editum, in quo hujus Reipublica causa contra Hispanos justa esse demonstratur" ("The Lord-Protector's Manifesto, published with the consent and advice of his Council, in which the justice of the Cause of this Commonwealth against the Spaniards is demonstrated"). Now, accordingly, the Commonwealth entered on a new era of her history. Cromwell and Mazarin were to be fast friends, and the Stuarts were to have no help or countenance any more from the French crown; while, on the other hand, there was to be war to the death between the Commonwealth and Spain, war in the new world and war in the old, and Spain was thus naturally to adopt the cause of Charles II., and employ exiled English Royalism everywhere as one of her agencies,—Of the consciousness of the Lord-Protector and the Council of this increased complexity of the foreign relations of the Commonwealth in consequence of the rupture with Spain there is a curious incidental illustration. "That several volumes of the book called The New Atlas be bought for the use of the Council, and that the Globe heretofore standing in the Council Chamber be again brought thither," had been one of the Council's instructions to Thurloe at their meeting of Oct. 2. Thenceforth, doubtless, both the Globe and the Atlas were to be much in request.—More important, however, than such fixed apparatus in the Council Room was the moving instrumentality of envoys and diplomatists in the chief European cities and capitals. Above all, an able ambassador in Paris was now an absolute necessity. Nor was the fit man wanting. Among the former Royalists of the Presbyterian section that had become reconciled to the Commonwealth, and attached to the Protector by strong personal loyalty, was the Scottish WILLIAM LOCKHART, member for Lanarkshire in the late Parliament. He had been trained to arms in France in his youth, and had since then served as a Colonel among the Scots. In this capacity he had been in Hamilton's Army of the Engagement, defeated by Cromwell at Preston, and in David Leslie's subsequent Army for Charles II., defeated at Dunbar. Having received some insults from Charles, of such a kind that he had declared that "no King on earth should use him in that manner," he had snapped his connexion with the Stuarts before the Battle of Worcester; and for some time after that battle he had lived moodily in Scotland, meditating a return to France for military employment. A visit to London and an interview with Cromwell had retained his talents for the service of the Protectorate, and his affection for that service had been confirmed by his marriage, in 1654, with Robina Sewster, the orphan niece of the Protector. Altogether Cromwell had judged him to be the very man to represent the Protectorate at Paris, and be even a match for Mazarin. He was now thirty-four years of age. He was nominated to the embassy in December 1655; but he did not go to his post till the following April.—Hardly a less important appointment was that, in January 1655-6, of young Edward Montague to be one of the Admirals of the Fleet. Blake, who had been cruising off Cadiz, and on whom there was the chief dependence for action against the Spaniards at sea, had felt the responsibility too great, and had applied for a colleague. Penn, being in disgrace, was out of the question; and Montague, then a member of the Protector's Council, was chosen. He had been one of Cromwell's favourites and disciples since the days of Marston Moor and Naseby, when, though hardly out of his teens, he had distinguished himself highly as a Parliamentary Colonel. Henceforth the sea was to be his chief element; and, as Admiral or General at sea, he was to become very famous.1
1: Godwin, IV, 214-217 and 298-300; Guizot, II. 231-234; Thomason copy of the Declaration against Spain, dated Nov. 9, 1655; Council Order Books, Oct. 2, 1655; Article on Lockhart in Chambers's Biographical Dictionary of Scotsmen; Carlyle, III. 309-310.
It was just about this time of change and extension in the foreign relations of the Commonwealth that the people of England and Wales became aware that they were, and had been for some time, under an entirely new system of home-government, called Government by Major-Generals.
The difficulties of the home-government of the Protectorate were great and peculiar. The power of the Lord-Protector and his Council to pass ordinances had been called in question. Judges and lawyers were not only pretty unanimous in the opinion that resistance to payment of imposts not enacted by Parliamentary authority might be made good at law, and that the Ordinance for Chancery Reform was also legally invalid; they doubted even whether, in strict law, there could be proceedings for the preservation of the public peace, by courts and magistrates, under any Council ordinance about crimes and treasons. All this Cromwell had been meditating. How was revenue to be raised? How were Royalist and Anabaptist plottings to be suppressed? How were police regulations about public manners and morals to be enforced? How was the will of the Central Government at Whitehall, in any matter whatsoever, to be transmitted to any spot in the community and made really operative? Meditating these questions, Cromwell, as he expressed it afterwards, "did find out a little poor invention": "I say," he repeated, "there was a little thing invented."1 The little invention consisted in a formal identification of the Protector's Chief Magistracy with his Headship of the Army. He had resolved to map out England and Wales into districts, and to plant in each district a trusty officer, with the title of Major-General, who should be nominally in command of the militia of that district, but should be really also the executive there for the Central Government in all things. A beginning had been made in the business as early as May 1655, when Desborough was appointed Major-General of the Militia in the six southwestern counties; and the districts had been all marked out and the Major-Generals chosen in August. But there had been very great secrecy about the scheme; and not till the 31st of October was there official announcement of the new organization. Only about mid-winter, 1655-6, did people fully realise what it meant. The Major-Generalcies then stood thus:—