The situation again appeared well-nigh desperate, and the stadholder began to look anxiously round in the hope of obtaining foreign assistance. It was to the interest of both France and England to assist a movement which distracted the attention and weakened the power of Spain. But Henry III of France was too much occupied with civil and religious disturbances in his own country, and Elizabeth of England, while receiving with courtesy the envoys both of Orange and Requesens, gave evasive replies to both. She was jealous of France, and pleased to see the growing embarrassment of her enemy Philip, but the Tudor queen had no love either for rebels or for Calvinists. While refusing therefore openly to take the side of the Hollanders and Zeelanders, she agreed to give them secret help; and no obstacle was placed in the way of the English volunteers, who had already since 1572 been enlisting in the Dutch service. It was at this time that those English and Scottish Brigades were first formed which remained for nearly two centuries in that service, and were always to be found in the very forefront of the fighting throughout the great war of Liberation.
On March 4, 1576, Requesens died; and in the considerable [pg.63] interval that elapsed before the arrival of his successor, the outlook for the patriot cause became distinctly brighter. The Estates of Holland and Zeeland met at Delft (April 25, 1576); and the assembly was noteworthy for the passing of an Act of Federation. This Act, which was the work of Orange, bound the two provinces together for common action in defence of their rights and liberties and was the first step towards that larger union, which three years later laid the foundations of the Dutch Republic. By this Act sovereign powers were conferred upon William; he was in the name of the king to exercise all the prerogatives of a ruler. It required all his influence to secure the insertion of articles (1) extending a certain measure of toleration to all forms of religious worship that were not contrary to the Gospel, (2) giving authority to the prince in case of need to offer the Protectorate of the federated provinces to a foreign prince. Orange knew only too well that Holland and Zeeland were not strong enough alone to resist the power of Spain. His hopes of securing the support of the other provinces, in which Catholics were in the majority, depended, he clearly saw, on the numerous adherents to the ancient faith in Holland and Zeeland being protected against the persecuting zeal of the dominant Calvinism of those provinces. In any case—and this continued to be his settled conviction to the end of his life—the actual independence of the whole or any portion of the Netherlands did not seem to him to lie within the bounds of practical politics. The object for which he strove was the obtaining of substantial guarantees for the maintenance of the ancient charters, which exempted the provinces from the presence of foreign officials, foreign tribunals, foreign soldiery and arbitrary methods of taxation. As Philip had deliberately infringed all those privileges which he had sworn to maintain, it was the duty of all patriotic Netherlanders to resist his authority, and, if resistance failed to bring redress, to offer the sovereignty with the necessary restrictions to some other prince willing to accept it on those conditions and powerful enough to protect the provinces from Spanish attack. In order to grasp the principles which guided William's policy during the next few years it is essential to bear in mind (1) that he sought to bring about a union of all the Netherland provinces on a basis of toleration, (2) that he did not aim at the erection of the Netherlands into an independent State.[pg.64]
On the death of Requesens the Council of State had assumed temporary charge of the administration. There had for some time been growing dissatisfaction even amongst the loyalist Catholics of the southern provinces at the presence and over-bearing attitude of so many Spanish officials and Spanish troops in the land and at the severity of the religious persecution. Representations were made to the king by the Council of State of the general discontent throughout the country, of the deplorable results of the policy of force and repression, and urging the withdrawal of the troops, the mitigation of the edicts, and the appointment of a member of the royal house to the governorship. To these representations and requests no answer was sent for months in accordance with Philip's habitual dilatoriness in dealing with difficult affairs of State. He did, however, actually nominate in April his bastard brother, Don John of Austria, the famous victor of Lepanto, as Requesens' successor. But Don John, who was then in Italy, had other ambitions, and looked with suspicion upon Philip's motives in assigning him the thankless task of dealing with the troubles in the Low Countries. Instead of hurrying northwards, he first betook himself to Madrid where he met with a cold reception. Delay, however, so far from troubling Philip, was thoroughly in accordance with the whole bent of his character and policy. For six months Don John remained in Spain, and it was a half-year during which the situation in the Netherlands had been to a very large extent transformed.
The position of Orange and his followers in Holland and Zeeland in the spring of 1576 had again darkened. In June the surrender of Zierikzee to Mondragon was a heavy blow to the patriot cause, for it gave the Spaniards a firm footing in the very heart of the Zeeland archipelago and drove a wedge between South Holland and the island of Walcheren. This conquest was, however, destined to have important results of a very different character from what might have been expected. The town had surrendered on favourable terms and pillage was forbidden. Baulked of their expected booty, the Spanish troops, to whom large arrears of pay were due, mutinied. Under their own "eletto" they marched to Aalst, where they were joined by other mutineers, and soon a large force was collected together, who lived by plunder and were a terror to the country. The Council declared them to be outlaws, but the revolted [pg.65] soldiery defied its authority and scoffed at its threats. This was a moment which, as Orange was quick to perceive, was extremely favourable for a vigorous renewal of his efforts to draw together all the provinces to take common action in their resistance to Spanish tyranny. His agents and envoys in all parts of the Netherlands, but especially in Flanders and Brabant, urged his views upon the more influential members of the provincial estates and upon leading noblemen, like the Duke of Aerschot and other hitherto loyal supporters of the government, who were now suspected of wavering. His efforts met with a success which a few months earlier would have been deemed impossible. The conduct of the Spanish troops, and the lack of any central authority to protect the inhabitants against their insolence and depredations, had effected a great change in public opinion. In Brussels Baron de Héze (a god-child of the prince) had been appointed to the command of the troops in the pay of the Estates of Brabant. De Héze exerted himself to arouse popular opinion in the capital in favour of Orange and against the Spaniards. To such an extent was he successful that he ventured, Sept. 21, to arrest the whole of the Council of State with the exception of the Spanish member Roda, who fled to Antwerp. William now entered into direct negotiations with Aerschot and other prominent nobles of Flanders and Brabant. He took a further step by sending, at the request of the citizens of Ghent, a strong armed force to protect the town against the Spanish garrison in the citadel. In the absence of any lawful government, the States-General were summoned to meet at Brussels on September 22. Deputies from Brabant, Flanders and Hainault alone attended, but in the name of the States-General they nominated Aerschot, Viglius and Sasbout as Councillors of State, and appointed Aerschot to the command of the forces, with the Count of Lalaing as his lieutenant. They then, Sept. 27, approached the prince with proposals for forming a union of all the provinces. As a preliminary it was agreed that the conditions, which had been put forward by William as indispensable—namely, exclusion of all foreigners from administrative posts, dismissal of foreign troops, and religious toleration—should be accepted. The proposals were gladly received by William, and Ghent was chosen as the place where nine delegates from Holland and Zeeland should confer with nine delegates nominated by the States-General as representing the[pg.66] other provinces. They met on October 19. Difficulties arose on two points—the recognition to be accorded to Don John of Austria, and the principle of non-interference with religious beliefs. Orange himself had always been an advocate of toleration, but the representatives of Holland and Zeeland showed an obstinate disinclination to allow liberty of Catholic worship within their borders; and this attitude of theirs might, in spite of the prince's efforts, have led to a breaking-off of the negotiations, had not an event occurred which speedily led to a sinking of differences on the only possible basis, that of mutual concession and compromise.
The citadel of Antwerp was, during this month of October, garrisoned by a body of mutinous Spanish troops under the command of Sancho d'Avila, the victor of Mook. Champagney, the governor, had with him a body of German mercenaries under a certain Count Oberstein; and at his request, such was the threatening attitude of the Spaniards, the States-General sent Havré with a reinforcement of Walloon troops. On Sunday, November 4, the garrison, which had been joined by other bands of mutineers, turned the guns of the citadel upon the town and sallying forth attacked the forces of Champagney. The Germans offered but a feeble resistance. Oberstein perished; Champagney and Havré took refuge on vessels in the river; and the Spaniards were masters of Antwerp. The scene of massacre, lust and wholesale pillage, which followed, left a memory behind it unique in its horror even among the excesses of this blood-stained time. The "Spanish Fury," as it was called, spelt the ruin of what, but a short time before, had been the wealthiest and most flourishing commercial city in the world.
The news of this disaster reached the States-General, as they were in the act of considering the draft proposals which had been submitted to them by the Ghent conference. At the same time tidings came that Don John, who had travelled through France in disguise, had arrived at Luxemburg. They quickly therefore came to a decision to ratify the pact, known as the Pacification of Ghent, and on November 8 it was signed. The Pacification was really a treaty between the Prince of Orange and the Estates of Holland and Zeeland on the one hand, and the States-General representing the other provinces. It was agreed that the Spanish troops should be compelled to leave the Netherlands and that the States-General [pg.67] of the whole seventeen provinces, as they were convened at the abdication of Charles V, should be called together to decide upon the question of religious toleration and other matters of national importance. Meanwhile the placards against heresy were suspended, and all the illegal measures and sentences of Alva declared null and void. His confiscated property was restored to Orange, and his position, as stadholder in Holland and Zeeland, acknowledged. Don John was informed that he would not be recognised as governor-general unless he would consent to dismiss the Spanish troops, accept the Pacification of Ghent, and swear to maintain the rights and privileges of the Provinces. Negotiations ensued, but for a long time to little purpose; and Don John, who was rather an impetuous knight-errant than a statesman and diplomatist, remained during the winter months at Namur, angry at his reception and chafing at the conditions imposed upon him, which he dared not accept without permission from the king. In December the States-General containing deputies from all the provinces met at Brussels, and in January the Pacification of Ghent was confirmed, and a new compact, to which the name of the Union of Brussels was given, was drawn up by a number of influential Catholics. This document, to which signatures were invited, was intended to give to the Pacification of Ghent the sanction of popular support and to be at the same time a guarantee for the maintenance of the royal authority and the Catholic religion. The Union of Brussels was generally approved throughout the southern provinces, and the signatories from every class were numbered by thousands. Don John, who was at Huy, saw that it was necessary to temporise. He was willing, he declared, to dismiss the foreign troops and send them out of the country and to maintain the ancient charters and liberties of the provinces, provided that nothing was done to subvert the king's authority or the Catholic faith. Finally, on February 12, a treaty called "The Perpetual Edict," a most inappropriate name, was signed, and the States-General acknowledged Don John as governor-general. The agreement was principally the work of Aerschot and the loyalist Catholic party, who followed his leadership, and was far from being entirely acceptable to Orange. He had no trust in the good faith of either Philip or his representative, and, though he recommended Holland and Zeeland to acquiesce in the treaty and acknowledge Don John as governor-general, it was with the secret resolve to [pg.68] keep a close watch upon his every action, and not to brook any attempt to interfere with religious liberty in the two provinces, in which he exercised almost sovereign power and with whose struggles for freedom he had identified himself.
The undertaking of Don John with regard to the Spanish troops was punctually kept. Before the end of April they had all left the country; and on May 1 the new governor-general made his state entry into Brussels. It was to outward appearances very brilliant. But the hero of Lepanto found himself at once distrusted by the Catholic nobles and checkmated by the influence and diplomacy of the ever watchful William of Orange. Chafing at his impotence, and ill-supported by the king, who sent no reply to his appeals for financial help, Don John suddenly left the capital and, placing himself at the head of a body of Walloon troops, seized Namur. Feeling himself in this stronghold more secure, he tried to bring pressure on the States-General to place in his hands wider powers and to stand by him in his efforts to force Orange to submit to the authority of the king. His efforts were in vain. William had warned the States-General and the nobles of the anti-Spanish party in Brabant and Flanders that Don John was not to be trusted, and he now pointed to the present attitude of the governor-general, as a proof that his suspicions were well-founded. Indeed the eyes of all true patriots began to turn to the prince, who had been quietly strengthening his position, not only in Holland and Zeeland, where he was supreme, but also in Utrecht and Gelderland; and popular movements in Brussels and elsewhere took place in his favour. So strongly marked was the Orange feeling in the capital that the States-General acceded to the general wish that the prince should be invited to come in person to Brussels. Confidence was expressed by Catholics no less than by Protestants that only under his leadership could the country be delivered from Spanish tyranny. A deputation was sent, bearing the invitation; but for a while William hesitated in giving an affirmative reply. On September 23, however, he made his entry into Brussels amidst general demonstrations of joy and was welcomed as "the Restorer and Defender of the Father-land's liberty." Thus, ten years after he had been declared an outlaw and banished, did the Prince of Orange return in triumph to the town which had witnessed the execution of Egmont and Hoorn. It was the proudest day of his life and the supreme point of his career.