Don Pedro had now the long-wished-for opportunity of improving the social and political position of that Andorran people whom he had so greatly loved. He determined to endow them with Primary Education, a National Debt, Free Libraries and Museums, the Income Tax, Female Suffrage, Trial by Jury, Permissive Prohibitory Bills, a Plebiscitum, an Extradition Treaty, a Magna Charta Association, and all the other blessings of modern civilization. By these means he hoped to ingratiate himself in the public favour, and thus at length to place himself unopposed upon the Imperial and Holy Roman throne.
His first step was the settlement of the Constitution. And as he was quite determined in his own mind that the poor little Empress should only be a puppet in the hands of her Chancellor, who was to act as Mayor of the Palace (observe how well his historical learning stood him in good stead on all occasions!), he decided that the revived Empire should take the form of a strictly limited monarchy. He had some idea, indeed, of proclaiming it as the "Holy Roman Empire (Limited);" but on second thoughts it occurred to him that the phrase might be misinterpreted as referring to the somewhat exiguous extent of the Andorran territory: and as he wished it to be understood that the new State was an aggressive Power, which contemplated the final absorption of all the other Latin races, he wisely refrained from the equivocal title. However, he settled the Constitution on a broad and liberal basis, after the following fashion. I quote from his rough draft-sketch, the completed document being too long for insertion in full.
"The supreme authority resides in the Sovereign and the Folk Mote. The Sovereign reigns, but does not govern (at present). The Folk Mote has full legislative and deliberative powers. It consists of fourteen members, chosen from the fourteen wards of East and West Andorra. (Members for Spain, France, Portugal, and Italy may hereafter be added, raising the total complement to eighteen.) The right of voting is granted to all persons, male or female, above eighteen years of age. The executive power rests with the Chancellor of the Empire, who acts in the name of the Sovereign. He possesses a right of veto on all acts of the Folk Mote. His office is perpetual. Vivat Imperatrix!"
This Constitution was proposed to a Public Assembly or Comitia of the Andorran people, and was immediately carried nem. con. Enthusiasm was the order of the day: Don Pedro was a handsome young man, of personal popularity: the ladies of Andorra were delighted with any scheme of government which offered them a vote: and the men had all a high opinion of Don Pedro's learning. So nobody opposed a single clause of the Constitution on any ground.
The next step to be taken consisted in gaining the affections of the Empress. But here Don Pedro found to his consternation that he had reckoned without his hostess. It is an easy thing to make a revolution in the body politic, but it is much more serious to attempt a revolution in a woman's heart. Her Majesty's had long been bestowed elsewhere. It is true she had encouraged Don Pedro's attentions on his first momentous visit, but that might be largely accounted for on political grounds. It is true also that she was still quite ready to carry on an innocent flirtation with her handsome young Chancellor when he came to deliberate upon matters of state, but that she had often done before with the lout of an actor who took the part of Fritz. "Prince," she would say, with one of her sunny smiles, "do just what you like about the Permissive Prohibitory Bill, and let us have a glass of sparkling Sillery together in the Council Chamber. You and I are too young, and, shall I say, too good-looking, to trouble our poor little heads about politics and such rubbish. Youth, after all, is nothing without champagne and love!"
And yet her heart—her heart was over the sea. During one of her starring engagements among the Central American States, Signorita Obrienelli had made the acquaintance of Don Carlos Montillado, eldest son of the President of Guatemala. A mutual attachment had sprung up between the young couple, and had taken the practical form of bouquets, bracelets, and champagne suppers; but, alas! the difference in their ranks had long hindered the fulfilment of Don Carlos's anxious vows. His Excellency the President constantly declared that nothing could induce him to consent to a marriage between his son and a strolling actress—in such insolent terms did the wretch allude to the future occupant of an Imperial throne! Now, however, all was changed. Fate had smiled upon the happy lovers, and Don Carlos was already on his way to Andorra as Ambassador Extraordinary and Minister Plenipotentiary from the Guatemalan Republic to the renovated Empire. The poor Chancellor discovered too late that he had baited a hook for his own destruction.
However, he did not yet despair. To be sure the Empress, young, beautiful, and with a magnificent soprano voice, had seated herself firmly in the hearts of her susceptible subjects. Besides, her engaging manners, marked by all the charming abandon of the stage, allowed her to make conquests freely among her lieges, each of whom she encouraged in turn, while smiling slily at the discarded rivals. Still, Don Pedro took heart once more. "Revolution enthroned her," he muttered between his teeth, "and counter-revolution shall disenthrone her yet. These silly people will smirk and bow while she pretends to be in love with every one of them from day to day; but when once the young Guatemalan has carried off the prize they will regret their folly, and turn to the Chancellor, whose heart has always been fixed upon the welfare of Andorra."
With this object in view, the astute politician worked harder than ever for the regeneration of the State. His policy falls under two heads, the External and the Internal. Each head deserves a passing mention from the laborious historian.
Don Pedro's External Policy consisted in the annexation of France, Spain, Portugal, and Italy, and the amalgamation of the Latin races. Accordingly, he despatched Ambassadors to the courts of those four Powers, informing them that the Holy Roman Empire had been resuscitated in Andorra, and inviting them to send in their adhesion to the new State. In that case he assured them that each country should possess a representative in the Imperial Folk Mote on the same terms as the several wards of Andorra itself, and that the settlement of local affairs should be left unreservedly to the minor legislatures, while the Chancellor of the Empire in person would manage the military and naval forces and the general executive department of the whole Confederation. As the four Powers refused to take any notice of Don Pedro's manifesto, the Chancellor declared to the Folk Mote his determination of treating them as recalcitrant rebels, and reducing them by force of arms. However, the Andorran army not being thoroughly mobilized, and indeed having fallen into a state of considerable demoralization, the ambitious prince decided to postpone the declaration of war sine die; and his Foreign Policy accordingly stood over for the time being.
Don Pedro's Internal Policy embraced various measures of Finance, Electoral Law, Public Morals, and Police Regulation.