At the Congress the Emperor, afraid of exciting the national prejudices of the Germans, entirely deserted his Spanish allies, and instead of hastening a favourable negotiation, perpetually threw obstacles in the way. As far as England was concerned, the great point at issue was Gibraltar, which Spain had already besieged in vain. The ministry, both before and now, seem to have regarded the surrender of it as neither impossible nor very injurious; the view of the nation was very different. But as is so often the case, the Congress came to very little. Spain, finding herself deserted by Austria, and observing that the Congress was falling Treaty of Seville. Nov. 9, 1729. to pieces by constant delays, had recourse to a direct treaty; and on the 9th of November 1729 the celebrated Treaty of Seville was signed. It was a defensive alliance between England, Spain and France, to which Holland subsequently acceded. Spain revoked all the privileges granted to Austrian subjects by the treaties of Vienna, re-established English trade in America on its former footing, and restored all captures. The Assiento was confirmed to the South Sea Company, and arrangements made for securing the succession of Parma and Tuscany to the Infant Don Carlos, by substituting Spanish troops for the neutral forces, which since the Preliminaries had been occupying those countries.
The Emperor now found that he had outwitted himself. He had clung to the Treaty of Vienna just long enough to irritate two of the Disappointment of the Emperor. great countries of Europe, he had put difficulties in the way of its completion, and hesitated about fulfilling it, just long enough to irritate the third. Old friends and old foes had made common cause. His hopes for the Pragmatic Sanction seemed entirely gone. It was not likely that he would sit down quietly while Spanish troops occupied fortresses in what he considered his dominions. He broke off all diplomatic relations with Spain, sent troops into Italy, and on the death of the Duke of Parma seized his duchy. But all men really knew that the bribe was ready, if they would only give it, to put an end to all his opposition. And the impatient Queen of Spain—angry with the shilly-shally policy of her new allies (who would not insist with sufficient rapidity on the completion of the Seville treaty), throwing over France, which she regarded as the chief delinquent in the matter—joined with England and Holland to offer the long wished for guarantee. Thus at length by the second Treaty of Vienna all the much vexed questions were decided. Austria was glad to accept the Second Treaty of Vienna. March 16, 1731. terms proposed at Seville, agreed to destroy the Ostend Company, to establish Don Carlos in his duchies, and not again to threaten the balance of European power. And in 1732, under the escort of English ships, the Spanish troops took possession of the disputed fortresses.
Complete supremacy of Walpole.
Both these treaties were arranged in accordance with the pacific views of Walpole. When the second was concluded he was absolute master of affairs in England; for almost immediately after the Treaty of Seville the old jealousy which had long smouldered between him and Townshend burst out, and Townshend had found it necessary to withdraw. Townshend was a proud, rough man, ill fitted to play the subordinate part which Walpole was determined to thrust upon his colleagues. Besides general ill-feeling, several specific grounds of difference existed between them. The first Treaty of Vienna had greatly irritated Townshend, who would have wished to avoid all compromise and to proceed to extremities with the Emperor. The link which had bound the brothers-in-law together had been broken by the death of Lady Townshend, Walpole's sister; and Walpole's conduct with regard to the Pension Bill supplied a fresh ground of quarrel. The Opposition had discovered, without exactly tracing it to its constitutional The Pension Bill. source, the power of the royal influence, and early in 1730 Mr. Sandys introduced the first of those Bills for restraining it which became from this time onwards one of the regular weapons of attack against the ministry. He moved for leave to bring in a Bill to disable all persons from sitting in Parliament who had any pension direct or indirect from the Crown, and proposed that every member as he took his seat should swear that he held no such pension. The attack was exceedingly well judged, for it gave expression to a very general feeling, and Walpole, who studiously avoided shocking the feelings of any large section of the nation, was at some loss how to meet it. But he knew that he could rely upon his great Whig supporters in the Upper House, and of that House Townshend was the leader. Walpole therefore suffered the Bill to pass the Lower House without opposition, so that it was upon Townshend and the Lords that the whole odium fell when, as a matter of course, they rejected it. On these and various other grounds such ill blood sprang up between the brothers, that it is told, though upon doubtful authority, that they nearly came to blows at an entertainment in the house of Mrs. Retirement of Townshend. 1731. Selwyn. It was impossible that both the ministers should remain in office; the influence of the Queen turned the scale in favour of Walpole, and Townshend resigned, withdrawing with unusual patriotism from political life, and devoting himself at Reynham, his house in Norfolk, to the improvement of agriculture. It is to him that we chiefly owe the cultivation of turnips. This change, by allowing a proper rotation of crops, and thus avoiding the necessity of leaving fields to lie fallow, added nearly a third to the cultivable area of England, while by supplying large quantities of cattle-food from a comparatively small space of ground, it enormously increased the food-producing resources of the country.
Walpole's home government.
For two years the ascendancy of Walpole was unquestioned. He was enabled to turn his thoughts to domestic improvements. English was substituted, certainly most reasonably, for the ancient Law Latin in all legal proceedings, to the grief it is said of some conservative lawyers, and against the opposition of most of the judges. There was a Committee of Inquiry also into the condition of public prisons, which brought many revolting horrors to light. Both in the Fleet and Marshalsea torture by thumbscrew and otherwise was constant, and the condition of poor prisoners who could not bribe the gaolers was inconceivably horrid. Forty or fifty of them, for instance, were locked up for the night in a cell not sixteen feet square. Gaol-fever and famine were constantly destroying them, so that the deaths at one prison were frequently eight or ten a day.
But it was as a financier that Walpole was most favourably known, and somewhat strangely it was a great financial reform in the year 1733 that almost brought him to ruin. Walpole was desirous of lessening even the weak opposition by which he was confronted in Parliament; and in the hope of attracting to himself the country gentlemen, he appealed, in accordance with his usual principle, to their love of money, and sought some way to lessen the Land Tax. For this purpose he suggested an excise upon salt. This must have been contrary to his own convictions. He could not have been ignorant how important an article salt is in many manufactures, how necessary an article of purchase even among the poorest. He was in fact taxing the poor and the manufacturing classes for the sake of winning the landed interest, which would be called upon to pay a land tax of one instead of two shillings. The new duty was carried, but by no large majority. The chief argument against it was that it was a step towards a general excise, which, because it seemed to infringe on the rights of the subject by giving revenue officers the right of entering houses, was much detested, and regarded as a badge of servitude. Although the tax upon salt was not really intended as a beginning of a general excise, it was nevertheless true that Walpole had a scheme of that nature in his mind: for it was found after a year's experience that the new tax upon salt fell short by two-thirds of the sum required to admit of the reduction of the Land Tax to one shilling. It was to a new measure of excise that Walpole looked to supply the deficiency. The excisable articles at that time were malt, salt, and distilleries, and the produce of the tax in 1733 was about £3,200,000. When Walpole's project of extending the excise got wind it proved most repugnant to the people. Numerous meetings were held, and many members were instructed to vote against any such attempt. But when the project was brought before the House, then in Committee, it appeared that Walpole, disowning all intention of establishing a general excise, confined himself solely to the duties on wine and tobacco; and even on those commodities designed no increase of the present duties, but merely a change in the manner of collecting them. In future the dues were to be collected after the manner of an excise from the retailers, and not as heretofore in the form of customs at the ports. Fraud and smuggling were so prevalent that in tobacco alone the customs, which ought to have produced £750,000 a year, produced in fact only £160,000. As these frauds took place chiefly at the ports or along the seaboard, Walpole hoped by taxing the retail trade, and not the importation, much to lessen them. In addition to this, he would have established a system of warehousing without tax for re-exportation, thus making London a free port. It was undoubtedly an excellent plan. As he pointed out, it was the shops and warehouses alone which were under supervision, not the houses of the retailers; liberty was in no way infringed; it enabled him to remit the Land Tax to the advantage of the country gentlemen; the scheme was advantageous to the importer, who could re-export free of duty; the price of the commodity was not raised. But none the less did it meet with the most violent opposition. Wyndham likened it to the unjust imposts of Empson and Dudley, and Pulteney derided it as a vast plan to cure an almost imaginary evil. The people beset the doors of the House during the debate in great crowds, irritating Walpole till he let fall the unhappy words—"It may be said that they came hither as humble suppliants, but I know whom the law calls sturdy beggars;" an expression which was never forgiven. The resolution was carried, but by an unusually small majority. On this and subsequent motions a Bill was founded, and in the course of many discussions a new cry was raised by Pulteney, that, as most of the seaport boroughs were already in the hands of one or the other branch of the administration, this was a plan for bringing inland towns under the same influences; and before the Bill came to a second reading, the ministerial majority of sixty had dwindled to sixteen. The excitement became dangerous; even the army was infected, and Walpole, according to his usual principle, yielded to the violence of the storm and withdrew the Bill. But though thus thwarted, he did not forego his revenge on the defaulters of his own party. Chesterfield, the ablest man in the ministry, Lord-Steward of the Household, was somewhat rudely dismissed. Lord Clinton, the Earl of Burlington, the Duke of Montrose, the Earls of Marchmont and Stair, and by a questionable exercise of prerogative the Duke of Bolton and Lord Cobham, were deprived of their commission in the army,—an arbitrary act not lost sight of by the Opposition.