As usual a constitutional assembly was called, and a new constitution was promulgated on September 26, 1866. An election was held and Cabral chosen president by a practically unanimous vote. Nevertheless his government had scarcely a day's peace from insurrections. It found time, however, to resume amicable relations with Spain, to make a commercial treaty with the United States and to found a professional institute. Other relations with the United States were also planned; for as Spain and France were eliminated from the annexation idea and the United States had abolished slavery, this country was looked upon with greater favor. The cost of the government's military activities was such that a strong attempt was made to lease Samana Bay to the United States for two million dollars; but as complete control was not offered the plan fell through. Later a special commissioner was sent to Washington to negotiate for the absolute lease of the Samana peninsula and Samana Bay, which negotiations were the prelude to the later annexation negotiations, but they were interrupted by a revolution in favor of Baez which broke out in Monte Cristi on October 7, 1867. and deposed Cabral on January 31, 1868. A council of generals administered affairs until Baez took charge for the fourth time, on May 4, 1868.
In accordance with established usage, the existing constitution was abrogated and Baez' pet constitution, that of December, 1854, placed in force, but with amendments. Baez then began to rule with a firm hand, and though occasionally bothered by small uprisings on the Haitian border, promoted by Cabral, Luperon and other unruly spirits, managed to sustain himself in power for almost his full term of six years. He was able to realize what had been the golden dream of administrations since the birth of the Republic, the contracting of a foreign loan. Hartmont & Co., a firm of London bankers, agreed to issue bonds of the Republic to the amount of £757,700, though at a ruinous rate, and actually paid over £38,095. The dream turned to a nightmare, for when the government annulled the contract on the ground of failure to comply with conditions, the bankers continued to issue bonds and kept the proceeds themselves; and the bonds thus fraudulently issued constituted the nucleus of the enormous debt which later led to American intervention.
Though Baez had, for political reasons, protested against Cabral's negotiations with the United States, he was too sagacious a statesman to fail to recognize the value of American protection. It was now Cabral's turn to indulge in tirades full of patriotic indignation, for Baez actively pursued negotiations for the annexation of the country to the United States. On November 29, 1869, two treaties were signed in Santo Domingo City by representatives of the American and Dominican governments: by one the Samana peninsula and Samana Bay were leased to the United States for fifty years at an annual rental of $150,000, and by the other the Dominican Republic was annexed to the United States. Baez submitted the annexation treaty to a plebiscite in his country in February, 1870, and an overwhelming vote was cast in favor thereof. While the adversaries of the treaty did not dare to oppose it actively within the country, it is probable that the vote represented the true sentiment of the Dominican people, for aside from the evident economic advantages of annexation, the influence of Baez was such that the people were ready to follow blindly whatever he advised. Both treaties lapsed, but the annexation treaty was renewed and President Grant in his messages to Congress strongly urged its passage. Powerful opposition developed in the United States Senate, led by Senator Sumner, and the treaty failed of ratification. By a resolution of Congress, approved January 12, 1871, the President of the United States was authorized to send a commission of inquiry to Santo Domingo. President Grant appointed three eminent men, Benjamin F. Wade, Andrew D. White and Samuel G. Howe, who were assisted by Frederick Douglas, Major-General Franz Sigel and a number of scientists. The commission proceeded to Santo Domingo, travelled across the country in several directions and made an extensive report, which is still an important source of information as to the characteristics of the island. The commission's report was transmitted to Congress, and President Grant made another earnest plea for the annexation of Santo Domingo. Congress took no further action, however, and the United States thus deliberately rejected an opportunity to obtain control of a most important strategical position and to secure peace and prosperity to the Dominican people.
It is interesting to speculate on what the future of Santo Domingo would have been if annexation had been realized. The power of the United States would have maintained peace; salutary laws would have educated the people in self-government; liberal tariff concessions would have stimulated agriculture and industry; the influx of a good stock of immigrants would have developed and settled the interior; honest administration would have provided roads and schools, and soon the country would have attained a high degree of development and prosperity. The failure of the United States to extend a helping hand condemned Santo Domingo to long years of anarchy and dictatorships.
When it became apparent that nothing would come of the annexation plans, the Baez administration, on December 28, 1872, rented the Samana peninsula to an American corporation, the "Samana Bay Company," for ninety-nine years, at an annual rental of $150,000. The company, which intended to found a large city on Samana Bay, actually paid the sum of $147,229.91, the greater part in gold and the remainder in arms and ammunition. This payment, with that received on account of the Hartmont bonds, and with the higher customs receipts due to quiet conditions, afforded relief to the treasury; while peace brought the country a prosperity further increased by the immigration of numerous Cubans driven from their homes by the ten years' war that had begun in 1869.
President Baez did not lose hope in the ultimate realization of annexation, and it was also his intention to have himself reelected for another term of six years. These circumstances were used against him by his ambitious enemies, and on November 25, 1873, a revolution broke out in Puerto Plata which spread so rapidly that Baez was obliged to capitulate on December 31 of the same year. A new generation, grown up since the independence of the country and which had come to look upon civil disorder as a normal condition, now came into power, and the question of foreign annexation ceased to be an issue.
A period of constant revolutionary ferment and frequent changes of the constitution followed, with a wearisome succession of military presidents. General Ignacio Maria Gonzalez became provisional president in 1874, took advantage of the non-payment of an annuity by the Samana Bay Company to rescind the contract with the company, called a national assembly, which formulated the constitution of March 24, 1874, and had himself elected president, entering upon office on April 6 of that year. As the constitution did not suit him, he called a new national convention and had another constitution promulgated on March 9, 1875. This was too much even for Santo Domingo, and his enemies formed a powerful league in Santiago with a view to having him impeached, but the Congress rejected the charges. Another civil war was imminent when Gonzalez resigned on February 23, 1876.
The council of ministers took charge of the government and held an election at which Ulises F. Espaillat was designated president. He entered upon office on April 29, 1876, and as he was an excellent man would have given a good account of himself under different conditions; but General Gonzalez started a revolution on the Haitian frontier, and on October 5, 1876, Espaillat was ousted. A superior council of government was formed, which appointed General Gonzalez president in the beginning of November, 1876. Gonzalez had been in power for just one month when he was overthrown, in December, 1876, by a revolution that originated in the Cibao, and General Buenaventura Baez became president for the fifth time. The Republic thus had four presidents in 1876: Gonzalez twice, Espaillat and Baez. Baez called a constitutional convention and the constitution of May 14, 1877, was promulgated. Under the influence of the younger element he was less autocratic than in his previous administrations, but perhaps for that very reason his whole term was one prolonged struggle with insurrections, until he was obliged to surrender on February 24, 1878. He retired to Porto Rico and died near Mayaguez in 1884. Two governments were now established, General Ignacio Maria Gonzalez being proclaimed president in the Cibao, and General Cesareo Guillermo in Santo Domingo. An agreement was reached by them on April 13, 1878, and Guillermo became provisional president of the entire country. The constitution of 1877 was reproclaimed with amendments, an election was held and General Gonzalez was declared constitutional president, entering upon office on July 6, 1878. Guillermo immediately started a revolution with General Ulises Heureaux and compelled Gonzalez to abdicate on September 2, 1878. It was the end of Gonzalez' meteoric presidential flights, but after a period of retirement he ventured into public life again, and for many years was Dominican minister to Haiti.
Jacinto de Castro, the president of the supreme court, acted as president until September 29,1878, when he was succeeded by the council of ministers of which Guillermo was chief. The constitution of 1878 was promulgated, with amendments, on February 11, 1879, and on February 28, Guillermo, after going through the form of an election, became constitutional president. He did not last long. On October 6, 1879, a revolution broke out at Puerto Plata and a provisional government was formed under the presidency of General Gregorio Luperon, an intelligent negro, who had been imprisoned for larceny under Spanish rule, but had redeemed himself by signal services in the War of the Restoration. Guillermo resisted two months, but was compelled to surrender on December 6, 1879.
Luperon did not depart from the usual custom, but called a constitutional assembly which, in 1880, adopted with amendments the constitution of 1879, and fixed the presidential term at two years. Luperon then held an election and gave the presidency, for the two years beginning September 1, 1880, to one of his supporters, Father Fernando de Meriño, an eloquent priest who had taken an active part in politics since his youth, and who later became archbishop of Santo Domingo. The reverend gentleman suppressed all revolutionary uprisings with uncompromising severity and did not hesitate to execute the conspirators that fell into his hands.