The Influence of Sea Power upon the French Revolution and Empire 1793-1812, Vol II
as guardian of the coveted position, because its weakness could arouse no jealousy. The independence of the islands was placed under the guarantee of Great Britain, France, Austria, Spain, Russia, and Prussia; the last four being also invited to accede to the long list of stipulations. The presence of a grand master and the guarantee of the four powers—whose acquiescence was not first obtained—were thus integral parts of the agreement; and upon their failure Great Britain afterwards justified the delays which left Malta still a pledge in her hands, when she demanded from France explanations and indemnities for subsequent actions, injurious, as she claimed, to her security and to her dignity.
By another clause of the treaty Great Britain consented to evacuate Porto Ferrajo, the principal port in Elba, which she had up to that time held by force of arms. It was then known that this was in effect to abandon the island to France, who had obtained its cession from Naples and Tuscany, formerly joint owners, by conventions first made known some time after the signature of the preliminaries. Elba was by its position fitted seriously to embarrass the trade of Great Britain with Northern Italy, under the restrictions laid wherever Bonaparte's power extended; but the most important feature of the transaction was the impression produced by the long concealment of treaties thus unexpectedly divulged. These sudden, unforeseen changes imparted an air of illusion to all existing conditions, and undermined the feeling of security essential to the permanent relations of states.
Despite the shocks caused by these various revelations, the treaty of Amiens was received in Great Britain with satisfaction, though not with the unmeasured demonstrations that followed the announcement of the preliminaries. In France the general joy was no less profound. "It was believed," writes M. Thiers, "that the true peace, the peace of the seas, was secured,—that peace which was the certain and necessary condition of peace on the Continent." The enthusiasm of the nation was poured out at the feet of the first consul, to whose genius for war and for diplomacy were not unjustly attributed the brilliant, as well as apparently solid, results. Statesmen might murmur that France had lost her colonial empire and failed to hold Egypt and Malta, while Great Britain had extended and consolidated her Indian empire by overthrowing the Sultan of Mysore, the ancient ally of France and her own most formidable foe in the peninsula; but the mass even of intelligent Frenchmen stopped not to regard the wreck of their sea power, of which those disastrous events were but the sign. Facts so remote, and whose significance was not immediately apparent, were lost to sight in the glare of dazzling deeds wrought close at hand. All eyes were held by the splendid succession of victories in Italy and Germany, by the extension of the republic to her natural limits at the Rhine and the Alps, by the restoration of internal order, and by the proudly dominant position accorded their ruler in the councils of the Continent. To these was now added free access to the sea, wrung by the same mighty hand—as was fondly believed—from the weakening of the great Sea Power. At an extraordinary session of the Legislature, convoked to give legal sanction to the treaties and measures of the government, the Treaty of Amiens was presented last, as the crowning work of the first consul; and it was used as the occasion for conferring upon him a striking mark of public acknowledgment. After some hesitations, the question was submitted to the nation whether his tenure of office should be for life. The majority of votes cast were affirmative; and on the 3d of August, 1802, the senate formally presented to him a senatus-consultum, setting forth that "the French people names, and the senate proclaims. Napoleon Bonaparte consul for life."
Bonaparte had not waited for this exaltation to continue his restless political activity, destined soon to make waste paper of the Treaty of Amiens. Great Britain having steadfastly refused to recognize the new states set up by him in Italy, he argued she had forfeited all right to interfere thenceforth in their concerns. From this he seems to have advanced to the position that she had no further claim to mingle in the affairs of the Continent at large. The consequent indifference shown by him to British sentiment and interests, in continental matters, was increased by his conviction that "in the existing state of Europe England cannot reasonably make war, alone, against us;" 66 an opinion whose open avowal in more offensive terms afterwards became the spark to kindle the final great conflagration.
The treaty of Lunéville had provided that the German princes, who by it lost territory on the west bank of the Rhine and in Italy, should receive compensation elsewhere in the German empire; and it was agreed that these indemnities should be made mainly at the expense of the ecclesiastical principalities, where, the tenure being for life only, least hardship would be involved. The difficulties attending these distributions, and the fixed animosity between Prussia and Austria, gave Bonaparte a fair pretext to intervene as mediator, and to guide the final settlement upon lines which should diminish the relative power and prestige of France's traditional enemy, Austria, and exalt her rivals. In doing this he adroitly obtained the imposing support of Russia, whose young sovereign readily accepted the nattering offer of joint intervention; the more so that the princes allied to his family might thus receive a disproportionate share of the spoils. Under Bonaparte's skilful handling, the acquisitions of Prussia were so far greater than those of Austria as to fulfil his prediction, that "the empire of Germany should be really divided into two empires, since its affairs will be arranged at two different centres." 67 After the settlement he boasted that "the affairs of Germany had been arranged entirely to the advantage of France and of her allies." 68 Great Britain was not consulted; and her people, though silent, saw with displeasure the weakening of their ally and the aggrandizement of a state they held to be faithless as well as hostile. At the same time bad feeling was further excited by the peremptory demands of Bonaparte for the expulsion from England of certain French royalists, and for the repression of the freedom of the British press in its attacks upon himself. To these demands the British government declined to yield.
The reclamations of Bonaparte against the press, and his intervention in German affairs, preceded the proclamation of the consulate for life. It was followed at a short interval by the formal incorporation with France of Piedmont and Elba, by decree dated September 11, 1802. Piedmont had been organized as a French military department in April, 1801; 69 and Bonaparte had then secretly avowed the measure to be a first step to annexation. The significance of the present action was that it changed a condition which was de facto only, and presumably temporary, to one that was claimed to be de jure and permanent. As such, it was a distinct encroachment by France, much affecting the states of the Continent, and especially Austria, against whose Italian possessions Piedmont was meant to serve as a base of operations. The adjacent Republic of Liguria, as the Genoese territory was then styled, was also organized as a French military division, 70 and no security existed against similar action there,—most injurious to British commerce, and adding another to the transformation scenes passing before the eyes of Europe. Nor was the material gain to France alone considered; for, no compensation being given to the King of Sardinia for the loss of his most important state, this consummated injury was felt as a slight by both Great Britain and Russia, which had earnestly sought some reparation for him. For the time, however, no remonstrance was made by the ministry.
New offence was soon given, which, if not greater in degree, produced all the effect of cumulative grievance. The little canton of Valais, in south-western Switzerland, had in the spring of 1802 been forcibly detached from the confederation and proclaimed independent, in order to secure to the French the Simplon route passing through it to Italy; a measure which, wrote Bonaparte, "joined to the exclusive right of France to send her armies by that road, has changed the system of war to be adopted in Italy." 71 No further open step was then taken to control the affairs of Switzerland; but the French minister was instructed to support secretly the party in sympathy with the Revolution, 72 and an ominous sentence appeared in the message of the first consul to the Legislature, May 6, 1802, that "the counsels of the French government to the factions in Switzerland had so far been ineffective. It is still hoped that the voice of wisdom and moderation will command attention, and that the powers adjoining Helvetia will not be forced to intervene to stifle troubles whose continuance would threaten their own tranquillity." 73
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