Sir Robert Peel : from his private papers

Front matter

i HTliMHpa-^Mt A-.jB^'jI.'tiiliiJ'TitJriUf^K l^.i'.i v.l

Cornell Ituivewitg Jibtatg

BOUGHT WITH THE INCOME FROM THE

Preface To Volume I

The political history of the United Kingdom in the first half of the nineteenth century offers no more central and commanding figure than that of Sir Eobert Peel.

Forty years have passed since his death, yet amid the changes wrought by time his name remains familiarly associated with institutions which still govern and protect our daily life.

Our Laws of Currency and Banking, our Criminal Law, our Prisons and Juries, our Irish Constabulary, our English and Scottish Police, our Commercial Policy and Free Trade Tariff, our Income Tax and general system of Taxation, all bear the mark of his constructive hand.

To him was due the Ecclesiastical Commission, by whose labours for two generations, apportioning with more efficiency and fairness the great revenues of the Church of England, that ancient fabric has been consolidated and upheld.

Scotland, on the contrary, remembers him as the English statesman in whose day of power her National Church was rent asunder.

In the affairs of Ireland he played a still more prominent part. For six years as Chief Secretary, as Home Secretary for more than eight years, and again for five years as Prime Minister — in all for nearly twenty years, in time of war and in time of peace — he was officially responsible for the means used to rule and civilise that ill-fated country. And out of office, sometimes in resisting, sometimes in supporting, or even suggesting, the Irish measures of his political opponents, in the main his influence still prevailed.

Nor was he less conspicuous as a party leader. An adversary to the last of what he deemed the one-sided and revolutionary Eeform Bill of 1832, when vanquished Sir Eobert Peel did not despair of the British Monarchy and Constitution.

Eallying his reduced forces, accepting the accomplished fact, and labouring to confute his own predictions of disaster, he was the first to show how, under new conditions — by patient waiting and by well-timed action, by resource and readiness, by bold reforms and wise concessions, by able administration, severe economy, and masterly finance — statesmen whose aim was to preserve time-honoured institutions and established landmarks might still in some degree control political events, and claim in turn a share of power.

But to all this there was another side. Even before, and still more after the Eeform Act, in shaping his political course under increasing pressure from the practical necessities of the situation, or from his own ripening convictions, it was Sir Eobert Peel's peculiar fortune more than once to find himself at last, contrary to all expectation, the official

PREFACE [7]

advocate and sponsor of important measures which in their earlier stages he had actively opposed.

For relieving Catholic disabilities, which for sixteen years he had been foremost to maintain, he was (to use his own words) ' subjected to the indignity of expulsion ' by the University of Oxford, to represent which in Parliament had been the fondest hope and proudest triumph of his youth. And in repealing the Corn Laws he broke up the Tory party, carrying with him, it is true, all but one of his Cabinet, but not many of the country gentlemen and farmers who had borne him into power.

On both these occasions, as he amply acknowledged, other men had tilled the ground, and sown the seed for the harvest, which in the end he safely garnered. For Catholic relief he gave the praise to Fox and Grattan, to Plunket, and to Canning ; for untaxed bread, to Cobden ; and justly, for these men had been strong workers for the cause while he still kept it back. But in each case, while the issue was yet doubtful, while the waves of opposition still ran high, and when to encounter them no other efficient pilot could be found, he boldly grasped the helm, and with firm hand, at no small cost of personal sacrifice and of sustained exertion, steered the vessel safely into port.

To assign impartially the share — be it large or small — that justly falls to him in the honour of having secured acceptance for these long-delayed reforms, to pass judgment on his great conversions, to praise or to condemn the choice he made between the claims of party and an over-ruling sense of duty to the country at large, belongs to the historian or biographer.

What may be expected from the Trustees of his papers is to give the reader the best means of judging for himself ; to set before him in perspicuous order the facts, the arguluents, the alternative courses present to the statesman's mind when important decisions had to be taken ; to record his actual motives, as made known at the time to his colleagues, to his family, to his friends.

For this the materials bequeathed were ample ; the difficulty was in selection. The preference has been accorded to whatever most illustrates character, and to what had not as yet been published. A few only of the most important letters now given have appeared before, in the ' Life of Canning ' and the ' Life of Lord Eldon,' in the ' Correspondence of the Duke of Wellington,' and more recently in the ' Croker Papers.' To omit these would have made the record imperfect. All the rest will be new to the public, and will be found to throw fresh light upon what was already known.

The present volume does not include either of the new departures in policy for which Sir Eobert Peel was reproached and deserted by those members of his party who did not see their way to change with him. It reveals him as a rising statesman of exceptional consistency and independent judgment, marked by more than usual readiness from time to time to abandon office rather than submit to be overruled. It exhibits the rapid development and early recognition of his rare ability in administration, in legislation, and in conducting business in the House of Commons. It affords also many examples of his inclination A'igorously to reform abuses forced on his attention, and radically to amend defects of system.

Owing to his early and long official connection with Ireland, Irish subjects may appear unduly to predominate. But this has not been carried beyond the proportion which the letters relating to Ireland were found to bear to the whole of the papers for the years in question.

Whether Mr. Peel was writing from Dublin Castle to

PREFACE [9]

Ministers in London, or from the House of Commons or the Home Office to the Government in DubHn, his confidential communications on Irish business were naturally more copious than the record of Imperial or of British affairs, conducted wholly in London, and largely by word of mouth. And in allowing these proportions freely to reproduce themselves in the selection of letters, there appeared to be a twofold advantage. It gave more unity of subject ; it gave also more living interest at the present day, when, as it happens, the Sphinx of history is once more putting the question, yet unsolved: With organised agitation, and with an overwhelming voting power (such as existed in the Irish counties before 1829, and exists again since 1884) of tenant farmers, how shall Irish popular demands be reconciled with ' securities,' no longer for a Protestant Established Church (for that, as Sir Eobert Peel foresaw, is gone), but for the legislative Union (which he thought might also go), for enforcement of the civil rights of landlords, for individual liberty of action, and generally for good government, as understood by the majority of the United Kingdom ?

On this question the policy and the experience, the successes and the failures, of so strong and wise a statesman of a former generation may throw instructive hght.

It remains to acknowledge the labours of predecessors in the task of dealing with the papers, and the kindness of those who have placed further materials at the Editor's disposal.

The first Trustees, Earl Stanhope and Viscount Cardwell, published in 1856 a Memoir drawn up by Sir Eobert Peel himself, on 'The Koman Catholic Question, 1828-9.' In 1857 they added two similar Memoirs on 'The New Government, 1834-5,' and 'Eepeal of the Corn Laws, 1845-6,' and

[lO] SIR ROBERT PEEL

further announced their intention to select from the correspondence such letters as at that time could properly be made public.

This design was laid aside in favour of a 'Life' to be written by Mr. Goldwin Smith, then Eegius Professor of Modern History at Oxford, and he had made some progress in preparation for the work when unfortunately, from change of residence to America, he found himself unable to complete the larger project, and confined himself to the brief but able biographical notice which appeared in the 'Encyclopaedia Britannica ' in 1858.1 To him the Trustees are indebted for general advice, for the selection of some of the letters, and for permission to turn freely to account — so far as met the present purpose — a sketch made by him for a first chapter of the ' Life.'

Valuable service has been rendered by the late Sir John Milton, Accountant -General of the Army, who (with the aid of his brother, the late Eev. William Milton) completed the heavy task of cataloguing all the papers (in number about 100,000), separating from the rest those of chief importance, and drawing up a summary of them, which has been a useful guide.

Thanks are due also to the Eev. Frederick Peel for the use of notes left by his father, William Peel, the best authority on his brother's earliest years ; to Lady Portman, for free access to the papers at Buxted of the Earl of Liverpool; and to C. Leeson Prince, Esq., for efficient assistance in searching through them ; to Captain Goulburn, of Betchworth, for leave to examine Sir Eobert Peel's original letters to his intimate friend the Eight Hon. H. Goulburn; to Henry Hobhouse, Esq., M.P., for extracts from a manuscript diary of the Eight Hon. Henry Hobhouse, Under Secretary of State for the Home Department ; and ' Revised by the present Editor in 1885.

PHEFACE rill

to Alfred, Montgomery, Esq., for confidential letters (see Appendix) exchanged between the Marquis Wellesley and Mr. Peel; also to the Dean of Christ Church, to C. S. Eoundell, Esq., and to others, for anecdotes of the early life.

I have to add my acknowledgments to the Eight Hon. W. E. Gladstone for assistance given in several conversations, for the loan of original letters addressed to him, and for opportunities of consulting his collection at Hawarden of books relating to Sir Eobert Peel, one of which— the Life of the first Baronet, describing his eldest son in 1 804 as a boy of remarkable promise — was not to be found in the British Museum.

I have been aided also by many conversations with the late Viscount Cardwell as to the best mode of dealing with the papers committed partly to his charge. His anxiety, in failing health, to see the task of editing them completed to his mind has been to me (as one of his Executors) a chief inducement to accept the interesting duty offered to me by the present Trustees.

That duty I have endeavoured to fulfil at least with diligence, and with strict regard to Sir Eobert Peel's injunction in the Codicil to his Will, ' that no honourable confidence shall be betrayed, no private feelings unnecessarily wounded, and no public interests injuriously affected, in consequence of premature or indiscreet publication.'

Premature the present publication certainly is not ; it may rather seem too late. But the Trustees were deliberately of opinion that ' in the case of a truly great statesman his fame has everything to gain and nothing to lose by wellconsidered delay in the publication of his papers. Such delay affords a proof that there are no party or personal motives to subserve ; it allows the party spirit in all other quarters to subside ; it both induces and enables every

[I2] SIR ROBERT PEEL

reader to contemplate every question from a calm, historic point of view.' 2

The lapse of five-and-thirty years since these words were written, if otherwise to be regretted, has brought at least this advantage, that every document which should appeaiat all may appear now. And looking to that trait of character which the Duke of Wellington singled out as most distinctive of Sir Eobert Peel, his great regard for truth — remembering also his avowed desire to obtain the impartial verdict of posterity on a frank disclosure of the whole truth as regards his own political conduct — it has not seemed indiscreet to give without reserve many letters sixty or seventy years ago most confidential, but at this time well suited to become materials for history.

The work now presented is complete in itself. But it

is intended shortly to add two similar volumes recording

the later and more arduous stages of Sir Eobert Peel's

political career.

C. S. PAKKER.

'^ Preface to ilemoirs by Sir Eobert Peel, 1856.

Chapter I. 1788-1812

The Peel FamUy — Early Home Life— Boyish Prank at Bury— First School at Tamworth— Harrow — An American Sclioolfellow — Christ Church, its Dean and Tutors — School and College Friendsliips — Brilliant Examination and Douhle First-Class Honours — Mr. Peel visits Scotland — Becomes an Irish Member — Enters Lincoln's Inn — Seconds the Address — Dean Jackson's Advice — 'Read Homer' — ' Work like a Tiger ' — In Office as Under Secretary for War and the Colonies — Death of Perceval — Lord Liverpool Prime Minister — Mr. Peel Chief Secretary for Ireland

First Acquaintance with Ireland — The Viceroy and the Castle Staff — Making a New Parliament— Curvven's Act — Risk in representing Casliel — Chippenham — Romantic Refusal to barter Peerages for Seats — Third Parties — A Protestant Champion — A delicate Situation— A venal Borough — Political Patronage — An Irish Industry — Martyrs— Debts of Gratitude — A Battle for Promotion by Merit — A Job — Greed of Irish Officials — The New Parliament, First Impressions 35

Chapter III. 1812-1813

The Catholic Question — Position of Canning and Lord Wellesley — Lord Liverpool and his Cabinet — Peel and his Colleagues in Ireland —Conversion of his Predecessor — Grattan's Committee and Bill — Protestant Fears and Hopes— Education of the Irish People . . 66

Administration in Ireland— OflBcial Negligence, Frauds, Jobs, and

PAGE

Peculation— Pensions— Patronage— Change of Viceroy— Responsibilities of the Chief Secretary— Prosecutions and Control of the Press— The Catholic Board— Dejjendence on the Castle in Dublin- Lawlessness and Disaffection in the Country . . . . -94

Chapter V

Apprehensions of Peace — Fall of Bonaparte — Effects in Ireland — Catholic Board proclaimed Illegal— Police Act — Insurrection Act — Police Appointments — Judge Fletcher's Charge — Orange Societies — County Patronage — Peerages — Legal Appointments . . .127

Chapter VI

Lords Justices in Ireland — Corn Law Disturbances in London — Return of Bonaparte from Elba — Effects in Ireland — Withdrawal of British Troops — Irish Yeomanry — Alarmist Magistrates — Mr. Peel refuses to apply the Insurrection Act — Visit to Paris and to Waterloo — Napoleon at St. Helena — Catholic Petition rejected — Quarrel between O'Connell and Peel — O'Connell's Apology in 1825 . . 166

Chapter VII

Peace without Prosperity — Insurrection Act reserved for Emergencies — Enforced in four Counties— Parliamentary Impatience of Taxation — Effects in Ireland — Retrenchment and Refoi-ms — Proposed Inquiry — Magistrates and Sheriffs — Catholics divided — Protestants disheartened— Peel on the Choice of his Successor — Chief Secretary and Lord Lieutenant — Remedial Policy — England agitated, Ireland tranquil — Preparing for Famine . 205

Chapter VIII. 1817-1818

Great Speech on Catholic Claims — Thirteen Conversions — Protestants exultant — Mr. Peel enjoins Moderation — Congratulations — Election for the University of Oxford — Address from Irish Members — Sir Robert Peel's Factories Bill — Severe Economy — Political Patronage ^Farewell to Ireland 246

[IS]

CONTENTS

TT 1-J PAGE

Holidays in the Highlands — Currency Committee— The Catholic Question— Protestants defeated— Mr. Peel twice declines Cabinet Rank — Accepts Office as Home Secretary— Ireland under a Catholic Viceroy and a Catholic Attorney-General — Saurin discarded — Canning's Bill for admitting Catholics to the Upper House- Opposed by Peel— Peel and the King— Prerogative of Mercy— Royal Visit to Scotland — Death of Lord Londonderry .... 287

Chapter X. 1 822- 1 824

Lead of the House of Commons — Peel or Canning ? — The King and Canning — The King and Peel— Ireland under Lord Wellesley — Pastorini's Prophecy — Education of Catholics — The Catholic Association— Bill for its Suppression — Prosecution of O'Connell — The Duke of Wellington in Paris — Lord Eldon in the House of Commons Literature, Science, and Art — Professor Gaisford — Sir Humphrey Davy — Sir Thomas Lawrence ....... 327

Failure of Irish Prosecutions — Proposed Endowment of Catholic Clergy — The King's Protestant Minister — Defeated in the Commons — Tenders Resignation — O'Connell and Plunket — Protestant Reaction — A Matrimonial Catholic Question — Combination Laws — Monetary Crisis — Banking in England and in Scotland — Lloyd on Priestly Absolufion — Mr. Peel a Heretic — Gold Medals for Harrow and for the Royal Society — Dawson at Derry — Catholic Education — Currency-Criminal Law Reform — Sydney Smith on Secondary Punishments— County Police 367