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THE CHARACTER OF SIR ROBERT PEEL. 1 (1856.) - Walter Bagehot, The Works and Life of Walter Bagehot, vol. 2 (Historical & Financial Essays) 
The Works and Life of Walter Bagehot, ed. Mrs. Russell Barrington. The Works in Nine Volumes. The Life in One Volume. (London: Longmans, Green, and Co., 1915). Vol. 2.
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THE CHARACTER OF SIR ROBERT PEEL.1
Most people have looked over old letters. They have been struck with the change of life, with the doubt on things now certain, the belief in things now incredible, the oblivion of what now seems most important, the strained attention to departed detail, which characterise the mouldering leaves. Something like this is the feeling with which we read Sir Robert Peel’s Memoirs. Who now doubts on the Catholic Question? It is no longer a “question”. A younger generation has come into vigorous, perhaps into insolent, life, who regard the doubts that were formerly entertained as absurd, pernicious, delusive. To revive the controversy was an error. The accusations which are brought against a public man in his own age are rarely those echoed in after times. Posterity sees less or sees more. A few points stand forth in distinct rigidity; there is no idea of the countless accumulation, the collision of action, the web of human feeling, with which, in the day of their life, they were encompassed. Time changes much. The points of controversy seem clear; the assumed premises uncertain. The difficulty is to comprehend “the difficulty”. Sir Robert Peel will have to answer to posterity, not for having passed Catholic emancipation when he did, but for having opposed it before; not for having been precipitate, but for having been slow; not for having taken “insufficient securities” for the Irish Protestant Church, but for having endeavoured to take security for an institution too unjust to be secured by laws or lawgivers.
This memoir has, however, a deeper aim. Its end is rather personal than national. It is designed to show, not that Sir Robert did what was externally expedient—this was probably too plain—but that he himself really believed what he did to be right. The scene is laid not in Ireland, not in the county of Clare, not amid the gross triumphs of O’Connell, or the outrageous bogs of Tipperary; but in the Home Office, among files of papers, among the most correctly docketed memoranda, beside the minute which shows that Justice A. should be dismissed, that Malefactor O. ought not to be reprieved. It is labelled “My Conscience,” and is designed to show that “my conscience” was sincere.
Seriously, and apart from jesting, this is no light matter. Not only does the great space which Sir Robert Peel occupied during many years in the history of the country entitle his character to the anxious attention of historical critics, but the very nature of that character itself, its traits, its deficiencies, its merits, are so congenial to the tendencies of our time and government, that to be unjust to him is to be unjust to all probable statesmen. We design to show concisely how this is.
A constitutional statesman is in general a man of common opinions and uncommon abilities. The reason is obvious. When we speak of a free government, we mean a government in which the sovereign power is divided, in which a single decision is not absolute, where argument has an office. The essence of the gouvernement des avocats, as the Emperor Nicholas called it, is that you must persuade so many persons. The appeal is not to the solitary decision of a single statesman; not to Richelieu or Nesselrode alone in his closet; but to the jangled mass of men, with a thousand pursuits, a thousand interests, a thousand various habits. Public opinion, as it is said, rules; and public opinion is the opinion of the average man. Fox used to say of Burke: “Burke is a wise man; but he is wise too soon”. The average man will not bear this. He is a cool, common person, with a considerate air, with figures in his mind, with his own business to attend to, with a set of ordinary opinions arising from and suited to ordinary life. He can’t bear novelty or originalities. He says: “Sir, I never heard such a thing before in my life”; and he thinks this is a reductio ad absurdum. You may see his taste by the reading of which he approves. Is there a more splendid monument of talent and industry than The Times? No wonder that the average man—that any one—believes in it. As Carlyle observes: “Let the highest intellect able to write epics try to write such a leader for the morning newspapers, it cannot do it; the highest intellect will fail”. But did you ever see anything there you had never seen before? Out of the million articles that everybody has read, can any one person trace a single marked idea to a single article? Where are the deep theories, and the wise axioms, and the everlasting sentiments which the writers of the most influential publication in the world have been the first to communicate to an ignorant species? Such writers are far too shrewd. The two million, or whatever number of copies it may be, they publish, are not purchased because the buyers wish to know new truth. The purchaser desires an article which he can appreciate at sight; which he can lay down and say, “An excellent article, very excellent; exactly my own sentiments”. Original theories give trouble; besides, a grave man on the Coal Exchange does not desire to be an apostle of novelties among the contemporaneous dealers in fuel;—he wants to be provided with remarks he can make on the topics of the day which will not be known not to be his; that are not too profound; which he can fancy the paper only reminded him of. And just in the same way, precisely as the most popular political paper is not that which is abstractedly the best or most instructive, but that which most exactly takes up the minds of men where it finds them, catches the floating sentiment of society, puts it in such a form as society can fancy would convince another society which did not believe—so the most influential of constitutional statesmen is the one who most felicitously expresses the creed of the moment, who administers it, who embodies it in laws and institutions, who gives it the highest life it is capable of, who induces the average man to think, “I could not have done it any better if I had had time myself”.
It might be said, that this is only one of the results of that tyranny of commonplace which seems to accompany civilisation. You may talk of the tyranny of Nero and Tiberius; but the real tyranny is the tyranny of your next-door neighbour. What law is so cruel as the law of doing what he does? What yoke is so galling as the necessity of being like him? What espionage of despotism comes to your door so effectually as the eye of the man who lives at your door? Public opinion is a permeating influence, and it exacts obedience to itself; it requires us to think other men’s thoughts, to speak other men’s words, to follow other men’s habits. Of course, if we do not, no formal ban issues, no corporeal pain, no coarse penalty of a barbarous society is inflicted on the offender; but we are called “eccentric”; there is a gentle murmur of “most unfortunate ideas,” “singular young man,” “well-intentioned, I dare say; but unsafe, sir, quite unsafe”. The prudent, of course, conform. The place of nearly everybody depends on the opinion of every one else. There is nothing like Swift’s precept to attain the repute of a sensible man, “Be of the opinion of the person with whom, at the time, you are conversing”. This world is given to those whom this world can trust. Our very conversation is infected. Where are now the bold humour, the explicit statement, the grasping dogmatism of former days? They have departed, and you read in the orthodox works dreary regrets that the art of conversation has passed away. It would be as reasonable to expect the art of walking to pass away. People talk well enough when they know to whom they are speaking. We might even say that the art of conversation was improved by an application to new circumstances. “Secrete your intellect, use common words, say what you are expected to say,” and you shall be at peace. The secret of prosperity in common life is to be commonplace on principle.
Whatever truth there may be in these splenetic observations might be expected to show itself more particularly in the world of politics. People dread to be thought unsafe in proportion as they get their living by being thought to be safe. “Literary men,” it has been said, “are outcasts”; and they are eminent in a certain way notwithstanding. “They can say strong things of their age; for no one expects they will go out and act on them.” They are a kind of ticket-of-leave lunatics, from whom no harm is for the moment expected; who seem quiet, but on whose vagaries a practical public must have its eye. For statesmen it is different—they must be thought men of judgment. The most morbidly agricultural counties were aggrieved when Mr. Disraeli was made Chancellor of the Exchequer. They could not believe he was a man of solidity; and they could not comprehend taxes by the author of Coningsby, or sums by an adherent of the Caucasus. “There is,” said Sir Walter Scott, “a certain hypocrisy of action, which, however it is despised by persons intrinsically excellent, will nevertheless be cultivated by those who desire the good repute of men.” Politicians, as has been said, live in the repute of the commonalty. They may appeal to posterity; but of what use is posterity? Years before that tribunal comes into life, your life will be extinct. It is like a moth going into Chancery. Those who desire a public career must look to the views of the living public; an immediate exterior influence is essential to the exertion of their faculties. The confidence of others is your fulcrum. You cannot, many people wish you could, go into parliament to represent yourself. You must conform to the opinions of the electors; and they, depend on it, will not be original. In a word, as has been most wisely observed, “under free institutions it is necessary occasionally to defer to the opinions of other people; and as other people are obviously in the wrong, this is a great hindrance to the improvement of our political system and the progress of our species”.
Seriously, it is a calamity that this is so. Occasions arise in which a different sort of statesman is required. A year or two ago we had one of these. If any politician had come forward in this country, on the topic of the war, with prepared intelligence, distinct views, strong will, commanding mastery, it would have brought support to anxious intellects, and comfort to a thousand homes. None such came. Our people would have statesmen who thought as they thought, believed as they believed, acted as they would have acted. They had desired to see their own will executed. There came a time when they had no clear will, no definite opinion. They reaped as they had sown. As they had selected an administrative tool, of course it did not turn out a heroic leader.
If we wanted to choose an illustration of these remarks out of all the world, it would be Sir Robert Peel. No man has come so near our definition of a constitutional statesman—the powers of a first-rate man and the creed of a second-rate man. From a certain peculiarity of intellect and fortune, he was never in advance of his time. Of almost all the great measures with which his name is associated, he attained great eminence as an opponent before he attained even greater eminence as their advocate. On the corn-laws, on the currency, on the amelioration of the criminal code, on Catholic emancipation—the subject of the memoir before us—he was not one of the earliest labourers or quickest converts. He did not bear the burden and heat of the day; other men laboured, and he entered into their labours. As long as these questions remained the property of first-class intellects, as long as they were confined to philanthropists or speculators, as long as they were only advocated by austere, intangible Whigs, Sir Robert Peel was against them. So soon as these same measures, by the progress of time, the striving of understanding, the conversion of receptive minds, became the property of second-class intellects, Sir Robert Peel became possessed of them also. He was converted at the conversion of the average man. His creed was, as it had ever been, ordinary; but his extraordinary abilities never showed themselves so much. He forthwith wrote his name on each of those questions, so that it will be remembered as long as they are remembered.
Nor is it merely on these few measures that Sir Robert Peel’s mind must undoubtedly have undergone a change. The lifetime of few Englishmen has been more exactly commensurate with a change of public opinion—a total revolution of political thought. Hardly any fact in history is so incredible as that forty and a few years ago England was ruled by Mr. Perceval. It seems almost the same as being ruled by the Record newspaper. He had the same poorness of thought, the same petty Conservatism, the same dark and narrow superstition. His quibbling mode of oratory seems to have been scarcely agreeable to his friends; his impotence in political speculation moves the wrath—destroys the patience—of the quietest reader now. Other ministers have had great connections, or great estates, to compensate for the contractedness of their minds. Mr. Perceval was only a poorish nisi prius lawyer; and there is no kind of human being so disagreeable, so teasing, to the gross Tory nature. He is not entitled to any glory for our warlike successes: on the contrary, he did his best to obtain failure by starving the Duke of Wellington, and plaguing him with petty vexations. His views in religion inclined to that Sabbatarian superstition which is of all creeds the most alien to the firm and genial English nature. The mere fact of such a premier being endured shows how deeply the whole national spirit and interest was absorbed in the contest with Napoleon, how little we understood the sort of man who should regulate its conduct—“in the crisis of Europe,” as Sydney Smith said, “he safely brought the Curates’ Salaries Improvement Bill to a hearing”—and it still more shows the horror of all innovation which the recent events of French history had impressed on our wealthy and comfortable classes. They were afraid of catching revolution, as old women of catching cold. Sir Archibald Alison to this day holds that revolution is an infectious disease, beginning no one knows how, and going no one knows where. There is but one rule of escape, explains the great historian, “Stay still, don’t move; do what you have been accustomed to do, and consult your grandmother on everything”. In 1812 the English people were all persuaded of this theory. Mr. Perceval was the most narrow-minded and unaltering man they could find: he therefore represented their spirit, and they put him at the head of the state.
Such was the state of political questions. How little of real thoughtfulness was then applied to what we now call social questions cannot be better illustrated than by the proceedings on the occasion of Mr. Perceval’s death. Bellingham, who killed him, was, whether punishable or not, as clearly insane as a lunatic can be who offends against the laws of his country. He had no idea of killing Mr. Perceval particularly. His only idea was, that he had lost some property in Russia; that the English government would never repay him his loss in Russia; and he endeavoured to find some cabinet minister to shoot as a compensation. Lord Eldon lived under the belief that he had nearly been the victim himself, and told some story of a borrowed hat and an assistant’s greatcoat to which he ascribed his preservation. The whole affair was a monomaniac’s delusion. Bellingham had no ground for expecting any repayment. There was no reason for ascribing his pecuniary ruin to the government of that day, any more than to the government of this day. Indeed, if he had been alive now, it would have been agreed that he was a particularly estimable man. Medical gentlemen would have been examined for days on the doctrine of “irresistible impulse,” “moral insanity,” “instinctive pistol discharges,” and every respectful sympathy would have been shown to so curious an offender. Whether he was punishable or not may be a question; but all will now agree, that it was not a case for the punishment of death. In that day there was no more doubt that he ought to be hanged, than there would now be that he ought on no account to be hanged. The serious reasons, of which the scientific theories above alluded to are but the exaggerated resemblance, which indicate the horrible cruelty of inflicting on those who do not know what they do the extreme penalty of suffering meant for those who perpetrate the worst they can conceive, are in these years so familiar that we can hardly conceive their being unknown. Yet the Tory historian1 has to regret “that the motion, so earnestly insisted on by his counsel, to have the trial postponed for some days, to obtain evidence to establish his insanity, was not acceded to; that a judicial proceeding, requiring beyond all others the most calm and deliberate consideration, should have been hurried over with a precipitation which, if not illegal, was at least unusual”; and a noble lord “improved” the moment of the assassination by exclaiming to the peers in opposition, “You see, my lords, the consequence of your agitating the question of Catholic emancipation”. To those who now know England, it seems scarcely possible that this could have occurred here only forty-four years since. It was in such a world that Sir Robert Peel commenced his career. He was Under-Secretary of State for the Colonies at the time of Mr. Perceval’s assassination.
It is not, however, to be imagined that, even if Mr. Perceval had lived, his power would have very long endured. It passed to milder and quieter men. It passed to such men as Lord Liverpool and Mr. Peel. The ruling power at that time in England, as for many years before, as even in some measure, though far less, now, was the class of aristocratic gentry; by which we do not mean to denote only the aristocracy, and do not mean to exclude the aristocracy, but to indicate the great class of hereditary landed proprietors, who are in sympathy with the House of Lords on cardinal points, yet breathe a somewhat freer air, are more readily acted on by the opinion of the community, more contradictable by the lower herd, and less removed from their prejudices by a refined and regulated education. From the time of the Revolution, more or less, this has been the ruling class of the community; the close-borough system and the county system giving them mainly the control of the House of Commons, and their feeling being in general, as it were, a mean term between those of the higher nobility and the trading public of what were then the few large towns. The rule of the House of Lords was rather mediate than direct. By those various means of influence and social patronage and oppression which are familiar to a wealthy and high-bred aristocracy, the highest members of it, of course, did exercise over all below them a sure and continual influence; it worked silently and commonly on ordinary questions and in quiet times; yet it was liable to be overborne by a harsher and ruder power when stormy passions arose, in the days of wars and tumults. So far as the actual selection of visible rulers goes, the largest amount of administrative power has rarely been in the hands of the highest aristocracy, and in a great measure for a peculiar reason: that aristocracy rarely will do the work, and rarely can do the work. The enormous pressure of daily-growing business which besets the governors of a busy and complicated community, is too much for the refined habits, delicate discrimination, anxious judgment, which the course of their life develops in the highest classes, and with which it nourishes the idolence natural to those who have this world to enjoy. The real strain of the necessary labour has generally been borne by men of a somewhat lower grade, trained by an early ambition, a native aptitude, a hardy competition, to perform its copious tasks. Such men are partakers of two benefits. They are rough and ready enough to accomplish the coarse, enormous daily work; they have lived with men of higher rank enough to know and feel what such persons think and want. Sir Robert Walpole is the type of this class. He was a Norfolk squire, and not a nobleman; he was bred a gentleman, and yet was quite coarse enough for any business: his career was what you would expect. For very many years he administered the government much as the aristocracy wished and desired. They were, so to speak, the directors of the company which is called the English nation; they met a little and talked a little; but Sir Robert was the manager, who knew all the facts, came every day, saw everybody, and was everything.
Passing over the time of Lord Liverpool, of whom this is not now the place to speak, some such destiny as this would, in his first political life, have appeared likely to be that of Sir Robert Peel. If an acute master of the betting art had been asked the “favourite” statesman who was likely to rule in that generation, he would undoubtedly have selected Sir Robert. He was rich, decorous, laborious, and had devoted himself regularly to the task. There was no other such man. It was likely, at least to superficial observers, that his name would descend to posterity as the “Sir Robert” of a new time;—a time changed, indeed, from that of Walpole, but resembling it in its desire to be ruled by a great administrator, skilful in all kinds of business transactions, yet associated with the aristocracy; by one unremarkable in his opinions, but remarkable in his powers. The fates, however, designed Peel for a very different destiny; and to a really close observer there were signs in his horoscope which should have clearly revealed it. Sir Robert’s father and grandfather were two of the men who created Lancashire. No sooner did the requisite machinery issue from the brain of the inventor, than its capabilities were seized on by strong, ready, bold men of business, who erected it, used it, devised a factory system, combined a factory population—created, in a word, that black industrial region, of whose augmenting wealth and horrid labour tales are daily borne to the genial and lazy south. Of course, it cannot be said that mill-makers invented the middle classes. The history of England perhaps shows, that it has not for centuries been without an unusual number of persons with comfortable and moderate means. But though this class has ever been found among us, and has ever been more active than in any other similar country, yet to a great extent it was scattered, headless, motionless. Small rural out-of-the-way towns, country factories few and far between, concealed and divided this great and mixed mass of petty means and steady intelligence. The huge heaps of manufacturing wealth were not to be concealed. They at once placed on a level with the highest in the land—in matters of expenditure, and in those countless social relations which depend upon expenditure—men sprung from the body of the people, unmistakably speaking its language, inevitably thinking its thoughts. It is true that the first manufacturers were not democratic. Sir Robert Peel, the statesman’s father—a type of the class—was a firm, honest, domineering Conservative; but, however on such topics they may so think, however on other topics they may try to catch the language of the class to which they rise, the grain of the middle class will surely show itself in those who have risen from the middle class. If Mr. Cobden were to go over to the enemy, if he were to offer to serve Lord Derby vice Disraeli disconcerted, it would not be possible for him to speak as the hereditary landowner speaks. It is not that the hereditary landowner knows more;—indeed, either in book-learning or in matters of observation, in acquaintance with what has been, or is going to be, or what now is, the owners of rent are not superior to the receivers of profits; yet their dialect is different—the one speaks the language of years of toil, and the other of years of indolence. A harsh laboriousness characterises the one, a pleasant geniality the other. The habit of industry is ingrained in those who have risen by it; it modifies every word and qualifies every notion. They are the βέναυσοι of work. Vainly, therefore, did the first manufacturers struggle to be Conservatives, to be baronets, to be peers. The titles they might obtain, their outward existence they might change, themselves in a manner they might alter; but a surer force was dragging them and those who resembled them into another region, filling them with other thoughts, making them express what people of the middle classes had always obscurely felt, pushing forward this new industrial order by the side, or even in front, of the old aristocratic order. The new class have not, indeed, shown themselves republican. They have not especially cared to influence the machinery of government. Their peculiarity has been, that they wish to see the government administered according to the notions familiar to them in their business life. They have no belief in mystery or magic; probably they have never appreciated the political influence of the imagination; they wish to see plain sense applied to the most prominent part of practical life. In his later career, the second Sir Robert Peel was the statesman who most completely and thoroughly expressed the sentiments of this new dynasty;—instead of being the nominee of a nobility, he became the representative of a transacting and trading multitude.
Both of these two classes were, however, equally possessed by the vice or tendency we commented on at the outset. They each of them desired to see the government carried on exactly according to their own views. The idea on which seems to rest our only chance of again seeing great statesmen, of placing deep deferential trust in those who have given real proofs of comprehensive sagacity, had scarcely dawned on either. The average man had, so to say, varied; he was no longer of the one order, but of an inferior; but he was not at all less exacting or tyrannical. Perhaps he was even more so; for the indolent gentleman is less absolute and domineering than the active man of business. However that may be, it was the fate of Sir Robert Peel, in the two phases of his career, to take a leading share in carrying out the views, in administering the creed, first of one and then of the other.
Perhaps in our habitual estimate of Peel we hardly enough bear this in mind. We remember him as the guiding chief of the most intelligent Conservative government that this country has ever seen. We remember the great legislative acts which we owe to his trained capacity, every detail of which bears the impress of his practised hand; we know that his name is pronounced with applause in the great marts of trade and seats of industry; that even yet it is muttered with reproach in the obscure abodes of squires and rectors. We forget that his name was once the power of the Protestant interest, the shibboleth by which squires and rectors distinguished those whom they loved from those whom they hated; we forget that he defended the Manchester Massacre, the Six Acts, the Imposition of Tests, the rule of Orangemen. We remember Peel as the proper head of a moderate, intelligent, half-commercial community; we forget that he once was the chosen representative of a gentry untrained to great affairs, absorbed in a great war, only just recovering from the horror of a great revolution.
In truth, the character of Sir Robert Peel happily fitted him both to be the chosen head of a popular community, imperiously bent on its own ideas, and to be the head of that community in shifting and changing times. Sir Robert was at Harrow with Lord Byron, who has left the characteristic reminiscence: “I was always in scrapes, Peel never”. And opposed as they were in their fortunes as boys and men, they were at least equally contrasted in the habit and kind of action of their minds. Lord Byron’s mind gained everything it was to gain by one intense, striking effort. By a blow of the imagination he elicited a single bright spark of light on every subject; and that was all. And this he never lost. The intensity of the thinking seemed to burn it on the memory, there to remain alone. But he made no second effort; he gained no more. He always avowed his incapability of continuous application: he could not, he said, learn the grammar of any language. In later life he showed considerable talent for action; but those who had to act with him observed that, versatile as were his talents, and mutable as his convictions had always seemed to be, in reality he was the most stubborn of men. He heard what you had to say; assented to all you had to say; and the next morning returned to his original opinion. No amount of ordinary argumentative resistance was so hopeless as that facile acquiescence and instantaneous recurrence. The truth was, that he was—and some others are similarly constituted—unable to retain anything which he did not at any rate seem to gain by the unaided single rush of his own mind. The ideas of such minds are often not new, very often they are hardly in the strictest sense original; they really were very much suggested from without, and preserved in some obscure corner of memory, out of the way and unknown; but it remains their characteristic, that they seem to the mind of the thinker to be born from its own depths, to be the product of its latent forces. There is a kind of eruption of ideas from a subter-conscious world. The whole mental action is volcanic; the lava flood glows in Childe Harold; all the thoughts are intense, flung forth vivid. The day after the eruption the mind is calm; it seems as if it could not again do the like; the product only remains, distinct, peculiar, indestructible. The mind of Peel was the exact opposite of this. His opinions far more resembled the daily accumulating insensible deposits of a rich alluvial soil. The great stream of time flows on with all things on its surface; and slowly, grain by grain, a mould of wise experience is unconsciously left on the still, extended intellect. You scarcely think of such a mind as acting; it seems always acted upon. There is no trace of gushing, overpowering, spontaneous impulse; everything seems acquired. The thoughts are calm. In Lord Byron, the very style—dashing, free, incisive—shows the bold impulse from which it came. The stealthy accumulating words of Peel seem like the quiet leavings of an outward tendency, which brought these, but might as well have brought others. There is no peculiar stamp either in the ideas. They might have been any one’s ideas. They belong to the general diffused stock of observations which are to be found in the civilised world. They are not native to the particular mind, nor “to the manner born”. Like a science, they are credible or incredible by all men equally. This secondary order, as we may call it, of intellect, is evidently most useful to a statesman of the constitutional class, such as we have described him. He insensibly and inevitably takes in and imbibes, by means of it, the ideas of those around him. If he were left in a vacuum, he would have no ideas. The primary class of mind that strikes out its own belief would here be utterly at fault. It would want something which other men had; it would discover something which other men would not understand. Sir Robert Peel was a statesman for forty years; under our constitution, Lord Byron, eminent as was his insight into men, and remarkable as was his power, at least for short periods, of dealing with them, would not have been a statesman for forty days.
It is very likely that many people may not think Sir Robert Peel’s mind so interesting as Lord Byron’s. They may prefer the self-originating intellect, which invents and retains its own ideas, to the calm receptive intellect which acquires its belief from without. The answer lies in what has been said—a constitutional statesman must sympathise in the ideas of the many. As the many change, it will be his good fortune if he can contrive to change with them. It is to be remembered that statesmen do not live under hermetical seals. Like other men, they are influenced by the opinions of other men. How potent is this influence, those best know who have tried to hold ideas different from the ideas of those around.
In another point of view also Sir Robert Peel’s character was exactly fitted to the position we have delineated. He was a great administrator. Civilisation requires this. In a simple age work may be difficult, but it is scarce. There are fewer people, and everybody wants fewer things. The mere tools of civilisation seem in some sort to augment work. In early times, when a despot wishes to govern a distant province, he sends down a satrap on a grand horse, with other people on little horses; and very little is heard of the satrap again unless he send back some of the little people to tell what he has been doing. No great labour of superintendence is possible. Common rumour and casual complaints are the sources of intelligence. If it seems certain that the province is in a bad state, satrap No. 1 is recalled, and satrap No. 2 is sent out in his stead. In civilised countries the whole thing is different. You erect a bureau in the province you want to govern; you make it write letters and copy letters; it sends home eight reports per diem to the head bureau in St. Petersburg. Nobody does a sum in the province without somebody doing the same sum in the capital, to “check him,” and see that he does it correctly. The consequence of this is, to throw on the heads of departments an amount of reading and labour which can only be accomplished by the greatest natural aptitude, the most efficient training, the most firm and regular industry. Under a free government it is by no means better, perhaps in some respects it is worse. It is true that many questions which, under the French despotism, are referred to Paris, are settled in England on the very spot where they are to be done, without reference to London at all. But as a set-off, a constitutional administrator has to be always consulting others, finding out what this man or that man chooses to think; learning which form of error is believed by Lord B., which by Lord C.; adding up the errors of the alphabet, and seeing what portion of what he thinks he ought to do, they will all of them together allow him to do. Likewise, though the personal freedom and individual discretion which free governments allow to their subjects seem at first likely to diminish the work which those governments have to do, it may be doubted whether it does so really and in the end. Individual discretion strikes out so many more pursuits, and some supervision must be maintained over each of those pursuits. No despotic government would consider the police force of London enough to keep down, watch, and superintend such a population; but then no despotic government would have such a city as London to keep down. The freedom of growth allows the possibility of growth; and though liberal governments take so much less in proportion upon them, yet the scale of operations is so much enlarged by the continual exercise of civil liberty, that the real work is ultimately perhaps as immense. While a despotic government is regulating ten per cent. of ten men’s actions, a free government has to regulate one per cent. of a hundred men’s actions. The difficulty, too, increases. Anybody can understand a rough despotic community;—a small buying class of nobles, a small selling class of traders, a large producing class of serfs, are much the same in all quarters of the globe; but a free, intellectual community is a complicated network of ramified relations, interlacing and passing hither and thither, old and new—some of fine city weaving, others of gross agricultural construction. You are never sure what effect any force or any change may produce on a framework so exquisite and so involved. Govern it as you may, it will be a work of great difficulty, labour, and responsibility; and no man who is thus occupied ought ever to go to bed without reflecting that from the difficulty of his employment he may, probably enough, have that day done more evil than good. What view Sir Robert Peel took of these duties he has himself informed us.
“Take the case of the Prime Minister. You must presume that he reads every important despatch from every foreign court. He cannot consult with the Secretary of State for Foreign Affairs, and exercise the influence which he ought to have with respect to the conduct of foreign affairs, unless he be master of everything of real importance passing in that department. It is the same with respect to other departments; India for instance: How can the Prime Minister be able to judge of the course of policy with regard to India, unless he be cognisant of all the current important correspondence? In the case of Ireland and the Home Department it is the same. Then the Prime Minister has the patronage of the Crown to exercise, which you say, and justly say, is of so much importance and of so much value; he has to make inquiries into the qualifications of the persons who are candidates; he has to conduct the whole of the communications with the Sovereign, he has to write, probably with his own hand, the letters in reply to all persons of station who address themselves to him; he has to receive deputations on public business; during the sitting of parliament he is expected to attend six or seven hours a day, and for four or five days in the week; at least, he is blamed if he is absent.”
The necessary effect of all this labour is, that those subject to it have no opinions. It requires a great deal of time to have opinions. Belief is a slow process. That leisure which the poets say is necessary to be good, or to be wise, is needful for the humbler task of allowing respectable maxims to take root respectably. The “wise passiveness” of Mr. Wordsworth is necessary in very ordinary matters. If you chain a man’s head to a ledger, and keep him constantly adding up, and take a pound off his salary whenever he stops, you can’t expect him to have a sound conviction on Catholic emancipation or tithes, and original ideas on the Transcaucasian provinces. Our system, indeed, seems expressly provided to make it unlikely. The most benumbing thing to the intellect is routine; the most bewildering is distraction: our system is a distracting routine. You see this in the description just given, which is not exhaustive. Sir Robert Peel once requested to have a number of questions carefully written down which they asked him one day in succession in the House of Commons. They seemed a list of everything that could occur in the British Empire, or to the brain of a member of Parliament. A Premier’s whole life is a series of such transitions. It is wonderful that our public men have any minds left, rather than that a certain unfixity of opinion seems growing upon them.
We may go further on this subject. A great administrator is not a man likely to desire to have fixed opinions. His natural bent and tendency is to immediate action. The existing and pressing circumstances of the case fill up his mind. The letters to be answered, the documents to be filed, the memoranda to be made, engross his attention. He is angry if you distract him. A bold person who suggests a matter of principle, or a difficulty of thought, or an abstract result that seems improbable in the case “before the board,” will be set down as a speculator, a theorist, a troubler of practical life. To expect to hear from such men profound views of future policy, digested plans of distant action, is to mistake their genius entirely. It is like asking the broker of the Stock Exchange what will be the price of the funds this day six months! His whole soul is absorbed in thinking what that price will be in ten minutes. A momentary change of an eighth is more important to him than a distant change of a hundred eighths. So the brain of a great administrator is naturally occupied with the details of the day, the passing dust, the granules of that day’s life; and his unforeseeing temperament turns away uninterested from reaching speculations, from vague thought, and from extensive and far-off plans. Of course, it is not meant that a great administrator has absolutely no general views; some indeed he must have. A man cannot conduct the detail of affairs without having some plan which regulates that detail. He cannot help having some idea, vague or accurate, indistinct or distinct, of the direction in which he is going, and the purpose for which he is travelling. But the difference is, that this plan is seldom his own, the offspring of his own brain, the result of his own mental contention; it is the plan of some one else. Providence generally bestows on the working adaptive man a quiet adoptive nature. He receives insensibly the suggestions of others; he hears them with willing ears; he accepts them with placid belief. An acquiescent credulity is a quality of such men’s nature; they cannot help being sure that what every one says must be true; the vox populi is a part of their natural religion. It has been made a matter of wonder that Peel should have belonged to the creed of Mr. Perceval and Lord Sidmouth. Perhaps, indeed, our existing psychology will hardly explain the process by which a decorous young man acquires the creed of his era. He assumes its belief as he assumes its costume. He imitates the respectable classes. He avoids an original opinion, like an outré coat; a new idea, like an unknown tie. Especially he does so on matters of real concern to him, on those on which he knows he must act. He acquiesces in the creed of the orthodox agents. He scarcely considers for himself; he acknowledges the apparent authority of dignified experience. He is, he remembers, but the junior partner in the firm; it does not occur to him to doubt that those were right who were occupied in its management years before him. In this way he acquires an experience which more independent and original minds are apt to want. There was a great cry when the Whigs came into office, at the time of the Reform Bill, that they were not men of business. Of course, after a very long absence from office, they could not possess a technical acquaintance with official forms, a trained facility in official action. This Sir Robert Peel acquired from his apprenticeship to Mr. Perceval. His early connection with the narrow Conservative party has been considered a disadvantage to him; but it may well be doubted whether his peculiar mind was not more improved by the administrative training than impaired by the contact with prejudiced thoughts. He never could have been a great thinker; he became what nature designed, a great agent.
In a third respect also Sir Robert Peel conformed to the type of a constitutional statesman; and that third respect also seems naturally to lead to a want of defined principle, and to apparent fluctuation of opinion. He was a great debater; and of all pursuits ever invented by man for separating the faculty of argument from the capacity of belief, the art of debating is probably the most effectual. Macaulay tells us that, in his opinion, this is “the most serious of the evils which are to be set off against the many blessings of popular government. The keenest and most vigorous minds of every generation, minds often admirably fitted for the investigation of truth, are habitually employed in producing arguments such as no man of sense would ever put into a treatise intended for publication—arguments which are just good enough to be used once, when aided by fluent delivery and pointed language. The habit of discussing questions in this way necessarily reacts on the intellects of our ablest men, particularly of those who are introduced into Parliament at a very early age, before their minds have expanded to full maturity. The talent for debate is developed in such men to a degree which, to the multitude, seems as marvellous as the performances of an Italian improvisatore. But they are fortunate indeed if they retain unimpaired the faculties which are required for close reasoning, or for enlarged speculation. Indeed, we should sooner expect a great original work on political science—such a work, for example, as The Wealth of Nations—from an apothecary in a country town, or from a minister in the Hebrides, than from a statesman who, ever since he was one and twenty, had been a distinguished debater in the House of Commons.” But it may well be doubted whether there is not in the same pursuit a deeper evil, hard to eradicate, and tending to corrupt and destroy the minds of those who are beneath its influence. Constitutional statesmen are obliged, not only to employ arguments which they do not think conclusive, but likewise to defend opinions which they do not believe to be true. Whether we approve it or lament it, there is no question that our existing political life is deeply marked by the habit of advocacy. Perhaps fifteen measures may annually, on an average, be brought in by a cabinet government of fifteen persons. It is impossible to believe that all members of that cabinet agree in all those measures. No two people agree in fifteen things; fifteen clever men never yet agreed in anything; yet they all defend them, argue for them, are responsible for them. It is always quite possible that the minister who is strenuously defending a bill in the House of Commons may have used in the cabinet the very arguments which the Opposition are using in the House; he may have been overruled without being convinced; he may still think the conclusions he opposes better than those which he inculcates. It is idle to say that he ought to go out; at least, it amounts to saying that government by means of a cabinet is impossible. The object of a committee of that kind is to agree on certain conclusions; if every member after the meeting were to start off according to the individual bent and bias of his mind, according to his own individual discretion or indiscretion, the previous concurrence would have become childish. Of course, the actual measure proposed by the collective voice of several persons is very different from what any one of these persons would of himself wish; it is the result of a compromise between them. Each, perhaps, has obtained some concession; each has given up something. Every one sees in the actual proposal something of which he strongly disapproves; every one regrets the absence of something which he much desires. Yet, on the whole, perhaps, he thinks the measure better than no measure; or at least he thinks that if he went out, it would break up the government; and imagines it to be of more consequence that the government should be maintained than that the particular measure should be rejected. He concedes his individual judgment. No one has laid this down with more distinctness than Sir Robert Peel. “Supposing a person at a dinner-table to express his private opinion of a measure originating with a party with whom he is united in public life, is he, in the event of giving up that private opinion out of deference to his party, to be exposed to a charge almost amounting to dishonesty? The idea is absurd.—What is the everyday conduct of government itself? Is there any one in this House so ignorant as to suppose that on all questions cabinet ministers, who yield to the decision of their colleagues, speak and act in parliament in strict conformity with the opinions they have expressed in the cabinet? If ministers are to be taunted on every occasion that they hold opinions in the cabinet different from what they do in this House, and if parliament is to be made the scene of these taunts, I believe I should not be going too far in saying the House would have time for little else. It is the uniform practice with all governments, and I should be sorry to think the practice carries any stain with it, for a member of the administration who chances to entertain opinions differing from those of the majority of his colleagues, rather than separate himself from them, to submit to be overruled, and even though he do not fully concur in their policy, to give his support to the measures which, as an administration, they promulgate. I will give the House an instance of this fact. It was very generally reported on a late occasion, that upon the question of sending troops to Portugal a strong difference of opinion took place in the cabinet. Now would it, I ask, be either just or fair to call on those who, in the discussion of the cabinet, had spoken in favour of sending out troops to aid the cause of Donna Maria, to come down, and in parliament advocate that measure in opposition to the decision of their colleagues? No one would think of doing so.” It may not carry a stain; but it is a painful idea.
It is evident, too, that this necessarily leads to great apparent changes of opinion—to the professed belief of a statesman at one moment being utterly different from what it seems to be at another moment. When a government is founded, questions A, B, C, D, E, F, are the great questions of the day—the matters which are obvious, pressing—which the public mind comprehends. X, Y, Z, are in the background, little thought of, obscure. According to the received morality, no statesman would hesitate to sacrifice the last to the first. He might have a very strong personal opinion on X, but he would surrender it to a colleague as the price of his co-operation on A or B. A few years afterwards times change. Question A is carried, B settles itself, E and F are forgotten, X becomes the most important topic of the day. The statesman who conceded X before, now feels that he no longer can concede it; there is no equivalent. He has never in reality changed his opinion, yet he has to argue in favour of the very measures which he endeavoured before to argue against. Everybody thinks he has changed, and without going into details, the secrecy of which is esteemed essential to confidential co-operation, it is impossible that he can evince his consistency. It is impossible to doubt that this is a very serious evil, and it is plainly one consequent on, or much exaggerated by, a popular and argumentative government. It is very possible for a conscientious man, under a bureaucratic government, to co-operate with the rest of a council in the elaboration and execution of measures, many of which he thinks inexpedient. Nobody asks him his opinion; he has not to argue, or defend, or persuade. But a free government boasts that it is carried on in the face of day. Its principle is discussion; its habit is debate. The consequence is, that those who conduct it have to defend measures they disapprove, to object to measures they approve, to appear to have an accurate opinion on points on which they really have no opinion. The calling of a constitutional statesman is very much that of a political advocate; he receives a new brief with the changing circumstances of each successive day. It is easy to conceive a cold sardonic intellect, moved with contempt at such a life, casting aside the half-and-half pretences with which others partly deceive themselves, stating anything, preserving an intellectual preference for truth, but regarding any effort at its special advocacy as the weak aim of foolish men, striving for what they cannot attain. Lord Lyndhurst has shown us that it is possible to lead the life of Lord Lyndhurst. One can conceive, too, a cold and somewhat narrow intellect, capable of forming, in any untroubled scene, an accurate plain conviction, but without much power of entering into the varying views of others; little skilled in diversified argument; understanding its own opinion, and not understanding the opinions of others;—one can imagine such a mind pained, and cracked, and shattered, by endeavouring to lead a life of ostentatious argument in favour of others’ opinions, of half-concealment of its chill, unaltering essence. It will be for posterity to make due allowance for the variance between the character and the position of Lord John Russell.
Sir Robert Peel was exactly fit for this life. The word which exactly fits his oratory is—specious. He hardly ever said anything which struck you in a moment to be true; he never uttered a sentence which for a moment anybody could deny to be plausible. Once, when they were opposed on a railway bill, the keen irascibility of Lord Derby stimulated him to observe “that no one knew like the right honourable baronet how to dress up a case for that House”. The art of statement, the power of detail, the watching for the weak points of an opponent, an average style adapting itself equally to what the speaker believed and what he disbelieved, a business air, a didactic precision for what it was convenient to make clear, an unctuous disguise of flowing periods, and “a deep sense of responsibility” for what it was convenient to conceal, an enormous facility, made Sir Robert Peel a nearly unequalled master of the art of political advocacy. For his times he was perhaps quite unequalled. He might have failed in times of deep, outpouring patriotic excitement; he had not nature enough to express it. He might have failed in an age when there was nothing to do, and when elegant personality and the finesse of artistic expression were of all things most required. But for an age of important business, when there was an unusual number of great topics to be discussed, but none great enough to hurry men away from their business habits, or awaken the most ardent passion or the highest imagination, there is nothing like the oratory of Peel—able but not aspiring, firm but not exalted, never great but ever adequate to great affairs. It is curious to know that he was trained to the trade.
“Soon after Peel was born, his father, the first baronet, finding himself rising daily in wealth and consequence, and believing that money in those peculiar days could always command a seat in Parliament, determined to bring up his son expressly for the House of Commons. When that son was quite a child, Sir Robert would frequently set him on the table and say, ‘Now, Robin, make a speech, and I will give you this cherry’. What few words the little fellow produced were applauded; and applause stimulating exertion produced such effects that, before Robin was ten years old, he could really address the company with some degree of eloquence. As he grew up, his father constantly took him every Sunday into his private room and made him repeat, as well as he could, the sermon which had been preached. Little progress in effecting this was made, and little was expected at first, but by steady perseverance the habit of attention grew powerful, and the sermon was repeated almost verbatim. When at a very distant day the senator, remembering accurately the speech of an opponent, answered his arguments in correct succession, it was little known that the power of so doing was originally acquired in Drayton Church.”
A mischievous observer might say, that something else had remained to Sir Robert Peel from these sermons. His tone is a trifle sermonic. He failed where perhaps alone Lord John Russell has succeeded—in the oratory of conviction.
If we bear in mind the whole of these circumstances; if we picture in our minds a nature at once active and facile, easily acquiring its opinions from without, not easily devising them from within, a large placid adaptive intellect, devoid of irritable intense originality, prone to forget the ideas of yesterday, inclined to accept the ideas of to-day—if we imagine a man so formed cast early into absorbing, exhausting industry of detail, with work enough to fill up a life, with action of itself enough to render speculation almost impossible—placed too in a position unsuited to abstract thought, of which the conventions and rules require that a man should feign other men’s thoughts, should impugn his own opinions—we shall begin to imagine a conscientious man destitute of convictions on the occupations of his life—to comprehend the character of Sir Robert Peel.
That Sir Robert was a very conscientious man is quite certain. It is even probable that he had a morbid sense of administrative responsibility. We do not say that he was so weighed down as Lord Liverpool, who is alleged never to have opened his letters without a pang of foreboding that something had miscarried somewhere; but every testimony agrees that Sir Robert had an anxious sense of duty in detail. Lord Wellesley, somewhere in this volume,1 on an occasion when it would have been at least equally natural to speak of administrative capacity and efficient co-operation, mentions only “the real impressions which your kindness and high character have fixed in my mind”. The circumstances of his end naturally produced a crowd of tributes to his memory, and hardly any of them omit his deep sense of the obligations of action. The characteristic, too, is written conspicuously on every line of these memoirs. Disappointing and external as in some respects they seem, they all the more evidently bear witness to this trait. They read like the conscientious letters of an ordinary practical man; the great statesman has little other notion than that it is his duty to transact his business well. As a conspicuous merit, the Duke of Wellington, oddly enough according to some people’s notions at the time, selected Peel’s veracity. “In the whole course of my communication with him I have never known an instance in which he did not show the strictest preference for truth. I never had, in the whole course of my life, the slightest reason for suspecting that he stated anything which he did not firmly believe to be the fact. I could not sit down without stating what I believe, after a long acquaintance, to have been his most striking characteristic.” Simple people in the country were a little astonished to hear so strong a eulogy on a man for not telling lies. They were under the impression that people in general did not. But those who have considered the tempting nature of a statesman’s pursuits, the secrets of office, the inevitable complication of his personal relations, will not be surprised that many statesmen should be without veracity, or that one should be eulogised for possessing it. It is to be remarked, however, in mitigation of so awful an excellence, that Sir Robert was seldom in “scrapes,” and that it is on those occasions that the virtue of veracity is apt to be most severely tested. The same remark is applicable to the well-praised truthfulness of the duke himself.
In conjunction with the great soldier, Sir Robert Peel is entitled to the fame of a great act of administrative conscience. He purified the Tory party. There is little doubt that, during the long and secure reign which the Tories enjoyed about the beginning of the century, there was much of the corruption naturally incident to a strong party with many adherents to provide for, uncontrolled by an effective Opposition, unwatched by a great nation. Of course, too, any government remaining over from the last century would inevitably have adhering to it various remanet corruptions of that curious epoch. There flourished those mighty sinecures and reversions, a few of which still remain to be the wonder and envy of an unenjoying generation. The House of Commons was not difficult then to manage. There is a legend that a distinguished Treasury official of the last century,1 a very capable man, used to say of any case which was hopelessly and inevitably bad: “Ah, we must apply our majority to this question”; and no argument is so effectual as the mechanical, calculable suffrage of a strong, unreasoning party. There were doubtless many excellent men in the Tory party, even in its least excellent days; but the two men to whom the party, as such, owes most of purification were the Duke of Wellington and Sir Robert Peel. From the time when they became responsible for the management of a Conservative government, there was no doubt, in office or in the nation, that the public money and patronage were administered by men whom no consideration would induce to use either for their personal benefit; and who would, as far as their whole power lay, discourage and prevent the corrupt use of either by others. The process by which they succeeded in conveying this impression is illustrated by a chapter in the Dean of York’s Memoir of Peel, in which that well-known dignitary recounts the temptations which he applied to the political purity of his relative.
“While Peel was Secretary for Ireland, I asked him to give a very trifling situation, nominally in his gift, to a worthy person for whom I felt an interest. He wrote me word that he was really anxious to oblige me in this matter, but that a nobleman of much parliamentary interest, who supported the government, insisted upon his right to dispose of all patronage in his own neighbourhood. So anxious was Peel to show his good will towards me, that he prevailed upon the Lord-Lieutenant to ask as a favour from the aforesaid nobleman that the situation might be given to my nominee: but the marquis replied that the situation was of no value, yet, to prevent a dangerous precedent, he must refuse the application.
“In times long after, when Sir Robert Peel became prime minister, I asked him often in the course of many years for situations for my sons, which situations were vacant and in his immediate gift. I subjoin three letters which I received from him on these subjects; they were written after long intervals and at different periods, but they all speak the same language:—
“Whitehall, December 20 (no date of year).
“My dear Dean of York,—
I thank you for your consideration of what you deem the unrequited sacrifice which I make in the public service. But I beg to say that my chief consolation and reward is the consciousness that my exertions are disinterested—that I have considered official patronage as a public trust, to be applied to the reward and encouragement of public service, or to the less praiseworthy, but still necessary, purpose of promoting the general interests of the government. That patronage is so wholly inadequate to meet the fair claims of a public nature, that are daily presented for my consideration, and that constitute the chief torment of office, that I can only overcome the difficulties connected with the distribution by the utmost forbearance as to deriving any personal advantage from it. If I had absolute control over the appointment to which you refer, I should apply it to the satisfaction of one or other of the engagements into which I entered when I formed the government, and which (from the absolute want of means) remain unfulfilled. But I have informed the numerous parties who have applied to me on the subject of that appointment, that I feel it to be my duty, on account of the present condition of the board and the functions they have to perform, to select for it some experienced man of business connected with the naval profession, or some man distinguished in that profession.
“Believe me, my dear Dean, affectionately yours,
“I applied again for another place of less importance: the answer was much the same as before:—
“Whitehall, April 5, 1843.
“My dear Dean of York,—
I must dispose of the appointment to which you refer upon the same principle on which I have uniformly disposed of every appointment of a similar nature.
“I do not consider patronage of this kind (and, indeed, I may truly say it of all patronage) as the means of gratifying private wishes of any one. Those who have made locally great sacrifices and great exertions for the maintenance of the political cause which they espouse, have always been considered fairly entitled to be consulted in respect to the disposal of local patronage, and would justly complain if, in order to promote the interests of a relative of my own, I were to disregard their recommendations. It would subject me to great personal embarrassment, and be a complete departure from the rule to which I have always adhered,
“All patronage of all descriptions, so far from being of the least advantage personally to a minister, involves him in nothing but embarrassment.
Ever affectionately yours,
“I publish one more letter of the same kind, because all these letters exhibit the character of the writer, and contain matters of some public interest. The distributor of stamps died in the very place where my son was resident, and where he and I had exerted considerable interest in assisting the government members. I thought that now, perhaps, an exception might be made to the general rule, and I confidently recommended my eldest son for the vacancy. The following was the answer:—
“Whitehall, May 1.
“My dear Dean,—
Whatever arrangements may be made with respect to the office of distributor of stamps, lately held by Mr. —, I do not feel myself justified in appropriating to myself any share of the local patronage of a county with which I have not the remotest connection by property, or any other local tie.
“There are three members for the county of — who support the Government; and, in addition to the applications which I shall no doubt have from them, I have already received recommendations from the Duke of — and Earl —, each having certainly better claims than I have personally for local appointments in the county of —.
“I feel it quite impossible to make so complete a departure from the principles on which I have invariably acted, and which I feel to be nothing more than consistent with common justice, as to take —share offices for my own private purposes.
“Very faithfully yours,
“These letters show the noble principle on which Sir Robert’s public life was founded. I am quite sure that he had a great regard for my sons. He invited them to his shooting quarters, was pleased to find them amusement, and made them many handsome presents; but he steadily refused to enrich them out of the public purse merely because they were his nephews. Many prime ministers have not been so scrupulous.”
And clearly one divine wishes Sir Robert Peel had not been so.
The changes of opinion which Sir Robert Peel underwent are often cited as indications of a want of conscientiousness. They really are, subject, of course, to the preceding remarks, proofs of his conscientiousness. We do not mean in the obvious sense of their being opposed to his visible interest, and having on two great occasions destroyed the most serviceable party organisation ever ruled by a statesman in a political age; but in a more refined sense, the timeliness of his transitions may, without overstraining, be thought a mark of their bonâ fides. He could not have changed with such felicitous exactness, if he had been guided by selfish calculation. The problems were too great and too wide. There have, of course, been a few men—Talleyrand and Theramenes are instances—who have seemed to hit, as if by a political sense, the fitting moment to leave the side which was about to fall, and to join the side which was about to rise. But these will commonly be found to be men of a very different character from that of Peel. Minds are divided into open and close. Some men are so sensitive to extrinsic impressions, pass so easily from one man to another, catch so well the tone of each man’s thought, use so well the opportunities of society for the purposes of affairs, that they are, as it were, by habit and practice, metrical instruments of public opinion. Sir Robert was by character, both natural and acquired, the very reverse. He was a reserved, occupied man of business. In the arts of society, in the easy transition from person to person, from tone to tone, he was but little skilled. If he had been left to pick up his rules of conduct by mere social perception and observation, his life would have been a life of miscalculations; instead of admiring the timeliness of his conversions, we should wonder at the perversity of his transitions. The case is not new. In ancient times, at a remarkable moment, in the persons of two selfish men of genius, the open mind was contrasted with the close. By a marvellous combination of successive manœuvres, Julius Cæsar rose from ruin to empire; the spoiled child of society—sensitive to each breath of opinion—ever living at least among the externals of enjoyment—always retaining, by a genial kindliness of manner, friends from each of the classes which he variously used. By what the vulgar might be pardoned for thinking a divine infatuation, Pompeius lost the best of political positions, threw away every recurring chance, and died a wandering exile. As a reserved, ungenial man, he never was able to estimate the feeling of the time. “I have only to stamp with my foot when the occasion requires, to raise legions from the soil of Italy!” were the words of one who could not in his utmost need raise a force to strike one blow for Italy itself. The fate of Pompeius would have been that of Peel, if he too had played the game of selfish calculation. His changes, as it has been explained, are to be otherwise accounted for. He was always anxious to do right. An occupied man of business, he was converted when other men of business in the nation were converted.
It is not, however, to be denied that a calm and bland nature like that of Peel is peculiarly prone to self-illusion. Many fancy that it is passionate, imaginative men who most deceive themselves; and of course they are more tempted—a more vivid fancy and a more powerful impulse hurry them away. But they know their own weakness. “Do you believe in ghosts, Mr. Coleridge?” asked some lady. “No, ma’am, I have seen too many,” was the answer. A quiet, calm nature, when it is tempted by its own wishes, is hardly conscious that it is tempted. These wishes are so gentle, quiet, as it would say, so “reasonable,” that it does not conceive it possible to be hurried away into error by them. Nor is there any hurry. They operate quietly, gently, and constantly. Such a man will very much believe what he wishes. Many an imaginative outcast, whom no man would trust with sixpence, really forms his opinions on points which interest him by a much more intellectual process—at least, has more purely intellectual opinions beaten and tortured into him—than the eminent and respected man of business, in whom every one confides, who is considered a model of dry judgment, of clear and passionless equanimity. Doubtless Sir Robert Peel went on believing in the corn laws, when no one in the distrusted classes even fancied that they were credible.
It has been bitterly observed of Sir Robert Peel, that he was “a Radical at heart”; and, perhaps, with a similar thought in his mind, Mr. Cobden said once, at a League meeting, “I do not altogether like to give up Peel. You see he is a Lancashire man.” And it cannot be questioned that, strongly opposed as Sir Robert Peel was to the Reform Bill, he was really much more suited to the reformed than to the unreformed House of Commons. The style of debating in the latter was described by one who had much opportunity for observation, Sir James Mackintosh, as “continuous, animated, after-dinner discussion”. The House was composed mainly of men trained in two great schools, on a peculiar mode of education, with no great real knowledge of the classics, but with many lines of Virgil and Horace lingering in fading memories, contrasting oddly with the sums and business with which they were necessarily brought side by side. These gentlemen wanted not to be instructed, but to be amused; and hence arose what, from the circumstance of their calling, may be called the class of conversationalist statesmen. Mr. Canning was the type of these. He was a man of elegant gifts, of easy fluency, capable of embellishing anything, with a nice wit, gliding swiftly over the most delicate topics; passing from topic to topic like the raconteur of the dinner-table, touching easily on them all, letting them all go as easily; confusing you as to whether he knows nothing or knows everything. The peculiar irritation which Mr. Canning excited through life was, at least in part, owing to the natural wrath with which you hear the changing talk of the practised talker running away about all the universe; never saying anything which indicates real knowledge, never saying anything which at the very moment can be shown to be a blunder; ever on the surface, and ever ingratiating itself with the superficial. When Mr. Canning was alive, sound men of all political persuasions—the Duke of Wellington, Lord Grey—ever disliked him. You may hear old Liberals to this day declaring he was the greatest charlatan who ever lived, angry to imagine that his very ghost exists; and when you read his speeches yourself, you are at once conscious of a certain dexterous insincerity which seems to lurk in the very felicities of expression, and to be made finer with the very refinements of the phraseology. Like the professional converser, he seems so apt at the finesse of expression, so prone to modulate his words, that you cannot imagine him putting his fine mind to tough thinking, really working, actually grappling with the rough substance of a great subject. Of course, if this were the place for an estimate of Mr. Canning, there would be some limitation, and much excuse to be offered for all this. He was early thrown into what we may call an aristocratic debating society, accustomed to be charmed, delighting in classic gladiatorship. To expect a great speculator, or a principled statesman, from such a position, would be expecting German from a Parisian, or plainness from a diplomatist. He grew on the soil on which he had been cast; and it is hard, perhaps impossible, to separate the faults which are due to it and to him. He and it have both passed away. The old delicate parliament is gone, and the gladiatorship which it loved. The progress of things, and the Reform Bill which was the result of that progress, have taken, and are taking, the national representation away from the university classes, and conferring it on the practical classes. Exposition, arithmetic, detail, reforms—these are the staple of our modern eloquence. The old boroughs which introduced the young scholars are passed away; and even if the young scholars were in parliament, the subjects do not need the classic tact of expression. Very plain speaking suits the “passing tolls,” “registration of joint-stock companies,” finance, the Post-office. The petty regulation of the details of civilisation, which happily is the daily task of our Government, does not need, does not suit, a recherché taste or an ornate eloquence. As is the speech, so are the men. Sir Robert Peel was inferior to Canning in the old parliament; he would have been infinitely superior to him in the new. The aristocratic refinement, the nice embellishment, of the old time, were as alien to him as the detail and dryness of the new era were suitable. He was admirably fitted to be where the Reform Bill placed him. He was fitted to work and explain; he was not able to charm or to amuse.
In its exact form this kind of eloquence and statesmanship is peculiar to modern times, and even to this age. In ancient times the existence of slavery forbade the existence of a middle-class eloquence. The Cleon who possessed the tone and the confidence of the people in trade was a man vulgar, coarse, speaking the sentiments of a class whose views were narrow and whose words were mean. So many occupations were confined to slaves, that there was scarcely an opening for the sensible, moderate, rational body whom we now see. It was, of course, always possible to express the sentiments and prejudices of people in trade. It is new to this era, it seems created for Sir Robert Peel to express those sentiments, in a style refined, but not too refined; which will not jar people of high cultivation, which will seem suitable to men of common cares and important transactions.
In another respect Sir Robert Peel was a fortunate man. The principal measures required in his age were “repeals”. From changing circumstances, the old legislation would no longer suit a changed community; and there was a clamour, first for the repeal of one important Act, and then of another. This was suitable to the genius of Peel. He could hardly have created anything. His intellect, admirable in administrative routine, endlessly fertile in suggestions of detail, was not of the class which creates, or which readily even believes an absolutely new idea. As has been so often said, he typified the practical intelligence of his time. He was prone, as has been explained, to receive the daily deposits of insensibly-changing opinion; but he could bear nothing startling; nothing bold, original, single, is to be found in his acts or his words. Nothing could be so suitable to such a mind as a conviction that an existing law was wrong. The successive gradations of opinion pointed to a clear and absolute result. When it was a question, as in the case of the Reform Bill, not of simple abolition, but of extensive and difficult reconstruction, he “could not see his way”. He could be convinced that the anti-Catholic laws were wrong, that the currency laws were wrong, that the commercial laws were wrong; especially he could be convinced that the laissez-faire system was right, and the real thing was to do nothing; but he was incapable of the larger and higher political construction. A more imaginative genius is necessary to deal with the consequences of new creations, and the structure of an unseen future.
This remark requires one limitation. A great deal of what is called legislation is really administrative regulation. It does not settle what is to be done, but how it is to be done; it does not prescribe what our institutions shall be, but directs in what manner existing institutions shall work and operate. Of this portion of legislation Sir Robert Peel was an admirable master. Few men have fitted administrative regulations with so nice an adjustment to a prescribed end. The Currency Act of 1844 was an instance of this. If you consult the speeches by which that bill was introduced and explained to parliament, you certainly will not find any very rigid demonstrations of political economy, or dry compactness of abstract principle. Whether the abstract theory of the supporters of that Act be sound or unsound, no exposition of it ever came from the lips of Peel. He assumed the results of that theory; but no man saw more quickly the nature of the administrative machinery which was required. The separation of the departments of the Bank of England, the limitation of the country issues, though neither of them original ideas of Sir Robert’s own mind, yet were not, like most of his other important political acts, forced on him from without. There was a general agreement among the received authorities in favour of a certain currency theory; the administrative statesman saw a good deal before other men what was the most judicious and effectual way of setting it at work and regulating its action.
We have only spoken of Sir Robert Peel as a public man; and if you wish to write what is characteristic about him, that is the way to do so. He was a man whom it requires an effort to think of as engaged in anything but political business. Disraeli tells us that some one said that Peel was never happy except in the House of Commons, or doing something which had some relation to something to be done there. In common life, we continually see men scarcely separable as it were from their pursuits; they are as good as others, but their visible nature seems almost all absorbed in a certain visible calling. When we speak of them we are led to speak of it, when we would speak of it we are led insensibly to speak of them. It is so with Sir Robert Peel. So long as constitutional statesmanship is what it is now, so long as its function consists in recording the views of a confused nation, so long as success in it is confined to minds plastic, changeful, administrative—we must hope for no better man. You have excluded the profound thinker; you must be content with what you can obtain—the business gentleman.
[1 ]Memoirs, by the Right Hon. Sir Robert Peel, Bart., M.P., etc. Published by the trustees of his papers, Lord Mahon (now Lord Stanhope) and the Right Hon. Edward Cardwell, M.P. Part I. “The Roman Catholic Question,” 1828-9.
[1 ] Alison.
[1 ]National Review, July, 1856.
[1 ] George Rose.