Part 4

The Peel family can be traced back to the misty days of Danish inroads. Its original home in England is disputed between Yorkshire and Lancashire; but as early as the days of Elizabeth the branch from which our statesman was descended is certainly to be found at Blackburn, and its members lived for generations as sturdy yeomen of that district. The first of them known to strike out an independent line was his grandfather, Robert Peel, who with his brother-in-law, Mr. Haworth, started the first firm for calico-printing in Lancashire about the year 1760, ceasing the practice of sending the material to be printed in France. This grandfather was a type of the men who were making the new England, leading the way in the creation of industries that were to transform the North and Midlands. The business prospered and he moved from Blackburn to Burton-on-Trent, where he built three new mills. His third son, named Robert, was also gifted with resource. Beginning as a member of the family firm, he soon came to be its chief director, and added another branch at Tamworth, where later he built the house of Drayton Manor, the family seat in the nineteenth century. He was a Tory and a staunch follower of the younger Pitt, who rewarded his services with a baronetcy in 1800. He too was a typical man of his age and class, an age of material progress and expansion, a class full of self-confidence and animated by a spirit of stubborn resistance to so-called un-English ideas. His eldest son, the third Robert and the second baronet, is our subject. It is impossible to grasp the springs of his conduct unless we know what traditions he inherited from his forbears.

Peel's education was begun at home with a specific purpose. Though his father had every reason to be satisfied with his own success, for his son he cherished a yet higher ambition and one which he did not conceal. He said openly that he intended him to be Prime Minister of his country. The knowledge of this provoked many jests among the boy's friends and caused him no slight embarrassment. It conspired with the shyness and reserve, which were innate in him, to win him from the outset a reputation for pride and aloofness. If he had not been forced to mix with those of his own age, and if he had not resolutely set himself to overcome this feeling, he might have grown into a student and a recluse. Both at school and college he did 'attend to his book': at Harrow he roused the greatest hopes. His brilliant schoolfellow, Lord Byron, while claiming to excel him in general information and history, admits that Peel was greatly his superior as a scholar. The working of their minds, now and afterwards, was curiously different. Bagehot[6] illustrates the contrast by a striking metaphor: Byron's mind, he says, worked by momentary eruptions of volcanic force from within and then relapsed into inactivity. Peel on the other hand steadily accumulated knowledge and opinions, his mind receiving impressions from outward experience like the alluvial soil deposited by a river in its course. But this is to anticipate. At Oxford Peel was the first man to win a 'Double First' (i.e. a first class both in classics and mathematics), in which distinction Gladstone alone, among our Prime Ministers, equalled him. But he also found time during the term to indulge in cricket, in rowing, and in riding, while in the vacation he developed a more marked taste for shooting, and thus freed himself from the charge of being a mere bookworm. He was good-looking, rather a dandy in his dress, stiff in his manner, regular in his habits, conforming to the Oxford standards of excellence and as yet showing few signs of independence of character.

[Note 6: Walter Bagehot, _Biographical Studies_, p. 17 (Longmans, 1907).]

Peel went into Parliament early, after the fashion of the day. He was twenty-one when, in 1809, a seat was offered him at Cashel in Ireland. The system of 'rotten boroughs' had many faults--our text-books of history do not spare it--but it may claim to have offered an easy way into Parliament for some men of brilliant talents. Peel's family connexions and his own training marked out the path for him. It was difficult for the young Oxford prizeman not to follow Lord Chancellor Eldon, that stout survival of the high old Tories: it was impossible for his father's son not to sit behind the successors of Pitt. We shall see how far his own reasoning powers and clear vision led him from this path; but the early influences were never quite effaced. His first patron was Lord Liverpool, to whom he became private secretary in the following year. This nobleman, described by Disraeli in a famous passage as an 'arch-mediocrity' was Prime Minister for fifteen years. He owed his long tenure of office largely to the tolerance with which he allowed his abler lieutenants to usurp his power: perhaps he owed it still more to the victories which Wellington was then winning abroad and which secured the confidence of the country; but at least he seems to have been a good judge of men. In 1811 he promoted Peel to be Under-Secretary for the Colonies, and in 1812 to be Chief Secretary for Ireland. His abilities must have made a great impression to win him such promotion: he must have had plenty of self-confidence to undertake such duties, for he was only twenty-four years old. We are accustomed to-day to under-secretaries of forty or forty-five; but we must remember that the younger Pitt led the House of Commons at twenty-four and was Prime Minister at twenty-five.

At Dublin Castle Peel was not expected to deal with the great political questions which convulsed Parliament at different periods of the century. He had to administer the law. It was routine work of a tedious and difficult kind; it involved the close study of facts--not in order to make a showy speech or to win a case for the moment, but in order to frame practical measures which would stand the test of time. Peel eschewed the usual recreations of Dublin society, and flung himself into his work whole-heartedly. In Roman history we see how Caesar was trained in the details of administration as quaestor, aedile, praetor, consul, while Pompeius passed in a lordly progress from one high command to another; how Caesar voluntarily exiled himself from Rome for ten years to conquer and develop Gaul, while Cicero bewailed himself over a few months' absence from the Forum. Of these three famous men only one proved himself able to guide the ship of state in stormy waters. Analogy must not be too closely pressed; but we see that, while Canning for all his ability established no durable influence, and his oratory burnt itself out after a brief blaze, while Wellington's fame paled year after year from his inability to control the course of civil strife, Peel's light burnt brighter every decade, as he rose from office to office and faced one difficult situation after another with coolness and success. He stayed at his post in Dublin for six years: he worked at the details of his office--education, agriculture, and police--and brought in many practical reforms. His beneficial activity is still better seen in the years 1821 to 1827 when he was Home Secretary. To-day he is chiefly remembered as the eponymous hero of our police; but in many other ways his tenure of the latter office is a landmark in departmental work. It may be that he originated little himself: that Romilly was the pioneer in the humanizing of law, that Horner taught him the doctrines of sound finance, that Huskisson led the way in freeing trade from the shackles with which it had been bound. But Peel in all these cases lent generous support and made their cause his own. He had a cool head and a warm heart, a knowledge of Parliament and an influence in Parliament already unrivalled. He saw what could be done, and how it could be done, and so he was able to push through successfully the reforms which his colleagues initiated. The value of his work in this sphere has never been seriously contested.

The point on which Peel's enemies fastened in judging his career was the number of times that he changed his convictions, abandoned his party, and carried through a measure which he himself had formerly opposed. To understand his claim to be called a great statesman it is particularly necessary to study these changes.

The first instance was the Reform of the Currency. Early in the French wars the London banks had been in difficulties. The Government was forced to borrow large sums from the Bank of England in order to give subsidies to our allies, and was unable to pay its debts. The Bank could not at the same time meet the demands of the Government and the claims of its private customers. Since a panic might at any moment cause an unprecedented run on its reserves, Pitt suspended cash payments till six months after the conclusion of peace. The Bank was thus allowed to circulate notes without being obliged to pay full cash value for them immediately on demand, and the purchasing power of these notes tended to vary far more than that of a metal currency. Also foreigners refused to accept a pound note in the place of a pound sterling; foreign payments had to be made in specie, and the gold was rapidly drained abroad. When the war was over, Horner and other economists began to draw attention to the bad effect of this on foreign trade and to the varying price of commodities at home, due to the want of a fixed currency. As Pitt had allowed the system of inconvertible paper, the Tories generally applauded and were ready to perpetuate it. The elder Sir Robert Peel had been always a firm supporter of these views and his son began by accepting them. He continued to acquiesce in them till his attention was definitely turned to the subject. In 1819 he was asked to be a member of a committee of very eminent men, including Canning and Mackintosh, which was to investigate the question, and he was elected chairman of it. But, though his verdict was taken for granted by his party, his mind was so constituted that he could not shut it against evidence. He listened to arguments, and judged them fairly; and, being by nature unable to palter with the truth, once he was convinced of it, he threw in all his weight with the reformers and reported in favour of a return to cash payments. History has vindicated his judgement, and he himself crowned his financial work by the famous Bank Act of 1844, passed when he was Prime Minister.

The second question on which Peel's conduct surprised his colleagues was that of Catholic Emancipation. Since 1793 Roman Catholic electors had the parliamentary vote; but, since no Roman Catholic could sit in Parliament, they had hitherto been content to cast their votes for the more tolerant of the Protestant candidates. Pitt had failed to induce George III to grant the Catholics civil equality, and George IV, despite his liberal professions, took up the same attitude as his father on succeeding to the throne. But the majority of the Whigs, and some even of the Tories, such as Castlereagh and Canning, were prepared to make concessions; and since 1820 the Irish agitation led by O'Connell had been gaining in strength. Peel had several reasons for being on the other side. His early training by his father, his friendship with Eldon and Wellington, his attachment to the Established Church, all had influence upon him. He saw clearly that Disestablishment would follow closely in Ireland on the granting of the Catholic demands; and since 1817, when he became Member for Oxford University, he felt bound to resist this. In taking this line he was no better and no worse than any other Tory member of the day; and in later times many politicians have allowed their traditions and prejudices to blind them to the existence of an Irish problem.

For all that, Peel ought earlier to have recognized the facts, to have looked ahead and formed a policy. As Chief Secretary for Ireland he had unrivalled opportunities for studying the whole question; but he did not let it penetrate beneath the surface of his mind. He had continued to bring up the same arguments on the few occasions when he spoke at Westminster, and had buried himself in administrative work. He seems to have hoped that he could evade it. If the Whigs got a majority and introduced an Emancipation Bill, he would have satisfied his constituents by formally opposing the measure and would not have gone beyond this. As he saw it gradually coming, he satisfied his own conscience by retiring from Lord Liverpool's Government and by refusing to join Canning, when he became Prime Minister in 1827. As a private member he would only be responsible for his own vote, and would not feel that he was settling the question for others. But Canning died after holding office only a month, and a Government was formed by Wellington in which Peel returned to office as Home Secretary and became leader of the House of Commons. Now he had to pay the penalty for his lack of foresight, and to deal with the tide of feeling which had been rising for some years on both sides of the Irish Channel. At least he could see facts which were before his eyes.

In 1828, before he had been twelve months in office, his decision was aided by a definite event. A by-election had to be fought in Clare, Mr. Fitzgerald seeking re-election on joining the Government. Against him came forward no less a person than Daniel O'Connell himself, the most eloquent and most popular of the Catholic leaders; and, although under the existing laws his candidature was void, he received an overwhelming majority. The bewilderment of the Tories was ludicrous. Fitzgerald himself wrote, 'The proceedings of yesterday were those of madmen; but the country is mad.' Peel took a careful view of the situation and decided on his course. He certainly laid himself open to the charge of giving way before a breach of the law, and the charge was pressed by the angry Tories. But his judgement was clearly based on a complete survey of all the facts. A single event was the candle which lit up the scene, but by the light of it he surveyed the whole room. He still held to his view about the dangers of Disestablishment ahead, but he maintained that a crisis had arisen involving graver dangers at the moment, and that the statesman must choose the lesser of two evils. There is no doubt that the situation was critical. The Duke of Wellington and Lord Anglesey (a Waterloo veteran, who was Lord Lieutenant of Ireland) both had fears of mutiny in the army; and civil war was to be expected, if O'Connell was not admitted to the House of Commons. Peel's personal consistency was one matter; the public welfare was another and a weightier. His first idea was to retire from office and to lend unofficial support to a measure which he could not advocate in principle. But the only hope of breaking down the old Tory opposition lay in the influence of the Tory ministers; no Whig Government could prevail in the temper of that time; and Wellington appealed in the strongest terms to Peel to remain in office and to lead the House. Peel yielded from motives of public policy and made himself responsible for a measure of Catholic Emancipation, which he had been pledged to resist.

It was a surrender--an undisguised surrender--and Peel did not, as on the Bullion Committee, profess to have changed his mind. But it was an honest surrender carried out in the light of day; and, before Parliament met, Peel announced his decision to resign his seat at Oxford and to give his constituents the chance of expressing their opinion of his conduct. The verdict was not long in doubt: the University, which in 1865 rejected another of its brilliant sons, gave a majority of one hundred and forty-six against him, and his political connexion with Oxford was severed. The verdict of posterity has been more liberal. The chief fault laid to Peel's charge is that he should for so many years have ignored all signs of the danger which was approaching, and not have made up his mind in time. He could see the crisis clearly, when it came, and could put the national interest above everything else: he could not look far enough ahead.

It was a similar want of foresight that led to the fall of the Tory Government in 1830. The Reform movement, so long delayed by the great wars, had been gathering force again. Events in France, where Charles X was driven from the throne and Louis Philippe proclaimed as Citizen-king, gave it additional impetus. The famous lawyer Brougham was thundering against the Government in Parliament, while throughout the country the platforms from which Radical orators declaimed were surrounded by eager throngs. The history of the movement cannot be told here. Its chief actors were the Whigs, who on Wellington's resignation formed a Government under Earl Grey at the end of 1830. Peel was fighting a losing fight and he did not show his usual judgement or cool temper. He opposed the Reform Bill to the last: he was haranguing violently against it when Black Rod arrived to summon the Commons to the presence of the King. William IV came down in person, at the instance of the Whig ministers, to dissolve Parliament and so to stay all proceedings by which, in the as yet unreformed Parliament, the Bill might have been defeated. In the General Election of 1831 the Whigs carried all before them, and in July, when Lord Grey carried the second reading, he could command a majority of 136. Even then it took three months of stubborn fighting to vanquish the Tory opposition in the House of Commons. When the Peers rejected the Bill, the question was raised whether a Tory Government could be formed; but Peel, however he might dislike the Bill, could recognize facts, and his refusal to co-operate in defying public opinion was decisive. Lord Grey returned to office fortified by the King's promise to make any number of new peers, if required; and the influence of Wellington was effective in dissuading the Upper House from further futile resistance. Again Peel had shown his good sense in accepting the situation. So far as he was concerned, there was no talk of repeal. He explicitly said that he regarded the question as 'finally and irrevocably disposed of', and he set to work to adapt his policy to the new situation.

It might well seem a desperate one for the Tories. Here were three hundred new members, most of whom had just received their seats from the Whigs against the direct opposition of their rivals. Gratitude and self-interest impelled them to support the Whig party; and its leaders, who had for nearly fifty years been out in the cold shade of opposition, might count on a long spell of power, especially as the Canningites, stronger in talents than in numbers, joined them at this juncture. Brougham had gone to the House of Lords, but three future Prime Ministers--Stanley (afterwards Lord Derby), Lord John Russell, and Palmerston--were in the House of Commons serving under Lord Althorp, who, though gifted with no oratorical talent, by his good sense and still more by his high character, commanded general respect. On the other side there was only one figure of the first rank, and that was Peel. Till 1832 he had not grown to his full stature: the Reformed Parliament gave him his chance and drew forth all his powers. It represented a new force in politics. No longer were the members sent to Westminster by a few great land-holders, by the small market towns, and by the agricultural labourers. The great industrial districts, Lancashire, Yorkshire, and the Midlands, were there in the persons of well-to-do citizens, experienced in business and serious in temper; and Peel, who was himself sprung from a notable family of this kind, was eminently the man to lead these classes and to win their confidence. It was also a gain to him to stand alone. His judgement was ripened, his confidence firm; and he could dominate his party, while the able and ambitious leaders on the other side too often clashed with one another. Above all, in the years 1832 to 1834, he showed that he had patience. Instead of snatching at occasions to ally himself with O'Connell, who was in opposition to every Government, and to embarrass the Whigs in a factious party-spirit, he showed a marked respect for principle. He supported or opposed the Whig bills purely on their merits, and gradually trained his party to be ready for the inevitable reaction when it should come.

By 1834 the tendencies to disruption in the victorious party were clearly showing themselves. First Stanley, on grounds of policy, and then Lord Grey, for personal reasons never quite cleared up, resigned office. Soon after, Lord Althorp left the House of Commons on succeeding to his father's earldom, and a little later Melbourne, the new Premier, was unexpectedly dismissed by the King. At the time Peel, expecting no immediate crisis, was abroad, in Rome; and we have interesting details of his slow journey home to meet the urgent call of Wellington, who was carrying on the administration provisionally. The changes of the last few years were shown by the fact that the Tories felt bound to choose their Premier from the Lower House. It was Wellington who recommended Peel for the place which, under the old conditions, he might have been expected to take himself. On his return, Peel accepted the task of forming a ministry, and, conscious of the numerical weakness of his own party, he made overtures to some of the Whigs. But Stanley and Graham[7] refused to join him, and he had to fall back on the Tories of Wellington's last Government. Before going to the country he laid down his principles in the famous Tamworth Manifesto.[8] This manifesto is important for its acceptance of the changes permanently made by the Reform Bill, and for the clear exposition of his attitude towards the important Church questions which were imminent. It is an excellent document for any one to study who wishes to understand the evolution of the old Tories into the modern Conservative party.

[Note 7: Sir James Graham, afterwards Home Secretary under Peel in 1841.]

[Note 8: Since his father's death, in 1830, Peel had been member for Tamworth.]