Standing on these terms with a master at once watchful and jealous, we cannot be surprised at the audacity of Fouché, who feared not to affect a sort of independence, by anticipating the desires of Napoleon in the public service, and even in the Imperial family. A striking instance of the last occurred in his intrigue with Josephine on the subject of the divorce;53 and perhaps it was his escape out of that former involvement,54 without loss of power or credit, which urged him to a second interference of a more public and national character, by which he endeavoured to sound the possibility of accomplishing a peace with England.
We may discover more than one motive for Fouché's proceeding in this most important business without either the knowledge or consent of Napoleon. He was aware that his master might have rendered it, in his way of treating, impossible even at starting, to discover on what terms Great Britain would conclude peace, by stating as preliminaries certain concessions which it was probable would not be granted, but from which, once stated, Napoleon could not himself recede. If, therefore, Fouché could find some secret mode of ascertaining upon what terms a treaty with England might really be obtained, he was doing a service to France, to Britain, to Napoleon himself, and to the world. It is not the Duke of Otranto, however, in particular, whom we would expect to incur disgrace, and even personal hazard, on mere public grounds. But, besides the pleasure which those who have long engaged in political intrigues find in carrying them on, until the habit becomes as inveterate as that of the gambler, we can see that Fouché might reasonably propose to himself an important accession of influence by the success of such a negotiation. If he could once acquire a knowledge of the price at which Napoleon might obtain that peace for which the world sighed in vain, he would become possessed of an influence over public opinion, both at home and abroad, which could not but render him a person of extreme importance; and if he was able to become the agent in turning such knowledge to advantage, and negotiating such an important treaty, he might fix himself even on Napoleon, as one of those ministers frequently met with in history, whom their sovereign may have disliked, but could not find means to dismiss.
Acting upon such motives, or on others which we can less easily penetrate, Fouché anxiously looked around, to consider what concessions France might afford to make, to soothe the jealousy of England; trusting it would be possible to come to some understanding with the British Ministry, weakened by the loss of Mr. Canning, and disheartened by the defeats sustained by the Spanish patriots, and the sinister event of the Walcheren expedition. The terms which he would have been willing to have granted, comprehended an assurance of the independence of the two kingdoms of Holland and Spain (as if such a guarantee could have availed any thing while these kingdoms had for sovereigns the brothers of Napoleon, men reigning as his prefects, and, we shall presently see, subject to removal at his pleasure,) together with the acknowledgment of the Sicilian monarchy in the present King, and that of Portugal in the House of Braganza. M. Ouvrard, a gentleman who had been permitted to go to London on commercial business, was employed by Fouché to open this delicate and furtive negotiation with the Marquis of Wellesley. But the negotiation was disconcerted by a singular circumstance.55
The idea of endeavouring to know on what terms peace could be obtained, had occurred to Napoleon as well as to Fouché; and the sovereign, on his part, unsuccessful as he had been on two occasions in his attempt to open a personal correspondence with the King of England, had followed the steps of his minister, in making M. Labouchère, a commercial person, agent of a great Dutch mercantile establishment, the medium of communication with the British Government. The consequence was, that Ouvrard, and the agent of the Emperor, neither of whom knew of the other's mission, entered about the same time into correspondence with the Marquis Wellesley, who, returned from his Spanish mission, was now secretary at war. The British statesman, surprised at this double application, became naturally suspicious of some intended deception, and broke off all correspondence both with Ouvrard and his competitor for the office of negotiator.56
Napoleon must naturally have been so highly incensed with Fouché for tampering without his consent57 in a matter of such vital consequence, that one is almost surprised to find him limiting the effects of his resentment to disgracing the minister. He sent for Fouché [June 2,] and having extorted from him an avowal of his secret negotiation, he remarked, "So, then, you make peace or war without my leave?"58 The consequence was, that the Duke of Otranto was deprived of his office of minister of police, in which he was succeeded by Savary; and he was shortly after sent into a species of honourable exile, in the character of Governor-general of Rome.59 It cost Buonaparte no little trouble to redeem from the clutches of his late minister the confidential notes which he had himself written to him upon affairs of police. For a long time Fouché pretended that he had consigned these important documents to the flames; and it was not until he had before his eyes the alternative of submission or a dungeon, that he at length delivered up the Imperial warrants, containing, no doubt, much that would have been precious to history. Dismissed at present from the stage, we shall again meet with this bold statesman at other periods of our history, when, as is observed of some kinds of sea-fowl, his appearance seldom failed to announce danger and tempest.
The character of Fouché, in point of principle or morality, could scarcely be accounted even tolerable; but he had high talents, and in many points the soundness of his judgment led him to pursue and recommend moderate and beneficent measures, out of policy, if not from a higher motive. On other accounts, also, many of the French had some partiality to him; especially those who cast their eyes backward upon their national history, and regretted the total loss of that freedom, so eagerly longed for, so briefly possessed, and which they could never be properly said to have enjoyed; and to the recovery of which, in part at least, Fouché was understood to be favourable as far as he could or dared. The remnant of the sterner Republicans might despise him as a time server, yet they respected him, at the same time, as a relic of the Revolution, and on different occasions experienced his protection. To the Royalists also he had been courteous, and so decidedly so, as encouraged one of the boldest agents of the Bourbons to penetrate to his presence, and endeavour to bring him over to the cause of the exiled family. Fouché dismissed him, indeed, with a peremptory refusal to listen to his proposal; but he did not deliver him to the police, and he allowed him twenty-four hours to leave the kingdom. These various feelings occasioned to many, alarm and regret at the dismissal of the Duke of Otranto.
The discharge of this able minister seemed the more portentous, that shortly before it occurred, the terrible charge of which he was about to be deprived, had received an alarming extension of jurisdiction. The number of state prisons was extended from one, being the old tower of Vincennes, to no less than six, situated in different parts of France.60 These Bastiles, chiefly old Gothic castles, were destined to be the abode of captives, whom the Government described as persons who could not be convicted of any crime perpetrated, but whom, as entertaining dangerous thoughts, and principles, it was not safe to permit to remain at large. The lettre de cachet, by authority of which these victims of political suspicion were to be secluded from liberty, was to consist in a decree of the Privy Council, which might have been as well termed the pleasure of the Emperor. This measure