by the conduct of the ministers on whom, new as he was to the details of English affairs, he was forced to rely for information about men and things. There was indeed no want of ability among his chief counsellors: but one half of their ability was employed in counteracting the other half. Between the Lord President and the Lord Privy Seal there was an inveterate enmity. 69 It had begun twelve years before when Danby was Lord High Treasurer, a persecutor of nonconformists, an uncompromising defender of prerogative, and when Halifax was rising to distinction as one of the most eloquent leaders of the country party. In the reign of James, the two statesmen had found themselves in opposition together; and their common hostility to France and to Rome, to the High Commission and to the dispensing power, had produced an apparent reconciliation; but as soon as they were in office together the old antipathy revived. The hatred which the Whig party felt towards them both ought, it should seem, to have produced a close alliance between them: but in fact each of them saw with complacency the danger which threatened the other. Danby exerted himself to rally round him a strong phalanx of Tories. Under the plea of ill health, he withdrew from court, seldom came to the Council over which it was his duty to preside, passed much time in the country, and took scarcely any part in public affairs except by grumbling and sneering at all the acts of the government, and by doing jobs and getting places for his personal retainers. 70 In consequence of this defection, Halifax became prime minister, as far any minister could, in that reign, be called prime minister. An immense load of business fell on him; and that load he was unable to sustain. In wit and eloquence, in amplitude of comprehension and subtlety of disquisition, he had no equal among the statesmen of his time. But that very fertility, that very acuteness, which gave a singular charm to his conversation, to his oratory and to his writings, unfitted him for the work of promptly deciding practical questions. He was slow from very quickness. For he saw so many arguments for and against every possible course that he was longer in making up his mind than a dull man would have been. Instead of acquiescing in his first thoughts, he replied on himself, rejoined on himself, and surrejoined on himself. Those who heard him talk owned that he talked like an angel: but too often, when he had exhausted all that could be said, and came to act, the time for action was over.
Meanwhile the two Secretaries of State were constantly labouring to draw their master in diametrically opposite directions. Every scheme, every person, recommended by one of them was reprobated by the other. Nottingham was never weary of repeating that the old Roundhead party, the party which had taken the life of Charles the First and had plotted against the life of Charles the Second, was in principle republican, and that the Tories were the only true friends of monarchy. Shrewsbury replied that the Tories might be friends of monarchy, but that they regarded James as their monarch. Nottingham was always bringing to the closet intelligence of the wild daydreams in which a few old eaters of calf's head, the remains of the once formidable party of Bradshaw and Ireton, still indulged at taverns in the city. Shrewsbury produced ferocious lampoons which the Jacobites dropped every day in the coffeehouses. "Every Whig," said the Tory Secretary, "is an enemy of your Majesty's prerogative." "Every Tory," said the Whig Secretary, "is an enemy of your Majesty's title." 71
At the treasury there was a complication of jealousies and quarrels. 72 Both the First Commissioner, Mordaunt, and the Chancellor of the Exchequer, Delamere, were zealous Whigs but, though they held the same political creed, their tempers differed widely. Mordaunt was volatile, dissipated, and generous. The wits of that time laughed at the way in which he flew about from Hampton Court to the Royal Exchange, and from the Royal Exchange back to Hampton Court. How he found time for dress, politics, lovemaking and balladmaking was a wonder. 73 Delamere was gloomy and acrimonious, austere in his private morals, and punctual in his devotions, but greedy of ignoble gain. The two principal ministers of finance, therefore, became enemies, and agreed only in hating their colleague Godolphin. What business had he at Whitehall in these days of Protestant ascendency, he who had sate at the same board with Papists, he who had never scrupled to attend Mary of Modena to the idolatrous worship of the Mass? The most provoking circumstance was that Godolphin, though his name stood only third in the commission, was really first Lord. For in financial knowledge and in habits of business Mordaunt and Delamere were mere children when compared with him; and this William soon discovered. 74
Similar feuds raged at the other great boards and through all the subordinate ranks of public functionaries. In every customhouse, in every arsenal, were a Shrewsbury and a Nottingham, a Delamere and a Godolphin. The Whigs complained that there was no department in which creatures of the fallen tyranny were not to be found. It was idle to allege that these men were versed in the details of business, that they were the depositaries of official traditions, and that the friends of liberty, having been, during many years, excluded from public employment, must necessarily be incompetent to take on themselves at once the whole management of affairs. Experience doubtless had its value: but surely the first of all the qualifications of a servant was fidelity; and no Tory could be a really faithful servant of the new government. If King William were wise, he would rather trust novices zealous for his interest and honour than veterans who might indeed possess ability and knowledge, but who would use that ability and that knowledge to effect his ruin.
The Tories, on the other hand, complained that their share of power bore no proportion to their number and their weight in the country, and that every where old and useful public servants were, for the crime of being friends to monarchy and to the Church, turned out of their posts to make way for Rye House plotters and haunters of conventicles. These upstarts, adepts in the art of factious agitation, but ignorant of all that belonged to their new calling, would be just beginning to learn their business when they had undone the nation by their blunders. To be a rebel and a schismatic was surely not all that ought to be required of a man in high employment. What would become of the finances, what of the marine, if Whigs who could not understand the plainest balance sheet were to manage the revenue, and Whigs who had never walked over a dockyard to fit out the fleet. 75
The truth is that the charges which the two parties brought against each other were, to a great extent, well founded, but that the blame which both threw on William was unjust. Official experience was to be found almost exclusively among the Tories, hearty attachment to the new settlement almost exclusively among the Whigs. It was not the fault of the King that the knowledge and the zeal, which, combined, make a valuable servant of the state must at that time be had separately or not at all. If he employed men of one party, there was great risk of mistakes. If he employed men of the other party, there was great risk of treachery. If he employed men of both parties, there was still some risk of mistakes; there was still some risk of treachery; and to these risks was added the certainty of dissension. He might join Whigs and Tories; but it was beyond his power to mix them. In the same office, at the same desk, they were still enemies, and agreed only in murmuring at the Prince who tried to mediate between them. It was inevitable that, in such circumstances, the administration, fiscal, military, naval, should be feeble and unsteady; that nothing should be done in quite the right way or at quite the right time; that the distractions from which scarcely any public office was exempt should produce disasters, and that every disaster should increase the distractions from which it had sprung.
There was indeed one department of which the business was well conducted; and that was the department of Foreign Affairs. There William directed every thing, and, on important occasions, neither asked the advice nor employed the agency of any English politician. One invaluable assistant he had, Anthony Heinsius, who, a few weeks after the Revolution had been accomplished, became Pensionary of Holland. Heinsius had entered public life as a member of that party which was jealous of the power of the House of Orange, and desirous to be on friendly terms with France. But he had been sent in 1681 on a diplomatic mission to Versailles; and a short residence there had produced a complete change in his views. On a near acquaintance, he was alarmed by the power and provoked by the insolence of that Court of which, while he contemplated it only at a
