completely under his leader's influence, declined to mediate in the Franco-Austrian quarrel, as the conditions were unacceptable to Austria; but they did not conceal their disapproval of the preliminary treaty of Villafranca, which Palmerston declared drove Italy to despair and delivered her, tied hand and foot, into the power of Austria. ‘L'Italie rendue à elle-même,’ he said, had become ‘l'Italie vendue à l'Autriche.’ That he maintained strict neutrality in the later negotiations connected with the proposed congress of Zürich, and his suggested triple alliance of England, France, and Sardinia to prevent any forcible interference of foreign powers in the internal affairs of Italy (memorandum to cabinet, 5 Jan. 1860), is scarcely to be argued. The result of the mere rumour of such an alliance (which never came to pass) was the voluntary union of the Italian duchies to Sardinia and a long stride towards Italian unity. Palmerston resolutely refused to accede to the French desire that he should oppose Garibaldi, and hastened to recognise with entire satisfaction the new kingdom of Italy. An eloquent panegyric on the death of Cavour, delivered in the House of Commons on 6 June 1861, formed a worthy conclusion to the sympathy of many years.
Palmerston's vigilant care of the national defences was never relaxed, and the increase of the French navy and the hostile language towards England which was becoming more general in France strengthened him in his policy of fortifying the arsenals and dockyards at Portsmouth, Plymouth, Chatham, and Cork, for which he obtained a vote of nine millions in 1860. In his memorable speech on this occasion (23 July) he said: ‘If your dockyards are destroyed, your navy is cut up by the roots. If any naval action were to take place … you would have no means of refitting your navy and sending it out to battle. If ever we lose the command of the sea, what becomes of this country?’ In spite of a personal liking, from 1859, when he visited him at Compiègne, onwards he had grown more and more distrustful of Louis Napoleon, whose mind, he said, was ‘as full of schemes as a warren is full of rabbits,’ and whose aggrandising theory of a ‘natural frontier,’ involving the annexation of Nice and Savoy, and even of Chablais and Faucigny, neutral districts of Switzerland, had produced a very unfavourable impression. A threat of sending the English fleet was necessary to prevent Genoa being added to the spoils of the disinterested champion of Italy. The interference of France in the Druse difficulty of 1860 also caused some anxiety. Palmerston was convinced that Louis Napoleon would yield to a national passion for paying off old scores against England, and he preached the strengthening of the army and navy and encouraged the new rifle volunteer movement. In this policy he was opposed by Gladstone, the chancellor of the exchequer, whose brilliant budgets contributed notably to the reputation of the government. There was little cordiality between the two men. ‘He has never behaved to me as a colleague,’ said Palmerston, and went on to prophesy that when Gladstone became prime minister ‘we shall have strange doings.’ On the chancellor of the exchequer's pronounced hostility to the scheme of fortifications, Palmerston wrote to the queen that it was ‘better to lose Mr. Gladstone than to run the risk of losing Portsmouth.’ With Lord John Russell's projects of electoral reform the prime minister was not in sympathy; but he quietly let his colleague introduce his bill, knowing very well that, in the total apathy of the country, it would die a natural death. It is significant of these differences and of the general confidence in Palmerston that for a temporary purpose, and in view of possible secessions from the cabinet, Disraeli promised the government the support of the conservative party. The ‘consummate tact,’ to use Greville's phrase, displayed by the premier in accommodating the dispute between the lords and commons over the paper bill, and the adoption of Cobden's commercial treaty with France, were among the events of the session of 1860, at the close of which Lord Westbury wrote to Palmerston to express his admiration of his ‘masterly leading during this most difficult session.’
During the civil war in America Palmerston preserved strict neutrality of action, in spite of the pronounced sympathy of the English upper classes, and even it was believed of some of the cabinet, for the South, and the pressure in the same direction exerted by the emperor of the French. What friction there was with the North arose out of isolated cases for which the government had no responsibility. The forcible seizure of two confederate passengers on board the British mail-steamer Trent in November 1861 was an affront and a breach of the law of nations, especially inexcusable in a state which repudiated the ‘right of search.’ Palmerston's prompt despatch of the guards to Canada, even before receiving a reply to his protest, proved, as he prophesied, the shortest way to peace. Seward, the American secretary of state, at once submitted, and restored the prisoners. The Alabama
