This program of repressive religious legislation was the first of many missed opportunities to remove the underlying causes of political discontent. Though religious Dissenters were not a large percentage of the population, their treatment raised the spectre of permanently divided local communities and of potentially arbitrary government. This legislation (the Clarendon Code) is inappropriately associated with the name of Lord Chancellor Clarendon, for he, as well as the king, realized the dangers of religious repression and attempted to soften its effects. Indeed, in central government the king relied upon men of diverse political backgrounds and religious beliefs. Clarendon, who had lived with the king in exile, was his chief political adviser, and Charles’s brother James, duke of York (later James II), was his closest confidant and was entrusted with the vital post of lord admiral. Monck, who had made the restoration possible, was raised to duke of Albemarle and continued to hold military authority over the small standing army that, for the first time in English history, the king maintained. War and government
Charles II could not undo the effects of the revolution, but they were not all negative. The Commonwealth had had to fight for its survival, and in the process England had become a potent military power. Wars against France and Spain had expanded English colonial dominions. Dunkirk and Jamaica were seized, Barbados was colonized, and the North American colonies flourished. Colonial trade was an important source of royal revenue, and Charles II continued Cromwell’s policy of restricting trade to English ships and imposing duties on imports and exports. The Navigation Acts (1660 and 1663) were directed against the Dutch, still the most powerful commercial force in Europe. The Cromwellian Navigation Act (1651) had resulted in the first Anglo-Dutch War (1652–54), and Charles’s policy had the same effect. In military terms the Dutch Wars (1665–67; 1672–74) were a standoff, but in economic terms they were an English triumph (see Anglo-Dutch Wars). The American colonies were consolidated by the capture of New York, and the policy of the Navigation Acts was effectively established. Colonial trade and English shipping mushroomed.
In the long run Charles’s spasmodically aggressive foreign policy solved the crown’s perpetual fiscal crises. But in the short run it made matters worse. TheLondon" class="md-crosslink"> Great Plague of London (1664–66) and the Great Fire of London (1666) were interpreted as divine judgments against a sinful nation. These catastrophes were compounded when the Dutch burned a large portion of the English fleet in 1667, which led to the dismissal and exile of Clarendon. The crown’s debts led to the Stop of the Exchequer (1672), by which Charles suspended payment of his bills. The king now ruled through a group of ministers known as the Cabal, an anagram of the first letters of their names. None of the five was Anglican, and two were Roman Catholic.
Charles had wearied of repressive Anglicanism, underestimating its strength among rural gentry and clergy, and desired comprehension and toleration in his church. This fit with his foreign-policy objectives, for in the Treaty of Dover (1670) he allied himself with Catholic France against Protestant Holland. In exchange he received a large subsidy from Louis XIV and, in the treaty’s secret clauses, known only to the king’s Catholic ministers, the promise of an even larger one if Charles undertook, at some unspecified moment, to declare himself a Catholic. That moment came for the king on his deathbed, by which time his brother and heir, the duke of York, had already openly professed his conversion. In 1672 Charles promulgated the Declaration of Indulgence, which suspended the penal code against all religious Nonconformists, Catholic and Dissenter alike. But a declaration of toleration could not bring together these mortal enemies, and the king found himself faced by a unified Protestant front. Parliamentary Anglicans would not vote money for war until the declaration was abrogated. The passage of the Test Act (1673), which the king reluctantly signed, effectively barred all but Anglicans from holding national office and forced the duke of York to resign the admiralty. The Popish Plot
Anti-Catholicism united the disparate elements of English Protestantism as did nothing else. Anglicans vigorously persecuted the Protestant sects, especially Quakers and Baptists, who were imprisoned by the thousands whenever the government claimed to have discovered a radical plot. John Bunyan’s The Pilgrim’s Progress (1678), which became one of the most popular works in the English language, was composed in jail. Yet Dissenters held out against persecution and continued to make their converts in towns and cities. They railed against the debauchery of court life, naming the duke of York, whose shotgun wedding to the daughter of his brother’s lord chancellor had scandalized even his own family, and the king himself, who acknowledged 17 bastard children but did not produce one legitimate heir. Most of all they feared a Catholic revival, which by the late 1670s was no paranoid delusion. The alliance with Catholic France and rumours of (an all too true) secret treaty, the open conversion of the duke of York, heir to the throne, and the king’s efforts to suspend the laws against Catholic officeholders were potent signs.
John Bunyan, pencil drawing on vellum by Robert White; in the British Museum, London.Courtesy of the trustees of the British Museum
Not even the policy of Charles’s new chief minister, Thomas Osborne, earl of Danby, could stem the tide of suspicion. An Anglican, Danby tried to move the crown back into alliance with the majority of country gentry, who wanted the enforcement of the penal code and the end of the pro-French foreign policy. He arranged the marriage of Charles’s brother James’s eldest daughter, Mary (later Mary II), to William of Orange (later William III), the Dutch stadtholder. Yet, like the king, Danby admired Louis XIV and the French style of monarchy. He attempted to manage Parliament, centralize crown patronage, shore up royal finance, and maintain a standing army—in short, to build a base for royal absolutism. Catholicism and absolutism were so firmly linked in the popular mind that Danby was soon tarred by this broad brush. In 1678 a London Dissenter named Titus Oates revealed evidence of a plot by the Jesuits to murder the king and establish Roman Catholicism in England. Although both the evidence and the plot were a total fabrication, England was quickly swept up in anti-Catholic hysteria. The apparent murder of the Protestant magistrate who had first heard Oates’s revelations lent credence to a tissue of lies. Thirty-five alleged conspirators in the Popish Plot were tried and executed, harsh laws against Catholics were revived and extended, and Danby’s political position was undermined when it was revealed that he had been in secret negotiation with the French. Parliament voted his impeachment and began to investigate the clauses of the Anglo-French treaties. A second Test Act (1678) was passed, barring all but Anglicans from Parliament, and an exception for the duke of York to sit in the Lords was carried by only two votes. After 18 years Charles II dissolved the Cavalier Parliament.