The appointment of Russell, a long-time member of the war party, seemed at first to be a way for Palmerston to kill off the peace talks. But Russell soon became converted to the Austrian initiative and even came to question the principles and motives of British policy in the Eastern Question and the Crimean War. In a brilliant memorandum which he wrote in March, Russell listed various ways for Britain to protect the Ottoman Empire against Russian aggression – by empowering the Sultan to summon the allied fleets into the Black Sea, for example, or by fortifying and garrisoning the Bosporus against surprise attacks – without a war whose main aim, he concluded, was to bring the Russians to their knees. Russell was also very critical of Britain’s doctrinaire approach to the liberal reform of Muslim-Christian relations in the Ottoman Empire – its tendency to impose a single reformed system based on British administrative principles rather than to work in a more conservative and pragmatic way with existing local institutions, religious networks and social practices to promote improvements on the ground. Such thinking was very Austrian and set alarm bells ringing in Whitehall. Palmerston was suddenly confronted with the prospect of being forced to sign up to a peace he did not want, under pressure from the French and from the growing number of supporters of the Austrian initiative, including Prince Albert. The Prince Consort had by early May come round to the view that a diplomatic alliance of the four great powers plus Germany was a better guarantee of security for Turkey and Europe than the continuation of the war against Russia.
The longer the Vienna talks continued, the more determined Palmerston became to break them up and resume the fighting on a larger scale. But the ultimate decision over war or peace rested with the vacillating Emperor of the French. In the end, it came down to whether he would listen to the counsel of Drouyn, his Foreign Minister, who recommended a peace plan based on the Austrian proposals to limit Russian naval power in the Black Sea, or whether he would listen to Lord Cowley, the British ambassador, who tried to convince him that any such proposal was no substitute for the destruction of the Russian fleet and that it would be a national humiliation to sign any peace before that goal had been achieved. The crucial meeting took place in Paris on 4 May, when Marshal Vaillant, the Minister of War, joined with Cowley in emphasizing the disgrace of accepting peace without a military victory and the dangerous impact that such a peace might have on the army and the political stability of the Second Empire. The peace plans were rejected, and Drouyn soon resigned, as Napoleon grudgingly committed to the British alliance and the idea of an enlarged war against Russia.7
There was no shortage of new allies for such a war. On 26 January a military convention had been signed by France and Britain with the Kingdom of Piedmont-Sardinia, the one Italian state that had broken free of Austrian political control, by which 15,000 troops under the command of the Italian General Alfonso La Marmora were sent to join the British in the Crimea, where they arrived on 8 May. For Camillo Cavour, the Piedmontese Prime Minister, the sending of this expeditionary force was an opportunity to forge an alliance with the Western powers so as to promote the cause of Italian unification under Piedmont’s leadership. Cavour supported the idea of a general war against Russia and the Holy Alliance to redraw the map of Europe on liberal national lines. The commitment of Italian troops was a risky strategy, though, without any formal promises of help from the British or the French, who could not afford to alienate the Austrians (on 22 December the French had even signed a secret treaty with the Austrians agreeing to maintain the status quo in Italy as long as they were allies in the war against Russia). But the Piedmontese would have no real leverage on the international scene until they proved their usefulness to the Western powers, and, since it seemed unlikely that the Austrians would join the war as combatants, this was a chance for the Piedmontese to prove that they were more valuable than the Austrians. Certainly, the allied commanders thought that the Sardinians were ‘smart fine-looking fellows’ and first-rate troops. One French general, who watched them disembark at Balaklava, thought they all seemed ‘well looked after and turned out, organized and disciplined, and all fresh in their new and shiny dark blue uniforms’. 8 They behaved well and bravely in the Crimea.
