Always sensitive to public pressure, Napoleon spent the autumn looking for a way to end the war without alienating the British. He was keen to make the most politically of the ‘glorious victory’ that the fall of Sevastopol symbolized, but did not want to endanger his alliance with Britain, which was the cornerstone of his foreign policy. Napoleon was not opposed in principle to the idea of a broader war. He was sympathetic to Palmerston’s vision of using the war against Russia to redraw the map of Europe, fostering national revolutions to break down the 1815 system and leave France in a dominant position on the Continent at the expense of Russia and the Holy Alliance. But he would not get involved in a campaign against Russia in the Caucasus and Asia Minor, where he felt that British interests were mainly served. As Napoleon saw it, the only way he could justify the continuation of a large-scale war against Russia would be if it achieved his grand dreams for the European continent. On 22 November Napoleon wrote to Queen Victoria suggesting three alternatives: a limited defensive war of attrition; peace negotiations on the basis of the Four Points; or an ‘appeal to all the nationalities, the re-establishment of Poland, the independence of Finland and of Hungary’. As Napoleon explained, he personally favoured peace, but offered to discuss this grand proposal for a broader European war, if Britain felt that peace was not acceptable on the Four Points. ‘I could comprehend a policy’, he wrote to Victoria, ‘which would have a certain grandeur and would put the results aimed at on a level with the sacrifices to be made.’
Napoleon’s proposal was almost certainly disingenuous, a clever ploy to force the British to join peace talks. He knew that the British were not prepared for a Napoleonic war of national liberation on the Continent. Yet there are hints that he might have been prepared to launch this broader war if Palmerston had called his bluff. In 1858 Napoleon would tell Cowley that France had wanted peace and that was why he had been forced to end the war; but equally, if he had been forced into a renewal of the war by Palmerston, he would have been determined ‘not to make peace until a better equilibrium [had been] secured for Europe’.50
Whatever the Emperor’s intentions, Walewski, his Foreign Minister, who strongly favoured an immediate peace, was evidently using the threat of Napoleon supporting a revolutionary war to bring Britain, Austria and Russia to peace negotiations on the basis of the Four Points. Napoleon took part in this game of threats. He wrote to Walewski for the attention of Clarendon:
I want peace. If Russia agrees to the neutralization of the Black Sea, I will make peace with them whatever the objections of England. But if, in the spring, it has come to nothing, I will appeal to the nationalities, above all to the nation of the Poles. The war will have as its principle, not the rights of Europe, but the interests of individual states.
If Napoleon’s threat of a revolutionary war was almost certainly empty, his threat of a separate peace with Russia certainly was not. Behind the establishment of direct contact with St Petersburg was the influential party led by the Emperor’s half-brother, the Duc de Morny, a railway speculator who saw in Russia ‘a mine to be exploited by France’. In October Morny had established contact with Prince Gorchakov, the Russian ambassador in Vienna and shortly to become the Foreign Minister, with the offer of a Franco-Russian deal.51
Alarmed by these French initiatives, the Austrians intervened. Count Buol, their Foreign Minister, approached Bourqueney, the French ambassador in Vienna, and together with Morny, who ascertained from Gorchakov what terms the Russians were likely to accept, they worked out a set of peace proposals to be imposed on Russia as an Austrian ultimatum with French and British support ‘for the integrity of the Ottoman Empire’. The Franco-Austrian terms were essentially a rewording of the Four Points, though Russia was now to surrender part of Bessarabia so as to be separated altogether from the Danube, and the neutralization of the Black Sea was to be achieved through a Russo-Turkish convention rather than a general peace treaty. Although the Russians had already accepted the Four Points as a basis of negotiations, a fifth was now added reserving the right of the victorious powers to include further undefined conditions at the peace conference ‘in the interest of Europe’.52
