The reaction of the European powers was immediate. The Austrians mobilized 25,000 troops on their southern frontiers, mainly as a warning to the Serbs and other Habsburg Slavs not to rise up in support of the Russian invasion. The French put their fleet on a war footing, and the British followed them. Stratford Canning, who had first heard the news of the order to the hospodars, and who was eager to make amends for the failure of the British to make a stand against the last Russian invasion in 1848–9, called for decisive military action to defend the principalities. He warned the Foreign Office that ‘the whole of European Turkey, from the frontier of Austria to that of Greece’, was about to fall to the Russians; that if they crossed the Danube there would be uprisings by Christians everywhere in the Balkans; that the Sultan and his Muslim subjects were prepared for war against Russia, provided they could rely on the support of Britain and France; and that while it would be a misfortune for Britain to be dragged into a war whose consequences were so unpredictable, it would be better to deal with the danger of Russia now than later on, when it would be too late.35
The threatening nature of the Russian occupation raised a bundle of security concerns for the European powers, none of which could afford to stand by while Russia dismantled the Ottoman Empire. Britain, France, Austria and Prussia (which basically followed Austria’s lead) now agreed to act together in a peace initiative. The diplomatic lead was taken by Austria, the key guarantor of the Vienna Settlement, of which it was the major beneficiary. The Austrians were heavily dependent on the Danube for their foreign trade and could not tolerate the Russian annexation of the principalities, yet could least afford a European war against Russia in which they were likely to bear the heaviest burden. What the Austrians proposed was probably impossible: a diplomatic solution that would allow the Tsar to drop his demands and withdraw from the principalities without losing face.
The peace process involved an elaborate exchange of diplomatic notes between the European capitals with endless variations on the precise wording of a formula to satisfy the interests of Russia and underline the independence of Turkey. The culmination of this activity was the Vienna Note drafted by the foreign ministers of the four powers at a conference in Vienna on behalf of the Turkish government on 28 July. Like all diplomatic documents designed to end hostilities, the wording of the Note was deliberately vague: the Porte agreed to uphold the treaty rights of Russia to protect the Orthodox subjects of the Sultan. The Tsar saw the Note as a diplomatic victory and agreed to sign it at once ‘without modifications’ on 5 August. The trouble started when the Turks (who had not even been consulted on the drafting of the Note) asked for details to be clarified. They were concerned that the Note had not set proper limits on the Russian right to intervene in Ottoman affairs – a concern that was soon proved to be justified when a private diplomatic document was leaked to a Berlin newspaper showing that the Russians had interpreted the Note to mean that they could intervene to protect the Orthodox anywhere throughout the Ottoman Empire and not just in areas where a specific conflict had occurred, as in the Holy Lands. The Sultan suggested a couple of minor verbal alterations to the Note – forms of words but important to a government that was being asked to sign the Note as a concession to Russia or face the loss of two of its richest provinces. He also wanted the Russians to evacuate the principalities before the re-establishment of diplomatic relations, and a guarantee from the four powers that Russia would not invade them again. These were reasonable demands for a sovereign power to insist upon, but the Tsar refused to accept the Turkish modifications, on the grounds that he had agreed to sign the Note unchanged, although his suspicion that Stratford Canning had encouraged the Turks to dig in their heels was also not irrelevant. In early September the Vienna Note was reluctantly abandoned by the four powers and, with Turkey on the brink of declaring war on Russia, negotiations had to start again.36
