: 'In so far as
I am concerned,' preserved the same liberty of action in the Treaty of
Zurich. He still hesitated, however, in assuming the government of the
central provinces, and even the plan of sending the Prince of
Carignano as governor fell through in consequence of Napoleon's
opposition. His hesitations sprang from the general apprehension that
a hint from Paris might any day be followed by a new eruption of
Austrians in Modena and Tuscany for the purpose of replacing the
former rulers of those states on their thrones. Such a fear existed at
the time, and Rattazzi's timid policy was the result; it is impossible
not to ask now whether it was not exaggerated? 'What statesman,' wrote
the Prince Consort in June 1859, 'could adopt measures to force
Austrian rule again upon delighted, free Italy?' If this was true
in June was it less true in November? For the rest, would not the
supreme ridicule that would have fallen on the French Emperor if he
encouraged the Austrians to return to Central Italy after driving
them out of Lombardy, have obliged him to support the principle of
non-intervention, whether he wished it or not? England was prepared to
back up the government of Piedmont, in which lay a great moral force.
It is plain that the long wavering about what ought to be done with
the central provinces is what cost the country Savoy and Nice, or at
any rate, Nice. Napoleon did all in his power to prevent and to retard
the annexations, especially that of Tuscany, which, as he said, 'would
make Italian unity a mere question of time,' but when he found that
neither threats nor blandishments could move the population from their
resolve to have Victor Emmanuel for their king, he decided to sell his
adhesion for a good price. Compelled for the sake of appearances to
withdraw his claim after the abrupt termination of the war, he now saw
an excellent excuse for reviving it, and he was not likely to let the
opportunity slip.

At this period there was continual talk, which may or may not have
been intended to end in talk, of a Congress to which the affairs of
Italy were to be referred. It gave an opening to Napoleon for
publishing one of the anonymous pamphlets by means of which he was in
the habit of throwing out tentative ideas, and watching their effect.
The chief idea broached in _Le Pape et le Congres_ was the voluntary
renunciation by the Pope of all but a small zone of territory round
Rome; it being pointed out that his