“The government (he wrote), possessing itself of the necessaries of life at prices fixed by itself, disposes of them at arbitrary prices. The fellah is thus deprived of his harvest and falls into arrears with his taxes, and is harassed and bastinadoed to force him to pay his debts. This leads to deterioration of agriculture and lessens the production. The pasha having imposed high taxes has caused the high prices of the necessaries of life. It would be difficult for a foreigner now coming to Egypt to form a just idea of the actual state of the country as compared with its former state. In regard to the general rise in prices, all the ground cultivated under the Mamelukes was employed for producing food—wheat, barley, beans, &c.—in immense quantities. The people reared fowls, sheep, goats, &c., and the prices were one-sixth, or even one-tenth, of those at present. This continued until Mehemet Ali became viceroy in 1805. From that period until the establishment of monopolies prices have gradually increased; but the great increase has chiefly taken place since 1824, when the pasha established his regular army, navy and factories.”
“The government (he wrote), possessing itself of the necessaries of life at prices fixed by itself, disposes of them at arbitrary prices. The fellah is thus deprived of his harvest and falls into arrears with his taxes, and is harassed and bastinadoed to force him to pay his debts. This leads to deterioration of agriculture and lessens the production. The pasha having imposed high taxes has caused the high prices of the necessaries of life. It would be difficult for a foreigner now coming to Egypt to form a just idea of the actual state of the country as compared with its former state. In regard to the general rise in prices, all the ground cultivated under the Mamelukes was employed for producing food—wheat, barley, beans, &c.—in immense quantities. The people reared fowls, sheep, goats, &c., and the prices were one-sixth, or even one-tenth, of those at present. This continued until Mehemet Ali became viceroy in 1805. From that period until the establishment of monopolies prices have gradually increased; but the great increase has chiefly taken place since 1824, when the pasha established his regular army, navy and factories.”
The conclusion in 1838 of a commercial treaty with Turkey, negotiated by Sir Henry Bulwer (Lord Dalling), struck a death-blow to the system of monopolies, though the application of the treaty to Egypt was delayed for some years. The picture of Egypt under Mehemet Ali is nevertheless not complete without regard being had to the beneficent side of his rule. Public order was rendered perfect; the Nile and the highways were secure to all travellers, Christian or Moslem; the Bedouin tribes were won over to peaceful pursuits, and genuine efforts were made to promote education and the study of medicine. To European merchants, on whom he was dependent for the sale of his exports, Mehemet Ali showed much favour, and under his influence the port of Alexandria again rose into importance. It was also under Mehemet Ali’s encouragement that the overland transit of goods from Europe to India via Egypt was resumed.
Mehemet Ali was fully conscious that the empire which he had so laboriously built up might at any time have to be defended by force of arms against his master Sultan Mahmud II., whose whole policy had been directed to curbing the power of his too ambitious valis, and who was under the influence of the personal enemies of the pasha of Egypt, notably of Khosrev, the grand vizier, who had never forgiven his humiliation in Egypt in 1803. Mahmud also was already planning reforms borrowed from the West, and Mehemet Ali, who had had plenty of opportunity of observing the superiority of European methods of warfare, was determined to anticipate the sultan in the creation of a fleet and an army on modern lines, partly as a measure of precaution, partly as an instrument for the realization of yet wider schemes of ambition. Before the outbreak of the War of Greek Independence in 1821 he had already expended much time and energy in organizing a fleet and in training, under the supervision of French instructors, native officers and artificers; though it was not till 1829 that the opening of a dockyard and arsenal at Alexandria enabled him to build and equip his own vessels. By 1823, moreover, he had succeeded in carrying out the reorganization of his army on European lines, the turbulent Turkish and Albanian elements being replaced by negroes and fellahin.23His foresight was rewarded by the invitation of the sultan to help him in the task of subduing the Greek insurgents, offeringIbrahim in the Morea.as reward the pashaliks of the Morea and of Syria. Mehemet Ali had already, in 1821, been appointed governor of Crete, which he had occupied with a small Egyptian force. In the autumn of 1824 a fleet of sixty Egyptian war-ships carrying a large force of disciplined troops concentrated in Suda Bay, and, in the following March, Ibrahim as commander-in-chief landed in the Morea. But for the action of European powers the intervention of Mehemet Ali would havebeen decisive. His naval superiority wrested from the Greeks the command of the sea, on which the fate of the insurrection ultimately depended, while on land the Greek irregular bands were everywhere routed by Ibrahim’s disciplined troops. The history of the events that led up to the battle of Navarino and the liberation of Greece is told elsewhere (seeNavarinoandGreek Independence, War of); the withdrawal of the Egyptians from the Morea was ultimately due to the action of Admiral Sir Edward Codrington, who early in August 1828 appeared before Alexandria and induced the pasha, by no means sorry to have a reasonable excuse, by a threat of bombardment, to sign a convention undertaking to recall Ibrahim and his army.
Before the final establishment of the new kingdom of Greece, the Eastern question had late in 1831 entered into a new and more perilous phase, owing to the revolt of Mehemet Ali against the sultan on pretext of chastising theThe Syrian campaigns.ex-slave Abdullah, pasha of Acre, for refusing to send back Egyptian fugitives from the effects of Mehemet Ali’s “reforms.” The true reason was the refusal of Sultan Mahmud to hand over Syria according to agreement, and Mehemet Ali’s determination to obtain at all hazards what had been from time immemorial an object of ambition to the rulers of Egypt. For ten years from this date the relations of sultan and pasha remained in the forefront of the questions which agitated the diplomatic world. It was not only the very existence of the Ottoman empire that seemed to be at stake, but Egypt itself had become more than ever an object of attention, to British statesmen especially, and in the issue of the struggle were involved the interests of Great Britain in the two routes to India by the Isthmus of Suez and the valley of the Euphrates. The diplomatic and military history of this period will be found sketched in the article on Mehemet Ali. Here it will suffice to say that the victorious career of Ibrahim, who once more commanded in his father’s name, beginning with the storming of Acre on the 27th of May 1832, and culminating in the rout and capture of Reshid Pasha at Konia on the 21st of December, was arrested by the intervention of Russia. As the result of endless discussions between the representatives of the powers, the Porte and the pasha, the convention of Kutaya was signed on the 14th of May 1833, by which the sultan agreed to bestow on Mehemet Ali the pashaliks of Syria, Damascus, Aleppo and Itcheli, together with the district of Adana. The announcement of the pasha’s appointment had already been made in the usual way in the annual firman issued on the 3rd of May. Adana, reserved for the moment, was bestowed on Ibrahim under the style ofmuhassil, or collector of the crown revenues, a few days later.
Mehemet Ali now ruled over a virtually independent empire, subject only to a moderate tribute, stretching from the Sudan to the Taurus Mountains. But though he was hailed, especially in France, as the pioneer of European civilization in the East, the unsound foundations of his authority were not long in revealing themselves. Scarcely a year from the signing of the convention of Kutaya the application by Ibrahim of Egyptian methods of government, notably of the monopolies and conscription, had driven Syrians, Druses and Arabs, who had welcomed him as a deliverer, into revolt. The unrest was suppressed by Mehemet Ali in person, and the Syrians were terrorized and disarmed. But their discontent encouraged Sultan Mahmud to hope for revenge, and a renewal of the conflict was only staved off by the anxious efforts of the powers. At last, in the spring of 1839, the sultan ordered his army, concentrated under Reshid in the border district of Bìr on the Euphrates, to advance over the Syrian frontier. Ibrahim, seeing his flank menaced, attacked it at Nezib on the 24th of June. Once more the Ottomans were utterly routed. Six days later, before the news reached Constantinople, Mahmud died. Once more the Ottoman empire lay at the feet of Mehemet Ali; but the powers were now more prepared to meet a contingency which had been long foreseen. Their intervention was prompt; and the dubious attitude of France, which led to her exclusion from the concert and encouraged Mehemet Ali to resist, only led to his obtaining less favourable terms. (SeeMehemet Ali.)
The end was reached early in 1841. New firmans were issued which confined the pasha’s authority to Egypt, the Sinai peninsula and certain places on the Arabian side of the Red Sea, and to the Sudan. The most important of these documents are dated the 13th of February 1841. The government of the pashalik of Egypt was made hereditary in the family of Mehemet Ali.24A map showing the boundaries of Egypt accompanied the firman granting Mehemet Ali the pashalik, a duplicate copy being retained by the Porte. The Egyptian copy is supposed to have been lost in a fire which destroyed a great part of the Egyptian archives. The Turkish copy has never been produced and its existence now appears doubtful. The point is of importance, as in 1892 and again in 1906 boundary disputes arose between Turkey and Egypt (see below). Various restrictions were laid upon Mehemet Ali, emphasizing his position of vassalage.Mehemet Ali’s authority confined to Egypt.He was forbidden to maintain a fleet, and his army was not to exceed 18,000 men. The pasha was no longer a figure in European politics, but he continued to occupy himself with his improvements, real or imaginary, in Egypt. The condition of the country was deplorable; in 1842 a murrain of cattle was followed by a destructive Nile flood; in 1843 there was a plague of locusts, whole villages were depopulated. Meantime the uttermost farthing was wrung from the wretched fellahin, while they were forced to the building of magnificent public works by unpaid labour. In 1844-1845 there was some improvement in the condition of the country as a result of financial reforms the pasha was compelled to execute. Mehemet Ali, who had been granted the honorary rank of grand vizier in 1842, paid a visit to Stamboul in 1846, where he became reconciled to his old enemy Khosrev Pasha, whom he had not seen since he spared his life at Cairo in 1803. In 1847 Mehemet Ali laid the foundation stone of the great barrage across the Nile at the beginning of the Delta. He was barely persuaded from ordering the barrage to be built with stone from the pyramids! Towards the end of 1847 the aged pasha’s mind began to give way, and by the following June he was no longer capable of administering the government. In September 1848 Ibrahim was acknowledged by the Porte as ruler of the pashalik, but he died in the Novemberfollowing. Mehemet Ali survived another eight months, dying on the 2nd of August 1849, aged eighty. He had done a great work in Egypt; the most permanent being the weakening of the tie binding the country to Turkey, the starting of the great cotton industry, the recognition of the advantages of European science, and the conquest of the Sudan.
(F. R. C.)
(2)From the Death of Mehemet Ali to the British Occupation.—On Ibrahim’s death in November 1848 the government of Egypt fell to his nephew Abbas I (q.v.), the son of Tusun. Abbas put an end to the system of commercial monopolies,Abbas I. and Said Pasha.and during his reign the railway from Alexandria to Cairo was begun at the instigation of the British government. Opposed to European ways, Abbas lived in great seclusion, and after a reign of less than six years he was murdered (July 1854) by two of his slaves. He was succeeded by his uncle Said Pasha, the favourite son of Mehemet Ali, who lacked the strength of mind or physical health needed to execute the beneficent projects which he conceived. His endeavour, for instance, to put a stop to the slave raiding which devastated the Sudan provinces was wholly ineffectual. He had a genuine regard for the welfare of the fellahin, and a land law of 1858 secured to them an acknowledgment of freehold as against the crown. The pasha was much under French influence, and in 1856 was induced to grant to Ferdinand de Lesseps a concession for the construction of the Suez Canal. Lord Palmerston was opposed to this project, and the British opposition delayed the ratification of the concession by the Porte for two years. To the British Said also made concessions—one to the Eastern Telegraph Company, and another (1854) allowing the establishment of the Bank of Egypt. He also began the national debt by borrowing £3,293,000 from Messrs Frühling & Göschen, the actual amount received by the pasha being £2,640,000. In January 1863 Said Pasha died and was succeeded by his nephew Ismail, a son of Ibrahim Pasha.
The reign of Ismail (q.v.), from 1863 to 1879, was for a while hailed as introducing a new era into modern Egypt. In spite of his vast schemes of reform and theéclatof his Europeanizing innovations, his oriental extravaganceIsmail’s megalomanialed to bankruptcy, and his reign is historically important simply for its compelling European intervention in the internal affairs of Egypt. Yet in its earlier years much was done which seemed likely to give Ismail a more important place in history. In 1866 he was granted by the sultan a firman—obtained on condition of the increase of the tribute from £376,000 to £720,000—by which the succession to the throne of Egypt was made to descend “to the eldest of thy male children and in the same manner to the eldest sons of thy successors,” instead of, after Turkish law, to the eldest male of the family. In the following year another firman bestowed upon him the title ofkhedivein lieu of that ofvali, borne by Mehemet Ali and his immediate successors. In 1873 a further firman placed the khedive in many respects in the position of an independent sovereign. Ismail re-established and improved the administrative system organized by Mehemet Ali, and which had fallen into decay under Abbas’s indolent rule; he caused a thorough remodelling of the customs system, which was in an anarchic state, to be made by English officials; in 1865 he established the Egyptian post office; he reorganized the military schools of his grandfather, and gave some support to the cause of education. Railways, telegraphs, lighthouses, the harbour works at Suez, the breakwater at Alexandria, were carried out by some of the best contractors of Europe. Most important of all, the Suez Canal was opened in 1869. But the funds required for these public works, as well as the actual labour, were remorselessly extorted from a poverty-stricken population.
A striking picture of the condition of the people at this period is given by Lady Duff Gordon inLast Letters from Egypt. Writing in 1867 she said: “I cannot describe the misery here now—every day some new tax. Every beast, camel, cow, sheep, donkey and horse is made to pay. The fellaheen can no longer eat bread; they are living on barley-meal mixed with water, and raw green stuff, vetches, | &c. The taxation makes life almost impossible: a tax on every crop, on every animal first, and again when it is sold in the market; on every man, on charcoal, on butter, on salt.... The people in Upper Egypt are running away by wholesale, utterly unable to pay the new taxes and do the work exacted. Even here (Cairo) the beating for the year’s taxes is awful.”
A striking picture of the condition of the people at this period is given by Lady Duff Gordon inLast Letters from Egypt. Writing in 1867 she said: “I cannot describe the misery here now—every day some new tax. Every beast, camel, cow, sheep, donkey and horse is made to pay. The fellaheen can no longer eat bread; they are living on barley-meal mixed with water, and raw green stuff, vetches, | &c. The taxation makes life almost impossible: a tax on every crop, on every animal first, and again when it is sold in the market; on every man, on charcoal, on butter, on salt.... The people in Upper Egypt are running away by wholesale, utterly unable to pay the new taxes and do the work exacted. Even here (Cairo) the beating for the year’s taxes is awful.”
In the years that followed the condition of things grew worse. Thousands of lives were lost and large sums expended in extending Ismail’s dominions in the Sudan (q.v.) and in futile conflicts with Abyssinia. In 1875 theSteps leading to the deposition of Ismail.impoverishment of the fellah had reached such a point that the ordinary resources of the country no longer sufficed for the most urgent necessities of administration; and the khedive Ismail, having repeatedly broken faith with his creditors, could not raise any more loans on the European market. The taxes were habitually collected many months in advance, and the colossal floating debt was increasing rapidly. In these circumstances Ismail had to realize his remaining assets, and among them sold 176,602 Suez Canal shares to the British government for £3,976,58225(seeBeaconsfield). This comparatively small financial operation brought about the long-delayed crisis and paved the way for the future prosperity of Egypt, for it induced the British government to inquire more carefully into the financial condition of the country. In December 1875 Mr Stephen Cave, M.P., and Colonel (afterwards Sir John) Stokes, R.E., were sent to Egypt to inquire into the financial situation; and Mr Cave’s report, made public in April 1876, showed that under the existing administration national bankruptcy was inevitable. Other commissions of inquiry followed, and each one brought Ismail more under European control. The establishment of the Mixed Tribunals in 1876, in place of the system of consular jurisdiction in civil actions, made some of the courts of justice international. The Caisse de la Dette, instituted in May 1876 as a result of the Cave mission, led to international control over a large portion of the revenue. Next came (in November 1876) the mission of Mr (afterwards Lord) Goschen and M. Joubert on behalf of the British and French bondholders, one result being the establishment of Dual Control,i.e.an English official to superintend the revenue and a French official the expenditure of the country. Another result was the internationalization of the railways and the port of Alexandria. Then came (May 1878) a commission of inquiry of which the principal members were Sir Rivers Wilson, Major Evelyn Baring (afterwards Lord Cromer) and MM. Kremer-Baravelli and de Blignières. One result of that inquiry was the extension of international control to the enormous landed property of the khedive. Driven to desperation, Ismail made a virtue of necessity and accepted, in September 1878, in lieu of the Dual Control, a constitutional ministry, under the presidency of Nubar Pasha (q.v.), with Rivers Wilson as minister of finance and de Blignières as minister of public works. Professing to be quite satisfied with this arrangement, he pompously announced that Egypt was no longer in Africa, but a part of Europe; but before seven months had passed he found his constitutional position intolerable, got rid of his irksome cabinet by means of a secretly-organized military riot in Cairo, and reverted to his old autocratic methods of government. England and France could hardly sit still under this affront, and decided to administer chastisement by the hand of the suzerain power, which was delighted to have an opportunity of asserting its authority. On the 26th of June 1879 Ismail suddenly received from the sultan a curt telegram, addressed to him as ex-khedive of Egypt, informing him that his son Tewfik was appointed his successor. Taken unawares, he made no attempt at resistance, and Tewfik was at once proclaimed khedive.
After a short period of inaction, when it seemed as if the change might be for the worse, England and France summoned up courage to look the situation boldly in the face, and, in November 1879, re-established the Dual Control in the persons of Major Baring and M. de Blignières. For two years the Dual Control governed Egypt, and initiated the work of progressthat England was to continue alone. Its essential defect was what might be called insecurity of tenure. Without anyRe-establishment of Dual Control.efficient means of self-protection and coercion at its disposal, it had to interfere with the power, privileges and perquisites of a class which had long misgoverned the country. This class, so far as its civilian members were concerned, was not very formidable, because these were not likely to go beyond the bounds of intrigue and passive resistance; but it contained a military element who had more courage, and who had learned their power when Ismail employed them for overturning his constitutional ministry.Arabi and the revolt of 1882.Among the mutinous soldiers on that occasion was a fellah officer calling himself Ahmed Arabi the Egyptian. He was not a man of exceptional intelligence or remarkable powers of organization, but he was a fluent speaker, and could exercise some influence over the masses by a rude kind of native eloquence. Behind him were a group of men, much abler than himself, who put him forward as the figurehead of a party professing to aim at protecting the Egyptians from the grasping tyranny of their Turkish and European oppressors. The movement began among the Arab officers, who complained of the preference shown to the officers of Turkish origin; it then expanded into an attack on the privileged position and predominant influence of foreigners, many of whom, it must be confessed, were of a by no means respectable type; finally, it was directed against all Christians, foreign and native.26The government, being too weak to suppress the agitation and disorder, had to make concessions, and each concession produced fresh demands. Arabi was first promoted, then made under-secretary for war, and ultimately a member of the cabinet. The danger of a serious rising brought the British and French fleets in May 1882 to Alexandria, and after a massacre (11th of June) had been perpetrated by the Arab mob in that city, the British admiral bombarded the forts (11th of July 1882). The leaders of the national movement prepared to resist further aggression by force. A conference of ambassadors was held in Constantinople, and the sultan was invited to quell the revolt; but he hesitated to employ his troops against Mussulmans who were professing merely to oppose Christian aggression.
(3)Egypt occupied by the British.—At last the British government determined to employ armed force, and invited France to co-operate. The French government declined, and a similar invitation to Italy met with a similar refusal. England therefore, having to act alone, landed troops at Ismailia under Sir Garnet Wolseley, and suppressed the revolt by the battle of Tell-el-Kebir on the 13th of September 1882. The khedive, who had taken refuge in Alexandria, returned to Cairo, and a ministry was formed under Sherif Pasha, with Riaz Pasha as one of its leading members. On assuming office, the first thing it had to do was to bring to trial the chiefs of the rebellion. Had the khedive and Riaz been allowed a free hand, Arabi and his colleagues would have found little mercy. Thanks to the intervention of the British government, their lives were spared. Arabi pleaded guilty, was sentenced to death, the sentence being commuted by the khedive to banishment; and Riaz resigned in disgust. This solution of the difficulty was brought about by Lord Dufferin, then British ambassador at Constantinople, who had been sent to Egypt as high commissioner to adjust affairs and report on the situation. One of his first acts, after preventing the application of capital punishment to the ringleaders of the revolt, was to veto the project of protecting the khedive and his government by means of a Praetorian guard recruited from Asia Minor, Epirus, Austria and Switzerland, and to insist on the principle that Egypt must be governed in a truly liberal spirit. Passing in review all the departments of the administration, he laid down the general lines on which the country was to be restored to order and prosperity, and endowed, if possible, with the elements of self-government for future use.
The laborious task of putting these general indications into a practical shape fell to Sir Evelyn Baring (Lord Cromer), who arrived as consul-general and diplomatic agent, in succession to Sir Edward Malet, in January 1884.Sir Evelyn Baring appointed consul-general, 1884.At that moment the situation was singularly like that which had existed on two previous occasions: firstly, when Ismail was deposed; and secondly, when the Dual Control had undermined the existing authority without having any power to enforce its own. For the third time in little more than three years the existing authority had been destroyed and a new one had to be created. But there was one essential difference: the power that had now to reorganize the country possessed in the British army of occupation a support sufficient to command respect. Without that support Sir Evelyn Baring could have done little or nothing; with it he did perhaps more than any other single man could have done. His method may be illustrated by an old story long current in Cairo. Mehemet Ali was said to have appointed asmudiror governor in a turbulent district a young and inexperienced Turk, who asked, “But how am I to govern these people?” “Listen,” replied the pasha; “buy the biggest and heaviestkurbashyou can find; hang it up in the centre of themudirieh, well within your reach, and you will very seldom require to use it.” The British army of occupation was Sir Evelyn’skurbash; it was well within his reach, as all the world knew, and its simple presence sufficed to prevent disorder and enforce obedience. He had one other advantage over previous English reformers in Egypt: his position towards France was more independent. The Dual Control had been abolished by a khedivial decree of 18th January 1883, and replaced by an English financial adviser. France naturally objected; but having refused to co-operate with England in suppressing the revolt, she could not reasonably complain that her offer of co-operation in the work of reorganization was declined. But though Dual Control was at an end, the Caisse de la Dette remained, and this body was to prove a constant clog on the financial measures of the Egyptian government.
At first the intention of the British government was simply to restore the power of the khedive, to keep his highness for some time in the right path by friendly advice, and to withdraw the British troops as soon as possible. AsThe Policy of evacuation.Lord Granville explained in a circular to the powers, the position of England in Egypt imposed on her “the duty of giving advice with the object of securing that the order of things to be established shall be of a satisfactory character and possess the elements of stability and progress.” But there was to be no embarking on a general scheme of reforms, which would increase unnecessarily the responsibilities of the protecting power and necessitate the indefinite prolongation of the military occupation. So far, therefore, as the British government had a definite policy in Egypt, it was apolitique de replâtrage. Even this policy was not strictly adhered to. Mr Gladstone’s cabinet was as unstable as the public opinion it sought to conciliate. It had its hot fits and its cold fits, and it gave orders now to advance and now to retreat. In the long run circumstances proved too strong for it, and it had to undertake a great deal more than it originally intended. Each little change in the administration engendered a multitude of others, so that the modest attempts at reform were found to be like the letting out of water. A tiny rill gradually became a boisterous stream, and the boisterous stream grew into a great river, which spread to all sections of the administration and ended by inundating the whole country.
Of the numerous questions awaiting solution, the first to claim immediate attention was that of the Sudan. The British government had begun by excluding it from the problem, and by declaring that for events in theseThe Sudan question.outlying territories it must not be held responsible. In that sphere of activity, therefore, the Egyptian government might do as it thought fit. The principle of limited liability which this attitude assumed was soon found to be utterly untenable. The Sudan was an integral part of the khedive’s dominions, and caused, even in ordinary times, a deficit of£200,000 to the Egyptian treasury. At that moment it was in a state of open rebellion, stirred up by a religious fanatic who proclaimed himself a mahdi of Islam. An army of 10,000 men under an English officer, Colonel William Hicks, formerly of the Bombay army, otherwise Hicks Pasha, had been sent to suppress the revolt, and had been annihilated in a great battle fought on the 5th of November 1883, near Obeid. The Egyptian government wished to make a new attempt to recover the lost province, and the idea was certainly very popular among the governing class, but Sir Evelyn Baring vetoed the project on the ground that Egypt had neither soldiers nor money to carry it out. In vain the khedive and his prime minister, Sherif Pasha, threatened to resign, and the latter actually carried out his threat. The British representative remained firm, and it was decided that the Sudan should be, for the moment at least, abandoned to its fate. Nubar, though as strongly opposed to the abandonment policy as Sherif, consented to take his place and accepted somewhat reluctantly the new régime, which he defined as “the administration of Egypt under the government of Baring.” By this time the Mahdi was master of the greater part of the Sudan, but Khartum and some other fortified points still held out. The efforts made to extricate the garrisons, including the mission of General Gordon, the fall of Khartum, and the Nile Expedition under Lord Wolseley, are described below separately in the section of this article dealing with the military operations. The practical result was that the khedive’s authority was limited to the Nile valley north of Wadi Halfa.
With the internal difficulties Sir Evelyn Baring had been struggling bravely ever since his appointment, trying to evolve out of the ever-changing policy and contradictory orders of the British government some sort of coherentInternal reorganizationline of action, and to raise the administration to a higher standard. For two or three years it seemed doubtful whether he would succeed. All over Egypt there was a feeling of unrest, and the well-meant but not very successful efforts of the British to improve the state of things were making them very unpopular. The introduction of English officials and English influence into all the administrative departments was resented by the native officials, and the action of the irrigation officers in preventing the customary abuses of the distribution of water was resented by the great landowners, who had been, from time immemorial, in the habit of taking as much as they wanted, to the detriment of the fellahin. Even these latter, who gained most by the reforms, considered that they had good reason to complain, for the defeat of Arabi and the re-establishment of order had enabled the Christian money-lenders to return and insist on the payment of claims, which were supposed to have been extinguished by the rebellion. Worst of all, the government was drifting rapidly towards insolvency, being quite unable to fulfil its obligations to the bondholders and meet the expenses of administration. All departments were being starved, and even the salaries of poorly paid officials were in arrear. To free itself from its financial difficulties the government adopted a heroic remedy which only created fresh troubles. On the advice of Lord Northbrook, who was sent out to Cairo in September 1884 to examine the financial situation, certain revenues which should have been paid into the Caisse for the benefit of the bondholders were paid into the treasury for the ordinary needs of the administration. Immediately the powers protested against this infraction of the law of liquidation, and the Caisse applied for a writ to the Mixed Tribunals. In this way the heroic remedy failed, and to the internal difficulties were added international complications.
Fortunately for Egypt, the British government contrived to solve the international difficulty by timely concessions to the powers, and succeeded in negotiating the London Convention of March 1885, by which the Egyptian government was relieved from some of the most onerous stipulations of the law of liquidation, and was enabled to raise a loan of £9,000,000 for an annual payment of £135,000. After paying out of the capital the sums required for the indemnities due for the burning of Alexandria and the deficits of the years 1882 and 1883, it still had a million sterling, and boldly invested it in the improvement of irrigation. The investment proved most remunerative, and helped very materially to save the country from bankruptcy and internationalism. The danger of being again subjected to the evils of an international administration was very great, for the London Convention contained a stipulation to the effect that if Egypt could not pay her way at the end of two years, another international commission would be appointed.
To obviate this catastrophe the British reformers set to work most energetically. Already something in the way of retrenchment and reform had been accomplished. The public accounts had been put in order, and the abuses in the collection of the land tax removed. The constant drain of money and men for the Sudan had been stopped. A beginning had been made for creating a new army to replace the one that had been disbanded and to allow of a portion of the British garrison being withdrawn. In this work Sir Evelyn Wood had shown much sound judgment as well as great capacity for military organization, and had formed an efficient force out of very unpromising material (see the section above on theEgyptian Army). His colleague in the department of public works, Sir Colin Scott-Moncrieff, had been not less active. By mitigating the hardships of thecorvée, and improving the irrigation system, on which the prosperity of the country mainly depends, he had conferred enormous benefits on the fellahin, and had laid the foundation of permanent budgetary equilibrium for the future. Not less active was Sir Edgar Vincent, the financial adviser, who kept a firm hold on the purse-strings and ruthlessly cut down expenditure in all departments except that of irrigation (see § Finance).
The activity of the British officials naturally produced a certain amount of discontent and resistance on the part of their Egyptian colleagues, and Lord Granville was obliged to declare very plainly that such resistance could not be tolerated. Writing (January 1884) to Sir Evelyn Baring, he said:
“It should be made clear to the Egyptian Ministers and Governors of Provinces that the responsibility which for the time rests on England obliges H.M. Government to insist on the adoption of the policy which they recommend; and that it will be necessary that those Ministers and Governors who do not follow this course should cease to hold their offices.”
“It should be made clear to the Egyptian Ministers and Governors of Provinces that the responsibility which for the time rests on England obliges H.M. Government to insist on the adoption of the policy which they recommend; and that it will be necessary that those Ministers and Governors who do not follow this course should cease to hold their offices.”
Nubar Pasha, who continued to be prime minister, resisted occasionally. What he chiefly objected to was direct interference in the provincial administration and the native tribunals, and he succeeded for a time inRelations between British and native officials.preventing such interference. Sir Benson Maxwell and Mr Clifford Lloyd, who had been sent out to reform the departments of justice and the interior, after coming into conflict with each other were both recalled, and the reforming activity was for a time restricted to the departments of war, public works and finance. Gradually the tension between natives and foreigners relaxed, and mutual confidence was established. Experience had evolved the working principle which was officially formulated at a much later period: “Our task is not to rule the Egyptians, but as far as possible to teach the Egyptians to rule themselves.... European initiative suggests measures to be executed by Egyptian agency, while European supervision controls the manner in which they are executed.” If that principle had been firmly laid down and clearly understood at the beginning, a good deal of needless friction would have been avoided.
The international difficulty remained. The British position in Egypt was anomalous, and might easily give rise to international complications. The sultan might well protest against the military occupation of a portion of hisInternational problems.empire by foreign troops. It was no secret that France was ready to give him diplomatic support, and other powers might adopt a similar attitude. Besides this, the British government was anxious to terminate the occupation as soon as possible. With a view to regularizing the situation and accelerating the evacuation, Sir Henry Drummond Wolff was sent to Constantinople in August 1885 on a special mission. On the 24th of October of that year he concluded a preliminaryconvention by which an Ottoman and a British high commissioner, acting in concert with the khedive, should reorganize the Egyptian army, tranquillize the Sudan by pacific means, and consider what changes might be necessary in the civil administration. When the two commissioners were assured of the security of the frontier and the good working and stability of the Egyptian government, they should present reports to their respective governments, and these should consult as to the conclusion of a convention regulating the withdrawal of the English troops. Mukhtar Pasha and Sir Henry Drummond Wolfe were appointed commissioners, and their joint inquiry lasted till the end of 1886, when the former presented his report and the latter went home to report orally. The remaining stipulations of the preliminary convention were duly carried out. Sir Henry Drummond Wolff proceeded to Constantinople and signed on the 22nd of May 1887 the definitive convention, according to which the occupation should come to an end in three years, but England should have a right to prolong or renew it in the event of internal peace or external security being seriously threatened. The sultan authorised the signature of this convention, but under pressure of France and Russia he refused to ratify it. Technically, therefore, the preliminary convention still remains in force, and in reality the Ottoman commissioner continued to reside in Cairo till the close of 1908.
The steadily increasing prosperity of the country during the years 1886 and 1887 removed the danger of national bankruptcy and international interference, and induced Sir Evelyn Baring to widen the area of administrativeProgress of reform.reforms. In the provinces the local administration and the methods of dispensing justice were still scandalously unsatisfactory, and this was the field to which the British representative next directed his efforts. Here he met with unexpected opposition on the part of the prime minister, Nubar Pasha, and a conflict ensued which ended in Nubar’s retirement in June 1888. Riaz Pasha took his place, and remained in office till May 1891. During these three years the work of reform and the prosperity of the country made great progress. The new Egyptian army was so far improved that it gained successes over the forces of the Mahdi; the burden of the national debt was lightened by a successful conversion; thecorvéewas abolished;27the land tax was reduced 30% in the poorest provinces, and in spite of this and other measures for lightening the public burdens, the budgetary surplus constantly increased; the quasi-judicial special commissions for brigandage, which were at once barbarous and inefficient, were abolished; the native tribunals were improved, and Mr (afterwards Sir John) Scott, an Indian judge of great experience and sound judgment, was appointed judicial adviser to the khedive. This appointment was opposed by Riaz Pasha, and led to his resignation on the plea of ill-health. His successor, Mustafa Pasha Fehmi, continued the work and co-operated cordially with the English officials. The very necessary reform of the native tribunals was then taken seriously in hand. The existing procedure was simplified and accelerated; the working of the courts was greatly improved by a carefully organized system of inspection and control; the incompetent judges were eliminated and replaced by men of better education and higher moral character; and for the future supply of well-qualified judges, barristers, and law officials, an excellent school of law was established. Later on the reforming activity was extended to prisons, public health, and education, and has attained very satisfactory results.
In January 1892 the khedive Tewfik, who had always maintained cordial relations with Sir Evelyn Baring, died suddenly, and was succeeded by his son, Abbas Hilmi, a young man without political experience, who failed at firstAccession of Abbas.to understand the peculiar situation in which a khedive ruling under British protection is necessarily placed. Aspiring to liberate himself at once from foreign control, he summarily dismissed Mustafa Pasha Fehmi (15th January 1893), whom he considered too amenable to English influence, and appointed in his place Fakhri Pasha, who was not apersona grataat the British Agency. Such an incident, which might have constituted a precedent for more important acts of a similar kind, could hardly be overlooked by the British representative. He had always maintained that what Egypt most required, and would require for many years to come, was an order of things which would render practically impossible any return to that personal system of government which had well-nigh ruined the country. In this view the British agent was warmly supported by Lord Rosebery, then secretary of state for foreign affairs. The young khedive was made therefore to understand that he must not make such changes in the administration without a previous agreement with the representative of the protecting power; and a compromise was effected by which Fakhri Pasha retired, and the post of premier was confided once more to Riaz. With this compromise the friction between the khedive and Sir Evelyn Baring, who had now become Lord Cromer, did not end. For some time Abbas Hilmi clung to his idea of liberating himself from all control, and secretly encouraged a nationalist and anti-British agitation in the native press; but he gradually came to perceive the folly, as well as the danger to himself, of such a course, and accordingly refrained from giving any overt occasion for complaint or protest. In like manner the relations between the British officials and their Egyptian colleagues gradually became more cordial, so that it was found possible at last to reform the local administration in the provinces according to the recommendations of Mr (afterwards Sir) Eldon Gorst, who had been appointed adviser to the ministry of the interior. Nubar Pasha, it is true, who succeeded Riaz as prime minister in April 1894, objected to some of Mr Gorst’s recommendations, and in November 1895 resigned. He was succeeded by Mustafa Fehmi, who had always shown a conciliatory spirit, and who had been on that account, as above stated, summarily dismissed by the khedive in January 1893. After his reinstatement the Anglo-Egyptian condominium worked without serious friction.
The success of the Anglo-Egyptian condominium, and the consequent economic and financial prosperity of Egypt proper, rendered it possible, during 1896-1898, to recover from the Mahdists the Sudanese provinces (seeMilitary Operations),Fashoda.and to delimit in that part of Africa, in accordance with Anglo-Egyptian interests, the respective spheres of influence of Great Britain and France. The arrangement was not effected without serious danger of a European conflict. Taking advantage of the temporary weakness of Egypt, the French government formed the project of seizing the Upper Nile valley and uniting her possessions in West Africa with those at the entrance to the Red Sea. With this object a small force under Major Marchand was sent from the French Congo into the Bahr-el-Ghazal, with orders to occupy Fashoda on the Nile; whilst a Franco-Abyssinian Expedition was despatched from the eastward, to join hands with Major Marchand. The small force from the French Congo reached its destination, and a body of Abyssinian troops, accompanied by French officers, appeared for a short time a little higher up the river; but the grand political scheme was frustrated by the victorious advance of an Anglo-Egyptian force under General Kitchener and the resolute attitude of the British government. Major Marchand had to retire from Fashoda, and as a concession to French susceptibilities he was allowed to retreat by the Abyssinian route. By an agreement signed by Lord Salisbury and the French ambassador on the 21st of March 1899, and appended to Art. IV. of the Anglo-French convention of June 14th, 1898, which dealt with the British and French spheres of influence in the region of the Niger, France was excluded from the basin of the Nile, and a line marking the respective spheres of influence of the two countries was drawn on the map from the northern frontier of the Congo Free State to the southern frontier of the Turkish province of Tripoli.
The administration of the Sudan (q.v.) was organized on the basis of an agreement between the British and Egyptian governments signed on the 19th of January 1899. According to that agreement the British and Egyptian flags are used together,and the supreme military and civil command is vested in a governor-general, who is appointed by the khedive on the recommendationThe Anglo-Egyptian Sudan.of the British government, and who cannot be removed without the British government’s consent. Neither consular jurisdiction, nor that of the mixed tribunals, was permitted, the Sudan being made absolutely free of the international fetters which bound Egypt. Sir Reginald Wingate, the sirdar of the Egyptian army (in which post he succeeded Lord Kitchener at the close of 1899) was named governor-general, and in the work of regeneration of the country, the officials, British, Egyptian and Sudanese, had the cordial co-operation of the majority of the inhabitants.
The growing prosperity of Egypt in the opening years of the 20th century was very marked, and is reflected in the annual reports on the country supplied to the British foreign office by Lord Cromer. Thus, in 1901 he was able toEgypt’s growing prosperity.declare that “the foundations on which the well-being and material prosperity of a civilized community should rest have been laid.... The institution of slavery is virtually defunct. Thecorvéehas been practically abolished. Law and order everywhere reign supreme. Thecurbashis no longer employed as an instrument of government.” So little danger to internal peace was apprehended that during this year Arabi Pasha, who had been in exile in Ceylon since 1882, was permitted to return to Egypt. This happy condition had been brought about largely as the result of giving fiscal reform, accompanied by substantial relief to the taxpayers, the first place in the government’s programme, and with the abolition of octroi duties in 1902 disappeared the last of the main defects in the fiscal system as existing at the time of the British occupation. In these conditions the machinery of government, despite its many imperfections and anomalies, worked smoothly. Land increased in value as irrigation schemes were completed, and European capital was increasingly eager to find employment in the country. The bulk of the fellahin enjoyed a material prosperity to which they had been strangers for centuries. In the midst of this return of plenty Lord Cromer (in his report for 1903) sounded a note of warning:—