United Kingdom
a kingdom in NW Europe, consisting of Great Britain and Northern Ireland: formerly comprising Great Britain and Ireland 1801-1922. 58,610,182; 94,242 sq. mi. (244,100 sq. km). Cap.: London. Abbr.: U.K. Official name, United Kingdom of Great Britain and Northern Ireland.

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United Kingdom

Introduction United Kingdom -
Background: Great Britain, the dominant industrial and maritime power of the 19th century, played a leading role in developing parliamentary democracy and in advancing literature and science. At its zenith, the British Empire stretched over one-fourth of the earth's surface. The first half of the 20th century saw the UK's strength seriously depleted in two World Wars. The second half witnessed the dismantling of the Empire and the UK rebuilding itself into a modern and prosperous European nation. As one of five permanent members of the UN Security Council, a founding member of NATO, and of the Commonwealth, the UK pursues a global approach to foreign policy; it currently is weighing the degree of its integration with continental Europe. A member of the EU, it chose to remain outside the European Monetary Union for the time being. Constitutional reform is also a significant issue in the UK. The Scottish Parliament, the National Assembly for Wales, and the Northern Ireland Assembly were established in 1999. Geography United Kingdom
Location: Western Europe, islands including the northern one-sixth of the island of Ireland between the North Atlantic Ocean and the North Sea, northwest of France
Geographic coordinates: 54 00 N, 2 00 W
Map references: Europe
Area: total: 244,820 sq km water: 3,230 sq km note: includes Rockall and Shetland Islands land: 241,590 sq km
Area - comparative: slightly smaller than Oregon
Land boundaries: total: 360 km border countries: Ireland 360 km
Coastline: 12,429 km
Maritime claims: continental shelf: as defined in continental shelf orders or in accordance with agreed upon boundaries exclusive fishing zone: 200 NM territorial sea: 12 NM
Climate: temperate; moderated by prevailing southwest winds over the North Atlantic Current; more than one-half of the days are overcast
Terrain: mostly rugged hills and low mountains; level to rolling plains in east and southeast
Elevation extremes: lowest point: Fenland -4 m highest point: Ben Nevis 1,343 m
Natural resources: coal, petroleum, natural gas, tin, limestone, iron ore, salt, clay, chalk, gypsum, lead, silica, arable land
Land use: arable land: 26.41% permanent crops: 0.18% other: 73.41% (1998 est.)
Irrigated land: 1,080 sq km (1998 est.)
Natural hazards: winter windstorms; floods Environment - current issues: continues to reduce greenhouse gas emissions (has met Kyoto Protocol target of a 12.5% reduction from 1990 levels and intends to meet the legally binding target and move towards a domestic goal of a 20% cut in emissions by 2010); by 2005 the Government aims to reduce the amount of industrial and commercial waste disposed of in landfill sites to 85% of 1998 levels and to recycle or compost at least 25% of household waste, increasing to 33% by 2015; between 1998-99 and 1999-2000, household recycling increased from 8.8% to 10.3% Environment - international party to: Air Pollution, Air
agreements: Pollution-Nitrogen Oxides, Air Pollution-Sulphur 94, Air Pollution- Volatile Organic Compounds, Antarctic-Environmental Protocol, Antarctic-Marine Living Resources, Antarctic Seals, Antarctic Treaty, Biodiversity, Climate Change, Desertification, Endangered Species, Environmental Modification, Hazardous Wastes, Law of the Sea, Marine Dumping, Marine Life Conservation, Nuclear Test Ban, Ozone Layer Protection, Ship Pollution, Tropical Timber 83, Tropical Timber 94, Wetlands, Whaling signed, but not ratified: Air Pollution-Persistent Organic Pollutants, Climate Change-Kyoto Protocol
Geography - note: lies near vital North Atlantic sea lanes; only 35 km from France and now linked by tunnel under the English Channel; because of heavily indented coastline, no location is more than 125 km from tidal waters People United Kingdom -
Population: 59,778,002 (July 2002 est.)
Age structure: 0-14 years: 18.7% (male 5,732,385; female 5,443,900) 15-64 years: 65.5% (male 19,803,478; female 19,381,734) 65 years and over: 15.8% (male 3,931,463; female 5,485,042) (2002 est.)
Population growth rate: 0.21% (2002 est.)
Birth rate: 11.34 births/1,000 population (2002 est.)
Death rate: 10.3 deaths/1,000 population (2002 est.)
Net migration rate: 1.06 migrant(s)/1,000 population (2002 est.)
Sex ratio: at birth: 1.05 male(s)/female under 15 years: 1.05 male(s)/female 15-64 years: 1.02 male(s)/female 65 years and over: 0.72 male(s)/ female total population: 0.97 male(s)/ female (2002 est.)
Infant mortality rate: 5.45 deaths/1,000 live births (2002 est.) Life expectancy at birth: total population: 77.99 years female: 80.84 years (2002 est.) male: 75.29 years
Total fertility rate: 1.73 children born/woman (2002 est.) HIV/AIDS - adult prevalence rate: 0.11% (1999 est.) HIV/AIDS - people living with HIV/ 20,800 (1999)
AIDS:
HIV/AIDS - deaths: 450 (1999 est.)
Nationality: noun: Briton(s), British (collective plural) adjective: British
Ethnic groups: English 81.5%, Scottish 9.6%, Irish 2.4%, Welsh 1.9%, Ulster 1.8%, West Indian, Indian, Pakistani, and other 2.8%
Religions: Anglican and Roman Catholic 40 million, Muslim 1.5 million, Presbyterian 800,000, Methodist 760,000, Sikh 500,000, Hindu 500,000, Jewish 350,000
Languages: English, Welsh (about 26% of the population of Wales), Scottish form of Gaelic (about 60,000 in Scotland)
Literacy: definition: age 15 and over has completed five or more years of schooling total population: 99% (2000 est.) male: NA% female: NA% Government United Kingdom -
Country name: conventional long form: United Kingdom of Great Britain and Northern Ireland conventional short form: United Kingdom abbreviation: UK
Government type: constitutional monarchy
Capital: London Administrative divisions: England - 47 boroughs, 36 counties*, 29 London boroughs**, 12 cities and boroughs***, 10 districts****, 12 cities*****, 3 royal boroughs******; Barking and Dagenham**, Barnet**, Barnsley, Bath and North East Somerset****, Bedfordshire*, Bexley**, Birmingham***, Blackburn with Darwen, Blackpool, Bolton, Bournemouth, Bracknell Forest, Bradford***, Brent**, Brighton and Hove, City of Bristol*****, Bromley**, Buckinghamshire*, Bury, Calderdale, Cambridgeshire*, Camden**, Cheshire*, Cornwall*, Coventry***, Croydon**, Cumbria*, Darlington, Derby*****, Derbyshire*, Devon*, Doncaster, Dorset*, Dudley, Durham*, Ealing**, East Riding of Yorkshire****, East Sussex*, Enfield**, Essex*, Gateshead, Gloucestershire*, Greenwich**, Hackney**, Halton, Hammersmith and Fulham**, Hampshire*, Haringey**, Harrow**, Hartlepool, Havering**, Herefordshire*, Hertfordshire*, Hillingdon**, Hounslow**, Isle of Wight*, Islington**, Kensington and Chelsea******, Kent*, City of Kingston upon Hull*****, Kingston upon Thames******, Kirklees, Knowsley, Lambeth**, Lancashire*, Leeds***, Leicester*****, Leicestershire*, Lewisham**, Lincolnshire*, Liverpool***, City of London*****, Luton, Manchester***, Medway, Merton**, Middlesbrough, Milton Keynes, Newcastle upon Tyne***, Newham**, Norfolk*, Northamptonshire*, North East Lincolnshire****, North Lincolnshire****, North Somerset****, North Tyneside, Northumberland*, North Yorkshire*, Nottingham*****, Nottinghamshire*, Oldham, Oxfordshire*, Peterborough*****, Plymouth*****, Poole, Portsmouth*****, Reading, Redbridge**, Redcar and Cleveland, Richmond upon Thames**, Rochdale, Rotherham, Rutland****, Salford***, Shropshire*, Sandwell, Sefton, Sheffield***, Slough, Solihull, Somerset*, Southampton*****, Southend-on-Sea, South Gloucestershire****, South Tyneside, Southwark**, Staffordshire*, St. Helens, Stockport, Stockton-on-Tees, Stoke-on-Trent*****, Suffolk*, Sunderland***, Surrey*, Sutton**, Swindon, Tameside, Telford and Wrekin****, Thurrock, Torbay, Tower Hamlets**, Trafford, Wakefield***, Walsall, Waltham Forest**, Wandsworth**, Warrington, Warwickshire*, West Berkshire****, Westminster***, West Sussex*, Wigan, Wiltshire*, Windsor and Maidenhead******, Wirral, Wokingham****, Wolverhampton, Worcestershire*, York*****; Northern Ireland - 24 districts, 2 cities*, 6 counties**; Antrim, County Antrim**, Ards, Armagh, County Armagh**, Ballymena, Ballymoney, Banbridge, Belfast*, Carrickfergus, Castlereagh, Coleraine, Cookstown, Craigavon, Down, County Down**, Dungannon, Fermanagh, County Fermanagh**, Larne, Limavady, Lisburn, County Londonderry**, Derry*, Magherafelt, Moyle, Newry and Mourne, Newtownabbey, North Down, Omagh, Strabane, County Tyrone**; Scotland - 32 council areas; Aberdeen City, Aberdeenshire, Angus, Argyll and Bute, The Scottish Borders, Clackmannanshire, Dumfries and Galloway, Dundee City, East Ayrshire, East Dunbartonshire, East Lothian, East Renfrewshire, City of Edinburgh, Falkirk, Fife, Glasgow City, Highland, Inverclyde, Midlothian, Moray, North Ayrshire, North Lanarkshire, Orkney Islands, Perth and Kinross, Renfrewshire, Shetland Islands, South Ayrshire, South Lanarkshire, Stirling, West Dunbartonshire, Eilean Siar (Western Isles), West Lothian; Wales - 11 county boroughs, 9 counties*, 2 cities and counties**; Isle of Anglesey*, Blaenau Gwent, Bridgend, Caerphilly, Cardiff**, Ceredigion*, Carmarthenshire*, Conwy, Denbighshire*, Flintshire*, Gwynedd, Merthyr Tydfil, Monmouthshire*, Neath Port Talbot, Newport, Pembrokeshire*, Powys*, Rhondda Cynon Taff, Swansea**, Torfaen, The Vale of Glamorgan*, Wrexham
Dependent areas: Anguilla, Bermuda, British Indian Ocean Territory, British Virgin Islands, Cayman Islands, Falkland Islands, Gibraltar, Guernsey, Jersey, Isle of Man, Montserrat, Pitcairn Islands, Saint Helena, South Georgia and the South Sandwich Islands, Turks and Caicos Islands
Independence: England has existed as a unified entity since the 10th century; the union between England and Wales was enacted under the Statute of Rhuddlan in 1284; in the Act of Union of 1707, England and Scotland agreed to permanent union as Great Britain; the legislative union of Great Britain and Ireland was implemented in 1801, with the adoption of the name the United Kingdom of Great Britain and Ireland; the Anglo-Irish treaty of 1921 formalized a partition of Ireland; six northern Irish counties remained part of the United Kingdom as Northern Ireland and the current name of the country, the United Kingdom of Great Britain and Northern Ireland, was adopted in 1927
National holiday: Birthday of Queen ELIZABETH II, celebrated on the second Saturday in June (1926)
Constitution: unwritten; partly statutes, partly common law and practice
Legal system: common law tradition with early Roman and modern continental influences; no judicial review of Acts of Parliament; accepts compulsory ICJ jurisdiction, with reservations; British courts and legislation are increasingly subject to review by European Union courts
Suffrage: 18 years of age; universal
Executive branch: chief of state: Queen ELIZABETH II (since 6 February 1952); Heir Apparent Prince CHARLES (son of the queen, born 14 November 1948) head of government: Prime Minister Anthony (Tony) BLAIR (since 2 May 1997) cabinet: Cabinet of Ministers appointed by the prime minister elections: none; the monarchy is hereditary; the prime minister is the leader of the majority party in the House of Commons (assuming there is no majority party, a prime minister would have a majority coalition or at least a coalition that was not rejected by the majority)
Legislative branch: bicameral Parliament comprised of House of Lords (consists of approximately 500 life peers, 92 hereditary peers and 26 clergy) and House of Commons (659 seats; members are elected by popular vote to serve five-year terms unless the House is dissolved earlier) elections: House of Lords - no elections (some proposals for further reform include elections); House of Commons - last held 7 June 2001 (next to be held by NA May 2006) election results: House of Commons - percent of vote by party - Labor 42.1%, Conservative and Unionist 32.7%, Liberal Democrats 18.8%, other 6.4%; seats by party - Labor 412, Conservative and Unionist 166, Liberal Democrat 52, other 29; note - seating as of 15 February 2002: Labor 410, Conservative 164, Liberal Democrats 53, other 32 note: in 1998 elections were held for a Northern Ireland Parliament (because of unresolved disputes among existing parties, the transfer of power from London to Northern Ireland came only at the end of 1999 and was twice rescinded before reinstatement in November 2001); in 1999 there were elections for a new Scottish Parliament and a new Welsh Assembly
Judicial branch: House of Lords (highest court of appeal; several Lords of Appeal in Ordinary are appointed by the monarch for life); Supreme Courts of England, Wales, and Northern Ireland (comprising the Courts of Appeal, the High Courts of Justice, and the Crown Courts); Scotland's Court of Session and Court of the Justiciary Political parties and leaders: Conservative and Unionist Party [Iain Duncan SMITH]; Democratic Unionist Party (Northern Ireland) [Rev. Ian PAISLEY]; Labor Party [Anthony (Tony) BLAIR]; Liberal Democrats [Charles KENNEDY]; Party of Wales (Plaid Cymru) [Ieuan Wyn JONES]; Scottish National Party or SNP [John SWINNEY]; Sinn Fein (Northern Ireland) [Gerry ADAMS]; Social Democratic and Labor Party or SDLP (Northern Ireland) [Mark DURKAN]; Ulster Unionist Party (Northern Ireland) [David TRIMBLE] Political pressure groups and Campaign for Nuclear Disarmament;
leaders: Confederation of British Industry; National Farmers' Union; Trades Union Congress International organization AfDB, AsDB, Australia Group, BIS, C,
participation: CCC, CDB, CE, CERN, EAPC, EBRD, ECA (associate), ECE, ECLAC, EIB, ESA, ESCAP, EU, FAO, G- 5, G- 7, G- 8, G- 10, IADB, IAEA, IBRD, ICAO, ICC, ICFTU, ICRM, IDA, IEA, IFAD, IFC, IFRCS, IHO, ILO, IMF, IMO, Interpol, IOC, IOM, ISO, ITU, MONUC, NAM (guest), NATO, NEA, NSG, OAS (observer), OECD, OPCW, OSCE, PCA, SPC, UN, UN Security Council, UNAMSIL, UNCTAD, UNESCO, UNFICYP, UNHCR, UNIDO, UNIKOM, UNMIBH, UNMIK, UNMOVIC, UNOMIG, UNRWA, UNTAET, UNU, UPU, WCL, WEU, WHO, WIPO, WMO, WTrO, ZC Diplomatic representation in the US: chief of mission: Ambassador Sir Christopher J. R. MEYER chancery: 3100 Massachusetts Avenue NW, Washington, DC 20008 FAX: [1] (202) 588-7870 consulate(s): Dallas, Denver, Miami, and Seattle consulate(s) general: Atlanta, Boston, Chicago, Cleveland, Houston, Los Angeles, New York, and San Francisco telephone: [1] (202) 588-6500 Diplomatic representation from the chief of mission: Ambassador William
US: S. FARISH embassy: 24/31 Grosvenor Square, London, W1A1AE mailing address: PSC 801, Box 40, FPO AE 09498-4040 telephone: [44] (0) 207499-9000 (switchboard) FAX: [44] (0) 207 629-8288 consulate(s) general: Belfast, Edinburgh
Flag description: blue with the red cross of Saint George (patron saint of England) edged in white superimposed on the diagonal red cross of Saint Patrick (patron saint of Ireland) and which is superimposed on the diagonal white cross of Saint Andrew (patron saint of Scotland); known as the Union Flag or Union Jack; the design and colors (especially the Blue Ensign) have been the basis for a number of other flags including other Commonwealth countries and their constituent states or provinces, as well as British overseas territories Economy United Kingdom
Economy - overview: The UK, a leading trading power and financial center, is one of the quartet of trillion dollar economies of Western Europe. Over the past two decades the government has greatly reduced public ownership and contained the growth of social welfare programs. Agriculture is intensive, highly mechanized, and efficient by European standards, producing about 60% of food needs with only 1% of the labor force. The UK has large coal, natural gas, and oil reserves; primary energy production accounts for 10% of GDP, one of the highest shares of any industrial nation. Services, particularly banking, insurance, and business services, account by far for the largest proportion of GDP while industry continues to decline in importance. GDP growth slipped in 2001 as the global downturn, the high value of the pound, and the bursting of the "new economy" bubble hurt manufacturing and exports. Still, the economy is one of the strongest in Europe; inflation, interest rates, and unemployment remain low, and the government expects growth of 2% to 2.5% in 2002. The relatively good economic performance has complicated the BLAIR government's efforts to make a case for Britain to join the European Economic and Monetary Union (EMU). The Prime Minister has pledged to hold a public referendum if membership meets Chancellor of the Exchequer BROWN's five economic "tests." Scheduled for assessment by mid-2003, the tests will determine whether joining EMU would have a positive effect on British investment, employment, and growth. Critics point out, however, that the economy is thriving outside of EMU, and they point to public opinion polls that continue to show a majority of Britons opposed to the single currency.
GDP: purchasing power parity - $1.47 trillion (2001 est.)
GDP - real growth rate: 2.4% (2001 est.)
GDP - per capita: purchasing power parity - $24,700 (2001 est.) GDP - composition by sector: agriculture: 1.7% industry: 24.9% services: 73.4% (1999) Population below poverty line: 17% Household income or consumption by lowest 10%: 2.6%
percentage share: highest 10%: 27.3% (1991) Distribution of family income - Gini 36.1 (1991)
index: Inflation rate (consumer prices): 1.8% (2001 est.)
Labor force: 29.7 million (2001) Labor force - by occupation: agriculture 1%, industry 25%, services 74% (1999)
Unemployment rate: 5.1% (2001 est.)
Budget: revenues: $565 billion expenditures: $540 billion, including capital expenditures of $NA (FY01)
Industries: machine tools, electric power equipment, automation equipment, railroad equipment, shipbuilding, aircraft, motor vehicles and parts, electronics and communications equipment, metals, chemicals, coal, petroleum, paper and paper products, food processing, textiles, clothing, and other consumer goods Industrial production growth rate: -1.6% (2001 est.) Electricity - production: 355.761 billion kWh (2000) Electricity - production by source: fossil fuel: 73.26% hydro: 1.46% other: 2.31% (2000) nuclear: 22.97% Electricity - consumption: 345.032 billion kWh (2000)
Electricity - exports: 134 million kWh (2000)
Electricity - imports: 14.308 billion kWh (2000)
Agriculture - products: cereals, oilseed, potatoes, vegetables; cattle, sheep, poultry; fish
Exports: $287 billion (f.o.b., 2001)
Exports - commodities: manufactured goods, fuels, chemicals; food, beverages, tobacco
Exports - partners: EU 54% (Germany 11%, France 9%, Netherlands 7%, Ireland 7%), US 15% (2000)
Imports: $337 billion (c.i.f., 2001)
Imports - commodities: manufactured goods, machinery, fuels; foodstuffs
Imports - partners: EU 48% (Germany 11%, France 7%, Netherlands 6%), US 13%, Japan 5% (2000)
Debt - external: $NA
Economic aid - donor: ODA, $4.5 billion (2000)
Currency: British pound (GBP)
Currency code: GBP
Exchange rates: British pounds per US dollar - 0.6981 (January 2002), 0.6944 (2001), 0.6596 (2000), 0.6180 (1999), 0.6037 (1998), 0.6106 (1997)
Fiscal year: 1 April - 31 March Communications United Kingdom - Telephones - main lines in use: 34.878 million (1997) Telephones - mobile cellular: 13 million (yearend 1998)
Telephone system: general assessment: technologically advanced domestic and international system domestic: equal mix of buried cables, microwave radio relay, and fiber-optic systems international: 40 coaxial submarine cables; satellite earth stations - 10 Intelsat (7 Atlantic Ocean and 3 Indian Ocean), 1 Inmarsat (Atlantic Ocean region), and 1 Eutelsat; at least 8 large international switching centers Radio broadcast stations: AM 219, FM 431, shortwave 3 (1998)
Radios: 84.5 million (1997) Television broadcast stations: 228 (plus 3,523 repeaters) (1995)
Televisions: 30.5 million (1997)
Internet country code: .uk Internet Service Providers (ISPs): 245 (2000)
Internet users: 33 million (2001) Transportation United Kingdom -
Railways: total: 16,878 km standard gauge: 16,536 km 1.435- m gauge (4,928 km electrified; 12,591 km double- or multiple- tracked) broad gauge: 342 km 1.600-m gauge (190 km double-tracked) note: all 1.600-m gauge track is in common carrier service in Northern Ireland (1996)
Highways: total: 371,603 km paved: 371,603 km (including 3,303 km of expressways) unpaved: 0 km (1998 est.)
Waterways: 3,200 km
Pipelines: crude oil (almost all insignificant) 933 km; petroleum products 2,993 km; natural gas 12,800 km
Ports and harbors: Aberdeen, Belfast, Bristol, Cardiff, Dover, Falmouth, Felixstowe, Glasgow, Grangemouth, Hull, Leith, Liverpool, London, Manchester, Peterhead, Plymouth, Portsmouth, Scapa Flow, Southampton, Sullom Voe, Tees, Tyne
Merchant marine: total: 212 ships (1,000 GRT or over) totaling 4,308,232 GRT/4,171,757 DWT ships by type: bulk 7, cargo 32, chemical tanker 13, combination ore/ oil 1, container 53, liquefied gas 3, passenger 13, passenger/cargo 1, petroleum tanker 48, refrigerated cargo 4, roll on/roll off 26, short- sea passenger 10, specialized tanker 1 note: includes some foreign-owned ships registered here as a flag of convenience: Bermuda 1, Cyprus 1, Denmark 21, Germany 6, Greece 3, Hong Kong 4, Italy 1, Monaco 4, Netherlands 1, Norway 9, Russia 1, South Africa 2, Sweden 11, Taiwan 2, United States 5 (2002 est.)
Airports: 470 (2001) Airports - with paved runways: total: 332 over 3,047 m: 8 2,438 to 3,047 m: 33 914 to 1,523 m: 84 under 914 m: 57 (2001) 1,524 to 2,437 m: 150 Airports - with unpaved runways: total: 138 1,524 to 2,437 m: 1 914 to 1,523 m: 23 under 914 m: 114 (2001)
Heliports: 13 (2001) Military United Kingdom -
Military branches: Army, Royal Navy (including Royal Marines), Royal Air Force Military manpower - availability: males age 15-49: 14,632,418 (2002 est.) Military manpower - fit for military males age 15-49: 12,151,734 (2002
service: est.) Military expenditures - dollar figure: $31.7 billion (2002) Military expenditures - percent of 2.32% (2002)
GDP: Transnational Issues United Kingdom - Disputes - international: Spain and UK are discussing "total shared sovereignty" over Gibraltar, subject to a constitutional referendum by Gibraltarians, who have largely expressed opposition to any form of cession to Spain; Mauritius and Seychelles claim the Chagos Archipelago (British Indian Ocean Territory) and its former inhabitants, who reside chiefly in Mauritius, but in 2001 were granted UK citizenship and the right to repatriation since eviction in 1965; Argentina claims the Falkland Islands (Islas Malvinas) and South Georgia and the South Sandwich Islands; Rockall continental shelf dispute involving Denmark and Iceland; territorial claim in Antarctica (British Antarctic Territory) overlaps Argentine claim and partially overlaps Chilean claim; disputes with Iceland, Denmark, and Ireland over the Faroe Islands continental shelf boundary outside 200 NM
Illicit drugs: gateway country for Latin American cocaine entering the European market; major consumer of synthetic drugs, producer of limited amounts of synthetic drugs and synthetic precursor chemicals; major consumer of Southwest Asian heroin; money- laundering center

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▪ 2009

Introduction
Area:
243,073 sq km (93,851 sq mi)
Population
(2008 est.): 61,446,000
Capital:
London
Chief of state:
Queen Elizabeth II
Head of government:
Prime Minister Gordon Brown

Domestic Affairs.
      The U.K.'s Labour Government, led by Prime Minister Gordon Brown, began and ended 2008 narrowly behind the Conservatives in the opinion polls. In the summer months, however, Labour's support—and Brown's personal ratings—slumped so low that some of the party's MPs started calling openly for his resignation. Brown's widely praised response to the global financial crisis in the latter months of the year earned him a reprieve as his party's fortunes recovered.

      In the spring the government suffered from two linked problems. The first was the sharp decline in consumer confidence as house prices fell and general inflation rose. The second was the implementation of a policy, announced a year earlier, to scrap the 10% starting rate of income tax and reduce the standard rate from 22% to 20%. Although this change left most people better off, low-paid workers saw their tax payments increase—at precisely the time when food and energy prices were rising sharply.

      Labour suffered at the nationwide local elections held on May 1. The party lost ground throughout England and Wales, including the biggest prize of all: mayor of London. Ken Livingstone was defeated after eight years as the capital's first elected mayor, to be replaced by the Conservative candidate, Boris Johnson (Johnson, Boris ).

      Following threats of rebellion by Labour MPs, Alistair Darling, the chancellor of the Exchequer, announced on May 13 that he would increase tax allowances for every taxpayer earning up to £40,000 (about $60,000) a year. This move, which amounted to a total tax cut of £2.7 billion (about $5.28 billion) annually, did nothing to revive the government's fortunes. Just nine days later, Labour lost to the Conservatives a previously safe parliamentary seat in northwestern England, Crewe and Nantwich. On July 24 Labour lost what had been an even safer seat, Glasgow East, which was won by the Scottish National Party.

      These losses confirmed opinion poll findings, which showed that Labour's support across Britain had fallen to just 25%. In the following weeks there were widespread reports of Labour MPs agitating for a change of party leader and prime minister. The most prominent MP to call for Brown to quit was Charles Clarke, who had previously served as home secretary and party chairman.

      When Labour members met for the party's annual conference in Manchester in late September, morale was low. Brown lifted the mood with an exceptionally effective speech, the most memorable line of which was, “This is no time for a novice.” The statement was ostensibly directed at David Cameron, the Conservatives' young leader, but it was also seen as a warning to Brown's own foreign secretary, 43-year-old David Miliband, who was widely regarded as having ambitions to succeed Brown. A conference “bounce” lifted Labour's support to about 30%, which was considered poor but not disastrous and not unusual for a governing party in midterm. Labour held its support through the financial crisis of the following weeks. This recovery was confirmed by a by-election in Glenrothes, Scot., on November 6, when Labour held the seat and actually increased its vote.

      Brown also displayed a boldness that many thought had deserted him when he recalled Peter Mandelson to his cabinet on October 3. Mandelson had twice served in former prime minister Tony Blair's cabinets in the 1997–2001 Parliament but had subsequently left British politics to serve as the European Union's trade commissioner. In the simmering conflict over the years between the Blair and Brown “tribes” within the Labour Party, Mandelson was one of the most fervent Blairites. His rapprochement with Brown signaled an end to that conflict, for the time being at least. Mandelson was succeeded as EU commissioner by Baroness Ashton, the leader of the House of Lords—Britain's first woman EU commissioner and the first woman to hold the trade portfolio. At year's end the Conservatives held a narrow but steady 5–7% lead in the polls over Labour.

      One of the government's major policy decisions of 2008 came in January when Business Secretary John Hutton announced support for a new generation of nuclear power stations. Hutton said that nuclear power would play an important role in the mix of low-carbon energy sources that would be needed to serve the U.K.'s long-term strategy of reducing carbon emissions. He insisted, however, that these new plants would have to be financed entirely by the private sector, as there would be no government subsidy. In October, Ed Miliband (David's younger brother), who had been appointed energy secretary in the same reshuffle that saw Mandelson return to government, announced that Britain would apply a new target, to cut carbon emissions by 80% by 2050 (the previous target had been a 60% reduction).

      One major piece of government legislation was defeated in Parliament during the year. Home Secretary Jacqui Smith wanted the police to have the right, subject to defined safeguards, to hold people suspected of terrorist offenses for up to 42 days without having to file formal charges—an increase of 14 days over the existing limit. The House of Commons voted narrowly to support her, but on October 13 the House of Lords voted 309–118 against the new extension. Smith promptly announced that she was withdrawing the proposal, though she would continue to push the counterterrorism bill of which it was a part, and the government might in future resubmit the 42-day limit in separate legislation.

       Scotland's first full year of Scottish National Party rule saw the announcement of a significant new tax policy. On September 3 First Minister Alex Salmond (Salmond, Alex ) announced the abolition of the council tax (a local property tax) in Scotland and its replacement by a local income tax. He said that this would remove 85,000 Scots from poverty. Critics, however, said that the economy would be harmed if Scotland had a higher overall rate of income tax than the rest of the U.K.

      More widely, Salmond argued consistently for Scotland to have greater control over its own economy. Under the devolution arrangements agreed to a decade earlier, Scotland's Parliament could vary the country's overall budget within very narrow limits. Brown (himself an MP for a Scottish constituency) acknowledged in a speech on September 5 that there was a case for greater economic freedom for Scotland. He asked for this issue to be explored by an independent commission, headed by Sir Kenneth Calman, that had been established in 2007 by the Scottish Parliament with U.K. government support.

Economic Affairs.
      In common with most other major countries, the United Kingdom's economy suffered from the global financial crisis in 2008. GDP, which had risen in each quarter for 16 years, started falling in the second half of the year. By year's end, unemployment was up by 0.7% to 6.0% from a year earlier, house prices had fallen by almost 20% from their 2007 peak, and the main index of share prices was down 31%. A number of well-known companies went out of business toward the end of the year, especially in the retail sector and most notably Woolworths, whose 800 general stores had for decades formed the heart of many high streets.

      On February 17 the government announced that it would nationalize the troubled Northern Rock bank. This proved to be no more than an overture to a symphony of problems that affected banks and their customers. As house prices fell and worries about bad debts grew, mortgage lenders started taking a far tougher stance toward home buyers. Almost overnight it became impossible to borrow the full price of a home; demands for down payments of 20% or more became common. This dented the housing market still further, and the fall in prices accelerated. Even more serious for the wider economy, banks almost completely stopped lending to each other; the wholesale market in loans virtually dried up.

      On July 21 the Halifax Bank of Scotland (HBOS) sought to improve its capital base by issuing £4 billion (about $8 billion) in new shares, but investors bought only 8% of the new stock, and underwriters had to pay for the rest. The new money provided HBOS with only a few weeks' respite. On September 17 a deal was announced to sell HBOS to another major bank, Lloyds TSB. The deal, which was brokered by Prime Minister Gordon Brown and Chancellor of the Exchequer Alistair Darling in order to prevent HBOS's total collapse, priced the company at £12 billion (about $21.5 billion), less than one-fifth of its value a year earlier. On September 29 the government nationalized another bank, Bradford and Bingley, taking over control of its mortgages and selling its branches and savings operation to the Spanish banking group Santander.

      On October 8 Brown and Darling went even farther and announced that the government would be willing to spend up to £50 billion (about $87 billion) to buy preference shares in Britain's banks, to help them rebuild their capital base, and would provide £200 billion (about $350 billion) in short-term loans to revive interbank lending and £250 billion (about $437 billion) to guarantee bank debts. This plan, which was much bolder than had been expected, was widely admired in, and its principles were copied by, other countries. By year's end, however, it was unclear how well, or how quickly, the plan would work. In particular, having been criticized for lending too much too readily barely a year earlier, banks now faced the opposite criticism—lending too little and not doing enough to support healthy businesses and creditworthy home buyers.

      If the government was credited with acting boldly over the credit crisis, it faced criticism from some quarters for its wider management of the economy. In his budget speech on March 12, Darling predicted that government borrowing in the following 12 months would rise to £43 billion (about $86 billion), or 3% of GDP. As the year wore on, it became clear that this forecast, like his prediction of continued economic growth, was overly optimistic. One consequence was that the government broke one of its own “golden rules,” which sought to limit the U.K.'s public debt to 40% of GDP. On November 24 Darling delivered to Parliament his annual prebudget report, in which he forecast that the economy would contract by up to 1.25% in 2009, that government borrowing would climb to £78 billion (about $116.5 billion) in 2008–09 and £118 billion (about $176 billion) in 2009–10, and that the U.K.'s public debt would rise to more than 57% of GDP by 2014.

      Meanwhile, the Bank of England (BOE) had to navigate a careful course between supporting Britain's fragile economy and preventing high inflation. The hike in global energy and food prices caused Britain's consumer price index to rise to 5.2% in the 12 months to September, far above the 2% target set by the government. The rise in inflation during the summer made it hard for the BOE to reduce interest rates as fast as many people wanted. Even so, the BOE's benchmark rate did fall from 5.5% at the start of the year to 5.25% in February and 5% in April. The next reduction did not take place until October, when the rate was cut by another half percentage point as part of a round of reductions coordinated with other central banks around the world. Then, on November 6, the BOE lowered rates by another 1.5%, to 3%—the largest reduction in more than a quarter of a century. This was followed by a reduction in December to 2%, the lowest rate since 1951, as the BOE predicted that inflation would fall rapidly to well below the 2% target during 2009. Many homeowners and businesses did not receive the full benefit of the rate cuts, however, as banks became more cautious about how much to lend to whom and on what terms. One other consequence of the interest-rate reductions was that the value of sterling fell sharply. In the final three months of 2008, the pound depreciated by about 20% against both the U.S. dollar (ending up at £1 = $1.46) and the euro (£1 = €1.05).

Foreign Affairs.
      The U.K. maintained 4,000 troops in southern Iraq to train and advise Iraq's police and armed forces. Plans to reduce the number to 2,500 were deferred in April. The U.K. also retained around 8,000 troops in Afghanistan throughout the year, mainly in Helmand and Kandahar provinces and the capital, Kabul. By June 2008 the number of fatalities among British troops (including those caused by accidents and “friendly fire”) had reached 100 since 2001.

      In February news leaked that Prince Harry, the younger son of Prince Charles, had been serving in Afghanistan since the previous December as a forward air controller in Helmand province, guiding fighter jets toward suspected Taliban targets. Once this information became public, Harry was withdrawn back to the U.K.

      On June 19 the bill approving the Lisbon Treaty on the future of the European Union received royal assent and passed into law. Opponents of the treaty argued that the bill should have been withdrawn following the treaty's rejection by the Irish people in a referendum a week earlier. (As EU treaties required unanimity, one country's rejection was enough to block it.) U.K. ministers responded that the treaty was in Britain's interests and that Parliament should therefore approve it—which it did with large majorities in both the House of Commons and the House of Lords.

Northern Ireland.
      On March 4 Ian Paisley announced that he would step down in May as Northern Ireland's first minister and leader of the Democratic Unionist Party (DUP). Paisley, who turned 82 in April, had led the DUP since its founding in 1971. His successor, Peter Robinson (Robinson, Peter David ), was quickly mired in controversy following disagreement in the Northern Ireland Assembly and Review Committee over the devolution of police and justice powers to the province. This had been due to take place in May, but the DUP said that it should be postponed, as there was not yet sufficient public confidence in the proposed arrangements.

       Martin McGuinness, leader of Sinn Fein and deputy first minister, said that this decision breached the 2006 agreement that restored the Northern Ireland Assembly and Executive and refused to take part in Executive meetings for the time being. As the devolution system required cross-party agreement, this meant that the Executive was suspended. In contrast to past disputes between Sinn Fein and the DUP, the two parties' leaders refrained from public abuse. The deadlock persisted, however, and no major decisions could be taken regarding the province's future.

      In September 2008 the International Monitoring Council (IMC) declared that the Army Council of the Provisional Irish Republican Army (IRA) was “no longer operational.” The council had directed the IRA's terrorist campaign against British rule for three decades until the Good Friday Agreement in 1998. The IMC added, “We believe that for some time now it has given up what it used to do and that by design it is being allowed to wither away.”

Peter Kellner

▪ 2008

Introduction
Area:
242,495 sq km (93,628 sq mi)
Population
(2007 est.): 60,863,000
Capital:
London
Chief of state:
Queen Elizabeth II
Head of government:
Prime Ministers Tony Blair and, from June 27, Gordon Brown

Domestic Affairs.
 After 10 years as prime minister, Tony Blair stepped down on June 27. (See Special Report (Tony Blair: A 10-Year Retrospective ).) He was succeeded by Gordon Brown (Brown, Gordon ), who had served as chancellor of the Exchequer under Blair and had been elected leader of the Labour Party unopposed three days earlier. Brown made radical changes to his new cabinet, appointing David Miliband (Miliband, David ) as foreign secretary, Alistair Darling to replace himself as chancellor, and Jacqui Smith as the U.K.'s first woman home secretary.

      Brown was quickly thrust into a series of crises, each of which the public regarded him as handling calmly and efficiently. The first crisis erupted barely 48 hours after he became prime minister. Two car bombs were placed in central London, and a third vehicle was driven into Glasgow (Scot.) Airport, where it caught fire, killing the driver, Kafeel Ahmed. The two car bombs were defused, however, before any explosions occurred. Ahmed's brother and two other individuals were charged with conspiring to cause explosions.

      A series of floods that had started earlier in June became more intense during the days immediately after Brown was sworn in. It was estimated that a total of one million people were directly affected by the floods, many of them having to leave their homes temporarily. Brown subsequently announced that local councils would receive £46 million (midyear 2007, £1 = about $2.00) to help them meet the costs of dealing with the floods. He also said that government spending on flood defenses would be increased by £500 million annually.

      Brown's third crisis was the outbreak on August 2 of foot-and-mouth disease in Surrey, south of London. Six years earlier an outbreak in East Anglia had spread quickly to many parts of the country, causing a catastrophe in British agriculture and forcing the postponement of national elections. This time, however, the lessons of 2001 appeared to have been learned; strict controls were immediately imposed on the movement of livestock, and the outbreak was contained. The government faced embarrassment, however, when it transpired that the initial outbreak had occurred because some strains of the disease had escaped from a nearby government laboratory that had been set up to develop vaccines for the disease.

      These crises helped Brown to enhance his reputation but overshadowed his attempts to present himself as a man with fresh ideas for the future. In his first major policy announcement, on July 3, he outlined plans for reforming the U.K.'s constitution. These included surrendering the royal prerogative to declare war on the advice of the prime minister, transferring that power to Parliament. He also promised to give Parliament more power to ratify international treaties and decide the date of elections and to relinquish the executive's power to appoint judges and bishops.

      Immediately following Brown's promotion to prime minister, the Labour Party went into the lead in the opinion polls. Labour's lead looked sufficiently well established by September to tempt Brown to consider calling an early general election in order to secure his own mandate from the electorate. Speculation intensified after Labour took a double-digit polling lead following Brown's speech on September 24 at the party's annual conference. The following week saw an equally dramatic shift back to the Conservatives, however, following their party conference. Brown announced on October 6 that there would be no general election before 2009. By December the Conservatives had taken a clear lead in the opinion polls, ahead of Labour by up to 13%—the biggest lead for the Conservatives since 1989.

      One issue that had caused Blair anxiety in his final months as prime minister was the continuing police inquiry into allegations that some people had been promised peerages in return for donations to the Labour Party. This inquiry had led to Blair's being the first prime minister to be formally interviewed as part of a criminal investigation. On April 20 the police sent their files on the case to the Crown Prosecution Service, which announced on July 20 that the case was to be dropped and no one would be prosecuted. A separate dispute erupted in November when it emerged that David Abrahams, a property developer, had donated money to the Labour Party indirectly, via staff and friends. Receiving money this way was illegal; police launched a new inquiry. On November 26 Peter Watt resigned as the Labour Party's general secretary, admitting that he knew of the arrangement.

 The most dramatic changes in the U.K.'s power structure occurred not in London but rather in Northern Ireland (see below), Scotland, and Wales. In Edinburgh the Labour–Liberal Democrat coalition that had ruled Scotland since its devolved Parliament was established in 1999, lost power in elections held on May 3. The Scottish National Party (SNP) narrowly emerged as the largest party, with 47 seats (an increase of 20 since the previous elections in 2003), compared with Labour's 46 (a loss of 4 seats), the Conservatives' 17 (down 1), and the Liberal Democrats' 16 (down 1). Smaller parties emerged with just 3 seats, 14 fewer than four years earlier. Although the SNP fell 18 seats short of an outright majority, party leader Alex Salmond was elected first minister at the head of a minority government, replacing Labour's Jack McConnell. During the election campaign the SNP promised to hold a referendum on full Scottish independence. It did not win enough votes to secure a majority in the new Parliament for this plan (which Labour, the Conservatives, and the Liberal Democrats all opposed), but during its first few months in office, the SNP unveiled a number of popular policies, including scrapping toll fees on some of Scotland's busiest road bridges, reducing the fees paid by graduate students, and eventually ending prescription charges for medicines supplied by the National Health Service.

      Labour lost ground in the Welsh elections, also held on May 3, but remained the largest party, with 26 seats in the 60-seat Assembly (down 4 from the 2003 balloting), while the Welsh nationalist party Plaid Cymru won 15 seats (a gain of 3), the Conservatives took 12 (up 1), and the Liberal Democrats remained unchanged with 6 seats. (There was also one independent.) After weeks of negotiation, Labour and Plaid Cymru finally agreed on June 27 to govern together. Labour's Rhodri Morgan remained first minister, with Plaid Cymru's leader, Ieuan Wyn Jones, as his deputy. Among their agreed priorities was to lobby the British Parliament to grant the Welsh Assembly more powers, to bring it into line with the Scottish Parliament.

      The Liberal Democrats struggled the most in 2007. By September, opinion polls were showing that the party had lost up to half of the 23% support that it achieved in the 2005 general election. Party leader Sir Menzies Campbell, though widely respected at Westminster, especially on foreign affairs, was not highly rated by the electorate. Part of his problem was his age (he turned 66 on May 22) and elderly appearance. On October 15, shortly after Brown had made it clear that there would not be an early election, Campbell resigned as party leader. In a BBC interview the following day, he blamed the media, saying that over the previous week there had been “seven consecutive sets of reports about my age and about leadership.” The subsequent leadership contest, the result of which was announced on December 18, was won by Nick Clegg, the party's spokesman on Home Office matters. Clegg defeated Chris Huhne, the party's spokesman on the environment, by barely 1% in a ballot of party members.

Economic Affairs.
      The U.K.'s economy grew by 3% in 2007, continuing the steady progress that had begun in the early 1990s. Inflation remained subdued, although in April it was announced that the consumer price index had risen by 3.1% over the previous 12 months. As this was more than one point above the 2% target set for the Bank of England (BOE), the bank's governor, Mervyn King, was required by the rules to write a formal letter to the chancellor of the Exchequer (then still Brown) to explain what had gone wrong. It was the first such letter in the 10 years since the BOE was granted powers to set interest rates in order to control inflation. King asserted that the problem was increased volatility in inflation, partly caused by fluctuations in energy prices, and that he expected the inflation rate to subside in the months ahead. This indeed was what happened: by August the rate had fallen to 1.8%.

      Nevertheless, to prevent higher inflation from becoming routine, the BOE raised the benchmark repo interest rate in three quarter-point stages, from 5% at the start of the year to 5.75% by July. Among other things, this had the effect of cooling the housing market. According to figures released by the Halifax bank (the U.K.'s largest mortgage lender), house prices that had been rising at an annual rate of more than 11% during the first half of 2007 peaked in August and fell in every month after that for the rest of the year. Amid fears that these falls would be accompanied by slower economic growth in 2008, the BOE reduced interest rates to 5.5% in December.

      In his first annual prebudget report in October, Darling announced two major reforms to the tax system. First, he simplified the capital gains tax, so that instead of a variety of rates ranging from 10% to 40%, there would be a single rate of 18% from April 2008. Second, he doubled the inheritance tax (IHT) threshold for married couples to £600,000. This announcement was made a few days after the Conservatives had announced that they would increase the IHT threshold for individuals to £1 million—a move that was popular with the public, according to opinion polls. Darling was accused of “stealing” Conservative policies.

      Two major British companies were afflicted by crises in 2007. The country's largest company, oil giant BP, was shaken in May when Lord Browne, its CEO, suddenly resigned after admitting that he had lied to a court about a four-year homosexual relationship that he had sought to keep private. BP's image was tarnished further in October when it agreed to pay a fine of $50 million over lax health and safety systems that had contributed to an explosion in which 15 people were killed in March 2005 at its Texas oil refinery. The second company to face a crisis was the bank Northern Rock, which had aggressively grown its mortgage-lending business, largely by borrowing money on the wholesale markets. (See United States: Sidebar (Subprime Mortgages: A Catalyst for Global Chaos ).) As the year ended, the government was seeking a buyer for Northern Rock amid widespread speculation that the bank might have to be taken temporarily into public ownership to secure its future.

Foreign Affairs.
      In June, at his last European Union summit as prime minister, Blair committed the U.K. to the new EU reform treaty. Blair's critics argued that this was very similar to the former proposals for a constitution, on which Blair had promised a referendum in the U.K. Following the constitution's rejection by French and Dutch voters, it was abandoned. Blair insisted that no referendum was needed to ratify the new treaty, as it contained “red line” clauses that protected the U.K.'s ability to decide its own criminal and labour laws, foreign policy, and domestic law on such issues as taxes and benefits. Brown continued Blair's policy of supporting the new treaty while rejecting a referendum. On October 22, after attending the EU summit in Lisbon, at which the 27 member countries agreed on the detailed wording of the treaty, Brown reported to Parliament that “the protections we have negotiated defend the British national interest.” Conservative Party leader David Cameron responded that Brown had “absolutely no democratic mandate to sign this without a referendum.”

 One month after becoming prime minister, Brown flew to the U.S. for talks with Pres. George W. Bush. Although both men publicly appeared to be in agreement, the encounter was more strained than previous visits from Blair had been. Brown insisted that decisions about British troops in Iraq would be taken on the advice of the U.K.'s military leaders, not according to Washington's wishes. This was evident on September 3 when British troops withdrew from central Basra to Basra Airport, handing over day-to-day control of the city to Iraqi forces. This ended the U.K.'s role in patrolling the streets of southern Iraq. On October 8 Brown announced that half of the remaining British force would be withdrawn from Iraq by the spring of 2008, leaving 2,500 troops in the country. This compared with 45,000 troops at the time of the initial 2003 U.S.-led invasion.

      In early December Brown triggered controversy when he boycotted a summit of African and EU leaders in Lisbon. When he announced his intention to boycott the meeting if Zimbabwean Pres. Robert Mugabe attended, Brown said that Zimbabwe faced “a tragedy that requires the whole of the world to speak up and also to act.”

Northern Ireland.
      Northern Ireland's Assembly was reconvened on May 8, following almost five years during which it had been suspended because of the inability of the two main parties to reach agreement on how it should function. The last major hurdle to the Assembly's resumption had been removed on January 28 when Sinn Fein, the Roman Catholic nationalist party that had historically been associated with the militant Irish Republican Army, voted to end its long-standing policy of noncooperation with the province's police service.

      Two days after Sinn Fein's vote, Blair announced that elections to the 108-member Assembly would be held on March 7. The balloting confirmed the dominance of the Protestant Democratic Unionist Party (DUP), which won 36 seats, and Sinn Fein (28 seats) in their respective communities. The more moderate Protestant Ulster Unionist Party (18 seats) and the Roman Catholic Social and Democratic Labour Party (16) saw further declines in their support.

 On March 26 Ian Paisley (Paisley, Ian ) and Gerry Adams, respectively leaders of the DUP and Sinn Fein, announced that the two parties would end their historic enmity and lead a power-sharing executive in the Assembly. Paisley, who had been a fierce critic of the 1998 Good Friday Agreement, which underpinned the peace process, said that the DUP was now committed to full participation in the new Northern Ireland Executive, while Adams said that “a new era” had opened in the life of the province. On May 8 the transfer of powers from London to Belfast, N.Ire., was marked with a ceremony in front of dignitaries from around the world. Paisley was sworn in as first minister, with Sinn Fein's Martin McGuinness as deputy first minister. The new government quickly turned away from old hostilities and started grappling with such practical issues as the regulation of taxis, the administration of libraries, and the control of animal diseases.

Peter Kellner

▪ 2007

Introduction
Area:
242,495 sq km (93,628 sq mi)
Population
(2006 est.): 60,501,000
Capital:
London
Chief of state:
Queen Elizabeth II
Head of government:
Prime Minister Tony Blair

Domestic Affairs.
      On Sept. 7, 2006, British Prime Minister Tony Blair announced that he would step down within 12 months. He had been the first Labour Party leader to win three successive general election victories (the most recent in May 2005), but by the summer of 2006 a growing minority of Labour MPs regarded Blair as an electoral liability—not least because of his close relationship with U.S. Pres. George W. Bush, whom few Britons admired or respected. By mid-2006 Labour's support in the opinion polls had fallen to 32–33%, and the party performed badly in parliamentary by-elections and local elections.

      The main beneficiary of Labour's weakness was the Conservative Party. David Cameron, who was elected Conservative leader in December 2005, spent much of 2006 seeking to shed his party's right-wing image, which had dented its popularity for the previous 10 years. In contrast to his three predecessors, he emphasized that cutting taxes would not be a priority for the next Conservative government; economic stability and strong public services would come first. He also sought to put his party at the heart of the debates about civil liberties and climate change—causes previously more associated with politicians to the left of centre. Speaking to his party's annual conference in October, Cameron told Conservative activists, “In these past 10 months we have moved back to the ground on which this Party's success has always been built: the centre ground of British politics.”

      Cameron's energetic, moderate, and youthful appearance (he turned 40 in October) appealed to many voters. For the first time since 1992, the Conservatives established a sustained opinion-poll lead over Labour, averaging 5–7%. Over the previous 40 years, however, it had been common for opposition parties to achieve leads of 20% or more between general elections without necessarily going on to win the following election. By the end of 2006, many Conservatives recognized that while Cameron had made a good start, the party still had some way to go to secure the public's respect.

      Britain's third party, the Liberal Democrats, had a more troubled year. On January 5 Charles Kennedy, the party leader since 1999, admitted to having had a drinking problem. Initially he hoped that he could remain party leader, but two days later he succumbed to intense pressure from a majority of his party's MPs and resigned. The subsequent leadership contest was punctuated by the sudden withdrawal of one of the party's leading MPs, Mark Oaten, when the Sunday newspaper News of the World produced evidence that he had had sex with “rent boys” (young male prostitutes). The leadership election was eventually won by the party's deputy leader and foreign affairs spokesman, Sir Menzies Campbell (Campbell, Sir Menzies ) (see Biographies), whose victory over economics spokesman Chris Huhne and party president Simon Hughes was announced on March 2.

      At 65, Campbell was by far the oldest of the party leaders. Although he was widely respected at Westminster, especially for his grasp of international affairs and his principled criticism of the U.K.'s military involvement in Iraq, he proved to be a hesitant performer as leader in the House of Commons and had difficulty winning public approval. YouGov's monthly opinion polls showed that only about 6% thought he would make the best prime minister of the three main party leaders, whereas Kennedy had occasionally scored more than 20%. Nevertheless, in by-elections the Liberal Democrats continued to do well, as voters wanted to register their disapproval with both the Labour and Conservative parties.

      One cause of dissatisfaction with the government emerged in April when Charles Clarke, a generally well-regarded home secretary, admitted that more than 1,000 foreign prisoners had been released from British prisons without being considered for deportation. Clarke acknowledged that the National Audit Office (which monitored departmental spending) had warned ministers of the problem the previous July. It went unsolved, however, and 288 of the prisoners were released subsequently without being deported. Most had disappeared without a trace. Initially Clarke resisted demands for his resignation, arguing that the problem had persisted for many years. When Blair reshuffled his cabinet on May 5, the day after Labour's poor performance in nationwide local elections, he asked Clarke to move to a different department. Clarke refused, and Blair sacked him.

 Clarke's successor, John Reid, swiftly made clear his dissatisfaction with his new department. On May 23 he told a committee of MPs that its immigration section was “not fit for purpose.” As Reid set about reorganizing the Home Office, he had to tackle three other issues that in turn dominated national debate. The first erupted unexpectedly on August 10 when Reid announced the arrest of 24 people suspected of plotting to destroy up to 10 aircraft flying from London's Heathrow Airport to the U.S. The suspects had been under surveillance for some months; the decision to arrest them was taken when new intelligence information indicated that the plot to blow up the aircraft with liquid explosives was imminent. New restrictions were immediately imposed, including a ban on all hand luggage for passengers flying from British airports, but these strictures were gradually eased as new security systems were installed.

      In October Reid responded to widespread public concerns about immigration by announcing restrictions on Bulgarians and Romanians going to work in Britain when the two countries joined the European Union in 2007. Controversy had been heightened by the number of work permits issued to people from Poland and other Eastern European countries that had joined the EU in 2004. The Home Office had predicted that around 13,000 permits a year would be issued to nationals of these countries. In August, however, the Home Office announced that it had, in fact, issued no fewer than 427,095 permits in less than three years. This influx provoked considerable debate, with public opinion divided between those who were grateful for the arrival of hard-working skilled manual labourers and those who were concerned at the impact of this new wave of immigration on housing and public services. By October the government had decided that it could not afford to take the risk of the immediate unrestricted entry of Bulgarians and Romanians when those countries joined the EU.

      Also in October, Reid announced that he would commission ships to act as “floating prisons” to accommodate the rising numbers of people in British jails. By mid-October the number had reached almost the maximum physical limit of 80,000. Reid's announcement failed to quell debate over what some critics regarded as the government's failure to build enough new prisons, while other critics condemned it as a strategy of sending too many petty criminals to jail in the first place.

      All three main political parties were embarrassed in 2006 by controversies over political funding. News emerged in March that the Labour and Conservative parties had received loans from wealthy individuals to help pay for their 2005 general election campaigns. Unlike gifts, which had to be declared by law, the loans were kept secret. The details were revealed when the House of Lords Appointments Commission rejected various people whom Blair had proposed as new peers, on the grounds that they had given undeclared financial support to the Labour Party. A police investigation was launched to decide whether the law prohibiting the “sale” of peerages had been broken. Senior figures in both the Labour and Conservative parties were questioned. On December 14 Blair became the first prime minister in modern times to be formally questioned by the police in the course of a criminal investigation. The fact that he was not cautioned indicated that he was regarded as a possible witness but not a suspect. Separately, in September the Liberal Democrats were embarrassed when their biggest donor, Michael Brown, was jailed for perjury and deception.

      Debate intensified in 2006 over the nature of Britain's multicultural society, especially the country's Muslim community. (See Special Report (Britain: The Radical Stronghold of European Muslims ).) There was mounting evidence of a backlash against what were perceived to be ghettoes of immigrants who, some claimed, received excessively favourable treatment from Britain's public services (especially in the allocation of social housing) without a commensurate willingness to integrate into British society. In May the extreme nationalist, anti-immigration British National Party gained 27 seats in local elections in different parts of England. In the London borough of Barking and Dagenham, in the capital's poor and ethnically diverse East End, the BNP gained 12 seats to become the main opposition to the local Labour council. Overall, as a proportion of the 4,400 seats across England that were being contested, the BNP's performance was modest, but many mainstream politicians and commentators expressed concern that the party could achieve even this level of success.

      On a happier note, Queen Elizabeth II celebrated her 80th birthday on April 21. Although the queen started to scale down her public duties, she still maintained a demanding schedule and gave no indication that she would abdicate, despite her age.

Economic Affairs.
      The U.K.'s economic growth rate recovered from 1.7% in 2005 to about 2.6% in 2006. Employment reached a new record of 29 million, but the labour force grew even faster, partly as a result of immigration from Eastern Europe, so the rate of unemployment also increased, to 5.5%. Inflation rose slightly during the course of the year, to 2.5% (a half point above the government's target rate of 2%). In order to stem the rise in inflation, the Bank of England hiked its benchmark repo rate in August from 4.5% to 4.75% and in November to 5%.

 Chancellor of the Exchequer Gordon Brown made it clear during the year that the level of borrowing, though within the European Union's guidelines, meant that growth in public spending would have to be curtailed for the next few years. This did not prevent him from setting a new long-term objective for Britain's state-funded schools to receive enough extra money to match the funding-per-pupil rate achieved in private schools, in which class sizes tended to be smaller.

      Overall, the Organisation for Economic Co-operation and Development reported that public spending in the U.K. reached 42.4% of GDP in 2006, up from 39.3% when Labour came to power in 1997. Brown's allies argued that this had been necessary to improve the country's infrastructure and public services, but his critics argued that the increase threatened the U.K.'s international competitiveness.

Foreign Affairs.
      British troops continued to play a significant role in Iraq and Afghanistan. Britain had 7,200 troops in Iraq at midyear, mainly in Basra and the southeastern part of the country. This was less than half the number stationed in Iraq in 2003, shortly after the initial phase of the U.S.-led war, and British ministers indicated in late 2006 that they hoped that Iraq's own police and security forces would become strong enough for most of the remaining British troops to be withdrawn within 18 months. The number of British troops in Afghanistan, however, increased substantially, reaching 5,600 in November. Of these, 1,300 were stationed in Kabul and 4,300 in the southern province of Helmand.

      Britain's military presence in both countries was a matter of domestic contention; opinion polls showed that a large majority of British voters believed that victory—over the insurgents in Iraq and the Taliban in Afghanistan—was not attainable and that the troops should be brought home within months rather than years. The controversies were intensified by a newspaper interview given on October 13 by Sir Richard Dannatt, chief of the British army's general staff, in which he appeared to repudiate the government view that the U.K.'s presence in Iraq was vital to the fight against international terrorism. Dannatt said that British forces should be withdrawn “soon,” in part to allow more troops to be sent to Afghanistan, where he expressed greater confidence that with sufficient Western military force, the Taliban could be defeated.

      Controversy also erupted when both Blair and his new foreign secretary, Margaret Beckett (Beckett, Margaret ) (see Biographies) refused to condemn Israel's invasion of Lebanon in July. The prime minister insisted that it was more important to keep channels of communication open to both sides and to exert pressure privately rather than to make public gestures. Blair announced that he would launch a diplomatic initiative to restart Middle East peace talks, and his foreign policy adviser, Sir Nigel Sheinwald, made a number of trips to the region, including a visit in late October to Damascus to meet with Syrian Pres. Bashar al-Assad.

Northern Ireland.
      On April 6 at a meeting in Armagh, N.Ire., Blair and Irish Prime Minister Bertie Ahern unveiled a new plan to restore devolution. The Northern Ireland Assembly, which had been suspended in October 2002, was scheduled to reconvene in May. If the parties could not agree on a new executive, then they would have until November to resolve their differences. If there was still deadlock, the Assembly would be wound up and its members' salaries stopped.

      On May 22 Ian Paisley, the leader of the Democratic Unionist Party (DUP), rejected a nomination from Sinn Fein to become first minister, with Sinn Fein's Martin McGuinness as deputy first minister. Paisley refused to share power with people who, he said, “condoned and even planned murders, who robbed banks, who committed criminal acts and who will not support the police.”

      With the November deadline approaching, Blair and Ahern brought Northern Ireland's leading politicians together in October at St. Andrews, Scot., to try to break the deadlock. The two prime ministers announced a plan for reviving devolution, the two main requirements of which were that all parties accept the police and courts (which Sein Fein had been reluctant to do) and that all the main parties agree to power sharing (a stumbling block for the DUP). The blueprint, unveiled on October 13, called for the parties to respond by November 10 and to reach agreement on a first minister and a deputy by November 24. If this happened, a referendum on the new arrangements would be held, with the new Northern Ireland executive taking office in March 2007.

      On November 24 Paisley finally acknowledged that he would accept nomination as first minister, with McGuinness as his deputy, provided that a number of conditions were met. The most significant of these was that Sinn Fein publicly carry out Blair's wish that it accept the police and courts. Eventually, the pressure had its effect. On December 29 Sinn Fein's leadership voted by 2–1 to convene a special party conference in January 2007 to debate a motion to “actively encourage everyone in the community to cooperate fully with the police services in tackling crime in all areas and actively supporting all the criminal justice institutions.” With the way apparently open to a full restoration of devolved government, Peter Hain, the U.K.'s Northern Ireland secretary, described this development as “seismic in its implications” for the province's future.

Peter Kellner

▪ 2006

Introduction
Area:
242,514 sq km (93,635 sq mi)
Population
(2005 est.): 60,020,000
Capital:
London
Chief of state:
Queen Elizabeth II
Head of government:
Prime Minister Tony Blair

      Three of the most significant events for the United Kingdom in 2005 took place in the space of just three days. On July 6 London was named as the city that would host the 2012 Olympic Games. The following day 56 people were killed in central London by four separate, almost simultaneous, suicide bombs. A day later Prime Minister Tony Blair (Blair, Tony ) (see Biographies) announced that the Group of Eight (G-8) summit being held in Gleneagles, Scot., had agreed to a massive increase in aid to Africa to help alleviate poverty in the world's poorest continent.

Domestic Affairs.
      In May Blair led the Labour Party to its third successive general- election victory, despite a drop from 412 seats in Parliament to 356. (See Sidebar (British Election of 2005 ).) Immediately after the election, there was widespread speculation that he might not remain prime minister for more than about a year. Blair had indicated in September 2004 that he would step down as Labour leader shortly before the next election, due in 2009 or 2010. Following the 2005 victory—and in light of Labour's sharply reduced majority—a number of Labour MPs and media commentators predicted that Blair would be forced to resign much earlier.

      The events of July 6–8 extinguished such speculation for the time being. Blair played a major role in London's victory in the contest to stage the 2012 Olympics. He had flown to Singapore, where the International Olympic Committee was meeting, and lobbied a number of IOC members personally. His efforts were credited in part for London's defeat of Paris, the favourite to host the Games, in the final days of the IOC's deliberations.

 The suicide bombers on July 7 struck without warning and exploded bombs in three underground (subway) trains and one bus. Within a week the police had analyzed enough forensic evidence and tapes from closed-circuit-television cameras to identify the bombers as three British-born Muslims from Leeds and one Jamaican-born man living in Aylesbury, Buckinghamshire. These were the first suicide bombings ever carried out in Great Britain, and they caught the U.K.'s intelligence services completely by surprise. London's bus and underground system was immediately closed down, but within days the network was back to normal, except for the areas of the underground directly affected by the bombs.

      Blair was hosting the summit of G-8 leaders in Gleneagles when he was informed about the bombings. He interrupted the meeting to fly back to London to oversee the governmental and police response to the attacks and then returned to Scotland. By the time he announced on July 8 the progress that he had made at Gleneagles, especially on aid to Africa, talk of an early handover to Gordon Brown, the chancellor of the Exchequer, had subsided.

      On July 21 London's transport system was targeted by four more bombers, but on this occasion none of the devices exploded. In the days that followed, police arrested three men in London for terrorist offenses and traced a fourth man to Rome, where he was held by the Italian police and subsequently extradited to Britain. Blair and the London police were widely hailed for their handling of the two sets of bombings. Praise for the police was short-lived, however, when on July 22 they shot dead an innocent Brazilian worker, Jean Charles de Menezes, at Stockwell Station in south London. At first the police said that Menezes was acting suspiciously and had run from the police when challenged. It was later learned that he had not run from the police and had indeed been restrained by police officers before being shot eight times.

      Following his summer holiday, the prime minister sought to increase the pace of his planned reforms, especially of the public services. In his speech to Labour's annual conference in September, Blair admitted, “Every time I've ever introduced a reform in government, I wish in retrospect I had gone further.” Four weeks later he unveiled controversial plans to give each state secondary school far greater independence and to reduce the powers of the elected local education authorities. These proposals built on previous reforms, which allowed new kinds of state schools to be created, including some run and/or partly financed by private businesses. By the end of 2005, Blair was well on the way to dismantling the system of comprehensive schools that had dominated the education of 11–18-year-old pupils for more than 30 years.

      Blair knew that his proposals would face opposition from some politicians in his own party, but he had become used to that. As part of his attempts to combat terrorism, he backed a number of measures that critics alleged would harm civil liberties without, in practice, making Britain any safer. These schemes included the issuance of control orders (akin to house arrest) against people suspected of terrorism in cases in which there was insufficient usable evidence to bring them to trial, plans to allow the police, in exceptional circumstances, to hold suspects for up to 90 days without charge, and the introduction of national identity cards. On November 9 some Labour MPs joined forces with the opposition parties to reduce the maximum time for holding terrorist suspects to 28 days. It was the first time that the Blair government had been defeated in the House of Commons since it came to power in 1997.

      On November 2 one of Blair's closest allies, David Blunkett, resigned from the cabinet for the second time in less than 12 months. Blunkett had been appointed secretary of state for work and pensions in May, five months after he had resigned as home secretary in the fallout from a failed love affair. During his period out of office, Blunkett joined the board of (and received shares in) a small British company. At the end of October, the news emerged that Blunkett had failed to seek the permission of a committee created to regulate the private work that ministers who had recently left office were allowed to accept. This disclosure provoked a controversy that forced Blunkett to resign again.

      Meanwhile, the opposition Conservative Party, which had failed to topple Blair despite a net gain of parliamentary seats, sought a new leader. On the day after the general election, Michael Howard announced his intention to resign as soon as his successor had been chosen. This process was unusually protracted. Howard wanted to change the party rules first, so that the final choice of leader was made by the party's MPs rather than by the wider party membership. A party ballot was held on this proposal, but it did not quite obtain the two-thirds majority it needed to take effect. In early October a two-month contest was started under the old rules. After two ballots by party MPs, the names of the top two candidates were submitted to the wider party membership. One was David Davis, a 56-year-old right-winger who had been brought up by his mother in a south London council house and had served as minister for Europe in the 1990s. His rival was a 39-year-old centrist, David Cameron (Cameron, David ). (See Biographies.) Despite having no government experience and very little experience of opposition politics at the highest level, Cameron quickly captured the imagination of party members as a charismatic speaker. He defeated Davis by 68–32% in the ballot of party members and became party leader on December 7. Cameron immediately signaled a shift away from the right and toward more centrist policies, including greater emphases on improving public services, redistributing wealth to Britain's poor, and combating global poverty.

      On April 9, after considerable legal debate, Prince Charles, the heir to the British crown, was married to his long-term partner, Camilla Parker Bowles, who would henceforth be called Camilla, duchess of Cornwall . (See Biographies.) The civil wedding took place in Windsor and was followed by a service of prayer and dedication in St. George's Chapel at nearby Windsor Castle. In November the newlywed couple made an official visit to the United States as their first overseas tour together.

      The Scottish Parliament, established in 1999, continued to set its own distinct priorities, especially in social policies. In October 2005 it decided to abolish charges for eye tests by 2007. Scotland and England also moved at slightly different speeds toward a ban on smoking in enclosed public spaces. In June the Scottish Parliament voted to ban smoking in all bars, restaurants, offices, and enclosed public spaces from March 2006. England seemed likely to follow suit, but a dispute between members of Blair's cabinet erupted in October. The result was a decision to impose a slightly weaker ban in England, under which smoking would continue to be allowed in private clubs and in bars that did not serve food, while it would otherwise be banned in offices, restaurants, and bars that did serve food.

Economic Affairs.
      In the view of many commentators, Gordon Brown's luck ran out in 2005. In his annual budget statement on March 16, the chancellor predicted that Britain's economy would grow by 3–3.5% in 2005. Later in the year, when it became clear that both consumer spending and export markets were growing far more slowly than expected—partly because of rising world oil prices—the forecast for domestic growth was revised down to 1.75%.

      On its own, slower economic growth was not fatal. Brown could boast that Britain's economy had grown in every quarter for 13 years—“the longest period of sustained economic growth since records began in the year 1701.” The slowdown caused a slight rise in unemployment to almost 5% by the end of the year, as well as a deterioration in the public finances. In March Brown promised that public borrowing would fall from £38 billion (£1 = about $1.75) in 2004–05 to £32 billion in 2005–06. By the end of 2005, however, it was clear that public borrowing in the 2005–06 fiscal year would be higher than the year before. Partly in response to the slowdown in the economy, the Bank of England reduced the benchmark “repo” interest rate in August from 4.75% to 4.5%.

      A telling sign of the long-term decline of British manufacturing was the sale of two once-dominant companies to foreign owners. Automaker MG Rover Group was sold in July to China's Nanjing Automotive Corp., and the electronics company Marconi Corp. (formerly General Electric Co.) was acquired in October by the Swedish telecommunications giant Ericsson. A generation earlier Rover and General Electric had been two of Britain's biggest employers.

Foreign Affairs.
      The U.K. held the G-8 presidency for 2005 and the presidency of the European Union for the second half of the year. Blair sought to use the combination of the two roles to achieve three objectives—extra aid for Africa, agreement on further measures to tackle climate change, and agreement on a new EU budget strategy for 2007–13.

      The greatest progress was made on aid for Africa. On June 11 the finance ministers representing the G-8 members agreed to write off the debts of 18 African countries. Brown, chairing the London meeting that reached the deal, said that an additional 20 countries would be eligible for debt relief if they met targets for good governance and tackling corruption. At the summit of G-8 leaders in Scotland in July, agreements were reached to increase aid to Africa substantially. The deal was praised by, among others, rock-concert organizer Sir Bob Geldof and economist Jeffrey Sachs (Sachs, Jeffrey D. ). (See Biographies.)

      Less progress was made on climate change. In the face of U.S. opposition to the Kyoto Protocol, the final G-8 communiqué contained no targets for the reduction of emissions, no help for new low-carbon technologies, and no assistance for less-developed countries. Blair defended the weak wording of the communiqué by saying that it was vital to involve the U.S. in discussions about climate change. Without U.S. cooperation, it would be impossible to ensure that large emerging economies such as China and India also contributed to global attempts to curb climate change. (See Environment: Special Report. (Kyoto Protocol: What Next? ))

      Reform of the EU's budget fared the worst. For 20 years the U.K. had received an annual rebate, mainly to compensate for the fact that the U.K. had a relatively small farm sector and thus received little money from the EU's Common Agricultural Policy (CAP). Blair was willing to give up most or all of the rebate in return for radical reform of the CAP. Such reform was rejected by other countries, notably France. A compromise was agreed on December 17 whereby the U.K. would give up part of its rebate in return for a program of support for the EU's new member countries in Central and Eastern Europe and a review of the EU's budget, including the CAP. Critics complained that there was no guarantee that the review would propose substantial changes to the CAP or that such proposals would be accepted by other EU governments. Meanwhile, Blair put off any referendum on the proposed EU constitution after it was rejected by voters in France and The Netherlands. (See European Union: Sidebar (European Union's Proposed Constitution ), above.)

Northern Ireland.
      The early months of 2005 saw two setbacks for the Provisional Irish Republican Army (IRA). British ministers blamed the IRA for having organized a £26.5 million bank raid in Belfast in December 2004, and the group was forced to admit that on January 30 its members murdered a locally popular nationalist, Robert McCartney, in Belfast. The IRA subsequently expelled three of its members for the murder and offered to shoot the offenders. McCartney's family rejected this offer and asked that the men be handed to the police for prosecution. The family won support from many quarters for their campaign—including from U.S. Pres. George W. Bush, who met with McCartney's sisters and fiancée in Washington, D.C. On June 1 two men were arrested and charged with McCartney's murder.

      The U.K. general election on May 5 was a disaster for the once-dominant Ulster Unionist Party (UUP), which lost five of its six seats, including that of its leader, David Trimble, who had been Northern Ireland's first minister during the brief period of devolved government following the 1998 Good Friday Agreement. Trimble resigned as UUP leader immediately after his defeat. The Democratic Unionist Party (DUP), which had opposed the Good Friday Agreement, emerged as the province's biggest party, with 9 of Northern Ireland's 18 seats, a gain of 4 since 2001. On the nationalist side, Sinn Fein (five seats; up one from 2001) increased its lead over the Social Democratic and Labour Party (SDLP; unchanged with three seats). Thus, the two moderate parties, UUP and SDLP, which had worked closely to bring peace to the province, found themselves outflanked by the more militant DUP and Sinn Fein, between which communication was virtually nonexistent.

      Few observers were surprised that little political progress was made in 2005 toward a new agreement that would allow a resumption of devolved government. In response to continuing pressure, however, the IRA announced on July 28 that it had ordered all its units to “dump arms.” On September 26 Gen. John de Chastelain, the head of the independent decommissioning body, said that he was satisfied that all the IRA's arms were now beyond use. DUP leaders refused to accept this statement, as no firm evidence, such as photographs of the decommissioned weapons, had been provided to support de Chastelain's statement.

Peter Kellner

▪ 2005

Introduction
Area:
242,910 sq km (93,788 sq mi)
Population
(2004 est.): 59,561,000
Capital:
London
Chief of state:
Queen Elizabeth II
Head of government:
Prime Minister Tony Blair

Domestic Affairs.
      Throughout 2004 United Kingdom domestic politics was overshadowed by disputes over Britain's involvement in Iraq. These disputes concerned both the deployment of British troops in Iraq and whether government ministers had told the truth when they said before the war that Pres. Saddam Hussein had weapons of mass destruction (WMD) at the time of the 2003 U.S.-led invasion of Iraq.

      On January 28 Lord Hutton, a senior judge, published his report on the circumstances that led to the suicide in July 2003 of David Kelly, a government expert on WMD. Kelly had been the source of a controversial allegation by a BBC reporter that the government had deliberately misled the public about WMD. Hutton exonerated ministers and criticized the BBC. The BBC's chairman and director-general, as well as the reporter who had broadcast the initial allegation, all resigned. Public opinion polls showed that most Britons considered the Hutton report a whitewash and thought that ministers deserved far more criticism than the BBC.

      To address the continuing public debate about the quality of the intelligence about WMD, Prime Minister Tony Blair established a fresh inquiry led by Lord Butler, a former cabinet secretary. On July 14 Butler published his report. He found that much of the intelligence was either wrong or greatly exaggerated, most notably the claim that Saddam had the ability to unleash WMD within 45 minutes of an order's being given to use them. More generally, Butler found that the initial highly tentative and qualified assertions about WMD prepared within the intelligence services had been wrongly converted into hard, unqualified statements by the time they were issued to the general public, most notably in a September 2002 dossier that had highlighted the 45-minute claim.

      Blair endorsed Butler's conclusions and accepted responsibility for what had happened, but the prime minister was reluctant to apologize for anything, least of all for having taken Britain to war, and he continued to insist that Saddam had been intent on developing WMD, that Saddam had repeatedly acted in defiance of the UN Security Council, and that—despite Iraq's continuing problems—the country was far better off without Saddam. On October 13 Blair issued a narrowly worded apology “for any information given in good faith that has subsequently turned out to be wrong.”

      Blair's lack of penitence upset not only opponents of the war but also many voters. The prime minister was increasingly seen as arrogant and untrustworthy, and the Labour Party he headed suffered a series of electoral reverses. It lost 479 seats (out of 6,000 contested) in local elections held on June 10. In the countrywide elections held on the same day to elect the U.K.'s members of the European Parliament, Labour's share of the vote fell to 23%, five points down on its share in the previous European elections in 1999 and by far its lowest in any national election in over 80 years. Even taking into account the proportional voting system, which helped smaller parties, Labour's share of the vote was little short of disastrous. Labour's vote also fell sharply in three parliamentary by-elections, two in July and one in September. Labour's one consolation was that it was the Liberal Democrats, the third largest party in Parliament, rather than the main opposition Conservative Party, that gained ground.

      In the European elections Conservative support fell to 27%, down from 36% in 1999, as many of the party's traditional voters switched to the previously tiny UK Independence Party (UKIP), which advocated complete withdrawal from the European Union. UKIP won 16% support and secured 12 of the U.K.'s 78 seats in the European Parliament. UKIP's vote reflected not only disenchantment among many voters with the EU and the Conservative Party but also support for the candidacy of Robert Kilroy-Silk, a Labour MP in the 1970s who had spent 18 years as a daytime-television personality and newspaper columnist. On October 27, however, Kilroy-Silk resigned from the UKIP group in the European Parliament following a failed attempt to call for a vote to replace Roger Knapman as UKIP's leader.

      The Conservatives hoped that UKIP's support would melt away as the next general election, expected in 2005, approached. In the September by-election in Hartlepool, triggered by the departure of Labour MP Peter Mandelson (see Biographies (Mandelson, Peter )) to become a European commissioner, however, UKIP's candidate overtook the Conservative hopeful, who came in fourth. The Conservatives' poor performance was bad news for party leader Michael Howard (see Biographies (Howard, Michael )), but there was no appetite within the party for replacing Howard just one year after the previous Conservative leader, Iain Duncan Smith, had been deposed for failing to attract enough voters.

      Labour's only clear electoral triumph in 2004 was in London, where Ken Livingstone was comfortably reelected mayor. Even this was a mixed blessing for Blair, who had long been a committed foe of Livingstone, a left-winger who opposed the Iraq war.

      Although Blair was only 50 at the start of 2004, speculation persisted that he might resign before the next general election, which was expected to be held in 2005. On September 30, on the eve of a minor hospital procedure to treat an irregular heartbeat, Blair announced that he would remain prime minister through the following Parliament (assuming Labour remained in office) but would step down before the election after that. On December 15 Blair suffered a severe setback when one of his closest allies, David Blunkett, resigned as home secretary. Blunkett, blind from birth and from a poor background, had provided a notable role model for Blair's “opportunity for all” political platform. Following a messy and well-publicized fallout from a failed love affair, however, Blunkett admitted that his staff at the Home Office had acted wrongly in speeding up a visa application for his former lover's nanny. This admission made it impossible for him to remain in office. He was replaced by Education Secretary Charles Clarke.

      Meanwhile, the government continued to provoke controversy, both inside and outside the Labour Party, with its strategy of public-service reform. The most contentious issue concerned higher education. In January the government published a bill to give universities the freedom to charge students fees of up to £3,000 (£1 = about $1.80) a year, compared with the £1,100 then being charged. Clarke said that the money was needed to allow British universities to improve and expand. To offset the pain, he also announced that students could borrow the whole sum at heavily subsidized rates of interest and need start repaying the loan only once their future annual earnings had reached £15,000. When the bill was debated in the House of Commons on January 27, however, 72 Labour MPs voted against the government, which left a majority (normally more than 160) of just 5.

      A different kind of controversy involved plans to ban fox hunting. This traditional pastime was defended on the grounds that it was a form of pest control that brought jobs and pleasure to many in rural areas, but opponents condemned it on the grounds that it was cruel for dogs to pursue foxes to their death. On a number of occasions, the House of Commons had voted to ban hunting with dogs, only to be thwarted by a contrary vote in the House of Lords. In September the government announced that it would invoke the Parliament Act, which allowed the House of Commons to overrule the House of Lords after a year's delay. On November 18 the Hunting Bill became law, banning fox hunting from February 2005.

      While MPs were debating the Hunting Bill on September 15, a group of prohunting protesters managed to enter the chamber of the House of Commons, having evaded Parliament's security systems by masquerading as builders. This was the third security lapse of the year. On May 19 a bag of purple-coloured flour had been hurled at the prime minister from the VIP gallery. The protest, by a group wanting extra rights for divorced fathers, came despite a thick screen's having been installed in front of the public gallery to prevent such attacks. On September 13 a member of the same group, dressed as the comic book hero Batman, evaded police to climb into Buckingham Palace—Queen Elizabeth II's London residence—and onto a palace balcony. These incidents led to debates over whether security in London should be tightened further, to prevent terrorists from repeating these escapades with more sinister intentions.

Economic Affairs.
      Economic growth, which had started to accelerate in 2003, slowed in the second half of 2004. The chancellor of the Exchequer, however, was able to boast toward the end of the year that the economy had grown in each of the 30 quarters since Labour returned to power in May 1997. Both unemployment (at about 5%) and inflation (approximately 2%) remained low. Tax revenues proved to be less than forecast, with the result that the government had to borrow more than it had predicted. The amount borrowed rose to £36.5 billion in the year to March 2004—just over 3% of national income.

      One continuing issue for Britain's economy was the divergence between different sectors of the economy. Output of services continued to grow strongly, while manufacturing output started to decline in the middle of 2004. Companies relying on exports were especially hurt by the weakness of the U.S. dollar. In September Jaguar Cars (a subsidiary of Ford Motor Co. since 1990) closed its historic Coventry factory, where it had made cars since 1928.

      One reason for the reduction in economic growth was the sequence of decisions by the Bank of England to raise interest rates. The benchmark “repo” rate started the year at 3.75%. Four quarter-point increases between February and August took the rate to 4.75%—still low by historical standards but a significant increase for people, especially homeowners, who borrowed money. One effect was to end the rise in house prices. In 2002 and 2003 prices had risen at the rate of 15–20% a year. By October 2004 the main house price indexes were showing slight month-on-month declines.

Foreign Affairs.
      On April 20 Prime Minister Blair announced that a referendum would be held in due course on the EU's new constitution. This announcement was significant for two reasons. First, it represented a reversal of government policy. Blair had previously insisted that the new constitution was merely a “tidying up” exercise and that Parliament alone should decide whether the U.K. ratified it. Second, EU rules required that new treaties (of which the proposed constitution was one) obtain the unanimous consent of all member states. Opinion polls showed that the British public was divided two-to-one against the constitution. By agreeing to a referendum, Blair increased the danger that the U.K. would be unable to ratify it—and therefore would provoke a crisis for the EU as a whole.

      In Iraq, Britain contributed more than 8,000 troops to the multinational force seeking to restore order and prepare the country for elections in 2005. Britain's forces, second in size to those of the U.S., were based in Basra and adjacent parts of southern Iraq. In October 850 troops and support staff from the 1st Battalion, the Black Watch, were sent nearer to Baghdad, for two months, at the request of U.S. military commanders, in order to relieve U.S. troops preparing to assault the rebel-held town of Fallujah.

      The issue of climate change moved up Britain's political agenda in 2004. On September 15 Blair delivered a major speech in which he described global warming as the world's “greatest environmental challenge” and said that the richest nations needed to take the lead in acting together to prevent dire consequences from being felt in 20–30 years. This was, in part, an implied call for the U.S. to do more; although Blair enjoyed close relations with U.S. Pres. George W. Bush over many issues, not least Iraq, there was a gulf between the two leaders on how to combat climate change.

Northern Ireland.
      Northern Ireland's main political institution, the 108-member Assembly, remained inactive throughout 2004, as the largest party, the (Protestant, antirepublican) Democratic Unionist Party (DUP), refused to work with the second largest, (Catholic, republican) Sinn Fein. As the Assembly's rules required a significant degree of cooperation, it remained suspended, and the province was ruled from London.

      On February 3 Paul Murphy, the U.K.'s Northern Ireland secretary, launched a review into the 1998 Good Friday Agreement. With the DUP, which had always opposed the Good Friday Agreement, calling for its repeal and Sinn Fein demanding a withdrawal of all remaining British troops from Northern Ireland, however, progress was inevitably slow. Matters were complicated further on February 20 when attempts were made to abduct an anti-Sinn Fein republican in Belfast. Four men arrested in connection with the abduction were members of the Provisional Irish Republican Army (IRA), which was closely linked to Sinn Fein. Unionists accused Sinn Fein of condoning a breach of the Good Friday Agreement. On March 2 former first minister David Trimble, the leader of the second largest Unionist party, withdrew his party's support for the Good Friday Agreement and the review talks.

      Talks resumed on June 15, though with little sign of a breakthrough. On June 25, following meetings between Blair and Irish Prime Minister Bertie Ahern, Blair announced that all the parties would be invited to meet in September, with each other and with the two prime ministers, to seek a way forward. These talks, which took place September 16–18 at Leeds Castle in Kent, failed to secure agreement. Blair and Ahern offered to restore the Assembly in return for the IRA's giving up its remaining arms; for their part the two unionist parties would have had to agree to share power with Sinn Fein and the more moderate nationalist Social Democratic and Labour Party. Sinn Fein accepted these proposals, but DUP leader Ian Paisley did not. He insisted that the Good Friday Agreement would have to be changed significantly.

      Further attempts to break the deadlock took place in November and early December and involved negotiations in London, Belfast, and Dublin. Agreement was reached on the future of power sharing and the Northern Ireland Assembly, but agreement could not be reached over the decommissioning of the IRA's arms. The IRA indicated its willingness to put all its weapons beyond use by the end of 2004 and for this process to be supervised by Sir John de Chastelain's Independent International Commission on Decommissioning and other witnesses, including at least one nominated by the DUP. The DUP however, insisted that photographs be taken of the destruction of the remaining weapons. On December 8, following the IRA's refusal to accept this condition, Blair announced that the talks had failed; speaking at a joint press conference with Ahern in Belfast, however, he called for an “extra effort to finish the journey” toward a final settlement.

Peter Kellner

▪ 2004

Introduction
Area:
244,101 sq km (94,248 sq mi)
Population
(2003 est.): 59,164,000
Capital:
London
Chief of state:
Queen Elizabeth II
Head of government:
Prime Minister Tony Blair

Domestic Affairs.
      British politics in 2003 was dominated by the domestic repercussions of the Iraq war. Two cabinet members resigned from the government: Robin Cook, the leader of the House of Commons (and previously foreign secretary), on March 17 in protest against “the decision to commit Britain now to military action in Iraq without international agreement or domestic support,” and Clare Short (see Biographies (Short, Clare )), the international development secretary, on May 12, saying that Prime Minister Tony Blair had reneged on a pledge to work through the United Nations to rebuild Iraq following the war.

      These events took place against a backdrop of public opinion that until mid-March was hostile to military action outside the UN, then was broadly supportive of the war while it lasted and during its immediate aftermath, and after that, from June onward, was increasingly skeptical about the case that Blair and other ministers had made for regarding Iraqi Pres. Saddam Hussein as a dangerous threat.

      These controversies were heightened by accusations by British Broadcasting Corporation reporter Andrew Gilligan that Blair had knowingly misled the public in September 2002 when a government report stated that Saddam was able to deploy weapons of mass destruction (WMD) at 45 minutes' notice. Alastair Campbell, Blair's press secretary, accused the BBC and Gilligan of having made serious allegations that were untrue and that were not checked prior to being published. (Gilligan's reports appeared both on the BBC and in the newspaper Mail on Sunday.)

      Much turned on the reliability of Gilligan's source. On July 4 David Kelly, a WMD expert who worked for the Ministry of Defence, admitted to his line manager that he had spoken to Gilligan. Kelly's name was confirmed to journalists on July 9. On July 15–16 Kelly gave evidence to two different committees of MPs inquiring into the buildup to war. Clearly under strain, he denied he was the source of Gilligan's most controversial allegations. Kelly left his Oxfordshire home on July 17, telling his wife that he was going for a walk. The following morning he was found dead, with one of his wrists severely slashed.

      Blair immediately announced a public inquiry into the circumstances of Kelly's death. The immediate cause was not disputed; Kelly had committed suicide. The inquiry, however, which was conducted by Lord Hutton, a senior judge, effectively turned into an inquiry into the conduct of the government in the build-up to war. Many of the principal politicians and officials gave evidence, ranging from Blair to Sir Richard Dearlove, the chief of Britain's Secret Intelligence Service, MI-6. This was the first time a chief of MI-6 had ever been questioned in public. Like all the officials and politicians questioned, he denied that either ministers or the intelligence services had deliberately exaggerated the threat from Saddam. Nevertheless, the inquiry (whose report was expected to be published in January 2004) uncovered evidence of doubts within the middle ranks of the intelligence community about some of the statements made before the war. It also transpired that Saddam's capacity to unleash WMD within 45 minutes of an order's being given related solely to battlefield weapons and not—in contradiction to many reports at the time—to any capacity to attack British or other Western targets outside Iraq.

      Short's resignation led to the appointment of the first black woman member of a British cabinet. Baroness Amos succeeded Short in May as secretary of state for international development. Five months later she was promoted to become leader of the House of Lords. One of her tasks was to secure the next stage of reform of the Lords. Following the failure on February 4 of the House of Commons to construct a majority for any specific proposal for long-term reform, the government announced that as an interim measure it would prepare a bill to abolish the rights of the remaining 92 hereditary members to sit in the Lords. This would leave the Lords as a wholly appointed chamber. One additional reform was announced in June: the abolition of the post of lord chancellor, which had existed for almost 1,400 years. Lord Falconer (see Biographies (Falconer of Thoroton, Lord )) was appointed in June 2003 as its final holder, pending the post's replacement in due course by a minister of a new Department for Constitutional Affairs.

      Meanwhile, opinion polls were recording widespread disillusion with the Blair government—and not simply because of controversies concerning the Iraq war. Despite presiding over a reasonably strong economy, the government was widely perceived to be failing to improve public services such as health, education, and transport. On September 18 Labour lost one of its safest seats, the north London constituency of Brent East, in a by-election necessitated by the death of the sitting MP. This was the first seat that Labour had lost in a by-election since Blair became party leader in 1994. The seat was taken by the Liberal Democrats, the third largest party in the House of Commons.

      The Brent result was bad not only for Labour but also for the Conservative Party, which came in a poor third. This added to pressure on Conservative leader Iain Duncan Smith. Even though the Conservatives made widespread gains in local elections held in May, he failed to establish the command over the political terrain that opposition leaders historically needed in the midterm of a Parliament in order to win the following general election. The party's annual conference, held October 6–9, was marked by bitter factional infighting. Duncan Smith, who had been elected party leader two years earlier, pleaded for party unity; however, on October 29 Conservative MPs voted 90–75 to eject him and hold a new election for party leader. Only one person put his name forward: Michael Howard, an experienced right-wing politician who had served as home secretary in the previous Conservative government. He duly succeeded Duncan Smith on November 6.

      In May the second round of elections took place for the Scottish Parliament and the Welsh Assembly. In Scotland the ruling Labour–Liberal Democrat coalition remained in power in the 129-seat Parliament, although Labour lost 6 seats to finish with 50, while the Liberal Democrats remained at 17. The Scottish Nationalists won 27 seats, a loss of 8, while the Conservatives held steady with 18. Two smaller parties made significant gains; the Greens won 7 seats, while the left-wing Scottish Socialist Party took 6; each party had previously held only one seat. The remaining four seats were won by three independents and one candidate standing for the Scottish Senior Citizens' Unity Party.

      In Wales Labour gained two seats, to end up with 30 out of a total of 60 seats in the Assembly. The Welsh nationalist party Plaid Cymru won 12 (down from 17), while the Conservatives won 11 (an increase of 2) and the Liberal Democrats were unchanged with 6. The final seat was won by a former Labour MP standing as an independent. With exactly half the seats, Labour decided to govern on its own, rather than continue the Labour–Liberal Democrat administration that had been in power before the election.

      London saw a radical innovation: the introduction on February 17 of a daily £5 ($8) “congestion charge” on all cars entering the centre of the capital between 7 AM and 6:30 PM, Monday to Friday. The aim of this, the first “road tax” of any large city in a major industrialized country, was both to reduce congestion and to raise money to invest in improvements in public transport. Fears that the new system would fail did not materialize. Despite some initial hiccups, the technology worked well. This involved cameras at each entry point photographing auto license plates, and penalty notices being sent to cars whose owners failed to pay the charge by 10 PM. Once the new system had settled down, traffic levels in central London were reduced 16%, and the average speed of traffic during the day was up by 37%, from 13 km/hr (8 mph) to 17 km/hr (11 mph).

Economic Affairs.
      Economic growth remained below trend in 2003, at about 2% a year, but this was a higher growth rate than in most major economies and was sufficient to prevent any significant rise in the U.K.'s low levels of unemployment. Against this, the slow growth meant that government borrowing rose faster than Gordon Brown, the chancellor of the Exchequer, had predicted. By December, Brown had admitted that borrowing in the 2003–04 fiscal year would climb to £37 billion ($62 billion). In the short run he was under no pressure to raise taxes, but many economists predicted that within two or three years the government would have to either raise taxes further or reduce its ambitious plans to increase spending on public services. In July the Bank of England reduced its benchmark “repo” interest rate to 3.5%, the lowest level since January 1955. This lasted until November, when the Bank announced the first increase in almost four years, to 3.75%, in response to evidence that economic growth had started to recover.

      On June 9 Brown announced the results of five tests he had originally said, in October 1997, had to be passed if the government was to call a referendum to recommend that the U.K. enter the European Union's single currency. He reported that despite considerable progress, only one of the tests—that joining the euro would be good for the U.K.'s financial services industry—had been unambiguously passed. In particular, recent signs of convergence in the economic cycles of the U.K. and the euro zone were too fragile for the government to be certain that convergence would last. Although Blair wanted to keep open the option of a referendum before the next general election, which was due in 2005 or 2006, Brown's announcement made it all but certain that any referendum would have to wait until the next Parliament at the earliest.

Foreign Affairs.
      In the early months of 2003, the U.K. worked with the United States to secure a UN resolution explicitly authorizing military action against Iraq. This led to tensions inside the EU, especially with France (like the U.K., a veto-wielding member of the UN Security Council), which opposed any such resolution. On March 18, following the breakdown of negotiations at the UN, the House of Commons voted to commit British troops to a U.S.-led military action to remove Hussein from power. Blair told MPs: “The outcome of this issue … will determine the way in which Britain and the world confront the central security threat of the 21st century. … It will determine the pattern of international politics for the next generation.” (See United Nations: Special Report (What Ails the UN Security Council? ).)

      Altogether, 45,000 British service personnel took part in the invasion, including 26,000 ground troops. Britain deployed 116 Challenger 2 tanks and 100 aircraft (including helicopters). The main function of the British contingent was to liberate southern Iraq, especially Basra. (Smaller numbers of British special forces were engaged in particular missions behind the lines in western and northern Iraq.) Following the war British troops continued to occupy Basra, seeking to restore civil society to the city. They adopted a “soft-hat” strategy, in which soldiers, wherever possible, patrolled the streets with only light arms and wore berets rather than hard hats. Postwar Iraqi resistance actions against the British troops in Basra were far fewer than U.S. troops faced in Baghdad, but sporadic assaults still took place.

      Closer to home, on July 8 Blair welcomed the draft EU constitution, which had been drawn up by a group chaired by former French president Valéry Giscard d'Estaing, as “a pretty good outcome for Britain.” The prime minister argued that it largely involved a tidying up of existing arrangements, in contrast to the Conservative Party and other critics, who said that the new constitution would take more powers from member states and transfer them to the EU. In negotiations over the new constitution, the U.K. had resisted attempts by some other EU members to extend majority voting to matters of foreign affairs and taxation. Nevertheless, polls showed widespread public hostility within the U.K. to the new constitution; when negotiations collapsed at the EU summit in Brussels on December 13, Foreign Secretary Jack Straw expressed only mild disappointment.

Northern Ireland.
      At the start of 2003, Northern Ireland was ruled directly from London, following the suspension of the Northern Ireland Assembly and Executive in October 2002. Negotiations aimed at easing the political tension and paving the way for new Assembly elections were slow and faltering. The elections, due to be held on May 1, were twice postponed—initially until May 29, and then until the autumn. Following the announcement on May 1 of the second suspension, the British and Irish governments issued a joint declaration about the future of the peace process. Britain promised to reduce the number of troops in the province and to give up its power to suspend the Assembly in return for a complete end to all paramilitary violence and the establishment of an independent monitoring body that would have the power to punish organizations, including political parties, associated with any outbreak of future paramilitary violence.

      David Trimble, Northern Ireland's first minister, made it clear, however, that he would resume his position and work with Sinn Fein, the political wing of the Provisional Irish Republican Army, only if the IRA went farther than it had before to declare a complete end to its war against Northern Ireland's status as part of the U.K. For some hours on October 21, following weeks of behind-the-scenes negotiations, the deadlock appeared to have been broken as a rapid succession of carefully choreographed moves occurred. Britain announced that the Assembly elections would take place on November 26; Gerry Adams, the president of Sinn Fein, went farther than ever before to embrace purely political means for advancing the republican cause and opposing “any use or threat of force for any political purpose”; the IRA issued a statement endorsing Adams's words; and Gen. John de Chastelain, the Canadian head of the independent body overseeing arms decommissioning, announced that the IRA had “put beyond use” a substantial quantity of arms that was “larger than the quantity put beyond use” previously.

      Optimism that the peace process was back on track was punctured hours later by Trimble, who said that not enough had been done for the Ulster Unionists to reenter power sharing with the republicans. He declared that too little information had been given about the scale of the IRA's latest act of decommissioning, and without more transparency from the IRA, he could not share power with Sinn Fein.

      Nevertheless, fresh elections for the 108-seat Northern Ireland Assembly were held on November 26. The outcome was a setback for the two moderate parties that had championed the peace process—the Ulster Unionists and the mainly Catholic Social Democratic and Labour Party. The Ulster Unionists lost one seat to end up with 27 and were overtaken as the largest party by the Democratic Unionists (30, up 10), which had consistently opposed the 1998 Good Friday Agreement. The SDLP (18 seats, down 6) was overtaken by Sinn Fein (24, up 6). Smaller parties won 9 seats in all, down 9. Following the elections, Blair decided not to revive the Northern Ireland executive for the time being, as it was clear that the two largest parties, the Democratic Unionists and Sinn Fein, would be unable to work together, as required by the Good Friday Agreement.

      Meanwhile, additional evidence had come to light about what had happened during the conflict between 1969 and 1997 between the IRA and the British army. On April 17 Sir John Stevens, the head of London's Metropolitan Police, published the results of an official inquiry into allegations of collusion between the British army and antirepublican “loyalist” (i.e., Protestant) terrorist groups. In his exceptionally tough report, Stevens reported that his inquiries had been obstructed by the army and local police officials. His own incident room had been destroyed by fire, which in his view was “a deliberate act of arson.” Nevertheless, he stated: “My enquiries have highlighted collusion, the willful failure to keep records, the absence of accountability, the withholding of intelligence and evidence, and the extreme of agents being involved in murder. These serious acts and omissions have meant that people have been killed or seriously injured.”

Peter Kellner

▪ 2003

Introduction
Area:
244,101 sq km (94,248 sq mi)
Population
(2002 est.): 60,178,000
Capital:
London
Chief of state:
Queen Elizabeth II
Head of government:
Prime Minister Tony Blair

Domestic Affairs.
      The year 2002 was noteworthy as the Golden Jubilee of Queen Elizabeth II (see Biographies (Elizabeth II )), who had ascended to the throne in 1952. The two months of official celebrations, however, were preceded by the deaths of her sister, Princess Margaret (Margaret, Princess ), and their mother, Queen Elizabeth, the Queen Mother (Elizabeth, the Queen Mother, Queen ) (see Obituaries), and were followed by a controversial court case toward year's end.

      In November the queen faced criticism for having held back evidence in the trial of Paul Burrell, a former butler to Diana, princess of Wales, the queen's former daughter-in-law who had died in 1997. Burrell had been charged with the theft of some of Diana's possessions after her death. Shortly before he was to give evidence at his trial—evidence that was widely expected to be embarrassing to the royal family—the queen disclosed that Burrell had told her at the time that he was looking after some of Diana's effects. Once this information had been made known to the court, the trial collapsed. Although the queen was largely absolved from personal criticism, the event triggered a national debate about whether British monarchs should continue to be beyond the reach of the courts and police inquiries. After a series of controversies in previous years, this one added pressure on the monarchy to make further accommodation to the modern age.

      The year was no less turbulent for Prime Minister Tony Blair. (See Biographies (Blair, Tony ).) He remained the commanding figure in British politics, but he faced economic difficulties, troubles inside his own government, tensions with the Labour Party's traditional trade union allies, and a widespread popular perception that public services such as health, education, and transport had not improved since he took office in 1997.

      Two cabinet ministers resigned following intense criticism of their performance in office. On May 28 Stephen Byers stood down as secretary of state for transport, local government, and the regions. He was blamed for continuing troubles on Britain's railways, which most travelers regarded as having deteriorated since they were privatized in 1996. Events came to a head when Byers's former press secretary alleged that Byers had misled the House of Commons. Although Byers refuted the allegations, he eventually resigned, admitting that he would “damage the government” if he stayed in office. In the reshuffle that followed, Blair appointed Paul Boateng as Britain's first black cabinet minister. Boateng became chief secretary to the treasury—in effect, the deputy of Gordon Brown, the chancellor of the Exchequer.

      On October 23 Estelle Morris resigned as education secretary. Like Byers, she had faced weeks of pressure, in her case over a variety of specific problems ranging from errors in the marking of A-level examinations (the tests used to allocate university places) to severe delays in criminal records checks on school employees. (The checks had been ordered following the deaths of two young girls and the arrest of a part-time teacher and school janitor for their murder.) When Morris, herself a former teacher, resigned, she made the unusual admission for a front-rank politician that she was “not good at dealing with the modern media” and, more generally, “not as effective as I should be, or as effective as you [Blair] need me to be.”

      Internal Labour Party matters caused Blair some concern through the year. Against a backdrop of declining membership—down by almost a third since 1997, from 405,000 to 280,000 in 2002—the party suffered severe financial problems. On January 2 the General, Municipal and Boilermakers' Union, one of the largest trade unions (traditionally Labour's biggest sources of income), announced that it would reduce its donations to the party by £2 million (£1 = about $1.58) over five years, in protest against the increasing use of private management in the public sector. Other large unions followed suit. Labour's attempts to compensate by seeking money from the private sector backfired when, on May 12, it was disclosed that the party had received money from Richard Desmond, the proprietor of the Daily Express tabloid newspaper and publisher of a number of pornographic magazines.

      Against this backdrop, the Conservatives might have expected strong advances as Britain's main opposition party. In fact, the party remained well behind in the opinion polls, and its leader, Iain Duncan Smith, found it difficult to make headway. Opinion polls asking who would make the best prime minister found that he trailed far behind Blair and even behind Charles Kennedy, the leader of the Liberal Democrats. On July 23 Duncan Smith sacked David Davis as Conservative Party chairman and replaced him with Theresa May, the first woman to hold the post, in an attempt to revive the party's fortunes.

      May and Duncan Smith sought to assert their authority over a party increasingly divided between modernizers and traditionalists. The modernizers wanted an active strategy to secure more women and ethnic minority Conservative MPs and to end the party's hostility toward unmarried and gay couples and single parents; traditionalists largely opposed these plans. The leader and the chairman appeared to side with the modernizers when, on July 29, they welcomed the acknowledgement by Alan Duncan, the deputy foreign affairs spokesman, that he was gay. He was the first Conservative MP ever to volunteer such a statement. At the party's annual conference, May said that the Conservatives had to shed their image as the “nasty” party; Duncan Smith said the party needed to come to terms with “the way life in Britain is lived today, and not the way it was lived 20 years ago.”

      Less than a month later, however, Duncan Smith upset the modernizers when he committed his party to opposing government plans to allow unmarried and gay couples to apply to adopt children. One member of Duncan Smith's shadow cabinet resigned, and one in four Conservative MPs failed to support the party line in a vote in Parliament on November 4. The following day Duncan Smith delivered a short speech to the media in which he said, “A small group of my parliamentary colleagues have decided consciously to undermine my leadership.” He concluded, “My message is simple: unite or die.”

      One major piece of social reform was unveiled on July 10 when Home Secretary David Blunkett announced that cannabis (marijuana) would be downgraded from a “class B” to a “class C” drug. Although possession of the drug would technically remain a criminal offense, in practice those in possession of small quantities would no longer be prosecuted. Blunkett announced that this change would free police forces to devote more resources to fighting drug dealers and the users of “hard” drugs such as heroin and cocaine.

Economic Affairs.
      For the second successive year, growth in the British economy slowed, declining to less than 2%, but fears of a recession, prompted by weaknesses in the global economy, did not materialize. Unemployment remained broadly stable throughout 2002, at just over 5% (according to the definition set by the International Labour Organization), while inflation remained subdued at around 2%. The Bank of England maintained its main “repo” rate at 4% throughout the year. This historically low rate contributed to a sharp rise in house prices, which at the end of 2002 were on average almost 30% higher than a year earlier.

      London's stock market fared less well, reflecting both the low rate of economic growth and turbulence on Wall Street. For the third successive year, share prices on December 31 were lower than those of 12 months earlier. This in turn put pressure on pension funds. A number of large companies dropped their commitment to link pensions to retiring employees to their final salary; henceforth, pensions would depend on the value of the underlying fund.

      For the government the clearest negative impact of the economic slowdown was on the public finances. In his annual budget, delivered in April, Brown forecast that the government deficit would reach £11 billion in the fiscal year ending March 2003. By November he had raised this forecast to £20 billion. He also said that the strength of Britain's underlying public finances meant that he would be able to fill the gap by borrowing more rather than by raising taxes further.

      In his budget speech Brown did announce future tax increases totaling £8.3 billion a year, mainly to pay for increased spending on the National Health Service (NHS). At the general election in 2001, Labour had promised to raise the budget of the NHS, as a percentage of national income, to the average European level. After leading a debate on the alternatives, Brown rejected a greater reliance on private medical care or new forms of social insurance. He argued that a nationally funded service, free at the point of use, remained the fairest and most efficient means of funding and organizing the NHS, notwithstanding criticisms that the NHS had become one of the worst health services in the developed world. Brown linked the injection of extra money to a program of reforms designed to correct the NHS's organizational weaknesses.

Foreign Affairs.
      Throughout 2002 Blair worked closely with U.S. Pres. George W. Bush on strategy regarding Iraq. In part, this represented a continuation of a partnership between the two countries that had begun in the 1990s with British aircraft help in patrolling the “no-fly” zone in Iraq south of the 33rd parallel. During 2002 the prime minister expressed his willingness to commit British troops to fight alongside American troops in a possible military action in Iraq—if necessary without UN approval. Blair, however, made clear his own strong preference for any such action to be authorized by the UN Security Council—a case he put strongly to Bush when the two men met in Washington on September 7. On September 24 Blair published a 50-page dossier setting out evidence of Iraq's accumulation of weapons of mass destruction. The report argued that Iraq had “military plans” for the use of chemical and biological weapons, even against its own population. It also said that Iraqi leader Saddam Hussein could have a nuclear weapon within two years if he could obtain weapons-grade material from abroad.

      Britain's relations with France deteriorated in October following a deal between French Pres. Jacques Chirac and German Chancellor Gerhard Schröder over the future of the European Union's (EU's) Common Agricultural Policy (CAP). Blair blamed Chirac for insisting on only limited reforms to the CAP, which, Blair argued, would continue to mean that around half the EU's budget would continue to be spent on agriculture and that poorer countries would continue to be denied free access to European markets. At an angry exchange between the two men in Brussels on October 25, Blair accused Chirac of reneging on previous commitments to reform the CAP and open Europe up to global food markets. Chirac retorted by calling Blair “very rude” and by postponing a summit meeting that the two men had planned to hold in December.

      One reason for Blair's anger was that he had set great store by free trade in helping to alleviate poverty, especially in Africa. He wanted to open Europe's markets to more food imports from the Third World. At the Group of Eight (G-8) summit meeting in Canada in June, Blair was one of the prime movers in an agreement to support the New Partnership for Africa's Development. He also announced at the G-8 summit that British aid to Africa would rise from £632 million to £1 billion by 2006.

Northern Ireland.
      On October 14 Northern Ireland's government and Assembly were suspended for the fourth time since their establishment in 1998. John Reid, the U.K.'s Northern Ireland secretary, announced the suspension in the wake of police raids on the offices at Stormont (the home of the Assembly in Belfast) of Sinn Fein, the republican party with close links to the Irish Republican Army (IRA).

      The raids, which took place on October 4, led to Sinn Fein's head of administration being charged with having documents likely to be of use to terrorists. The police said that computer disks obtained during the raids contained large amounts of sensitive information, including the personal details of the senior British army officer in Northern Ireland, Lieut. Gen. Sir Alistair Irwin. First Minister David Trimble, of the Ulster Unionist Party, threatened to withdraw his ministers from the Assembly unless action was taken against Sinn Fein. Reid's decision to suspend the administration was designed in part to forestall the collapse of the Assembly and to allow time for tempers to cool.

      The suspension brought to a head tensions that had been simmering for some months. On March 18 the police disclosed that a break-in had taken place at the Castlereagh Police Station in Belfast, which had been regarded as one of the most secure police stations in the world. The police accused Sinn Fein of being responsible for the break-in. With Sinn Fein on the defensive, its IRA allies sought to regain the initiative. On April 8 the IRA announced that it had placed a second tranche of arms “beyond use.” Although no details were given, Gen. John de Chastelain, the independent international arms inspector, described the event as “substantial.”

      Five days later Gerry Adams, the head of Sinn Fein, told a rally of 2,500 republicans in Dublin that they had to “reach out to make peace with those we have hurt and with those who have hurt us.” This paved the way for an IRA statement on July 17 apologizing to the “noncombatant” victims of its 30-year terrorist campaign against British rule. Trimble, however, accused Sinn Fein and the IRA of hypocrisy, pretending to embrace the peace process but continuing to retain the means to return to violence.

      Although the five-year-old cease-fire by the main paramilitary groups remained in force, 2002 saw a number of local sectarian clashes. In January 500 Protestants rioted in north Belfast against Roman Catholic families walking through their streets to take their children to the Catholic Holy Cross school. In April a group of loyalists attacked the police in Belfast with gasoline bombs. Later that month dissident republicans took the blame for a bomb blast at Northern Ireland's police training college. In May and June rioting moved to east Belfast. It took negotiations between two historic enemies—Adams and David Ervine, leader of the Progressive Unionist Party—to cool tempers.

      Following the suspension of the Executive and the Assembly in October, Blair made it clear that further progress toward peaceful, devolved politics in Northern Ireland would require the IRA to disband. Adams responded by saying that he could envisage a time when the IRA did not exist, but it would not be forced to meet a deadline imposed by London. On October 30 the IRA announced that it had broken off contacts with Chastelain, as a protest against Blair's stance. On October 24, however, Blair had appointed Paul Murphy to succeed Reid as Northern Ireland secretary. Murphy had been a more junior Northern Ireland minister between 1997 and 1999 and had played a leading role in the negotiations that led to the Good Friday Agreement in 1998.

Peter Kellner

▪ 2002

Introduction
Area:
244,101 sq km (94,248 sq mi)
Population
(2001 est.): 59,953,000
Capital:
London
Chief of state:
Queen Elizabeth II
Head of government:
Prime Minister Tony Blair

Domestic Affairs.
      In 2001 Tony Blair, the United Kingdom's prime minister since 1997, confirmed his place as the towering figure in British politics both by leading the Labour Party to its second successive landslide election victory (see Sidebar (British Election of 2001 )) and by winning overwhelming political and public support for his international role in the fight against terrorism following the terrorist attacks in the United States on September 11.

      Blair's year had started less auspiciously, with two major shocks. On January 24 he dismissed Peter Mandelson as Northern Ireland secretary. Mandelson had been accused of giving misleading information about his contacts with two controversial Indian businessmen, the Hinduja brothers, over their applications for British passports. For more than a decade, Mandelson had been one of Blair's closest political associates. Following Mandelson's earlier resignation in December 1998, Blair had provoked criticism by restoring his colleague to the cabinet just 10 months later. On March 9 the report of an official inquiry into the affair cleared Mandelson of any impropriety in his dealings with the Hindujas. It was too late for the former minister, however, and Mandelson acknowledged that his future lay outside the ranks of government.

      By this time Blair was engulfed in a more enduring domestic crisis. On February 20 the U.K.'s first case of foot-and-mouth disease in 20 years was diagnosed among pigs at an abattoir in Essex, 64 km (40 mi) northeast of London. (See Special Report. (Trouble on the Hoof: Disease Outbreaks in Europe )) It turned out that the disease had spread to many parts of the U.K. At its peak in March, over 40 new cases a day were being confirmed. For a while, town dwellers were advised to stay away from the countryside, particularly the normally popular—and heavily infected—tourist destinations of Devon, in the southwest of England, and the Lake District, in the northwest. As a result, much of rural Britain suffered a double loss—the destruction of millions of pigs and sheep in the infected areas and the short-term collapse of tourist income. The rest of Britain, notably London, also suffered a loss of income as overseas tourists, especially from the U.S., decided not to go to the U.K. for the time being.

      So intense was the crisis that Blair took the unprecedented step (for peacetime) of obtaining parliamentary approval to postpone for five weeks local elections due to be held on May 3. This was also the widely expected date for the general election, which was postponed until June 7. By late April the number of new cases had declined to fewer than 20 a day, but the disease lingered through the summer. By September the total number of infected farms had passed 2,000, which made it the worst foot-and-mouth outbreak on record. During the last three months of the year, however, no new cases were reported, and the outbreak was officially declared to be over by year's end.

      Following Labour's reelection on June 7, Blair made a number of changes to his cabinet. He promoted David Blunkett (see Biographies (Blunkett, David )) from education secretary to home secretary, moved Jack Straw from home secretary to foreign secretary, and demoted Robin Cook from foreign secretary to leader of the House of Commons (a position that mainly involved managing day-to-day government business in Parliament). John Prescott and Gordon Brown retained their positions as deputy prime minister and chancellor of the Exchequer, respectively. A record 7 of the 23 members of Blair's new cabinet were women.

      The front ranks of the Conservative Party took longer to sort out. At 7:30 AM on June 8, as the scale of his party's election defeat became clear, William Hague announced his intention to resign as party leader. Five candidates stood in the contest to succeed him. Following two early rounds of voting, in July three candidates remained: Kenneth Clarke, the former chancellor, who argued that the Conservatives needed to become more centrist and pro-European; Michael Portillo, the former defense secretary and onetime right-winger, who argued that the party should be less authoritarian and socially more liberal; and Iain Duncan Smith (see Biographies (Duncan Smith, Iain )), who had no government experience and who retained his right-wing, anti-European Union (EU) views. On July 17, 59 Conservative MPs voted for Clarke, 54 for Duncan Smith, and 53 for Portillo, who was thus eliminated.

      Clarke and Duncan Smith went forward to a runoff ballot in which, for the first time, the party's 320,000 local members decided the victor. The result was announced on September 13. On a 79% turnout, Duncan Smith defeated Clarke 61–39%. Clarke and Portillo both declined to serve in Duncan Smith's shadow cabinet, as did a number of other prominent Conservative MPs, fearing that the party would be too right-wing for them. Duncan Smith's first major act was to give Blair full support in his policy toward terrorism. As a result, normal political contest was placed in abeyance, as were all attempts to make an early assessment of Duncan Smith's skills as a partisan opposition leader.

      On the night of May 26, the U.K.'s generally good relations between its different racial groups were jolted by street battles between groups of whites and Asians in the northern city of Oldham. In the days that followed, riots took place in Leeds, Burnley, and Bradford. Although the riots subsequently died down, they provided a grim reminder that all was not well, especially in northern inner-city areas that contained significant amounts of poverty, bad housing, and unemployment while the rest of the country was enjoying rising prosperity.

      On November 8 Henry McLeish resigned as Scotland's first minister following allegations that he had improperly claimed £36,000 (£1  =  about $1.42) in office expenses while he was a member of Parliament at Westminster. On November 22 Jack McConnell, Scotland's education minister, became the country's new first minister, following his election as the new leader of Scotland's Labour Party.

The Economy.
      In common with much of the world, the British economy experienced a slowdown in 2001, starting in the summer but becoming more severe after September 11. At 2%, however, the growth recorded for the year as a whole compared well with most other industrialized countries. Before September most service sectors prospered, although the tourist-related businesses in parts of the U.K. were badly affected by the foot-and-mouth disease outbreak, which reduced access to the countryside during the spring and the early summer months. Airlines and hotels suffered in the immediate aftermath of the terrorist attacks in the U.S. in September. Many manufacturers, however, found it hard to increase sales, especially exports, at a time when the pound sterling was widely regarded as overvalued against the euro, the EU's single currency, at around £  =  €1.60 throughout the year.

      By midyear, unemployment had fallen below 5% (according to the definition set by the International Labour Organization), but then it started to rise gradually as the effects of the economic slowdown made themselves felt. Inflation remained steady at 2–2.5%. This allowed the Bank of England to reduce its main “repo” rate in stages from 6% in January to 5% in July. Following the events of September 11, the bank authorized two further quarter-point reductions in quick succession, followed by an additional half-point reduction on November 8, to take the rate to 4%, its lowest since 1963. This helped to sustain consumer confidence as well as reduce the cost for home buyers. In addition, retail sales leading up to Christmas were well above those in 2000.

      Speaking to Labour's annual conference on October 2, Blair held out the prospect of a referendum before the next election (to be held by May 2006 at the latest) on whether Great Britain should adopt the euro. He continued to say that the decision would depend on the achievement of five economic conditions, of which the most important was that there be sustained convergence between the economies of the U.K. and the 12 euro-zone countries.

      In October Railtrack—a privatized company floated in 1996 to run Britain's railway tracks and stations—collapsed as the costs of improving safety in the wake of serious crashes in 1999 and 2000 spiraled beyond the company's capacity to fund improvements. This was the first failure of a major company established during the wave of privatizations in the 1980s and '90s. Stephen Byers, the transport secretary, announced that a new company would be established as a nonprofit trust to run the tracks and stations.

Foreign Affairs.
      As soon as the terrorist attacks took place on September 11, Blair committed Great Britain to full support of the United States. The prime minister agreed to deploy British military forces, including bombers and undercover troops. Blair and Straw engaged in intense diplomatic activity, in coordination with U.S. Pres. George W. Bush's administration, in order to maximize the coalition against the al-Qaeda terrorist group in Afghanistan. Between them in the weeks following September 11, Blair and Straw visited Russia, Pakistan, India, Oman, Egypt, Iran, Syria, Saudi Arabia, and Israel. In addition, they helped to secure NATO and EU support for military action against the terrorists. Blair's visit to Damascus in October to meet Syria's president, Bashar al-Assad, was the first in modern times by a British prime minister. Despite some embarrassment at a joint press conference—when Assad and Blair made clear their different views of what constituted “terrorism,” especially in the context of the dispute between Israel and the Palestinians—their private talks paved the way for fresh diplomatic moves, including those by the United States, to advance the peace process in the Middle East. These were subsequently disrupted, however, by continued suicide-bombing raids organized by radical Palestinians and by reprisals by Israeli forces.

      Blair received strong support for his antiterrorist strategy from the Conservatives and Liberal Democrats in the House of Commons, but a small minority of MPs from Blair's own Labour Party expressed opposition to military action. A substantially larger block of Labour (and also Liberal Democrat) MPs opposed Blair's willingness (announced by his media spokesman on May 2) to support the development by the U.S. of its proposed National Missile Defense system. The prime minister received widespread support, however, both within and beyond his party, for setting out an ambitious vision for global action beyond the fight against terrorism.

Northern Ireland.
      On October 23 the Irish Republican Army (IRA) announced that it had decommissioned a portion of its arsenal. Although no details were published, the Independent International Commission on Decommissioning (IICD) confirmed that “we have now witnessed an event—which we regard as significant—in which the IRA has put a quantity of arms completely beyond use. The material in question includes arms, ammunition, and explosives.” The action was believed to have involved the injection of concrete into two IRA arms dumps in Ireland. Blair described the IRA's decision as “a very significant milestone.” The following day John Reid, the Northern Ireland secretary, announced that some police and army watchtowers in Northern Ireland would be dismantled and that some terrorist escaped prisoners would be granted an amnesty. David Trimble, the leader of the Ulster Unionist Party (UUP), said his party would resume its place on the Northern Ireland Executive.

      This rapid sequence of events revived the peace process at a critical time. For much of the year there had been deadlock, with the Unionists threatening to withdraw completely from the executive in protest against the IRA's refusal to start decommissioning its weapons and the IRA saying it would not be forced to act in response to Unionist ultimatums.

      Trimble had to tread a narrow line between destroying the peace process and losing unionist support to the rival Democratic Unionist Party (DUP), which blamed him for conceding too much to the nationalists. The U.K. general election in June produced a shift in Northern Ireland, with its own distinct party structure, toward militancy. Among unionist parties the UUP lost 4 of its 10 seats, while the DUP gained 3 seats to end up with 5. Among nationalist parties the Social and Democratic Labour Party (SDLP) retained its three seats but, for the first time, saw its support overtaken by that of Sinn Fein, the political arm of the IRA, which doubled its representation to end up with four seats. Sinn Fein MPs, however, continued their refusal to take their seats in the House of Commons, as to do so would have required them to swear an oath of allegiance to the British crown.

      On July 1 Trimble resigned as first minister in protest against the IRA's inaction; twice Reid suspended the Northern Ireland Executive for 24 hours—in August and September—in order to buy time. Under the terms of the 1998 Good Friday Agreement, such suspensions allowed a six-week breathing space without the need for more drastic action. After the September suspension, however, Reid warned that without a resumption of cooperation between unionists and nationalists, the peace process might collapse altogether.

      Trimble threatened to provoke this very outcome if decommissioning had not started by October 25. As this deadline approached, the IRA came under mounting pressure to act. Two external events helped to tilt the balance of debate inside the IRA and Sinn Fein. The first was the capture of three IRA members in Colombia, where they were accused of forging links with the Revolutionary Armed Forces of Colombia (FARC) guerrillas who financed many of their operations by dealing in drugs. This embarrassed Sinn Fein, whose tough antidrug policies in Ireland had helped them gain popular support on low-income housing estates. Second, the September 11 terrorist attacks led to increased pressure from the United States on the IRA to give up its weapons. On September 19 the IRA offered to “intensify [its] engagement” with the IICD.

      One month later, and just 48 hours before the Ulster Unionist deadline, the IICD reported that decommissioning had in fact taken place. This prompted the Unionists to agree to rejoin, and therefore effectively to revive, the executive and to nominate Trimble to resume his position as first minister. A minority within his own party, together with the whole of the rival DUP, opposed him, but he was supported by most of his party as well as the SDLP, Sinn Fein, and the small cross-community Alliance Party. On November 6 after four days of wrangling and legal maneuvers, the assembly reelected Trimble as first minister, with Mark Durkan, the new leader of the SDLP, as deputy first minister.

Peter Kellner

▪ 2001

Introduction
Area:
244,101 sq km (94,248 sq mi)
Population
(2000 est.): 59,714,000
Capital:
London
Chief of state:
Queen Elizabeth II
Head of government:
Prime Minister Tony Blair

Domestic Affairs.
      Public confidence in the U.K.'s Labour government, headed by Prime Minister Tony Blair, was severely shaken in 2000 by a crisis that erupted suddenly in September and came close to bringing the country's economy to a standstill. A loosely knit group of farmers and truckers set out to protest the high cost of fuel. As in other countries, fuel prices in the U.K. had risen sharply following the rise in crude oil prices on the world market. In addition, fuel taxes in the U.K. were the highest in Europe. The protesters blockaded the U.K.'s oil refineries and for three days managed to prevent most gasoline and diesel supplies from reaching gas stations, industry, or public services such as hospitals. Only when it became clear that their action was having a far more drastic impact than they expected and that the support they had enjoyed from most of the public was threatening to evaporate did they suspend their blockade. They did, however, warn that they would resume it in 60 days if the government failed to tackle the cause of their complaint. On November 8, one week before the expiry of the 60 days, Gordon Brown, the chancellor of the Exchequer, announced small reductions in the duty (tax) on diesel and “clean,” low-sulfur gasoline. This was enough to prevent immediate further disruptions; reductions in December in the world price of crude oil also helped to defuse the protests.

      Nevertheless, in the short term, the damage to the government's reputation was severe. Labour's support fell by 10 points in two weeks—the sharpest fall recorded in the history of British government-approval opinion polls. Labour's standing among its traditional working-class voters fell especially sharply. For the first time since 1992, the Conservative Party regained the lead. As life began to return to normal, however, so did political allegiances, although some damage to Labour's standing persisted.

      The fuel crisis was a symptom (and a sharp expression) of a wider malaise that afflicted Blair's administration. During the year opinion polls found that increasing numbers of voters thought the government was losing its way, becoming arrogant, putting presentation before substance, and failing to deliver improvements to the main public services. These claims were not made only by the government's political opponents. One of the harshest analyses was provided by Blair's own polling adviser, Philip Gould. In a private memorandum, written in May but subsequently leaked to the media, Gould warned the prime minister of “a sense that for much of the last 18 months, the Government has been drifting, growing almost monthly weaker and more diffuse. . . . We have been assailed for spin and broken promises; we are not believed to have delivered; we are believed by a huge margin to be slowing down rather than speeding up.”

      The government's troubles were not all of its own making, and it could claim to be presiding over a successful economy, but it did seem to be paying the price for failing to think strategically. One vivid demonstration of this was provided by the House of Lords. In November 1999, as the first stage of a longer-term program to reform the Lords, most hereditary peers had been stripped of their right to attend. The government had allowed 92 to remain, most of them either Conservative or nonparty critics of the government. The effect was to ensure that Labour peers constituted only slightly over one-third of the new House of Lords. Throughout 2000 the antigovernment majority flexed its muscles more aggressively than it had ever done when the House of Lords was dominated by hereditary peers. Scarcely a week went by without the Lords' defeating the government over some aspect of its legislation. Although the government had the power to reverse these defeats by invoking its majority in the House of Commons, the procedure for doing this was slow and cumbersome. The process significantly delayed the government's program.

      Blair faced different kinds of setbacks in other aspects of his constitutional reforms. On May 4, running as an independent, former Labour MP Ken Livingstone (see Biographies (Livingstone, Ken )) won the election to be London's first directly elected mayor. Labour's candidate, Frank Dobson—a former health secretary in Blair's cabinet—came in a poor third, winning only 13% of the vote. (In the first count, Livingstone scored 39%, with Steven Norris, the Conservative candidate, coming in second with 27%. With no candidate winning 50%, all except the top two were eliminated and the second preferences of the eliminated candidates taken into account. Livingstone defeated Norris on the second count by 58–42%.) Labour also fared badly in separate elections on the same day to the new Greater London Assembly, winning just 30% of the party vote (almost 20 points less than its share in the 1997 general election), compared with 29% for the Conservatives, 15% for the Liberal Democrats, 11% for the Greens, and 15% for other parties.

      In Wales Alun Michael resigned as first secretary on February 9, forestalling a vote of no confidence that he looked certain to lose. Michael had been Blair's favoured candidate for the post, but he had never gained the full confidence of Labour Party members in Wales, many of whom felt that he had been imposed on them in place of their preferred candidate, Rhodri Morgan. Following Michael's resignation, Morgan was appointed unopposed. He sought to bolster Labour's position in the Welsh Assembly (where the party had 29 out of 60 seats and, therefore, did not command a majority) by seeking cooperation with the Liberal Democrats. This led to a formal coalition between the two parties, agreed to on October 5.

      In Scotland, where a Labour–Liberal Democrat coalition had been in operation since the election of the country's first Parliament in May 1999, upheaval came out of the blue. First Minister Donald Dewar, often called “the father of the nation” as a tribute to his central role in bringing Scotland to devolution, died suddenly on October 11. (See Obituaries (Dewar, Donald Campbell ).) He was succeeded as Labour leader in Scotland, and as first minister, by Scotland's enterprise minister, Henry McLeish.

      Perhaps the greatest running controversy in the U.K. during 2000 concerned the Millennium Dome, a vast circular tentlike structure 320 m (1,050 ft) in diameter—the largest enclosed space in the world. Built with money from the National Lottery, it was located in Greenwich, southeast London, next to the prime meridian line. The dome's purpose was to house a visitor attraction to celebrate different facets of British life at the start of the new millennium. It attracted only half the 12 million visitors expected, however, and needed regular injections of extra cash from the lottery to pay its bills. The decision, supported by the government, to hand over extra money diverted from other causes was widely condemned.

      The National Lottery itself became a subject of controversy. It had been operated by Camelot, a company created solely for the purpose, since its birth in 1994. In August 2000 the National Lottery Commission announced that Camelot would not have its license renewed for the lottery's second seven-year term, due to start in late 2001. Instead, negotiations would be held with The People's Lottery (TPL), headed by flamboyant entrepreneur Sir Richard Branson. Camelot went to court arguing that the commission had acted wrongly. In September the court ruled in Camelot's favour and instructed the commission to look afresh at Camelot's proposal's alongside TPL's. This provoked the resignation of the commission's chairman. The new chairman, Lord Burns, reviewed both bids. On December 19 the commission announced that it would award the license to Camelot after all.

      A fatal rail accident on October 17 had widespread repercussions. Four people were killed when an intercity express came off the rails at Hatfield, 32 km (20 mi) north of London. It quickly became clear that the track itself had been defective. Railtrack, the privately owned company that had operated the U.K.'s tracks since privatization in 1996, was criticized for putting profits before safety—a charge that the company strenuously denied. Safety checks elsewhere on the rail network uncovered other potential defects, however, and the rail system was disrupted for some weeks as low speed limits were imposed on many sections of track while the defective rails were replaced.

      Some of the blame was directed at the Conservatives for the way they had privatized the rail system when they were in control of the government. A week after the Hatfield crash, the Conservatives came under fire again with the publication of the report from an official inquiry into bovine spongiform encephalopathy (BSE), widely known as “mad cow” disease. The inquiry found that some civil servants and Conservative ministers had failed to divulge the full truth in the late 1980s and early '90s about the dangers of BSE's crossing the species barrier and infecting humans. By the end of 2000, some 80 people in the U.K. had died of the human variant of BSE.

Economic Affairs.
      The U.K. enjoyed its eighth consecutive year of expansion as the economy grew by 3% and unemployment fell to 5%. Meanwhile, inflation remained subdued, with the underlying rate staying close to 2% throughout the year. The Bank of England raised its main “repo” interest rate early in the year in two stages from 5.5% to 6%, but the rate then remained unchanged for the rest of the year. The continuing strength of sterling continued to worry exporters, particularly manufacturers. The British currency was caught in the crossfire between a strong dollar and a weak euro; the pound lost around 10% of its value against the dollar during the year, but sterling gained further ground against the euro to end the year around 15% higher than when the euro was launched in January 1999.

      In July Brown unveiled plans to raise public spending by 10% in real terms over the three years 2001–04, with the largest increases for public transport, education, and the National Health Service. In November he announced above-inflation increases for 2001 and 2002 in state retirement pensions as well as the cuts in diesel- and low-sulfur-gasoline taxes.

      Public finances remained in surplus, which allowed the government to reduce the national debt. The prospects for continuing surpluses were aided by the auction in April of the third generation of mobile telephone licenses. Expected to raise around £3 billion (about $4.4 billion), they ended up raising £22.5 billion (about $32.6 billion). The success of this auction prompted a number of other countries, especially in Europe, to copy the U.K.'s example.

      The continuing strength of sterling caused special problems for the U.K.'s motor industry. In March the German company Bayerische Motoren Werke AG (BMW) announced that it was selling its U.K. subsidiary, Rover Cars. Rover was eventually acquired by a newly formed consortium, Phoenix, headed by a former Rover executive. Phoenix immediately embarked on a program of rationalization and job reduction. In the second half of 2000, Rover was producing cars at only one-third the rate of just three years earlier. In May the Ford Motor Co. unveiled plans to end volume car production at its main U.K. factory, at Dagenham, in east London.

      Some manufacturers with British subsidiaries—especially Japanese companies—warned that they would eventually scale back their investment in the U.K. if it remained outside the European single currency. The government, however, refused to shift from its policy of waiting until the right economic conditions materialized. In October Blair gave his clearest warning yet that this day was still some way off when he said that if a referendum was held then, he would vote against joining the euro.

Foreign Affairs.
      In October Blair set out his vision for Europe in a major speech in Warsaw. He criticized the European Union (EU) for losing touch with its people: “The citizens of Europe must feel that they own Europe, not that Europe owns them.” He called for the EU to draw up a “charter of competences” that would set out the limits to its power and so stop it from drifting toward becoming a federal state. This way, he argued, “the EU will remain a unique combination of the intergovernmental and the supranational. Such a Europe can, in its economic and political strength, be a superpower—a superpower not a superstate.”

      The former dictator of Chile, Gen. Augusto Pinochet Ugarte, was finally allowed to return home on March 2. Pinochet had been arrested during a visit to the U.K. 17 months earlier after Spain requested that he be extradited on charges of having tortured Spanish citizens during his period in office. The U.K. home secretary, Jack Straw (see Biographies (Straw, Jack )), decided to let him return to Chile after a team of doctors concluded that Pinochet was “at present unfit to face trial” and that “no change to that position can be expected.”

Northern Ireland.
      Despite occasional acts of violence by small fringe groups of terrorists, the province remained at peace throughout 2000, but hopes of enduring political stability proved elusive. At the beginning of the year, the newly formed Northern Ireland Executive was in charge of powers that had been devolved to it by the British government. The executive was headed by First Minister David Trimble, the leader of the mainly Protestant Ulster Unionist Party. His deputy was Seamus Mallon from the mainly Catholic Social Democratic and Labour Party. The Executive also included members of Sinn Fein—the political arm of the Irish Republican Army (IRA)—and the Democratic Unionists.

      Trimble led a divided party, many members of which felt that Sinn Fein was not fulfilling its commitment to persuade the IRA to decommission its weapons. On January 31 Gen. Sir John de Chastelain, the Canadian who had been appointed to oversee the decommissioning process, reported that the IRA had given up none of its weapons. On February 4 Trimble gave notice of his intention to resign as first minister unless the IRA had a change of heart. On February 11, to forestall the collapse of the Executive, Peter Mandelson, the U.K.'s Northern Ireland secretary, suspended all the devolved institutions.

      Subsequently, Trimble said he would be willing to resume his duties as first minister without the IRA's handing in any weapons, provided that it made other arrangements to put them beyond use. This concession provoked one MP, the Rev. Martin Smyth, to challenge Trimble's leadership of the Ulster Unionists. At a special conference on March 25, Trimble defeated Smyth 57–43%.

      Intensive negotiations in early May, involving the British and Irish governments, led to the IRA announcement on May 6 that it was ready to begin the process of putting its weapons beyond use “completely and verifiably.” It agreed to place them in sealed dumps in the Irish Republic, where they could be examined by a team of international experts headed by Cyril Ramaphosa, a former official of South Africa's African National Congress, and Martti Ahtisaari, the former president of Finland. On this basis Trimble agreed to a restoration of the Executive. On May 27 a further special conference of his party agreed to back him by the narrow margin of 53–47%.

      The Executive resumed its duties on May 30 and continued in office throughout the rest of 2000. In October Trimble defeated a further challenge to his policies from his critics within his party. This time his margin of victory was 54–46%. The issue of the permanent decommissioning of IRA arms remained unresolved, however, as the Republicans retained the power to reclaim their weapons from the arms dumps should they decide to withdraw from the peace process.

Peter Kellner

▪ 2000

Introduction
Area:
244,100 sq km (94,251 sq mi)
Population
(1999 est.): 59,313,000
Capital:
London
Chief of state:
Queen Elizabeth II
Head of government:
Prime Minister Tony Blair

Domestic Affairs.
      Seven hundred years of United Kingdom history came to an end on Nov. 11, 1999, when the country's 750 hereditary peers lost their right to sit in the House of Lords. Their departure from the U.K.'s upper house brought to a conclusion the first stage of reforms promised by the Labour Party when it returned to power in 1997. The timing and nature of the second stage remained uncertain; at the end of 1999, no decision had been taken on whether some or all of the upper house should be directly elected in years to come. Meanwhile, as a compromise interim measure, 92 hereditary peers were allowed to remain members of the House of Lords—elected by their fellow hereditaries—to sit alongside the 580 life peers, bishops, and law lords.

      The year was notable for another major constitutional innovation: elections to a new Parliament for Scotland and a National Assembly for Wales. Scotland's Parliament started life with a range of powers to pass primary legislation, run the country's school and health systems, and, within strict limits, vary income tax for its 5.1 million people; the Welsh Assembly had no such powers, but it could pass laws on more minor issues and decide how to spend the annual grant it received from the U.K. treasury on behalf of the Welsh population of 2.9 million.

      Elections in both Scotland and Wales took place on May 6, under systems of proportional representation (unlike elections to local authorities and the U.K.'s House of Commons, which retained the traditional majoritarian “first-past-the-post” system). In Scotland, Labour won 56 seats, the Scottish National Party 35, the Conservative Party 18, the Liberal Democrats 17, and others 3. Labour and the Liberal Democrats agreed to form a coalition administration, with Labour's Donald Dewar as Scotland's first minister and James Wallace of the Liberal Democrats as his deputy. In Wales, where Labour had been widely expected to win a clear majority in the new Assembly, the party won 28 seats, while a resurgent Plaid Cymru (Welsh nationalists) won 17, including seats in Labour's traditional strongholds in the mining towns of south Wales. The Conservatives won nine seats and the Liberal Democrats six. Labour's Alun Michael became first secretary; he decided to lead a minority administration rather than form a coalition. If the Scottish and Welsh elections came as a disappointment to the U.K.'s ruling Labour Party, the elections five weeks later, on June 10, to the European Parliament, came as a severe shock. The Conservatives achieved a clear victory, winning 36% of the vote; Labour won 28%, the Liberal Democrats 13%, the United Kingdom Independence Party (UKIP), which advocated the U.K.'s withdrawal from the European Union (EU), 7%, the Green Party 6%, and others 10%.

      The figures were affected by the proportional-representation voting system, which helped small parties (both UKIP and the Greens won U.K. seats for the first time in the European Parliament), and by a turnout of only 23%. Electors in strong Labour areas, where turnout was often 15% or lower, stayed at home in unprecedented numbers. Nevertheless, the results gave heart to the opposition Conservative Party. Its leader, William Hague, had fought the European elections on a platform that Britain should be “in Europe but not run by Europe.” It argued that the U.K. should remain a member of the EU but declared that for the duration of the current and subsequent Parliament, the country would refuse to join Europe's single currency, the newly introduced euro. (See European Union: Sidebar (Euro's First Birthday ).) In practice, this policy would preserve the U.K.'s own currency, sterling, until at least 2005. This policy struck a chord with many voters. Throughout the year opinion polls showed Labour comfortably and consistently ahead; now, for the first time since 1992, the Conservatives could point to actual election figures that suggested that a vigorous, well-focused campaign could win converts.

      On January 20 Paddy Ashdown, the leader of the Liberal Democrats, announced his intention to step down as party leader following the European elections. Elected leader in 1988, he had steered his party to its best election performances in living memory and had persuaded his party to cooperate with Labour on many—though not all—issues. The subsequent party leadership contest became an informal referendum on the wisdom of this strategy. When the votes were counted on August 9, Charles Kennedy (see Biographies (Kennedy, Charles )), who favoured continued cooperation, emerged as the victor over Simon Hughes, who advocated a more critical stance.

      One of Kennedy's early actions was to join Prime Minister Tony Blair and two prominent pro-European Conservatives, Michael Heseltine (former deputy prime minister) and Kenneth Clarke (former chancellor of the Exchequer), and a number of prominent business leaders in the formation of a new campaigning organization, Britain in Europe. The campaign was launched on October 14, with the politicians from the three parties sharing a stage at an IMAX cinema in central London. Its formal purpose was to argue the possible case for the U.K.'s engagement with the EU, and its informal purpose was to prepare public opinion for a possible referendum on British membership in Europe's single currency in the early years of the new century. Although Hague's critical stance on the issue had helped his party win the European Parliament elections in June, it had also exacerbated divisions within his own party by alienating Clarke, Heseltine, and their supporters.

      One of the issues that caused the government most discomfort concerned genetically modified (GM) foods. Environment Minister Michael Meacher had allowed a number of experiments to take place on GM crops; meanwhile, some foods containing GM crops that had been declared safe were allowed on sale. Some scientists argued that the safety checks in the U.S. and the U.K. had not been stringent enough. In December 1998 Charles, prince of Wales, had joined the debate. In a rare intervention in a political controversy, he argued that “we should not be meddling with the building blocks of life in this way.” In February 1999 one Labour MP claimed that the deaths of 37 people from an obscure disease were linked to GM foods. On February 9 Hague condemned Blair for having failed to impose a moratorium on the sale of all foods with GM ingredients. Blair counterattacked by claiming that those GM ingredients that had been approved were completely safe and that the testing program should continue. Supermarket chains, however, found that customers were not convinced by these reassurances, and by the end of 1999, most chains had withdrawn foods with GM ingredients from sale. On October 19 Meacher finally responded to public and media concern and announced that no new GM foods would be allowed on sale in the U.K. before 2002.

      In February an official inquiry accused London's police force, the Metropolitan Police, of being “institutionally racist.” The inquiry followed public controversy over the death in 1993 in Eltham, south London, of Stephen Lawrence, a black teenager. A widely criticized police investigation never managed to secure the conviction of his killers, believed to be a local white gang. The inquiry, launched by Home Secretary Jack Straw in 1997 and conducted by a former judge, Sir William Macpherson, brought to the surface long-simmering tensions between the Metropolitan Police and London's ethnic minority communities. The inquiry advocated that the force set recruitment targets for ethnic minority offices, to be met within 10 years, and made a series of other proposals to end racism in the force. Straw accepted Macpherson's main proposals and instructed the force to implement them.

      After several difficult years, the U.K.'s royal family had cause to celebrate in 1999. Queen Elizabeth II's youngest son, Edward, married Sophie Rhys-Jones in a relatively quiet ceremony in Windsor Castle on June 19. (See Biographies: Edward and Sophie, Earl and Countess of Wessex .)

Economic Affairs.
      Defying predictions of recession, the U.K.'s economy grew by 1.75% during 1999; unemployment fell to below 6%, according to international definitions, for the first time in 20 years. In November Gordon Brown, the chancellor of the Exchequer, predicted steady growth in each of the next three years and forecast that government revenues would exceed expenditures for each of the next five years.

      Inflation remained subdued. Consumer prices rose by less than 2% during 1999, which allowed the Bank of England to reduce the main “repo” interest rate to 5% in June, the lowest since 1977. As the economic recovery gathered pace, however, fears of future inflationary pressures prompted the bank to raise interest rates again. At the end of the year, the repo rate stood at 5.5%.

      In his annual budget, delivered on March 9, Brown abolished two of the U.K.'s longest-enduring tax breaks—tax relief on mortgage interest payments (to end in April 2000) and the married couples' tax allowance (to end in 2001). He also introduced a new 10% starting rate for income tax, a reduction in the standard rate of tax from 23% to 22%, an increase in payments to families with children, and an annual £100 (£1 = $1.66) winter bonus for pensioners.

      On April 1 the national minimum wage came into effect, guaranteeing at least £3.60 an hour to all workers over 21. This figure was less than the trade unions had sought; nevertheless, the government's Low Pay Commission estimated that it would increase the pay of almost two million workers. Fears that the minimum wage would provoke job losses did not seem to be borne out by the unemployment figures, which continued to decline.

Foreign Affairs.
      Between March and June the U.K. deployed 16 Harrier and 12 Tornado bombers to take part in NATO's air strikes against Yugoslav oppression in Kosovo. Throughout the conflict Blair argued that NATO should keep open the option of deploying ground troops to force a Serb withdrawal. On April 21 he told MPs in the House of Commons that “[Yugoslav Pres. Slobodon] Milosevic does not have a veto on NATO action. All options are kept under review, and that is sensible for us to do.” With a large parliamentary majority and broad (though not unanimous) support from all parties, Blair had a greater freedom than the leaders of some other NATO countries to advocate firm measures against Yugoslavia. Following the withdrawal of Serb forces from Kosovo in June, Blair claimed that NATO's eventual decision to contemplate a ground invasion force had helped to hasten the end of the conflict.

      On July 14 the European Commission announced that the ban would be lifted on the export of U.K. beef to the rest of the world. The ban, which had been in force since 1996, had followed fears that people who ate British beef might contract the human equivalent of bovine spongiform encephalopathy (BSE), or “mad cow” disease. British Agriculture Minister Nick Brown quickly became embroiled in arguments with the German and French governments, which refused to abide immediately by the Commission's insistence that British beef be freely available from August 1. The French government insisted that further scientific assurances that British beef was safe were needed. This reassurance was provided on October 29 by the unanimous verdict of 16 European scientists charged by the Commission with examining the issue. The Commission threatened to prosecute France were it to maintain its ban. France continued to ban British beef; on December 30 the Commission duly carried out its threat. France retaliated by taking the Commission to the European Court of Justice for failing to protect French consumers from beef it considered still potentially unsafe.

      On March 24 seven U.K. law lords—the highest judicial authority in the country—upheld earlier rulings that Gen. Augusto Pinochet Ugarte, the former dictator of Chile, had no immunity from extradition. Pinochet had been arrested in London in October 1998, following a request by Spanish authorities to extradite him to Spain on charges of torture committed during his period in office. By six votes to one, they ruled that Spain had the right to seek his extradition but only for torture offenses alleged to have been committed after 1988, when the U.K. incorporated the International Convention Against Torture into its domestic law. In October Baroness Thatcher (the former prime minister Margaret Thatcher) addressed a rally held during the Conservative Party conference, arguing that Pinochet should be allowed to return home to Chile, not least because of the assistance he had given the U.K. in 1982 during the conflict with Argentina over the Falkland Islands/Islas Malvinas. On December 22 Home Secretary Jack Straw ordered medical tests to be conducted in January 2000 to determine whether Pinochet was fit enough to stand trial, in which case extradition proceedings would continue, or too ill, in which case he would be allowed to return to Chile.

Northern Ireland.
      On December 2 the Northern Ireland Assembly, which had been established under the 1998 Good Friday Agreement, took over wide powers of self-government, bringing to an end 27 years of direct rule by Britain. Devolution came almost nine months later than outlined in the agreement. The principal stumbling block concerned the decommissioning of weapons held by paramilitary groups such as the Irish Republican Army. The Ulster Unionists, whose leader David Trimble was first minister-elect, refused to work with Sinn Fein, the political arm of the Irish Republican Army, until the IRA started to decommission its weapons; the IRA, in return, made it clear that it would not hand in any of its weapons until the executive was established.

      This deadlock caused the March 10 deadline to be missed; a new deadline, April 2, also came and went without agreement. In May Blair imposed a new deadline (June 30) for agreement on breaking the deadlock. Toward the end of the month, he took personal charge of the negotiations and drew up a compromise proposal with Irish Prime Minister Bertie Ahern, which was rejected by the Ulster Unionists.

      On July 14 the U.K.'s Northern Ireland secretary, Mo Mowlam, instructed the new Northern Ireland Assembly to meet the following day to appoint an executive. The Ulster Unionists boycotted the meeting, which was concluded without the executive's having been set up. Within a week British officials had asked former U.S. senator George Mitchell, who had chaired the discussions that led to the Good Friday Agreement, to review its implementation. Mitchell returned to Belfast in September.

      On October 11 Blair appointed Peter Mandelson as Northern Ireland secretary in place of Mowlam. The Ulster Unionists had claimed for some months that Mowlam was unsympathetic to their cause. They welcomed the appointment of Mandelson, a close, long-standing political ally of Blair within the Labour Party.

      Eventually, on November 15, Mitchell announced that all of the main groups had agreed on a step-by-step plan to resolve their differences. Trimble agreed to lift his “no guns, no government” demand that the IRA start decommissioning its weapons ahead of the formation of a Northern Ireland executive; in return, the IRA agreed to appoint a representative to discuss decommissioning with Canadian Gen. Sir John de Chastelain. On November 27 the Ulster Unionist Council voted 480–349 to back Trimble. Five days later the new administration was established, with all four main parties—two Unionist and two nationalist— represented on its executive committee.

      On December 10 de Chastelain announced that he had held initial discussions with the IRA; he expressed optimism “that decommissioning will occur.” On December 13, in Armagh, County Armagh, the Cabinet of the Irish Republic met the Northern Ireland executive for the first meeting of the North/South ministerial council. The council agreed to set up six cross-border groups to cooperate on a variety of issues.

      By the end of 1999 no IRA weapons had been decommissioned; however, the general mood in Northern Ireland was one of optimism that an enduring peace could be established.

Peter Kellner

▪ 1999

Introduction
      Area: 244,100 sq km (94,251 sq mi)

      Population (1998 est.): 59,126,000

      Capital: London

      Chief of State: Queen Elizabeth II

      Head of Government: Prime Minister Tony Blair

Domestic Affairs.
      The Labour Party government, which had been elected in May 1997, continued in 1998 its program of reforming the United Kingdom's constitution. On May 7 Londoners voted to accept government plans for a new assembly and a directly elected mayor for the nation's capital. On a low turnout (34%), 72% voted in favour of the plans. This decision meant that London would have an elected citywide administration for the first time since the abolition of the Greater London Council in 1986.

      The decision was important for a wider reason. It created the first executive post in the history of British national and local government to be filled by direct election. By tradition, voters had chosen local representatives to serve on local councils and in Parliament; executive posts, such as the prime minister or council leader, had always been filled by the leadership of parties that had gained the most seats in each election. Local political leaders, however, were rarely well known, and the turnout in local elections seldom rose above 40% (compared with 70-80% in national elections). The government hoped that having an election for mayor of London would attract high-profile candidates and achieve higher voter turnouts. Prime Minister Tony Blair made it clear that if this happened in London, the practice of electing mayors directly would be extended to other towns and cities.

      In November the government announced it would start legislating immediately to remove hereditary peers from the House of Lords. At the beginning of the 1998-99 parliamentary session, the Lords contained 1,298 members, of whom 750 had inherited their title (usually from their father). Of the 339 hereditary peers who belonged to one of the three main parties, 298 were Conservative, 24 Liberal Democrat, and 17 Labour. In a radio interview in July, Blair made it clear that his long-term ambition was to undertake a more fundamental reform of the Lords: "There are two stages of reform: one is getting rid of the hereditary peers, and secondly there is the longer term reform for a more democratically elected second chamber. I think it is important that we do both things."

      In a Lords debate on October 14, Baroness Jay, the leader of the House of Lords (a Cabinet position), responded to charges that the prime minister would have excessive powers of patronage during the interim period, when the House of Lords would consist almost exclusively of life peers. She announced the establishment of an "Appointments Commission" to oversee the appointment of future life peers and to prevent improper use of political patronage. She also announced the establishment of a royal commission to consider options for long-term reform of the House of Lords.

      On December 2 William Hague, the leader of the Conservative Party, sacked Lord Cranborne, the party's leader in the House of Lords, after it emerged that Cranborne had negotiated a secret deal with Blair under which 91 hereditary peers would keep their speaking and voting rights until the long-term future of the House of Lords had been settled. Despite Cranborne's dismissal, Blair announced that he would stick to the deal, hoping that enough Conservative peers would tolerate the bill abolishing the rest of Britain's hereditary peerages to ensure its smooth passage through Parliament in 1999.

      One unexpected jolt to the government's constitutional program occurred on October 27, when Ron Davies resigned as secretary of state for Wales and, two days later, as Labour's candidate to be first secretary of the new assembly for Wales. Davies admitted to a "moment of madness" the previous night on Clapham Common, an area in south London often used by men seeking casual gay sex. Davies's encounters resulted in the theft of his car and wallet and an attempt to blackmail him. Rather than succumb to blackmail, he gave a statement to the police and resigned from the Cabinet. In the media coverage that followed this resignation, two members of Blair's Cabinet were publicly identified as homosexuals. (A third gay minister had openly acknowledged his sexuality more than a decade earlier.) Although considerable controversy surrounded the media's actions, none attached to the ministers themselves, who continued as Cabinet members with Blair's full support.

      Davies was the first person to resign from Blair's Cabinet; Blair had, however, dismissed four Cabinet ministers in July. As part of his reshuffle, he promoted one of his closest allies, Peter Mandelson, to secretary for trade and industry. A former Labour Party official, Mandelson had masterminded Labour's successful election campaign in 1997 but was distrusted by many Labour MPs, who regarded him as devious and manipulative. He had played a crucial behind-the-scenes role in securing Blair's election as Labour Party leader in 1994, and his widely acknowledged closeness to, and influence on, Blair caused him to be named in October 1998 as fourth in a list of people who wielded the greatest influence on men and women in Britain. On December 23, however, Mandelson was forced to resign from the government following newspaper reports that he had secretly borrowed £373,000 ($620,000) two years earlier from a fellow minister, Geoffrey Robinson, who was under investigation by Mandelson's own department for alleged breaches of company law.

      Despite his commanding majority in the House of Commons, which meant that Blair had no need to rely on any other party to pass legislation, the prime minister established a close working relationship with Paddy Ashdown, the leader of the Liberal Democrats. On November 11 they issued a joint statement in which they agreed that their two parties would widen the scope of their cooperation in a joint Cabinet committee from constitutional reform (on which the committee had worked since soon after the 1997 election) to other policy areas.

      Although Blair's government was slow to deliver on a number of its election promises (for example, hospital waiting lists continued to rise until mid-1998 before starting to fall), Labour remained substantially more popular than the opposition Conservatives. According to a Gallup poll published in November 1998, 18 months after Labour came to office, Labour was favoured by 56% of those surveyed (up 12 percentage points since the 1997 general election), the Conservatives by 25% (down 6), and the Liberal Democrats by 13% (down 4). Labour's 31-point lead comfortably exceeded that achieved by any previous governing party in the 60-year history of opinion polls in the U.K.

      Charles, prince of Wales, who celebrated his 50th birthday on November 14, also enjoyed high opinion-poll ratings. Following the death of Diana, princess of Wales, in August 1997, the prince managed to establish a fresh image as both a caring father and a future king. He continued, however, to be dogged by controversy over his relationship with Camilla Parker Bowles, a divorcée. Although polls detected widespread public tolerance of the relationship, they also showed that the prince would place his reputation at risk were he to marry her and seek, in due course, to have her serve as queen beside him. (See Whither Europe's Monarchies? )

The Economy.
      With the economic boom of the mid-1990s coming to an end and with serious problems in many parts of the world—notably Asia and Russia—posing problems for British banks and exporters, 1998 provided a test of the ability of the new Labour government to demonstrate its claim to be able to replace "boom and bust" with greater stability. Conditions during 1998 seemed initially to support this claim. Unemployment continued to fall—to 1.3 million according to the traditional measure (the welfare claimant count) and 1.8 million according to international definitions. The economy grew by almost 3%, and inflation did not exceed the government's 2.5% target. By the end of the year, however, global pressures had caused a sharp loss of business confidence. Gordon Brown (see BIOGRAPHIES (Brown, Gordon )), the chancellor of the Exchequer, acknowledged that growth would slow markedly in the months ahead.

      At the centre of controversy was the Bank of England, which had been given the power in May 1997 to set interest rates independently of the government. Ignoring warnings of an impending slowdown, the bank raised its base interest rate from 7.25% to 7.5% in June. This helped the pound rise to a value equivalent to more than DM 3.10, which attracted criticism from many industrialists and trade unions, who feared that jobs and exports would be lost. Later in the year, however, the bank reversed its policy and started reducing interest rates. By the end of the year, the base rate was down to 6.25%, and sterling had fallen to DM 2.77.

      In July Brown unveiled the results of a comprehensive spending review, which set out the government's spending plans until 2002. The main winners were education and health, whose budgets would increase by 15% in real terms, and overseas aid, whose much smaller budget would increase by almost 30%. Overall, Brown said that public spending would grow by 2.75% a year, which he said would be compatible with a broad balance between taxation and spending during the years ahead. In November he adjusted his forecasts to take account of the economic slowdown but continued to predict that the government's deficit would remain less than 1% of gross domestic product (GDP). This, he said, would allow the government comfortably to meet its "golden rule," which stated that, averaged over the economic cycle, government would borrow only for investment and not to pay for current spending. Meanwhile, Brown announced that the government would repay £1.5 billion ($2.5 billion) of its debt in 1998-99, the first repayment since 1990-91.

Foreign Affairs.
      The U.K. held the presidency of the European Union (EU) for the first six months of 1998. Few concrete changes emerged, but an atmosphere of businesslike cooperation was enhanced by the fact that Blair's government was more supportive of the EU than had been the previous Conservative administration. The U.K.'s main contribution was to win acceptance in principle for the need to reform the EU's budget, Common Agricultural Policy, and structural funds.

      During the early months of 1998, U.K. ministers were embroiled in a controversy—the "Arms to Africa affair"—over the supply of weapons, in defiance of United Nations sanctions, to help Pres. Ahmad Tejan Kabbah return to power in Sierra Leone and replace the military junta that had seized power in May 1997. Before Kabbah's return, in February 1998 it emerged that his forces had received arms from a British company, Sandline International. Sandline was run by two former Special Air Service officers, who claimed to have been acting with the support of the Foreign Office. Robin Cook, the foreign secretary, denied these claims and established an independent inquiry to examine the allegations that the sanctions had been defied. The report, published in July, concluded that Britain's high commissioner in Sierra Leone had exceeded his authority in supporting Sandline and that Foreign Office officials should have known more and acted sooner to uphold the UN embargo; the report, however, exonerated ministers from knowledge or blame.

      On July 8 the government published the results of its Strategic Defence Review. It upheld Britain's need for a capability commensurate with its membership in NATO and its place as a permanent member of the UN Security Council. It also proposed that the real level of defense spending continue to decline, as it had under the Conservatives, from 2.8% of GDP in 1996-97 to 2.4% in 2001-02. George Robertson, the defense secretary, emphasized the need for British forces to be able to contribute to Joint Rapid Reaction Forces; to this end two new aircraft carriers would be commissioned, capable of carrying twice as many aircraft as the existing ships. Robertson also announced that the U.K. would retain a "minimum nuclear deterrence," consisting of three Trident submarines, but the number of warheads on each submarine would be reduced from 96 to 48.

      In December British Tornado bombers took part in Desert Fox, the four-day bombing campaign against Iraq's military installations. Britain was the only member of the EU to join the U.S.-led action. This provoked criticism from France and undermined the intended effect of an agreement signed at the beginning of the month between Blair and French Pres. Jacques Chirac to cooperate more closely on military matters.

      Toward the end of the year, strains emerged in the U.K.'s relations with Chile. On October 16 Gen. Augusto Pinochet, Chile's former dictator, was arrested in London following a request from Spain to extradite him on charges of murder, torture, and kidnapping. Pinochet, who had come to the U.K. for medical treatment, was forced to remain in the London area while Spain's request was considered. Pinochet's lawyers and the Chilean government argued that Pinochet enjoyed diplomatic immunity and should therefore be allowed to fly home to Santiago. On November 25, by a 3-2 majority, a panel of U.K. Law Lords ruled that Pinochet no longer enjoyed diplomatic immunity and that the extradition proceedings should therefore go ahead. On December 11 Pinochet appeared before magistrates in south London and faced the start of the formal extradition process. On December 17, however, a new panel of Law Lords ruled that there had been procedural defects in the November 25 decision and that new hearings should be heard early in 1999 to reconsider whether Pinochet enjoyed diplomatic immunity.

Northern Ireland.
      The agreement established a 108-member Northern Ireland Assembly, to be elected by proportional representation and governed by a set of rules that would ensure that no major decision could be made unless it commanded the support of at least 40% of the representatives of both the nationalist and unionist communities. The assembly would be run by a 12-member executive drawn from all the main parties. Sinn Fein (and the Protestant paramilitary groups) agreed to decommission all their weapons by June 2000; the Ulster Unionists agreed to accept a voice for the Irish government in Northern Ireland's future by means of a North-South Ministerial Council. The Irish government agreed to amend Articles 2 and 3 of Ireland's constitution and thereby withdrew its historic claim to the territory of Northern Ireland.

      On April 10 Blair announced that a peace agreement had been reached between all but one of the main political groups in Northern Ireland, ranging from Sinn Fein and the Social Democratic and Labour Party (SDLP), representing Irish nationalists, to the Ulster Unionists and Ulster Democratic Party, representing the unionist community. The one significant party that opposed the agreement was the Democratic Unionist Party (DUP), led by Ian Paisley. The agreement—which had been brokered by former U.S. senator George Mitchell; Mo Mowlam, the U.K.'s Northern Ireland secretary; and, during the final, tense 72 hours, Tony Blair—provided for a series of linked procedures for moving toward partial self-government for the province.

      On May 22 the peace agreement was subjected to referenda in Northern Ireland, where 71% voted in favour of it, and the Republic, where 94% voted "yes." Exit polls in Northern Ireland indicated that the Roman Catholic community voted almost unanimously for the agreement, whereas the Protestants were evenly divided. The referenda paved the way for the first elections to the new Northern Ireland Assembly on June 25, in which the Ulster Unionists won 28 seats, the SDLP 24, the DUP 20, Sinn Fein 18, and six smaller parties 18. Altogether, pro-agreement parties won 80 seats and antiagreement parties 28. Following the election David Trimble, leader of the Ulster Unionists, was elected first minister of the new assembly (see Nobel Prizes ), and Seamus Mallon of the SDLP was elected deputy first minister.

      The prevailing mood of optimism was punctured by a car bomb in the centre of the market town of Omagh in Northern Ireland on August 15. The death toll, about 28, was the highest of any single incident since the eruption of violence in the late 1960s. A small splinter group calling itself the "Real IRA" claimed responsibility. Under pressure from Sinn Fein, the Real IRA announced a cease-fire on August 18. Four days later another splinter group, the Irish National Liberation Army also called a cease-fire. This left only one tiny group, Continuity IRA, committed to armed struggle.

      The Omagh bombing caused the U.K. government to recall Parliament from its summer recess for a special two-day session on September 2-3 to pass the Criminal Justice (Terrorism and Conspiracy) Act. The act, which was similar to legislation being passed by the Irish Parliament at the same time, reduced the burden of proof needed to convict a suspect of membership in an unlawful organization. It also made it a criminal offense to conspire in the U.K. to commit terrorist acts outside the U.K. By the end of 1998, however, nobody had been charged under the new legislation.

      Toward the end of the year, tensions emerged among the parties involved in the peace process as the IRA announced that it would take no early steps to decommission any of its weapons. Hague joined with the Ulster Unionists in calling for a suspension of the program of releasing prisoners convicted of terrorist offences. Mowlam, however, insisted on maintaining the prisoner-release program, arguing in a newspaper article on December 31 that the Good Friday agreement "did not make [decommissioning] a precondition for progress in other areas, and the Government is not about to start unravelling what the other parties agreed."

PETER KELLNER

▪ 1998

Introduction
      Area: 244,100 sq km (94,251 sq mi)

      Population (1997 est.): 58,919,000

      Capital: London

      Chief of State: Queen Elizabeth II

      Head of Government: Prime Ministers John Major and, from May 2, Tony Blair

Domestic Affairs.
      Three separate events—one widely predicted, one long-hoped-for, and one a sudden shock—made 1997 an important year for the United Kingdom. The widely predicted event was the election on May 1 of a Labour government after 18 years in opposition Sidebar) (Labour's Return to Power ) and the resultant arrival of a new prime minister, Tony Blair. ) (Blair, Tony ) The long-hoped-for event was the renewal of the Irish Republican Army's (IRA's) cease-fire on July 20. (See Northern Ireland, below.) The sudden shock was the death of Diana, princess of Wales, in Paris on August 31. ) (Diana, princess of Wales )

      Following Labour's election victory, Blair said, "We ran for office as New Labour and we will govern as New Labour." By this, the new prime minister indicated that his government would keep to the centrist political strategy he had developed in opposition and not revert to the party's former left-wing policies. On May 7 Blair addressed a meeting of Labour MPs and warned them not to step out of line: "You are here because of the Labour Party under which you fought. You are the ambassadors for New Labour and ambassadors for the Government." Only a tiny minority of MPs, describing themselves as "old Labour," were reluctant to accept this discipline. The great majority acquiesced, either because they were enthusiastically pro-Blair or because they acknowledged that the size of Labour's victory owed much to the way Blair had transformed the party since his election as leader in July 1994.

      Blair appointed Labour's deputy leader, John Prescott, deputy prime minister and secretary of state for the environment, transport, and the regions; his long-standing political ally Gordon Brown chancellor of the Exchequer; one of Labour's sharpest brains and best debaters, Robin Cook, foreign secretary; the man who had run Blair's party leadership campaign in 1994, Jack Straw, home secretary; the U.K.'s first blind Cabinet minister, David Blunkett, education secretary; and Lord Simon, former chairman of British Petroleum, the minister for trade and competitiveness in Europe. ) (Simon of Highbury, Lord )

      On May 14 the Queen's Speech (a ritual event at the beginning of each parliamentary session) set out the new government's priorities. These included measures to reduce class sizes and raise education targets in state-run schools, a "welfare-to-work" plan, and legislation to introduce a national minimum wage. The Queen's Speech also contained a package of constitutional measures, including an exploration of the need for a Freedom of Information Act and the incorporation into British law of the European Convention on Human Rights. Two of the most significant proposals concerned referenda on devolution in Scotland and Wales.

      Scotland's referendum was held on September 11. This comprised two separate questions. First, did the Scots want to set up their own parliament in Edinburgh, with wide law-making powers and control over services such as health and education? Second, did the Scots want this new parliament to have the power to vary the standard rate (which would still be levied on a U.K.-wide basis from London) of income tax and set a rate that would differ from the rest of the country by up to 3%? On a 60% turnout, both questions produced an emphatic "yes" majority, with 74% voting "yes" on question one and 63% on question two.

      Wales's referendum, held on September 18, had one question on the ballot: Did the Welsh want their own assembly, with the power to administer public services in Wales? (Since the assembly would not have its own powers to levy taxes or pass laws, it was not to be called a parliament.) The Welsh proved less enthusiastic than the Scots. On a 50% turnout, voters divided 50.3% "yes" and 49.7% "no." Despite the narrowness of the victory, Blair claimed a mandate to proceed with the legislation to set up both a parliament for Scotland and an assembly for Wales.

      In spite of Labour's large majority, Blair established a special Cabinet committee on constitutional issues and invited the Liberal Democrats to join it. The committee's purpose was to establish as broad a cross-party consensus as possible on steps toward incorporating the European Convention on Human Rights into British law, reform of the House of Lords, and the implementation of a preelection agreement between the two parties to hold a referendum, due in 1999, on whether to change the voting system for the House of Commons.

      The Conservatives, meanwhile, had to come to terms with their massive defeat. On May 2 John Major, having lost his post as prime minister, announced his intention to resign as party leader. In both of the first two ballots, on June 10 and June 17, the pro-European former chancellor of the Exchequer Kenneth Clarke held a narrow lead, but he failed to secure an outright majority. In the third ballot William Hague ) (Hague, William Jefferson ) defeated Clarke by 92 votes to 70.

      Hague immediately announced a radical overhaul of the party: changes in its constitution to give ordinary members a greater say in its affairs, a ban on foreign donations to party funds (an issue that had embarrassed the Conservatives before the election), and the publication of the sources and details of all large donations. His biggest organizational task was to revive the party's membership, which had fallen by 80% in 20 years from 1,500,000 to 300,000.

      Hague's early months as Tory leader were plagued by continuing divisions within the party over its policy toward Europe. In October Hague announced that he would oppose British membership in Europe's single currency union throughout the current Parliament and the following one—that is, for up to 10 years.

      Apart from politics, the event that overshadowed the year was the death of Diana almost exactly one year after her divorce from Prince Charles. ) (Charles, prince of Wales ) In a spontaneous outpouring of public grief, crowds of people laid millions of bouquets of flowers worth an estimated £25 million outside the princess's London residence, Kensington Palace, and outside Buckingham Palace. In addution, many thousands stood in line for hours at Buckingham Palace and elsewhere to sign books of condolence. At her funeral, in Westminster Abbey on September 6, the singer Elton John performed a new version of his song "Candle in the Wind," the CD of which quickly set sales records worldwide.

      The reaction of Great Britain's royal family to Diana's death came under criticism from sections of the media, which questioned Queen Elizabeth's reluctance to allow the union flag to fly at half-staff over Buckingham Palace. Tradition dictated that the only flag to adorn the large pole was the royal standard, and then only when the queen was in residence. At the time of Diana's death, the queen was on holiday at Balmoral Castle in Scotland, and the pole was empty. Eventually, the queen relented; the union flag flew at half-staff over Buckingham Palace on the day of Diana's funeral. This incident sparked a wider debate about the future role of the monarchy in British life. By year's end feelings about the royal family had improved somewhat. Prince Charles had worked to improve his public image; the queen and Prince Philip celebrated their 50th wedding anniversary; and several popular reforms were announced, including plans to convert Kensington Palace to a museum.

      Diana's brother, Charles, Earl Spencer, among others, blamed the press for her death. In response to widespread public revulsion at the aggressive photographers known as paparazzi and the use of their photographs by some British newspapers, the leading editors announced that they would henceforth not buy pictures obtained under circumstances that invaded the privacy of public figures, except when justified by compelling public interest. In particular, the editors agreed to abide by a request from Prince Charles that his and Diana's two sons, Princes William and Henry, be allowed to grow up without being harassed by reporters or photographers.

Economic Affairs.
      The first major decision of the incoming Labour government was to grant the Bank of England the right to determine interest rates independently of the chancellor of the Exchequer. The bank was instructed to operate within a general framework of keeping inflation down but also of maintaining steady economic growth. This decision, announced on May 6, was widely welcomed by London's financial community as a sign of the government's intention to maintain inflation within its new target range of 1.5-3.5%.

      The bank used its powers to increase its base interest rates in a series of quarter-point steps, from 6% at the time of the election to 7% by August. Clarke, the outgoing Conservative chancellor, rejected criticism that he had kept the base rate artificially low before the election. The bank acted in order to prevent Britain's economy from overheating. In July the government forecast that output would grow by 3.5% in 1997 and 2.5% in 1998. Unemployment continued to fall throughout 1997, from 1.9 million in December 1996 to 1.4 million a year later, the lowest figure since 1980.

      The new government decided to confirm the overall levels of public spending that had been set for 1997-98 and 1998-99 by the previous Conservative administration—with one exception. On July 2, in his first budget speech, Brown announced a windfall tax totaling £5.2 billion on the profits of utility companies—such as gas, water, and electricity—that had been privatized during the 1980s and early '90s. Most of the money was to be spent on a new welfare-to-work program aimed at providing training, job subsidies, child care, and other support services to help people join, or rejoin, the labour market. Brown also announced extra funds for health and education in 1998-99, but this money was to come from the contingency reserve (general, unallocated funds) and not increase the overall total of public spending.

      Brown reported modest increases in taxation in order to reduce government borrowing, which he forecast would fall from £13,250,000,000 in 1997-98 to £5.5 billion, or well under 1% of gross domestic product, in 1998-99. Although Brown redeemed Labour's election promise not to increase income tax rates, he revealed plans for tax relief on mortgage interest payments and changes in company taxation that would reduce the value of the tax shelter enjoyed by people building up a company or private pension.

      On October 27 Brown ruled out British participation in the European Union's (EU's) single currency until after the next general election (due by June 2002), "barring fundamental unforeseen change in economic circumstances." Brown also announced that preparations would begin to enable Britain to join the single currency shortly after the next election if conditions were right.

Foreign Affairs.
      On May 12 Foreign Secretary Cook launched a mission statement outlining the foreign policy aims and objectives of the incoming Labour government. Its overall purpose was uncontroversial—"to promote the national interests of the United Kingdom and to contribute to a strong world economy." What received the most attention, however, was a specific pledge "to spread the values of human rights, civil liberties and democracy which we demand for ourselves."

      On May 21 the government announced a complete ban on the manufacture, transfer, export, and import of antipersonnel land mines. At midnight on June 30/July 1 the U.K. handed Hong Kong over to China in a short ceremony attended by Blair and Prince Charles. ) (Hong Kong's Return to China ) Hong Kong had been the last significant colony ruled by Britain; the few remaining dependent territories all had tiny populations. On July 1 the U.K. rejoined UNESCO.

      On July 28 the government announced that in line with its ethical principles, "we will not issue an export license if there is a clearly identifiable risk that the proposed export might be used for internal repression." Despite this declaration, the government allowed the delivery to Indonesia of Hawk jets and Alvis armoured vehicles, even though the former Conservative government had admitted that previous British-supplied armoured vehicles had been used to suppress protests against the Indonesian government. Cook defended the sale on the grounds that export licenses had been used before Britain's general election and could not be revoked.

      The new Labour government pursued a policy on Europe which differed from that of its Conservative predecessors. As well as signifying a wish in principle to join the EU's single currency, though not in the first wave (see Economic Affairs, above), the new government signed the social chapter of the 1992 Maastricht Treaty. Britain also agreed to sign the "Amsterdam Treaty" following the summit of EU heads of government in Amsterdam in June; this reversed the policy of the previous Conservative government.

Northern Ireland.
      The IRA continued its campaign of sporadic violence during the early months of 1997, although at a more subdued level than before the 1995-96 cease-fire.

      On June 25 Blair announced that a new round of talks on the future of Northern Ireland would start in September, whether or not the IRA had called a new cease-fire. The prime minister told the House of Commons that the British government had written to Sinn Fein (the political arm of the IRA) that it could participate in the new talks six weeks after the IRA had called a new cease-fire. The British and Irish governments published joint proposals on an agreement that there would have to be "some decommissioning" of weapons during negotiations on a long-term political settlement but that Sinn Fein would be able to take part in those negotiations before the IRA started to hand over any of its weapons.

      On July 19 the IRA announced that a new cease-fire would come into effect at noon the following day, and on August 6 Marjorie Mowlam, the Northern Ireland secretary for Great Britain, met Gerry Adams, the president of Sinn Fein, for talks in Belfast. Mowlam announced on August 29 that Sinn Fein would be admitted to the peace talks, which were scheduled to start on September 15. A small IRA splinter group, calling itself the Continuity IRA, rejected the cease-fire, but its attempts to maintain a campaign of violence against British rule proved to be more of a minor irritant during the latter months of 1997 than a serious threat to the peace process.

      Initially both of the main Unionist parties refused to join the talks. On September 17, however, David Trimble, the leader of the larger of the two parties, the Ulster Unionist Party, announced that his party would join the talks in order to "expose their [Sinn Fein's] fascist character." Trimble initially refused to conduct face-to-face negotiations with Sinn Fein, but tense talks began on September 23.

      On December 11 the IRA received a further bonus from its cease-fire when Blair welcomed two leading members of Sinn Fein to the prime minister's residence in Downing Street, the first time since 1921 that leading figures associated with the IRA had been received there.

PETER KELLNER
      See also Commonwealth of Nations ; Dependent States .

▪ 1997

Introduction
      A constitutional monarchy in northwestern Europe and member of the Commonwealth, the United Kingdom comprises the island of Great Britain (England, Scotland, and Wales) and Northern Ireland, together with many small islands. Area: 244,110 sq km (94,251 sq mi), including 3,218 sq km of inland water but excluding the crown dependencies of the Channel Islands and Isle of Man. Pop. (1996 est.): 58,784,000. Cap.: London. Monetary unit: pound sterling, with (Oct. 11, 1996) a free rate of £ 0.63 to U.S. $1 (U.S. $1.58 = £1 sterling). Queen, Elizabeth II; prime minister in 1996, John Major.

Affairs.
      For the U.K.'s ruling Conservative Party, 1996 was a frustrating year. Despite low inflation, declining unemployment, rising house prices, and steady economic growth, the party remained unpopular with the voters. It also saw its majority in the House of Commons disappear. The general election in April 1992 had given the party a majority of 21 in the 651-seat Commons. Defections and by-election defeats, which had reduced the figure to five by the beginning of 1996, continued to take their toll. On February 23 it was cut to just two when one Tory MP, Peter Thurnham, resigned from the party and decided to sit as an independent; in October he joined the opposition Liberal Democrats. On April 11 the Conservative majority slipped to just one when the party lost the Midlands seat of Staffordshire South East to the Labour Party in a by-election. On December 13 the majority disappeared altogether following the death of Barry Porter, Conservative MP for Wirral South, and Labour's successful defense of a seat in a by-election in Barnsley.

      The Conservatives found themselves consistently on the defensive throughout the year, facing charges of malpractice (or "sleaze") and incompetence. On February 15 Lord Justice Sir Richard Scott published his long-awaited report, which had been commissioned by the government, regarding the sale of British arms to Iraq in the 1980s. Although Scott acquitted government ministers of deliberately lying to Parliament, he did conclude that they had misled the MPs and the general public by concealing a change in policy; Britain had supplied some arms to Saddam Hussein's regime even though the declared policy of the British government at the time was to maintain a strict arms embargo. In a heated Commons debate on the Scott report on February 26, the government narrowly survived censure, winning by 320 votes to 319.

      The government faced further embarrassment three weeks later, on March 20, when Stephen Dorrell, the health secretary, admitted that new scientific evidence established a "probable link" between bovine spongiform encephalopathy (BSE, or "mad cow" disease), which affected cattle, and Creutzfeldt-Jakob disease (CJD), which affected humans. This was the first official admission that BSE might have crossed the "species barrier." Sales of British beef plummeted as ministers faced accusations that they had done too little during the late 1980s and early 1990s to halt the spread of BSE in British herds. The government announced new measures to slaughter older cattle and to make sure that their flesh and carcasses would be incinerated and not allowed to enter the food chain. Consumer confidence in British beef remained low, and opinion polls showed that most voters distrusted government statements on the issue. Britain found itself in conflict with the rest of the European Union over an EU decision to ban the export of British beef.

      In October the House of Commons voted to launch an inquiry into allegations against one current and one former government minister. These allegations arose from inquires by The Guardian, which had alleged that the former trade minister, Neil Hamilton, had violated the rules of Parliament by receiving cash and other benefits secretly from the owner of Harrods department store in London, Mohammed Al Fayed. Hamilton had launched a libel action against The Guardian's initial report two years earlier. On September 30 Hamilton dropped it, however. The Guardian's front-page headline the following day branded Hamilton a "a liar and a cheat." Six days later new evidence emerged of attempts by a current minister, David Willetts, to persuade the Conservative majority on the all-party House of Commons Committee on Standards and Privileges to block an inquiry into the original allegations. This revelation embarrassed the Conservative leadership and provoked the speaker of the House of Commons, Betty Boothroyd, to make an unusually forthright statement to the MPs on October 14, demanding a full and speedy inquiry into the full range of allegations prompted by the newspaper's reports. Following a short debate on October 16, the Commons agreed to her request. The inquiry reported on December 11. Its strongly worded criticisms of Willetts forced him to resign from the government.

      Meanwhile, Labour continued to lead the Conservatives by more than 20 points in the opinion polls. In July, with the general election due by May 1997 at the latest, Labour leader Tony Blair launched a preelection manifesto, "New Life for Britain." This shed the last remnants of Labour's historic devotion to public ownership and high government spending. It promised to keep inflation and interest rates down and to reduce government borrowing.

      The Tories sought to counter Blair's popularity by launching an aggressive poster and newspaper advertising campaign in August, using the slogan "New Labour, New Danger." Labour complained that one of the advertisements, which portrayed Blair smiling but with his eyes coloured red and set behind a mask, was designed to make Labour's leader look like the devil. The Conservatives disputed this interpretation, but the Advertising Standards Association banned its future use. The Conservatives, however, repeated the "demon-eyes" motif in other advertisements, without associating them personally with Blair. Labour launched its own anti-Conservative advertisements, containing the slogan "Same Old Tories, Same Old Lies."

      Although Labour remained well ahead of the Conservatives, the party encountered problems of its own. In January Harriet Harman, Labour's shadow cabinet health minister and one of Blair's closest senior allies, announced that she would send one of her sons to a selective grammar school, despite the fact that Labour's education policy was to oppose such schools. Blair backed Harman's right to make this decision, but it was criticized by many Labour MPs and seized on by the Conservatives as an example of Labour hypocrisy.

      Labour also attracted fire from its opponents and some of its own MPs for changing its policy on Scottish devolution three times during the year. Labour had long advocated a new parliament for Scotland with wide legislative and limited tax-raising powers. Faced with Conservative charges that Labour was planning to impose an extra "tartan tax" on Scottish taxpayers, Blair and George Robertson, his shadow cabinet Scottish minister, promised a referendum on the party's plans for devolution should Labour win the next U.K.-wide general election. The details of their referendum strategy kept changing, however. Finally, on September 6, Labour announced that it would hold one referendum, in which Scottish voters would face two questions: Did they want Scotland to have its own parliament, and should that parliament have the power to adjust tax rates relative to the standard national rates?

      Outside politics, Scotland provided the year's grimmest headlines. On March 13 Thomas Hamilton, a former youth club worker, shot dead 16 young children, their teacher, and, finally, himself at the primary school in Dunblane, a small town 32 km (20 mi) north of Glasgow. The horrific attack prompted a debate about Britain's gun-licensing laws. Despite a well-documented history of mental instability, Hamilton had been able to obtain a license for the handgun he used in the shootings. The government established an inquiry into the country's gun laws. The inquiry, which reported on October 16, recommended the banning of the private ownership (outside strictly controlled gun clubs) of handguns over .22 calibre. The home secretary, Michael Howard, announced that the government would ban the private ownership of all such guns, including those held at gun clubs, and that privately owned single-shot .22-calibre guns and smaller pistols would have to be kept on gun club premises, not at home. These proposals, he said, would give the U.K. some of the tightest gun-control laws of any country in the world. Opposition MPs and some Conservatives urged the government to extend the total ban to .22-calibre guns.

      The royal family continued to make news, to the despair of its supporters but to the delight of millions of tabloid newspaper readers. On April 17 Andrew, duke of York (the third of the queen's four children), obtained a divorce from Sarah, duchess of York, following widespread reports of her varied and exotic private life. The duchess, who lost the title "Her Royal Highness," continued to make news as former lovers found they could make money by giving their accounts of their affairs with her. On August 28 the divorce was also finalized between Charles and Diana, prince and princess of Wales. She, too, lost her right to be described as "Her Royal Highness." She was widely reported to have received £20 million as a divorce settlement. The divorce led to speculation that Charles might marry his mistress, Camilla Parker-Bowles (who had divorced her husband in 1995). While no formal announcements were made on the subject, Buckingham Palace officials advised the media that the prince would not marry again for the foreseeable future.

The Economy.
      For the fourth year in succession, the U.K. had the fastest economic growth of any major economy in Western Europe. The 2.5% growth rate was, however, less than the government had expected at the beginning of the year, although in November unemployment fell below two million for the first time since 1990.

      For those at work the improvements in the economy were clear enough. Consumer price inflation remained subdued, fluctuating within the range of 2-3%. Interest rates fell to their lowest in 30 years; the Bank of England's base rate, which was 6.5% at the beginning of the year, was reduced in quarter-point stages to 5.75% by June. The last reduction was opposed by Eddie George, the governor of the Bank of England, but was insisted upon by Kenneth Clarke, the chancellor of the Exchequer, who wanted to prevent the economic growth rate from slipping too far and also to maximize public support for the Conservative Party. In October, however, Clarke conceded a little ground to George and agreed to a slight increase; at the end of 1996, the base rate stood at 6%.

      The combination of low inflation, falling interest rates, and declining unemployment had a marked effect on consumer confidence. Retail sales increased by more than 3% during the year, while house prices rose by 6-7%—the first significant increase since 1989. During the early 1990s up to two million homeowners had lived under the cloud of "negative equity"; that is, their mortgage debt exceeded the value of their home. In 1996 that cloud began to lift.

Foreign Affairs.
      On March 12 the government published a White Paper, A Partnership of Nations, setting out Britain's views on the future of the EU. The paper sought to satisfy both the pro- and anti-EU wings of the Conservative Party. It stated that Britain would "pursue our national interests, as our partners pursue theirs, yet with a strong sense of shared purpose and common enterprise." It argued that the call in the Treaty on European Union, agreed upon at Maastricht, Neth., in 1991, for "an ever closer union among the peoples of Europe" did not necessarily mean closer union between the nations of Europe. Specifically, the White Paper argued that Britain should retain its choice as to whether to join the EU's so-called Social Chapter, that there should be no extension to the powers of the European Parliament, and that Britain would resist any change in the decision-making rules that would limit further the power of the national veto and extend the range of decisions taken by majority voting.

      The government's hopes of winning allies in the EU for its vision of Europe's future were dented by a dispute that erupted less than two weeks after the White Paper was published. On March 25 the European Commission imposed a worldwide ban on the export of all British beef products. On May 21, following a decision by the EU's standing veterinary committee to retain the ban in full, Prime Minister John Major announced that until that decision had been reversed, the U.K. would refuse to cooperate with the EU in any decision on any issue that required unanimity. One month later, on June 21, at the EU summit in Florence. Major agreed to end the noncooperation policy in return for an agreement to lift the export ban in stages. Major failed, however, to secure a firm timetable for allowing British exports to resume. At year's end, the full ban was still in force, but the government had agreed to increase the cull by up to 100,000 cattle.

      The last full year of British control of Hong Kong, prior to its reversion to Chinese rule in July 1997, was marked by attempts to repair relations between the U.K. and China. In January Malcolm Rifkind, the U.K.'s foreign secretary, visited China and promised that both the British and the Hong Kong governments would cooperate with China's Preparatory Committee and its chief executive designate. This had the effect of diminishing the significance of the Hong Kong Legislative Council (LegCo), which had been elected in 1995 but which China said it would dismantle after the end of British rule.

      In September the tactics of Chris Patten, the governor of Hong Kong, were attacked by Sir Percy Craddock, a former British ambassador to China and one of Britain's key negotiators who produced the 1984 Sino-British agreement on the colony's future. In an article in Hong Kong's leading morning paper, the South China Morning Post, Craddock said that the 1984 agreement had said nothing about bringing democracy to Hong Kong while it remained under British rule. By championing democratic reform, Patten, he said, was "either deluding himself or wilfully misleading his followers." More lasting democratic institutions could have been created, Craddock argued, had Patten sought to negotiate more with China over the pace of reform rather than set up LegCo in the teeth of Chinese opposition.

Northern Ireland.
      The cease-fire that had come into force in September 1994 came to an abrupt end on February 9 when the Irish Republican Army (IRA) detonated a bomb at Canary Wharf, in London's Docklands area, which killed two people and injured another 100. A second bomb exploded 10 days later on a London bus, killing the IRA member who was carrying it. On June 15 a third bomb exploded at the Arndale shopping centre in Manchester. A telephone warning had allowed the centre to be evacuated. Nevertheless, 200 people were injured and the centre was destroyed.

      The end of the cease-fire followed the publication of the Mitchell report on January 24. George Mitchell, a former U.S. senator, had been invited by the British and Irish governments in 1995 to lead an international group to propose how the arms used in the Northern Ireland conflict should be progressively decommissioned as part of the peace process. Mitchell's report sought to strike a compromise between the British government's insistence that the IRA give up its arms before peace negotiations took place and the IRA's insistence that negotiations come first.

      Major's response was to accept the report in principle but not to hold peace talks until the election, in May, of a Northern Ireland peace forum. The unionist parties in Northern Ireland welcomed this idea, but it was opposed by the nationalist parties—the anti-IRA Social and Democratic Labour Party (SDLP) as well as the pro-IRA Sinn Fein—which condemned Major for delaying tactics. The Irish government also opposed Major's election plan; on February 7 it responded by proposing a peace conference of the kind that had been held in Dayton, Ohio, to end the war in Bosnia and Herzegovina. When Major rejected this plan, the IRA announced that it was ending its cease-fire. Within two hours the Docklands bomb exploded. The breakdown in the cease-fire was not total. The IRA confined its bomb attacks initially to the British mainland and did not resume violence in Northern Ireland. The Protestant, "loyalist," paramilitary groups announced that they would maintain their cease-fire. For the time being, however, progress toward peace negotiations had been halted.

      The election called by Major was held on May 30. Despite their opposition to it, Sinn Fein and the SDLP agreed to take part. The SDLP won 21% of the vote, while Sinn Fein won 15%. The two main unionist parties won 24% (Official Unionists) and 19% (Democratic Unionists). Sinn Fein, however, boycotted the peace forum following the election. This was largely symbolic, for the forum had no real powers. Meanwhile, multiparty peace talks chaired by Mitchell started on June 10; without a new IRA cease-fire, however, they had little chance of making progress. The British government consistently maintained that Sinn Fein could not take part in peace talks until the IRA had reinstated its cease-fire.

      On October 7 the IRA resumed its bombing campaign inside Northern Ireland. Two bombs exploded at the British army's headquarters in Lisburn in County Antrim. Thirty-one people, including 24 soldiers and 2 children, were injured; four days later an injured soldier died from his wounds, the first British army death in Northern Ireland in more than two years. In the aftermath of the Lisburn bombing, John Burton, Ireland's prime minister, attacked the IRA as behaving like Germany's Nazis in the 1920s and '30s. Protestant loyalists ended their two-year cease-fire with a car bombing on December 22 in retaliation for an IRA attack in a children's hospital two days prior. (PETER KELLNER)

      See also Commonwealth of Nations ; Dependent States .

▪ 1996

Introduction
      A constitutional monarchy in northwestern Europe and member of the Commonwealth, the United Kingdom comprises the island of Great Britain (England, Scotland, and Wales) and Northern Ireland, together with many small islands. Area: 244,110 sq km (94,251 sq mi), including 3,218 sq km of inland water but excluding the crown dependencies of the Channel Islands and Isle of Man. Pop. (1995 est.): 58,586,000. Cap.: London. Monetary unit: pound sterling, with (Oct. 6, 1995) a free rate of £ 0.63 to U.S. $1 (U.S. $1.58 = £1 sterling). Queen, Elizabeth II; prime minister in 1995, John Major.

Affairs.
      Despite presiding over a growing economy with low inflation and falling unemployment, a reduction in reported crime, and sustained peace in Northern Ireland, the Conservative government of Prime Minister John Major remained deeply unpopular throughout 1995. Mounting speculation about Major's own position prompted him to call a special parliamentary party election in which he was duly reelected as leader of the Conservative Party, although more than one in four Tory MPs voted against him.

      Evidence of public dissatisfaction with the government was everywhere. Most opinion polls through the year showed that the main opposition Labour Party commanded twice as much support as the Conservatives. In May support for the Conservatives in elections to district and city councils slipped to 25%—the party's lowest ever in a nationwide election. The scale of Conservative losses was so great that the party emerged from these local elections with fewer councillors, and controlling fewer councils, in British local government than either Labour or the Liberal Democrats.

      The Conservatives also lost two by-elections heavily, falling from first to third place both at Perth and Kinross in Scotland (in May; won by the separatist Scottish National Party) and at Littleborough and Saddleworth in northern England (in July; won by the Liberal Democrats). These losses reduced the Conservatives' majority to nine in the 651-member House of Commons. In October, Alan Howarth, a former government minister, resigned from the Conservative Party and joined Labour—the first MP ever to transfer directly from Conservative to Labour. In December Emma Nicholson, a former vice-chairman of the Conservative Party, also switched sides; she joined the Liberal Democrats. These defections reduced the government's majority to five.

      On June 22 Major responded to mounting criticism of his leadership by resigning as leader of the Conservative Party—and announcing his intention to stand in the consequent election. He challenged his opponents to "put up or shut up." His aim was to demonstrate that his critics inside the party were in a small minority and thereby to reassert his authority. On June 26 John Redwood, the secretary of state for Wales, resigned from Major's Cabinet and announced his candidacy. Redwood was a right-wing enthusiast of free competition, low taxes, and reduced government spending; a critic of European integration; and an opponent of plans for a single currency for Europe. He sought to appeal to other Conservative MPs—the electorate in the party's leadership elections—by claiming that the party could not win the next general election under Major. Redwood's campaign slogan was "No change means no chance." In the event, Major won the support of 218 MPs to Redwood's 89; 22 other MPs abstained or spoiled their ballot papers.

      Major's victory put an end to speculation about the Conservative leadership, at least for the time being, even though his margin of victory was not as decisive as his campaign team had hoped. On the day following his victory, Major reshaped his Cabinet. His most significant appointment was that of Michael Heseltine as deputy prime minister. Heseltine was one of his party's most flamboyant MPs and arguably its most effective orator. He had long harboured his own ambitions to lead the party; his challenge to Prime Minister Margaret Thatcher in November 1990 had led directly to her downfall and Major's elevation. During the leadership election, Heseltine had urged his own followers to back Major; his appointment as deputy prime minister was his reward. It also meant that should Major stand down for any reason before the next election, Heseltine would be well placed to grasp the prize he had always sought.

      Foreign Secretary Douglas Hurd decided to retire from the government during the July reshuffle. Major replaced Hurd with Malcolm Rifkind, formerly defense secretary. (See BIOGRAPHIES (Rifkind, Malcolm Leslie ).) The new defense secretary, Michael Portillo, shared Redwood's outlook on Europe, taxation, and government spending, but he had remained in Major's Cabinet during the leadership contest rather than resign. Jonathan Aitken also resigned from the Cabinet following allegations that during the 1980s he had been a director of a company, BMARC, that circumvented the U.K.'s embargo on the sale of arms to Iran. Aitken denied that he had knowledge of any illegality by BMARC, but his presence in Major's Cabinet impeded the Conservatives' attempts to fend off charges that the government turned a blind eye to "sleaze" (dubious personal behaviour) by ministers. Following his confirmation as party leader and the Cabinet reshuffle, Major's public popularity rose slightly, but Labour retained its commanding poll lead throughout the second half of 1995.

      Meanwhile, Labour itself had continued to shed its left-wing image in an attempt to convince voters of its more centrist credentials. Tony Blair, who had been elected Labour's new leader in July 1994, persuaded a special conference of his party on April 29 to adopt a new statement of aims and values. By a margin of 65% to 35%, the conference agreed to discard the old Clause 4 of the party's constitution, which committed Labour to seeking "the common ownership of the means of production, distribution and exchange." That commitment, which dated from 1918, was replaced by an ambition to create a society "in which power, wealth and opportunity are in the hands of the many, not the few," and where "the enterprise of the market and rigour of competition are joined with the forces of partnership and co-operation." This explicit embrace of the market system, combined with Blair's repudiation of ideological socialism, represented a significant moment in the evolution of the Labour Party—or, as Blair increasingly described it, "New Labour."

      On May 11 a government-appointed committee, chaired by Lord Nolan, published its first report on standards of conduct in public life. The committee had been established in October 1994 following a series of financial scandals, mostly minor but mainly involving Conservative MPs. The Nolan committee recommended that MPs (other than ministers) continue to be allowed to earn money outside Parliament but that these earnings be regulated by a new code of conduct and that details of all contracts, consultancies, and payments be published. Nolan also recommended changes to the way in which ministers appointed members to nongovernmental public bodies ("quangos"), and to the rules under which civil servants were allowed to accept work in the private sector after leaving government service. The government accepted most of Nolan's recommendations but advised MPs to reject disclosure of the details and amounts of outside earnings. Twenty-three Conservative MPs joined the opposition and voted for full disclosure, however, and the government was defeated by a majority of 51.

      One continuing problem for the government through 1995 concerned prison security. In January three dangerous prisoners escaped from Parkhurst Prison on the Isle of Wight, off the coast of southern England. They had managed to obtain a copy of the master key to make their escape. Although the prisoners were caught after five days, their escape—coming just four months after a breakout by five Irish terrorist prisoners from a top security prison in Cambridgeshire—provoked widespread concern about the management of Britain's prisons. This concern was intensified in February by a report by the government's chief inspector of prisons, Judge Stephen Tumim, who described conditions in Leeds Prison, one of the largest in the country, as an "affront to dignity."

      In October a report of an official inquiry by a retired army general, Sir John Learmont, into the Parkhurst breakout criticized the management of the Prison Service in forthright terms. Michael Howard, the home secretary, responded by dismissing the service's director-general, Derek Lewis. Lewis responded by suing Howard for unfair dismissal and accusing the home secretary of intervening improperly in the day-to-day running of the service, thus making it impossible for him to do his job properly. Howard rejected this charge and resisted loud demands from the opposition parties for his resignation.

      A major confrontation between the environmental group Greenpeace and the Royal Dutch/Shell Group occurred during the year when Shell sought to dispose of its Brent Spar North Sea oil-storage platform. Germany's Chancellor Helmut Kohl also criticized the British government's support for Shell. (See Sidebar (Brent Spar ).)

      The continuing drama of the royal family's personal troubles took a new twist as the marriage of Prince Charles and Diana, Princess of Wales, finally collapsed in full public view. On November 20, just under three years after the couple's formal separation, Diana gave an hour-long interview on BBC television during which she admitted adultery (with a former guards officer, James Hewitt) and cast doubts on the fitness of Prince Charles to become king. The public debate that followed the interview brought to a head the issue of whether the prince and princess should formally seek a divorce, which would, among other things, have the effect of preventing Diana from becoming queen upon Charles's ascent to the throne. On December 20 Buckingham Palace announced that Queen Elizabeth II had advised the prince to begin divorce proceedings. The following day Charles made clear his intention to become king in due course and not to remarry for the foreseeable future. This dampened speculation that Charles intended to take the controversial step of marrying Camilla Parker-Bowles, with whom he had previously admitted having an affair.

      During 1995 the British people set a new record as the world's keenest lottery players. Each week an estimated 75% of all adults bought at least one of the £1 lottery tickets or scratch cards. During its first 12 months the national lottery, which began in November 1994, exceeded all expectations by raising more than £ 4 billion. Half of this money went in prizes, with the jackpot reaching £20 million in some weeks. The other half was divided between administration and taxes (22%) and money for good causes (28%).

The Economy.
      The U.K. achieved its third consecutive year of steady economic growth and low inflation in 1995. Gross domestic product rose by 2.5%—slightly less than in 1994 but at a rate that was deemed less likely to cause inflationary pressure. Retail prices rose by 3.5%—inside, although toward the top end of, the government's target range of 1-4%. Unemployment fell by 300,000 to 2.2 million.

      These achievements, however, produced few political rewards for the Conservative government. Tax increases announced in 1993 and 1994 were still being implemented in early 1995; many large companies continued to cut back on their workforce, especially white-collar and management staff. The result was persistent middle-class insecurity. This helped to prevent the stagnant housing market from recovering. Average house prices across the U.K. remained 20% lower than their peak in 1989. By late 1995 more than one million homeowners suffered from "negative equity"; that is, their mortgage debt exceeded the value of their home.

      The smooth running of the economy was not helped by a dispute during the early months of the year between Eddie George, the governor of the Bank of England (see BIOGRAPHIES (George, Eddie )), and Kenneth Clarke, the chancellor of the Exchequer. George wanted to put the fight against inflation above everything else and sought to raise interest rates to prevent the economy from overheating. Clarke did not want to discourage borrowing, investment, or the fragile housing market and resisted any increase in the base rate above the 6.75% agreed in February (itself a 0.5% increase on the rate at the end of 1994). In the end, Clarke had to use his formal authority as chancellor to overrule George. Clarke was subsequently seen by most economists to have been right—growth slowed anyway, but the spectacle of the governor being directly overruled on monetary policy did nothing to soothe frayed nerves in the financial markets.

      There were other signs of economic weakness. Government borrowing had been projected to fall from £ 35 billion in 1994-95 to £23 billion in 1995-96. At the end of 1995, however, borrowing was persisting at the same rate as a year earlier, mainly because the slowdown in economic growth caused tax revenues to fall short of their expected levels. Moreover, as the year progressed, there was mounting evidence of a rise in Britain's balance of payments deficit.

      Against this background, Clarke sought to fashion his annual budget, presented on November 28, in a manner that would appeal to both voters and the financial markets. He reduced public spending (although protecting the health and education budgets) and also reduced the standard rate of income tax by 1% to 24%. He reinforced his policy with a quarter-point cut in interest rates in December—the first reduction in almost two years. By taking no economic risks, Clarke achieved no immediate political benefits; the Conservatives remained as far behind Labour directly after the budget as they had been before.

      On February 26 one of Britain's oldest banks, Barings PLC, collapsed following massive losses incurred on the futures market in Singapore. (See Economic Affairs (Concern over Derivatives ).) The government blamed the collapse on the activities of a single "rogue" trader on Barings' Singapore staff, Nicholas Leeson, who was subsequently detained in Germany. In a report on July 18, the Board of Banking Supervision concluded that Barings had suffered from serious failures of internal management, but opposition parties called for tougher external regulation in order to protect the wider reputation of the City of London in the future. In November the government announced it would not seek the extradition of Leeson, who was then returned to Singapore to face criminal charges and was subsequently sentenced to a prison term of 6 1/2 years.

Foreign Affairs.
      The United Kingdom's relations with the rest of the European Union (EU) remained tense throughout 1995, although Major believed that events were gradually moving his way on monetary union. At a meeting of EU heads of government in Formentor, Málaga, Spain, in September, Major said that "few, perhaps very few" EU states would meet the Maastricht Treaty's economic convergence conditions by 1999; as a result, Britain—if it exercised its opt-out and decided not to join a single currency—would not be alone. Major said that if an inner group of EU states insisted on introducing a single currency, a two-speed Europe would be inevitable and should be planned for. Major also repeated his intention to resist any widening of the powers of the EU at the intergovernmental conference, due to start in 1996. Major warned that the EU would lose the respect of people throughout Europe if it leaped too far ahead of public opinion.

      In May the government announced its intention to send a further 6,700 troops to Bosnia and Herzegovina, to add to the 4,400 already taking part in the 25,000-strong United Nations peacekeeping force. Major announced that Britain's forces had two objectives: to distribute humanitarian aid and to prevent a wider conflagration across the Balkans. His announcement attracted all-party support in the House of Commons, although both Labour and the Liberal Democrats urged tougher action against the Bosnian Serb forces. Following the peace agreement in November, Major announced that British troops would play a significant role in peacekeeping efforts in Bosnia and Herzegovina.

      In Hong Kong, Britain negotiated its first substantive agreement with China on the future of the colony after control passed to China in 1997. On June 9 the two countries agreed to establish a new Court of Final Appeal with limited powers. Sensitive "acts of state" issues, such as those concerning defense and foreign affairs, would be referred to Beijing. Britain and China also reached agreement on the financing of a new airport for Hong Kong, to be opened in 1998. Meanwhile, a new Legislative Council was elected on September 17, but only about 35% of Hong Kong's electors took part in the election. (See Dependent States, above.)

Northern Ireland.
      Following the cease-fires in 1994, Northern Ireland remained at peace throughout 1995, although only slow progress was made toward a lasting political settlement. On February 22 the British and Irish governments presented a framework document setting out some agreed proposals for the future of the province. These included the establishment of a new assembly for Northern Ireland with 90 members elected by proportional representation; a directly elected three-member panel to oversee the work of the assembly; a new cross-border body of members of the Irish Dail (parliament) and Northern Ireland assembly to deal with issues of shared concern; an end to Ireland's claim, in art. 2 of the constitution, to regard Northern Ireland as part of its "national territory"; and confirmation by the United Kingdom government that any change in the constitutional position of Northern Ireland would require the consent of a majority of its people.

      Gerry Adams, president of Sinn Fein, the political wing of the Irish Republican Army (IRA), welcomed the framework document, saying, "Its ethos is for one Ireland and an all-Ireland arrangement." The two main unionist parties shared this analysis and, consequently, rejected the document. They announced their intention to boycott any talks based on the document's provisions.

      Separately, the British government said that Sinn Fein could take part in roundtable talks only if it started to decommission its weapons. Sinn Fein said that it would be willing to discuss handing in its weapons as part of an overall peace agreement, but not before. Nevertheless, a number of bilateral meetings were held between the Sinn Fein leadership and government officials. On May 24 Adams met Sir Patrick Mayhew, Britain's Northern Ireland secretary, in Washington, D.C., when both attended an Irish-U.S. investment conference.

      Nevertheless, with the unionists refusing to join roundtable talks and Sinn Fein barred from them, no substantive progress was made during the rest of 1995. Apart from a few isolated incidents, however, the cease-fire continued to hold. One consequence was a sharp increase in confidence, investment, and employment in the province as it benefited from a substantial "peace dividend." The British government also sought to reduce tension by withdrawing two army battalions from Northern Ireland and gradually releasing convicted terrorists from prison.

      On August 28 James Molyneaux announced his resignation after 16 years as leader of the Ulster Unionist Party. On September 8 the party elected David Trimble as his successor. Trimble, a former law lecturer, was regarded as the most hard-line of the main candidates. In his early weeks as leader, however, Trimble went to some lengths to open up a dialogue with both London and Dublin.

      On November 28 Major and John Bruton, Ireland's prime minister, announced a new agreement between the two governments on the next stage of the peace process. On the most contentious issue, the decommissioning of the IRA arsenal, they agreed to establish a three-member international commission, chaired by former U.S. senator George Mitchell, to consult and deliberate on ways of breaking the deadlock. Major and Bruton agreed that if the commission found that the IRA and Protestant paramilitary bodies had "a clear commitment" to disarm as part of the peace process, then they would be able to take part in preparatory talks in early 1996 aimed at clearing the ground for full all-party negotiations. Two days later U.S. Pres. Bill Clinton visited Northern Ireland, where he was given an immense ovation from both the nationalist and unionist communities for his contribution to the peace process. In return, Clinton said that the people of Northern Ireland were "making a miracle." (PETER KELLNER)

      See also Commonwealth of Nations ; Dependent States .

▪ 1995

Introduction
      A constitutional monarchy in northwestern Europe and member of the Commonwealth, the United Kingdom comprises the island of Great Britain (England, Scotland, and Wales) and Northern Ireland, together with many small islands. Area: 244,110 sq km (94,251 sq mi), including 3,218 sq km of inland water but excluding the crown dependencies of the Channel Islands and Isle of Man. Pop. (1994 est.): 58,422,000. Cap.: London. Monetary unit: pound sterling, with (Oct. 7, 1994) a free rate of £ 0.63 to U.S. $1 (U.S. $1.59 = £1 sterling). Queen, Elizabeth II; prime minister in 1994, John Major.

Affairs.
      In two important respects the Conservative government of Prime Minister John Major could proclaim 1994 as a year of success. It presided over steady, noninflationary economic growth and brought peace to Northern Ireland. Yet these successes were more than offset by a series of problems that dented the government's reputation and saw the Conservatives slide in May to their worst defeat in any national election in the 20th century.

      Much of the damage was done by a series of incidents that, cumulatively, provoked widespread criticism of government "sleaze." On January 5 Tim Yeo, who had previously endorsed Major's call for the Conservatives to be the party of "family values," resigned as a junior minister after having admitted being the father of his mistress's child. On February 7 a backbench Conservative MP, Stephen Milligan, was found dead at his London flat; he had apparently asphyxiated himself accidentally while performing a dangerous autoerotic act. In May the National Audit Office condemned the U.K.'s biggest overseas aid project—£ 234 million for the Pergau Dam in Malaysia—as a waste of money. On December 7 Foreign Secretary Douglas Hurd admitted that ministers had broken the law in agreeing to fund the dam from the U.K.'s overseas aid budget. In July Lord Archer (the novelist Jeffrey Archer and a close friend of Major) was subjected to an official inquiry into insider trading in a television company where his wife was a director. Archer, who was subsequently cleared of the charges, admitted he bought shares shortly before a takeover bid and sold them a few days later, thus making an £ 80,000 profit on behalf of a friend.

      After each incident Major hoped that the "sleaze" factor would die away, but each time a new allegation soon emerged. On July 10 The Sunday Times reported that two backbench Conservative MPs had broken parliamentary rules by agreeing to accept money from a reporter (posing as a businessman) to present, or table, questions to ministers. The "cash for questions" row gained fresh impetus on October 20 when The Guardian disclosed that two junior ministers, Tim Smith and Neil Hamilton, had accepted payment in cash or hospitality for tabling parliamentary questions some years earlier (when both were backbenchers) on behalf of Mohamed al-Fayed, the owner of Harrods department store in London. Both Smith and Hamilton resigned their posts. On October 25 Major set up an independent inquiry to reconsider the rules governing standards of conduct by MPs, ministers, and civil servants. Few people were surprised when a Gallup Poll in late October found that 73% of those questioned considered the Conservatives "sleazy and disreputable."

      Later the same month, the government feared that another backbench rebellion would defeat its European Communities (Finance) Bill, the main purpose of which was to sanction increases in the U.K.'s contribution to the European Union (EU). To minimize the rebellion, Major announced that he would regard the Commons vote as a vote of confidence, and if he lost, he would call an early general election. Major secured his immediate objective; the government won the vote on November 28 by 27 votes with the aid of Northern Ireland's Ulster Unionist MPs. Eight Conservative MPs abstained, however, and were promptly suspended from the party in Parliament. The following week the eight rebels retaliated by opposing the government's plans to increase the value-added tax on domestic fuel from 8% to 17.5%. This time the Ulster Unionists voted against the government, which lost by 319-311. The episode reinforced the image of a government unable to secure parliamentary approval for all its policies.

      The Conservatives' problems caused the party to lose ground electorally. In the elections to the European Parliament in June, the party won only 28% support and held only 18 seats. Labour, with 44% of the vote, amassed 62 seats. The Liberal Democrats, with 17% support, won two seats—their first in the European Parliament. The Scottish Nationalists doubled their representation from one to two. By December opinion polls showed the Conservatives holding barely half the support that they had won in the 1992 general election. Their 22% rating was the lowest in their history. On December 15 they lost a by-election in Dudley West when Labour achieved a majority of 50%, compared with a Conservative majority of 8% in 1992. The shift in votes was the biggest between the two parties in modern times.

      During the early months of 1994, the Conservatives' troubles had provoked speculation that Major might be replaced as party leader and prime minister. In the event, however, it was the opposition Labour Party that was forced to choose a new leader. On May 12 John Smith (see OBITUARIES (Smith, John )) died of a heart attack. On July 21 Tony Blair was elected to succeed him. Blair obtained 57% of the vote of Labour MPs, party members, and trade unionists, defeating John Prescott (see BIOGRAPHIES (Prescott, John )), who took 24%, and Margaret Beckett (19%). In a parallel contest for the deputy leadership, Prescott (57%) defeated Beckett (43%), who had served as Smith's deputy.

      Blair campaigned for the leadership on an uncompromising policy of reform. On October 4, in his first speech as party leader to Labour's annual conference, he announced a review of the party's constitution. This announcement signaled his intention to bury Labour's long-standing constitutional commitment to work for "the common ownership of the means of production, exchange and distribution." That commitment—known as Clause IV from its position in Labour's constitution—had lasted since 1918. Blair argued that Labour needed to make clear its acceptance of the principles of a market economy.

      Blair's strategy won wide public approval and posed a dilemma for the Conservatives: should they seek to fight Labour on the centre ground or move to the right and (in the words of Michael Portillo, one of Major's most right-wing Cabinet ministers) establish "clear blue water" between the parties? On October 14, in a speech to his party's annual conference, Major made clear his intention to disregard Portillo's advice. He announced that in the near future there would be no further big changes to two government services that had been through a series of recent upheavals: health and education.

      Three significant social reforms were implemented in 1994. On February 21, MPs voted to reduce the age of homosexual consent to 18. This decision represented a compromise between those who wanted to keep the age of consent at 21 and those who wanted to reduce it to 16, in line with the age of heterosexual consent. On August 26 the Sunday Trading Act came into force. This allowed small shops in England and Wales to open at any time on Sunday and large shops to open for any six hours between 10 AM and 6 PM. The previous, far more restrictive, Sunday trading laws had been widely ignored. The third reform was enacted not by Parliament but by the General Synod of the Church of England, which voted on February 22 to allow women to be ordained as priests.

      The monarchy had another turbulent year. Details surfaced of extramarital affairs by both the Prince and Princess of Wales prior to their separation in December 1992. Royal rumours and revelations filled the tabloid press and provided grist for the book-publishing industry as well. Prince Charles sought (with some success) to rebuild his reputation by cooperating with a two-hour television documentary about his life. During interviews given during the making of the film, which was shown in June, the prince insisted that he would become king (rather than allow the succession to pass straight to his elder son, Prince William) and that he wanted to create a more modest and open monarchy, with fewer "minor royals" performing public functions. He also said that he wanted to be amend the coronation oath so that he would become "defender of faith" (meaning all religions) rather than just "defender of the faith," the traditional title accorded to the monarch as formal head of the Church of England.

Economic Affairs.
      The U.K.'s main economic indicators in 1994 told a story of steady progress. Gross domestic product grew by 3%; prices rose by only 2%; the value of sterling held steady; and unemployment fell by 300,000 to 2.5 million, or 9% of the workforce.

      Throughout the year Kenneth Clarke sought to convince voters and investors alike that the United Kingdom was overcoming the problems of the early 1990s—recession, high inflation, a rising tax burden, and record levels of government borrowing. The public-sector borrowing requirement for the year to March 31, 1994, reached £46 billion. This exceeded the previous record, set in 1993, by £ 10 billion. Tax increases and higher-than-expected economic growth helped to reduce the level of borrowing during 1994, however. By the end of 1994 the rate of borrowing had fallen to £30 billion a year. Through the year Clarke and Eddie George, the governor of the Bank of England, stressed their determination to ensure that the U.K.'s recovery did not provoke higher inflation. On February 8 they reduced the bank's minimum lending rate to 5.25%, the lowest since 1977. On September 12, however, following the publication of data showing faster-than-expected economic growth, the rate was raised to 5.75%.

      Some economic problems remained. Consumer confidence recovered only slowly. The housing market proved more fragile than the government either hoped or wanted. On average, house prices did not change through the year. Although this helped first-time buyers, it both reflected and reinforced consumer nervousness. One contributory cause was mounting insecurity in the labour market. Although the unemployment figures fell, so did the figures for the number of employees in full-time jobs.

Foreign Affairs.
      A brief but bitter dispute flared up in March between the U.K. and 10 of the other 11 members of the European Union (EU) over the enlargement of the Union. The dispute concerned the formula governing decisions taken by qualified majority voting (QMV) among the EU's Council of Ministers. The U.K. wanted to change the rules to increase the majority needed to adopt QMV decisions. On March 22, following an inconclusive meeting of the EU's foreign ministers, Major told the House of Commons that he would veto EU enlargement unless the QMV rules were changed. One week later, however, after a further meeting of foreign ministers, Major backed down, amid widespread criticism that he said one thing one week and did the opposite the next.

      Major survived his next test rather better. On June 25 he vetoed the nomination of Belgian Prime Minister Jean-Luc Dehaene as the next president of the European Commission. Major considered Dehaene, who had the backing of the other 11 states, as too much of a European federalist. On this occasion Major stuck by his veto. Eventually, on July 15, the heads of government unanimously chose Jacques Santer (see BIOGRAPHIES (Santer, Jacques )), the prime minister of Luxembourg, as the next president of the commission.

      During the year Major developed his belief that Europe should resist becoming a federal state. Instead, in a speech on May 31 during the European Parliament election campaign, he advocated a "multitrack, multispeed, multilayered" approach, in which the diverse interests of different member states would be recognized. On September 7, during a visit to Leiden, Neth., Major went farther and warned against Germany, France, and the Benelux countries trying to create an inner group starting to construct a federal Europe regardless of the wishes of the rest. Major said, "I see a real danger in talk of a hard core, inner and outer circles, a two-tier Europe. . . . There is not, and should never be, an exclusive hard core either of countries or of policies."

      A more tangible symbol of the U.K.'s links with the rest of Europe came when on May 6 the queen and French Pres. François Mitterrand officially opened the new Channel Tunnel (Eurotunnel), which was built to carry rail traffic between England and France. After overcoming some teething difficulties, the passenger service opened on November 14, allowing rail passengers to travel between London and Paris in three hours.

      At the end of February, Major visited Washington, D.C., and sought to quell speculation that his relationship with U.S. Pres. Bill Clinton had been strained by reports that the Conservative Party had sought to help Pres. George Bush in his election campaign against Clinton in 1992. As a symbolic gesture, Clinton allowed Major to occupy the Lincoln bedroom at the White House—the first British leader to sleep there since Winston Churchill. Major and Clinton appeared to establish a good rapport, and later in the year Major acknowledged Clinton's supportive role in securing a cease-fire in Northern Ireland. The two leaders continued to disagree over policy in the former Yugoslavia, however, with Major opposing Clinton's call for the UN to lift its arms embargo on Bosnia and Herzegovina.

Northern Ireland.
      Hopes of an end to 25 years of violence rose dramatically in 1994 when the principal terrorist groups—both nationalist and unionist—announced cease-fires within seven weeks of each other. The Irish Republican Army (IRA) cease-fire came into effect on September 1 and that of the unionist groups on October 14.

      The cease-fires followed months of intensive debate within the terrorist groups following a joint peace initiative in December 1993, when Major and Irish Prime Minister Albert Reynolds set out their common position on the future of Northern Ireland. The Downing Street Declaration (as the initiative came to be called) included an offer to include terrorist groups in political and constitutional negotiations within three months of a permanent end to violence.

      During the nine months following the Downing Street Declaration, the IRA leadership came under considerable private pressure, both from Dublin and from the leadership of Northern Ireland's main (and nonviolent) nationalist party, the Social Democratic and Labour Party, to announce a cease-fire. On August 31 the IRA made its long-awaited announcement of "a complete cessation of military operations." Although the statement did not use the word "permanent," Reynolds immediately stated that he was satisfied with the IRA's wording.

      Major's initial reaction was regret that the IRA had failed to commit itself to a permanent end to violence. He did, however, seek to maintain the momentum toward peace. On September 16, during a visit to Belfast, he lifted the broadcasting ban that had prevented the voices of terrorists and their supporters from being heard on British radio and television. The ban had been widely criticized for laying the U.K. government open to criticisms of censorship—without achieving its declared purpose of denying publicity to terrorist groups. During the six-year ban, broadcasters had employed Irish actors to speak the words that terrorists had used in speeches and interviews. The effect was akin to a badly dubbed foreign-language film.

      Major also announced that the results of any negotiation over the future of Northern Ireland would be subject to a referendum in the province. This announcement was designed to satisfy unionists that Ulster would remain part of the U.K. as long as a majority of its electors so wished. Major's assurance helped to pave the way for the announcement by the main unionist (or "loyalist") terrorist groups on October 13 that they, too, would end "all operational hostilities" at midnight that day.

      By October 21, with the IRA cease-fire 51 days old and holding firm, Major was able to state that he was making a "working assumption" that the IRA intended a permanent end to hostilities. During a visit to Belfast, the prime minister announced that government officials would seek exploratory talks with Sinn Fein, the political arm of the IRA, before the end of the year. In addition, Major lifted the exclusion orders that had prevented Sinn Fein's two most prominent members, Gerry Adams (see BIOGRAPHIES (Adams, Gerry )) and Martin McGuinness, from traveling to the British mainland.

      The cease-fires followed 25 years of conflict, during which 3,169 people had been killed, including 2,224 civilians. The last major atrocity occurred on June 18, when six Roman Catholics watching the Ireland association football (soccer) team on television were killed by gunmen from the Ulster Volunteer Force (UVF). The UVF said the attack was in retaliation for the murder of one of their own prominent members the previous week.

      The momentum for peace was strong enough to survive two awkward episodes in November: the fall of Reynolds' government in Ireland and the murder of a postal worker in Newry. The IRA claimed that its members had carried out the murder in violation of orders to observe the cease-fire. On December 9, British civil servants opened negotiations with leading members of Sinn Fein in Belfast. No government ministers were involved in the opening round of talks. Among the issues discussed was the government's insistence that the IRA surrender its weapons before full-scale political negotiations could begin. No progress was made on this issue by year-end. (PETER KELLNER)

      See also Commonwealth of Nations ; Dependent States .

▪ 1994

Introduction
      A constitutional monarchy in northwestern Europe and member of the Commonwealth, the United Kingdom comprises the island of Great Britain (England, Scotland, and Wales) and Northern Ireland, together with many small islands. Area: 244,110 sq km (94,251 sq mi), including 3,218 sq km of inland water but excluding the crown dependencies of the Channel Islands and Isle of Man. Pop. (1993 est.): 58,080,000. Cap.: London. Monetary unit: pound sterling, with (Oct. 4, 1993) a free rate of £ 0.66 to U.S. $1 (U.S. $1.52 = £1 sterling). Queen, Elizabeth II; prime minister in 1993, John Major.

Affairs.
      For the first seven months of 1993, the U.K.'s domestic politics were dominated by the struggle of Prime Minister John Major (see BIOGRAPHIES (Major, John Roy )) to secure Parliament's approval of his bill on the Maastricht Treaty on European Union. He finally succeeded, but at considerable political cost. The ruling Conservative Party was seen as divided, and Major's own leadership was widely criticized, not least within his own party. With the country's economy struggling to recover from recession, few people were surprised when the Conservatives lost votes in the county elections held in May. What was noteworthy, however, was the unprecedented size of the swing against the party in those contests and in two parliamentary by-elections.

      The European Communities (Amendment) Bill was meant to commit the U.K. to the Maastricht Treaty. The treaty, agreed among the 12 European Community (EC) leaders in 1991, had given the U.K. the right to opt out of two components: monetary union and the "social chapter," which sought to establish basic employment rights across the EC. Major faced domestic opposition on two fronts. The Labour Party and most of the smaller parties wanted the U.K. to endorse the social chapter; on the other hand, a minority of up to 40 of the 334 Conservative members of Parliament (MPs) disliked the Maastricht Treaty altogether.

      As a tactical maneuver, the Conservative rebels decided to back Labour demands for a separate parliamentary vote on the social chapter. After a series of arcane procedural disputes, Foreign Secretary Douglas Hurd was forced to give way. Matters came to a head on July 22. MPs had two proposals before them. Labour's resolution, endorsing the social chapter, was defeated by one vote. Then the government's resolution (which merely asked MPs to "take note" of its policy on the social chapter) was also defeated, 324-316, with 23 Tories voting against their own government. Major immediately announced that a debate would be held the following day on a motion of confidence linked to the Maastricht Treaty and threatened to hold a general election if he lost. With the Conservatives trailing badly in the opinion polls, many of the party's MPs seemed likely to lose their seats. The rebels surrendered and voted for the confidence motion. The U.K. finally ratified the treaty on August 2.

      The impression of an administration being buffeted by events was reinforced by actions in other areas. In October 1992, Michael Heseltine, president of the Board of Trade, had declared that 31 of British Coal's 50 remaining collieries would be closed. Faced with a public outcry and resistance by some Conservative MPs, Heseltine had to delay the closures pending a wide-ranging review. On March 25, 1993, Heseltine said that 12 of the 31 collieries would be reprieved for the time being. He declined, however, to tackle the underlying reason why so many pits were uncompetitive: the fact that gas and nuclear power received preferential treatment under the government's energy policy. As a result, stocks of unsold coal built up. It soon became clear that the 12 reprieved pits could not attract sufficient customers in the prevailing market conditions. On October 20, Timothy Eggar, the energy minister, announced that they would be closed after all and that further closures would be needed. By the mid-1990s, Britain would have only about 15 working collieries, compared with 211 as recently as 1981.

      The government also took controversial action with respect to another state-run industry: the railways. On November 5 a bill to privatize many of British Rail's services passed into law. The intention was not to sell BR in its entirety but rather to invite private companies to tender for individual routes or groups of routes. The government's hope was that an injection of private-sector finance and management skills would increase efficiency and expand consumer choice. Critics of the bill (including BR's management) argued that services would decline and prices would rise. Ministers were undeterred by these critics or by opinion-poll evidence that 70% of electors opposed the measure.

      Cabinet ministers faced even greater trouble over plans to introduce standard nationwide tests for all 14-year-old children at state schools. This reform was linked to the intentions of John Patten, the education secretary, to publish "league tables" showing the exam results of all schools in the state sector. His plans faced criticism from two groups: government advisers, who complained that the proposed tests were over-complicated, bureaucratic, and time-consuming; and all of the unions and professional associations representing head teachers and classroom teachers, who complained both about the rigidity of the tests and about the plan for league tables. Backed by most parent groups, the unions voted to boycott the new tests, scheduled for June. Very few tests were conducted, and no league tables could be published. Patten asked the new chief curriculum adviser, Sir Ron Dearing, to sort out the mess. When Dearing reported back in August, he endorsed many of the criticisms and proposed radical cuts in the testing program for future years. Patten accepted recommendations and expressed hope that an accommodation could be reached with teachers groups before the next examinations, scheduled for June 1994.

      On June 21, Heseltine, possibly the most charismatic member of the Cabinet, suffered a heart attack, which put him out of action at a time when the prime minister needed all the morale-raising support he could muster. Three days later Michael Mates, a junior minister for Northern Ireland, was forced to resign from the government over allegations that he had acted unwisely in relation to Asil Nadir, a fugitive businessman who had fled to Northern Cyprus while on bail facing criminal charges. Mates confirmed press reports that he had given Nadir a watch inscribed "Don't let the buggers get you down." Major was embarrassed not only by Mates's resignation but also by the charge that Nadir had used stolen money to make donations totaling £ 440,000 to the Tories. Sir Norman Fowler, the Conservative Party chairman, promised that the party would repay any money that proved to be stolen. By the end of the year, however, proof was still elusive, and none of the money had been repaid.

      Further unsolicited aggravation was caused in October by the publication of Baroness Thatcher's much-anticipated book about her 11 1/2 years as Prime Minister Margaret Thatcher, The Downing Street Years. Media reports of the memoirs concentrated on her criticism of Major's period as her chancellor of the Exchequer. She also castigated Major for being lukewarm toward her during her struggle to remain prime minister in November 1990. Thatcher herself attracted criticism, however, for the way her memoirs found shortcomings in almost all her erstwhile colleagues and none in herself. Although the book attracted enormous publicity and broke British publishing sales records, Major seemed to emerge from the episode with his reputation somewhat less tarnished than Thatcher's.

      Labour Party leader John Smith devoted much of his energies in 1993 to a battle over the role of trade unions inside the party. He believed that Labour would win greater public support if the party were seen to be controlled more by its own members and less by the unions. Specifically, he proposed that unions should cease to have any votes in the selection of Labour's parliamentary candidates. Despite opposition from the leaders of two of Britain's unions, Smith's plan was approved by a narrow margin at Labour's annual conference in Brighton in September.

      Of possibly equal long-term significance were signs of increasing local cooperation between the Labour Party and the Liberal Democrats (LDP). In the local elections in May, the Conservatives lost control of 15 of the 16 county councils they had previously held. In most cases no single party gained control, and in most of these counties Labour and the LDP reached some kind of power-sharing agreement. These coalitions were widely seen as a possible prelude to power sharing at Westminster should a future general election leave no single party with an outright majority. Meanwhile, the LDP was able to claim to wield more power than the Conservatives in Britain's county halls. Its success in the county elections was underscored by record-breaking victories in by-elections in Newbury (Berkshire) and Christchurch (Dorset), two southern England constituencies that had returned Conservative MPs with large majorities in the April 1992 general election. These LDP victories reduced the Conservatives' overall majority in the House of Commons from 21 to 17 and added to Major's problems of governing with a small majority.

      The year saw pressure mount for new measures to protect the privacy of individuals from media intrusion. In January a government-appointed committee reported that voluntary self-regulation by the press had failed and called for a statutory press-complaints commission. In March an all-party committee of MPs also advocated the creation of a new commission, backed by an ombudsman, with the power to fine newspapers, order corrections, and award compensation. In July the Lord Chancellor published a consultation paper on privacy; this favoured a right of privacy enforceable through the civil courts. Pressure built up still further in November after the Sunday Mirror and Daily Mirror, two mass-circulation newspapers, published photographs taken secretly of the Princess of Wales exercising at a private gymnasium.

      In an attempt to avoid new laws, most tabloid papers, including the Mirror group, announced that they would tone down their reporting of the royal family. They took as their occasion an announcement on December 3 by the Princess of Wales that she was withdrawing from public life in order to spend more time with her sons, Harry and William. The Princess made it clear that her decision had been provoked, in part, by the aggressive and intrusive attention of the tabloid press.

Economic Affairs.
      After two years of contraction, the U.K. economy grew by around 2% in 1993. The increase, which was well above the 1.25% growth predicted early in the year, was the first calendar-year rise since 1990. This brought some relief to the government, but it was not enough to cause a significant reduction in unemployment, which remained at 2.8 million-3 million, or more than 10% of the labour force, throughout the year. Other economic indicators were more favourable. On January 26 the Bank of England reduced its base rate to 6%, the lowest since 1977, while an additional cut to 5.5% in November brought the rate to its lowest level in 21 years. In June annual inflation fell to 1.2%, the lowest since 1964. Following sterling's departure from Europe's exchange-rate mechanism (ERM) in September 1992, the pound remained broadly stable throughout 1993, at around DM 2.50 and $1.50.

      In his March budget, Chancellor of the Exchequer Norman Lamont announced that the U.K.'s public-sector borrowing requirement for 1992-93 had risen to £36.5 billion, and it was projected to climb to £ 50 billion, or 8% of gross domestic product (GDP), in 1993-94. He introduced a package of tax increases, some designed to take effect immediately (reduced income tax allowances and higher excise duties on gasoline, alcohol, and tobacco) and some to take effect over the following two years (including reduced tax relief on mortgages for home ownership and the extension of the value-added tax to cover domestic fuel).

      Lamont's budget attracted the criticism that it was, in general, unwise to raise taxes when the economy was still in the early stages of recovery and, specifically, wrong to impose a value-added tax on domestic fuel, which would have a disproportionate effect on poorer households. This controversy added weight to the view, already widespread within the Conservative Party, that Lamont was a liability as chancellor. He was criticized for his handling of the economy in the buildup to "Black Wednesday"—the day sterling left the ERM—and, more generally, for his lacklustre performances in the House of Commons and on television. On May 27, Major bowed to this pressure and sacked Lamont, replacing him with Kenneth Clarke. (See BIOGRAPHIES (Clarke, Kenneth Harry ).)

      In his first budget, on November 30, Clarke increased taxes yet again, mainly by reducing tax allowances. He declared that his aim was to accelerate the reduction in government borrowing and bring the U.K.'s public-sector finances back into balance by the end of the decade. The combined impact of the two 1993 budgets was to raise taxes by £14 billion, or more than 2% of GDP—the biggest single-year rise in taxation in peacetime. However, by setting out his austere policy with some panache, Clarke managed in the first instance to avoid the kind of criticisms from within his party that had engulfed Lamont.

Foreign Affairs.
      Throughout 1993 the U.K. continued to send humanitarian aid to the former Yugoslavia and to resist calls for other forms of military intervention. More British troops were sent to assist the distribution of aid supplies; their numbers grew from 1,800 in August 1992 to almost 3,000 by late 1993. The government continued to support an arms embargo against all local armies, including that of Bosnia and Herzegovina. This policy brought the U.K. into conflict with the German and U.S. governments. In April, Hurd told Parliament, "We should not pretend that, from outside, we can ensure a solution. Even a prolonged military commitment by the international community could not guarantee that."

      In August the British government began "Operation Irma" to airlift casualties from the former Yugoslavia who were in urgent need of medical treatment. The operation was named after Irma Hadzimuratovic, a five-year-old girl whose plight was reported on British television and immediately attracted massive public sympathy. She was taken to London's Great Ormond Street Hospital for treatment for meningitis and an operation to remove shrapnel. Altogether 21 war victims were taken to the U.K.

      The U.K. and China remained deadlocked in negotiations over the future of Hong Kong. In March, Chris Patten, the governor of the colony, published a bill to amend the structure of its Legislative Council to ensure that it was more representative of the people of Hong Kong. He announced that elections would be held in 1995 and sought China's commitment to respect the results and not disband the council when sovereignty of the colony reverted to China in 1997. China refused to give that undertaking. It argued that Patten's proposal infringed previous agreements between the U.K. and China. Talks between the two countries resumed in April but made little progress, and relations were strained at the end of the year.

      Just before Christmas, immigration officials refused entry to 28 Jamaican tourists and flew them back to Kingston. The Home Office denied that the evictions were racially motivated and that the action indicated plans to impose visa requirements on Jamaican visitors in the future.

Northern Ireland.
      On April 23, Sir Patrick Mayhew, the U.K.'s Northern Ireland secretary, launched a new initiative to bring peace to the province. He proposed a "substantial" transfer of power from London to local politicians and the creation of a select committee of MPs at Westminster to monitor those powers retained by the U.K. government. Mayhew ruled out any joint Anglo-Irish responsibility for Northern Ireland.

      Meanwhile, two separate series of private dialogues were established with a view to ending 25 years of conflict. Both were kept secret for some months; details began to emerge only toward the end of 1993. One dialogue was between John Hume, the leader of the Social Democratic and Labour Party—a nonviolent, nationalist party composed mainly of Roman Catholics—and Gerry Adams, the president of Sinn Fein, the political wing of the Irish Republican Army (IRA). The second dialogue was between the IRA and the British government. This took place through intermediaries; when its existence was disclosed in November, Major insisted that its purpose was not to negotiate but to clarify existing policies. Major said that the dialogue had started in February 1993 following the receipt of a message from the IRA that it regarded the conflict as over and sought advice on how to end it. The IRA disputed this interpretation of its February message.

      Both dialogues contributed to a belief in London and Dublin that new opportunities existed to bring an end to the conflict. On December 15 in London, Major and Albert Reynolds, prime minister of the Irish Republic, launched a joint peace initiative. They agreed that Northern Ireland could be reunited with the republic if—and only if—majorities in both Ulster and the republic voted for reunification. They also agreed that if the IRA ended its campaign of violence, it could join full negotiations three months after a cease-fire.

      The Major-Reynolds initiative was supported by the main opposition parties in London and Dublin, by Hume, and by the Official Ulster Unionists. It was opposed by the Democratic Unionists, led by Ian Paisley. However, the key to the initiative's success lay with the IRA. It embarked on a series of internal discussions; by the end of 1993 it had not announced whether it would accept or reject the proposals.

      Terrorist actions by both the IRA and Protestant paramilitary groups continued throughout 1993. The IRA won few friends with a midday bomb attack on a busy shopping centre in Warrington, Cheshire, in March in which two local boys were killed. Five weeks later another IRA bomb attack caused damage worth £ 1 billion to buildings in the City of London.

      Within Northern Ireland a spate of killings culminated in October with 23 deaths from terrorism in a single week. These included 10 deaths (including the man who planted the bomb) from an IRA attack on a Belfast fish-and-chip shop and seven deaths when two members of the Protestant Ulster Freedom Fighters opened up machine-gun fire in a Londonderry bar frequented by both Catholics and Protestants. (PETER KELLNER)

      See also Commonwealth of Nations, above; Dependent States, below.

* * *

Introduction
United Kingdom, flag of the  island country located off the northwestern coast of mainland Europe. The United Kingdom comprises the whole of the island of Great Britain—which contains England, Wales, and Scotland—as well as the northern portion of the island of Ireland. The name Britain is sometimes used to refer to the United Kingdom as a whole. The capital is London, which is among the world's leading commercial, financial, and cultural centres. Other major cities include Birmingham, Liverpool, and Manchester in England, Belfast and Londonderry in Northern Ireland, Edinburgh and Glasgow in Scotland, and Swansea and Cardiff in Wales.

 The origins of the United Kingdom can be traced to the time of the Anglo-Saxon king Athelstan, who in the early 10th century AD secured the allegiance of neighbouring Celtic kingdoms and became “the first to rule what previously many kings shared between them,” in the words of a contemporary chronicle. Through subsequent conquest over the following centuries, kingdoms lying farther afield came under English dominion. Wales, a congeries of Celtic kingdoms lying in Great Britain's southwest, was formally united with England by the Acts of Union of 1536 and 1542; Scotland, ruled by an English monarch since 1603, formally was joined with England and Wales in 1707 to form the United Kingdom of Great Britain. (The adjective “British” came into use at this time to refer to all the kingdom's peoples.) Ireland came under English control during the 1600s and was formally united with Great Britain through the Act of Union (Union, Act of) of 1800. The republic of Ireland gained its independence in 1922, but the six counties of Ulster remained part of the United Kingdom as Northern Ireland. Relations between these constituent states and England have been marked by controversy and, at times, open rebellion and even warfare. These tensions relaxed somewhat during the late 20th century, when devolved assemblies were introduced in Northern Ireland, Scotland, and Wales. Nonetheless, even with the establishment of a power-sharing assembly after referenda in both Northern Ireland and the Irish republic, relations between Northern Ireland's unionists (who favour continued British sovereignty over Northern Ireland) and nationalists (who favour unification with the republic of Ireland) remained tense into the 21st century.

  The United Kingdom has made significant contributions to the world economy, especially in technology and industry. Since World War II, however, the United Kingdom's most prominent exports have been cultural, including literature, theatre, film, television, and popular music that draw on all parts of the country. Perhaps Britain's greatest export has been the English language, now spoken in every corner of the world as one of the leading international mediums of cultural and economic exchange.

      The United Kingdom retains links with parts of its former empire through the Commonwealth. It also benefits from historical and cultural links with the United States and is a member of the North Atlantic Treaty Organization (NATO). Moreover, the United Kingdom is a member of the European Union, if a sometimes reluctant one. Many of its people hold to the sentiments of the great wartime prime minister Winston Churchill (Churchill, Sir Winston), who sonorously remarked, “We see nothing but good and hope in a richer, freer, more contented European commonalty. But we have our own dream and our own task. We are with Europe, but not of it. We are linked, but not comprised. We are interested and associated, but not absorbed.” Yet a cosmopolitan, resolutely multicultural United Kingdom—incorporating African, Caribbean, and Asian as well as Anglo-Saxon and Celtic influences—is now firmly joined to the European continent, and the country's former insularity—both literal and metaphorical—and sense of exceptionalism have at least for many given way to a new vision of its place in the world, which continues to be an important one.

Ralph Charles Atkins Ed.

  The United Kingdom comprises four geographic and historical parts— England, Scotland, Wales, and Northern Ireland. The United Kingdom contains most of the area and population of the British Isles—the geographic term for the group of islands that includes Great Britain, Ireland, and many smaller islands. Together England, Wales, and Scotland constitute Great Britain, the larger of the two principal islands, while Northern Ireland and the republic of Ireland constitute the second largest island, Ireland. England, occupying most of southern Great Britain, includes the Isles of Scilly (Scilly, Isles of) off the southwest coast and the Isle of Wight (Wight, Isle of) off the southern coast. Scotland, occupying northern Great Britain, includes the Orkney (Orkney Islands) and Shetland (Shetland Islands) islands off the northern coast and the Hebrides off the northwestern coast. Wales lies west of England and includes the island of Anglesey (Anglesey, Isle of) to the northwest.

      Apart from the land border with the Irish republic, the United Kingdom is surrounded by sea. To the south of England and between the United Kingdom and France is the English Channel. The North Sea lies to the east. To the west of Wales and northern England and to the southeast of Northern Ireland, the Irish Sea separates Great Britain from Ireland, while southwestern England, the northwestern coast of Northern Ireland, and western Scotland face the Atlantic Ocean. At its widest the United Kingdom is 300 miles (500 km) across. From the northern tip of Scotland to the southern coast of England, it is about 600 miles (1,000 km). No part is more than 75 miles (120 km) from the sea. The capital, London, is situated on the tidal River Thames (Thames, River) in southeastern England.

 The archipelago formed by Great Britain and the numerous smaller islands is as irregular in shape as it is diverse in geology and landscape. This diversity stems largely from the nature and disposition of the underlying rocks, which are westward extensions of European structures, with the shallow waters of the Strait of Dover (Dover, Strait of) and the North Sea concealing former land links. Northern Ireland contains a westward extension of the rock structures of Scotland. These common rock structures are breached by the narrow North Channel.

      On a global scale, this natural endowment covers a small area—approximating that of the U.S. state of Oregon or the African country of Guinea—and its internal diversity, accompanied by rapid changes of often beautiful scenery, may convey to visitors from larger countries a striking sense of compactness and consolidation. The peoples who, over the centuries, have hewed an existence from this Atlantic extremity of Eurasia have put their own imprint on the environment, and the ancient and distinctive palimpsest of their field patterns and settlements complements the natural diversity.

Relief
      Great Britain is traditionally divided into a highland and a lowland zone. A line running from the mouth of the River Exe, in the southwest, to that of the Tees, in the northeast, is a crude expression of this division. The course of the 700-foot (213-metre) contour, or of the boundary separating the older rocks of the north and west from the younger southeastern strata, provides a more accurate indication of the extent of the highlands.

The highland zone (Highlands)
 The creation of the highlands was a long process, yet elevations, compared with European equivalents, are low, with the highest summit, Ben Nevis, only 4,406 feet (1,343 metres) above sea level. In addition, the really mountainous areas above 2,000 feet (600 metres) often form elevated plateaus with relatively smooth surfaces, reminders of the effects of former periods of erosion.

      Scotland's three main topographic regions follow the northeast-to-southwest trend of the ancient underlying rocks. The northern Highlands and the Southern Uplands are separated by the intervening rift valley, or subsided structural block, called the Midland Valley (or Central Lowlands). The core of the Highlands is the elevated, worn-down surface of the Grampian Mountains, 1,000–3,600 feet (300–1,100 metres) above sea level, with the Cairngorm Mountains rising to elevations of more than 4,000 feet (1,200 metres). This majestic mountain landscape is furrowed by numerous wide valleys, or straths. Occasional large areas of lowland, often fringed with long lines of sand dunes, add variety to the east. The Buchan peninsula, the Moray Firth estuarine flats, and the plain of Caithness—all low-lying areas—contrast sharply with the mountain scenery and show smoother outlines than do the glacier-scoured landscapes of the west, where northeast-facing hollows, or corries, separated by knife-edge ridges and deep glens, sculpt the surfaces left by earlier erosion. The many freshwater lochs (lakes) further enhance a landscape of wild beauty. The linear Glen Mor—where the Caledonian Canal now threads the chain of lakes that includes Loch Ness (Ness, Loch)—is the result of a vast structural sideways tear in the whole mass of the North West Highlands. To the northwest of Glen Mor stretches land largely divided among agricultural smallholdings, or crofts; settlement is intermittent and mostly coastal, a pattern clearly reflecting the pronounced dissection of a highland massif that has been scored and plucked by the ice age glaciers. Many sea-drowned, glacier-widened river valleys (fjords) penetrate deeply into the mountains, the outliers of which rise from the sea in stately, elongated peninsulas or emerge in hundreds of offshore islands.

      In comparison with the Scottish Highlands, the Southern Uplands of Scotland present a more subdued relief, with elevations that never exceed 2,800 feet (850 metres). The main hill masses are the Cheviots (Cheviot Hills), which reach 2,676 feet (816 metres) in elevation, while only Merrick and Broad Law have elevations above the 2,700-foot (830-metre) contour line. Broad plateaus separated by numerous dales characterize these uplands, and in the west most of the rivers flow across the prevailing northeast-southwest trend, following the general slope of the plateau, toward the Solway Firth or the Firth of Clyde. Bold masses of granite and the rugged imprint of former glaciers occasionally engender mountainous scenery. In the east the valley network of the River Tweed and its many tributaries forms a broad lowland expanse between the Lammermuir and Cheviot hills.

      The Midland Valley lies between great regular structural faults. The northern boundary with the Highlands is a wall-like escarpment, but the boundary with the Southern Uplands is sharp only near the coast. This vast trench is by no means a continuous plain, for high ground—often formed of sturdy, resistant masses of volcanic rock—meets the eye in all directions, rising above the low-lying areas that flank the rivers and the deeply penetrating estuaries of the Firth of Clyde and the Firth of Forth.

 In Northern Ireland, structural extensions of the Scottish Highlands reappear in the generally rugged mountain scenery and in the peat-covered summits of the Sperrin Mountains, which reach an elevation of 2,241 feet (683 metres). The uplands in the historic counties Down and Armagh are the western continuation of Scotland's Southern Uplands but reach elevations of more than 500 feet (150 metres) only in limited areas; the one important exception is the Mourne Mountains, a lovely cluster of granite summits the loftiest of which, Slieve Donard, rises to an elevation of 2,789 feet (850 metres) within 2 miles (3.2 km) of the sea. In the central region of Northern Ireland that corresponds to Scotland's Midland Valley, an outpouring of basaltic lavas has formed a huge plateau, much of which is occupied by the shallow Lough Neagh (Neagh, Lough), the largest freshwater lake in the British Isles.

      The highland zone of England and Wales consists, from north to south, of four broad upland masses: the Pennines, the Cumbrian Mountains, the Cambrian Mountains, and the South West Peninsula. The Pennines are usually considered to end in the north at the River Tyne gap, but the surface features of several hills in Northumberland are in many ways similar to those of the northern Pennines. The general surface of the asymmetrically arched backbone (anticline) of the Pennines is remarkably smooth because many of the valleys, though deep, occupy such a small portion of the total area that the windswept moorland between them appears almost featureless. This is particularly true of the landscape around Alston, in Cumbria (Cumberland), which—cut off by faults on its north, west, and south sides—stands out as an almost rectangular block of high moorland plateau with isolated peaks (known to geographers as monadnocks (monadnock)) rising up above it. Farther south, deep and scenic dales (valleys) dissect the Pennine plateau. The dales' craggy sides are formed of millstone grit, and beneath them flow streams stepped by waterfalls. The most southerly part of the Pennines is a grassy upland. More than 2,000 feet (610 metres) above sea level in places, it is characterized by the dry valleys, steep-sided gorges, and underground streams and caverns of a limestone drainage system rather than the bleak moorland that might be expected at this elevation. At lower levels the larger dales are more richly wooded, and the trees stand out against a background of rugged cliffs of white-gray rocks. On both Pennine flanks, older rocks disappear beneath younger layers, and the uplands merge into flanking coastal lowlands.

 The Cumbrian Mountains, which include the famous Lake District celebrated in poetry by William Wordsworth and the other Lake poets (Lake poet), constitute an isolated, compact mountain group to the west of the northern Pennines. Many deep gorges, separated by narrow ridges and sharp peaks, characterize the northern Cumbrian Mountains, which consist of tough slate rock. Greater expanses of level upland, formed from thick beds of lava and the ash thrown out by ancient volcanoes, lie to the south. The volcanic belt is largely an irregular upland traversed by deep, narrow valleys, and it includes England's highest point, Scafell Pike, with an elevation of 3,210 feet (978 metres), and Helvellyn, at 3,116 feet (950 metres). Nine rivers flowing out in all directions from the centre of this uplifted dome form a classic radial drainage pattern. The valleys, often containing long, narrow lakes, have been widened to a U shape by glacial action, which has also etched corries from the mountainsides and deposited the debris in moraines. Glacial action also created a number of “hanging valleys” by truncating former tributary valleys.

 The Cambrian Mountains, which form the core of Wales, are clearly defined by the sea except on the eastern side, where a sharp break of slope often marks the transition to the English lowlands. Cycles of erosion have repeatedly worn down the ancient and austere surfaces. Many topographic features derive from glacial processes, and some of the most striking scenery stems largely from former volcanism. The mountain areas above 2,000 feet (610 metres) are most extensive in North Wales. These include Snowdonia (Snowdonia National Park)—named for Snowdon (Yr Wyddfa), the highest point in Wales, with an elevation of 3,560 feet (1,085 metres)—and its southeastern extensions, Cader Idris and Berwyn. With the exception of Plynlimon and the Radnor Forest, central Wales lacks similar high areas, but the monadnocks of South Wales—notably the Black Mountains and the Brecon Beacons (Brecon Beacons National Park)—stand out in solitary splendour above the upland surfaces. There are three such surfaces: a high plateau of 1,700 to 1,800 feet (520 to 550 metres); a middle peneplain, or worn-down surface, of 1,200 to 1,600 feet (370 to 490 metres); and a low peneplain of 700 to 1,100 feet (210 to 340 metres). These smooth, rounded, grass-covered moorlands present a remarkably even skyline. Below 700 feet (210 metres) lies a further series of former wave-cut surfaces. Several valleys radiate from the highland core to the coastal regions. In the west these lowlands have provided a haven for traditional Welsh culture, but the deeply penetrating eastern valleys have channeled English culture into the highland. A more extensive lowland—physically and structurally an extension of the English lowlands—borders the Bristol Channel in the southeast. The irregularities of the 600-mile (970-km) Welsh coast show differing adjustments to the pounding attack of the sea.

 The South West—England's largest peninsula—has six conspicuous uplands: Exmoor, where Dunkery Beacon reaches an elevation of 1,704 feet (519 metres); the wild, granite uplands of Dartmoor, which reach 2,038 feet (621 metres) at High Willhays; Bodmin Moor; Hensbarrow; Carn Brea; and the Penwith upland that forms the spectacular extremity of Land's End. Granite reappears above the sea in the Isles of Scilly (Scilly, Isles of), 28 miles (45 km) farther southwest. Despite the variation in elevation, the landscape in the South West, like that of so many other parts of the United Kingdom, has a quite marked uniformity of summit heights, with a high series occurring between 1,000 and 1,400 feet (300 and 430 metres), a middle group between 700 and 1,000 feet (210 and 300 metres), and coastal plateaus ranging between 200 and 400 feet (60 and 120 metres). A network of deep, narrow valleys alternates with flat-topped, steplike areas rising inland. The South West derives much of its renowned physical attraction from its peninsular nature; with both dramatic headlands and magnificent drowned estuaries created by sea-level changes, the coastline is unsurpassed for its diversity.

The lowland zone
 Gauged by the 700-foot (210-metre) contour line, the lowland zone starts around the Solway Firth in the northwest, with a strip of low-lying ground extending up the fault-directed Vale of Eden (the valley of the River Eden). Southward the narrow coastal plain bordering the Lake District broadens into the flat, glacial-drift-covered Lancashire and Cheshire plains, with their slow-flowing rivers. East of the Pennine ridge the lowlands are continuous, except for the limestone plateau north of the River Tees and, to the south, the North York Moors, with large exposed tracts that have elevations of more than 1,400 feet (430 metres). West of the North York Moors lies the wide Vale of York, which merges with the east Midland plain to the south. The younger rocks of the Midlands terminate at the edge of the Cambrian Mountains to the west. The lowland continues southward along the flat landscapes bordering the lower River Severn, becomes constricted by the complex Bristol-Mendip upland, and opens out once more into the extensive and flat plain of Somerset. The eastern horizon of much of the Midland plain is the scarp face of the Cotswolds, part of the discontinuous outcrop of limestones and sandstones that arcs from the Dorset coast in southern England as far as the Cleveland Hills on the north coast of Yorkshire. The more massive limestones and sandstones give rise to noble 1,000-foot (300-metre) escarpments, yet the dip slope is frequently of such a low angle that the countryside resembles a dissected plateau, passing gradually on to the clay vales of Oxford, White Horse, Lincoln, and Pickering. The flat, often reclaimed landscapes of the once-marshy Fens are also underlain by these clays, and the next scarp, the western-facing chalk outcrop ( cuesta), undergoes several marked directional changes in the vicinity of the Wash, a shallow arm of the North Sea.

      The chalk scarp is a more conspicuous and continuous feature than the sandstone and limestone outcrops farther west. It begins in the north with the open rolling country known as the Yorkshire Wolds, where elevations of 750 feet (230 metres) occur. It is breached by the River Humber and then continues in the Lincolnshire Wolds. East of the Fens the scarp is very low, barely attaining 150 feet (45 metres), but it then rises gradually to the 807-foot (246-metre) Ivinghoe Beacon in the attractive Chiltern Hills. Several wind gaps, or former river courses, interrupt the scarp, and the River Thames actually cuts through it in the Goring Gap. Where the dip slope of the chalk is almost horizontal, as in the open Salisbury Plain, the landscape forms a large dissected plateau with an elevation of 350 to 500 feet (110 to 150 metres). The main valleys contain rivers, while the other valleys remain dry.

      The chalk outcrop continues into Dorset, but in the south the chalk has been folded along west-to-east lines. Downfolds, subsequently filled in by geologically recent sands and clays, now floor the London and Hampshire basins. The former, an asymmetrical synclinal (or structurally downwarped) lowland rimmed by chalk, is occupied mainly by gravel terraces and valley-side benches and has relatively little floodplain; the latter is similarly cradled by a girdle of chalk, but the southern rim, or monocline, has been cut by the sea in two places to form the scenic Isle of Wight (Wight, Isle of).

      Between these two synclinal areas rises the anticlinal, or structurally upwarped, dome of the Weald (Weald, The) of Kent and Sussex. The arch of this vast geologic upfold has long since been eroded away, and the bounding chalk escarpments of the North and South Downs are therefore inward-facing and enclose a concentric series of exposed clay vales and sandstone ridges. On the coast the waters of the English Channel have undermined and eroded the upfold to produce a dazzling succession of chalk cliffs facing the European mainland, 21 miles (34 km) distant at the Strait of Dover, the narrowest part of the English Channel.

Drainage
      The main drainage divide in Great Britain runs from north to south, keeping well to the west until the basin of the River Severn (Severn River). Westward-flowing streams empty into the Atlantic Ocean or Irish Sea over relatively short distances. The Clyde (Clyde, River) in Scotland, the Eden (Eden, River) and Mersey (Mersey, River) in northwestern England, and the Dee (Dee, River), Teifi, and Tywi in Wales are the only significant westward-flowing rivers north of the Severn estuary. The drainage complex that debouches into the Severn estuary covers a large part of Wales and the South West and West Midlands of England. To the south the Avon (Avon, River) (flowing through Bristol) and the Parret watershed extend somewhat to the east, but subsequently, with the exception of the Taw and Torridge valleys, they run very close to the western coast in Devon and Cornwall.

      The rivers draining east from the main divide are longer, and several coalesce into wide estuaries. The fast-flowing Spey (Spey, River), Don (Don, River), Tay (Tay, River), Forth (Forth, River), and Tweed (Tweed, River) of eastern Scotland run generally across impermeable rocks, and their discharges increase rapidly after rain. From the northern Pennines the Tyne (Tyne, River), Wear (Wear, River), and Tees (Tees, River) flow independently to the North Sea, but thereafter significant estuary groupings occur. A number of rivers—including the Ouse (Ouse, River), Aire (Aire, River), and Trent (Trent, River)—drain into the Humber (Humber, River) after they leave the Pennines. To the south another group of rivers (including the Ouse (Ouse, River), Welland (Welland, River), and Nene) enters the Wash (Wash, The) after sluggishly draining a large, flat countryside. The large drainage complex of the River Thames (Thames, River) dominates southeastern England. Its source is in the Cotswolds, and, after receiving many tributaries as it flows over the Oxford Clay, the mainstream breaches the chalk escarpment in the Goring Gap. A number of tributaries add their discharges farther downstream, and the total area draining into the Thames estuary is nearly 4,000 square miles (10,000 square km). The important rivers flowing into the English Channel are the Tamar (Tamar, River), Exe (Exe, River), Avon (Avon, River), Test, Arun, and Ouse. The major rivers in Northern Ireland are the Erne, Foyle, and Bann (Bann, River).

Soils
      The regional pattern of soil formation correlates with local variations of relief and climate. Although changes are gradual and soils can vary locally, a division of Britain into four climatic regimes largely explains the distribution of soils.

      At the higher altitudes of the highland zone, particularly in Scotland, the weather is characterized by a cold, wet regime of more than 40 inches (1,000 mm) rainfall and less than 47 °F (8 °C) mean temperature annually; these areas have blanket peat and peaty podzol soils, with their organic surface layer resting on a gray, leached base. A regime similarly wet but with a mean annual temperature exceeding 47 °F characterizes most of the remainder of the highland zone, particularly on the lower parts of the Southern Uplands, the Solway Firth–Lake District area, the peripheral plateaus of Wales, and most of southwestern England. These areas are covered by acid brown soils and weakly podzolized associates. On the lower-lying areas within the highland zone, particularly in eastern Scotland and the eastern flanks of the Pennines, a relatively cold, dry regime gives rise to soils intermediate between the richer brown earths and the podzols.

      Over the entire lowland zone, which also has a mean annual temperature above 47 °F but less than 40 inches of rainfall, leached brown soils are characteristic. Calcareous, and thus alkaline, parent materials are widespread, particularly in the southeast, so acid soils and podzols are confined to the most quartz-laden parent materials. In Northern Ireland at elevations of about 460 feet (140 metres), brown earths give way to semipodzols, and these grade upslope into more intensively leached podzols, particularly in the Sperrins and the Mournes. Between these mountains in the Lough Neagh lowland, rich brown earth soils predominate.

Climate
      The climate of the United Kingdom derives from its setting within atmospheric circulation patterns and from the position of its landforms in relation to the sea. Regional diversity does exist, but the boundaries of major world climatic systems do not pass through the country. Britain's marginal position between the European landmass to the east and the ever-present relatively warm Atlantic waters to the west exposes the country to air masses with a variety of thermal and moisture characteristics. The main types of air masses, according to their source regions, are polar and tropical; by their route of travel, both the polar and tropical may be either maritime or continental. For much of the year, the weather depends on the sequence of disturbances within the midlatitude westerlies that bring in mostly polar maritime and occasionally tropical maritime air. In winter occasional high-pressure areas to the east allow biting polar continental air to sweep over Britain. All of these atmospheric systems tend to fluctuate rapidly in their paths and to vary both in frequency and intensity by season and also from year to year. Variability is characteristic of British weather, and extreme conditions, though rare, can be very important for the life of the country.

      The polar maritime winds that reach the United Kingdom in winter create a temperature distribution that is largely independent of latitude. Thus, the north-to-south run of the 40 °F (4 °C) January isotherm, or line of equal temperature, from the coast in northwestern Scotland south to the Isle of Wight betrays the moderating influence of the winds blowing off the Atlantic Ocean. In summer polar maritime air is less common, and the 9° difference of latitude and the distance from the sea assume more importance, so that temperatures increase from north to south and from the coast inland. Above-average temperatures usually accompany tropical continental air, particularly in anticyclonic, or high-pressure, conditions. On rare occasions these southerly or southeasterly airstreams can bring heat waves to southern England with temperatures of 90 °F (32 °C). The mean annual temperature ranges from 46 °F (8 °C) in the Hebrides to 52 °F (11 °C) in southwestern England. In spring and autumn a variety of airstreams and temperature conditions may occur.

      Rain-producing atmospheric systems arrive from a westerly direction, and some of the bleak summits of the highest peaks of the highland zone can receive as much as 200 inches (5,100 mm) of rainfall per year. Norfolk, Suffolk, and the Thames estuary, in contrast, can expect as little as 20 inches (510 mm) annually. Rain is fairly well distributed throughout the year. June, on average, is the driest month throughout Britain; May is the next driest in the eastern and central parts of England, but April is drier in parts of the west and north. The wettest months are typically October, December, and August, but in a given year almost any month can prove to be the wettest, and the association of Britain with seemingly perpetual rainfall (a concept popularly held among foreigners) is based on a germ of truth. Some precipitation falls as snow, which increases with altitude and from southwest to northeast. The average number of days with snow falling can vary from as many as 30 in blizzard-prone northeastern Scotland to as few as five in southwestern England. Average daily hours of sunshine vary from less than three in the extreme northeast to about four and one-half along the southeastern coast.

Plant and animal life
 Except for northern Scotland, the highest hills of the north and west, the saturated fens and marshes, and the seacoast fringes, the natural vegetation of the British Isles is deciduous forest dominated by oak. Human occupation has left only scattered woodlands and areas of wild or seminatural vegetation outside the enclosed cultivated fields. Few of the fine moorlands and heathlands, wild though they may appear, can lay claim to any truly natural plant communities. Nearly all show varying degrees of adjustment to grazing, swaling (controlled burning), or other activities. Woodland now covers less than one-tenth of the country, and, although the Forestry Commission has been active since its creation in 1919, nearly two-thirds of this woodland remains in private hands. The largest areas of woodland now stand in northeastern Scotland, Kielder and other forests in Northumberland, Ashdown Forest in Sussex, Gwynedd in Wales, and Breckland in Norfolk.

      The moorlands (moor) and heathlands that occupy about one-fourth of the total area of the United Kingdom consist of arctic-alpine vegetation on some mountain summits in Scotland and the much more extensive peat moss, heather, bilberry, and thin Molinia and Nardus grass moors of the highland zone. Similar vegetation exists on high ground in eastern Northern Ireland and on the Mournes, and there are considerable areas of peat moss vegetation on the mountains of Antrim. In the lowland zone, where light sandy soils occur, the most common plant of the moorlands is the common heather—whose deep purple adds a splash of colour to the autumn countryside—but these areas also contain bilberry and bell heather. A strip of land immediately bordering the coastline has also largely escaped exploitation by humans and domesticated animals, so that patches of maritime vegetation often appear in approximately their natural state.

      The survival of the wild mammals, amphibians, and reptiles of the United Kingdom depends on their ability to adapt to the changing environment and to protect themselves from attacks by their enemies, the most dangerous of whom are human. British mammals survive in a greater range of habitats than do amphibians or reptiles. Most of the formerly abundant larger mammals—such as boars, reindeer, and wolves—have become extinct, but red deer survive in the Scottish Highlands and in Exmoor Forest and roe deer in the wooded areas of Scotland and southern England. Smaller carnivores (badgers, otters, foxes, stoats, and weasels) thrive in most rural areas. Rodents (rats, squirrels, mice) and insectivores (hedgehogs, moles, shrews) are also widely distributed. Rabbits are widespread, and their numbers are increasing. The other nocturnal vegetarian, the brown hare, lives in open lowland country, while the mountain hare is native to Scotland. Amphibians include three species of newt and five species of frogs and toads, while reptiles comprise three species of snakes, of which only the adder is venomous, and three species of lizards. There are no snakes in Northern Ireland.

 In many respects the British Isles are an ornithologist's paradise. The islands lie at the focal point of a migratory network, and the coastal, farmland, and urban habitats for birds (bird) are diverse. Some 200 species of birds occur in the United Kingdom, of which more than one-half are migratory. Many species are sufficiently versatile to adapt to changing conditions, and it is estimated that suburban gardens have a higher bird density than any kind of woodland. The most common game birds are the wild pigeon, pheasant, and grouse. Most numerous are the sparrow, blackbird, chaffinch, and starling.

      Marshland reclamation has displaced waterfowl to various bird sanctuaries. A continuous effort by ornithological organizations has promoted and encouraged research and conservation. It also has led to the creation of bird refuges, sanctuaries, and reserves. These developments, along with a more sympathetic and enlightened attitude, may help to redress some of the worst effects of environmental changes on bird life.

 Many British rivers, once renowned for their salmon, trout, roach, perch, pike, and grayling, have become polluted, and inland fisheries have consequently declined. Freshwater fishing is now largely for recreation and sport. The Dogger Bank in the North Sea, one of the richest fishing grounds in the world, has provided excellent fishing for centuries. Other good waters for fishing lie in the Irish Sea and also off the western coast of Scotland. Chief offshore species are cod, haddock, whiting, mackerel, coalfish, turbot, herring, and plaice.

Ethnic groups
      For centuries people have migrated to the British Isles from many parts of the world, some to avoid political or religious persecution, others to find a better way of life or to escape poverty. In historic times migrants from the European mainland joined the indigenous population of Britain during the Roman Empire and during the invasions of the Angles, Saxons, Jutes, Danes, and Normans. The Irish have long made homes in Great Britain. Many Jews arrived in Britain toward the end of the 19th century and in the 1930s. After 1945 large numbers of other European refugees settled in the country. The large immigrant communities from the West Indies and South Asia date from the 1950s and '60s. There are also substantial groups of Americans, Australians, and Chinese, as well as various other Europeans, such as Greeks, Russians, Poles, Serbs, Estonians, Latvians, Armenians, Turkish Cypriots, Italians, and Spaniards. Beginning in the early 1970s, Ugandan Asians (expelled by Idi Amin (Amin, Idi)) and immigrants from Latin America, Southeast Asia, and Sri Lanka have sought refuge in Britain. People of Indian, Pakistani, and Bangladeshi origin account for more than half of the total ethnic minority population, and people of West Indian origin are the next largest group. The foreign-born element of the population is disproportionately concentrated in inner-city areas, and more than half live in Greater London.

Languages
      All the traditional languages spoken in the United Kingdom ultimately derive from a common Indo-European origin, a tongue so ancient that, over the millennia, it has split into a variety of languages, each with its own peculiarities in sounds, grammar, and vocabulary. The distinct languages in what became the United Kingdom originated when languages from the European continent developed independently in the British Isles, cut off from regular communication with their parent languages.

      Of the surviving languages the earliest to arrive were the two forms of Celtic (Celtic languages): the Goidelic (Goidelic languages) (from which Irish (Irish language), Manx (Manx language), and Scottish Gaelic (Scots Gaelic language) derive) and Brythonic (Brythonic languages) (from which the old Cornish language and modern Welsh (Welsh language) have developed). Among the contemporary Celtic languages Welsh is the strongest: about one-fifth of the total population of Wales are able to speak it, and there are extensive interior upland areas and regions facing the Irish Sea where the percentage rises to more than half. Scottish Gaelic (Scots Gaelic language) is strongest among the inhabitants of the islands of the Outer Hebrides and Skye, although it is still heard in the nearby North West Highlands. Because less than 2 percent of Scots are able to speak Gaelic, it has long since ceased to be a national language, and even in northwestern areas, where it remains the language of religion, business, and social activity, Gaelic is losing ground. In Northern Ireland very little Irish is spoken. Similarly, Manx (Manx language) no longer has any native speakers, although as late as 1870 it was spoken by about half the people of the Isle of Man (Man, Isle of). The last native speakers of Cornish died in the 18th century.

      The second link with Indo-European is through the ancient Germanic language group (Germanic languages), two branches of which, the North Germanic and the West Germanic, were destined to make contributions to the English language. Modern English is derived mainly from the Germanic dialects spoken by the Angles, Saxons, and Jutes (who all arrived in Britain in the 5th century AD) and heavily influenced by the language of the Danes (Vikings), who began raiding the British Isles about 790 and subsequently colonized parts of northern and eastern England. The Humber became an important linguistic as well as a geographic boundary, and the English-speaking territory was divided into a Northumbrian province (roughly corresponding to the kingdom of Northumbria) and a Southumbrian province (in which the most important kingdoms were Mercia, Wessex, and Kent). In the 8th century Northumbria was foremost in literature and culture, followed for a short time by Mercia; afterward Wessex predominated politically and linguistically until the time of King Edward the Confessor (Edward).

      Although the French-speaking Normans (Norman) were also of Viking stock, the English population initially regarded them as much more of an alien race than the Danes. Under the Norman and Angevin kings, England formed part of a continental empire, and the prolonged connection with France (French language) retained by its new rulers and landlords made a deep impression on the English language. A hybrid speech combining Anglo-Saxon and Norman French elements developed and remained the official language, sometimes even displacing Latin in public documents, until the mid 14th century, when late Middle English, a language heavily influenced by Norman French, became the official language. This hybrid language subsequently evolved into modern English. Many additions to the English language have been made since the 14th century, but the Normans were the last important linguistic group to enter Britain.

Religion
 The various Christian (Christianity) denominations in the United Kingdom have emerged from schisms that divided the church over the centuries. The greatest of these occurred in England in the 16th century, when Henry VIII rejected the supremacy of the pope. This break with Rome facilitated the adoption of some Protestant tenets and the founding of the Church of England (England, Church of), still the state church in England, although Roman Catholicism has retained adherents. In Scotland the Reformation gave rise to the Church of Scotland (Scotland, Church of), which was governed by presbyteries—local bodies composed of ministers and elders—rather than by bishops, as was the case in England. Roman Catholicism in Ireland as a whole was almost undisturbed by these events, but in what became Northern Ireland the Anglican and Scottish (Presbyterian) churches had many adherents. In the 17th century further schisms divided the Church of England as a consequence of the Puritan (Puritanism) movement, which gave rise to so-called Nonconformist denominations, such as the Baptists (Baptist) and the Congregationalists (Congregationalism), that reflected the Puritan desire for simpler forms of worship and church government. The Society of Friends (Friends, Society of) (Quakers) also originated at that time. Religious revivals of the mid 18th century gave Wales a form of Protestantism closely linked with the Welsh language; the Presbyterian Church of Wales (or Calvinistic Methodism) remains the most powerful religious body in the principality. The great Evangelical revivals of the 18th century, associated with John Wesley (Wesley, John) and others, led to the foundation of Methodist (Methodism) churches, particularly in the industrial areas. Northumberland, Durham, and Yorkshire in northeastern England and Cornwall in the southwestern peninsula still have the largest percentages of Methodists. In the 19th century the Salvation Army and various fundamentalist faiths developed. Denominations from the United States also gained adherents, and there was a marked increase in the practice of Judaism in Britain. In 1290 Jews were expelled from Britain, as they would be from other countries in the 14th and 15th centuries, a reflection of medieval anti-Semitism. The first Jewish community to be reestablished in Britain was in London in the 17th century, and in the 19th century Jews also settled in many of the large provincial cities. More than half of all British Jews live in Greater London, and nearly all the rest are members of urban communities. Britain now has the second largest Jewish community in Europe.

      The British tradition of religious tolerance has been particularly important since the 1950s, when immigrants began to introduce a great variety of religious beliefs. There are large and growing communities that practice Islam (Islām), Hinduism, and Sikhism. The largest number of Muslims came from Pakistan and Bangladesh, with sizable groups from India, Cyprus, the Arab world, Malaysia, and parts of Africa. The large Sikh and Hindu communities originated in India. There are also many Buddhist groups.

Settlement patterns
      British culture preserves regional variations, though they have become more muted over time. Still, the cultural identities of the Northern Irish, Scottish, Welsh, and Cornish—to say nothing of the rivalry between a North and South Walian or a Highland and Lowland Scot—are as distinct as the obvious geographic identities of these parts of the highland zone.

Rural settlement
      The diverse forms and patterns of settlement in the United Kingdom reflect not only the physical variety of the landscape but also the successive movements of peoples arriving as settlers, refugees, or conquerors from continental Europe, along with the changing economic contexts in which settlement has occurred. Social and economic advantages led some people to cluster, whereas others had an equally strong desire for separateness. Both tendencies mark settlement forms in Britain from very early times, and regional contrasts in the degree of dispersion and nucleation are frequent.

 Single farmsteads, the many surviving old clachans (clusters or hamlets), and occasional villages and small towns still characterize much of the Highland zone. Some nucleated settlement patterns, however, have undergone radical change. In Wales hamlets began to disappear in the late Middle Ages through the related processes of consolidation and enclosure that accompanied the decline in the size of the bond (feudally tied) population. The Black Death of 1349, which spread quickly among poorer inhabitants, reinforced this trend. Many surviving bondsmen fled their servile obligations amid the turmoil of the nationalistic uprising led by Owen Glendower (Glendower, Owen). Thus, many Welsh hamlets had fallen into decay by 1410, when the rebellion was crushed. In Scotland great changes accompanied the late 18th-century Highland clearances, in which landlords forcibly evicted tenants and converted their holdings to sheep pastures. As late as the 1880s many clachans disappeared in Northern Ireland as part of a deliberate policy of reallocating land to new dispersed farmsteads. Great changes have also occurred in the lowland zone, where the swing to individual ownership or tenancy from the medieval custom of landholding in common brought about not only dispersion and deserted villages but the enclosure of fields by hedges and walls. Villages remain remarkably stable features of the rural landscape of Britain, however, and linear, round, oval, and ring-shaped villages survive, many with their ancient greens still held in common by the community.

Urban settlement (urbanization)
 By any standard the United Kingdom is among the most urbanized of countries, for towns not only typify the national way of life but are unusually significant elements in the geography of the country. The greatest overall change in settlement was, in fact, the massive urbanization that accompanied Britain's early industrial development. The increasing percentage of employees in offices and service industries ensures continued urban growth. Of every 10 people in the United Kingdom, nine live in towns and more than three of them in one of the country's 10 largest metropolitan areas. The Greater London metropolitan area—the greatest port, the largest centre of industry, the most important centre of office employment, and the capital city—is by far the largest of these. The need for accommodating business premises has displaced population from Inner London, and this outward movement, in part, has led to the development of new towns outside the 10-mile- (16-km-) wide Green Belt that surrounds London's built-up area.

 Large metropolitan areas also formed in industrial areas during the 19th and early 20th centuries. Although coalfields or textile manufacture underpinned the initial growth of many of these urban areas, coal mining had virtually ceased in all of them by the end of the 20th century, and the economic predominance of heavy industry and textile production had given way to a more diverse blend of manufacturing and service activities. Birmingham dominates the extensive built-up area of the West Midlands metropolitan area, but the industrial Black Country—named for its formerly polluted skies and grimy buildings—also has several large and flourishing towns. In Greater Manchester, with a similar number of inhabitants, urbanization accompanied the mechanization of the cotton textile industry. Across the Pennines similar mechanization of wool textiles created the West Yorkshire metropolitan area, with Leeds and Bradford as its twin centres. The metropolitan area of Tyne and Wear (centred on Newcastle upon Tyne) and the Greater Glasgow metropolitan area are also located on coalfields. Greater Glasgow houses about one-third of Scotland's people. Merseyside (centred on Liverpool) has traditionally served as a seaport and distribution centre for Greater Manchester and the rest of Lancashire. Other large metropolitan areas in Great Britain include South Yorkshire (centred on Sheffield), Nottingham, and Bristol. About one-fifth of Northern Ireland's population live in Belfast. In addition to these large metropolitan areas, there are many other minor urban agglomerations and large towns, several of which line the coast.

      With so much urban and suburban concentration, the problems of air, water, and noise pollution have attracted much concern in the United Kingdom. Clean-air legislation has brought considerable progress in controlling air pollution, partly by establishing smoke-control areas in most cities and towns, and there has been a shift from coal to cleaner fuels. Pollution of the rivers remains a large problem, particularly in the highly industrialized parts of the United Kingdom, but vigilance, research, and control by the National River Authorities and general public concern for the environment are encouraging features of contemporary Britain. Several statutory and voluntary organizations support measures to protect the environment. They aim to conserve the natural amenity and beauty not only of the countryside but also of the towns and cities.

Demographic trends
Population growth
      The population of the United Kingdom has been increasing since at least 1086, the date of Domesday Book, which provides the earliest reasonable estimate of England's population (the survey did not cover other areas). This growth has continued despite some setbacks, by far the most serious of which was the Black Death of the mid 14th century, in which it is estimated that about one-third of the population died. There is little concrete information, however, concerning birth or death rates, immigration, or emigration until 1801, the date of the first official census. The assumption is that a population of about three million lived in what became the United Kingdom at the end of the 11th century and that this figure had increased to about 12 million by 1801. This slow growth rate, in contrast with that of more modern times, resulted mainly from the combination of a high birth rate with an almost equally high death rate. Family monuments in old churches show many examples of men whose “quivers were full” but whose hearths were not crowded. It is estimated that in the first half of the 18th century three-fourths of the children born in London died before they reached puberty. Despite the appalling living conditions it produced, the Industrial Revolution resulted in an acceleration of the birth rate. Gradually the greater medical knowledge, improved nutrition, and concern for public health that characterized the 19th and 20th centuries yielded a lower mortality rate and an overall increase in population, even as birth rates began to drop.

      Since the 1930s the population has experienced a complete cycle in its pattern of growth. A low rate of increase during the 1930s was followed by a post-World War II marriage boom that accelerated the rate of growth, culminating in a peak during the mid-1960s. After 1964 a considerable fall in the birth rate brought about a dramatic decline in growth, with a small absolute decline in population between 1974 and 1978. However, modest population growth resumed during the 1980s, and the population of the United Kingdom rose from 56 million in 1980 to about 60 million by the end of the 20th century. The main cause of these abrupt shifts was the erratic nature of the birth rate, with the interaction of two opposing trends: on one hand, a long-term general decline in fertility and, on the other, a rising longevity and a decline in death rates. Such processes also have affected the age composition of the population, which has grown decidedly older. There has been a decline in the proportion of youths and an increase in the proportion of older people, especially those age 85 and older.

Migration patterns
      Beginning in the 1950s, the immigration of nonwhite (“New Commonwealth”) people from such developing nations as India, Pakistan, and the countries of the West Indies became significant, and from 1957 until 1962 there was a net migration gain. Since then restriction on the entry of New Commonwealth citizens has lessened the primary inflow, but dependents of immigrants already in the United Kingdom are still admitted. The reasons for restricting entry were in part economic but were also associated with the resistance of the existing population to the new arrivals. Nevertheless, the United Kingdom continues to gain people from the New Commonwealth.

      Although historical records refer to emigration to North America in the 17th and 18th centuries, there is little quantitative information about such movements before the middle of the following century. The greatest numbers appear to have left Great Britain in the 1880s and between 1900 and the outbreak of World War I. Emigration, particularly to Canada, Australia, and New Zealand (“Old Commonwealth” countries), continued at a high rate after the war until 1930, when unfavourable economic conditions in the British Empire and in the United States reversed the movement. During the same years, there also was an influx of refugees from Europe. After World War II both inward and outward movements were considerable. Emigration to the countries of the Old Commonwealth and, to a lesser degree, to the United States continued, but until 1951 immigration into Britain roughly equaled British emigration to the rest of the world. Since the mid-1960s there has been a slackening of emigration, as Canada and Australia no longer maintain an open-door policy to citizens of the United Kingdom, accepting only those whose skills are in demand. Nevertheless, the United Kingdom continues to be an exporter of population, albeit on a declining scale, to the Old Commonwealth, while emigration to the nations of the European Union and other foreign countries has increased.

      Migration (human migration) within the United Kingdom has at times been sizable. Until 1700 the relatively small population was sparsely distributed and largely rural and agricultural, much as it had been in medieval times. From the mid 18th century, scientific and technological innovations created the first modern industrial state. At the same time, agriculture underwent technical and tenurial changes that allowed increased production with a smaller workforce, and revolutionary improvements in transport facilitated the movement of materials and people. As a result, by the late 19th century a theretofore mainly rural population had largely become a nation of industrial workers and town dwellers.

      The rural exodus was a long process. The breakdown of communal farming started before the 14th century. Subsequently enclosures (enclosure) advanced steadily, especially after 1740, until a century later open fields had virtually disappeared from the landscape. Many of the displaced landless agricultural labourers were attracted to the better employment opportunities and the higher wage levels of the growing industries. Meanwhile, a rapid rise in the birth rate had produced a growing population of young people in the countryside who faced little prospect of agricultural employment. These groups contributed to a high volume of internal migration toward the towns.

      Industry, as well as the urban centres that inevitably grew up around it, concentrated near the coalfields, while the railway network, which grew rapidly after 1830, enhanced the commercial importance of many towns. The migration of people, especially young people, from the country to industrialized towns took place at an unprecedented rate in the early railway age, and such movements were relatively confined geographically. Migration from agricultural Ireland provided an exception, for, when the disastrous potato disease of 1845–49 led to widespread famine, large numbers moved to Great Britain to become urban workers in Lancashire, Clydeside (the Glasgow region), and London. The rural exodus continued, but on a greatly reduced scale, after 1901.

      Soon after World War I, new interregional migration flows commenced when the formerly booming 19th-century industrial and mining districts lost much of their economic momentum. Declining or stagnating heavy industry in Clydeside, northeastern England, South Wales, and parts of Lancashire and Yorkshire swelled the ranks of the unemployed, and many migrated to the relatively more prosperous Midlands and southern England. This movement of people continued until it was arrested by the relatively full employment conditions that obtained soon after the outbreak of World War II.

      In the 1950s opportunities for employment in the United Kingdom improved with government-sponsored diversification of industry, reducing the volume of migration to the south. The decline of certain northern industries—coal mining, shipbuilding, and cotton textiles in particular—had nevertheless reached a critical level by the late 1960s, and the emergence of new growth points in the West Midlands and southeastern England made the drift to the south a continuing feature of British economic life. During the 1960s and '70s the areas of most rapid growth were East Anglia, the South West, and the East Midlands, partly because of limitations on growth in Greater London and the development of peripheral new towns in surrounding areas.

      During the 1980s the government largely abandoned subsidies for industry and adopted a program of rationalization and privatization. The result was the collapse of coal mining and heavy industry in the north and the West Midlands of England and in the Lowlands of Scotland and a similar loss of heavy industry in Northern Ireland; this unleashed a wave of migration from these regions to the more prosperous south of England, especially East Anglia, the East Midlands, and the South West. As the economy stabilized during the 1990s, migration from Scotland, Northern Ireland, and northern England subsided. While the South East (including Greater London) was the chief destination of external immigrants into Britain, this region, along with the West Midlands, produced a growing internal migration to surrounding regions of England during the 1990s. This pattern reflected a larger trend of migration out of older urban centres throughout Britain to surrounding rural areas and small towns at the end of the 20th century.

William Ravenhill Ed.

Economy
 The United Kingdom has a fiercely independent, developed, and international trading economy that was at the forefront of the 19th-century Industrial Revolution. The country emerged from World War II as a military victor but with a debilitated manufacturing sector. Postwar recovery was relatively slow, and it took nearly 40 years, with additional stimulation after 1973 from membership in the European Economic Community (now the European Community in the European Union [EU]), for the British economy to improve its competitiveness significantly. Economic growth rates in the 1990s compared favourably with those of other top industrial countries. Manufacturing's contribution to gross domestic product (GDP) has declined to about one-fifth of the total, with services providing the source of greatest growth. The United Kingdom's chief trading ties have shifted from its former empire to other members of the EU, which account for more than half its trade in tangible goods. The United States is a major investment and trading partner, and Japan has become a significant investor in local production. American and Japanese companies often choose the United Kingdom as their European base. In addition, other fast-developing East Asian countries with export-oriented economies include the United Kingdom's open market among their important outlets.

      During the 1980s the Conservative government of Margaret Thatcher (Thatcher, Margaret) pursued the privatization, or denationalization, of publicly owned corporations that had been nationalized by previous governments. Privatization, accompanied by widespread labour unrest, resulted in the loss of tens of thousands of jobs in the coal-mining and heavy industrial sectors. Although there was some improvement in the standard of living nationally, in general there was greater prosperity in the South East, including London, than in the heavily industrialized regions of the West Midlands, northern England, Clydeside, and Belfast, whose economies suffered during the 1980s. During the 1980s and '90s, income disparity also increased. Unemployment and inflation rates were gradually reduced but remained high until the late 1990s. The country's role as a major world financial centre remained a source of economic strength. Moreover, its exploitation of offshore natural gas since 1967 and oil since 1975 in the North Sea has reduced dependence on coal and imported oil and provided a further economic boost.

Agriculture, forestry, and fishing
      The United Kingdom is unusual, even among western European countries, in the small proportion of its employed population (about 2 percent) engaged in agriculture. With commercial intensification of yields and a high level of mechanization, supported initially by national policy and subsequently by the Common Agricultural Policy (CAP) of the EU, the output of some agricultural products has exceeded demand. Employment in agriculture has declined gradually, and, with the introduction of policies to achieve reduction of surpluses, the trend is likely to continue. Efforts have been made to create alternative employment opportunities in rural areas, some of which are remote from towns. The land area used for agriculture (about three-quarters of the total) has also declined, and the arable share has fallen in favour of pasture.

      Official agricultural policy conforms to the CAP and has aimed to improve productivity, to ensure stable markets, to provide producers a fair standard of living, and to guarantee consumers regular food supplies at reasonable prices. To achieve these aims, the CAP provides a system of minimum prices for domestic goods and levies on imports to support domestic prices. Exports are encouraged by subsidies that make up the difference between the world market price and the EU price. For a few products, particularly beef and sheep, there are additional payments made directly to producers. More recent policies have included milk quotas, land set-asides (to compensate farmers for taking land out of agricultural use), and reliance on the price mechanism as a regulator.

 The most important farm crops are wheat, barley, oats, sugar beets, potatoes, and rapeseed. While significant proportions of wheat, barley, and rapeseed provide animal feed, much of the remainder is processed for human consumption through flour milling (wheat), malting and distilling (barley), and the production of vegetable oil (rapeseed). The main livestock products derive from cattle and calves, sheep and lambs, pigs, and poultry. The United Kingdom has achieved a high level of self-sufficiency in the main agricultural products except for sugar and cheese.

      About one-tenth About one-tenthof the United Kingdom's land area is devoted to productive forestry. The government-supported Forestry Commission manages almost half of these woodlands, and the rest are in private hands. Domestic timber production supplies less than one-fifth of the United Kingdom's demand. The majority of new plantings are of conifers in upland areas, but the commission encourages planting broad-leaved trees where appropriate.

      Although the United Kingdom is one of Europe's leading fishing countries, the industry has been in long-term decline. Fishing limits were extended to 200 nautical miles (370 km) offshore in the mid-1970s, and, because a significant part of the area fished by other EU members lies within British waters, it has been necessary to regulate catches on a community-wide basis. Meanwhile, the United Kingdom has lost opportunities to fish in some more-distant waters (e.g., those off Iceland), and this has reduced its total catch more than those of other countries of the EU. The United Kingdom's fishing industry now supplies only half the country's total demand. The most important fish landed are cod, haddock, mackerel, whiting, and plaice, as well as shellfish, including Nephrops (Norway lobsters), lobsters, crabs, and oysters. Estuarine fish farming—mainly of trout and salmon—has expanded considerably.

Resources and power
Minerals
      The United Kingdom has relatively limited supplies of economically valuable mineral resources. The once-important extraction of iron ore has dwindled to almost nothing. Other important metals that are mined include tin, which supplies about half the domestic demand, and zinc. There are adequate supplies of nonmetallic minerals, including sand and gravel, limestone, dolomite, chalk, slate, barite, talc, clay and clay shale, kaolin (china clay), ball clay, fuller's earth, celestine, and gypsum. Sand, gravel, limestone, and other crushed rocks are quarried for use in construction.

      By contrast, the United Kingdom has larger energy resources—including oil, natural gas, and coal—than any other EU member. coal, the fuel once vital to the British economy, has continued to decrease in importance. Compared with its peak year of 1913, when more than one million workers produced more than 300 million tons, current output has fallen by more than four-fifths, with an even greater reduction in the labour force. Power stations are the major customers for coal, but, with growth in the use of other fuels and the increasing closing of pits that have become uneconomical to operate, the industry remains under considerable pressure.

 The discovery of oil (petroleum) in the North Sea and the apportionment of its area to surrounding countries led to the rapid development of oil exploitation. Since the start of production in 1975, the quantities brought ashore have grown each year, and the United Kingdom has become virtually self-sufficient in oil and even an exporter. With an average output of nearly three million barrels per day at the beginning of the 21st century, the country was one of the world's largest producers. The balance of payments has benefited considerably from oil revenues, and a substantial proportion has been invested abroad to offset diminishing oil income in the future. Proven reserves were estimated at around 700 million tons in the late 1990s.

      Since offshore natural gas supplies from the North Sea began to be available in quantity in 1967, they have replaced the previously coal-based supplies of town gas. A national network of distribution pipelines has been created. Proven reserves of natural gas were estimated at 26.8 trillion cubic feet (760 billion cubic metres) in the late 1990s.

      Self-sufficiency in oil and natural gas and the decline of coal mining has transformed Britain's energy sector. Nuclear fuel has slightly expanded its contribution to electricity generation, and hydroelectric power contributes a small proportion (mainly in Scotland), but conventional steam power stations provide most of the country's electricity.

Manufacturing
      The manufacturing sector as a whole has continued to shrink both in employment and in its contribution (now around one-fifth) to the GDP. The decline in manufacturing largely accounted for the rapid rise in unemployment in the early 1980s. Once economic growth returned, however, there was great improvement in productivity and profits in British manufacturing.

      In terms of their relative importance to the GDP, the most important manufacturing industries are engineering; food, beverages (including alcoholic beverages), and tobacco; chemicals; paper, printing, and publishing; metals and minerals; and textiles, clothing, footwear, and leather. The fastest-growing sectors have been chemicals and electrical engineering. Within the chemical industry, pharmaceuticals and specialty products have shown the largest increases. Within the engineering industry, electrical and instrument engineering and transport engineering—including motor vehicles and aerospace equipment—have grown faster than mechanical engineering and metal goods, and electronic products have shown the fastest growth. On the other hand, the growth in motor vehicle production has occurred among foreign-owned, especially Japanese, companies investing in the United Kingdom. British automobile manufacturers have been in decline since the 1970s. After a period of restructuring during the 1980s, the British steel industry substantially increased its productivity, output, and exports during the 1990s. However, food, beverages, tobacco, leather, and engineering as a whole have had below-average growth. Textiles, clothing, and footwear have been in absolute decline because British companies have faced increasing difficulty competing with imports, especially from Asia.

      During the 1980s imports of manufactured products increased dramatically, and, although exports of finished manufactured products increased in value, the surplus in the balance of trade disappeared and was transformed into a large deficit. Nevertheless, after a period of restructuring in the 1980s, Britain's manufacturing sector increased its productivity and competitiveness, and the trade balance improved and stabilized during the 1990s.

      Construction in Britain stagnated during the 1990s because of a decline in prices and in demand for new housing and because of decreased government investment in infrastructure during the first half of the decade. About half the labour force in construction is self-employed. More than half of all construction work is on new projects, the remainder on repair and maintenance. There has been a marked switch from housing funded and owned by public authorities toward private development. Considerable efforts have also been made to encourage tenants of publicly owned rented houses to become owner-occupiers, with the result that the proportion of owner-occupied homes has grown considerably since the early 1970s. The supply of privately rented accommodations became scarcer because of statutory rent controls that discouraged new construction, but changes during the 1980s both in the economic climate and in official policy began to stimulate the supply. The average price of a new house, particularly in London and the South East, has generally continued to increase more rapidly than the prevailing rate of inflation, although prices have fluctuated considerably. In turn, the rising price of new homes has created considerable pressure on the land available for housing, which has been relatively tightly controlled. Here, too, public policy has been changing in favour of greater permissiveness.

      Private industrial and commercial construction and public projects account for the remainder of construction. During the 1980s and '90s the United Kingdom embarked on a series of major infrastructure projects, including the Channel Tunnel between Britain and France, the rebuilding of large parts of London's traditional Docklands as a new commercial centre, and extensions to London's rail and Underground systems.

Finance
      The United Kingdom, particularly London, has traditionally been a world financial centre. Restructuring and deregulation transformed the sector during the 1980s and '90s, with important changes in banking, insurance, the London Stock Exchange, shipping, and commodity markets. Some long-standing distinctions between financial institutions have become less clear-cut. For example, housing loans used to be primarily the responsibility of building societies, but increasingly banks and insurance companies have entered this area of lending. Two related developments have occurred: the transformation of building-society branch offices into virtual banks with personal cashing facilities and the diversification of all three of these types of institutions into real estate services. Building societies also participate to a limited extent in investment services, insurance, trusteeship, executorship, and land services.

      At the end of the 20th century, the financial services industry employed more than one million people and contributed about one-twelfth of the GDP. Although financial services have grown rapidly in some medium-sized cities, notably Leeds and Edinburgh, London has continued to dominate the industry and has grown in size and influence as a centre of international financial operations. Capital flows have increased, as have foreign exchange and securities trading. Consequently, London has more foreign banks than any other city in the world. Increased competition and technological developments have accelerated change. The International Stock Exchange was reorganized, and the historical two-tier structure of brokers, who executed investors' instructions to buy and sell stocks and shares, and jobbers, who “made” markets in these securities, was abolished. As a result, new companies link British and foreign banks with former brokers and jobbers. The Financial Services Act of 1986, the Building Societies Act of 1987, and the Banking Act of 1987 regulate these new financial organizations. In 1997 the government established a Financial Services Authority (FSA) to regulate the financial services industry; it replaced a series of separate supervisory organizations, some of them based on self-regulation. Among other tasks, the FSA has taken over the supervision of the United Kingdom's commercial banks from the Bank of England (England, Bank of).

      The Bank of England (England, Bank of) retains the sole right to issue bank notes in England and Wales (banks in Scotland and Northern Ireland have limited rights to do this in their own areas). In 1997 the Bank of England was given the power to set the “repo,” or benchmark, interest rate, which influences the general structure of interest rates. The bank's standing instruction from the government is to set an interest rate that will meet a target inflation rate of 2.5 percent per annum. The bank also intervenes actively in foreign exchange markets and acts as the government's banker. The pound sterling is a major internationally traded currency.

      A variety of institutions, including insurance companies, pension funds, and investment and unit trusts, channel individual savings into investments. Finance houses are the primary providers of home mortgages and corporate lending and leasing. There are also companies that finance the leasing of business equipment; factoring companies that provide immediate cash to creditors and subsequently collect the corporate debts owed; and finance corporations that provide venture capital funding for innovations or high-risk companies and that supplement the medium- and long-term capital markets, otherwise supplied by the banks or the Stock Market.

      The United Kingdom has a number of organized financial markets. The securities markets comprise the International Stock Exchange, which deals in officially listed stocks and shares (including government issues, traded options, stock index options, and currency options); the Unlisted Securities Market, for smaller companies; and the Third Market, for small unlisted companies. Money market activities include the trading of bills, certificates of deposit, short-term deposits, and, increasingly, sterling commercial paper. Other markets are those dealing in Eurocurrency, Eurobonds, foreign exchange, financial futures, gold, ship brokerage, freight futures, and agricultural and other commodity futures.

      The share of invisible trade (receipts and payments from financial services; interest, profits, and dividends; and transfers between the United Kingdom and other countries) has been rising steadily since the 1960s—from about one-third to one-half of the country's total foreign earnings. Within this area, service transactions have grown rapidly, and financial services have grown the fastest.

Trade
      Trade has long been pivotal to the United Kingdom's economy. The total value of imports and exports represents nearly half the country's GDP. (By comparison, the value of foreign trade amounts to about one-fifth of the GDP of the United States.) The volume of both the exports and the imports of the United Kingdom has grown steadily in recent years. Principal British exports include machinery, automobiles and other transport equipment, electrical and electronic equipment (including computers), chemicals, and oil. Services, particularly financial services, are another major export and contribute positively to Britain's trade balance. The country imports about one-tenth of its foodstuffs and about one-third of its machinery and transport equipment.

      An increasing share of the United Kingdom's trade is with other developed countries. Joining the European Economic Community caused a major reorientation of trade flows; more than half of all trade is now with European partners, although at the beginning of the 21st century the United States remained the United Kingdom's single largest export market and its second largest supplier. Germany was the leading supplier and the second most important export market.

      The United Kingdom's current overall balance of payments (including trade in services and transfer payments), which historically had been generally favourable, fell into deficit from the mid-1980s until the late 1990s because visible imports (i.e., tangible goods imported) exceeded visible exports. Meanwhile there was considerable overseas investment, and foreign earnings grew. The government has supported trade liberalization and participated in international trade organizations. By the late 1990s the steady growth in exports of goods and services and in foreign earnings had produced the first balance-of-payments surplus in more than a decade.

Services
      The most remarkable economic development in the United Kingdom has been the growth of service industries, which now provide about two-thirds of the GDP and three-fourths of total employment. This reflects the rise in real personal incomes, changes in patterns of consumer expenditure, and the elaboration and increasing outsourcing of business services. Although some services—for example, public transportation, laundries, and movie theatres—have declined in favour of privately owned goods—such as automobiles, washing machines, and television sets—this has stimulated increased demand for the related services that distribute, maintain, and repair such products. Other growing service industries include hotels and catering, air travel and other leisure-related activities, distribution (particularly retailing), and finance. Especially rapid growth has occurred in other business-support services, including computing systems and software, management consultancy, advertising, and market research, as well as the provision of exhibition and conference facilities. Britain is also the base for some of the world's leading art auction houses.

      The United Kingdom's many cultural treasures—e.g., its historic castles, museums, and theatres—make it a popular tourist destination. The tourism industry is a leading sector in the British economy, and each year more than 25 million tourists visit the country. London is among the world's most-visited cities.

Labour and taxation
      Government revenues are derived from several main sources, including income taxes, corporate taxes, taxes on the sale of goods and services, and national insurance contributions. After World War II the government adopted individual income tax rates that were among the highest in Europe. During the last two decades of the 20th century, individual income tax rates dropped, and corporate tax rates increased slightly. A value-added tax, which levies a 17.5 percent tax on purchases, generates nearly one-third of government revenues.

      During the 1980s the Thatcher government adopted policies that placed limits on the power and influence of trade unions and provided training for those entering the workforce or changing careers. The Labour government of the late 1990s retained many of Thatcher's policies, but they abandoned the Conservative objective of unlimited tax reduction and instead sought to stabilize the overall burden of taxation at about 37 percent of GDP.

      Just under half the total population is in the labour force, including a small but expanding proportion who are self-employed. About three-tenths of workers are members of a trade union, a share that dropped significantly with the adoption of legislation restricting trade union rights in the last two decades of the 20th century. Among the various influential trade organizations are the public-sector union Unison; the manufacturing-sector union Amalgamated Engineering and Electrical Union, and the general-services unions General, Municipal, and Boilermakers' Union and Transport and General Workers' Union. Although manufacturing once dominated employment, it now involves less than one-sixth of all workers. In contrast, the service sector employs more than two-thirds of employees, with financial services and distribution the two largest components.

Transportation and telecommunications
      The United Kingdom, which is relatively small in area and has a fairly high population density, has undergone considerable change in its patterns of transport. The growth of automobile ownership (by the turn of the 21st century, nearly two-thirds of all households had one automobile, and some had two or more), the decline in the use of local buses, and the transfer of much internal freight from rail to road increased the importance of maintaining and developing road networks, particularly motorways (superhighways) and trunk roads. Intercity rail services have been improved, as have commuter services in major metropolitan areas. Similarly, air traffic has grown, particularly international flights. Although there has been a downward trend in shipping and sea travel, most foreign trade still moves by sea. However, the opening of the Channel Tunnel rail link between England and France in 1994 had a big impact on cross-Channel passenger and freight patterns. At peak periods the tunnel accommodates up to four passenger and four freight shuttletrains per hour in each direction. By the end of the decade, these trains carried about half of the car traffic and more than one-third of the coach and truck traffic on the Dover/Folkestone–Calais route—the principal artery linking Britain to mainland Europe. In addition, the tunnel accommodates through freight trains and high-speed passenger trains between London and Paris or Brussels. Substantial passenger and cargo traffic moves by sea between the ports of the United Kingdom, Ireland, and Europe. Oil and natural gas, each of which has a national bulk-distribution pipeline system, do not rely on the road and rail networks.

      Investment in transportation has sometimes failed to meet rising demand—for example, the M25 motorway around London showed signs of overload soon after it was opened in 1986; there is overcrowding on commuter rail services, including London's Underground; congested traffic moves at a snail's pace in cities; and there is continuous pressure to build more motorways and airports to serve London.

      During the 1980s British Telecom (BT) was privatized, and the government subsequently deregulated the country's telecommunications sector. Although BT has continued to be the largest telecommunications company, several additional operators provide extensive service for cable, wireless, fibre-optic, and other telecommunications services. An independent regulatory agency, the Office of Communications (Ofcom), oversees the sector.

Ulric M. Spencer Peter Jon Kellner

Government and society

Constitutional framework
  The United Kingdom is a constitutional monarchy and a parliamentary democracy. The country's head of state is the reigning king or queen, and the head of government is the prime minister, who is the leader of the majority political party in the House of Commons (Commons, House of).

      The British constitution is uncodified; it is only partly written and is flexible. Its basic sources are parliamentary and European Union legislation, the European Convention on Human Rights, and decisions by courts of law. Matters for which there is no formal law, such as the resignation of office by a government, follow precedents (conventions) that are open to development or modification. Works of authority, such as Albert Venn Dicey (Dicey, Albert Venn)'s Lectures Introductory to the Study of the Law of the Constitution (1885), are also considered part of the constitution.

 The main elements of the government are the legislature, the executive, and the judiciary. There is some overlap between the branches, as there is no formal separation of powers (powers, separation of) or system of checks and balances. For example, the lord chancellor traditionally was a member of all three branches, serving as a member of the cabinet (executive branch), as the government's leader in the House of Lords (legislative branch), and as the head of the country's judiciary (judicial branch). However, constitutional reforms in 2006 stripped the office of most of its legislative and judicial functions, with those powers devolving to the lord speaker and the lord chief justice, respectively.

      Sovereignty resides in Parliament, which comprises the monarch, the mainly appointive House of Lords (Lords, House of), and the elected House of Commons (Commons, House of). The sovereignty of Parliament is expressed in its legislative enactments, which are binding on all, though individuals may contest in the courts the legality of any action under a specific statute. In certain circumstances individuals may also seek protection under European law. Until 1999 the House of Lords consisted mainly of hereditary peers (or nobles). Since then it has comprised mainly appointed peers, selected by successive prime ministers to serve for life. However, 92 (out of 759) hereditary peers were permitted to retain their membership in the House of Lords pending a more far-reaching reform of the upper house. Each of the 646 members of the House of Commons (members of Parliament; MPs) represents an individual constituency (district) by virtue of winning a plurality of votes in the constituency.

      All political power rests with the prime minister and the cabinet, and the monarch must act on their advice. The prime minister chooses the cabinet from MPs in his political party. Most cabinet ministers are heads of government departments. The prime minister's authority grew during the 20th century, and, alone or with one or two colleagues, the prime minister increasingly has made decisions previously made by the cabinet as a whole. Prime ministers have nevertheless been overruled by the cabinet on many occasions and must generally have its support to exercise their powers.

      Because the party with a majority in the House of Commons supports the cabinet, it exercises the sovereignty of Parliament. The royal right of veto has not been exercised since the early 18th century, and the legislative power of the House of Lords was reduced in 1911 to the right to delay legislation. The cabinet plans and lays before Parliament all important bills. Although the cabinet thus controls the lawmaking machinery, it is also subject to Parliament; it must expound and defend its policy in debate, and its continuation in office depends on the support of the House of Commons.

      The executive apparatus, the cabinet secretariat, was developed after World War I and carries out the cabinet's decisions. It also prepares the cabinet's agenda, records its conclusions, and communicates them to the government departments that implement them.

Regional government
      Within the United Kingdom, national assemblies in Scotland, Wales, and Northern Ireland took power in 1999 and assumed some powers previously held exclusively by the central Parliament at Westminster, to which they remain subordinate. The central Parliament retains full legislative and executive control over England, which lacks a separate regional assembly. Scotland's Parliament has wide powers over such matters as health, education, housing, transport, the environment, and agriculture. It also has the power to increase or decrease the British income tax rate within Scotland by up to three percentage points. The central Parliament retains responsibility for foreign affairs, defense, social security, and overall economic policy. Unlike the members of the House of Commons, members of the Scottish Parliament are chosen under a system of proportional representation. Scotland has a distinct legal system based on Roman law. Since 1999 Wales has also had its own assembly, but because it has neither legislative nor tax-gathering powers, the Welsh assembly is significantly less powerful than the Scottish Parliament. It does, however, broadly administer the same services as the Scottish Parliament, albeit within a legislative framework set by Westminster. Like Scottish legislators, members of the Welsh assembly are elected by proportional representation. The Northern Ireland Assembly gained limited legislative and executive power at the end of 1999. Its members, like those of the other regional assemblies, are elected by proportional representation. It has power over matters concerning agriculture, economic development, education, the environment, health, and social services, but the Westminster government retains control over foreign affairs, defense, general economic policy, taxation, policing, and criminal justice. Divisions between unionist (Protestant) and nationalist (Roman Catholic) factions in the Northern Ireland Assembly, however, have threatened its future. If either faction withdraws from the assembly, the region could return to the system of direct rule by the central government that prevailed in Northern Ireland from 1973 to 1999.

Local government
      Each part of the United Kingdom has a distinct system of local government. (For a full account of local government in each part of the United Kingdom, see the discussions of local government in the articles on England, Wales, Scotland, and Northern Ireland.) Local governments have very few legislative powers and must act within the framework of laws passed by the central Parliament (and by the Scottish Parliament in Scotland). Nevertheless, they do have the power to enact regulations and to levy rates (property taxes) within limits set by the central government. They are funded by the rates that they levy, by fees for services, and by grants from the central government. Local governments in the United Kingdom are responsible for a range of community services, including environmental matters, education, highways and traffic, social services, fire fighting, sanitation, planning, housing, parks and recreation, and elections. In Scotland and Wales regional governments handle some of these functions, and local governments handle the remainder. In Northern Ireland the Northern Ireland Assembly is responsible for many of these functions. The responsibilities of local governments in Northern Ireland are limited to environmental matters, sanitation, and recreation.

      Parts of the United Kingdom have as many as three levels, or tiers, of local government, each with its own responsibilities, whereas other areas have only a single tier or two tiers. Throughout England, parish and town councils form the lowest tier of local government. (Parishes are civil subdivisions, usually centred on a village or small town, that are distinct from church bodies.) They have the power to assess “precepts” (surcharges) on the local rates and a range of rights and duties, including maintenance of commons, recreational facilities, and environmental quality and participation in the planning process. Community councils perform a similar role in Wales, whereas community councils in Scotland are voluntary and consultative bodies with few statutory powers. This lowest level of local government has no counterpart in Northern Ireland.

      The next tier of local government is usually known in England and Northern Ireland as a district, borough, or city. In Northern Ireland this is the only level of local government. In Scotland and Wales this second tier is the only one with broad powers over major local government functions. In Wales these local government areas are known as either counties or county boroughs, while in Scotland they are variously known as council areas or local government authorities or, in some cases, cities. In some areas of England this second tier of local government is the only one with broad statutory and administrative powers. These areas are known in England as unitary authorities (since they form a single tier of local government above the parishes and towns) or metropolitan boroughs (which are functionally equivalent to unitary authorities but form part of a larger metropolitan county). In other areas of England, districts, boroughs, and cities form an intermediate tier of local government between the towns and parishes on the one hand and administrative counties on the other. Administrative counties, which cover much of England, are the highest tier of local government where they exist.

      In Greater London, boroughs form the lowest tier of local government and are responsible for most local government functions. However, in 2000 a new Greater London Authority (GLA) was established with very limited revenue-gathering powers but with responsibility for public transport, policing, emergency services, the environment, and planning in Greater London as a whole. The GLA consists of a directly elected mayor (a constitutional innovation for the United Kingdom, which had never previously filled any executive post by direct election) and a 25-member assembly elected by proportional representation.

      Whereas the administrative counties of England and the counties and county boroughs of Wales have statutory and administrative powers, there are other areas throughout the United Kingdom that are called counties but lack administrative power. In England, metropolitan counties cover metropolitan areas; they serve as geographic and statistical units, but since 1986 their administrative powers have belonged to their constituent metropolitan boroughs. Moreover, in England there is a unit known variously as a ceremonial county or a geographic county. These counties also form geographic and statistical units. In most cases they comprise an administrative county and one or more unitary authorities. In other cases they comprise one or more unitary authorities without an administrative county. Greater London and each of the metropolitan counties also constitute ceremonial and geographic counties. These areas are known as ceremonial counties because each has a lord lieutenant and a high sheriff who serve as the representatives of the monarch in the county and who represent the county at the ceremonial functions of the monarchy.

      Finally, every part of the United Kingdom lies within what is known as a historic county. The historic counties have formed geographic and cultural units since the Middle Ages, and they historically had a variety of administrative powers. The Local Government Act of 1888 regularized the administrative powers of counties and reassigned them to new administrative counties with the same names as the historic counties but with different boundaries in some cases. Successive local government reorganizations in the 1970s and '90s redrew the boundaries of administrative units in the United Kingdom so that no remaining administrative unit corresponds directly to a historic county, although many administrative and geographic counties and other local government units carry the names of historic counties. Still, even though they lack administrative power, historic counties remain important cultural units. They serve as a focus for local identity, and cultural institutions such as sporting associations are often organized by historic county.

Justice
      Recruited from successful practicing lawyers, judges in the United Kingdom are appointed and virtually irremovable. The courts alone declare the law, but the courts accept any act of Parliament as part of the law. As courts in the United Kingdom do not possess the power of judicial review, no court can declare a statute invalid.

      An accused person is presumed innocent until proved guilty. The courts strictly enforce a law of contempt to prevent newspapers or television from prejudicing the trial of the accused before a jury. Verdicts in criminal cases rest on a majority vote of the jury (in Scotland a simple majority, in England, Wales, and Northern Ireland with no more than two dissenting votes). capital punishment was abolished in 1965. Almost all defendants in criminal cases in the Crown Courts (in Scotland the High Court of Justiciary), which deal with all serious cases, are granted publicly funded legal aid.

      More than 90 percent of criminal cases in England and Wales are tried and determined by about 30,000 justices of the peace, who are unpaid laypersons, or by the more than 60 stipendiary (paid) magistrates, who are trained lawyers. More serious crimes also come initially before a magistrate's court. The system is similar in Northern Ireland, but in Scotland district and sheriff courts try most criminal cases. The police must bring an arrested person before a magistrate within 36 hours, but the magistrate can authorize further detention without charge for up to 96 hours. Only 1 percent of suspects are held without charge for more than 24 hours, however. The magistrate decides whether the accused should be held on bail or in custody.

      The vast majority of civil actions in England, Wales, and Northern Ireland are tried in local county courts, whose jurisdiction is limited by the nature of the action and the amount of money at stake. In Scotland, sheriff courts and the Court of Session try all civil actions.

 Appeals in civil and criminal matters move from the High and Crown courts to the Court of Appeal, which, in cases of legal importance, can allow a final appeal to the judges in the House of Lords. In Scotland only civil matters may be appealed to the House of Lords.

Political process
      All citizens aged 18 or older are eligible to vote in parliamentary and local elections as well as in elections to the European Parliament. All other public posts are filled by appointment. Each member of the House of Commons represents one parliamentary constituency. Constituency populations historically have varied considerably, with those in Scotland and Wales being much smaller than those in England. This overrepresentation for Scotland and Wales dates from the 18th century and the 1940s, respectively; however, because of the wide array of powers vested in the Scottish Parliament, the disparity in constituency size between England and Scotland was eliminated at the May 2005 election, when Scotland's seats in the House of Commons were reduced from 72 to 59. Constituencies in Northern Ireland are slightly smaller than those in England. As there are no residency requirements, many members of Parliament reside outside the constituency that they represent.

      Registration of voters is compulsory and carried out annually. Candidates for election to Parliament or a local council are normally chosen by the local parties. There are no primary elections along U.S. lines, for example, nor would such a system be easy because the timing of general elections is unpredictable.

      The House of Commons is elected for a maximum term of five years. At any time during those five years, the prime minister has the right to ask the monarch to dissolve Parliament and call a general election. A government with a working majority is expected to govern for the greater part of its term, though it rarely runs to the end. An early election may take place if there is no working majority, and the prime minister need give only 17 working days' notice of a general election. Parliamentary candidates' campaign spending is strictly limited. Since 2000, national party expenditure, which was previously unrestricted, has been limited to a maximum of £20 million per party. In addition, each party is allocated free election broadcasts on the main television channels. No paid political advertising is permitted on television or radio. These provisions and the uncertainty about the timing of an election produce campaigns that are, by international standards, unusually brief and relatively inexpensive.

      A two-party system has existed in the United Kingdom since the late 17th century. Since the mid-1920s the dominant groupings have been the Conservative Party and the Labour Party (Liberal Party). However, several smaller parties—e.g., the Liberal Democrats, the Scottish and Welsh nationalist parties, and loyalist (unionist) and republican (nationalist) political parties in Northern Ireland—have gained representation in Parliament, especially since the 1970s. The two-party system is one of the outstanding features of British politics and generally has produced firm and decisive government. The practice of simple plurality voting in single-member constituencies has tended to exaggerate the majority of the winning party and to diminish the representation and influence of third parties, except for those with a geographic base of support (e.g., Plaid Cymru–The Party of Wales (Plaid Cymru)).

      The two-party system, together with uncertainty about the timing of a general election, has produced the British phenomenon of the official opposition. Its decisive characteristic is that the main opposition party forms an alternative, or “shadow,” government, ready at any time to take office, in recognition of which the leader of the opposition receives an official salary.

 Despite several high-profile female monarchs and politicians, men have dominated politics in the United Kingdom for centuries. While women have made strong political gains in much of western Europe, especially in Scandinavia, breakthroughs for women in British national elections have been rare. Throughout much of the 20th century, only a few women won elections; before the 1980s the high point for female representation in the House of Commons was 29 in 1964. Indeed, many women who were able to win election to the House of Commons were of aristocratic stock or widows of influential politicians. One such exception was Margaret Thatcher (Thatcher, Margaret), who was first elected to Parliament in 1959 and became Britain's first female prime minister in 1979. However, during the 1980s women began to make gains, with 60 female candidates winning seats in Parliament in 1992. In order to increase its appeal to women and increase the number of women MPs, the Labour Party adopted a policy of all-women shortlists for half of its “target seats” (i.e., seats where an existing Labour MP was standing down or where Conservative MPs had small majorities) for the 1997 election, and, though the policy subsequently was ruled in violation of equal rights laws, 120 women—101 from the Labour Party—were elected to the House of Commons. Even with the law invalidated, 118 women won election in 2001. In addition to women, minorities have had some success in national elections. There consistently have been several Jewish members of the House of Commons, and Sikh and Muslim candidates also have had limited success.

Security
      The United Kingdom has no national police force or any minister exclusively responsible for the police. Each provincial force is maintained by a police authority, a committee elected by several local councils. One of its important tasks is to appoint and dismiss the chief constable. Once appointed, the chief constable has the sole right of appointment, promotion, discipline, and deployment of his force.

      The commissioner of London's Metropolitan Police has a status similar to that of a chief constable. Scotland Yard (the criminal investigation department of the Metropolitan Police) assists other police forces and handles the British responsibilities of the International Criminal Police Organization ( Interpol).

 The British police, popularly known as “bobbies,” wear a uniform that is nonmilitary in appearance. Their only regular weapon is a short, wooden truncheon, which they keep out of sight and may not employ except in self-defense or to restore order. Police on a dangerous mission may carry firearms for that specific occasion.

      Responsibility for national defense rests with the prime minister and the cabinet. The secretary of state for defense formulates defense policy. His ministry has responsibility for the armed forces. The secretary of state is advised by the chief of the defense staff, aided by the chiefs of the three services—the army, navy, and air force. Britain has been an active member of the North Atlantic Treaty Organization (NATO), deploying its troops in various theatres of conflict. Internal security and intelligence are handled by the MI5 government agency, and foreign intelligence services are carried out by MI6.

Health and welfare
      The National Health Service (NHS) provides comprehensive health care throughout the United Kingdom. The NHS provides medical care through a tripartite structure of primary care, hospitals, and community health care. The main element in primary care is the system of general practitioners (family doctors), who provide preventive and curative care and who refer patients to hospital and specialist services. All consultations with a general practitioner under the NHS are free.

      The other major types of primary medical care are dentistry and pharmaceutical and opthalmic services. These are the only services of the NHS for which charges are levied, though persons under age 16, past retirement, or with low incomes are usually exempt. Everyone else must pay charges that are below the full cost of the services involved.

      Under the Department of Health in England are four regional health directors who oversee area health authorities, whose major responsibility is to run the hospital service. (Overseeing the health authorities in Scotland, Wales, and Northern Ireland is the responsibility of their respective parliament or assembly.) Hospitals absorb more than two-thirds of the NHS budget. All hospital treatment under the NHS is free, including consultations with doctors, nursing, drugs, and intensive care, whatever the type of medical problem and however long the hospital stay. Hospital doctors are paid a salary rather than a fee for service but can combine salaried work for the NHS with a private practice.

      The Community Health Service has three functions: to provide preventive health services; to act as a liaison with local government, especially over matters of public health; and to cooperate with local government personal social service departments to enable health and personal care to be handled together whenever possible.

      Individuals can register with any NHS general practitioner in their area who is prepared to add them to his or her list of patients. Anyone who wishes to change to another doctor may do so. Except in emergencies, patients are referred to a hospital by their general practitioner, allowing patients an element of choice.

      Apart from the charges mentioned above, treatment under the NHS is free to the patient. The service is almost entirely funded by government revenues, with less than 5 percent of NHS revenue coming from charges. This arrangement is unique among industrialized countries. There is no substantial reliance on private medical insurance (as, for example, in the United States).

      The NHS budget, like that for any other government service, is determined by negotiations between the Treasury and the spending departments, as modified by subsequent discussion in the cabinet. The resulting figure is a budget for the NHS as a whole. The division of money throughout the United Kingdom is partly constrained by a formula designed to improve the geographic distribution of medical resources. Each regional authority divides its total funds among the area health authorities.

      Alongside the NHS is a system of private medical care both for primary care and for hospital treatment. Although it grew somewhat in the 1980s and '90s, the sector absorbs only about one-tenth of the total expenditure on doctors and hospital inpatient care. Most private care is financed by voluntary private medical insurance.

      Although the NHS is a popular institution, it is not without problems: resources are scarce, many hospital buildings are old, there are waiting lists for nonurgent conditions, the distribution of health care by social class and by region is less equal than many would wish, and management needs to be improved. The advantages, however, are enormous. The NHS is very inexpensive by international standards; in the late 1990s, for example, the United Kingdom spent about half the percentage of GDP on health care as the United States. Despite such low spending, health in the United Kingdom, measured in terms of infant mortality and life expectancy, matches that in comparable countries. The variation in the quality and quantity of treatment by income level is smaller than in most other countries. The system is able to direct resources toward specific regions and specific types of care. Treatment is free, whatever the extent and duration of illness, no one is denied care because of low income, and no one fears financial ruin as a result of treatment.

Cash benefits
      The current system of cash benefits, though substantially modified since its introduction in 1946, is based on the 1942 “Beveridge Report.” Every employed person pays a national insurance contribution, which since 1975 has taken the form of a percentage of earnings, although contributions are due only on amounts up to about 150 percent of nationwide average earnings. Employers collect the contribution, and there is also an employer contribution. Separate arrangements exist for the self-employed. The revenue from contributions goes into the National Insurance Fund.

      Insured individuals are entitled to unemployment compensation, cash benefits during sickness or disability, and a retirement pension. There are also benefits for individuals injured in work-related accidents and for widows. Whether or not they receive an insurance benefit, all are eligible for a noncontributory benefit. Employees who lose their jobs through no fault of their own receive lump-sum redundancy, or severance, payments, whose cost is met in part by their employers and in part from a general levy on employers.

      The major noncontributory benefits, paid out of general tax revenues, offer poverty relief to individuals and families whose income and savings fall below some prescribed level. The benefit of last resort is income support (formerly called the supplementary benefit); it is payable to individuals whose entitlement to insurance benefits has been exhausted or has left them with a very low income and to those who never had any entitlement to an insurance benefit. Other means-tested benefits assist low-paid working families with children and help people on low incomes with their housing costs. An important class of noncontributory benefits is not means-tested, the major example being the child benefit, a weekly tax-free payment for each child, usually payable to the mother.

      The 1946 system has changed substantially over the years, with a burst of reform in the mid-1970s, including an increase in earnings-related pensions, and another in the late 1990s. In the late 1990s a working-families tax credit replaced income support for low-paid working households with children, and the government introduced a national minimum wage. The government also introduced a children's tax credit to provide additional support to low- and middle-income families. There was a review of the benefit system in 1985 that changed the detailed workings of several benefits in 1988 but left the basic structure intact.

Housing
      During the mid-20th century, local governments developed council houses (public housing estates) throughout the United Kingdom. At public housing's peak, about 1970, local governments owned 30 percent of all housing in the country. Under the Housing (Homeless Persons) Act of 1977 (which amended older legislation), local governments have a statutory obligation in certain circumstances to find housing for homeless families. Partly for that reason, they keep a substantial stock of housing for rent, maintain waiting lists, and allocate housing according to need. Following the introduction of “right to buy” legislation in 1980, many tenants became owner-occupiers. By the beginning of the 21st century, the proportion of homes owned by local governments had almost halved.

Education
Primary and secondary education
      Overall responsibility for education in England rests with the secretary of state for children, schools, and families, who is accountable to Parliament and responsible for the health, education, and welfare of young people. In Scotland, Wales, and Northern Ireland, separate departments of education are headed by ministers who answer to the country's parliament or assembly. Primary and secondary education are a local responsibility. Local Education Authorities (LEAs) employ the teachers and are the major providers of education. In addition, a few schools are run by voluntary bodies, mostly religious. There is also a small private sector.

      Primary education is free and compulsory from age 5 to 11. LEAs provide secondary education, which is organized in a variety of ways, for children aged 11 to 19; it is free and compulsory to age 16. Teachers employed by the LEAs are paid on an agreed national scale. The state finances primary and secondary education out of central and local tax revenues. Most expenditures take place at the local level, though about half of local revenues derive from the central government.

      In most parts of the United Kingdom, secondary schools are comprehensive—that is, they are open to pupils of all abilities. Pupils may stay on past the minimum leaving age of 16 to earn a certificate or take public examinations that qualify them for higher education. In much of Northern Ireland and in some scattered LEAs in Great Britain (particularly in Kent), pupils take an intelligence examination at age 11, on the basis of which they are assigned to one of two kinds of secondary schools: grammar schools, which prepare them for higher education; or secondary modern schools, which prepare them for jobs that do not require higher education.

      The secretary of state has the duty to establish a national curriculum applicable to all state schools. Individual schools control their own management and finance and may apply to opt out of control by local authorities. Schools are required to maintain open enrollment.

      Alongside the state sector, a small number of private schools (often called “public schools”) provide education for about one-twentieth of children. Their existence is controversial. It is argued that private schools divert gifted children and teachers and scarce financial resources from state schools and that they perpetuate economic and social divisions. The counterarguments focus on their high quality, the beneficial effects of competition, and parents' freedom of choice.

      Universities historically have been independent and self-governing; however, they have close links with the central government because a large proportion of their income derives from public funds. Higher education also takes place in other colleges.

      Students do not have a right to a place at a university; they are carefully selected by examination performance, and the dropout rate is low by international standards. Most students receive state-funded grants inversely related to their parents' income to cover the tuition fees. In addition, most students receive state-funded loans to cover living expenses. Foreign students and British students taking a degree at an overseas university are not generally eligible for public funding.

      Public funds flow to universities through recurrent grants and in the form of tuition fees; universities also derive income from foreign students and from various private-sector sources. After a major expansion in the 1960s, the system came under pressure in the 1980s. Public funding became more restricted, and the grant system no longer supported students adequately. The government introduced the present system of student loans to replace dwindling grants for living expenses and established higher-education funding councils in each part of the United Kingdom (England, Wales, Scotland, and Northern Ireland) to coordinate state support of higher education.

      The Open University—a unique innovation in higher education—is a degree-granting institution that provides courses of study for adults through television, radio, and local study programs. Applicants must apply for a number of places limited at any time by the availability of teachers.

Nicholas A. Barr Peter Jon Kellner

Cultural life
      English culture tends to dominate the formal cultural life of the United Kingdom, but Scotland, Wales, and Northern Ireland have also made important contributions, as have the cultures that British colonialism brought into contact with the homeland. Scotland, Wales, and Northern Ireland share fully in the common culture but also preserve lively traditions that predate political union with England.

      Widespread changes in the United Kingdom's cultural life occurred after 1945. The most remarkable was perhaps the emergence first of Liverpool and then of London in the 1960s as a world centre of popular culture. The Beatles (Beatles, the) were only the first and best-known of the many British rock (rock and roll) groups to win a world following. British clothing designers for a time led the world as innovators of new styles of dress for both men and women, and the brightly coloured outfits sold in London's Carnaby Street and King's Road shops briefly became more symbolic of Britain than the traditionally staid tailoring of Savile Row.

      Underlying both this development and a similar if less-remarked renewal of vigour in more traditional fields were several important social developments in the decades after World War II. Most evident was the rising standard of education. The number of pupils going on to higher education increased dramatically after World War II and was matched by a major expansion in the number of universities and other institutions of higher education. In society in general there was a marked increase in leisure. Furthermore, immigration, particularly from the West Indies and South Asia, introduced new cultural currents to the United Kingdom and contributed to innovation in music, film, literature, and other arts.

Daily life and social customs
      The United Kingdom's cultural traditions are reflective of the country's heterogeneity and its central importance in world affairs over the past several centuries. Each constituent part of the United Kingdom—England, Scotland, Wales, and Northern Ireland—maintains its own unique customs, traditions, cuisine, and festivals. Moreover, as Britain's empire spanned the globe, it became a focal point of immigration, especially after the independence of its colonies, from its colonial possessions. As a result, immigrants from all corners of the world have entered the United Kingdom and settled throughout the country, leaving indelible imprints on British culture. Thus, at the beginning of the 21st century, age-old English, Irish, Scottish, and Welsh customs stood alongside the rich traditions of Afro-Caribbean, Asian, and Muslim immigrants, placing the United Kingdom among the world's most cosmopolitan and diverse countries.

The arts
 From the plays of William Shakespeare (Shakespeare, William) to the music of the Sex Pistols (Sex Pistols, the), British art has had a tremendous impact on world culture. Writers from every part of the United Kingdom, joined by immigrants from parts of the former British Empire and the Commonwealth, have enriched the English language and world literature alike with their work. British studios, playwrights, directors, and actors have been remarkable pioneers of stage and screen. British comedians have brought laughter to diverse audiences and been widely imitated; British composers have found devoted listeners around the world, as have various contemporary pop groups and singer-songwriters; and British philosophers have had a tremendous influence in shaping the course of scientific and moral inquiry. From medieval time to the present, this extraordinary flowering of the arts has been encouraged at every level of society. Early royal patronage played an important role in the development of the arts in Britain, and since the mid 20th century the British government has done much to foster their growth.

      The independent Arts Council, formed in 1946, supports many kinds of contemporary creative and performing arts. The state-owned British Broadcasting Corporation (BBC) and privately owned Channel Four Television are also major patrons of the arts, especially music and film. The work of filmmakers and actors throughout the United Kingdom is supported by the Film Council, a government board that helps fund productions and secure film-related services. This support has contributed to the great expansion of the market for cultural goods and of audiences for the arts generally. As in many other highly developed countries, the clash of tastes and values between generations and, to some extent, between social classes has occasionally been sharp, as it was in the 1960s and '70s. However, the overall effect of social and financial diversity has been to make culture a major British industry, which employs more than a million people and commands one-sixth of the world's cultural exports, three times greater than Britain's share of world trade overall.

Cultural institutions
      The United Kingdom contains many cultural treasures. It is home to a wide range of learned societies, including the British Academy, the Royal Geographical Society, and the Royal Society of Edinburgh. The British Museum in London houses historical artifacts from all parts of the globe. London is also home to many museums (e.g., the National Gallery, the National Portrait Gallery, the Tate (Tate galleries) galleries, the Imperial War Museum, and the Victoria and Albert Museum) and theatres (e.g., the Royal National Theatre and those in the world-renowned West End theatre district). Cultural institutions also abound throughout the country. Among the many libraries and museums of interest in Scotland, Wales, and Northern Ireland are the Royal Museum, the Museum of Scotland, and the Writers' Museum in Edinburgh, the Museum of Scottish Country Life in Glasgow, the National Museum of Wales in Cardiff, and the Ulster Museum in Belfast.

Sports and recreation
      The global spread of sports that had their origins in Britain was central to the development of modern sports in the 18th and 19th centuries and is one of the British Empire's important cultural legacies. The modern game of football (football (soccer)) (soccer) is generally accepted to have originated in England. The Football Association, the game's first organization, was founded in England in 1863, and the first football match played between England and Scotland—the oldest rivalry in the sport—was at Glasgow in 1872. English football fans can follow three national divisions and the celebrated premiership, which includes such legendary clubs as Manchester United, Arsenal, and Liverpool. Scotland has three national divisions as well and a premiership that features the Celtic and Rangers clubs of Glasgow; Wales and Northern Ireland also have national leagues. The Scottish and English national teams regularly appear in international competitions. In 1966 England hosted and won the World Cup; it was the third host nation to win the championship.

  rugby and cricket have also long enjoyed great popularity in Britain. According to tradition, rugby began in 1823 at Rugby School in England. In 1871 the Rugby Football Union was formed as the English governing body, and the rival Rugby Football League was founded in 1895. England, Scotland, and Wales all have club competitions in both union and league versions of the game. The three also send national teams to the Rugby Union Five Nations' Cup and World Cup tournaments. cricket's origins may date to 13th-century England, and county competition in England was formally organized in the 19th century. International matches, known as tests, began in 1877 with a match between England and Australia.

      Great Britain has attended every modern Olympic Games, beginning with the first competition in Athens, Greece, in 1896. Britain has hosted the Games twice in London, in 1908 and 1948. At the 1896 Games weight lifter Launceston Elliot was the first Briton to win a gold medal, and in 1908 figure skater Madge Cave Syers (Syers, Madge Cave) became the first female athlete to win a medal in the Winter Games. British athletes have won hundreds of medals over the years, making especially strong showings in athletics, tennis, rowing, yachting, and figure skating. Several British athletes have put forth memorable performances in track-and-field events, including sprinter Harold Abrahams (Abrahams, Harold) in the 1920s, middle-distance runners Sebastian Coe (Coe, Sebastian) and Steve Ovett (Ovett, Steve), and two-time decathlon gold medalist Daley Thompson (Thompson, Daley) in the 1970s and '80s. At the 2000 Summer Games rower Steve Redgrave accomplished the rare feat of earning gold medals in five consecutive Games.

      Britain is also home to several important international sports competitions. The British Open golf tournament is held annually, often at the world-renowned course at St. Andrews in Scotland. The All-England (Wimbledon (Wimbledon Championships)) Championships is one of the world's leading tennis competitions. Celebrated horse-racing events include the Royal Ascot, the Derby, and the Grand National steeplechase. The Henley Royal Regatta is the world's premiere rowing championship.

      Although the United Kingdom's climate often rewards staying indoors, the British are enthusiasts of outdoor leisure activities and are well served by an extensive network of hiking and bicycling paths, national parks, and other amenities. Especially popular are the Lake District, which preserves a scenic area commemorated in many works by English poets; the rugged Scottish highlands and Inner Hebrides islands; and the mountainous Welsh region of Snowdonia National Park, a magnet for climbers from around the world.

Media and publishing
      The communications media—press, publishing, broadcasting, and entertainment—reach audiences ranging from the millions for television, radio, and national newspapers to small minorities for local papers, specialist periodicals, or experimental theatre and film. In addition to their presence in print, most newspapers disseminate information through the Internet, to which access grew rapidly during the late 1990s. By the early 21st century about one-third of all households had personal computers with access to the Internet.

Newspapers
      In both sales and reputation the national papers published in London dominate. Within the national newspaper business in the United Kingdom, a distinction has developed between popular papers (often tabloids) with multimillion circulation and quality broadsheet papers with relatively small sales. Four “populars” account for about five-sixths of the total morning paper circulation. Generally, British newspapers are not formally tied to specific political parties. However, most display clear political sympathies that are usually determined by their proprietors. The tabloid Daily Mail and broadsheet Daily Telegraph (Daily Telegraph, The) have consistently supported the Conservative Party, while the tabloid Daily Mirror (Mirror, The) and broadsheet The Guardian (Guardian, The) (published in both London and Manchester) normally support Labour. The Times (Times, The) of London is one of the world's oldest newspapers. The United Kingdom's biggest-selling newspaper, The Sun (Baltimore Sun, The)—whose popularity since it was bought by Rupert Murdoch (Murdoch, Rupert)'s News International company in 1969 has stemmed from a diet of sensational personality-based news stories, show-business gossip, lively sports reporting, and pictures of scantily dressed young women—supported Labour in the early 1970s, switched to the Conservative Party under Margaret Thatcher in 1979, and switched back again to Labour in the late 1990s. In England there are also several regional dailies and weeklies and national weeklies—some targeting particular ethnic communities.

      The Welsh press includes several daily papers (e.g., the Western Mail and the South Wales Echo) as well as a number of weekly English-language, bilingual, or Welsh-language newspapers. Scotland has national daily newspapers based in Edinburgh and Glasgow with wide circulation (e.g., The Scotsman (Scotsman, The), the Daily Record, and The Herald) and a number of regional weeklies as well. Northern Ireland's daily papers (e.g., the Belfast Telegraph and the Irish News) are all published in Belfast. There is a large periodical press in the United Kingdom that ranges from such traditional publications as The Economist (Economist, The), The Spectator (Spectator, The), and New Statesman to more specialized and, often, more mercurial journals.

 The BBC (British Broadcasting Corporation), which had been established as an independent public corporation in 1927, held a monopoly of both radio and television broadcasting until 1954, when the Independent Television Authority (ITA) was established to provide the facilities for commercial television companies. The ITA's successor today is the Office of Communications (Ofcom). Created by the Communications Act of 2003, Ofcom is responsible for regulating all commercial radio and television services, including satellite and cable, as well as all wired, wireless, and broadband telecommunications. Commercial television broadcasters include Channel Four and the ITV network. Almost every household receives the terrestrial television channels; by the early 21st century about 1 in 4 households also could receive several dozen additional channels by satellite or cable. The satellite and cable market is dominated by BSkyB, partly owned by Murdoch's News International, which operates 11 channels of its own (including a 24-hour news channel and three sports channels) and also distributes channels for other companies via its satellite and digital networks.

      The BBC draws its revenue from license fees (on a scale fixed by the government) from persons owning television sets. It is governed by 12 individuals appointed by the monarch on the advice of the prime minister, with separate governors for Scotland, Wales, and Northern Ireland. Ofcom, with a governing board of 10 members, licenses and regulates commercial television companies, which earn revenue by selling advertising time and (in the case of some satellite and cable companies) subscription and pay-per-view channels. The BBC operates two terrestrial television channels, and Ofcom operates three. On its second television channel, the BBC tends to offer programs of above-average intellectual and cultural interest—competition that the Channel Four commercial channel meets with its own cultural programs. The BBC also provides a 24-hour news service and a channel devoted to live proceedings of Parliament to people able to receive satellite, cable, or digital television services. In addition, BBC Radio operates a comprehensive external service, broadcasting around the world in more than 40 languages, as well as a world service in English 24 hours a day.

      Both the BBC and terrestrial commercial channels supply educational programs for schools and for adult studies. The Open University, offering degree courses to people who lack formal academic qualifications, uses educational programs that are broadcast by the BBC; these programs are backed by correspondence courses.

      The BBC and Ofcom are public bodies that in the last resort can be controlled by the government, and Parliament can alter the terms of their authority. The government has the statutory power to veto a broadcast, but only rarely does it interfere with the day-to-day management of the BBC or Ofcom. There are more than 30 BBC local radio stations and more than 200 commercial local radio stations serving the United Kingdom.

      For a more detailed discussion of cultural life in England, Scotland, Wales, and Northern Ireland, see the cultural life sections of the articles England, Scotland, Wales, and Northern Ireland.

Peter Jon Kellner Ed.

History
      This discussion encompasses the history of England and Great Britain. Histories of the other three constituent parts of the United Kingdom can be found in Northern Ireland, Scotland, and Wales.

Ancient Britain
      Apart from a few short references in classical literature, knowledge of Britain before the Roman conquest (begun AD 43) is derived entirely from archaeological research. It is thus lacking in detail, for archaeology can rarely identify personalities, motives, or exact dates. All that is available is a picture of successive cultures and some knowledge of economic development. But even in Roman times Britain (England) lay on the periphery of the civilized world, and Roman historians, for the most part, provide for that period only a framework into which the results of archaeological research can be fitted. Britain truly emerged into the light of history only after the Saxon settlements in the 5th century AD.

      Until late in the Mesolithic period, Britain formed part of the continental landmass and was easily accessible to migrating hunters (hunting and gathering culture). The cutting of the land bridge, c. 6000–5000 BC, had important effects: migration (human migration) became more difficult and remained for long impossible to large numbers. Thus Britain developed insular characteristics, absorbing and adapting rather than fully participating in successive continental cultures. And within the island geography worked to a similar end; the fertile southeast was more receptive of influence from the adjacent continent than were the less-accessible hill areas of the west and north. Yet in certain periods the use of sea routes brought these too within the ambit of the continent.

      From the end of the Ice Age (c. 11,000 BC), there was a gradual amelioration of climate leading to the replacement of tundra by forest and of reindeer hunting by that of red deer and elk. Valuable insight on contemporary conditions was gained by the excavation of a lakeside settlement at Star Carr, North Yorkshire, which was occupied for about 20 successive winters by hunting people in the 8th millennium BC.

Pre-Roman Britain (primitive culture)

 A major change occurred c. 4000 BC with the introduction of agriculture (agriculture, origins of) by Neolithic (Neolithic Period) immigrants from the coasts of western and possibly northwestern Europe. They were pastoralists as well as tillers of the soil. Tools (tool) were commonly of flint won by mining, but axes of volcanic rock were also traded by prospectors exploiting distant outcrops. The dead were buried (burial) in communal graves of two main kinds: in the west, tombs were built out of stone and concealed under mounds of rubble; in the stoneless eastern areas the dead were buried under long barrows (mounds of earth), which normally contained timber structures. Other evidence of religion comes from enclosures (e.g., Windmill Hill, Wiltshire), which are now believed to have been centres of ritual and of seasonal tribal feasting. From them developed, late in the 3rd millennium, more clearly ceremonial ditch-enclosed earthworks known as henge monuments. Some, like Durrington Walls, Wiltshire, are of great size and enclose subsidiary timber circles. British Neolithic culture thus developed its own individuality.

      Early in the 2nd millennium or perhaps even earlier, from c. 2300 BC, changes were introduced by the Beaker folk from the Low Countries and the middle Rhine. These people buried their dead in individual graves, often with the drinking vessel that gives their culture its name. The earliest of them still used flint; later groups, however, brought a knowledge of metallurgy and were responsible for the exploitation of gold and copper deposits in Britain and Ireland. They may also have introduced an Indo-European language. Trade was dominated by the chieftains of Wessex, whose rich graves testify to their success. Commerce was far-flung, in one direction to Ireland and Cornwall and in the other to central Europe and the Baltic, whence amber was imported. Amber bead spacers from Wessex have been found in the shaft graves at Mycenae in Greece. It was, perhaps, this prosperity that enabled the Wessex chieftains to construct the remarkable monument of shaped sarsens (large sandstones) known as Stonehenge III. Originally a late Neolithic henge, Stonehenge was uniquely transformed in Beaker times with a circle of large bluestone monoliths transported from southwest Wales.

      Little is known in detail of the early and middle Bronze Age. Because of present ignorance of domestic sites, these periods are mainly defined by technological advances and changes in tools or weapons. In general, the southeast of Britain continued in close contact with the continent and the north and west with Ireland.

      From about 1200 BC there is clearer evidence for agriculture in the south; the farms consisted of circular huts in groups with small oblong fields and stock enclosures. This type of farm became standard in Britain down to and into the Roman period. From the 8th century onward, British communities developed close contacts with their continental European neighbours. Some of the earliest hill forts in Britain were constructed in this period (e.g., Beacon Hill, near Ivinghoe, Buckinghamshire; or Finavon, Angus); though formally belonging to the late Bronze Age, they usher in the succeeding period.

      Knowledge of iron, introduced in the 7th century, was a merely incidental fact: it does not signify a change of population. The centuries 700–400 BC saw continued development of contact with continental Europe. Yet the greater availability of iron facilitated land clearance and thus the growth of population. The earliest ironsmiths made daggers (dagger) of the Hallstatt type but of a distinctively British form. The settlements were also of a distinctively British type, with the traditional round house, the “Celtic” system of farming with its small fields, and storage pits for grain.

      The century following 600 BC saw the building of many large hill forts; these suggest the existence of powerful chieftains and the growth of strife as increasing population created pressures on the land. By 300 BC swords (sword) were making their appearance once more in place of daggers. Finally, beginning in the 3rd century, a British form of La Tène Celtic art was developed to decorate warlike equipment such as scabbards, shields, and helmets, and eventually also bronze mirrors and even domestic pottery. During the 2nd century the export of Cornish tin, noted before 300 by Pytheas of Massalia, a Greek explorer, continued; evidence of its destination is provided by the Paul (Cornwall) hoard of north Italian silver coins. In the 1st century BC this trade was in the hands of the Veneti of Brittany; their conquest (56 BC) by Julius Caesar, who destroyed their fleet, seems to have put an end to it.

      By 200 Britain had fully developed its insular “Celtic” character. The emergence, however, of the British tribes known to Roman historians was due to limited settlement by tribesmen from Belgic Gaul. coin finds suggest that southeast Britain was socially and economically bound to Belgic Gaul. The result was a distinctive culture in southeast Britain (especially in Kent and north of the Thames) which represented a later phase of the continental Celtic La Tène culture. Its people used coins and the potter's wheel and cremated their dead, and their better equipment enabled them to begin the exploitation of heavier soils for agriculture.

The conquest
 Julius Caesar (Caesar, Julius) conquered Gaul between 58 and 50 BC and invaded Britain in 55 or 54 BC, thereby bringing the island into close contact with the Roman world (ancient Rome). Caesar's description of Britain at the time of his invasions is the first coherent account extant. From about 20 BC it is possible to distinguish two principal powers: the Catuvellauni north of the Thames led by Tasciovanus, successor of Caesar's adversary Cassivellaunus, and, south of the river, the kingdom of the Atrebates ruled by Commius and his sons Tincommius, Eppillus, and Verica. Tasciovanus was succeeded in about AD 5 by his son Cunobelinus, who, during a long reign, established power all over the southeast, which he ruled from Camulodunum ( Colchester). Beyond these kingdoms lay the Iceni in what is now Norfolk, the Corieltavi in the Midlands, the Dobuni (Dobunni) in the area of Gloucestershire, and the Durotriges in that of Dorset, all of whom issued coins and probably had Belgic rulers. Behind these again lay further independent tribes—the Dumnonii of Devon, the Brigantes in the north, and the Silures and Ordovices in Wales. The Belgic and semi-Belgic tribes later formed the civilized nucleus of the Roman province and thus contributed greatly to Roman Britain.

      The client relationships that Caesar had established with certain British tribes were extended by Augustus. In particular, the Atrebatic kings welcomed Roman aid in their resistance to Catuvellaunian expansion. The decision of the emperor Claudius to conquer the island was the result partly of his personal ambition, partly of British aggression. Verica had been driven from his kingdom and appealed for help, and it may have been calculated that a hostile Catuvellaunian supremacy would endanger stability across the Channel. Under Aulus Plautius an army of four legions was assembled, together with a number of auxiliary regiments consisting of cavalry and infantry raised among warlike tribes subject to the empire. After delay caused by the troops' unwillingness to cross the ocean, which they then regarded as the boundary of the human world, a landing was made at Richborough, Kent, in AD 43. The British under Togodumnus and Caratacus, sons and successors of Cunobelinus, were taken by surprise and defeated. They retired to defend the Medway crossing near Rochester but were again defeated in a hard battle. The way to Camulodunum lay open, but Plautius halted at the Thames to await the arrival of the emperor, who took personal command of the closing stages of the campaign. In one short season the main military opposition had been crushed: Togodumnus was dead and Caratacus had fled to Wales. The rest of Britain was by no means united, for Belgic expansion had created tensions. Some tribes submitted, and subduing the rest remained the task for the year 44. For this purpose smaller expeditionary forces were formed consisting of single legions or parts of legions with their auxilia (subsidiary allied troops). The best-documented campaign is that of Legion II under its legate Vespasian starting from Chichester, where the Atrebatic kingdom was restored; the Isle of Wight was taken and the hill forts of Dorset reduced. Legion IX advanced into Lincolnshire, and Legion XIV probably across the Midlands toward Leicester. Colchester was the chief base, but the fortresses of individual legions at this stage have not yet been identified.

      By the year 47, when Plautius was succeeded as commanding officer by Ostorius Scapula, a frontier had been established from Exeter to the Humber, based on the road known as the Fosse Way; from this fact it appears that Claudius did not plan the annexation of the whole island but only of the arable southeast. The intransigence of the tribes of Wales, spurred on by Caratacus, however, caused Scapula to occupy the lowlands beyond the Fosse Way up to the River Severn and to move forward his forces into this area for the struggle with the Silures and Ordovices. The Roman forces were strengthened by the addition of Legion XX, released for this purpose by the foundation of a veteran settlement (colonia (colony)) at Camulodunum in the year 49. The colonia would form a strategic reserve as well as setting the Britons an example of Roman urban organization and life. A provincial centre for the worship of the emperor was also established. Scapula's right flank was secured by the treaty relationship that had been established with Cartimandua, queen of the Brigantes. Hers was the largest kingdom in Britain, occupying the whole area between Derbyshire and the Tyne; unfortunately it lacked stability, nor was it united behind its queen, who lost popularity when she surrendered the British resistance leader, Caratacus, to the Romans. Nevertheless, with occasional Roman military support, Cartimandua was maintained in power until 69 against the opposition led by her husband, Venutius, and this enabled Roman governors to concentrate on Wales.

      By AD 60 much had been achieved; Suetonius Paulinus, governor from 59 to 61, was invading the island of Anglesey (Anglesey, Isle of), the last stronghold of independence, when a serious setback occurred: this was the rebellion of Boudicca, queen of the Iceni. Under its king Prasutagus the tribe of the Iceni had enjoyed a position of alliance and independence; but on his death (60) the territory was forcibly annexed and outrages occurred. Boudicca was able to rally other tribes to her assistance; chief of these were the Trinovantes of Essex, who had many grievances against the settlers of Camulodunum for their arrogant seizure of lands. Roman forces were distant and scattered; and, before peace could be restored, the rebels had sacked Camulodunum, Verulamium (St. Albans), and London, the three chief centres of Romanized life in Britain. Paulinus acted harshly after his victory, but the procurator of the province, Julius Classicianus, with the revenues in mind and perhaps also because, as a Gaul by birth, he possessed a truer vision of provincial partnership with Rome, brought about his recall.

      In the first 20 years of occupation some progress had been made in spreading Roman civilization. Towns had been founded, the imperial cult had been established, and merchants were busily introducing the Britons to material benefits. It was not, however, until the Flavian period, AD 69–96, that real advances were made in this field. With the occupation of Wales by Julius Frontinus (Frontinus, Sextus Julius) (governor from 74 to 78) and the advance into northern Scotland by Gnaeus Julius Agricola (Agricola, Gnaeus Julius) (78–84), troops were removed from southern Britain, and self-governing civitates, administrative areas based for the most part on the indigenous tribes, took over local administration. This involved a large program of urbanization and also of education, which continued into the 2nd century; Tacitus, in his biography of Agricola, emphasizes the encouragement given to it. Roman conquest of Wales was complete by 78, but Agricola's invasion of Scotland failed because shortage of manpower prevented him from completing the occupation of the whole island. Moreover, when the British garrison was reduced (c. AD 90) by a legion because of continental needs, it became evident that a frontier would have to be maintained in the north. After several experiments, the Solway–Tyne isthmus was chosen, and there the emperor Hadrian built his stone wall (c. 122–130).

Condition of the province
      There was a marked contrast in attitude toward the Roman occupation between the lowland Britons and the inhabitants of Wales and the hill country of the north. The economy of the former was that of settled agriculture, and they were largely of Belgic stock; they soon accepted and appreciated the Roman way of life. The economy of the hill dwellers was pastoral, and the urban civilization of Rome threatened their freedom of life. Although resistance in Wales was stamped out by the end of the 1st century AD, Roman influences were nonetheless weak except in the Vale of Glamorgan. In the Pennines until the beginning of the 3rd century there were repeated rebellions, the more dangerous because of the threat of assistance from free Scotland.

Army and frontier
      After the emperor Domitian had reduced the garrison in about the year 90, three legions remained; their permanent bases were established at York, Chester, and Caerleon. The legions formed the foundation of Roman military power, but they were supplemented in garrison duty by numerous smaller auxiliary regiments both of cavalry and infantry, either 1,000 or 500 strong. These latter garrisoned the wall and were stationed in a network of other forts established for police work in Wales and northern England. With 15,000 legionaries and about 40,000 auxiliaries, the army of Britain was very powerful; its presence had economic as well as political results. Hadrian's Wall was the most impressive frontier work in the Roman Empire. Despite a period in the following two reigns when another frontier was laid out on the Glasgow–Edinburgh line—the Antonine Wall, built of turf—the wall of Hadrian came to be the permanent frontier of Roman Britain. The northern tribes only twice succeeded in passing it, and then at moments when the garrison was fighting elsewhere. In the late Roman period, when sea raiding became prevalent, the wall lost its preeminence as a defense for the province, but it was continuously held until the end of the 4th century. But although they withdrew to Hadrian's line not later than the year 180, the Romans never abandoned interest in southern Scotland. In the 2nd century their solution was military occupation. In the 3rd, after active campaigning (208–211) by the emperor Septimius Severus (Severus, Septimius) and his sons during which permanent bases were built on the east coast of Scotland, the solution adopted by the emperor Caracalla was regulation of relationship by treaties. These, perhaps supported by subsidies, were enforced by supervision of the whole Lowlands by patrols based on forts beyond the wall. During the 4th century more and more reliance was placed on friendly native states, and patrols were withdrawn.

      Britain was an imperial province. The governor represented the emperor, exercising supreme military as well as civil jurisdiction. As commander of three legions he was a senior general of consular rank. From the late 1st century he was assisted on the legal side by a legatus juridicus. The finances were in the hands of the provincial procurator, an independent official of equestrian status whose staff supervised imperial domains and the revenues of mines in addition to normal taxation. In the early 3rd century Britain was divided into two provinces in order to reduce the power of its governor to rebel, as Albinus had done in 196: Britannia Superior had its capital at London and a consular governor in control of two legions and a few auxiliaries; Britannia Inferior, with its capital at York, was under a praetorian governor with one legion but many more auxiliaries.

      Local administration was of varied character. First came the chartered towns. By the year 98 Lincoln and Gloucester had joined Camulodunum as coloniae, and by 237 York had become a fourth. Coloniae of Roman citizens enjoyed autonomy with a constitution based on that of republican Rome, and Roman citizens had various privileges before the law. It is likely that Verulamium was chartered as a Latin municipium (free town); in such a town the annual magistrates were rewarded with Roman citizenship. The remainder of the provincials ranked as peregrini (subjects). In military districts control was in the hands of fort prefects responsible to legionary commanders; but by the late 1st century local self-government, as already stated, was granted to civitates peregrinae, whose number tended to increase with time. These also had republican constitutions, being controlled by elected councils and annual magistrates and having responsibility for raising taxes and administering local justice. In the 1st century there were also client kingdoms whose rulers were allied to Rome; Cogidubnus, Verica's successor, who had his capital at Chichester, is the best known. But Rome regarded these as temporary expedients, and none outlasted the Flavian Period (69–96).

Roman society
      Pre-Roman Celtic (Celt) tribes had been ruled by kings and aristocracies; the Roman civitates (civitas) remained in the hands of the rich because of the heavy expense of office. But since trade and industry now yielded increasing profits and the old aristocracies no longer derived wealth from war but only from large estates, it is likely that new men rose to power. Roman citizenship was now an avenue of social advancement, and it could be obtained by 25 years' service in the auxiliary forces as well as (more rarely) by direct grants. Soldiers and traders from other parts of the empire significantly enhanced the cosmopolitan character of the population, as did the large number of legionaries, who were already citizens and many of whom must have settled locally. The population of Roman Britain at its peak amounted perhaps to about two million.

      Even before the conquest, according to the Greek geographer Strabo, Britain exported gold, silver, iron, hides, slaves, and hounds in addition to grain. A Roman gold mine is known in Wales, but its yield was not outstanding. Iron was worked in many places but only for local needs; silver, obtained from lead, was of more significance. But the basis of the economy was agriculture, and the conquest greatly stimulated production because of the requirements of the army. According to Tacitus, grain to feed the troops was levied as a tax; correspondingly more had to be grown before a profit could be made. The pastoralists in Wales and the north probably had to supply leather, which the Roman army needed in quantity for tents, boots, uniforms, and shields. A military tannery is known at Catterick. A profit could, nonetheless, be won from the land because of the increasing demand from the towns. At the same time the development of a system of large estates (villas) relieved the ancient Celtic farming system of the necessity of shouldering the whole burden. Small peasant farmers tended to till the lighter, less-productive, more easily worked soils. Villa estates were established on heavier, richer soils, sometimes on land recently won by forest clearance, itself a result of the enormous new demand for building timber from the army and the new towns and for fuel for domestic heating and for public baths. The villa owners had access to the precepts of classical farming manuals and also to the improved equipment made available by Roman technology. Their growing prosperity is vouched for by excavation: there are few villas that did not increase in size and luxury as corridors and wings were added or mosaics and bath blocks provided. At least by the 3rd century some landowners were finding great profit in wool; Diocletian's price edict (AD 301) shows that at least two British cloth products had won an empire-wide reputation. Archaeological evidence indicates that the Cotswold district was one of the centres of this industry.

      Trade (international trade) in imported luxury goods ranging from wine to tableware and bronze trinkets vastly increased as traders swarmed in behind the army to exploit new markets. The profits of developing industries went similarly at first to foreign capitalists. This is clearly seen in the exploitation of silver-lead ore and even in the pottery industry. The Mendip lead field was being worked under military control as early as the year 49, but under Nero (54–68) both there and in Flintshire, and not much later also in the Derbyshire lead field, freedmen—the representatives of Roman capital—were at work. By Vespasian's reign (69–79) organized companies (societates) of prospectors are attested. Roman citizens, who must in the context be freedmen, are also found organizing the pottery industry in the late 1st century. Large profits were made by continental businessmen in the first two centuries not only from such sources but also by the import on a vast scale of high-class pottery from Gaul and the Rhineland and on a lesser scale of glass vessels, luxury metalware, and Spanish oil and wine. A large market existed among the military, and the Britons themselves provided a second. Eventually this adverse trade balance was rectified by the gradual capture of the market by British products. Much of the exceptional prosperity of 4th-century Britain must have been due to its success in retaining available profits at home.

      A final important point is the role of the Roman army in the economic development of the frontier regions. The presence as consumers of large forces in northern Britain created a revolution in previous patterns of trade and civilized settlement. Cereal production was encouraged in regions where it had been rare, and large settlements grew up in which many of the inhabitants must have been retired soldiers with an interest in the land as well as in trade and industry.

Towns
      Belgic Britain had large centres of population but not towns in the Roman sense of having not merely streets and public buildings but also the amenities and local autonomy of a city. In Britain these had therefore to be provided if Roman civilization and normal methods of provincial administration were to be introduced. Thus a policy of urbanization existed in which the legions, as the nearest convenient source of architects and craftsmen, played an organizing role. The earlier towns consisted of half-timbered buildings; before AD 100 only public buildings seem to have been of stone. The administrative capitals had regular street grids, a forum with basilica (public hall), public baths, and temples; a few had theatres and amphitheatres, too. With few exceptions they were undefended. In the 3rd century, town walls were provided, not so much as a precaution in unsettled times but as a means of keeping operational the earthwork defenses already provided during a crisis at the end of the 2nd century. These towns grew in size to about 100–130 acres with populations of about 5,000; a few were twice this size. The majority of towns in Roman Britain seem to have developed out of traders' settlements in the vicinity of early garrison-forts: those that were not selected as administrative centres remained dependent for their existence on economic factors, serving either as centres of trade or manufacture or else as markets for the agricultural peasantry. They varied considerably in size. In the north, where garrisons were permanently established, quite large trading settlements grew up in their vicinity, and at least some of these would rank as towns.

Villas (villa)
      Apart from the exceptional establishment at Fishbourne, in West Sussex, whose Italian style and luxurious fittings show that it was the palace of King Cogidubnus, the houses of Romano-British villas had simple beginnings and were of a provincial type. A few owners were prosperous enough in the 2nd century to afford mosaics; but the great period of villa prosperity lay in the 4th century, when many villas grew to impressive size. Their importance was economic and has already been described. Much remains to be learned from full excavation of their subsidiary work buildings. Larger questions of tenure and organization are probably insoluble in the absence of documentary evidence, for it is dangerous to draw analogies from classical sources since conditions in Celtic Britain were very different from those of the Mediterranean world.

Religion (Roman religion) and culture
      A great variety of religious cults were to be found. In addition to numerous Celtic deities of local or wider significance, the gods of the classical pantheon were introduced and were often identified with their Celtic counterparts. In official circles the worship of the state gods of Rome and of the imperial cult was duly observed. In addition merchants and soldiers introduced oriental cults, among them Christianity. The latter, however, made little headway until the late 4th century, though the frescoes at Lullingstone in Kent and the mosaics at Hinton St. Mary in Dorset attest its presence among villa owners. Although classical temples are sometimes found in towns, the normal temple was of the Romano-Celtic type consisting of a small square shrine and surrounding portico; temples of this type are found in town and country alike.

      Romanization was strongest in the towns and among the upper classes, as would be expected; there is evidence that in the countryside Celtic continued to be spoken, though it was not written. Many people were bilingual: graffiti prove that even artisans wrote Latin. Evidence of the classical education of the villa owners is provided by their mosaics (mosaic), which prove an acquaintance with classical mythology and even with the Aeneid of Virgil. Sculpture and wall painting were both novelties in Roman Britain. Statues or busts in bronze or marble were imported from Gaulish or Mediterranean workshops, but British sculptors soon learned their trade and at their best produced attractive works in a provincial idiom, often for votive purposes. Many cruder works were also executed whose interest lies in the proof they afford that the conventions of the classical world had penetrated even to the lower classes. Mosaic floors, found in towns and villas, were at first, as at Fishbourne, laid by imported craftsmen. But there is evidence that by the middle of the 2nd century a local firm was at work at Colchester and Verulamium, and in the 4th century a number of local mosaic workshops can be recognized by their styles. One of the most skilled of these was based in Cirencester.

      Roman civilization thus took root in Britain; its growth was more obvious in urban circles than among the peasants and weakest in the resistant highland zone. It was a provincial version of Roman culture, but one with recognizably British traits.

The decline of Roman rule
      The reforms of Diocletian ended the chaos of the 3rd century and ushered in the late imperial period. Britain, however, for a short time became a separate empire through the rebellion (286/287) of Carausius (Carausius, Marcus Aurelius Mausaeus). This man had been in command against the Saxon pirates in the Channel and by his naval power was able to maintain his independence. His main achievement was to complete the new system of Saxon Shore forts around the southeastern coasts. At first he sought recognition as coemperor, but this was refused. In 293 the fall of Boulogne to Roman forces led to his murder and the accession of Allectus, who, however, fell in his turn when Constantius I invaded Britain in 296. Allectus had withdrawn troops from the north to oppose the landing, and Hadrian's Wall seems to have been attacked, for Constantius had to restore the frontier as well as reform the administration. He divided Britain into four provinces, and in the same period the civil power was separated from the military. Late Roman sources show three separate commands respectively under the dux Britanniarum (commander of the Britains), the comes litoris Saxonici (count of the Saxon Shore), and the comes Britanniarum, though the dates of their establishment are unknown and may not have been identical.

      The 4th century was a period of great prosperity in towns and countryside alike. Britain had escaped the “barbarian” invasions of the 3rd century and may have seemed a safe refuge for wealthy continentals. Its weakness lay in the fact that its defense was ultimately controlled by distant rather than local rulers. The garrison was perhaps weakened by withdrawals for the civil war of Magnentius (350–351); at any rate in 367 a military disaster occurred due to concerted seaborne attacks from the Picts (Pict) of Scotland (Scot) and the Scots of Ireland. But, though the frontier and forts behind it suffered severely, there is little trace of damage to towns or villas. Count Theodosius (Theodosius I) in 369 restored order and strengthened the defenses of the towns with external towers designed to mount artillery. Prosperity continued, but the withdrawals of troops by Magnus Maximus in 383 and again at the end of the century by Stilicho weakened security. Thus, when Constantine III (Constantine), who was declared emperor by the army in Britain in 407, took further troops to Gaul, the forces remaining in the island were insufficient to provide protection against increasing Pictish and Saxon raids. The Britons appealed to the legitimate emperor, Honorius, who was unable to send assistance but authorized the cities to provide for their own defense (410). This marks the end of Roman Britain, for the central government never reestablished control, but for a generation there was little other outward change.

      Power fell gradually into the hands of tyrants. Chief of these was Vortigern (c. 425), who, unlike earlier usurpers, made no attempt to become Roman emperor but was content with power in Britain. Independence was producing separate interests. By this date Christianity had made considerable headway in the island, but the leaders followed the heretical teaching of Pelagius, himself a Briton, who had emphasized the importance of the human will over divine grace in the achievement of salvation. It has been held that the self-reliance shown in the maintenance of national independence was inspired by this philosophy. Yet there was also a powerful Roman Catholic party anxious to reforge the links with Rome, in support of whom St. Germanus (Germanus I, Saint) of Auxerre visited Britain in 429. It may have been partly to thwart the plans of this party that Vortigern made the mistake (c. 430; the date given by the Anglo-Saxon Benedictine scholar Bede (Bede the Venerable, Saint) [d. 735] is between 446 and 454) of inviting Saxons to settle and garrison strategic areas of the east coast, though he certainly also had in mind the need to ward off seaborne raids by Picts, which at this time were troublesome. Planned settlement of this sort is the best explanation for the earliest Saxon settlements found around the mouths of the east-coast estuaries and also in the central southeast region around Oxford. For a time the system worked successfully, but, when in 442 these Saxon foederati (allies) rebelled and called in others of their race to help them, it was found that they had been given a stranglehold on Britain. A long period of warfare and chaos was inaugurated, which was economically disastrous. It was probably this period that saw the disintegration of the majority of the villa estates; with the breakdown of markets and the escape of slaves, villas ceased to be viable and must have gradually fallen into ruin, though the land itself did not cease to be cultivated. A few villas met a violent end. The towns, under the protection of their strong defenses, at first provided refuge at any rate for the rich who could leave their lands; but by degrees decay set in as trade declined and finally even the supply of food was threatened. In about 446 the British made a vain appeal for help to the Roman general Aetius (Aetius, Flavius) (the “Groans of the Britons” mentioned in the De excidio et conquestu Britanniae of the British writer Gildas). For several decades they suffered reverses; many emigrated to Brittany. In the second half of the 5th century Ambrosius Aurelianus and the shadowy figure of Arthur began to turn the tide by the use of cavalry against the ill-armed Saxon infantry. A great victory was won at Mons Badonicus (a site not identifiable) toward 500: now it was Saxons who emigrated, and the British lived in peace all through the first half of the 6th century, as Gildas records. But in the second half the situation slowly worsened.

Sheppard Sunderland Frere

Anglo-Saxon England
The invaders and their early settlements
 Although Germanic (Germanic peoples) foederati, allies of Roman and post-Roman authorities, had settled in England in the 4th century AD, tribal migrations into Britain began about the middle of the 5th century. The first arrivals, according to the 6th-century British writer Gildas, were invited by a British king to defend his kingdom against the Picts and Scots. A tradition reached Bede that the first mercenaries were from three tribes—the Angles, Saxons (Saxon), and Jutes (Jute)—which he locates on the Cimbric Peninsula, and by implication the coastlands of northwestern Germany. Archaeology, however, suggests a more complex picture showing many tribal elements, Frankish leadership in the first waves, and Frisian contacts. Revolt by these mercenaries against their British employers in the southeast of England led to large-scale Germanic settlements near the coasts and along the river valleys. Their advance was halted for a generation by native resistance, which tradition associates with the names of Ambrosius Aurelianus and Arthur, culminating in victory about 500 by the Britons (Briton) at the Battle of Mons Badonicus at an unidentified location. But a new Germanic drive began about 550, and before the century had ended, the Britons had been driven west to the borders of Dumnonia (Cornwall and Devon) and to the Welsh Marches, while invaders were advancing west of the Pennines and northward into Lothian.

      The fate of the native British population is difficult to determine. The case against its large-scale survival rests largely on linguistic evidence, such as the scarcity of Romano-British words continuing into English and the use of English even by Northumbrian peasants. The case against wholesale extermination also rests on linguistic evidence, such as place-names and personal names, as well as on evidence provided by urban and rural archaeology. Certainly few Britons in England were above servile condition. By the end of the 7th century people regarded themselves as belonging to “the nation of the English,” though divided into several kingdoms. This sense of unity was strengthened during long periods when all kingdoms south of the Humber acknowledged the overlordship (called by Bede an imperium) of a single ruler, known as a bretwalda, a word first recorded in the 9th century.

      The first such overlord was Aelle of Sussex, in the late 5th century; the second was Ceawlin of Wessex, who died in 593. The third overlord, Aethelberht (Aethelberht I) of Kent, held this power in 597 when the monk Augustine led a mission from Rome to Kent; Kent was the first English kingdom to be converted to Christianity. The Christian church provided another unifying influence, overriding political divisions, although it was not until 669 that the church in England acknowledged a single head.

The social system
      Aethelberht set down in writing a code of laws (Anglo-Saxon law); although it reflects Christian influence, the system underlying the laws was already old, brought over from the Continent in its main lines. The strongest social bond of this system was that of kinship; (kinship) every freeman depended on his kindred for protection, and the social classes (social class) were distinguished by the amount of their wergild (the sum that the kindred could accept in place of vengeance if a man were killed). The normal freeman was the ceorl, an independent peasant landowner; below him in Kent were persons with lower wergilds, who were either freedmen or, as were similar persons in Wessex, members of a subject population; above the ceorls were the nobles (aristocracy)—some perhaps noble by birth but more often men who had risen by service as companions of the king—with a wergild three times that of a ceorl in Kent, six times that of a ceorl elsewhere. The tie that bound a man to his lord was as strong as that of the kindred. Both nobles and ceorls might possess slaves, who had no wergild and were regarded as chattels.

      Early traditions, embodied in king lists, imply that all Anglo-Saxon kingdoms except Sussex were established by rulers deemed to have descended from the gods. No invading chieftain is described by the Anglo-Saxon Chronicle as “ king”—although the title was soon used—and chieftainship, as before the conquest, remained central to Germanic tribal society. The sacral character of kingship later increased and changed in meaning as the Christian ruler was set apart by coronation and anointment. In the established English kingdoms the king had special rights—compensations for offenses committed in his presence or his home or against anyone under his protection; rights to hospitality, which later became a food rent charged on all land; and rights to various services. He rewarded his followers with grants of land, probably at first for their lifetime only, but the need to provide permanent endowment for the church brought into being a type of land that was free from most royal dues and that did not revert to the king. From the latter part of the 7th century such land (land reform) was sometimes conferred by charter. It became common to make similar grants by charter to laymen, with power to bequeath; but three services—the building of forts and bridges and service in the army—were almost invariably excepted from the immunity. The king received fines for various crimes; but a man's guilt was established in an assembly of freemen, where the accused tried to establish his innocence by his oath—supported by oath helpers—and, if this failed, by ordeal. On matters of importance the king normally consulted his witan (wise men).

      There were local variations in the law, and over a period of time the law developed to meet changed circumstances. As kingdoms grew larger, for example, an official called an ealderman was needed to administer part of the area, and later a sheriff was needed to look after the royal rights in each shire. The acceptance of Christianity made it necessary to fit the clergy into the scale of compensations and assign a value to their oaths and to fix penalties for offenses such as sacrilege, heathen practices, and breaches of the marriage law. But the basic principles were little changed.

      The Anglo-Saxons left England a land of villages, but the continuity of village development is uncertain. In the 7th–8th centuries, in what is called the “Middle Saxon shuffle,” many early villages were abandoned, and others, from which later medieval villages descended, were founded. The oldest villages are not, as previously thought, those with names ending in -ingas but rather those ending in -ham and -ingham. English trading towns, whose names often end in -wich, from the Latin vicus (“village”), developed in the Middle Saxon period, and other urban settlements grew out of and date from the Alfredian and later defenses against Viking attack.

The conversion to Christianity
      Place-names containing the names of gods or other heathen elements are plentiful enough to prove the vitality of heathenism and to account for the slow progress of conversion in some areas. In Kent, the first kingdom to accept Christianity, King Wihtred's (Wihtred) laws in 695 contained clauses against heathen worship. The conversion renewed relations with Rome and the Continent; but the full benefit of this was delayed because much of England was converted by the Celtic Church, which had lost contact with Rome.

      Augustine's (Augustine of Canterbury, Saint) mission in 597 converted Kent; but it had only temporary success in Essex, which reverted to heathenism in 616. A mission sent under Bishop Paulinus (Paulinus, Saint) from Kent to Northumbria in 627 converted King Edwin and many of his subjects in Northumbria and Lindsey. It received a setback in 632 when Edwin was killed and Paulinus withdrew to Kent. About 630 Archbishop Honorius of Canterbury sent a Burgundian, Felix, to convert East Anglia, and the East Anglian church thenceforth remained faithful to Canterbury. Soon after, the West Saxons were converted by Birinus, who came from Rome. Meanwhile, King Oswald (Oswald, Saint) began to restore Christianity in Northumbria, bringing Celtic missionaries from Iona. And it was the Celtic church that began in 653 to spread the faith among the Middle Angles, the Mercians, and the peoples of the Severn valley; it also won back Essex.

      At first there was little friction between the Roman and Celtic missions. Oswald of Northumbria joined with Cynegils of Wessex in giving Dorchester-on-Thames as seat for Birinus' bishopric; the Irishmen Maildubh in Wessex and Fursey in East Anglia worked in areas converted by the Roman church; and James the Deacon continued Paulinus' work in Northumbria. Later, however, differences in usage—especially in the calculation of the date of Easter—caused controversy, which was settled in favour of the Roman party at the Synod of Whitby (Whitby, Synod of) in 664. The adherents of Celtic usage either conformed or withdrew, and advocates of Roman practice became active in the north, the Midlands, and Essex. Theodore of Tarsus (Theodore of Canterbury, Saint) (arrived 669), the first Roman archbishop to be acknowledged all over England, was active in establishing a proper diocesan system, whereas in the Celtic church bishops tended to move freely without fixed sees and settled boundaries; he held the first synod of the English church at Hertford in 672, and this forbade a bishop to interfere in another's diocese or any priest to move into another diocese without his bishop's permission. Sussex and the Isle of Wight (Wight, Isle of)—the last outposts of heathenism—were converted by Bishop Wilfrid (Wilfrid, Saint) and his followers from 681 to 687 and thenceforth followed Roman usages.

      The Anglo-Saxons attributed their conversion to Pope Gregory I (Gregory I, Saint), “the Apostle of the English,” who had sent Augustine. This may seem less than fair to the Celtic mission. The Celtic church made a great impression by its asceticism, fervour, and simplicity, and it had a lasting influence on scholarship. Yet the period of Celtic dominance was only 30 years. The decision at Whitby made possible a form of organization better fitted for permanent needs than the looser system of the Celtic church.

The golden age of Bede
      Within a century of Augustine's landing, England was in the forefront of scholarship (classical scholarship). This high standard arose from a combination of influences: that from Ireland, which had escaped the decay caused elsewhere by the barbarian invasions, and that from the Mediterranean, which reached England mainly through Archbishop Theodore and his companion, the abbot Adrian. Under Theodore and Adrian, Canterbury became a famous school, and men trained there took their learning to other parts of England. One of these men was Aldhelm, who had been a pupil of Maildubh (the Irish founder of Malmesbury); under Aldhelm, Malmesbury became an influential centre of learning. Aldhelm's own works, in Latin verse and prose, reveal a familiarity with many Latin authors; his writings became popular among admirers of the ornate and artificial style he had learned from his Celtic teachers. Before long a liberal education could be had at such other West Saxon monasteries as Nursling and Wimborne.

      The finest centre of scholarship was Northumbria. There Celtic and classical influences met: missionaries brought books from Ireland, and many Englishmen went to Ireland to study. Other Northumbrians went abroad, especially to Rome; among them was Benedict Biscop. Benedict (Benedict Biscop, Saint) returned from Rome with Theodore (668–669), spent some time in Canterbury, and then brought the learning acquired there to Northumbria. He founded the monasteries at Wearmouth (674) and Jarrow (682), where Bede spent his life. Benedict and Ceolfrith, abbot of Jarrow, brought books from the Continent and assembled the fine library that was available to Bede.

      Bede (c. 672–735) is remembered as a great historian whose work never lost its value; but he was also a theologian regarded throughout the Middle Ages as second only to the Church Fathers. Nonetheless, even though he was outstanding, he did not work in isolation. Other Northumbrian houses—Lindisfarne, Whitby, and Ripon—produced saints' lives, and Bede was in touch with many learned men, not only in Northumbria; there are also signs of scholarly activity in London and in East Anglia.

      Moreover, in this period religious poetry was composed in the diction and technique of the older secular poetry in the vernacular. Beowulf, considered the greatest Old English poem, is sometimes assigned to this age, but the dating is uncertain. Art flourished, with a combination of native elements and influences from Ireland and the Mediterranean. The Hiberno-Saxon (Hiberno-Saxon style) (or Anglo-Irish) style of manuscript illumination was evolved, its greatest example—the Lindisfarne Gospels—also showing classical influence. Masons from Gaul and Rome built stone churches. In Northumbria stone monuments with figure sculpture and vine-scroll patterns were set up. Churches were equipped with precious objects—some from abroad, some of native manufacture (even in heathen times the English had been skilled metalworkers). Manuscripts and works of art were taken abroad to churches founded by the English missions, and these churches, in turn, became centres of production. The great Sutton Hoo ship burial, discovered in 1939 at the burial site of the East Anglian royal house and perhaps the cenotaph of the bretwalda Raedwald (d. c. 625), is further evidence of influences from abroad, revealing important Anglo-Saxon contacts with Scandinavia, Byzantium, France, and the Mediterranean.

The heptarchy

The supremacy of Northumbria and the rise of Mercia
 When Northumbria became eminent in scholarship, its age of political importance was over. This political dominance had begun when Aethelfrith, ruling over the united Northumbrian kingdoms of Bernicia and Deira, defeated the Dalriadic Scots at Degsastan in 603 and the Welsh at Chester in 613–616. Aethelfrith was himself defeated and killed in 616 by Edwin, the exiled heir to Deira, with the help of Raedwald of East Anglia, then overlord of the southern peoples.

      Edwin continued to defeat the Welsh and became the acknowledged overlord of all England except Kent: he annexed the British kingdom of Elmet, invaded North Wales, and captured Anglesey and the Isle of Man. But he fell at Hatfield in 632 before the forces of Cadwallon, king of Gwynedd, and of Penda, a Mercian chieftain. A year later Aethelfrith's son Oswald (Oswald, Saint) destroyed Cadwallon and restored the kingdom of Northumbria, and he became overlord of all the lands south of the River Humber. But Mercia was becoming a serious rival; originally a small kingdom in the northwest Midlands, it had absorbed the peoples of the Severn valley, including the Hwicce, a West Saxon people annexed in 628 after a victory by Penda at Cirencester.

      Penda threw off Northumbrian control when he defeated and killed Oswald in 641. He drove out Cenwalh of Wessex, who took refuge in East Anglia from 645 to 648. Penda's control of Middle Anglia, where he made his son subking in 653, brought him to the East Anglian frontier; he invaded this kingdom three times, killing three of its kings. He was able to draw an army from a wide area, including East Anglia, when he invaded Northumbria in 654; nevertheless, he was defeated and killed by Oswiu, Oswald's successor.

      For a short time Oswiu was overlord of southern England, but a Mercian revolt put Penda's son Wulfhere on the throne in 657, and he greatly extended Mercian power to the southeast and south. Wulfhere became overlord of Essex, with London, and of Surrey. He also held the West Saxon lands along the middle Thames and blocked any eastward advance of the West Saxons by capturing the Isle of Wight and the mainland opposite and giving them to his godson, Aethelwalh of Sussex. Yet Wulfhere's reign ended in disaster; the Kentish monk Aedde, in his Life of St. Wilfrid, said Wulfhere roused all the southern peoples in an attack on Ecgfrith of Northumbria in 674 but was defeated and died soon after.

      Ecgfrith took possession of Lindsey, a section of modern Lincolnshire, but he lost it to Aethelred of Mercia after the Battle of the Trent in 678. Thenceforward Northumbria was no threat to Mercian dominance because it was occupied in fighting the Picts in the north. After Ecgfrith was slain by them in 685, his successors took little part in external affairs.

      Yet Mercian power was threatened from the south. Caedwalla had added Surrey, Sussex, and the Isle of Wight to the West Saxon kingdom and thus came near to uniting all lands south of the Thames into a single kingdom that might have held its own against Mercia. But this kingdom was short-lived. Kent became free from foreign interference in 694, two years after the accession of Wihtred, who reestablished the Kentish royal line. Sussex appears again as an independent kingdom; and Caedwalla's successor, Ine, was mainly occupied in extending his territory to the west. After Wihtred's death in 725 and Ine's abdication in 726, both Kent and Wessex had internal troubles and could not resist the Mercian kings Aethelbald and Offa.

The great age of Mercia
      Aethelbald succeeded in 716 to the rule of all the Midlands and to the control of Essex and London. By 731 all provinces south of the Humber were subject to him. Some of his charters use a regnal style suited to this dignity, such as “king not only of the Mercians but also of all provinces . . . of the South English” and rex Britanniae (a Latinization of bretwalda). Aethelbald held this position, with only occasional warfare, until his death, in 757—far longer than any previous holder of the imperium. St. Boniface (Boniface, Saint) praised the good order he maintained in his kingdom, though complaining of his immoral life and his encroachment on church privileges. Aethelbald was murdered by his own household.

      Offa did not at once attain the powerful position that later caused Charles the Great ( Charlemagne) to treat with him on equal terms; Cynewulf of Wessex recovered West Saxon lands by the middle Thames and did not submit until 779. Offa was overlord in Kent by 764, in Sussex and the district of Hastings by 771; he apparently lost his authority in Kent after the Battle of Otford in 776 but recovered it in 785. His use of an East Anglian mint shows him supreme there. He claimed greater powers than earlier overlords—subkings among the Hwicce and in Sussex dropped their royal titles and appeared as ealdermen, and he referred to a Kentish king as his thegn. The English scholar Alcuin spoke of the blood shed by Offa to secure the succession of his son, and fugitives from his kingdom sought asylum with Charles the Great. Charles treated Offa as if he were sole king of England, at least of the region south of the Humber; the only other king he acknowledged was the Northumbrian ruler. Offa seemed not to have claimed authority beyond the Humber but instead allied himself with King Aethelred of Northumbria by giving him his daughter in 794.

      Offa appears on the continental scene more than had any previous English king. Charles wrote to him as “his dearest brother” and wished for a marriage between his own son Charles and Offa's daughter. Offa's refusal, unless Charles let one of his daughters marry Offa's son Ecgfrith, led to a three-year quarrel in which Charles closed his ports to traders from England. This and a letter about regulating trade, written when the quarrel was over, provide evidence for the importance of cross-Channel trade, which was one reason for Offa's reform of the coinage (coin).

      Imitating the action of Pippin III in 755, Offa took responsibility for the coinage, and thenceforward the king's name normally appeared on coins. But the excellent quality in design and workmanship of his coins, especially those with his portrait, served an additional purpose: they had a propaganda value in bringing home the preeminence of the Mercian king not only to his English subjects but also to people on the Continent. Pope Adrian I regarded Offa with awe and respect.

      Because Offa's (Offa's Dyke) laws are lost, little is known of his internal government, though Alcuin praises it. Offa was able to draw on immense resources to build a dike to demarcate his frontier against Wales. In the greatness of its conception and the skill of its construction, the dike forms a fitting memorial to him. It probably belongs to his later years, and it secured Mercia from sudden incursions.

The church and scholarship in Offa's time
      Northumbria was still preeminent in scholarship, and the fame of the school of York, founded by Bede's pupil Archbishop Egbert, attracted students from the Continent and from Ireland. Eventually it supplied Alcuin to take charge of the revival of learning inaugurated by Charles the Great; Alcuin's writings exercised great influence on theological, biblical, and liturgical studies, and his pupils carried on his work well into the 9th century.

      Learning was not confined to Northumbria; one Latin work was produced in East Anglia, and recent attribution of manuscripts to Lichfield suggests that Mercian scholarship has been underestimated. Offa himself took an interest in education, and men from all areas corresponded with the missionaries. The Mercian schools that supplied Alfred with scholars in the 9th century may go back to this period. Vernacular poetry was composed, perhaps including Beowulf and the poems of Cynewulf.

      A steady advance was made in the creation of parishes, and monasticism flourished and received support from Offa. A great event in ecclesiastical history was the arrival of a papal legation in 787, the first since the conversion. It drew up reforming statutes, which were accepted by the two ecclesiastical provinces, meeting separately under the presidency of Offa and Aelfwald of Northumbria. Offa used the visit to secure the consecration of his son—the first recorded coronation ceremony in England—and also to have Mercia made into a metropolitan province with its see at Lichfield. The latter seemed desirable partly because he disliked the Kentish archbishop of Canterbury, Jaenberht, but also because it would seem fitting to him that the leading kingdom should be free from external interference in ecclesiastical affairs. This move was unpopular with the church, and in 802, when relations with Canterbury had improved, the archbishopric of Lichfield was abolished.

The decline of Mercia and the rise of Wessex
      Offa died in 796, and his son died a few weeks later. Cenwulf, their successor, suppressed revolts in Kent and East Anglia, but he never attained Offa's position. Cenwulf allowed Charles to intervene in Northumbria in 808 and restore Eardwulf (who had been driven from his kingdom) to the throne—a unique incident in Anglo-Saxon history. Mercian influence in Wessex was ended when Egbert became king there in 802, though there is no recorded warfare between the kingdoms for many years, during which Egbert conquered Cornwall and Cenwulf fought in Wales. But in 825 Egbert defeated Beornwulf of Mercia and then sent an army into Kent, with the result that he was accepted as king of Kent, Surrey, Sussex, and Essex. In that same year the East Angles threw off the Mercian yoke, killing Beornwulf. In 829 Egbert became ruler of Mercia and all regions south of the Humber, which caused the chronicler to add his name to Bede's list of kings who held the imperium, calling him bretwalda. The Northumbrians accepted Egbert without fighting. Yet he held this proud position only one year; then Wiglaf recovered the Mercian throne and ruled without subjection to Egbert.

      By this time Danish Viking raids were a grave menace, and Aethelwulf, who succeeded his father Egbert in 839, had the wisdom to see that Mercia and Wessex must combine against the Vikings. Friendly relations between them were established by marriage alliances and by a peaceful settlement of boundaries; this paved the way for the acceptance in 886 of Alfred, king of Wessex, as lord of all the English who had not fallen under Danish rule.

The period of the Scandinavian (Scandinavia) invasions

Viking invasions and settlements
 Small scattered Viking raids began in the last years of the 8th century; in the 9th century large-scale plundering incursions were made in Britain and in the Frankish empire as well. Though Egbert defeated a large Viking force in 838 that had combined with the Britons of Cornwall and Aethelwulf won a great victory in 851 over a Viking army that had stormed Canterbury and London and put the Mercian king to flight, it was difficult to deal with an enemy that could attack anywhere on a long and undefended coastline. Destructive raids are recorded for Northumbria, East Anglia, Kent, and Wessex.

      A large Danish army came to East Anglia in the autumn of 865, apparently intent on conquest. By 871, when it first attacked Wessex, it had already captured York, been bought off by Mercia, and had taken possession of East Anglia. Many battles were fought in Wessex, including one that led to a Danish defeat at Ashdown in 871. Alfred the Great, a son of Aethelwulf, succeeded to the throne in the course of the year and made peace; this gave him a respite until 876. Meanwhile the Danes drove out Burgred of Mercia, putting a puppet king in his place, and one of their divisions made a permanent settlement in Northumbria.

      Alfred was able to force the Danes to leave Wessex in 877, and they settled northeastern Mercia; but a Viking attack in the winter of 878 came near to conquering Wessex. That it did not succeed is to be attributed to Alfred's tenacity. He retired to the Somerset marshes, and in the spring he secretly assembled an army that routed the Danes at Edington. Their king, Guthrum, accepted Christianity and took his forces to East Anglia, where they settled.

      The importance of Alfred's victory cannot be exaggerated. It prevented the Danes from becoming masters of the whole of England. Wessex was never again in danger of falling under Danish control, and in the next century the Danish areas were reconquered from Wessex. Alfred's capture of London in 886 and the resultant acceptance of him by all the English outside the Danish areas was a preliminary to this reconquest. That Wessex stood when the other kingdoms had fallen must be put down to Alfred's courage and wisdom, to his defensive measures in reorganizing his army, to his building fortresses and ships, and to his diplomacy, which made the Welsh kings his allies. Renewed attacks by Viking hosts in 892–896, supported by the Danes resident in England, caused widespread damage but had no lasting success.

Alfred's government and his revival of learning
      Good internal government contributed to Alfred's successful resistance to the Danes. He reorganized his finances and the services due from thegns, issued an important code of laws, and scrutinized carefully the exercise of justice. Alfred saw the Viking invasions as a punishment from God, especially because of a neglect of learning, without which men could not know and follow the will of God. He deplored the decay of Latin and enjoined its study by those destined for the church, but he also wished all young freemen of adequate means to learn to read English, and he aimed at supplying men with “the books most necessary for all men to know,” in their own language.

      Alfred had acquired an education despite great difficulties, and he translated some books himself with the help of scholars from Mercia, the Continent, and Wales. Among them they made available works of Bede (Bede the Venerable, Saint) and Orosius, Gregory and Augustine, and the De consolatione philosophiae of Boethius. Compilation of the Anglo-Saxon Chronicle began in his reign. The effects of Alfred's educational reforms can be glimpsed in succeeding reigns, and his works continued to be copied. Only in his attempt to revive monasticism did he achieve little, for the monastic idea had lost its appeal—in England as well as on the Continent—during the Viking Age.

The achievement of political unity

The reconquest of the Danelaw
      When Alfred died in 899, his son Edward succeeded him. A large-scale incursion by the Danes of Northumbria ended in their crushing defeat at Tettenhall in 910. Edward completed his father's plan of building a ring of fortresses around Wessex, and his sister Aethelflaed took similar measures in Mercia. In 912 Edward was ready to begin the series of campaigns by which he relentlessly advanced into the Danelaw (Danish territory in England), securing each advance by a fortress, until he won back Essex, East Anglia, and the east-Midland Danish areas. Aethelflaed moved similarly against the Danish territory of the Five Boroughs (Derby, Leicester, Nottingham, Lincoln, and Stamford). She obtained Derby and Leicester and gained a promise of submission from the Northumbrian Danes before she died in 918. Edward had by then reached Stamford, but he broke off his advance to secure his acceptance by the Mercians at Tamworth and to prevent their setting up an independent kingdom. Then he took Nottingham, and all the Danes in Mercia submitted to him.

      Meanwhile another danger had arisen: Norsemen from Ireland had been settling for some time west of the Pennines, and Northumbria was threatened by Raegnald, a Norse leader from Dublin, who made himself king at York in 919. Edward built fortresses at Thelwall and Manchester, and in 920 he received Raegnald's submission, along with that of the Scots, the Strathclyde Welsh, and all the Northumbrians. Yet Norse kings reigned at York intermittently until 954.

The kingdom of England
       Athelstan succeeded his father Edward in 924. He made terms with Raegnald's successor Sihtric and gave him his sister in marriage. When Sihtric died in 927, Athelstan took possession of Northumbria, thus becoming the first king to have direct rule of all England. He received the submission of the kings of Wales and Scotland and of the English ruler of Northumbria beyond the Tyne.

      Athelstan was proud of his position, calling himself “king of all Britain” on some of his coins and using in his charters flamboyant rhetoric carrying the same message; he held great courts attended by dignitaries from all over England and by Welsh kings; he subjected the Welsh to tribute and quelled a revolt of the Britons of Cornwall. His sisters were married to continental princes—Charles the Simple, king of the Franks; Otto, son of Henry the Fowler; and Hugh, duke of the Franks. Among those brought up at his court were Louis, Charles's son; Alan of Brittany, Athelstan's godson; and Haakon, son of Harald Fairhair of Norway; they all returned to win their respective inheritances with his support. He was a generous donor to continental and English churches. But Athelstan is remembered chiefly as the victor at Brunanburh, against a combine of Olaf Guthfrithson, king of Dublin; Owain of Strathclyde; and Constantine, king of the Scots, whom Athelstan had defeated in 934. They invaded England in 937, and their defeat is celebrated by a poem in the Anglo-Saxon Chronicle.

      Immediately after Athelstan's death in 939 Olaf seized not only Northumbria but also the Five Boroughs. By 944 Athelstan's successor, his younger brother Edmund (Edmund I), had regained control, and in 945 Edmund conquered Strathclyde and gave it to Malcolm of Scotland. But Edmund's successor, Eadred, lost control of Northumbria for part of his reign to the Norse kings Erik Bloodax (son of Harald Fairhair) and Olaf Sihtricson. When Erik was killed in 954, Northumbria became a permanent part of the kingdom of England.

      By becoming rulers of all England, the West Saxon kings had to administer regions with variant customs, governed under West Saxon, Mercian, or Danish law. In some parts of the area of Danish occupation, especially in northern England and the district of the Five Boroughs, the evidence of place-names, personal names, and dialect seems to indicate dense Danish settlement, but this has been seriously questioned; many “Danish” features are also found in Anglo-Saxon areas, and Danish names do not always prove Danish institutions. Moreover, the older Anglo-Saxon regions, such as Mercia, which often cut across both Danish and English areas, were politically more significant. Money, however, was calculated in marks and ores instead of shillings in Danish areas, and arable land was divided into plowlands and oxgangs instead of hides and virgates in the northern and northeastern parts of the Danelaw. Most important was the presence in some areas of a number of small landholders with a much greater degree of independence than their counterparts elsewhere; many ceorls (ceorl) had so suffered under the Danish ravages that they had bought a lord's support by sacrificing some of their independence. Excavations (1976–81) have shown 10th-century Jorvik (York), a Danish settlement, to have been a centre of international trade, economic specialization, and town planning; it was on its way to becoming by 1086 (in the Domesday survey) one of Europe's largest cities, numbering at least 2,000 households.

      The kings did not try to eradicate the local peculiarities. King Edgar (reigned 959–975) expressly granted local autonomy to the Danes. But from Athelstan's time it was decreed that there was to be one coinage for all the king's dominion, and a measure of uniformity in administrative divisions was gradually achieved. Mercia became divided into shires (shire) on the pattern of those of Wessex. It is uncertain how early the smaller divisions of the shires were called “hundreds (hundred),” but they now became universal (except in the northern Danelaw, where an area called a wapentake carried on its fiscal and jurisdictional functions). An ordinance of the mid-10th century laid down that the court in each hundred (called “hundred courts”) must meet every four weeks to handle local legal matters, and Edgar enjoined that the shire courts must meet twice a year and the borough courts three times. This pattern of local government survived the Norman Conquest.

The church and the monastic revival
      To those who judged the church solely by the state of its monasteries, the first half of the 10th century seemed a period of inertia. In fact, the great tasks of converting the heathen settlers, restoring ecclesiastical organization in Danish areas, and repairing the damages of the invasions elsewhere must have absorbed much energy. Even so, learning and book production were not at so low an ebb as monastic reformers claimed. Moreover, new monasteries were founded and benefactions were made to older ones, even though, by post-revival standards, none of these monasteries was enforcing a strict monastic rule and several benefactions were held by secular priests. Alfred had failed to arouse much enthusiasm for monasticism. The movement for reform began in England about 940 and soon came under the influence of reforms in Fleury and Lorraine. King Edgar, an enthusiastic supporter, promoted the three chief reformers to important positions—Dunstan (Dunstan of Canterbury, Saint) to Canterbury, Aethelwold to Winchester, and Oswald (Oswald Of York, Saint) to Worcester and later to York. The secular clergy were violently ejected from Winchester and some other places; Oswald gradually replaced them with monks at Worcester. All three reformers founded new houses, including the great monasteries in the Fenlands (Fenland), where older houses had perished in the Danish invasion; but Oswald had no success in Northumbria. The reformers, however, were concerned with more than monasticism—they paid great attention to other needs of their dioceses; the scholars Abbot Aelfric and Archbishop Wulfstan, trained by the reformers, directed much of their writings to improving the education and morals of the parish clergy and, through them, of the people.

      The monastic revival resulted in a great revival of both vernacular and Latin literature, of manuscript production and illumination, and of other forms of art. It reached its zenith in the troubled years of King Ethelred II (reigned 978–1016), after a brief, though violent, reaction to monasticism following Edgar's death. In the 11th century monasteries continued to be productive and new houses were founded; there was also a movement to impose a communal life on bodies of secular priests and to found houses of secular canons.

The Anglo-Danish state

The Danish conquest and the reigns of the Danish kings
      Ethelred succeeded as a child in 978, after the murder of his stepbrother Edward. He took the throne in an atmosphere of insecurity and distrust, which partly accounts for the incompetence and treachery rife in his reign. Viking raids began in 980 and steadily increased in intensity. They were led by formidable leaders: from 991 to 994 by Olaf Tryggvason, later king of Norway, and frequently from 994 by Sweyn (Sweyn I), king of Denmark. Ethelred's massacre of the Danes in England on St. Brice's Day, 1002, called for vengeance by Sweyn and, from 1009 to 1012, by a famous Viking, Thorkell the Tall. In 1013 the English, worn out by continuous warfare and heavy tributes to buy off the invaders, accepted Sweyn as king. Ethelred, his wife Emma, and his younger sons sought asylum with Richard, duke of Normandy, brother of Emma. Ethelred was recalled to England after Sweyn's death in 1014; but Sweyn's son Canute (Canute (I)) (Cnut) renewed the invasions and, in spite of valiant resistance by Ethelred's son and successor, Edmund (Edmund II), obtained half of England after a victory at Ashingdon in October 1016 and the rest after Edmund's death that November.

      Canute rewarded some of his followers with English lands and ruthlessly got rid of some prominent Englishmen, among them Edmund's brother Edwy. (Edmund's infant sons, however, were carried away to safety in Hungary.) Yet Canute's rule was not tyrannical, and his reign was remembered as a time of good order. The Danish element in his entourage diminished; and the Englishmen Leofric, Earl of Mercia, and Godwine, Earl of Wessex, became the most powerful magnates. Canute married Ethelred's widow, Emma, thus removing the danger of Norman support for her sons by Ethelred. Canute fought a successful campaign in Scotland in 1031, and Englishmen were drawn into his wars in Scandinavia, which made him lord of Norway. But at home there was peace. Probably under the influence of Archbishop Wulfstan he became a stout supporter of the church, which in his reign had the vitality to engage in missionary work in Scandinavia. Religious as well as political motives may have caused his pilgrimage to Rome in 1027 to attend the coronation of the emperor Conrad; from the pope, the emperor, and the princes whom he met he obtained concessions for English pilgrims and traders going to Rome. Canute's laws, drafted by Archbishop Wulfstan, are mainly based on those of earlier kings, especially Edgar.

      Already in 1018 the English and Danes had come to an agreement “according to Edgar's law.” No important changes were made in the machinery of government except that small earldoms were combined to make great earldoms, a change that placed much power in the hands of their holders. No attempt was made to restore the English line when Canute died in 1035; he was followed by his sons Harold and Hardecanute, whose reigns were unpopular. Denmark passed to Sweyn, son of Canute's sister Estrith, in 1043. Meanwhile the Norwegians in 1035 had driven out another Sweyn, the son whom Canute had set to rule over them with his mother, Aelfgifu, and had elected Magnus. (Magnus I Olafsson)

      The close links with Scandinavia had benefited English trade, but they left one awkward heritage: Hardecanute and Magnus made an agreement that if either died without a son, the survivor was to succeed to both kingdoms. Hardecanute died without a son in 1042, but he was succeeded by Ethelred's son Edward, who was known as the Confessor or the Saint because of his reputation for chastity. Magnus was prevented by trouble with Denmark from invading England as he intended in 1046; but Harold Hardraada (Harald III Sigurdsson) inherited Magnus' claim to the English throne, and he came to enforce it in 1066.

The reign of Edward the Confessor and the Norman Conquest
      It is easy to regard the years of Edward's rule simply as a prelude to the catastrophe of 1066, yet there are other aspects of his reign. Harrying caused by political disturbances or by incursions of the Scots or Welsh was only occasional and localized; friendly relations were usually maintained with Malcolm (Malcolm III Canmore) of Scotland, whom Earl Siward of Northumbria had supported against Macbeth in 1054; and in 1063 the victories of Harold, Earl of Wessex, and his brother Tostig ended the trouble from Wales. The normal course of administration was maintained, with efficient mints, writing office, taxation system, and courts of justice. Trade was prosperous. The church contained several good and competent leaders, and bad appointments—like those of the Normans, Ulf to Dorchester and Robert to London and Canterbury, and of Stigand to Winchester—were the exception. Scholarship was not in decline, and manuscripts were produced in great number. English illumination and other forms of art were admired abroad.

      The troubles of the reign came from the excessive power concentrated in the hands of the rival houses of Leofric of Mercia and Godwine of Wessex and from resentment caused by the king's introduction of Norman friends, though their influence has sometimes been exaggerated. A crisis arose in 1051 when Godwine defied the king's order to punish the men of Dover, who had resisted an attempt by Eustace of Boulogne to quarter his men on them by force. The support of Earl Leofric and Earl Siward enabled Edward to secure the outlawry of Godwine and his sons; and William of Normandy (William I) paid Edward a visit during which Edward may have promised William succession to the English throne, although this Norman claim may have been mere propaganda. Godwine and his sons came back the following year with a strong force, and the magnates were not prepared to engage them in civil war but forced the king to make terms. Some unpopular Normans were driven out, including Archbishop Robert, whose archbishopric was given to Stigand; this act supplied one excuse for the papal support of William's cause.

      Harold (Harold II) succeeded his father Godwine as earl of Wessex in 1053; Tostig (Northumbria, Tostig, earl of) was made earl of Northumbria in 1055; and their younger brothers were also provided with earldoms. To settle the question of succession, negotiations were begun in 1054 to bring Edward, Edmund's son (nephew of Edward the Confessor), from Hungary; but Edward died in 1057, leaving a son, Edgar Aetheling, then a child, who was passed over in 1066. In about 1064 Harold of Wessex, when visiting Normandy, swore to support William's claim. Only Norman versions of the incident survive and the true circumstances cannot be ascertained, but William used Harold's broken oath to help secure papal support later. In 1065 Harold acquiesced in the appointment of Morcar, brother of Edwin, Earl of Mercia, to replace Tostig when the Northumbrians revolted against him, and thus Harold turned his brother into an enemy. King Edward, when dying, named Harold to succeed him, and, after overcoming Northumbrian reluctance with the help of Bishop Wulfstan of Worcester, Harold was universally accepted.

      Harold might have proved an effective ruler, but the forces against him were too strong. The papacy, without hearing the defense in favour of Harold's succession, gave its blessing to an invasion of a people who had always been distinguished for their loyalty to Rome, and this papal support helped William to collect his army widely. The threat from Harold III Hardraade, who was joined by Tostig, prevented Harold from concentrating his forces in the south and took him north at a critical moment. He fought at Hastings (Hastings, Battle of) only 24 days after the armies of Mercia and Northumbria had been put out of action by enormous losses at Fulford and only 19 days after he had defeated and killed Harold III Hardraade and Tostig at Stamford Bridge. Harold was slain at Hastings, and on Christmas Day, 1066, William of Normandy was crowned king of England. Although the Anglo-Saxon fighting force was perhaps the best in Europe and the defeat at Hastings due largely to a series of historical accidents, it is not difficult to understand the English chronicler's view that God was angry with the English people.

Dorothy Whitelock William A. Chaney

The Normans (Norman) (1066–1154)
William I (1066–87)
      The Norman Conquest has long been argued about. The question has been whether William I introduced fundamental changes in England or based his rule solidly on Anglo-Saxon foundations. A particularly controversial issue has been the introduction of feudalism. On balance, the debate has favoured dramatic change while also granting that in some respects the Normans learned much from the English past. Yet William replaced his initial policy of trying to govern through Englishmen with an increasingly thoroughgoing Normanization.

Resistance and rebellion
      The Conquest was not achieved at a single stroke. In 1068 Exeter rose against the Normans, and a major rising began in the north. A savage campaign in 1069–70, the so-called harrying of the north, emphasized William's military supremacy and his brutality. A further English rising in the Fens achieved nothing. In 1075 William put down rebellion by the earls of Hereford, Norfolk, and Northumbria. The latter, the last surviving English earl, was executed for treason.

The introduction of feudalism
      The Conquest resulted in the subordination of England to a Norman aristocracy. William probably distributed estates to his followers on a piecemeal basis as lands came into his hands. He granted lands directly to fewer than 180 men, making them his tenants in chief. Their estates were often well distributed, consisting of manors scattered through a number of shires. In vulnerable regions, however, compact blocks of land were formed, clustered around castles. The tenants in chief owed homage and fealty to the king and held their land in return for military service. They were under obligation to supply a certain number of knights for the royal feudal host—a number that was not necessarily related to the quantity or quality of land held. Early in the reign many tenants in chief provided knights (knight) from their own households to meet demands for service, but they soon began to grant some of their own lands to knights who would serve them just as they in turn served the king. They could not, however, use their knights for private warfare, which, in contrast to Normandy, was forbidden in England. In addition to drawing on the forces provided by feudal means, William made extensive use of mercenary troops to secure the military strength he needed. Castles (castle), which were virtually unknown in pre-Conquest England and could only be built with royal permission, provided bases for administration and military organization. They were an essential element in the Norman settlement of England.

Government and justice
      William hoped to be able to rule England in much the same way as his Anglo-Saxon predecessors had done, though in many respects the old institutions and practices had to be changed in response to the problems of ruling a conquered land. The Anglo-Saxon witan, or council, became the king's curia regis (curia), a meeting of the royal tenants in chief, both lay and ecclesiastical. William was said by chroniclers to have held full courts three times a year, at Christmas, Easter, and Whitsuntide, to which all the great men of the realm were summoned and at which he wore his crown. These were similar to the great courts he held in Normandy. Inevitably there were many disputes over land, and the curia regis was where justice was done to the great tenants in chief. William himself is said to have sat one Sunday “from morn till eve” to hear a plea between William de Braose and the abbot of Fécamp.

      William at first did little to change Anglo-Saxon administrative organization. The royal household was at the centre of royal government, and the system, such as it was, under Edward the Confessor had probably been quite similar to that which existed in Normandy at the same period, although the actual titles of the officers were not the same. Initially under William there also was little change in personnel. But, by the end of his reign, all important administrative officials were Norman, and their titles corresponded to those in use in Normandy. There were a steward, a butler, a chamberlain, a constable, a marshal, and a head of the royal scriptorium, or chancellor. This scriptorium was the source from which all writs (writ) (i.e., written royal commands) were issued. At the start of William's reign the writs were in English, and by the end of it, in Latin.

      In local government the Anglo-Saxon shire and hundred courts continued to function as units of administration and justice, but with important changes. Bishops (bishop) and earls (count) ceased to preside over the shire courts. Bishops now had their own ecclesiastical courts (ecclesiastical court), while earls had their feudal courts. But although earls no longer presided over shire courts, they were entitled to take a third of the proceeds coming from them. The old Anglo-Saxon office of sheriff was transformed into a position resembling that of the Norman vicomte, as native sheriffs were replaced by Norman nobles. They controlled the shire and hundred courts, were responsible for collecting royal revenue, and controlled the royal castles that had been built both to subdue and protect the country.

      William made the most of the financial system he had inherited. In addition to customary dues, such as revenues from justice and income from royal lands, his predecessors had been able to levy a geld, or tax (taxation), assessed on the value of land and originally intended to provide funds to buy off Danish invaders. The Confessor had abandoned this tax, but the Conqueror collected it at least four times. Profits from the ample royal estates must have been significant, along with those from royal mints and towns.

      The Conqueror greatly strengthened the administration of justice in his new land. He occasionally appointed justiciars to preside over local cases and at times named commissioners to act as his deputies in the localities. There were a number of great trials during the reign. The most famous of them was the trial at Pinnenden Heath of a case between Lanfranc, archbishop of Canterbury, and the king's half brother, Odo, bishop of Bayeux and earl of Kent. Not only all the Normans of the shire but also many Englishmen, especially those learned in the customary law, attended. On occasion jurors (jury) were summoned to give a collective verdict under oath. Historians have debated as to whether juries were introduced as a result of the Viking conquests or were a Norman innovation, derived from Carolingian practice in France. Whichever argument is correct, it is evident that, under the Normans, juries came into more frequent use. William introduced one measure to protect his followers: he made the local community of the hundred responsible for the murder of any Norman.

Church–state relations (church and state)
      The upper ranks of the clergy were Normanized and feudalized, following the pattern of lay society. Bishops received their lands and the symbols of their spiritual office from the king. They owed knight service and were under firm royal control. Sees were reorganized, and most came to be held by continental clergy. In 1070 Lanfranc replaced Stigand as archbishop of Canterbury. An ecclesiastical lawyer, teacher, and church statesman, Lanfranc, a native of Italy, had been a monk at Bec and an abbot of Saint Stephen's at Caen. Lanfranc and William understood each other and worked together to introduce discipline and order into the English church. The see of York was subordinated to Canterbury, and efforts were made to bring the ecclesiastical affairs of Ireland and Scotland under Lanfranc's control. Several church councils were held in England to legislate for the English church, as similar councils did in Normandy. William denied that he owed homage or fealty to the pope (papacy) for his English lands, although he acknowledged papal support in winning the new realm. William and Lanfranc resisted Pope Gregory VII's (Gregory VII, Saint) claim to papal supremacy: the king decreed that without his consent no pope was to be recognized in England, no papal letter was to be received, no church council was to legislate, and no baron or royal official was to be excommunicated. During William's reign the controversy over the right of lay rulers to invest ecclesiastics with the symbols of their office did not affect England, in contrast to other parts of Latin Christendom.

William (William I)'s accomplishments
      At Christmas 1085 William had “deep speech” with his council and as a result ordered a general survey of the land to be made. Historians have debated the purpose of this “Domesday” (Domesday Book) survey, some seeing it as primarily a tax assessment, others emphasizing its importance as a basis for assignment of feudal rights and duties. Its form owed much to Anglo-Saxon precedent, but within each county section it was organized on a feudal basis. It was probably a multipurpose document with the main emphasis on resources for taxation. It was incomplete, for the far north of England, London, and Winchester were not included, while the returns for Essex, Norfolk, and Suffolk were not condensed into the same form as was used for the rest of the country. Domesday is a unique record and offers rich materials for research.

      One policy that caused deep resentment under William I, and even hatred under his successor William II, was the taking over of vast tracts of land for the king's forest. In some areas whole villages were destroyed and the people driven out; elsewhere, people living in forest areas, though not necessarily removed, were subjected to a severe system of law with drastic penalties for poaching.

      William the Conqueror is presented in contemporary chronicles as a ruthless tyrant who rigorously put down rebellion and devastated vast areas, especially in his pacification of the north in 1069–70. He was, however, an able administrator. Perhaps one of his greatest contributions to England's future was the linking up of England with continental affairs. If the country had been conquered again by the Danes, as seemed possible, it might have remained in a backwater of European development. In the event, England was linked, economically and culturally, to France and continental Europe. The aristocracy spoke French, while Latin was the language of the church and the administration.

The sons of William I

William II Rufus (William II) (1087–1100)
      Under William I's two sons William II Rufus and Henry I, strong, centralized government continued, and England's link with Normandy was strengthened. Rebellion by Norman barons, led by the king's half uncles, Odo of Bayeux and Robert of Mortain, was soon put down by William II, who made promises of good government and relief from taxation and the severity of the forest laws. Odo of Bayeux was banished, and William of St. Calais (William Of Saint Carilef), bishop of Durham, tried for treason. As an ecclesiastic he rejected the jurisdiction of the king's court. But Lanfranc pointed out that it was not as a churchman but as lord of his temporal fiefs that he was being tried. He was finally allowed to leave the country, in return for surrender of his fiefs.

      William II's main preoccupation was to win Normandy from his elder brother Robert (Robert II). After some initial skirmishing, William's plans were furthered by Robert's decision to go on crusade in 1096. Robert mortgaged his lands to William for 10,000 marks, which was raised in England by drastic and unpopular means. In his last years William campaigned successfully in Maine and the French Vexin so as to extend the borders of Normandy. His death was the result of an “accident” possibly engineered by his younger brother Henry: he was shot with an arrow in the New Forest. Henry, who was conveniently with the hunting party, rode posthaste to Winchester, seized the treasury, and was chosen king the next day.

Henry I (1100–35)
      A good politician and administrator, Henry I was the ablest of the Conqueror's sons. At his coronation on Aug. 5, 1100, he issued a charter intended to win the support of the nation. This propaganda document, in which Henry promised to give up many practices of the past, demonstrates how oppressive Norman government had become. Henry promised not to exploit church vacancies, as his brother had done, and guaranteed that reliefs (relief), sums paid by feudal vassals when they took over their fathers' estates, would be “just and legitimate.” He also promised to return to the laws of Edward the Confessor, though this cannot have been intended literally.

      Following the suppression of rebellion in England, the conquest of Normandy was an important priority for Henry. By 1105 he took the offensive, and in September 1106 he won a decisive battle at Tinchebray that gave him control of the whole of Normandy. Robert was captured and was to spend the rest of his 80 years in castle dungeons. His son, William Clito, escaped and remained until his death in 1128 a thorn in Henry's flesh. Success in Normandy was followed by wars against Louis VI of France, but by 1120 Henry was everywhere successful in both diplomacy and war. He had arranged a marriage for his only legitimate son, William (William the Aetheling), to Matilda, daughter of Fulk of Anjou, and had received Fulk's homage for Maine. Pope Calixtus II, his cousin, gave him full support for his control of Normandy on condition that his son William should do homage to the French king.

      Relations with the church had not always been easy. Henry had inherited from William II a quarrel with the church that became part of the Europe-wide Investiture Controversy. After Lanfranc's death William had delayed appointing a successor, presumably for the privilege of exploiting the resources of the archbishopric. After four years, during a bout of illness, he appointed Anselm of (Anselm of Canterbury, Saint) Bec, one of the great scholars of his time (1093). Anselm did homage for his temporalities, but whether or not he was ever invested with the symbols of spiritual office by the king is not clear. Papal confirmation was complicated by the fact that there were two claimants to the papal throne. Anselm refused to accept a decision made by the king's supporters and insisted on receiving his pallium from Urban II, a reform pope in the tradition of Gregory VII, rather than from the imperial nominee, Clement III. Conflict between king and archbishop flared up again in 1097 over what William considered to be an inadequate Canterbury contingent for his Welsh war. The upshot was that Anselm went into exile until William's death. At Rome he heard new papal decrees against lay investiture.

      Anselm supported Henry's bid for the throne and returned from exile in 1100. Almost immediately he quarreled with Henry when the king asked him to do homage and to receive his archbishopric from his hands. After various ineffective appeals to Rome, Anselm again went into exile. A compromise was finally arranged in 1107, when it was agreed that the king would surrender investiture with the symbols of spiritual office in return for an agreement that he should supervise the election of the archbishop and take homage for the temporalities before investiture with the spiritual symbols took place. It was said that the concession cost the king “a little, perhaps, of his royal dignity, but nothing of his power to enthrone anyone he pleased.”

      Henry continued and extended the administrative work of his father. His frequent absences from England prompted the development of a system that could operate effectively in his absence, under the guidance of such men as Roger, bishop of Salisbury. The Exchequer was developed as a department of government dealing with royal revenues, and the first record of the sheriffs' regular accounting at the exchequer, or Pipe Roll (Pipe Rolls), to survive is that of 1129–30. Justices with wide-ranging commissions were sent out into the shires to reinforce local administration and to inquire into crown pleas, royal revenues, and other matters of interest and profit for the king. Henry's government was highly efficient, but it was also harsh and demanding.

      During the last 15 years of his reign the succession was a major issue. William, Henry's only legitimate son, was drowned in 1120, leaving Henry's daughter Matilda, wife of the German emperor Henry V, as heir. When Henry V died in 1125, Matilda returned to England. Henry I persuaded his barons to swear an oath in her support but did not consult them over her second marriage to Geoffrey (Geoffrey IV) of Anjou, who at 14 was 11 years her junior. Within a year Geoffrey repudiated Matilda, but during a temporary reconciliation, Matilda and Geoffrey had three children.

      Henry was a skilled politician, adept at using the levers of patronage. Men such as Geoffrey de Clinton, the royal chamberlain, owed much to the favours they received from the king, and they served him well in return. There was tension between the established nobility and the “new men” raised to high office by the king, but Henry maintained control with great effect and distributed favours evenhandedly. In England his rule, particularly when seen in retrospect, was characterized by peace, order, and justice. He died, probably of a heart attack, on Dec. 1, 1135.

The period of anarchy (1135–54)

Matilda and Stephen
      Henry I's death precipitated a 20-year crisis whose immediate cause was a succession dispute. But there has been much debate among historians as to whether the problems of these years were the result of some deeper malaise.

      No one was enthusiastic about accepting Matilda as queen, especially as her husband, Geoffrey of Anjou, was actually at war with Henry at the time of his death. Robert, Earl of Gloucester, one of Henry's many illegitimate sons, was an impressive candidate for the throne, as were Henry's nephews, Theobald and Stephen of Blois. The outcome of the struggle in 1135 was unexpected: while Theobald, the elder brother, was receiving the homage of continental vassals for Normandy, Stephen took ship for England and claimed the throne. Having secured the treasury at Winchester, he was crowned on December 22.

      Stephen had been quick and resolute in securing the crown. But after the first flush of victory he made concessions that, instead of winning him support, served to expose his weakness. One such concession was to King David (David I) of Scotland, who was also the Earl of Huntingdon in England. When David learned of Stephen's succession, he crossed the border by force. He was effectively bought off by Stephen's agreeing that David's son Henry should receive Carlisle, Doncaster, and the honour of Huntingdon. Stephen obtained the support of Robert of Gloucester by a lavish charter. He also granted a charter to the church forbidding simony and confirmed the rights of church courts to all jurisdiction over clerics. Stephen's lavish appointment of new earls (19 in the course of the reign) was intended in part as a way of undermining the power of the sheriffs and constituted a shift of power away from the centre. Expenditure in Stephen's early years was heavy and achievements few.

      Stephen soon alienated the church. Much power in central government had been concentrated in the hands of Roger, bishop of Salisbury, and his family. One of Roger's nephews was bishop of Ely, and another was bishop of Lincoln. This was resented by the Beaumont family, headed by the Earl of Leicester, and their allies, who formed a powerful court faction. They planned the downfall of the bishops, and, when a council meeting was held at Oxford in June 1139, they seized on the opportunity provided by a brawl in which some of Roger's men were involved. Rumours of treason were spread, and Stephen demanded that the bishops should make satisfaction. When they did not do so, he ordered their arrest. Thenceforth Stephen was in disfavour with the clergy; he had already forfeited the support of his brother Henry of Blois, bishop of Winchester, by failing to make him archbishop of Canterbury in 1137. As papal legate, Henry was to be the most influential member of the clergy in the realm.

      Matilda did not land in England until 1139. She and her half brother Robert of Gloucester established themselves in the southwest; Stephen's main strength lay in the east. In 1141 Stephen was defeated and taken prisoner at the battle of Lincoln, but Matilda alienated the Londoners and lost support. When Stephen was exchanged for Robert of Gloucester, who was captured at Winchester, Matilda's fortunes waned. The Angevin cause, however, prospered in Normandy. Although Matilda's son, Henry, mounted an unsuccessful invasion from Normandy in 1147, in 1153 he carried out a vigorous and effective campaign. Stephen, saddened by the death of his elder son Eustace, agreed to a compromise peace. He was to remain king, but he recognized Henry as his heir.

      One chronicler said, “In this king's time there was nothing but disturbance and wickedness and robbery.” Though this was an exaggeration, it is clear that disorder was widespread, with a great many adulterine castles built (that is, unlicensed castles). It was possible for the earls of Chester and Leicester to make a treaty without any reference to royal authority. Stephen's government lost control of much of England, and power was fragmented and decentralized.

      There has been much debate as to why men fought in the civil war. It was much more than a simple succession dispute and can be seen as a natural reaction both to the strong, centralized government of Henry I and to the weak rule of Stephen. The aim of many magnates was to recover lands and offices to which they considered they had hereditary rights: much land had changed hands under Henry I. Men such as Ranulf de Gernons, 4th Earl of Chester, and Geoffrey de Mandeville, 1st Earl of Essex (Essex, Geoffrey de Mandeville, 1st earl of), changed sides frequently, obtaining fresh grants each time. Essex wanted to recover the lands and positions his grandfather had held. Most men, however, probably did not want to demolish royal government but rather wished to control and profit from it. The institutions of government did not disappear altogether. The period of the “anarchy” strengthened feudal principles of succession to land, but such offices as those of sheriff and castellan did not become hereditary.

England in the Norman period
      Despite, or perhaps in part because of, the political strains of this period, these were constructive years. The economy, for which Domesday Book is a magnificent source, was essentially agrarian, the main unit being the manor, where the lord's land (or demesne) was worked by unfree peasants who held their land in return for performing labour services. Towns, notably London, flourished, and many received new privileges based on continental practice. The church benefited from closer connections with the Continent in many ways. One such benefit was the arrival of new religious orders: the first Cluniac house was established at Lewes in 1077, and the Cistercians came to England in 1129. A great many Augustinian houses were founded in the first part of the 12th century. Imposing buildings such as Durham Cathedral and the Tower of London give eloquent testimony to the architectural achievement of the Normans, while the illuminated Winchester Bible and Psalter, made for Henry of Blois, bear witness to the artistic excellence of the age.

The early Plantagenets (Plantagenet, house of)
Henry II (1154–89)
      Matilda's son Henry Plantagenet, the first and greatest of three Angevin (Angevin empire) kings of England, succeeded Stephen in 1154. Aged 21, he already possessed a reputation for restless energy and decisive action. He was to inherit vast lands. As heir to his mother and to Stephen he held England and Normandy; as heir to his father he held Anjou (hence Angevin), Maine, and Touraine; as heir to his brother Geoffrey he obtained Brittany; as husband of Eleanor, the divorced wife of Louis VII of France, he held Aquitaine, the major part of southwestern France. Altogether his holdings in France were far larger than those of the French king. They have become known as the Angevin empire, although Henry never in fact claimed any imperial rights or used the title of emperor. From the beginning Henry showed himself determined to assert and maintain his rights in all his lands. In England this meant reasserting the centralized power of his grandfather, Henry I. His success in these aims is the measure of his greatness.

Government of England
      In the first decade of his reign Henry was largely concerned with continental affairs, though he made sure that the adulterine castles in England were destroyed. Many of the earldoms created in the anarchy of Stephen's reign were allowed to lapse. Major change in England began in the mid-1160s. The assize of Clarendon of (Clarendon, Assize of) 1166, and that of Northampton (Northampton, Assize of) 10 years later, promoted public order. Juries were used to provide evidence of what crimes had been committed and to bring accusations. New forms of legal action were introduced, notably the so-called possessory assizes, which determined who had the right to immediate possession of land, not who had the best fundamental right. That could be decided by the grand assize, by means of which a jury of 12 knights would decide the case. The use of standardized forms of writ greatly simplified judicial administration. “Returnable” writs, which had to be sent back by the sheriffs (sheriff) to the central administration, enabled the crown to check that its instructions were obeyed. An increasing number of cases came before royal courts rather than private feudal courts. Henry I's practice of sending out itinerant justices was extended and systematized. In 1170 a major inquiry into local administration, the Inquest of Sheriffs, was held, and many sheriffs were dismissed.

      There were important changes to the military system. In 1166 the tenants in chief were commanded to disclose the number of knights enfeoffed on their lands so that Henry could take proper financial advantage of changes that had taken place since his grandfather's day. scutage (money payment in lieu of military service) was an important source of funds, and Henry preferred scutage to service because mercenaries were more efficient than feudal contingents. In the Assize of Arms of 1181 Henry determined the arms and equipment appropriate to every free man, based on his income from land. This measure, which could be seen as a revival of the principles of the Anglo-Saxon fyrd, was intended to provide for a local militia, which could be used against invasion, rebellion, or for peacekeeping.

Struggle with Thomas Becket (Becket, Saint Thomas)
      Henry attempted to restore the close relationship between church and state that had existed under the Norman kings. His first move was the appointment in 1162 of Thomas Becket as archbishop of Canterbury. Henry assumed that Becket, who had served efficiently as chancellor since 1155 and been a close companion to him, would continue to do so as archbishop. Becket, however, disappointed him. Once appointed archbishop, he became a militant defender of the church (canon law) against royal encroachment and a champion of the papal ideology of ecclesiastical supremacy over the lay world. The struggle between Henry and Becket reached a crisis at the Council of Clarendon in 1164. In the Constitutions of Clarendon (Clarendon, Constitutions of) Henry tried to set down in writing the ancient customs of the land. The most controversial issue proved to be that of jurisdiction over “criminous clerks” (clerics who had committed crimes); the king demanded that such men should, after trial in church courts, be sent for punishment in royal courts.

      Becket initially accepted the Constitutions but would not set his seal to them. Shortly thereafter, however, he suspended himself from office for the sin of yielding to the royal will in the matter. Although he failed to obtain full papal support at this stage, Alexander III ultimately came to his aid over the Constitutions. Later in 1164 Becket was charged with peculation of royal funds when chancellor. After Becket had taken flight for France, the king confiscated the revenues of his province, exiled his friends, and confiscated their revenues. In 1170 Henry had his eldest son crowned king by the archbishop of York, not Canterbury, as was traditional. Becket, in exile, appealed to Rome and excommunicated the clergy who had taken part in the ceremony. A reconciliation between Becket and Henry at the end of the same year settled none of the points at issue. When Becket returned to England, he took further measures against the clergy who had taken part in the coronation. In Normandy the enraged king, hearing the news, burst out with the fateful words that incited four of his knights to take ship for England and murder the archbishop in Canterbury Cathedral.

      Almost overnight the martyred Thomas became a saint in the eyes of the people. Henry repudiated responsibility for the murder and reconciled himself with the church. But despite various royal promises to abolish customs injurious to the church, royal control of the church was little affected. Henceforth criminous clerks were to be tried in church courts, save for offenses against the forest laws. Disputes over ecclesiastical patronage and church lands that were held on the same terms as lay estates were, however, to come under royal jurisdiction. Finally Henry did penance at Canterbury, allowing the monks to scourge him. But with Becket out of the way, it proved possible to negotiate most of the points at issue between church and state. The martyred archbishop, however, was to prove a potent example for future prelates.

Rebellion of Henry's sons and Eleanor of Aquitaine
      Henry's sons, urged on by their mother and by a coalition of his enemies, raised a rebellion throughout his domains in 1173. King William I the Lion of Scotland joined the rebel coalition and invaded the north of England. Lack of cooperation among the rebels, however, enabled Henry to defeat them one at a time with a mercenary army. The Scottish king was taken prisoner at Alnwick. Queen Eleanor was retired to polite imprisonment for the rest of Henry's life. The king's sons and the baronial rebels were treated with leniency, but many baronial castles were destroyed following the rising. A brief period of amity between Henry and Louis of France followed, and the years between 1175 and 1182 marked the zenith of Henry's prestige and power. In 1183 the younger Henry again tried to organize opposition to his father, but he died in June of that year. Henry spent the last years of his life locked in combat with the new French king, Philip II Augustus, with whom his son Richard had entered into an alliance. Even his youngest son, John, deserted him at the end.

Richard I (1189–99)
      Henry II died in 1189, an embittered old man. He was succeeded by his son Richard I, nicknamed the Lion-Heart. Richard, a renowned and skillful warrior, was mainly interested in the Crusade (Crusades) to recover Jerusalem and in the struggle to maintain his French holdings against Philip Augustus. He spent only about six months of his 10-year reign in England. During his frequent absences he left a committee in charge of the realm. The chancellor, William Longchamp (Longchamp, William), bishop of Ely, dominated the early part of the reign until forced into exile by baronial rebellion in 1191. Walter of Coutances, archbishop of Rouen, succeeded Longchamp, but the most important and able of Richard's ministers was Hubert Walter, archbishop of Canterbury, justiciar from 1193 to 1198, and chancellor from 1199 to 1205. With the king's mother, Eleanor, he put down a revolt by Richard's brother John in 1193 with strong and effective measures. But when Richard returned from abroad, he forgave John and promised him the succession.

      This reign saw some important innovations in taxation and military organization. Warfare was expensive, and in addition Richard was captured on his return from the Crusade by Leopold V of Austria and held for a high ransom of 150,000 marks. Various methods of raising money were tried: an aid, or scutage; a carucage, or tax on plow lands; a general tax of a fourth of revenues and chattels (this was a development of the so-called Saladin Tithe raised earlier for the Crusade); and a seizure of the wool crop of Cistercian and Gilbertine houses. The ransom, although never paid in full, caused Richard's government to become highly unpopular. Richard also faced some unwillingness on the part of his English subjects to serve in France. A plan to raise a force of 300 knights who would serve for a whole year met with opposition led by the bishops of Lincoln and Salisbury. Richard was, however, remarkably successful in mustering the resources, financial and human, of his kingdom in support of his wars. It can also be argued that his demands on England weakened the realm unduly and that Richard left his successor a very difficult legacy.

John (1199–1216)
      Richard, mortally wounded at a siege in France in 1199, was succeeded by his brother John, one of the most detested of English kings. John's reign was characterized by failure. Yet while he must bear a heavy responsibility for his misfortunes, it is only fair to recognize that he inherited the resentment that had built up against his brother and father. Also, while his reign ended in disaster, some of his financial and military measures anticipated positive developments in Edward I's reign.

Loss of French possessions
      John had nothing like the military ability or reputation of his brother. He could win a battle in a fit of energy, only to lose his advantage in a spell of indolence. After repudiating his first wife, Isabella of Gloucester, John married the fiancée of Hugh IX the Brown of the Lusignan family, one of his vassals in Poitou. For this offense he was summoned to answer to Philip II, his feudal overlord for his holdings in France. When John refused to attend, his lands in France were declared forfeit. In the subsequent war he succeeded in capturing his nephew Arthur (Arthur I) of Brittany, whom many in Anjou and elsewhere regarded as Richard I's rightful heir. Arthur died in mysterious and suspicious circumstances. But once the great castle of Château Gaillard, Richard I's pride and joy, had fallen in March 1204, the collapse of Normandy followed swiftly. By 1206 all that was left of the inheritance of the Norman kings was the Channel Islands. John, however, was determined to recover his losses.

Struggle with the papacy
      Upon his return to England John became involved in a conflict with Pope Innocent III over the choice of an archbishop. At Hubert Walter's death in 1205 the monks at Canterbury had secretly elected their subprior and sent him to Rome to receive the pallium from the pope. The secret got out, however, and John forced the election of one of his confidants, John de Grey, bishop of Norwich, who then was also sent to Rome. Innocent III was not a man to miss such a good opportunity to demonstrate the plenitude of papal power. He quashed both elections and engineered the election of the learned and talented cardinal Stephen Langton (Langton, Stephen). John, however, refused to receive Stephen and seized the revenues of Canterbury. Since John had already quarreled with his half brother the archbishop of York, who had fled abroad, England was without either archbishop. In 1208 Innocent imposed an interdict on England, forbidding the administration of the sacraments and certain church rites. In the following year he excommunicated John. The bishops of Winchester and Norwich remained the sole support of John's power in the church. John made the most of the opportunity to collect the revenues of the sees vacated by bishops who had gone into exile.

      In theory John's excommunication freed his vassals from their oaths of fealty to him, but there was no immediate rebellion. John was able to conduct highly successful expeditions to Scotland, Wales, and Ireland, and it was not until 1212 that a plot, involving Robert Fitzwalter and Eustace de Vesci, was first hatched against the king. John's brilliant solution to the problem of multiple threats was to effect a reconciliation with the papacy. He agreed to accept Stephen Langton as archbishop, to reinstate the exiled clergy, and to compensate the church for his exactions. In addition he surrendered his kingdom to the pope, receiving it back as a fief from the pope. He now had an able ally at no great cost in terms of concessions on his part.

Revolt of the barons and Magna Carta
      Ever since the loss of Normandy John had been building up a coalition of rulers in Germany and the Low Countries to assist him against the French king. His chief ally was Otto IV, king of Germany and Holy Roman emperor. Plans for a campaign in Poitou proved very unpopular in England, especially with the northern barons. In 1214 John's allies were defeated at Bouvines (Bouvines, Battle of), and the king's own campaign in Poitou disintegrated. John had to withdraw and return home to face his disgruntled barons.

      John's efforts had been very costly, and measures such as the tax of a 13th in 1207 (which raised about £60,000) were highly unpopular. In addition John levied massive reliefs (relief) (inheritance duties) on some barons: Nicholas de Stuteville, for example, was charged 10,000 marks (about £6,666) to inherit his brother's lands in 1205. The fact alone that John, unlike his predecessors on the throne, spent most of his time in England made his rule more oppressive. Resistance sprang chiefly from the northern barons who had opposed service in Poitou, but by the spring of 1215 many others had joined them in protest against John's abuse or disregard of law and custom.

      On June 15, 1215, the rebellious barons met John at Runnymede on the Thames. The king was presented with a document known as the Articles of the Barons, on the basis of which Magna Carta was drawn up. For a document hallowed in history during more than 750 years and frequently cited as a forerunner of the Declaration of Independence and the Declaration of the Rights of Man and of the Citizen, Magna Carta is a singularly undramatic document. It is thorny with problems of feudal law and custom that are largely untranslatable into modern idiom. Still, it was remarkable in many ways, not least because it was not written in a purely baronial interest but aimed to provide protection for all freemen. It was an attempt to provide guarantees against the sort of arbitrary disregard of feudal right that the three Angevin kings had made familiar. The level of reliefs, for example, was set at £100 for a barony. Some clauses derived from concessions already offered by the king in efforts to divide opposition. The celebrated clause 39, which promised judgment by peers or by the law of the land to all freemen, had its origins in a letter sent by Innocent III to the king. The barons, however, were not attempting to dismantle royal government; in fact, many of the legal reforms of Henry II's day were reinforced. Nor did they seek to legitimate rebellion but rather they tried to ensure that the king was beneath rather than above the law. In immediate terms Magna Carta was a failure, for it was no more than a stage in ineffective negotiations to prevent civil war. John was released by the pope from his obligations under it. The document was, however, reissued with some changes under John's son, with papal approval, and so it became, in its 1225 version, a part of the permanent law of the land. John himself died in October 1216, with the civil war still at an inconclusive stage.

Economy and society
      From about 1180 the pace of economic change quickened, with a shift to what is known as “high farming.” The direct management of estates began to replace a rentier system. There was a marked price and wage inflation. Daily wages for a knight rose from eight pence a day early in Henry II's day to two shillings under John. Landlords who relied upon fixed rents found times difficult, but most responded by taking manors into their own hands and by profiting from direct sales of demesne produce at market. A new class of professional estate managers, or stewards, began to appear. Towns continued to prosper, and many bought privileges of self-government from Richard I and John. The weaving industry was important, and England was noted as a producer of very high quality woolen cloth.

      England, notably under Henry II, participated in the cosmopolitan movement that has come to be called the “12th-century Renaissance.” Scholars frequented the court, and works on law and administration, especially the Dialogue of the Exchequer and the law book attributed to Ranulf de Glanville, show how modern ideas were being applied to the arts of government. In ecclesiastical architecture new methods of vaulting gave builders greater freedom, as may be seen, for example, in the construction of the choir at Canterbury, rebuilt after a fire in 1174 by William of Sens. In military architecture, the traditional rectangular plan was abandoned in keeps such as those at Orford and Conisborough. It was a self-confident, innovative, and assertive age.

The 13th century
      The 13th century saw England develop a much clearer identity. The loss of continental possessions under King John focused the attention of the monarchy on England in a way that had not happened since 1066. Not only did the concept of the community of the realm develop—used both by the crown and its opponents—but the period was also notable in constitutional terms, seeing the beginning of Parliament.

      The notion that the realm was a community and that it should be governed by representatives of that community perhaps found its first practical expression in the period following the issue of Magna Carta in which a council of regency ruled on behalf of a child king not yet able to govern in his own right. The phrase “community of the land” initially meant little more than the totality of the baronage. But the need to obtain a wider degree of consent to taxation, and perhaps also the impact of new ideas derived from Roman law, led to change. In addition the county communities exerted some pressure. Knights were being asked to play an increasingly important part in local government, and soon they made their voice heard at a national level. In the conflict that broke out between Henry III and the barons in the latter part of that king's reign, political terms acquired some sophistication, and under Edward I the concept of representation was further developed.

Henry III (1216–72)

      The years until his death in 1219 were dominated by William Marshal, 1st Earl of Pembroke (Pembroke, William Marshal, 1st earl of). As regent in all but name he achieved success in the civil war and, assisted by the papal legate Guala, did much to restore royal government in its aftermath. After Marshal's death there was a struggle for political power between Hubert de Burgh, the justiciar, and Peter des Roches, bishop of Winchester. Despite factional disputes, by the time Henry III declared himself to be of age in 1227, the minority government had achieved much. To have retained control of royal castles was a notable achievement, while the seizure of Bedford Castle from Fawkes de Breauté, a former protégé of King John, was a spectacular triumph.

Early reign
      Henry came under increasing foreign dominance. His marriage in 1236 to Eleanor of Provence was followed by an influx of her Savoyard relations, while the other significant group of foreigners was headed by the king's half brothers, the Lusignans (Lusignan Family) (children of his mother, Isabella, by her second marriage). Attempts to recover the lost lands in France with expeditions in 1230 and 1242 were unsuccessful. Only in Wales did he achieve limited military success. In the 1250s plans, backed by the papacy, were made to place Henry's second son Edmund on the Sicilian throne; by 1258 these plans had involved the crown in an impossibly heavy financial commitment of 135,000 marks. A lenient policy toward the magnates did not yield much support for the king, and after 1237 it proved impossible to negotiate the grant of direct taxes with unwilling subjects.

      Henry, moreover, faced a series of political crises. A baronial revolt in 1233, led by Richard, son of William Marshal, ended in tragedy. Richard was killed in Ireland, to the king's great grief: there were allegations that the king had been tricked into agreeing to the earl's destruction. Further political crises in 1238 and 1244 did nothing to resolve tensions. In 1238 the king's brother, Richard, Earl of Cornwall, rebelled, and leading advisers such as William of Savoy left the royal council. In 1244 Henry III faced opposition in Parliament from both lay and ecclesiastical magnates. A draft proposal suggested a complex system for adding four men to the council, who were to be “conservators of liberties” as well as overseers of royal finance. The king was able, however, to exploit the differences between his opponents, and their campaign achieved little. Henry was naive; he was, on the one hand, overly trustful and, on the other, bitter against those who betrayed his trust. There was growing discontent at a local level with the conduct of royal government.

The county communities
      The society of the period should not be seen solely in terms of the feudal hierarchy. There are indications that the community of the county, dominated by local knights and the stewards of the magnates, was of growing importance in this period. Although the crown could and did rely extensively on the knights in local government and administration, the knights were resentful of any intrusion of royal officers from outside and determined to defend local rights and privileges. Incidents such as that in Lincolnshire in 1226, when the county community protested against innovations in the holding of the county court and appealed to Magna Carta, show a new political awareness at a local level. The localities resented the increased burdens placed on them by Henry III's government, and tension between court and country was evident.

Simon de Montfort and the Barons' War
      The main crisis of the reign came in 1258 and was brought on by a cluster of causes. The Savoyard and Lusignan court factions were divided; there were reverses in Wales; the costs of the Sicilian affair were mounting; and there was perceived to be a crisis in local government. In May 1258 the king was compelled to agree to a meeting of Parliament and to the appointment of a joint committee of dissident barons and his own supporters, 12 from each side, which was to recommend measures for the reform of the kingdom. In the Provisions of Oxford (Oxford, Provisions of), drawn up in June, a scheme was set out for the creation of a council of 15 to supervise royal government. Parliament was to be held three times a year, at which the 15 would meet with 12 barons representing “the community” (le commun in the original French). The office of justiciar was to be revived, and he, with the chancellor and treasurer, was to account annually before the council. The new justiciar was to hear complaints throughout the country against royal officials. Sheriffs were to be local men, appointed for one year. The households of the king and queen were to be reformed. The drafting of further measures took time. In October 1259 a group calling itself the Community of Bachelors, which seems to have claimed to represent the lesser vassals and knights, petitioned for the fulfillment of the promises of the magnates and king to remedy its grievances. As a result the Provisions of Westminster were duly published, comprising detailed legal measures that in many cases were in the interests of the knightly class.

      The Provisions of Oxford led to two years in which the king was under tutelage; he was less even than the first among equals because he was not free to choose his own councillors. The Oxford settlement, however, began to break down in 1260. There were divisions among the king's opponents, notably between the Earl of Gloucester and the ambitious Simon de Montfort (Montfort, Simon de, Earl Of Leicester), Earl of Leicester, Henry's brother-in-law. The king's eldest son, Edward (Edward I), at first backed the unpopular Lusignans, whose exile had been demanded, but then came to an agreement with Simon de Montfort before being reconciled to his father. In 1261, when a papal bull released Henry from his oath to support the Provisions of Oxford, he dismissed the baronial sheriffs, castellans, and other officials imposed on him. Simon de Montfort, by now the undisputed leader of the opposition, raised rebellion, but an agreement was reached to submit the dispute to the arbitration of Louis IX of France. The verdict of the Mise of Amiens in 1264, however, was so favourable to Henry III that Simon de Montfort could not accept it.

      Civil war was inevitable. In May 1264 Simon won a resounding victory at Lewes, and a new form of government was set up. Representatives of the boroughs were summoned to Parliament for the first time early in 1265, along with knights of the shire. Simon's motive for summoning Parliament was undoubtedly political: he needed support from many elements of society. In May 1265 the young Edward, held hostage since 1264 to ensure fulfillment of the terms of the peace of Lewes, escaped and rallied the royalist forces, notably the Welsh marcher lords who played a decisive part throughout these conflicts. In August, Simon was defeated and slain at Evesham.

Later reign
      Henry spent the remainder of his reign settling the problems created by the rebellion. He deprived Simon's supporters of their lands, but “the Disinherited” fought back from redoubts in forests or fens. The garrison of Kenilworth Castle carried on a notable resistance. Terms were set in 1266 for former rebels to buy back their lands, and with the issue of the Statute of Marlborough, which renewed some of the reform measures of the Provisions of Westminster, the process of reconstruction began. By 1270 the country was sufficiently settled for Edward to be able to set off on crusade, from which he did not return until two years after his father's death. By then the community of the realm was ready to begin working with, not against, the crown.

Edward I (1272–1307)
      Edward was in many ways the ideal medieval king. He went through a difficult apprenticeship, was a good fighter, and was a man who enjoyed both war and statecraft. His crusading reputation gave him prestige, and his chivalric qualities were admired. Although he had a gift for leadership, he lacked sympathy for others and had an obstinacy that led to inflexibility.

Law and government
      In the 13th century the development of law became a dominant concern, as is shown by the great treatise On the Laws and Customs of England, attributed to the royal judge Bracton but probably put together in the 1220s and '30s under one of his predecessors on the King's Bench. Soon after Edward's return to England in 1274, a major inquiry into government in the localities took place that yielded the so-called Hundred Rolls, a heterogeneous group of records, and brought home the need for changes in the law. In 1275 the First Statute of Westminster was issued. A succession of other statutes followed in later years, providing a kind of supplement to the common law. Some measures protected the king's rights; others remedied the grievances of his subjects. In the quo warranto proceedings set up under the Statute of Gloucester of 1278 the magnates were asked by what warrant they claimed rights of jurisdiction and other franchises. This created much argument, which was resolved in the Statute of Quo Warranto of 1290. By the Statute of Mortmain of 1279 it was provided that no more land was to be given to the church without royal license. The Statute of Quia Emptores of 1290 had the effect of preventing further subinfeudation of land. In the first and second statutes of Westminster (Westminster, Statutes of), of 1275 and 1285, many deficiencies in the law were corrected, such as those concerning the relationship between lords and tenants and the way in which the system of distraint was operated. Merchants benefited from the Statute of Acton Burnell of 1283 and the Statute of Merchants of 1285, which facilitated debt collection. Problems of law and order were tackled in the Statute of Winchester of 1285.

      Edward began his reign with heavy debts incurred on crusade, and his various wars also were costly. In 1275 Edward gained a secure financial basis when he negotiated a grant of export duties on wool, woolfells, and hides that brought in an average of £10,000 a year. He borrowed extensively from Italian bankers on the security of these customs revenues. The system of levying taxes on an assessment of the value of movable goods was also of great value. Successive profitable taxes were granted, mostly in Parliament. It was partly in return for one such tax, in 1290, that Edward expelled the Jews (Jew) from England. Their moneylending activities had made them unpopular, and royal exploitation had so impoverished the Jews that there was no longer an advantage for Edward in keeping them in England.

The growth of Parliament
      Edward fostered the concept of the community of the realm and the practice of calling representative knights of the shire and burgesses from the towns to Parliament. Representatives were needed to give consent to taxation, as well as to enhance communication between the king and his subjects. The process of petitioning the king and his council in Parliament was greatly encouraged. Historians have argued much about the nature of Edward's Parliament, some seeing the dispensation of justice as the central element, others emphasizing the multifaceted character of an increasingly complex institution. Some see Edward as responding to the dictates of Roman law, while others interpret the development of Parliament in terms of the practical solution of financial and political problems. Historians used to refer to the 1295 assembly as the Model Parliament because it contained all the elements later associated with the word parliament, but in fact these can all be found earlier. The writs to the sheriffs asking them to call knights and burgesses did, however, reach a more or less final form in 1295. They were to be summoned “with full and sufficient authority on behalf of themselves and the community . . . to do whatever shall be ordained by common counsel.” Representatives of the lower clergy were also summoned. This Parliament was fully representative of local communities and of the whole community of the realm, but many Parliaments were attended solely by the magnates with no representatives present.

Edward's wars
      In the first half of his reign Edward was thoroughly successful in Wales. Llywelyn Ap Gruffudd, prince of Gwynedd, had taken advantage of the Barons' War to try to expand his authority throughout Wales. He refused to do homage to Edward, and in 1277 the English king conducted a short and methodical campaign against him. Using a partly feudal, partly paid army, the core of which was provided by the royal household knights, and a fleet from the Cinque Ports, Edward won a quick victory and exacted from Llywelyn the Treaty of Conway. Llywelyn agreed to perform fealty and homage, to pay a large indemnity (from which he was soon excused), and to surrender certain districts of North Wales. There was considerable Welsh resentment after 1277 at the manner in which Edward imposed his jurisdiction in Wales.

      David (David ap Gruffudd), Llywelyn's younger brother, was responsible for a renewal of war in 1282. He was soon joined by Llywelyn, who was killed in battle late in the year. David was captured and executed as a traitor in 1283. This second Welsh war proved much longer, more costly, and more difficult for the English than the first. In the succeeding peace North Wales was organized into counties, and law was revised along English lines. Major castles, notably Flint and Rhuddlan, had been built after the first Welsh war; now Conway, Caernarvon, and Harlech were started, designed by a Savoyard expert, Master James of St. George. Merchant settlements, colonized with English craftsmen and merchants, were founded. Archbishop Pecham reorganized the Welsh church and brought it more fully under the sway of Canterbury. A brief revolt in 1287 was soon quelled, but Edward faced a major rebellion in 1294–95, after which he founded the last of his Welsh castles, Beaumaris in Anglesey.

      Edward devoted much attention to Gascony, the land he held in southwestern France. He went there prior to returning to England at the start of the reign and spent the period 1286–89 there. In 1294 he had to undertake a costly defense of his French lands, when war began with Philip IV, king of France. Open hostilities lasted until 1297. In this case the French were the aggressors. Following private naval warfare between Gascon and Norman sailors, Philip summoned Edward (who, as Duke of Aquitaine, was his vassal) to his court and, having deceived English negotiators, decreed Gascony confiscate. Edward built up a grand alliance against the French, but the war proved costly and inconclusive.

      Edward intervened in Scotland in 1291, when he claimed jurisdiction over a complex succession dispute. King Alexander III had been killed when his horse fell one stormy night in 1286. His heiress was his three-year-old granddaughter, Margaret, the Maid of Norway. Arrangements were made for her to marry Edward's son Edward, but these plans were thwarted by Margaret's death in 1290. There were 13 claimants to the Scottish throne, the two main candidates being John de Balliol and Robert de Bruce, both descendants of David, 8th Earl of Huntingdon, brother of William I the Lion. Balliol was the grandson of David's eldest daughter, and Bruce was the son of his second daughter. A court of 104 auditors, of whom 40 were chosen by Balliol and 40 by Bruce, was set up. Balliol was designated king and performed fealty and homage to Edward.

      Edward did all he could to emphasize his own claims to feudal suzerainty over Scotland, and his efforts to put these into effect provoked Scottish resistance. In 1295 the Scots, having imposed a baronial council on Balliol, made a treaty with the French. War was inevitable, and in a swift and successful campaign Edward defeated Balliol in 1296, forcing him to abdicate. The victory, however, had been too easy. Revolt against the inept officials Edward had appointed to rule in Scotland came in 1297, headed by William Wallace and Andrew Moray. Victory for Edward at the battle of Falkirk in 1298, however, did not win the war. A lengthy series of costly campaigns appeared to have brought success by 1304, and in the next year Edward set up a scheme for governing Scotland, by now termed by the English a land, not a kingdom. But in 1306 Robert de Bruce, grandson of the earlier claimant to the throne, a man who had fought on both sides in the war, seized the Scottish throne and reopened the conflict, which continued into the reign of Edward II, who succeeded his father in 1307.

      It has been claimed that during his wars Edward I transformed the traditional feudal host into an efficient, paid army. In fact, feudal summonses continued throughout his reign, though only providing a proportion of the army. The paid forces of the royal household were a very important element, but it is clear that the magnates also provided substantial unpaid forces for campaigns of which they approved. The scale of infantry recruitment increased notably, enabling Edward to muster armies up to 30,000 strong. The king's military successes were primarily due to the skill of his government in mobilizing resources, in terms of men, money, and supplies, on an unprecedented scale.

Domestic difficulties
      The wars in the 1290s against the Welsh, French, and Scots imposed an immense burden on England. The character of the king's rule changed as the preoccupation with war put an end to further reform of government and law. Edward's subjects resented the heavy taxation, large-scale recruitment, and seizures of food supplies and wool crops. Pope Boniface VIII forbade the clergy to pay taxes to the king. A political crisis ensued in 1297, which was only partly resolved by the reissue of Magna Carta and some additional concessions. Argument continued for much of the rest of the reign, while the king's debts mounted. The Riccardi, Edward's bankers in the first part of the reign, were effectively bankrupted in 1294, and their eventual successors, the Frescobaldi, were unable to give the king the same level of support as their predecessors.

Social, economic, and cultural change
      The population expanded rapidly in the 13th century, reaching a level of about five million. Great landlords prospered with the system of high farming, but the average size of small peasant holdings fell, with no compensating rise in productivity. There has been debate about the fate of the knightly class: some historians have argued that lesser landowners suffered a decline in wealth and numbers, while others have pointed to their increased political importance as evidence of their prosperity. Although there were probably both gainers and losers, the overall number of knights (knight) in England almost certainly fell to less than 2,000. Ties between magnates and their feudal tenants slackened as the relationship became increasingly a legal rather than a personal one. Lords began to adopt new methods of recruiting their retinues, using contracts demanding service either for life or for a short term, in exchange for fees, robes, and wages. Towns continued to grow, with many new ones being founded, but the weaving industry suffered a decline, in part because of competition from rural areas and in part as a result of restrictive guild practices. In trade, England became increasingly dependent on exports of raw wool.

      The advent of the friars introduced a new element to the church. The universities of Oxford and Cambridge were developing rapidly, and in Robert Grosseteste and Roger Bacon, England produced two major, if somewhat eccentric, intellectual figures. Ecclesiastical architecture flourished, showing a strong French influence: Henry III's patronage of the new Westminster Abbey was particularly notable. Edward I's castles in North Wales rank high among the finest examples of medieval military architecture.

The 14th century
      The 14th century, despite some gains, was a bleak age. At its beginning and close were kings whose reigns ended in failure. In between, however, came the 50-year reign of the popular and successful Edward III. During the century the importance of the Commons in Parliament continued to grow. But dominant factors of the age were war and plague. The increased scale, cost, and frequency of wars from the 1290s onward imposed heavy burdens on state and society. Conflicts between England and France continued intermittently throughout the century, those from 1337 onward being called the Hundred Years' War. The Black Death struck in 1348–49; it became endemic, recurring several times in the second half of the century, and brought with it profound economic and social change.

Edward II (1307–27)
      Edward II's reign was an almost unmitigated disaster. He inherited some of his problems from his father, the most significant being a treasury deficit of some £200,000, and the Scottish war. He inherited none of his father's strengths. He was a good horseman but did not enjoy swordplay or tournaments, preferring swimming, ditch digging, thatching, and theatricals. Although surrounded by a ruling class strongly tied to his family by blood and service, Edward rejected the company of his peers, preferring that of Piers Gaveston (Gaveston, Piers, Earl of Cornwall), son of a Gascon knight, with whom he probably had a homosexual relationship. Edward's father had exiled Gaveston in an attempt to quash the friendship. Edward the son recalled him and conferred on him the highest honours he had to bestow: the earldom of Cornwall and marriage to his niece Margaret de Clare, sister of the Earl of Gloucester. Edward also recalled Archbishop Winchelsey and Bishop Bek of Durham, both of whom had gone into exile under Edward I. He dismissed and put on trial one of his father's most trusted servants, the treasurer, Walter Langton.

      Historians used to emphasize the constitutional struggle that took place in this reign, seeing a conflict between a baronial ideal of government conducted with the advice of the magnates and based on the great offices of state, the Chancery and the Exchequer, on the one hand, and a royal policy of reliance upon the departments of the royal household, notably the wardrobe and chamber, on the other. More recent interpretations have shifted the emphasis to personal rivalries and ambitions.

      Opposition to Edward began to build as early as January 1308. At the coronation in February a new clause was added to the king's oath that obligated him to promise that he would keep such laws “as the community of the realm shall have chosen.” In April the barons came armed to Parliament and warned the king that “homage and the oath of allegiance are stronger and bind more by reason of the crown than by reason of the person of the king.” The first phase of the reign culminated in the production of the Ordinances in 1311. They were in part directed against Gaveston—who was again to be exiled—and other royal favourites, but much of the document looked back to the grievances of Edward I's later years, echoing concessions made by the king in 1300. Hostility was expressed to the practice of prise (compulsory purchase of foodstuffs for royal armies). Baronial consent was required for foreign war (possibly in remembrance of Edward I's Flanders campaign of 1297). The privy seal was not to be used to interfere in justice. A long list of officials were to be chosen with the advice and consent of the barons in Parliament. All revenues were to be paid into the Exchequer. The king's bankers, the Frescobaldi, who had also served Edward I, were to be expelled from the realm. Royal grants of land made since the appointment of the Ordainers in 1310 were annulled. It is noteworthy that the first clear statement that consent should be given in Parliament is to be found in the Ordinances. No explicit role, however, was given to the Commons, the representative element in Parliament.

      The middle years of Edward's reign were dominated by the enigmatic figure of Thomas, 2nd Earl of Lancaster (Lancaster, Thomas, 2nd Earl of, Earl Of Leicester, Earl Of Derby), the king's cousin and chief opponent, whose surly inactivity for long periods blocked effective political initiatives. His political program never amounted to much more than enforcement of the Ordinances. He supervised the capture and execution of Gaveston in 1312 and came to dominance after the disastrous defeat of a royal army at the hands of the Scottish pikemen and bowmen at Bannockburn (Bannockburn, Battle of) in 1314. At the Lincoln Parliament of 1316 he was named chief councillor, but he soon withdrew from active government.

      A conciliar regime was set up with the Treaty of Leake of 1318. This was once thought to have been the work of a “middle party,” but the political alliances of this period cannot be categorized in such a manner. New royal favourites emerged, and in 1321 the peace was broken when the Welsh marcher lords moved against two of them, a father and son, both called Hugh Despenser. When Parliament met, the two were exiled, but they soon returned. In this brief civil war, which ended in 1322, Edward was victorious. He had Lancaster executed for treason after his ignominious defeat at Boroughbridge in 1322. In death Lancaster attracted a popular sympathy he had rarely received in life, with many rumours of miracles at his tomb. Edward had many of Lancaster's followers executed in a horrific bloodbath. In the same year the Ordinances were repealed in Parliament at York, and in the Statute of York the intention of returning to the constitutional practices of the past was announced. But in specifying that the “consent of the prelates, earls, and barons, and of the community of the realm” was required for legislation, the Statute of York provided much scope for historical argument; some historians have made claims for a narrow baronial interpretation of what is meant by “community of the realm,” while others have seen the terminology as giving the representative element in Parliament a new role. A tract written in this period, the Modus tenendi parliamentum, certainly placed a new emphasis on the representatives of shire, borough, and lower clergy. In terms of practical politics, however, the Statute of York permitted the fullest resumption of royal authority.

      The final period of the reign saw the Despensers restored to power. They carried out various administrative reforms, ably assisted by the treasurer, Walter Stapledon. For the first time in many years, a substantial treasury of about £60,000 was built up. At the same time, crude blackmail and blatant corruption characterized this regime. A brief war against the French was unsuccessful. The reign ended with the invasion of Edward's estranged queen, Isabella (Isabella Of France), assisted by Roger Mortimer (March, Roger Mortimer, 1st Earl of, 8th Baron Of Wigmore), soon to be Earl of March. With the support above all of the Londoners, the government was overthrown, the Despensers executed, and the king imprisoned. Parliament was called in his name, and he was simultaneously deposed and persuaded to abdicate in favour of his son, Edward III. After two conspiracies to release him, he was almost certainly killed in Berkeley Castle.

Edward III (1327–77)

The Hundred Years' War, to 1360
      Edward III achieved personal power when he overthrew his mother's and Mortimer's dominance in 1330 at the age of 17. Their regime had been just as corrupt as that of the Despensers but less constructive. The young king had been sadly disappointed by an unsuccessful campaign against the Scots in 1327; in 1333 the tide turned when he achieved victory at Halidon Hill. Edward gave his support to Edward Balliol as claimant to the Scottish throne, rather than to Robert I's son David II. But as long as the Scots had the support of the French king Philip VI, final success proved impossible, and this was one of the causes for the outbreak of the French war in 1337. Another was the long-standing friction over Gascony, chronic since 1294 and stemming ultimately from the Treaty of Paris of 1259. By establishing that the kings of England owed homage to the kings of France for Gascony the treaty had created an awkward relationship. The building of bastides (fortified towns) by each side contributed to friction, as did piracy by English and French sailors. The English resented any appeals to the French court by Gascons. English-French rivalry also extended into the Netherlands, which was dependent on English wool for industrial prosperity but some of whose states, including Flanders, were subject to French claims of suzerainty. Finally, there was the matter of the French throne itself. Edward, through his mother, was closer in blood to the last ruler of the Capetian dynasty than was the Valois Philip VI. The claim was of great propaganda value to Edward, for it meant that he did not appear as simply a rebellious vassal of the French king. His allies could fight for him without dishonour.

      The initial phase of the war was inconclusive. Edward won a naval victory at Sluys in 1340, but he lacked the resources to follow it up. Although intervention in a succession dispute in Brittany saw the English register successes, stalemate came in 1343. The first great triumph came with the invasion of Normandy in 1346. As Edward was retreating northward, he defeated the French at Crécy and then settled to the siege of Calais, which fell in 1347. The French allies, the Scots, were also defeated in 1346 at Neville's Cross, where their king, David II, was taken prisoner. The focus of the war moved south in 1355, when the king's son, the Black Prince (Edward The Black Prince), was sent to Gascony. He launched a successful raid in 1355 and another in 1356, and at Poitiers he defeated and captured the French king John (John II), for whom a heavy ransom was charged. As at Crécy, English archery proved decisive. A major campaign in 1359–60, planned as the decisive blow, proved unsatisfactory to the English. Rheims did not open its gates to Edward as he had hoped, and a storm caused severe damage to the army and its baggage in April 1360. Negotiations led to a truce at Brétigny, and in the subsequent negotiations Edward agreed to drop his claim to the French throne. In return, English possessions in France would be held in full sovereignty. The terms, particularly those involving the exchange of territory, were not carried out in full, but neither side wished to reopen the war immediately. War was costly, and Edward III's armies were no longer recruited by feudal means. Most were formed by contract, and all who fought received wages as well as a share of the profits of campaigning. These could be substantial if wealthy nobles were captured and ransomed.

Domestic achievements
      The war, and the need to finance it, dominated domestic affairs under Edward III. The king faced a crisis in 1340–41 because he found himself disastrously indebted by 1339, even though he had received generous grants from Parliament since 1336. It was estimated that he owed £300,000. He had seized wool exports and had borrowed recklessly from Italian, English, and Flemish bankers and merchants. A grant in 1340 of a ninth of all produce failed to yield the expected financial return. In the autumn of 1340 Edward returned from abroad and charged John Stratford, archbishop of Canterbury, the man who had been in charge in his absence, with working against him. He also engaged in a widespread purge of royal ministers. Stratford whipped up opposition to the king, and in Parliament in 1341 statutes were passed that were reminiscent of the kind of restraints put on earlier and less popular kings. Officers of state and of the king's household were to be appointed and sworn in Parliament. Commissioners were to be sworn in Parliament to audit the royal accounts. Peers were to be entitled to trial before their peers in Parliament. Breaches of the Charters were to be reported in Parliament. Charges were brought against Stratford, only to be dropped. But in 1343 Edward III was able to repudiate the statutes. The crisis had little permanent effect, though it did demonstrate the king's dependence on Parliament, and within it on the Commons, for supply.

      In the following years the country was well governed, with William Edington and John Thoresby serving the king loyally and well. Edward's compliance toward the requests of the Commons made it relatively easy for him to obtain the grants he needed. Discontent in 1346–47 was overcome by the good news from France. Much of the legislation passed at this time was in the popular interest. In 1352 the king agreed that no one should be bound to find soldiers for the war save by common consent in Parliament, and demands for purveyance were moderated. The Statute of Provisors of 1351 set up statutory procedures against the unpopular papal practice of making appointments to church benefices in England, and the Statute of Praemunire two years later forbade appeals to Rome in patronage disputes. The crown in practice had sufficient weapons available to it to deal with these matters, but Edward was ready to accept the views of his subjects, even though he did little about them later. Much attention was given to the organization of the wool trade because it was intimately bound up with the finance of war. In 1363 the Calais staple was set up, under which all English exports of raw wool were channeled through Calais. The currency was reformed very effectively with the introduction in the 1340s of a gold coinage alongside the traditional silver pennies.

      The maintenance of law and order, a prime duty for a medieval king, had reached a point of crisis by the end of Edward I's reign when special commissions, known as commissions of trailbaston, were set up to try to deal with the problem. Matters became worse under Edward II, from whose reign there is much evidence of gang warfare, often involving men of knightly status. Maintaining law and order was also an urgent issue in Edward III's reign. In the early years there was conflict between the magnates, who wanted to be given full authority in the localities, and the county knights and gentry, who favoured locally appointed keepers of the peace. A possible solution, favoured by the chief justice, Geoffrey Scrope, was to extend the jurisdiction of the king's bench into the localities. There was a major crime wave in 1346 and 1347, intensified by the activities of soldiers returning from France. The justices reacted by greatly extending the use of accusations of treason, but the Commons protested against procedures they claimed did little to promote order and much to impoverish the people. In 1352 the crown gave way, producing in the Statute of Treason a narrow definition of great treason that made it impossible to threaten common criminals with the harsh penalties which followed conviction for treason. The concern of the Commons had been that in cases of treason goods and land forfeited by those found guilty went to the crown, not to the overlord. In 1361 the position of justice of the peace was established by statute, marking another success for the Commons.

The crises of Edward's later years
      The war with France was reopened in 1369 and went badly. The king was in his dotage and, since the death of Queen Philippa in 1369, in the clutches of his unscrupulous mistress Alice Perrers (Perrers, Alice). The heir to the throne, Edward the Black Prince, was ill and died in 1376. Lionel of Antwerp, Duke of Clarence, the next son, had died in 1368, and John of Gaunt, duke of Lancaster, the third surviving son, was largely occupied with his claims to Castile, his inheritance through his second wife, Constance. Edmund of Langley, the fourth surviving son, was a nonentity, and the youngest, Thomas of Woodstock, was not yet of age. In 1371 Parliament demanded the dismissal of William of Wykeham (Wykeham, William of), the chancellor, and the appointment of laymen to state offices. The new government, dominated by men such as William Latimer, the chamberlain, proved unpopular and ineffective. When the so-called Good Parliament met in 1376, grievances had accumulated and needed to be dealt with. As in previous crises, a committee consisting of four bishops, four earls, and four barons was set up to take responsibility for the reforms. Then, under the leadership of Peter de la Mare, who may be termed the first Speaker, the Commons impeached Latimer, Alice Perrers, and a number of ministers and officials, some of whom had profited personally from the administration of the royal finances. The Commons took the role of prosecutors before the Lords in what amounted to a new procedure.

      John of Gaunt, an unpopular figure at this time, had, as a result of the king's illness, presided uncomfortably over the Good Parliament. He ensured that the achievement of Peter de la Mare and his colleagues was ephemeral, taking charge of the government at the end of the reign. De la Mare was jailed in Nottingham. William of Wykeham was attacked for alleged peculation as chancellor, and Alice Perrers was restored to court. The Parliament of 1377 reversed all important acts of the Good Parliament. There were rumours in London that Gaunt aimed at the throne. But the Black Prince's widow made peace between Gaunt and the Londoners, and Wykeham's temporalities were restored. The reign ended in truce, if not peace.

Richard II (1377–99)
      Richard II's reign was fraught with crises—economic, social, political, and constitutional. He was 10 years old when his grandfather died, and the first problem the country faced was having to deal with his minority. A “continual council” was set up to “govern the king and his kingdom.” Although John of Gaunt was still the dominant figure in the royal family, neither he nor his brothers were included.

The Peasants' Revolt (1381)
      Financing the increasingly expensive and unsuccessful war with France was a major preoccupation. At the end of Edward III's reign a new device, a poll tax of four pence a head, had been introduced. A similar but graduated tax followed in 1379, and in 1380 another set at one shilling a head was granted. It proved inequitable and impractical, and, when the government tried to speed up collection in the spring of 1381, a popular rebellion—the Peasants' Revolt—ensued. Although the poll tax was the spark that set it off, there were also deeper causes related to changes in the economy and to political developments. The government, in particular, engendered hostility to the legal system by its policies of expanding the powers of the justices of the peace at the expense of local and manorial courts. In addition, popular poor preachers spread subversive ideas with slogans such as: “When Adam delved and Eve span / Who was then the gentleman?” The Peasants' Revolt began in Essex and Kent. Widespread outbreaks occurred through the southeast of England, taking the form of assaults on tax collectors, attacks on landlords and their manor houses, destruction of documentary evidence of villein status, and attacks on lawyers. Attacks on religious houses, such as that at St. Albans, were particularly severe, perhaps because they had been among the most conservative of landlords in commuting labour services.

      The men of Essex and Kent moved on London to attack the king's councillors. Admitted to the city by sympathizers, they attacked John of Gaunt's palace of the Savoy as well as the Fleet prison. On June 14 the young king made them various promises at Mile End; on the same day they broke into the Tower and killed Sudbury, the chancellor, Hales, the treasurer, and other officials. On the next day Richard met the rebels again at Smithfield, and their main leader, Wat Tyler (Tyler, Wat), presented their demands. But during the negotiations Tyler was attacked and slain by the mayor of London. The young king rode forward and reassured the rebels, asking them to follow him to Clerkenwell. This proved to be a turning point, and the rebels, their supplies exhausted, began to make their way home. Richard went back on the promises he had made, saying, “Villeins ye are and villeins ye shall remain.” In October Parliament confirmed the king's revocation of charters but demanded amnesty save for a few special offenders.

      The events of the Peasants' Revolt may have given Richard an exalted idea of his own powers and prerogative as a result of his success at Smithfield, but for the rebels the gains of the rising amounted to no more than the abolition of the poll taxes. Improvements in the social position of the peasantry did occur, but not so much as a consequence of the revolt as of changes in the economy that would have occurred anyhow.

      Religious unrest was another subversive factor under Richard II. England had been virtually free from heresy until John Wycliffe, a priest and an Oxford scholar, began his career as a religious reformer with two treatises in 1375–76. He argued that the exercise of lordship depended on grace and that, therefore, a sinful man had no right to authority. Priests and even the pope himself, Wycliffe went on to argue, might not necessarily be in a state of grace and thus would lack authority. Such doctrines appealed to anticlerical sentiments and brought Wycliffe into direct conflict with the church hierarchy, although he received protection from John of Gaunt. The beginning of the Great Schism (Western Schism) in 1378 gave Wycliffe fresh opportunities to attack the papacy, and in a treatise of 1379 on the Eucharist he openly denied the doctrine of transubstantiation. He was ordered before a church court at Lambeth in 1378. In 1380 his views were condemned by a commission of theologians at Oxford, and he was forced to leave the university. At Lutterworth he continued to write voluminously until his death in 1384. The movement he inspired was known as Lollardy (Lollard). Two of his followers translated the Bible into English, and others went out to spread Wycliffe's doctrines, which soon became debased and popularized. The movement continued to expand despite the death of its founder and the government's attempts to destroy it.

Political struggles and Richard's deposition
      Soon after putting down the Peasants' Revolt, Richard began to build up a court party, partly in opposition to Gaunt. A crisis was precipitated in 1386 when the king asked Parliament for a grant to meet the French threat. Parliament responded by demanding the dismissal of the king's favourites, but Richard insisted that he would not dismiss so much as a scullion in his kitchen at the request of Parliament. In the end he was forced by the impeachment of the chancellor, Michael de la Pole, to agree to the appointment of a reforming commission. Richard withdrew from London and went on a “gyration” of the country. He called the judges before him at Shrewsbury and asked them to pronounce the actions of Parliament illegal. An engagement at Radcot Bridge, at which Richard's favourite, Robert de Vere, 9th Earl of Oxford, was defeated, settled the matter of ascendancy. In the Merciless Parliament of 1388 five lords accused the king's friends of treason under an expansive definition of the crime.

      Richard was chastened, but he began to recover his authority as early as the autumn of 1388 at the Cambridge Parliament. Declaring himself to be of age in 1389, Richard announced that he was taking over the government. He pardoned the Lords Appellant and ruled with some moderation until 1394, when his queen, Anne of Bohemia, died. After putting down a rebellion in Ireland, he was, for a time, almost popular. He began to implement his personal policy once more and rebuilt a royal party with the help of a group of young nobles. He made a 28-year truce with France and married the French king's seven-year-old daughter. He built up a household of faithful servants, including the notorious Sir John Bushy, Sir William Bagot, and Sir Henry Green. He enlisted household troops and built a wide network of “king's knights” in the counties, distributing to them his personal badge, the White Hart.

      The first sign of renewed crisis emerged in January 1397, when complaints were put forward in Parliament and their author, Thomas Haxey, was adjudged a traitor. Richard's rule, based on fear rather than consent, became increasingly tyrannical. Three of the Lords Appellant of 1388 were arrested in July and tried in Parliament. The Earl of Arundel was executed and Warwick exiled. Gloucester, whose death was reported to Parliament, had probably been murdered. The acts of the 1388 Parliament were repealed. Richard was granted the customs revenues for life, and the powers of Parliament were delegated to a committee after the assembly was dissolved. Richard also built up a power base in Cheshire.

      Events leading to Richard's downfall followed quickly. The Duke of Norfolk and Henry Bolingbroke, John of Gaunt's son, accused each other of treason and were banished, the former for life, the latter for 10 years. When Gaunt himself died early in 1399, Richard confiscated his estates instead of allowing his son to claim them. Richard, seemingly secure, went off to Ireland. Henry, however, landed at Ravenspur in Yorkshire to claim, as he said, his father's estates and the hereditary stewardship. The Percys, the chief lords in the north, welcomed him. Popular support was widespread, and when Richard returned from Ireland his cause was lost.

      The precise course of events is hard to reconstruct, in view of subsequent alterations to the records. A Parliament was called in Richard's name, but before it was fully assembled at the end of September, its members were presented with Richard's alleged abdication and Henry's claim to the throne as legitimate descendant of Henry III as well as by right of conquest. Thirty-three articles of deposition were set forth against Richard, and his abdication and deposition were duly accepted. Richard died at Pontefract Castle, either of self-starvation or by smothering. Thus ended the last attempt of a medieval king to exercise arbitrary power. Whether or not Richard had been motivated by new theories about the nature of monarchy, as some have claimed, he had failed in the practical measures necessary to sustain his power. He had tried to rule through fear and mistrust in his final years, but he had neither gained sufficient support among the magnates by means of patronage nor created a popular basis of support in the shires.

Economic crisis and cultural change
      Although the outbreak of the Black Death in 1348 dominated the economy of the 14th century, a number of adversities had already occurred in the preceding decades. Severe rains in 1315 and 1316 caused famine, which led to the spread of disease. Animal epidemics in succeeding years added to the problems, as did an increasing shortage of currency in the 1330s. Economic expansion, which had been characteristic of the 13th century, had slowed to a halt. The Black Death, possibly a combination of bubonic and pneumonic plagues, carried off from one-third to one-half of the population. In some respects it took time for its effects to become detrimental to the economy, but with subsequent outbreaks, as in 1361 and 1369, the population declined further, causing a severe labour shortage. By the 1370s wages had risen dramatically and prices of foodstuffs fallen. Hired labourers, being fewer, asked for higher wages and better food, and peasant tenants, also fewer, asked for better conditions of tenure when they took up land. Some landlords responded by trying to reassert labour services where they had been commuted. The Ordinance (1349) and Statute (1351) of Labourers tried to set maximum wages at the levels of the pre-Black Death years, but strict enforcement proved impossible. The Peasants' Revolt of 1381 was one result of the social tension caused by the adjustments needed after the epidemic. Great landlords saw their revenues fall as a result of the Black Death, although probably by only about 10 percent, whereas for the lower orders of society real wages rose sharply by the last quarter of the 14th century because of low grain prices and high wages.

      Edward III ruined the major Italian banking companies in England by failing to repay loans early in the Hundred Years' War. This provided openings for English merchants, who were given monopolies of wool exports by the crown in return for their support. The most notable was William de la Pole of Hull, whose family rose to noble status. Heavy taxation of wool exports was one reason for the growth of the cloth industry and cloth exports in the 14th century. The wine trade from Gascony was also important. In contrast to the 13th century, no new towns were founded, but London in particular continued to prosper despite the ravages of plague.

 In cultural terms, a striking change in the 14th century was the increasing use of English. Although an attempt to make the use of English mandatory in the law courts failed because lawyers claimed that they could not plead accurately in the language, the vernacular began to creep into public documents and records. Henry of Lancaster even used English when he claimed the throne in 1399. Chaucer wrote in both French and English, but his important poetry is in the latter. The early 14th century was an impressive age for manuscript illumination in England, with the so-called East Anglian school, of which the celebrated Luttrell Psalter represents a late example. In ecclesiastical architecture the development of the Perpendicular style, largely in the second half of the 14th century, was particularly notable.

Lancaster (Lancaster, House of) and York (York, house of)
      Recent scholarship has done much to transform the view that the 15th century was a period dominated by a factious nobility, when constructive achievements were few. In particular, the character of the nobility has been reconceived, and the century has emerged in a more positive light. It appears that even in politics and administration much was done that anticipated the achievements of the Tudors, while in the economy the foundations for future growth and prosperity were laid.

Henry IV (1399–1413)
      Henry of Lancaster gave promise of being able to develop a better rapport with his people than his predecessor, Richard II. He was a warrior of great renown who had traveled to Jerusalem and had fought in Prussia against infidels. He also had a reputation for affability and for statesmanlike self-control, and he had won his crown with the support of “the estates of the realm.” It did not matter much whether that meant Parliament or something more vague and symbolic. Henry, however, intended to rule as a true king, with the prerogatives of the crown unimpaired, whereas his Parliaments, from the first, expected him to govern with the advice and consent of his council, and to listen to Parliament regarding requests for money. Thus although Archbishop Arundel (Arundel, Thomas) stressed in 1399 that Henry wished to be properly advised and that he intended to be governed by common advice and counsel, some argument and conflict was inevitable.

The rebellions
      Henry's immediate task after his accession was to put down a rebellion threatening to restore Richard. The earls of Rutland, Kent, and Huntingdon, supported by the bishop of Carlisle, conspired against the king. The rising was unexpected, but Henry won support in London and defeated the rebels near Cirencester. More significant was the revolt of Owain Glyn Dwr (Glendower, Owen) that broke out in 1399 and became serious in 1402. Glyn Dwr sought a French alliance and captured Edmund Mortimer, uncle of the Earl of March, Richard II's legitimate heir. Mortimer was persuaded to join the rebellion, which now aimed to make March king. In 1403 the Welsh rebels joined the Percys (Percy Family) of Northumberland in a powerful coalition. The younger Percy, “Hotspur (Percy, Sir Henry),” was killed at Shrewsbury in 1403. The elder was pardoned, only to rebel once more in 1405, again in conjunction with Glyn Dwr. Henry broke the alliance with a victory at Shipton Moor. Percy was finally killed in 1408, but Glyn Dwr, driven into the mountains of North Wales, was never captured.

Henry and Parliament
      Henry's relations with his Parliaments were uneasy. The main problem, of course, was money. Henry, as Duke of Lancaster, was a wealthy man, but as king he had forfeited some of his income by repudiating Richard II's tactics, though he also avoided Richard's extravagance. His needs were still great, threatened as he was by rebellion in England and war in France. A central issue was Parliament's demand, as in 1404, that the king take back all royal land that had been granted and leased out since 1366. This was so that he might “live of his own.” The king could hardly adopt a measure that would cause much upheaval. Arguments in 1406 were so protracted that the Parliament met for 159 days, becoming the longest Parliament of the medieval period. On several occasions the Commons insisted on taxes being spent in the way that they wished, primarily on the defense of the realm.

      The later Parliaments of Henry's reign brought no new problems, but the king became less active in government as he was more and more incapacitated by illness. From 1408 to 1411 the government was dominated first by Archbishop Arundel and then by the king's son Henry, who, with the support of the Beaufort brothers, sons of John of Gaunt by Katherine Swynford, attempted to win control over the council. There was much argument over the best political strategy to adopt in France, where civil war was raging; young Henry wanted to resume the war in France, but the king favoured peace. In 1411 the king recovered his authority, and the Prince of Wales was dismissed from the council. Uneasy relations between the prince and his father lasted until Henry IV's death in 1413.

Henry V (1413–22)
      Henry V's brief reign is important mainly for the glorious victories in France, which visited on his infant son the enormous and not-so-glorious burden of governing both France and England. Two rebellions undermined the security of the realm in the first two years of the reign. The first was organized by Sir John Oldcastle (Oldcastle, Sir John), a Lollard and former confidant of the king. Though Oldcastle was not arrested until 1417, little came of his rising. Another plot gathered around Richard, 5th Earl of Cambridge, a younger brother of the Duke of York. The aim was to place the Earl of March on the throne, but March himself gave the plot away, and the leading conspirators were tried and executed on the eve of the king's departure for France.

The French war
      Henry invaded France in 1415 with a small army of some 9,000 men. The siege of Harfleur was followed by a march toward Calais. At Agincourt the English were forced to fight because their route onward was blocked; they won an astonishing victory. Between 1417 and 1419 Henry followed up this success with the conquest of Normandy and the grant of Norman lands to English nobles and lesser men. This was a new strategy for the English to adopt, replacing the plundering raids of the past. In 1420 in the Treaty of Troyes it was agreed that Henry would marry Catherine, Charles VI's daughter. He was to be heir to the French throne, and that throne was to descend to his heirs in perpetuity. But Charles VI's son, the Dauphin (Charles VII), was not a party to the treaty, and so the war continued. Henry, still wanting money but reluctant to ask for subsidies at a time when he needed all the support he could get for the treaty, obtained forced loans. There were increasing indications of unease in England. In 1422 Henry contracted dysentery and died at the siege of Meaux in August, leaving as his heir a son less than a year old.

Domestic affairs
      England was competently governed under Henry V. Problems of law and order were dealt with by reviving the use of the King's Bench as a traveling court; central and local administration operated smoothly. Henry proved adept at persuading men to serve him energetically for limited rewards. Parliament, well-satisfied with the course of events in France, gave the king all the support he needed. War finance was efficiently managed, and although Henry died in debt, the level was a manageable one. His was a most successful reign.

Henry VI (1422–61 and 1470–71)
      Henry VI was a pious and generous man, but he lacked the attributes needed for effective kingship. Above all he lacked political sense and was no judge of men. Until 1437 he was a child, under the regency of a council of nobles dominated by his uncles and his Beaufort (Beaufort Family) kin. When he was declared of age, the Beauforts were the real rulers of England. In 1445, through the initiative of the Earl (later Duke) of Suffolk (Suffolk, William de la Pole, 1st Duke of, Marquess Of Suffolk, Earl Of Pembroke, Earl Of Suffolk), he married Margaret of Anjou, who with Suffolk dominated the king. Finally, in the period from 1450 to 1461 he suffered two bouts of mental illness. During these crises Richard, 3rd Duke of York, ruled the kingdom as protector.

Domestic rivalries and the loss of France
      In the first period of the reign John, Duke of Bedford (Bedford, John Plantagenet, duke of), proved to be as able a commander in the French war as had his brother Henry V. But in 1429 Joan of Arc (Joan of Arc, Saint) stepped forth and rallied French resistance. Bedford died in 1435, and the Congress of Arras, an effort at a general peace settlement, failed. When Philip of Burgundy (Philip III) deserted the English alliance and came to terms with Charles VII, the conflict became a war of attrition. By 1453 the English had lost all their overseas possessions save Calais.

      Despite the factional nature of politics, there was no breakdown at home. The country was ruled by a magnate council with the increasingly reluctant financial support of Parliament. Humphrey, Duke of Gloucester (Gloucester, Humphrey Plantagenet, Duke of), and Henry Beaufort (Beaufort, Henry), bishop of Winchester (cardinal from 1426), were the dominant figures. The main problem was financing the war. The bishop had great wealth, which he increased by lending to the crown, receiving repayment out of the customs. Divisions in the council became more acute after 1435, with Gloucester advocating an aggressive war policy. He was, however, discredited when his wife was accused of witchcraft in 1441.

      In 1447 both Cardinal Beaufort and Gloucester died, the latter in suspicious circumstances. The Duke of Suffolk was in the ascendant; he had negotiated a peace with France in 1444 and arranged the king's marriage to Margaret of Anjou in 1445. When war was renewed in 1446, the English position in Normandy collapsed. Becoming the scapegoat for the English failure, Suffolk was impeached in the Parliament of March 1450. As he was fleeing into exile, he was slain by English sailors from a ship called the Nicholas of the Tower. Edmund Beaufort, 2nd Duke of Somerset, succeeded him as leader of the court party.

Cade's rebellion
      Less than three months later Jack Cade (Cade, Jack), a man of obscure origins, led a popular rebellion in southeastern England. In contrast to the rising of 1381, this was not a peasant movement; Cade's followers included many gentry, whose complaints were mainly about lack of government rather than economic repression. Thus the remedies they proposed were political, such as the resumption of royal estates that had been granted out, the removal of corrupt councillors, and improved methods of collecting taxes. The rebels demanded that the king accept the counsel of Henry's rival, the Duke of York. They executed Lord Saye and Sele, the treasurer, and the sheriff of Kent, but the rising was soon put down.

The beginning of the Wars of the Roses (Roses, Wars of the)
      The so-called Wars of the Roses was the struggle between the Yorkist and Lancastrian descendants of Edward III for control of the throne and of local government. The origins of the conflict have been the subject of much debate. It can be seen as brought about as a result of Henry VI's inadequacy and the opposition of his dynastic rival Richard, Duke of York, but local feuds between magnates added a further dimension. Because of the crown's failure to control these disputes, they acquired national significance. Attempts have been made to link these civil conflicts to what is known as “bastard feudalism,” the system that allowed magnates to retain men in their service by granting them fees and livery and made possible the recruiting of private armies. Yet this system can be seen as promoting stability in periods of strong rule as well as undermining weak rule such as that of Henry VI. Many nobles sought good government, rather than being factious, and were only forced into war by the king's incompetence. The outbreak of civil war in England was indirectly linked to the failure in France, for Henry VI's government had suffered a disastrous loss of prestige and, with it, authority.

      The Duke of York (York, Richard, 3rd duke of) had a claim to the throne in two lines of descent. One was through his mother, great-granddaughter of Lionel of Antwerp, Duke of Clarence, second surviving son of Edward III, and the other was through his father, son of Edmund of Langley, 1st Duke of York, fourth surviving son of Edward III. According to feudal principles he had a better hereditary right than anyone of the Lancastrian line. He had been sent as royal lieutenant to Ireland in 1446, but he returned from there with 4,000 men in 1450 to reassert his right to participate in the king's council and to counter Somerset's machinations. In 1454 York was made protector of the king, who had become insane in 1453, even though the queen and court party had tried to disguise the king's illness. Early in 1455 Henry recovered his wits. During his spell of insanity his queen had a son, Edward, which changed the balance of politics. York was no longer the heir apparent, and the country was faced with the prospect, should the king die, of another lengthy minority.

      In 1455 York gathered forces in the north, alleging that he could not safely attend a council called to meet at Leicester without the support of his troops. He met the king at St. Albans (Saint Albans, battles of). Negotiations were unsuccessful, and in the ensuing battle York's forces, larger than the king's, won a decisive victory. Somerset was slain and the king captured. A Yorkist regime was set up, with York as constable and the Earl of Warwick (Warwick, Richard Neville, 1st earl of, 2nd earl of Salisbury), emerging as the strong support of the Yorkist cause, as captain of Calais. The king fell ill again in the autumn of 1455, and York was again protector for a brief period; the king, however, recovered early in 1456.

      Hostilities were renewed in 1459. The Yorkists fled without fighting before a royal force at Ludford Bridge, but the Lancastrians failed to make the most of the opportunity. Demands for money, purveyances, and commissions of array increased the burdens but not the benefits of Lancastrian rule. The earls of Warwick and Salisbury, with York's son Edward, used Calais as a base from which to invade England, landing at Sandwich in 1460. A brief battle at Northampton in July went overwhelmingly for the Yorkists, and the king was captured. At Parliament the Duke of York claimed the throne as heir to Richard II. The Commons and judges refused to consider a matter so high, leaving it to the Lords' decision. During the fortnight of debate the Lancastrians regrouped, and when Richard met them at Wakefield, he was defeated and killed. Warwick, somewhat later, was defeated at St. Albans.

      The Yorkist cause would have been lost if it had not been for Richard's son, Edward, Earl of March, who defeated the Lancastrians first at Mortimer's Cross and then at Towton (Towton, Battle of) Moor early in 1461. He was crowned king on June 28, but dated his reign from March 4, the day the London citizens and soldiers recognized his right as king.

Edward IV (1461–70 and 1471–83)
      During the early years of his reign, from 1461 to 1470, Edward was chiefly concerned with putting down opposition to his rule. Lancastrian resistance in the northeast and in Wales caused problems. France and Burgundy were also of concern because Margaret of Anjou's chief hope of recovering Lancastrian fortunes lay in French support; but Louis XI was miserly in his aid. Edward's main internal problem lay in his relations with Warwick, who had been his chief supporter in 1461. Richard Neville, 1st (or 16th) Earl of Warwick, called “the Kingmaker,” was cousin to the king and related to much of the English nobility. Edward, however, refused to be dominated by him, particularly with respect to his marriage. When the crucial moment came in Warwick's negotiations for the king to marry the French king's sister-in-law, Edward disclosed his secret marriage in 1464 to a commoner, Elizabeth Woodville. The marriage of the king's sister to Charles the Bold (Charles) of Burgundy was a success for the Woodvilles, for Warwick was not involved in the negotiations. Warwick allied himself to Edward's younger brother George, Duke of Clarence (Clarence, George Plantagenet, duke of), and ultimately, through the machinations of Louis XI, joined forces with Margaret of Anjou, deposed Edward in 1470, and brought back Henry VI. The old king, dressed in worn and unregal clothing, was from time to time exhibited to the London citizens, while Warwick conducted the government. Edward IV went into brief exile in the Netherlands. But with the help of his brother-in-law, Charles the Bold, he recovered his throne in the spring of 1471 after a rapid campaign with successes at Barnet and Tewkesbury. Henry VI was put to death in the Tower, and his son was killed in battle.

      The second half of Edward's reign, 1471–83, was a period of relative order, peace, and security. The one event reminiscent of the politics of the early reign was the trial of the Duke of Clarence, who was attainted in Parliament in 1478 and put to death, reputedly by drowning in a butt of Malmsey wine. But Edward was popular. Because his personal resources from the duchy of York were considerable and because he agreed early in his reign to acts of resumption whereby former royal estates were taken back into royal hands, Edward had a large personal income and was less in need of parliamentary grants than his predecessors had been. Thus he levied few subsidies and called Parliament only six times. Among the few subsidies Edward did levy were benevolences, supposedly voluntary gifts, from his subjects primarily to defray the expenses of war. In 1475 Edward took an army to France but accepted a pension from the French king for not fighting, thereby increasing his financial independence still further. Councils were set up to govern in the Marches of Wales and in the north, where Edward's brother Richard presided efficiently. Edward's rule was characterized by the use of his household, its servants, and its departments, such as the chamber. He was a pragmatic ruler, whose greatest achievement was to restore the prestige of the monarchy. Where he failed was to make proper provision for the succession after his death.

      Edward (Edward V) died in 1483, at age 40, worn out, it was said, by sexual excesses and by debauchery. He left two sons, Edward and Richard, to the protection of his brother Richard, Duke of Gloucester. After skirmishes with the queen's party Richard placed both of the boys in the Tower of London, then a royal residence as well as a prison. He proceeded to eliminate those who opposed his function as protector and defender of the realm and guardian to the young Edward V. Even Lord Hastings (Hastings, William Hastings, Baron), who had sent word to Richard of Edward IV's death and who had warned him against the queen's party, was accused of treachery and was executed. On the day after the date originally set for Edward V's coronation the Lords and Commons summoned to Parliament unanimously adopted a petition requesting Richard to take over the throne. He accepted and was duly crowned king on July 6, taking the oath in English.

Richard III (1483–85)
      Richard was readily accepted no doubt because of his reputed ability and because people feared the insecurity of a long minority. The tide began to turn against him in October 1483, when it began to be rumoured that he had murdered or connived at the murder of his nephews. Whether this was true or not matters less than the fact that it was thought to be true and that it obscured the king's able government during his brief reign. Legislation against benevolences and protection for English merchants and craftsmen did little to counteract his reputation as a treacherous friend and a wicked uncle. Rebellion failed in 1483. But in the summer of 1485, when Henry Tudor, sole male claimant to Lancastrian ancestry and the throne, landed at Milford Haven, Richard's supporters widely deserted him, and he was defeated and killed at the Battle of Bosworth Field (Bosworth Field, Battle of).

England in the 15th century
      Central to all social change in the 15th century was change in the economy. Although plague remained endemic in England, there was little change in the level of population. Villein labour service largely disappeared, to be replaced by copyhold tenure (tenure by copy of the record of the manorial court). The period has been considered a golden age for the English labourer, but individual prosperity varied widely. There was a well-developed land market among peasants, some of whom managed to rise above their neighbours and began to constitute a class called yeomen. Large landlords entirely abandoned direct management of their estates in favour of a leasehold system. In many cases they faced growing arrears of rent and found it difficult to maintain their income levels. Because many landholders solved the problem of labour shortage by converting their holdings to sheep pasture, much land enclosure took place. As a result a great many villages were abandoned by their inhabitants.

      Though England remained a predominantly agrarian society, significant development and change occurred in the towns. London continued to grow, dominating the southeast. Elsewhere the development of the woolen industry brought major changes. Halifax and Leeds grew at the expense of York, and the West Riding at the expense of the eastern part of Yorkshire. Suffolk and the Cotswold region became important in the national economy. As the cloth trade grew in importance, so did the association of the Merchant Adventurers. The merchants of the Staple, who had a monopoly on the export of raw wool, did less well. Italian merchants prospered in 15th-century England, and important privileges were accorded to the German Hanseatic merchants by Edward IV.

      Culturally the 15th century was a period of sterility. Monastic chronicles came to an end, and the writing of history declined. Thomas Walsingham (d. c. 1422) was the last of a distinguished line of St. Albans chroniclers. Although there were some chronicles written by citizens of London as well as two lives of Henry V, distinguished works of history did not come until later. Neither were there any superior works of philosophy or theology. Reginald Pecock, an arid Scholastic philosopher, wrote an English treatise against the Lollards and various other works emphasizing the rational element in the Christian faith; he was judged guilty of heresy for his pains. No noteworthy poets succeeded Chaucer, though a considerable quantity of English poetry was written in this period. John Lydgate produced much verse in the Lancastrian interest. The printer William Caxton set up his press in 1476 to publish English works for the growing reading public. The first great collections of family correspondence, those of the Pastons, Stonors, and Celys, survive from this period.

      The 15th century, however, was an important age in the foundation of schools and colleges. Some schools were set up as adjuncts to chantries, some by guilds, and some by collegiate churches. Henry VI founded Eton College in 1440 and King's College, Cambridge (Cambridge, University of), in 1441. Other colleges at Oxford and Cambridge were also founded in this period. The Inns of Court expanded their membership and systematized their teaching of law. Many gentlemen's sons became members of the Inns, though not necessarily lawyers: they needed the rudiments of law to be able to defend and extend their estates. The influence of the Italian Renaissance in learning and culture was very limited before 1485, although there were some notable patrons, such as Humphrey, Duke of Gloucester, who collected books and supported scholars interested in the new learning.

      Only in architecture did England show great originality. Large churches were built in English Perpendicular style, especially in regions made rich by the woolen industry. The tomb of Richard Beauchamp at Warwick and King's College Chapel in Cambridge show the quality of English architecture and sculpture in the period.

Margaret Hastings Michael Charles Prestwich

England under the Tudors (Tudor, House of)
Henry VII (1485–1509)
 When Henry Tudor, earl of Richmond (Henry VII), seized the throne on Aug. 22, 1485, leaving the Yorkist Richard III dead upon the field of battle, few Englishmen would have predicted that 118 years of Tudor (Tudor, House of) rule had begun. Six sovereigns had come and gone, and at least 15 major battles had been fought between rival contenders to the throne since that moment in 1399 when the divinity that “doth hedge a king” was violated and Richard II was forced to abdicate. Simple arithmetic forecast that Henry VII would last no more than a decade and that the Battle of Bosworth Field (Bosworth Field, Battle of) was nothing more than another of the erratic swings of the military pendulum in the struggle between the house of York (York, house of) and the house of Lancaster (Lancaster, House of). What gave Henry Tudor victory in 1485 was not so much personal charisma as the fact that key noblemen deserted Richard III at the moment of his greatest need, that Thomas Stanley (Derby, Thomas Stanley, 1st earl of) (2nd Baron Stanley) and his brother Sir William stood aside during most of the battle in order to be on the winning team, and that Louis XI of France supplied the Lancastrian forces with 1,000 mercenary troops.

      The desperateness of the new monarch's gamble was equalled only by the doubtfulness of his claim. Henry VII's Lancastrian blood was tainted by bastardy twice over. He was descended on his mother's side from the Beaufort Family, the offspring of John of Gaunt (John of Gaunt, duke of Lancaster) and his mistress Katherine Swynford, and, though their children had been legitimized by act of Parliament, they had been specifically barred from the succession. His father's genealogy was equally suspect: Edmund Tudor, earl of Richmond, was born to Catherine Of Valois, widowed queen of Henry V, by her clerk of the wardrobe, Owen Tudor, and the precise marital status of their relationship has never been established. Had quality of Plantagenet (Plantagenet, house of) blood, not military conquest, been the essential condition of monarchy, Edward, earl of Warwick, the 10-year-old nephew of Edward IV, would have sat upon the throne. Might, not soiled right, had won out on the high ground at Bosworth Field, and Henry VII claimed his title by conquest. The new king wisely sought to fortify his doubtful genealogical pretension, however, first by parliamentary acclamation and then by royal marriage. The Parliament of November 1485 did not confer regal power on the first Tudor monarch—victory in war had already done that—but it did acknowledge Henry as “our new sovereign lord.” Then, on Jan. 18, 1486, Henry VII married Elizabeth of York, the eldest daughter of Edward IV, thereby uniting “the white rose and the red” and launching England upon a century of “smooth-fac'd peace with smiling plenty.”

      “God's fair ordinance,” which Shakespeare and later generations so clearly observed in the events of 1485–86, was not limited to military victory, parliamentary sanction, and a fruitful marriage; the hidden hand of economic, social, and intellectual change was also on Henry's side. The day was coming when the successful prince would be more praised than the heroic monarch and the solvent sovereign more admired than the pious one. Henry Tudor was probably no better or worse than the first Lancastrian, Henry IV; they both worked diligently at their royal craft and had to fight hard to keep their crowns, but the seventh Henry achieved what the fourth had not—a secure and permanent dynasty—because England in 1485 was moving into a period of unprecedented economic growth and social change.

Economy and society
      By 1485 the kingdom had begun to recover from the demographic catastrophe of the Black Death and the agricultural (agriculture, origins of) depression of the late 14th century. As the 15th century came to a close, the rate of population growth began to increase and continued to rise throughout the following century. The population, which in 1400 may have dropped as low as 2.5 million, had by 1600 grown to about 4 million. More people meant more mouths to feed, more backs to cover, and more vanity to satisfy. In response, yeoman farmers, gentleman sheep growers, urban cloth manufacturers, and merchant adventurers produced a social and economic revolution. With extraordinary speed, the export of raw wool gave way to the export of woolen cloth manufactured at home, and the wool clothier or entrepreneur was soon buying fleece from sheep raisers, transporting the wool to cottagers for spinning and weaving, paying the farmer's wife and children by the piece, and collecting the finished article for shipment to Bristol, London, and eventually Europe. By the time Henry VII seized the throne, the Merchant Adventurers, an association of London cloth exporters, were controlling the London-Antwerp market. By 1496 they were a chartered organization with a legal monopoly of the woolen cloth trade, and, largely as a consequence of their political and international importance, Henry successfully negotiated the Intercursus Magnus, a highly favourable commercial treaty between England and the Low Countries.

      As landlords increased the size of their flocks to the point that ruminants outnumbered human beings 3 to 1 and as clothiers grew rich on the wool trade, inflation injected new life into the economy. England was caught up in a vast European spiral of rising prices, declining real wages, and cheap money. Between 1500 and 1540, prices in England doubled, and they doubled again in the next generation. In 1450 the cost of wheat was what it had been in 1300; by 1550 it had tripled. Contemporaries blamed inflation on human greed and only slowly began to perceive that rising prices were the result of inflationary pressures brought on by the increase in population, international war, and the flood of gold and silver arriving from the New World.

      Inflation and the wool trade together created an economic and social upheaval. A surfeit of land, a labour shortage, low rents, and high wages, which had prevailed throughout the early 15th century as a consequence of economic depression and reduced population, were replaced by a land shortage, a labour surplus, high rents, and declining wages. The landlord, who a century before could find neither tenants nor labourers for his land and had left his fields fallow, could now convert his meadows into sheep runs. His rents and profits soared; his need for labour declined, for one shepherd and his dog could do the work of half a dozen men who had previously tilled the same field. Slowly the medieval system of land tenure and communal farming broke down. The common land of the manor was divided up and fenced in, and the peasant farmer who held his tenure either by copy (a document recorded in the manor court) or by unwritten custom was evicted.

      The total extent of enclosure and eviction is difficult to assess, but, between 1455 and 1607, in 34 counties more than 500,000 acres (200,000 hectares), or about 2.75 percent of the total, were enclosed, and some 50,000 persons were forced off the land. Statistics, however, are deceptive regarding both the emotional impact and the extent of change. The most disturbing aspect of the land revolution was not the emergence of a vagrant and unemployable labour force for whom society felt no social responsibility but an unprecedented increase in what men feared most—change. Farming techniques were transformed, the gap between rich and poor increased, the timeless quality of village life was upset, and, on all levels of society, old families were being replaced by new.

      The beneficiaries of change, as always, were the most grasping, the most ruthless, and the best educated segments of the population: the landed country gentlemen and their socially inferior cousins, the merchants and lawyers. By 1500 the essential economic basis for the landed country gentleman's future political and social ascendancy was being formed: the 15th-century knight of the shire was changing from a desperate and irresponsible land proprietor, ready to support the baronial feuding of the Wars of the Roses (Roses, Wars of the), into a respectable landowner desiring strong, practical government and the rule of law. The gentry did not care whether Henry VII's royal pedigree could bear close inspection; their own lineage was not above suspicion, and they were willing to serve the prince “in parliament, in council, in commission and other offices of the commonwealth.”

Dynastic threats
      It is no longer fashionable to call Henry VII a “new monarch,” and, indeed, if the first Tudor had a model for reconstructing the monarchy, it was the example of the great medieval kings. Newness, however, should not be totally denied Henry Tudor; his royal blood was very “new,” and the extraordinary efficiency of his regime introduced a spirit into government that had rarely been present in the medieval past. It was, in fact, “newness” that governed the early policy of the reign, for the Tudor dynasty had to be secured and all those with a better or older claim to the throne liquidated. Elizabeth of York was deftly handled by marriage; the sons of Edward IV had already been removed from the list, presumably murdered by their uncle Richard III; and Richard's nephew Edward Plantagenet, the young earl of Warwick, was promptly imprisoned. But the descendants of Edward IV's sister and daughters remained a threat to the new government. Equally dangerous was the persistent myth that the younger of the two princes murdered in the Tower of London had escaped his assassin and that the earl of Warwick had escaped his jailers.

      The existence of pretenders acted as a catalyst for further baronial discontent and Yorkist aspirations, and in 1487 John de la Pole, a nephew of Edward IV by his sister Elizabeth, with the support of 2,000 mercenary troops paid for with Burgundian gold, landed in England to support the pretensions of Lambert Simnel (Simnel, Lambert), who passed himself off as the authentic earl of Warwick. Again Henry Tudor was triumphant in war; at the Battle of Stoke, de la Pole was killed and Simnel captured and demoted to a scullery boy in the royal kitchen. Ten years later Henry had to do it all over again, this time with a handsome Flemish lad named Perkin Warbeck (Warbeck, Perkin), who for six years was accepted in Yorkist circles in Europe as the real Richard IV, brother of the murdered Edward V. Warbeck tried to take advantage of Cornish anger against heavy royal taxation and increased government efficiency and sought to lead a Cornish army of social malcontents against the Tudor throne. It was a measure of the new vigour and popularity of the Tudor monarchy, as well as the support of the gentry, that social revolution and further dynastic war were total failures, and Warbeck found himself in the Tower along with the earl of Warwick. In the end both men proved too dangerous to live, even in captivity, and in 1499 they were executed.

      The policy of dynastic extermination did not cease with the new century. Under Henry VIII, the duke of Buckingham (Buckingham, Edward Stafford, 3rd Duke of) (who was descended from the youngest son of Edward III) was killed in 1521; the earl of Warwick's sister, the countess of Salisbury, was beheaded in 1541 and her descendants harried out of the land; and in January 1547 the poet Henry Howard, earl of Surrey (Surrey, Henry Howard, Earl of), the grandson of Buckingham, was put to death. By the end of Henry VIII's reign, the job had been so well done that the curse of Edward III's fecundity had been replaced by the opposite problem: the Tudor line proved to be infertile when it came to producing healthy male heirs. Henry VII sired Arthur, who died in 1502, and Henry VIII in turn produced only one legitimate son, Edward VI, who died at the age of 16, thereby ending the direct male descent.

Financial policy
      It was not enough for Henry VII to secure his dynasty; he also had to reestablish the financial credit of his crown and reassert the authority of royal law. Medieval kings had traditionally lived off four sources of nonparliamentary income: rents from the royal estates, revenues from import and export taxes, fees from the administration of justice, and feudal (feudalism) moneys extracted on the basis of a vassal's duty to his overlord. The first Tudor was no different from his Yorkist or medieval predecessors; he was simply more ruthless and successful in demanding every penny that was owed him. Henry's first move was to confiscate all the estates of Yorkist adherents and to restore all property over which the crown had lost control since 1455 (in some cases as far back as 1377). To these essentially statutory steps he added efficiency of rent collection. In 1485 income from crown lands had totalled £29,000; by 1509 annual land revenues had risen to £42,000, and the profits from the duchy of Lancaster had jumped from £650 to £6,500. At the same time, the Tudors profited from the growing economic prosperity of the realm, and annual customs receipts rose from more than £20,000 to an average of £40,000 by the time Henry died.

      The increase in customs and land revenues was applauded, for it meant fewer parliamentary subsidies and fit the medieval formula that kings should live on their own, not parliamentary, income. But the collection of revenues from feudal and prerogative sources and from the administration of justice caused great discontent and earned Henry his reputation as a miser and extortionist. Generally, Henry demanded no more than his due as the highest feudal overlord, and, a year after he became sovereign, he established a commission to look into land tenure to discover who held property by knight's fee—that is, by obligation to perform military services. Occasionally he overstepped the bounds of feudal decency and abused his rights. In 1504, for instance, he levied a feudal aid (tax) to pay for the knighting of his son—who had been knighted 15 years before and had been dead for two. Henry VIII continued his father's policy of fiscal feudalism, forcing through Parliament in 1536 the Statute of Uses—to prevent any landowner (use) from escaping “ relief” and wardship (wardship and marriage) (feudal inheritance taxes) by settling the ownership of his lands in a trustee for the sole benefit (“use”) of himself—and establishing the Court of Wards and Liveries in 1540 to handle the profits of feudal wardship. The howl of protest was so great that in 1540 Henry VIII had to compromise, and by the Statute of Wills a subject who held his property by knight's fee was permitted to bequeath two-thirds of his land without feudal obligation.

      To fiscal feudalism Henry VII added rigorous administration of justice. As law became more effective, it also became more profitable, and the policy of levying heavy fines as punishment upon those who dared break the king's peace proved to be a useful whip over the mighty magnate and a welcome addition to the king's exchequer. Even war and diplomacy were sources of revenue; one of the major reasons Henry VII wanted his second son, Henry, to marry his brother's widow was that the king was reluctant to return the dowry of 200,000 crowns that Ferdinand and Isabella of Spain had given for the marriage of their daughter Catherine of Aragon. Generally, Henry believed in a good-neighbour policy—apparent in his alliance with Spain by the marriage of Arthur and Catherine in 1501 and peace with Scotland by the marriage of his daughter Margaret (Margaret Tudor) to James IV in 1503—on the grounds that peace was cheap and trade profitable. In 1489, however, he was faced with the threat of the union of the duchy of Brittany with the French crown; and England, Spain, the empire, and Burgundy went to war to stop it. Nevertheless, as soon as it became clear that nothing could prevent France from absorbing the duchy, Henry negotiated the unheroic but financially rewarding Treaty of Étaples in 1492, whereby he disclaimed all historic rights to French territory (except Calais) in return for an indemnity of £159,000. By fair means or foul, when the first Tudor died, his total nonparliamentary annual income had risen at least twofold and stood in the neighbourhood of £113,000 (some estimates put it as high as £142,000). From land alone the king received £42,000, while the greatest landlord in the realm had to make do with less than £5,000; economically speaking, there were no longer any overmighty magnates.

The administration of justice
      Money could buy power, but respect could only be won by law enforcement. The problem for Henry VII was not to replace an old system of government with a new one—no Tudor was consciously a revolutionary—but to make the ancient system work tolerably well. He had to tame but not destroy the nobility, develop organs of administration directly under his control, and wipe out provincialism and privilege wherever they appeared. In the task of curbing the old nobility, the king was immeasurably helped by the high aristocratic death rate during the Wars of the Roses; but where war left off, policy took over. Commissions of Array composed of local notables were appointed by the crown for each county in order to make use of the power of the aristocracy in raising troops but to prevent them from maintaining private armies (livery) with which to intimidate justice (maintenance) or threaten the throne.

      Previous monarchs had sought to enforce the laws against livery and maintenance, but the first two Tudors, though they never totally abolished such evils, built up a reasonably efficient machine for enforcing the law, based on the historic premise that the king in the midst of his council was the fountain of justice. Traditionally, the royal council had heard all sorts of cases, and its members rapidly began to specialize. The Court of Chancery (Chancery, Court of) had for years dealt with civil offenses, and the Court of Star Chamber (Star Chamber, Court of) evolved to handle alleged corruption of justice (intimidation of witnesses and jurors, bribing of judges, etc.), the Court of Requests (Requests, Court of) poor men's suits, and the High Court of Admiralty piracy. The process by which the conciliar courts developed was largely accidental, and the Court of Star Chamber acquired its name from the star-painted ceiling of the room in which the councillors sat, not from the statute of 1487 that recognized its existence. Conciliar justice was popular because the ordinary courts where common law prevailed were slow, cumbersome, and more costly; favoured the rich and mighty; and tended to break down when asked to deal with riot, maintenance, livery, perjury, and fraud. The same search for efficiency applied to matters of finance. The traditional fiscal agency of the crown, the Exchequer, was burdened with archaic procedures and restrictions, and Henry VII turned to the more intimate and flexible departments of his personal household—specifically to the treasurer of the chamber, whom he could supervise directly—as the central tax-raising, rent-collecting, and money-disbursing segment of government.

      The Tudors sought to enforce law in every corner of their kingdom, and step by step the blurred medieval profile of a realm shattered by semiautonomous franchises, in which local law and custom were obeyed more than the king's law, was transformed into the clear outline of a single state filled with loyal subjects obeying the king's decrees. By 1500 royal government had been extended into the northern counties and Wales by the creation of the Council of the North and the Council for the Welsh Marches. The Welsh principalities had always been difficult to control, and it was not until 1536 that Henry VIII brought royal law directly into Wales and incorporated the 136 self-governing lordships into a greater England with five new shires.

      If the term new monarchy was inappropriate in 1485, the same cannot be said for the year of Henry VII's death, for when he died in 1509, after 24 years of reign, he bequeathed to his son something quite new in English history: a safe throne, a solvent government, a prosperous land, and a reasonably united kingdom. Only one vital aspect of the past remained untouched, the semi-independent Roman Catholic Church (Roman Catholicism), and it was left to the second Tudor to challenge its authority and plunder its wealth.

Henry VIII (1509–47)

  An 18-year-old prince inherited his father's throne, but the son of an Ipswich butcher carried on the first Tudor's administrative policies. While the young sovereign enjoyed his inheritance, Thomas Wolsey (Wolsey, Thomas, Cardinal) collected titles—archbishop of York in 1514, lord chancellor and cardinal legate in 1515, and papal legate for life in 1524. He exercised a degree of power never before wielded by king or minister, for, as lord chancellor and cardinal legate, he united in his portly person the authority of church and state. He sought to tame both the lords temporal and the lords spiritual—administering to the nobility the “new law of the Star Chamber,” protecting the rights of the underprivileged in the poor men's Court of Requests, and teaching the abbots and bishops that they were subjects as well as ecclesiastical princes. Long before Henry assumed full power over his subjects' souls as well as their bodies, his servant had marked the way. The cardinal's administration, however, was stronger on promise than on performance, and, for all his fine qualities and many talents, he exposed himself to the accusation that he prostituted policy for pecuniary gain and personal pride.

 Together, the king and cardinal plunged the kingdom into international politics and war and helped to make England one of the centres of Renaissance learning and brilliance. But the sovereign and his chief servant overestimated England's international position in the Continental struggle between Francis I of France and the Holy Roman emperor Charles V. Militarily, the kingdom was of the same magnitude as the papacy—the English king had about the same revenues and could field an army about the same size—and, as one contemporary noted, England, with its back door constantly exposed to Scotland and its economy dependent upon the Flanders wool trade, was a mere “morsel among those choppers” of Europe. Nevertheless, Wolsey's diplomacy was based on the expectation that England could swing the balance of power either to France or to the empire and, by holding that position, could maintain the peace of Europe. The hollowness of the cardinal's policy was revealed in 1525 when Charles disastrously defeated and captured Francis at the Battle of Pavia (Pavia, Battle of). Italy was overrun with the emperor's troops, the pope became an imperial chaplain, all of Europe bowed before the conqueror, and England sank from being the fulcrum of Continental diplomacy to the level of a second-rate power just at the moment when Henry had decided to rid himself of his wife, the 42-year-old Catherine of Aragon.

The king's “Great Matter”
 It is still a subject of debate whether Henry's decision to seek an annulment of his marriage and wed Anne Boleyn was a matter of state, of love, or of conscience; quite possibly all three operated. Catherine was fat, seven years her husband's senior, and incapable of bearing further children. Anne was everything that the queen was not—pretty, vivacious, and fruitful. Catherine had produced only one child that lived past infancy, a girl, Princess Mary (later Mary I); it seemed ironic indeed that the first Tudor should have solved the question of the succession only to expose the kingdom to what was perceived as an even greater peril in the second generation: a female ruler. The need for a male heir was paramount, for the last queen of England, Matilda, in the 12th century, had been a disaster, and there was no reason to believe that another would be any better. Finally, there was the question of the king's conscience. Henry had married his brother's widow, and, though the pope had granted a dispensation, the fact of the matter remained that every male child born to Henry and Catherine had died, proof of what was clearly written in the Bible: “If a man takes his brother's wife, it is impurity; he has uncovered his brother's nakedness; they shall be childless” (Leviticus 20:21).

 Unfortunately, Henry's annulment was not destined to stand or fall upon the theological issue of whether a papal dispensation could set aside such a prohibition, for Catherine was not simply the king's wife; she was also the aunt of the emperor Charles V, the most powerful sovereign in Europe. Both Henry and his cardinal knew that the annulment would never be granted unless the emperor's power in Italy could be overthrown by an Anglo-French military alliance and the pope rescued from imperial domination, and for three years Wolsey worked desperately to achieve this diplomatic and military end. Caught between an all-powerful emperor and a truculent English king, Pope Clement VII procrastinated and offered all sorts of doubtful solutions short of annulment, including the marriage of Princess Mary and the king's illegitimate son, Henry Fitzroy, duke of Richmond; the legitimizing of all children begotten of Anne Boleyn; and the transfer of Catherine into a nunnery so that the king could be given permission to remarry. Wolsey's purpose was to have the marriage annulled and the trial held in London. But in 1529, despite the arrival of Lorenzo Cardinal Campeggio (Campeggio, Lorenzo) to set up the machinery for a hearing, Wolsey's plans exploded. In July the pope ordered Campeggio to move the case to Rome, where a decision against the king was a foregone conclusion, and in August Francis and the emperor made peace at the Treaty of Cambrai (Cambrai, Treaty of). Wolsey's policies were a failure, and he was dismissed from office in October 1529. He died on November 29, just in time to escape trial for treason.

The Reformation background
      Henry now began groping for new means to achieve his purpose. At first he contemplated little more than blackmail to frighten the pope into submission. But slowly, reluctantly, and not realizing the full consequences of his actions, he moved step by step to open defiance and a total break with Rome. Wolsey, in his person and his policies, had represented the past. He was the last of the great ecclesiastical statesmen who had been as much at home in the cosmopolitan world of European Christendom, with its spiritual centre in Rome, as in a provincial capital such as London. By the time of Henry's matrimonial crisis, Christendom was dissolving. Not only were late medieval kingdoms assuming the character of independent nation-states, but the spiritual unity of Christ's seamless cloak was also being torn apart by heresy. Henry possibly would never have won his annulment had there not existed in England men who desired a break with Rome, not because it was dynastically expedient but because they regarded the pope as the “whore of Babylon.”

 The religious life of the people was especially vibrant in the early decades of the 16th century, and, although there were numerous vociferous critics of clerical standards and behaviour, the institutional church was generally in good heart. Only during the extraordinary period in the 12th and 13th centuries, when money was being poured into the creation of parishes and the building of several thousand parish churches and 19 great cathedrals, was more spent on religion than in the decades between the arrival of the Tudors and the Reformation. And now it was not just great landowners but the people in general who poured money into their churches. Perhaps one in three parish churches underwent major refurbishments in this period. Hundreds of elaborate chantry chapels and altars were erected, money invested in parish guilds doubled (for the benefit of the living in the form of pensions and doles and for the benefit of the dead in the form of masses), and the number of those seeking ordination reached a new peak. In Bedfordshire at least charitable giving was highly selective; some religious orders were much more favoured than others. There is also some evidence that the monastic life and the endowment of monasteries were slowing down, but in essence the church was successfully meeting the spiritual needs of huge numbers of people.

      Precisely because of the religiosity of the people, there was a growing volume of complaint about clerical absenteeism and pluralism in general and about the unavailability of the bishops in particular. Many prelates served as the top civil servants of the crown rather than as shepherds of Christ's flock. And as inflation began to take off, so did attempts by clerics to maximize their incomes by a rather ruthless determination to collect everything to which they were entitled—such as the “best beasts” demanded as mortuary fees from grieving and impoverished parents of dead children. Spasmodic persecution had failed to eradicate the Lollard legacy of John Wycliffe (Wycliffe, John) in substantial pockets of southern England, and the infiltration of Lutheran (Lutheranism) books and of printed Bibles opened the eyes of some among the learned and among those who traded with the Baltic states and the Low Countries to the possibility of alternative ways of encountering God. The powerful force of the “Word” took hold of some and made the mumbling of prayers, the billowing of incense, and the selling of indulgences to rescue souls from the due penalty of their sins seem the stuff of idolatry and not of true worship. But in 1532, when Henry VIII began to contemplate a schism from Rome, embracing Protestantism was the last thing on his mind, and very few of his subjects would have wished him to do so.

The break with Rome
 With Wolsey and his papal authority gone, Henry turned to the authority of the state to obtain his annulment. The so-called Reformation Parliament that first met in November 1529 was unprecedented; it lasted seven years, enacted 137 statutes (32 of which were of vital importance), and legislated in areas that no medieval Parliament had ever dreamed of entering. “King in Parliament” became the revolutionary instrument by which the medieval church was destroyed.

      The first step was to intimidate the church, and in 1531 the representatives of the clergy who were gathered in Convocation were forced under threat of praemunire (a statute prohibiting the operation of the legal and financial jurisdiction of the pope without royal consent) to grant Henry a gift of £119,000 and to acknowledge him supreme head of the church “as far as the law of Christ allows.” Then the government struck at the papacy, threatening to cut off its revenues (annates); the Annates Statute (annates) of 1532 empowered Henry, if he saw fit, to abolish payment to Rome of the first year's income of all newly installed bishops. The implied threat had little effect on the pope, and time was running out, for by December 1532 Anne Boleyn was pregnant, and on Jan. 25, 1533, she was secretly married to Henry. If the king was to be saved from bigamy and if his child was to be born in holy wedlock, he had less than eight months to get rid of Catherine of Aragon. Archbishop William Warham (Warham, William) had conveniently died in August 1532, and in March 1533 a demoralized and frightened pontiff sanctioned the installation of Thomas Cranmer (Cranmer, Thomas) as primate of the English church.

      Cranmer was a friend of the annulment, but, before he could oblige his sovereign, the queen's right of appeal from the archbishop's court to Rome had to be destroyed; this could be done only by cutting the constitutional cords holding England to the papacy. Consequently, in April 1533 the crucial statute was enacted; the Act of Restraint of Appeals boldly decreed that “this realm of England is an empire.” A month later an obliging archbishop heard the case and adjudged the king's marriage to be null and void. On June 1 Anne was crowned rightful queen of England, and three months and a week later, on Sept. 7, 1533, the royal child was born. To “the great shame and confusion” of astrologers, it turned out to be Elizabeth Tudor (later Elizabeth I) (Elizabeth I).

      Henry was mortified; he had risked his soul and his crown for yet another girl. But Anne had proved her fertility, and it was hoped that a male heir would shortly follow. In the meantime it was necessary to complete the break with Rome and rebuild the Church of England (England, Church of). By the Act of Succession of March 1534, subjects were ordered to accept the king's marriage to Anne as “undoubted, true, sincere and perfect.” A second Statute “in Restraint of Annates” severed most of the financial ties with Rome, and in November the constitutional revolution was solemnized in the Act of Supremacy, which announced that Henry Tudor was and always had been “Supreme Head of the Church of England”; not even the qualifying phrase “as far as the law of Christ allows” was retained.

The consolidation of the Reformation
      The medieval tenet that church and state were separate entities with divine law standing higher than human law had been legislated out of existence; the new English church was in effect a department of the Tudor state. The destruction of the Roman Catholic Church led inevitably to the dissolution of the monasteries. As monastic (monasticism) religious fervour and economic resources had already begun to dry up, it was easy enough for the government to build a case that monasteries were centres of vice and corruption. In the end, however, what destroyed them was neither apathy nor abuse but the fact that they were contradictions within a national church, for religious foundations by definition were international, supranational organizations that traditionally supported papal authority.

      Though the monasteries bowed to the royal supremacy, the government continued to view them with suspicion, arguing that they had obeyed only out of fear, and their destruction got under way early in 1536. In the name of fiscal reform and efficiency, foundations with endowments of under £200 a year (nearly 400 of them) were dissolved on the grounds that they were too small to do their job effectively. By late 1536 confiscation had become state policy, for the Pilgrimage of Grace, a Roman Catholic-inspired uprising in the north, which appeared to the government to have received significant support from monastic clergy, seemed to be clear evidence that all monasteries were potential nests of traitors. By 1539 the foundations, both great and small, were gone. Moreover, property constituting at least 13 percent of the land of England and Wales was nationalized and incorporated into the crown lands, thereby almost doubling the government's normal peacetime, nonparliamentary income.

      Had those estates remained in the possession of the crown, English history might have been very different, for the kings of England would have been able to rule without calling upon Parliament, and the constitutional authority that evolved out of the crown's fiscal dependence on Parliament would never have developed. For better or for worse, Henry and his descendants had to sell the profits of the Reformation, and by 1603 three-fourths of the monastic loot had passed into the hands of the landed gentry. The legend of a “golden shower” is false; monastic property was never given away at bargain prices, nor was it consciously presented to the kingdom in order to win the support of the ruling elite. Instead, most—though not all—of the land was sold at its fair market value to pay for Henry's wars and foreign policy. The effect, however, was crucial: the most powerful elements within Tudor society now had a vested interest in protecting their property against papal Catholicism.

 The marriage to Anne, the break with Rome, and even the destruction of the monasteries went through with surprisingly little opposition. It had been foreseen that the royal supremacy might have to be enacted in blood, and the Act of Supremacy (March 1534) and the Act of Treason (December 1534) were designed to root out and liquidate the dissent. The former was a loyalty test requiring subjects to take an oath swearing to accept not only the matrimonial results of the break with Rome but also the principles on which it stood; the latter extended the meaning of treason to include all those who did “maliciously wish, will or desire, by words or writing or by craft imagine” the king's death or slandered his marriage. Sir Thomas More (More, Sir Thomas) (who had succeeded Wolsey as lord chancellor), Bishop John Fisher (Fisher, Saint John) (who almost alone among the episcopate had defended Catherine during her trial), and a handful of monks suffered death for their refusal to accept the concept of a national church. Even the Pilgrimage of Grace of 1536–37 was a short-lived eruption. The uprisings in Lincolnshire in October and in Yorkshire during the winter were without doubt religiously motivated, but they were also as much feudal and social rebellions as revolts in support of Rome. Peasants, landed country gentlemen, and barons with traditional values united in defense of the monasteries and the old religion, and for a moment the rebels seemed on the verge of toppling the Tudor state. The nobility were angered that they had been excluded from the king's government by men of inferior social status, and they resented the encroachment of bureaucracy into the northern shires. The gentry were concerned by rising taxes and the peasants by threatened enclosure. But the three elements had little in common outside religion, and the uprisings fell apart from within. The rebels were soon crushed and their leaders—including Robert Aske, a charismatic Yorkshire country attorney—were brutally executed. The Reformation came to England piecemeal, which goes far to explain the government's success. Had the drift toward Protestantism, the royal supremacy, and the destruction of the monasteries come as a single religious revolution, it would have produced a violent reaction. As it was, the Roman Catholic opposition could always argue that each step along the way to Reformation would be the last.

The expansion of the English state
      The decade of Reformation led to a transformation in the operations of Tudor government. Not only were new revenue courts created to handle all the wealth of the monasteries, but problems of dynastic and national security required a much more hands-on royal control of provincial affairs. In and through the English Parliament, Henry incorporated the principality of Wales and the marcher lordships (previously independent of the crown's direct control) into the English legal and administrative system. In the process, he not only shired the whole of Wales, granted seats in the English Parliament to the Welsh shires and boroughs, and extended the jurisdiction of the common-law courts and judges to Wales, but he also insisted that legal processes be conducted in English. The palatinates of the north were similarly incorporated, and all those grants by which royal justice was franchised out to private individuals and groups were revoked. For the first time the king's writ and the king's justice were ubiquitous in England.

      In 1541 the Irish Parliament, which represented only the area around Dublin known as the Pale, passed an act creating the Kingdom of Ireland and declared it a perpetual appendage of the English crown. Now, for the first time in 300 years, the king set out to make good his claim to jurisdiction over the whole island. English viceroys sought to impose English law, English inheritance customs, English social norms, and the English religious settlement upon all the people there. In an attempt to achieve this in a peaceful and piecemeal way, the Anglo-Irish lords and the heads of Gaelic clans were invited to surrender their lands and titles to the crown on the promise of their regrant on favourable terms. Thus began a century of wheedling and cajoling, of rebellion and confiscation, of accommodation and plantation, that was to be a constant drain on the English Exchequer and a constant source of tragedy for the native people of Ireland.

      Henry VIII did not seek to incorporate Scotland into his imperium. Though he tried to keep his nephew James V, then king of Scotland, “on-side” during his feud with Rome and never forgot that on 23 previous occasions Scottish kings had sworn feudal obeisance to kings of England, Henry never laid claim to the Scottish throne.

Henry's last years
 Henry was so securely seated upon his throne that the French ambassador announced that he was more an idol to be worshipped than a king to be obeyed. The king successfully survived four more matrimonial experiments, the enmity of every major power in Europe, and an international war. On May 19, 1536, Anne Boleyn's career was terminated by the executioner's ax. She had failed in her promise to produce further children to secure the succession. Her enemies poisoned the king's mind against her with accusations of multiple adulteries. The king's love turned to hatred, but what sealed the queen's fate was probably the death of her rival, Catherine of Aragon, on Jan. 8, 1536. From that moment it was clear that, should Henry again marry, whoever was his wife, the children she might bear would be legitimate in the eyes of Roman Catholics and Protestants alike. How much policy, how much revulsion for Anne, and how much attraction for Jane Seymour played in the final tragedy is beyond analysis, but 11 days after Anne's execution Henry married Jane. Sixteen months later the future Edward VI was born. Jane died as a consequence, but Henry finally had what it had taken a revolution to achieve—a legitimate male heir.

 Henry married thrice more, once for reasons of diplomacy, once for love, and once for peace and quiet. Anne Of Cleves, his fourth wife, was the product of Reformation international politics. For a time in 1539 it looked as if Charles V and Francis would come to terms and unite against the schismatic king of England, and the only allies Henry possessed were the Lutheran princes of Germany. In something close to panic he was stampeded into marriage with Anne of Cleves. But the following year, the moment the diplomatic scene changed, he dropped both his wife and the man who had engineered the marriage, his vicar-general in matters spiritual, Thomas Cromwell (Cromwell, Thomas, Earl of Essex, Baron Cromwell of Okeham). Anne was divorced July 12, Cromwell was executed July 28, and Henry married Catherine Howard the same day. The second Catherine did not do as well as her cousin, the first Anne; she lasted only 18 months. Catherine proved to be neither a virgin before her wedding nor a particularly faithful damsel after her marriage. With the execution of his fifth wife, Henry turned into a sick old man, and he took as his last spouse Catherine Parr, who was as much a nursemaid as a wife. During those final years the king's interests turned to international affairs. Henry's last wars (1543–46) were fought not to defend his church against resurgent European Catholicism but to renew much older policies of military conquest in France and Scotland. Though he enlarged the English Pale at Calais by seizing the small French port of Boulogne and though his armies crushed the Scots at the Battles of Solway Moss (1542) and Pinkie (1547) and ravaged much of Lowland Scotland during the “Rough Wooing,” the wars had no lasting diplomatic or international effects except to assure that the monastic lands would pass into the hands of the gentry.

 By the time Henry died (Jan. 28, 1547), medievalism had nearly vanished. The crown stood at the pinnacle of its power, able to demand and receive a degree of obedience from both great and small that no medieval monarch had been able to achieve. The measure of that authority was threefold: (1) the extent to which Henry had been able to thrust a very unpopular annulment and supremacy legislation down the throat of Parliament, (2) his success in raising unprecedented sums of money through taxation, and (3) his ability to establish a new church on the ashes of the old. It is difficult to say whether these feats were the work of the king or his chief minister, Thomas Cromwell. The will was probably Henry's and the parliamentary means his minister's, but, whoever was responsible, by 1547 England had come a long way on the road of Reformation. The crown had assumed the authority of the papacy without as yet fundamentally changing the old creed, but the ancient structure was severely shaken. Throughout England men were arguing that because the pontiff had been proved false, the entire Roman Catholic creed was suspect, and the cry went up to “get rid of the poison with the author.” It was not long before every aspect of Roman Catholicism was under attack—the miracle of the mass whereby the bread and wine are transformed into the glorified body and blood of Christ (see transubstantiation), the doctrine of purgatory, the efficacy of saints and images, the concept of an ordained priesthood with the power to mediate grace through the sacraments, the discipline of priestly celibacy, and so on. The time had come for Parliament and the supreme head to decide what constituted the “true” faith for Englishmen.

      Henry never worked out a consistent religious policy: the Ten Articles of 1536 and the Bishop's Book of the following year tended to be somewhat Lutheran in tone; the Six Articles of 1539, or the Act for Abolishing Diversity of Opinion, and the King's Book of 1543 were mildly Roman Catholic. Whatever the religious colouring, Henry's ecclesiastical via media was based on obedience to an authoritarian old king and on subjects who were expected to live “soberly, justly and devoutly.” Unfortunately for the religious, social, and political peace of the kingdom, both these conditions disappeared the moment Henry died and a nine-year-old boy sat upon the throne.

Edward VI (1547–53)
 Henry was succeeded by his nine-year-old son, Edward VI, but real power passed to his brother-in-law, Edward Seymour, earl of Hertford (Somerset, Edward Seymour, 1st duke of, Baron Seymour of Hache), who became duke of Somerset and lord protector shortly after the new reign began. Somerset ruled in loco parentis; the divinity of the crown resided in the boy king, but authority was exercised by an uncle who proved himself to be more merciful than tactful and more idealistic than practical. Sweet reason and tolerance were substituted for the old king's brutal laws. The treason and heresy acts were repealed or modified, and the result came close to destroying the Tudor state. The moment idle tongues could speak with impunity, the kingdom broke into a chorus of religious and social discord.

      To stem religious dissent, the lord protector introduced The Book of Common Prayer in 1549 and an act of uniformity to enforce it. Written primarily by Thomas Cranmer, the first prayer book of Edward VI was a literary masterpiece but a political flop, for it failed in its purpose. It sought to bring into a single Protestant fold all varieties of middle-of-the-road religious beliefs by deliberately obscuring the central issue of the exact nature of the mass—whether it was a miraculous sacrament or a commemorative service. The Book of Common Prayer succeeded only in antagonizing Protestants and Roman Catholics alike.

      Somerset is best remembered for these religious reforms, but their effectiveness was much blunted by their association with greed. Henry VIII had plundered and dissolved the monasteries and had mounted a half-successful campaign to accuse the monastic communities of corruption, licentiousness, and putting obedience to a foreign power above their obedience to him. Somerset extended the state's plunder to the parish churches and to the gold and silver piously and generously given by thousands of layfolk for the adornment of the parish churches. Their descendants watched the desecration with sullen anger. The rhetoric of cleansing parish churches of idolatrous and sacrilegious images sounded hollow as wagonloads of gold and silver objects headed toward the smelter's shop in the lord protector's backyard.

      All this in turn was linked to what has been called Somerset's idée fixe, the permanent solution to the problem of the Anglo-Scottish frontier. Every time Henry VIII had tried to assert his claims to French territories, kings of Scotland had taken the opportunity to invade England. On each occasion—and especially in 1513 and 1542—the Scottish armies had been humiliated and a high proportion of the nobility killed or captured (James IV had been killed at the Battle of Flodden (Flodden, Battle of), and, when James V heard of the massacre of his nobility and men at Solway Moss, “he turned his face to the wall and died”). In 1543 the captured nobles agreed to a marriage treaty that was intended to see the marriage of Henry's son and heir, Edward VI, to the infant Mary (Mary, Queen of Scots), with the aim of uniting the thrones of England and Scotland. But the Scots broke their promise and shipped Mary off to France with the intention of marrying her to the heir of the French throne. Foreseeing the permanent annexation of Scotland to France in the same way that the Netherlands had been annexed to Spain, Somerset determined to conquer the Scottish Lowlands and to establish permanent castles and strongholds as a buffer between the kingdoms. It cost him most of the country's remaining treasure and much of his popularity, and the whole policy proved a failure.

      Somerset was no more successful in solving the economic and social difficulties of the reign. Rising prices, debasement of the currency, and the cost of war had produced an inflationary crisis in which prices doubled between 1547 and 1549. A false prosperity ensued in which the wool trade boomed, but so also did enclosures with all their explosive potential. The result was social revolution. Whether Somerset deserved his title of “the good duke” is a matter of opinion. Certainly, the peasants thought that he favoured the element in the House of Commons (Commons, House of) that was anxious to tax sheep raisers and to curb enclosures and that section of the clergy that was lashing out at economic inequality. In the summer of 1549, the peasantry in Cornwall (Cornwall, duchy of) and Devonshire revolted against the Prayer Book in the name of the good old religious days under Henry VIII, and, almost simultaneously, the humble folk in Norfolk rose up against the economic and social injustices of the century. At the same time that domestic rebellion was stirring, the protector had to face a political and international crisis, and he proved himself to be neither a farsighted statesman nor a shrewd politician. He embroiled the country in a war with Scotland that soon involved France and ended in an inconclusive defeat, and he earned the enmity and disrespect of the members of his own council. In the eyes of the ruling elite, Somerset was responsible for governmental ineptitude and social and religious revolution. The result was inevitable: a palace revolution ensued in October 1549, in which he was arrested and deprived of office, and two and a half years later he was executed on trumped-up charges of treason.

 The protector's successor and the man largely responsible for his fall was John Dudley, earl of Warwick (Northumberland, John Dudley, duke of, earl of Warwick, Viscount Lisle, Baron Lisle), who became duke of Northumberland. The duke was a man of action who represented most of the acquisitive aspects of the landed elements in society and who allied himself with the extreme section of the Protestant reformers. Under Northumberland, England pulled out of Scotland and in 1550 returned Boulogne to France; social order was ruthlessly reestablished in the countryside, the more conservative of the Henrician bishops were imprisoned, the wealth of the parish churches was systematically looted, and uncompromising Protestantism was officially sanctioned. The Ordinal of 1550 transformed the divinely ordained priest into a preacher and teacher, The Second Prayer Book of Edward VI (1552) was avowedly Protestant, altars were turned into tables, clerical vestments gave way to plain surplices, and religious orthodoxy was enforced by a new and more stringent Act of Uniformity.

      How long a kingdom still attached to the outward trappings of Roman Catholicism would have tolerated doctrinal radicalism and the plundering of chantry lands and episcopal revenues under Somerset and Northumberland is difficult to say, but in 1553 the ground upon which Northumberland had built his power crumbled: Edward was dying of consumption. To save the kingdom from Roman Catholicism and himself from Roman Catholic Mary, who was Edward's successor under the terms of a statute of Henry VIII as well as that king's will, Northumberland—with the support, perhaps even the encouragement, of the dying king—tried his hand at kingmaking. Together they devised a new order of succession in which Mary and Elizabeth were declared illegitimate and the crown passed to Lady Jane Grey (Grey, Lady Jane), the granddaughter of Henry VIII's sister (Mary, duchess of Suffolk) and, incidentally, Northumberland's daughter-in-law. The gamble failed, for when Edward died on July 6, 1553, the kingdom rallied to the daughter of Catherine of Aragon. Whatever their religious inclinations, Englishmen preferred a Tudor on the throne. In nine days the interlude was over, and Northumberland and his daughter-in-law were in the Tower of London. (London, Tower of)

Mary I (1553–58)
 Roman Catholicism was not a lost cause when Mary came to the throne. If she had lived as long as her sister Elizabeth was to live (the womb cancer from which Mary died in 1558 not only brought her Catholic restoration to an end but rendered her childless and heirless), England would probably have been an irrevocably Catholic country. Mary was indeed determined to restore Catholicism, but she was also determined to act in accordance with the law. She worked with and through successive Parliaments to reverse all the statutes that excluded papal jurisdiction from England and to revoke her half-brother's doctrinal and liturgical reforms; however, she persuaded Rome to allow her to confirm the dissolution of the monasteries and the secularization of church properties. New monasteries were to be created, but the vast wealth of the dissolved ones remained in lay hands. She also gave the married Protestant clergy a straight choice: to remain with their wives and surrender their livings or to surrender their wives and resume their priestly ministry. Her resolute Catholicism was laced with realism. With her principal adviser, Reginald Cardinal Pole (Pole, Reginald), she planned for a long-term improvement in the education and training of the clergy and the sumptuous refurbishment of parish churches. She took her inspiration from the Erasmian humanist reforms long championed by Pole in his Italian exile. But this liberal Catholicism was in the process of being repudiated by the Council of Trent (Trent, Council of), with its uncompromising policies. Pole was recalled to Rome by a hard-line pope and accused of heresy for his previous attempts to achieve an accommodation with Protestantism. Mary's plans were torpedoed as much by the internal struggle for control of the Roman church as by the strength of Protestant opposition in England. Most potential leaders of a resistance movement had been encouraged by Mary to emigrate and had done so, but there were scores of underground Protestant cells during her reign. In thousands of parish churches, the restored liturgy and worship were welcomed.

      Mary's decision to marry Prince Philip of Spain (later Philip II), her Habsburg cousin and the son of Charles V, the man who had defended her mother's marital rights, proved to be unwise. Given her age—she was 32 when she came to the throne—a quick marriage was essential to childbearing, but this one proved to be a failure. Her marriage was without love or children, and, by associating Roman Catholicism in the popular mind with Spanish arrogance, it triggered a rebellion that almost overthrew the Tudor throne. In January 1554, under the leadership of Sir Thomas Wyatt the Younger, (Wyatt, Sir Thomas, the Younger) the peasants of Kent rose up against the queen's Roman Catholic and Spanish policies, and 3,000 men marched on London. The rebellion was crushed, but it revealed to Mary and her chief minister, Cardinal Pole (Pole, Reginald), that the kingdom was filled with disloyal hearts who placed Protestantism and nationalism higher than their obedience to the throne.

 The tragedy of Mary's reign was the belief not only that the old church of her mother's day could be restored but also that it could be best served by fire and blood. At least 282 men and women were martyred in the Smithfield Fires during the last three years of her reign; compared with events on the Continent, the numbers were not large, but the emotional impact was great. Among the first half-dozen martyrs were the Protestant leaders Cranmer, Nicholas Ridley (Ridley, Nicholas), Hugh Latimer (Latimer, Hugh), and John Hooper, who were burned to strike terror into the hearts of lesser men. Their deaths, however, had the opposite effect; their bravery encouraged others to withstand the flames, and the Smithfield Fires continued to burn because nobody could think of what to do with heretics except put them to death. The law required it, the prisons were overflowing, and the martyrs themselves offered the government no way out except to enforce the grisly laws.

      Mary's reign was a study in failure. Her husband, who was 10 years her junior, remained in England as short a time as possible; the war between France and the Habsburg empire, into which her Spanish marriage had dragged the kingdom, was a disaster and resulted in the loss of England's last Continental outpost, Calais; her subjects came to call her “Bloody Mary” and greeted the news of her death and the succession of her sister, Elizabeth, on Nov. 17, 1558, with ringing bells and bonfires.

Elizabeth I (1558–1603)
 No one in 1558, any more than in 1485, would have predicted that—despite the social discord, political floundering, and international humiliation of the past decade—the kingdom again stood on the threshold of an extraordinary reign. To make matters worse, the new monarch was the wrong sex. Englishmen knew that it was unholy and unnatural that “a woman should reign and have empire above men.” At age 25, however, Elizabeth I was better prepared than most women to have empire over men. She had survived the palace revolutions of her brother's reign and the Roman Catholicism of her sister's; she was the product of a fine Renaissance education, and she had learned the need for strong secular leadership devoid of religious bigotry. Moreover, she possessed her father's magnetism without his egotism or ruthlessness. She was also her mother's daughter, and the offspring of Anne Boleyn had no choice but to reestablish the royal supremacy and once again sever the ties with Rome.

      Elizabeth's religious settlement was constructed on the doctrine of adiaphorism, the belief that, except for a few fundamentals, there exists in religion a wide area of “things indifferent” that could be decided by the government on the basis of expediency. Conservative opposition was blunted by entitling the queen “supreme governor,” not “head,” of the church and by combining the words of the 1552 prayer book with the more conservative liturgical actions of the 1549 prayer book. At the same time, many of the old papal trappings of the church were retained. Protestant radicals went along with this compromise in the expectation that the principle of “things indifferent” meant that Elizabeth would, when the political dust had settled, rid her church of the “livery of Antichrist” and discard its “papal rags.” In this they were badly mistaken, for the queen was determined to keep her religious settlement exactly as it had been negotiated in 1559. As it turned out, Roman Catholics proved to be better losers than Protestants: of the 900 parish clergy, only 189 refused to accept Elizabeth as supreme governor, but the Protestant radicals—the future Puritans—were soon at loggerheads with their new sovereign.

The Tudor ideal of government
      The religious settlement was part of a larger social arrangement that was authoritarian to its core. Elizabeth was determined to be queen in fact as well as in name. She tamed the House of Commons with tact combined with firmness, and she carried on a love affair with her kingdom in which womanhood, instead of being a disadvantage, became her greatest asset. The men she appointed to help her run and stage-manage the government were politiques like herself: William Cecil, Baron Burghley (Cecil, William, 1st Baron Burghley), her principal secretary and in 1572 her lord treasurer; Matthew Parker (Parker, Matthew), archbishop of Canterbury; and a small group of other moderate and secular men.

      In setting her house in order, the queen followed the hierarchical assumptions of her day. All creation was presumed to be a Great Chain of Being, running from the tiniest insect to the Godhead itself, and the universe was seen as an organic whole in which each part played a divinely prescribed role. In politics every element was expected to obey “one head, one governor, one law” in exactly the same way as all parts of the human body obeyed the brain. The crown was divine (sacred kingship) and gave leadership, but it did not exist alone, nor could it claim a monopoly of divinity, for all parts of the body politic had been created by God. The organ that spoke for the entire kingdom was not the king alone but “king in Parliament,” and, when Elizabeth sat in the midst of her Lords and Commons, it was said that “every Englishman is intended to be there present from the prince to the lowest person in England.” The Tudors needed no standing army in “the French fashion” because God's will and the monarch's decrees were enshrined in acts of Parliament, and this was society's greatest defense against rebellion. The controlling mind within this mystical union of crown and Parliament belonged to the queen. The Privy Council, acting as the spokesman of royalty, planned and initiated all legislation, and Parliament was expected to turn that legislation into law. Inside and outside Parliament the goal of Tudor government was benevolent paternalism in which the strong hand of authoritarianism was masked by the careful shaping of public opinion, the artistry of pomp and ceremony, and the deliberate effort to tie the ruling elite to the crown by catering to the financial and social aspirations of the landed country gentleman. Every aspect of government was intimate because it was small and rested on the support of probably no more than 5,000 key persons. The bureaucracy consisted of a handful of privy councillors at the top and possibly 500 paid civil servants at the bottom—the 15 members of the secretariat, the 265 clerks and custom officials of the treasury, a staff of 50 in the judiciary, and approximately 150 more scattered in other departments. Tudor government was not predominantly professional. Most of the work was done by unpaid amateurs: the sheriffs of the shires, the lord lieutenants of the counties, and, above all, the Tudor maids of all work, the 1,500 or so justices of the peace. Meanwhile, each of the 180 “corporate” towns and cities was governed by men chosen locally by a variety of means laid down in the particular royal charter each had been granted.

      Smallness did not mean lack of government, for the 16th-century state was conceived of as an organic totality in which the possession of land carried with it duties of leadership and service to the throne, and the inferior part of society was obligated to accept the decisions of its elders and betters. The Tudors were essentially medieval in their economic and social philosophy. The aim of government was to curb competition and regulate life so as to attain an ordered and stable society in which all could share according to status. The Statute of Apprentices of 1563 embodied this concept, for it assumed the moral obligation of all men to work, the existence of divinely ordered social distinctions, and the need for the state to define and control all occupations in terms of their utility to society. The same assumption operated in the famous Elizabethan Poor Law of 1601—the need to ensure a minimum standard of living to all men and women within an organic and noncompetitive society (see Poor Law). By 1600 poverty, unemployment, and vagrancy had become too widespread for the church to handle, and the state had to take over, instructing each parish to levy taxes to pay for poor relief and to provide work for the able-bodied, punishment for the indolent, and charity for the sick, the aged, and the disabled. The Tudor social ideal was to achieve a static class structure by guaranteeing a fixed labour supply, restricting social mobility, curbing economic freedom, and creating a kingdom in which subjects could fulfill their ultimate purpose in life—spiritual salvation, not material well-being.

Elizabethan society
 Social reality, at least for the poor and powerless, was probably a far cry from the ideal, but for a few years Elizabethan England seemed to possess an extraordinary internal balance and external dynamism. In part the queen herself was responsible. She demanded no windows into men's souls, and she charmed both great and small with her artistry and tact. In part, however, the Elizabethan Age was a success because men had at their disposal new and exciting areas, both of mind and geography, into which to channel their energies.

      A revolution in reading (and to a lesser extent writing) was taking place. By 1640 a majority of men, and just possibly a majority of men and women, could read, and there were plenty of things for them to read. In the year that Henry VIII came to the throne (1509), the number of works licensed to be published was 38. In the year of Elizabeth's accession (1558), it was 77; in the year of her death (1603), it was 328. In the year of Charles I's execution (1649), the number had risen to 1,383. And by the time of the Glorious Revolution (1688–89), it had reached 1,570. These figures do not include the ever-rising tide of broadsheets and ballads that were intended to be posted on the walls of inns and alehouses as well as in other public places. Given that a large proportion of the illiterate population spent at least part of their lives in service in homes with literate members and given that reading in the early modern period was frequently an aural experience—official documents being read aloud in market squares and parish churches and all manner of publications being read aloud to whole households—a very high proportion of the population had direct or indirect access to the printed word.

      There was very little church building in the century after the Reformation, but there was an unprecedented growth of school building, with grammar schools springing up in most boroughs and in many market towns. By 1600 schools were provided for more than 10 percent of the adolescent population, who were taught Latin and given an introduction to Classical civilization and the foundations of biblical faith. There was also a great expansion of university education; the number of colleges in Oxford and Cambridge doubled in the 16th century, and the number of students went up fourfold to 1,200 by 1640 (see University of Oxford (Oxford, University of); University of Cambridge (Cambridge, University of)). The aim of Tudor education was less to teach the “three Rs” (reading, writing, and arithmetic) than to establish mind control: to drill children “in the knowledge of their duty toward God, their prince and all otherShakespeare, William), Christopher Marlowe (Marlowe, Christopher), Edmund Spenser (Spenser, Edmund), Francis Bacon (Bacon, Francis, Viscount Saint Alban (or Albans), Baron of Verulam), and John Donne.

 Poets, scholars, and playwrights dreamed and put pen to paper. Adventurers responded differently; they went “a-voyaging.” From a kingdom that had once been known for its “sluggish security,” Englishmen suddenly turned to the sea and the world that was opening up around them. The first hesitant steps had been taken under Henry VII when John Cabot (Cabot, John) in 1497 sailed in search of a northwest route (Northwest Passage) to China and as a consequence discovered Cape Breton Island. The search for Cathay became an economic necessity in 1550 when the wool trade collapsed and merchants had to find new markets for their cloth. In response, the Muscovy Company was established to trade with Russia; by 1588, 100 vessels a year were visiting the Baltic. Martin Frobisher (Frobisher, Sir Martin) made a series of voyages to northern Canada during the 1570s in the hope of finding gold and a shortcut to the Orient; John Hawkins (Hawkins, Sir John) encroached upon Spanish and Portuguese preserves and in 1562 sailed for Africa in quest of slaves to sell to West Indian plantation owners; and Sir Francis Drake (Drake, Sir Francis) circumnavigated the globe (Dec. 13, 1577–Sept. 26, 1580) in search of the riches not only of the East Indies but also of Terra Australis, the great southern continent. Suddenly, Englishmen were on the move: Sir Humphrey Gilbert (Gilbert, Sir Humphrey) and his band of settlers set forth for Newfoundland (Newfoundland and Labrador) (1583); Sir Walter Raleigh (Raleigh, Sir Walter) organized what became the equally ill-fated “lost colony” at Roanoke (Roanoke Island) (1587–91); John Davis (Davis, John) in his two small ships, the Moonshine and the Sunshine, reached 72° north (1585–87), the farthest north any Englishman had ever been; and the honourable East India Company was founded to organize the silk and spice trade with the Orient on a permanent basis. The outpouring was inspired not only by the urge for riches but also by religion—the desire to labour in the Lord's vineyard and to found in the wilderness a new and better nation. As it was said, Englishmen went forth “to seek new worlds for gold, for praise, for glory.” Even the dangers of the reign—the precariousness of Elizabeth's throne and the struggle with Roman Catholic Spain—somehow contrived to generate a self-confidence that had been lacking under “the little Tudors.”

Mary, Queen of Scots
 The first decade of Elizabeth's reign was relatively quiet, but after 1568 three interrelated matters set the stage for the crisis of the century: the queen's refusal to marry, the various plots to replace her with Mary of Scotland, and the religious and economic clash with Spain. Elizabeth Tudor's virginity was the cause of great international discussion, for every bachelor prince of Europe hoped to win a throne through marriage with Gloriana (the queen of the fairies, as she was sometimes portrayed), and was the source of even greater domestic concern, for everyone except the queen herself was convinced that Elizabeth should marry and produce heirs. The issue was the cause of her first major confrontation with the House of Commons, which was informed that royal matrimony was not a subject for commoners to discuss. Elizabeth preferred maidenhood—it was politically safer and her most useful diplomatic weapon—but it gave poignancy to the intrigues of her cousin Mary, Queen of Scots.

      Mary had been an unwanted visitor-prisoner in England ever since 1568, after she had been forced to abdicate her Scottish throne in favour of her 13-month-old son, James VI (later James I). She was Henry VIII's grandniece and, in the eyes of many Roman Catholics and a number of political malcontents, the rightful ruler of England, for Mary of Scotland was a Roman Catholic. As the religious hysteria mounted, there was steady pressure put on Elizabeth to rid England of this dangerous threat, but the queen delayed a final decision for almost 19 years. In the end, however, she had little choice. Mary played into the hands of her religious and political enemies by involving herself in a series of schemes to unseat her cousin. One plot helped to trigger the rebellion of the northern earls in 1569. Another, the Ridolfi plot of 1571 (see Ridolfi, Roberto), called for an invasion by Spanish troops stationed in the Netherlands and for the removal of Elizabeth from the throne and resulted in the execution in 1572 of Thomas Howard, duke of Norfolk (Norfolk, Thomas Howard, 4th Duke of, Earl Of Surrey, Earl Marshal), the ranking peer of the realm. Yet another, the Babington plot of 1586, led by Anthony Babington (Babington, Anthony), allowed the queen's ministers to pressure her into agreeing to the trial and execution of Mary for high treason.

The clash with Spain
      Mary was executed on Feb. 8, 1587; by then England had moved from cold war to open war against Spain. Philip II was the colossus of Europe and leader of resurgent Roman Catholicism. His kingdom was strong: Spanish troops were the best in Europe, Spain itself had been carved out of territory held by the infidel and still retained its Crusading zeal, and the wealth of the New World poured into the treasury at Madrid. Spanish preeminence was directly related to the weakness of France, which, ever since the accidental death of Henry II in 1559, had been torn by factional strife and civil and religious war. In response to this diplomatic and military imbalance, English foreign policy underwent a fundamental change. By the Treaty of Blois in 1572, England gave up its historic enmity with France, accepting by implication that Spain was the greater danger. It is difficult to say at what point a showdown between Elizabeth and her former brother-in-law became unavoidable—there were so many areas of disagreement—but the two chief points were the refusal of English merchants-cum-buccaneers to recognize Philip's claims to a monopoly of trade wherever the Spanish flag flew throughout the world and the military and financial support given by the English to Philip's rebellious and heretical subjects in the Netherlands.

 The most blatant act of English poaching (privateer) in Spanish imperial waters was Drake's circumnavigation of the Earth, during which Spanish shipping was looted, Spanish claims to California ignored, and Spanish world dominion proved to be a paper empire. But the encounter that really poisoned Anglo-Iberian relations was the Battle of San Juan de Ulúa in September 1568, where a small fleet captained by Hawkins and Drake was ambushed and almost annihilated through Spanish perfidy. Only Hawkins in the Minion and Drake in the Judith escaped. The English cried foul treachery, but the Spanish dismissed the action as sensible tactics when dealing with pirates. Drake and Hawkins never forgot or forgave, and it was Hawkins who, as treasurer of the navy, began to build the revolutionary ships that would later destroy the old-fashioned galleons of the Spanish Armada.

 If the English never forgave Philip's treachery at San Juan de Ulúa, the Spanish never forgot Elizabeth's interference in the Netherlands, where Dutch Protestants were in full revolt. At first, aid had been limited to money and the harbouring of Dutch ships in English ports, but, after the assassination of the Protestant leader, William I, in 1584, the position of the rebels became so desperate that in August 1585 Elizabeth sent over an army of 6,000 under the command of Robert Dudley, earl of Leicester (Leicester, Robert Dudley, earl of, Baron Denbigh). Reluctantly, Philip decided on war against England as the only way of exterminating heresy and disciplining his subjects in the Netherlands. Methodically, he began to build a fleet of 130 vessels, 31,000 men, and 2,431 cannons to hold naval supremacy in the English Channel long enough for Alessandro Farnese, duke of Parma (Farnese, Alessandro, duke of Parma and Piacenza), and his army, stationed at Dunkirk, to cross over to England.

      Nothing Elizabeth could do seemed to be able to stop the Armada Catholica. She sent Drake to Spain in April 1587 in a spectacular strike at that portion of the fleet forming at Cádiz, but it succeeded only in delaying the sailing date. That delay, however, was important, for Philip's admiral of the ocean seas, the veteran Álvaro de Bazán, marqués de Santa Cruz (Santa Cruz, Álvaro de Bazán, Marqués de), died, and the job of sailing the Armada was given to Alonso Pérez de Guzmán, duque de Medina-Sidonia (Medina-Sidonia, Alonso Pérez de Guzmán, duke (duque) de), who was invariably seasick and confessed that he knew more about gardening than war. What ensued was not the new commander's fault. He did the best he could in an impossible situation, for Philip's Armada was invincible in name only. It was technologically and numerically outclassed by an English fleet of close to 200. Worse, its strategic purpose was grounded on a fallacy: that Parma's troops could be conveyed to England. The Spanish controlled no deepwater port in the Netherlands in which the Armada's great galleons and Parma's light troop-carrying barges could rendezvous. Even the Deity seemed to be more English than Spanish, and in the end the fleet, buffeted by gales, was dashed to pieces as it sought to escape home via the northern route around Scotland and Ireland. Of the 130 ships that had left Spain, perhaps 85 crept home; 10 were captured, sunk, or driven aground by English guns, 23 were sacrificed to wind and storm, and 12 others were “lost, fate unknown.”

Internal discontent
 When the Armada was defeated during the first weeks of August 1588, the crisis of Elizabeth's reign was reached and successfully passed. The last years of her reign were an anticlimax, for the moment the international danger was surmounted, domestic strife ensued. There were moments of great heroism and success—as when Robert Devereux, earl of Essex (Essex, Robert Devereux, 2nd earl of, Viscount Hereford, Lord Ferrers, Lord Bourchier), Raleigh, and Thomas Howard, earl of Suffolk (Suffolk, Thomas Howard, 1st earl of, Lord Howard Of Walden), made a second descent on Cádiz in 1596, seized the city, and burned the entire West Indian treasure fleet—but the war so gloriously begun deteriorated into a costly campaign in the Netherlands and France and an endless guerrilla action in Ireland, where Philip discovered he could do to Elizabeth what she had been doing to him in the Low Countries. Even on the high seas, the days of fabulous victories were over, for the king of Spain soon learned to defend his empire and his treasure fleets. Both Drake and Hawkins died in 1596 on the same ill-conceived expedition into Spanish Caribbean waters—symbolic proof that the good old days of buccaneering were gone forever. At home the cost of almost two decades of war (£4 million) raised havoc with the queen's finances. It forced her to sell her capital (about £800,000, or roughly one-fourth of all crown lands) and increased her dependence upon parliamentary sources of income, which rose from an annual average of £35,000 to over £112,000 a year.

      The expedition to the Netherlands was not, however, the most costly component of the protracted conflict; indeed, the privateering war against Spain more than paid for itself. The really costly war of the final years of Elizabeth's reign was in Ireland, where a major rebellion in response to the exclusion of native Catholics from government and to the exploitation of every opportunity to replace native Catholics with Protestant English planters tied down thousands of English soldiers. The rebellion was exacerbated by Spanish intervention and even by a Spanish invasion force (the element of the Armada that temporarily succeeded). This Nine Years War (1594–1603) was eventually won by the English but only with great brutality and at great expense of men and treasure.

      Elizabeth's financial difficulties were a symptom of a mounting political crisis that under her successors would destroy the entire Tudor system of government. The 1590s were years of depression—bad harvests, soaring prices, peasant unrest, high taxes, and increasing parliamentary criticism of the queen's economic policies and political leadership. Imperceptibly, the House of Commons (Commons, House of) was becoming the instrument through which the will of the landed classes could be heard and not an obliging organ of royal control. In Tudor political theory this was a distortion of the proper function of Parliament, which was meant to beseech and petition, never to command or initiate. Three things, however, forced theory to make way for reality. First was the government's financial dependence on the Commons, for the organ that paid the royal piper eventually demanded that it also call the governmental tune. Second, under the Tudors, Parliament had been summoned so often and forced to legislate on such crucial matters of church and state—legitimizing and bastardizing monarchs, breaking with Rome, proclaiming the supreme headship (governorship under Elizabeth), establishing the royal succession, and legislating in areas that no Parliament had ever dared enter before—that the Commons got into the habit of being consulted. Inevitably, a different constitutional question emerged: If Parliament is asked to give authority to the crown, can it also take away that authority? Finally, there was the growth of a vocal, politically conscious, and economically dominant gentry; the increase in the size of the House of Commons reflected the activity and importance of that class. In Henry VIII's first Parliament, there were 74 knights who sat for 37 shires and 224 burgesses who represented the chartered boroughs and towns of the kingdom. By the end of Elizabeth's reign, borough representation had been increased by 135 seats. The Commons was replacing the Lords in importance because the social element it represented had become economically and politically more important than the nobility. Should the crown's leadership falter, there existed by the end of the century an organization that was quite capable of seizing the political initiative, for as one disgruntled contemporary noted: “the foot taketh upon him the part of the head and commons is become a king.” Elizabeth had sense enough to avoid a showdown with the Commons, and she retreated under parliamentary attack on the issue of her prerogative rights to grant monopolies regulating and licensing the economic life of the kingdom, but on the subject of her religious settlement she refused to budge.

 By the last decade of her reign, Puritanism was on the increase. During the 1570s and '80s, “cells” had sprung up to spread God's word and rejuvenate the land, and Puritan strength was centred in exactly that segment of society that had the economic and social means to control the realm—the gentry and merchant classes. What set a Puritan off from other Protestants was the literalness with which he held to his creed, the discipline with which he watched his soul's health, the militancy of his faith, and the sense that he was somehow apart from the rest of corrupt humanity. This disciplined spiritual elite clashed with the queen over the purification of the church and the stamping out of the last vestiges of Roman Catholicism. The controversy went to the root of society: Was the purpose of life spiritual or political? Was the role of the church to serve God or the crown? In 1576 two brothers, Paul and Peter Wentworth (Wentworth, Peter), led the Puritan attack in the Commons, criticizing the queen for her refusal to allow Parliament to debate religious issues. The crisis came to a head in 1586, when Puritans called for legislation to abolish the episcopacy and the Anglican prayer book. Elizabeth ordered the bills to be withdrawn, and, when Peter Wentworth raised the issue of freedom of speech in the Commons, she answered by clapping him in the Tower of London. There was emerging in England a group of religious idealists who derived their spiritual authority from a source that stood higher than the crown and who thereby violated the concept of the organic society and endangered the very existence of the Tudor paternalistic monarchy. As early as 1573 the threat had been recognized:At the beginning it was but a cap, a surplice, and a tippet [over which Puritans complained]; now, it is grown to bishops, archbishops, and cathedral churches, to the overthrow of the established order, and to the Queen's authority in causes ecclesiastical.

       James I later reduced the problem to one of his usual bons mots—“no bishop, no king.” Elizabeth's answer was less catchy but more effective; she appointed as archbishop John Whitgift (Whitgift, John), who was determined to destroy Puritanism as a politically organized sect. Whitgift was only partially successful, but the queen was correct: the moment the international crisis was over and a premium was no longer placed on loyalty, Puritans were potential security risks.

      Puritans were a loyal opposition, a church within the church. Elizabethan governments never feared that there would or could be a Puritan insurrection in the way they constantly feared that there could and would be an insurrection by papists. Perhaps 1 in 5 of the peerage, 1 in 10 of the gentry, and 1 in 50 of the population were practicing Catholics, many of them also being occasional conformists in the Anglican church to avoid the severity of the law. Absence from church made householders liable to heavy fines; associating with priests made them liable to incarceration or death. To be a priest in England was itself treasonous; in the second half of the reign, more than 300 Catholics were tortured to death, even more than the number of Protestants burned at the stake by Mary. Some priests, especially Jesuits (Jesuit), did indeed preach political revolution, but many others preached a dual allegiance—to the queen in all civil matters and to Rome in matters of the soul. Most laymen were willing to follow this more moderate advice, but it did not stem the persecution or alleviate the paranoia of the Elizabethan establishment.

      Catholicism posed a political threat to Elizabethan England. Witches posed a cultural threat. From early in Elizabeth's reign, concern grew that men and (more particularly) women on the margins of society were casting spells on respectable folk with whom they were in conflict. Explanations abound. Accusations seem to have often arisen when someone with wealth denied a request for personal charity to someone in need, with the excuse that the state had now taken over responsibility for institutional relief through the Poor Laws; guilt about this refusal of charity would give way to blaming the poor person who had been turned away for any ensuing misfortunes. Sometimes magisterial encouragement of witchcraft prosecutions was related to the intellectual search for the causes of natural disasters that fell short of an explanation more plausible than the casting of spells. Sometimes there was concern over the existence of “cunning men and women” with inherited knowledge based on a cosmology incompatible with the new Protestantism. This was especially the case when the cunning men and women were taking over the casting of spells and incantations that had been the province of the Catholic priest but were not the province of the Protestant minister. Certainly, the rise in incidence of witchcraft trials and executions can be taken as evidence of a society not at peace with itself. As the century ended, there was a crescendo of social unrest and controlled crowd violence. There were riots about the enclosure of common land, about the enforced movement of grain from producing regions to areas of shortage, about high taxes and low wages, and about the volatility of trade. The decades on either side of the turn of the century saw roaring inflation and the first real evidence of the very young and the very old starving to death in remote areas and in London itself. Elizabethan England ended in a rich cultural harvest and real physical misery for people at the two ends of the social scale, respectively.

      The final years of Gloriana's life were difficult both for the theory of Tudor kingship and for Elizabeth herself. She began to lose hold over the imaginations of her subjects, and she faced the only palace revolution of her reign when her favourite, the earl of Essex (Essex, Robert Devereux, 2nd earl of, Viscount Hereford, Lord Ferrers, Lord Bourchier), sought to take her crown. There was still fight in the old queen, and Essex ended on the scaffold in 1601, but his angry demand could not be ignored:

What! Cannot princes err? Cannot subjects receive wrong? Is an earthly power or authority infinite? Pardon me, pardon me, my good Lord, I can never subscribe to these principles.

      When the queen died on March 24, 1603, it was as if the critics of her style of rule and her concept of government had been waiting patiently for her to step down. It was almost with relief that men looked forward to the problems of a new dynasty and a new century, as well as to a man, not a woman, upon the throne.

Lacey Baldwin Smith John S. Morrill

The early Stuarts (Stuart, House of) and the Commonwealth
England in 1603

Economy and society
      At the beginning of the 17th century, England and Wales contained more than four million people. The population had nearly doubled over the previous century, and it continued to grow for another 50 years. The heaviest concentrations of population were in the southeast and along the coasts. Population increase created severe social and economic problems, not the least of which was a long-term price inflation. English society was predominantly rural (rural society), with as much as 85 percent of its people living on the land. About 800 small market towns of several hundred inhabitants facilitated local exchange, and, in contrast to most of western Europe, there were few large urban areas. Norwich and Bristol were the biggest provincial cities, with populations of around 15,000. Exeter, York, and Newcastle (Newcastle upon Tyne) were important regional centres, though they each had about 10,000 inhabitants. Only London could be ranked with the great continental cities. Its growth had outstripped even the doubling of the general population. By the beginning of the 17th century, it contained more than a quarter of a million people and by the end nearly half a million, most of them poor migrants who flocked to the capital in search of work or charity. London was the centre of government, of overseas trade and finance, and of fashion, taste, and culture. It was ruled by a merchant oligarchy, whose wealth increased tremendously over the course of the century as international trade expanded.

      London not only ruled the English mercantile world, but it also dominated the rural economy of the southeast by its insatiable demand for food and clothing. The rural economy was predominately agricultural, with mixed animal and grain husbandry practiced wherever the land allowed. The population increase, however, placed great pressure upon the resources of local communities, and efforts by landlords and tenants to raise productivity for either profit or survival were the key feature of agricultural development. Systematic efforts to grow luxury market crops like wheat, especially in the environs of London, drove many smaller tenants from the land. So too did the practice of enclosure, which allowed for more productive land use by large holders at the expense of their poorer neighbours. There is evidence of a rural subsistence crisis lasting throughout the first two decades of the century. Marginally productive land came under the plow, rural revolts became more common, and harvest failures resulted in starvation rather than hunger, both in London and in the areas remote from the grain-growing lowlands—such as north Wales and the Lake District. It was not until the middle of the century that the rural economy fully recovered and entered a period of sustained growth. A nation that could barely feed itself in 1600 was an exporter of grain by 1700.

      In the northeast and southwest the harsher climate and poorer soils were more suited for sheep raising than for large-scale cereal production. The northeast and southwest were the location of the only significant manufacturing activity in England, the woolen cloth industry (wool). Wool was spun into large cloths for export to Holland, where the highly technical finishing processes were performed before it was sold commercially. Because spinning and weaving provided employment for thousands of families, the downturn of the cloth trade at the beginning of the 17th century compounded the economic problems brought about by population increase. This situation worsened considerably after the opening of the Thirty Years' War (1618–48), as trade routes became disrupted and as new and cheaper sources of wool were developed. But the transformation of the English mercantile economy from its previous dependence upon a single commodity into a diversified entrepôt that transshipped dozens of domestic and colonial products was one of the most significant developments of the century.

      The economic divide between rich and poor, between surplus and subsistence producers, was a principal determinant of rank (social class) and status (social status). English society was organized hierarchically with a tightly defined ascending order of privileges and responsibilities. This hierarchy was as apparent in the family as it was in the state. In the family, as elsewhere, male domination was the rule; husbands ruled their wives, masters their servants, parents their children. But if hierarchy was stratified, it was not ossified; those who attained wealth could achieve status. The social hierarchy reflected gradations of wealth and responded to changes in the economic fortunes of individuals. In this sense it was more open than most European societies. Old wealth was not preferred to new, and an ancient title conferred no greater privileges than recent elevation; the humble could rise to become gentle, and the gentle could fall to become humble.

      During the early 17th century a small titular peerage composed of between 75 and 100 peers formed the apex of the social structure. Their titles were hereditary, passed from father to eldest son, and they were among the wealthiest subjects of the state. Most were local magnates, inheriting vast county estates and occupying honorific positions in local government. The peerage was the military class of the nation, and in the counties peers held the office of lord lieutenant. Most were also called to serve at court, but at the beginning of the century their power was still local rather than central.

      Below them were the gentry, who probably composed only about 5 percent of the rural population but who were rising in importance and prestige. The gentry were not distinguished by title, though many were knights and several hundred purchased the rank of baronet (hereditary knighthoods) after it was created in 1611. Sir Thomas Smith defined a member of the gentry as “he that can bear the port and charge of a gentleman.” The gentry were expected to provide hospitality for their neighbours, treat their tenants paternally, and govern their counties. They served as deputy lieutenants, militia captains, and most important, as justices of the peace (justice of the peace). To the justices fell the responsibility of enforcing the king's law and keeping the king's peace. They worked individually to mediate local disputes and collectively at quarter sessions to try petty crimes. As the magistracy the gentry were the backbone of county governance, and they maintained a fierce local independence even while enforcing the edicts of the crown.

      Beneath the gentry were those who laboured for their survival. There were many prosperous tenants who were styled yeomen (yeoman) to denote their economic independence and the social gulf between them and those who eked out a bare existence. Some were the younger sons of gentlemen; others aspired to enter the ranks of the gentry, having amassed sufficient wealth to be secure against the fluctuations of the early modern economy. Like the gentry, the yeomanry were involved in local government, performing most of the day-to-day, face-to-face tasks. Yeomen were village elders, constables, and tax collectors, and they composed the juries that heard cases at quarter sessions. Most owned sufficient freehold land to be politically enfranchised and to participate in parliamentary selections. Filling out the ranks of rural society were husbandmen, cottagers, and labourers. Husbandmen were tenant farmers at or near self-sufficiency; cottagers were tenants with cottages and scraps of land, dependent on a range of by-employments to make ends meet (“an economy of makeshifts”); and labourers were those who were entirely dependent on waged employment on the land of others. They were the vast majority of local inhabitants, and their lives were bound up in the struggle for survival.

      In towns, tradesmen and shopkeepers occupied the ranks below the ruling elites, but their occupational status clearly separated them from artisans, apprentices, and labourers. They were called the middling sort and were active in both civic and church affairs, holding the same minor offices as yeomen or husbandmen. Because of the greater concentrations of wealth and educational opportunities, the urban middling sort were active participants in urban politics.

Government and society
      Seventeenth-century government was inextricably bound together with the social hierarchy that dominated local communities. Rank, status, and reputation were the criteria that enabled members of the local elite to serve the crown either in the counties or at court. Political theory stressed hierarchy, patriarchy, and deference in describing the natural order of English society. Most of the aristocracy and gentry were the king's own tenants, whose obligations to him included military service, taxes, and local office holding. The monarch (monarchy)'s claim to be God's vice-regent on earth was relatively uncontroversial, especially since his obligations to God included good governance. Except in dire emergency, the monarch could not abridge the laws and customs of England nor seize the persons or property of his subjects.

      The monarch ruled personally, and the permanent institutions of government were constantly being reshaped. Around the king was the court, a floating body of royal servants, officeholders, and place seekers. Personal service to the king was considered a social honour and thus fitting to those who already enjoyed rank and privilege. Most of the aristocracy and many gentlemen were in constant attendance at court, some with lucrative offices to defray their expenses, others extravagantly running through their fortunes. There was no essential preparation for royal service, no necessary skills or experiences. Commonly, members of the elite were educated at universities and the law courts, and most made a grand tour of Europe, where they studied languages and culture. But their entry into royal service was normally through the patronage of family members and connections rather than through ability.

      From among his court the monarch chose the Privy Council. Its size and composition remained fluid, but it was largely composed of the chief officers of state: the lord treasurer, who oversaw revenue; the lord chancellor, who was the crown's chief legal officer; and the lord chamberlain, who was in charge of the king's household. The archbishop of Canterbury (Canterbury, archbishop of) was the leading churchman of the realm, and he advised the king, who was the head of the established church. The Privy Council advised the king on foreign and domestic policy and was charged with the administration of government. It communicated with the host of unpaid local officials who governed in the communities, ordering the justices to enforce statutes or the deputy lieutenants to raise forces. In these tasks the privy councillors relied not only upon the king's warrant but upon their own local power and prestige as well. Thus, while the king was free to choose his own councillors, he was constrained to pick those who were capable of commanding respect. The advice that he received at the council table was from men who kept one eye on their localities and the other on the needs of central policy.

      This interconnection between the centre and the localities was also seen in the composition of Parliament. Parliament was another of the king's councils, though its role in government was less well defined than the Privy Council's and its summoning was intermittent. In the early 17th century, Parliament was less an institution than an event; it was convened when the king sought the aid of his subjects in the process of creating new laws or to provide extraordinary revenue. Like everything else in English society, Parliament was constituted in a hierarchy, composed of the king, Lords, and Commons. Every peer of the realm was personally summoned to sit in the House of Lords, which was dominated by the greatest of the king's officers. The lower house was composed of representatives selected from the counties and boroughs of the nation. The House of Commons (Commons, House of) was growing as local communities petitioned for the right to be represented in Parliament and local gentry scrambled for the prestige of being chosen. It had 464 members in 1604 and 507 forty years later. Selection to the House of Commons was a mark of distinction, and many communities rotated the honour among their most important citizens and neighbours. Although there were elaborate regulations governing who could choose and who could be chosen, in fact very few members of the House of Commons were selected competitively. Contests for places were uncommon, and elections in which individual votes were cast were extremely rare.

      Members of Parliament served the dual function of representing the views of the localities to the king and of representing the views of the king to the localities. Most were members of royal government, either at court or in their local communities, and nearly all had responsibility for enforcing the laws that were created at Westminster. Most Parliaments were summoned to provide revenue in times of emergency, usually for defense, and most members were willing to provide it within appropriate limits. They came to Parliament to do the king's business, the business of their communities, and their own personal business in London. Such conflicting obligations were not always easily resolved, but Parliament was not perceived as an institution in opposition to the king any more than the stomach was seen as opposing the head of the body. There were upsets, however, and, increasingly during the 17th century, king and Parliament clashed over specific issues, but until the middle of the century they were part of one system of royal government.

James I (1603–25)
 James VI (James I), king of Scotland (1567–1625), was the most experienced monarch to accede to the English throne since William the Conqueror (William I), as well as one of the greatest of all Scottish kings. A model of the philosopher prince, James wrote political treatises such as The Trew Law of a Free Monarchy (1598), debated theology with learned divines, and reflected continually on the art of statecraft. He governed his poor by balancing its factions of clans and by restraining the enthusiastic leaders of its Presbyterian church. In Scotland, James was described as pleasing to look at and pleasing to hear. He was sober in habit, enjoyed vigorous exercise, and doted on his Danish wife, Anne, who had borne him two male heirs.

      But James I was viewed with suspicion by his new subjects. Centuries of hostility between the two nations had created deep enmities, and these could be seen in English descriptions of the king. In them he was characterized as hunchbacked and ugly, with a tongue too large for his mouth and a speech impediment that obscured his words. It was said that he drank to excess and spewed upon his filthy clothing. It was also rumoured that he was homosexual and that he took advantage of the young boys brought to service at court. This caricature, which has long dominated the popular view of James I, was largely the work of disappointed English office seekers whose pique clouded their observations and the judgments of generations of historians.

      In fact, James showed his abilities from the first. In the counties through which he passed on his way to London, he lavished royal bounty upon the elites who had been starved for honours during Elizabeth's parsimonious reign. He knighted hundreds as he went, enjoying the bountiful entertainments that formed such a contrast with his indigent homeland. He would never forget these first encounters with his English subjects, “their eyes flaming nothing but sparkles of affection.” On his progress James also received a petition, putatively signed by a thousand ministers, calling his attention to the unfinished business of church reform.

Triple monarchy
      James had one overriding ambition: to create a single unified monarchy out of the congeries of territories he now found himself ruling. He wanted a union not only of the crown but of the kingdoms. He made it plain to his first Parliament that he wanted a single name for this new single kingdom: he wanted to be king not of England, Scotland, and Ireland but of Great Britain, and that is what he put on his seals and on his coins. He wanted common citizenship, the end of trade barriers, and gradual movement toward a union of laws, of institutions, and of churches, although he knew this could not be achieved overnight. The chauvinism of too many English elite, however, meant he was not to achieve all of his goals. A common coinage, a common flag, the abolition of hostile laws, and a joint Anglo-Scottish plantation of Ulster were all he was able to manage. Even free trade between the kingdoms was prevented by the amateur lawyers in the English House of Commons. Having failed to promote union by legislation, he tried to promote it by stealth, creating a pan-British court and royal household, elevating Scots to the English peerage and Englishmen to the Scottish and Irish peerage, rewarding those who intermarried across borders, and seeking to remove from each of the churches those features objectionable to members of the other national churches. Progress was negligible and, under his son Charles I, went into reverse.

Religious policy
      The Millenary Petition (1603) initiated a debate over the religious establishment that James intended to defend. The king called a number of his leading bishops to hold a formal disputation with the reformers. The Hampton Court Conference (1604) saw the king in his element. He took a personal role in the debate and made clear that he hoped to find a place in his church for moderates of all stripes. It was only extremists that he intended to “harry from the land,” those who, unlike the supporters of the Millenary Petition, sought to tear down the established church. The king responded favourably to the call for creating a better-educated and better-paid clergy and referred several doctrinal matters to the consideration of convocation. But only a few of the points raised by the petitioners found their way into the revised canons of 1604. In fact, the most important result of the conference was the establishment of a commission to provide an authorized English translation of the Bible, the King James Version (1611).

 Indeed, James's hope was that moderates of all persuasions, Roman Catholic and Protestant (Protestantism) alike, might dwell together in his church. He offered to preside at a general council of all the Christian churches—Catholic and Protestant—to seek a general reconciliation. Liberals in all churches took his offer seriously. He sought to find a formula for suspending or ameliorating the laws against Catholics if they would take a binding oath of political obedience. Most Catholics were attracted by the offer, but James's plans took a tremendous knock when an unrepresentative group of Catholics, disappointed that this son of a Catholic queen had not immediately restored Catholic liberties, plotted to kill him, his family, and his leading supporters by blowing up the Houses of Parliament in the course of a state opening, using gunpowder secreted in a cellar immediately beneath the House of Lords. The failure of the Gunpowder Plot (1605) led to reprisals against Catholics and prevented James from going any further than exhibiting humane leniency toward them in the later years of his reign. Nevertheless, James's ecumenical outlook did much to defuse religious conflict and led to 20 years of relative peace within the English church.

Finance and politics
      To a king whose annual budget in Scotland was barely £50,000, England looked like the land of milk and honey. But in fact James I inherited serious financial problems, which his own liberality quickly compounded. Elizabeth had left a debt of more than £400,000, and James, with a wife and two sons, had much larger household expenses than the unmarried queen. Land and duties from customs were the major sources of royal revenue, and it was James's good fortune that the latter increased dramatically after the judges ruled in Bate's case (1606) that the king could make impositions on imported commodities without the consent of Parliament. Two years later, under the direction of James's able minister Robert Cecil, earl of Salisbury (Salisbury, Robert Cecil, 1st earl of), impositions were levied on an expanded list of goods, and a revised book of rates was issued in 1608 that increased the level of duties. By these measures customs revenues grew by £70,000 per year.

      But even this windfall was not enough to stem the effects of inflation on the one hand and James's own free spending on the other. By 1606 royal debt was more than £600,000, and the crown's financial ministers had turned their attention to prerogative income from wardships, purveyance, and the discovery of concealed lands (i.e., crown lands on which rents and dues were not being paid). The revival and rationalization of these ancient rights created an outcry. As early as 1604 Salisbury was examining proposals to commute these fiscal rights into an annual sum to be raised by a land tax (taxation). By 1610 negotiations began for the Great Contract between the king and his taxpaying subjects that aimed to raise £200,000 a year. But at the last moment both royal officials and leaders of the House of Commons backed away from the deal, the government believing that the sum was too low and the leaders of the Commons that a land tax was too unpopular. The failure of the Great Contract drove Salisbury to squeeze even more revenue out of the king's feudal rights, including the sale of titles. This policy violated the spirit of principles about property and personal liberty held by the governing classes and, along with impositions, was identified as a grievance during James's first Parliaments.

      There was much suspicion that the Scottish king would not understand the procedures and privileges of an English Parliament, and this suspicion was reinforced by James's speeches in the first session of the Parliament of 1604–10. The conventional ban upon the selection of outlaws to the Commons led to the Buckinghamshire Election Case (1604). The Commons reversed a decision by the lord chancellor and ordered Francis Goodwin, an outlaw, to be seated in the House of Commons. James clumsily intervened in the proceedings, stating that the privileges of the Commons had been granted by the grace of the monarch, a pronouncement that stirred the embers of Elizabethan disputes over parliamentary privilege. Although a compromise solution to the case was found, from this time forward the Commons took an active role in scrutinizing the returns of its members. A standing committee on elections was formed, and the freedom of members from arrest during sessions was reasserted. Some wanted to go even further and present the king with a defense of the ancient rights of their house. But this so-called apology was the work of a minority and was never accepted by the whole House of Commons or presented to the king.

Factions and favourites
 As in the previous reign, court politics were factionalized around noble groups tied together by kinship and interest. James had promoted members of the Howard Family to places of leadership in his government; Henry Howard, earl of Northampton (Northampton, Henry Howard, Earl of, Baron Of Marnhull), adeptly led a family group that included Thomas Howard, earl of Suffolk (Suffolk, Thomas Howard, 1st earl of, Lord Howard Of Walden), and Thomas Howard, earl of Arundel (Arundel, Thomas Howard, 2nd earl of, Earl Of Surrey, Earl Of Norfolk). All managed to enrich themselves at the expense of the king, whose debts reached £900,000 by 1618. A stink of corruption pervaded the court during these years. The Howards formed the core of a pro-Spanish faction that desired better relations with Spain and better treatment of English Catholics. They also played upon the king's desire for peace in Europe.

      The Howards were opposed by an anti-Spanish group that included the queen; George Abbot, archbishop of Canterbury; and William Herbert, earl of Pembroke. This group wished to pursue an aggressively Protestant foreign policy and, after the opening of the Thirty Years' War, to support James's son-in-law, Frederick V, the elector of the Palatinate. It was the anti-Spanish group that introduced the king to George Villiers (Buckingham, George Villiers, 1st Duke of), reputedly one of the handsomest men in Europe. Through Villiers they sought a conduit to power.

      Even at the time it was thought unseemly that a lover should be provided for the king at the connivance of the queen and the archbishop. But Villiers was nobody's fool, and, while he succeeded spectacularly in gaining James's confidence, he refused to be a cipher for those who had advanced him. Soon he had risen to the pinnacle of the aristocracy. First knighted in 1615, he was created duke of Buckingham in 1623, the first nonroyal duke in half a century. Buckingham proved an able politician. He supported the movement for fiscal reform that led to the disgrace of Lord Treasurer Suffolk and the promotion of Lionel Cranfield (Middlesex, Lionel Cranfield, 1st earl of), later earl of Middlesex. Cranfield, a skilled London merchant, took the royal accounts in hand and made the unpopular economies that kept government afloat.

      Buckingham, whose power rested upon his relationship with the king, wholeheartedly supported James's desire to reestablish peace in Europe. For years James had angled to marry his son Charles to a Spanish princess. There were, however, many obstacles to this plan, not the least of which was the insistence of the pope that the marriage lead to the reconversion of England to Roman Catholicism. When negotiations remained inconclusive, James, in 1621, called his third Parliament with the intention of asking for money to support the Protestant cause. By this means he hoped to bully Philip IV of Spain into concluding the marriage negotiations and into using his influence to put an end to the German war.

      Parliament, believing that James intended to initiate a trade war with Spain, readily granted the king's request for subsidies. But some members mistakenly also believed that the king wished their advice on military matters and on the prince's marriage. When James learned that foreign policy was being debated in the lower house, he rebuked the members for their temerity in breaching the royal prerogative. Stunned, both because they thought that they were following the king's wishes and because they believed in their freedom to discuss such matters, members of the Commons prepared the Protestation of 1621, exculpating their conduct and setting forth a statement of the liberties of the house. James sent for the Commons journal and personally ripped the protestation from it. He reiterated his claim that royal marriages and foreign policy were beyond the ken of Parliament and dryly noted that less than one-third of the elected members of the house had been present when the protestation was passed.

      The Parliament of 1621 was a failure at all levels. No legislation other than the subsidy bill was passed; a simple misunderstanding among the members had led to a dramatic confrontation with the king; and judicial impeachments were revived, costing the king the services of Lord Chancellor Bacon (Bacon, Francis, Viscount Saint Alban (or Albans), Baron of Verulam). James, moreover, was unable to make any progress with the Spaniards, and supporting the European Protestants drained his revenue. By 1624 royal indebtedness had reached £1 million. The old king was clearly at the end of his power and influence. His health was visibly deteriorating, and his policies were openly derided in court and country. Prince Charles (later Charles I) and Buckingham decided to take matters into their own hands. In 1623 they traveled incognito to Madrid.

      Their gambit created as much consternation in England as it did in Spain. James wept inconsolably, believing that his son would be killed or imprisoned. The Spaniards saw the end of their purposely drawn-out negotiations. Every effort was made to keep Charles away from the infanta, and he only managed to catch two fleeting glimpses of the heavily veiled princess. Nevertheless, he confided in Buckingham that he was hopelessly in love. Buckingham and John Digby, earl of Bristol (Bristol, John Digby, 1st earl of), the ambassador to Spain, were almost powerless to prevent the most damaging concessions. Charles even confessed himself willing to be instructed in the Catholic faith. Yet the more the prince conceded, the more embarrassed the Spaniards became. Nothing short of an ultimate Catholic reestablishment in England would be satisfactory, and they began to raise obviously artificial barriers. Even the lovesick prince realized that he was being humiliated. Shame turned to rage as he and Buckingham journeyed home.

      There they persuaded the bedridden king to call another Parliament for the purpose of declaring war on Spain. The Parliament of 1624 was given free rein. All manner of legislation was passed; subsidies for a trade war with Spain were voted; and issues of foreign policy were openly discussed. Firmly in control of political decision making, Charles and Buckingham worked to stave off attacks on James's fiscal policies, especially the granting of monopolies to royal favourites. The last Parliament of James's reign was his most successful. On March 27, 1625, the old king died.

Charles I (1625–49)
  Father and son could hardly be more different than were James and Charles. Charles was shy and physically deformed. He had a speech defect that made his pronouncements painful for him and his audiences alike. Charles had not been raised to rule. His childhood had been spent in the shadow of his brother, Prince Henry, who had died in 1612, and Charles had little practical experience of government. He was introverted and clung tenaciously to a few intimates. His wife, Henrietta Maria—French, Roman Catholic, and hugely unpopular—received Charles's loyalty despite great political cost. So did Buckingham, who survived the change in monarchs and consolidated his grip on government.

The politics of war
      Along with his kingdom, Charles I inherited a domestic economic crisis and the war with Spain. A series of bad grain harvests, continued dislocation of the cloth trade, and a virulent plague that killed tens of thousands all conspired against the new king. Under the pressure of economic crisis, members of the Parliament of 1625 were determined to reform the customs and to limit the crown's right to levy impositions. The traditional lifelong grant of tonnage and poundage was thus withheld from Charles so that reform could be considered. But reform was delayed, and, despite the appearance of illegality, the king collected these levies to prevent bankruptcy.

      The Spanish war progressed no better than the domestic economy. Buckingham organized an expedition to Cádiz, but its failure forced Charles to summon another Parliament. From the start the Parliament of 1626 was badly managed, and members of both houses thirsted for Buckingham's blood. Where James had sacrificed his ministers to further policy, Charles would not. Parliament was dissolved without granting any subsidies.

      Charles now fell back upon desperate remedies. All his predecessors had collected “forced loans” at times of imminent crisis when there was no time to await parliamentary elections, returns, and the vote of subsidies. It was widely accepted that the king must have discretion to require loans from his subjects in such circumstances—loans that were routinely converted into grants when the next Parliament met. What was unprecedented was the collection of forced loans to replace lost parliamentary subsidies. The £260,000 Charles collected in 1627 was precisely the sum he had turned down when it was made conditional upon his surrender of Buckingham to the wrath of the Commons. But he collected it at a heavy price: Charles was compelled to lock up 180 refusers, including many prominent gentry. However, he refused to show cause for his imprisonment of five leading knights, controversially relying on a rarely used discretionary power to arrest “by special commandment” those suspected of crimes it was not in the general interest to make public—a contingency normally used to nip conspiracies in the bud. The inevitable result was furor in the next Parliament, to which he again had to go cap in hand because he was desperate for money to fund simultaneous naval wars against the two superpowers, France and Spain. Lawyers, such as Sir Edward Coke (Coke, Sir Edward), and country gentlemen, such as Sir John Eliot (Eliot, Sir John), now feared that the common law insufficiently protected their lives and liberties. This sentiment was compounded by the fact that soldiers were being billeted in citizens' homes; local militias were forced to raise, equip, and transport men to fight abroad; and provost marshals declared martial law in peaceful English communities.

      Yet the extremity of these expedients was matched by the seriousness of the international situation. Incredibly, England was now at war with both France and Spain, and Buckingham was determined to restore his reputation. Instead, the campaign of 1627 was a disaster, and the duke's landing at the Île de Ré a debacle. It was hard to see how Charles could protect him from his critics once the Parliament of 1628–29 assembled.

      The defeats of 1627 made emergency taxation more necessary than ever, and the new Parliament, 27 of whose members had been imprisoned for refusing to contribute to the loan, assembled with a sense of profound disquiet. It was proposed to grant the king five subsidies for defense but to delay their passage until the Petition of Right (right, petition of) (1628) could be prepared. The petition asserted four liberties: freedom from arbitrary arrest, freedom from nonparliamentary taxation, freedom from the billeting of troops, and freedom from martial law. Couched in the language of tradition, it was presented to the king as a restatement of ancient liberties. In this spirit he accepted it, more in hope of receiving his subsidies than in fear that the petition would restrain his actions.

      Between the two sessions of this Parliament, the duke of Buckingham was assassinated (Aug. 23, 1628). While the king wept in his palace, people drank to the health of the assassin in the streets; Buckingham had become a symbol of all that was wrong in the country. But with the king's favourite removed, there was a void in government. Buckingham had been in charge of military and domestic policy, and there was no one else who had the confidence of the king or the ability to direct the royal program. When Charles I, grief-stricken, attempted to manage the second session of Parliament by himself, all the tensions came to a head. In the Commons some members wanted to challenge violations of the Petition of Right, especially the continued collection of tonnage and poundage without parliamentary authority. Others were equally agitated about changes in religious policy caused by the emergence of Arminianism. When the level of bitterness reached new heights, the king decided to end the session. But before he could do so, two hotheaded members physically restrained the speaker while the Three Resolutions (1629), condemning the collection of tonnage and poundage as well as the doctrine and practice of Arminianism, were introduced. Parliament broke up in pandemonium, with both king and members shocked by the “carriage of diverse fiery spirits.”

Peace and reform
      The dissolution of the Parliament of 1628 in 1629 and the king's clear intention to govern for a period without this troublesome institution necessitated a reversal of policy. Over the next two years, peace treaties ended England's fruitless involvement in continental warfare in which more than £2 million had been wasted and royal government brought into disrepute. The king was also able to pacify his subjects by launching a campaign of administrative and fiscal reform that finally allowed the crown to live within its own revenues. Customs increased to £500,000 as both European and North American trade expanded. Under capable ministers such as Richard Weston, earl of Portland, prerogative income also increased. Ancient precedents were carefully searched to ensure that the crown received its full and lawful dues. Fines were imposed on those who had not come forward to be knighted at the king's accession. These distraints of knighthood yielded more than £170,000. The boundaries of royal forests were resurveyed and encroachers fined. Fees in the court of wards were raised and procedures streamlined. With effort and application annual royal revenue reached £1 million.

      The most important of Charles's fiscal schemes was not technically a design to squeeze monies into the royal coffers. While the king's own rights might underwrite the needs of government, they could do nothing toward maintaining the navy, England's sole military establishment. Thus, Charles expanded the collection of ship money, an ancient levy by which revenue was raised for the outfitting of warships. Although ship money was normally only collected in the ports in times of emergency, Charles extended it to inland communities and declared pirates a national menace. At first there was little resistance to the collection of ship money, but, as it was levied year after year, questions about its legitimacy were raised. The case of John Hampden (Hampden, John) (1637) turned upon the king's emergency powers and divided the royal judges, who narrowly decided for the crown. But legal opinion varied so significantly that revenue dropped, and the stirring of a taxpayer revolt could be felt.

Religious reform
 Fears about the state of the church, which erupted at the end of the Parliament of 1628, had been building for several years. Charles had become drawn to a movement of church reform that aroused deep hostility among his Calvinist subjects. The doctrines of predestination and justification by faith alone formed the core of beliefs in the traditional English church. Yet slowly competing doctrines of free will and the importance of works along with faith, advocated by the Dutch theologian Jacobus Arminius (Arminius, Jacobus), spread to the English church. Arminians (Arminianism) were viewed as radical reformers despite the fact that their leaders were elevated to the highest positions in church government. In 1633 William Laud (Laud, William), one of the ablest of the Arminians, became archbishop of Canterbury. Laud stressed ceremony over preaching. He believed in the “beauty of holiness” and introduced measures to decorate churches and to separate the communion table from the congregation. Both of these practices were reminiscent of Roman Catholicism, and they came at a time when Protestants everywhere feared for the survival of their religion. Nor did it help that the queen openly attended mass along with some highly placed converted courtiers. Anti-popery was the single strain that had united the diverse elements of Protestant reform, and it was now a rallying cry against innovations at home rather than abominations abroad.

      But perhaps Laud's greatest offense was to promote the authority of the clergy in general and of the bishops in particular, against the laity. He challenged head-on the central thrust of the English Reformation: the assault on the institutional wealth and power of the church as a clerical corporation. He wanted to restore the authority of the church courts and threatened to excommunicate the king's judges if they persisted in trying cases that belonged to ecclesiastical jurisdiction. He also tried to restore the value of tithes and prevent the misappropriation of churchyards for secular purposes. Moreover, he sought to penalize those who did not pay the (much-enhanced) levies for the refurbishment of church buildings. Menacingly, in Scotland and Ireland (as a prelude, many assumed, to actions to come in England) he tried to renegotiate by a policy of surrender the terms on which all former monastic and cathedral lands were held. In all this he appeared to act more like an aggressive papal nuncio than a compliant appointee of the royal supreme governor of the church, and Charles I's purring complaisance in Laud's activities was unendurable to most of his subjects. The master of Westminster School was whipped in front of his pupils for saying of Laud that, like “a busie, angry wasp, his sting is in the tayl of everything.” Others were flogged through the streets of London or had their ears cut off for “libeling” Laud and his work. He alienated not only everyone with a Puritan scruple but everyone with a strong sense of the supremacy of common law or with an inherited suspicion of clerical pride. No wonder the archbishop had so few friends by 1640.

      His program extended to Ireland and—especially disastrously—to Scotland. Without consulting Parliament, the General Assembly, the Scottish bishops in conclave, or even the Scottish Privy Council, but rather by royal diktat, Laud ordered the introduction of new canons, a new ordinal, and a new prayer book based not on the English prayer book of 1559 but on the more ceremonialist and crypto-Catholic English prayer book of 1549. This was met by riot and, eventually, rebellion. Vast numbers of Scots bound themselves passively to disobey the “unlawful” religious innovations. Charles I decided to use force to compel them, and he twice sought to use troops raised by a loyal (largely Catholic) Scottish minority, troops from Ireland, and troops from England to achieve this end.

      The Bishops' Wars (1639–40) brought an end to the tranquillity of the 1630s. Charles had to meet rebellion with force, and force required money from Parliament. He genuinely believed that he would be supported against the rebels, failing to comprehend the profound hostility that Laud's innovations had created in England. The Short Parliament (1640) lasted less than a month before the king dissolved it rather than permit an extended discussion of his inadequacies. He scraped some money together and placed his troops under the command of his able and ruthless deputy, Thomas Wentworth, earl of Strafford (Strafford, Thomas Wentworth, 1st earl of, Baron Of Raby). But English troops fighting for pay proved no match for Scottish troops fighting for religion. In 1640 the Scots invaded England and captured Newcastle, the vital source of London's coal. Charles was forced to accept a humiliating treaty whereby he paid for the upkeep of the Scottish army and agreed to call another Parliament.

 With his circumstances more desperate than ever, Charles I summoned Parliament to meet in November 1640. The king faced a body profoundly mistrustful of his intentions. The reform movement in the Commons was led by John Pym (Pym, John), a minor Somerset landowner, who was prominent by his oratorical skills in debate and his political skills in committee. Pym was a moderate, and for the next three years he ably steered compromises between those who wanted too much and those who would settle for too little. In the Lords, Viscount Saye and Sele (Saye and Sele, William Fiennes, 1st Viscount, 8th Lord Saye And Sele) and the earl of Warwick and the earl of Bedford (Bedford, Francis Russell, 4th earl of) worked in tandem with Pym and his allies, leading or following as occasion required.

      The Long Parliament (1640–53) opened with the imprisonment of Strafford and Laud, the architects of the Scottish fiasco. Strafford was put on trial and ultimately attainted for treason. The dubious legality of the charges against him forced the Commons to proceed by bill rather than impeachment, and thus both the House of Lords and the monarch had to approve the charge. The Lords were cowed by crowds of angry London citizens and apprentices and Charles by the mistaken belief that Strafford's blood would placate his opponents. But Strafford's execution in May was just the beginning.

      In fact, parliamentary reform took two different tacks. The first was to limit the king's constitutional authority in order to protect the existence of Parliament and the liberties of subjects. The second was to reconstitute the church. In February the Triennial Act (1641) was passed, mandating the summoning of Parliament every three years. In May the king's power to dissolve the Long Parliament was removed. Charles was forced to accept both bills. Meanwhile, the Commons relentlessly investigated the legal basis of the king's fiscal expedients, amending the laws that Charles had so scrupulously followed. Ship money and distraints of knighthood were declared illegal, royal forests were defined, and the prerogative courts of High Commission and Star Chamber were abolished. Again the king acceded.

      Church reform proved more treacherous. Parliamentary leaders agreed that Charles and Laud had introduced intolerable innovations, but where some were satisfied by their removal, others wished that they be replaced by even greater novelties. In December 1640 an orchestrated petitioning campaign called upon Parliament to abolish episcopacy, root and branch. Pym and his supporters were as yet unwilling to propose such a sweeping change, fearing lest it divide the Commons and create a crisis with the Lords. Nevertheless, the equally radical proposal to remove the bishops from the upper house was passed in May, and, when the Lords rejected it, the Commons responded with the Root and Branch Bill.

      Pym's fear that the religious issue might break apart the parliamentary consensus was compounded by his fear of provoking the king to counterattack. Throughout the first six months of the session, Charles had meekly followed Parliament's lead. But there were ominous signs that the worm would turn. His leading advisers, the queen among them, were searching for military options. The radical attack upon the church allowed the king to portray himself as the conservator of “the pure religion of Queen Elizabeth and King James” without “any connivance of popery or innovation”—a coded repudiation of Laudianism and Arminianism. Week by week, sympathy for the king was growing, and in August Charles determined to conclude a peace treaty with the Scots. This successful negotiation removed the crisis that had brought the Long Parliament into being. When Charles returned to London at the end of November, he was met by cheering crowds and a large body of members of the two houses, who were unaware that he had been behind a failed attempt to arrest the leading conservator and overturn the Scottish settlement.

      While the king resolved one crisis in Scotland, another emerged in Ireland. Catholics, stung by the harsh repression of Strafford's rule and by the threat of plantation and of the direct rule from England planned by the Long Parliament, rose against their Protestant overlords and slaughtered thousands in a bloody rebellion. Though the reality was grim enough, the exaggerated reports that reached London seemed to fulfill the worst fears of a popish plot. Urgently an army had to be raised, but only the king had military authority, and in the present circumstance he could not be trusted with a force that might be used in London rather than Londonderry. In despair over the situation in Ireland and deeply suspicious of the king's intentions, the leaders of the Long Parliament debated the Grand Remonstrance, a catalog of their grievances against the king.

      The Grand Remonstrance (1641) divided the Commons as nothing else had. It passed by only 11 votes, and the move to have it printed failed. Many were appalled that the remonstrance was to be used as propaganda “to tell stories to the people.” For the first time, members of Commons began to coalesce into opposing factions of royalists and parliamentarians.

      The passage of the Grand Remonstrance was followed by Pym's attempt to transfer control of the militia (the appointment of lords, lieutenants, military officers, etc.) from the crown to Parliament. The political situation had reached a state of crisis. In Parliament, rumours spread of a royal attack upon the houses, and at court wild talk of an impeachment of the queen was reported. It was Charles who broke the deadlock. On Jan. 4, 1642, he rode to Westminster intending to impeach five members of the Commons and one of the Lords on charges of treason. It was the same device that had already failed in Scotland. But, because the king's plan was no secret, the members had already fled. Thus, Charles's dramatic breach of parliamentary privilege badly backfired. He not only failed to obtain his objective but also lost the confidence of many of the moderates left in Parliament. After ensuring the safe departure of his wife and children out of the country, Charles abandoned his capital and headed north.

      The initiative had returned to Pym and his allies, who now proceeded to pass much of their stalled legislation, including the exclusion of the bishops from the Lords and the Impressment Bill (1642), which allowed Parliament to raise the army for Ireland. In June a series of proposals for a treaty, the Nineteen Propositions (1642), was presented to the king. The proposals called for parliamentary control over the militia, the choice of royal counselors, and religious reform. Charles rejected them outright, though in his answer he seemed to grant Parliament a coordinate power in government, making the king but one of the three estates. The king, however, had determined to settle the matter by main force. His principal advisers believed that the greatest lords and gentlemen would rally to their king and that Parliament would not have the stomach for rebellion. On Aug. 22, 1642, the king raised his standard bearing the device “Give Caesar His Due.”

Civil war (English Civil Wars) and revolution
 The war that began in 1642 was a war within three kingdoms and between three kingdoms. There was a civil war in Ireland that pitted the Catholic majority against the Protestant minority, buttressed by English and Scottish armies. This war festered nastily throughout the 1640s and was settled only by a devastating use of force and terror by Oliver Cromwell (Cromwell, Oliver) in 1649–50 and his successors in 1651–54. Whenever they were in the ascendancy, the Catholic Irish were willing to send armies into England to assist Charles I, on condition that he give them religious freedom and effective control of the political institutions of the Irish kingdom. After the Cromwellian conquest, the English set out to destroy the power and wealth of the Catholic elite—at one point even proposing to transport every native Catholic from 26 of the 32 counties of Ireland into the western region comprising the 5 counties of Connacht and County Clare; in the event, they settled for a confiscation of two-fifths of the land and its redistribution to Protestant Englishmen.

      Scotland also was embroiled in civil war, but, at one time or another, all the groups involved demonstrated a willingness to send armies into England. The Anglo-Scottish wars were fought from 1643 to 1646, resumed from 1648 to 1651, and resulted in an English military occupation and complete political subjugation (the incorporation of Scotland into an enhanced English state) that lasted until the Restoration in 1660.

      And then there was the English Civil War that began in 1642, a war that neither king, Parliament, nor the country wanted. It was a war that was as dangerous to win as to lose. The parliamentarians could only maintain the fiction that they were fighting to “preserve the safety of the king,” as the commission of their commander, Robert Devereux, earl of Essex (Essex, Robert Devereux, 3rd earl of, Viscount Hereford Lord Ferrers, Lord Bourchier), stated. The king's fiction was that he was opposing a rebellion. Most of the country remained neutral, hoping that differences would be composed and fighting ended.

      The first years of war were as halfhearted as these justifications. Parliament held the tactical advantages of controlling the navy and London. While the navy protected the coast from foreign invasion, London provided the funds and manpower for battle. The king held the strategic advantage of knowing that he had to recapture his capital. He relied upon the aristocracy for men and arms. In the first substantial engagement of the war, the Battle of Edgehill (Edgehill, Battle of) (1642), Charles's cavalry proved superior to Parliament's, and he followed this first encounter by marching on the capital. At Brentford (1642), on the outskirts of London, the City militia narrowly averted the king's triumph. For the next two years, however, the war was fought to a desultory standstill.

      Almost from the beginning, the members of Parliament were divided over their goals. A war group argued that Charles could not be trusted until he learned the lesson of military defeat. A peace group countered that the longer the war ground on, the less likely Charles would be to compromise. Both of these groups were loose coalitions, and neither of them dominated parliamentary politics. Until his death in 1643, Pym steered a course between them, supporting the Oxford Propositions (1643) for peace as well as creating the administrative machinery to raise and finance armies. The excise, modeled on impositions, and the monthly assessments, modeled on ship money, increased levels of taxation to new heights. The king burdened the communities his forces controlled just as heavily.

 In 1643 the war widened. Charles negotiated a cease-fire with the Catholic rebels in Ireland that allowed him to bring Irish troops to England. Parliament negotiated the Solemn League and Covenant (1643) with the Scots, who brought an army to England in return for guarantees of a presbyterian church establishment. Initially Parliament benefited most. A combination of English and Scottish troops defeated royalist forces at the Battle of Marston Moor (Marston Moor, Battle of) (1644) and took York. But ultimately religious differences between Scottish Presbyterians and English Independents vitiated the alliance. As the parliamentary commanders bickered, their forces were defeated at Lostwithiel (1644) and Newbury (1644). While another round of peace negotiations began, the unsuccessful Uxbridge Proposals (1645), Parliament recast its military establishment and formed the New Model Army.

      There was little new about the New Model Army other than centralization. Remnants of three armies were combined to be directed by a parliamentary committee. This committee included the parliamentary generals who were displaced by the Self-Denying Ordinance (1645), an act that excluded members of Parliament from civil and military office. The New Model Army was commanded by Thomas Fairfax, Baron Fairfax (Fairfax, Thomas Fairfax, 3rd Baron), and eventually the cavalry was led by Lieut. Gen. Oliver Cromwell (Cromwell, Oliver).

 The new parliamentary army was thought so weak that the king hoped to crush it in a single blow and thus end the war. Instead, the Battle of Naseby (Naseby, Battle of) on June 14, 1645, delivered the decisive blow to the royalists. Even though the parliamentary forces only just managed to carry the day despite their numerical superiority, their victory was decisive. It destroyed the king's main armies and left open a path to the west, where his other substantial forces were defeated at Langport (1645). The following year, the king surrendered to the Scots, erroneously believing that they would strike a better bargain.

      For four years the political divisions at Westminster had been held in check by the military emergency. But the king's defeat released all restraints. In Parliament coherent parties began to form around the religious poles provided by Presbyterians and Independents and around the political poles of peace and war. Denzil Holles (Holles, Denzil Holles, 1st Baron), one of the five members of Parliament Charles had tried to arrest in 1642, came to head the most powerful group. He pushed through a presbyterian church settlement, negotiated a large loan from the City of London, and used the money to ransom the king from the Scots. Holles's peace plan was to remove the main points of difference between king and Parliament by disbanding the army and settling the disputes about the church, the militia, and the rebellion in Ireland. His party was opposed by a group led by Sir Henry Vane the Younger (Vane, Sir Henry, the Younger) and Oliver Cromwell, who desired toleration for Independents and were fearful of disbanding the army before an agreement was reached with Charles I.

      But war weariness in both Parliament and the country swept all before it. In January 1647 Charles was returned to English custody, and Holles moved forward with his plan to send a portion of the army to Ireland, assign a small force to English garrisons, and disband the rest. But in this he reckoned without the army. In the rank and file, concern about arrears of pay, indemnity, and liability for impressment stirred the soldiers to resist Irish service. A movement that began over material grievances soon turned political as representatives were chosen from the rank and file to present demands through their officers to Parliament. Holles attempted to brush this movement aside and push through his disbandment scheme. At this the army rose up, driving out those of its officers who supported the disbandment, seizing Charles at Holmby House on June 3 and demanding the impeachment of Holles and his main supporters. At the beginning of August 1647, the army marched into London, and Holles, with 10 of his allies, fled the capital.

 The army's intervention transformed civil war into revolution. Parliament, which in 1646 had argued that it was the fundamental authority in the country, by 1647 was but a pawn in a new game of power politics. The perceived corruption of Parliament made it, like the king, a target of reform. Initiative was now in the hands of the king and the army, and Charles I tried to entice Cromwell and Henry Ireton (Ireton, Henry), the army's leading strategist, to bargain his restoration for a tolerant church settlement. But the officers were only one part of a politicized army that was bombarded with plans for reorganizing the state. Among the most potent plans were those of the Levelers (Leveler), led by John Lilburne (Lilburne, John), who desired that a new compact between ruler and ruled, the Agreement of the People (1647), be made. This was debated by the council of the army at Putney in October. The Levelers' proposals, which had much in common with the army's, called for the reform of Parliament through elections based upon a broad franchise and for a generally tolerant church settlement. Turmoil in the army led Fairfax and Cromwell to reassert military discipline, while the machinations of Charles led to the second Civil War (1648).

      Charles had now managed to join his English supporters with discontented Scots who opposed the army's intervention in politics. Though the fighting was brief, it was bloody. Fairfax stormed Colchester (1648) and executed the ringleaders of the English rebellion, and Cromwell and several New Model regiments defeated the invading Scots at the Battle of Preston (1648).

      The second Civil War hardened attitudes in the army. The king was directly blamed for the unnecessary loss of life, and for the first time alternatives to Charles Stuart, “that man of blood,” were openly contemplated. Parliament too was appalled by the renewal of fighting. Moderate members believed that there was still a chance to bring the king to terms, despite the fact that he had rejected treaty after treaty. While the army made plans to put the king on trial, Parliament summoned its strength for one last negotiation, the abortive Treaty of Newport. Even now the king remained intransigent, especially over the issue of episcopacy. New negotiations infuriated the army, because it believed that Parliament would sell out its sacrifices and compromise its ideals. On Dec. 6, 1648, army troops, under the direction of Col. Thomas Pride (Pride, Sir Thomas), purged the House of Commons. Forty-five members were arrested, and 186 were kept away. A rump (Rump Parliament) of about 75 active members were left to do the army's bidding. They were to establish a High Court of Justice, prepare a charge of treason against the king, and place him on trial in the name of the people of England. Pride's Purge was a last-minute compromise made to prevent absolute military rule. With Cromwell deliberately absent in the north, Ireton was left to stave off the argument, made by the Levelers, that Parliament was hopelessly corrupt and should be dissolved. The decision to proceed by trial in the High Court of Parliament was a decision in favour of constitutional forms, however much a shadow they had become.

      The king's trial took place at the end of January. The Court of Justice was composed of members of Parliament, civilians, and army officers. There was little enthusiasm for the work that had to be done. No more senior judge than John Bradshaw (Bradshaw, John) could be found to preside, and he wore a hat ringed with iron in fear of assassination. The charges against the king, however politically correct, had little legal basis, and Charles deftly exposed their weakness. But like Strafford before him, Charles was to be sacrificed to the law of necessity if not the law of England. On Jan. 30, 1649, at the wall of his own palace, Charles I was beheaded. A witness recorded in his diary, “Such a groan went up as I had never before heard.”

Commonwealth and Protectorate
      The execution of the king aroused hostility not only in England but also throughout Europe. Regicide was considered the worst of all crimes, and not even the brilliance of John Milton (Milton, John) in The Tenure of Kings and Magistrates (1649) could persuade either Catholic or Protestant powers that the execution of Charles I was just. Open season was declared against English shipping, and Charles II was encouraged to reclaim his father's three kingdoms.

      Despite opposition and continued external threats, the government of the Commonwealth was declared in May 1649 after acts had been passed to abolish the monarchy and the House of Lords. Political power resided in a Council of State, the Rump Parliament (which swelled from 75 to 213 members in the year following the king's execution), and the army. The military was now a permanent part of English government. Though the soldiers had assigned the complex tasks of reform to Parliament, they made sure of their ability to intervene in political affairs.

 At first, however, the soldiers had other things to occupy them. For reasons of security and revenge, Ireland had to be pacified. In the autumn of 1649, Cromwell crossed to Ireland to deal once and for all with the Irish Confederate rebels. He came first to Drogheda. When the town refused to surrender, he stormed it and put the garrison of 3,000 to the sword, acting both as the avenger of the massacres of 1641 (“I am persuaded that this is a righteous judgement of God upon those barbarous wretches who have imbrued their hands in so much innocent blood”) and as a deliberate instrument of terror to induce others to surrender. He repeated his policy of massacre at Wexford, this time choosing not to spare the civilian population. These actions had the desired effect, and most other towns surrendered at Cromwell's approach. He departed Ireland after nine months, leaving his successors with only a mopping-up operation. His reputation at a new high, Cromwell was next put in charge of dealing with those Scots who had welcomed Charles I's son, Charles II, to Scotland and who were soon to crown him at Scone as king of all of Great Britain and Ireland. Although outnumbered and in a weak defensive position, Cromwell won a stunning victory in the Battle of Dunbar (Dunbar, Battle of) on Sept. 3, 1650. A year later to the day, having chased Charles II and a second Scottish army into England, he gained an overwhelming victory at Worcester. Charles II barely escaped with his life.

      Victorious wars against the Irish, Scots, and Dutch (1652) made the Commonwealth a feared military power. But the struggle for survival defined the Rump's conservative policies. Little was done to reform the law. An attempt to abolish the court of chancery created chaos in the central courts. Little agreement could be reached on religious matters, especially on the vexing question of the compulsory payment of tithes. The Rump failed both to make long-term provision for a new “national church” and to define the state's right to confer and place limits on the freedom of those who wished to worship and gather outside the church. Most ominously, nothing at all had been done to set a limit for the sitting of the Rump and to provide for franchise reform and the election of a new Parliament. This had been the principal demand of the army, and the more the Rump protested the difficulty of the problem, the less patient the soldiers became. In April, when it was clear that the Rump would set a limit to its sitting but would nominate its own members to judge new elections, Cromwell marched to Westminster and dissolved Parliament. The Rump was replaced by an assembly nominated mostly by the army high command. The Nominated Parliament (Barebones Parliament) (1653) was no better able to overcome its internal divisions or untangle the threads of reform than the Rump. After five months it dissolved itself and returned power to Cromwell and the army.

      The problems that beset both the Rump and the Nominated Parliament resulted from the diversity of groups that supported the revolution, ranging from pragmatic men of affairs, lawyers, officeholders, and local magistrates whose principal desire was to restore and maintain order to zealous visionaries who wished to establish heaven on earth. The republicans, like Sir Henry Vane the Younger, hoped to create a government based upon the model of ancient Rome and modern Venice. They were proud of the achievements of the Commonwealth and reviled Cromwell for dissolving the Rump. But most political reformers based their programs on dreams of the future rather than the past. They were millenarians, expecting the imminent Second Coming of Christ. Some were social reformers, such as Gerrard Winstanley (Winstanley, Gerrard), whose followers, agrarian communists known as Diggers (Digger), believed that the common lands should be returned to the common people. Others were mystics, such as the Ranters, led by Laurence Claxton (Claxton, Laurence), who believed that they were infused with a holy spirit that removed sin from even their most reprehensible acts. The most enduring of these groups were the Quakers (Friends, Society of) (Society of Friends (Friends, Society of)), whose social radicalism was seen in their refusal to take oaths or doff their hats and whose religious radicalism was contained in their emphasis upon inner light. Ultimately, all these groups were persecuted by successive revolutionary governments, which were continually being forced to establish conservative limits to individual and collective behaviour.

      The failure of the Nominated Parliament led to the creation of the first British constitution, the Instrument of Government (Government, Instrument of) (1653). Drafted by Maj. Gen. John Lambert (Lambert, John), the Instrument created a lord protector, a Council of State, and a reformed Parliament that was to be elected at least once every three years. Cromwell was named protector, and he chose a civilian-dominated Council to help him govern. The Protectorate tackled many of the central issues of reform head-on. Commissions were appointed to study law reform and the question of tithes. Social legislation against swearing, drunkenness, and stage plays was introduced. Steps were taken to provide for the training of a godly ministry, and even a new university at Durham was begun.

      But the protector was no better able to manage his Parliaments than had been the king. The Parliament of 1654 immediately questioned the entire basis of the newly established government, with the republicans vigorously disputing the office of lord protector. The Parliament of 1656, despite the exclusion of many known opponents, was no more pliable. Both were a focus for the manifold discontents of supporters and opponents of the regime.

      Nothing was more central to the Cromwellian experiment than the cause of religious liberty. Cromwell believed that no one church had a monopoly on truth and that no one form of government or worship was necessary or desirable. Moreover, he believed in a loosely federated national church, with each parish free to worship as it wished within very broad limits and staffed by a clergy licensed by the state on the basis of their knowledge of the Bible and the uprightness of their lives, without reference to their religious beliefs. On the other hand, Cromwell felt that there should be freedom for “all species of protestant” to gather if they wished into religious assemblies outside the national church. He did not believe, however, that religious liberty was a natural right, but one conferred by the Christian magistrate, who could place prudential limits on the exercise of that liberty. Thus, those who claimed that their religion permitted or even promoted licentiousness and sexual freedom, who denied the Trinity, or who claimed the right to disrupt the worship of others were subject to proscription or penalty. Furthermore, for the only time between the Reformation and the mid-19th century, there was no religious test for the holding of public office. Although Cromwell made his detestation of Catholicism very plain, Catholics benefited from the repeal of the laws requiring attendance at parish churches, and they were less persecuted for the private exercise of their own faith than at any other time in the century. Cromwell's policy of religious tolerance was far from total, but it was exceptional in the early modern world.

      Among opponents, royalists were again active, though by now they were reduced to secret associations and conspiracies. In the west, Penruddock's rising, the most successful of a series of otherwise feeble royalist actions in March 1655, was effectively suppressed, but Cromwell reacted by reducing both the standing army and the level of taxation on all. He also appointed senior army officers “major generals,” raising ultra-loyal militias from among the demobbed veterans paid for by penal taxation on all those convicted of active royalism in the previous decade. The major generals were also charged with superintending “a reformation of manners”—the imposition of strict Puritan (Puritanism) codes of social and sexual conduct. They were extremely unpopular, and, despite their effectiveness, the offices were abolished within a year.

      By now it was apparent that the regime was held together by Cromwell alone. Within his personality resided the contradictions of the revolution. Like the gentry, he desired a fixed and stable constitution, but, like the zealous, he was infused with a millenarian vision of a more glorious world to come (see millennialism). As a member of Parliament from 1640, he respected the fundamental authority that Parliament represented, but, as a member of the army, he understood power and the decisive demands of necessity. In the 1650s many wished him to become king, but he refused the crown, preferring the authority of the people to the authority of the sword. When he died in 1658, all hope of continued reform died with him.

      For a time, Richard Cromwell (Cromwell, Richard) was elevated to his father's titles and dignity, but he was no match in power or skill. The republicans and the army officers who had fought Oliver tooth and nail now hoped to use his son to dismantle the civil government that under the Humble Petition and Advice (1657) had come to resemble nothing so much as the old monarchy. An upper House of Lords had been created, and the court at Whitehall was every bit as ceremonious as that of the Stuarts. While some demanded that the Rump be restored to power, others clamoured for the selection of a new Parliament on the basis of the old franchise, and this took place in 1659. By then there was a vacuum of power at the centre; Richard Cromwell, incapable of governing, simply left office. A rebellion of junior officers led to the reestablishment of the Rump.

 But all was confusion. The Rump was incapable of governing without financial support from the City and military support from the army. Just as in 1647, the City demanded military disbandment and the army demanded satisfaction of its material grievances. But the army was no longer a unified force. Contentions among the senior officers led to an attempt to arrest Lambert, and the widely scattered regiments had their own grievances to propound. The most powerful force was in Scotland, commanded by George Monck (Monck, George, 1st duke of Albemarle, earl of Torrington, Baron Monck of Potheridge, Beauchamp and Teyes), once a royalist and now one of the ablest of the army's senior officers. When one group of officers determined to dissolve the Rump, Monck marched his forces south, determined to restore it. Arriving in London, Monck quickly realized that the Rump could never govern effectively and that only the restoration of Charles II could put an end to the political chaos that now gripped the state. In February 1660 Monck reversed Pride's Purge, inviting all of the secluded members of the Long Parliament to return to their seats under army protection. A month later the Long Parliament dissolved itself, paving the way for the return of the king.

The later Stuarts
Charles II (1660–85)

The Restoration
  Charles II arrived in London on the 30th birthday of what had already been a remarkably eventful life. He came of age in Europe, a child of diplomatic intrigues, broken promises, and unfulfilled hopes. By necessity he had developed a thick skin and a shrewd political realism. This was displayed in the Declaration of Breda (1660), in which Charles offered something to everyone in his terms for resuming government. A general pardon would be issued, a tolerant religious settlement would be sought, and security for private property would be assured. Never a man for details, Charles left the specifics to the Convention Parliament (1660), which was composed of members of the competing religious and political parties that contended for power amid the rubble of the Commonwealth.

      The Convention declared the restoration of the king and the lords, disbanded the army, established a fixed income for the king by maintaining the parliamentary innovation of the excise tax, and returned to the crown and the bishops their confiscated estates. But it made no headway on a religious settlement. Despite Charles's promise of a limited toleration and his desire to accept Presbyterians into the Anglican fold as detailed in the Worcester House Declaration (1660), enthusiasts from both left and right wrecked every compromise.

      It was left to the Cavalier Parliament (1661–79) to make the hard choices and to demonstrate that one of the changes that had survived the revolution was the independence of Parliament. Despite Charles's desire to treat his father's adversaries leniently and to find a broad church settlement, the Cavalier Parliament sought to establish a rigid Anglican orthodoxy. It began the alliance between squire and parson that was to dominate English local society for centuries. The bishops were returned to Parliament, a new prayer book was authorized, and repressive acts were passed to compel conformity. The imposition of oaths of allegiance and nonresistance to the crown and an oath recognizing the king's supremacy in the church upon all members of local government in the Corporation Act (1661) and then upon the clergy in the Act of Uniformity (1662) led to a massive purge of officeholders. Town governors were put out of their places, and nearly one-fifth of all clergymen were deprived of their livings. Authority in the localities was now firmly in the hands of the gentry. The Conventicle Act (1664) barred Nonconformists (Nonconformist) (Dissenters) from holding separate church services, and the Five Mile Act (1665) prohibited dispossessed ministers from even visiting their former congregations.

      This program of repressive religious legislation was the first of many missed opportunities to remove the underlying causes of political discontent. Though religious dissenters were not a large percentage of the population, their treatment raised the spectre of permanently divided local communities and of potentially arbitrary government. This legislation (the Clarendon Code) is inappropriately associated with the name of Lord Chancellor Clarendon (Clarendon, Edward Hyde, 1st earl of, Viscount Cornbury), for he, as well as the king, realized the dangers of religious repression and attempted to soften its effects. Indeed, in central government the king relied upon men of diverse political backgrounds and religious beliefs. Clarendon, who had lived with the king in exile, was his chief political adviser, and Charles's brother James, duke of York (James II) (later James II), was his closest confidant and was entrusted with the vital post of lord admiral. Monck, who had made the restoration possible, was raised to duke of Albemarle and continued to hold military authority over the small standing army that, for the first time in English history, the king maintained.

War and government
      Charles II could not undo the effects of the revolution, but they were not all negative. The Commonwealth had had to fight for its survival, and in the process England had become a potent military power. Wars against France and Spain had expanded English colonial dominions (colonialism, Western). Dunkirk and Jamaica were seized, Barbados was colonized, and the North American colonies flourished. Colonial trade was an important source of royal revenue, and Charles II continued Cromwell's policy of restricting trade to English ships and imposing duties on imports and exports. The Navigation Acts (1660 and 1663) were directed against the Dutch, still the most powerful commercial force in Europe. The Cromwellian Navigation Act (1651) had resulted in the first Anglo-Dutch War (Dutch War) (1652–54), and Charles's policy had the same effect. In military terms the Dutch Wars (1665–67; 1672–74) were a standoff, but in economic terms they were an English triumph (see Anglo-Dutch Wars). The American colonies were consolidated by the capture of New York, and the policy of the Navigation Acts was effectively established. Colonial trade and English shipping mushroomed.

 In the long run Charles's spasmodically aggressive foreign policy solved the crown's perpetual fiscal crises. But in the short run it made matters worse. The Great Plague of London (1664–66) and the Great Fire of London (1666) were interpreted as divine judgments against a sinful nation. These catastrophes were compounded when the Dutch burned a large portion of the English fleet in 1667, which led to the dismissal and exile of Clarendon. The crown's debts led to the Stop of the Exchequer (1672), by which Charles suspended payment of his bills. The king now ruled through a group of ministers known as the cabal, an anagram of the first letters of their names. None of the five was Anglican, and two were Roman Catholic.

      Charles had wearied of repressive Anglicanism, underestimating its strength among rural gentry and clergy, and desired comprehension and toleration in his church. This fit with his foreign-policy objectives, for in the Treaty of Dover (Dover, Treaty of) (1670) he allied himself with Catholic France against Protestant Holland. In exchange he received a large subsidy from Louis XIV and, in the treaty's secret clauses, known only to the king's Catholic ministers, the promise of an even larger one if Charles undertook, at some unspecified moment, to declare himself a Catholic. That moment came for the king on his deathbed, by which time his brother and heir, the duke of York, had already openly professed his conversion. In 1672 Charles promulgated the Declaration of Indulgence, which suspended the penal code against all religious Nonconformists, Catholic and Dissenter alike. But a declaration of toleration could not bring together these mortal enemies, and the king found himself faced by a unified Protestant front. Parliamentary Anglicans would not vote money for war until the declaration was abrogated. The passage of the test act (1673), which the king reluctantly signed, effectively barred all but Anglicans from holding national office and forced the duke of York to resign the admiralty.

The Popish Plot (Popish Plot)
 Anti-Catholicism united the disparate elements of English Protestantism as did nothing else. Anglicans vigorously persecuted the Protestant sects, especially Quakers (Friends, Society of) and Baptists (Baptist), who were imprisoned by the thousands whenever the government claimed to have discovered a radical plot. John Bunyan (Bunyan, John)'s Pilgrim's Progress (1678), which became one of the most popular works in the English language, was composed in jail. Yet dissenters held out against persecution and continued to make their converts in towns and cities. They railed against the debauchery of court life, naming the duke of York, whose shotgun wedding had scandalized even his own family, and the king himself, who acknowledged 17 bastard children but did not produce one legitimate heir. Most of all they feared a Catholic revival, which by the late 1670s was no paranoid delusion. The alliance with Catholic France and rumours of the secret treaty, the open conversion of the duke of York, heir to the throne, and the king's efforts to suspend the laws against Catholic officeholders were potent signs.

 Not even the policy of Charles's new chief minister, Thomas Osborne, earl of Danby (Leeds, Thomas Osborne, 1st Duke of, Marquess of Carmarthen, Earl of Danby, Viscount Latimer of Danby, Viscount Osborne of Dunblane, Baron Osborne of Kiveton), could stem the tide of suspicion. An Anglican, Danby tried to move the crown back into alliance with the majority of country gentry, who wanted the enforcement of the penal code and the end of the pro-French foreign policy. He arranged the marriage of Mary (Mary II) (later Mary II), the eldest daughter of the duke of York, to William of Orange (William III) (later William III), the Dutch stadtholder. Yet, like the king, Danby admired Louis XIV and the French style of monarchy. He attempted to manage Parliament, centralize crown patronage, shore up royal finance, and maintain a standing army—in short, to build a base for royal absolutism. Catholicism and absolutism were so firmly linked in the popular mind that Danby was soon tarred by this broad brush. In 1678 a London Dissenter named Titus Oates (Oates, Titus) revealed evidence of a plot by the Jesuits to murder the king and establish Roman Catholicism in England. Although both the evidence and the plot were a total fabrication, England was quickly swept up in anti-Catholic hysteria. The murder of the Protestant magistrate who had first heard Oates's revelations lent credence to a tissue of lies. Thirty-five alleged conspirators in the Popish Plot were tried and executed, harsh laws against Catholics were revived and extended, and Danby's political position was undermined when it was revealed that he had been in secret negotiation with the French. Parliament voted his impeachment and began to investigate the clauses of the Anglo-French treaties. A second test act (1678) was passed, barring all but Anglicans from Parliament, and an exception for the duke of York to sit in the Lords was carried by only two votes. After 18 years Charles II dissolved the Cavalier Parliament.

The exclusion crisis and the Tory reaction
      The mass hysteria that resulted from the Popish Plot also had its effects on the country's governors. When Parliament assembled in 1679, a bill was introduced to exclude the duke of York from the throne. This plunged the state into its most serious political crisis since the revolution. But, unlike his father, Charles II reacted calmly and decisively. First he co-opted the leading exclusionists, including the earl of Shaftesbury (Shaftesbury, Anthony Ashley Cooper, 1st Earl of, Baron Cooper of Pawlett, Baron Ashley of Wimborne St. Giles), the earl of Halifax (Halifax, Charles Montagu, 1st earl of, Viscount Sunbury), and the earl of Essex (Essex, Arthur Capel, 1st earl of, Viscount Malden, Baron Capel Of Hadham), into his government, and then he offered a plan for safeguarding the church during his brother's reign. But when the Commons passed the Exclusion Bill, Charles dissolved Parliament and called new elections. These did not change the mood of the country, for in the second Exclusion Parliament (1679) the Commons also voted to bypass the duke of York in favour of his daughter Mary and William of Orange, though this was rejected by the Lords. Again Parliament was dissolved, again the king appealed to the country, and again an unyielding Parliament met at Oxford (1681). By now the king had shown his determination and had frightened the local elites into believing that there was danger of another civil war. The Oxford Parliament was dissolved in a week, the “Whig (Whig and Tory)” (Scottish Gaelic: “Horse Thief”) councillors, as they were now called, were dismissed from their places, and the king appealed directly to the country for support.

      The king also appealed to his cousin Louis XIV, who feared exclusion as much as Charles did, if for different reasons. Louis provided a large annual subsidy to increase Charles's already plentiful revenues, which had grown with English commerce. Louis also encouraged him to strike out against the Whigs. An attempt to impeach the earl of Shaftesbury (Shaftesbury, Anthony Ashley Cooper, 1st Earl of, Baron Cooper of Pawlett, Baron Ashley of Wimborne St. Giles) was foiled only because a Whig grand jury refused to return an indictment. But the earl was forced into exile in Holland, where he died in 1683. The king next attacked the government of London, calling in its charter and reorganizing its institutions so that “Tories” (Irish: “Thieving Outlaws”), as his supporters were now called, held power. Quo warranto proceedings against the charters of many urban corporations followed, forcing surrenders and reincorporations that gave the crown the ability to replace disloyal local governors. (See Whig and Tory.)

      In 1683 government informants named the earl of Essex (Essex, Arthur Capel, 1st earl of, Viscount Malden, Baron Capel Of Hadham), Lord William Russell (Russell, William Russell, Lord), and Algernon Sidney (Sidney, Algernon) as conspirators in the Rye House Plot, a plan to assassinate the king. Though the evidence was flimsy, Russell and Sidney were executed and Essex took his own life. There was hardly a murmur of protest when Charles II failed to summon a Parliament in 1684, as he was bound to do by the Triennial Act. He was now fully master of his state—financially independent of Parliament and politically secure, with loyal Tory servants predominating in local and national government. He died in 1685 at the height of his power.

James II (1685–88)

Church and king
      Unlike his brother, James II did not dissimulate for the sake of policy. He dealt plainly with friend and foe alike. James did not desire to establish Catholicism or absolutism and offered ironclad guarantees for the preservation of the Anglican church. He did desire better treatment for his coreligionists and the repeal of the Test Acts. James came to the throne amid declarations of loyalty from the ruling elite. The Parliament of 1685 was decidedly royalist, granting the king customs revenues for life as well as emergency military aid to suppress Monmouth's Rebellion (1685). James Scott, duke of Monmouth (Monmouth, James Scott, Duke of, Duke Of Buccleuch, Earl Of Doncaster, Earl Of Dalkeith, Baron Scott Of Tindale, Lord Scott Of Whitchester And Eskdale), an illegitimate son of Charles II, was Shaftesbury's personal choice for the throne had Exclusion succeeded. Monmouth recruited tradesmen and farmers as he marched through the west country on the way to defeat at the Battle of Sedgemoor (Sedgemoor, Battle of). The rebellion was a fiasco, as the local gentry refused to sanction civil war. Monmouth was executed, and more than 600 of his supporters were either hanged or deported in the brutal aftermath of the rebellion, the Bloody Assizes (1685).

      The king misinterpreted Monmouth's failure to mean that the country would place the legitimate succession above all else. During the rebellion, James had dispensed with the Test Act and appointed Catholics to military command. This led to a confrontation with Parliament, but the king's dispensing power was upheld in Godden v. Hales (1686). James made it clear that he intended to maintain his large military establishment, to promote Catholics to positions of leadership, and to dispense with the penal code.

      These decisions could hardly have come at a worse moment. In France Louis XIV revoked the Edict of Nantes (Nantes, Edict of), the legislation that had protected the rights of French Protestants for nearly a century. The repression of Huguenot congregations inflamed English public opinion. Thus, the king's effort on behalf of Catholics was doomed from the start. He had vainly hoped the Parliament of 1685 would repeal the Test Acts. When his attempt to open the universities to Catholics was met by rigid opposition, he forced a Catholic head upon Magdelan College, Oxford, but only after an open break with the fellows and unpleasant publicity. Moreover, his effort to forge an alliance with Dissenters proved unsuccessful. When James showed favour to William Penn (Penn, Sir William) and the Quakers, his leading Anglican ministers, Henry Hyde, earl of Clarendon (Clarendon, Henry Hyde, 2nd earl of), and Lawrence Hyde, earl of Rochester (Rochester, Lawrence Hyde, 1st earl of), resigned.

      By now the king was set upon a collision course with his natural supporters. The Tory interest was made up of solid support for church and king; it was James's mistake to believe that they would support one without the other. In 1687 he reissued the Declaration of Indulgence, which suspended the penal laws against Catholics and Dissenters. This was a temporary measure, for James hoped that his next Parliament would repeal the penal code in its entirety. To that end he began a systematic investigation of the parliamentary boroughs. Agents were sent to question mayors, lieutenants, and justices of the peace about their loyalty to the regime and their willingness to vote for members of Parliament (MPs) who would repeal the Test Acts. Most gave temporizing answers, but those who stood out were purged from their places. For the first time in English history, the crown was undertaking to pack Parliament.

The Revolution of 1688 (Glorious Revolution)
      The final crisis of James's reign resulted from two related events. The first was the refusal of seven bishops to instruct the clergy of their dioceses to read the Declaration of Indulgence in their churches. The king was so infuriated by this unexpected check to his plans that he had the bishops imprisoned, charged with seditious libel, and tried. Meanwhile, in June 1688 Queen Mary ( Mary of Modena) gave birth to a male heir, raising the prospect that there would be a Catholic successor to James. When the bishops were triumphantly acquitted by a London jury, leaders of all political groups within the state were persuaded that the time had come to take action. Seven leading Protestants drafted a carefully worded invitation for William of Orange (William III) to come to England to investigate the circumstances of the birth of the king's heir. In effect, the leaders of the political nation had invited a foreign prince to invade their land.

 This came as no surprise to William, who had been contemplating an invasion since the spring of 1688. William, who was organizing the Grand Alliance against Louis XIV, needed England as an ally rather than a rival. All Europe was readying for war in the summer of 1688, and James had powerful land and sea forces at his disposal to repel William's invasion. The crossing, begun on October 19, was a feat of military genius, however propitious the strong eastern “Protestant wind” that kept the English fleet at anchor while Dutch ships landed at Torbay (November 5). William took Exeter and issued a declaration calling for the election of a free Parliament. From the beginning, the Anglican interest flocked to him. James could only watch as parts of his army melted away.

      Yet there was no plan to depose the king. Many Tories hoped that William's presence would force James to change his policies; many Whigs believed that a free Parliament could fetter his excesses. When James marched out of London, there was even the prospect of battle. But the result was completely unforeseen. James lost his nerve, sent his family to France, and followed after them, tossing the Great Seal into the Thames. James's flight was a godsend, and, when he was captured en route, William allowed him to escape again. At the end of December, William arrived in London, summoned the leading peers and bishops to help him keep order, and called Parliament into being.

      The Convention Parliament (1689) met amid the confusion created by James's flight. For some Tories, James II was still the king. Some were willing to contemplate a regency and others to allow Mary to rule with William as consort. But neither William nor the Whigs would accept such a solution. William was to be king in his own right, and in February the Convention agreed that James had “abdicated the government and that the throne has thereby become vacant.” At the same time, the leaders of the Convention prepared the Declaration of Rights to be presented to William and Mary. The declaration was a restatement of traditional rights, but the conflicts between Whigs and Tories caused it to be watered down considerably. Nevertheless, the Whigs did manage to declare the suspending power and the maintenance of a standing army in peacetime illegal. But many of the other clauses protecting free speech, free elections, and frequent Parliaments were cast in anodyne formulas, and the offer of the throne was not conditional upon the acceptance of the Declaration of Rights.

William III (1689–1702) and Mary II (1689–94)

The revolution settlement
 The Glorious Revolution (the Revolution of 1688) was a constitutional crisis, which was resolved in England, if not in Scotland and Ireland, through legislation. The Bill of Rights (Rights, Bill of) (1689), a more conservative document than even the declaration, was passed into law, and it established the principle that only a Protestant could wear the crown of England. A new coronation oath required the monarch to uphold Protestantism and the statutes, laws, and customs of the realm as well. A Triennial Act (1694) reestablished the principle of regular parliamentary sessions.

      Two other pieces of legislation tackled problems that had vexed the country since 1640. The Mutiny Act (1689) restrained the monarch's control over military forces in England by restricting the use of martial law. It was passed for one year only; however, when it lapsed between 1698 and 1701, the crown's military power was not appreciably affected. The Toleration Act (1689) was the most disappointing part of the whole settlement. It was originally intended to be part of a new comprehensive religious settlement in which most mainline Dissenters would be admitted into the church. This failed for the same reasons that comprehension had been failing for 30 years; the Anglican clergy would not give up its monopoly, and Dissenters would not compromise their principles. The Toleration Act permitted most forms of Protestant worship; Unitarians were explicitly excluded, as were Catholics and Jews. But the Test Acts that prevented Dissenters from holding government office or sitting in Parliament were continued in force.

A new society
      In the decades before, and especially following, the Glorious Revolution, profound realignments can be seen in English society. Hitherto, the great divide was between landed wealth and urban wealth derived from trade and the law. A new fault line became ever clearer within landed society, and new ties emerged between the super-rich of the city and countryside. The old social values that had tied the peerage, or nobilitas maior (greater nobility), and gentry, or nobilitas minor (lesser nobility), withered. A new social term emerged, the aristocracy. Previously it had been used to describe not a social group but a system of government; now it referred to an elite whose wealth was vicarious, encompassing not only vast estates but also great profits from urban redevelopment—such as the Russells' redevelopment of Covent Garden and later of Bloomsbury (from the time of Francis Russell, 4th earl of Bedford (Bedford, Francis Russell, 4th earl of)) and the Grosvenors' development of Mayfair, Belgravia, and Pimlico (from the time of Sir Thomas Grosvenor in the early 18th century). Profits also came to them from investment in overseas trading companies and from government stock. They built elegant town houses to go with their huge country houses, often pulling down or shifting whole villages (as Sir Robert Walpole (Walpole, Robert, 1st earl of Orford) did at Houghton Hall and Philip Yorke, earl of Hardwicke, did at Wimpole) so as to produce spacious parks and noble vistas for themselves. They patronized the secular arts in one sense and the ‘‘squires " (another new term for the ‘‘mere” gentry) in another sense. The squires faced financial decline as their rent rolls sagged and new, expensive forms of capital-intensive rather than labour-intensive agriculture passed them by. Two new political epithets were introduced: Whig aristocrat and Tory squire. They represented two social realities and two political visions: the Whig vision of a cosmopolitan, religiously and culturally liberal society and the Tory vision of a world gone bad that had abandoned the paternalism of manor house and parish church and of the confessional state and the organic society (the body politic) in favour of a materialistic possessive individualism. Post-revolution society was based much less on the rule of social leaders voluntarily leading in public service and on private philanthropy than on a rule of law made by the elite for the elite and upon the professionalism of government. These changes to the social order made many Tories temperamentally Jacobite, not in the sense that they believed in the cause of James Edward, The Old Pretender, or Charles Edward, the Young Pretender, but in the sense that they were in perpetual mourning for the world they had lost.

The sinews of war
      William III had come to England to further his continental designs, but English politics conspired against him. The first years of his reign were dominated by the constitutional issues of the revolution settlement, and he became increasingly frustrated with the political squabbling of Whigs and Tories. Moreover, holding the English throne was proving more difficult than taking it. In 1690, with French backing, James II invaded Ireland. William personally led an army to the Battle of the Boyne (Boyne, Battle of the) (1690), where James's forces were crushed. But the compromise settlement that his plenipotentiaries reached with the Catholic leaders as the price of their abandonment of resistance (the Treaty of Limerick) was rejected by the Irish Parliament, which executed the full rigours of the penal code upon Irish Catholics.

      The Irish wars impressed upon William's English subjects that, as long as the French backed James, they were now part of the great European struggle. Parliament granted William vast subsidies for the War of the Grand Alliance (Grand Alliance, War of the) (1688–97), more than £4.5 million in a two-year period alone, but also established a right to oversee the expenditure of public monies. This led to both economies and accountability, and it forged a new political alliance among “country” (that is, anti-court) forces that were uneasy about foreign entanglements and suspicious of corruption at court. William's war was going badly on land and sea. The French fleet inflicted heavy losses on a combined Anglo-Dutch force and heavier losses on English merchant shipping. The land war was a desultory series of sieges and reliefs, which again tipped in favour of France.

      For some time it looked as if Scotland might go its own way. Whereas in England the centre held and compromises were reached, in Scotland James's supporters first held their ground and then crumbled, and a vindictive Parliament not only decreed a proscription of his supporters but set out to place much greater limits on the crown. James was formally deposed. Moreover, measures were taken to ensure that Westminster could not dictate what was done in Edinburgh. And there was to be religious toleration in Scotland. episcopacy was abolished, and all those who had taken part in the persecution of covenanting conventicles in previous years were expelled from a vengeful kirk (church). There was spasmodic resistance from Jacobites, and it took several years and some atrocities—most notoriously, the slaughter of the MacDonalds, instigated by their ancient enemies the Campbells, in the Massacre of Glencoe (Glencoe, Massacre of) in 1692—for William to secure complete control.

      Year by year the financial costs mounted. Between 1688 and 1702 England accumulated more than £14 million of debt, which was financed through the creation of the Bank of England (England, Bank of) (1694). The bank was a joint-stock company empowered to discount bills and issue notes. It lent to the government at a fixed rate of interest—initially 8 percent—and this interest was secured by a specific customs grant. Investors scrambled for the bank's notes, which were considered gilt-edged securities, and more than £1.2 million was raised on the initial offering. Not surprisingly, a growing funded debt created inflation and led to a financial crisis in 1696. But the underlying English economy was sound, and military expenditures fueled production.

      The establishment of a funded national debt and the Bank of England was the work of the Whigs in alliance with the London mercantile establishment. The Tories and the country party were alternately suspicious and jealous of Whig success. In order to secure funds for his campaigns, William had been forced to allow the Whigs to dominate government, much against his inclination. An attempted assassination of the king in 1696 gave the Whigs an opportunity to impose an oath on the political nation that William was the “rightful and lawful king.” This directly challenged Tory consciences, which had been tender since the death of Queen Mary in 1694. Many resigned office rather than affirm what they did not believe. The ascendancy of the so-called Junto Whigs might have been secured had not European events once again intruded into English affairs. In 1697 the War of the Grand Alliance ended with the Treaty of Rijswijk, in which Louis XIV formally recognized William III as king of England.

      A great revulsion and war weariness now took hold of the country. Parliament voted to disband most of the military establishment, including William's own Dutch guards, and a vigorous public debate against the existence of a standing army ensued. Taxes were slashed, accounts were audited, and irregularities were exposed. The Junto Whigs, who were associated with war and war profiteers, fell. A new coalition of country and Tory MPs, led by Robert Harley, earl of Oxford (Oxford, Robert Harley, 1st Earl of, Earl Mortimer, Baron Harley of Wigmore), launched a vigorous campaign of retrenchment. It had not progressed very far by 1700, when the deaths of the duke of Gloucester and Charles II of Spain redefined English and European priorities.

      The duke of Gloucester was the only surviving child of Queen Mary's sister, Princess Anne, despite her 18 pregnancies. Because William and Mary were childless, the duke was the long-term Protestant heir to the throne. His death created a complicated problem that was resolved in the Act of Settlement (Settlement, Act of) (1701), which bypassed 48 legitimate but Catholic heirs and devolved the throne upon a granddaughter of James I, that is, on Sophia of Hanover and her son George (later George I). In clauses that read like a criticism of the policies of William III, the act stipulated that the sovereign must be—and could only be—married to a member of the Anglican church and that his foreign policy was to be directed by Parliament and his domestic policy by the Privy Council. It also limited the right of the king to dismiss judges at pleasure. Although many of the more restrictive clauses of the act were repealed in 1706, the Act of Settlement asserted a greater degree of parliamentary control over the monarchy than had been obtained since 1649.

      The consequences of the death of Charles II of Spain were no less momentous. Years of futile negotiations to divide the vast Spanish empire among several claimants came to an end when Louis XIV placed his grandson on the Spanish throne and began making preparations to unite the kingdoms into a grand Bourbon alliance. Louis's aggressive stance overcame even the torpor of British public opinion, especially when he renounced William's legitimacy and welcomed James Edward, the Old Pretender, to his court as rightful king of England. William constructed another anti-French coalition and bequeathed to Queen Anne the War of the Spanish Succession (Spanish Succession, War of the) (1701–14).

Anne (1702–14)
 Queen Anne, daughter of James II and the last of the Stuarts, inherited a country that was bitterly divided politically. Her weak eyesight and indifferent health forced her to rely more upon her ministers than had any of her Stuart predecessors, but she was no less effective for that. Anne had decided views about people and policies, and these did much to shape her reign. She detested the party divisions that now dominated central politics and did all she could to avoid being controlled by either Whigs or Tories. While she only briefly achieved her ideal of a nonpartisan ministry, Anne did much to disappoint the ambitions of nearly all party leaders.

Whigs and Tories
      The most significant development in political life over the previous quarter century had been the growth of clearly defined and opposing parties, which had taken the opprobrious titles Whigs and Tories. Parties had first formed during the exclusion crisis of 1679–81, but it was the Triennial Act (1694) that unintentionally gave life to party conflict. Nine general elections were held between 1695 and 1713, and these provided the structure whereby party issues and party leaders were pushed to the fore. Though party discipline was still in its infancy and ideology was a novel aspect of politics, clearly recognizable political parties had emerged by the end of the reign of William III. In general, the Tories stood for the Anglican church, the land, and the principle of passive obedience. They remained divided over the impending Hanoverian succession (see house of Hanover (Hanover, House of)), wistfully dreaming that James Edward might convert to Protestantism so that the sanctity of the legitimate succession could be reaffirmed. From their country houses, the Tories opposed an expensive land war and favoured the “blue sea” strategy of dominating the Atlantic and Mediterranean shipping lanes. Their leaders had a self-destructive streak. Only Robert Harley, earl of Oxford (Oxford, Robert Harley, 1st Earl of, Earl Mortimer, Baron Harley of Wigmore), was a politician of the first rank, and he always shrank from being labeled a Tory. The Tories generally had a majority in the Commons and a friend on the throne, but they rarely attained power.

      The Whigs stood for Parliament's right to determine the succession to the throne, for all necessary measures to blunt the international pretensions of Catholic-absolutist France, and for a latitudinarian approach to religion and a broad, generous interpretation of the Toleration Act. They were blessed with brilliant leadership and an inexhaustible supply of good luck. John Churchill, duke of Marlborough (Marlborough, John Churchill, 1st Duke of, Marquess Of Blandford, Earl Of Marlborough, Baron Churchill Of Sandridge, Lord Churchill Of Eyemouth, Reichsfürst), was the outstanding military figure of his day. His victories at the Battle of Blenheim (Blenheim, Battle of) (1704) and the Battle of Ramillies (Ramillies, Battle of) (1706) rank among the greatest in British history. During the first part of the reign, his wife, Sarah, duchess of Marlborough (Marlborough, Sarah Jennings, Duchess of), was the queen's confidante, and together the Marlboroughs were able to push Anne to support an aggressive and expensive foreign policy. Continental warfare was costing £4 million a year, paid for by a tax on land, and, after the early years, successes were few and far between. Sidney Godolphin (Godolphin, Sidney Godolphin, 1st Earl of, Viscount Rialton, Baron Godolphin of Rialton) kept the duke supplied and financed and ably managed the Whig interest by disciplining government officeholders to vote for Whig policies in Parliament. Among these policies was support for Dissenters who, to avoid the rigours of the Test Acts, would take Anglican communion. Both the queen and the Tories were opposed to these occasional conformists, and three bills to outlaw the practice were passed through the Commons but defeated in the Lords. When the Tories attempted to attach one of these to the military appropriations bill, even the queen condemned the maneuver.

      For the first half of Anne's reign, Whig policies were dominant. The duke of Marlborough's victories set off a wave of nationalistic pride and forced even Tories to concede the wisdom of a land war. Unfortunately, military success built overconfidence, prompting the Whigs to adopt the fruitless policy of “no peace without Spain,” which committed them to an increasingly unattainable conquest of Iberia. Yet the capture of both Gibraltar (1704) and Minorca (1708) made England the dominant sea power in the western Mediterranean and paid handsome commercial dividends. So too did the unexpected union (Union, Act of) with Scotland in 1707 (see Act of Union (Union, Act of)). Here again, Godolphin was the dominant figure, calling the Scottish Parliament's bluff when it announced it would not accept the Hanoverian succession. Godolphin passed the Aliens Act (1705), which would have prohibited all trade between England and Scotland—no mere scare tactic in light of the commercial policy that was crippling the Irish economy. Rather than risk economic strangulation, Scottish leaders negotiated for a permanent union, a compact the English monarchy had sought for more than a century. The union was a well-balanced bargain: free trade was established; Scottish Presbyterianism and the Scottish legal system were protected; and provisions were made to include 45 Scottish members in the English House of Commons and 18 members in the House of Lords. England gained security on its northern border, and the Whigs gained the promise of a peaceful Hanoverian succession.

Tories and Jacobites (Jacobite)
      Whig successes were not welcomed by the queen, who had a personal aversion to most of their leaders, especially after her estrangement from Sarah Churchill. As in the reign of William, war weariness and tax resistance combined to bring down the Whigs. The earl of Oxford and Henry St. John, Viscount Bolingbroke (Bolingbroke, Henry Saint John, 1st Viscount, Baron Saint John Of Lydiard Tregoze), vied for leadership of a reinvigorated Tory party that rallied support with the cry “church in danger.” In 1710 a Whig prosecution of a bigoted Anglican minister, Henry Sacheverell (Sacheverell, Henry), badly backfired. Orchestrated mob violence was directed against dissenting churches, and Sacheverell was impeached by only a narrow margin and given a light punishment. When the Tories gained power, they were able to pass legislation directed against Dissenters, including the Occasional Conformity Act (1711), which forbade Dissenters to circumvent the test acts by occasionally taking Anglican communion, and the Schism Act, which prevented them from opening schools (they were barred from Anglican schools and colleges). The Tories also concluded the War of the Spanish Succession. By the Treaty of Utrecht (Utrecht, treaties of) (1713), England expanded its colonial empire in Canada and the Caribbean and maintained possession of Gibraltar and Minorca in the Mediterranean.

      But the Tories had their own Achilles' heel. They were deeply divided over who should succeed Anne, which became public during the queen's serious illness in 1713. Though there were far more Hanoverian (Hanover, House of) Tories than Jacobite Tories (supporters of James II and his son, James Edward, the Old Pretender), the prospect of the succession of a German Lutheran prince with continental possessions to defend did not warm the hearts of isolationist Anglican country gentlemen. Both Oxford and Bolingbroke were in correspondence with James Edward, but Oxford made it plain that he would only support a Protestant succession. Bolingbroke's position was more complicated. A brilliant politician, he realized that the Tories would have little to hope for from the Hanoverians and that they could only survive by creating huge majorities in Parliament and an unshakable alliance with the church. Conflict between Tory leaders and divisions within the rank and file combined to defeat Bolingbroke's plans. After Anne died in August 1714, George I acceded to the British throne, and Bolingbroke, having tainted the Tory party with Jacobitism for the next half century, fled to France.

Mark A. Kishlansky John S. Morrill

18th-century Britain, 1714–1815
The state of Britain in 1714
      When Georg Ludwig (George I), elector of Hanover, became king of Great Britain on August 1, 1714, the country was in some respects bitterly divided. Fundamentally, however, it was prosperous, cohesive, and already a leading European and imperial power. Abroad, Britain's involvement in the War of the Spanish Succession had been brought to a satisfactory conclusion by the Treaty of Utrecht (Utrecht, treaties of) (1713). It had acquired new colonies in Gibraltar, Minorca, Nova Scotia, Newfoundland, and Hudson's Bay, as well as trading concessions in the Spanish New World. By contrast, Britain's rivals, France, Spain, and the Dutch Republic, were left weakened or war-weary by the conflict. It took France a decade to recover, and Spain and Holland were unable to reverse their military and economic decline. As a result Britain was able to remain aloof from war on the Continent for a quarter of a century after the Hanoverian succession, and this protracted peace was to be crucial to the new dynasty's survival and success.

      War had also strengthened the British state at home. The need to raise men and money had increased the size and scope of the executive as well as the power and prestige of the House of Commons. Taxation had accounted for 70 percent of Britain's wartime expenditure (£93,644,560 between 1702 and 1713), so the Commons' control over taxation became a powerful guarantee of its continuing importance.

      Britain's ability to pay for war on this scale demonstrated the extent of its wealth. Agriculture was still the bedrock of the economy, but trade was increasing, and more men and women were employed in industry in Britain than in any other European nation. Wealth, however, was unequally distributed, with almost a third of the national income belonging to only 5 percent of the population. But British society was not polarized simply between the rich and the poor; according to writer Daniel Defoe (Defoe, Daniel) there were seven different and more subtle categories:

1. The great, who live profusely.
2. The rich, who live plentifully.
3. The middle sort, who live well.
4. The working trades, who labour hard, but feel no want.
5. The country people, farmers etc., who fare indifferently.
6. The poor, who fare hard.
7. The miserable, that really pinch and suffer want.

      From 1700 to the 1740s Britain's population remained stable at about seven million, and agricultural production increased. So, although men and women from Defoe's 6th and 7th categories could still die of hunger and hunger-related diseases, in most regions of Britain there was usually enough basic food to go around. This was crucial to social stability and to popular acquiescence in the new Hanoverian regime.

      But early 18th-century Britain also had its weaknesses. Its Celtic fringe—Wales, Ireland, and Scotland—had been barely assimilated. The vast majority of Welsh men and women could neither speak nor understand the English language. Most Irish men and women spoke Gaelic and belonged to the Roman Catholic church, in contrast with the population of the British mainland, which was staunchly Protestant. Scotland, which had only been united to England and Wales in 1707, still retained its traditional educational, religious, legal, and cultural practices. These internal divisions were made more dangerous by the existence of rival claimants to the British throne. James II, who had been expelled in the Glorious Revolution of 1688, died 13 years later, but his son, James Francis Edward Stuart (James Edward, The Old Pretender), the Old Pretender, pressed his family's claims from his exile in France. His Catholicism and Scottish ancestry ensured him wide support in Ireland and the Scottish Highlands; his cause also commanded sympathy among sections of the Welsh and English gentry and, arguably, among the masses.

      Controversy over the succession sharpened partisan infighting between the Whig and Tory parties. About 50 Tory MPs (less than a seventh of the total number) may have been covert Jacobites in 1714. More generally, Tories differed from Whigs over religious issues and foreign policy. They were more anxious to preserve the privileges of the Anglican church and more hostile to military involvement in continental Europe than Whig politicians were inclined to be. These attitudes made the Tories vulnerable in 1714. The new king was a Lutheran by upbringing and wanted to establish wider religious toleration in his new kingdom. As a German he was deeply interested in European affairs. Consequently he regarded the Tory party as insular in its outlook as well as suspect in its allegiance.

Britain from 1715 to 1742

The supremacy of the Whigs
      Even before he arrived in Britain, George I had decided to exclude the two leading Tory ministers, Robert Harley, earl of Oxford (Oxford, Robert Harley, 1st Earl of, Earl Mortimer, Baron Harley of Wigmore), and Henry St. John, Viscount Bolingbroke. In their place he appointed two Whig politicians, Charles, Viscount Townshend (Townshend, Charles Townshend, 2nd Viscount), and James, Viscount Stanhope (Stanhope, James Stanhope, 1st Earl), as secretaries of state. Townshend's brother-in-law, Robert Walpole (Walpole, Robert, 1st earl of Orford), became paymaster general. Walpole, who came from a minor Norfolk gentry family, was an extremely able politician, shrewd, greedy, and undeviatingly Whig. He encouraged the new king's partisan bias, turning it unremittingly to his advantage. A general election was held in February 1715, and, due in part to royal influence, the Whigs won 341 seats to the Tories' 217. In December the Old Pretender landed in Scotland, provoking an armed rebellion that was quickly suppressed. The proved involvement of a small number of Tory landowners led to Tories being purged not only from state office but also from the higher ranks of the army and navy, the diplomatic service, and the judicial system. To make their capture of the state even more secure, the Whigs passed the Septennial Act in 1716. It allowed general elections to occur at seven-year intervals instead of every three years, as mandated by the Triennial Act of 1694. The intention was to tame the electorate, which during Anne's reign had shown itself to be volatile and far more inclined to vote Tory than Whig.

      Having defeated their Tory opponents, the Whig leaders began to quarrel among themselves. In 1717 Walpole and Townshend left office and went into open opposition. Stanhope stayed on, with Charles Spencer, earl of Sunderland (Sunderland, Charles Spencer, 3rd Earl of, Baron Spencer Of Wormleighton), now serving as secretary of state. At the same time the heir apparent to the throne, George, prince of Wales, quarreled with his father and began to flirt with Opposition groups in Parliament. These events set the pattern for future political conflicts. From then on until the 1750s the Opposition in Parliament would be a hybrid group of Whig and Tory sympathizers. And from then on until the early 19th century Oppositions in Parliament would enjoy sporadic support from successive princes of Wales. In 1717 the rebel Whigs were a serious threat in large part because Walpole was such a skillful House-of-Commons politician. As peers, Sunderland and Stanhope were confined to the House of Lords and lacked spokesmen in the Commons who could match Walpole's ruthlessness and talent. He showed his power by mobilizing a majority of MPs against the Peerage Bill in 1719. Had this legislation passed, it would have limited the king's prerogative to create new peers, thereby cementing the Whig administration's majority in the House of Lords. To prevent further blows of this kind, the Whig elite ended its schism in April 1720. The royal family temporarily buried its differences at the same time.

      The restoration of unity was just as well, as 1720 saw the bursting of what became known as the South Sea Bubble. The South Sea Company had been founded in 1711 as a trading and finance company. In 1719 its directors offered to take over a large portion of the national debt previously managed by the Bank of England. The Whig administration supported this takeover, and in return the company made gifts (in effect, bribes) of its new stock to influential Whig politicians, including Stanhope and Sunderland, and to the king's mistress, the Duchess of Kendal. In 1720 investing in the South Sea Company became a mania among those who could afford it and some who could not; South Sea stock was at 120 in January and rose to 1,000 by August. But in September the inevitable crash came. Many landed and mercantile families were ruined, and there was a nationwide shortage of specie. Parliament demanded an inquiry, thus raising the possibility that members of the government and the royal family would be openly implicated in financial scandal. This disaster proved to be Walpole's opportunity, and he did not waste it. He used his influence in the Commons to blunt the parliamentary inquiry and managed gradually to restore financial confidence. The strain of the investigation killed Stanhope, and Sunderland too died in 1722. Walpole duly became first lord of the treasury and chancellor of exchequer, while Townshend returned to his post as secretary of state.

      Walpole's position as the king's favourite minister was finally assured when he exposed the Atterbury plot. Francis Atterbury (Atterbury, Francis) was bishop of Rochester. Always a Tory and High Churchman, he drifted after the Hanoverian succession into Jacobite intrigue. In 1721–22 he and a small group of conspirators plotted an armed invasion of Britain on behalf of the Old Pretender. The plot was uncovered by the secret service, which was more efficient in this period than it was until World War II. Atterbury was tried for treason by Parliament and sent into exile. This coup, one politician aptly wrote at the time, was the “most fortunate and greatest circumstance of Mr Walpole's life. It fixed him with the King, and united for a time the whole body of Whigs to him, and gave him the universal credit of an able and vigilant Minister.”

      Walpole has often been referred to as Britain's first prime minister, but historically this is incorrect. The title had in fact been applied to certain ministers in Anne's reign and was commonly used as a slur or simply as a synonym for first minister. During Walpole's period of dominance it was certainly used more frequently, but it did not become an official title until the early 20th century. Some historians have also claimed that Walpole was the architect of political stability in Britain, but this interpretation needs to be qualified. There is no doubt that from 1722 to his resignation in 1742 Walpole stabilized political power in himself and a section of the Whig party. Nor can there be any doubt that his foreign and economic policies helped the Hanoverian dynasty to become securely entrenched in Britain. But it should not be forgotten that Walpole inherited a nation that was already wealthy and at peace. He built on foundations that were already very strong. And, although he was to dominate political life for 20 years, he never succeeded in stamping out political, religious, and cultural opposition entirely, nor did he expect to do so.

      Opposition to Walpole in Parliament began to develop as early as 1725. When William Pulteney (Bath, William Pulteney, 1st Earl of, Viscount Pulteney Of Wrington, Baron Of Hedon), an ambitious and talented politician, was dismissed from state office, he and 17 other Whig MPs aligned themselves with the 150 Tory MPs remaining in the House of Commons. These dissidents (who called themselves Patriot Whigs) grew in number until, by the mid-1730s, more than 100 Whig MPs were collaborating with the Tories against Walpole's nominally Whig administration. Some were motivated primarily by disappointed ambition. But many Whigs and Tories genuinely believed that Walpole had arrogated too much power to himself and that he was corrupt and an enemy to liberty. These accusations were expressed not just among politicians in London but also in the growing number of newspapers and periodicals in Britain at large. In 1726 Pulteney and the one-time Tory minister Lord Bolingbroke (Bolingbroke, Henry Saint John, 1st Viscount, Baron Saint John Of Lydiard Tregoze) founded their own journal, The Craftsman (the implication of the title being that Walpole governed by craft alone). It was widely read among the political classes, not least because many of the most gifted writers working in London had been drawn into the Opposition camp. Jonathan Swift, Alexander Pope, and, for a time, Henry Fielding all wrote against Walpole. So did John Gay, whose triumphantly successful The Beggar's Opera (1728) was a satire on ministerial corruption.

      But, despite its flamboyance and innovative tactics, the Opposition for a long time lacked high-level support. Frequent disagreements occurred between its Patriot Whig and Tory sectors. These weaknesses helped Walpole to keep the Opposition at bay until 1742. But there were other reasons for his prolonged stay in power: he retained the support of the crown, resisted military involvement in Europe, pursued a moderate religious policy, and adopted a skillful economic policy. Moreover, in the general elections of 1727 and 1734 he was able to manipulate the electoral system to maintain himself in power.

George II and Walpole
      George I died in June 1727 and was buried in Hanover. He was succeeded by his eldest son, who became George II. Initially the new king planned to dismiss Walpole and appoint his personal favourite, Spencer Compton, in his place. Closer familiarity with Walpole's gifts, however, dissuaded him from taking this step, as did his formidable wife, Queen Caroline (Caroline of Brandenburg-Ansbach), who remained an important ally of the minister until her death in 1737. Walpole cemented his advantage by securing the king a Civil List (money allowance) from Parliament of £800,000, a considerably larger sum than previous monarchs had been able to enjoy. Royal favour, in turn, shored up Walpole's parliamentary majority. Because the monarch appointed and promoted peers, he had massive influence in the House of Lords. In addition, he appointed the 26 bishops of the Church of England, who also possessed seats in the House of Lords. He alone could promote men to high office in the army, navy, diplomatic service, and bureaucracy. Consequently, MPs who held such offices (the so-called placemen), and those who wanted to hold them in the future, were likely to support Walpole as the king's minister out of self-interest, if for no other reason. Walpole, however, could never take royal support for granted. George II was an irritable but by no means an insignificant figure who retained great influence in terms of patronage, military affairs, and foreign policy. He demanded respect from his minister and had to be carefully managed.

      Once the Hanoverian succession had taken place, Whig ministers became as eager to remain at peace with France as the Tories had been. Walpole certainly adhered to this view, and for good reasons. Although Britain now possessed the world's most powerful navy, it could not match France in land forces. War with France, moreover, was likely to lead to an invasion of Hanover, which was naturally unwelcome to George I and his successor. It would also give the Old Pretender the prospect of French military aid to launch an invasion against Britain itself. In 1717 Stanhope negotiated a Triple Alliance with the French and the Dutch. This treaty was maintained by Walpole and Townshend throughout the 1720s. By 1730, however, it was attracting considerable criticism from the Opposition, and in the Second Treaty of Vienna, signed in March 1731, Walpole jettisoned the Anglo-French alliance in favour of an alliance with Austria. But whether forming an alliance with the French or the Austrians, Walpole always considered it his primary aim to keep Britain out of war in continental Europe. In 1733 Austria, Saxony, and Russia went to war against France, Spain, and Sardinia in the War of the Polish Succession (Polish Succession, War of the) (1733–38). The Austrians asked for British aid under the terms of the Treaty of Vienna, but Walpole refused to give it. By keeping out of European entanglements for so long, Walpole appeased some of the traditionally insular Tory MPs. He also kept direct taxation low, which pleased many landed families. The land tax was cut to two shillings in the pound (10 percent) in 1730 and to one shilling in the pound two years later.

Religious policy
      Walpole's religious policy was also designed to foster social and political quiescence. Traditionally the Whig party had supported wider concessions to the Protestant dissenters (Protestants who believed in the doctrine of the Trinity but who refused to join in the worship of the state church, the Church of England). They had been given freedom of worship under the Toleration Act of 1689 but were barred from full civil rights and access to university education in England. In 1719 the Whigs had repealed two pieces of Tory legislation aimed against dissent, the Schism and the Occasional Conformity acts. These concessions ensured that Protestant dissenters would be able to establish their own educational academies and hold public office in the localities, if not in the state.

      There was always a danger, however, that too many concessions to Protestant dissent would alienate the Church of England (England, Church of), which enjoyed wide support in England and Wales. There were 5,000 parishes in these two countries, each containing at least one church served by a vicar (minister) or a curate (his deputy). For much of the 18th century these Anglican churches provided the only large, covered meeting places available outside of towns. They served as sources of spiritual comfort and also as centres for village social life. At religious services vicars would not only preach the word of God but also explain to congregations important national developments: wars, victories, and royal deaths and births. Thus churches often supplied the poor, the illiterate, and particularly women with the only political information available to them. Weakening the Church of England therefore struck Walpole as unwise, for at least two reasons. Its ministers provided a vital service to the state by communicating political instruction to the people. The church, moreover, commanded massive popular loyalty, and assaults on its position would arouse nationwide discontent. Walpole therefore determined to reach an accommodation with the church, and in 1723 he came to an agreement with Edmund Gibson, Bishop of London. Gibson was to ensure that only clergymen sympathetic to the Whig administration were appointed to influential positions in the Church of England. In return, Walpole undertook that no further extensive concessions would be made to Protestant dissenters. This arrangement continued until 1736.

Economic policies
      Finally, Walpole's long tenure of power was assisted by national prosperity. The gross national product rose from £57.5 million in 1720 to £64.1 million in 1740, an increase of 11.5 percent. Walpole encouraged trade by abolishing some customs duties, but his main economic concerns were to reduce interest payments on the national debt and to foster agriculture by switching taxation from land to consumption. He succeeded in reducing interest payments on the debt by 26 percent during his time in office, but his efforts to reduce the land tax in favour of more excises almost led to political disaster. In 1732 he revived a duty on salt, which enabled him to cut the land tax to one shilling in the pound. In 1733 he proposed to levy excise taxes on the sale of wine and tobacco, but the Opposition in Parliament launched a ferocious and successful campaign against these proposals. It claimed that excises weighed unfairly on the poor, whereas the land tax was mainly paid by the prosperous. It claimed, too, that excise collectors, and there were more than 6,000 of them employed by the state by this time, intruded into citizens' private affairs and were a danger to British liberties. This crisis led to nationwide riots and demonstrations, and Walpole's House-of-Commons majority seemed in jeopardy. In April 1733 he decided to retreat. He continued, however, until 1740 to keep the land tax at a low rate, thereby winning important support from the nation's dominant landed class.

The electoral system
      The fiasco over the excise might have toppled Walpole, since a general election was scheduled for 1734. In fact, however, his administration retained a comfortable majority in the House of Commons. One reason for this was that Britain's electoral system at this time did not adequately reflect the state of public opinion. Until the Reform Act of 1832 (