The Breda Accord
Delve into the intricate negotiations and profound consequences of the treaty that reshaped 17th-century European power dynamics.
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The Treaty
A Concluding Peace
The Peace of Breda, or Treaty of Breda, was formally signed in the Dutch city of Breda on July 31, 1667. This significant diplomatic event brought an end to the Second Anglo-Dutch War, a conflict primarily driven by commercial rivalries between the burgeoning maritime powers of the era.[1] It was not a singular document but rather a collection of three distinct treaties, each addressing the cessation of hostilities between England and its respective adversaries: the Dutch Republic, France, and Denmark–Norway. Additionally, a separate Anglo-Dutch commercial agreement was appended, aiming to mitigate future trade disputes.[1]
Redefining Colonial Holdings
A crucial aspect of the Treaty of Breda involved the confirmation of colonial territories seized during the war. This principle, known as uti possidetis, or "what you have, you hold," solidified the existing territorial gains as of May 20, 1667.[29] Under these terms, the Dutch Republic retained control over Suriname, Fort Cormantin, and the strategically important Run island. Conversely, England secured its claim to New Netherland, a vast territory that would subsequently be reorganized into the colonies of New York, New Jersey, Pennsylvania, Massachusetts, Connecticut, and Delaware.[30] This exchange effectively removed two major flashpoints of Anglo-Dutch contention.
A New Diplomatic Era
While the treaty did not entirely eradicate the underlying commercial tensions that fueled the Anglo-Dutch conflicts, it significantly reduced them. This détente was instrumental in paving the way for the formation of the 1668 Triple Alliance, a defensive pact between the Dutch Republic, England, and Sweden.[36] Despite the brief resurgence of conflict during the Third Anglo-Dutch War (1672–1674), the Treaty of Breda is widely regarded as the genesis of a century-long alliance between England and the Dutch, marking a pivotal shift in European geopolitical alignments.[1]
Origins
Commercial Imperatives
The Second Anglo-Dutch War was fundamentally a struggle for economic supremacy, exacerbated by King Charles II's ambition to reduce his financial reliance on Parliament through increased trade revenue.[2] This led to the establishment of entities like the Royal African Company (RAC) in 1660, directly challenging Dutch commercial interests in West Africa. The involvement of prominent politicians as RAC investors created a direct link between commercial ventures and governmental policy, fueling the conflict.[2]
The Spice and Atlantic Trades
Intense competition for lucrative global trade routes was a primary driver of hostilities. The Dutch East India Company (VOC) fiercely protected its monopoly over Asian spice production, leading to conflicts over territories like Run island, a key nutmeg producer.[3] Similarly, the Dutch West-Indische Compagnie (WIC) faced challenges from various European powers in the Atlantic trade, particularly concerning sugar plantations in the Americas and slave trade posts in Africa. English occupation of New Netherland in 1664 and attacks on WIC posts in modern Ghana further escalated tensions, pushing the RAC towards bankruptcy and its investors to advocate for war.[6][7]
French Ambitions and Shifting Alliances
Initially, Louis XIV of France maintained neutrality despite a 1662 treaty with the Dutch, as French and Dutch economic interests diverged, particularly regarding the Spanish Netherlands. Louis sought to reopen the port of Antwerp for French goods, a move the Dutch resisted due to Amsterdam's dominance in North-West European trade.[8] By 1663, Louis began planning military intervention, eventually activating his treaty with the Dutch in 1665 to facilitate his expansionist goals. He also strategically paid Sweden to remain neutral and influenced Denmark–Norway to join the war on the Dutch side, though a miscommunication led to Danish assistance saving the Dutch merchant fleet at the Battle of Vågen.[11][12]
War-Weariness and Diplomatic Maneuvers
By late 1666, both England and the Dutch Republic were eager for peace. England faced severe financial strain, exacerbated by Charles II's reluctance to recall Parliament, and suffered from war-related trade disruptions and domestic calamities like the Great Fire of London. While the Dutch economy had largely recovered, the immense cost of naval warfare presented significant challenges.[13] Charles II initiated peace discussions in October 1666, withdrawing some demands, but the States-General refused to negotiate without France. Simultaneously, Charles's envoy in Paris engaged in secret talks for an Anglo-French alliance, demonstrating the complex and often duplicitous nature of 17th-century diplomacy.[16]
Discussions
Choosing the Venue
The selection of a negotiation venue was itself a point of contention. Grand Pensionary Johan de Witt and the States of Holland rejected English proposals to hold talks in The Hague, fearing the town's dominance by the Orangist opposition, whom Louis XIV viewed as English agents.[17] Eventually, Breda was agreed upon as a neutral ground. However, French military preparations for the War of Devolution led Orangists to accuse De Witt of deliberately delaying negotiations, allowing Louis a free hand in the Spanish Netherlands. This internal pressure, coupled with France's anti-Spanish alliance with Portugal in March, compelled De Witt to seek a swift resolution.[19][20]
Swedish Mediation
The role of mediator in these peace talks was highly coveted, offering both prestige and opportunities to forge new alliances. With both Louis XIV and Emperor Leopold I vying for this position, they ultimately compromised by entrusting the mediation to Swedish diplomats.[21] Sweden, a key player in the vital Baltic trade of grain, iron, and shipping supplies, aimed to leverage this role to dismantle commercial concessions imposed by the Dutch in the 1656 Treaty of Elbing and to sever the Dutch alliance with Denmark.[22] Göran Fleming led the Swedish delegation at Breda, supported by Peter Coyet and later Count Dohna, who was authorized to pursue a Swedish-English-French alliance if the Breda talks faltered.[23]
Key Negotiators
The negotiations involved representatives from all warring factions. The States General of the Netherlands appointed eight delegates, though only those from Holland, Zeeland, and Friesland were present. These included Hieronymus van Beverningh, a member of De Witt's States Party, and the Orangist Pensionary Pieter de Huybert from Zeeland and van Jongestall from Friesland.[24] England's lead negotiators were Denzil Holles, Ambassador to France, and Henry Coventry, Ambassador to Sweden.[24] France was represented by D'Estrades and Honoré Courtin, while Denmark–Norway sent Paul Klingenberg and Peter Canizius.[1]
The Medway Raid's Influence
On May 24, Louis XIV initiated the War of Devolution, rapidly occupying significant portions of the Spanish Netherlands and Franche-Comté.[9] This French expansion intensified the Dutch desire to conclude the Anglo-Dutch War. Charles II's decision to decommission most of the Royal Navy in late 1666 as a cost-saving measure presented a critical opportunity for the Dutch. They capitalized on this vulnerability with the audacious June 1667 Medway Raid. While its strategic impact was limited, the raid was a profound humiliation for Charles II, a slight he would never forget.[27] This event, coupled with the urgent need to form an alliance against France and the economic fallout from the war and the Great Fire of London, compelled the English delegation to swiftly agree to terms, as instructed by Clarendon, to "calm people's minds" and alleviate the king's burdens.[28]
Provisions
Alliance and Territorial Status Quo
Article 1 of the Treaty of Breda established a limited military alliance, mandating that fleets or individual ships sailing on the same course would defend each other against any third party.[29] More significantly, Article 3 enshrined the principle of uti possidetis, or "what you have, you hold," with an effective date of May 20, 1667. This meant that all territories held by each party on that date would remain under their control. The Dutch thus retained Suriname, Fort Cormantin, and Run island, while the English secured New Netherland, which was subsequently reorganized into several colonies.[30]
Claims and Enforcement
Articles 4 through 8 extended the uti possidetis principle to losses of goods or ships, including those incurred before the war. Crucially, no indemnities could be levied, nor punishments imposed for such losses, and all existing Letters of Marque were declared void.[31] To ensure effective communication and implementation across vast distances, Article 7 stipulated varying enforcement dates for different global regions:
- September 5: English Channel and North Sea
- October 5: Other European seas
- November 2: African coast north of the Equator
- April 24, 1668: The rest of the world[29]
Article 10 mandated the exchange of all prisoners without ransom, though the Dutch later sought reimbursement for living expenses, which the English considered a de facto ransom.[32]
Commercial and Political Clauses
A separate commercial treaty significantly amended the Navigation Acts, a cornerstone of English mercantilist policy. It allowed goods transported along the Rhine or Scheldt rivers to Amsterdam to be carried by Dutch ships to England without being subject to tariffs.[33] England also conceded the principle of "free ships make free goods," preventing the Royal Navy from intercepting Dutch ships during wars in which the Dutch remained neutral.[33] These preliminary commercial terms were finalized in a definitive text signed on February 17, 1668.[29] Politically, Articles 13 and 17 included mutual undertakings not to protect each other's rebels, with a secret annex specifically requiring the Dutch to extradite regicides involved in the execution of Charles I; however, these provisions were largely ignored in practice.[29]
French and Danish Treaties
The treaties with Denmark and France largely mirrored the Anglo-Dutch agreement, waiving claims for restitution of losses. England returned the French possessions of Cayenne and Acadia, captured in 1667 and 1654 respectively, though their exact boundaries remained unspecified, delaying the handover until 1670.[34] In return, England regained Montserrat and Antigua, and the Anglo-French division of the Caribbean island of Saint Kitts was restored.[34] Following their signing on July 31, all treaties were sent for ratification, a process completed by August 24, culminating in public celebrations in Breda.[35]
Impact
Forging the Triple Alliance
By resolving key territorial disputes such as New Netherland and Run, the Treaty of Breda significantly reduced Anglo-Dutch tensions, creating a more stable environment for diplomatic cooperation.[36] This newfound détente directly facilitated the formation of the 1668 Triple Alliance between the Dutch Republic, Sweden, and England. While this alliance is often credited with compelling France to relinquish most of its gains at the Treaty of Aix-la-Chapelle, historical analysis suggests that Louis XIV and Leopold I had already agreed to these terms in January 1668.[37] Nevertheless, Breda marked a crucial turning point where both England and the Dutch began to perceive France as a more significant threat than each other, fundamentally altering the balance of power in Europe.[38]
Internal Dutch Politics
The treaty's outcomes were a disappointment for the Orangists, as it failed to restore the House of Orange to its former prominence or facilitate the return of exiles, contrary to Charles II's earlier promises. In response to the French advance, when Zeeland and Friesland proposed making William of Orange Captain-General of the Dutch States Army, the States of Holland countered with the Perpetual Edict on August 5. This edict abolished the position of Stadholder of Holland and resolved to oppose any confederate Captain-General or Admiral-General from becoming stadtholder of another province.[40] This political maneuver, coupled with a deliberate minimization of military spending (as the army was seen as an Orangist power base), would have catastrophic consequences for the Dutch Republic in 1672.[41]
Gains for Other Powers
Breda also represented a diplomatic success for Sweden. Leveraging its role as mediator, Sweden managed to improve the provisions of the Treaty of Elbing, effectively breaking the Dutch-Danish agreement and securing its place in the Triple Alliance.[22] Spain, too, benefited, regaining Franche-Comté and most of the Spanish Netherlands. More importantly, the Dutch now viewed Spain as a more favorable neighbor than an increasingly ambitious France, a significant shift in regional perceptions.[42]
Enduring
The Zenith of the Dutch Golden Age
For the Dutch Republic, the Treaty of Breda and the subsequent formation of the Triple Alliance were widely celebrated as a diplomatic triumph. This period immediately following 1667 is often regarded by historians as the high point of the Dutch Golden Age.[43] The treaty solidified their commercial gains, particularly in the spice trade, and secured their position as a leading maritime and economic power in Europe, albeit temporarily before the challenges of the 1670s.
A Century of Shifting Alliances
The Breda Accord fundamentally reoriented Anglo-Dutch relations. While commercial competition persisted, the shared perception of France as a burgeoning hegemonic power fostered a century-long alliance between England and the Dutch Republic. This strategic alignment, though occasionally interrupted by conflicts like the Third Anglo-Dutch War, laid the groundwork for future collaborations against French expansionism, culminating in the Glorious Revolution and the eventual joint rule of William and Mary.[1] The treaty thus represents a critical juncture in the evolution of European statecraft, demonstrating how immediate conflicts can yield long-term strategic realignments.
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