Foreign affairs

From the beginning of his reign, Louis pursued a vigorous foreign policy. Historical opinion has traditionally held that Louis sought to dominate Europe, only to meet his just deserts at the end of his reign. (For the traditional interpretation, see Germany: The age of Louis XIV.) More recently another interpretation has emerged that argues that Louis pursued consistent and for the most part moderate aims and pursued them successfully up to and including the Treaty of Utrecht (1713). The starting point for the more recent interpretation is the ambiguous Peace of Münster (1648), forming part of the great European settlement of Westphalia, the terms of which subsequently became a bone of contention between Bourbon and Habsburg rulers. One of the critical issues of the treaty was the fate of the three bishoprics of Metz, Toul, and Verdun on the northeast frontier of France. These bishoprics, occupied by the French since 1552, were formally acquired in 1648 together with a number of towns in nearby Alsace. One of the main Habsburg aims both in the War of the League of Augsburg (1689–97; also called the War of the Grand Alliance) and in the War of the Spanish Succession (1701–14) was the restoration of the three bishoprics and the province of Franche-Comté, also on the eastern frontier of France, connecting Burgundy with Alsace, which Louis had acquired through the Treaties of Nijmegen (1678–79) that concluded the Dutch War (1672–78). Louis, however, was determined to hold onto the gains in Alsace, however ambiguously acquired; he also hoped to add Lorraine, to the north of Franche-Comté, to consolidate further this least-secure French frontier area.

Louis’s policy in the northeast was constant and understandable. Franche-Comté was one entry into France previously exploited by its enemies that Louis succeeded in closing in 1678. He had already closed another, the port of Dunkirk, by purchasing it from Charles II of England in 1662; a third gateway, from the southern Netherlands, was effectively barred by the military fortifications erected by his great military engineer, Sébastien Le Prestre de Vauban, in the 1680s. The capture of Lorraine would have bolted yet one more dangerous entry. Of course, the situation looked quite different from the Habsburg point of view, especially after Louis’s seizure of the key city of Strassburg (French Strasbourg) in 1681, an episode that goes to the heart of the controversial matter of his reunion policy. Following the successful Treaties of Nijmegen, Louis began to employ his own judicial courts to claim sovereignty over all the dependencies of territories that he already possessed in Alsace, Franche-Comté, Metz, Toul, and Verdun. The maneuver enabled him to consolidate his control, especially over Alsace and Franche-Comté, though the legality of the claims to some of the alleged “dependencies” was extremely dubious. There was no legal justification whatever for Louis’s greatest coup in the area—the seizure in September 1681 of the independent city of Strassburg. To Louis this key city, the door through which imperial armies could pass (and three times in the recently concluded war had passed) into Alsace, represented a serious threat, for Strassburg was within easy reach of the Danube valley and Vienna. His fears about French vulnerability in this region may best be illustrated by his offer during the War of the League of Augsburg to waive his claim to the Spanish succession on condition that Nijmegen be respected, that Lorraine be absorbed into France (with proper compensations elsewhere), and that the Spanish and Austrian lands not be united under one ruler. The Holy Roman emperor Leopold I immediately rejected these proposals. When the final climactic conflict of his reign, the War of the Spanish Succession, was proceeding badly, Louis offered to relinquish all the gains he had made from the Spanish inheritance; but he desperately hoped to hold on to Metz, Toul, Verdun, Alsace, and Franche-Comté.

Louis’s attitude toward the Dutch was less moderate and more bullying. His invasion of the Spanish Netherlands in 1667 and the ensuing War of Devolution frightened the Dutch into the Triple Alliance with England and Sweden, which led to the Treaty of Aix-la-Chapelle (1668). Then, in the Dutch War that followed shortly afterward (1672–78), Louis intended to warn the Dutch that France was a serious commercial competitor and to force the Dutch to give him a free hand in the Spanish Netherlands when the issue of the Spanish succession came to the fore. He learned from that war that he could never hope to incorporate a large part of the Netherlands into France against Dutch opposition; but he also continued to fear the manner in which the Dutch might try to influence the government of the Spanish Netherlands for their own economic benefit. Here again was an example of mutual hostility and suspicion in which interpretations of motives in Versailles and in The Hague were diametrically opposed. At the Treaty of Rijswijk (1697) the Dutch gained the right to keep a series of Dutch barrier fortresses within the southern Netherlands as a check against French aggression; it was Louis’s seizure of these fortresses in 1701 that precipitated the War of the Spanish Succession (1701–14).

That war has usually been depicted as the most significant element in an assessment of Louis’s total foreign policy: for some historians, all his relations with the rest of Europe were geared to this great issue; for others, it was the final misjudgment born of overconfidence, provoked by his own ambitious miscalculations, and destined to ruin France. It is certainly true that the approaching end of the direct ruling line in Spain had interested European rulers for many years, and the Bourbon claim to a share in that rich inheritance—deriving from Louis’s marriage to Marie-Thérèse, elder daughter of King Philip IV of Spain—was accepted as a key factor in the situation. In 1668 Louis and Emperor Leopold I had gone so far as to sign a partition treaty, more than 30 years before the death of the last Spanish Habsburg, Charles II. No European statesman was surprised, therefore, at Louis’s later concern when, after the signature of the Treaty of Rijswijk in 1697, he undertook negotiations with the English king William III out of which two further partition treaties emerged. The crucial moment came when Charles II’s last will was published, offering the Spanish crown, in opposition to the second partition treaty, to Louis’s grandson Philip, duc d’Anjou (later Philip V). Louis’s decision to accept did not in itself provoke war. Besides, if Louis had snubbed the Spanish offer, it would have been made to Austria, and the spectre of the restoration of Charles V’s empire—probably coupled with French losses on the northeastern frontiers—was intolerable. In addition, Louis had recently made peace after the War of the Grand Alliance, the hardest conflict in which he had so far been engaged, and thus had no illusions about the difficulty of overcoming another coalition under William III’s leadership. One may conclude that he did not seek war. But he did make decisions that made war likely, including his recognition of the Old Pretender as James III of England, his unexplained decision to protect his grandson’s right to the French throne (he was envisaging not a single, united realm of France and Spain but two Bourbon kingdoms, with the senior heir succeeding in France), his occupation of the barrier fortresses, and his seizure of the monopoly of the Spanish-American trade.

When peace was signed at Utrecht in 1713, Louis, despite the disasters of the intervening years, succeeded in holding onto the gains in Europe that he had considered vital throughout his reign, including Alsace and Strasbourg. In addition, his grandson remained king of Spain, despite all the efforts of the Grand Alliance to replace him with their candidate, the Austrian archduke Charles (as Charles III). It is true that in the darkest time of the war, during 1708–10, when the kingdom was in the grip of famine and the royal treasury on the brink of bankruptcy, the desperate king was ready to give up these precious gains and was prevented only by the intransigence of his opponents with their impossible demand that he should himself assist in driving his grandson from the throne of Spain. Likewise, a fortuitous change of government in England in 1710, which ushered in the Tory peace ministry, and the elevation of the Austrian archduke to the imperial title as Charles VI in 1711 weakened the unity of purpose of the Grand Alliance and enabled Louis’s most effective soldier, Claude-Louis-Hector, duc de Villars, to stage a military revival. Therefore, the relatively successful conclusion of the war from France’s point of view was not entirely of Louis’s own fashioning. Had events forced Louis to accept a total surrender, it would have been even more tempting for historians to blame the defeat upon the excessive ambitions of an arrogant man.

It cannot be denied that Louis was arrogant and that his arrogance aroused fear and resentment in his neighbours. Equally, he was intolerant, like most of his contemporaries, and feared by Protestant powers as the leader of a new and vengeful Counter-Reformation, an irony in view of his secret encouragement of the Turks in order to weaken the emperor. Both facets of the great king need to be borne in mind when assessing his overall foreign policy, and they help to counter any tendency to overestimate the defensive nature of his strategy. That defensive element, however, is of significance and has been largely lost sight of, especially in assessments of the reign written in English. Louis frightened Europe with his quest for la gloire, by which he meant the favourable verdict of history on his contribution to French security and territorial integrity but which his enemies interpreted more narrowly as a preoccupation with military triumphs and vainglorious display. That contemporary interpretation, still widely accepted nearly three centuries later, does less than justice to Louis’s shrewd appreciation of political realities and of France’s long-term interests.