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The last years of the 1780s and the early 1790s had been marked by a general instability in European affairs which considerably affected the position of the Continental powers. In the Dutch Republic the stadholder, William V of Orange, had been assisted by Prussia and Great Britain in his difficulties with the democratic party supported by France. Frederick William II of Prussia sent troops into Holland in 1787 and concluded with Great Britain and the stadholder the Triple Alliance of 1788. It was intended to oppose French influence in Dutch affairs and Russian and Austrian designs against Poland and Turkey. The entente between Great Britain and Prussia, however, was soon dispelled by the latter’s overambitious policies. In 1789 Prussia came close to declaring war on Russia and Austria, having urged Sweden to invade Russia and the Poles to seek the return of Russian annexations. In 1789 Austria was confronted by a revolt in the Austrian Netherlands (roughly, modern Belgium) against Holy Roman emperor Joseph II’s liberalization of their institutions. Dissatisfied with the course of Prussian policy and desiring to strengthen the Austrian Netherlands against France, Great Britain welcomed the chance of a rapprochement with Austria. Despite the growing understanding between Austria and Great Britain, the Prussians concluded an alliance with the Poles in March 1790 and massed their troops near Austria’s Bohemian frontier. Leopold II, however, the new Holy Roman emperor and ruler of the Austrian dominions, signed a truce with the Turks, and the Poles refused to cede Toruń and Gdańsk to Prussia in return for aid. Dangerously isolated, Prussia came to terms with Austria at Reichenbach (July 27, 1790) and even suggested a common front against the French Revolution in which the possibility of annexing some French territory might arise.
Ongoing Russian and Austrian hostilities with Turkey prevented effective action by the Continental powers against France. Peace with Turkey was signed finally by Austria on August, 4, 1791, and peace preliminaries by Russia on August 11. Soon, however, tension grew up in central Europe. At the end of 1791 Catherine the Great had brought a Russian army of 130,000 to the Polish frontier. Though it was prepared to offer Austria and Prussia a share of the spoils should they oppose its designs on Poland, the Russian government declared its enthusiasm for a monarchical alliance against France—both in order to cover its intentions against Poland and in the hope of directing Prussian and Austrian attention to the west. Thus it is clear that France had occupied a secondary place in the minds of European leaders until mid-1791. Events in France, far from inspiring the powers with the zeal that they professed for a monarchical crusade, had encouraged them to seek advantages in the east while the French were preoccupied with their internal affairs. Later, the very real divisions among the Continental powers were to precipitate their defeat by the French armies.
Austria had shown little response to Prussia’s suggestions, from the Reichenbach convention onward, for joint action against France with the double purpose of counteracting the Revolution and making territorial gains in the west. The Prussians’ own interest in such a policy and the fact that the Polish situation had yet to be regulated were powerful arguments to deter the Austrians from committing themselves in the west while Russia’s hands were free in the east. Leopold’s concern for the safety of his sister Marie-Antoinette and her husband, Louis XVI of France, led him to promise positive action when he heard that they were about to escape from their critical position (the flight to Varennes, June 1791). On August 27 he and the king of Prussia issued the Declaration of Pillnitz, appealing to the European sovereigns to use force to strengthen Louis XVI’s position.
In Paris the Legislative Assembly, from which members of the former Constituent Assembly were excluded, met on October 1, 1791. The situation which confronted its less experienced and more radically minded deputies continued to deteriorate. There was a worsening financial crisis, right-wing insurrections had arisen in the Vendée in August, and peasant risings were continuing elsewhere. The Declaration of Pillnitz, however, instead of intimidating the supporters of the Revolution, served to discredit the moderate Feuillants in the assembly, which grew more disposed to war. In December 1791 the French government called upon the elector of Trier, Clement Wenceslas of Saxony, to disband the armed forces of émigrés on his territory, whereupon Leopold retorted that he would defend the elector against aggression. In March 1792, Leopold’s son and successor, the Holy Roman emperor Francis I, was informed by Marie-Antoinette that the Girondin ministry, which Louis XVI had just accepted, was about to attack the Austrian Netherlands. Austria and Prussia, though their relations were already strained over the actual disposition of their forces in the west and over the steps to be taken in the event of Russian action in Poland, sent a circular to the European powers on April 12, inviting concerted action.
