Difficulty was at first experienced in getting Cherif Pasha to undertake the formation of a Ministry. His idea was that it was inconsistent with a due regard for his own reputation for him to pose before the world as the accomplice of the mutinous soldiery, and at one time, after an interview with Arabi, Cherif positively declined. Meanwhile, meetings of the officers were held in which the most violent appeared to have the upper hand, and the belief that they had nothing to fear from Turkish intervention emboldened them to reject an ultimatum of Cherif, which was that, on condition of his undertaking the government, and guaranteeing the safety of the leaders, they should withdraw their regiments to certain posts assigned to them.

Public opinion, more particularly amongst the Europeans, became much alarmed, and the Khedive declared himself ready to yield everything in order to save public security.

On the 13th September, however, things took an unexpected turn for the better. Arabi, at the suggestion of Mahmoud Sami, who hoped to render Cherif impossible, and to get himself nominated in his place, summoned to Cairo the members of the Chamber of Notables. Cherif had acquired a good deal of popularity among the class to which the Notables belonged, and at their first meeting he found arguments to induce them to adopt a tone hostile to Arabi and his friends, whom they told to attend to the army, and mind their own business. The Notables went even further, and signed an address to Cherif entreating him to form a Ministry, and giving their personal guarantee that if he consented, the army should yield absolute submission to his orders. Arabi, it will be remembered, had all along professed to act on behalf of the Egyptian people, and the attitude of the Notables was a severe check to him, or rather to Mahmoud Sami, who was pulling the wires. This last individual, seeing that the Notables were playing into the hand of Cherif, at once declared himself the partisan of the latter and of the Chamber, and as a consequence Sami was reappointed Minister of War in the Cabinet which Cherif was eventually persuaded to form.

On the 14th of September the new Ministry was gazetted, and steps were taken for the dispersal of the disaffected regiments in the provinces. On the 6th of October Arabi and his regiment left Cairo for the military station of El Ouady, in the Delta. Before he left he was received by the Khedive, whom he assured of his respect and entire devotion. When one remembers how often Arabi had gone through this ceremony, one can hardly help thinking that Tewfik must, by this time, have begun to get a little tired of it. Before leaving, Arabi made speeches to the troops, in which he exhorted them "to remain united, and to draw even more tightly, if possible, those bonds of fraternity of which they had already given such striking examples." Finally, after pointing out—it must be presumed by way of a joke—that obedience in a soldier was the first of virtues, he declared that as long as he possessed a drop of blood, or a living breath, both should belong to his beloved sovereign.

Meanwhile the elections for the Chamber of Notables, which had been convoked by the Khedive for the 23rd of December, were proceeding. The Chamber was called together under an old law of Ismail's time, made in 1866, under which the Notables possessed but very limited functions. They were, in fact, simply a consultative body, with power only to discuss such matters as might be brought before them by the advisers of the Government.

There is no doubt that, apart from the military movement, there was a widespread feeling of discontent in the country at this time. Ismail's merciless exactions, and the pressure of foreign money-lenders, had given rise to a desire to limit the power of the Khedive, and, above all, to abolish the Anglo-French Control, which was considered as ruling the country simply for the benefit of the foreign bondholders. The Control was further hated by the large landowners, because the law of liquidation (with which the Controllers in the minds of the people were associated) had in a measure sacrificed their claims for compensation in respect of the cancelling of a forced loan known as the "Moukabeleh," and it was still more detested by the Pashas and native officials, because it interfered with the reckless squandering of public money, and the many opportunities for corruption by which they had so long benefited. In addition to this, there was a great deal of irritation at the increasing number of highly paid European officials which the reformed regime inaugurated in the latter days of Ismail involved. The people began to suspect that what was occurring was only part of a plan for handing the country over to Europeans. The examples lately set by England with regard to Cyprus, and by France in Tunis, were, it must be owned, but little calculated to inspire confidence in the political morality of either of these two Powers.

The prevailing irritation was kept alive by the native press, which began to indulge in the most violent abuse of Europeans. The army, too, continued to show signs of insubordination in many ways. To add to the difficulties of the situation, the colonels of the regiments which had been expressly sent away into the provinces had acquired the inconvenient habit of coming back to the capital, and joining in the many intrigues on foot.

Next followed a demand by the Minister of War for an augmentation of the War Budget, in order to increase the army to the maximum allowed by the Sultan's Firman.

Under these circumstances the Chamber of Notables assembled on the 25th of December, 1881.

The earliest trouble arose from the demand of the Notables that the law under which they were assembled should be modified so as to give them power to vote the Budget so far as it related to such of the revenues as were not assigned to the Public Debt.

The claim of the Chamber, though plausible enough at first sight, was really, if granted, calculated to infringe all the international arrangements for the Debt. It was obvious that if the Chamber had the power and chose to vote an extravagant Budget so far as related to the unassigned revenues, the administration of the country could not be carried on, national bankruptcy might ensue, and the collection of the assigned revenues would become impossible.

The Chamber, however, not only refused to give way on the question of the Budget, but it demanded that the law should be further amended by giving the Notables other privileges, namely, the right to control the acts of public functionaries, to initiate legislation, and to hold the Ministers responsible to the Chamber. By getting the Notables to make these demands, which he knew could not be accepted, Mahmoud Sami's object was to bring about a crisis which could only end in the downfall of Cherif's Cabinet. He had already persuaded Cherif to make Arabi Sub-Minister of War, under the pretext of securing him on the side of the Ministry, and so neutralizing the influence which the army was exercising over the Chamber. In reality the appointment only afforded Mahmoud Sami and Arabi increased facilities for intriguing against Cherif. The result was soon seen.

The amendments to the law giving the Chamber increased power were inadmissible on many grounds. Were there no other objection, there was the insurmountable one that the Sultan had already refused a Constitution to other parts of his dominions, and would certainly oppose its being granted to Egypt. To put it shortly, the amendments after being submitted to the English and French Governments were declared unacceptable.

This at once brought about a crisis, and the Chamber, on the 2nd February, sent a deputation to the Khedive to require him to summon a new Ministry.

At this period it was reported to the English and French Governments that activity was being displayed in putting all the coast fortifications in an efficient state, and that the strength of the army was being augmented under the provisions of the new War Budget.

These circumstances, taken in conjunction with the political events above recorded, led the English and French Governments to conclude that if the Khedive was to be maintained in power, the time was coming for them to think about doing something in Egypt. On the 20th of January, 1882, Sir Edward Malet wrote that "armed intervention had become necessary if the refusal to allow the Chamber to vote the Budget was to be agreed to, and yet it was impossible to do otherwise, as the measure only formed part of a complete scheme of revolution." As far back as December, 1881, M. Gambetta, then at the head of the French Ministry, had suggested that England and France should take "joint action in Egypt to strengthen the authority of the Khedive, and to cut short intrigues at Constantinople, as well as to make the Porte feel that any undue interference on its part would not be tolerated."

This proposal shortly after resulted in the famous Joint Note communicated by the English and the French representatives to the Khedive in Cairo, on the 8th January, 1882. The document was to the effect that the English and French Governments considered the maintenance of His Highness upon the throne in the terms laid down by the Sultan's Firmans, and officially recognized by the two Governments, as alone able to guarantee for the present and the future good order and prosperity in Egypt, in which England and France were equally interested. It continued to say that "the two Governments, being closely associated in the resolve to guard by their united efforts against all cause of complication, internal or external, which might menace the order of things established in Egypt, did not doubt that the assurance publicly given of their intention in this respect would tend to divert the dangers to which the Government of the Khedive might be exposed, and which would certainly find England and France united to oppose them."

The parentage of the Joint Note is attributable to the French Government, which, up to this time, seemed bent on retaining the lead which it had from the first taken in regard to Egyptian affairs. The wording of the document had been altered more than once to suit the late Lord Granville, then Foreign Secretary, who appears to have been not quite sure how far he was getting out of his depth in regard to Egyptian matters.

It was under the influence of some such misgiving that Lord Lyons, the British Ambassador in Paris, was instructed on the 6th January, 1882, in communicating to the French Government England's assent to the Note, to make the reservation that she must not be considered as thereby committing herself to any particular mode of action, if action should be found necessary. In reply, M. Gambetta, by a despatch dated the following day, stated that he observed with pleasure "that the only reservation of the Government of the Queen was as to the mode of action to be employed, and that this was a reservation in which he participated."

When one sees how, later on, when action became necessary, the attitude of the two countries became reversed, the extreme reluctance of the English Government to move at this time seems curious enough, especially when it is contrasted with the continued readiness of France to come forward in the interval. The explanation is that M. Gambetta, with his clear statesman-like intellect, foreseeing that some sort of intervention would become necessary, was determined that it should be limited to that of England and France to the exclusion of Turkey, and so long as he remained in power boldly shaped his policy with that object. The English Government, on the other hand, had throughout no real settled policy with regard to Egypt. Their first idea was to have no intervention at all; they hoped that things would mend of themselves. When they found that this was not likely to be the case, the idea of a Turkish intervention found favour. France, however, was resolutely opposed to this, and to allow the latter Power to take isolated action, as indeed she appeared disposed to do if thwarted, was open to serious objections. To avoid such a catastrophe the English Government found themselves under the necessity of following, for the time being, the masterly lead of M. Gambetta. However this may have been, England, by taking part in the Joint Note, assumed a definite position relative to Egypt, and, throwing off all hesitation as to "interference with the internal affairs of the country," pledged herself jointly with France to support the Khedive against all enemies from within or without.

The first to take offence at the Joint Note was naturally enough the Sultan, who caused Lord Granville to be informed that the Porte considered that sending the Khedive any such communication except through itself was highly improper. The Sultan added that, "To protect the immunities granted to Egypt, and to preserve the order and prosperity of that province, was the sincere wish and interest of the Porte, whose efforts had till then always been directed to that end, and that there were no circumstances in Egypt which could serve as a motive for any foreign assurances of the kind made." Finally, the Turkish Ambassador requested that the two Powers would give an explanation of what they meant. At the same time the Sultan sent a Circular to the other Powers, protesting against the action of England and France.

Lord Granville now began to doubt whether he had not gone a little too far, and drafted an answer to the Porte of an apologetic character. The tone of the proposed reply was somewhat of the kind that a schoolboy taken to task for an act of impertinence towards his master might be expected to give. Substantially, it was that the two Powers did not mean anything at all.

The despatch, as originally drafted, began by disclaiming any doubt whatever as to the sovereignty of the Sultan over Egypt. It proceeded to declare that there was no change in the policy of Her Majesty's Government, which was as anxious as ever for the continuance of the sovereignty of the Porte, and for the maintenance of the liberties and administrative independence secured to Egypt by the Sultan's Firmans. Having paid the Porte these little compliments, the despatch disclaimed all ambitious views with regard to the country (of which, by the way, the Sultan had been careful never to accuse the two Powers), but said that they could never be indifferent to events which might plunge Egypt into anarchy, and that it was only with a view to warding off such a catastrophe that Her Majesty's Government thought it advisable, in conjunction with the French Government, to forward a declaration showing the accord of the two in carrying out the policy described. The despatch finally pointed out that the form of the Note was not a new one, and that similar declarations had been on special occasions made to the Khedive without calling forth any remonstrance from the Porte.

Gambetta, however, viewed the matter in a different spirit. Having once gone forward he was not disposed to draw back. He had, moreover, the interests of the large body of French bondholders to protect. He at first objected that no explanation of the Joint Note at all was necessary, and that any attempt to explain it would only tend to encourage the military party. Seeing, however, that Lord Granville was determined to send some reply, Gambetta insisted on certain modifications in the despatch. Amongst them he suggested that the assertion of the Porte, that there were no circumstances that could justify the steps taken by England and France, should be answered, and proposed that it should be pointed out, first, that the authority of the Khedive had been modified and diminished; second, that the Chamber of Notables had arrogated to itself the right of interfering with matters expressly exempted from its jurisdiction by the Khedive's Decree; and third, that the Chamber had aimed at setting aside arrangements to which Egypt was bound by international engagements with England and France. Lord Granville once more yielded to what he had begun to recognize as the superior mind of the French statesman, and Gambetta's amendments were agreed to.

It was not until the 2nd February, however, that the reply to the Porte's remonstrance was actually sent off.

In the meantime the Gambetta Ministry had fallen, and from this moment dates a marked change in the attitude of the French Republic with regard to Egypt. M. de Freycinet, the successor to Gambetta, though agreeing to the amended reply to the Porte, cautiously inquired what meaning was to be attached to the reservation as to "taking action" made by Her Majesty's Government in assenting to the original Note.

Lord Granville, no longer under the influence of Gambetta, and apparently anxious to recede as far as possible from the somewhat bold position which he had been induced to adopt, answered, contrary to the plain words in which the reservation had been expressed, that Her Majesty's Government reserved to themselves the right to determine, not merely the particular mode of action to be adopted in Egypt, but whether any action at all was necessary.

De Freycinet, who, it must be admitted, was equally glad to back out, then plainly declared that he was disinclined to any armed intervention in Egypt, whether by France and England together, or by either separately. This announcement must have been a surprise to the British Government, which, after being led by France into sending the Joint Note, now began to discover that in the event of its becoming necessary to take any steps to carry it into effect, England could no longer count on her as an ally.

Under these circumstances, and feeling that the time when action would have to be taken might not be far off, Lord Granville addressed a Circular to the other Powers, requesting them to enter upon an exchange of views as to the best mode of dealing with the Egyptian Question.

The effect of the Joint Note upon the Porte has been stated. It only remains to consider its effect upon the Khedive and the Notables. The Khedive received the assurances of protection given by England and France gratefully enough. It was not so, however, with his Ministers, who, on the Note being communicated on the 8th January, wanted, like the Sultan, to know what it meant. Sir Edward Malet, in reply, assured them that the Note was merely intended to convey to the Khedive the assurance of the friendship of the Powers, and that in point of fact it did not really mean much.

It is obvious that to produce any good effect on the Chamber and the National Party it was necessary that the Note should have been backed by the display of force, and this unfortunately was just what was wanting. In short, England and France launched their threat without being prepared to follow it up by immediate action. It created great indignation on the part of the military leaders and in the Chamber; Arabi declared point-blank that any intervention on the part of England and France was inadmissible. Later on, when it was seen that the two Powers were not really to act, but, on the contrary, were busy doing all they could to attenuate the step they had taken, the feeling of indignation gave way to one of contempt, very natural under the circumstances.

Amongst those who misled the chiefs of the National Party none were so conspicuous as two Englishmen, namely, the late Sir William Gregory, an ex-Colonial Governor, and Mr. Wilfred S. Blunt. Both these gentlemen had, whilst spending some months in Egypt, conceived a violent sympathy for the National movement. They had witnessed during their stay in the country numerous instances of misrule and oppression, and they regarded Arabi and his friends as the leaders of a genuine popular effort to secure political liberty and good government.

In addition to the assurances which they received from Sir William Gregory and Mr. Blunt, the leaders of the National Party were led to believe, and as has been seen not without reason, that England and France were not really agreed to do anything, much less to take any decisive step in the way of intervention; that the two Powers were jealous of each other, and that the Joint Note might be safely disregarded. The Arabists further clung to the hope that even were France and England allied, the other Powers would prevent their interference, and the protests which four of them, namely, Germany, Austria, Russia, and Italy, made at the time against any foreign interference in Egypt without their consent, certainly tended to confirm this view.

This was the condition of affairs on the 2nd February, when, as already stated, the deputation from the Chamber requested the Khedive to summon a new Ministry. Tewfik had by this time become thoroughly alarmed. The tonic effect produced by the Joint Note had quite gone off, and he was beginning to doubt how far he could rely on support from England and France. He realized that by placing himself under the tutelage of the Western Powers he was injuring himself with the Porte, and he had daily proofs afforded him of his growing unpopularity with his subjects. Under these circumstances he saw nothing for it but to yield. At the suggestion of the Chamber, the intriguer Mahmoud Sami was directed to form a new Ministry, which he lost no time in doing, in conjunction with his confederate Arabi, who now filled the important post of Minister of War.