If judged by his foreign relations Henry's statesmanship was unsuccessful. His insincerity and perfidy often overreached themselves, and he was often {278} deceived. Moreover, he was inconstant, pursuing no worthy end whatever. England was by her insular location and by the nearly equal division of power on the Continent between France and the emperor, in a wonderfully safe and advantageous place. But, so far was Henry from using this gift of fortune, that he seems to have acted only on caprice. [Sidenote: Domestic policy] In domestic policy Henry achieved his greatest successes, in fact, very remarkable ones indeed. Doubtless here also he was favored by fortune, in that his own ends happened in the main to coincide with the deeper current of his people's purpose, for he was supported by just that wealthy and enterprising bourgeois class that was to call itself the people and to make public opinion for the next three centuries. In time this class would become sufficiently conscious of its own power to make Parliament supreme and to demand a reckoning even from the crown, but at first it needed the prestige of the royal name to conquer the two privileged classes, the clergy and the nobility. The merchants and the moneyed men only too willingly became the faithful followers of a chief who lavishly tossed to them the wealth of the church and the political privileges of the barons. And Henry had just one strong quality that enabled him to take full advantage of this position; he seemed to lead rather than to drive, and he never wantonly challenged Parliament. The atrocity of his acts was only equaled by their scrupulous legality. On Henry's morals there should be less disagreement than on his mental gifts. Holbein's faithful portraits do not belie him. The broad-shouldered, heavy-jowled man, standing so firmly on his widely parted feet, has a certain strength of will, or rather of boundless egotism. Francis and Charles showed themselves persecuting, and were capable of having a {279} defaulting minister or a rebel put to death; but neither Charles nor Francis, nor any other king in modern times, has to answer for the lives of so many nobles and ministers, cardinals and queens, whose heads, as Thomas More put it, he kicked around like footballs. [Sidenote: Empson and Dudley executed, April 25, 1509] The reign began, as it ended, with political murder. The miserly Henry VII had made use of two tools, Empson and Dudley, who, by minute inquisition into technical offences and by nice adjustment of fines to the wealth of the offender, had made the law unpopular and the king rich. Four days after his succession, Henry VIII issued a proclamation asking all those who had sustained injury or loss of goods by these commissioners, to make supplication to the king. The floodgates of pent-up wrath were opened, and the two unhappy ministers swept away by an act of attainder. [Sidenote: War with France and Scotland]