The Republic of Colombia was experiencing a severe political crisis. Páez and the Venezuelan Federalist Party, driven by a desire to reform the 1821 Constitution, were in rebellion against Santander's central government. In Panama, Guayaquil, Quito, Cuenca, and Cartagena, similar demands were being made for change and the presence of the Liberator. Political leadership from Bogotá was facing increasing opposition in the outlying departments. Rigid legalism, the marginalization of the regions, limited economic progress, disagreements with the ruling elite, the autonomist spirit clashing with institutionalized centralism, local differences, and the provincial elites' lack of subservience to the central government were the causes of the crisis, whose roots dated back to 1822.
Bolívar, who had left the country to liberate Quito and Peru, was absent from national affairs for four years. He sought to quell discord with the Bolivian Constitution, which was only well-received in some departments. In September, he left Lima to address the situation. The people believed his return would be the salvation of the country. In Quito, he understood the need for tax reform. Revenues were low, and the bureaucracy was growing. The people, burdened by taxes and conscription, could no longer endure this reality. In a letter to Santander, he criticized the situation he witnessed: “The South dislikes the North; the coasts dislike the highlands. Venezuela dislikes Cundinamarca; Cundinamarca suffers from Venezuela's unrest. The army is discontented, even indignant, at the regulations it is given.”
In Pasto, he observes the neglected state of education. In Popayán, he learns of O'Leary's failure to persuade Páez and Bogotá's rejection of his Bolivian proposal. On November 11, in Tocaima, he meets with Santander in person. The Liberator promises to quell the Venezuelan rebellion, and Santander pledges to reform the institutions. Bolívar confirms Santander as vice president, and Santander commits to supporting the Bolivian project in Congress with a lifetime presidency, but without accepting a hereditary vice presidency. He also agrees to establish a Confederation with Peru and Bolivia. The Liberator, for his part, abandons the idea of a dictatorial mandate, respects the existing order, and both support a Constituent Assembly.
Everything seemed to be resolved…
