Pius XI aimed to end the long breach between the papacy and the Italian government and to gain recognition once more of the sovereign independence of the Holy See. Most of the Papal States had been seized by the forces of King Victor Emmanuel II of Italy (1861–1878) in 1860 at the foundation of the modern unified Italian state, and the rest, including Rome, in 1870. The Papacy and the Italian Government had been at loggerheads ever since: the Popes had refused to recognise the Italian state's seizure of the Papal States, instead withdrawing to become prisoners in the Vatican, and the Italian government's policies had always been anti-clerical. Now Pius XI thought a compromise would be the best solution.