Henry's government relied primarily on Eleanor and her Savoyard supporters, and it proved short-lived. He attempted to settle the crisis permanently by forcing the barons to agree to the Treaty of Kingston. This treaty introduced a system of arbitration to settle outstanding disputes between the King and the barons, using Richard as an initial adjudicator, backed up by Louis of France should Richard fail to generate a compromise. Henry softened some of his policies in response to the concerns of the barons, but he soon began to target his political enemies and recommence his unpopular Sicilian policy. He had done nothing significant to deal with the concerns over Baronial and royal abuse of Jewish debts. Henry's government was weakened by the death of Richard, as his heir, Gilbert de Clare, 5th Earl of Gloucester, sided with the radicals; the King's position was further undermined by major Welsh incursions along the Marches and the Pope's decision to reverse his judgement on the Provisions, this time confirming them as legitimate. By early 1263, Henry's authority had disintegrated and the country slipped back towards open civil war.