The Eve of the French Revolution.

by Edward J. Lowell.

PREFACE

There are two ways in which the French Revolution may be considered. We may look at the great events which astonished and horrified Europe and America: the storming of the Bastille, the march on Versailles, the ma.s.sacres of September, the Terror, and the restoration of order by Napoleon. The study of these events must always be both interesting and profitable, and we cannot wonder that historians, scenting the approaching battle, have sometimes hurried over the comparatively peaceful country that separated them from it. They have accepted easy and ready-made solutions for the cause of the trouble. Old France has been lurid in their eyes, in the light of her burning country-houses.

The Frenchmen of the eighteenth century, they think, must have been wretches, or they could not so have suffered. The social fabric, they are sure, was rotten indeed, or it would never have gone to pieces so suddenly.

There is, however, another way of looking at that great revolution of which we habitually set the beginning in 1789. That date is, indeed, momentous; more so than any other in modern history. It marks the outbreak in legislation and politics of ideas which had already been working for a century, and which have changed the face of the civilized world. These ideas are not all true nor all n.o.ble. They have in them a large admixture of speculative error and of spiritual baseness. They require to-day to be modified and readjusted. But they represent sides of truth which in 1789, and still more in 1689, were too much overlooked and neglected. They suited the stage of civilization which the world had reached, and men needed to emphasize them. Their very exaggeration was perhaps necessary to enable them to fight, and in a measure to supplant, the older doctrines which were in possession of the human mind.

Induction, as the sole method of reasoning, sensation as the sole origin of ideas, may not be the final and only truth; but they were very much needed in the world in the seventeenth and eighteenth centuries, and they found philosophers to elaborate them, and enthusiasts to preach them. They made their way chiefly on French soil in the decades preceding 1789.

The history of French society at that time has of late years attracted much attention in France. Diligent scholars have studied it from many sides. I have used their work freely, and acknowledgment will be found in the foot-notes; but I cannot resist the pleasure of mentioning in this preface a few of those to whom I am most indebted; and first M.

Albert Babeau, without whose careful researches several chapters of this book could hardly have been written. His studies in archives, as well as in printed memoirs and travels, have brought much of the daily life of old France into the clearest light. He has in an eminent degree the great and thoroughly French quality of telling us what we want to know.

His impartiality rivals his lucidity, while his thoroughness is such that it is hard gleaning the old fields after him.

Hardly less is my indebtedness to the late M. Aime Cherest, whose unfinished work, "La Chute de l'ancien regime," gives the most interesting and philosophical narrative of the later political events preceding the meeting of the Estates General. To the great names of de Tocqueville and of Taine I can but render a pa.s.sing homage. The former may be said to have opened the modern mind to the proper method of studying the eighteenth century in France, the latter is, perhaps, the most brilliant of writers on the subject; and no one has recently written, or will soon write, about the time when the Revolution was approaching without using the books of both of them. And I must not forget the works of the Vicomte de Broc, of M. Boiteau, and of M.

Rambaud, to which I have sometimes turned for suggestion or confirmation.

Pa.s.sing to another branch of the subject, I gladly acknowledge my debt to the Right Honorable John Morley. Differing from him in opinion almost wherever it is possible to have an opinion, I have yet found him thoroughly fair and accurate in matters of fact. His books on Voltaire, Rousseau, and the Encyclopaedists, taken together, form the most satisfactory history of French philosophy in the eighteenth century with which I am acquainted.

Of the writers of monographs, and of the biographers, I will not speak here in detail, although some of their books have been of very great service to me. Such are those of M. Bailly, M. de Lavergne, M. Horn, M.

Stourm, and M. Charles Gomel, on the financial history of France; M. de Poncins and M. Desjardins, on the cahiers; M. Rocquain on the revolutionary spirit before the revolution, the Comte de Lucay and M. de Lavergne, on the ministerial power and on the provincial a.s.semblies and estates; M. Desnoiresterres, on Voltaire; M. Scherer, on Diderot; M. de Lomenie, on Beaumarchais; and many others; and if, after all, it is the old writers, the contemporaries, on whom I have most relied, without the a.s.sistance of these modern writers I certainly could not have found them all.

In treating of the Philosophers and other writers of the eighteenth century I have not endeavored to give an abridgment of their books, but to explain such of their doctrines as seemed to me most important and influential. This I have done, where it was possible, in their own language. I have quoted where I could; and in many cases where quotation marks will not be found, the only changes from the actual expression of the author, beyond those inevitable in translation, have been the transference from direct to oblique speech, or some other trifling alterations rendered necessary in my judgment by the exigencies of grammar. On the other hand, I have tried to translate ideas and phrases rather than words.

EDWARD J. LOWELL.

June 24, 1892.

INTRODUCTION.

It is characteristic of the European family of nations, as distinguished from the other great divisions of mankind, that among them different ideals of government and of life arise from time to time, and that before the whole of a community has entirely adopted one set of principles, the more advanced thinkers are already pa.s.sing on to another. Throughout the western part of continental Europe, from the sixteenth to the eighteenth century, absolute monarchy was superseding feudalism; and in France the victory of the newer over the older system was especially thorough. Then, suddenly, although not quite without warning, a third system was brought face to face with the two others.

Democracy was born full-grown and defiant. It appealed at once to two sides of men's minds, to pure reason and to humanity. Why should a few men be allowed to rule a great mult.i.tude as deserving as themselves? Why should the ma.s.s of mankind lead lives full of labor and sorrow? These questions are difficult to answer. The Philosophers of the eighteenth century p.r.o.nounced them unanswerable. They did not in all cases advise the establishment of democratic government as a cure for the wrongs which they saw in the world. But they attacked the things that were, proposing other things, more or less practicable, in their places. It seemed to these men no very difficult task to reconst.i.tute society and civilization, if only the faulty arrangements of the past could be done away. They believed that men and things might be governed by a few simple laws, obvious and uniform. These natural laws they did not make any great effort to discover; they rather took them for granted; and while they disagreed in their statement of principles, they still believed their principles to be axiomatic. They therefore undertook to demolish simultaneously all established things which to their minds did not rest on absolute logical right. They bent themselves to their task with ardent faith and hope.

The larger number of people, who had been living quietly in the existing order, were amused and interested. The attacks of the Philosophers seemed to them just in many cases, the reasoning conclusive. But in their hearts they could not believe in the reality and importance of the a.s.sault. Some of those most interested in keeping the world as it was, honestly or frivolously joined in the cry for reform and for destruction.

At last an attempt was made to put the new theories into practice. The social edifice, slowly constructed through centuries, to meet the various needs of different generations, began to tumble about the astonished ears of its occupants. Then all who recognized that they had something at stake in civilization as it existed were startled and alarmed. Believers in the old religion, in old forms of government, in old manners and morals, men in fear for their heads and men in fear for their estates, were driven together. Absolutism and aristocracy, although entirely opposed to each other in principle, were forced into an unnatural alliance. From that day to this, the history of the world has been largely made up of the contests of the supporters of the new ideas, resting on natural law and on logic, with those of the older forms of thought and customs of life, having their sanctions in experience. It was in France that the long struggle began and took its form. It is therefore interesting to consider the government of that country, and its material and moral condition, at the time when the new ideas first became prominent and forced their way toward fulfillment.

It is seldom in the time of the generation in which they are propounded that new theories of life and its relations bear their full fruit. Only those doctrines which a man learns in his early youth seem to him so completely certain as to deserve to be pushed nearly to their last conclusions. The Frenchman of the reign of Louis XV. listened eagerly to Voltaire, Montesquieu and Rousseau. Their descendants, in the time of his grandson, first attempted to apply the ideas of those teachers.

While I shall endeavor in this book to deal with social and political conditions existing in the reign of Louis XVI., I shall be obliged to turn to that of his predecessor for the origin of French thoughts which acted only in the last quarter of the century.

CHAPTER I.

THE KING AND THE ADMINISTRATION.

When Louis XVI. came to the throne in the year 1774, he inherited a power nearly absolute in theory over all the temporal affairs of his kingdom. In certain parts of the country the old a.s.semblies or Provincial Estates still met at fixed times, but their functions were very closely limited. The _Parliaments_, or high courts of justice, which had claimed the right to impose some check on legislation, had been browbeaten by Louis XIV., and the princ.i.p.al one, that of Paris, had been dissolved by his successor. The young king appeared, therefore, to be left face to face with a nation over which he was to exercise direct and despotic power. It was a recognized maxim that the royal was law.

[Footnote: Si veut le roi, si veut la loi.] Moreover, for more than two centuries, the tendency of continental governments had been toward absolutism. Among the great desires of men in those ages had been organization and strong government. A despotism was considered more favorable to these things than an aristocracy. Democracy existed as yet only in the dreams of philosophers, the history of antiquity, and the example of a few inconsiderable countries, like the Swiss cantons. It was soon to be brought into greater prominence by the American Revolution. As yet, however, the French nation looked hopefully to the king for government, and for such measures of reform as were deemed necessary. A king of France who had reigned justly and strongly would have received the moral support of the most respectable part of his subjects. These longed for a fair distribution of public burdens and for freedom from unnecessary restraint, rather than for a share in the government. The admiration for the English const.i.tution, which was commonly expressed, was as yet rather theoretic than practical, and was not of a nature to detract from the loyalty undoubtedly felt for the French crown.

Every monarch, however despotic in theory, is in fact surrounded by many barriers which it takes a strong man to overleap. And so it was with the king of France. Although he was the fountain of justice, his judicial powers were exercised through magistrates many of whom had bought their places, and could therefore not be dispossessed without measures that were felt to be unjust and almost revolutionary. The breaking up of the Parliament of Paris, in the latter years of the preceding reign, had thrown the whole body of judges and lawyers into a state of discontent bordering on revolt. The new court of justice which had superseded the old one, the Parlement Maupeou as it was called, after the name of the chancellor who had advised its formation, was neither liked nor respected. It was one of the first acts of the government of Louis XVI.

to restore the ancient Parliament of Paris, whose rights over legislation will be considered later, but which exercised at least a certain moral restraint on the royal authority.

But it was in the administrative part of the government, where the king seemed most free, that he was in fact most hampered. A vast system of public offices had been gradually formed, with regulations, traditions, and a professional spirit. This it was which had displaced the old feudal order, subst.i.tuting centralization for vigorous local life.

The king's councils, which had become the central governing power of the state, were five in number. They were, however, closely connected together. The king himself was supposed to sit in all of them, and appears to have attended three with tolerable regularity. When there was a prime minister, he also sat in the three that were most important. The controller of the finances was a member of four of the councils, and the chancellor of three at least. As these were the most important men in the government, their presence in the several councils secured unity of action. The boards, moreover, were small, not exceeding nine members in the case of the first four in dignity and power: the Councils of State, of Despatches, of Finance, and of Commerce. The fifth, the Privy Council, or Council of Parties, was larger, and served in a measure as a training-school for the others. It comprised, beside all the members of the superior councils, thirty councilors of state, several intendants of finance, and eighty lawyers known as _matres des requetes_.

[Footnote: De Lucay, _Les Secretaires d'etat, 418, 419, 424, 442, 448, 449.]

The functions of the various councils were not clearly defined and distinguished. Many questions would be submitted to one or another of them as chance or influence might direct. Under each there were a number of public offices, called bureaux, where business was prepared, and where the smaller matters were practically settled. By the royal councils and their subordinate public offices, France was governed to an extent and with a minuteness hardly comprehensible to any one not accustomed to centralized government.

The councils did nothing in their own name. The king it was who nominally settled everything with their advice. The final decision of every question was supposed to rest with the monarch himself. Every important matter was in fact submitted to him. Thus in the government of the country, the king could at any moment take as much of the burden upon his own shoulders as they were strong enough to bear.

The legislative power was exercised by the councils. It was a question not entirely settled whether their edicts possessed full force of law without the a.s.sent of the high courts or parliaments. But with the councils rested, at least, all the initiative of legislation. The process of lawmaking began with them, and by them the laws were shaped and drafted.

They also possessed no small part of the judiciary power. The custom of removing private causes from the regular courts, and trying them before one or another of the royal councils, was a great and, I think, a growing one. This appellate jurisdiction was due in theory partly to the doctrine that the king was the origin of justice; and partly to the idea that political matters could not safely be left to ordinary tribunals.

The notion that the king owes justice to all his subjects and that it is an act of grace, perhaps even a duty on his part, to administer it in person when it is possible to do so, is as old as monarchy itself.

Solomon in his palace, Saint Louis under his oak, when they decided between suitors before them, were exercising the inherent rights of sovereignty, as understood in their day. The late descendants of the royal saint did not decide causes themselves except on rare occasions, but in questions between parties followed the decision of the majority of the council that heard the case. Thus the ancient custom of seeking justice from a royal judge merely served to transfer jurisdiction to an irregular tribunal.[Footnote: De Lucay, _Les Secretaires d'etat_, 465.]

The executive power was both nominally and actually in the hands of the councils. Great questions of foreign and domestic policy could be settled only in the Council of State.[Footnote: Sometimes called Conseil d'en haut, or Upper Council.] But the whole administration tended more and more in the same direction. Questions of detail were submitted from all parts of France. Hardly a bridge was built or a steeple repaired in Burgundy or Provence without a permission signed by the king in council and countersigned by a secretary of state. The Council of Despatches exercised disciplinary jurisdiction over authors, printers, and booksellers. It governed schools, and revised their rules and regulations. It laid out roads, dredged rivers, and built ca.n.a.ls. It dealt with the clergy, decided differences between bishops and their chapters, authorized dioceses and parishes to borrow money. It took general charge of towns and munic.i.p.al organization. The Council of Finance and the Council of Commerce had equally minute questions to decide in their own departments.[Footnote: De Lucay, _Les Secretaires d'etat_, 418. For this excessive centralization, see, also, De Tocqueville, _L'ancien Regime et la Revolution_, pa.s.sim.]

Evidently the king and his ministers could not give their personal attention to all these matters. Minor questions were in fact settled by the bureaux and the secretaries of state, and the king did little more than sign the necessary license. Thus matters of local interest were practically decided by subordinate officers in Paris or Versailles, instead of being arranged in the places where they were really understood. If a village in Languedoc wanted a new parsonage, neither the inhabitants of the place, nor any one who had ever been within a hundred miles of it, was allowed to decide on the plan and to regulate the expense, but the whole matter was reported to an office in the capital and there settled by a clerk. This barbarous system, which is by no means obsolete in Europe, is known in modern times by the barbarous name of bureaucracy.

The royal councils and their subordinate bureaux had their agents in the country. These were the intendants, men who deserve attention, for by them a very large part of the actual government was carried on. They were thirty-two in number, and governed each a territory, called a generalite. The Intendants were not great lords, nor the owners of offices that had become a.s.similated to property; they were hard-working men, delegated by the council, under the great seal, and liable to be promoted or recalled at the royal pleasure. They were chosen from the cla.s.s of _matres des requetes_, and were therefore all lawyers and members of the Privy Council. Thus the unity of the administration in Versailles and the provinces was constantly maintained.

It had originally been the function of the intendants to act as legal inspectors, making the circuit of the provincial towns for the purpose of securing uniformity and the proper administration of justice in the various local courts.[Footnote: Du Boys, i. 517.] They retained to the end of the monarchy the privilege of sitting in all the courts of law within their districts.[Footnote: De Lucay, _Les a.s.semblees provinciales_, 31.] But their duties and powers had grown to be far greater than those of any officer merely judicial. The intendant had charge of the interests of the Catholic religion and worship, and the care of buildings devoted to religious purposes. He also controlled the Protestants, and all their affairs. He encouraged and regulated agriculture and commerce. He settled many questions concerning military matters and garrisons. The militia was entirely managed by him. He cooperated with the courts of justice in the control of the police. He had charge of post-roads and post-offices, stage coaches, books and printing, royal or privileged lotteries, and the suppression of illegal gambling. He was, in fact, the direct representative of the royal power, and was in constant correspondence with the king's minister of state.

And as the power of the crown had constantly grown for two centuries, so the power of the intendant had constantly grown with it, tending to the centralization and unity of France and to the destruction of local liberties.

As the intendants were educated as lawyers rather than as administrators, and as they were often transferred from one province to another after a short term of service, they did not acquire full knowledge of their business. Moreover, they did not reside regularly in the part of the country which they governed, but made only flying visits to it, and spent most of their time near the centre of influence, in Paris or Versailles. Yet their opportunities for doing good or harm were almost unlimited. Their executive command was nearly uncontrolled; for where there were no provincial estates, the inhabitants could not send a pet.i.tion to the king except through the hands of the intendant, and any complaint against that officer was referred to himself for an answer.[Footnote: For the intendants, see Necker, _De l'administration_, ii. 469, iii. 379. Ibid., _Memoire au roi sur l'etabliss.e.m.e.nt des administrations provinciales_, pa.s.sim. De Lucay, _Les a.s.semblees provinciales_, 29. Mercier, _Tableau de Paris_, ix. 85. The official t.i.tle of the intendant was _commissaire departi_.]

The intendants were represented in their provinces by subordinate officers called sub-delegates, each one of whom ruled his petty district or _election_. These men were generally local lawyers or magistrates. Their pay was small, they had no hope of advancement, and they were under great temptation to use their extensive powers in a corrupt and oppressive manner.[Footnote: De Lucay, _Les a.s.semblees provinciales_, 42, etc.]

Beside the intendant, we find in every province a royal governor. The powers of this official had gradually waned before those of his rival.

He was always a great lord, drawing a great salary and maintaining great state, but doing little service, and really of far less importance to the province than the new man. He was a survival of the old feudal government, superseded by the centralized monarchy of which the intendant was the representative.[Footnote: The _generalite_ governed by the intendant, and the _province_ to which the royal governor was appointed, were not always coterminous.]

CHAPTER II.

LOUIS XVI. AND HIS COURT.