Chapter 10 BRUMAIRE

Rarely has France been in a more distracted state than in the summer of 1799. Royalist revolts in the west and south rent the national life. The religious schism was unhealed; education was at a standstill; commerce had been swept from the seas by the British fleets; and trade with Italy and Germany was cut off by the war of the Second Coalition.

The formation of this league between Russia, Austria, England, Naples, Portugal, and Turkey was in the main the outcome of the alarm and indignation aroused by the reckless conduct of the Directory, which overthrew the Bourbons at Naples, erected the Parthenop?an Republic, and compelled the King of Sardinia to abdicate at Turin and retire to his island. Russia and Austria took a leading part in forming the Coalition. Great Britain, ever hampered by her inept army organization, offered to supply money in place of the troops which she could not properly equip.

But under the cloak of legitimacy the monarchical Powers harboured their own selfish designs. This Nessus' cloak of the First Coalition soon galled the limbs of the allies and rendered them incapable of sustained and vigorous action. Yet they gained signal successes over the raw conscripts of France. In July, 1799, the Austro-Russian army captured Mantua and Alessandria; and in the following month Suvoroff gained the decisive victory of Novi and drove the remains of the French forces towards Genoa. The next months were far more favourable to the tricolour flag, for, owing to Austro-Russian jealousies, Masséna was able to gain an important victory at Zurich over a Russian army. In the north the republicans were also in the end successful. Ten days after Bonaparte's arrival at Fréjus, they compelled an Anglo-Russian force campaigning in Holland to the capitulation of Alkmaar, whereby the Duke of York agreed to withdraw all his troops from that coast. Disgusted by the conduct of his allies, the Czar Paul withdrew his troops from any active share in the operations by land, thenceforth concentrating his efforts on the acquisition of Corsica, Malta, and posts of vantage in the Adriatic. These designs, which were well known to the British Government, served to hamper our naval strength in those seas, and to fetter the action of the Austrian arms in Northern Italy.[123]

Yet, though the schisms of the allies finally yielded a victory to the French in the campaigns of 1799, the position of the Republic was precarious. The danger was rather internal than external. It arose from embarrassed finances, from the civil war that burst out with new violence in the north-west, and, above all, from a sense of the supreme difficulty of attaining political stability and of reconciling liberty with order. The struggle between the executive and legislative powers which had been rudely settled by the coup d'état of Fructidor, had been postponed, not solved. Public opinion was speedily ruffled by the Jacobinical violence which ensued. The stifling of liberty of the press and the curtailment of the right of public meeting served only to instill new energy into the party of resistance in the elective Councils, and to undermine a republican government that relied on Venetian methods of rule. Reviewing the events of those days, Madame de Sta?l finely remarked that only the free consent of the people could breathe life into political institutions; and that the monstrous system of guaranteeing freedom by despotic means served only to manufacture governments that had to be wound up at intervals lest they should stop dead.[124] Such a sarcasm, coming from the gifted lady who had aided and abetted the stroke of Fructidor, shows how far that event had falsified the hopes of the sincerest friends of the Revolution. Events were therefore now favourable to a return from the methods of Rousseau to those of Richelieu; and the genius who was skilfully to adapt republicanism to autocracy was now at hand. Though Bonaparte desired at once to attack the Austrians in Northern Italy, yet a sure instinct impelled him to remain at Paris, for, as he said to Marmont: "When the house is crumbling, is it the time to busy oneself with the garden? A change here is indispensable."

The sudden rise of Bonaparte to supreme power cannot be understood without some reference to the state of French politics in the months preceding his return to France. The position of parties had been strangely complicated by the unpopularity of the Directors. Despite their illegal devices, the elections of 1798 and 1799 for the renewal of a third part of the legislative Councils had signally strengthened the anti-directorial ranks. Among the Opposition were some royalists, a large number of constitutionals, whether of the Feuillant or Girondin type, and many deputies, who either vaunted the name of Jacobins or veiled their advanced opinions under the convenient appellation of "patriots." Many of the deputies were young, impressionable, and likely to follow any able leader who promised to heal the schisms of the country. In fact, the old party lines were being effaced. The champions of the constitution of 1795 (Year III.) saw no better means of defending it than by violating electoral liberties-always in the sacred name of Liberty; and the Directory, while professing to hold the balance between the extreme parties, repressed them by turns with a vigour which rendered them popular and official moderation odious.

In this general confusion and apathy the dearth of statesmen was painfully conspicuous. Only true grandeur of character can defy the withering influences of an age of disillusionment; and France had for a time to rely upon Sieyès. Perhaps no man has built up a reputation for political capacity on performances so slight as the Abbé Sieyès. In the States General of 1789 he speedily acquired renown for oracular wisdom, owing to the brevity and wit of his remarks in an assembly where such virtues were rare. But the course of the Revolution soon showed the barrenness of his mind and the timidity of his character. He therefore failed to exert any lasting influence upon events. In the time of the Terror his insignificance was his refuge. His witty reply to an inquiry how he had then fared-"J'ai vécu "-sufficiently characterizes the man. In the Directorial period he displayed more activity. He was sent as French ambassador to Berlin, and plumed himself on having persuaded that Court to a neutrality favourable to France. But it is clear that the neutrality of Prussia was the outcome of selfish considerations. While Austria tried the hazards of war, her northern rival husbanded her resources, strengthened her position as the protectress of Northern Germany, and dextrously sought to attract the nebula of middle German States into her own sphere of influence. From his task of tilting a balance which was already decided, Sieyès was recalled to Paris in May, 1799, by the news of his election to the place in the Directory vacated by Rewbell. The other Directors had striven, but in vain, to prevent his election: they knew well that this impracticable theorist would speedily paralyze the Government; for, when previously elected Director in 1795, he had refused to serve, on the ground that the constitution was thoroughly bad. He now declared his hostility to the Directory, and looked around for some complaisant military chief who should act as his tool and then be cast away. His first choice, Joubert, was killed at the battle of Novi. Moreau seems then to have been looked on with favour; he was a republican, able in warfare and singularly devoid of skill or ambition in political matters. Relying on Moreau, Sieyès continued his intrigues, and after some preliminary fencing gained over to his side the Director Barras. But if we may believe the assertions of the royalist, Hyde de Neuville, Barras was also receiving the advances of the royalists with a view to a restoration of Louis XVIII., an event which was then quite within the bounds of probability. For the present, however, Barras favoured the plans of Sieyès, and helped him to get rid of the firmly republican Directors, La Réveillière-Lépeaux and Merlin, who were deposed (30th Prairial).[125]

The new Directors were Gohier, Roger Ducos, and Moulin; the first, an elderly respectable advocate; the second, a Girondin by early associations, but a trimmer by instinct, and therefore easily gained over by Sieyès; while the recommendation of the third, Moulin, seem to have been his political nullity and some third-rate military services in the Vendéan war. Yet the Directory of Prairial was not devoid of a spasmodic energy, which served to throw back the invaders of France. Bernadotte, the fiery Gascon, remarkable for his ardent gaze, his encircling masses of coal-black hair, and the dash of Moorish blood which ever aroused Bonaparte's respectful apprehensions, was Minister of War, and speedily formed a new army of 100,000 men: Lindet undertook to re-establish the finances by means of progressive taxes: the Chouan movement in the northern and western departments was repressed by a law legalising the seizure of hostages; and there seemed some hope that France would roll back the tide of invasion, keep her "natural frontiers," and return to normal methods of government.

Such was the position of affairs when Bonaparte's arrival inspired France with joy and the Directory with ill-concealed dread. As in 1795, so now in 1799, he appeared at Paris when French political life was in a stage of transition. If ever the Napoleonic star shone auspiciously, it was in the months when he threaded his path between Nelson's cruisers and cut athwart the maze of Sieyès' intrigues. To the philosopher's "J'ai vécu" he could oppose the crushing retort "J'ai vaincu."

The general, on meeting the thinker at Gohier's house, studiously ignored him. In truth, he was at first disposed to oust both Sieyès and Barras from the Directory. The latter of these men was odious to him for reasons both private and public. In time past he had had good reasons for suspecting Josephine's relations with the voluptuous Director, and with the men whom she met at his house. During the Egyptian campaign his jealousy had been fiercely roused in another quarter, and, as we have seen, led to an almost open breach with his wife. But against Barras he still harboured strong suspicions; and the frequency of his visits to the Director's house after returning from Egypt was doubtless due to his desire to sound the depths of his private as well as of his public immorality. If we may credit the embarras de mensonges which has been dignified by the name of Barras' "Memoirs," Josephine once fled to his house and flung herself at his knees, begging to be taken away from her husband; but the story is exploded by the moral which the relator clumsily tacks on, as to the good advice which he gave her.[126] While Bonaparte seems to have found no grounds for suspecting Barras on this score, he yet discovered his intrigues with various malcontents; and he saw that Barras, holding the balance of power in the Directory between the opposing pairs of colleagues, was intriguing to get the highest possible price for the betrayal of the Directory and of the constitution of 1795.

For Sieyès the general felt dislike but respect. He soon saw the advantage of an alliance with so learned a thinker, so skilful an intriguer, and so weak a man. It was, indeed, necessary; for, after making vain overtures to Gohier for the alteration of the law which excluded from the Directory men of less than forty years of age, the general needed the alliance of Sieyès for the overthrow of the constitution. In a short space he gathered around him the malcontents whom the frequent crises had deprived of office, Roederer, Admiral Bruix, Réal, Cambacérès, and, above all, Talleyrand. The last-named; already known for his skill in diplomacy, had special reasons for favouring the alliance of Bonaparte and Sieyès: he had been dismissed from the Foreign Office in the previous month of July because in his hands it had proved to be too lucrative to the holder and too expensive for France. It was an open secret that, when American commissioners arrived in Paris a short time previously, for the settlement of various disputes between the two countries, they found that the negotiations would not progress until 250,000 dollars had changed hands. The result was that hostilities continued, and that Talleyrand soon found himself deprived of office, until another turn of the revolutionary kaleidoscope should restore him to his coveted place.[127] He discerned in the Bonaparte-Sieyès combination the force that would give the requisite tilt now that Moreau gave up politics.

The army and most of the generals were also ready for some change, only Bernadotte and Jourdan refusing to listen to the new proposals; and the former of these came "with sufficiently bad grace" to join Bonaparte at the time of action. The police was secured through that dextrous trimmer, the regicide Fouché, who now turned against the very men who had recently appointed him to office. Feeling sure of the soldiery and police, the innovators fixed the 18th of Brumaire as the date of their enterprise. There were many conferences at the houses of the conspirators; and one of the few vivid touches which relieve the dull tones of the Talleyrand "Memoirs" reveals the consciousness of these men that they were conspirators. Late on a night in the middle of Brumaire, Bonaparte came to Talleyrand's house to arrange details of the coup d'état, when the noise of carriages stopping outside caused them to pale with fear that their plans were discovered. At once the diplomatist blew out the lights and hurried to the balcony, when he found that their fright was due merely to an accident to the carriages of the revellers and gamesters returning from the Palais Royal, which were guarded by gendarmes. The incident closed with laughter and jests; but it illustrates the tension of the nerves of the political gamesters, as also the mental weakness of Bonaparte when confronted by some unknown danger. It was perhaps the only weak point in his intellectual armour; but it was to be found out at certain crises of his career.

Meanwhile in the legislative Councils there was a feeling of vague disquiet. The Ancients were, on the whole, hostile to the Directory, but in the Council of Five Hundred the democratic ardour of the younger deputies foreboded a fierce opposition. Yet there also the plotters found many adherents, who followed the lead now cautiously given by Lucien Bonaparte. This young man, whose impassioned speeches had marked him out as an irreproachable patriot, was now President of that Council. No event could have been more auspicious for the conspirators. With Sieyès, Barras, and Ducos, as traitors in the Directory, with the Ancients favourable, and the junior deputies under the presidency of Lucien, the plot seemed sure of success.

The first important step was taken by the Council of Ancients, who decreed the transference of the sessions of the Councils to St. Cloud. The danger of a Jacobin plot was urged as a plea for this motion, which was declared carried without the knowledge either of the Directory as a whole, or of the Five Hundred, whose opposition would have been vehement. The Ancients then appointed Bonaparte to command the armed forces in and near Paris. The next step was to insure the abdication of Gohier and Moulin. Seeking to entrap Gohier, then the President of the Directory, Josephine invited him to breakfast on the morning of 18th Brumaire; but Gohier, suspecting a snare, remained at his official residence, the Luxemburg Palace. None the less the Directory was doomed; for the two defenders of the institution had not the necessary quorum for giving effect to their decrees. Moulin thereupon escaped, and Gohier was kept under guard-by Moreau's soldiery![128]

Meanwhile, accompanied by a brilliant group of generals, Bonaparte proceeded to the Tuileries, where the Ancients were sitting; and by indulging in a wordy declamation he avoided taking the oath to the constitution required of a general on entering upon a new command. In the Council of Five Hundred, Lucien Bonaparte stopped the eager questions and murmurs, on the pretext that the session was only legal at St. Cloud.

There, on the next day (19th Brumaire or 10th November), a far more serious blow was to be struck. The overthrow of the Directory was a foregone conclusion. But with the Legislature it was far otherwise, for its life was still whole and vigorous. Yet, while amputating a moribund limb, the plotters did not scruple to paralyze the brain of the body politic.

Despite the adhesion of most of the Ancients to his plans, Bonaparte, on appearing before them, could only utter a succession of short, jerky phrases which smacked of the barracks rather than of the Senate. Retiring in some confusion, he regains his presence of mind among the soldiers outside, and enters the hall of the Five Hundred, intending to intimidate them not only by threats, but by armed force. At the sight of the uniforms at the door, the republican enthusiasm of the younger deputies catches fire. They fiercely assail him with cries of "Down with the tyrant! down with the Dictator! outlaw him!" In vain Lucien Bonaparte commands order. Several deputies rush at the general, and fiercely shake him by the collar. He turns faint with excitement and chagrin; but Lefebvre and a few grenadiers rushing up drag him from the hall. He comes forth like a somnambulist (says an onlooker), pursued by the terrible cry, "Hors la loi!" Had the cries at once taken form in a decree, the history of the world might have been different. One of the deputies, General Augereau, fiercely demands that the motion of outlawry be put to the vote. Lucien Bonaparte refuses, protests, weeps, finally throws off his official robes, and is rescued from the enraged deputies by grenadiers whom the conspirators send in for this purpose. Meanwhile Bonaparte and his friends were hastily deliberating, when one of their number brought the news that the deputies had declared the general an outlaw. The news chased the blood from his cheek, until Sieyès, whose sang froid did not desert him in these civilian broils, exclaims, "Since they outlaw you, they are outlaws." This revolutionary logic recalls Bonaparte to himself. He shouts, "To arms!" Lucien, too, mounting a horse, appeals to the soldiers to free the Council from the menaces of some deputies armed with daggers, and in the pay of England, who are terrorising the majority. The shouts of command, clinched by the adroit reference to daggers and English gold, cause the troops to waver in their duty; and Lucien, pressing his advantage to the utmost, draws a sword, and, holding it towards his brother, exclaims that he will stab him if ever he attempts anything against liberty. Murat, Leclerc, and other generals enforce this melodramatic appeal by shouts for Bonaparte, which the troops excitedly take up. The drums sound for an advance, and the troops forthwith enter the hall. In vain the deputies raise the shout, "Vive la République," and invoke the constitution. Appeals to the law are overpowered by the drum and by shouts for Bonaparte; and the legislators of France fly pell-mell from the hall through doors and windows.[129]

Thus was fulfilled the prophecy which eight years previously Burke had made in his immortal work on the French Revolution. That great thinker had predicted that French liberty would fall a victim to the first great general who drew the eyes of all men upon himself. "The moment in which that event shall happen, the person who really commands the army is your master, the master of your king, the master of your Assembly, the master of your whole republic."

Discussions about the coup d'état of Brumaire generally confuse the issue at stake by ignoring the difference between the overthrow of the Directory and that of the Legislature. The collapse of the Directory was certain to take place; but few expected that the Legislature of France would likewise vanish. For vanish it did: not for nearly half a century had France another free and truly democratic representative assembly. This result of Brumaire was unexpected by several of the men who plotted the overthrow of unpopular Directors, and hoped for the nipping of Jacobinical or royalist designs. Indeed, no event in French history is more astonishing than the dispersal of the republican deputies, most of whom desired a change of personnel but not a revolution in methods of government. Until a few days previously the Councils had the allegiance of the populace and of the soldiers; the troops at St. Cloud were loyal to the constitution, and respected the persons of the deputies until they were deluded by Lucien. For a few minutes the fate of France trembled in the balance; and the conspirators knew it.[130] Bonaparte confessed it by his incoherent gaspings; Sieyès had his carriage ready, with six horses, for flight; the terrible cry, "Hors la loi!" if raised against Bonaparte in the heart of Paris, would certainly have roused the populace to fury in the cause of liberty and have swept the conspirators to the guillotine. But, as it was, the affair was decided in the solitudes of St. Cloud by Lucien and a battalion of soldiers.

Efforts have frequently been made to represent the events of Brumaire as inevitable and to dovetail them in with a pretended philosophy of history. But it is impossible to study them closely without observing how narrow was the margin between the success and failure of the plot, and how jagged was the edge of an affair which philosophizers seek to fit in with their symmetrical explanations. In truth, no event of world-wide importance was ever decided by circumstances so trifling. "There is but one step from triumph to a fall. I have seen that in the greatest affairs a little thing has always decided important events"-so wrote Bonaparte three years before his triumph at St. Cloud: he might have written it of that event. It is equally questionable whether it can be regarded as saving France from anarchy. His admirers, it is true, have striven to depict France as trodden down by invaders, dissolved by anarchy, and saved only by the stroke of Brumaire. But she was already triumphant: it was quite possible that she would peacefully adjust her governmental difficulties: they were certainly no greater than they had been in and since the year 1797: Fouché had closed the club of the Jacobins: the Councils had recovered their rightful influence, and, but for the plotters of Brumaire, might have effected a return to ordinary government of the type of 1795-7. This was the real blow; that the vigorous trunk, the Legislature, was struck down along with the withering Directorial branch.

The friends of liberty might well be dismayed when they saw how tamely France accepted this astounding stroke. Some allowance was naturally to be made, at first, for the popular apathy: the Jacobins, already discouraged by past repression, were partly dazed by the suddenness of the blow, and were also ignorant of the aims of the men who dealt it; and while they were waiting to see the import of events, power passed rapidly into the hands of Bonaparte and his coadjutors. Such is an explanation, in part at least, of the strange docility now shown by a populace which still vaunted its loyalty to the democratic republic. But there is another explanation, which goes far deeper. The revolutionary strifes had wearied the brain of France and had predisposed it to accept accomplished facts. Distracted by the talk about royalist plots and Jacobin plots, cowering away from the white ogre and the red spectre, the more credulous part of the populace was fain to take shelter under the cloak of a great soldier, who at least promised order. Everything favoured the drill-sergeant theory of government. The instincts developed by a thousand years of monarchy had not been rooted out in the last decade. They now prompted France to rally round her able man; and, abandoning political liberty as a hopeless quest, she obeyed the imperious call which promised to revivify the order and brilliance of her old existence with the throbbing blood of her new life.

The French constitution was now to be reconstructed by a self-appointed commission which sat with closed doors. This strange ending to all the constitution-building of a decade was due to the adroitness of Lucien Bonaparte. At the close of that eventful day, the 19th of Brumaire, he gathered about him in the deserted hall at St. Cloud some score or so of the dispersed deputies known to be favourable to his brother, declaimed against the Jacobins, whose spectral plot had proved so useful to the real plotters, and proposed to this "Rump" of the Council the formation of a commission who should report on measures that were deemed necessary for the public safety. The measures were found to be the deposition of the Directory, the expulsion of sixty-one members from the Councils, the nomination of Sieyès, Roger Ducos, and Bonaparte as provisional Consuls and the adjournment of the Councils for four months. The Consuls accordingly took up their residence in the Luxemburg Palace, just vacated by the Directors, and the drafting of a constitution was confided to them and to an interim commission of fifty members chosen equally from the two Councils.

The illegality of these devices was hidden beneath a cloak of politic clemency. To this commission the Consuls, or rather Bonaparte-for his will soon dominated that of Sieyès-proposed two most salutary changes. He desired to put an end to the seizure of hostages from villages suspected of royalism; and also to the exaction of taxes levied on a progressive scale, which harassed the wealthy without proportionately benefiting the exchequer. These two expedients, adopted by the Directory in the summer of 1799, were temporary measures adopted to stem the tide of invasion and to crush revolts; but they were regarded as signs of a permanently terrorist policy, and their removal greatly strengthened the new consular rule. The blunder of nearly all the revolutionary governments had been in continuing severe laws after the need for them had ceased to be pressing. Bonaparte, with infinite tact, discerned this truth, and, as will shortly appear, set himself to found his government on the support of that vast neutral mass which was neither royalist nor Jacobin, which hated the severities of the reds no less than the abuses of the ancien régime.

While Bonaparte was conciliating the many, Sieyès was striving to body forth the constitution which for many years had been nebulously floating in his brain. The function of the Socratic [Greek: maieutaes] was discharged by Boulay de la Meurthe, who with difficulty reduced those ideas to definite shape. The new constitution was based on the principle: "Confidence comes from below, power from above." This meant that the people, that is, all adult males, were admitted only to the preliminary stages of election of deputies, while the final act of selection was to be made by higher grades or powers. The "confidence" required of the people was to be shown not only towards their nominees, but towards those who were charged with the final and most important act of selection. The winnowing processes in the election of representatives were to be carried out on a decimal system. The adult voters meeting in their several districts were to choose one-tenth of their number, this tenth being named the Notabilities of the Commune. These, some five or six hundred thousand in number, meeting in their several Departments, were thereupon to choose one-tenth of their number; and the resulting fifty or sixty thousand men, termed Notabilities of the Departments, were again to name one-tenth of their number, who were styled Notabilities of the Nation. But the most important act of selection was still to come-from above. From this last-named list the governing powers were to select the members of the legislative bodies and the chief officials and servants of the Government.

The executive now claims a brief notice. The well-worn theory of the distinction of powers, that is, the legislative and executive powers, was maintained in Sieyès' plan. At the head of the Government the philosopher desired to enthrone an august personage, the Grand Elector, who was to be selected by the Senate. This Grand Elector was to nominate two Consuls, one for peace, the other for war; they were to nominate the Ministers of State, who in their turn selected the agents of power from the list of Notabilities of the Nation. The two Consuls and their Ministers administered the executive affairs. The Senate, sitting in dignified ease, was merely to safeguard the constitution, to elect the Grand Elector, and to select the members of the Corps Législatif (proper) and the Tribunate.

Distrust of the former almost superhuman activity in law-making now appeared in divisions, checks, and balances quite ingenious in their complexity. The Legislature was divided into three councils: the Corps Législatif, properly so called, which listened in silence to proposals of laws offered by the Council of State and criticised or orally approved by the Tribunate.[131] These three bodies were not only divided, but were placed in opposition, especially the two talking bodies, which resembled plaintiff and defendant pleading before a gagged judge. But even so the constitution was not sufficiently guarded against Jacobins or royalists. If by any chance a dangerous proposal were forced through these mutually distrustful bodies, the Senate was charged with the task of vetoing it, and if the Grand Elector, or any other high official, strove to gain a perpetual dictatorship, the Senate was at once to absorb him into its ranks.

Moreover, lest the voters should send up too large a proportion of Jacobins or royalists, the first selection of members of the great Councils and the chief functionaries for local affairs was to be made by the Consuls, who thus primarily exercised not only the "power from above," but also the "confidence" which ought to have come from below. Perhaps this device was necessary to set in motion Sieyès' system of wheels within wheels; for the Senate, which was to elect the Grand Elector, by whom the executive officers were indirectly to be chosen, was in part self-sufficient: the Consuls named the first members, who then co-opted, that is, chose the new members. Some impulse from without was also needed to give the constitution life; and this impulse was now to come. Where Sieyès had only contrived wheels, checks, regulator, break, and safety-valve, there now rushed in an imperious will which not only simplified the parts but supplied an irresistible motive power.

The complexity of much of the mechanism, especially that relating to popular election and the legislature, entirely suited Bonaparte. But, while approving the triple winnowing, to which Sieyès subjected the results of manhood suffrage, and the subordination of the legislative to the executive authority,[132] the general expressed his entire disapproval of the limitations of the Grand Elector's powers. The name was anti-republican: let it be changed to First Consul. And whereas Sieyès condemned his grand functionary to the repose of a roi fainéant, Bonaparte secured to him practically all the powers assigned by Sieyès to the Consuls for Peace and for War. Lastly, Bonaparte protested against the right of absorbing him being given to the Senate. Here also he was successful; and thus a delicately poised bureaucracy was turned into an almost unlimited dictatorship.

This metamorphosis may well excite wonder. But, in truth, Sieyès and his colleagues were too weary and sceptical to oppose the one "intensely practical man." To Bonaparte's trenchant reasons and incisive tones the theorist could only reply by a scornful silence broken by a few bitter retorts. To the irresistible power of the general he could only oppose the subtlety of a student. And, indeed, who can picture Bonaparte, the greatest warrior of the age, delegating the control of all warlike operations to a Consul for War while Austrian cannon were thundering in the county of Nice and British cruisers were insulting the French coasts? It was inevitable that the reposeful Grand Elector should be transformed into the omnipotent First Consul, and that these powers should be wielded by Bonaparte himself.[133]

The extent of the First Consul's powers, as finally settled by the joint commission, was as follows. He had the direct and sole nomination of the members of the general administration, of those of the departmental and municipal councils, and of the administrators, afterwards called prefects and sub-prefects. He also appointed all military and naval officers, ambassadors and agents sent to foreign Powers, and the judges in civil and criminal suits, except the juges de paix and, later on, the members of the Cour de Cassation. He therefore controlled the army, navy, and diplomatic service, as well as the general administration. He also signed treaties, though these might be discussed, and must be ratified, by the legislative bodies. The three Consuls were to reside in the Tuileries palace; but, apart from the enjoyment of 150,000 francs a year, and occasional consultation by the First Consul, the position of these officials was so awkward that Bonaparte frankly remarked to Roederer that it would have been better to call them Grand Councillors. They were, in truth, supernumeraries added to the chief of the State, as a concession to the spirit of equality and as a blind to hide the reality of the new despotism. All three were to be chosen for ten years, and were re-eligible.

Such is an outline of the constitution of 1799 (Year VIII.). It was promulgated on December 15th, 1799, and was offered to the people for acceptance, in a proclamation which closed with the words: "Citizens, the Revolution is confined to the principles which commenced it. It is finished." The news of this last fact decided the enthusiastic acceptance of the constitution. In a plébiscite, or mass vote of the people, held in the early days of 1800, it was accepted by an overwhelming majority, viz., by 3,011,007 as against only 1,562 negatives. No fact so forcibly proves the failure of absolute democracy in France; and, whatever may be said of the methods of securing this national acclaim, it was, and must ever remain, the soundest of Bonaparte's titles to power. To a pedant who once inquired about his genealogy he significantly replied: "It dates from Brumaire."

Shortly before the plébiscite, Sieyès and Ducos resigned their temporary commissions as Consuls: they were rewarded with seats in the Senate; and Sieyès, in consideration of his constitutional work, received the estate of Crosne from the nation.

"Sieyès à Bonaparte a fait present du tr?ne,

Sous un pompeux débris croyant l'ensevelir.

Bonaparte à Sieyès a fait present de Crosne

Pour le payer et l'avilir."

The sting in the tail of Lebrun's epigram struck home. Sieyès' acceptance of Crosne was, in fact, his acceptance of notice to quit public affairs, in which he had always moved with philosophic disdain. He lived on to the year 1836 in dignified ease, surveying with Olympian calm the storms of French and Continental politics.

The two new Consuls were Cambacérès and Lebrun. The former was known as a learned jurist and a tactful man. He had voted for the death of Louis XVI., but his subsequent action had been that of a moderate, and his knowledge of legal affairs was likely to be of the highest service to Bonaparte, who intrusted him with a general oversight of legislation. His tact was seen in his refusal to take up his abode in the Tuileries, lest, as he remarked to Lebrun, he might have to move out again soon. The third Consul, Lebrun, was a moderate with leanings towards constitutional royalty. He was to prove another useful satellite to Bonaparte, who intrusted him with the general oversight of finance and regarded him as a connecting link with the moderate royalists. The chief secretary to the Consuls was Maret, a trusty political agent, who had striven for peace with England both in 1793 and in 1797.

As for the Ministers, they were now reinforced by Talleyrand, who took up that of Foreign Affairs, and by Berthier, who brought his powers of hard work to that of War, until he was succeeded for a time by Carnot. Lucien Bonaparte, and later Chaptal, became Minister of the Interior, Gaudin controlled Finance, Forfait the Navy, and Fouché the Police. The Council of State was organized in the following sections; that of War, which was presided over by General Brune: Marine, by Admiral Gantheaume: Finance, by Defermon: Legislation, by Boulay de la Meurthe: the Interior, by Roederer.

The First Consul soon showed that he intended to adopt a non-partisan and thoroughly national policy. That had been, it is true, the aim of the Directors in their policy of balance and repression of extreme parties on both sides. For the reasons above indicated, they had failed: but now a stronger and more tactful grasp was to succeed in a feat which naturally became easier every year that removed the passions of the revolutionary epoch further into the distance. Men cannot for ever perorate, and agitate and plot. A time infallibly comes when an able leader can successfully appeal to their saner instincts: and that hour had now struck. Bonaparte's appeal was made to the many, who cared not for politics, provided that they themselves were left in security and comfort: it was urged quietly, persistently, and with the reserve power of a mighty prestige and of overwhelming military force. Throughout the whole of the Consulate, a policy of moderation, which is too often taken for weakness, was strenuously carried through by the strongest man and the greatest warrior of the age.

The truly national character of his rule was seen in many ways. He excluded from high office men who were notorious regicides, excepting a few who, like Fouché, were too clever to be dispensed with. The constitutionals of 1791 and even declared royalists were welcomed back to France, and many of the Fructidorian exiles also returned.[134] The list of émigrés was closed, so that neither political hatred nor private greed could misrepresent a journey as an act of political emigration. Equally generous and prudent was the treatment of Roman Catholics. Toleration was now extended to orthodox or non-juring priests, who were required merely to promise allegiance to the new constitution. By this act of timely clemency, orthodox priests were allowed to return to France, and they were even suffered to officiate in places where no opposition was thereby aroused.

While thus removing one of the chief grievances of the Norman, Breton and Vendéan peasants, who had risen as much for their religion as for their king, he determined to crush their revolts. The north-west, and indeed parts of the south of France, were still simmering with rebellions and brigandage. In Normandy a daring and able leader named Frotté headed a considerable band of malcontents, and still more formidable were the Breton "Chouans" that followed the peasant leader Georges Cadoudal. This man was a born leader. Though but thirty years of age, his fierce courage had long marked him out as the first fighter of his race and creed. His features bespoke a bold, hearty spirit, and his massive frame defied fatigue and hardship. He struggled on; and in the autumn of 1799 fortune seemed about to favour the "whites": the revolt was spreading; and had a Bourbon prince landed in Brittany before Bonaparte returned from Egypt, the royalists might quite possibly have overthrown the Directory. But Bonaparte's daring changed the whole aspect of affairs. The news of the stroke of Brumaire gave the royalists pause. At first they believed that the First Consul would soon call back the king, and Bonaparte skilfully favoured this notion: he offered a pacification, of which some of the harassed peasants availed themselves. Georges himself for a time advised a reconciliation, and a meeting of the royalist leaders voted to a man that they desired "to have the king and you" (Bonaparte). One of them, Hyde de Neuville, had an interview with the First Consul at Paris, and has left on record his surprise at seeing the slight form of the man whose name was ringing through France. At the first glance he took him for a rather poorly dressed lackey; but when the general raised his eyes and searched him through and through with their eager fire, the royalist saw his error and fell under the spell of a gaze which few could endure unmoved. The interview brought no definite result.

Other overtures made by Bonaparte were more effective. True to his plan of dividing his enemies, he appealed to the clergy to end the civil strife. The appeal struck home to the heart or the ambitions of a cleric named Bernier. This man was but a village priest of La Vendée: yet his natural abilities gained him an ascendancy in the councils of the insurgents, which the First Consul was now victoriously to exploit. Whatever may have been Bernier's motives, he certainly acted with some duplicity. Without forewarning Cadoudal, Bourmont, Frotté, and other royalist leaders, he secretly persuaded the less combative leaders to accept the First Consul's terms; and a pacification was arranged (January 18th), In vain did Cadoudal rage against this treachery: in vain did he strive to break the armistice. Frotté in Normandy was the last to capitulate and the first to feel Bonaparte's vengeance: on a trumped-up charge of treachery he was hurried before a court-martial and shot. An order was sent from Paris for his pardon; but a letter which Bonaparte wrote to Brune on the day of the execution contains the ominous phrase: By this time Frotté ought to be shot; and a recently published letter to Hédouville expresses the belief that the punishment of that desperate leader will doubtless contribute to the complete pacification of the West.[135]

In the hope of gaining over the Chouans, Bonaparte required their chiefs to come to Paris, where they received the greatest consideration. In Bernier the priest, Bonaparte discerned diplomatic gifts of a high order, which were soon to be tested in a far more important negotiation. The nobles, too, received flattering attentions which touched their pride and assured their future insignificance. Among them was Count Bourmont, the Judas of the Waterloo campaign.

In contrast with the priest and the nobles, Georges Cadoudal stood firm as a rock. That suave tongue spoke to him of glory, honour, and the fatherland: he heeded it not, for he knew it had ordered the death of Frotté. There stood these fighters alone, face to face, types of the north and south, of past and present, fiercest and toughest of living men, their stern wills racked in wrestle for two hours. But southern craft was foiled by Breton steadfastness, and Georges went his way unshamed. Once outside the palace, his only words to his friend, Hyde de Neuville, were: "What a mind I had to strangle him in these arms!" Shadowed by Bonaparte's spies, and hearing that he was to be arrested, he fled to England; and Normandy and Brittany enjoyed the semblance of peace.[136]

Thus ended the civil war which for nearly seven years had rent France in twain. Whatever may be said about the details of Bonaparte's action, few will deny its beneficent results on French life. Harsh and remorseless as Nature herself towards individuals, he certainly, at this part of his career, promoted the peace and prosperity of the masses. And what more can be said on behalf of a ruler at the end of a bloody revolution?

Meanwhile the First Consul had continued to develop Sieyès' constitution in the direction of autocracy. The Council of State, which was little more than an enlarged Ministry, had been charged with the vague and dangerous function of "developing the sense of laws" on the demand of the Consuls; and it was soon seen that this Council was merely a convenient screen to hide the operations of Bonaparte's will. On the other hand, a blow was struck at the Tribunate, the only public body which had the right of debate and criticism. It was now proposed (January, 1800) that the time allowed for debate should be strictly limited. This restriction to the right of free discussion met with little opposition. One of the most gifted of the new tribunes, Benjamin Constant, the friend of Madame de Sta?l, eloquently pleaded against this policy of distrust which would reduce the Tribunate to a silence that would be heard by Europe. It was in vain. The rabid rhetoric of the past had infected France with a foolish fear of all free debate. The Tribunate signed its own death warrant; and the sole result of its feeble attempt at opposition was that Madame de Sta?l's salon was forthwith deserted by the Liberals who had there found inspiration; while the gifted authoress herself was officially requested to retire into the country.

The next act of the central power struck at freedom of the press. As a few journals ventured on witticisms at the expense of the new Government, the Consuls ordered the suppression of all the political journals of Paris except thirteen; and three even of these favoured papers were suppressed on April 7th. The reason given for this despotic action was the need of guiding public opinion wisely during the war, and of preventing any articles "contrary to the respect due to the social compact, to the sovereignty of the people, and to the glory of the armies." By a finely ironical touch Rousseau's doctrine of the popular sovereignty was thus invoked to sanction its violation. The incident is characteristic of the whole tendency of events, which showed that the dawn of personal rule was at hand. In fact, Bonaparte had already taken the bold step of removing to the Tuileries, and that too, on the very day when he ordered public mourning for the death of Washington (February 7th). No one but the great Corsican would have dared to brave the comments which this coincidence provoked. But he was necessary to France, and all men knew it. At the first sitting of the provisional Consuls, Ducos had said to him: "It is useless to vote about the presidence; it belongs to you of right"; and, despite the wry face pulled by Sieyès, the general at once took the chair. Scarcely less remarkable than the lack of energy in statesmen was the confusion of thought in the populace. Mme. Reinhard tells us that after the coup d'état people believed they had returned to the first days of liberty. What wonder, then, that the one able and strong-willed man led the helpless many and re-moulded Sieyès' constitution in a fashion that was thus happily parodied:

"J'ai, pour les fous, d'un Tribunat

Conservé la figure;

Pour les sots je laisse un Sénat,

Mais ce n'est qu'en peinture;

A ce stupide magistrat

Ma volonté préside;

Et tout le Conseil d'état

Dans mon sabre réside."

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