Chapter 13

[Footnote 13: The newspapers of the period. Napoleon's Correspondence and Commentaries. Aulard: Le lendemain du 18 Brumaire and Registre de délibérations du Consulat provisoire. The memoirs of Lafayette, Marmont, Gaudin, Hyde de Neuville, Tercier, and Pasquier. Montier: Robert Lindet. The letters of Charles de Constant and of Mme. Reinhard. The works of Roederer. Albert: Napoleon et les théâtres populaires. Lecomte: Napoléon et l'empire racontés par le théâtre. Schmidt: Tableaux de la Révolution. Mallet du Pan: La Révolution vue de l'étranger. Sloane: The French Revolution and Religious Reform, in which volume of the author will be found references to many of the original sources for our information concerning the restoration of the Roman Catholic Church in France.]

BONAPARTE THE FIRST CONSUL

Bonaparte's Position -- The Absence of Enthusiasm -- The Provisional Consulate -- Measures of Security -- The New Constitution -- An Autocratic Executive -- The Plebiscite -- Bonaparte the First Consul -- New Officials -- Efforts to Appease the Church -- The Feeling in France -- Confidence Restored -- Financial Stability.

When Bonaparte returned to Paris on the evening of the eighteenth of Brumaire he was the arbiter of French destiny; for the great powers of government, both executive and legislative, were in the hands of himself and his creatures. To the multitude it was not, perhaps, much of a feat to disperse by force a legislature which rested on force, and by means of the army to turn the tables on the very Jacobins who had themselves been ever ready to appeal to the army. Moreover, in their minds another constitution more or less was of small importance: the next one would doubtless be only a rearrangement of the old devices. The Revolution was in the hands of its friends, and the world must go its way. Talleyrand and the royalists understood that the day's work had turned the oligarchy of the Directory into a powerful monarchy of some kind: a temporary one, they hoped, which would enable them eventually to bring back the Bourbons.

But Napoleon Bonaparte was, as ever, wise in his generation, and, as he understood himself, knew that though both these notions were illusory, he must proceed cautiously. As a gambler he had staked everything, and had won: he meant to pocket the stakes. But yet how narrowly had he won! The shouts of "traitor" and "outlaw" were still in his ears; no doubt the terrible alternative to his perilous escape was in his mind. Though determined to go on, he was nevertheless sobered. There was temporary exultation in the army and the people. He knew that among the latter it would soon die out, as it did. Already it was rumored that although Mme. Bonaparte had been in pecuniary straits, her husband had thirty millions on deposit in various banks. This was certainly untrue, because the general had recourse to the brokers of Paris for the funds needed to reward his abettors. The merciless extortion of the lenders engendered in him a bitterness against their class which he entertained to the latest day of his life. It was estimated that the day had cost him one and a half millions; every man under his command had received a new uniform, twelve francs in cash, and a drink of spirits; the rest was spent in rewarding his generals and political supporters. The constitutional and moderate republicans felt that their cause and the fate of the nation were in the balance. The royalists were the only faction which would have been glad to see Bonaparte usurp the power at once. He and his friends understood that a nation still infatuated with the Revolution in theory must be led by a parade of constitutional measures.

The mutilated chambers began work on the very night of their reassembling at St. Cloud. Lucien harangued them on the familiar theme of Roman liberties, recalling the commonwealth in which the consular fasces had been the symbol of freedom. The country would approve and its enemies would be disarmed if these insignia should again be displayed. Boulay de la Meurthe presented the temporary plan: a provisional consulate composed of Bonaparte, Sieyès, and Roger-Ducos; the adjournment of the legislature until February twentieth, 1800; the appointment of two committees of twenty-five, one from each council, to aid the consuls in the proposed renovation; the proscription of fifty-seven delegates who had made themselves obnoxious. To preserve the appearance of legality and historic continuity, the committee from the Five Hundred was to propose, that of the Ancients to adopt; the new constitution must uphold the one and indivisible republic, respect popular sovereignty, and secure representative government with the division of powers, while property, liberty, and equality must be guaranteed beyond a peradventure. After a formal declaration that the Directory had ceased to exist, each of these measures was duly adopted by both houses in turn, and the consuls were sworn in, promising unswerving fidelity to popular sovereignty, to the French republic one and indivisible, to liberty and equality, and to representative government. With a resolution that Bonaparte had that day deserved well of his country, the chambers adjourned at an early hour in the morning. When the sun rose over Paris and France, the land had found its despot; to all appearances he was to be a beneficent despot. The consuls met that very day in the Luxembourg palace: the general's name came first in alphabetical order, and on the suggestion of Roger-Ducos he took the presidency and the executive for the twenty-four hours, the others to follow in turn. Their first work was the construction of a provisional ministry: three of the old members were without discussion retained: Cambacérès for justice, Bourdon for the navy, and Reinhard for foreign affairs. Dubois-Crancé was replaced by Berthier for war, Robert Lindet by Gaudin for finance, Quinette by Laplace for the interior. There was much debate concerning Fouché as minister of police, but on Bonaparte's urgent representations he was reappointed. It was rumored that the Jacobins intended to rally at Toulouse, and Lannes was ordered to take command in that city at once. To the public a simple and safe announcement was issued, promising better days for the republic.

The men and measures worked well. A treasury absolutely depleted was slowly replenished by the practice of simple honesty; a disintegrated military force was cautiously reassembled and brought into order, but the garrison of Paris was not enlarged above nine thousand men, and there was no show of force. The Bonaparte family moved into the Luxembourg, but its head appeared always in civilian garb. He was much abroad, visiting and conversing with men of science, letters, and finance. Thoroughly restored in balance of mind, he did and said kind things, joking about the scenes of St. Cloud, and explaining away the unhappy words he had uttered. His sayings were repeated far and near, and within a few days there were throngs of influential visitors in his parlors. It may well be believed that shrewd observers noted his appearance and manners, his hollow cheeks, pale face, stern brow; his insatiate, all-embracing curiosity, keen questionings, and tactful rejoinders, the irresistible magnetism of his vigor, his mind, and his youth. The family connections were not in evidence; Lucien especially was kept in the background. There were no oracular statements, no boastful professions, yet every one felt profoundly that the consuls were a force, an active force, saying little, toiling to exhaustion, and that results of importance would emerge in due time. Indeed the ameliorations of administration were in evidence from the very first.

The industry of Sieyès and Bonaparte was indeed unexampled. There was friction, but one was indispensable to the other; they must work together, and the supple Talleyrand was then to keep the peace. Sieyès's "perfect" constitution propounded a singularly cumbersome plan of government, but it contained much that was Bonaparte's own, and therefore suited to Bonaparte's purposes. It was accordingly taken as a starting-point. In the end, the document actually adopted and promulgated proved to be outwardly similar but inwardly antipodal to that of Sieyès. While skilfully blinding all classes to its possibilities as an instrument for controlling the nation by a central power, its provisions were perfectly adapted to conciliate every faction except that of the Jacobins, who were by flight or conversion to all intents annihilated. Sixty-two members of the Five Hundred were deposed. The rest, as a reward for their late complacency, were invited in the name of the public welfare to accept office as foreign ministers, or diplomatic agents, and, in some cases, as government representatives in the provinces; their position as delegates was not to be jeopardized by acceptance. The purpose of this was to remove the majority of the old republican politicians from Paris, under the guise of compensating them for past service. Sieyès's great fundamental notion was to secure the form of popular representation without its substance,--"confidence coming from below," as he expressed it, "power coming from above." In order to secure this he had devised a plan nearly identical with that laid down to Talleyrand by Bonaparte three years before. It was adopted for the new constitution. Every one of the five million citizens of France was to have a vote. From among them one in every ten was to be chosen by universal suffrage to be a candidate for local office; this formed the "communal list." These "notables of the communes" were then to choose one in ten of their number as a "notable of the department," a candidate for departmental office, thus constituting the "departmental list"; and these, in turn, one in every ten of their number as "notables of France," candidates for the national legislature and the higher offices of state, thus forming the "national list." From among these last the administration and the senate, by the exercise of the appointing power, were to select the great officers of state. This was Bonaparte's popular representation, "without eyes, ears, or power."

The legislative was also to be silent and powerless. It was divided into council, tribunate, legislature, and senate. The first, chosen at will by the executive, had the initiative; in the second three speakers might discuss the measures proposed, but no vote could be taken; in the third there was no discussion, but the members voted; the fourth was also mute, but it had the veto power. All except the senate were to sit with closed doors, and publicity was to be controlled by the administration. Sieyès had a plan whereby a chief magistrate, to be called the "great elector," should be chosen by the senators, since they also chose the representatives of the people from the elected candidates. This titled personage was to appoint all civil and military functionaries, together with two consuls to overlook the administration. Bonaparte contemptuously wondered how any man "of some talent and a little honor would consent to play the part of a hog to be fatted on so and so many millions." He called on Daunou for suggestions, but that ardent republican desired both a strong executive and a strong direct expression of the popular will. The new autocrat felt that the latter must be avoided at any cost, and proposed, through one of his creatures, an executive of three consuls, of whom the first should serve for ten years and be the head of the state. His should be the right to execute the laws, and his alone the appointing power. Since he was to nominate the members of the council of state, he should also have the power to initiate legislation. In case of need he might act by administrative process; that is, he might legalize any regulation whatsoever as an administrative necessity. He might rule by decree. This centralizing engine of despotism was made complete by a system of prefects modeled on that of the royal intendants, and intended to be the copestone of the structure. It was adopted, and still prevails in republican France. In every administrative division of town or country the local councils, under stringent regulations as to the scope of their deliberations and decisions, were intrusted to the charge of a prefect. This petty dictator was the sworn servant of the central power, appointed or removed by it at pleasure. Through these men the hand of the First Consul was on every hamlet, village, town, and city. In fact, even the mayors of the great towns were his appointees.

This monstrous but marvelous charter, though nominally prepared by them, was offered for discussion neither to the two committees nor to the councils themselves. During the weeks spent in its elaboration, the nation was skilfully prepared for its reception. In the capital a proscription list drawn up by the wily Fouché, as police minister, was by a studied inadvertence put into reporters' hands. It contained a jumble of names, gentle and simple, criminal and innocent, friend and foe, and was absurd on its face. No one would assume the responsibility, though it was said to have emanated from the police prematurely and irregularly. The consuls, especially Bonaparte, displayed a most engaging activity in erasing one name after another, until nothing of importance remained. By the ordinary course of criminal procedure a few notorious characters were removed from the scene; the persons of importance who were menaced made grateful submission and joined the ranks of the trusty, notably Jourdan. As news came in from the departments it became clear that Jacobinism was everywhere discomfited and could be neglected. The scanty garrisons and the administrative functionaries were all with the new government, the people of the cities and towns were enthusiastic. The horrors and terrors of the passing régime had moderated for the time the frenzies of the royalist party. Indeed, moderation became the watchword. France, in the parlance of the hour, was to drink the waters of Lethe. The example was given in Paris and twenty-four choice men were sent one into each of the military departments to exhibit and emphasize the fact, to study and mold public opinion. They were mostly men of the older régime, who had heartily accepted the consular idea. They worked faithfully and successfully. None knew as yet the provisions of the new constitution, though all approved its provisions, whatever they were, because they must be better than those of the old. On December fifteenth, 1799, six weeks after the completion of the document, it was presented directly to the nation at large, under the proposal of a national or popular decree--a plebiscite. Those then living were amazed at the general apathy, only about three million votes having been cast. To us it appears as if the whole people were in a plague of Egyptian darkness. As each voter could but adhere to or dissent from the proposition for the adoption of the constitution as offered, the result was an overwhelming approval, the negative votes being only one thousand five hundred and sixty-seven in number.

On December twenty-second, before the result of the plebiscite was known, the new charter was put in operation. It is difficult to determine exactly the composition of the assembly which met at the Luxembourg palace to determine who should be the permanent consuls. According to an anecdote of the time, Sieyès opened its proceedings by explaining the dangers of a military despotism should the First Consul be a soldier. Bonaparte impressively whispered to his supporters that they should scatter themselves throughout the room, and that when they saw him take Sieyès's hand they should shout, "Bravo--Bonaparte!" Then, stepping forward at the close of Sieyès's address, he assumed an air of generous friendliness, and said, "Let us have no difference of opinion, my friend; for my part, I vote for the Abbé Sieyès. For whom do you vote?" Taken all aback, Sieyès murmured, "I vote for General Bonaparte." Instantly the latter put out his hand, and the speaker grasped it. "Bravo--Bonaparte!" rang from all sides, and Sieyès's supporters joined in the shout. Thus, apparently by general consent, the shrewd intriguer, as the story runs, was acclaimed First Consul. At all events, Bonaparte took the office to himself without a question on the part of the public. His two colleagues were to be chosen by the constitutional committee. They named Daunou as one, but Bonaparte threw the ballots into the fire. Sieyès obligingly presented two other names,--"the right men," as he assured the committee,--Cambacérès and Lebrun. The former was an eminent jurist, the latter the ablest financier of his time. Both were appointed, and both rendered excellent service to the Consulate. Sieyès had already been made "keeper" of the Directory's secret funds,--six hundred thousand francs,--which he called "une poire pour la soif." Soon afterward he accepted from the First Consul the great estate of Crôsne, and was then relegated to obscurity as chief of the senate. The other great officials were all appointed in much the same way. "The pike is eating the two other fish," said Mme. Permon to the First Consul's mother soon after.

The safeguard of so-called popular adhesion having been secured, the next step was to adopt and execute a comprehensive policy of conciliation. The royalist emigrants were encouraged to return, provided they would accept the new power and lend it the grace of their presence and manners. Amnesty was likewise proclaimed for the victims of Fructidor. Gaudin, who had been an experienced financier under the Bourbons, and had shown his mettle as provisional minister, was put permanently in charge of the treasury. The moderate and able Cambacérès became minister of justice, and Forfait undertook the navy. Carnot, whose castigation of the Directory in his widely read defense had done so much to undermine their prestige and hasten their fall, was recalled and made minister of war. Talleyrand was forgiven for his base desertion on the eve of the Egyptian expedition. As will be recalled, it had been arranged that as the fleet left Toulon for Alexandria he was to start for Constantinople in order to hoodwink the Sultan and prevent the very resistance which afterward proved so disastrous. But at the last moment he refused. In consequence of his scandalous attempt to extort a bribe from the American envoys he was forced to resign his office soon afterward, and he then sought retirement to await results. There never was greed more dishonest than his, a life more licentious, nor a deceit more subtle; but at the same time he was the most adroit diplomat of an age devoted to diplomacy as a political power, and more familiar with the intrigues of courts and the aspirations of European dynasties than were any of his contemporaries, unless possibly Metternich, who did not become prominent until later. He was therefore indispensable, and was reappointed minister of foreign affairs. The great Laplace had been provisionally appointed minister of the interior; but so marked was his unfitness for the post that he soon was transferred to the senate and made way for Lucien Bonaparte.

But all this was little compared with the contemplated reconciliation with the Church for which the way was now carefully prepared. Pius VI had died a prisoner on French soil, and had been buried without honor. Befitting memorial ceremonies having been performed, the priesthood were released from the ban which the Jacobins had laid upon them. No oath in support of the new charter was required from the many priests who could not accept the civil constitution of the clergy, enacted in 1790; they could minister to their adherents without fear of persecution; they at once returned from exile or emerged from their hiding-places in large numbers. In the rôle of philosopher the First Consul professed to see the necessity of the Church as the main prop of a strong social organism and good government. As a far-seeing schemer he clearly felt that military power was a stanch support, but that in the end a firm moral foundation would likewise be needed in the hearts of hundreds of thousands in Europe, who would bless the man that should restore to them the institution which was the visible sign of their hopes for eternity. This desirable affection and approbation Bonaparte meant from the outset to secure. Had the scoffer, the worshiper of science, the would-be Mohammedan prophet, himself experienced a change of heart? Perhaps. Responsibility often breaks down indifference.

This policy of tolerance was well understood to be an interim measure, to be succeeded by a permanent settlement satisfactory to all the faithful. Furthermore, the ban having been removed from the exiled royalists as well, a number of emigrants had likewise returned: these and their clergy soon conceived the idea that Bonaparte was preparing a restoration of the monarchy, and would consider propositions for reëstablishing the close alliance of church and state, the identity almost, which had been the one outstanding feature of French absolutism. For this reason the insurrectionary West made overtures to the First Consul, and emissaries were passed through the lines, admitted to an audience, and permitted to state their case. Bonaparte gave heed and attention. Andigné proved exacting and impossible, Hyde was smooth and uncertain; it was only later that in Bernier, a simple village priest, he found a man to his liking, shrewd and scheming, but reasonable and efficient. He soon became an important agent in resolving the knotty problem of restoring the West to French nationality. Hitherto the rebels of lower Normandy and Brittany had followed either the resident nobility, of whom Andigné and Frotté were types, or peasant reactionaries like Georges Cadoudal, bold, desperate, irreconcilable men who demanded either war or their king. Bonaparte determined to ignore alike the high and the low, the desperate men with everything to gain and little to lose; he therefore appealed to the middle sort of gentle and simple through the intermediation of Hédouville for the government and Bernier for the people. The latter, accompanied by Count Bourmont, finally came to Paris, and both were won, Bourmont to the undoing of Napoleon, as it turned out. A method of pacification was arranged and soon put into successful operation, largely through the superlative adroitness of Bernier. Frotté was captured and executed, Cadoudal fled to England. The royalist agitation of the West was ended for a time: the efforts of the party in Provence, though carefully studied and widely exerted, proved ineffectual, and the internal reforms of administration were there, as throughout all France, efficiently put in operation. The policy of tolerance and moderation won over thousands upon thousands, and reduced the sullen minority to inactivity.

The upheaval of Brumaire is unique in French history. When consummated, there appeared among the people no remnant of fear or distrust. The radical side of the Revolution had ceased to exist. Its ideals of civil liberty were embodied in Bonaparte, the national spirit was invigorated, and hopes ran high. Such was the testimony of all the most disinterested observers. Brinkmann, a Swede of great ability, wrote on November eighteenth that no legitimate monarch had ever found on his accession a people more submissive than Bonaparte had found. "It is literally true," runs his letter: "France will perform the impossible to help him. Excepting the despicable horde of anarchists, the people are so weary, so disgusted with revolutionary horrors and follies, that they are sure any change will be for the better. Every class in society makes fun of the heroism of the demagogues, and from all sides comes a call for their expulsion rather than for the realization of their ideal visions. Even the royalists of every shade are honestly devoted to Bonaparte; for they attribute to him the intention of gradually restoring the old order. The indifferent are attached to him as being the man best fitted to give peace to France; and enlightened republicans, though trembling for their institutions, prefer to see a single man of talent, rather than a club of intriguers, seize and hold the public power."

None of Bonaparte's measures was more masterly than the financial policy whereby he won the devotion of the capitalists. If the country had been exhausted by the old régime, what had the recklessness of the Jacobins done for it? Bankruptcy, disorder, and utter distrust--chaos, in short--held sway in all departments of finance. The new order restored public confidence to such an extent that the revival of credit seemed miraculous. After the events of Brumaire the five per cents., which had fallen to one and a half per cent. of their par value, immediately rose to twelve per cent.; and on the final, satisfactory fulfilment of what the day appeared to foreshadow, they advanced to seventeen. The disgraceful laws for enforcing compulsory loans which had been passed under the Directory disappeared, with their companion the Hostage Law. Instantaneously order was brought into the system of direct taxation, and regularity into the collection of the taxes. The mysterious anti-Jacobin measures, promulgated as a warning, and then modified so as to paralyze and drive away the worthless spendthrifts of the Directory, while sobering and retaining for public use the able and sensible men like Jourdan, worked as a charm; they were a notification that the irregularities of all visionaries whatsoever were ended, and that waste of capacity as well as of money was to be succeeded by wholesome economy. For measures of temporary relief the new constitution permanently substituted a financial system of far-sighted regulations which completely revived general confidence, and with it the public credit, thereby restoring the producing capacity of the country. The Bank of France, organized in January, 1800, fixed a norm for the rates of discount, gave a sound currency to the country, and was the visible sign of a new era.