and placed at such a distance from those upon whose interest he is called on to decide, acquires the habit of referring for information from one public officer to another, till at last the matter falls into the hands of subalterns, who are quite incapable of judging the motives that must influence such important decisions.
And here it may be alleged that M. Necker, temporarily filling the place of minister, was very willing to set limits to ministerial power; but that by such conduct he jeopardized the permanent authority of the King. I will not discuss here the great question, whether the king of England does not possess as much and more power than did a king of France. The former, provided he fulfill the indispensable condition of governing according to the public opinion, is sure of uniting the strength of the people to the power of the Crown; but an absolute prince, not knowing how to collect their opinion, which his ministers do not represent to him faithfully, meets at every step with unforeseen obstacles, of which he cannot calculate the dangers. But without anticipating a result which will, I trust, receive some light from the present work, I confine myself at present to the provincial administrations, and I ask whether those were the true servants of the King who sought to persuade him that these assemblies would operate in diminution of his authority?
Their powers did not go the length of deciding the amount of the sum to be levied on their particular province; their business was merely to make the assessment of the amount already decided upon. Was it then an advantage to the Crown that a tax imposed by an injudicious intendant was the cause of greater suffering and discontent to the people than a larger levy, when allotted with prudence and impartiality by the representatives of the province? Every public officer was in the habit of appealing to the King’s will, even in petty matters of detail. The French indeed are never satisfied except when they can, upon every occasion, support themselves by the royal wish. Habits of servility are inveterate among them; while in a free country ministers found their measures only on the public good. A long time must yet pass before the inhabitants of France, accustomed for centuries to arbitrary power, learn to reject this courtiers’ language, which ought never to be heard beyond the precincts of the palaces to which it owes its origin.
No controversy occurred between the King and the parlements during the ministry of M. Necker. That, some will say, is not to be wondered at, since the King, during that period, required no new taxes and abstained from all arbitrary acts. This was exactly what constituted the merit of the minister; since it would be imprudent for a king, even in a country in which the constitution does not limit his power, to make the experiment to what extent the people will bear with his faults. Power ought not to be stretched to the utmost under any circumstances, but particularly on so frail a foundation as that of arbitrary authority in an enlightened country.
M. Necker’s conduct during his first ministry was marked more by an adherence to public probity, if I may so express it, than by a predilection for liberty, because the nature of the existing government admitted the one more than the other; but he was at the same time desirous of institutions calculated to place the public welfare on a more stable foundation than the character of a king, or the still more precarious one of a minister. The two provincial administrations, which he had established in Berri and Rouergue, succeeded extremely well; others were in a course of preparation; and the impulse necessary to the public mind, in a great empire, was directed toward these partial improvements. There were at that time only two methods of satisfying the anxiety which was already much excited upon the state of affairs in general: the establishment of provincial assemblies and the publication of a fair statement of the finances. But why, it may be asked, should the public opinion be satisfied? I will not enter on the answers which the friends of liberty would make to this singular question; I will merely add that, even for the purpose of eluding the demand of a representative government, the wisest plan was to grant at once what would have been expected from that government, that is, order and stability in the administration. Finally, credit, or, in other words, a supply of money, was dependent on public opinion; and as money was indispensable, the wish of the nation ought at least to have been treated with consideration out of interest, if not from a sense of duty.
In judging of the past from our knowledge of the events that have ensued, most people will be of the opinion that Louis XVI did wrong in interfering between England and America.1 Although the independence of the United States was desired by all liberal minds, the principles of the French monarchy did not permit of encouraging what, according to these principles, must be pronounced a revolt. Besides, France had at that time no cause of complaint against England; and, to enter on a war solely on the ground of the habitual rivalship of the two countries, is bad policy in itself, and more detrimental to France than to England; for France, possessing greater natural resources, but being inferior in naval power, is sure of acquiring additional strength in peace, and as sure of being weakened by a maritime war.
The cause of America, and the parliamentary debates on that subject in England, excited the greatest interest in France. All the French officers sent to serve under Washington came home with an enthusiasm for liberty, which made it no easy task for them to resume their attendance at Versailles without wishing for something beyond the honor of being presented at court. Must we then accede to the opinion of those who attribute the Revolution to the political fault of the French government in taking part in the American war? The Revolution must be attributed to everything, and to nothing: every year of the century led toward it by every path; it was a matter of great difficulty to remain deaf to the call of Paris in favor of American independence. Already the Marquis de la Fayette,2 a French nobleman, eager for fame and liberty, had gained general approbation by proceeding to join the Americans, even before the French government had taken part with them. Resistance to the King’s will, in this matter, was encouraged by the public applause; and when the royal authority has lost ground in public opinion, the principle of a monarchical government, which places honor in obedience, is attacked at its basis.
What was then the course to be adopted by the French government? M. Necker laid before the King the strongest motives for a continuance of peace, and he who has been charged with republican sentiments declared himself hostile to a war of which the object was the independence of a people. I need not say that he, on his part, wished success to the colonists in their admirable cause; but he felt, on the one hand, that war never ought to be declared without positive necessity, and, on the other, that no possible concurrence of political results could counterbalance to France the loss she would sustain of the advantages she might derive from her capital wasted in the contest. These arguments were not successful: the King decided on the war. There were, it must be allowed, very strong motives for it, and government was exposed to great difficulties in either alternative. Already was the time approaching when we might apply to Louis XVI what Hume said of Charles I: “He found himself in a situation where faults were irreparable; a condition too rigorous to be imposed on weak human nature.”3
M. Necker’s Retirement from Office in 1781.
M. Necker had no other object in his first ministry than to prevail on the King to adopt, of his own accord, the measures of public utility required by the nation, and for which it afterward demanded a representative body. This was the only method of preventing a revolution during the life of Louis XVI; and never have I known my father to deviate from the opinion that then, in 1781, he might have succeeded in that object. The most bitter reproach which he ever cast on himself was that of not supporting everything rather than give in his resignation. But he could not then foresee the extraordinary course of events; and, although a generous feeling attached him to his place, there exists in a lofty mind a delicate apprehension of not withdrawing easily from power when a feeling of independence suggests it.
The second class of courtiers declared itself averse to M. Necker. The higher nobility, being exempt from disquietude