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and Moreau overran [pg.64] the whole of the Low Countries and chased the Germans beyond the Rhine; the Piedmontese were thrust behind the Alps; the Spaniards behind the Pyrenees. In quick succession State after State sued for peace: Tuscany in February, 1795; Prussia in April; Hanover, Westphalia, and Saxony in May; Spain and Hesse-Cassel in July; Switzerland and Denmark in August.

      Such was the state of France when Buonaparte came to seek his fortunes in the Sphinx-like capital. His artillery command had been commuted to a corresponding rank in the infantry—a step that deeply incensed him. He attributed it to malevolent intriguers; but all his efforts to obtain redress were in vain. Lacking money and patronage, known only as an able officer and facile intriguer of the bankrupt Jacobinical party, he might well have despaired. He was now almost alone. Marmont had gone off to the Army of the Rhine; but Junot was still with him, allured perhaps by Madame Permon's daughter, whom he subsequently married. At the house of this amiable hostess, an old friend of his family, Buonaparte found occasional relief from the gloom of his existence. The future Madame Junot has described him as at this time untidy, unkempt, sickly, remarkable for his extreme thinness and the almost yellow tint of his visage, which was, however, lit up by "two eyes sparkling with keenness and will-power"—evidently a Corsican falcon, pining for action, and fretting its soaring spirit in that vapid town life. Action Buonaparte might have had, but only of a kind that he loathed. He might have commanded the troops destined to crush the brave royalist peasants of La Vendée. But, whether from scorn of such vulture-work, or from an instinct that a nobler quarry might be started at Paris, he refused to proceed to the Army of the West, and on the plea of ill-health remained in the capital. There he spent his time deeply pondering on politics and strategy. He designed a history of the last two years, and drafted a plan of campaign for the Army of [pg.65] Italy, which, later on, was to bear him to fortune. Probably the geographical insight which it displayed may have led to his appointment (August 20th, 1795) to the topographical bureau of the Committee of Public Safety. His first thought on hearing of this important advancement was that it opened up an opportunity for proceeding to Turkey to organize the artillery of the Sultan; and in a few days he sent in a formal request to that effect—the first tangible proof of that yearning after the Orient which haunted him all through life. But, while straining his gaze eastwards, he experienced a sharp rebuff. The Committee was on the point of granting his request, when an examination of his recent conduct proved him guilty of a breach of discipline in not proceeding to his Vendéan command. On the very day when one department of the Committee empowered him to proceed to Constantinople, the Central Committee erased his name from the list of general officers (September 15th).

      This time the blow seemed fatal. But Fortune appeared to compass his falls only in order that he might the more brilliantly tower aloft. Within three weeks he was hailed as the saviour of the new republican constitution. The cause of this almost magical change in his prospects is to be sought in the political unrest of France, to which we must now briefly advert.

      All through this summer of 1795 there were conflicts between Jacobins and royalists. In the south the latter party had signally avenged itself for the agonies of the preceding years, and the ardour of the French temperament seemed about to drive that hapless people from the "Red Terror" to a veritable "White Terror," when two disasters checked the course of the reaction. An attempt of a large force of emigrant French nobles, backed up by British money and ships, to rouse Brittany against the Convention was utterly crushed by the able young Hoche; and nearly seven hundred prisoners were afterwards shot down in cold blood (July). Shortly before this blow, the little prince styled Louis XVII. succumbed to the brutal treatment [pg.66]of his gaolers at the Temple in Paris; and the hopes of the royalists now rested on the unpopular Comte de Provence. Nevertheless, the political outlook in the summer of 1795 was not reassuring to the republicans; and the Commission of Eleven, empowered by the Convention to draft new organic laws, drew up an instrument of government, which, though republican in form, seemed to offer all the stability of the most firmly rooted oligarchy. Some such compromise was perhaps necessary; for the Commonwealth was confronted by three dangers, anarchy resulting from the pressure of the mob, an excessive centralization of power in the hands of two committees, and the possibility of a coup d'état by some pretender or adventurer. Indeed, the student of French history cannot fail to see that this is the problem which is ever before the people of France. It has presented itself in acute though diverse phases in 1797,1799,1814, 1830, 1848, 1851, and in 1871. Who can say that the problem has yet found its complete solution?

      In some respects the constitution which the Convention voted in August, 1795, was skilfully adapted to meet the needs of the time. Though democratic in spirit, it granted a vote only to those citizens who had resided for a year in some dwelling and had paid taxes, thus excluding the rabble who had proved to be dangerous to any settled government. It also checked the hasty legislation which had brought ridicule on successive National Assemblies. In order to moderate the zeal for the manufacture of decrees, which had often exceeded one hundred a month, a second or revising chamber was now to be formed on the basis of age; for it had been found that the younger the deputies the faster came forth the fluttering flocks of decrees, that often came home to roost in the guise of curses. A senatorial guillotine, it was now proposed, should thin out the fledglings before they flew abroad at all. Of the seven hundred and fifty deputies of France, the two hundred and fifty oldest men were to form the Council of Ancients, having powers to amend or reject the proposals [pg.67] emanating from the Council of Five Hundred. In this Council were the younger deputies, and with them rested the sole initiation of laws. Thus the young deputies were to make the laws, but the older deputies were to amend or reject them; and this nice adjustment of the characteristics of youth and age, a due blending of enthusiasm with caution, promised to invigorate the body politic and yet guard its vital interests. Lastly, in order that the two Councils should continuously represent the feelings of France, one third of their members must retire for re-election every year, a device which promised to prevent any violent change in their composition, such as might occur if, at the end of their three years' membership, all were called upon to resign at once.

      But the real crux of constitution builders had hitherto been in the relations of the Legislature to the Executive. How should the brain of the body politic, that is, the Legislature, be connected with the hand, that is, the Executive? Obviously, so argued all French political thinkers, the two functions were distinct and must be kept separate. The results of this theory of the separation of powers were clearly traceable in the course of the Revolution. When the hand had been left almost powerless, as in 1791–2, owing to democratic jealousy of the royal Ministry, the result had been anarchy. The supreme needs of the State in the agonies of 1793 had rendered the hand omnipotent: the Convention, that is, the brain, was for some time powerless before its own instrument, the two secret committees. Experience now showed that the brain must exercise a general control over the hand, without unduly hampering its actions. Evidently, then, the deputies of France must intrust the details of administration to responsible Ministers, though some directing agency seemed needed as a spur to energy and a check against royalist plots. In brief, the Committee of Public Safety, purged of its more dangerous powers, was to furnish the model for a new body of five members, termed the Directory. This [pg.68] organism, which was to give its name to the whole period 1795–1799, was not the Ministry. There was no Ministry as we now use the term. There were Ministers who were responsible individually for their departments of State: but they never met for deliberation, or communicated with the Legislature; they were only heads of departments, who were responsible individually to the Directors. These five men formed a powerful committee, deliberating in private on the whole policy of the State and on all the work of the Ministers. The Directory had not, it is true, the right of initiating laws and of arbitrary arrest which the two committees had freely exercised during the Terror. Its dependence on the Legislature seemed also to be guaranteed by the Directors being appointed by the two legislative Councils; while one of the five was to vacate his office for re-election every year. But in other respects the directorial powers were almost as extensive as those wielded by the two secret committees, or as those which Bonaparte was to inherit from the Directory in 1799. They comprised the general control of policy in peace and war, the right to negotiate treaties (subject to ratification by the legislative councils), to promulgate laws voted by the Councils and watch over their execution, and to appoint or dismiss the Ministers of State.

      Such was the constitution

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