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characteristics of the great American republic.

Whatever else may be said of this Government, it has certainly not proved a brilliant one. Few French governments have produced or attracted so little eminent talent, or have been, for the most part, carried on by men who, apart from their official positions, are so little known, have so little weight in their country, and have hitherto appealed so feebly to the imaginations of the world. As it seems to me, one of the characteristic features of our time is the absence of any political ideal capable of exciting strong enthusiasm. Political restlessness and political innovation are abundantly displayed, but there is nothing resembling the fervid devotion and the boundless hopes which the advent of democracy excited at the close of the eighteenth century. Democracy has completely triumphed in two forms—the American and the French—and we see it fully working before us. Men may like it or dislike it, but only rare and very peculiarly moulded minds can find in the Government of either republic a subject for real enthusiasm. The French Revolution, in its earlier days, excited such an enthusiasm nearly to the point of madness, and in 1830 and 1848 French politics exercised an almost irresistible attraction over surrounding countries. It has been one of the achievements of the present Republic to destroy this fanaticism. With our closer insight into American and French democracy, forms of government seem to have lost their magnetic power. The ideals and utopias that float before the popular imagination are of another kind. They point rather to great social and industrial changes, to redistributions of wealth, to a dissolution of the present fabric of society.

I do not know that this is altogether an evil. There is a constant tendency in the human mind to expect too much from Governments, and brilliancy in these spheres is often sought by violent constitutional innovations or military adventure. At the same time, when the Government of a country fails to excite enthusiasm, or even interest, there is apt to be some decline of patriotism, and there is much danger that the craving for excitement, which is so deeply implanted in human nature, and certainly abundantly present in French nature, may some day burst out in very dangerous forms. It has often been said that one of the causes of the popularity of military adventure in great despotisms is the absence of any interest in ordinary public life. In the light of the present condition of France, it is exceedingly curious to read the speeches of Lamartine, Crémieux, and the other men who played the chief part in the Revolution of 1848. The charge which they brought against the Government of Louis Philippe was much less that it was guilty of any positive fault, than that it failed to give France the brilliancy and the prominence in Europe which were her due. She appeared, they contended, like a dowdy, ill-dressed figure in the concert of nations. Yet, who can doubt that at that period the amount of brilliant talent in French public life was incomparably greater than at present?

The characteristic function, however, of government is business, and a Government that administers affairs with steady wisdom, tolerance, and uprightness may well be pardoned if it does not appeal to the more poetic side of human nature. I suspect, however, that most impartial judges will greatly doubt whether modern French democracy fulfills these requirements. One of its most conspicuous features has been its extreme, its astonishing ministerial instability. Between 1870 and the closing days of 1893, when I write these lines, France has had no less than thirty-two ministries. It may well be doubted whether a form of government which leads to such instability can be destined to endure, and whether it is compatible with that continuity of policy which is one of the most essential elements of national greatness. One of the causes that make the power of Russia in the world so formidable is the steady persistence of its foreign policy. Designs that may be traced to Peter the Great have been steadily pursued, and in the whole period from 1816 to 1895 only three ministers—Nesselrode, Gortschakoff, and Giers—have directed the foreign policy of the Empire. The great lines of French foreign policy were pursued with different degrees of energy and success, but with undeviating persistence, by Henry IV., by Richelieu and Mazarin, by Louis XIV., and by Cardinal Fleury. It is probable that in France, as in most democracies, the permanent service includes men greatly above the average which universal suffrage has brought to the front, and it is in this service that the old administrative traditions are preserved and the chief elements of good government are to be found. A good permanent service has often saved a country when its nominal rulers are utterly untrustworthy. But, excellent as the service has been, and, I believe, in many of its branches still is, in France, it is scarcely possible that it should not have been profoundly affected by constant fluctuations among its chiefs. Partly by a desire to weed out all officials who were not in accordance with the strictest Republican doctrine, and partly by the imperious desire felt by succeeding ministries to provide for their followers, a system of change has grown up in French official life much like that which has done so much to degrade American politics.¹⁶ It is not, it is true, carried to the same extreme, but it has introduced much instability into spheres where steady continuity is of the highest importance.

      It produces not only the evil of inexperience, but also the still greater evil of a lowered tone. No careful student of French politics can fail to have been struck with the many instances, since the establishment of the Republic, in which diplomatists and other officials have violated the cardinal article of professional honour by publishing to the world secrets they had learned in confidential Government posts. There can be no surer or more ominous sign of deterioration in official life; and it is not difficult to detect its causes. Much has been due to the frequency of revolutions, the functionaries of one dynasty regarding themselves as relieved from all obligation to secrecy when a new form of government was established. Much is also due to the character of the Republic. A prominent French politician who was for four years prefect of police published, almost immediately after he left office, two volumes of ‘recollections,’ full of anecdotes which would be considered in England scandalous violations of official confidence. The following significant lines are his own defence. ‘After having found that all means were good for overthrowing the preceding régimes, the men who are now in power, in order to consolidate their own authority, claim to appropriate all the traditions of the monarchies they have destroyed. Under a monarchy, the functionary who returns to private life retains obligations of gratitude and fidelity towards the dynasty of which he was and will remain the subject. But in the system of our institutions, what permanent element is there in the name of which such obligations can be imposed on me? Do I owe anything to the existing Cabinet? Is it not composed of my adversaries? Does it not run counter to all the ideas that are dear to me? Does it not obstruct the path to the hopes of a better future? Does it not impose on my country a policy which I detest?’¹⁷

We may judge French democracy by other tests. Has it raised France to a higher plane of liberty than in the past? The latitude of speaking and writing and dramatic representation is, no doubt, extremely great, but few modern French Governments, in their religious policy and in their educational policy, have made more determined efforts to force upon great masses of the population a system of education they detested, or to deprive them of the religious consolation they most dearly prized. It is very doubtful whether the religious policy of Jules Ferry and the educational policy of Paul Bert were approved of by the majority of Frenchmen. They are, probably, among the many instances in which a resolute and well-organised minority have forced their policy on a majority who were for the most part languid, divided, or unorganised. If the opinions of women as well as of men be taken into account, as they surely should be in questions of religion and education, there can be little doubt that the Government policy was that of a not very considerable minority. The essential characteristic of true liberty is, that under its shelter many different types of life and character, and opinion and belief can develop unmolested and unobstructed. Can it be said that the French Republic represents this liberty in a higher degree than other Governments? It has been called a Government of the working-classes, but has it in this respect any extraordinary claim to our respect? On nearly all working-class questions, it will be found that France has been preceded on the path of progress by British legislation. At the present day, the hours of work of the French labourer are in general much longer than those of the Englishman; and I believe the English workmen, who have of late years so carefully examined continental legislations, have very generally concluded that they have nothing to envy in the industrial habits or legislation of the Republic.

      Has it, at least, managed with peculiar wisdom the resources of France? The history of French finances in the nineteenth century

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