It was certainly bad policy to excite the expectations of the public by a good choice and to follow this up by disappointment; but Maurepas appointed or removed ministers in compliance with the prevailing language at court. His plan of governing consisted in influencing the mind of the sovereign, and in satisfying those who stood immediately around him. General views of any kind were quite foreign to him; he knew only the obvious truth, that money is indispensable to sustain the expenses of the state, and that the parlements became daily more difficult to manage in regard to new taxes.
Doubtless, what in France was then the constitution, that is, the authority of the King, overturned all barriers, since it silenced, whenever it thought proper, the opposition of parlement by a lit de justice.9 The government of France has been always arbitrary, and, at times, despotic; but it now became prudent to economize the use of this depotism, as of other resources; for appearances indicated that it would be soon expended.10
Taxes, and that credit which can accomplish in one day as great an effort as taxation in a year, were now become so necessary to France that whatever stood in their way was a primary object of apprehension. In England the House of Commons has been frequently known to join a bill relative to the national rights to a bill of consent to subsidies. In France a similar course was attempted by the judiciary assemblies: when asked to register a new tax, they (although aware that the Crown could compel the registry) frequently accompanied their acquiescence, or refusal, with remonstrances on the conduct of ministers, having the support of public opinion. This new power was daily on the increase, and the nation was advancing along the path of liberty by its own exertions. So long as the privileged classes were the only persons of importance, the country might be governed, like a court, by a skillful management of the passions or interests of a few individuals; but no sooner had the middling ranks,11 the most numerous and most active of all, become aware of their importance, than the knowledge and the adoption of a wider range of policy became indispensable.
From the time that battles ceased to be fought by the followers of the great vassals, and that the kings of France required a revenue to maintain their army, the disorder of the finances has always been the source of the troubles of the kingdom. Toward the end of the reign of Louis XV, the Parlement of Paris began to declare that it was not empowered to vote away the public money, and their conduct was applauded by the people; but all returned to the quiet and obedience to which the French had been so long accustomed as soon as the machine of government rolled on without fresh demands on any public body which could believe itself independent of the throne. The want of money was thus evidently the greatest source of danger to the royal prerogative, under the existing circumstances; and it was with this conviction that M. de Maurepas proposed to put M. Necker at the head of the treasury.
A foreigner and a Protestant, M. Necker was quite out of the ordinary line of election to the cabinet; but he had shown so much financial ability in the affairs of the East India Company, of which he was a member; in mercantile business on his own account, which he had carried on for twenty years; in his writings,12 and, finally, in the different transactions which he had had with the ministers, from the time of the Duc de Choiseul down to 1776, when he was appointed, that M. de Maurepas made choice of him only to produce an influx of money into the treasury. But M. de Maurepas had not reflected on the connection between public credit and the important measures of administration; and he imagined that M. Necker might re-establish the credit of the state by fortunate speculations, in the same way as that of a banking house. Could anything be more superficial than this mode of reasoning on the finances of a great empire? The revolution which was taking place in the public mind could not be removed from the very center of business without satisfying the nation by all the reform it required; it was necessary to meet public opinion halfway, lest it might press forward too rudely. A minister of finance cannot be a juggler, who passes and repasses money from one box to another, without any effectual means of increasing the receipts or reducing the expenditure. Retrenchment, taxes, or credit, were indispensable to re-establish the deranged balance of the French treasury; and, to render any of these resources available, was a task that required the support of public opinion. Let us now proceed to examine the course to be followed by a minister who aims at obtaining that support.
Of the Character of M. Necker as a Public Man.
M. Necker, a citizen of the republic of Geneva, had cultivated literature from his earliest years with great attention; and, when called by circumstances to dedicate himself to business and financial transactions, his earlier taste for literature mixed dignified sentiments and philosophical views with the positive interests of life. Madame Necker, certainly one of the most enlightened women of her day, was in the habit of receiving at her house all the eminent men of the eighteenth century, so rich in distinguished and eminently talented individuals.1 At the same time her extreme strictness in point of religion rendered her inaccessible to every doctrine at variance with the enlightened creed in which she had happily been born. Those who knew her are unanimous in declaring that she passed over all the opinions and all the passions of her age, without ceasing to be a Protestant in the true Christian spirit, equally remote from irreligion and intolerance. M. Necker was actuated by similar impressions: in fact, no exclusive system could be acceptable to his mind, of which prudence was one of the distinguishing features. He took no pleasure in changes, as far as regarded their novelty; but he was a stranger to those prejudices of habit to which a superior mind can never subject itself.
His first literary essay was a “Eulogy on Colbert,” which obtained the prize from the French Academy. He was blamed by the philosophers of the day for not applying, in all its extent, to commerce and finances the system which they wished to impose on the mind. The philosophic fanaticism2 which proved one of the evils of the Revolution had already begun to show itself. These men were desirous of attributing to a few principles that absolute power which had hitherto been absorbed by a few individuals; as if the domain of inquiry admitted of restriction or exclusion.
M. Necker, in his second work, On the Corn Trade and Corn Laws, admitted the necessity of certain restrictions on the export of corn: restrictions required by the daily and pressing wants of the indigent classes. It was on this occasion that M. Turgot and his friends came to a rupture with M. Necker: a popular commotion caused by the high price of bread took place in the year 1775,3 when his book was published, and, from his having dwelt on the bad decisions which led to the tumult, the more enthusiastic part of the “Economistes” threw the blame of it on his publication. But the blame was evidently absurd; for a tract founded on purely general views can influence, at least in the outset, none but the upper classes.
M. Necker, having been, during life, accustomed to real transactions, was capable of accommodating himself to the modifications which they required. This, however, by no means led him to disdainfully reject general principles, for none but inferior minds place theory and practice in opposition to each other. The one ought to be the result of the other; both are found to aid and extend each other.
A few months before his appointment to the cabinet, M. Necker made a journey to England. He came back with a profound admiration of most of the institutions of that country; but what particularly fixed his attention was the great influence of publicity on national credit and the immense means conferred