Bureaucracy Part 1

Bureaucracy.

by Honore de Balzac.

CHAPTER I. THE RABOURDIN HOUSEHOLD

In Paris, where men of thought and study bear a certain likeness to one another, living as they do in a common centre, you must have met with several resembling Monsieur Rabourdin, whose acquaintance we are about to make at a moment when he is head of a bureau in one of our most important ministries. At this period he was forty years old, with gray hair of so pleasing a shade that women might at a pinch fall in love with it for it softened a somewhat melancholy countenance, blue eyes full of fire, a skin that was still fair, though rather ruddy and touched here and there with strong red marks; a forehead and nose a la Louis XV., a serious mouth, a tall figure, thin, or perhaps wasted, like that of a man just recovering from illness, and finally, a bearing that was midway between the indolence of a mere idler and the thoughtfulness of a busy man. If this portrait serves to depict his character, a sketch of this man's dress will bring it still further into relief. Rabourdin wore habitually a blue surcoat, a white cravat, a waistcoat crossed a la Robespierre, black trousers without straps, gray silk stockings and low shoes. Well-shaved, and with his stomach warmed by a cup of coffee, he left home at eight in the morning with the regularity of clock-work, always pa.s.sing along the same streets on his way to the ministry: so neat was he, so formal, so starched that he might have been taken for an Englishman on the road to his emba.s.sy.

From these general signs you will readily discern a family man, hara.s.sed by vexations in his own household, worried by annoyances at the ministry, yet philosopher enough to take life as he found it; an honest man, loving his country and serving it, not concealing from himself the obstacles in the way of those who seek to do right; prudent, because he knew men; exquisitely courteous with women, of whom he asked nothing,--a man full of acquirements, affable with his inferiors, holding his equals at great distance, and dignified towards his superiors. At the epoch of which we write, you would have noticed in him the coldly resigned air of one who has buried the illusions of his youth and renounced every secret ambition; you would have recognized a discouraged, but not disgusted man, one who still clings to his first projects,--more perhaps to employ his faculties than in the hope of a doubtful success. He was not decorated with any order, and always accused himself of weakness for having worn that of the Fleur-de-lis in the early days of the Restoration.

The life of this man was marked by certain mysterious peculiarities.

He had never known his father; his mother, a woman to whom luxury was everything, always elegantly dressed, always on pleasure bent, whose beauty seemed to him miraculous and whom he very seldom saw, left him little at her death; but she had given him that too common and incomplete education which produces so much ambition and so little ability. A few days before his mother's death, when he was just sixteen, he left the Lycee Napoleon to enter as supernumerary a government office, where an unknown protector had provided him with a place.

At twenty-two years of age Rabourdin became under-head-clerk; at twenty-five, head-clerk, or, as it was termed, head of the bureau. From that day the hand that a.s.sisted the young man to start in life was never felt again in his career, except as to a single circ.u.mstance; it led him, poor and friendless, to the house of a Monsieur Leprince, formerly an auctioneer, a widower said to be extremely rich, and father of an only daughter. Xavier Rabourdin fell desperately in love with Mademoiselle Celestine Leprince, then seventeen years of age, who had all the matrimonial claims of a dowry of two hundred thousand francs.

Carefully educated by an artistic mother, who transmitted her own talents to her daughter, this young lady was fitted to attract distinguished men. Tall, handsome, and finely-formed, she was a good musician, drew and painted, spoke several languages, and even knew something of science,--a dangerous advantage, which requires a woman to avoid carefully all appearance of pedantry. Blinded by mistaken tenderness, the mother gave the daughter false ideas as to her probable future; to the maternal eyes a duke or an amba.s.sador, a marshal of France or a minister of State, could alone give her Celestine her due place in society. The young lady had, moreover, the manners, language, and habits of the great world. Her dress was richer and more elegant than was suitable for an unmarried girl; a husband could give her nothing more than she now had, except happiness. Besides all such indulgences, the foolish spoiling of the mother, who died a year after the girl's marriage, made a husband's task all the more difficult.

What coolness and composure of mind were needed to rule such a woman!

Commonplace suitors held back in fear. Xavier Rabourdin, without parents and without fortune other than his situation under government, was proposed to Celestine by her father. She resisted for a long time; not that she had any personal objection to her suitor, who was young, handsome, and much in love, but she shrank from the plain name of Madame Rabourdin. Monsieur Leprince a.s.sured his daughter that Xavier was of the stock that statesmen came of. Celestine answered that a man named Rabourdin would never be anything under the government of the Bourbons, etc. Forced back to his intrenchments, the father made the serious mistake of telling his daughter that her future husband was certain of becoming Rabourdin "de something or other" before he reached the age of admission to the Chamber. Xavier was soon to be appointed Master of pet.i.tions, and general-secretary at his ministry. From these lower steps of the ladder the young man would certainly rise to the higher ranks of the administration, possessed of a fortune and a name bequeathed to him in a certain will of which he, Monsieur Leprince, was cognizant. On this the marriage took place.

Rabourdin and his wife believed in the mysterious protector to whom the auctioneer alluded. Led away by such hopes and by the natural extravagance of happy love, Monsieur and Madame Rabourdin spent nearly one hundred thousand francs of their capital in the first five years of married life. By the end of this time Celestine, alarmed at the non-advancement of her husband, insisted on investing the remaining hundred thousand francs of her dowry in landed property, which returned only a slender income; but her future inheritance from her father would amply repay all present privations with perfect comfort and ease of life. When the worthy auctioneer saw his son-in-law disappointed of the hopes they had placed on the nameless protector, he tried, for the sake of his daughter, to repair the secret loss by risking part of his fortune in a speculation which had favourable chances of success. But the poor man became involved in one of the liquidations of the house of Nucingen, and died of grief, leaving nothing behind him but a dozen fine pictures which adorned his daughter's salon, and a few old-fas.h.i.+oned pieces of furniture, which she put in the garret.

Eight years of fruitless expectation made Madame Rabourdin at last understand that the paternal protector of her husband must have died, and that his will, if it ever existed, was lost or destroyed. Two years before her father's death the place of chief of division, which became vacant, was given, over her husband's head, to a certain Monsieur de la Billardiere, related to a deputy of the Right who was made minister in 1823. It was enough to drive Rabourdin out of the service; but how could he give up his salary of eight thousand francs and perquisites, when they const.i.tuted three fourths of his income and his household was accustomed to spend them? Besides, if he had patience for a few more years he would then be ent.i.tled to a pension. What a fall was this for a woman whose high expectations at the opening of her life were more or less warranted, and one who was admitted on all sides to be a superior woman.

Madame Rabourdin had justified the expectations formed of Mademoiselle Leprince; she possessed the elements of that apparent superiority which pleases the world; her liberal education enabled her to speak to every one in his or her own language; her talents were real; she showed an independent and elevated mind; her conversation charmed as much by its variety and ease as by the oddness and originality of her ideas. Such qualities, useful and appropriate in a sovereign or an amba.s.sadress, were of little service to a household compelled to jog in the common round. Those who have the gift of speaking well desire an audience; they like to talk, even if they sometimes weary others. To satisfy the requirements of her mind Madame Rabourdin took a weekly reception-day and went a great deal into society to obtain the consideration her self-love was accustomed to enjoy. Those who know Parisian life will readily understand how a woman of her temperament suffered, and was martyrized at heart by the scantiness of her pecuniary means. No matter what foolish declarations people make about money, they one and all, if they live in Paris, must grovel before accounts, do homage to figures, and kiss the forked hoof of the golden calf. What a problem was hers!

twelve thousand francs a year to defray the costs of a household consisting of father, mother, two children, a chambermaid and cook, living on the second floor of a house in the rue Duphot, in an apartment costing two thousand francs a year. Deduct the dress and the carriage of Madame before you estimate the gross expenses of the family, for dress precedes everything; then see what remains for the education of the children (a girl of eight and a boy of nine, whose maintenance must cost at least two thousand francs besides) and you will find that Madame Rabourdin could barely afford to give her husband thirty francs a month.

That is the position of half the husbands in Paris, under penalty of being thought monsters.

Thus it was that this woman who believed herself destined to s.h.i.+ne in the world was condemned to use her mind and her faculties in a sordid struggle, fighting hand to hand with an account-book. Already, terrible sacrifice of pride! she had dismissed her man-servant, not long after the death of her father. Most women grow weary of this daily struggle; they complain but they usually end by giving up to fate and taking what comes to them; Celestine's ambition, far from lessening, only increased through difficulties, and led her, when she found she could not conquer them, to sweep them aside. To her mind this complicated tangle of the affairs of life was a Gordian knot impossible to untie and which genius ought to cut. Far from accepting the pettiness of middle-cla.s.s existence, she was angry at the delay which kept the great things of life from her grasp,--blaming fate as deceptive. Celestine sincerely believed herself a superior woman. Perhaps she was right; perhaps she would have been great under great circ.u.mstances; perhaps she was not in her right place. Let us remember there are as many varieties of woman as there are of man, all of which society fas.h.i.+ons to meet its needs. Now in the social order, as in Nature's order, there are more young shoots than there are trees, more sp.a.w.n than full-grown fish, and many great capacities (Athanase Granson, for instance) which die withered for want of moisture, like seeds on stony ground. There are, unquestionably, household women, accomplished women, ornamental women, women who are exclusively wives, or mothers, or sweethearts, women purely spiritual or purely material; just as there are soldiers, artists, artisans, mathematicians, poets, merchants, men who understand money, or agriculture, or government, and nothing else. Besides all this, the eccentricity of events leads to endless cross-purposes; many are called and few are chosen is the law of earth as of heaven. Madame Rabourdin conceived herself fully capable of directing a statesman, inspiring an artist, helping an inventor and pus.h.i.+ng his interests, or of devoting her powers to the financial politics of a Nucingen, and playing a brilliant part in the great world. Perhaps she was only endeavouring to excuse to her own mind a hatred for the laundry lists and the duty of overlooking the housekeeping bills, together with the petty economies and cares of a small establishment. She was superior only in those things where it gave her pleasure to be so. Feeling as keenly as she did the thorns of a position which can only be likened to that of Saint-Laurence on his grid-iron, is it any wonder that she sometimes cried out? So, in her paroxysms of thwarted ambition, in the moments when her wounded vanity gave her terrible shooting pains, Celestine turned upon Xavier Rabourdin. Was it not her husband's duty to give her a suitable position in the world? If she were a man she would have had the energy to make a rapid fortune for the sake of rendering an adored wife happy! She reproached him for being too honest a man. In the mouth of some women this accusation is a charge of imbecility. She sketched out for him certain brilliant plans in which she took no account of the hindrances imposed by men and things; then, like all women under the influence of vehement feeling, she became in thought as Machiavellian as Gondreville, and more unprincipled than Maxime de Trailles. At such times Celestine's mind took a wide range, and she imagined herself at the summit of her ideas.

When these fine visions first began Rabourdin, who saw the practical side, was cool. Celestine, much grieved, thought her husband narrow-minded, timid, unsympathetic; and she acquired, insensibly, a wholly false opinion of the companion of her life. In the first place, she often extinguished him by the brilliancy of her arguments. Her ideas came to her in flashes, and she sometimes stopped him short when he began an explanation, because she did not choose to lose the slightest sparkle of her own mind. From the earliest days of their marriage Celestine, feeling herself beloved and admired by her husband, treated him without ceremony; she put herself above conjugal laws and the rules of private courtesy by expecting love to pardon all her little wrong-doings; and, as she never in any way corrected herself, she was always in the ascendant. In such a situation the man holds to the wife very much the position of a child to a teacher when the latter cannot or will not recognize that the mind he has ruled in childhood is becoming mature. Like Madame de Stael, who exclaimed in a room full of people, addressing, as we may say, a greater man than herself, "Do you know you have really said something very profound!" Madame Rabourdin said of her husband: "He certainly has a good deal of sense at times." Her disparaging opinion of him gradually appeared in her behavior through almost imperceptible motions. Her att.i.tude and manners expressed a want of respect. Without being aware of it she injured her husband in the eyes of others; for in all countries society, before making up its mind about a man, listens for what his wife thinks of him, and obtains from her what the Genevese term "pre-advice."

When Rabourdin became aware of the mistakes which love had led him to commit it was too late,--the groove had been cut; he suffered and was silent. Like other men in whom sentiments and ideas are of equal strength, whose souls are n.o.ble and their brains well balanced, he was the defender of his wife before the tribunal of his own judgment; he told himself that nature doomed her to a disappointed life through his fault; HIS; she was like a thoroughbred English horse, a racer harnessed to a cart full of stones; she it was who suffered; and he blamed himself. His wife, by dint of constant repet.i.tion, had inoculated him with her own belief in herself. Ideas are contagious in a household; the ninth thermidor, like so many other portentous events, was the result of female influence. Thus, goaded by Celestine's ambition, Rabourdin had long considered the means of satisfying it, though he hid his hopes, so as to spare her the tortures of uncertainty. The man was firmly resolved to make his way in the administration by bringing a strong light to bear upon it. He intended to bring about one of those revolutions which send a man to the head of either one party or another in society; but being incapable of so doing in his own interests, he merely pondered useful thoughts and dreamed of triumphs won for his country by n.o.ble means. His ideas were both generous and ambitious; few officials have not conceived the like; but among officials as among artists there are more miscarriages than births; which is tantamount to Buffon's saying that "Genius is patience."

Placed in a position where he could study French administration and observe its mechanism, Rabourdin worked in the circle where his thought revolved, which, we may remark parenthetically, is the secret of much human accomplishment; and his labor culminated finally in the invention of a new system for the Civil Service of government. Knowing the people with whom he had to do, he maintained the machine as it then worked, so it still works and will continue to work; for everybody fears to remodel it, though no one, according to Rabourdin, ought to be unwilling to simplify it. In his opinion, the problem to be resolved lay in a better use of the same forces. His plan, in its simplest form, was to revise taxation and lower it in a way that should not diminish the revenues of the State, and to obtain, from a budget equal to the budgets which now excite such rabid discussion, results that should be two-fold greater than the present results. Long practical experience had taught Rabourdin that perfection is brought about in all things by changes in the direction of simplicity. To economize is to simplify. To simplify means to suppress unnecessary machinery; removals naturally follow.

His system, therefore, depended on the weeding out of officials and the establishment of a new order of administrative offices. No doubt the hatred which all reformers incur takes its rise here. Removals required by this perfecting process, always ill-understood, threaten the well-being of those on whom a change in their condition is thus forced.

What rendered Rabourdin really great was that he was able to restrain the enthusiasm that possesses all reformers, and to patiently seek out a slow evolving medium for all changes so as to avoid shocks, leaving time and experience to prove the excellence of each reform. The grandeur of the result antic.i.p.ated might make us doubt its possibility if we lose sight of this essential point in our rapid a.n.a.lysis of his system. It is, therefore, not unimportant to show through his self-communings, however incomplete they might be, the point of view from which he looked at the administrative horizon. This tale, which is evolved from the very heart of the Civil Service, may also serve to show some of the evils of our present social customs.

Xavier Rabourdin, deeply impressed by the trials and poverty which he witnessed in the lives of the government clerks, endeavored to ascertain the cause of their growing deterioration. He found it in those petty partial revolutions, the eddies, as it were, of the storm of 1789, which the historians of great social movements neglect to inquire into, although as a matter of fact it is they which have made our manners and customs what they are now.

Formerly, under the monarchy, the bureaucratic armies did not exist.

The clerks, few in number, were under the orders of a prime minister who communicated with the sovereign; thus they directly served the king. The superiors of these zealous servants were simply called head-clerks. In those branches of administration which the king did not himself direct, such for instance as the "fermes" (the public domains throughout the country on which a revenue was levied), the clerks were to their superior what the clerks of a business-house are to their employer; they learned a science which would one day advance them to prosperity. Thus, all points of the circ.u.mference were fastened to the centre and derived their life from it. The result was devotion and confidence. Since 1789 the State, call it the Nation if you like, has replaced the sovereign.

Instead of looking directly to the chief magistrate of this nation, the clerks have become, in spite of our fine patriotic ideas, the subsidiaries of the government; their superiors are blown about by the winds of a power called "the administration," and do not know from day to day where they may be on the morrow. As the routine of public business must go on, a certain number of indispensable clerks are kept in their places, though they hold these places on sufferance, anxious as they are to retain them. Bureaucracy, a gigantic power set in motion by dwarfs, was generated in this way. Though Napoleon, by subordinating all things and all men to his will, r.e.t.a.r.ded for a time the influence of bureaucracy (that ponderous curtain hung between the service to be done and the man who orders it), it was permanently organized under the const.i.tutional government, which was, inevitably, the friend of all mediocrities, the lover of authentic doc.u.ments and accounts, and as meddlesome as an old tradeswoman. Delighted to see the various ministers constantly struggling against the four hundred petty minds of the Elected of the Chamber, with their ten or a dozen ambitious and dishonest leaders, the Civil Service officials hastened to make themselves essential to the warfare by adding their quota of a.s.sistance under the form of written action; they created a power of inertia and named it "Report." Let us explain the Report.

When the kings of France took to themselves ministers, which first happened under Louis XV., they made them render reports on all important questions, instead of holding, as formerly, grand councils of state with the n.o.bles. Under the const.i.tutional government, the ministers of the various departments were insensibly led by their bureaus to imitate this practice of kings. Their time being taken up in defending themselves before the two Chambers and the court, they let themselves be guided by the leading-strings of the Report. Nothing important was ever brought before the government that a minister did not say, even when the case was urgent, "I have called for a report." The Report thus became, both as to the matter concerned and for the minister himself, the same as a report to the Chamber of Deputies on a question of laws,--namely, a disquisition in which the reasons for and against are stated with more or less partiality. No real result is attained; the minister, like the Chamber, is fully as well prepared before as after the report is rendered. A determination, in whatever matter, is reached in an instant.

Do what we will, the moment comes when the decision must be made. The greater the array of reasons for and against, the less sound will be the judgment. The finest things of which France can boast have been accomplished without reports and where decisions were prompt and spontaneous. The dominant law of a statesman is to apply precise formula to all cases, after the manner of judges and physicians.

Rabourdin, who said to himself: "A minister should have decision, should know public affairs, and direct their course," saw "Report" rampant throughout France, from the colonel to the marshal, from the commissary of police to the king, from the prefects to the ministers of state, from the Chamber to the courts. After 1818 everything was discussed, compared, and weighed, either in speech or writing; public business took a literary form. France went to ruin in spite of this array of doc.u.ments; dissertations stood in place of action; a million of reports were written every year; bureaucracy was enthroned! Records, statistics, doc.u.ments, failing which France would have been ruined, circ.u.mlocution, without which there could be no advance, increased, multiplied, and grew majestic. From that day forth bureaucracy used to its own profit the mistrust that stands between receipts and expenditures; it degraded the administration for the benefit of the administrators; in short, it spun those lilliputian threads which have chained France to Parisian centralization,--as if from 1500 to 1800 France had undertaken nothing for want of thirty thousand government clerks! In fastening upon public offices, like a mistletoe on a pear-tree, these officials indemnified themselves amply, and in the following manner.

The ministers, compelled to obey the princes or the Chambers who impose upon them the distribution of the public moneys, and forced to retain the workers in office, proceeded to diminish salaries and increase the number of those workers, thinking that if more persons were employed by government the stronger the government would be. And yet the contrary law is an axiom written on the universe; there is no vigor except where there are few active principles. Events proved in July, 1830, the error of the materialism of the Restoration. To plant a government in the hearts of a nation it is necessary to bind INTERESTS to it, not MEN. The government-clerks being led to detest the administrations which lessened both their salaries and their importance, treated them as a courtesan treats an aged lover, and gave them mere work for money; a state of things which would have seemed as intolerable to the administration as to the clerks, had the two parties dared to feel each other's pulse, or had the higher salaries not succeeded in stifling the voices of the lower. Thus wholly and solely occupied in retaining his place, drawing his pay, and securing his pension, the government official thought everything permissible that conduced to these results. This state of things led to servility on the part of the clerks and to endless intrigues within the various departments, where the humbler clerks struggled vainly against degenerate members of the aristocracy, who sought positions in the government bureaus for their ruined sons.

Superior men could scarcely bring themselves to tread these tortuous ways, to stoop, to cringe, and creep through the mire of these cloacas, where the presence of a fine mind only alarmed the other denizens. The ambitious man of genius grows old in obtaining his triple crown; he does not follow in the steps of Sixtus the Fifth merely to become head of a bureau. No one comes or stays in the government offices but idlers, incapables, or fools. Thus the mediocrity of French administration has slowly come about. Bureaucracy, made up entirely of petty minds, stands as an obstacle to the prosperity of the nation; delays for seven years, by its machinery, the project of a ca.n.a.l which would have stimulated the production of a province; is afraid of everything, prolongs procrastination, and perpetuates the abuses which in turn perpetuate and consolidate itself. Bureaucracy holds all things and the administration itself in leading strings; it stifles men of talent who are bold enough to be independent of it or to enlighten it on its own follies. About the time of which we write the pension list had just been issued, and on it Rabourdin saw the name of an underling in office rated for a larger sum than the old colonels, maimed and wounded for their country. In that fact lies the whole history of bureaucracy.

Another evil, brought about by modern customs, which Rabourdin counted among the causes of this secret demoralization, was the fact that there is no real subordination in the administration in Paris; complete equality reigns between the head of an important division and the humblest copying-clerk; one is as powerful as the other in an arena outside of which each lords it in his own way. Education, equally distributed through the ma.s.ses, brings the son of a porter into a government office to decide the fate of some man of merit or some landed proprietor whose door-bell his father may have answered. The last comer is therefore on equal terms with the oldest veteran in the service. A wealthy supernumerary splashes his superior as he drives his tilbury to Longchamps and points with his whip to the poor father of a family, remarking to the pretty woman at his side, "That's my chief." The Liberals call this state of things Progress; Rabourdin thought it Anarchy at the heart of power. He saw how it resulted in restless intrigues, like those of a harem between eunuchs and women and imbecile sultans, or the petty troubles of nuns full of underhand vexations, or college tyrannies, or diplomatic manoeuvrings fit to terrify an amba.s.sador, all put in motion to obtain a fee or an increase in salary; it was like the hopping of fleas harnessed to pasteboard cars, the spitefulness of slaves, often visited on the minister himself. With all this were the really useful men, the workers, victims of such parasites; men sincerely devoted to their country, who stood vigorously out from the background of the other incapables, yet who were often forced to succ.u.mb through unworthy trickery.

All the higher offices were gained through parliamentary influence, royalty had nothing to do now with them, and the subordinate clerks became, after a time, merely the running-gear of the machine; the most important considerations with them being to keep the wheels well greased. This fatal conviction entering some of the best minds smothered many statements conscientiously written on the secret evils of the national government; lowered the courage of many hearts, and corrupted sterling honesty, weary of injustice and won to indifference by deteriorating annoyances. A clerk in the employ of the Rothchilds corresponds with all England; another, in a government office, may communicate with all the prefects; but where the one learns the way to make his fortune, the other loses time and health and life to no avail. An undermining evil lies here. Certainly a nation does not seem threatened with immediate dissolution because an able clerk is sent away and a middling sort of man replaces him. Unfortunately for the welfare of nations individual men never seem essential to their existence. But in the long run when the belittling process is fully carried out nations will disappear. Every one who seeks instruction on this point can look at Venice, Madrid, Amsterdam, Stockholm, Rome; all places which were formerly resplendent with mighty powers and are now destroyed by the infiltrating littleness which gradually attained the highest eminence.

When the day of struggle came, all was found rotten, the State succ.u.mbed to a weak attack. To wors.h.i.+p the fool who succeeds, and not to grieve over the fall of an able man is the result of our melancholy education, of our manners and customs which drive men of intellect into disgust, and genius to despair.

What a difficult undertaking is the rehabilitation of the Civil Service while the liberal cries aloud in his newspapers that the salaries of clerks are a standing theft, calls the items of the budget a cl.u.s.ter of leeches, and every year demands why the nation should be saddled with a thousand millions of taxes. In Monsieur Rabourdin's eyes the clerk in relation to the budget was very much what the gambler is to the game; that which he wins he puts back again. All remuneration implies something furnished. To pay a man a thousand francs a year and demand his whole time was surely to organize theft and poverty. A galley-slave costs nearly as much, and does less. But to expect a man whom the State remunerated with twelve thousand francs a year to devote himself to his country was a profitable contract for both sides, fit to allure all capacities.

These reflections had led Rabourdin to desire the recasting of the clerical official staff. To employ fewer man, to double or treble salaries, and do away with pensions, to choose only young clerks (as did Napoleon, Louis XIV., Richelieu, and Ximenes), but to keep them long and train them for the higher offices and greatest honors, these were the chief features of a reform which if carried out would be as beneficial to the State as to the clerks themselves. It is difficult to recount in detail, chapter by chapter, a plan which embraced the whole budget and continued down through the minutest details of administration in order to keep the whole synthetical; but perhaps a slight sketch of the princ.i.p.al reforms will suffice for those who understand such matters, as well as for those who are wholly ignorant of the administrative system.

Though the historian's position is rather hazardous in reproducing a plan which may be thought the politics of a chimney-corner, it is, nevertheless, necessary to sketch it so as to explain the author of it by his own work. Were the recital of his efforts to be omitted, the reader would not believe the narrator's word if he merely declared the talent and the courage of this official.

Rabourdin's plan divided the government into three ministries, or departments. He thought that if the France of former days possessed brains strong enough to comprehend in one system both foreign and domestic affairs, the France of to-day was not likely to be without its Mazarin, its Suger, its Sully, its de Choiseul, or its Colbert to direct even vast administrative departments. Besides, const.i.tutionally speaking, three ministries will agree better than seven; and, in the restricted number there is less chance for mistaken choice; moreover, it might be that the kingdom would some day escape from those perpetual ministerial oscillations which interfered with all plans of foreign policy and prevented all ameliorations of home rule. In Austria, where many diverse united nations present so many conflicting interests to be conciliated and carried forward under one crown, two statesmen alone bear the burden of public affairs and are not overwhelmed by it. Was France less prolific of political capacities than Germany? The rather silly game of what are called "const.i.tutional inst.i.tutions" carried beyond bounds has ended, as everybody knows, in requiring a great many offices to satisfy the multifarious ambition of the middle cla.s.ses. It seemed to Rabourdin, in the first place, natural to unite the ministry of war with the ministry of the navy. To his thinking the navy was one of the current expenses of the war department, like the artillery, cavalry, infantry, and commissariat. Surely it was an absurdity to give separate administrations to admirals and marshals when both were employed to one end, namely, the defense of the nation, the overthrow of an enemy, and the security of the national possessions. The ministry of the interior ought in like manner to combine the departments of commerce, police, and finances, or it belied its own name. To the ministry of foreign affairs belonged the administration of justice, the household of the king, and all that concerned arts, sciences, and belles lettres. All patronage ought to flow directly from the sovereign. Such ministries necessitated the supremacy of a council. Each required the work of two hundred officials, and no more, in its central administration offices, where Rabourdin proposed that they should live, as in former days under the monarchy. Taking the sum of twelve thousand francs a year for each official as an average, he estimated seven millions as the cost of the whole body of such officials, which actually stood at twenty in the budget.

By thus reducing the ministers to three heads he suppressed departments which had come to be useless, together with the enormous costs of their maintenance in Paris. He proved that an arrondiss.e.m.e.nt could be managed by ten men; a prefecture by a dozen at the most; which reduced the entire civil service force throughout France to five thousand men, exclusive of the departments of war and justice. Under this plan the clerks of the court were charged with the system of loans, and the ministry of the interior with that of registration and the management of domains. Thus Rabourdin united in one centre all divisions that were allied in nature. The mortgage system, inheritance, and registration did not pa.s.s outside of their own sphere of action and only required three additional clerks in the justice courts and three in the royal courts.

The steady application of this principle brought Rabourdin to reforms in the finance system. He merged the collection of revenue into one channel, taxing consumption in bulk instead of taxing property.

According to his ideas, consumption was the sole thing properly taxable in times of peace. Land-taxes should always be held in reserve in case of war; for then only could the State justly demand sacrifices from the soil, which was in danger; but in times of peace it was a serious political fault to burden it beyond a certain limit; otherwise it could never be depended on in great emergencies. Thus a loan should be put on the market when the country was tranquil, for at such times it could be placed at par, instead of at fifty per cent loss as in bad times; in war times resort should be had to a land-tax.

"The invasion of 1814 and 1815," Rabourdin would say to his friends, "founded in France and practically explained an inst.i.tution which neither Law nor Napoleon had been able to establish,--I mean Credit."

Unfortunately, Xavier considered the true principles of this admirable machine of civil service very little understood at the period when he began his labor of reform in 1820. His scheme levied a toll on the consumption by means of direct taxation and suppressed the whole machinery of indirect taxation. The levying of the taxes was simplified by a single cla.s.sification of a great number of articles. This did away with the more hara.s.sing customs at the gates of the cities, and obtained the largest revenues from the remainder, by lessening the enormous expense of collecting them. To lighten the burden of taxation is not, in matters of finance, to diminish the taxes, but to a.s.sess them better; if lightened, you increase the volume of business by giving it freer play; the individual pays less and the State receives more. This reform, which may seem immense, rests on very simple machinery. Rabourdin regarded the tax on personal property as the most trustworthy representative of general consumption. Individual fortunes are usually revealed in France by rentals, by the number of servants, horses, carriages, and luxuries, the costs of which are all to the interest of the public treasury.

Houses and what they contain vary comparatively but little, and are not liable to disappear. After pointing out the means of making a tax-list on personal property which should be more impartial than the existing list, Rabourdin a.s.sessed the sums to be brought into the treasury by indirect taxation as so much per cent on each individual share. A tax is a levy of money on things or persons under disguises that are more or less specious. These disguises, excellent when the object is to extort money, become ridiculous in the present day, when the cla.s.s on which the taxes weigh the heaviest knows why the State imposes them and by what machinery they are given back. In fact the budget is not a strong-box to hold what is put into it, but a watering-pot; the more it takes in and the more it pours out the better for the prosperity of the country.

Therefore, supposing there are six millions of tax-payers in easy circ.u.mstances (Rabourdin proved their existence, including the rich) is it not better to make them pay a duty on the consumption of wine, which would not be more offensive than that on doors and windows and would return a hundred millions, rather than hara.s.s them by taxing the thing itself. By this system of taxation, each individual tax-payer pays less in reality, while the State receives more, and consumers profit by a vast reduction in the price of things which the State releases from its perpetual and hara.s.sing interference. Rabourdin's scheme retained a tax on the cultivation of vineyards, so as to protect that industry from the too great abundance of its own products. Then, to reach the consumption of the poorer tax-payers, the licences of retail dealers were taxed according to the population of the neighborhoods in which they lived.

In this way, the State would receive without cost or vexatious hindrances an enormous revenue under three forms; namely, a duty on wine, on the cultivation of vineyards, and on licenses, where now an irritating array of taxes existed as a burden on itself and its officials. Taxation was thus imposed upon the rich without overburdening the poor. To give another example. Suppose a share a.s.sessed to each person of one or two francs for the consumption of salt and you obtain ten or a dozen millions; the modern "gabelle" disappears, the poor breathe freer, agriculture is relieved, the State receives as much, and no tax-payer complains. All persons, whether they belong to the industrial cla.s.ses or to the capitalists, will see at once the benefits of a tax so a.s.sessed when they discover how commerce increases, and life is ameliorated in the country districts. In short, the State will see from year to year the number of her well-to-do tax-payers increasing. By doing away with the machinery of indirect taxation, which is very costly (a State, as it were, within a State), both the public finances and the individual tax-payer are greatly benefited, not to speak of the saving in costs of collecting.

The whole subject is indeed less a question of finance than a question of government. The State should possess nothing of its own, neither forests, nor mines, nor public works. That it should be the owner of domains was, in Rabourdin's opinion, an administrative contradiction.

The State cannot turn its possessions to profit and it deprives itself of taxes; it thus loses two forms of production. As to the manufactories of the government, they are just as unreasonable in the sphere of industry. The State obtains products at a higher cost than those of commerce, produces them more slowly, and loses its tax upon the industry, the maintenance of which it, in turn, reduces. Can it be thought a proper method of governing a country to manufacture instead of promoting manufactures? to possess property instead of creating more possessions and more diverse ones? In Rabourdin's system the State exacted no money security; he allowed only mortgage securities; and for this reason: Either the State holds the security in specie, and that embarra.s.ses business and the movement of money; or it invests it at a higher rate than the State itself pays, and that is a contemptible robbery; or else it loses on the transaction, and that is folly; moreover, if it is obliged at any time to dispose of a ma.s.s of these securities it gives rises in certain cases to terrible bankruptcy.

The territorial tax did not entirely disappear in Rabourdin's plan,--he kept a minute portion of it as a point of departure in case of war; but the productions of the soil were freed, and industry, finding raw material at a low price, could compete with foreign nations without the deceptive help of customs. The rich carried on the administration of the provinces without compensation except that of receiving a peerage under certain conditions. Magistrates, learned bodies, officers of the lower grades found their services honorably rewarded; no man employed by the government failed to obtain great consideration through the value and extent of his labors and the excellence of his salary; every one was able to provide for his own future and France was delivered from the cancer of pensions. As a result Rabourdin's scheme exhibited only seven hundred millions of expenditures and twelve hundred millions of receipts. A saving of five hundred millions annually had far more virtue than the acc.u.mulation of a sinking fund whose dangers were plainly to be seen. In that fund the State, according to Rabourdin, became a stockholder, just as it persisted in being a land-holder and a manufacturer. To bring about these reforms without too roughly jarring the existing state of things or incurring a Saint-Bartholomew of clerks, Rabourdin considered that an evolution of twenty years would be required.

Such were the thoughts maturing in Rabourdin's mind ever since his promised place had been given to Monsieur de la Billardiere, a man of sheer incapacity. This plan, so vast apparently yet so simple in point of fact, which did away with so many large staffs and so many little offices all equally useless, required for its presentation to the public mind close calculations, precise statistics, and self-evident proof.

Rabourdin had long studied the budget under its double-aspect of ways and means and of expenditure. Many a night he had lain awake unknown to his wife. But so far he had only dared to conceive the plan and fit it prospectively to the administrative skeleton; all of which counted for nothing,--he must gain the ear of a minister capable of appreciating his ideas. Rabourdin's success depended on the tranquil condition of political affairs, which up to this time were still unsettled. He had not considered the government as permanently secure until three hundred deputies at least had the courage to form a compact majority systematically ministerial. An administration founded on that basis had come into power since Rabourdin had finished his elaborate plan. At this time the luxury of peace under the Bourbons had eclipsed the warlike luxury of the days when France shone like a vast encampment, prodigal and magnificent because it was victorious. After the Spanish campaign, the administration seemed to enter upon an era of tranquillity in which some good might be accomplished; and three months before the opening of our story a new reign had begun without any apparent opposition; for the liberalism of the Left had welcomed Charles X. with as much enthusiasm as the Right. Even clear-sighted and suspicious persons were misled. The moment seemed propitious for Rabourdin. What could better conduce to the stability of the government than to propose and carry through a reform whose beneficial results were to be so vast?

Never had Rabourdin seemed so anxious and preoccupied as he now did in the mornings as he walked from his house to the ministry, or at half-past four in the afternoon, when he returned. Madame Rabourdin, on her part, disconsolate over her wasted life, weary of secretly working to obtain a few luxuries of dress, never appeared so bitterly discontented as now; but, like any wife who is really attached to her husband, she considered it unworthy of a superior woman to condescend to the shameful devices by which the wives of some officials eke out the insufficiency of their husband's salary. This feeling made her refuse all intercourse with Madame Colleville, then very intimate with Francois Keller, whose parties eclipsed those of the rue Duphot. Nevertheless, she mistook the quietude of the political thinker and the preoccupation of the intrepid worker for the apathetic torpor of an official broken down by the dulness of routine, vanquished by that most hateful of all miseries, the mediocrity that simply earns a living; and she groaned at being married to a man without energy.

Thus it was that about this period in their lives she resolved to take the making of her husband's fortune on herself; to thrust him at any cost into a higher sphere, and to hide from him the secret springs of her machinations. She carried into all her plans the independence of ideas which characterized her, and was proud to think that she could rise above other women by sharing none of their petty prejudices and by keeping herself untrammelled by the restraints which society imposes.

In her anger she resolved to fight fools with their own weapons, and to make herself a fool if need be. She saw things coming to a crisis. The time was favorable. Monsieur de la Billardiere, attacked by a dangerous illness, was likely to die in a few days. If Rabourdin succeeded him, his talents (for Celestine did vouchsafe him an administrative gift) would be so thoroughly appreciated that the office of Master of pet.i.tions, formerly promised, would now be given to him; she fancied she saw him the king's commissioner, presenting bills to the Chambers and defending them; then indeed she could help him; she would even be, if needful, his secretary; she would sit up all night to do the work! All this to drive in the Bois in a pretty carriage, to equal Madame Delphine de Nucingen, to raise her salon to the level of Madame Colleville's, to be invited to the great ministerial solemnities, to win listeners and make them talk of her as "Madame Rabourdin DE something or other"

(she had not yet determined on the estate), just as they did of Madame Firmiani, Madame d'Espard, Madame d'Aiglemont, Madame de Carigliano, and thus efface forever the odious name of Rabourdin.

These secret schemes brought some changes into the household. Madame Rabourdin began to walk with a firm step in the path of /debt/. She set up a man-servant, and put him in livery of brown cloth with red pipins, she renewed parts of her furniture, hung new papers on the walls, adorned her salon with plants and flowers, always fresh, and crowded it with knick-knacks that were then in vogue; then she, who had always shown scruples as to her personal expenses, did not hesitate to put her dress in keeping with the rank to which she aspired, the profits of which were discounted in several of the shops where she equipped herself for war. To make her "Wednesdays" fas.h.i.+onable she gave a dinner on Fridays, the guests being expected to pay their return visit and take a cup of tea on the following Wednesday. She chose her guests cleverly among influential deputies or other persons of note who, sooner or later, might advance her interests. In short, she gathered an agreeable and befitting circle about her. People amused themselves at her house; they said so at least, which is quite enough to attract society in Paris. Rabourdin was so absorbed in completing his great and serious work that he took no notice of the sudden reappearance of luxury in the bosom of his family.

Thus the wife and the husband were besieging the same fortress, working on parallel lines, but without each other's knowledge.

CHAPTER II. MONSIEUR DES LUPEAULX