About the same time began the first formidable uprising against the Revolution, the War of La Vendée, the region lying to the south of the lower Loire and facing the Atlantic. Its inhabitants differed in many ways from the massRising in La Vendée.of the nation. Living far from large towns and busy routes of commerce, they remained primitive in all their thoughts and ways. The peasants had always been on friendly terms with the gentry, and the agrarian changes made by the Revolution had not been appreciated so highly as elsewhere. The people were ardent Catholics, who venerated the nonjuring clergy and resented the measures taken against them. But they remained passive until the enforcement of the decree for the levy of 300,000 men. Caring little for the Convention and knowing nothing of events on the northern or eastern frontier, the peasants were determined not to serve and preferred to fight the Republic at home. When once they had taken up arms they found gentlemen to lead and priests to exhort, and their rebellion became Royalist and Catholic. The chiefs were drawn from widely different classes. If Bonchamps and La Roche-jacquelin were nobles, Stofflet was a gamekeeper and Cathelineau a mason. As the country was favourable to guerilla warfare, and the government could not spare regular troops from the frontiers, the rebels were usually successful, and by the end of May had almost expelled the Republicans from La Vendée.
Danger without and within prompted the Convention to strengthen the executive authority. That the executive and legislative powers ought to be absolutely separate had been an axiom throughout the Revolution.The Committee of Public Safety.Ministers had always been excluded from a seat in the legislature. But the Assemblies were suspicious of the executive and bent on absorbing the government. They had nominated committees of their own members to control every branch of public affairs. These committees, while reducing the ministers to impotence, were themselves clumsy and ineffectual. It may be said that since the first meeting of the states-general the executive authority had been paralysed in France. The Convention in theory maintained the separation of powers. Even Danton had been forced to resign office when he was elected a member. But unity of government was restored by the formation of a central committee. In January the first Committee of General Defence was formed of members of the committees for the several departments of state. Too large and too much divided for strenuous labour, it was reduced in April to nine members and re-named the Committee of Public Safety. It deliberated in secret and had authority over the ministers; it was entrusted with the whole of the national defence and empowered to use all the resources of the state, and it quickly became the supreme power in the republic. Under it the ministers were no more than head clerks. About the same time were instituted the deputies on mission in the provinces, who could overrule any local authority, and who corresponded regularly with the Committee. France thus returned under new forms to its traditional government: a despotic authority in Paris with all-powerful agents in the provinces. Against disaffection the government was armed with formidable weapons: the Committee of General Security and the Revolutionary Tribunal. The Committee of General Security, first established in October 1792, was several times remodelled. In September 1793 the Convention decreed that its members should be nominated by the Committee of Public Safety. The Committee of General Security had unlimited powers for the prevention or discovery of crime against the state. The Revolutionary Tribunal was decreed on the 10th of March. It was an extraordinary Court, destined to try all offences against the Revolution without appeal. The jury, which received wages, voted openly, so that condemnation was almost certain. The director of the jury or public prosecutor was Fouquier Tinville. The first condemnation took place on the 11th of April.
Enmity between Girondin and Jacobin grew fiercer as the perils of the Republic increased. Danton strove to unite all partisans of the Revolution in defence of the country; but the Girondins, detesting his character and fearing his ambition,Fall of the Girondins.rejected all advances. The Commune of Paris and the journalists who were its mouthpieces, Hébert and Marat, aimed frankly at destroying the Girondins. In April the Girondins carried a decree that Marat should be sent before the Revolutionary Tribunal for incendiary writings, but his acquittal showed that a Jacobin leader was above the law. In May they proposed that the Commune of Paris should be dissolved, and that thesuppléants, the persons elected to fill vacancies occurring in the Convention, should assemble at Bourges, where they would be safe from that violence which might be applied to the Convention itself. Barère, who was rising into notice by the skill with which he trimmed between parties, opposed this motion, and carried a decree appointing a Committee of Twelve to watch over the safety of the Convention. Then the Commune named as commandant of the National Guard, Hanriot, a man concerned in the September massacres. It raised an insurrection on the 31st of May. On Barère’s proposal the Convention stooped to dissolving the Committee of Twelve. The Commune, which had hoped for the arrest of the Girondin leaders, was not satisfied. It undertook a new and more formidable outbreak on the 2nd of June. Enclosed by Hanriot’s troops and thoroughly cowed, the Convention decreed the arrest of the Committee of Twelve and of twenty-two principal Girondins. They were put under confinement in their own houses. Thus the Jacobins became all-powerful.
A tremor of revolt ran through the cities of the south which chafed under the despotism of the Parisian mob. These cities had their own grievances. The Jacobin clubs menaced the lives and properties of all who were guilty of wealthRevolt of the provinces.or of moderate opinions, while the representatives on mission deposed the municipal authorities and placed their own creatures in power. At the end of April the citizens of Marseilles closed the Jacobin club, put its chiefs on their trial and drove out the representatives on mission. In May Lyons rose. The Jacobin municipality was overturned, and Challier, their fiercest demagogue, was arrested. In June the citizens of Bordeaux declared that they would not acknowledge the authority of the Convention until the imprisoned deputies were set free. In July Toulon rebelled. But in the north the appeals of such Girondins as escaped from Paris were of no avail. Even the southern uprising proved far less dangerous than might have been expected. The peasants, who had gained more by the Revolution than any other class, held aloof from the citizens. The citizens lacked the qualities necessary for the successful conduct of civil war. Bordeaux surrendered almost without waiting to be summoned. Marseilles was taken in August and treated with great cruelty. Lyons, where the Royalists were strong, defended itself with courage, for the trial and execution of Challier made the townsmen hopeless of pardon. Toulon, also largely Royalist, invited the English and Spanish admirals, Hood and Langara, who occupied the port and garrisoned the town. At the same time the Vendean War continued formidable. In June the insurgents took the important town of Saumur, although they failed in an attempt upon Nantes. At the end of July the Republicans were still unable to make any impression upon the revolted territory.
Thus in the summer of 1793 France seemed to be falling to pieces. It was saved by the imbecility and disunion of the hostile powers. In the north the French army after the treason of Dumouriez could only attempt to coverDisunion of the allied powers.the frontier. The Austrians were joined by British, Dutch and Prussian forces. Had the Allies pushed straight upon Paris, they might have ended the war. But the desire of each ally to make conquests on his own account led them to spend time and strength in sieges. When Condé and Valenciennes had been taken, the British went off to assail Dunkirk and the Prussians retired into Luxemburg. In the east the Prussians and Austrians took Mainz at the end of July, allowing the garrison to depart on condition of not serving against the Allies for a year. Then they invaded Alsace, but their mutual jealousy prevented them from going farther. Thus the summer passed away without any decisive achievement of the coalition. Meanwhile the Committee of Public Safety, inspired by Danton, strove to rebuild the French administrative system. In July the Committee was renewed and Danton fell out; but soon afterwards it was reinforced by two officers, Carnot, who undertook the organization of the army, and Prieur of the Côte d’Or, who undertook its equipment. Administrators of the first rank, these men renovated the warlike power of France, and enabled her to deal those crushing blows which broke up the coalition.
The Royalist and Girondin insurrections and the critical aspect of the war favoured the establishment of what is known as the reign of terror. Terrorism had prevailed more or less since the beginning of the Revolution, but it wasThe reign of terror.the work of those who desired to rule, not of the nominal rulers. It had been lawless and rebellious. It ended by becoming legal and official. While Danton kept power Terrorism remained imperfect, for Danton, although unscrupulous, did not love cruelty and kept in view a return to normal government. But soon after Danton had ceased to be a member of the Committee of Public Safety Robespierre was elected, and now became the most powerful man in France. Robespierre was an acrid fanatic, and unlike Danton, who only cared to secure the practical results of the Revolution, he had a moral and religious ideal which he intended to force on the nation. All who rejected his ideal were corrupt; all who resented his ascendancy were traitors. The death of Marat, who was stabbed by Charlotte Corday (q.v.) to avenge the Girondins, gave yet another pretext for terrible measures of repression. In Paris the armed ruffians who had long preyed upon respectable citizens were organized as a revolutionary army, and other revolutionary armies were established in the provinces. Two new laws placed almost everybody at the mercy of the government. The Law of the Maximum, passed on the 17th of September, fixed the price of food and made it capital to ask for more. The Law of Suspects, passed at the same time, declared suspect every person who was of noble birth, or had held office before the Revolution, or had any connexion with anémigré, or could not produce a card ofcivismegranted by the local authority, which had full discretion to refuse. Any suspect might be arrested and imprisoned until the peace or sent before the Revolutionary Tribunal. An earlier law had established in every commune an elective committee of surveillance. These bodies, better known as revolutionary committees, were charged with the enforcement of the Law of Suspects. On the 10th of October the new constitution was suspended and the government declared revolutionary until the peace.
The spirit of those in power was shown by the massacres which followed on the surrender of Lyons in that month. In Paris the slaughter of distinguished victims began with the trial of Marie Antoinette, who was guillotined onExecution of the queen.the 16th. Twenty-one Girondin deputies were next brought to the bar and, with the exception of Valazé who stabbed himself, were beheaded on the last day of October, Madame Roland and other Girondins of note suffered later. In November the duke of Orleans, who had styled himself Philippe Égalité, had sat in the Convention, and had voted for the king’s death, went to the scaffold. Bailly, Barnave and many others of note followed before the end of the year. As the bloody work went on the pretence of trial became more and more hollow, the chance of acquittal fainter and fainter. The Revolutionary Tribunal was a mere instrument of state. Knowing the slight foundation of its power the government deliberately sought to destroy all whose birth, political connexions or past career might mark them out as leaders of opposition. At the same time it took care to show that none was so obscure or so impotent as to be safe when its policy was to destroy.
The disastrous effects of the Terror were heightened by the financial mismanagement of the Jacobins. Assignats were issued with such reckless profusion that the total for the three years of the Convention has been estimated at 7250 millions of francs. Enormous depreciation ensued and, although penalties rising to death itself were denounced against all who should refuse to take them at par, they fell to little more than 1% of theirnominal value. What were known as revolutionary taxes were imposed at discretion by the representatives on mission and the local authorities. A forced loan of 1000 millions was exacted from those citizens who were reputed to be prosperous. Immense supplies of all kinds were requisitioned for the armies, and were sometimes allowed to rot unused. Anarchy and state interference having combined to check the trade in necessaries, the government undertook to feed the people, and spent huge sums, especially on bread for the starving inhabitants of Paris. As no regular budget was attempted, as accounts were not kept, and as audit was unknown, the opportunities for fraud and embezzlement were endless. Even when due allowance has been made for the financial disorder which the Convention inherited from previous assemblies, and for the war which it had to wage against a formidable alliance, it cannot be acquitted of reckless and wasteful maladministration.
Notwithstanding the disorder of the time, the mass of new laws produced by the Convention was extraordinary. A new system of weights and measures, a new currency, a new chronological era (that of the Republic), and a newRevolutionary legislation. The new calendar.calendar were introduced (see the sectionRepublican Calendarbelow). A new and elaborate system of education was decreed. Two drafts of a complete civil code were made and, although neither was enacted, particular changes of great moment were decreed. Many of the new laws were stamped with the passions of the time. Such were the laws which suppressed all the remaining bodies corporate, even the academies, and which extinguished all manorial rights without any indemnity to the owners. Such too were the laws which took away the power of testation, placed natural children upon an absolute equality with legitimate, and gave a boundless freedom of divorce. It would be absurd, however, to dismiss all the legislative work of the Convention as merely partisan or eccentric. Much of it was enlightened and skilful, the product of the best minds in the assembly. To compete for power or even to express an opinion on public affairs was dangerous, and wholly to refrain from attendance might be construed as disaffection. Able men who wished to be useful without hazarding their lives took refuge in the committees where new laws were drafted and discussed. The result of their labours was often decreed as a matter of course. Whether the decree would be carried into effect was always uncertain.
The ruling faction was still divided against itself. The Commune of Paris, which had overthrown the Girondins, was jealous of the Committee of Public Safety, which meant to be supreme. Robespierre, the leading member of the committee, abhorred the chiefs of the Commune, not merely because they conflicted with his ambition but from difference of character. He was orderly and temperate, they were gross and debauched; he was a deist, they were atheists. In November the Commune fitted up Notre Dame as a temple of Reason, selected an opera girl to impersonate the goddess, and with profane ceremony installed her in the choir. All the churches in Paris were closed. Danton, when he felt power slipping from his hands, had retired from public business to his native town of Arcis-sur-Aube. When he became aware of the feud between Robespierre and the Commune, he conceived the hope of limiting the Terror and guiding the Revolution into a sane course. He returned to Paris and joined with Robespierre in carrying the law of 14 Frimaire (December 4), which gave the Committee of Public Safety absolute control over all municipal authorities. He became the advocate of mercy, and his friend Camille Desmoulins pleaded for the same cause in theVieux Cordelier. Then theOverthrow of the Paris Commune. Fall of the Dantonists.oppressed nation took courage and began to demand pardon for the innocent and even justice upon murderers. A sharp contest ensued between the Dantonists and the Commune, Robespierre inclining now to this side, now to that, for he was really a friend to neither. His friend St Just, a younger and fiercer man, resolved to destroy both. Hébert and his followers in despair planned a new insurrection, but they were deserted by Hanriot, their military chief. Their doom was thus fixed. Twenty leaders of the Commune were arrested on the 17th of March 1794 and guillotined a week later. It was then Danton’s turn. He had several warnings, but either through over-confidence or weariness of life he scorned to fly. On the 30th he was arrested along with his friends Desmoulins, Delacroix, Philippeaux and Westermann. St Just read to the Convention a report on their case pre-eminent even in that day for its shameless disregard of truth, nay, of plausibility. Before the Revolutionary Tribunal Danton defended himself with such energy that St Just took means to have him silenced. Danton and his friends were executed on the 5th of April.
For a moment the conflict of parties seemed at an end. None could presume to challenge the authority of the Committee of Public Safety, and in the committee none disputed the leadership of Robespierre. Robespierre was at lastSupremacy of Robespierre.free to establish the republic of virtue. On the 7th of May he persuaded the Convention to decree that the French people acknowledged the existence of a Supreme Being and the immortality of the soul. On the 4th of June he was elected president of the Convention, and from that time forward he appeared to be dictator of France. On the 8th the festival of the Supreme Being was solemnized, Robespierre acting as pontiff amid the outward deference and secret jeers of his colleagues. But Robespierre knew what a gulf parted him from almost all his countrymen. He knew that he could be safe only by keeping power and powerful only by making the Terror more stringent. Two days after the festival his friend Couthon presented the crowning law of the Terror, known as the Law of 22 Prairial. As the Revolutionary Tribunal was said to be paralysed by forms and delays, this law abolished the defence of prisoners by counsel and the examination of witnesses. Thenceforward the impressions of judges and jurors were to decide the fate of the accused. For all offences the penalty was to be death. The leave of the Convention was no longer required for the arrest of a member. In spite of some murmurs even this law was adopted. Its effect was fearful. The Revolutionary Tribunal had hitherto pronounced 1200 death sentences. In the next six weeks it pronounced 1400. With Robespierre’s approval St Just sketched at this time the plan of an ideal society in which every man should have just enough land to maintain him; in which domestic life should be regulated by law and all children over seven years should be educated by the state. Pending this regeneration of society St Just advised the rule of a dictator.
The growing ferocity of the Terror appeared more hideous as the dangers threatening the government receded. The surrender of Toulon in December 1793 closed the south of France to foreign enemies. The war in La Vendée turned againstThe Revolutionary War. Republican successes.the insurgents from the time when the veteran garrison of Mainz came to reinforce the Republican army. After a severe defeat at Cholet on the 16th of October the Royalists determined to cross the Loire and raise Brittany and Anjou, where the Chouans, or Royalist partisans, were already stirring. They failed in an attempt on the little seaport of Granville and in another upon Angers. In December they were defeated with immense loss at Le Mans and at Savenay. The rebellion would probably have died out but for the measures of the new Republican general Turreau, who wasted La Vendée so horribly with his “infernal columns” that he drove the peasants to take up arms once more. Yet Turreau’s crimes were almost surpassed by Carrier, the representative on mission at Nantes, who, finding the guillotine too slow in the destruction of his prisoners, adopted the plan of drowning them wholesale. In the autumn of 1793 the war against the coalition took a turn favourable to France. The energy of Danton, the organizing skill of Carnot, and the high spirit of the French nation, resolute at all costs to avoid dismemberment, had well employed the respite given by the sluggishness of the Allies. In Flanders the English were defeated at Hondschoote (September 8) and the Austrians at Wattignies (October 15). In the east Hoche routed the Austrians at Weissenburg and forced them to recross the Rhine before the end of 1793. The summer of 1794 saw France victorious on all her frontiers. Jourdan won the battle of Fleurus(June 25), which decided the fate of the Belgian provinces. The Prussians were driven out of the eastern departments. Against the Spaniards and the Sardinians the French were also successful.
Under these circumstances government by terror could not endure. Robespierre was not a man of action; he knew not how to form or lead a party; he lived not with his fellows but with his own thoughts and ambitions. He was hated and feared by most of the oligarchy. They laughed at his religion, resented his puritanism, and felt themselves in daily peril. His only loyal friends in the Committee of Public Safety, Couthon and St Just, were themselves unpopular. Robespierre professed consideration for the deputies of the Plain, who were glad to buy safety by conforming to his will; but he could not reckon on their help in time of danger. By degrees a coalition against Robespierre was formed in the Mountain. It included old followers of Danton like Taillen, independent Jacobins like Cambon, some of the worst Terrorists like Fouché, and such a consummate time-server as Barère. In the course of July its influence began to be felt. When St Just proposed Robespierre to the committees as dictator, he found no response. On the 8th Thermidor (26th of July) Robespierre addressed the Convention, deploring the invectives against himself and the Revolutionary Tribunal and demanding the purification of the committees and the punishment of traitors. His enemies took the speech as a declaration of war and thwarted a proposal that it should be circulated in the departments. Robespierre felt his ascendancy totter. He repeated his speech with more success to the Jacobin Club. His friends determined to strike, and Hanriot ordered the National Guards to hold themselves in readiness. Robespierre’s enemies called on the Committee of Public SafetyFall of Robespierre. The 9th Thermidor.to arrest the traitors, but the committee was divided. On the morning of the 9th Thermidor St Just was beginning to speak in the Convention when Tallien cut him short. Robespierre and all who tried to speak in his behalf were shouted down. The Plain was deaf to Robespierre’s appeal. Finally the Convention decreed the arrest of Robespierre, of his brother Augustin, of Couthon and of St Just. But the Commune and the Jacobin Club were on the alert. They sounded the tocsin, mustered their partisans, and released the prisoners. The Convention outlawed Robespierre and his friends and sent out commissioners to rally the citizens. It named Barras, a deputy who had served in the royal army, to lead its forces. Had Robespierre possessed Danton’s energy, the result might have been doubtful. He did nothing himself and benumbed his followers. Without an effort Barras captured the Hôtel de Ville. Robespierre, whose jaw had been shattered by a pistol shot, was left in agony for the night. On the next morning he was beheaded along with his brother, Couthon, St Just, Hanriot and seventeen more of his adherents. On the day after seventy-one members of the Commune followed them to the scaffold. Such was the revolution of the 9th Thermidor (27th of July 1794) which ended the Reign of Terror.
In a period of fifteen months, it has been calculated, about 17,000 persons had been executed in France under form of law. The number of those who were shot, drowned or otherwise massacred without the pretence of a trial can never be accurately known, but must be reckoned far greater. The number of persons arrested and imprisoned reached hundreds of thousands, of whom many died in their crowded and filthy jails. The names on the list ofémigrésat the close of the Terror were about 150,000. Of these a small proportion had borne arms against their country. The rest were either harmless fugitives from destruction or had never quitted France and had been placed on the list simply in order that they might incur the penalties of emigration. Every one of this multitude was liable to instant death if found in French territory. Their relatives were subjected to various pains and penalties. All the property of those condemned to death and ofémigréswas confiscated. The carnage of the Terror spread far beyond the clergy and the nobility, beyond even the middle class, for peasants and artisans were among the victims. It spread far beyond those who could conspire or rebel, for bedridden old men and women and young boys and girls were often sacrificed. It made most havoc in the flower of the nation, since every kind of eminence marked men for death. By imbuing Frenchmen with such a mutual hatred as nothing but the arm of despotic power could control the Reign of Terror rendered political liberty impossible for many years. The rule of the Terrorists made inevitable the reign of Napoleon.
The fall of Robespierre had consequences unforeseen by his destroyers. Long kept mute by fear, the mass of the nation found a voice and demanded a total change of government. When once the reaction against JacobinReaction after the Terror.tyranny had begun, it was impossible to halt. Great numbers of prisoners were set at liberty. The Commune of Paris was abolished and the office of commandant of the National Guard was suppressed. The Revolutionary Tribunal was reorganized, and thenceforwards condemnations were rare. The Committees of Public Safety and General Security were remodelled, in virtue of a law that one-fourth of their number should retire at the end of every month and not be re-eligible until another month had elapsed. Somewhat later the Convention declared itself to be the only centre of authority, and executive business was parcelled out among sixteen committees. Most of the representatives on mission were recalled, and many office-holders were displaced. The trial of 130 prisoners sent up from Nantes led to so many terrible disclosures that public feeling turned still more fiercely against the Jacobins; Carrier himself was condemned and executed; and in November the Jacobin Club was closed. In December 73 members of the Convention who had been imprisoned for protesting against the violence done to the Girondins on the 2nd of June 1793 were allowed to resume their seats, and gave a decisive majority to the anti-Jacobins. Soon afterwards the law of the Maximum was repealed. A decree was passed in February 1795 severing the connexion of church and state and allowing general freedom of worship. At the beginning of March those Girondin deputies who survived came back to their places in the Convention.
But the return to normal life after the Jacobin domination was not destined to be smooth or continuous. Beside the remnant of Terrorists, such as Billaud Varennes and Collot d’Herbois, who had joined in the revolt againstParties in the Assembly after Thermidor.Robespierre, there were in the Convention at that time three principal factions. The so-called Independents, such as Barras and Merlin of Douai, who were all Jacobins, but had stood aloof from the internal conflicts of the party, hated Royalism as much as ever and desired the continuance of the war which was essential to their power. The Thermidorians, the immediate agents in Robespierre’s overthrow, such as Tallien, had loudly professed Jacobinism, but wanted to make their peace with the nation. They sought for an understanding with the Girondins and Feuillants, and some went so far as to correspond with the exiled princes. Lastly, those members who had never been Jacobins wanted a speedy return to legal government at home and therefore wished for peace abroad. While bent on preserving the civil equality introduced by the Revolution, many of these men were indifferent as between constitutional monarchy and a republic. The government, mainly Thermidorian, trimmed between Moderates and Independents, and for this reason its actions were often inconsistent.
The Jacobins were strong enough to carry a decree for keeping the anniversary of the execution of Louis XVI. as a national festival. They could count on the populace, because work was still scarce, food was still dear, and a multitudeProgress of the reaction.of Parisians knew not where to find bread. A committee having recommended the indictment of Collot d’Herbois and three other Terrorists, there ensued the rising of the 12th Germinal (April 1). The mob forced their way into the hall of the Convention and remained there until the National Guards of the wealthy quarters drove them out. By a decree of the Convention the four accused persons were deported to Cayenne, a new mode of dealing with political offenders almost as effective as the guillotine, while less apt to excitecompassion. The National Guard was reorganized so as to exclude the lowest class. The property of persons executed since the 10th of March 1793 was restored to their families. The signs of reaction daily became more unmistakable. Worshippers crowded to the churches; theémigrésreturned by thousands; and Anti-Jacobin outbreaks, followed by massacre, took place in the south. The despair of the Jacobins produced a second rising in Paris on the 1st Prairial (May 20). Again the mob invaded the Convention, murdered a deputy named Féraud who attempted to shield the president, and set his head on a pike. The ultra-Jacobin members took possession and embodied their wishes in decrees. Again the hall was cleared by the National Guards, but order was restored in Paris only by employing regular troops, a new precedent in the history of the Revolution. Paris was disarmed, and several leaders of the insurrection were sentenced to death. The Revolutionary Tribunal was suppressed. Toleration was proclaimed for all priests who would declare their obedience to the laws of the state. Royalists began to count upon the restoration of young Louis the Dauphin, otherwise Louis XVII.; but his health had been ruined by persevering cruelty, and he died on the 10th of June.
The Thermidorian government also endeavoured to pacify the rebels of the west. Its best adviser, Hoche, recommended an amnesty and the assurance of religious freedom. On these terms peace was made with the VendéansProgress of the war.at La Jaunaie in February and with the Chouans at La Mabilais in April. Some of the Vendean leaders persevered in resistance until May, and even after their submission the peace was ill observed, for the Royalists hearkened to the solicitations of the princes and their advisers. In the hope of rekindling the civil war a body ofémigréssailed under cover of the British fleet and landed on the peninsula of Quiberon. They were presently hemmed in by Hoche, and all who could not make their escape to the ships were forced to surrender at discretion (July 20). Nearly 700 were executed by court-martial. Yet the spirit of revolt lingered in the west and broke out time after time. Against the coalition the Republic was gloriously successful. (SeeFrench Revolutionary Wars.) In the summer of 1794 the French invaded Spain at both ends of the Pyrenees, and at the close of the year they made good their footing in Catalonia and Navarre. By the beginning of 1795 the Rhine frontier had been won. Against the king of Sardinia alone they accomplished little. At sea the French had sustained a severe defeat from Lord Howe, and several of their colonies had been taken by the British. But Great Britain, when the Netherlands were lost, could do little for her allies. Even before the close of 1794 the king of Prussia retired from any active part in the war, and on the 5th of April 1795 he concluded with France the treaty of Basel, which recognized her occupation of the left bank of the Rhine. The new democratic government which the French had established in Holland purchased peace by surrendering Dutch territory to the south of that river. A treaty of peace between France and Spain followed in July. The grand duke of Tuscany had been admitted to terms in February. The coalition thus fell into ruin and France occupied a more commanding position than in the proudest days of Louis XIV.
But this greatness was unsure so long as France remained without a stable government. A constitutional committee was named in April. It resolved that the constitution of 1793 was impracticable and proceeded to frameConstitution of the year III. The Directory.a new one. The draft was submitted to the Convention in June. In its final shape the constitution established a parliamentary system of two houses: a Council of Five Hundred and a Council of Ancients, 250 in number. Members of the Five Hundred were to be at least thirty years of age, members of the Ancients at least forty. The system of indirect election was maintained but universal suffrage was abandoned. A moderate qualification was required for electors in the first degree, a higher one for electors in the second degree.
When the 750 persons necessary had been elected they were to choose the Ancients out of their own body. A legislature was to last for three years, and one-third of the members were to be renewed every year. The Ancients had a suspensory veto, but no initiative in legislation. The executive was to consist of five directors chosen by the Ancients out of a list elected by the Five Hundred. One director was to retire every year. The directors were aided by ministers for the various departments of State. These ministers did not form a council and had no general powers of government. Provision was made for the stringent control of all local authorities by the central government. Since the separation of powers was still deemed axiomatic, the directors had no voice in legislation or taxation, nor could directors or ministers sit in either house. Freedom of religion, freedom of the press, and freedom of labour were guaranteed. Armed assemblies and even public meetings of political societies were forbidden. Petitions were to be tendered only by individuals or through the public authorities. The constitution was not, however, allowed free play from the beginning. The Convention was so unpopular that, if its members had retired into private life, they would not have been safe and their work might have been undone. It was therefore decreed that two-thirds of the first legislature must be chosen out of the Convention.
When the constitution was submitted to the primary assemblies, most electors held aloof, 1,050,000 voting for and only 5,000 voting against it. On the 23rd of September it was declared to be law. Then all the parties whichInsurrection of 13 Vendémiaire.resented the limit upon freedom of election combined to rise in Paris. The government entrusted its defence to Barras; but its true man of action was young General Bonaparte, who could dispose of a few thousand regular troops and a powerful artillery. The Parisians were ill-equipped and ill-led, and on the 13th of Vendémiaire (October 5) their insurrection was quelled almost without loss to the victors. No further resistance was possible. The Convention dissolved itself on the 26th of October.
The feeling of the nation was clearly shown in the elections. Among those who had sat in the Convention the anti-Jacobins were generally preferred. A leader of the old Right was sometimes chosen by many departments at once.Balance of parties in the new legislature.Owing to this circumstance, 104 places reserved to members of the Convention were left unfilled. When the persons elected met they had no choice but to co-opt the 104 from the Left of the Convention. The new one-third were, as a rule, enemies of the Jacobins, but not of the Revolution. Many had been members of the Constituent or of the Legislative Assembly. When the new legislature was complete, the Jacobins had a majority, although a weak one. After the Council of the Ancients had been chosen by lot, it remained to name the directors. For its own security the Left resolved that all five must be old members of the Convention and regicides. The persons chosen were Rewbell, Barras, La Révellière Lépeaux, Carnot and Letourneur. Rewbell was an able, although unscrupulous, man of action, Barras a dissolute and shameless adventurer, La Révellière Lépeaux the chief of a new sect, the Theophilanthropists, and therefore a bitter foe to other religions, especially the Catholic. Severe integrity and memorable public services raised Carnot far above his colleagues, but he was not a statesman and was hampered by his past. Letourneur, a harmless insignificant person, was his admirer and follower. The division in the legislature was reproduced in the Directory. Rewbell, Barras and La Révellière Lépeaux had a full measure of the Jacobin spirit; Carnot and Letourneur favoured a more temperate policy.
With the establishment of the Directory the Revolution might seem closed. The nation only desired rest and the healing of its many wounds. Those who wished to restore Louis XVIII. and theancien régimeand those who wouldCharacter of the Directory.have renewed the Reign of Terror were insignificant in number. The possibility of foreign interference had vanished with the failure of the coalition. Nevertheless the four years of the Directory were a time of arbitrary government and chronic disquiet. The late atrocities had made confidence or goodwill between parties impossible. The same instinct of self-preservation which had led the members of the Convention to claim so large a part in the new legislature and the whole ofthe Directory impelled them to keep their predominance. As the majority of Frenchmen wanted to be rid of them, they could achieve their purpose only by extraordinary means. They habitually disregarded the terms of the constitution, and, when the elections went against them, appealed to the sword. They resolved to prolong the war as the best expedient for prolonging their power. They were thus driven to rely upon the armies, which also desired war and were becoming less and less civic in temper. Other reasons influenced them in this direction. The finances had been so thoroughly ruined that the government could not have met its expenses without the plunder and the tribute of foreign countries. If peace were made, the armies would return home and the directors would have to face the exasperation of the rank and file who had lost their livelihood, as well as the ambition of generals who could in a moment brush them aside. Barras and Rewbell were notoriously corrupt themselves and screened corruption in others. The patronage of the directors was ill bestowed, and the general maladministration heightened their unpopularity.
Theconstitutionalparty in the legislature desired a toleration of the nonjuring clergy, the repeal of the laws against the relatives of theémigrés, and some merciful discrimination toward theémigrésthemselves. The directors baffled all suchMilitary triumphs under the Directory. Bonaparte.endeavours. On the other hand, the socialist conspiracy of Babeuf was easily quelled (seeBabeuf, François N.). Little was done to improve the finances, and theassignatscontinued to fall in value. But the Directory was sustained by the military successes of the year 1796. Hoche again pacified La Vendée. Bonaparte’s victories in Italy more than compensated for the reverses of Jourdan and Moreau in Germany. The king of Sardinia made peace in May, ceding Nice and Savoy to the Republic and consenting to receive French garrisons in his Piedmontese fortresses. By the treaty of San Ildefonso, concluded in August, Spain became the ally of France. In October Naples made peace. In 1797 Bonaparte finished the conquest of northern Italy and forced Austria to make the treaty of Campo Formio (October), whereby the emperor ceded Lombardy and the Austrian Netherlands to the Republic in exchange for Venice and undertook to urge upon the Diet the surrender of the lands beyond the Rhine. Notwithstanding the victory of Cape St Vincent, England was brought into such extreme peril by the mutinies in the fleet that she offered to acknowledge the French conquest of the Netherlands and to restore the French colonies. The selfishness of the three directors threw away this golden opportunity. In March and April the election of a new third of the Councils had been held. It gave a majority to the constitutional party. Among the directors the lot fell on Letourneur to retire, and he was succeeded by Barthélemy, an eminent diplomatist, who allied himself with Carnot. The political disabilities imposed upon the relatives ofémigréswere repealed. Priests who would declare their submission to the Republic were restored to their rights as citizens. It seemed likely that peace would be made and that moderate men would gain power.
Barras, Rewbell and La Révellière-Lépeaux then sought help from the armies. Although Royalists formed but a petty fraction of the majority, they raised the alarm that it was seeking to restore monarchy and undo the workCoup d’état of the 18th Fructidor.of the Revolution. Hoche, then in command of the army of the Sambre and Meuse, visited Paris and sent troops. Bonaparte sent General Augereau, who executed thecoup d’étatof the 18th Fructidor (September 4). The councils were purged, the elections in forty-nine departments were cancelled, and many deputies and other men of note were arrested. Some of them, including Barthélemy, were deported to Cayenne. Carnot made good his escape. The two vacant places in the Directory were filled by Merlin of Douai and François of Neufchâteau. Then the government frankly returned to Jacobin methods. The law against the relatives ofémigréswas reenacted, and military tribunals were established to condemnémigréswho should return to France. The nonjuring priests were again persecuted. Many hundreds were either sent to Cayenne or imprisoned in the hulks of Ré and Oleron. La Révellière Lépeaux seized the opportunity to propagate his religion. Many churches were turned into Theophilanthropic temples. The government strained its power to secure the recognition of thedécadias the day of public worship and the non-observance of Sunday. Liberty of the press ceased. Newspapers were confiscated and journalists were deported wholesale. It was proposed to banish from France all members of the oldnoblesse. Although the proposal was dropped, they were all declared to be foreigners and were forced to obtain naturalization if they would enjoy the rights of other citizens. A formal bankruptcy of the state, the cancelling of two-thirds of the interest on the public debt, crowned the misgovernment of this disastrous time.
In the spring of 1798 not only a new third of the legislature had to be chosen, but the places of the members expelled by the revolution of Fructidor had to be filled. The constitutional party had been rendered helpless, and the mass of the electors were indifferent. But among the Jacobins themselves there had arisen an extreme party hostile to the directors. With the support of many who were not Jacobins but detested the government, it bade fair to gain a majority. Before the new deputies could take their seats the directors forced through the councils the law of the 22nd Floréal (May 11), annulling or perverting the elections in thirty departments and excluding forty-eight deputies by name. Even thiscoup d’étatdid not secure harmony between the executive and the legislature. In the councils the directors were loudly charged with corruption and misgovernment. The retirement of François of Neufchâteau and the choice of Treilhard as his successor made no difference in the position of the Directory.
While France was thus inwardly convulsed, its rulers were doubly bound to husband the national strength and practise moderation towards other states. Since December 1797 a congress had been sitting at Rastadt to regulate the future of Germany. That it should be brought to a successful conclusion was of the utmost import for France. But the directors were driven by self-interest to new adventures abroad. Bonaparte was resolved not to sink into obscurity, and the directors were anxious to keep him as far as possible from Paris; they therefore sanctioned the expedition to Egypt which deprived the Republic of its best army and most renowned captain. Coveting the treasures of Bern, they sent Brune to invade Switzerland and remodel its constitution; in revenge for the murder of General Duphot, they sent Berthier to invade the papal states and erect the Roman Republic; they occupied and virtually annexed Piedmont. In all these countries they organized such an effective pillage that the French became universally hateful. As the armies were far below the strength required by the policy of unbounded conquest and rapine, the first permanent law of conscription was passed in the summer of 1798. The attempt to enforce it caused a revolt of the peasants in the Belgian departments. The priests were made responsible and some eight thousand were condemned in a mass to deportation, although much the greater part escaped by the goodwill of the people. Few soldiers were obtained by the conscription, for the government was as weak as it was tyrannical.
Under these circumstances Nelson’s victory of Aboukir (1st of August), which gave the British full command of the Mediterranean and secluded Bonaparte in Egypt, was the signal for a second coalition. Naples, Austria, Russia andThe second coalition.Turkey joined Great Britain against France. Ferdinand of Naples, rashly taking the offensive before his allies were ready, was defeated and forced to seek a refuge in Sicily. In January 1799 the French occupied Naples and set up the Parthenopean republic. But the consequent dispersion of their weak forces only exposed them to greater peril. At home the Directory was in a most critical position. In the elections of April 1799 a large number of Jacobins gained seats. A little later Rewbell retired. It was imperative to fill his place with a man of ability and influence. The choice fell upon Sieyès, who had kept aloof from office and retained not only his immeasurable self-conceit but the respect of the public. Sieyès felt thatthe Directory was bankrupt of reputation, and he intended to be far more than a mere member of a board. He hoped to concentrate power in his own hands, to bridle the Jacobins, and to remodel the constitution. With the help of Barras he proceeded to rid himself of the other directors. An irregularity having been discovered in Treilhard’s election, he retired, and his place was taken by Gohier. Merlin of Douai and La Révellière Lépeaux were driven to resign in June. They were succeeded by Moulin and Ducos. The three new directors were so insignificant that they could give no trouble, but for the same reason they were of little service.
Such a government was ill fitted to cope with the dangers then gathering round France. The directors having resolved on the offensive in Germany, the French crossed the Rhine early in March, but were defeated by the archdukeFrench reverses. The Directory discredited.Charles at Stockach on the 25th. The congress at Rastadt, which had sat for fifteen months without doing anything, broke up in April and the French envoys were murdered by Austrian hussars. In Italy the allies took the offensive with an army partly Austrian, partly Russian under the command of Suvárov. After defeating Moreau at Cassano on the 27th of April, he occupied Milan and Turin. The republics established by the French in Italy were overthrown, and the French army retreating from Naples was defeated by Suvárov on the Trebbia. Thus threatened with invasion on her German and Italian frontiers, France was disabled by anarchy within. The finances were in the last distress; the anti-religious policy of the government kept many departments on the verge of revolt; and commerce was almost suspended by the decay of roads and the increase of bandits. There was no real political freedom, yet none of the ease or security which enlightened despotism can bestow. The Terrorists lifted their heads in the Council of Five Hundred. A Law of Hostages, which was really a new Law of Suspects, and a progressive income tax showed the temper of the majority. The Jacobin Club was reopened and became once more the focus of disorder. The Jacobin press renewed the licence of Hébert and Marat. Never since the outbreak of the Revolution had the public temper been so gloomy and desponding.
In this extremity Sieyès chose as minister of police the old Terrorist Fouché, who best understood how to deal with his brethren. Fouché closed the Jacobin Club and deported a number of journalists. But like his predecessors Sieyès felt that for the revolution which he meditated he must have the help of a soldier. As his man of action he chose General Joubert, one of the most distinguished among French officers. Joubert was sent to restore the fortune of the war in Italy. At Novi on the 15th of August he encountered Suvárov. He was killed at the outset of the battle and his men were defeated. After this disaster the French held scarcely anything south of the Alps save Genoa. The Russian and Austrian governments then agreed to drive the enemy out of Switzerland and to invade France from the east. At the same time Holland was assailed by the joint forces of Great Britain and Russia. But the second coalition, like the first, was doomed to failure by the narrow views and conflicting interests of its members. The invasion of Switzerland was baffled by want of concert between Austrians and Russians and by Masséna’s victory at Zürich on the 25th and 26th of September. In October the British and the Russians were forced to evacuate Holland. All immediate danger to France was ended, but the issue of the war was still in suspense. The directors had been forced to recall Bonaparte from Egypt. He anticipated their order and on the 9th of October landed at Fréjus.
Dazzled by his victories in the East the public forgot that the Egyptian expedition was ending in calamity. It received him with an ardour which convinced Sieyès that he was the indispensable soldier. Bonaparte was ready to act,Coup d’état of the 18th Brumaire.but at his own time and for his own ends. Since the close of the Convention affairs at home and abroad had been tending more and more surely to the establishment of a military dictatorship. Feeling his powers equal to such an office he only hesitated about the means of attainment. At first he thought of becoming a director; finally he decided upon a partnership with Sieyès. They resolved to end the actual government by a freshcoup d’état. Means were to be taken for removing the councils from Paris to St Cloud, where pressure could more easily be applied. Then the councils would be induced to decree a provisional government by three consuls and the appointment of a commission to revise the constitution. The pretext for this irregular proceeding was to be a vast Jacobin conspiracy. Perhaps the gravest obstacles were to be expected from the army. Of the generals, some, like Jourdan, were honest republicans; others, like Bernadotte, believed themselves capable of governing France. With perfect subtlety Bonaparte worked on the feelings of all and kept his own intentions secret.
On the morning of the 18th Brumaire (November 9) the Ancients, to whom that power belonged, decreed the transference of the councils to St Cloud. Of the directors, Sieyès and his friend Ducos had arranged to resign; Barras was cajoled and bribed into resigning; Gohier and Moulins, who were intractable, found themselves imprisoned in the Luxemburg palace and helpless. So far all had gone well. But when the councils met at St Cloud on the following day, the majority of the Five Hundred showed themselves bent on resistance, and even the Ancients gave signs of wavering. When Bonaparte addressed the Ancients, he lost his self-possession and made a deplorable figure. When he appeared among the Five Hundred, they fell upon him with such fury that he was hardly rescued by his officers. A motion to outlaw him was only baffled by the audacity of the president, his brother Lucien. At length driven to undisguised violence, he sent in his grenadiers, who turned out the deputies. Then the Ancients passed a decree which adjourned the Councils for three months, appointed Bonaparte, Sieyès and Ducos provisional consuls, and named the Legislative Commission. Some tractable members of the Five Hundred were afterwards swept up and served to give these measures the confirmation of their House. Thus the Directory and the Councils came to their unlamented end. A shabby compound of brute force and imposture, the 18th Brumaire was nevertheless condoned, nay applauded, by the French nation. Weary of revolution, men sought no more than to be wisely and firmly governed.
Although the French Revolution seemed to contemporaries a total break in the history of France, it was really far otherwise. Its results were momentous and durable in proportion as they were the outcome of causes which had beenGeneral estimate of the Revolution.working long. In France there had been no historic preparation for political freedom. The desire for such freedom was in the main confined to the upper classes. During the Revolution it was constantly baffled. No Assembly after the states-general was freely elected and none deliberated in freedom. After the Revolution Bonaparte established a monarchy even more absolute than the monarchy of Louis XIV. But the desire for uniformity, for equality and for what may be termed civil liberty was the growth of ages, had been in many respects nurtured by the action of the crown and its ministers, and had become intense and general. Accordingly it determined the principal results of the Revolution. Uniformity of laws and institutions was enforced throughout France. The legal privileges formerly distinguishing different classes were suppressed. An obsolete and burthensome agrarian system was abolished. A number of large estates belonging to the crown, the clergy and the nobles were broken up and sold at nominal prices to men of the middle or lower class. The new jurisprudence encouraged the multiplication of small properties. The new fiscal system taxed men according to their means and raised no obstacle to commerce within the national boundaries. Every calling and profession was made free to all French citizens, and in the public service the principle of an open career for talent was adopted. Religious disabilities vanished, and there was well-nigh complete liberty of thought. It was because Napoleon gave a practical form to these achievements of the Revolution and ensured the public order necessary to their continuance thatthe majority of Frenchmen endured so long the fearful sacrifices which his policy exacted.
That a revolution largely inspired by generous and humane feeling should have issued in such havoc and such crimes is a paradox which astounded spectators and still perplexes the historian. Something in the cruelty of the French Revolution may be ascribed to national character. From the time when Burgundians and Armagnacs strove for dominion down to the last insurrection of Paris, civil discord in France has always been cruel. More, however, was due to the total dissolution of society which followed the meeting of the states-general. In the course of the Revolution we can discover no well-organized party, no governing mind. Mirabeau had the stuff of a great statesman, and Danton was capable of statesmanship. But these men were not followed or obeyed save by accident or for a moment. Those who seemed to govern were usually the sport of chance, often the victims of their colleagues. Neither Royalists nor Feuillants nor Girondins had the instinct of government. In the chaotic state of France all ferocious and destructive passions found ample scope. The same conditions explain the triumph of the Jacobins. Devoid of wisdom and virtue in the highest sense, they at least understood how power might be seized and kept. The Reign of Terror was the expedient of a party which knew its weakness and unpopularity. It was not necessary either to secure the lasting benefits of the Revolution or to save France from dismemberment; for nine Frenchmen out of ten were agreed on both of these points and were ready to lay down their lives for the national cause.
In the history of the French Revolution the influence which it exerted upon the surrounding countries demands peculiar attention. The French professed to act upon principles of universal authority, and from an early date they began to seek converts outside their own limits. The effect was slight upon England, which had already secured most of the reforms desired by the French, and upon Spain, where the bulk of the people were entirely submissive to church and king. But in the Netherlands, in western Germany and in northern Italy, countries which had attained a degree of civilization resembling that of France, where the middle and lower classes had grievances and aspirations not very different from those of the French, the effect was profound. Fear of revolution at home was one of the motives which led continental sovereigns to attack revolution in France. Their incoherent efforts only confirmed the Jacobin supremacy. Wherever the victorious French extended their dominion, they remodelled institutions in the French manner. Their sway proved so oppressive that the very classes which had welcomed them with most fervour soon came to long for their expulsion. But revolutionary ideas kept their charm. Under Napoleon the essential part of the changes made by the Republic was preserved in these countries also. Moreover the effacement of old boundaries, the overthrow of ancestral governments, and the invocation, however hollow, of the sovereignty of the people, awoke national feeling which had slumbered long and prepared the struggle for national union and independence in the 19th century.