The progress of the human mind means to Turgot the progress of knowledge. Its history is the history of the growth and spread of science and the arts. Its advance is increased enlightenment of the understanding. From Adam and Eve down to Lewis the Fourteenth, the record of progress is the chronicle of the ever-increasing additions to the sum of what men know, and the accuracy and fulness with which they know. The chief instrument in this enlightenment is the rising up from time to time of some lofty and superior intelligence; for though human character contains everywhere the same principle, yet certain minds are endowed with a peculiar abundance of talent that is refused to others.
"Circ.u.mstances develop these superior talents, or leave them buried in obscurity; and from the infinite variety of these circ.u.mstances springs the inequality among nations." The agricultural stage goes immediately before a decisively polished state, because it is then first that there is that surplus of means of subsistence, which allows men of higher capacity the leisure for using it in the acquisition of knowledge, properly so called.
One of the greatest steps was the precious invention of writing, and one of the most rapid was the const.i.tution of mathematical knowledge. The sciences that came next matured more slowly, because in mathematics the explorer has only to compare ideas among one another, while in the others he has to test the conformity of ideas to objective facts.
Mathematical truths, becoming more numerous every day, and increasingly fruitful in proportion, lead to the development of hypotheses at once more extensive and more exact, and point to new experiments, which in their turn furnish new problems to solve. "So necessity perfects the instrument; so mathematics finds support in physics, to which it lends its lamp; so all knowledge is bound together; so, notwithstanding the diversity of their advance, all the sciences lend one another mutual aid; and so, by force of feeling a way, of multiplying systems, of exhausting errors, so to speak, the world at length arrives at the knowledge of a vast number of truths." It might seem as if a prodigious confusion, as of tongues, would arise from so enormous an advance along so many lines. "The different sciences, originally confined within a few simple notions common to all, can now, after their advance into more extensive and difficult ideas, only be surveyed apart. But an advance, greater still, brings them together again, because that mutual dependence of all truths is discovered, which, while it links them one to another, throws light on one by another."
Alas, the history of opinion is, in one of its most extensive branches, the history of error. The senses are the single source of our ideas, and furnish its models to the imagination. Hence that nearly incorrigible disposition to judge what we are ignorant of by what we know; hence those deceptive a.n.a.logies to which the primitive rudeness of men surrenders itself. "_As they watched nature, as their eyes wandered to the surface of a profound ocean, instead of the far-off bed hidden under the waters, they saw nothing but their own likeness._ Every object in nature had its G.o.d, and this G.o.d formed after the pattern of men, had men"s attributes and men"s vices."[41] Here, in anthropomorphism, or the transfer of human quality to things not human, and the invention of spiritual existences to be the recipients of this quality, Turgot justly touched the root of most of the wrong thinking that has been as a manacle to science.
[Footnote 41: P. 601.]
His admiration for those epochs in which new truths were most successfully discovered, and old fallacies most signally routed, did not prevent Turgot from appreciating the ages of criticism and their services to knowledge. He does full justice to Alexandria, not only for its astronomy and geometry, but for that peculiar studiousness "which exercises itself less on things than on books; whose strength lies less in producing and discovering, than in collecting and comparing and estimating what has been produced and discovered; which does not press forward, but gazes backward along the road that has already been traversed. The studies that require most genius, are not always those which imply most progress in the ma.s.s of men. There are minds to which nature has given a memory capable of comparing truths, of suggesting an arrangement that places these truths in the fullest light; but to which, at the same time, she has refused that ardour of genius which insists on inventing and opening out for itself new lines of discovery. Made to unite former discoveries under a single point of view, to surround them with light, and to exhibit them in entire perfection, if they are not luminaries that burn and sparkle of themselves, at least they are like diamonds that reflect with dazzling brilliance a borrowed light."
Thus Turgot"s conception of progress regards it mainly, if not entirely, as a gradual dawn and diffusion of light, the spreading abroad of the rays of knowledge. He does not a.s.sert, as some moderns have crudely a.s.serted, that morality is of the nature of a fixed quant.i.ty; still he hints something of the kind. "Morality," he says, speaking of Greece in the time of its early physical speculation, "though still imperfect, still kept fewer relics of the infancy of reason. Those everspringing necessities which so incessantly recall man to society, and force him to bend to its laws, that instinct, that sentiment of what is good and right, which Providence has engraved in all hearts, and which precedes reason, all lead the thinkers of every time back to the same fundamental principles of the science of morals."
We meet with this limitation of the idea of progress in every member of the school to which, more than to any other, Turgot belonged. Even in the vindication of the claims of Christianity to the grat.i.tude of mankind, he had forborne from laying stress on any original contribution, supposed to be made by that religion to the precious stock of ethical ideas. He dwells upon the "tender zeal for the progress of truth that the Christian religion inspired," and recounts the various circ.u.mstances in which it spread and promoted the social and political conditions most favourable to intellectual or scientific activity.
Whatever may be the truth or the value of Christianity as a dogmatic system, there can be little doubt that its weight as a historic force is to be looked for, not so much in the encouragement it gave to science and learning, in respect of which Western Europe probably owes more to Mahometanism, as in the high and generous types of character which it inspired. A man of rare moral depth, warmth, or delicacy, may be a more important element in the advance of civilisation, than the newest and truest deduction from what Turgot calls "the fundamental principles of the science of morals." The leading of souls to do what is right and humane, is always more urgent than mere instruction of the intelligence as to what exactly is the right and the humane. The saint after all has a place in positive history; but the men of the eighteenth century pa.s.sionately threw him out from their calendar, as the mere wooden idol of superst.i.tion. They eagerly recognised the genius of scientific discovery; but they had no eyes for the genius of moral holiness.
Turgot, far as he was from many of the narrownesses of his time, yet did not entirely transcend this, the worst of them all. And because he could not perceive there to be any new growths in moral science, he left out from a front place among the forces that have given strength and ripeness to the human mind, the superior capacity of some men for kindling, by word and example, the glowing love and devout practice of morality in the b.r.e.a.s.t.s of many generations of their fellows.
The mechanical arts, Turgot says, were preserved in the dark ages by the necessities of existence, and because "it is impossible but that out of the crowd of artisans practising them, there should arise from time to time one of those men of genius who are found mingled with other men, as gold is found mingled with the earth of a mine." Surely in the same way holy men arose, with keener feeling for the spiritual necessities of the time, and finer knowledge to train and fit the capacities of human nature to meet these needs, and make their satisfaction the basis for yet loftier standards and holier aspirations and n.o.bler and more careful practice. The work of all such men deserved a place in an outline of the progressive forces of the human mind, as much as the work of those who invented bills of exchange, the art of musical notation, windmills, clocks, gunpowder, and all the other material instruments for multiplying the powers of man and the conveniences of life.
Even if we give Turgot the benefit of the doubt whether he intended to describe more than the progress of the human intelligence, or the knowing part of the mind, the omission of the whole moral side is still a defect. For as he interprets knowledge to be the conformity of our ideas to facts, has there not been a clearly recognisable progress in the improved conformity of our ideas to the most momentous facts of all, the various circ.u.mstances of human action, its motives and consequences? No factor among the const.i.tuents of a progressive civilisation deserves more carefully to be taken into account, than the degree in which the current opinion and usage of a society recognise the comprehensiveness of moral obligation. More than upon anything else, does progress depend on the kinds of conduct which a community cla.s.sifies as moral or immoral, and upon the wider or narrower inclusiveness within rigid ethical boundaries of what ought or ought not to be left open and indifferent. The conditions which create and modify these ethical regulations,--their law in a word,--form a department of the history of the human mind, which can be almost less readily dispensed with than any other. What sort of a history of Europe would that be, which should omit, for example, to consider the influence of the moral rigour of Calvinism upon the growth of the nations affected by it?
Moreover, Turgot expressly admits the ever-present wants of society to be the stimulating agents, as well as the guides, of scientific energy.
He expressly admits, too, that they are constantly plucking men by the skirt, and forcing them back to social rules of conduct. It is certain, therefore, that as the necessities of society increase in number and complexity, morality will be developed to correspond with them, and the way in which new applications of ethical sentiments to the demands of the common weal are made, is as interesting and as deserving of a place in any scientific inquiry into social progress, as the new applications of physical truths to satisfy material needs and to further material convenience. Turgot justly points to the perfecting of language as one of the most important of the many processes that go to the general advancement of the race.[42] Not less, but more, important is the a.n.a.logous work of perfecting our ideas of virtue and duty. Surely this chamber, too, in the great laboratory deserves that the historian should unseal its door and explore its recesses.
[Footnote 42: P. 603.]
The characteristic merits of the second of the two discourses at the Sorbonne may be briefly described in this way. It recognises the idea of ordered succession in connection with the facts of society. It considers this succession as one, not of superficial events, but of working forces. Thus Bolingbroke, writing fifteen years before, had said that "as to events that stand recorded in history, we see them all, we see them as they followed one another, or as they produced one another, causes or effects, immediate or remote."[43] But it is very evident from his ill.u.s.trations that by all this he understood no more than the immediate connection between one transaction and another. He thought, for example, of the Revolution of 1688 being a consequence of the bad government of James the Second; of this bad government springing from the king"s attachment to popery; this in turn being caused by the exile of the royal family; this exile having its source in Cromwell"s usurpation; and so forth, one may suppose, down to the Noachian flood, or the era when the earth was formless and void. It is mere futility to talk of cause and effect in connection with a string of arbitrarily chosen incidents of this sort. Cause and effect, in Turgot"s sense of history, describe a relation between certain sets or groups of circ.u.mstances, that are of a peculiarly decisive kind, because the surface of events conforms itself to their inner working. His account of these deciding circ.u.mstances was not what we should be likely to accept now, because he limited them too closely to purely intellectual acquisitions, as we have just seen, and because he failed to see the necessity of tracing the root of the whole growth to certain principles in the mental const.i.tution of mankind. But, at all events, his conception of history rose above merely individual concerns, embraced the successive movements of societies and their relations to one another, and sought the spring of revolutions in the affairs of a community in long trains of preparing conditions, internal and external.
Above all, history was a whole. The fortunes and achievements of each nation were scrutinised for their effect on the growth of all mankind.
[Footnote 43: _Study of History_, Letter ii.]
IV.
In the year 1761, Turgot, then in his thirty-fourth year, was appointed to the office of Intendant in the Generality of Limoges. There were three different divisions of France in the eighteenth century: first and oldest, the diocese or ecclesiastical circ.u.mscription; second, the province or military government; and third, the Generality, or a district defined for fiscal and administrative purposes. The Intendant in the government of the last century was very much what the Prefect is in the government of our own time. Perhaps, however, we understand Turgot"s position in Limousin best, by comparing it to that of the Chief Commissioner of some great district in our Indian Empire. For example, the first task which Turgot had to perform was to execute a new land-a.s.sessment for purposes of imperial revenue. He had to construct roads, to build barracks, to administer justice, to deal with a famine, just as the English civilian has to do in Orissa or Behar. Much of his time was taken up in elaborate memorials to the central government, and the desk of the controller-general at Versailles was loaded with minutes and reports exactly like the voluminous papers which fill the mahogany boxes of the Members of Council and the Home Secretary at Calcutta. The fundamental conditions of the two systems of government were much alike; absolute political authority, and an elaborately centralised civil administration for keeping order and raising a revenue. The direct authority of an Intendant was not considerable. His chief functions were the settlement of detail in executing the general orders that he received from the minister; a provisional decision on certain kinds of minor affairs; and a power of judging some civil suits, subject to appeal to the Council. But though the Intendant was so strictly a subordinate, yet he was the man of the government, and thoroughly in its confidence. The government only saw with his eyes, and only acted on the faith of his reports, memorials, and requisitions; and this in a country where the government united in itself all forms of power, and was obliged to be incessantly active and to make itself felt at every point.
Of all the thirty-two great districts in which the authority of the Intendant stood between the common people and the authority of the minister at Versailles, the Generality of Limoges was the poorest, the rudest, the most backward, and the most miserable. To the eye of the traveller with a mind for the picturesque, there were parts of this central region of France whose smiling undulations, delicious water-scenes, deep glens extending into amphitheatres, and slopes hung with woods of chestnut, all seemed to make a lovelier picture than the cheerful beauty of prosperous Normandy, or the olive-groves and orange-gardens of Provence. Arthur Young thought the Limousin the most beautiful part of France. Unhappily for the cultivator, these gracious conformations belonged to a harsh and churlish soil. For him the roll of the chalk and the ma.s.sing of the granite would have been well exchanged for the fat loams of level Picardy. The soil of the Limousin was declared by its inhabitants to be the most ungrateful in the whole kingdom, returning no more than four net for one of seed sown, while there was land in the vale of the Garonne that returned thirty-fold. The two conditions for raising tolerable crops were abundance of labour and abundance of manure. But misery drove the men away, and the stock were sold to pay the taxes. So the land lacked both the arms of the tiller, and the dressing whose generous chemistry would have trans.m.u.ted the dull earth into fruitfulness and plenty. The extent of the district was estimated at a million and a half of hectares, equivalent to nearly four millions of English acres: yet the population of this vast tract was only five hundred thousand souls. Even to-day it is not more than eight hundred thousand.
The common food of the people was the chestnut, and to the great majority of them even the coa.r.s.est rye-bread was a luxury that they had never tasted. Maise and buckwheat were their chief cereals, and these, together with a coa.r.s.e radish, took up hundreds of acres that might under a happier system have produced fine wheat and nourished fruit-trees. There had once been a certain export of cattle, but that had now come to an end, partly because the general decline of the district had impaired the quality of the beasts, and partly because the Parisian butchers, who were by much the greatest customers, had found the markets of Normandy more convenient. The more the trade went down, the heavier was the burden of the cattle-tax on the stock that remained.
The stock-dealer was thus ruined from both sides at once. In the same way, the Limousin horses, whose breed had been famous all over France, had ceased to be an object of commerce, and the progressive increase of taxation had gradually extinguished the trade. Angoumois, which formed part of the Generality of Limoges, had previously boasted of producing the best and finest paper in the world, and it had found a market not only throughout France, but all over Europe. There had been a time when this manufacture supported sixty mills; at the death of Lewis XIV. their number had fallen from sixty to sixteen. An excise duty at the mill, a duty on exportation at the provincial frontier, a duty on the importation of rags over the provincial frontier,--all these vexations had succeeded in reducing the trade with Holland, one of France"s best customers, to one-fourth of its previous dimensions. Nor were paper and cattle the only branches of trade that had been blighted by fiscal perversity. The same burden arrested the transport of saffron across the borders of the province, on its way to Hungary and Prussia and the other cold lands where saffron was a favourite condiment. Salt which came up the Charente from the marshes by the coast, was stripped of all its profit, first by the duty paid on crossing from the Limousin to Perigord and Auvergne, and next by the right possessed by certain of the great lords on the banks of the Charente to help themselves at one point and another to portions of the cargo. Iron was subject to a hara.s.sing excise in all those parts of the country that were beyond the jurisdiction of the parlement of Bordeaux. The effect of such positive hindrances as these to the transit of goods was further aided, to the destruction of trade, by the absence of roads. There were four roads in the province, but all of them so bad that the traveller knew not whether to curse more l.u.s.tily the rocks or the swamps that interrupted his journey alternately. There were two rivers, the Vienne and the Vezere, and these might seem to an enthusiast for the famous argument from Design, as if Nature had intended them for the transport of timber from the immense forests that crowned the Limousin hills. Unluckily, their beds were so thickly bestrewn with rock that neither of them was navigable for any considerable part of its long course through the ill-starred province.
The inhabitants were as cheerless as the land on which they lived. They had none of the fiery energy, the eloquence, the mobility of the people of the south. Still less were they endowed with the apt intelligence, the ease, the social amiability, the openness, of their neighbours on the north. "The dwellers in Upper Limousin," said one who knew them, "are coa.r.s.e and heavy, jealous, distrustful, avaricious." The dwellers in Lower Limousin had a less repulsive address, but they were at least as narrowly self-interested at heart, and they added a capacity for tenacious and vindictive hatred. The Limousins had the superst.i.tious doctrines of other semi-barbarous populations, and they had their vices.
They pa.s.sed abruptly and without remorse from a penitential procession to the tavern and the brothel. Their Christianity was as superficial as that of the peasant of the Eifel in our own day, or of the Finnish converts of whom we are told that they are even now not beyond sacrificing a foal in honour of the Virgin Mary. Saint Martial and Saint Leonard were the patron saints of the country, and were the objects of an adoration in comparison with which the other saints, and even G.o.d himself, were thrust into a secondary place.
In short, the people of the Generality of Limoges represented the most unattractive type of peasantry. They were deeply superst.i.tious, violent in their prejudices, obstinate withstanders of all novelty, rude, dull, stupid, perverse, and hardly redeeming a narrow and blinding covetousness by a stubborn and mechanical industry. Their country has been fixed upon as the cradle of Celtic nationality in France, and there are some who believe that here the old Gaulish blood kept itself purer from external admixture than was the case anywhere else in the land. In our own day, when an orator has occasion to pay a compliment to the townsmen of Limoges, he says that the genius of the people of the district has ever been faithful to its source; it has ever held the balance true between the Frank tradition of the north, and the Roman tradition of the south. This makes an excellent period for a rhetorician, but the fact which it conveys made Limousin all the severer a task for an administrator. Almost immediately after his appointment, Turgot had the chance of being removed to Rouen, and after that to Lyons. Either of these promotions would have had the advantages of a considerable increase of income, less laborious duties, and a much more agreeable residence. Turgot, with a high sense of duty that probably seemed quixotic enough to the Controller-General, declined the preferment, on the very ground of the difficulty and importance of the task that he had already undertaken. "_Poor peasants, poor kingdom!_"
had been Quesnay"s constant exclamation, and it had sunk deep into the spirit of his disciple. He could have little thought of high salary or personal ease, when he discerned an opportunity of improving the hard lot of the peasant, and softening the misfortunes of the realm.
Turgot was one of the men to whom good government is a religion. It might be said to be the religion of all the best men of that century, and it was natural that it should be so. The decay of a theology that places our deepest solicitudes in a sphere beyond this, is naturally accompanied by a transfer of these high solicitudes to a nearer scene.
But though the desire for good government, and a right sense of its cardinal importance, were common ideas of the time in all the best heads from Voltaire downwards, yet Turgot had a patience which in them was universally wanting. There are two sorts of mistaken people in the world: those who always think that something could and ought to have been done to prevent disaster, and those who always think that nothing could have been done. Turgot was very far removed indeed from the latter cla.s.s, but, on the other side, he was too sagacious not to know that there are some evils of which we do well to bear a part, as the best means of mitigating the other part. Though he respected the writings of Rousseau and confessed his obligations to them, Turgot abhorred declamation. He had no hope of clearing society of the intellectual and moral debris of ages at a stroke. Nor had he abstract standards of human bliss. The keyword to his political theory was not Pity nor Benevolence, but Justice. "We are sure to go wrong," he said once, when pressed to confer some advantage on the poor at the cost of the rich, "the moment we forget that _justice alone can keep the balance true among all rights and all interests_." Let us proceed to watch this principle actively applied in a field where it was grievously needed.
As everybody knows, the great fiscal grievance of old France was the _taille_, a tax raised on property and income, but only on the property and income of the unprivileged cla.s.ses. In the Limousin Turgot"s predecessor tried to subst.i.tute for the arbitrary _taille_, a tax systematically a.s.sessed in proportion to the amount of the person"s property. Such a design involved a complete re-measurement and re-valuation of all the land of the Generality, and this was a task of immense magnitude and difficulty. It was very imperfectly performed, and Turgot found the province groaning under a ma.s.s of fiscal anomalies and disorders. a.s.sessment, collection, exemption, were all alike conducted without definite principles or uniform system. Besides these abuses, the total sum demanded from the Generality by the royal government was greatly in excess of the local resources. The district was heavily overcharged, relatively to other districts around it. No deduction had been made from the sum exacted by the treasury, though the falling off in prosperity was great and notorious. Turgot computed that "the king"s share" was as large as that of the proprietors; in other words, taxation absorbed one half of the net products of the land. The government listened to these representations, and conceded to the Generality about half of the remissions that Turgot had solicited. A greater operation was the re-adjustment of the burden, thus lightened, within the province. The people were so irritated by the disorders which had been introduced by the imperfect operation of the proportional _taille_, that with the characteristic impatience of a rude and unintelligent population, they were heedlessly crying out for a return to the more familiar, and therefore more comfortable, disorders of the arbitrary _taille_. Turgot, as was natural, resisted this slovenly reaction, and applied himself with zealous industry to the immense and complex work of effecting a complete revision and settlement of the regulations for a.s.sessment, and, what was a more gigantic enterprise, of carrying out a new survey and new valuation of lands and property, to serve as a true base for the application of an equitable a.s.sessment. At the end of thirteen years of indomitable toil the work was still unfinished, chiefly owing to want of money for its execution. The court wasted more in a fortnight in the easy follies of Versailles, than would have given to the Limousin the instrument of a finished scheme of fiscal order.
Turgot"s labour was not wholly thrown away. The worst abuses were corrected, and the most crying iniquities swept away, save that iniquity of the exemption of the privileged orders, which Turgot could not yet venture to touch.
Let us proceed to another of the master abuses of the old system. The introduction of the _Corvee_, in the sense in which we have to speak of it, dates no further back than the beginning of the eighteenth century.
It was an encroachment and an innovation on the part of the bureaucracy, and the odd circ.u.mstance has been remarked that the first mention of the road _corvees_ in any royal Act is the famous edict of 1776, which suppressed them. Until the Regency this famous word had described only the services owed by dependents to their lords. It meant so many days"
labour on the lord"s lands, and so many offices of domestic duty. When, in the early part of the century, the advantages of a good system of high-roads began to be perceived by the government, the convenient idea came into the heads of the more ingenious among the Intendants of imposing, for the construction of the roads, a royal or public _corvee_ a.n.a.logous to that of private feudalism. Few more mischievous imposts could have been devised.
That undying cla.s.s who are contented with the shallow presumptions of _a priori_ reasoning in economic matters, did, it is true, find specious pleas even for the road _corvee_. There has never been an abuse in the history of the world, for which something good could not be said. If men earned money by labour and the use of their time, why not require from them time and labour instead of money? By the latter device, are we not a.s.sured against malversation of the funds? Those who subst.i.tute words for things, and verbal plausibilities for the observation of experience, could prolong these arguments indefinitely. The evils of the road _corvee_, meanwhile remained patent and indisputable. In England at the same period, it is true, the country people were obliged to give six days in the year to the repair of the highways, under the management of the justices of the peace. And in England the business was performed without oppression. But then this only ill.u.s.trates the unwisdom of arguing about economic arrangements in the abstract. All depends on the conditions by which the given arrangement is surrounded, and a practice that in England was merely clumsy, was in France not only clumsy but a gross cruelty. There the burden united almost all the follies and iniquities with which a public service could be loaded. The French peasant had to give, not six, but twelve or fifteen days of labour every year for the construction and repair of the roads of his neighbourhood.
If he had a horse and cart, they too were pressed into the service. He could not choose the time, and he was constantly carried away at the moment when his own poor harvest needed his right arm and his supervision. He received no pay, and his days on the roads were days of hunger to himself and his family. He had the bitterness of knowing that the advantage of the high-road was slight, indirect, and sometimes null to himself, while it was direct and great to the town merchants and the country gentlemen, who contributed not an hour nor a sou to the work. It was exactly the most indigent upon whose backs this slavish load was placed. There were a hundred abuses of spite or partiality, of favouritism or vengeance, in the allotment of the work. The wretch was sent to the part of the road most distant from his own house; or he was forced to work for a longer time than fell fairly to his share; or he saw a neighbour allowed to escape on payment of a sum of money. And at the end of all the roads were vile. The labourers, having little heart in work for which they had no wage, and weakened by want of food, did badly what they had to do. There was no scientific superintendence, no skilled direction, no system in the construction, no watchfulness as to the maintenance. The rains of winter and the storms of summer did damage that one man could have repaired by careful industry from day to day, and that for lack of this one man went on increasing, until the road fell into holes, the ditches got filled up, and deep pools of water stood permanently in the middle of the highway. The rich disdained to put a hand to the work; the poor, aware that they would be forced to the hated task in the following autumn or spring, naturally attended to their own fields, and left the roads to fall to ruin.
It need not be said that this barbarous slovenliness and disorder meant an incredible waste of resources. It was calculated that a contractor would have provided and maintained fine roads for little more than one-third of the cost at which the _corvee_ furnished roads that were execrable. Condorcet was right in comparing the government in this matter to a senseless fellow, who indulges in all the more lavish riot, because by paying for nothing, and getting everything at a higher price on credit, he is never frightened into sense by being confronted with a budget of his prodigalities.
It takes fewer words to describe Turgot"s way of dealing with this oriental mixture of extravagance, injustice, and squalor. The Intendant of Caen had already proposed to the inhabitants of that district the alternative plan of commuting the _corvee_ into a money payment. Turgot adopted and perfected this great transformation. He subst.i.tuted for personal service on the roads a yearly rate, proportional in amount to the _taille_. He inst.i.tuted a systematic survey and direction of the roads, existing or required in the Generality, and he committed the execution of the approved plans to contractors on exact and business-like principles. The result of this change was not merely an immense relief to the unfortunate men who had been every year hara.s.sed to death and half-ruined by the old method of forced labour, but so remarkable an improvement both in the goodness and extension of the roads, that when Arthur Young went over them five and twenty years afterwards, he p.r.o.nounced them by far the n.o.blest public ways to be found anywhere in France.
Two very instructive facts may be mentioned in connection with the suppression of the _corvees_ in the Limousin. The first is that the central government a.s.sented to the changes proposed by the young Intendant, as promptly as if it had been a committee of the Convention, instead of being the nominee of an absolute king. The other is that the people in the country, when Turgot had his plans laid before them in their parish meetings held after ma.s.s on Sundays, listened with the keenest distrust and suspicion to what they insisted on regarding as a sinister design for exacting more money from them. Well might Condorcet say that very often it needs little courage to do men harm, for they constantly suffer harm tranquilly enough; but when you take it into your head to do them some service, then they revolt and accuse you of being an innovator. It is fair, however, to remember how many good grounds the French countryman had for distrusting the professions of any agent of the government. For even in the case of this very reform, though Turgot was able to make an addition to the _taille_ in commutation of the work on the roads, he was not able to force a contribution, either to the _taille_ or any other impost, from the privileged cla.s.ses, the very persons who were best able to pay. This is only an ill.u.s.tration of what is now a well-known fact, that revolution was made necessary less by despotism than by privilege on the one side, and by intense political distrust on the other side.
Turgot was thoroughly awake to the necessity of penetrating public opinion. The first principle of the school of Economists was an "enlightened people." Nothing was to be done by them; everything was to be done for them. But they were to be trained to understand the grounds of the measures which a central authority conceived, shaped, and carried into practice. Rousseau was the only writer of the revolutionary school who had the modern democratic faith in the virtue and wisdom of the common people. Voltaire habitually spoke of their bigotry and prejudice with the natural bitterness of a cultivated man towards the incurable vices of ignorance. The Economists admitted Voltaire"s view as true of an existing state of things, but they looked to education, meaning by that something more than primary instruction, to lead gradually to the development of sound political intelligence. Hence when Turgot come into full power as the minister of Lewis XVI., twelve years after he first went to his obscure duties in the Limousin, he introduced the method of prefacing his edicts by an elaborate statement of the reasons on which their policy rested. And on the same principle he now adopted the only means at his disposal for instructing and directing opinion. The book-press was at that moment doing tremendous work among the cla.s.ses with education and leisure. But the newspaper press hardly existed, and even if it had existed, however many official journals Turgot might have had under his inspiration, the people whose minds he wished to affect were unable to read. There was only one way of reaching them, and that was through the priests. Religious life among the Limousins was, as we have seen, not very pure, but it is a significant law of human nature that the less pure a religion is, the more important in it is the place of the priest and his office. Turgot pressed the cures into friendly service. It is a remarkable fact, not without a parallel in other parts of modern history, that of the two great conservative corporations of society, the lawyers did all they could to thwart his projects, and the priests did all they could to advance them. In truth the priests are usually more or less sympathetic towards any form of centralised authority; it is only when the people take their own government into their own hands that the clergy are sure to turn cold or antipathetic towards improvement. There is one other reservation, as Turgot found out in 1775, when he had been transferred to a greater post, and the clergy had joined his bitterest enemies. Then he touched the corporate spirit, and perceived that for authority to lay a hand on ecclesiastical privilege is to metamorphose goodwill into the most rancorous malignity.
Meanwhile, the letters in which Turgot explained his views and wishes to the cures, by them to be imparted to their parishes, are masterpieces of the care, the patience, the interest, of a good ruler. Those impetuous and peremptory spirits who see in Frederick or Napoleon the only born rulers of men, might find in these letters, and in the acts to which they refer, the memorials of a far more admirable and beneficent type.
The _corvee_, vexatious as it was, yet excited less violent heats and inflicted less misery than the abuses of military service. There had been a militia in the country as far back as the time of the Merovingians, but the militia-service with which Turgot had to deal only dated from 1726. Each parish was bound to supply its quota of men to this service, and the obligation was perhaps the most odious grievance, though not the most really mischievous, of all that then afflicted the realm. The hatred which it raised was due to no failure of the military spirit in the people. From Frederick the Great downwards, everybody was well aware that the disasters to France which had begun with the shameful defeat of Rossbach and ended with the loss of Canada in the west and the Indies in the east (1757-1763), were due to no want of valour in the common soldier. It was the generals, as Napoleon said fifty years afterwards, who were incapable and inept. And it was the inept.i.tude of the administrative chiefs that made the militia at once ineffective and abhorred. First, they allowed a great number of cla.s.sified exemptions from the ballot. The n.o.ble, the tonsured clerk, the counsellor, the domestic of n.o.ble, tonsured clerk, and counsellor, the eldest son of the lawyer and the farmer, the tax collector, the schoolmaster, were all exempt. Hence the curse of service was embittered by a sense of injustice. This was one of the many springs in the old regime that fed the swelling and vehement stream of pa.s.sion for social equality, until at length when the day came, it made such short and furious work with the structure of envious part.i.tion between citizen and citizen.
Again, by a curious perversity of official pedantry, the government insisted on each man who drew the black ticket in the abhorred lottery, performing his service in person. It forbade subst.i.tution. Under a modern system of universal military service, this is perfectly intelligible and just. But, as we have seen, military service was only made obligatory on those who were already ground down by hardships. As a consequence of this prohibition, those who were liable to be drawn lived in despair, and as no worse thing than the black ticket could possibly befall them, they had every inducement to run away from their own homes and villages. At the approach of the commissary of the government, they fled into the woods and marshes, as if they had been pursued by the plague. This was a signal for a civil war on a small scale. Those who were left behind, and whose chance of being drawn was thus increased, hastened to pursue the fugitives with such weapons as came to their hands. In the Limousin the country was constantly the scene of murderous disorders of this kind. What was worse, was not only that the land was infested by vagabonds and bad characters, but that villages became half depopulated, and the soil lost its cultivators. Finally, as is uniformly the case in the history of bad government, an unjust method produced a worthless machine. The _milice_ supplied as bad troops as the _corvee_ supplied bad roads. The force was recruited from the lowest cla.s.s of the population, and as soon as its members had learned a little drill, they were discharged and their places taken by raw batches provided at random by blind lot.
Turgot proposed that a character both of permanence and locality should be given to the provincial force; that each parish or union of parishes should be required to raise a number of men; that these men should be left at home and in their own districts, and only called out for exercise for a certain time each year; and that they should be retained as a reserve force by a small payment. In this way, he argued that the government would secure a competent force, and by stimulating local pride and point of honour would make service popular instead of hateful.
As the government was too weak and distracted to take up so important a scheme as this, Turgot was obliged to content himself with evading the existing regulations; and it is a curious ill.u.s.tration of the pliancy of Versailles, that he should have been allowed to do so openly and without official remonstrance. He permitted the victim of the ballot to provide a voluntary subst.i.tute, and he permitted the parish to tempt subst.i.tutes by payment of a sum of money on enrolment. This may seem a very obvious course to follow; but no one who has tried to realise the strength and obstinacy of routine, will measure the service of a reformer by the originality of his ideas. In affairs of government, the priceless qualities are not merely originality of resource, but a sense for things that are going wrong, and a sufficiently vigorous will to set them right.
One general expression serves to describe this most important group of Turgot"s undertakings. The reader has probably already observed that what Turgot was doing, was to take that step which is one of the most decisive in the advance of a society to a highly organised industrial stage. He displaced imposts in kind, that rudest and most wasteful form of contribution to the public service, and established in their stead a system of money payments, and of having the work of the government done on commercial principles. Thus, as if it were not enough to tear the peasant away from the soil to serve in the militia, as if it were not enough to drag away the farmer and his cattle to the public highways, the reigning system struck a third blow at agriculture by requiring the people of the localities that happened to be traversed by a regiment on the march, to supply their waggons and horses and oxen for the purposes of military transport. In this case, it is true, a certain compensation in money was allowed, but how inadequate was this insignificant allowance, we may easily understand. The payment was only for one day, but the day"s march was often of many miles, and the oxen, which in the Limousin mostly did the work of horses, were constantly seen to drop down dead in the roads. There was not only the one day"s work. Often two, three, or five days were needed to reach the place of appointment, and for these days not even the paltry twenty sous were granted. Nor could any payment of this kind recompense the peasant for the absence of his beasts of burden on the great days when he wanted to plough his fields, to carry the grain to the barns, or to take his produce to market. The obvious remedy here, as in the _corvees_ was to have the transport effected by a contractor, and to pay him out of a rate levied on the persons liable. This was what Turgot ordered to be done.
Of one other burden of the same species he relieved the cultivator. This unfortunate being was liable to be called upon to collect, as well as to pay, the taxes. Once nominated, he became responsible for the amount at which his commune was a.s.sessed. If he did not produce the sum, he lost his liberty. If he advanced it from his own pocket, he lost at least the interest on the money. In collecting the money from his fellow taxpayers, he not only incurred bitter and incessant animosities, but, what was harder to bear, he lost the priceless time of which his own land was only too sorely in need. In the Limousin the luckless creature had a special disadvantage, for here the collector of the _taille_ had also to collect the twentieths, and the twentieths were a tax for which even the privileged cla.s.ses were liable. They, as might be supposed, cavilled, disputed, and appealed. The appeal lay to a sort of county board, which was composed of people of their own kind, and before which they too easily made out a plausible case against a clumsy collector, who more often than not knew neither how to read nor to write. Turgot"s reform of a system which was always hara.s.sing and often ruinous to an innocent individual, consisted in the creation of the task of collection into a distinct and permanent office, exercised over districts sufficiently large to make the poundage, out of which the collectors were paid, an inducement to persons of intelligence and spirit to undertake the office as a profession. However moderate and easy each of these reforms may seem by itself, yet any one may see how the sum of them added to the prosperity of the land, increased the efficiency of the public service, and tended to lessen the grinding sense of injustice among the common people.
Apart from these, the greatest and most difficult of all Turgot"s administrative reforms, we may notice in pa.s.sing his a.s.siduity in watching for the smaller opportunities of making life easier to the people of his province. His private benevolence was incessant and marked. One case of its exercise carries our minds at a word into the very midst of the storm of fire which purified France of the evil and sordid elements, that now and for his life lay like a mountain of lead on all Turgot"s aims and efforts. A certain foreign contractor at Limoges was ruined by the famine of 1770. He had a clever son, whom Turgot charitably sent to school, and afterwards to college in Paris.
The youth grew up to be the most eloquent and dazzling of the Girondins, the high-souled Vergniaud. It was not, however, in good works of merely private destination that Turgot mostly exercised himself. In 1767 the district was infested by wolves. The Intendant imposed a small tax for the purpose of providing rewards for the destruction of these tormentors, and in reading the minutes on the subject we are reminded of the fact, which was not without its significance when the peasants rose in vengeance on their lords two and twenty years later, that the dispersion of the hamlets and the solitude of the farms had made it customary for the people to go about with fire-arms. Besides encouraging the destruction of noxious beasts, Turgot did something for the preservation of beasts not noxious. The first veterinary school in France had been founded at Lyons in 1762. To this he sent pupils from his province, and eventually he founded a similar school at Limoges. He suppressed a tax on cattle, which acted prejudicially on breeding and grazing; and he introduced clover into the gra.s.s-lands. The potato had been unknown in Limousin. It was not common in any part of France; and perhaps this is not astonishing when we remember that the first field crop even in agricultural Scotland is supposed only to have been sown in the fourth decade of that century. People would not touch it, though the experiment of persuading them to cultivate this root had been frequently tried. In the Limousin the people were even more obstinate in their prejudice than elsewhere. But Turgot persevered, knowing how useful potatoes would be in a land where scarcity of grain was so common. The ordinary view was that they were hardly fit for pigs, and that in human beings they would certainly breed leprosy. Some of the English Puritans would not eat potatoes because they are not mentioned in the Bible, and that is perhaps no better a reason than the other.
When, however, it was seen that the Intendant had the hated vegetable served every day at his own table, the opposition grew more faint; men were at last brought to consent to use potatoes for their cattle, and after a time even for themselves.
It need scarcely be said that among Turgot"s efforts for agricultural improvement, was the foundation of an agricultural society. This was the time when the pa.s.sion for provincial academies of all sorts was at its height. When we consider that Turgot"s society was not practical but deliberative, and what themes he proposed for discussion by it, we may believe that it was one of the less useful of his works. What the farmers needed was something much more directly instructive in the methods of their business, than could come of discussions as to the effects of indirect taxation on the revenues of landowners, or the right manner of valuing the income of land in the different kinds of cultivation. "In that most unlucky path of French exertion," says Arthur Young, "this distinguished patriot was able to do nothing. This society does like other societies; they meet, converse, offer premiums, and publish nonsense. This is not of much consequence, for the people instead of reading their memoirs are not able to read at all. They can, however, _see_, and if a farm was established in that good cultivation which they ought to copy, something would be presented from which they _might_ learn. I asked particularly if the members of this society had land in their own hands, and was a.s.sured that they had; but the conversation presently explained it. They had _metayers_ round their country seats, and this was considered as farming their own lands, so that they a.s.sume something of a merit from the identical circ.u.mstance, which is the curse and ruin of the whole country."
The record of what Turgot did for manufacturing industry and commerce is naturally shorter than that of his efforts for the relief of the land and its cultivators. In the eyes of the modern economist, with his horror of government encouragement to industry, no matter in what time, place, or circ.u.mstance, some of Turgot"s actions will seem of doubtful wisdom. At Brives, for example, with all the authority of an Intendant, he urged the citizens to provide buildings for carrying on a certain manufacture which he and others thought would be profitable to the town; and, as the money for the buildings did not come in very readily, he levied a rate both on the town and on the inhabitants of the suburbs.
His argument was that the new works would prove indirectly beneficial to the whole neighbourhood. He was not long, however, in finding out, as the authors of such a policy generally find out, how difficult it is to reconcile the interests of aided manufactures with those of the taxpayers. It is characteristic, we may remark, of the want of public spirit in the great n.o.bles, that one of Turgot"s first difficulties in the affair was to defeat an unjust claim made by no less a personage than the Marshal de Noailles, to a piece of public land on which the proposed works were to be built. A more important industry in the history of Limoges sprang from the discovery, during Turgot"s tenure of office, of the china clay which has now made the porcelain of Limoges only second among the French potteries to that of Sevres itself. The modern pottery has been developed since the close of the Revolution, which checked the establishments and processes that had been directed, encouraged, and supervised by Turgot.
To his superior enlightenment in another part of the commercial field we owe one of the most excellent of Turgot"s pieces, his Memorial on Loans of Money. This plea for free trade in money has all the sense and liberality of the brightest side of the eighteenth century illumination.
It was suggested by the following circ.u.mstance. At Angouleme four or five rogues a.s.sociated together, and drew bills on one another. On these bills they borrowed money, the average rate of interest being from eight to ten per cent. When the bills fell due, instead of paying them, they laid informations against the lenders for taking more than the legal rate of interest. The lenders were ruined, persons who had money were afraid to make advances, bills were protested, commercial credit was broken, and the trade of the district was paralysed. Turgot prevailed upon the Council of State to withdraw the cases from the local jurisdiction; the proceedings against the lenders were annulled, and the inst.i.tution of similar proceedings forbidden. This was a characteristic course. The royal government was generally willing in the latter half of the eighteenth century to redress a given case of abuse, but it never felt itself strong enough, or had leisure enough, to deal with the general source from which the particular grievance sprang. Turgot"s Memorial is as cogent an exposure of the mischief of Usury Laws to the public prosperity, as the more renowned pages either of Bentham or J. B.
Say on the same subject, and it has the merit of containing an explanation at once singularly patient and singularly intelligent, of the origin of the popular feeling about usury and its adoption by the legislator.
After he had been eight years at his post, Turgot was called upon to deal with the hara.s.sing problems of a scarcity of food. In 1770 even the maize and black grain, and the chestnuts on which the people supported life, failed almost completely, and the failure extended over two years.