Part 20

By these proceedings the Tiers Etat and a few of the clergy declared themselves the national legislature. Then and thereafter the National Assembly assumed full sovereign and constituent powers. Nobles and clergy might come in if they pleased, but it could do without them. The king's assent to its measures would be convenient, but not necessary. This boldness was rewarded, for on the 19th the clergy decided by a majority of one in favour of joint verification. On the same day the nobles voted an address to the king condemning the action of the Tiers Etat. Left to himself, Louis might have been too inert for resistance. But the queen and his brother, the count of Artois, with some of the ministers and courtiers, urged him to make a stand. A Seance Royale was notified for the 22nd and workmen were sent to prepare the Salle des Menus Plaisirs for the ceremony. On the 20th Bailly and the deputies proceeded to the hall and found it barred against their entrance. Thereupon they adjourned to a neighbouring tennis court, where Mounier proposed that they should swear not to separate until they had established the constitution. With a solitary exception they swore and the Oath of the Tennis Court became an era in French history. As the ministers could not agree on the policy which the king should announce in the Seance Royale, it was postponed to the 23rd. The Assembly found shelter in the church of St Louis, where it was joined by the main body of the clergy and by the first of the nobles.

At the Seance Royale Louis made known his will that the Estates should deliberate apart, and declared that if they should refuse to help him he would do by his sole authority what was necessary for the happiness of his people. When he quitted the hall, some of the clergy and most of the nobles retired to their separate chambers. But the rest, together with the Tiers Etat, remained, and Mirabeau declared that, as they had come by the will of the nation, force only should make them withdraw. "Gentlemen," said Sieyes, "you are to-day what you were yesterday." With one voice the Assembly proclaimed its adhesion to its former decrees and the inviolability of its members. In Versailles and in Paris popular feeling was clamorous for the Assembly and against the court. During the next few days many of the clergy and nobles, including the archbishop of Paris and the duke of Orleans, joined the Assembly. Louis tamely accepted his defeat. He recalled Necker, who had resigned after the Seance Royale. On the 27th he wrote to those clerical and noble deputies who still held out, urging submission. By the 2nd of July the joint verification of powers was completed. The last trace of the historic States-General disappeared and the National Assembly was perfect. On the same day it claimed an absolute discretion by a decree that the mandates of the electors were not binding on its members.

Dismissal of Necker.

Having failed in their first attempt on the Assembly, the Court party resolved to try what force could do. A large number of troops, chiefly foreign regiments in the service of France, were concentrated near Paris under the command of the marshal de Broglie. On Mirabeau's motion the Assembly voted an address to the king asking for their withdrawal. The king replied that the troops were not meant to act against the Assembly, but intimated his purpose of transferring the session to some provincial town. On the same day he dismissed Necker and ordered him to quit Versailles. These acts led to the first insurrection of Paris. The capital had long been in a dangerous condition. Bread was dear and employment was scarce. The measures taken to relieve distress had allured a multitude of needy and desperate men from the surrounding country. Among the middle class there already existed a party, consisting of men like Danton or Camille Desmoulins, which was prepared to go much further than any of the leaders of the Assembly. The rich citizens were generally fund-holders, who regarded the Assembly as the one bulwark against a public bankruptcy. The duke of Orleans, a weak and dissolute but ambitious man, had conceived the hope of supplanting his cousin on the throne. He strained his wealth and influence to recruit followers and to make mischief. The gardens of his residence, the Palais Royal, became the centre of political agitation. Ever since the elections virtual freedom of the press and freedom of speech had prevailed in Paris. Clubs were multiplied and pamphlets came forth every hour. The municipal officers who were named by the Crown had little influence with the citizens. The police were a mere handful. Of the two line regiments quartered in the capital, one was Swiss and therefore trusty; but the other, the Gardes Francaises, shared all the feelings of the populace.

Rioting in Paris.

Fall of the Bastille, July 14, 1789.

On the 12th of July Camille Desmoulins announced the dismissal of Necker to the crowd in the Palais Royal. Warmed by his eloquence, they sallied into the street. Part of Broglie's troops occupied the Champs Elysees and the Place Louis Quinze. After one or two petty encounters with the mob they were withdrawn, either because their temper was uncertain or because their commanders shunned responsibility. Paris was thus left to the rioters, who seized arms wherever they could find them, broke open the jails, burnt the octroi barriers and soon had every man's life and goods at their discretion. Citizens with anything to lose were driven to act for themselves. For the purpose of choosing its representatives in the states-general the Third Estate of Paris had named 300 electors. Their function once discharged, these men had no public character, but they resolved that they would hold together in order to watch over the interests of the city. After the Seance Royale the municipal authority, conscious of its own weakness, allowed them to meet at the Hotel de Ville, where they proceeded to consider the formation of a civic guard. On the 13th, when all was anarchy in Paris, they were joined by Flesselles, Provost of the Merchants, and other municipal officers. The project of a civic guard was then adopted. The insurrection, however, ran its course unchecked. Crowds of deserters from the regular troops swelled the ranks of the insurgents. They attacked the Hotel des Invalides and carried off all the arms which were stored there. With the same object they assailed the Bastille. The garrison was small and disheartened, provisions were short, and after some hours' fighting De Launay the governor surrendered on promise of quarter. He and several of his men were, notwithstanding, butchered by the mob before they could be brought to the Hotel de Ville. As all Paris was in the hands of the insurgents, the king saw the necessity of submission. On the morning of the 15th he entered the hall of the Assembly to announce that the troops would be withdrawn. Immediately afterwards he dismissed his new ministers and recalled Necker. Thereupon the princes and courtiers most hostile to the National Assembly, the count of Artois, the prince of Conde, the duke of Bourbon and many others, feeling themselves no longer safe, quitted France. Their departure is known as the first emigration.

New municipality of Paris and National Guard.

Revolution in the provinces.

The capture of the Bastille was hailed throughout Europe as symbolizing the fall of absolute monarchy, and the victory of the insurgents had momentous consequences. Recognizing the 300 electors as a temporary municipal government, the Assembly sent a deputation to confer with them at the Hotel de Ville, and on a sudden impulse one of these deputies, Bailly, lately president of the Assembly, was chosen to be mayor of Paris. The marquis Lafayette, doubly popular as a veteran of the American War and as one of the nobles who heartily upheld the cause of the Assembly, was chosen commandant of the new civic force, thenceforwards known as the National Guard. On the 17th Louis himself visited Paris and gave his sanction to the new authorities. In the course of the following weeks the example of Paris was copied throughout France. All the cities and towns set up new elective authorities and organized a National Guard. At the same time the revolution spread to the country districts. In most of the provinces the peasants rose and stormed and burnt the houses of the _seigneurs_, taking peculiar care to destroy their title-deeds. Some of the _seigneurs_ were murdered and the rest were driven into the towns or across the frontier. Amid the universal confusion the old administrative system vanished. The intendants and sub-delegates quitted or were driven from their posts. The old courts of justice, whether royal or feudal, ceased to act. In many districts there was no more police, public works were suspended and the collection of taxes became almost impossible. The insurrection of July really ended the _ancien regime_.

The 4th of August.

Disorder in the provinces led directly to the proceedings on the famous night of the 4th of August. While the Assembly was considering a declaration which might calm revolt, the vicomte de Noailles and the duc d'Aiguillon moved that it should proclaim equality of taxation and the suppression of feudal burdens. Other deputies rose to demand the repeal of the game laws, the enfranchisement of such serfs as were still to be found in France, and the abolition of tithes and of feudal courts and to renounce all privileges, whether of classes, of cities, or of provinces. Amid indescribable enthusiasm the Assembly passed resolution after resolution embodying these changes. The resolutions were followed by decrees sometimes hastily and unskilfully drawn. In vain Sieyes remarked that in extinguishing tithes the Assembly was making a present to every landed proprietor. In vain the king, while approving most of the decrees, tendered some cautious criticisms of the rest. The majority did not, indeed, design to confiscate property wholesale. They drew a distinction between feudal claims which did and did not carry a moral claim to compensation. But they were embarrassed by the wording of their own decrees and forestalled by the violence of the people. The proceedings of the 4th of August issued in a wholesale transfer of property from one class to another without any indemnity for the losers.

## Parties in the Assembly.

The work of drafting a constitution for France had already been begun.

## Parties in the Assembly were numerous and ill-defined. The Extreme

Right, who desired to keep the government as it stood, were a mere handful. The Right who wanted to revive, as they said, the ancient constitution, in other words, to limit the king's power by periodic States-General of the old-fashioned sort, were more numerous and had able chiefs in Cazales and Maury, but strove in vain against the spirit of the time. The Right Centre, sometimes called the Monarchiens, were a large body and included several men of talent, notably Mounier and Malouet, as well as many men of rank and wealth. They desired a constitution like that of England which should reserve a large executive power to the king, while entrusting the taxing and legislative powers to a modern parliament. The Left or Constitutionals, known afterwards as the Feuillants, among whom Barnave and Charles and Alexander Lameth were conspicuous, also wished to preserve monarchy but disdained English precedent. They were possessed with feelings then widespread, weariness of arbitrary government, hatred of ministers and courtiers, and distrust not so much of Louis as of those who surrounded him and influenced his judgment. Republicans without knowing it, they grudged every remnant of power to the Crown. The Extreme Left, still more republican in spirit, of whom Robespierre was the most noteworthy, were few and had little power. Mirabeau's independence of judgment forbids us to place him in any party.

Declaration of the Rights of Man.

The royal veto.

The first Constitutional Committee, elected on the 14th of July, had Mounier for its reporter. It was instructed to begin with drafting a Declaration of the Rights of Man. Six weeks were spent by the Assembly in discussing this document. The Committee then presented a report which embodied the principle of two Chambers. This principle contradicted the extreme democratic theories so much in fashion. It also offended the self-love of most of the nobles and the clergy who were loath that a few of their number should be erected into a House of Lords. The Assembly rejected the principle of two Chambers by nearly 10 to 1. The question whether the king should have a veto on legislation was next raised. Mounier contended that he should have an absolute veto, and was supported by Mirabeau, who had already described the unlimited power of a single Chamber as worse than the tyranny of Constantinople. The Left maintained that the king, as depositary of the executive, should be wholly excluded from the legislative power. Lafayette, who imagined himself to be copying the American constitution, proposed that the king should have a suspensive veto. Thinking that it would be politic to claim no more, Necker persuaded the king to intimate that he was satisfied with Lafayette's proposal. The suspensive veto was therefore adopted. As the king had no power of dissolution, it was an idle form. Mounier and his friends having resigned their places in the Constitutional Committee, it came to an end and the Assembly elected a new Committee which represented the opinions of the Left.

Removal of the royal family and Assembly to Paris.

Soon afterwards a fresh revolt in Paris caused the king and the Assembly to migrate thither. The old causes of disorder were still working in that city. The scarcity of bread was set down to conspirators against the Revolution. Riots were frequent and persons supposed hostile to the Assembly and the nation were murdered with impunity. The king still had counsellors who wished for his departure as a means to regaining freedom of action. At the end of September the Flanders regiment came to Versailles to reinforce the Gardes du Corps. The officers of the Gardes du Corps entertained the officers of the Flanders regiment and of the Versailles National Guard at dinner in the palace. The king, queen and dauphin visited the company. There followed a vehement outbreak of loyalty. Rumour enlarged the incident into a military plot against freedom. Those who wanted a more thorough revolution wrought up the crowd and even respectable citizens wished to have the king among them and amenable to their opinion. On the 5th of October a mob which had gathered to assault the Hotel de Ville was diverted into a march on Versailles. Lafayette was slow to follow it and, when he arrived, took insufficient precautions. At daybreak on the 6th some of the rioters made their way into the palace and stormed the apartment of the queen who escaped with difficulty. At length the National Guards arrived and the mob was quieted by the announcement that the king had resolved to go to Paris. The Assembly declared itself inseparable from the king's person. Louis and his family reached Paris on the same evening and took up their abode in the Tuileries. A little later the Assembly established itself in the riding school of the palace. Thenceforward the king and queen were to all intents prisoners. The Assembly itself was subject to constant intimidation. Many members of the Right gave up the struggle and emigrated, or at least withdrew from attendance, so that the Left became supreme.

Mirabeau and the court.

Mirabeau had already taken alarm at the growing violence of the Revolution. In September he had foretold that it would not stop short of the death of both king and queen. After the insurrection of October he sought to communicate with them through his friend the comte de la Marck. In a remarkable correspondence he sketched a policy for the king. The abolition of privilege and the establishment of a parliamentary system were, he wrote, unalterable facts which it would be madness to dispute. But a strong executive authority was essential, and a king who frankly adopted the Revolution might still be powerful. In order to rally the sound part of the nation Louis should leave Paris, and, if necessary, he should prepare for a civil war; but he should never appeal to foreign powers. Neither the king nor the queen could grasp the wisdom of this advice. They distrusted Mirabeau as an unscrupulous adventurer, and were confirmed in this feeling by his demands for money. His correspondence with the court, although secret, was suspected. The politicians who envied his talents and believed him a rascal raised the cry of treason. In the Assembly Mirabeau, though sometimes successful on

## particular questions, never had a chance of giving effect to his policy

as a whole. Whether even he could have controlled the Revolution is highly doubtful; but his letters and minutes drawn up for the king form the most striking monument of his genius (see MIRABEAU and MONTMORIN DE SAINT-HEREM).

The Assembly and the royal power.

Reorganization of France.

Early in the year 1790 a dispute with England concerning the frontier in North America induced the Spanish government to claim the help of France under the Family Compact. This demand led the Assembly to consider in what hands the power of concluding alliances and of making peace and war should be placed. Mirabeau tried to keep the initiative for the king, subject to confirmation by the Chamber. On Barnave's motion the Assembly decreed that the legislature should have the power of war and peace and the king a merely advisory power. Mirabeau was defeated on another point of the highest consequence, the inclusion of ministers in the National Assembly. His colleagues generally adhered to the principle that the legislative and executive powers should be totally separate. The Left assumed that, if deputies could hold office, the king would have the means of corrupting the ablest and most influential. It was decreed that no deputy should be minister while sitting in the House or for two years after. Ministers excluded from the House being necessarily objects of suspicion, the Assembly was careful to allow them the least possible power. The old provinces were abolished, and France was divided anew into eighty departments. Each department was subdivided into districts, cantons and communes. The main business of administration, even the levying of taxes, was entrusted to the elective local authorities. The judicature was likewise made elective. The army and the navy were so organized as to leave the king but a small share in appointing officers and to leave the officers but scanty means of maintaining discipline. Even the cases in which the sovereign might be deposed were foreseen and expressly stated. Monarchy was retained, but the monarch was regarded as a possible traitor and every precaution was taken to render him harmless even at the cost of having no effective national government.

Executive committees of the Assembly.

Confiscation of church property.

The assignats.

The distrust which the Assembly felt for the actual ministers led it to undertake the business of government as well as the business of reform. There were committees for all the chief departments of state, a committee for the army, a committee for the navy, another for diplomacy, another for finance. These committees sometimes asked the ministers for information, but rarely took their advice. Even Necker found the Assembly heedless of his counsels. The condition of the treasury became worse day by day. The yield of the indirect taxes fell off through the interruption of business, and the direct taxes were in large measure withheld, for want of an authority to enforce payment. With some trouble Necker induced the Assembly to sanction first a loan of 30,000,000 livres and then a loan of 80,000,000 livres. The public having shown no eagerness to subscribe, Necker proposed that every man should be invited to make a patriotic contribution of one-fourth of his income. This expedient also failed. On the 10th of October 1789 Talleyrand, bishop of Autun, proposed that the Assembly should take possession of the lands of the church. In November the Assembly enacted that they should be at the disposal of the nation, which would provide for the maintenance of the clergy. Since the church lands were supposed to occupy one-fifth of France, the Assembly thought that it had found an inexhaustible source of public wealth. On the security of the church lands it based a paper currency (the famous assignats). In December it ordered an issue to the amount of 400,000,000 livres. As the revenue still declined and the reforms enacted by the Assembly involved a heavy outlay, it recurred again and again to this expedient. Before its dissolution the Assembly had authorized the creation of 1,800,000,000 livres of assignats and the depreciation of its paper had begun. Finding that he had lost all credit with the Assembly, Necker resigned office and left France in September 1790.

Power of the municipalities and popular clubs.

Disaffection in the army.

Even the committees of the Assembly had far less power than the new municipal authorities throughout France. They really governed so far as there was any government. Often full of public spirit, they lacked experience and in a time of peculiar difficulty had no guide save their own discretion. They opened letters, arrested suspects, controlled the trade in corn, and sent their National Guards on such errands as they thought proper. The political clubs which sprang up all over the country often presumed to act as though they were public authorities (see JACOBINS). The revolutionary journalists, Desmoulins in his _Revolutions de France et de Brabant_, Loustallot in his _Revolutions de Paris_, Marat in his _Ami du peuple_, continued to feed the fire of discord. Amid this anarchy it became a practice for the National Guards of different districts to form federations, that is, to meet and swear loyalty to each other and obedience to the laws made by the National Assembly. At the suggestion of the municipality of Paris the Assembly decreed a general federation of all France, to be held on the anniversary of the fall of the Bastille. The ceremony took place in the Champ de Mars (July 14, 1790) in presence of the king, the queen, the Assembly, and an enormous concourse of spectators. It was attended by deputations from the National Guards in every part of the kingdom, from the regular regiments, and from the crews of the fleet. Talleyrand celebrated Mass, and Lafayette was the first to swear fidelity to the Assembly and the nation. In this gathering the provincial deputations caught the revolutionary fever of Paris. Still graver was the effect upon the regular army. It had been disaffected since the outbreak of the Revolution. The rank and file complained of their food, their lodging and their pay. The non-commissioned officers, often intelligent and hard-working, were embittered by the refusal of promotion. The officers, almost all nobles, rarely showed much concern for their men, and were often mere courtiers and triflers. After the festival of the federation the soldiers were drawn into the political clubs, and named regimental committees to defend their interests. Not content with asking for redress of grievances, they sometimes seized the regimental chest or imprisoned their officers. In August a formidable outbreak at Nancy was only quelled with much loss of life. Desertion became more frequent than ever, and the officers, finding their position unbearable, began to emigrate. Similar causes produced an even worse effect upon the navy.

Civil constitution of the clergy.