Part 9

Admirable as are the preservation and order of these masses of State papers, it is not to be expected that each series, each magisterial archive, should be complete. There are many broad lacunae, especially in the earlier period, which must ever be a cause for regret: for Venice growing is a more attractive and profitable subject than Venice dying. During the nine hundred and eighty-seven years that the Government of the Republic held its seat in Venice, the State papers passed through many dangers from fire, revolution, neglect, or carelessness. When we recal the fires of 1230, 1479, 1574, and 1577, it is rather matter for congratulation that so much has escaped, than for surprise that so much has been destroyed. The losses would, undoubtedly, have been much more severe had all the papers and documents been preserved in one place, as they are now. But the Venetians stored the archives of the various magistracies either at the offices of those magistrates, or in some public building especially set apart for the purpose. The Secret Chancellery, which was always an object of great solicitude, containing as it did all the more private papers of the State, was deposited in a room on the second floor of the Ducal Palace. Many of the criminal records belonging to the Council of Ten were stored in the Piombi under the roof of the Palace; and the famous adventurer Casanova relates how he beguiled some of his prison hours by reading the trial of a Venetian nobleman, which he found among other papers piled at the end of the corridor where he was allowed to take exercise. Soon after the fall of the Republic, the following disposition of the papers was made. The political archive was stored at the Scuola di S. Teodoro; the judicial, at the convent of S. Giovanni Laterano; the financial, at S. Procolo. In the year 1815, the Austrian Government resolved to collect and arrange all State papers in one place. The building chosen was the convent of the Frari; and the work was entrusted to Jacopo Chiodo, the first director of the archives. The scheme suggested by Chiodo has served as a basis for the arrangement that has been already carried out, or is still in hand.

Under the Republic it was natural that access to important diplomatic papers and to secrets of State should be granted with reserve, and only to persons especially authorized to make research. The directors appointed by the Austrian Government showed a disposition to maintain that precedent; and M. Baschet relates that it was only by a personal appeal to the Emperor that he obtained access to the archives of the Ten. The Italian Government allow nearly absolute liberty; and nothing can exceed the courtesy of the officials under their distinguished director, the Commendatore Cecchetti.

Any attempt to explain the archives of Venice and to display their contents, must be preceded by a statement of the main features of the constitution of the Republic upon which the order and the arrangement of the archives is based. The constitution of Venice has frequently been likened to a pyramid, with the Great Council for its base and the Doge for apex. The figure is more or less correct; but it is a pyramid that has been broken at its edges by time and by necessity. The legislative and political body was originally constructed in four groups, or tiers--if we are to preserve the pyramidal simile--one rising above the other. These four tiers were the Maggior Consiglio or Great Council, the Lower House; the Pregadi or Senate, the Upper House; the Collegio, or the Cabinet; and the Doge. The famous Council of Ten and its equally famous Commission, the Three Inquisitors of State, did not enter into the original scheme; they are an appendix to the State, an intrusion, a break in the symmetry of the pyramid. Later on we shall explain their construction and relation to the main body of government. For the present we leave them aside, and confine our attention to the four departments of the Venetian constitution above mentioned.

The Great Council, as is well known, did not assume its permanent form and place in the Venetian constitution till the year 1296. At that date the famous revolution, known as the closing of the Great Council, took place. By that act, which was only the final step in a revolution that had been for long in process, those citizens who were excluded from the Great Council remained for ever outside the constitution; all functions of government were concentrated in the hands of those nobles who were included by the Council; the constitution of the Republic was stereotyped as a rigid oligarchy. Previous to the year 1296, a great council had existed, created first in the reign of Pietro Ziani (1172); but this council was really democratic in character, not oligarchic; it was elected each September, and its members were chosen from the whole body of the citizens. Earlier still than the reign of Ziani, the population used to meet tumultuously and express their opinion upon matters of public interest, such as the election of a Doge or a declaration of war, first in the _Concione_ under their tribunes, while Venetia was still a confederation of lagoon-islands; and then in the _Arengo_ under their Doge, when the confederation was centralized at Rialto. But of these assemblies the latter was disorderly and irregular, and the former was of doubtful authority. It is from the closing of the Great Council that we must date the positive establishment of the Venetian oligarchy, and the completion of that constitution which endured for five hundred years, from 1296 till the fall of the Republic in 1797.

The age at which the young nobles might take their seats in the Council, that is to say, might enter upon public life, was fixed at twenty-five, except in the cases of the Barbarelli, or thirty nobles between the ages of twenty and twenty-five, who were elected by ballot on the fourth of each December, St. Barbara's day; and in the case of those who, in return for money advanced to the State, obtained a special grace to take their seats before their twenty-fifth year.

The chief functions of the Great Council were the passing of laws, and the election of magistrates. But in process of time the legislative duties of the Council were almost entirely absorbed by the Senate; and the Maggior Consiglio only retained its great and distinguished function, the election of almost every officer of State, from the Doge downwards. The large number of these magistracies, and the various seasons of the year at which they fell vacant, engaged the Great Council in a perpetual series of elections. It is not our intention to explain in detail the elaborate process by which the Venetians carried out their political elections; such an explanation would carry us beyond our scope, which is to state the position and functions of each member in the constitution of the Republic. But, briefly, the process was this. The law required either two or four competitors for every vacant magistracy, and the election to that magistracy was said to take place _a due_ or _a quattro mani_, respectively. If the office to be filled required _quattro mani_, the whole body of the Great Council balloted for four groups of nine members each, who were chosen by drawing a golden ball from among the silver ones in the balloting urn. Each of these groups retired to a separate room, and there each group elected one candidate to go to the poll for the vacant office. The names of the four candidates were then presented to the Council and balloted. The candidate who secured the largest number of votes, above the half of those present, was elected to the vacant office. Thus the election to the magistracy was a triple process; first, the election of the nominators, then the election of the candidates, and finally the election to the office.

The Great Council, as representing the whole Republic, possessed certain judicial functions, which were used on rare occasions only, when the State believed itself placed in grave danger through the fault of its commanders. The famous case of Vettor Pisani, after his defeat at Pola, in 1379, and the case of Antonio Grimani, in the year 1499, were both sent to the Grand Council, who passed sentence on those generals. But, broadly speaking, the judicial functions of the Maggior Consiglio hardly existed, its legislative functions dwindled away, and were absorbed by the Senate, and its chief duty and prerogative lay in the election of almost every State official.

Coming now to the second tier in the pyramid of the constitution, the Senate, or Pregadi,--the invited, we find that the Senate proper was composed of sixty members, elected in the Great Council, six at a time. The elections took place once a week, and were so arranged that they should be complete by the first of October in each year. In addition to the Senate proper, another body of sixty, called the _Zonta_ or addition, was elected by the outgoing Senate at the close of its year of office; but it was necessary that the names of the _Zonta_ should be approved by the Great Council before their election was valid. The Senate and the Zonta together formed one hundred and twenty members; and besides these, the Doge, his six councillors, the Council of Ten, the Supreme Court of Appeal, and many special magistrates, who presided over departments of Finance, Customs, and Justice, belonged _ex officio_ to the Senate, and brought the number of votes up to two hundred and forty-six. Further, fifty-one magistrates of minor departments also sat, with the right to debate, but without the right to vote.

The Senate was the real core of the Administration. The presence, _ex officio_, of so many and such various officers of State sufficiently indicates the wide field which was covered by the authority of the Pregadi. The large number of the Senatorial body, and the diversity of subjects with which it dealt, required that business should be carried on with parsimony of time and precision of method; and therefore private members were restricted to the right of debate. Only the Doge, his councillors, the Savii Grandi and the Savii di Terra ferma had the right to move the Senate; and their propositions related to peace, war, foreign affairs, instructions to ambassadors, and representatives of foreign Courts, to commercial treaties, finance, and home legislation. The various measures were spoken to by their proposers, and by the magistrates whose offices they affected. As in the case of the Great Council, the Senate also on rare occasions exercised judicial functions. It was in the discretion of the College to send a faulty commander for trial either to the Great Council or to the Senate; but in that case the charge must be one of negligence or misjudgment; if the charge implied treason, it was taken before the Council of Ten. A few of the higher officers of State were elected in the Senate, among them the Savii Grandi and the Savii di Terra ferma, and the Admiral of the Fleet. The functions of the Senate were legislative, judicial, and elective. But just as the Great Council was pre-eminently the elective body, so the Senate was pre-eminently the legislative body in the constitution of Venice.

The Collegio or Cabinet of Ministers, formed the third tier in the pyramid. The College was composed of the following members: The Doge, his six councillors, and the three chiefs of the Court of Appeal; these ten persons formed the Collegio minore, or Serenissima Signoria; in addition to these there were the six Savii Grandi; the five Savii di Terra ferma, and the five Savii da mar; a body of twenty-six persons in all, forming the College. Beginning with the lowest in rank, the Savii agli ordini, or da mar, were, as their name implies, a Board of Admiralty; but they acted in that capacity under the orders of the Savii Grandi upon whom the naval affairs of the Republic immediately depended. The Savii agli ordini had a vote but no voice in the College; this post was given, for the most part, to young and promising politicians; it was a training school for statesmen: 'Officio loro,' says Giannotti, 'e tacere ed ascoltare.' The office lasted for six months only; and so there was a constant stream of young men passing through the political school, and becoming intimately acquainted with the affairs of the Republic and the methods of government. How excellent that school must have been will become apparent as we proceed to note the functions of the College of which the Savii agli ordini formed a silent part.

Next in order above the Savii agli ordini came the Savii di Terra ferma. This Board was composed of five members; the Savio alia Scrittura, or Minister for War; the Savio Cassier, or Chancellor of the Exchequer; the Savio alle ordinanze, or minister for the native militia in the cities on the mainland; the Savio ai da mo, or minister for the execution of all measures voted urgent; the Savio ai Ceremoniali, or Minister for Ceremonies of State. These Savii di Terra ferma, like the Savii agli ordini, held office for six months only.

The six Savii Grandi, who came above the Savii di Terra ferma, superintended the actions of the two boards below them, and, if necessary, issued orders which would override those of the other ministers. They were, in fact, the responsible directors of the State. The Savii Grandi were required to prepare all business to be laid before the College, where it was first discussed and arranged before being submitted to the Senate for approval. To facilitate this labour of preparation, each of the Savii Grandi took a week in turn, and the Savio of the week was, in fact, Prime Minister of Venice. It was he who read dispatches, granted audiences to ambassadors, and prepared official replies. The Doge presided in the College, it is true, but it was the Savio of the week who opened the business, and suggested the various measures to be adopted.

Besides these boards of Savii, the College included the Ducal Councillors, and the three chiefs of the Court of Appeal. We shall speak of these latter when we come to the judicial department of the constitution. The office of Ducal Councillor was, perhaps, the most venerable in Venice. These six men held, as it were, the Ducal honours and functions in commission; they embodied the authority of the Doge to such an extent, that without their presence he could not act; he became a nonentity unless supported by four at least of his council; while, on the other hand, the absence of the Doge in no way diminished the authority of the Ducal Councillors. For example, the Doge without his council could not preside, neither in the Maggior Consiglio, nor in the Senate, nor in the College, but four Ducal Councillors had the power to preside without the Doge. The Doge might not open dispatches except in the presence of his council, but his council might open dispatches in the absence of the Doge. Yet, great as were the external honours of the Ducal Councillors, the office was rather ornamental than important. It was the Savii Grandi who were the directing spirit through all the multitudinous affairs of the College. As we have seen, those affairs embraced the whole field of government, except the field of Justice. The College had no judicial functions, nor did it legislate. As the Maggior Consiglio was the elective member, and the Senate the legislative, so the College was the initiative and executive member of the State. The College proposed measures which became law in the Senate; and the execution of those laws was entrusted to the College which had the machinery of State at its disposal. It is this right of initiating which distinguishes the College; and it is just upon this point that the Ducal Councillors appear to have a slight pre-eminence; for the Doge, his council, and the Savii alone, had the right to initiate in the Senate; the Doge, his council, and the chiefs of the Ten alone, had the right to initiate in the Council of Ten; the Doge and his council alone had the right to initiate in the Maggior Consiglio. The Doge and his council alone move through all departments of government, presiding and initiating, embodying the spirit of the Republic; and yet in no case is their power great; for the Savii had more influence in the Senate, the Chiefs of the Ten in the Council of Ten; and the Great Council, where the Doge and his councillors had the field to themselves, was of little importance in the direction of affairs.

At the apex of the constitutional pyramid we find the Doge. The Doge also had his distinctive functions in the State; his duties were ornamental rather than administrative. Though all the acts of the Government were executed in his name, laws passed, dispatches sent, treaties made, and war declared, yet it is not in these departments that the Doge stands pre-eminent; it is throughout the pomp and display of the Republic that he is supreme; and the archive wherein his glory shows most brightly is the _Ceremoniali_.

The Doge was elected for life. When a Doge died, the eldest Ducal Councillor filled the office of Vice-Doge until the election of the new Prince. The remains of the deceased Doge were laid out in the Chamber of the Pioveghi, on the first floor of the Ducal Palace, dressed in robes of State, the mantle of cloth of gold and the ducal beretta. Twenty Venetian noblemen were appointed to attend in the chapelle ardente. On the third day the Doge was buried; and the Great Council on the same day elected the officers who were to revise the coronation oath, and to render its provisions more stringent if the conduct of the deceased had revealed any point where a future Doge could exercise even the smallest independence in constitutional matters. At the same time the Council elected another body of officers, who were required to examine the conduct of the late Doge, and, if he had violated his coronation oath, his heirs paid the penalty by a fine. Immediately after the appointment of these officers, the Maggior Consiglio proceeded to create the forty-one electors to the dukedom. The process of election was long and intricate, and occupied five days at the least; for there was a quintuple series of ballots and votings to be concluded before the forty-one were finally chosen. When the forty-one noblemen had been appointed they were taken to a chamber specially prepared for them, where, as in the case of a papal election, they were obliged to stay until they had determined upon the new Doge. They were bound by oath never to reveal what took place inside this election chamber. But this oath was not always observed in the spirit; and memoranda of the proceedings of the forty-one are still preserved in the private archives of the Marcello family. The first step was to elect three priors, or presidents, and two secretaries. The presidents took their seats at a table on which stood a ballot-box and an urn. The secretaries gave to every elector a slip of paper, upon which each one wrote the name of the man whom he proposed as Doge. The forty-one slips of paper were then placed in the urn, and one was drawn out at hazard. If the noble, whose name was written upon the slip, chanced to be an elector, he was required to withdraw. Then each of the electors was at liberty to attack the candidate, to point out defects and recal misdeeds. These hostile criticisms, which covered the whole of a candidate's private life, his physical qualities and his public conduct, were written down by the secretaries, and the candidate was recalled. The objections urged against him were read over to the aspirant, without the names of the urgers appearing, and he was invited to defend himself. Attack and defence continued till no further criticisms were offered, and then the name of the candidate was balloted before the priors. If it received twenty-five favourable votes, its owner was declared Doge; if less than twenty-five, a fresh name was drawn from the urn, and the whole process was repeated until some candidate secured the necessary five-and-twenty votes. As soon as this issue was reached, the Signoria was informed of the result, and the new Doge, attended by the electors, descended to Saint Mark's, where, from the pulpit on the left side of the choir, the Prince was shown to the people, and where, before the high altar, he took the coronation oath and received the standard of Saint Mark. The great doors of the Basilica were then thrown open, and the Doge passed in procession round the Piazza and returned to the Porta della Carta. At the top of the Giants' Stair the eldest Ducal Councillor placed the beretta on his head, and he was brought to the Sala dei Pioveghi, where the late Doge had lain in state, and where he too would one day come. Then the Doge retired to his private apartments, and the ceremony of election closed.

As we have already observed, the position of the Doge in the Republic of Venice was almost purely ornamental. The Doge presided, either in person or by commission through his councillors, at every Council of State; he presided, however, not as a guiding and deliberating chief, but as a symbol of the Majesty of Venice. He is there not as an individual, a personality, but as the outward and visible sign of an idea, the idea of the Venetian oligarchy. The history of the personal authority of the Doge falls into three periods. A period of great vigour and almost despotic power dates from the foundation of the Dukedom, in the year 697, down to the reign of Pietro Ziani in 1172. During this first period, the Ducal authority showed a tendency to become concentrated, and almost hereditary in the hands of one or two powerful families. For example, we have seen Doges of the Partecipazio house, five Doges of the Candiani, and three of the Orseoli. But the rivalry and balanced power of these great families eventually exhausted one another, and preserved the Dukedom of Venice from ever becoming a kingdom. A second period extends from the year 1172 down to 1457, and is marked by the emergence of the great commercial houses, and the development of the oligarchy upon the basis of a Great Council. The aristocracy during this period were engaged in excluding the people from any share in the government, and in curbing and finally crushing the authority of the Doge. The steps in this process are indicated by the closing of the Great Council, the revolution of Tiepolo, the trials of Marino Faliero, Lorenzo Celsi, and the Foscari. The third period covers what remains of the Republic, from 1457 down to 1797. During this period the Doge was little other than the figurehead of the Republic; the point of least weight and greatest splendour; the brilliant apex to the pyramid of the Venetian constitution.