The Eve of the French Revolution | Page 5

Conseil d'en haut, or Upper Council.] But the whole administration tended more and more in the same direction. Questions of detail were submitted from all parts of France. Hardly a bridge was built or a steeple repaired in Burgundy or Provence without a permission signed by the king in council and countersigned by a secretary of state. The Council of Despatches exercised disciplinary jurisdiction over authors, printers, and booksellers. It governed schools, and revised their rules and regulations. It laid out roads, dredged rivers, and built canals. It dealt with the clergy, decided differences between bishops and their chapters, authorized dioceses and parishes to borrow money. It took general charge of towns and municipal organization. The Council of Finance and the Council of Commerce had equally minute questions to decide in their own departments.[Footnote: De Lucay, _Les Secrétaires d'état_, 418. For this excessive centralization, see, also, De Tocqueville, _L'ancien Régime et la Révolution_, passim.]
Evidently the king and his ministers could not give their personal attention to all these matters. Minor questions were in fact settled by the bureaux and the secretaries of state, and the king did little more than sign the necessary license. Thus matters of local interest were practically decided by subordinate officers in Paris or Versailles, instead of being arranged in the places where they were really understood. If a village in Languedoc wanted a new parsonage, neither the inhabitants of the place, nor any one who had ever been within a hundred miles of it, was allowed to decide on the plan and to regulate the expense, but the whole matter was reported to an office in the capital and there settled by a clerk. This barbarous system, which is by no means obsolete in Europe, is known in modern times by the barbarous name of bureaucracy.
The royal councils and their subordinate bureaux had their agents in the country. These were the intendants, men who deserve attention, for by them a very large part of the actual government was carried on. They were thirty-two in number, and governed each a territory, called a généralité. The Intendants were not great lords, nor the owners of offices that had become assimilated to property; they were hard-working men, delegated by the council, under the great seal, and liable to be promoted or recalled at the royal pleasure. They were chosen from the class of _ma?tres des requêtes_, and were therefore all lawyers and members of the Privy Council. Thus the unity of the administration in Versailles and the provinces was constantly maintained.
It had originally been the function of the intendants to act as legal inspectors, making the circuit of the provincial towns for the purpose of securing uniformity and the proper administration of justice in the various local courts.[Footnote: Du Boys, i. 517.] They retained to the end of the monarchy the privilege of sitting in all the courts of law within their districts.[Footnote: De Lucay, _Les Assemblées provinciales_, 31.] But their duties and powers had grown to be far greater than those of any officer merely judicial. The intendant had charge of the interests of the Catholic religion and worship, and the care of buildings devoted to religious purposes. He also controlled the Protestants, and all their affairs. He encouraged and regulated agriculture and commerce. He settled many questions concerning military matters and garrisons. The militia was entirely managed by him. He cooperated with the courts of justice in the control of the police. He had charge of post-roads and post-offices, stage coaches, books and printing, royal or privileged lotteries, and the suppression of illegal gambling. He was, in fact, the direct representative of the royal power, and was in constant correspondence with the king's minister of state. And as the power of the crown had constantly grown for two centuries, so the power of the intendant had constantly grown with it, tending to the centralization and unity of France and to the destruction of local liberties.
As the intendants were educated as lawyers rather than as administrators, and as they were often transferred from one province to another after a short term of service, they did not acquire full knowledge of their business. Moreover, they did not reside regularly in the part of the country which they governed, but made only flying visits to it, and spent most of their time near the centre of influence, in Paris or Versailles. Yet their opportunities for doing good or harm were almost unlimited. Their executive command was nearly uncontrolled; for where there were no provincial estates, the inhabitants could not send a petition to the king except through the hands of the intendant, and any complaint against that officer was referred to himself for an answer.[Footnote: For the intendants, see Necker, _De l'administration_, ii. 469, iii. 379. Ibid., _Mémoire au