Bureaucracy, Honoré de Balzac [best classic books to read .txt] 📗

will, the moment comes when the decision must be made. The greater the array of reasons for and against, the less sound will be the judgment. The finest things of which France can boast have been accomplished without reports and where decisions were prompt and spontaneous. The dominant law of a statesman is to apply precise formula to all cases, after the manner of judges and physicians.

Rabourdin, who said to himself: "A minister should have decision, should know public affairs, and direct their course," saw "Report" rampant throughout France, from the colonel to the marshal, from the commissary of police to the king, from the prefects to the ministers of state, from the Chamber to the courts. After 1818 everything was discussed, compared, and weighed, either in speech or writing; public business took a literary form. France went to ruin in spite of this array of documents; dissertations stood in place of action; a million of reports were written every year; bureaucracy was enthroned! Records, statistics, documents, failing which France would have been ruined, circumlocution, without which there could be no advance, increased, multiplied, and grew majestic. From that day forth bureaucracy used to its own profit the mistrust that stands between receipts and expenditures; it degraded the administration for the benefit of the administrators; in short, it spun those lilliputian threads which have chained France to Parisian centralization,--as if from 1500 to 1800 France had undertaken nothing for want of thirty thousand government clerks! In fastening upon public offices, like a mistletoe on a pear-tree, these officials indemnified themselves amply, and in the following manner.

The ministers, compelled to obey the princes or the Chambers who impose upon them the distribution of the public moneys, and forced to retain the workers in office, proceeded to diminish salaries and increase the number of those workers, thinking that if more persons were employed by government the stronger the government would be. And yet the contrary law is an axiom written on the universe; there is no vigor except where there are few active principles. Events proved in July, 1830, the error of the materialism of the Restoration. To plant a government in the hearts of a nation it is necessary to bind INTERESTS to it, not MEN. The government-clerks being led to detest the administrations which lessened both their salaries and their importance, treated them as a courtesan treats an aged lover, and gave them mere work for money; a state of things which would have seemed as intolerable to the administration as to the clerks, had the two parties dared to feel each other's pulse, or had the higher salaries not succeeded in stifling the voices of the lower. Thus wholly and solely occupied in retaining his place, drawing his pay, and securing his pension, the government official thought everything permissible that conduced to these results. This state of things led to servility on the part of the clerks and to endless intrigues within the various departments, where the humbler clerks struggled vainly against degenerate members of the aristocracy, who sought positions in the government bureaus for their ruined sons.

Superior men could scarcely bring themselves to tread these tortuous ways, to stoop, to cringe, and creep through the mire of these cloacas, where the presence of a fine mind only alarmed the other denizens. The ambitious man of genius grows old in obtaining his triple crown; he does not follow in the steps of Sixtus the Fifth merely to become head of a bureau. No one comes or stays in the government offices but idlers, incapables, or fools. Thus the mediocrity of French administration has slowly come about. Bureaucracy, made up entirely of petty minds, stands as an obstacle to the prosperity of the nation; delays for seven years, by its machinery, the project of a canal which would have stimulated the production of a province; is afraid of everything, prolongs procrastination, and perpetuates the abuses which in turn perpetuate and consolidate itself. Bureaucracy holds all things and the administration itself in leading strings; it stifles men of talent who are bold enough to be independent of it or to enlighten it on its own follies. About the time of which we write the pension list had just been issued, and on it Rabourdin saw the name of an underling in office rated for a larger sum than the old colonels, maimed and wounded for their country. In that fact lies the whole history of bureaucracy.

Another evil, brought about by modern customs, which Rabourdin counted among the causes of this secret demoralization, was the fact that there is no real subordination in the administration in Paris; complete equality reigns between the head of an important division and the humblest copying-clerk; one is as powerful as the other in an arena outside of which each lords it in his own way. Education, equally distributed through the masses, brings the son of a porter into a government office to decide the fate of some man of merit or some landed proprietor whose door-bell his father may have answered. The last comer is therefore on equal terms with the oldest veteran in the service. A wealthy supernumerary splashes his superior as he drives his tilbury to Longchamps and points with his whip to the poor father of a family, remarking to the pretty woman at his side, "That's my chief." The Liberals call this state of things Progress; Rabourdin thought it Anarchy at the heart of power. He saw how it resulted in restless intrigues, like those of a harem between eunuchs and women and imbecile sultans, or the petty troubles of nuns full of underhand vexations, or college tyrannies, or diplomatic manoeuvrings fit to terrify an ambassador, all put in motion to obtain a fee or an increase in salary; it was like the hopping of fleas harnessed to pasteboard cars, the spitefulness of slaves, often visited on the minister himself. With all this were the really useful men, the workers, victims of such parasites; men sincerely devoted to their country, who stood vigorously out from the background of the other incapables, yet who were often forced to succumb through unworthy trickery.

All the higher offices were gained through parliamentary influence, royalty had nothing to do now with them, and the subordinate clerks became, after a time, merely the running-gear of the machine; the most important considerations with them being to keep the wheels well greased. This fatal conviction entering some of the best minds smothered many statements conscientiously written on the secret evils of the national government; lowered the courage of many hearts, and corrupted sterling honesty, weary of injustice and won to indifference by deteriorating annoyances. A clerk in the employ of the Rothchilds corresponds with all England; another, in a government office, may communicate with all the prefects; but where the one learns the way to make his fortune, the other loses time and health and life to no avail. An undermining evil lies here. Certainly a nation does not seem threatened with immediate dissolution because an able clerk is sent away and a middling sort of man replaces him. Unfortunately for the welfare of nations individual men never seem essential to their existence. But in the long run when the belittling process is fully carried out nations will disappear. Every one who seeks instruction on this point can look at Venice, Madrid, Amsterdam, Stockholm, Rome; all places which were formerly resplendent with mighty powers and are now destroyed by the infiltrating littleness which gradually attained the highest eminence. When the day of struggle came, all was found rotten, the State succumbed to a weak attack. To worship the fool who succeeds, and not to grieve over the fall of an able man is the result of our melancholy education, of our manners and customs which drive men of intellect into disgust, and genius to despair.

What a difficult undertaking is the rehabilitation of the Civil Service while the liberal cries aloud in his newspapers that the salaries of clerks are a standing theft, calls the items of the budget a cluster of leeches, and every year demands why the nation should be saddled with a thousand millions of taxes. In Monsieur Rabourdin's eyes the clerk in relation to the budget was very much what the gambler is to the game; that which he wins he puts back again. All remuneration implies something furnished. To pay a man a thousand francs a year and demand his whole time was surely to organize theft and poverty. A galley-slave costs nearly as much, and does less. But to expect a man whom the State remunerated with twelve thousand francs a year to devote himself to his country was a profitable contract for both sides, fit to allure all capacities.

These reflections had led Rabourdin to desire the recasting of the clerical official staff. To employ fewer man, to double or treble salaries, and do away with pensions, to choose only young clerks (as did Napoleon, Louis XIV., Richelieu, and Ximenes), but to keep them long and train them for the higher offices and greatest honors, these were the chief features of a reform which if carried out would be as beneficial to the State as to the clerks themselves. It is difficult to recount in detail, chapter by chapter, a plan which embraced the whole budget and continued down through the minutest details of administration in order to keep the whole synthetical; but perhaps a slight sketch of the principal reforms will suffice for those who understand such matters, as well as for those who are wholly ignorant of the administrative system. Though the historian's position is rather hazardous in reproducing a plan which may be thought the politics of a chimney-corner, it is, nevertheless, necessary to sketch it so as to explain the author of it by his own work. Were the recital of his efforts to be omitted, the reader would not believe the narrator's word if he merely declared the talent and the courage of this official.

Rabourdin's plan divided the government into three ministries, or departments. He thought that if the France of former days possessed brains strong enough to comprehend in one system both foreign and domestic affairs, the France of to-day was not likely to be without its Mazarin, its Suger, its Sully, its de Choiseul, or its Colbert to direct even vast administrative departments. Besides, constitutionally speaking, three ministries will agree better than seven; and, in the restricted number there is less chance for mistaken choice; moreover, it might be that the kingdom would some day escape from those perpetual ministerial oscillations which interfered with all plans of foreign policy and prevented all ameliorations of home rule. In Austria, where many diverse united nations present so many conflicting interests to be conciliated and carried forward under one crown, two statesmen alone bear the burden of public affairs and are not overwhelmed by it. Was France less prolific of political capacities than Germany? The rather silly game of what are called "constitutional institutions" carried beyond bounds has ended, as everybody knows, in requiring a great many offices to satisfy the multifarious ambition of the middle classes. It seemed to Rabourdin, in the first place, natural to unite the ministry of war with the ministry of the navy. To his thinking the navy was one of the current expenses of the war department, like the artillery, cavalry, infantry, and commissariat. Surely it was an absurdity to give separate administrations to admirals and marshals when both were employed to one end, namely, the defense of the nation, the overthrow of an enemy, and the security of the national possessions. The ministry of the interior ought in like manner to combine the departments of commerce, police, and finances, or it belied its own name. To the ministry of foreign affairs belonged the administration of justice, the household