MILAN AND TUSCANY
[1755-1790 A.D.]
For seventeen years after the Peace of Aix-la-Chapelle, the duchies of Milan and Mantua, forming one province, and the grand duchy of Tuscany as another, were governed by viceroys appointed by Maria Theresa and her husband Francis. On the emperor’s death in 1765, the two Lombard duchies continued to constitute a province of the empire under his son Joseph II; but Tuscany was formed into an independent sovereignty for Peter Leopold, the new emperor’s younger brother. All these sovereigns were remarkable persons: the sons were worthy of their heroic mother; and Leopold, free from that ambition which stained the names of Maria Theresa and Joseph with the infamous partition of Poland, was one of the greatest men that ever filled a throne.
The statistical results of this period were highly pleasing. Austrian Lombardy, at length enabled to profit in some measure by its singular physical advantages, was, in 1790, by far the most flourishing province in Italy; while Tuscany also was prosperous, and in some respects more decidedly so than Joseph’s duchies. The institutions of both states were wonderfully improved; and the history of these changes is one of the most interesting pages in the annals of modern Italy.
That the long servitude of the Italians had ruined their character as well as their national resources, could not have been more clearly proved than by the bitter opposition with which they met all the reforms introduced by their new masters. There was hardly an improvement of any importance, especially in Lombardy, that was not absolutely forced upon the natives; and the most sweeping changes were skilfully evaded, some of them during more than a generation. Much of this delay was attributable to the wonted slowness of the Austrian court; but much also was produced by the passive resistance of the people. The great system of administration, the first draft of which had been laid before the empress in 1739, did not come into activity till 1755, and its introduction makes that year an important epoch for northern Italy.
A few only of the features which distinguished the plan of taxation can be here described. One of the worst evils to be removed was the subdivision of the state into seven districts, each of which, like a separate kingdom, has its duties on mercantile imports, exports, and transits. This abuse was swept away by a single stroke of the pen; and similar restrictions on agricultural produce shared the same fate. The excise was subjected to good regulations, and the customs based on principles as fair as any that then prevailed in Europe. Lastly, a new survey and valuation formed the rule for an equitable assessment of the land-tax. A dispassionate and well-qualified judge was able to find in the system but four serious defects: an insufficient check on the land-valuators; the retention of the unwise mercantile-tax; the imposition of a capitation-tax on the peasantry and others who paid no land-tax; and the permission to the church, which possessed a third of the lands in the state, and had till now paid no taxes for them, to retain too many of its Spanish privileges.
But the portion of the plan that most interests us is the administrative. In the general government, the obnoxious senate was retained, and formed a very injurious barrier between the subjects and the throne, generating petty cabals, and assisting in keeping up that tendency to secrecy and plotting which had been triumphant under the Spaniards. In the provincial government, the leading principle was, to subject everything in the last instance to the control of the boards of administration at Milan, while the immediate administration of every province was put under a delegate appointed by the sovereign; although, at the same time, a considerable part of the actual management was consigned to a provincial council established in every chief city. The local statutes of the old republics or petty principalities, which it was not in all cases considered safe to touch, created many diversities in the execution of this plan; but the general rule was to introduce in the provincial councils members of three orders: the representatives of the cities, who were nobles, and elected by their own class in each town; the representatives elected by the landholders of the province; and the mercantile men who represented, and were elected by, the corporation of merchants. The council so formed devolved its ordinary powers on a committee of its own body, called the prefects of government. Communal councils were also instituted, according to regulations laid down in a prolix code. Each of them administered the patrimony of the commune, under the presidency of a chancellor appointed by the sovereign. Their own members were five for each commune: three representatives of the landholders, one representative of the mercantile body, and one representative of those who were subject to the capitation-tax. They were elected annually in a meeting of all the landholders rated on the books for the land-tax; soldiers and churchmen, however, being ineligible. The same constituency also elected the consul, who was an inferior criminal judge, and the syndic, who had dignity without any real duties.
An Italian Peasant, Close of the Eighteenth Century
Joseph, seconded by his excellent viceroy Count Firmian, under whom served Verri, Carli, Neri, and other enlightened Italians, followed out the plan of amelioration which had been thus delineated for him. He improved the courts of justice and the judicial procedure, especially in criminal causes, abolishing, at the suggestion of Beccaria, torture and secret trials. He annulled or diminished the most vexatious of the feudal privileges, and imposed checks on the perpetual destination of estates. He patronised agriculture, and extended commerce and manufactures by the construction of roads, as well as by the abolition of some remaining imposts and restrictions. When the death of his mother, in 1780, freed him from her remonstrances on ecclesiastical matters, he commenced with his accustomed impetuosity a series of changes in that department, which Pius VI considered so dangerous that he made a fruitless journey to Vienna in the hope of procuring their repeal. The most material of those measures were the following: all dissenters were to enjoy toleration; the bishops were forbidden, as they had already been forbidden by other princes, to act upon any papal bull but such as should be transmitted to them by the government; the monastic clergy were declared to be dependent, not on the general of their order who lived in Rome, but directly on the resident bishop of the diocese within which their cloister was situated; lastly, all nunneries were suppressed, except those which pledged themselves to occupy their members in the education of the young. The emperor’s death interrupted the consolidation of his famous system for giving uniformity to his system of government throughout all the Austrian dominions. The decree of 1786, which promulgated this new constitution, divided the Italian provinces into eight circles, in each of which the local administration was to be vested in a chamber closely dependent upon the government. This departure from the late arrangement created in Lombardy universal discontent.
Sometimes unjust and cruel, often misjudging and imprudent, always headstrong, passionate, and despotic, doing good to his subjects by force, and punishing as ungrateful all who refused to be thus benefited, Joseph was an unconscious instrument in the hand of providence for advancing in southern Europe the great revolution of his time. One inveterate evil was extirpated, that another might be substituted for it, which, being less deeply rooted, was destined in its turn to wither and die away. “At length,” said a noble-minded Italian in the last stage of the emperor’s reign, “the obstacles which hindered the happiness of nations have mainly disappeared. Over the greater part of Europe despotism has banished feudal anarchy; and the manners and spirit of the times have already weakened despotism.”
The reforms in the grand duchy of Tuscany went infinitely further than those of Joseph and his mother in the provinces of the Po. They were commenced during the life of Francis, by the prince of Craon, his viceroy at Florence; and the plan was formed, even thus early, for consolidating into one common code all those contradictory laws which, subsisting in the old Tuscan communities, had been maintained since the subjection of all to the duchy. But it was reserved for younger hands to construct this noble edifice.
Till we reflect that Leopold’s scheme of legislation for Tuscany was devised and executed long before that change of opinions which the French Revolution diffused through the whole of Europe, we are not fully aware how very far he stood in advance of his age. In his new code the criminal section was especially bold, inasmuch as it swept away at once torture, confiscation, secret trial, and even the punishment of death. Imprisonment for debt, forbidden by one of his laws unless the claim exceeded a certain amount, was afterwards abolished altogether. All privileged jurisdictions were destroyed, and the public courts fortified in their independence and authority. Restrictions on agriculture were totally removed; and large tracts of common were brought into cultivation by being divided among poor peasants in property, subject only to a small crown-rent. The grand duke discontinued the ruinous system of farming out the taxes; he diminished their amount, and abandoned most of the government monopolies. Notwithstanding, he was able, before he left Italy, to pay off the greater part of a large national debt; for, under his new system, and especially through the absolute freedom which he allowed to commerce, industry flourished so wonderfully, that his revenue suffered hardly any diminution.
Leopold’s ecclesiastical reforms were equally daring, and gave deep offence to the papal government. They were chiefly designed for improving the condition of the parochial clergy, and for curbing the monastic orders. He suppressed the Inquisition; he imposed severe limitations on the profession of monks and nuns; he made the regular clergy dependent, not merely (as his brother had done) on their bishop, but directly on the priest of the parish; he taxed church-lands like those belonging to laymen; he even seized arbitrarily several large estates which had been destined to useless ecclesiastical purposes, and applied their proceeds towards increasing the insufficient incomes of the priests in rural parishes. This step, as well as several others, formed parts of his great scheme against tithes, of which he gradually introduced a general commutation.
In the system which this great man enforced there were unquestionably many defects. There was something (though not much) of his brother’s hasty disregard for obstacles arising from foreign quarters; a fault which made his scheme for free trade in some respects injurious to his subjects, and forced him in his later years to resume a few restrictions. There was a disposition to overstrain the principles of reform, manifested when he totally abolished trading corporations, or when, in the last year of the period, he annulled at a blow all rights of primogeniture, and all substitutions in succession to land. There was a jealous watchfulness over details, a temper exceedingly useful but very irritating, which displayed itself with equal force in the severe system of police, and in the curious circular letter which he addressed to the nobles, requesting that their ladies might be made to dress more economically. There was some fickleness of purpose, though much less than those have believed, who forget the existence of that chaos of local laws and privileges, through which he had for years to pilot his way, embarrassed, misled, and thwarted at every step. Lastly, there were two absolute wants. Leopold did not, because in a single generation he could not, renovate the heart and mind of his people; and therefore the degenerate Florentines murmured at his strictness of rule, and ridiculed his personal peculiarities. He did not give to his subjects a representative constitution; and therefore his fabric of beneficent legislation crumbled into fragments the moment his hand ceased to support its weight.
Temple of the Sibyl, Tivoli
It is said, indeed, that he had sketched a constitution before he left Tuscany; but, at all events, his reforms in the local administration went very far towards this great end. His purpose, in which, as in so much besides, he was obstructed by a multiplicity of special statutes and customs, was to introduce over the duchy one uniform system of municipal government, embracing all districts, rural as well as urban. During his whole reign, step after step led him towards this result, by organising new communal councils in various provinces, which had at length comprehended nearly the whole state. At the same time there was extended to the new boards the privilege conferred first on those in the Florentine territory, of managing their local patrimony as of old, without dependence upon the supreme government. The polity of Alessandro de’ Medici, which still prevailed in Florence, was annulled in 1781; and the elective board which administered the affairs of the city thenceforth consisted of a gonfalonier, as president, eleven priors, and twenty councillors.[f]
A Tuscan Estimate of Leopold
The reforms of Leopold I (Emperor Leopold II) did not suffice to drag Tuscany from the abyss into which she had been cast by the sbirocracy of the Medici. A fallen people would rise again to the enthusiasm of grand ideas, but what grand idea did Leopold I place at the head of the regenerative movement? He corrected clerical abuses, but did not enkindle the religious faith of the people after the example of the ardent preachers of the Crusades of the Middle Ages and the sixteenth century reformers. He recognised equality in civil laws, but did not make a social credo of it like the French republicans.
Leopold’s idea was a paternal government, a sort of family council, where the most touching accord would reign between the prince and the assembly elected by the commons. He wanted to make another Arcadia of Tuscany, an Arcadia simply occupied with its well-being and material progress, foreign to the use of arms and neutral in all aspects of war. But this was not the way to model character and make free citizens. The shock given to Europe by the French Revolution and the results therefrom had quite other effects. When Italy owed to the France of ’89 that moral shock which stirred up men’s minds and made them enter into communication with the universal conscience, it did not need more to convict of error those who reproached the French Revolution with having upset the reforms of Italian princes without any compensation. Abstention in this gigantic struggle was impossible. It was imperative to fight either for the powers of the past or for those of the future; so this worship of principles became the great passion of souls, and character regained all its old vigour. The Restoration came to check this salutary movement.
The sleeping sbirocracy inaugurated by Fossombroni went back to the Medici traditions and the meanness of the old régime was again substituted for the moral and political grandeur of the French epoch. But it was thenceforth impossible to stifle the germs of the new life. We shall see these germs, in spite of most unfavourable conditions, fructifying in Tuscany as in other parts of Italy; we shall see the country of Michelangelo coming out of its abasement and paying the Italian revolution the tribute of its genius, its love, and its blood.[g]