There is need of no great reflection to recognize the true character of these assemblies: it is clearly imprinted upon the sketch drawn by Hincmar. The figure of Charlemagne alone fills the picture: he is the centre-piece of it and the soul of everything. ‘Tis he who wills that the national assemblies should meet and deliberate; ‘tis he who inquires into the state of the country; ‘tis he who proposes and approves of or rejects the laws; with him rest will and motive, initiative and decision. He has a mind sufficiently judicious, unshackled, and elevated to understand that the nation ought not to be left in darkness about its affairs, and that he himself has need of communicating with it, of gathering information from it, and of learning its opinions. But we have here no exhibition of great political liberties, no people discussing its interests and its business, interfering effectually in the adoption of resolutions, and, in fact, taking in its government so active and decisive a part as to have a right to say that it is self-governing, or, in other words, a free people. It is Charlemagne, and he alone, who governs; it is absolute government marked by prudence, ability, and grandeur.
When the mind dwells upon the state of Gallo-Frankish society in the eighth century, there is nothing astonishing in such a fact. Whether it be civilized or barbarian, that which every society needs, that which it seeks and demands first of all in its government, is a certain degree of good sense and strong will, of intelligence and innate influence, so far as the public interests are concerned; qualities, in fact, which suffice to keep social order maintained or make it realized, and to promote respect for individual rights and the progress of the general well-being. This is the essential aim of every community of men; and the institutions and guarantees of free government are the means of attaining it. It is clear that, in the eighth century, on the ruins of the Roman and beneath the blows of the barbaric world, the Gallo-Frankish nation, vast and without cohesion, brutish and ignorant, was incapable of bringing forth, so to speak, from its own womb, with the aid of its own wisdom and virtue, a government of the kind. A host of different forces, without enlightenment and without restraint, were everywhere and incessantly struggling for dominion, or, in other words, were ever troubling and endangering the social condition. Let there but arise, in the midst of this chaos of unruly forces and selfish passions, a great man, one of those elevated minds and strong characters that can understand the essential aim of society and then urge it forward, and at the same time keep it well in hand on the roads that lead thereto, and such a man will soon seize and exercise the personal power almost of a despot, and people will not only make him welcome, but even celebrate his praises, for they do not quit the substance for the shadow, or sacrifice the end to the means. Such was the empire of Charlemagne. Amongst annalists and historians, some, treating him as a mere conqueror and despot, have ignored his merits and his glory; others, that they might admire him without scruple, have made of him a founder of free institutions, a constitutional monarch. Both are equally mistaken. Charlemagne was, indeed, a conqueror and a despot; but by his conquests and his personal power he, so long as he was by, that is, for six and forty years, saved Gallo-Frankish society from barbaric invasion without and anarchy within. That is the characteristic of his government and his title to glory.
What he was in his wars and his general relations with his nation has just been seen; he shall now be exhibited in all his administrative activity and his intellectual life, as a legislator and as a friend to the human mind. The same man will be recognized in every ease; he will grow in greatness, without changing, as he appears under his various aspects.
There are often joined together, under the title of Capitularies (capitula, small chapters, articles) a mass of Acts, very different in point of dates and objects, which are attributed indiscriminately to Charlemagne. This is a mistake. The Capitularies are the laws or legislative measures of the Frankish kings, Merovingian as well as Carlovingian. Those of the Merovingians are few in number and of slight importance, and amongst those of the Carlovingians, which amount to one hundred and fifty-two, sixty-five only are due to Charlemagne. When an attempt is made to classify these last according to their object, it is impossible not to be struck with their incoherent variety; and several of them are such as we should nowadays be surprised to meet with in a code or in a special law. Amongst Charlemagne’s sixty-five Capitularies, which contain eleven hundred and fifty-one articles, may be counted eighty-seven of moral, two hundred and ninety-three of political, one hundred and thirty of penal, one hundred and ten of civil, eighty-five of religious, three hundred and five of canonical, seventy-three of domestic, and twelve of incidental legislation. And it must not be supposed that all these articles are really acts of legislation, laws properly so called; we find amongst them the texts of ancient national laws revised and promulgated afresh; extracts from and additions to these same ancient laws, Salle, Lombard, and Bavarian; extracts from acts of councils; instructions given by Charlemagne to his envoys in the provinces; questions that he proposed to put to the bishops or counts when they came to the national assembly; answers given by Charlemagne to questions addressed to him by the bishops, counts, or commissioners (missi dominici); judgments, decrees, royal pardons, and simple notes that Charlemagne seems to have had written down for himself alone, to remind him of what he proposed to do; in a word, nearly all the various acts which could possibly have to be framed by an earnest, far-sighted and active government. Often, indeed, these Capitularies have no imperative or prohibitive character; they are simple counsels, purely moral precepts. We read therein, for example,—
“Covetousness doth consist in desiring that which others possess, and in giving away nought of that which one’s self possesseth; according to the Apostle it is the root of all evil.”
And,—
“Hospitality must be practised.”
The Capitularies which have been classed under the heads of political, penal, and canonical legislation are the most numerous, and are those which bear most decidedly an imperative or prohibitive stamp; amongst them a prominent place is held by measures of political economy, administration, and police; you will find therein an attempt to put a fixed price on provisions, a real trial of a maximum for cereals, and a prohibition of mendicity, with the following clause:—
“If such mendicants be met with, and they labor not with their hands, let none take thought about giving unto them.”
The interior police of the palace was regulated thereby, as well as that of the empire: