Even more important was Bonaparte's intervention in Switzerland. The condition of that land calls for some explanation. For wellnigh three centuries the Switzers had been grouped in thirteen cantons, which differed widely in character and constitution. The Central or Forest Cantons still retained the old Teutonic custom of regulating their affairs in their several folk-moots, at which every householder appeared fully armed. Elsewhere the confederation had developed less admirable customs, and the richer lowlands especially were under the hereditary control of rich burgher families. There was no constitution binding these States in any effective union. Each of the cantons claimed a governmental sovereignty that was scarcely impaired by the deliberations of the Federal Diet. Besides these sovereign States were others that held an ill-defined position as allies; among these were Geneva, Basel, Bienne, Saint Gall, the old imperial city of Mühlhausen in Alsace, the three Grisons, the principality of Neufchâtel, and Valais on the Upper Rhone. Last came the subject-lands, Aargau, Thurgau, Ticino, Vaud, and others, which were governed in various degrees of strictness by their cantonal overlords. Such was the old Swiss Confederacy: it somewhat resembled that chaotic Macedonian league of mountain clans, plain-dwellers, and cities, which was so profoundly influenced by the infiltration of Greek ideas and by the masterful genius of Philip. Switzerland was likewise to be shaken by a new political influence, and thereafter to be controlled by the greatest statesman of the age.
On this motley group of cantons and districts the French Revolution exerted a powerful influence; and when, in 1798, the people of Vaud strove to throw off the yoke of Berne, French troops, on the invitation of the insurgents, invaded Switzerland, quelled the brave resistance of the central cantons, and ransacked the chief of the Swiss treasuries. After the plunderers came the constitution-mongers, who forthwith forced on Switzerland democracy of the most French and geometrical type: all differences between the sovereign cantons, allies, and subject-lands were swept away, and Helvetia was constituted as an indivisible republic—except Valais, which was to be independent, and Geneva and Mühlhausen, which were absorbed by France. The subject districts and non-privileged classes benefited considerably by the social reforms introduced under French influence; but a constitution recklessly transferred from Paris to Berne could only provoke loathing among a people that never before had submitted to foreign dictation. Moreover, the new order of things violated the most elementary needs of the Swiss, whose racial and religious instincts claimed freedom of action for each district or canton.
Of these deep-seated feelings the oligarchs of the plains, no less than the democrats of the Forest Cantons, were now the champions; while the partisans of the new-fangled democracy were held up to scorn as the supporters of a cast-iron centralization. It soon became clear that the constitution of 1798 could be perpetuated only by the support of the French troops quartered on that unhappy land; for throughout the years 1800 and 1801 the political see-saw tilted every few months, first in favour of the oligarchic or federal party, then again towards their unionist opponents. After the Peace of Lunéville, which recognized the right of the Swiss to adopt what form of government they thought fit, some of their deputies travelled to Paris with the draft of a constitution lately drawn up by the Chamber at Berne, in the hope of gaining the assent of the First Consul to its provisions and the withdrawal of French troops. They had every reason for hope: the party then in power at Berne was that which favoured a centralized democracy, and their plenipotentiary in Paris, a thorough republican named Stapfer, had been led to hope that Switzerland would now be allowed to carve out its own destiny. What, then, was his surprise to find the First Consul increasingly enamoured of federalism. The letters written by Stapfer to the Swiss Government at this time are highly instructive.[220]
On March 10th, 1801, he wrote:
"What torments us most is the cruel uncertainty as to the real aims of the French Government. Does it want to federalize us in order to weaken us and to rule more surely by our divisions: or does it really desire our independence and welfare, and is its delay only the result of its doubts as to the true wishes of the Helvetic nation?"
Stapfer soon found that the real cause of delay was the non-completion of the cession of Valais, which Bonaparte urgently desired for the construction of a military road across the Simplon Pass; and as the Swiss refused this demand, matters remained at a standstill. "The whole of Europe would not make him give up a favourite scheme," wrote Stapfer on April 10th; "the possession of Valais is one of the matters closest to his heart."
The protracted pressure of a French army of occupation on that already impoverished land proved irresistible; and some important modifications of the Swiss project of a constitution, on which the First Consul insisted, were inserted in the new federal compact of May, 1801. Switzerland was now divided into seventeen cantons; and despite the wish of the official Swiss envoys for a strongly centralized government, Bonaparte gave large powers to the cantonal authorities. His motives in this course of action have been variously judged. In giving greater freedom of movement to the several cantons, he certainly adopted the only statesmanlike course: but his conduct during the negotiation, his retention of Valais, and the continued occupation of Switzerland by his troops, albeit in reduced numbers, caused many doubts as to the sincerity of his desire for a final settlement.
The unionist majority at Berne soon proceeded to modify his proposals, which they condemned as full of defects and contradictions; while the federals strove to keep matters as they were. In the month of October their efforts succeeded, thanks to the support of the French ambassador and soldiery; they dissolved the Assembly, annulled its recent amendments; and their influence procured for Reding, the head of the oligarchic party, the office of Landamman, or supreme magistrate. So reactionary, however, were their proceedings, that the First Consul recalled the French general as a sign of his displeasure at his help recently offered to the federals. Their triumph was brief: while their chiefs were away at Easter, 1802, the democratic unionists effected another coup d'état—it was the fourth—and promulgated one more constitution. This change seems also to have been brought about with the connivance of the French authorities:[221] their refusal to listen to Stapfer's claims for a definite settlement, as well as their persistent hints that the Swiss could not by themselves arrange their own affairs, argued a desire to continue the epoch of quarterly coups d'état.
The victory of the so-called democrats at Berne now brought the whole matter to the touch. They appealed to the people in the first Swiss plébiscite, the precursor of the famous referendum. It could now be decided without the interference of French troops; for the First Consul had privately declared to the new Landamman, Dolder, that he left it to his Government to decide whether the foreign soldiery should remain as a support or should evacuate Switzerland.[222] After many searchings of heart, the new authorities decided to try their fortunes alone—a response which must have been expected at Paris, where Stapfer had for months been urging the removal of the French forces. For the first time since the year 1798 Switzerland was therefore free to declare her will. The result of the plébiscite was decisive enough, 72,453 votes being cast in favour of the latest constitution, and 92,423 against it. Nothing daunted by this rebuff, and, adopting a device which the First Consul had invented for the benefit of Dutch liberty, the Bernese leaders declared that the 167,172 adult voters who had not voted at all must reckon as approving the new order of things. The flimsiness of this pretext was soon disclosed. The Swiss had had enough of electioneering tricks, hole-and-corner revolutions, and paper compacts. They rushed to arms; and if ever Carlyle's appeal away from ballot-boxes and parliamentary tongue-fencers to the primæval mights of man can be justified, it was in the sharp and decisive conflicts of the early autumn of 1802 in Switzerland. The troops of the central authorities, marching forth from Berne to quell the rising ferment, sustained a repulse at the foot of Mont Pilatus, as also before the walls of Zürich; and, the revolt of the federals ever gathering force, the Helvetic authorities were driven from Berne to Lausanne. There they were planning flight across the Lake of Geneva to Savoy, when, on October 15th, the arrival of Napoleon's aide-de-camp, General Rapp, with an imperious proclamation dismayed the federals and promised to the discomfited unionists the mediation of the First Consul for which they had humbly pleaded.[223]
Napoleon had apparently viewed the late proceedings in Switzerland with mingled feelings of irritation and amused contempt. "Well, there you are once more in a Revolution" was his hasty comment to Stapfer at a diplomatic reception shortly after Easter; "try and get tired of all that." It is difficult, however, to believe that so keen-sighted a statesman could look forward to anything but commotions for a land that was being saddled with an impracticable constitution, and whence the controlling French forces were withdrawn at that very crisis. He was certainly prepared for the events of September: many times he had quizzingly asked Stapfer how the constitution was faring, and he must have received with quiet amusement the solemn reply that there could be no doubt as to its brilliant success. When the truth flashed on Stapfer he was dumbfoundered, especially as Talleyrand at first mockingly repulsed any suggestion of the need of French mediation, and went on to assure him that his master had neither counselled nor approved the last constitution, the unfitness of which was now shown by the widespread insurrection. Two days later, however, Napoleon altered his tone and directed Talleyrand vigorously to protest against the acts and proclamations of the victorious federals as "the most violent outrage to French honour." On the last day of September he issued a proclamation to the Swiss declaring that he now revoked his decision not to mingle in Swiss politics, and ordered the federal authorities and troops to disperse, and the cantons to send deputies to Paris for the regulation of their affairs under his mediation. Meanwhile he bade the Swiss live once more in hope: their land was on the brink of a precipice, but it would soon be saved! Rapp carried analogous orders to Lausanne and Berne, while Ney marched in with a large force of French troops that had been assembled near the Swiss frontiers.