However clear and energetic the ideas of Napoleon are when he sets to work to make the New Régime, his mind is absorbed by the preoccupations of the sovereign. It is not enough for him that his edifice should be monumental, symmetrical, and beautiful. First of all, as he lives in it and derives the greatest benefit from it, he wants it habitable, and habitable for Frenchmen of the year 1800. Consequently, he takes into account the habits and dispositions of his tenants, the pressing and permanent wants for which the new structure is to provide. These wants, however, must not be theoretic and vague, but verified and defined; for he is a calculator as close as he is profound, and deals only with positive facts.
To restore tranquillity, many novel measures are essential. And first, the political and administrative concentration just decreed, a centralisation of all powers in one hand, local powers conferred by the central power, and this supreme power in the hands of a resolute chief equal in intelligence to his high position; next, a regularly paid army, carefully equipped, properly clothed, and fed, strictly disciplined, and therefore obedient and able to do its duty without wavering or faltering, like any other instrument of precision; an active police force and gendarmerie held in check; administrators independent of those under their jurisdiction--all appointed, maintained, watched and restrained from above, as impartial as possible, sufficiently competent, and, in their official spheres, capable functionaries; finally, freedom of worship, and, accordingly, a treaty with Rome and the restoration of the Catholic Church--that is to say, a legal recognition of the orthodox hierarchy, and of the only clergy which the faithful may accept as legitimate--in other words, the institution of bishops by the Pope, and of priests by the bishops. This done, the rest is easily accomplished.
The main thing now is to dress the severe wounds the revolution has made--which are still bleeding--with as little torture as possible, for it has cut down to the quick; and its amputations, whether foolish or outrageous, have left sharp pains or mute suffering in the social organism.
Above all, religion must be restored. Before 1789, the ignorant or indifferent Catholic, the peasant at his plough, the mechanic at his work-bench, the good wife attending to her household, were unconscious of the innermost part of religion; thanks to the revolution, they have acquired the sentiment of it, and even the physical sensation. It is the prohibition of the mass which has led them to comprehend its importance; it is the revolutionary government which has transformed them into theologians.
From the year IV. (1795) the orthodox priests have again recovered their place and ascendancy in the peasant's soul which the creed assigns to them; they have again become the citizen's serviceable guides, his accepted directors, the only warranted interpreters of Christian truth, the only authorised dispensers and ministers of divine grace. He attends their mass immediately on their return, and will put up with no other.
Napoleon, therefore, as First Consul, concludes the Concordat with the Pope and restores religion. By this Concordat the Pope "declares that neither himself nor his successors shall in any manner disturb the purchasers of alienated ecclesiastical property, and that the ownership of the said property, the rights and revenues derived therefrom, shall consequently remain incommutable in their hands or in those of their assigns."
There remain the institutions for instruction. With respect to these, the restoration seems more difficult, for their ancient endowment is almost entirely wasted; the government has nothing to give back but dilapidated buildings, a few scattered investments formerly intended for the maintenance of a college scholarship, or for a village schoolhouse. And to whom should these be returned, since the college and the schoolhouse no longer exist? Fortunately, instruction is an article of such necessity that a father almost always tries to procure it for his children; even if poor, he is willing to pay for it, if not too dear; only, he wants that which pleases him in kind and in quality, and, therefore, from a particular source, bearing this or that factory stamp or label.
The state invites everybody, the communes as well as private persons, to the undertaking. It is on their liberality that it relies for replacing the ancient foundations; it solicits gifts and legacies in favour of new establishments, and it promises "to surround these donations with the most invariable respect." Meanwhile, and as a precautionary measure, it assigns to each its eventual duty; if the commune establishes a primary school for itself, it must provide the tutor with a lodging, and the parents must compensate him; if the commune founds a college or accepts a lycée, it must pay for the annual support of the building, while the pupils, either day-scholars or boarders, pay accordingly.
In this way the heavy expenses are already met, and the state, the manager-general of the service, furnishes simply a very small quota; and this quota, mediocre as a rule, is found almost null in fact, for its main largess consists in 6,400 scholarships which it establishes and engages to support; but it confers only about 3,000 of them, and it distributes nearly all of these among the children of its military or civil employees, so that the son's scholarship becomes additional pay for the father; thus, the two millions which the state seems, under this head, to assign to the lycées, are actually gratifications which it distributes among its functionaries and officials. It takes back with one hand what it bestows with the other.
This being granted, it organises the university and maintains it, not at its own expense, however, but at the expense of others, at the expense of private persons and parents, of the communes, and, above all, at the expense of rival schools and private boarding-schools, of the free institutions, and all this in favour of the university monopoly which subjects these to special taxation as ingenious as it is multifarious. Whoever is privileged to carry on a private school, must pay from two to three hundred francs to the university; likewise, every person obtaining permission to lecture on literature or on science.