The development of central government

Louis’s inner council was based on the model of the royal council in Richelieu’s days, a High Council (Conseil d’en Haut) consisting of only three or four members and excluding the king’s own relatives. Members of this council were known as ministers, but they held no formal right to the title and ceased to be a minister if the king chose not to summon them. The first of these great men were Michel Le Tellier, Hugues de Lionne, and Nicolas Fouquet; but the last was disgraced within a year, and by 1665 his place had been taken by Mazarin’s former secretary, Jean-Baptiste Colbert. These three men dominated the government in the early years of Louis’s personal reign, but always, as with Richelieu and Louis XIII, under the watchful and jealous eye of the king. Le Tellier had been secretary of state for military affairs under Mazarin’s regime, and his greatest contribution under Louis was to reorganize the army along lines that were hardly changed until after 1789. He created a royal army that wore the king’s uniform; it was commanded by his officers and was ultimately responsible to the sovereign. It was a standing army of hitherto undreamed-of size, reaching 400,000 men in times of war and requiring close regulation in matters of discipline, training, recruitment, supply, and overall organization. The success of Le Tellier and of his son Louvois, who succeeded him, goes far to explain the dominance of French arms in Europe during Louis’s reign.

Lionne, the expert in foreign affairs, had been the chief French negotiator at the Peace of the Pyrenees. His effective influence on Louis is difficult to gauge; he certainly was not the sole source of advice in foreign affairs. Lionne remains a more elusive personality than his colleagues, though there can be no doubt of his importance. It should be remembered that all important matters of state were reviewed at the High Council; and the king’s ministers were expected to give advice and opinions on all that was discussed, not simply on matters in the area of their particular expertise.

Colbert, however, remains the best-known of these intimate counselors. Of the 17 ministers summoned by Louis XIV to the High Council during his reign, 5 were members of the Colbert family. In 1664, Colbert was appointed superintendent of the king’s buildings; in 1665, controller general of finances; in 1669, secretary of state for the navy. His capacity for work and his grasp of detail were remarkable; but he was not an original, much less a revolutionary, thinker. His chief contribution to the king’s finances, like Sully’s, was to make the machinery more efficient, not to substitute any new mechanisms. Colbert’s first achievement was to present the king with a monthly statement of the financial situation, though his annual estimates for the following year never persuaded Louis of the need for economies if his mind was set in other directions. Yet, within 10 years of taking office, Colbert, mainly by tightening up on the tax-collecting administration and by rationalizing the gathering of indirect taxes, did succeed in producing a surplus. He turned a large part of central and northern France into a free-trade area and gave the responsibility for collecting all indirect taxes there to a new syndicate of tax farmers called the Farmers-General. Under Colbert, the total sum levied from indirect taxation rose from 36 million livres to 62 million.

In his industrial policy Colbert believed that France needed to produce for itself those manufactured goods that it was importing. To achieve this mercantilist goal, derived from, among other sources, the ideas of Richelieu, Colbert was willing to invoke a variety of improvisations: direct subsidies, exemptions from the taille, monopoly grants, and controls exercised through town guilds. Skilled foreign workmen were persuaded to settle in France and to pass on their skills to native artisans; protective tariffs were imposed. The famous tapestry works of the Gobelin family was made a state enterprise, and France became largely self-sufficient in the production of woolen cloth. Colbert also had some success in other industries, such as sugar refining, plate-glass making, and the production of silk, naval stores, and armaments. The overall results of his hard work, however, were disappointing. French economic growth lagged behind that of England and the Netherlands, where governments permitted greater entrepreneurial initiative.

Much more successful were Colbert’s efforts at fostering the growth of the navy. He reorganized the recruitment system on a rotating basis, whereby seamen served in the royal navy for six months every three years. He refurbished the hospitals in each of the major ports; rebuilt the arsenals at Toulon and Rochefort; and increased the size of the navy from about 25 ships in 1661 to 144 in 1677. He also established schools of marine engineering, hydrography, and cartography. His interest in reestablishing French sea power was, in part, to challenge the commercial supremacy of the Dutch. He encouraged the building of the French mercantile marine and established a number of overseas trading companies, in particular the East India and Levant companies, neither of which had much success. He also attempted to protect French colonial interests in the West Indies and Canada. The Code Noir of 1685, imposed after Colbert’s death, legalized slavery in the French colonies, even though it was banned in France itself.

Besides the High Council, the king’s council also met for somewhat less vital matters under a variety of different guises. The Council for Dispatches (Conseil des Dépêches), or, more loosely, the Council for the Interior, had particular responsibility for home affairs, including the activities of the intendants; the Royal Council for Finances (Conseil Royal des Finances) supervised important matters affecting financial aspects of the king’s domain lands. These two councils, like the High Council, were presided over by the king in person. But the royal council also met without the king under three further titles to deal with judicial and administrative matters. The Privy Council (Conseil Privé) judged disputes between individuals or bodies and dispensed the king’s supreme and final judgments. The State Council for Finances (Conseil d’État et Finances) expedited financial matters of secondary importance, while the Financial Arbitration Court (Grande Direction des Finances) was an administrative tribunal that settled disputes between the state and individuals or corporations. Each of these subdivisions of the king’s council contained more members than the exclusive High Council, made up of the secretaries of state and of financial and judicial experts.

The initial group composing the High Council contributed a great deal to the basic pattern of Louis’s reign, particularly in military, fiscal, naval, and commercial attitudes, partly because many of those who followed as ministers came from the same tightly knit group of royal servants. In addition to the five members of the Colbert family, there were also three Le Telliers; and, while only one member of the Phélypeaux family, Louis II, comte de Pontchartrain, was a minister, four served as important secretaries of state. All these counselors reflected the attitude of the king himself: they worked extremely hard; they proffered advice but were under no illusions about the danger of arguing once Louis had made up his mind; and they favoured a protectionist, paternalist policy, whether in the organization of industry, the administration of the colonies, or the building up of the navy. Only toward the end of the reign, with the establishment of the Council of Commerce in 1700, did a less regulatory policy show signs of emerging.

To carry out the decisions reached in his intimate and secret High Council, Louis relied chiefly on his provincial intendants. Stationed in the capital cities of France’s 30-odd généralités, or administrative districts, the intendants were, like the ministers, appointed by the king. In the provinces they could exercise powers of police; raise military forces; regulate industrial, commercial, and agricultural matters; enforce censorship; administer the financial affairs of various communities; assign and collect taxes; and wield considerable judicial authority in civil and criminal affairs. Inevitably, these agents of the central government created considerable friction and hostility. These new men, with no local roots, answerable only to the king and acting almost invariably in an authoritarian context, were deeply resented by older royal officials, by municipal authorities and guilds, and by local parlements and estates—all of whom operated through well-established channels and according to traditional local privileges. The use of intendants, who held neither venal nor hereditary office, was one way in which the limiting effect of the sale of office on royal policies could be circumvented. The authoritarian element of Louis XIV’s reign is undeniable: he was determined that no institution or social class would escape the supervision of the crown and its ministers. Thus, the power of patronage, which had been exercised for generations in provincial noble households, began to lose its political significance as the king’s ministers built up their own alternative administrative clienteles.

In particular, because the Fronde had remained a painful memory from his childhood, the king never allowed the great nobles a similar opportunity for revolt. Versailles became a place of surveillance for pensioned noblemen and their families whose only serious occupation was the traditional one of arms, and Louis provided ample opportunities for this pursuit. Provincial nobles were drawn into cooperation with the royal administration and shared in the profits made from exploiting the system. The second rebellious group in the Fronde, the members of the Parlement of Paris, were likewise subjected to stringent controls. In 1673 Louis produced regulations stipulating that the court’s remonstrances against royal enactments sent to it could in future be made only after the laws concerned had been registered. By this device the king effectively muzzled the magistrates’ criticisms of royal policy. It was equally his intention to overcome the delaying tactics of the provincial courts, especially those situated close to vulnerable frontiers.