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incessantly and they come to terms。 … The prefect； it must be noted；
who is bound to pay； can do so without violating the letter of the
law。 The stern page on which the legislator has printed his imperative
text is always provided with an ample margin where the administrator；
charged with its execution； can write down the decisions that he is
free to make。 In relation to each departmental or communal affair； the
prefect can with his own hand write out what suits him on the white
margin； which； as we have already seen； is ample enough； but the
margin at his disposition is wider still and continues； beyond
anything we have seen； on other pages； he is chargé d'affaires not
only of the department and commune； but again of the State。 Titular
conductor or overseer of all general services； he is； in his
circumscription； head inquisitor of the republican faith＇35＇； even in
relation to private life and inner sentiments； the responsible
director of orthodox or heretical acts or opinions； which are laudable
or blamable in the innumerably army of functionaries by which the
central state now undertakes the complete mastery of human life； the
twenty distinct regiments of its vast hierarchy … with the staff of
the clergy； of the magistracy； of the preventive and repressive
police； of the customs； with the officials of bridges and highways；
forest domains； stock…breeding establishments； postal and telegraph
departments； tobacco and other monopolies； with those of every
national enterprise which ought to be private； Sévres and Gobelins；
deaf and dumb and blind asylums； and every auxiliary and special
workshop for war and navigation purposes； which the state supports and
manages。 I pass some of them and all too many。 Only remark this； that
the indulgence or severity of the prefecture in the way of fiscal
violations or irregularities is an advantage or danger of the highest
importance to 377；000 dealers in wines and liquors； that an accusation
brought before and admitted in the prefecture may deprive 38；000
clergymen of their bread；＇36＇ 43；000 letter…carriers and telegraph
messengers； 45；000 sellers of tobacco and collecting…clerks； 75；000
stone…breakers； and 120；000 male and female teachers；＇37＇ directly or
indirectly； the good or ill favor of the prefecture is of consequence；
since recent military laws； to all adults between 20 and 45 years；
and； since recent school laws； to all children between 6 and 13 years
of age。 According to these figures； which go on increasing from year
to； calculate the breadth of the margin on which； alongside of the
legal text which states the law for persons and things in general； the
prefect in his turn gives the law for persons and things in
particular。 On this margin； which belongs to him； he writes what he
pleases； at one time permissions and favors； exemptions；
dispensations； leaves of absence； relief of taxes or discharges； help
and subventions； preferences and gratuities； appointments and
promotions； and at another time disgrace； hardship； legal proceedings；
dismissals； and special favors。 To guide his hand in each case； that
is to say； to spread all the favors on one side and all the disfavors
on the other； he has； among the local Jacobins； special informers and
important applicants。 If not restrained by a very strong sentiment of
distributive justice and very great solicitude for the public good he
can hardly resist them； and in general when he takes up his pen it is
to write under the dictation of his Jacobin collaborators。
Democracy in France in 1889； Summary。
Thus has the institution of the year VIII deviated （The France of the
revolution corrected and decreed by Napoleon）； no longer attaining its
object。 The prefects； formerly appointed to a department； like a
pacier of the Middle Ages； imposed on it from above； ignorant of local
passions； independent； qualified and fitted for the office； was；
during fifty years； in general； able to remain the impartial minister
of the law and of equity； maintaining the rights of each； and exacting
from each his due； without heeding opinions and without respect to
persons。 Now he is obliged to become an accomplice of the ruling
faction； govern for the advantage of some to the detriment of others；
and to put into his scales； as a preponderating weight； every time he
weighs judgment； a consideration for persons and opinions。 At the same
time； the entire administrative staff in his hands； and under his eye；
deteriorates； each year； on the recommendation of a senator or deputy；
he adds to it； or sees； intruders there； whose previous services are
null； feeble in capacity and of weak integrity who do poor work or
none at all； and who； to hold their post or get promoted； count not on
their merits but on their sponsors。 The rest； able and faithful
functionaries of the old school； who are poor and to whom no path is
open； become weary and lose their energy； they are no longer even
certain of keeping their place； if they stay； it is for the dispatch
of current business and because they cannot be dispensed with； perhaps
to…morrow； however； they will cease to be considered indispensable；
some political denunciation； or to give a political favorite a place；
will put them by anticipation on the retired list。 From now on they
have two powers to consult； one； legitimate and natural； the authority
of their administrative chiefs； and the other illegitimate and
parasite； consisting of democratic influence from both above and
below。 For them； as for the prefect； public welfare descends to the
second rank and the electoral interest mounts upward to the first
rank。 With them as with him self…respect； professional honor； the
conscientious performance of duty； reciprocal loyalty go down；
discipline relaxes； punctuality falters； and； as the saying goes； the
great administrative edifice is no longer a well…kept house； but a
barracks。
Naturally； under the democratic regime； the maintenance and service of
this house becomes more and more costly；＇38＇ for； owing to the
additional centimes； it is the rich and well…to…do minority which
defrays the larger portion of the expense。 Owing to universal
suffrage； the poor or half…poor majority which dominate the elections
so that the large majority with impunity can overtax the minority。 At
Paris； the parliament and the government； elected by this numerical
majority； contrive demands in its behalf； force expenditure； augment
public works； schools； endowments； gratuities； prizes； a
multiplication of offices to increase the number of their clients；
while it never tires in decreeing； in the name of principles； works
for show； theatrical； ruinous； and dangerous； the cost of which they
do not care to know； and of which the social import escapes them。
Democracy； above as well as below； is short…sighted； it seizes
whatever food it comes across； like an animal； with open jaws and head
down； it refuses to anticipate and to calculate； it burdens the future
and wastes every fortune it undertakes to manage； not alone that of
the central state； but； again； those of all local societies。 Up to the
advent of universal suffrage； the administrators appointed above or
elected below； in the department or in the commune； kept tight hold of
the purse…strings； since 1848； especially since 1870； and still later；
since the passage of the laws of 1882； which； in suppressing the
obligatory consent of the heaviest taxed； let slip the last of these
strings； this purse； wide open； is emptied in the street。 … In
1851；＇39＇ the departments； all together； expended 97 millions； in
1869； 192 millions； in 1881； 314 millions。 In 1836； the communes； all
together； save Paris； expended 117 millions； in 1862； 450 millions； in
1877； 676 millions。 If we examine the receipts covering this
expenditure； we find that the additional centimes which supplied the
local budgets； in 1820； with 80 millions； and； in 1850； with 131
millions； supplied them； in 1870； with 249 millions； in 1880； with 318
millions； and； in 1887； with 364 millions。 The annual increase；
therefore； of these superadded centimes to the principal of the direct
taxes is enormous； and finally ends in an overflow。 In 1874；＇40＇ there
were already 24 departments in which the sum of additional centimes
reached or surpassed the sum of the principal。 〃In a very few years；〃
says an eminent economist；＇41＇ 〃it is probable that； for nearly all of
the departments；〃 the overcharge will be similar。 Already； for a long
time； in the total of personal taxation；＇42＇ the local budgets raised
more than the state； and； in 1888； the principal of the tax real
property； 183 millions； is less than the total of centimes joined with
it； 196 millions。 Coming generations are burdened over and beyond the
present generation； while the sum of loans constantly increases； like
that of taxation。 The indebted communes； except Paris； owed；
altogether； in 1868； 524 millions francs＇43＇