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underhandedly； presents him as a candidate for the general council of
Haute…Garonne； and the government places him in that office。 …〃All the
notable land…owners of the department formed part of this council； and
the Restoration still found us there seven years afterwards。 General
orders evidently existed； enjoining the prefects to give preference in
their choice to the most important land…owners in the country。〃
Likewise； Napoleon everywhere selects the mayors from the rich and
well…to…do class〃； in the large towns he appoints only 〃people with
carriages。〃＇26＇ Many of them in the country and several in the towns
are legitimists＇27＇； at least at heart； and Napoleon knows it； but； as
he says； 〃these folks do not want the earthquake〃； they are too much
interested； and too personally； in the maintenance of order。＇28＇
Moreover； to represent his government； he needs decorative people； and
it is only these who can be so gratis； be themselves； look well； at
their own expense； and on the spot。 Besides； they are the most
informed； the best able to supervise accounts； to examine article by
article the budgets of the department and commune； to comprehend the
necessity of a road and the utility of a canal； to offer pertinent
observations； to proclaim wise decisions； to obey orders as discreet
and useful collaborators。 All this they will not refuse to do if they
are sensible people。 In every form of government； it is better to be
with the governors than with the governed； and in this case； when the
broom is wielded from above and applied so vigorously and with such
meticulousness to everybody and everything； it is well to be as near
the handle as possible。
And what is still better； they will volunteer； especially at the
beginning； if they are good people。 For； at least during the first
years； one great object of the new government is the re…establishment
of order in the local as well as in the general administration。 It is
well…disposed and desires to mend matters； it undertakes the
suppression of robbery； theft； embezzlement； waste； premeditated or
unintentional arrogation of authority； extravagance； negligence and
failure。
〃Since 1790；〃＇29＇ says the First Consul to the minister of the
interior； 〃the 36；000 communes represent； in France； 36；000 orphans 。
。 。 girls abandoned or plundered during ten years by their municipal
guardians； appointed by the Convention and the Directory。 In changing
the mayors； assistants； and councilors of the commune； scarcely more
has been done than to change the mode of stealing； they have stolen
the communal highway； the by…roads； the trees； and have robbed the
Church；＇30＇ they have stolen the furniture belonging to the commune
and are still stealing under the spineless municipal system of year
VIII。〃
All these abuses are investigated and punished；＇31＇ he thieves are
obliged to restore and will steal no more。 The county budget； like of
the State； must now be prepared every year；＇32＇ with the same method；
precision； and clearness； receipts on one side and expenses on the
other； each section divided into chapters and each chapter into
articles； the state of the liabilities； each debt； the state of the
assets and a tabular enumeration of distinct resources； available
capital and unpaid claims； fixed income and variable income； certain
revenue and possible revenue。 In no case must 〃the calculation of
presumable expenditure exceed the amount of presumable income。〃 In no
case must 〃the commune demand or obtain an extra tax for its ordinary
expenses。〃 Exact accounts and rigid economy； such are everywhere
indispensable； as well as preliminary reforms； when a badly kept house
has to be transformed into one which is kept in good order。 The First
Consul has at heart these two reforms and he adheres to them。 Above
all there must be no more indebtedness； now； more than one…half of the
communes are in debt。 〃Under penalty of dismissal； the prefect is to
visit the communes at least twice a year； and the sub…prefect four
times a year。＇33＇ A reward must be given to mayors who free their
commune of debt in two years； and the government will appoint a
special commissioner to take charge of the administration of a commune
which； after a delay of five years； shall not be liberated。 The fifty
mayors who； each year； shall have most contributed to unencumber their
commune and assure that is has resources available； shall be summoned
to Paris at the expense of the State； and presented in solemn session
to the three consults。 A column； raised at the expense of the
government and placed at the principal entrance of the town or
village； will transmit to posterity the mayor's name； and； besides；
this inscription： 'To the guardian of the commune； a grateful
country。' 〃
Instead of these semi…poetic honors adapted to the imaginations of the
year VIII； take the positive honors adapted to the imaginations of the
year XII； and the following years； brevets and grades； decorations of
the Legion d'Honneur； the titles of chevalier； baron； and count；＇34＇
presents and endowments； … the rewards offered to the representatives
of local society； the same as to the other functionaries； but on the
same condition that they will likewise be functionaries； that is to
say； tools in the hands of the government。 In this respect； every
precaution is taken； especially against those who； forming a
collective body； may be tempted to consider themselves a deliberative
assembly； such as municipal and general councils； less easily handled
than single individuals and； at times； capable of not being quite so
docile。 None of these can hold sessions of more than fifteen days in
the year； each must accept its budget of receipts and expenses； almost
complete and ready made； from the prefecture。 In the way of receipts；
its powers consist wholly in voting certain additional and optional
centimes； more or less numerous； at will； 〃within the limits
established by law〃；＇35＇ again； even within these limits； its decision
can be carried out only after an examination and approval at the
prefecture。 There is the same regulation in regard to expenses； the
council； indeed； municipal or general； is simply consultative； the
government delegates the mayor； sub…prefect； or prefect； who
prescribes what must be done。 As the preliminary steps are taken by
him； and he has constant direction of the local council for two weeks；
and finally the right of confirmation； he controls it； and then for
eleven months and a half； having sole charge of the daily and
consecutive execution of its acts； he reigns in the local community。
Undoubtedly； having received and expended money for the community； he
is accountable and will present his yearly accounts at the following
session； the law says＇36＇ that in the commune； 〃the municipal council
shall listen to and may discuss the account of municipal receipts and
expenses。〃 But read the text through to the end； and note the part
which the law； in this case； assigns to the municipal council。 It
plays the part of the chorus in the antique tragedy： it attends；
listens； approves； or disapproves； in the background and subordinate；
approved or rebuked； the principal actors remain in charge and do as
they please； they grant or dispute over its head； independently； just
as it suits them。 In effect； it is not to the municipal council that
the mayor renders his accounts； but 〃to the sub…prefect； who finally
passes them；〃 and gives him his discharge。 Whatever the council may
say； the approval is valid； for greater security； the prefect； if any
councilor proves refractory； 〃may suspend from his functions〃 a
stubborn fellow like him； and restore in the council the unanimity
which has been partially disturbed。 … In the department； the council…
general must likewise 〃listen〃 to the accounts for the year； the law；
owing to a significant omission； does not say that is may discuss
them。 Nevertheless； a circular of the year IX requests it to 〃make
every observation on the use of the additional centimes〃 which the
importance of the subject demands； to verify whether each sum debited
to expenses has been used for the purpose assigned to it； and even 〃to
reject expenses； stating the reasons for this decision； which have not
been sufficiently justified。〃 And better still； the minister； who is a
liberal； addresses a systematic series of questions to the general
councils； on all important matters；＇37＇ 〃agriculture； commerce； and
manufactures； asylums and public charities； public roads and other
works； public instruction； administration properly so called； state of
the number of population； public spirit and opinions；〃 collecting and
printing their observations and desires。 After the year IX； however；
this publication stops； it renders the general councils too important；
it might rally the entire population of the department to them and
even of all France that could read； it might hamper