King and parlements

In 1770 the conflict with the parlements had reached such a level that Louis XV was finally goaded into a burst of absolutist energy. The Paris Parlements, which had dared to attack Terray’s financial reform, were dissolved on January 19, 1771. Maupeou was then authorized to create an altogether different set of parlements with appointed judges shorn of administrative and political power.

In time, opinion might well have accepted Terray’s and Maupeou’s reforms, despite the outcry raised by the parlements’ supporters, who argued that the arbitrary uprooting of these centuries-old institutions threatened to turn France into a "ministerial despotism.” France might then, like Prussia, have avoided revolution from below through the practice of a revolution from above. But the death of Louis XV in 1774 put an end to the experiment. His 20-year-old successor, Louis XVI (reigned 1774–92), unsure of himself and eager to please, recalled the parlements and forced Maupeou into retirement.

In late 1774 Louis XVI appointed Turgot, a former intendant, comptroller general. Perhaps because he thought that the success of his reforms would guarantee their acceptance, perhaps also because he thought it vain to attack the Parlement directly so soon after Maupeou’s dismissal, Turgot carried through his measures without first destroying the institutional bases of privileged conservatism. He left the Parlement alone and attempted instead to reduce government expenditures and to alter the methods of tax collecting. In accordance with his physiocratic laissez-faire principles, he freed the grain trade from restraint; suppressed the corvée, or forced labour service, exacted from the peasants; and abolished the guilds, which had limited both access to artisanal professions and the competition within them. Finally, he suggested that Protestants should be given freedom of conscience. In short, Turgot attempted to rationalize the administrative practices of the French state and to individuate French social and economic life. The solution to the financial crisis, he thought, would come not through the state’s appropriation of a larger share of extant resources but from the expansion of the nation’s ability to produce and pay. The strength of creative individualism, he thought, would break the political impasse.

In May 1776, however, Turgot was dismissed. Opposition to his measures had come from all sides: a poor harvest had sparked peasant disturbances, the clericalists were antagonized by Turgot’s philosophical friends (his greatest and most loyal disciple was Marie-Jean-Antoine-Nicolas de Caritat, marquis de Condorcet, the future Girondin), and, when the Parlement of Paris once again refused to register the new edicts, Louis abandoned Turgot as he had dismissed Maupeou. Thenceforth, the state carried through only minor reforms, none of them on a scale commensurate with the needs felt by the Enlightenment bourgeoisie and notables of the cities and towns. The vestiges of serfdom were suppressed in 1779, and in 1780 torture was abolished. In 1784 the king’s use of lettres de cachet for purposes of arbitrary imprisonment without trial was considerably curtailed. But these were minor adjustments. Nothing was done to solve the fundamental problems of the organization of society and of the state in a manner that would be acceptable to progressive public opinion.

The issue of fundamental reform came to the fore again in 1786, when the loans floated to pay for the American war began to come due, and the controller general, Charles-Alexandre de Calonne (1734–1802), had to tell the king that they could not be repaid. "The only way to bring real order into the finances is to revitalize the entire state by reforming all that is defective in its constitution," Calonne told his sovereign.

Although Louis XVI accepted Calonne’s proposal to convene an Assembly of Notables, chosen from the country’s elites, and to seek their endorsement for a comprehensive reform program, the monarchy had already frittered away the prestige and authority that might have allowed this gamble to succeed. Repeated changes of policy in the previous decades had made the public wary of royal initiatives. Louis XV’s sexual adventures, especially his public liaison with Mme du Barry, widely rumoured to have once been a prostitute, had severely damaged the monarchy’s image. Louis XVI’s embarrassing inability to consummate his marriage with Marie-Antoinette for seven years also undermined respect for the throne, which suffered a further blow from the Affair of the Diamond Necklace of 1785–86, in which a high-ranking prelate was accused of having tried to seduce the queen.

The Assembly of Notables that Calonne had suggested met in February 1787. The minister presented a program that offered the country’s upper classes some voice in lawmaking in exchange for their consent to the abolition of many traditional privileges, particularly the nobility’s immunity to taxes. Although he did not suggest the creation of a national parliament, Calonne’s plan involved the establishment of provincial assemblies that would oversee the use of public money. Even though Calonne’s proposals were a major step in the direction of representative government and the abolition of special privileges, the notables refused to accept proposals put forward by a minister who they held responsible for previously worsening the deficit. Desperate to obtain badly needed new revenues, Louis XVI replaced Calonne with Loménie de Brienne, archbishop of Toulouse, who had been one of Calonne’s strongest critics in the Assembly of Notables. Almost at once Loménie reversed himself and came to Calonne’s conclusion: the state could not go on as it had. The notables, however, refused to be more amenable to Loménie than they had been to Calonne. Despairing of securing the consent of the privileged orders, Loménie dismissed the assembly in May of 1787, and in August the Paris Parlement was exiled to Troyes.

But these measures were desperate, and already the monarchy was beginning to lose control of the political process. Indeed, for the next two years it floundered from one scheme to another in the impossible hope of squaring the circle of modernistic reform, popular hostility, respect of privilege, and the preservation of royal absolutism. Essentially unwilling to force the privileged notables to yield their corporate rights, the crown was unable to assert any coherent policy. The Parlement was therefore recalled from Troyes in September 1787, again dismissed in May 1788, and, in the face of a beginning of a breakdown of law and order and of the inability of officials to collect taxes, once more recalled to Paris by the crown in August 1788.

By this time, the government had already announced the summoning of a national representative assembly, the Estates-General. All the king’s subjects would be allowed to participate in choosing representatives and in drafting lists of grievances, called cahiers de doléances, in which they could voice their opinions about the problems facing the kingdom. When the just-restored Parlement of Paris, concerned to prevent ministerial manipulation of the Estates-General, rushed to declare that it should be structured "according to the forms of 1614," with the two privileged orders (the clergy and the nobility) having separate chambers and a veto on all legislation, the judges quickly lost most of their popularity. Leadership of the movement for political reform passed to new men who had no stake in preserving old institutions.

Self-proclaimed "patriot" pamphleteers such as the abbé Emmanuel-Joseph Sieyès, whose pamphlet Qu’est-ce que le tiers état? (1789; What Is the Third Estate?) was one of the most widely read of the thousands of tracts published as the royal censorship system ceased to function, demanded that the upcoming assembly be structured so that the Third Estate of commoners, the vast majority of the population, could prevent the privileged orders from paralyzing its deliberations. In a last and fitful assertion of authority, at the behest of Necker, recalled as minister when Loménie was dismissed in August 1788, the crown decided on December 27 to overrule the Paris Parlement. The Estates, it resolved, would meet separately, but the Third Estate would have as many deputies as the other two orders combined. The stage was set for the coming Revolution.