by Edmund Burke
His Grace is pleased to aggravate my guilt by charging my acceptance of his Majesty’s grant as a departure from my ideas and the spirit of my conduct with regard to economy. If it be, my ideas of economy wore false and ill-founded. But they are the Duke of Bedford’s ideas of economy I have contradicted, and not my own. If he means to allude to certain bills brought in by me on a message from the throne in 1782, I tell him that there is nothing in my conduct that can contradict either the letter or the spirit of those acts. Does he mean the Pay-Office Act? I take it for granted he does not. The act to which he alludes is, I suppose, the Establishment Act. I greatly doubt whether his Grace has ever read the one or the other. The first of these systems cost me, with every assistance which my then situation gave me, pains incredible. I found an opinion common through all the offices, and general in the public at large, that it would prove impossible to reform and methodize the office of pay-master-general. I undertook it, however; and I succeeded in my undertaking. Whether the military service, or whether the general economy of our finances have profited by that act, I leave to those who are acquainted with the army and with the treasury to judge.
An opinion full as general prevailed also, at the same time, that nothing could be done for the regulation of the civil list establishment. The very attempt to introduce method into it, and any limitations to its services, was held absurd. I had not seen the man who so much as suggested one economical principle or an economical expedient upon that subject. Nothing but coarse amputation or coarser taxation were then talked of, both of them without design, combination, or the least shadow of principle. Blind and headlong zeal or factious fury were the whole contribution brought by the most noisy, on that occasion, towards the satisfaction of the public or the relief of the crown.
Let me tell my youthful censor, that the necessities of that time required something very different from what others then suggested or what his Grace now conceives. Let me inform him, that it was one of the most critical periods in our annals.
Astronomers have supposed, that, if a certain comet, whose path intersected the ecliptic, had met the earth in some (I forgot what) sign, it would have whirled us along with it, in its eccentric course, into God knows what regions of heat and cold. Had the portentous comet of the Rights of Man, (which “from its horrid hair shakes pestilence and war,” and “with fear of change perplexes monarchs,”) had that comet crossed upon us in that internal state of England, nothing human could have prevented our being irresistibly hurried out of the highway of heaven into all the vices, crimes, horrors, and miseries of the French Revolution.
Happily, France was not then Jacobinized. Her hostility was at a good distance. We had a limb cut off, but we preserved the body: we lost our colonies, but we kept our Constitution. There was, indeed, much intestine heat; there was a dreadful fermentation. Wild and savage insurrection quitted the woods, and prowled about our streets in the name of Reform. Such was the distemper of the public mind, that there was no madman, in his maddest ideas and maddest projects, who might not count upon numbers to support his principles and execute his designs.
Many of the changes, by a great misnomer called Parliamentary Reforms, went, not in the intention of all the professors and supporters of them, undoubtedly, but went in their certain, and, in my opinion, not very remote effect, home to the utter destruction of the Constitution of this kingdom. Had they taken place, not France, but England, would have had the honor of leading up the death-dance of democratic revolution. Other projects, exactly coincident in time with those, struck at the very existence of the kingdom under any Constitution. There are who remember the blind fury of some and the lamentable helplessness of others; here, a torpid confusion, from a panic fear of the danger, — there, the same inaction, from a stupid insensibility to it; here, well-wishers to the mischief, — there, indifferent lookers-on. At the same time, a sort of National Convention, dubious in its nature and perilous in its example, nosed Parliament in the very seat of its authority, — sat with a sort of superintendence over it, — and little less than dictated to it, not only laws, but the very form and essence of legislature itself. In Ireland things ran in a still more eccentric course. Government was unnerved, confounded, and in a manner suspended. Its equipoise was totally gone. I do not mean to speak disrespectfully of Lord North. He was a man of admirable parts, of general knowledge, of a versatile understanding fitted for every sort of business, of infinite wit and pleasantry, of a delightful temper, and with a mind most perfectly disinterested. But it would be only to degrade myself by a weak adulation, and not to honor the memory of a great man, to deny that he wanted something of the vigilance and spirit of command that the time required. Indeed, a darkness next to the fog of this awful day lowered over the whole region. For a little time the helm appeared abandoned.
Ipse diem noctemque negat discernere cœlo,
Nec meminisse viæ mediâ Palinurus in undâ.
At that time I was connected with men of high place in the community. They loved liberty as much as the Duke of Bedford can do; and they understood it at least as well. Perhaps their politics, as usual, took a tincture from their character, and they cultivated what they loved. The liberty they pursued was a liberty inseparable from order, from virtue, from morals, and from religion, — and was neither hypocritically nor fanatically followed. They did not wish that liberty, in itself one of the first of blessings, should in its perversion become the greatest curse which could fall upon mankind. To preserve the Constitution entire, and practically equal to all the great ends of its formation, not in one single part, but in all its parts, was to them the first object. Popularity and power they regarded alike. These were with them only different means of obtaining that object, and had no preference over each other in their minds, but as one or the other might afford a surer or a less certain prospect of arriving at that end. It is some consolation to me, in the cheerless gloom which darkens the evening of my life, that with them I commenced my political career, and never for a moment, in reality nor in appearance, for any length of time, was separated from their good wishes and good opinion.
By what accident it matters not, nor upon what desert, but just then, and in the midst of that hunt of obloquy which ever has pursued me with a full cry through life, I had obtained a very considerable degree of public confidence. I know well enough how equivocal a test this kind of popular opinion forms of the merit that obtained it. I am no stranger to the insecurity of its tenure. I do not boast of it. It is mentioned to show, not how highly I prize the thing, but my right to value the use I made of it. I endeavored to turn that short-lived advantage to myself into a permanent benefit to my country. Far am I from detracting from the merit of some gentlemen, out of office or in it, on that occasion. No! It is not my way to refuse a full and heaped measure of justice to the aids that I receive. I have through life been willing to give everything to others, — and to reserve nothing for myself, but the inward conscience that I had omitted no pains to discover, to animate, to discipline, to direct the abilities of the country for its service, and to place them in the best light to improve their age, or to adorn it. This conscience I have. I have never suppressed any man, never checked him for a moment in his course, by any jealousy, or by any policy. I was always ready, to the height of my means, (and they wore always infinitely below my desires,) to forward those abilities which overpowered my own. He is an ill-furnished undertaker who has no machinery but his own hands to work with. Poor in my own faculties, I ever thought myself rich in theirs. In that period of difficulty and danger, more especially, I consulted and sincerely coöperated with men of all parties who seemed disposed to the same ends, or to any main part of them. Nothing to prevent disorder was omitted: when it appeared, nothing to subdue it was left uncounselled nor unexecuted, as far as I could prevail. At the time I speak of, and having a momentary lead, so aided and so encouraged, and as a feeble instrument in a mighty hand — I do not say I saved my country; I am sure I did my country important service.
There were few, indeed, that did not at that time acknowledge it, — and that time was thirteen years ago. It was but one voice, that no man in the kingdom better deserved an honorable provision should be made for him. So much for my general conduct through the whole of the portentous crisis from 1780 to 1782, and the general sense then entertained of that conduct by my country. But my character as a reformer, in the particular instances which the Duke of Bedford refers to, is so connected in principle with my opinions on the hideous changes which have since barbarized France, and, spreading thence, threaten the political and moral order of the whole world, that it seems to demand something of a more detailed discussion.
My economical reforms were not, as his Grace may think, the suppression of a paltry pension or employment, more or less. Economy in my plans was, as it ought to be, secondary, subordinate, instrumental. I acted on state principles. I found a great distemper in the commonwealth, and according to the nature of the evil and of the object I treated it. The malady was deep; it was complicated, in the causes and in the symptoms. Throughout it was full of contra-indicants. On one hand, government, daily growing more invidious from an apparent increase of the means of strength, was every day growing more contemptible by real weakness. Nor was this dissolution confined to government commonly so called. It extended to Parliament, which was losing not a little in its dignity and estimation by an opinion of its not acting on worthy motives. On the other hand, the desires of the people (partly natural and partly infused into them by art) appeared in so wild and inconsiderate a manner with regard to the economical object, (for I set aside for a moment the dreadful tampering with the body of the Constitution itself,) that, if their petitions had literally been complied with, the state would have been convulsed, and a gate would have been opened through which all property might be sacked and ravaged. Nothing could have saved the public from the mischiefs of the false reform but its absurdity, which would soon have brought itself, and with it all real reform, into discredit. This would have left a rankling wound in the hearts of the people, who would know they had failed in the accomplishment of their wishes, but who, like the rest of mankind in all ages, would impute the blame to anything rather than to their own proceedings. But there were then persons in the world who nourished complaint, and would have been thoroughly disappointed, if the people were ever satisfied. I was not of that humor. I wished that they should be satisfied. It was my aim to give to the people the substance of what I knew they desired, and what I thought was right, whether they desired it or not, before it had been modified for them into senseless petitions. I knew that there is a manifest, marked distinction, which ill men with ill designs, or weak men incapable of any design, will constantly be confounding, — that is, a marked distinction between change and reformation. The former alters the substance of the objects themselves, and gets rid of all their essential good as well as of all the accidental evil annexed to them. Change is novelty; and whether it is to operate any one of the effects of reformation at all, or whether it may not contradict the very principle upon which reformation is desired, cannot be certainly known beforehand. Reform is not a change in the substance or in the primary modification of the object, but a direct application of a remedy to the grievance complained of. So far as that is removed, all is sure. It stops there; and if it fails, the substance which underwent the operation, at the very worst, is but where it was.
All this, in effect, I think, but am not sure, I have said elsewhere. It cannot at this time be too often repeated, line upon line, precept upon precept, until it comes into the currency of a proverb, — To innovate is not to reform. The French revolutionists complained of everything; they refused to reform anything; and they left nothing, no, nothing at all, unchanged. The consequences are before us, — not in remote history, not in future prognostication: they are about us; they are upon us. They shake the public security; they menace private enjoyment. They dwarf the growth of the young; they break the quiet of the old. If we travel, they stop our way. They infest us in town; they pursue us to the country. Our business is interrupted, our repose is troubled, our pleasures are saddened, our very studies are poisoned and perverted, and knowledge is rendered worse than ignorance, by the enormous evils of this dreadful innovation. The Revolution harpies of France, sprung from Night and Hell, or from that chaotic Anarchy which generates equivocally “all monstrous, all prodigious things,” cuckoo-like, adulterously lay their eggs, and brood over, and hatch them in the nest of every neighboring state. These obscene harpies, who deck themselves in I know not what divine attributes, but who in reality are foul and ravenous birds of prey, (both mothers and daughters,) flutter over our heads, and souse down upon our tables, and leave nothing unrent, unrifled, unravaged, or unpolluted with the slime of their filthy offal.
If his Grace can contemplate the result of this complete innovation, or, as some friends of his will call it, reform, in the whole body of its solidity and compound mass, at which, as Hamlet says, the face of heaven glows with horror and indignation, and which, in truth, makes every reflecting mind and every feeling heart perfectly thought-sick, without a thorough abhorrence of everything they say and everything they do, I am amazed at the morbid strength or the natural infirmity of his mind.
It was, then, not my love, but my hatred to innovation, that produced my plan of reform. Without troubling myself with the exactness of the logical diagram, I considered them as things substantially opposite. It was to prevent that evil, that I proposed the measures which his Grace is pleased, and I am not sorry he is pleased, to recall to my recollection. I had (what I hope that noble Duke will remember in all his operations) a state to preserve, as well as a state to reform. I had a people to gratify, but not to inflame or to mislead. I do not claim half the credit for what I did as for what I prevented from being done. In that situation of the public mind, I did not undertake, as was then proposed, to new-model the House of Commons or the House of Lords, or to change the authority under which any officer of the crown acted, who was suffered at all to exist. Crown, lords, commons, judicial system, system of administration, existed as they had existed before, and in the mode and manner in which they had always existed. My measures were, what I then truly stated them to the House to be, in their intent, healing and mediatorial. A complaint was made of too much influence in the House of Commons: I reduced it in both Houses; and I gave my reasons, article by article, for every reduction, and showed why I thought it safe for the service of the state. I heaved the lead every inch of way I made. A disposition to expense was complained of: to that I opposed, not mere retrenchment, but a system of economy, which would make a random expense, without plan or foresight, in future, not easily practicable. I proceeded upon principles of research to put me in possession of my matter, on principles of method to regulate it, and on principles in the human mind and in civil affairs to secure and perpetuate the operation. I conceived nothing arbitrarily, nor proposed anything to be done by the will and pleasure of others or my own, — but by reason, and by reason only. I have ever abhorred, since the first dawn of my understanding to this its obscure twilight, all the operations of opinion, fancy, inclination, and will, in the affairs of government, where only a sovereign reason, paramount to all forms of legislation and administration, should dictate. Government is made for the very purpose of opposing that reason to will and to caprice, in the reformers or in the reformed, in the governors or in the governed, in kings, in senates, or in people.
On a careful review, therefore, and analysis of all the component parts of the civil list, and on weighing them against each other, in order to make as much as possible all of them a subject of estimate, (the foundation and corner-stone of all regular, provident economy,) it appeared to me evident that this was impracticable, whilst that part called the pension list was totally discretionary in its amount. For this reason, and for this only, I proposed to reduce it, both in its gross quantity and in its larger individual proportions, to a certainty; lest, if it were left without a genera
l limit, it might eat up the civil list service, — if suffered to be granted in portions too great for the fund, it might defeat its own end, and, by unlimited allowances to some, it might disable the crown in means of providing for others. The pension list was to be kept as a sacred fund; but it could not be kept as a constant, open fund, sufficient for growing demands, if some demands would wholly devour it. The tenor of the act will show that it regarded the civil list only, the reduction of which to some sort of estimate was my great object.
No other of the crown funds did I meddle with, because they had not the same relations. This of the four and a half per cents does his Grace imagine had escaped me, or had escaped all the men of business who acted with me in those regulations? I knew that such a fund existed, and that pensions had been always granted on it, before his Grace was born. This fund was full in my eye. It was full in the eyes of those who worked with me. It was left on principle. On principle I did what was then done; and on principle what was left undone was omitted. I did not dare to rob the nation of all funds to reward merit. If I pressed this point too close, I acted contrary to the avowed principles on which I went. Gentlemen are very fond of quoting me; but if any one thinks it worth his while to know the rules that guided me in my plan of reform, he will read my printed speech on that subject, at least what is contained from page 230 to page 241 in the second volume of the collection which a friend has given himself the trouble to make of my publications. Be this as it may, these two bills (though achieved with the greatest labor, and management of every sort, both within and without the House) were only a part, and but a small part, of a very large system, comprehending all the objects I stated in opening my proposition, and, indeed, many more, which I just hinted at in my speech to the electors of Bristol, when I was put out of that representation. All these, in some state or other of forwardness, I have long had by me.