The Essays of Francis Bacon/XV Of Seditions and Troubles

by Francis Bacon

XV. Of Seditions and Troubles.

Shepherds of people had need know the calendars of tempests in state; which are commonly greatest, when things grow to equality; as natural tempests are greatest about the Equinoctia.^[1] And as there are certain hollow blasts of wind and secret swellings of seas before a tempest, so are there in states:

——Ille etiam cæcos instare tumultus
Sæpe monet, fraudesque et operta tumescere bella.^[2]

Libels and licentious discourses against the state, when they are frequent and open; and in like sort, false news often running up and down to the disadvantage of the state, and hastily embraced; are amongst the signs of troubles. Virgil^[3] giving the pedigree of Fame, saith she was sister to the Giants:

Illam Terra parens, irâ irritata Deorum,
Extremam (ut perhibent) Cœo Enceladoque sororem
Progenuit.^[4]

As if fames^[5] were the relics of seditions past; but they are no less indeed the preludes of seditions to come. Howsoever he noteth it right, that seditious tumults and seditious fames differ no more but as brother and sister, masculine and feminine; especially if it come to that, that the best actions of a state, and the most plausible, and which ought to give greatest contentment, are taken in ill sense, and traduced: for that shews the envy great, as Tacitus saith, conflata magna invidia, seu bene sen male gesta premunt.^[6] Neither doth it follow, that because these fames are a sign of troubles, that^[7] the suppressing of them with too much severity should be a remedy of troubles. For the despising of them many times checks them best; and the going about to stop them doth but make a wonder long-lived. Also that kind of obedience which Tacitus speaketh of is to be held suspected: Erant in officio, sed tamen qui mallent mandata imperantium interpretari quam exequi;^[8] disputing, excusing, cavilling upon mandates and directions, is a kind of shaking off the yoke, and assay^[9] of disobedience; especially if in those disputings they which are for the direction speak fearfully and tenderly, and those that are against it audaciously.

Also, as Machiavel^[10] noteth well, when princes, that ought to be common parents, make themselves as a party, and lean to a side, it is as a boat that is overthrown by uneven weight on the one side;^[11] as was well seen in the time of Henry the Third^[12] of France; for first himself entered league for the extirpation of the Protestants; and presently after the same league was turned upon himself. For when the authority of princes is made but an accessary to a cause, and that there be other bands that tie faster than the band of sovereignty, kings begin to be put almost out of possession.

Also, when discords, and quarrels, and factions, are carried openly and audaciously, it is a sign the reverence of government is lost. For the motions of the greatest persons in a government ought to be as the motions of the planets under primum mobile;^[13] (according to the old opinion,) which is, that every of them^[14] is carried swiftly by the highest motion, and softly in their own motion. And therefore, when great ones in their own particular motion move violently, and, as Tacitus expresseth it well, liberius quam ut imperantium meminissent,^[15] it is a sign the orbs are out of frame. For reverence is that wherewith princes are girt from God; who threateneth the dissolving thereof; Solvam cingula regum.^[16]

So when any of the four pillars of government are mainly shaken or weakened (which are Religion, Justice, Counsel, and Treasure), men had need to pray for fair weather. But let us pass from this part of predictions (concerning which, nevertheless, more light may be taken from that which followeth); and let us speak first of the Materials of seditions; then of the Motives of them; and thirdly of the Remedies.

Concerning the Materials of seditions. It is a thing well to be considered; for the surest way to prevent seditions (if the times do bear it) is to take away the matter of them. For if there be fuel prepared, it is hard to tell whence the spark shall come that shall set it on fire. The matter of seditions is of two kinds; much poverty and much discontentment. It is certain, so many overthrown estates, so many votes for troubles. Lucan^[17] noteth well the state of Rome before the civil war,

Hinc usura vorax, rapidumque in tempore fœnus,
Hinc concussa fides, et multis utile bellum.^[18]

This same multis utile bellum, is an assured and infallible sign of a state disposed to seditions and troubles. And if this poverty and broken estate^[19] in the better sort be joined with a want and necessity in the mean people, the danger is imminent and great. For the rebellions of the belly are the worst. As for discontentments, they are in the politic body like to humours in the natural, which are apt to gather a preternatural heat and to inflame. And let no prince measure the danger of them by this, whether they be just or unjust: for that were to imagine people to be too reasonable; who do often spurn at their own good: nor yet by this, whether the griefs^[20] whereupon they rise be in fact great or small: for they are the most dangerous discontentments where the fear is greater than the feeling: Dolendi modus, timendi non item.^[21] Besides, in great oppressions, the same things that provoke the patience, do withal mate the courage; but in fears it is not so. Neither let any prince or state be secure concerning discontentments, because they have been often, or have been long, and yet no peril hath ensued: for as it is true that every vapour or fume doth not turn into a storm; so it is nevertheless true that storms, though they blow over divers times, yet may fall at last; and, as the Spanish proverb noteth well, The cord breaketh at the last by the weakest pull.

The Causes and Motives of Seditions are, innovation in religion; taxes; alteration of laws and customs; breaking of privileges; general oppression; advancement of unworthy persons; strangers; dearths; disbanded soldiers; factions grown desperate; and whatsoever, in offending people, joineth and knitteth them in a common cause.

For the Remedies; there may be some general preservatives, whereof we will speak: as for the just cure, it must answer to the particular disease; and so be left to counsel rather than rule.

The first remedy or prevention is to remove by all means possible that material cause of sedition whereof we spake; which is, want and poverty in the estate. To which purpose serveth, the opening and well-balancing of trade; the cherishing of manufactures; the banishing of idleness; the repressing of waste and excess by sumptuary laws; the improvement and husbanding of the soil; the regulating of prices of things vendible; the moderating of taxes and tributes, and the like. Generally, it is to be foreseen that the population of a kingdom ( especially if it be not mown down by wars) do not exceed the stock of the kingdom which should maintain them. Neither is the population to be reckoned only by number; for a smaller number that spend more and earn less, do wear out an estate sooner than a greater number that live lower and gather more. Therefore the multiplying of nobility and other degrees of quality^[22] in an over proportion to the common people, doth speedily bring a state to necessity; and so doth likewise an overgrown clergy; for they bring nothing to the stock; and in like manner, when more are bred scholars than preferments can take off.

It is likewise to be remembered, that forasmuch as the increase of any estate must be upon the foreigner (for whatsoever is somewhere gotten is somewhere lost), there be but three things which one nation selleth unto another; the commodity as nature yieldeth it; the manufacture; and the vecture, or carriage. So that if these three wheels go, wealth will flow as in a spring tide. And it cometh many times to pass, that materiam superabit opus;^[23] that the work and carriage is more worth than the material, and enricheth a state more; as is notably seen in the Low-Countrymen, who have the best mines above ground in the world.

Above all things, good policy is to be used that the treasure and monies in a state be not gathered into few hands. For otherwise a state may have a great stock, and yet starve. And money is like muck, not good except it be spread.^[24] This is done chiefly by suppressing, or at the least keeping a strait hand upon the devouring trades of usury, ingrossing,^[25] great pasturages, and the like.

For removing discontentments, or at least the danger of them; there is in every state (as we know) two portions of subjects; the nobless and the commonalty. When one of these is discontent, the danger is not great; for common people are of slow motion, if they be not excited by the greater sort; and the greater sort are of small strength, except the multitude be apt and ready to move of themselves. Then is the danger, when the greater sort do but wait for the troubling of the waters amongst the meaner, that then they may declare themselves. The poets feign, that the rest of the gods would have bound Jupiter; which he hearing of, by the counsel of Pallas, sent for Briareus, with his hundred hands, to come in to his aid.^[26] An emblem, no doubt, to show how safe it is for monarchs to make sure of the good will of common people.

To give moderate liberty for griefs and discontentments to evaporate (so it be without too great insolency or bravery), is a safe way. For he that turneth the humours back, and maketh the wound bleed inwards, endangereth malign ulcers and pernicious imposthumations.^[27]

The part of Epimetheus^[28] mought well become Prometheus, in the case of discontentments; for there is not a better provision against them. Epimetheus, when griefs and evils flew abroad, at last shut the lid, and kept hope in the bottom of the vessel. Certainly, the politic and artificial nourishing and entertaining of hopes, and carrying men from hopes to hopes, is one of the best antidotes against the poison of discontentments. And it is a certain sign of a wise government and proceeding, when it can hold men's hearts by hopes, when it cannot by satisfaction; and when it can handle things in such manner, as no evil shall appear so peremptory but that it hath some outlet of hope: which is the less hard to do, because both particular persons and factions are apt enough to flatter themselves, or at least to brave^[29] that they believe not.

Also the foresight and prevention, that there be no likely or fit head whereunto discontented persons may resort, and under whom they may join, is a known, but an excellent point of caution. I understand a fit head to be one that hath greatness and reputation; that hath confidence with the discontented party, and upon whom they turn their eyes; and that is thought discontented in his own particular: which kind of persons are either to be won and reconciled to the state, and that in a fast and true manner; or to be fronted with some other of the same party, that may oppose them, and so divide the reputation. Generally, the dividing and breaking of all factions and combinations that are adverse to the state, and setting them at distance,^[30] or at least distrust, amongst themselves, is not one of the worst remedies. For it is a desperate case, if those that hold with the proceeding of the state be full of discord and faction, and those that are against it be entire and united.

I have noted that some witty and sharp speeches which have fallen from princes have given fire to seditions. Cæsar did himself infinite hurt in that speech, Sylla nescivit literas, non potuit dictare:^[31] for it did utterly cut off that hope which men had entertained, that he would at one time or other give over his dictatorship. Galba undid himself by that speech, legi a se militem, non emi;^[32] for it put the soldiers out of hope of the donative. Probus^[33] likewise, by that speech, si vixero, non opus erit amplius Romano imperio militibus;^[34] a speech of great despair for the soldiers. And many the like. Surely princes had need, in tender matters and ticklish times, to beware what they say; especially in these short speeches, which fly abroad like darts, and are thought to be shot out of their secret intentions. For as for large discourses, they are flat things, and not so much noted.

Lastly, let princes, against all events, not be without some great person, one or rather more, of military valour, near unto them, for the repressing of seditions in their beginnings. For without that, there useth to be more trepidation in court upon the first breaking out of troubles than were fit. And the state runneth the danger of that which Tacitus saith; Atque is habitus animorum fuit, ut pessimum facinus auderent pauci, plures vellent, omnes paterentur.^[35] But let such military persons be assured,^[36] and well reputed of, rather than factious and popular; holding also good correspondence with the other great men in the state; or else the remedy is worse than the disease.

1. Equinoctia. Equinoxes.
2. He even often warns that secret tumults are impending, and that treason and open wars are ready to burst forth. Vergil. Georgicon Liber I. 464–465.
3. Publius Vergilius Maro, 70–19 B.C., a famous Roman epic, didactic, and idyllic poet. He wrote the Aeneid, ten Bucolics or Eclogues, and four Georgics.
4. Irritated by the vengeance of the gods, teeming Earth, as they relate, brought her forth last, sister to Coeus and Enceladus. Vergil. Aeneidos Liber IV. 178–180. Bacon also quotes this passage from the Aeneid in the Advancement of Learning, II. iv. 4. Compare also in the Wisdom of the Ancients, The Sister of the Giants; or Fame.
5. Fame. Rumor; report. "And the fame thereof was heard in Pharaoh's house, saying, Joseph's brethren are come: and it pleased Pharaoh well, and his servants." Genesis xlv. 16.
6. When great unpopularity is excited, they condemn acts, both good and bad. Tacitus. Historiarum Liber I. 7. Bacon quotes the sense, not the exact language.
7. So in original. One of the thats should of course be omitted. S.
8. They were in office, but chose rather to interpret the commands of their rulers than to execute them. Tacitus. Historiarum Liber I. 7. (Sense quoted again, not the language.)
9. Assay. Trial.
10. The Italian translation omits the name of Machiavel, and says only un scrittore. S.
11. Discorsi sopra La Prima Deca di T. Livio. III. 27.
12. Henry III., of Valois, 1551–1589, King of France, 1574–1589.
13. Primum mobile. Literally, the movable first; in the Ptolemaic system of astronomy the primum mobile was the tenth or outermost of the revolving spheres of the universe. It was supposed to revolve from east to west in twenty-four hours, and to carry the nine inner spheres along with it in its motion; hence, any great or first source of motion.
14. Every of them. Each of them, every one of them.
15. More freely than is consistent with allegiance to their rulers.
16. I will loosen the girdles of Kings. "He looseth the bond of Kings, and girdeth their loins with a girdle." Job xii. 18.
17. Marcus Annaeus Lucan, 39–65 A.D., a Roman poet; he wrote the Civilis Belli Libri X, called the Pharsalia, an epic poem in ten books on the war between Caesar and Pompey.

18. Hinc usura vorax, avidumque in tempore foenus,
    concussa fides; et multis utile bellum.
    

    Lucan. Civilis Belli Liber I. 181–182.

    Hence voracious usury, and interest rapidly compounding; hence broken faith, and war profitable to many.
19. Estate. Condition.
20. Griefs. Grievances.

    "Be factious for redress of all these griefs."
    

    Shakspere. Julius Caesar. i. 3.

21. There is a limit to suffering, but to fear not so.
22. Quality. Nobility or gentry.

    "The rest are princes, barons, lords, knights, squires,
    And gentlemen of blood and quality."
    

    Shakspere. King Henry V. iv. 8.

23. The work will surpass the material. Bacon is quoting Ovid, literally for once, materiem superabit opus. P. Ovidii Nasonis Metamorphoseon Liber II. 5.
24. "Mr. Bettenham used to say: That riches were like muck; when it lay upon an heap, it gave but a stench and ill odour; but when it was spread upon the ground, then it was cause of much fruit." Bacon. Apophthegmes New and Old. 252 (107).
25. Ingrossing. The action of buying (any article) in large quantities with a view of obtaining a monopoly.
26. Homer. Iliad. I. 396–406.
27. Imposthumation. Abscess.
28. Epimetheus. 'Afterthought,' brother of Prometheus, 'Forethought,' and husband of Pandora. According to the Greek myth, Prometheus had confined the 'griefs and evils' of men in a box, which Pandora opened. Read Bacon's telling of the story of Pandora's box in the Wisdom of the Ancients, Prometheus; or the State of Man. Also Longfellow's, The Masque of Pandora.
29. Brave. To boast of.
30. Distance. Discord, dissension, enmity. The meaning is derived from fencing.

    "So is he mine; and in such bloody distance,
    That every minute of his being thrusts
    Against my near'st of life."
    

    Shakspere. Macbeth. iii. 1.

31. Sulla knew not letters, he could not dictate. C. Suetoni Tranquilli De XII Caesaribus Liber I. Divus Julius Caesar. Caput 77, where the pun is "Sullam nescisse litteras, qui dictaturam deposuerit." "Caesar would say of Sylla, for that he did resign his dictatorship; That he was ignorant of letters, he could not dictate." Bacon. Apophthegmes New and Old. 135 (116). The pun is also quoted in the Advancement of Learning, I. vii. 29, where Bacon is speaking of Caesar's "perfection in learning."
32. He levied his soldiers, he did not buy them. Tacitus. Historiarum Liber I. 5.
33. Marcus Aurelius Probus, Roman Emperor, 276–282 A.D.
34. If I live, the Roman Empire will need no more soldiers. Flavius Vopiscus. Probus. 20, in Augustae Historiae Scriptores.
35. And that was the state of their minds that a few dared the worst villainy, more willed it, all tolerated it. Tacitus. Historiarum Liber I. 28.
36. Assured. Trustworthy.