r, who brought his powers of
hard work to that of War, until he was succeeded for a time by Carnot.
Lucien Bonaparte, and later Chaptal, became Minister of the Interior,
Gaudin controlled Finance, Forfait the Navy, and Fouche the Police.
The Council of State was organized in the following sections; that of
_War_, which was presided over by General Brune: _Marine_, by Admiral
Gantheaume: _Finance_, by Defermon: _Legislation_, by Boulay de la
Meurthe: the _Interior_, by Roederer.

The First Consul soon showed that he intended to adopt a non-partisan
and thoroughly national policy. That had been, it is true, the aim of
the Directors in their policy of balance and repression of extreme
parties on both sides. For the reasons above indicated, they had
failed: but now a stronger and more tactful grasp was to succeed in a
feat which naturally became easier every year that removed the
passions of the revolutionary epoch further into the distance. Men
cannot for ever perorate, and agitate and plot. A time infallibly
comes when an able leader can successfully appeal to their saner
instincts: and that hour had now struck. Bonaparte's appeal was made
to the many, who cared not for politics, provided that they themselves
were left in security and comfort: it was urged quietly, persistently,
and with the reserve power of a mighty prestige and of overwhelming
military force. Throughout the whole of the Consulate, a policy of
moderation, which is too often taken for weakness, was strenuously
carried through by the strongest man and the greatest warrior of the
age.

The truly national character of his rule was seen in many ways. He
excluded from high office men who were notorious regicides, excepting
a few who, like Fouche, were too clever to be dispensed with. The
constitutionals of 1791 and even declared royalists were welcomed back
to France, and many of the Fructidorian exiles also returned.[134] The
list of _emigres_ was closed, so that neither political hatred nor
private greed could misrepresent a journey as an act of political
emigration. Equally generous and prudent was the treatment of Roman
Catholics. Toleration was now extended to orthodox or non-juring
priests, who were required merely to _promise_ allegiance to the new
constitution. By this act of timely clemency, orthodox priests were
allowed to return to France, and they were even suffered to officiate
in places where no opposition was thereby aroused.

While thus rem