3 60
ESSAYS ON LIBERTY
uniformity he introduced were destructive. He restored none of the liberties of the towns, and confided the administration to ecclesiastics superficially acquainted with law, and without knowledge of politics or of public economy. In the ecclesiastical States of G rmany, the civil and religious departments were separate; and it is as wrong to say that the double position of the head must repeat itself throughout the administration, as to say that a king, because he is the head of the army as well as of the civil government, ought to mix the two spheres throughout the State. It would, in reality, be perfectly possible to separate the political and ecclesiastical authorities. Leo XII. attempted to satisfy the Zelalltz", the adversaries of Consalvi, by restoring the old system. He abolished the provincial Councils, revived the Inquisition, and subjected official honesty and public morality to a strict espionage. Leo saw the error of Consalvi, but - mistook the remedy; and his government \vas the most unpopular that had been seen for a century. Where the laity are excluded from the higher offices, and the clergy enjoy the monopoly of them, that moral po\ver which modern bureaucracy derives from the corporate spirit, and the feelings of honour which it inspires, cannot subsist. One class becomes demoralised by its privileged position, the other by its limited prospects and insufficient pay. Leo tried to control them by the congregazione di vigilanze, which received and examined all charges against official persons; but it was suppressed by his successor. The famous Memorandum of the Powers, 31st May 183 I, recommended the admission of the laity to all secular offices, the restoration of the provincial Councils, and the introduction of elective communal Councils with the po\ver of local government; and finally, a security against the changes incident to an elective sovereignty. 1'he historian Coppi, who was charged to draw up a plan ùf reform in reply to these demands, relates that the Pope and the majority of the cardinals rejected every
