Matters of State
A scrivania (writing desk) belonging to Pasquale Paoli, carved from walnut and chestnut wood. The Valley of Orezza in the Castagniccia was the center of artisanal cabinetmaking in Corsica, and "Orezza tables" like this one were commissioned by wealthy Corsicans throughout the island.
It was immediately apparent that King Theodore II did not intend to run the government in the manner of his father, but exactly what form the government would now take was not immediately clear. Not until after the coronation did Theo summon his ministers and begin sharing his plans for a new system.
Under Federico, the cabinet had rarely met as a body; the king preferred dealing with each of his ministers individually, as heads of separate departments which all reported to the sovereign. In practice, this meant that the departments were all siloed off from one another and had no formal means of coordination, and all responsibility lay with the king for the overall direction of policy. Theo, no less than Federico, expected to have ultimate authority over the government, but unlike his father he did not want
direct authority.
Under Theo’s direction, the structure of the government was completely reorganized over the summer of 1778 into a form referred to by modern Corsican historians as the “Council System” (
sistema dei consigli). Two new bodies were created, the Council of Finance and the Council of War, presided over by their respective ministers, which would comprise all of the various secretaries and department heads falling into these two broad categories. In what became known as the “Great Demotion,” most other cabinet ministers were reduced from a “minister” to the lesser rank of “secretary of state,” and now reported to their respective councils rather than directly to the king. Aside from the Ministers of Finance and War, who headed the new councils, the only other ministers to survive the reform were the Ministers of Justice and of Foreign Affairs.
[1]
At the top of the new hierarchy was the
Consiglio di Stato, composed of the king himself, the Grand Chancellor, and the few remaining ministers. The Council of State was intended to be the supreme decision-making body of the kingdom, replacing the old cabinet - and unlike Federico’s cabinet, Theo intended for this council to actually meet and discuss matters of import. Theo believed that this new structure would ensure that lowly matters would be resolved in the subsidiary councils without requiring royal attention, while only the greatest matters would be elevated to the Council of State where they could be discussed in the confidence of a small group until the king made a final decision.
The king presented this new arrangement as if it was entirely his idea, and much of it may well have been. The division of most government business into two councils of War and Finance, for instance, bore a distinct resemblance to the structure of the Tuscan government at this time, and Theo had the opportunity to learn about the Tuscan government during his “exile” in 1776. Nevertheless, many suspected that the king was not the sole author, and perhaps not even the
primary author of these reforms. Don Pasquale Paoli was among the earliest and staunchest proponents of the king’s new system, and it did not escape anyone’s notice that he was also one of the few ministers to escape the “Great Demotion” and keep his seat in the Council of State.
More alarming to Paoli’s opponents, however, was the dubious role of the prime minister in this new system. The king did nothing to explicitly diminish the position: Marquis Alerio Francesco Matra retained his office and received a seat on the new
Consiglio di Stato. The king gave Matra his personal assurance that he remained in high esteem, and awarded him with the
catena d’argento shortly after the coronation.
[2] Nevertheless, while Matra sat on the council he was only one voice of six, and unlike the other ministers he had no subsidiary council or major department heads under him,
[3] which made it seem like he would actually be the
weakest member of the council. He was given the title of “Vice-President of the Council of State,” which meant that he would chair the council in the king’s absence, but if the king was
not absent then that title was just as honorary as the
catena. Matra suspected that the king’s new system was largely Paoli’s idea, who was using this “restructuring” to sideline him even as the king heaped praises and honors upon his head. Figurehead prime ministers were nothing new in Corsica - indeed, thus far prime ministers with real power had been the exception rather than the rule - but after asserting himself in the wake of the Balagna Crisis, Matra had no intention of sliding back into irrelevance.
With Matra and Paoli staring daggers at each other across the council table, the other ministers had to decide where their interests lay. The marquis could count on the support of the Foreign Minister, Francesco Matteo Limperani, whose family had close ties to the Matra clan and had been given his post on Matra’s recommendation in 1776. The Minister of War was another story: Count Innocenzo di Mari shared Matra’s privileged background and Hispanophile sympathies, but he was also a Castagniccian (like Paoli), and he had not forgotten that Matra had very recently tried to get him sacked and replaced with Matra’s brother.
The Grand Chancellor, Father Carlo Rostini, was also a fairly reliable ally of Paoli. Known popularly as “
il padre maestro,” Rostini, now 68 years old, had served in the chancery for half his life and was something of a living legend. Rostini came from a family of staunch
filogenovesi; his father was a tax collector for the Republic and Carlo had earned his doctorate in theology from the Jesuit college in Genoa. By 1737, however, Carlo had cut ties with his family and was serving as a propagandist and agent for the
naziunali. Theodore made him a chancery secretary in 1743, and in 1764 he was selected to replace Giulio Natali as grand chancellor.
[4]
Rostini was well-educated, a talented writer, and extremely dedicated to his work, and as a result Federico chose to retain him in his position.
[5] This was the source of some controversy, as Rostini was not the most agreeable of men. Paoli noted with exasperation that Rostini often spoke as if he was still writing revolutionary polemic and “must always be forced to be moderate.” The extent of his influence on Federico is not exactly clear, but the
gigliati were always suspicious of him; as chancellor he drafted royal decrees and affixed the royal seal, which meant he was always close to the king. Apparently Theo had planned to “retire” the old priest, but critically Rostini - as his name implied - was from
Rostino, which was also Paoli’s hometown. Paoli convinced the king to keep him on, and thus Rostini gained the unique distinction of being chancellor to three kings.
The wild card was the new Minister of Finance Don Marco Maria Carli. Carli, 59, was from a distinguished noble family of Speloncato in the Balagna which had emigrated from Lucca in the 16th century. A notary and lawyer by trade, Don Marco had sided with the royalists during the Revolution although his contributions appear to have been more political and administrative than military. After independence he had served as a tax and customs official and was eventually appointed as Director of the Royal Saltworks. Count Quilici, his friend and neighbor, had relied upon his help to organize and outfit the “Corsican Legion.”
Signature of Marco Maria Carli, Corsica's first Minister of Finance
Carli was not the most obvious choice for the role, not for any lack of qualifications but because his political connections were fairly limited. He was a respected man from a good family, but he did not have ties either to the extended Matra clan or to Paoli and his Castagniccian allies. Some alleged that Paoli had influenced his appointment, which is plausible, as the two held many similar views on economic reform. Yet although Carli was generally closer to Paoli on policy, he was by no means Don Pasquale's loyal partisan, and seems to have been more interested in the organization of the newly-created Council of Finance than in the political games going on in the Council of State.
These personal and familial relations dictated the balance of power in the council. Matra could always count on Limperani, while Mari and Rostini were fairly reliable supporters of Paoli. Carli fell somewhere in the middle, although he was generally more favorable to Paoli on policy issues. The Council of State was not majoritarian; the king always had the final word. Yet Theo often went along with the majority position (though he preferred to act on consensus), which meant that in some sense Paoli, not Matra, initially appeared to be the real “prime minister” after the reorganization of 1778.
The best card that Matra could play was in foreign affairs, which were becoming increasingly relevant with the progress of the American rebellion and the rising tensions between the Bourbons and Hanoverians. Limperani may have been Matra’s only firm ally in the council of state, but he
was the foreign minister, and he saw Paoli’s Anglophile reputation as a weakness he could exploit. Ironically, everyone in the council - including the king - was of basically the same mind on foreign affairs; siding with
any power in the coming war was pointless and possibly suicidal. A robust neutrality was the best course of action. But given his history, Paoli’s commitment to that neutrality could be called into question, and Matra insinuated that Paoli’s mere
presence in the government was dangerous.
This claim was not entirely baseless. Paoli assured Martín de Valdés, the Spanish envoy, that he was a committed neutral and firmly opposed to any military concessions to Britain, but it was hard for Valdés to just take the word of the man who was almost single handedly responsible for inviting the British into Corsica. Valdés suspected that Paoli was hiding his true intentions and that his rise to power represented a potential threat to Bourbon security. Limperani related this to Theo, and it gave the king pause; he did not want to be Madrid’s enemy, and was more personally sympathetic to the Bourbons than the British. Although Paoli continued to exert influence on the king, Theo became increasingly reluctant to side with him too often or allow him too much authority, lest the Spanish think he and his council were receiving orders from London. And Matra, of course, had to remain prime minister; if he were let go, the Bourbons might see it as a hostile act. Above all, Theo did not wish to give the French or Spanish any excuse to occupy his kingdom as had happened during his grand-uncle’s reign.
The other weakness that Matra could exploit was geographical. Although there were a number of prominent southerners among the various secretaries and department heads, Theo had erred by not including even one native of the
Dila sat on the Council of State. Matra, a native of Rogna-Serra, was no exception, but he was something of a "peripheral" northerner and definitely outside the “Castagniccian gang” of Paoli, Rostini, and Mari. Having spent the first part of the decade gravitating towards the
asfodelati out of frustration with Federico and the useless aristocrats in his cabinet, Matra now reversed course, seeking to rebuild an alliance with the
gigliati who hated Paoli and were dismayed at being denied any representation on the supreme governing council.
Despite this serious division at the top, the Theodoran
Sistema represented a distinct improvement over Federician centralism. Its early success was due in large part to Minister Carli, whose ability to shape the
Consiglio di Finanza into a coherent bureau was a major asset. Covering taxation, customs, roads, forests, fishing, currency, agriculture, surveying, and everything else that concerned revenue and infrastructure, this council represented the very core of the state apparatus, and given the kingdom's very serious financial issues its proper functioning was of paramount importance. Carli was not particularly innovative, but he was a very capable organizer.
Carli’s task was made easier by the fact that the royal household was no longer an item on his balance sheet. Federico had been a frugal king, but his meager revenues from the “crown lands” were still not sufficient to sustain his household and maintain the royal dignity. Theo, in contrast, could pay his own way. One of his first acts after his marriage was to wall off his private fortune entirely, establishing it as entirely separate from (and untouchable by) the royal government. This was a major change: Before 1778, there was essentially no distinction between Corsica’s money and the king’s money. Theo did this out of self-interest, as he had no desire for his new fortune to be drained away to service the government’s debts, but it also relieved the government of a considerable burden. Moreover, it established the precedent that there was such a thing as a “public treasury” which was distinct from the king's own coffers. It was a step, albeit an inadvertent one, towards the modern fiscal state.
Footnotes
[1] Only the Ministers of Finance and War had “councils” of their own, although the Ministers of Justice and Foreign Affairs had their own subordinates who reported to them.
[2] Various “miscellaneous” officials who did not fit in any of the other categories defaulted to the prime minister’s supervision, such as the Almoner of the Realm (in charge of religious affairs), the Grand Courier (in charge of the post), and the Rector of the Royal University. Nevertheless, compared to war, finance, justice, and foreign affairs, “religion, education, and the mail” did not seem like much of a portfolio.
[3] The
Ordine della Catena d’Argento (Order of the Silver Chain) was a chivalric order created by King Theodore I in 1768 to recognize “extraordinary service to the Corsican crown and nation.” The chain was a reference to the Neuhoff coat of arms, which featured a broken white (or in heraldic terminology, “silver”) chain on a black field. Unlike the higher-ranking Military Order of the Redemption, the Order of the Silver Chain was a
civic order intended to recognize exemplary non-military service as well as scientific, literary, and cultural achievements. Whereas the Order of the Redemption was restricted to Corsican men of noble descent and Christian faith, the Order of the Silver Chain was explicitly open to all persons regardless of noble status, religion, sex, or even nationality (as even a foreigner might hypothetically render some great service to the kingdom). Non-noble recipients of “
La Catena” became honorary noblemen with the rank of
cavaliere, but this title was non-heritable. Such honorary knights were known colloquially as
catenati (literally “the enchained”). Federico had given the award rather sparingly, mostly as a farewell gift to retiring ministers. His son was more generous, and frequently used the
Catena to flatter influential men, reward celebrated artists and writers, and give honorary nobility to “common” men in high offices so the hereditary nobles would not complain quite so much about having to follow their orders.
[4] Natali had simultaneously been both grand chancellor and Bishop of Aleria from 1758, and still held the latter position when he performed the coronation of King Federico in 1770. Natali was a restrained figure who saw his role as essentially apolitical. He had resigned his office in 1764, believing it was impolitic for a sitting bishop to continue as chancellor to an excommunicated king, but did not openly criticize Theodore’s religious policy.
[5] An avid writer, historian, and antiquarian, Chancellor Rostini was a true man of letters and would have a place in Corsican history even if he had never set foot in government. He was the first person to translate
De rebus Corsicis, by the 15th century Corsican historian Petrus Cyrnæus, from the original Latin into Italian. This work is one of the most important sources on the history of medieval Corsica and its translation by Rostini inspired a new interest in Corsica's medieval past among the island's literate classes in the late 18th century.