In 1799, the undertaking more difficult and the materials worse.
Twice in succession had the experiment been tried, the monarchical constitution of 1791, and the republican constitution of 1795; twice in succession had the same events followed the same course to attain the same end; twice in succession had the theoretical, cunningly-devised machine for universal protection changed into an efficient and brutal machine for universal oppression.

It is evident that if the same machine were started the third time under analogous conditions, one might expect to see it work in the same manner; that is to say, contrary to its purpose.
Now, in 1799, the conditions were analogous, and even worse, for the work which the machine had to do was not less, while the human materials available for its construction were not so good .-- Externally, the country was constantly at war with Europe; peace could not be secured except by great military effort, and peace was as difficult to preserve as to win.

The European equilibrium had been too greatly disturbed; neighboring or rival States had suffered too much; the rancor and distrust provoked by the invading revolutionary republic were too active; these would have lasted a long time against pacified France even after she had concluded reasonable treaties.

Even should she abandon a policy of propaganda and interference, return brilliant acquisitions, cease the domination of protectorates, and abandon the disguised annexation of Italy, Holland, and Switzerland, the nation was still bound to keep watch under arms.

A government able to concentrate all its forces--that is to say, placed above and beyond all dispute and promptly obeyed-was indispensable, if only to remain intact and complete, to keep Belgium and the frontier of the Rhine .-- Likewise internally, and for no other purpose than to restore civil order; for here, too, the outrages of the Revolution had been too great.