sea, where a harbour was created. The
dykes and waterways were repaired and improved, and high-roads
constructed from the Hague to Leyden, and from Utrecht to Het Loo. Dutch
literature found in Louis a generous patron. He took pains to learn the
language from the instruction of Bilderdijk, the foremost writer of his
day. The foundation in 1808 of the "Royal Netherland Institute for
Science, Letters and the Fine Arts" was a signal mark of his desire to
raise the standard of culture in Holland on a national basis. The
introduction of the _Code Napoleon,_ with some necessary modifications,
replaced a confused medley of local laws and customs, varying from
province to province, by a general unified legal system. As a statesman
and administrator Louis had no marked ability, but the ministers to whom
he entrusted the conduct of affairs, Verhuell, minister of marine,
Roell, of foreign affairs, Kragenhoff, of war, Van Maanen, of justice,
and more especially the experienced Gogel, in control of the embarrassed
finances, were capable men.

The state of the finances indeed was the despair of the Dutch
government. The imperious demands of Napoleon for the maintenance of an
army of 40,000 men, to be employed by him on foreign campaigns, and also
of a considerable navy, made all attempts at economy and re-organisation
of the finances almost hopeless. By the war with England the Dutch had
lost their colonies and most of their great sea-borne trade; and the
situation was rendered more difficult by the Decree of Berlin in 1806
and the establishment of the "Continental System" by the emperor, as a
reply to the British blockade. All trade and even correspondence with
England were forbidden. He hoped thus to bring England to her knees;
but, though the decree did not achieve this object, it did succeed in
bringing utter ruin upon the Dutch commercial classes. In vain Louis
protested; he was not heard and only met with angry rebukes from his
brother for not taking more vigorous steps to stop smuggling, which the
character of the Dutch coast rendered a comparatively easy and, at the
same time, lucrative pursuit.

The overthrow of Austria and Prussia by Napoleon in 1805 and 1806,
followed in 1807 by the Peace of Tilsit with Russia, made the emperor
once more turn his attention to the project of an invasion of his hated
enemy, England. A great French fleet was to be concentrated on the
Scheldt, with Antwerp and Flushing for its bases. For this