o eke out their slender salaries by
accepting bribes from every hand rich enough to bestow them. In truth
Charles was more than any thing else a politician, notwithstanding his
signal abilities as a soldier. If to have founded institutions which
could last, be the test of statesmanship, he was even a statesman; for
many of his institutions have resisted the pressure of three centuries.
But those of Charlemagne fell as soon as his hand was cold, while the
works of many ordinary legislators have attained to a perpetuity denied
to the statutes of Solon or Lycurgus. Durability is not the test of merit
in human institutions. Tried by the only touchstone applicable to
governments, their capacity to insure the highest welfare of the
governed, we shall not find his polity deserving of much admiration. It
is not merely that he was a despot by birth and inclination, nor that he
naturally substituted as far as was practicable, the despotic for the
republican element, wherever his hand can be traced. There may be
possible good in despotisms as there is often much tyranny in democracy.
Tried however according to the standard by which all governments may be
measured, those laws of truth and divine justice which all Christian
nations recognize, and which are perpetual, whether recognized or not, we
shall find little to venerate in the life work of the Emperor. The
interests of his family, the security of his dynasty, these were his end
and aim. The happiness or the progress of his people never furnished even
the indirect motives of his conduct, and the result was a baffled policy
and a crippled and bankrupt empire at last.

He knew men, especially he knew their weaknesses, and he knew how to turn
them to account. He knew how much they would bear, and that little
grievances would sometimes inflame more than vast and deliberate
injustice. Therefore he employed natives mainly in the subordinate
offices of his various states, and he repeatedly warned his successor
that the haughtiness of Spaniards and the incompatibility of their
character with the Flemish, would be productive of great difficulties and
dangers. It was his opinion that men might be tyrannized more
intelligently by their own kindred, and in this perhaps he was right. He
was indefatigable in the discharge of business, and if it were possible
that half a world could be administered as if it were the private
property of an individual, the task would have been perhaps as well
a