The diets convened under the General Law were elected and organized along corporate lines, with the nobility, the cities and the peasantry separately represented, a measure intended to suggest continuity with the traditional estate representations of the old regime. Corporate quotas ensured that the regional nobilities enjoyed numerical preponderance, though the precise numbers varied from province to province. Together, the noble deputies could veto any proposal from the assembly. To ensure that they would not pose a challenge to the central administration, the responsibilities of the diets were very narrowly defined. They were convened only once every three years and they were granted no legislative or revenue-approving powers. Their deliberations were secret in order to prevent their becoming focal points for political agitation, and it was illegal to publish their proceedings. In short, they were not intended to function as representative organs in a present-day sense, but rather as advisory bodies that would also take on various administrative chores, such as the supervision of major publicly funded institutions in the regions.30
In the eyes of an even moderately progressive observer, the diets appeared outlandishly retrograde. They failed, among other things, to reflect the structure and power relations of provincial society. This was particularly the case in the Rhineland: the nobility, which had traditionally played a marginal role in most of the region, was grossly over-represented, a fact that grated with a society in which bourgeois values and cultural preferences were dominant. Deputies from the major industrial and commercial cities found themselves representing 120 times as many constituents and thirty-four times as much taxation revenue as their colleagues from the noble Estate. The whole process was further encumbered by the indirect election of deputies for the third and fourth estates. Voters from the respective social groups were required to nominate electors, who in turn elected district electors, who in turn elected the deputies who sat in the diet. It was a system designed to shield the assembly as far as possible from the currents and conflicts of provincial society.31 An effort was also made to prevent the diets from becoming a forum for politicization: deputies were assigned to seats by lot, so that like-minded factions could not form partisan blocks within the assembly.32 By contrast with Baden, Württemberg and Bavaria, Prussia thus remained a pre-parliamentary state.
*
The conservatives had won the day. But their victory was less fundamental, less final, than it appeared. A process of political change was under way that could no longer be reversed.33 The acquisition of the Rhineland in 1815 irrevocably altered the political chemistry of the kingdom. With its large and confident urban middle class, the Rhineland introduced an element of dissent and turbulence that energized Prussian politics throughout the post-war decades. The Rhenish elites were sceptical of the ‘Lithuanian’ administration in Berlin and they strenuously resisted wholesale integration into the kingdom. Rhenish Catholics looked with suspicion on the new Protestant administration and Rhenish Protestants fought a twenty-year battle with Berlin in defence of their (relatively democratic) synodal constitution.34 There was also a struggle over the Napoleonic legal system, whose egalitarian social presumptions and powerful endorsement of private property rights were far better suited to conditions in the Rhineland than the Prussian General Code. The efforts of the conservatives to impose Prussian law in the west met with determined local opposition and the idea was ultimately abandoned. The Rhineland thus remained a foreign country in legal terms, with regulations, institutions – including, for example, jury service – and judicial training facilities of its own. Indeed, as the Rhenish Napoleonic system gained adherents among jurists from the East-Elbian provinces, it became an important force for change. The new law code introduced in the Kingdom of Prussia after 1848 was modelled on the Rhenish system, rather than the old Frederician code.35
The same progressive momentum can be observed in the domain of customs reform. The process of economic deregulation and customs harmonization continued after 1815 with the customs law of 26 May 1818, which established Prussia’s first homogeneous territorial customs regime (the eastern and western provinces initially received different schedules but these were unified in 1821). From the late 1820s, the same process of customs harmonization was projected beyond the borders of the kingdom as ministers and officials worked to create a German customs union under Prussian auspices. Here was a policy domain that engaged the interest of some of the most resourceful individuals within the senior administration.
Education was another area in which improvement and modernization continued after 1815. The expansion and professionalization of teacher training proceeded apace and by the 1840s, over 80 per cent of Prussian children between six and fourteen were attending primary schools, a figure unmatched anywhere in the contemporary world except for Saxony and New England. Literacy rates were correspondingly high.36 Prussian education was noted and admired abroad not just for its effectiveness and near-universality of access, but also for the liberal tone of its institutions. The appointment in 1821 of Ludolf von Beckedorff as director of the Prussian public school system looked at first as if it might herald a reactionary turn in Prussian education policy – Beckedorff was an opponent of the liberal Pestalozzian pedagogy that had informed the designs of the reformers. But he was unable to halt the process of bureaucratic reform, because the responsible minister, Karl von Altenstein, still supported the progressives within the education system. In any case, Beckedorff was, like many conservatives of the era, an essentially pragmatic figure who was prepared to work with and expand the structures he had inherited from his predecessors. In the 1840s, when the American educational reformer Horace Mann visited Berlin, he was surprised to observe that school children in Prussia were taught to exercise their mental faculties for themselves by teachers whose techniques were anything but authoritarian. ‘Though I saw hundreds of schools and [… ] tens of thousands of pupils,’ Mann wrote, ‘I never saw one child undergoing punishment for misconduct. I never saw one child in tears from having been punished, or from fear of being punished.’37 Liberal visitors from Britain frequently expressed their surprise that such a ‘despotic’ political arrangement should have produced such a progressive and open-minded educational system.38
As Beckedorff’s case suggests, conservatism did not imply an implacable opposition to all that had changed since the crisis of 1806. It was far too fluid, unfocused and open-ended to attempt a comprehensive restoration of the pre-reform status quo, or even to halt the reforming state in its forward path. Moreover, the conservatives themselves gradually adopted and internalized many of the ideas central to the reform project, such as the notion that the Prussian ‘nation’ constituted a single coherent entity (rather than an assembly of distinct and privileged orders).39 There were in any case still significant progressive power centres within the administration, not only in the departments of finance and foreign affairs, but also in the ministry of education, health and religious affairs, itself a product of the reform era. Its presiding minister after 1815 was the enlightened rationalist Karl von Altenstein, a friend, collaborator and sometime protégé of Hardenberg. The king – himself in many respects a child of the enlightenment – was never especially consistent in his appointments policy and no effort was made to impose a uniform ideological approach on the various branches of government.
THE POLITICS OF CHANGE
The provincial diets created in 1823 may not have been the robust organs of representation the radicals had wished for, but as they grew into their role, they became important focal points of political change. Although they looked like traditional Estate bodies, they were in fact representative institutions of a new type. Their legitimacy derived from a legislative act by the state, not from the authority of an extragovernmental corporate tradition. The deputies voted by head, not by Estate, and deliberations were held in plenary session, not in separate caucuses as in the corporate assemblies of the old regime. Most importantly of all: the ‘noble Estate’ (Ritterschaft) was no longer defined
by birth (with the exception of the small contingent of ‘immediate’ nobles in the Rhineland), but by property. It was the ownership of ‘privileged land’ that counted, not birth into privileged status.40 The bourgeois estate buyers whose purchasing power had been transforming the social landscape of the Prussian lands since the mid eighteenth century were now admitted into the dress circle of the political nation (provided they were not Jewish, in which case they had to depute a proxy to represent them).
This was a point where forces for social and political change intersected, for the transfer of formerly noble estates into middle-class hands continued at an even greater pace after the reformers deregulated the market in rural land. In 1806, 75.6 per cent of noble estates in the rural hinterland of Königsberg were still in noble hands. By 1829, this figure had fallen to 48.3 per cent. The decline was even more extreme in the East Prussian district (Departement) of Mohrungen, where the proportion sank from 74.8 per cent to 40.6 per cent. East Prussia was a relatively extreme case, because of the devastating impact of the crises of 1806–7 and the Napoleonic blockade on the grain economy of the province, but the figures for Prussia as a whole bear out the general trend: by 1856 only 57.6 per cent of noble land remained in the hands of noble landowners. The diets, then, were more plutocratic than they looked. Their elaborate estatist trappings concealed the beginnings of a property-based franchise.
From the outset, tentatively at first and later more emphatically, the diets sought to expand the role assigned to them. The draft resolutions submitted by deputies were often openly political in character and aimed to test the boundaries the state had set for the work of the diet. There were calls for the circulation of printed transcripts of the diet’s proceedings – a measure forbidden by the government’s censorship regulations petitions demanding that the diet’s remit be widened to encompass an ‘ever more diverse and comprehensive’ range of affairs, and calls for a general (i.e. all-Prussian) assembly.41 Freedom of the press was another recurrent theme frequently broached in the diets. They began, in other words, to channel liberal political pressures in the provinces. They performed this role not only for the deputies themselves, but also for a broader politically literate public. From the late 1820s, there were numerous petitions to the diet from the towns of East Prussia. One submission presented in January 1829 by signatories from the town of Mohrungen in the south-west of the province, criticized the administration in Berlin for neglecting the economic problems of the region, rebuked the impotence of the diet, and proposed that the Estates should ask the monarch to honour his promise to grant a constitution. Another from the sleepy little town of Stallupönen, due east from Königsberg and not far from the Polish border, reiterated the demand for a constitution and a national assembly, and backed up its plea with a reference to the province’s contribution to the war of liberation against Napoleon.42
The striking thing about these petitions, which grew increasingly numerous in the 1830s and 1840s, is not simply that they hailed from all over the province, including the conservative, noble-dominated Oberland area in the west, but also that they represented a relatively broad social constituency. The signatories to a submission of 1843 from Insterburg, an administrative town in the centre of the province, included not just merchants and communal officials but a very substantial contingent of craftsmen: carpenters, stonemasons, locksmiths, bakers, belt makers, a furrier, a glass-blower, a bookbinder, a butcher, a soap maker and others. This diverse group requested not just a national assembly and public proceedings, but also a ‘different mode of representation’ that would give less weight to landed property.43 In other words, the government’s efforts to shut the diets off from their social and political hinterland were not successful. A multitude of informal connections between deputies and the political milieus of urban and small-town society ensured that the deliberations of the diet resonated across the province. These networks were supported by a modest but growing provincial press.
The diets also became a focal point for political aspirations and dissent in the Grand Duchy of Posen, the segment of Poland transferred to Berlin after 1815. In this region, constitutional issues were overshadowed by the question of Prussian policy vis-à-vis the Polish nationality. In a proclamation issued on 15 May 1815 and frequently cited thereafter, Frederick William III assured his Polish subjects that they, too, had a fatherland, and that they would be incorporated in the Prussian monarchy without having to relinquish their nationality. Their language, together with German, would be used in all public functions.44
In the early post-war years an effort was made to appease the Polish elite in the region. A viceroy (Statthalter) was appointed to mediate between the central executive and the local gentry (an arrangement unique to the Grand Duchy), and a credit society was founded in 1821 to alleviate the burden of gentry debt. Polish remained an official language for communications with the bureaucracy and in court proceedings, and Polish was the language of instruction in elementary and secondary schools, except for the final years of Gymnasium, when German was introduced to prepare students for university. The aim was not to ‘Germanize’ the Poles, but to ensure that they became loyal Prussian subjects.45 Yet by the later 1820s, disappointment had already accumulated over developments in the Grand Duchy. There was unhappiness over the government’s failure to form a separate Polish division of the Prussian army – a scheme warmly supported by the Posnanian gentry. At the first session of the diet in 1827, petitions were presented protesting against the use of German in the upper years of secondary school and objecting to the fact that many Prussian officials in the region could neither speak nor understand Polish. So strong were the emotions aroused by these issues that the supporters of one petition challenged the opposing deputies to duels.
Conditions deteriorated considerably after 1830. The Polish rising of that year was concentrated in the Russian, not the Prussian, area of Poland, but it awakened the enthusiasm of liberals across the kingdom. The Königsberg professor Burlach later recalled how he secretly crossed the border in order to ‘dream of [Poland’s] liberation and bring the flowers of Polish liberty back to our homeland’.46 The Polish rising also had a predictably disturbing effect on politics within the Grand Duchy, as thousands of Poles crossed the border to fight in support of the national cause, including over 1,000 absconders from Prussian military service. Alarmed at the prospect of a nationalist mobilization, the Berlin government abandoned the policy of conciliation. The Grand Duchy was demoted to the mere ‘province’ of Posen. The Polish viceroy, whose office signified the special status of Posen within the Prussian composite state, was dismissed without a replacement. Eduard Heinrich Flottwell, the new provincial president appointed in December 1830, was a hardliner who saw little point in appeasing the Polish gentry. ‘Most of the male youth of this nobility,’ he declared, ‘have been duped by the academic swindles of fatherland and freedom, which united in the illogical head of a Pole with the proud insolence of a Sarmatian magnate in the most marvellous way.’
The notion that Posen constituted a Polish fatherland and the Poles a separate nationality was put aside in favour of a policy of outright assimilation. The Slavic inhabitants of the province were not ‘Poles’, Flottwell claimed, but ‘Prussians’. All pretence of neutrality was abandoned as Flottwell launched a policy encouraging German peasant settlement, strengthened the organs of urban self-government so as to give a stronger voice to the substantially German burgher elites, and extended the use of German in school instruction. Bankrupted Polish estates were bought up and sold off to German buyers. These changes prompted a swift radicalization of Polish opinion in the province. At the diets of 1834 and 1837, there were bitter protests at the advancing use of German. Poles resigned in droves from Prussian civil service posts. In the mid-1830s, patriotic activists among the Polish gentry became involved in the Organic Work movement, a network of gentry clubs that aimed to enhance Polish cultural and social life in the province through the gradual improvement of agricultural me
thods and the creation of a Polish cultural infrastructure.47
In the Rhineland, too, the provincial diets became important focal points for liberal (and conservative) mobilization. Political activists in the west could draw on a living memory of corporate co-determination that reached back into the eighteenth century.48 Here too, the diets were used after 1830 to confront the government with the demand for a general Estates assembly and fulfilment of the constitutional promise.49 And in the Rhineland, as in the east, the diet was the focus for numerous petitions. In the Rhineland, as in East Prussia, the quickening of political expectations in provincial society bestowed a heightened status upon the diet and its members: in December 1833, the exclusive Casino Club in Trier even held a banquet to welcome the town’s returning deputies.50 Slowly but surely, this energizing commerce around the diets was bound to expand their pretensions. As the nineteenth-century liberal historian Heinrich von Treitschke put it: ‘Diets that abandoned themselves to the judgement of public opinion could not long remain content to submit unbinding recommendations; they had to demand that they be given some power of decision.’51
CONFLICTS OF FAITH
In religion as in politics, this was an era of differentiation, fragmentation and conflict. Revivalist movements mobilized the faithful in ways that unsettled the equilibrium of the religious communities. The state intervened more aggressively in the confessional life of the kingdom than at any time since the reign of the Great Elector, so that the boundaries between religious nonconformity and political dissent were blurred. Confessional networks became incubators for partisan political affiliations. Religion was more than a reservoir for the language and arguments of political discourse; it was a powerful motive for action in its own right. Its dynamism as a social force was greater in this era than at any time since the seventeenth century.
Iron Kingdom Page 51
