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Essay XX: Of Counsel
Essay XX: Of Counsel
The greatest trust between man and man is the trust of giving counsel.
For in other confidences men commit the parts of life; their lands, their
goods, their children, their credit, some particular affair; but to such as
they make their counsellors, they commit the whole: by how much the more they
are obliged to all faith and integrity. The wisest princes need not think it
any diminution to their greatness, or derogation to their sufficiency, to
rely upon counsel. God himself is not without, but hath made it one of the
great names of his blessed Son: The Counsellor. Solomon hath pronounced that
in counsel is stability. Things will have their first or second agitation: if
they be not tossed upon the arguments of counsel, they will be tossed upon
the waves of fortune; and be full of inconstancy, doing and undoing, like the
reeling of a drunken man. Solomon`s son found the force of counsel, as his
father saw the necessity of it. For the beloved kingdom of God was first rent
and broken by ill counsel; upon which counsel there are set for our
instruction the two marks whereby bad counsel is for ever best discerned;
that it was young counsel, for the persons; and violent counsel, for the
matter.
The ancient times do set forth in figure both the incorporation and
inseparable conjunction of counsel with kings, and the wise and politic use
of counsel by kings: the one, in that they say Jupiter did marry Metis, which
signifieth counsel; whereby they intend that Sovereignty is married to
Counsel: the other in that which followeth, which was thus: They say, after
Jupiter was married to Metis, she conceived by him and was with child, but
Jupiter suffered her not to stay till she brought forth, but eat her up;
whereby he became himself with child, and was delivered of Pallas armed, out
of his head. Which monstrous fable containeth a secret of empire; how kings
are to make use of their counsel of state. That first they ought to refer
matters unto them, which is the first begetting or impregnation; but when they
are elaborate, moulded, and shaped in the womb of their counsel, and grow ripe
and ready to be brought forth, that then they suffer not their counsel to go
through with the resolution and direction, as if it depended on them; but take
the matter back into their own hands, and make it appear to the world that the
decrees and final directions (which, because they come forth with prudence and
power, are resembled to Pallas armed) proceeded from themselves; and not only
from their authority, but (the more to add reputation to themselves) from
their head and device.
Let us now speak of the inconveniences of counsel, and of the remedies.
The inconveniences that have been noted in calling and using counsel are
three. First, the revealing of affairs, whereby they become less secret.
Secondly, the weakening of the authority of princes, as if they were less of
themselves. Thirdly, the danger of being unfaithfully counselled, and more for
the good of them that counsel than of him that is counselled. For which
inconveniences, the doctrine of Italy, and practice of France, in some kings`
times, hath introduced cabinet ^1 counsels; a remedy worse than the disease.
[Footnote 1: Secret.]
As to secrecy; princes are not bound to communicate all matters with all
counsellors; but may extract and select. Neither is it necessary that he that
consulteth what he should do, should declare what he will do. But let princes
beware that the unsecreting of their affairs comes not from themselves. And
as for cabinet counsels, it may be their motto, plenus rimarum sum [I am full
of leaks]: one futile ^2 person that maketh it his glory to tell, will do more
hurt than many that know it their duty to conceal. It is true there be some
affairs which require extreme secrecy, which will hardly go beyond one or two
persons besides the king: neither are those counsels unprosperous; for,
besides the secrecy, they commonly go on constantly in one spirit of
direction, without distraction. But then it must be a prudent king, such as is
able to grind with a hand-mill; and those inward counsellors had need also be
wise men, and especially true and trusty to the king`s ends; as it was with
King Henry the Seventh of England, who in his greatest business imparted
himself to none, except it were to Morton and Fox.
[Footnote 2: Babbling.]
For weakening of authority; the fable showeth the remedy. Nay, the
majesty of kings is rather exalted than diminished when they are in the chair
of counsel; neither was there ever prince bereaved of his dependences by his
counsel; except where there hath been either an over-greatness in one
counsellor or an over-strict combination in divers; which are things soon
found and holpen. ^3
[Footnote 3: Helped.]
For the last inconvenience, that men will counsel with an eye to
themselves; certainly, non inveniet fidem super terram [he will not find faith
on the earth] is meant of the nature of times, and not of all particular
persons. There be that are in nature faithful, and sincere, and plain, and
direct; not crafty and involved; let princes, above all, draw to themselves
such natures. Besides, counsellors are not commonly so united, but that one
counsellor keepeth sentinel over another; so that if any do counsel out of
faction or private ends, it commonly comes to the king`s ear. But the best
remedy is, if princes know their counsellors, as well as their counsellors
know them:
Principis est virtus maxima nosse suos.
[It is the greatest virtue of a prince to know his own.] And on the other
side, counsellors should not be too speculative ^4 into their sovereign`s
person. The true composition of a counsellor is rather to be skilful in their
master`s business, than in his nature; for then he is like to advise him, and
not feed his humor. It is of singular use to princes if they take the opinions
of their counsel both separately and together. For private opinion is more
free; but opinion before others is more reverent. In private, men are more
bold in their own humors; and in consort, men are more obnoxious ^5 to others`
humors; therefore it is good to take both; and of the inferior sort rather in
private, to preserve freedom; of the greater rather in consort, to preserve
respect. It is in vain for princes to take counsel concerning matters, if they
take no counsel likewise concerning persons; for all matters are as dead
images; and the life of the execution of affairs resteth in the good choice of
persons. Neither is it enough to consult concerning persons secundum genera
[according to classes], as in an idea, or mathematical description, what the
kind and character of the person should be; for the greatest errors are
committed, and the most judgment is shown, in the choice of individuals. It
was truly said, optimi consiliarii mortui [the best counsellors are the dead]:
books will speak plain when counsellors blanch. ^6 Therefore it is good to be
conversant in them, especially the books of such as themselves have been
actors upon the stage.
[Footnote 4: Inquisitive.]
[Footnote 5: Subservient.]
[Footnote 6: Flatter.]
The counsels at this day in most places are but familiar meetings, where
matters are rather talked on than debated. And they run too swift to the order
or act of counsel. It were better that in causes of weight, the matter were
propounded one day and not spoken to till the next day; in nocte consilium
[night is the season for counsel]. So was it done in the Commission of Union
between England and Scotland; which was a grave and orderly assembly. I
commend set days for petitions; for both it gives the suitors more certainty
for their attendance, and it frees the meetings for matters of estate, that
they may hoc agere [do this]. In choice of committees for ripening business
for the counsel, it is better to choose indifferent ^7 persons, than to make
an indifferency by putting in those that are strong on both sides. I commend
also standing commissions; as for trade, for treasure, for wars, for suits,
for some provinces; for where there be divers particular counsels and but one
counsel of estate (as it is in Spain), they are, in effect, no more than
standing commissions: save that they have greater authority. Let such as are
to inform counsels out of their particular professions (as lawyers, seamen,
mintmen, and the like) be first heard before committees; and then, as occasion
serves, before the counsel. And let them not come in multitudes, or in a
tribunitious manner; ^8 for that is to clamor counsels, not to inform them. A
long table and a square table, or seats about the walls, seem things of form,
but are things of substance; for at a long table a few at the upper end, in
effect, sway all the business; but in the other form there is more use of the
counsellor`s opinions that sit lower. A king, when he presides in counsel, let
him beware how he opens his own inclination too much in that which he
propoundeth; for else counsellors will but take tfe wind of him, and instead
of giving free counsel, sing him a song of placebo ^9 [I shall please].
[Footnote 8: As demagogues.]
[Footnote 9: Flattery.]
[Footnote 7: Impartial.]
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