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THE ESSAYS OF FRANCIS BACON
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. OF
COUNSEL 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 person; 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 manied 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 counsels;
a remedy worse than the disease.
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: one futile 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 handmill; 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 great
business, imparted himself to none, except
it were to Morton and Fox.
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.
For the last inconvenience, that men will
counsel, with an eye to themselves; certainly,
non inveniet fidem super terram 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.
And on the other side, counsellors should
not be too speculative 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 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, 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: books will speak plain,
when counsellors blanch. Therefore it is
good to be conversant in them, specially
the books of such as themselves have been
actors upon the stage.
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.
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. In choice
of committees; for ripening business for
the counsel, it is better to choose indifferent
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 war, 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;
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 counsellors' 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 the wind of him, and instead of giving
free counsel, sing him a song of placebo.
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