Conquest and Incorporation: Pays Conquis or Pays Réunies?

This chapter investigates how the (nominally) independent states in the Netherlands and Northwest Germany were slowly but surely seized by French troops, and subsequently incorporated by imperial decree. The conquest and incorporation of the northern lands brought about radical political changes, as well as dilemmas. How were new territories to be fitted in: as dependencies taken by force (pays conquis), or as new departments on equal footing (pays réunies)? And to which extent did ‘on equal footing’ mean eradicating regional diversity within the Empire? Whether uniform structures were imposed too promptly, or not, was contested. The Emperor sent confidants northbound, to investigate existing conditions. Vice versa, Northerners visited Paris, to exert influence on the status of their projected departments. For Dutch and German dignitaries it was of the utmost importance to acknowledge Napoleon’s droit de conquête, while lobbying for an integration form that did justice to local circumstances. Eventually, both areas were given a full status within the Empire, taking into account national peculiarities to a certain extent, but only as long as that did not harm the interests of Old France.

Introduction: Napoleonic Governance and the Integration of Europe

This study is concerned with the ways in which the present-day Netherlands and Northwest Germany were integrated into the Napoleonic Empire, by replacing local institutions and traditional governing practices with French ones. This process of running the Empire is referred to as Napoleonic governance. Traditionally, little attention was given to the dynamics of French rule in conquered Europe. Nationalistic tendencies long obstructed a neutral view of Napoleon’s treatment of conquered Europe, certainly when it came to the Dutch and Northwest German regions. It was assumed French reforms were accepted unconditionally by local populations. Recent research shows that in newly acquired lands, officials often had to proceed differently. However, the northern periphery of the Napoleonic Empire is not yet fully explored. The premise of this study is that a (trans)regional perspective can lead to new interpretations. Napoleonic governance is analyzed by distinguishing between the phases of conquest, incorporation, and integration. In a broader sense, the study aims to gain a better understanding of the difficulties that have been inherent to workings of the Napoleonic Empire.

Revolution and Warfare: The North Before Conquest

This chapter lays the foundation for an understanding of Napoleonic governance in the Netherlands and Northwest Germany. Dutch and German lands were governed in many different ways in the early modern age. During the eighteenth century attempts at reform were made in both areas, with varying results. The French Revolution was both admired and feared, especially as it became clear that the ‘liberation’ of Europe entailed aggressive expansionism. France’s growth showed the difficulties of imposing rules and practices on a hitherto foreign population. Which policies were effective, which not? True, German secularization and mediatization (the historic Reichsdeputationshauptschluss of 1803), and repeated coup d’états in the Batavian Republic, restructured governance on the right bank of the Rhine. Yet, both in the Netherlands and Northwest Germany, the combination of awe of, and fear for, the French Empire strengthened identity formation, whether local, regional, or national, which was not necessarily beneficial for future integration into France.

Prefects: ‘Tools of Conquest’

This chapter is concerned with the introduction of the prefectoral system in the North. The introduction of préfets was an expression of the desire to create a modern civil administration answerable to the central government. Attention is paid to its implementation, the selection and circulation of prefects, and their relationships with other actors. Napoleonic territorial governance meant a significant break with tradition, but its implementation was far from perfect. Although French legislation itself was not altered, in practice, many issues hindered the functioning of the prefectoral system in the incorporated departments, such as redrawing geographical borders and lack of understanding of Napoleonic governing practices. Creating support was difficult when no consideration was given to local circumstances and wishes—a challenge delegated to prefects. Stimulating personal mobility between different parts of the Empire was a possible means of accelerating integration. The case of the prefects in the Netherlands and Northwest Germany shows how the flow of imperial models, officials, and knowledge contributed to the interconnectedness of the different parts of the Napoleonic Empire, or conversely, how the lack thereof hindered integration.

Intermediary Bodies of Governance

Following the phase of conquest, usually a temporary interim government was formed to supervise the incorporation of newly acquired territories. The timing of the incorporation, as well as the manner in which models from other parts of Europe were applied, influenced how Napoleonic governance worked out in practice. Importantly, the creation of so-called gouvernements généraux became a Napoleonic integration instrument. General-Governors Charles-François Lebrun in Amsterdam and Louis Nicolas Davout in Hamburg had similar tasks but made different choices. Their relationships with other actors, local and French, differed as well. In this chapter the two intermediary bodies are discussed, in relation to other Napoleonic institutions and their main protagonists. Often, Napoleonic officials who had already proven their worth elsewhere were employed in these areas. Thus, institutional examples and personal experiences from other parts of the Empire, such as Italy, influenced the integration of the North. Yet, being remote from the imperial core, many officials competed for power and hence for control of the integration process.

Conclusions: Incomplete Integration

This study set out to provide insight into the integration of the Netherlands and Northwest Germany into the Napoleonic Empire, through the implementation of Napoleonic governance, distinguishing several phases. This concluding chapter puts the research findings into a larger context. After exploring the collapse and legacy of Napoleonic rule, the successive stages of conquest, incorporation, and integration are reflected upon. Both areas experienced similar tensions between the Napoleonic desire for uniformity and diverse traditions. Either a ‘harsh’ approach or a ‘mild’ approach was chosen, depending on the actors involved and the interaction between core and periphery. Interests and actions were not aligned, and in more extreme cases, there was downright animosity between Napoleonic officials. Therefore, in neither the Netherlands nor Northwest Germany complete integration was achieved. However, there was no definite blueprint for integration, as different groups had conflicting ideas on the desirable level of, and path to, integration. Ultimately, integration was incomplete, but the degree of incompleteness depends on the divergent norms set by the various parties.

Subprefects: (Trans)Regional Tools of Integration?

This chapter examines the Napoleonic subprefects who have been in office in the Netherlands and Northwest Germany. Within the prefectoral system, these sous-préfets were the highest officials at arrondissement (disctrict) level. Activities of subprefects, somewhat neglected by historians, give insight into how French tried to rally the locals, and how this affected the daily functioning of the Empire. Discussed are subprefects’ sociocultural backgrounds, imperial careers, and perception of Napoleonic governance. Subprefects had to balance national, local, and personal interest. Integration at district level was hard when the letter of the administrative legislation and the precise instructions from above were rigidly adhered to. Subprefects traveling the Empire linked events in the Netherlands and Northwest Germany to developments elsewhere, promoting integration into the Empire. Circulation patterns reflect different ideas on the required level of integration. It is argued that the figure of the subprefect was a potential ‘tool of integration’. That subprefects were close to the ground could contributed to the effectiveness of Napoleonic governance. But subprefects also coped with demanding prefects, and interference of other agents of the central state. Reversely, unwilling subprefects were in a position to hinder the integration process.