instincts: and that hour had now struck. Bonaparte's appeal was made
to the many, who cared not for politics, provided that they themselves
were left in security and comfort: it was urged quietly, persistently,
and with the reserve power of a mighty prestige and of overwhelming
military force. Throughout the whole of the Consulate, a policy of
moderation, which is too often taken for weakness, was strenuously
carried through by the strongest man and the greatest warrior of the
age.

The truly national character of his rule was seen in many ways. He
excluded from high office men who were notorious regicides, excepting
a few who, like Fouché, were too clever to be dispensed with. The
constitutionals of 1791 and even declared royalists were welcomed back
to France, and many of the Fructidorian exiles also returned.[134] The
list of _émigrés_ was closed, so that neither political hatred nor
private greed could misrepresent a journey as an act of political
emigration. Equally generous and prudent was the treatment of Roman
Catholics. Toleration was now extended to orthodox or non-juring
priests, who were required merely to _promise_ allegiance to the new
constitution. By this act of timely clemency, orthodox priests were
allowed to return to France, and they were even suffered to officiate
in places where no opposition was thereby aroused.

While thus removing one of the chief grievances of the Norman, Breton
and Vendéan peasants, who had risen as much for their religion as for
their king, he determined to crush their revolts. The north-west, and
indeed parts of the south of France, were still simmering with
rebellions and brigandage. In Normandy a daring and able leader named
Frotté headed a considerable band of malcontents, and still more
formidable were the Breton "Chouans" that followed the peasant leader