The makers of a paper constitution cannot foresee every detail in the working of its provisions; and contrary to the expectation at least of Sieyès, the form which the new government took at the outset was largely personal. The Consulate and the ministry were entirely so, their members being chosen with a keen business instinct, like that of a great industrial or commercial master, for personal character, integrity, capacity, and devotion. "What revolutionary," said Napoleon to his brother Joseph, "would not have confidence in an order of things where Fouché is minister? What gentleman would not expect to find existence possible under the former Bishop of Autun? One keeps my left, the other my right. I open a broad path where all may walk." This was so far true, but such nice discrimination could not be exercised in filling the hundreds of minor offices. France is second to no land in the ambition of its people for office-holding, and among the thousands of greedy claimants it was not easy to choose. There were many mistakes made in selecting the petty officials, and the disappointed formed a large class of embittered malcontents from the very inauguration of the consular system. There were the senate, the legislature, the council of state, the tribunate, the whole judicial administration, all to be filled. It was understood that the official emoluments would not be niggardly. When finally fixed, the salary of a senator was twenty-five thousand francs; that of a tribune, fifteen thousand; that of a legislator, ten thousand. As a measure of relative importance it is interesting to note that the First Consul had five hundred thousand a year, and each of his colleagues one hundred and fifty thousand.