In making the necessary arrangements, the long disuse of the Assembly was a circumstance greatly in favor of the Government, if Necker had had skill to avail himself of it, since it wholly freed him from the obligation of being guided by former precedents.  Those arrangements were long and warmly debated in the king’s council.  Though the records of former sessions had been so carelessly preserved that little was known of their proceedings, it seemed to be established that the representatives of the Commons had usually amounted to about four-tenths of the whole body, those of the clergy and of the nobles being each about three-tenths; and that they had almost invariably deliberated and voted in separate chambers; and the princes and the chief nobles presented memorials to the king, in which they almost unanimously recommended an adherence to these ancient forms; while, with patriotic prudence, they sought to obviate all jealousy of their own pretensions or views which might be entertained or feigned in any quarter, by announcing their willingness to abandon all the exclusive privileges and exemptions which they had hitherto possessed, and which were notoriously one chief cause of the generally prevailing discontent.

But the party which had originated the clamor for the States-general, now, encouraged by their success, put forward two fresh demands; the first, that the number of the representatives of the Commons should equal that of both the other orders put together, which they called “the duplication of the Third Estate;” the second, that the three orders should meet and vote as one united body in one chamber; the two proposition taken together being manifestly calculated and designed to throw the whole power into the hands of the Commons.

Necker had great doubts about the propriety and safety of the first proposal, and no doubt at all of the danger of the second.  His own judgment was that the wisest plan would be to order the clergy and nobles to unite in an Upper Chamber, so as in some degree to resemble the British House of Lords; while the Third Estate, in a Lower Chamber, would be a tolerably faithful copy of our House of Commons.  But he could never bring himself to risk his popularity by opposing what he regarded as the opinion of the masses.  He was alarmed by the political clubs which were springing up in Paris; one, whose president was the Duc d’Orleans, assuming the significant and menacing title of Les Enrages;[16] and by the vast number of pamphlets which were circulated both in the capital and the chief towns of the provinces by thousands,[17] every writer of which put himself forward as a legislator,[18] and of which the vast majority advocated what they called the rights of the Third Estate, in most violent language; and, finally, he adopted the course which is a great favorite with vain and weak men, and which he probably represented to himself as a compromise between unqualified concession and unyielding resistance, though, every