 When he had liberalized trade with England, he had not even consulted them.Napoleon's large-scale program of public works, and his expensive foreign policy, had created rapidly mounting government debts; the annual deficit was about 100 million gold-francs, and the cumulative debt had reached nearly 1,000 million gold-francs (1 billion in US readings).The Emperor needed to restore the confidence of the business world and to involve the legislature and have them share responsibility.