Politics: A Treatise on Government Part 11

Where the troops are chiefly heavy-armed, there an oligarchy, inferior in power to the other, may be established; for the heavy-armed are rather made up of men of substance than the poor: but the light-armed and the sailors always contribute to support a democracy: but where the number of these is very great and a sedition arises, the other parts of the community fight at a disadvantage; but a remedy for this evil is to be learned from skilful generals, who always mix a proper number of light-armed soldiers with their horse and heavy-armed: for it is with those that the populace get the better of the men of fortune in an insurrection; for these being lighter are easily a match for the horse and the heavy-armed: so that for an oligarchy to form a body of troops from these is to form it against itself: but as a city is composed of persons of different ages, some young and some old, the fathers should teach their sons, while they were very young, a light and easy exercise; but, when they are grown up, they should be perfect in every warlike exercise. Now, the admission of the people to any share in the government should either be (as I said before) regulated by a census, or else, as at Thebes, allowed to those who for a certain time have ceased from any mechanic employment, or as at Ma.s.salia, where they are chosen according to their worth, whether citizens or foreigners. With respect to the magistrates of the highest rank which it may be necessary to have in a state, the services they are bound to do the public should be expressly laid down, to prevent the common people from being desirous of accepting their employments, and also to induce them to regard their magistrates with favour when they know what a price they pay for their honours. It is also necessary that the magistrates, upon entering into their offices, should make magnificent sacrifices and erect some public structure, that the people partaking of the entertainment, and seeing the city ornamented with votive gifts in their temples and public structures, may see with pleasure the stability of the government: add to this also, that the n.o.bles will have their generosity recorded: but now this is not the conduct which those who are at present at the head of an oligarchy pursue, but the contrary; for they are not more desirous of honour than of gain; for which reason such oligarchies may more properly be called little democracies. Thus [1321b] we have explained on what principles a democracy and an oligarchy ought to be established.

CHAPTER VIII

After what has been said I proceed next to treat particularly of the magistrates; of what nature they should be, how many, and for what purpose, as I have already mentioned: for without necessary magistrates no state can exist, nor without those which contribute to its dignity and good order can exist happily: now it is necessary that in small states the magistrates should be few; in a large one, many: also to know well what offices may be joined together, and what ought to be separated. The first thing necessary is to establish proper regulators in the markets; for which purpose a certain magistrate should be appointed to inspect their contracts and preserve good order; for of necessity, in almost every city there must be both buyers and sellers to supply each other's mutual wants: and this is what is most productive of the comforts of life; for the sake of which men seem to have joined together in one community. A second care, and nearly related to the first, is to have an eye both to the public and private edifices in the city, that they may be an ornament; and also to take care of all buildings which are likely to fall: and to see that the highways are kept in proper repair; and also that the landmarks between different estates are preserved, that there may be no disputes on that account; and all other business of the same nature. Now, this business may be divided into several branches, over each of which in populous cities they appoint a separate person; one to inspect the buildings, another the fountains, another the harbours; and they are called the inspectors of the city. A third, which is very like the last, and conversant nearly about the same objects, only in the country, is to take care of what is done out of the city. The officers who have this employment we call inspectors of the lands, or inspectors of the woods; but the business of all three of them is the same. There must also be other officers appointed to receive the public revenue and to deliver it out to those who are in the different departments of the state: these are called receivers or quaestors. There must also be another, before whom all private contracts and sentences of courts should be enrolled, as well as proceedings and declarations. Sometimes this employment is divided amongst many, but there is one supreme over the rest; these are called proctors, notaries, and the like. Next to these is an officer whose business is of all others the most necessary, and yet most difficult; namely, to take care that sentence is executed upon those who are condemned; and that every one pays the fines laid on him; and also to have the charge of those who are in prison. [1322a] This office is very disagreeable on account of the odium attending it, so that no one will engage therein without it is made very profitable, or, if they do, will they be willing to execute it according to law; but it is most necessary, as it is of no service to pa.s.s judgment in any cause without that judgment is carried into execution: for without this human society could not subsist: for which reason it is best that this office should not be executed by one person, but by some of the magistrates of the other courts. In like manner, the taking care that those fines which are ordered by the judges are levied should be divided amongst different persons. And as different magistrates judge different causes, let the causes of the young be heard by the young: and as to those which are already brought to a hearing, let one person pa.s.s sentence, and another see it executed: as, for instance, let the magistrates who have the care of the public buildings execute the sentence which the inspectors of the markets have pa.s.sed, and the like in other cases: for by so much the less odium attends those who carry the laws into execution, by so much the easier will they be properly put in force: therefore for the same persons to pa.s.s the sentence and to execute it will subject them to general hatred; and if they pa.s.s it upon all, they will be considered as the enemies of all. Thus one person has often the custody of the prisoner's body, while another sees the sentence against him executed, as the eleven did at Athens: for which reason it is prudent to separate these offices, and to give great attention thereunto as equally necessary with anything we have already mentioned; for it will certainly happen that men of character will decline accepting this office, and worthless persons cannot properly be entrusted with it, as having themselves rather an occasion for a guard than being qualified to guard others. This, therefore, ought by no means to be a separate office from others; nor should it be continually allotted to any individuals, but the young men; where there is a city-guard, the youths ought in turns to take these offices upon them. These, then, as the most necessary magistrates, ought to be first mentioned: next to these are others no less necessary, but of much higher rank, for they ought to be men of great skill and fidelity. These are they who have the guard of the city, and provide everything that is necessary for war; whose business it is, both in war and peace, to defend the walls and the gates, and to take care to muster and marshal the citizens. Over all these there are sometimes more officers, sometimes fewer: thus in little cities there is only one whom they call either general or polemarch; but where there are horse and light-armed troops, and bowmen, and sailors, they sometimes put distinct commanders over each of these; who again have others under them, according to their different divisions; all of which join together to make one military body: and thus much for this department. Since some of the magistrates, if not all, have business with the public money, it is necessary that there should be other officers, whose employment should be nothing else than to take an account of what they have, and correct any mismanagement therein. But besides all these magistrates there is one who is supreme over them all, who very often has in his own power the disposal of the public revenue and taxes; who presides over the people when the supreme power is in them; for there must be some magistrate who has a power to summon them together, and to preside as head of the state. These are sometimes called preadvisers; but where there are many, more properly a council. These are nearly the civil magistrates which are requisite to a government: but there are other persons whose business is confined to religion; as the priests, and those who are to take care of the temples, that they are kept in proper repair, or, if they fall down, that they may be rebuilt; and whatever else belongs to public worship. This charge is sometimes entrusted to one person, as in very small cities: in others it is delegated to many, and these distinct from the priesthood, as the builders or keepers of holy places, and officers of the sacred revenue. Next to these are those who are appointed to have the general care of all those public sacrifices to the tutelar G.o.d of the state, which the laws do not entrust to the priests: and these in different states have different appellations. To enumerate in few words the different departments of all those magistrates who are necessary: these are either religion, war, taxes, expenditures, markets, public buildings, harbours, highways.

Belonging to the courts of justice there are scribes to enroll private contracts; and there must also be guards set over the prisoners, others to see the law is executed, council on either side, and also others to watch over the conduct of those who are to decide the causes. Amongst the magistrates also may finally be reckoned those who are to give their advice in public affairs. But separate states, who are peculiarly happy and have leisure to attend to more minute particulars, and are very attentive to good order, require particular magistrates for themselves; such as those who have the government of the women; who are to see the laws are executed; who take care of the boys and preside over their education. To these may be added those who have the care of their gymnastic exercises, [1323a] their theatres, and every other public spectacle which there may happen to be. Some of these, however, are not of general use; as the governors of the women: for the poor are obliged to employ their wives and children in servile offices for want of slaves. As there are three magistrates to whom some states entrust the supreme power; namely, guardians of the laws, preadvisers, and senators; guardians of the laws suit best to an aristocracy, preadvisers to an oligarchy, and a senate to a democracy. And thus much briefly concerning all magistrates.

BOOK VII

CHAPTER I

He who proposes to make that inquiry which is necessary concerning what government is best, ought first to determine what manner of living is most eligible; for while this remains uncertain it will also be equally uncertain what government is best: for, provided no unexpected accidents interfere, it is highly probable, that those who enjoy the best government will live the most happily according to their circ.u.mstances; he ought, therefore, first to know what manner of life is most desirable for all; and afterwards whether this life is the same to the man and the citizen, or different. As I imagine that I have already sufficiently shown what sort of life is best in my popular discourses on that subject, I think I may very properly repeat the same here; as most certainly no one ever called in question the propriety of one of the divisions; namely, that as what is good, relative to man, may be divided into three sorts, what is external, what appertains to the body, and what to the soul, it is evident that all these must conspire to make a man happy: for no one would say that a man was happy who had no fort.i.tude, no temperance, no justice, no prudence; but was afraid of the flies that flew round him: nor would abstain from the meanest theft if he was either hungry or dry, or would murder his dearest friend for a farthing; and also was in every particular as wanting in his understanding as an infant or an idiot. These truths are so evident that all must agree to them; though some may dispute about the quant.i.ty and the degree: for they may think, that a very little virtue is sufficient for happiness; but for riches, property, power, honour, and all such things, they endeavour to increase them without bounds: but to such we reply, that it is easy to prove from what experience teaches us in these cases, that these external goods produce not virtue, but virtue them.

As to a happy life, whether it is to be found in pleasure or virtue or both, certain it is, that those whose morals are most pure, and whose understandings are best cultivated, will enjoy more of it, although their fortune is but moderate than those do who own an exuberance of wealth, are deficient in those; and this utility any one who reflects may easily convince himself of; for whatsoever is external has its boundary, as a machine, and whatsoever is useful in its excess is either necessarily hurtful, or at best useless to the possessor; but every good quality of the soul the higher it is in degree, so much the more useful it is, if it is permitted on this subject to use the word useful as well as n.o.ble. It is also very evident, that the accidents of each subject take place of each other, as the subjects themselves, of which we allow they are accidents, differ from each other in value; so that if the soul is more n.o.ble than any outward possession, as the body, both in itself and with respect to us, it must be admitted of course that the best accidents of each must follow the same a.n.a.logy. Besides, it is for the sake of the soul that these things are desirable; and it is on this account that wise men should desire them, not the soul for them. Let us therefore be well a.s.sured, that every one enjoys as much happiness as he possesses virtue and wisdom, and acts according to their dictates; since for this we have the example of G.o.d Himself, _who is completely happy, not from any external good, but in Himself, and because such is His nature_. For good fortune is something different from happiness, as every good which depends not on the mind is owing to chance or fortune; but it is not from fortune that any one is wise and just: hence it follows, that that city is happiest which is the best and acts best: for no one can do well who acts not well; nor can the deeds either of man or city be praiseworthy without virtue and wisdom; for whatsoever is just, or wise, or prudent in a man, the same things are just, wise, and prudent in a city.

Thus much by way of introduction; for I could not but just touch upon this subject, though I could not go through a complete investigation of it, as it properly belongs to another question: let us at present suppose so much, that a man's happiest life, both as an individual and as a citizen, is a life of virtue, accompanied with those enjoyments which virtue usually procures. If [1324a] there are any who are not convinced by what I have said, their doubts shall be answered hereafter, at present we shall proceed according to our intended method.

CHAPTER II

It now remains for us to say whether the happiness of any individual man and the city is the same or different: but this also is evident; for whosoever supposes that riches will make a person happy, must place the happiness of the city in riches if it possesses them; those who prefer a life which enjoys a tyrannic power over others will also think, that the city which has many others under its command is most happy: thus also if any one approves a man for his virtue, he will think the most worthy city the happiest: but here there are two particulars which require consideration, one of which is, whether it is the most eligible life to be a member of the community and enjoy the rights of a citizen, or whether to live as a stranger, without interfering in public affairs; and also what form of government is to be preferred, and what disposition of the state is best; whether the whole community should be eligible to a share in the administration, or only the greater part, and some only: as this, therefore, is a subject of political examination and speculation, and not what concerns the individual, and the first of these is what we are at present engaged in, the one of these I am not obliged to speak to, the other is the proper business of my present design. It is evident that government must be the best which is so established, that every one therein may have it in his power to act virtuously and live happily: but some, who admit that a life of virtue is most eligible, still doubt which is preferable a public life of active virtue, or one entirely disengaged from what is without and spent in contemplation; which some say is the only one worthy of a philosopher; and one of these two different modes of life both now and formerly seem to have been chosen by all those who were the most virtuous men; I mean the public or philosophic. And yet it is of no little consequence on which side the truth lies; for a man of sense must naturally incline to the better choice; both as an individual and a citizen. Some think that a tyrannic government over those near us is the greatest injustice; but that a political one is not unjust: but that still is a restraint on the pleasures and tranquillity of life. Others hold the quite contrary opinion, and think that a public and active life is the only life for man: for that private persons have no opportunity of practising any one virtue, more than they have who are engaged in public life the management of the [1324b] state. These are their sentiments; others say, that a tyrannical and despotical mode of government is the only happy one; for even amongst some free states the object of their laws seems to be to tyrannise over their neighbours: so that the generality of political inst.i.tutions, wheresoever dispersed, if they have any one common object in view, have all of them this, to conquer and govern. It is evident, both from the laws of the Lacedaemonians and Cretans, as well as by the manner in which they educated their children, that all which they had in view was to make them soldiers: besides, among all nations, those who have power enough and reduce others to servitude are honoured on that account; as were the Scythians, Persians, Thracians, and Gauls: with some there are laws to heighten the virtue of courage; thus they tell us that at Carthage they allowed every person to wear as many rings for distinction as he had served campaigns. There was also a law in Macedonia, that a man who had not himself killed an enemy should be obliged to wear a halter; among the Scythians, at a festival, none were permitted to drink out of the cup was carried about who had not done the same thing. Among the Iberians, a warlike nation, they fixed as many columns upon a man's tomb as he had slain enemies: and among different nations different things of this sort prevail, some of them established by law, others by custom.

Probably it may seem too absurd to those who are willing to take this subject into their consideration to inquire whether it is the business of a legislator to be able to point out by what means a state may govern and tyrannise over its neighbours, whether they will, or will not: for how can that belong either to the politician or legislator which is unlawful? for that cannot be lawful which is done not only justly, but unjustly also: for a conquest may be unjustly made. But we see nothing of this in the arts: for it is the business neither of the physician nor the pilot to use either persuasion or force, the one to his patients, the other to his pa.s.sengers: and yet many seem to think a despotic government is a political one, and what they would not allow to be just or proper, if exercised over themselves, they will not blush to exercise over others; for they endeavour to be wisely governed themselves, but think it of no consequence whether others are so or not: but a despotic power is absurd, except only where nature has framed the one party for dominion, the other for subordination; and therefore no one ought to a.s.sume it over all in general, but those only which are the proper objects thereof: thus no one should hunt men either for food or sacrifice, but what is fit for those purposes, and these are wild animals which are eatable.

Now a city which is well governed might be very [1325a] happy in itself while it enjoyed a good system of laws, although it should happen to be so situated as to have no connection with any other state, though its const.i.tution should not be framed for war or conquest; for it would then have no occasion for these. It is evident therefore that the business of war is to be considered as commendable, not as a final end, but as the means of procuring it. It is the duty of a good legislator to examine carefully into his state; and the nature of the people, and how they may partake of every intercourse, of a good life, and of the happiness which results from it: and in this respect some laws and customs differ from others. It is also the duty of a legislator, if he has any neighbouring states to consider in what manner he shall oppose each of them, or what good offices he shall show them. But what should be the final end of the best governments will be considered hereafter.

CHAPTER III

We will now speak to those who, while they agree that a life of virtue is most eligible, yet differ in the use of it addressing ourselves to both these parties; for there are some who disapprove of all political governments, and think that the life of one who is really free is different from the life of a citizen, and of all others most eligible: others again think that the citizen is the best; and that it is impossible for him who does nothing to be well employed; but that virtuous activity and happiness are the same thing. Now both parties in some particulars say what is right, in others what is wrong, thus, that the life of a freeman is better than the life of a slave is true, for a slave, as a slave, is employed in nothing honourable; for the common servile employments which he is commanded to perform have nothing virtuous in them; but, on the other hand, it is not true that a submission to all sorts of governments is slavery; for the government of freemen differs not more from the government of slaves than slavery and freedom differ from each other in their nature; and how they do has been already mentioned. To prefer doing of nothing to virtuous activity is also wrong, for happiness consists in action, and many n.o.ble ends are produced by the actions of the just and wise. From what we have already determined on this subject, some one probably may think, that supreme power is of all things best, as that will enable a man to command very many useful services from others; so that he who can obtain this ought not to give it up to another, but rather to seize it: and, for this purpose, the father should have no attention or regard for the son, or the son for the father, or friend for friend; for what is best is most eligible: but to be a member of the community and be in felicity is best. What these persons advance might probably be true, if the supreme good was certainly theirs who plunder and use violence to others: but it is [1325b] most unlikely that it should be so; for it is a mere supposition: for it does not follow that their actions are honourable who thus a.s.sume the supreme power over others, without they were by nature as superior to them as a man to a woman, a father to a child, a master to a slave: so that he who so far forsakes the paths of virtue can never return back from whence he departed from them: for amongst equals whatever is fair and just ought to be reciprocal; for this is equal and right; but that equals should not partake of what is equal, or like to like, is contrary to nature: but whatever is contrary to nature is not right; therefore, if there is any one superior to the rest of the community in virtue and abilities for active life, him it is proper to follow, him it is right to obey, but the one alone will not do, but must be joined to the other also: and, if we are right in what we have now said, it follows that happiness consists in virtuous activity, and that both with respect to the community as well as the individual an active life is the happiest: not that an active life must necessarily refer to other persons, as some think, or that those studies alone are practical which are pursued to teach others what to do; for those are much more so whose final object is in themselves, and to improve the judgment and understanding of the man; for virtuous activity has an end, therefore is something practical; nay, those who contrive the plan which others follow are more particularly said to act, and are superior to the workmen who execute their designs. But it is not necessary that states which choose to have no intercourse with others should remain inactive; for the several members thereof may have mutual intercourse with each other; for there are many opportunities for this among the different citizens; the same thing is true of every individual: for, was it otherwise, neither could the Deity nor the universe be perfect; to neither of whom can anything external separately exist. Hence it is evident that that very same life which is happy for each individual is happy also for the state and every member of it.

CHAPTER IV

As I have now finished what was introductory to this subject, and considered at large the nature of other states, it now remains that I should first say what ought to be the establishment of a city which one should form according to one's wish; for no good state can exist without a moderate proportion of what is necessary. Many things therefore ought to be forethought of as desirable, but none of them such as are impossible: I mean relative to the number of citizens and the extent of the territory: for as other artificers, such as the weaver and the shipwright, ought to have such materials as are fit for their work, since so much the better they are, by so much [1326a] superior will the work itself necessarily be; so also ought the legislator and politician endeavour to procure proper materials for the business they have in hand. Now the first and princ.i.p.al instrument of the politician is the number of the people; he should therefore know how many, and what they naturally ought to be: in like manner the country, how large, and what it is. Most persons think that it is necessary for a city to be large to be happy: but, should this be true, they cannot tell what is a large one and what a small one; for according to the mult.i.tude of the inhabitants they estimate the greatness of it; but they ought rather to consider its strength than its numbers; for a state has a certain object in view, and from the power which it has in itself of accomplishing it, its greatness ought to be estimated; as a person might say, that Hippocrates was a greater physician, though not a greater man, than one that exceeded him in the size of his body: but if it was proper to determine the strength of the city from the number of the inhabitants, it should never be collected from the mult.i.tude in general who may happen to be in it; for in a city there must necessarily be many slaves, sojourners, and foreigners; but from those who are really part of the city and properly const.i.tute its members; a mult.i.tude of these is indeed a proof of a large city, but in a state where a large number of mechanics inhabit, and but few soldiers, such a state cannot be great; for the greatness of the city, and the number of men in it, are not the same thing. This too is evident from fact, that it is very difficult, if not impossible, to govern properly a very numerous body of men; for of all the states which appear well governed we find not one where the rights of a citizen are open to an indiscriminate mult.i.tude. And this is also evident from the nature of the thing; for as law is a certain order, so good law is of course a certain good order: but too large a mult.i.tude are incapable of this, unless under the government of that DIVINE POWER which comprehends the universe. Not but that, as quant.i.ty and variety are usually essential to beauty, the perfection of a city consists in the largeness of it as far as that largeness is consistent with that order already mentioned: but still there is a determinate size to all cities, as well as everything else, whether animals, plants, or machines, for each of these, if they are neither too little nor too big, have their proper powers; but when they have not their due growth, or are badly constructed, as a ship a span long is not properly a ship, nor one of two furlongs length, but when it is of a fit size; for either from its smallness or from its largeness it may be quite useless: so is it with a city; one that is too small has not [1326b] in itself the power of self-defence, but this is essential to a city: one that is too large is capable of self-defence in what is necessary; but then it is a nation and not a city: for it will be very difficult to accommodate a form of government to it: for who would choose to be the general of such an unwieldy mult.i.tude, or who could be their herald but a stentor? The first thing therefore necessary is, that a city should consist of such numbers as will be sufficient to enable the inhabitants to live happily in their political community: and it follows, that the more the inhabitants exceed that necessary number the greater will the city be: but this must not be, as we have already said, without bounds; but what is its proper limit experience will easily show, and this experience is to be collected from the actions both of the governors and the governed.

Now, as it belongs to the first to direct the inferior magistrates and to act as judges, it follows that they can neither determine causes with justice nor issue their orders with propriety without they know the characters of their fellow-citizens: so that whenever this happens not to be done in these two particulars, the state must of necessity be badly managed; for in both of them it is not right to determine too hastily and without proper knowledge, which must evidently be the case where the number of the citizens is too many: besides, it is more easy for strangers and sojourners to a.s.sume the rights of citizens, as they will easily escape detection in so great a mult.i.tude. It is evident, then, that the best boundary for a city is that wherein the numbers are the greatest possible, that they may be the better able to be sufficient in themselves, while at the same time they are not too large to be under the eye and government of the magistrates. And thus let us determine the extent of a city.

CHAPTER V

What we have said concerning a city may nearly be applied to a country; for as to what soil it should be, every one evidently will commend it if it is such as is sufficient in itself to furnish what will make the inhabitants happy; for which purpose it must be able to supply them with all the necessaries of life; for it is the having these in plenty, without any want, which makes them content. As to its extent, it should be such as may enable the inhabitants to live at their ease with freedom and temperance. Whether we have done right or wrong in fixing this limit to the territory shall be considered more minutely hereafter, when we come particularly to inquire into property, and what fortune is requisite for a man to live on, and how and in what manner they ought to employ it; for there are many doubts upon this question, while each party insists upon their own plan of life being carried to an excess, the one of severity, the other of indulgence. What the situation of the country should be it is not difficult to determine, in some particulars respecting that we ought to be advised by those who are skilful in military affairs. It should be difficult of access to an enemy, but easy to the inhabitants: and as we said, that the number of [1327a]

inhabitants ought to be such as can come under the eye of the magistrate, so should it be with the country; for then it is easily defended. As to the position of the city, if one could place it to one's wish, it is convenient to fix it on the seaside: with respect to the country, one situation which it ought to have has been already mentioned, namely, that it should be so placed as easily to give a.s.sistance to all places, and also to receive the necessaries of life from all parts, and also wood, or any other materials which may happen to be in the country.

CHAPTER VI

But with respect to placing a city in the neighbourhood of the sea, there are some who have many doubts whether it is serviceable or hurtful to a well-regulated state; for they say, that the resort of persons brought up under a different system of government is disserviceable to the state, as well by impeding the laws as by their numbers; for a mult.i.tude of merchants must necessarily arise from their trafficking backward and forward upon the seas, which will hinder the well-governing of the city: but if this inconvenience should not arise, it is evident that it is better, both on account of safety and also for the easier acquisition of the necessaries of life, that both the city and the country should be near the sea; for it is necessary that those who are to sustain the attack of the enemy should be ready with their a.s.sistance both by land and by sea, and to oppose any inroad, both ways if possible but if not, at least where they are most powerful, which they may do while they possess both. A maritime situation is also useful for receiving from others what your own country will not produce, and exporting those necessaries of your own growth which are more than you have occasion for; but a city ought to traffic to supply its own wants, and not the wants of others; for those who themselves furnish an open market for every one, do it for the sake of gain; which it is not proper for a well-established state to do, neither should they encourage such a commerce. Now, as we see that many places and cities have docks and harbours lying very convenient for the city, while those who frequent them have no communication with the citadel, and yet they are not too far off, but are surrounded by walls and such-like fortifications, it is evident, that if any good arises from such an intercourse the city will receive it, but if anything hurtful, it will be easy to restrain it by a law declaring and deputing whom the state will allow to have an intercourse with each other, and whom not. As to a naval power, it is by no means doubtful that it is necessary to have one to a certain degree; and this not only for the sake of the [1327b] city itself, but also because it may be necessary to appear formidable to some of the neighbouring states, or to be able to a.s.sist them as well by sea as by land; but to know how great that force should be, the health of the state should be inquired into, and if that appears vigorous and enables her to take the lead of other communities, it is necessary that her force should correspond with her actions. As for that mult.i.tude of people which a maritime power creates, they are by no means necessary to a state, nor ought they to make a part of the citizens; for the mariners and infantry, who have the command, are freemen, and upon these depends a naval engagement: but when there are many servants and husbandmen, there they will always have a number of sailors, as we now see happens to some states, as in Heraclea, where they man many triremes, though the extent of their city is much inferior to some others. And thus we determine concerning the country, the port, the city, the sea, and a maritime power: as to the number of the citizens, what that ought to be we have already said.

CHAPTER VII

We now proceed to point out what natural disposition the members of the community ought to be of: but this any one will easily perceive who will cast his eye over the states of Greece, of all others the most celebrated, and also the other different nations of this habitable world. Those who live in cold countries, as the north of Europe, are full of courage, but wanting in understanding and the arts: therefore they are very tenacious of their liberty; but, not being politicians, they cannot reduce their neighbours under their power: but the Asiatics, whose understandings are quick, and who are conversant in the arts, are deficient in courage; and therefore are always conquered and the slaves of others: but the Grecians, placed as it were between these two boundaries, so partake of them both as to be at the same time both courageous and sensible; for which reason Greece continues free, and governed in the best manner possible, and capable of commanding the whole world, could they agree upon one system of policy. Now this is the difference between the Grecians and other nations, that the latter have but one of these qualities, whereas in the former they are both happily blended together. Hence it is evident, that those persons ought to be both sensible and courageous who will readily obey a legislator, the object of whose laws is virtue. As to what some persons say, that the military must be mild and tender to those they know, but severe and cruel to those they know not, it is courage which [1328a] makes any one lovely; for that is the faculty of the soul which we most admire: as a proof of this, our resentment rises higher against our friends and acquaintance than against those we know not: for which reason Archilaus accusing his friends says very properly to himself, Shall my friends insult me? The spirit of freedom and command also is what all inherit who are of this disposition for courage is commanding and invincible. It also is not right for any one to say, that you should be severe to those you know not; for this behaviour is proper for no one: nor are those who are of a n.o.ble disposition harsh in their manners, excepting only to the wicked; and when they are particularly so, it is, as has been already said, against their friends, when they think they have injured them; which is agreeable to reason: for when those who think they ought to receive a favour from any one do not receive it, beside the injury done them, they consider what they are deprived of: hence the saying, "Cruel are the wars of brothers;" and this, "Those who have greatly loved do greatly hate." And thus we have nearly determined how many the inhabitants of a city ought to be, and what their natural disposition, and also the country how large, and of what sort is necessary; I say nearly, because it is needless to endeavour at as great accuracy in those things which are the objects of the senses as in those which are inquired into by the understanding only.

CHAPTER VIII

As in natural bodies those things are not admitted to be parts of them without which the whole would not exist, so also it is evident that in a political state everything that is necessary thereunto is not to be considered as a part of it, nor any other community from whence one whole is made; for one thing ought to be common and the same to the community, whether they partake of it equally or unequally, as, for instance, food, land, or the like; but when one thing is for the benefit of one person, and another for the benefit of another, in this there is nothing like a community, excepting that one makes it and the other uses it; as, for instance, between any instrument employed in making any work, and the workmen, as there is nothing common between the house and the builder, but the art of the builder is employed on the house. Thus property is necessary for states, but property is no part of the state, though many species of it have life; but a city is a community of equals, for the purpose of enjoying the best life possible: but the happiest life is the best which consists in the perfect practice of virtuous energies: as therefore some persons have great, others little or no opportunity of being employed in these, it is evident that this is the cause of the difference there is between the different cities and communities there are to be found; for while each of these endeavour to acquire what is best by various and different means, they give [1328b]

rise to different modes of living and different forms of government. We are now to consider what those things are without which a city cannot possibly exist; for what we call parts of the city must of necessity inhere in it: and this we shall plainly understand, if we know the number of things necessary to a city: first, the inhabitants must have food: secondly, arts, for many instruments are necessary in life: thirdly, arms, for it is necessary that the community should have an armed force within themselves, both to support their government against those of their own body who might refuse obedience to it, and also to defend it from those who might attempt to attack it from without: fourthly, a certain revenue, as well for the internal necessities of the state as for the business of war: fifthly, which is indeed the chief concern, a religious establishment: sixthly in order, but first of all in necessity, a court to determine both criminal and civil causes. These things are absolutely necessary, so to speak, in every state; for a city is a number of people not accidentally met together, but with a purpose of ensuring to themselves sufficient independency and self-protection; and if anything necessary for these purposes is wanting, it is impossible that in such a situation these ends can be obtained. It is necessary therefore that a city should be capable of acquiring all these things: for this purpose a proper number of husbandmen are necessary to procure food, also artificers and soldiers, and rich men, and priests and judges, to determine what is right and proper.

CHAPTER IX

Having determined thus far, it remains that we consider whether all these different employments shall be open to all; for it is possible to continue the same persons always husbandmen, artificers, judges, or counsellors; or shall we appoint different persons to each of those employments which we have already mentioned; or shall some of them be appropriated to particulars, and others of course common to all? but this does not take place in every state, for, as we have already said, it is possible that all may be common to all, or not, but only common to some; and this is the difference between one government and another: for in democracies the whole community partakes of everything, but in oligarchies it is different.

Since we are inquiring what is the best government possible, and it is admitted to be that in which the citizens are happy; and that, as we have already said, it is impossible to obtain happiness without virtue; it follows, that in the best-governed states, where the citizens are really men of intrinsic and not relative goodness, none of them should be permitted to exercise any mechanic employment or follow merchandise, as being ign.o.ble and destructive to virtue; neither should they be husband-[1329a] men, that they may be at leisure to improve in virtue and perform the duty they owe to the state. With respect to the employments of a soldier, a senator, and a judge, which are evidently necessary to the community, shall they be allotted to different persons, or shall the same person execute both? This question, too, is easily answered: for in some cases the same persons may execute them, in others they should be different, where the different employments require different abilities, as when courage is wanting for one, judgment for the other, there they should be allotted to different persons; but when it is evident, that it is impossible to oblige those who have arms in their hands, and can insist on their own terms, to be always under command; there these different employments should be trusted to one person; for those who have arms in their hands have it in their option whether they will or will not a.s.sume the supreme power: to these two (namely, those who have courage and judgment) the government must be entrusted; but not in the same manner, but as nature directs; what requires courage to the young, what requires judgment to the old; for with the young is courage, with the old is wisdom: thus each will be allotted the part they are fit for according to their different merits.

It is also necessary that the landed property should belong to these men; for it is necessary that the citizens should be rich, and these are the men proper for citizens; for no mechanic ought to be admitted to the rights of a citizen, nor any other sort of people whose employment is not entirely n.o.ble, honourable, and virtuous; this is evident from the principle we at first set out with; for to be happy it is necessary to be virtuous; and no one should say that a city is happy while he considers only one part of its citizens, but for that purpose he ought to examine into all of them. It is evident, therefore, that the landed property should belong to these, though it may be necessary for them to have husbandmen, either slaves, barbarians, or servants. There remains of the different cla.s.ses of the people whom we have enumerated, the priests, for these evidently compose a rank by themselves; for neither are they to be reckoned amongst the husbandmen nor the mechanics; for reverence to the G.o.ds is highly becoming every state: and since the citizens have been divided into orders, the military and the council, and it is proper to offer due worship to the G.o.ds, and since it is necessary that those who are employed in their service should have nothing else to do, let the business of the priesthood be allotted to those who are in years. We have now shown what is necessary to the existence of a city, and of what parts it consists, and that husbandmen, mechanic, and mercenary servants are necessary to a city; but that the parts of it are soldiers and sailors, and that these are always different from those, but from each other only occasionally.