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XXVI. * * * * rather intuitive; for no original institution of the social state has been found, nor of the other moral virtues. These congregations therefore made for the purposes I have explained, established their first seat in some particular place for a residence. Which after being fortified by their labours and by its position, and fitted with temples and public squares, the re-union of dwellings constructed after this manner, they called a town or city. Every people therefore, formed by the assemblage of such a multitude as I have described, every city which is the settlement of a people, every commonwealth which as I have said, is the wealth of the people, must in order to be permanent, be governed by some authority. That authority however must always have a strong relation to the causes from whence the commonwealth derived its origin. It may then be delegated to one, or to some selected persons; or it may be borne by the whole multitude of the people. When therefore authority over all things, is in the control of one man, we call him king; and a commonwealth so ordered, his kingdom. When the authority is exercised by selected persons, then such a state is said to be under the government of the better class. But there is also a popular form of government, for so it is called, where all things are ruled by the people. And of any of these three modes, if the chain is in any manner kept together, which at first united men into the social pact for the sake of the common interest, I would not indeed call the mode perfect, nor say that in my opinion it was the best, but that it was to be tolerated, and that one might be preferable to another. For whether under a just and wise king, or chosen eminent citizens, or the people themselves, although this last is least to be approved of, setting aside the irregularities occasioned by the bad passions of some men, any one may see that a steady government might be preserved.
XXVII. In kingdoms however, the governed are too much deprived of common rights, and of power. Under the better class, the multitude can scarcely be partakers of liberty, as they are not admitted either to the public councils or offices: and when the government is conducted by the people, although it be justly and moderately administered, yet equality itself becomes injustice, seeing that it admits of no degrees of rank. Therefore, although Cyrus the Persian, was a most just and wise king, yet such a commonwealth, (for as I said before, it is the common property,) governed by the nod of one man, does not appear to me very desirable. And although the Massilians our clients are governed with great justice, by their chosen chief men, nevertheless in that condition of a people, there is something resembling slavery. And the Athenians at a certain period having abolished the Areopagus, conducted every thing by ordinances, and decrees of the people; yet as they had no distinctions in dignity, their state was without its ornament.
XXVIII. And this I say of these three kinds of government, not of the agitations and disturbances incidental to them, but of their tranquil and regular state. Those varieties are principally remarkable for the defects I have alluded to. Then they have other pernicious failings, for every one of these governments is travelling a dangerous road, bordering on a slippery and precipitous path. To a king so commendable, or if you choose, since I especially name him; to the amiable Cyrus; a parallel springs up in the cruel Phalaris, with all his capricious tyranny; into whose similitude the government of one man so easily slides with a downward course. To the administration of the city of the Massilians by their select chiefs, may be opposed the plot and faction of the Thirty, which took place at a certain period among the Athenians. Nor need we look farther; the very Athenian people having assumed the power over all things, and giving license to the fury of the multitude * * * * * *
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XXIX. * * * * * * and this great mischief arises whether under the rule of the better class, or under a tyrannical faction, or under the regal government; and even frequently under the popular form. At the same time from the various forms of government of which I have spoken, something excellent is wont to emanate. For the changes and vicissitudes in public affairs, appear to move in a circle of revolutions; which when recognized by a wise man, as soon as he beholds them impending, if he can moderate their course in the administration of affairs, and restrain them under his control; he acts truly the part of a great citizen, and almost of a divine man. Therefore I think a fourth kind of government, moderated and mixed from those three of which I first spoke, is most to be approved.”
XXX. “I know” said Lælius, “that such is your opinion Africanus, for I have often heard you say so. Nevertheless, unless it is troublesome to you, I should be glad to learn which you judge best of these three kinds of government. For either it will throw some light upon * * * * * *
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XXXI. * * * * * * every government partakes of the nature and will of him who administers it. So that in no other state, save where the power of the people predominates, has liberty any home. Liberty the sweetest of all blessings, and which if it is not equal for all, is not liberty. For what equality can there be, I do not mean in kingdoms where slavery has no doubtful character: but in those states where all are nominally free: there indeed they give their votes, confer commands, magistracies and are solicited and intreated. But in truth they only part with that, however repugnant it may be to them, which must be conferred: things which they cannot retain, which is the reason why others seek to possess them. For they are invested with no command, have no public authority, nor are called to be judges in the tribunals: privileges which belong either to ancient families, or are purchased by money. Among a free people however, as at Rhodes or Athens, there is no citizen who * * * * *
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