Discourses on the First Decade of Titus Livius

by Niccolò Machiavelli

And, in truth, among the institutions of Rome, this of the dictatorship deserves our special admiration, and to be linked with the chief causes of her greatness; for without some such safeguard a city can hardly pass unharmed through extraordinary dangers. Because as the ordinary institutions of a commonwealth work but slowly, no council and no magistrate having authority to act in everything alone, but in most matters one standing in need of the other, and time being required to reconcile their differences, the remedies which they provide are most dangerous when they have to be applied in cases which do not brook delay. For which reason, every republic ought to have some resource of this nature provided by its constitution; as we find that the Republic of Venice, one of the best of those now existing, has in cases of urgent danger reserved authority to a few of her citizens, if agreed among themselves, to determine without further consultation what course is to be followed. When a republic is not provided with some safeguard such as this, either it must be ruined by observing constitutional forms, or else, to save it, these must be broken through. But in a republic nothing should be left to be effected by irregular methods, because, although for the time the irregularity may be useful, the example will nevertheless be pernicious, as giving rise to a practice of violating the laws for good ends, under colour of which they may afterwards be violated for ends which are not good. For which reason, that can never become a perfect republic wherein every contingency has not been foreseen and provided for by the laws, and the method of dealing with it defined. To sum up, therefore, I say that those republics which cannot in sudden emergencies resort either to a dictator or to some similar authority, will, when the danger is serious, always be undone.

We may note, moreover, how prudently the Romans, in introducing this new office, contrived the conditions under which it was to be exercised. For perceiving that the appointment of a dictator involved something of humiliation for the consuls, who, from being the heads of the State, were reduced to render obedience like every one else, and anticipating that this might give offence, they determined that the power to appoint should rest with the consuls, thinking that when the occasion came when Rome should have need of this regal authority, they would have the consuls acting willingly and feeling the less aggrieved from the appointment being in their own hands. For those wounds or other injuries which a man inflicts upon himself by choice, and of his own free will, pain him far less than those inflicted by another. Nevertheless, in the later days of the republic the Romans were wont to entrust this power to a consul instead of to a dictator, using the formula, Videat CONSUL ne quid respublica detrimenti capiat.

But to return to the matter in hand, I say briefly, that when the neighbours of Rome sought to crush her, they led her to take measures not merely for her readier defence, but such as enabled her to attack them with a stronger force, with better skill, and with an undivided command.

CHAPTER XXXV—Why the Creation of the Decemvirate in Rome, although brought about by the free and open Suffrage of the Citizens, was hurtful to the Liberties of that Republic

The fact of those ten citizens who were chosen by the Roman people to make laws for Rome, in time becoming her tyrants and depriving her of her freedom, may seem contrary to what I have said above, namely that it is the authority which is violently usurped, and not that conferred by the free suffrages of the people which is injurious to a republic. Here, however, we have to take into account both the mode in which, and the term for which authority is given. Where authority is unrestricted and is conferred for a long term, meaning by that for a year or more, it is always attended with danger, and its results will be good or bad according as the men are good or bad to whom it is committed. Now when we compare the authority of the Ten with that possessed by the dictator, we see that the power placed in the hands of the former was out of all proportion greater than that entrusted to the latter. For when a dictator was appointed there still remained the tribunes, the consuls, and the senate, all of them invested with authority of which the dictator could not deprive them. For even if he could have taken his consulship from one man, or his status as a senator from another, he could not abolish the senatorial rank nor pass new laws. So that the senate, the consuls, and the tribunes continuing to exist with undiminished authority were a check upon him and kept him in the right road. But on the creation of the Ten, the opposite of all this took place. For on their appointment, consuls and tribunes were swept away, and express powers were given to the new magistrates to make laws and do whatever else they thought fit, with the entire authority of the whole Roman people. So that finding themselves alone without consuls or tribunes to control them, and with no appeal against them to the people, and thus there being none to keep a watch upon them, and further being stimulated by the ambition of Appius, in the second year of their office they began to wax insolent.

Let it be noted, therefore, that when it is said that authority given by the public vote is never hurtful to any commonwealth, it is assumed that the people will never be led to confer that authority without due limitations, or for other than a reasonable term. Should they, however either from being deceived or otherwise blinded, be induced to bestow authority imprudently, as the Romans bestowed it on the Ten, it will always fare with them as with the Romans. And this may readily be understood on reflecting what causes operated to keep the dictator good, what to make the Ten bad, and by observing how those republics which have been accounted well governed, have acted when conferring authority for an extended period, as the Spartans on their kings and the Venetians on their doges; for it will be seen that in both these instances the authority was controlled by checks which made it impossible for it to be abused. But where an uncontrolled authority is given, no security is afforded by the circumstance that the body of the people is not corrupted; for in the briefest possible time absolute authority will make a people corrupt, and obtain for itself friends and partisans. Nor will it be any hindrance to him in whom such authority is vested, that he is poor and without connections, for wealth and every other advantage will quickly follow, as shall be shown more fully when we discuss the appointment of the Ten.

CHAPTER XXXVI.—That Citizens who have held the higher Offices of a Commonwealth should not disdain the lower.

Under the consuls M. Fabius and Cn. Manlius, the Romans had a memorable victory in a battle fought with the Veientines and the Etruscans, in which Q. Fabius, brother of the consul, who had himself been consul the year before, was slain. This event may lead us to remark how well the methods followed by the city of Rome were suited to increase her power, and how great a mistake is made by other republics in departing from them. For, eager as the Romans were in the pursuit of glory, they never esteemed it a dishonour to obey one whom before they had commanded, or to find themselves serving in the ranks of an army which once they had led. This usage, however, is opposed to the ideas, the rules, and the practice which prevail at the present day, as, for instance, in Venice, where the notion still obtains that a citizen who has filled a great office should be ashamed to accept a less; and where the State itself permits him to decline it. This course, assuming it to lend lustre to individual citizens, is plainly to the disadvantage of the community, which has reason to hope more from, and to trust more to, the citizen who descends from a high office to fill a lower, than him who rises from a low office to fill a high one; for in the latter no confidence can reasonably be placed, unless he be seen to have others about him of such credit and worth that it may be hoped their wise counsels and influence will correct his inexperience. But had the usage which prevails in Venice and in other modern commonwealths and kingdoms, prevailed in Rome whereby he who had once been consul was never afterwards to go with the army except as consul, numberless results must have followed detrimental to the free institutions of that city; as well from the mistakes which the inexperience of new men would have occasioned, as because from their ambition having a freer course, and from their having none near them in whose presence they might fear to do amiss, they would have grown less scrupulous; and in this way the public service must have suffered grave harm.

CHAPTER XXXVII.—Of the Mischief bred in Rome by the Agrarian Law: and how it is a great source of disorder in a Commonwealth to pass a Law opposed to ancient Usage and with stringent retrospective Effect.

It has been said by ancient writers that to be pinched by adversity or pampered by prosperity is the common lot of men, and that in whichever way they are acted upon the result is the same. For when no longer urged to war on one another by necessity, they are urged by ambition, which has such dominion in their hearts that it never leaves them to whatsoever heights they climb. For nature has so ordered it that while they desire everything, it is impossible for them to have everything, and thus their desires being always in excess of their capacity to gratify them, they remain constantly dissatisfied and discontented. And hence the vicissitudes in human affairs. For some seeking to enlarge their possessions, and some to keep what they have got, wars and enmities ensue, from which result the ruin of one country and the growth of another.