These γέροντες were summoned[190] again by Agamemnon before the sacrifice of the Second Book, which preceded the enumeration. On this occasion they are not called a βουλή; probably because they were not called for consultation.
The Council meets again in the Ninth Book[191], by appointment of the Assembly, and sends the mission to Achilles[192]. In the same night, and perhaps under the same authority, the expedition of Ulysses and Diomed is arranged.
There is no βουλὴ indeed in the First Book, and none in the great Assembly of the Nineteenth: but then both of these were summoned by Achilles, not by Agamemnon, and neither of them were called for properly deliberative purposes[193].
Again, Ulysses, in urging the Greeks not to quit the assembly of the Second Book prematurely, reminds them that they ought to know fully the views of Agamemnon, and that they have not all had the advantage of learning those views in the βουλή.
In the Seventh Book, the Council held under the roof of Agamemnon forms the plan for a pause to bury the dead, and erect the rampart. Accordingly, when just afterwards a herald arrives with a proposal from Troy, he finds the Greeks in their Assembly, doubtless an Assembly held to sanction the project of the kings. That this amounted to an institution of the Greeks, we may further judge from the familiar manner, in which Nestor mentions it in the Odyssey to Telemachus, on seeing him for the first time, (Od. iii. 127). ‘Ulysses and I,’ he says, ‘never differed:’ οὔτε ποτ’ εἰν ἀγορῇ δίχ’ ἐβάζομεν, οὔτ’ ἐνὶ βουλῇ[194].
Among other causes, which might tend to promote the establishment of the Greek βουλὴ or Council, we may perhaps reckon with propriety the inability of the old to discharge the full duties of sovereignty in the heroic age. Bodily force usually undergoes a certain amount of decay, before the mind has passed out of its ripeness; and both kings and subordinate lords, who had ceased to possess the strength that was requisite for bearing the principal burdens of government, might still make their experience available for the public good in the Council; even as we find that in Troas the brothers of Priam, with others advanced in life, were the principal advisers of the Assembly[195].
The βουλὴ in time of peace.
I admit that we have no example to give of the use of the βουλὴ by the Greeks during peace, so precise as those which the Iliad supplies for time of war. But even in war we do not find it except before Assemblies, which had deliberative business to transact. Now the only deliberative Greek ἀγορὴ which we meet with in time of peace is that of the Twenty-fourth Odyssey. The absence of a sovereign and a government in Ithaca at that time, and the utter discord of the principal persons, made a Council quite impossible, and left no measure open except a direct appeal to the people.
It appears however clear, that the action of the βουλὴ was not confined to war. For we not only find the γέροντες on the Shield[196], who sit in the ἀγορὴ, exercising exclusively the office of judges, but they are also distinctly noticed as a class or order[197] in the Ithacan Assembly, who had a place in it set apart for themselves. Nor are we without a proof which, though conveyed in few words, is complete, of the conjunction of the Council with the sovereign in acts of government. For when Ulysses in his youth undertook the mission to Messene, in the matter of the sheep that had been carried off from Ithaca, he did it under the orders of Laertes, together with his council[198]: