[Sidenote: It knew nothing of
representation]
Its senates were assemblies of notables, constituting in the main an
aristocracy of men who had held high office; its popular assemblies were
primary assemblies,--town-meetings. There was no notion of such a thing
as political power delegated by the people to representatives who were
to wield it away from home and out of sight of their constituents. The
Roman's only notion of delegated power was that of authority delegated
by the government to its generals and prefects who discharged at a
distance its military and civil functions. When, therefore, the Roman
popular government, originally adapted to a single city, had come
to extend itself over a large part of the world, it lacked the one
institution by means of which government could be carried on over
so vast an area without degenerating into despotism. [Sidenote: And
therefore ended in despotism]
Even could the device of representation have occurred to the mind of
some statesman trained in Roman methods, it would probably have made no
difference. Nobody would have known how to use it. You cannot invent
an institution as you would invent a plough. Such a notion as that of
representative government must needs start from small beginnings and
grow in men's minds until it should become part and parcel of their
mental habits.
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