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. For the want of it the home government at Rome became
more and more unmanageable until it fell into the hands of the army,
while at the same time the administration of the empire became more and
more centralized; the people of its various provinces, even while their
social condition was in some respects improved, had less and less
voice in the management of their local affairs, and thus the spirit of
personal independence was gradually weakened. This centralization was
greatly intensified by the perpetual danger of invasion on the northern
and eastern frontiers, all the way from the Rhine to the Euphrates.
Do what it would, the government must become more and more a military
despotism, must revert toward the Oriental type. The period extending