But the difficulties in the way of such a realization were wellnigh insuperable.
Neither the political nor the military system of Athens was adapted to such a
policy. The Sovereign Assembly, though capable of sensible and energetic action
at moments of special danger, was more likely to be moved by feeling and
prejudice than by businesslike argument, particularly at a time when the
tendency of the best educated and most intelligent men was to withdraw from
participation in public life; and meeting, as the Assembly did (unless specially
summoned), only at stated intervals, it was incapable of taking such rapid,
well-timed, and decisive action as Philip could take, simply because he was a
single man, sole master of his own policy, and personally in command of his own
forces. The publicity which necessarily attached to the discussions of the
Assembly was a disadvantage at a time when many plans would better have been
kept secret; and rapid modifications of policy, to suit sudden changes in the
situation, were almost impossible. Again, while no subjects are so unsuited
under any circumstances for popular discussion as foreign and military affairs,
the absence in Athens of a responsible ministry greatly increased the
difficulties of her position. It is true that the Controller of the Festival
Fund (whose office gradually became more and more important) was now appointed
for four years at a time, while all other offices were annual; and that he and
his friends, and their regular opponents, were generally ready to take the lead
in making proposals to the Council or the Assembly. But if they chose to remain
silent, they could do so;[4] no one was bound to make any proposal at all; and,
on the other hand, any one might do so. With such a want of system, far too much
was left to chance or to the designs of interested persons. Moreover, the
Assembly felt itself under no obligation to follow for any length of time any
lead which might be given to it, or to maintain any continuity or consistency
between its own decrees. In modern times, a minister, brought into power by the
will of the majority of the people, can reckon for a considerable period upon
the more or less loyal support of the majority for himself and his official
colleagues. In Athens the leader of the moment had to be perpetually adapting