Whenever the senate saw a likelihood of the tribunes with consular powers being chosen exclusively from the commons, it took one or other of two ways,—­either by causing the office to be solicited by the most distinguished among the citizens; or else, to confess the truth, by bribing some base and ignoble fellow to fasten himself on to those other plebeians of better quality who were seeking the office, and become a candidate conjointly with them.  The latter device made the people ashamed to give, the former ashamed to refuse.

This confirms what I said in my last Chapter, as to the people deceiving themselves in generalities but not in particulars.

CHAPTER XLIX.—­That if Cities which, like Rome, had their beginning in Freedom, have had difficulty in framing such Laws as would preserve their Freedom, Cities which at the first have been in Subjection will find this almost impossible.

How hard it is in founding a commonwealth to provide it with all the laws needed to maintain its freedom, is well seen from the history of the Roman Republic.  For although ordinances were given it first by Romulus, then by Numa, afterwards by Tullus Hostilius and Servius, and lastly by the Ten created for the express purpose, nevertheless, in the actual government of Rome new needs were continually developed, to meet which, new ordinances had constantly to be devised; as in the creation of the censors, who were one of the chief means by which Rome was kept free during the whole period of her constitutional government.  For as the censors became the arbiters of morals in Rome, it was very much owing to them that the progress of the Romans towards corruption was retarded.  And though, at the first creation of the office, a mistake was doubtless made in fixing its term at five years, this was corrected not long after by the wisdom of the dictator Mamercus, who passed a law reducing it to eighteen months; a change which the censors then in office took in such ill part, that they deprived Mamercus of his rank as a senator.  This step was much blamed both by the commons and the Fathers; still, as our History does not record that Mamercus obtained any redress, we must infer either that the Historian has omitted something, or that on this head the laws of Rome were defective; since it is never well that the laws of a commonwealth should suffer a citizen to incur irremediable wrong because he promotes a measure favourable to freedom.

But returning to the matter under consideration, we have, in connection with the creation of this new office, to note, that if those cities which, as was the case with Rome, have had their beginning in freedom, and have by themselves maintained that freedom, have experienced great difficulty in framing good laws for the preservation of their liberties, it is little to be wondered at that cities which at the first were dependent, should find it not difficult merely but impossible so to shape their ordinances as to enable