between the members of the three classes, though we do not know how the distribution was made in these early times.  On the other hand, the members of the fourth or lowest class were disqualified from holding any individual office of dignity.  They performed no liturgies, served in case of war only as light-armed or with a panoply provided by the state, and paid nothing to the direct property-tax or Eisphora.  It would be incorrect to say that they paid no taxes, for indirect taxes, such as duties on imports, fell upon them in common with the rest; and we must recollect that these latter were, throughout a long period of Athenian history, in steady operation, while the direct taxes were only levied on rare occasions.

But though this fourth class, constituting the great numerical majority of the free people, were shut out from individual office, their collective importance was in another way greatly increased.  They were invested with the right of choosing the annual archons, out of the class of Pentacosiomedimni; and what was of more importance still, the archons and the magistrates generally, after their year of office, instead of being accountable to the senate of Areopagus, were made formally accountable to the public assembly sitting in judgment upon their past conduct.  They might be impeached and called upon to defend themselves, punished in case of misbehavior, and debarred from the usual honor of a seat in the senate of Areopagus.

Had the public assembly been called upon to act alone without aid or guidance, this accountability would have proved only nominal.  But Solon converted it into a reality by another new institution, which will hereafter be found of great moment in the working out of the Athenian democracy.  He created the pro-bouleutic, or pre-considering senate, with intimate and especial reference to the public assembly—­to prepare matters for its discussion, to convoke and superintend its meetings, and to insure the execution of its decrees.  The senate, as first constituted by Solon, comprised four hundred members, taken in equal proportions from the four tribes; not chosen by lot, as they will be found to be in the more advanced stage of the democracy, but elected by the people, in the same way as the archons then were—­persons of the fourth, or poorest class of the census, though contributing to elect, not being themselves eligible.

But while Solon thus created the new pre-considering senate, identified with and subsidiary to the popular assembly, he manifested no jealousy of the preexisting Areopagitic senate.  On the contrary, he enlarged its powers, gave to it an ample supervision over the execution of the laws generally, and imposed upon it the censorial duty of inspecting the lives and occupation of the citizens, as well as of punishing men of idle and dissolute habits.  He was himself, as past archon, a member of this ancient senate, and he is said to have contemplated that by means of the two senates the state would be held fast, as it were with a double anchor, against all shocks and storms.