happiness, which the ROMANS could look for, was the despotic power of the CÆSARS. Such are the effects of democracy without a representative.
A Nobility may possess the whole, or any part of the legislative power of a state, in two different ways. Either every nobleman shares the power as part of the whole body, or the whole body enjoys the power as composed of parts, which have each a distinct power and authority. The VENETIAN aristocracy is an instance of the first kind of government: The POLISH of the second. In the VENETIAN government the whole body of nobility possesses the whole power, and no nobleman has any authority which he receives not from the whole. In the POLISH government every nobleman, by means of his fiefs,° has a distinct hereditary authority over his vassals, and the whole body has no authority but what it receives from the concurrence of its parts. The different operations and tendencies of these two species of government might be made apparent even a priori.5 A VENETIAN nobility is preferable to a POLISH, let the humours and education of men be ever so much varied. A nobility, who possess their power in common, will preserve peace and order, both among themselves, and their subjects; and no member can have authority enough to controul the laws for a moment. The nobles will preserve their authority over the people, but without any grievous tyranny, or any breach of private property; because such a tyrannical government promotes not the interests of the whole body, however it may that of some individuals. There will be a distinction of rank between the nobility and people, but this will be the only distinction in the state. The whole nobility will form one body, and the whole people another, without any of those private feuds and animosities, which spread ruin and desolation every where. It is easy to see the disadvantages of a POLISH nobility in every one of these particulars.
It is possible so to constitute a free government, as that a single person, call him doge,° prince, or king, shall possess a large share of power, and shall form a proper balance or counterpoise to the other parts of the legislature. This chief magistrate may be either elective or hereditary; and though the former institution may, to a superficial view, appear the most advantageous; yet a more accurate inspection will discover in it greater inconveniencies than in the latter, and such as are founded on causes and principles eternal and immutable. The filling of the throne, in such a government, is a point of too great and too general interest, not to divide the whole people into factions:° Whence a civil war, the greatest of ills, may be apprehended, almost with certainty, upon every vacancy. The prince elected must be either a Foreigner or a Native: The former will be ignorant of the people whom he is to govern; suspicious of his new subjects, and suspected by them; giving his confidence entirely to strangers, who will have no other care but of enriching themselves in the quickest manner, while their master’s favour and authority are able to support them. A native will carry into the throne all his private animosities and friendships, and will never be viewed in his elevation,° without exciting the sentiment of envy in those, who formerly considered him as their equal. Not to mention that a crown is too high a reward ever to be given to merit alone, and will always induce the candidates to employ force, or money, or intrigue, to procure the votes of the electors: So that such an election will give no better chance for superior merit in the prince, than if the state had trusted to birth alone for determining their sovereign.
It may therefore be pronounced as an universal axiom in politics, That an hereditary prince, a nobility without vassals, and a people voting by their representatives, form the best MONARCHY, ARISTOCRACY, and DEMOCRACY. But in order to prove more fully, that politics admit of general truths, which are invariable by the humour or education either of subject or sovereign, it may not be amiss to observe some other principles of this science, which may seem to deserve that character.
It may easily be observed, that, though free governments have been commonly the most happy for those who partake of their freedom; yet are they the most ruinous and oppressive to their provinces: And this observation may, I believe, be fixed as a maxim of the kind we are here speaking of. When a monarch extends his dominions by conquest, he soon learns to consider his old and his new subjects as on the same footing; because, in reality, all his subjects are to him the same, except the few friends and favourites, with whom he is personally acquainted. He does not, therefore, make any distinction between them in his general laws; and, at the same time, is careful to prevent all particular acts of oppression on the one as well as on the other. But a free state necessarily makes a great distinction, and must always do so, till men learn to love their neighbours as well as themselves. The conquerors, in such a government, are all legislators, and will be sure to contrive matters, by restrictions on trade, and by taxes, so as to draw some private, as well as public, advantage from their conquests. Provincial governors have also a better chance, in a republic, to escape with their plunder, by means of bribery or intrigue; and their fellow-citizens, who find their own state to be enriched by the spoils of the subject provinces, will be the more inclined to tolerate such abuses. Not to mention, that it is a necessary precaution in a free state to change the governors frequently; which obliges these temporary tyrants to be more expeditious and rapacious, that they may accumulate sufficient wealth before they give place to their successors. What cruel tyrants were the ROMANS over the world during the time of their commonwealth! It is true, they had laws to prevent oppression in their provincial magistrates; but CICERO informs us, that the ROMANS could not better consult the interests of the provinces than by repealing these very laws. For, in that case, says he, our magistrates, having entire impunity, would plunder no more than would satisfy their own rapaciousness; whereas, at present, they must also satisfy that of their judges, and of all the great men in ROME, of whose protection they stand in need.6 Who can read of the cruelties and oppressions of VERRES without horror and astonishment? And who is not touched with indignation to hear, that, after CICERO had exhausted on that abandoned criminal all the thunders of his eloquence, and had prevailed so far as to get him condemned to the utmost extent of the laws; yet that cruel tyrant lived peaceably to old age, in opulence and ease, and, thirty years afterwards, was put into the proscription° by MARK ANTHONY, on account of his exorbitant wealth, where he fell with CICERO himself, and all the most virtuous men of ROME?7 After the dissolution of the commonwealth, the ROMAN yoke became easier upon the provinces, as TACITUS informs us;8 and it may be observed, that many of the worst emperors, DOMITIAN,9 for instance, were careful to prevent all oppression on the provinces. In10 TIBERIUS’S time, GAUL was esteemed richer than ITALY itself: Nor, do I find, during the whole time of the ROMAN monarchy, that the empire became less rich or populous in any of its provinces; though indeed its valour and military discipline were always upon the decline. The oppression and tyranny of the CARTHAGINIANS over their subject states in AFRICA went so far, as we learn from POLYBIUS,11 that, not content with exacting the half of all the produce of the land, which of itself was a very high rent, they also loaded them with many other taxes.d If we pass from ancient to modern times, we shall still find the observation to hold. The provinces of absolute monarchies are always better treated than those of free states. Compare the Païs conquis° of FRANCE with IRELAND, and you will be convinced of this truth; though this latter kingdom, being, in a good measure, peopled from ENGLAND, possesses so many rights and privileges as should naturally make it challenge better treatment than that of a conquered province. CORSICA is also an obvious instance to the same purpose.12
There is an observation in MACHIAVEL, with regard to the conquests of ALEXANDER the Great, which I think, may be regarded as one of those eternal political truths, which no time nor accidents can vary. It may seem strange, says that politician, that such sudden conquests, as those of ALEXANDER, should be possessed so peaceably by his successors, and that the PERSIANS, during all the confusions and civil wars among the GREEKS, never made the smallest effort towards the recovery of their former independent government.13 To satisfy us concerning the cause of this remarkable event, we may consider, that a monarch may govern his subjects in two different ways. He may either follow the maxims of the eastern princes,
