The conduct of an army can least of all subjects be divided: and we may be
justly surprised to find that the Romans, after many ages of military
experience, and after having recently felt the arms of Hannibal in many
encounters, associated two leaders at the head of the same army, and left
them to adjust their pretensions, by taking the command, each a day in his
turn. The same people, however, on other occasions, thought it expedient to
suspend the exercise of every subordinate magistracy, and in the time of
great alarms, to intrust all the authority of the state in the hands of one
person.
Republics have generally found it necessary, in the conduct of war, to
place great confidence in the executive branch of their government. When a
consul at Rome had proclaimed his levies, and administered the military
oath, he became from that moment master of the public treasury, and of the
lives of those who were under his command. [Footnote: Polybius.] The axe
and the rods were no longer a mere badge of magistracy, or an empty
pageant, in the hands of the lictor; they were, at the command of the
father, stained with the blood of his own children; and fell, without
appeal, on the mutinous and disobedient of every condition.
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