Thus, even where the collective body is sovereign, they are assembled only
occasionally; and though, on such occasions, they determine every question
relative to their rights and their interests as a people, and can assert
their freedom with irresistible force; yet they do not think themselves,
nor are they in reality, safe, without a more constant and more uniform
power operating in their favour.
The multitude is every where strong; but requires, for the safety of its
members, when separate as well as when assembled, a head to direct and to
employ its strength. For this purpose, the ephori, we are told, were
established at Sparta, the council of a hundred at Carthage, and the
tribunes at Rome. So prepared, the popular party has, in many instances,
been able to cope with its adversaries, and has even trampled on the
powers, whether aristocratical or monarchical, with which it would have
been otherwise unable to contend. The state, in such cases, commonly
suffered by the delays, interruptions, and confusions, which popular
leaders, from private envy, or a prevailing jealousy of the great, seldom
failed to create in the proceedings of government.
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