The center of Athenian democracy was the Assembly. Its membership included every citizen who had reached twenty years of age. Rarely, however, did the attendance number more than five thousand, since most of the citizens lived outside the walls in the country districts of Attica. Forty regular meetings were held every year. These took place on the slopes of the hill called the Pnyx. A speaker before the Assembly faced a difficult audience. It was ready to yell its disapproval of his advice, to mock him if he mispronounced a word, or to drown his voice with shouts and whistles. Naturally, the debates became a training school for orators. No one could make his mark in the Assembly who was not a clear and interesting speaker. Voting was by show of hands, except in cases affecting individuals, such as ostracism, when the ballot was used. Whatever the decision of the Assembly, it was final. This great popular gathering settled questions of war and peace, sent out military and naval expeditions, voted public expenditures, and had general control over the affairs of Athens and the empire. [Illustration: AN ATHENIAN INSCRIPTION A decree of the Assembly, dating from about 450 B.C.] THE TEN GENERALS The Assembly was assisted in the conduct of public business by many officers and magistrates, among whom the Ten Generals held the leading place. It was their duty to guide the deliberations of the Assembly and to execute the orders of that body. THE JURY COURTS There was also a system of popular jury courts composed of citizens selected by lot from the candidates who presented themselves. The number of jurors varied; as many as a thousand might serve at an important trial. A court was both judge and jury, it decided by majority vote; and from its decision lay no appeal. Before these courts public officers accused of wrong-doing were tried; disputes between different cities of the empire and other important cases were settled; and all ordinary legal business affecting the Athenians themselves was transacted. Thus, even in matters of law, the Athenian government was completely democratic. STRENGTH AND WEAKNESS OF THE ATHENIAN DEMOCRACY Democracy then, reached its height in ancient Athens. The people ruled, and they ruled directly. Every citizen had some active part in politics. Such a system worked well in the management of a small city-state like Athens. But if the Athenians could govern themselves, they proved unable to govern an empire with justice and wisdom. There was no such thing as representation in their constitution. The subject cities had no one to speak for them in the Assembly or before the jury courts. We shall notice the same absence of a representative system in republican Rome. [12] SYSTEM OF STATE PAY