that to reveal to them their strength would be to place the city at their mercy.(368) Even among those who were not slaves, the element that was derived from slavery soon preponderated. The majority of the free population had probably either themselves been slaves, or were descended from slaves, and men with this tainted lineage penetrated to all the offices of the State.(369) “There was,” as has been well said, “a circulation of men from all the universe. Rome received them slaves, and sent them back Romans.”(370) It is manifest how profound a change had taken place since the Republican days, when the highest dignities were long monopolised by a single class, when the censors repressed with a stringent severity every form or exhibition of luxury, when the rhetoricians were banished from the city, lest the faintest tinge of foreign manners should impair the stern simplicity of the people, and when the proposal to transfer the capital to Veii, after a great disaster, was rejected on the ground that it would be impious to worship the Roman deities anywhere but on the Capitol, or for the Flamens and the Vestals to emigrate beyond the walls.(371) The greater number of these tendencies to universal fusion or equality were blind forces resulting from the stress of circumstances, and not from any human forethought, or were agencies that were put in motion for a different object. It must, however, be acknowledged that a definite theory of policy had a considerable part in accelerating the movement. The policy of the Republic may be broadly described as a policy of conquest, and that of the Empire as a policy of preservation. The Romans having acquired a vast dominion, were met by the great problem which every first-class power is called upon to solve—by what means many communities, with different languages, customs, characters, and traditions, can be retained peaceably under a single ruler. In modern times, this difficulty has been most successfully met by local legislatures, which, if they supply a “line of cleavage,” a nucleus around which the spirit of opposition may form, have on the other hand the priceless advantage of giving the annexed people a large measure of self-government, a centre and safety-valve of local public opinion, a sphere for local ambitions, and a hierarchy of institutions adapted to the distinctive national type. Under no other conditions can a complex empire be carried on with so little strain, or effort, or humiliation, or its inevitable final dissolution be effected with so little danger or convulsion. But local legislatures, which are the especial glory of English statesmanship, belong exclusively to modern civilisation. The Roman method of conciliation was, first of all, the most ample toleration of the customs, religion, and municipal freedom of the conquered, and then their gradual admission to the privileges of the conqueror. By confiding to them in a great measure the defence of the