The form of the Revolutionary Government was simple. At its head stood the Committee of Public Safety, the twelve kings of France. The members of this Committee were supreme in all matters foreign or domestic. They used the ministers as clerks and subordinates. They resorted only as a matter of form to the Convention. They were superior to all existing authorities, with unlimited powers, above the law. Immediately subordinate to the Great Committee were the two chief engines of its power--the Committee of General Security, under Amar and Vadier, Panis and Rühl, which superintended the police work of the Government, filled the prisons of Paris, and chose the victims for the scaffold, and the Revolutionary Tribunal, organised afresh in September upon a larger scale, ruled by such men as Herman, Coffinhal and Fouquier-Tinville, and acting through the guillotine. Behind these three important bodies were the various other agencies of the Terror. First, in Paris, there was the redoubtable Commune, directed by Pache, Hébert and Chaumette; the battalions of the Sections, once the National Guard, but now represented chiefly by their cannoneers, and placed under the command of Hanriot; the new Revolutionary Army of Sansculottes, formed in September, 1793, and supplying an additional force of six or seven thousand men; the Revolutionary Committees of the forty-eight Sections, carefully sifted, organised and paid; the Sectional meetings, now limited to two a week, and governed by a paid majority of Sansculottes; and the great organisation of the Jacobin Club. Then in the provinces, the Government was maintained by a similar system of close centralisation. Special Representatives on Mission were sent out armed with absolute powers to establish the terror in the great cities of France. Subordinate officers, organised later under the title of National Agents, were appointed to exercise similar powers in the less important towns. Revolutionary Committees, organised and paid, in every borough and considerable village, acted under the National Agents, and in close co-operation with the local clubs. And in some places revolutionary tribunals and revolutionary armies were formed on the model of those in Paris.