The Roman policy soon changed, however, from that of indifference, or protection, to persecution. The causes for this change are: (1) The political science of the Roman Empire, and (2) the inherent character of Christianity. Ethically the Roman state embodied the highest good, hence all human good depended upon the integrity and security of the state. That principle subordinated the religious to the political, and made the Emperor the head of all recognised religions. Roman law upheld this theory, as clearly stated by Cicero: "No man shall have for himself particular gods of his own; no man shall worship by himself new or foreign gods, unless they are recognised by the public laws."[93:1] Julius Paulus, a Roman citizen, stated the idea thus: "Whoever introduces new religions, the tendency and character of which are unknown, whereby the minds of men might be disturbed, should, if belonging to the higher rank, be banished; if to the lower, punished with death." Gaius said of forbidden associations: "Neither a society, nor a college, nor any body of this kind, is conceded to all persons promiscuously; for this thing is regulated by laws, or codes of the Senate, and by imperial constitutions."[93:2] Hence from a legal standpoint Christianity was illegal, because it introduced a new religion not admitted into the class of _religiones licitæ_. "You are not permitted by the law," was the taunt of pagans.[93:3] To organise churches and to hold unlicensed meetings were violations of Roman law. Might they not easily serve as covers for political plots? Mæcenas advised Augustus: "Worship the gods in all respects in accordance with the laws of your country, and compel all others to do the same. But hate and punish those who would introduce anything whatever alien to our customs in this particular . . . because such persons, by introducing new divinities, mislead many to adopt foreign laws. Hence conspiracies and secret combinations--the last things to be borne in a monarchy."[94:1] Roman citizens, therefore, who turned Christian were criminals, outlaws, bandits, and traitors; consequently the best Emperors, those who felt called upon to enforce the law for the weal of the Empire, those who wished to restore the vigour and power of old Rome, sought to exterminate them, while the worst rulers were mostly indifferent, and in some instances tolerant.