The condition of those towns and communities called _municipia_, by their being more closely united to the greater state, seemed to partake a degree less of independence. They were adopted citizens of Rome; but whatever was detracted from their ancient liberty was compensated by a more or less complete possession of the privileges which constituted a Roman city, according to the merits which had procured their adoption. These cities were models of Rome in little; their courts and magistrates were the same; and though they were at liberty to retain their old laws, and to make new at their pleasure, they commonly conformed to those of Rome. The _municipia_ were not subject to tribute. When a whole people had resisted the Roman power with great obstinacy, had displayed a readiness to revolt upon every occasion, and had frequently broken their faith, they were reduced into what the Romans called the form of a province: that is, they lost their laws, their liberties, their magistrates; they forfeited the greatest part of their lands; and they paid a heavy tribute for what they were permitted to retain. In these provinces the supreme government was in the prætor sent by the senate, who commanded the army, and in his own person exercised the judicial power. Where the sphere of his government was large, he deputed his legates to that employment, who judged according to the standing laws of the republic, aided by those occasional declarations of law called the prætorial edicts. The care of the revenue was in the quæstor. He was appointed to that office in Rome; but when he acted in a judicial capacity, it was always by commission from the prætor of the province.[19] Between these magistrates and all others who had any share in the provincial government the Roman manners had established a kind of sacred relation, as inviolable as that of blood.[20] All the officers were taught to look up to the prætor as their father, and to regard each other as brethren: a firm and useful bond of concord in a virtuous administration; a dangerous and oppressive combination in a bad one. But, like all the Roman institutions, it operated strongly towards its principal purpose, the security of dominion, which is by nothing so much exposed as the factions and competitions of the officers, when the governing party itself gives the first example of disobedience.