The political genius of a nation is shown by nothing so much as the success with which it supplements the deficiencies of its formal constitution by informal but recognized agencies. Rome was provided with a machinery for collecting and distributing her domestic revenue; she had a treasury and a staff of clerks, but she had no separate civil service for the Empire; the constitution of a city state did not admit of such a thing, and the collection of the revenue of a province was left to semi-private agencies, its taxes being farmed. At fixed periods the right of collecting the taxes assigned to the public treasury from the provinces was sold by public auction; the purchaser paid a lump sum to the treasury, and made the best of his bargain in the provinces; the speculation was an exceedingly profitable one, but its profits threatened to disappear owing to excessive competition among the farmers of taxes; in order to eliminate competition the farmers of taxes formed themselves into a close corporation, the taxes were bought in the name of an individual, but in fact by an association. Alongside of the Senate there thus gradually grew an organized body which formed the permanent civil executive of the provinces, the body which was known as the Equestrian Order. As in our own history, so in Roman history, the value of terms alters from period to period, almost from year to year; it would therefore be rash to declare that at any one period every titular Roman knight was an active member of the Financial Corporation which farmed the taxes, or that the collection of revenue was the sole business of the corporation as a whole, or of its individual members. Again, that differentiation of functions in the case of the individual, or the association, which is to us almost a law of existence, was unknown to the ancients, or worked on lines of division not readily comprehensible to ourselves; there was, for instance, nothing absurd to Roman conceptions in sending out an advocate like Cicero to govern a frontier province, and placing him on active service in command of an army, for civil, military, and judicial functions of the highest responsibility were exercised simultaneously or successively by the same individual as a matter of course. But though it is difficult to draw fixed lines, there is quite sufficient evidence to warrant us in asserting that the Equestrian Order held a recognized position in the State, that it practically formed the Civil Service of the provinces, that its interests were repeatedly opposed to those of the Senate, that it roughly represented Greater Rome, as opposed to the city of Rome, that through all the disturbances of the Civil Wars it kept the machinery of Government outside Italy in working order, that it was the channel through which the leading provincials gradually passed into the Civil Administration, and that eventually the Imperial Executive was built up on the foundation, not of the Senate,