Politics: A Treatise on Government
otherwise, neither could the Deity nor the universe be perfect; to
neither of whom can anything external separately exist. Hence it is
evident that that very same life which is happy for each individual is
happy also for the state and every member of it.
CHAPTER IV
As I have now finished what was introductory to this subject, and
considered at large the nature of other states, it now remains that I
should first say what ought to be the establishment of a city which one
should form according to one's wish; for no good state can exist without
a moderate proportion of what is necessary. Many things therefore
ought to be forethought of as desirable, but none of them such as are
impossible: I mean relative to the number of citizens and the extent
of the territory: for as other artificers, such as the weaver and the
shipwright, ought to have such materials as are fit for their work,
since so much the better they are, by so much [1326a] superior will the
work itself necessarily be; so also ought the legislator and politician
endeavour to procure proper materials for the business they have in
hand. Now the first and principal instrument of the politician is the
number of the people; he should therefore know how many, and what they
naturally ought to be: in like manner the country, how large, and what
it is. Most persons think that it is necessary for a city to be large to
be happy: but, should this be true, they cannot tell what is a large one
and what a small one; for according to the multitude of the inhabitants
they estimate the greatness of it; but they ought rather to consider its
strength than its numbers; for a state has a certain object in view, and
from the power which it has in itself of accomplishing it, its greatness
ought to be estimated; as a person might say, that Hippocrates was a
greater physician, though not a greater man, than one that exceeded him
in the size of his body: but if it was proper to determine the strength
of the city from the number of the inhabitants, it should never be
collected from the multitude in general who may happen to be in it;
for in a city there must necessarily be many slaves, sojourners, and
foreigners; but from those who are really part of the city and properly
constitute its members; a multitude of these is indeed a proof of a
large city, but in a state where a large number of mechanics inhabit,
and but few soldiers, such a state cannot be great; for the greatness of
the city, and the number of men in it, are not the same thing. This too
is evident from fact, that it is very difficult, if not impossible, to
govern properly a very numerous body of men; for of all the states which
appear well governed we find not one where the rights of a citizen are
open to an indiscriminate multitude. And this is also evident from the
nature of the thing; for as law is a certain order, so good law is of
course a certain good order: but too large a multitude are incapable of
this, unless under the government of that DIVINE POWER which comprehends
the universe. Not but that, as quantity and variety are usually
essential to beauty, the perfection of a city consists in the largeness
of it as far as that largeness is consistent with that order already
mentioned: but still there is a determinate size to all cities, as well
as everything else, whether animals, plants, or machines, for each of
these, if they are neither too little nor too big, have their
proper powers; but when they have not their due growth, or are badly
constructed, as a ship a span long is not properly a ship, nor one of
two furlongs length, but when it is of a fit size; for either from its
smallness or from its largeness it may be quite useless: so is it with
a city; one that is too small has not [1326b] in itself the power of
self-defence, but this is essential to a city: one that is too large is
capable of self-defence in what is necessary; but then it is a nation
and not a city: for it will be very difficult to accommodate a form
of government to it: for who would choose to be the general of such
an unwieldy multitude, or who could be their herald but a stentor? The
first thing therefore necessary is, that a city should consist of such
numbers as will be sufficient to enable the inhabitants to live
happily in their political community: and it follows, that the more the
inhabitants exceed that necessary number the greater will the city be:
but this must not be, as we have already said, without bounds; but what
is its proper limit experience will easily show, and this experience is
to be collected from the actions both of the governors and the governed.
Now, as it belongs to the first to direct the inferior magistrates and
to act as judges, it follows that they can neither determine causes
with justice nor issue their orders with propriety without they know the
characters of their fellow-citizens: so that whenever this happens not
to be done in these two particulars, the state must of necessity be
badly managed; for in both of them it is not right to determine too
hastily and without proper knowledge, which must evidently be the case
where the number of the citizens is too many: besides, it is more easy
for strangers and sojourners to assume the rights of citizens, as they
will easily escape detection in so great a multitude. It is evident,
then, that the best boundary for a city is that wherein the numbers are
the greatest possible, that they may be the better able to be sufficient
in themselves, while at the same time they are not too large to be under
the eye and government of the magistrates. And thus let us determine the
extent of a city.
CHAPTER V
What we have said concerning a city may nearly be applied to a country;
for as to what soil it should be, every one evidently will commend it
if it is such as is sufficient in itself to furnish what will make the
inhabitants happy; for which purpose it must be able to supply them
with all the necessaries of life; for it is the having these in plenty,
without any want, which makes them content. As to its extent, it should
be such as may enable the inhabitants to live at their ease with freedom
and temperance. Whether we have done right or wrong in fixing this limit
to the territory shall be considered more minutely hereafter, when
we come particularly to inquire into property, and what fortune is
requisite for a man to live on, and how and in what manner they ought
to employ it; for there are many doubts upon this question, while each
party insists upon their own plan of life being carried to an excess,
the one of severity, the other of indulgence. What the situation of the
country should be it is not difficult to determine, in some particulars
respecting that we ought to be advised by those who are skilful in
military affairs. It should be difficult of access to an enemy, but
easy to the inhabitants: and as we said, that the number of [1327a]
inhabitants ought to be such as can come under the eye of the
magistrate, so should it be with the country; for then it is easily
defended. As to the position of the city, if one could place it to one's
wish, it is convenient to fix it on the seaside: with respect to
the country, one situation which it ought to have has been already
mentioned, namely, that it should be so placed as easily to give
assistance to all places, and also to receive the necessaries of life
from all parts, and also wood, or any other materials which may happen
to be in the country.
CHAPTER VI
But with respect to placing a city in the neighbourhood of the sea,
there are some who have many doubts whether it is serviceable or hurtful
to a well-regulated state; for they say, that the resort of persons
brought up under a different system of government is disserviceable
to the state, as well by impeding the laws as by their numbers; for a
multitude of merchants must necessarily arise from their trafficking
backward and forward upon the seas, which will hinder the well-governing
of the city: but if this inconvenience should not arise, it is evident
that it is better, both on account of safety and also for the easier
acquisition of the necessaries of life, that both the city and the
country should be near the sea; for it is necessary that those who are
to sustain the attack of the enemy should be ready with their assistance
both by land and by sea, and to oppose any inroad, both ways if possible
but if not, at least where they are most powerful, which they may
do while they possess both. A maritime situation is also useful for
receiving from others what your own country will not produce, and
exporting those necessaries of your own growth which are more than you
have occasion for; but a city ought to traffic to supply its own wants,
and not the wants of others; for those who themselves furnish an open
market for every one, do it for the sake of gain; which it is not proper
for a well-established state to do, neither should they encourage such
a commerce. Now, as we see that many places and cities have docks and
harbours lying very convenient for the city, while those who frequent
them have no communication with the citadel, and yet they are not too
far off, but are surrounded by walls and such-like fortifications, it is
evident, that if any good arises from such an intercourse the city will
receive it, but if anything hurtful, it will be easy to restrain it by
a law declaring and deputing whom the state will allow to have an
intercourse with each other, and whom not. As to a naval power, it is by
no means doubtful that it is necessary to have one to a certain degree;
and this not only for the sake of the [1327b] city itself, but also
because it may be necessary to appear formidable to some of the
neighbouring states, or to be able to assist them as well by sea as
by land; but to know how great that force should be, the health of the
state should be inquired into, and if that appears vigorous and enables
her to take the lead of other communities, it is necessary that her
force should correspond with her actions. As for that multitude of
people which a maritime power creates, they are by no means necessary to
a state, nor ought they to make a part of the citizens; for the mariners
and infantry, who have the command, are freemen, and upon these depends
a naval engagement: but when there are many servants and husbandmen,
there they will always have a number of sailors, as we now see happens
to some states, as in Heraclea, where they man many triremes, though
the extent of their city is much inferior to some others. And thus we
determine concerning the country, the port, the city, the sea, and a
maritime power: as to the number of the citizens, what that ought to be
we have already said.
CHAPTER VII
We now proceed to point out what natural disposition the members of the
community ought to be of: but this any one will easily perceive who
will cast his eye over the states of Greece, of all others the most
celebrated, and also the other different nations of this habitable
world. Those who live in cold countries, as the north of Europe, are
full of courage, but wanting in understanding and the arts: therefore
they are very tenacious of their liberty; but, not being politicians,
they cannot reduce their neighbours under their power: but the Asiatics,
whose understandings are quick, and who are conversant in the arts, are
deficient in courage; and therefore are always conquered and the
slaves of others: but the Grecians, placed as it were between these
two boundaries, so partake of them both as to be at the same time both
courageous and sensible; for which reason Greece continues free, and
governed in the best manner possible, and capable of commanding the