The government was that of an aristocratic republic under the form of a
monarchy. There were two kings, whose powers were nominally those of
high priests, judges, and leaders in war, but in the two latter
capacities their functions were in time greatly restricted and almost
superseded. The chief legislative and judicial and much of the
executive, power lay with the Senate, or council of twenty-eight elders.
No citizen could be a member of this body until he had become sixty
years of age, and the office was held for life. The popular assembly,
open to every Spartan citizen over thirty years old, really handed over
its powers to a board of five commissioners, officers called Ephors
(“overseers”), whom it annually elected. These high officials had a
secret and irresponsible control over the executive power, both at home
and abroad; and in military enterprises, where the kings were the
nominal leaders, the two Ephors who accompanied the army exercised much
influence. The whole body of Spartan citizens was an aristocracy, and
among themselves entire political equality existed.