State, must retain at least the semblance of old Ways._
Whoever takes upon him to reform the government of a city, must, if his
measures are to be well received and carried out with general approval,
preserve at least the semblance of existing methods, so as not to
appear to the people to have made any change in the old order of
things; although, in truth, the new ordinances differ altogether from
those which they replace. For when this is attended to, the mass of
mankind accept what seems as what is; nay, are often touched more
nearly by appearances than by realities.
This tendency being recognized by the Romans at the very outset of
their civil freedom, when they appointed two consuls in place of a
single king, they would not permit the consuls to have more than twelve
lictors, in order that the old number of the king’s attendants might
not be exceeded. Again, there being solemnized every year in Rome a
sacrificial rite which could only be performed by the king in person,
that the people might not be led by the absence of the king to remark
the want of any ancient observance, a priest was appointed for the due
celebration of this rite, to whom was given the name of _Rex
sacrificulus_, and who was placed under the orders of the chief priest.
In this way the people were contented, and had no occasion from any
defect in the solemnities to desire the return of their kings. Like
precautions should be used by all who would put an end to the old
government of a city and substitute new and free institutions. For
since novelty disturbs men’s minds, we should seek in the changes we
make to preserve as far as possible what is ancient, so that if the new
magistrates differ from the old in number, in authority, or in the
duration of their office, they shall at least retain the old names.
This, I say, should be seen to by him who would establish a
constitutional government, whether in the form of a commonwealth or of
a kingdom. But he who would create an absolute government of the kind
which political writers term a tyranny, must renew everything, as shall
be explained in the following Chapter.