It appears however clear, that the action of the Boun was not confined to war. For we not only find the Yéportes on the Shield, who sit in the ayopn, exercising exclusively the office of judges, but they are also distinctly noticed as a class or ordera in the Ithacan Assembly, who had a place in it set apart for themselves. Nor are we without a proof which, though conveyed in few words, is complete, of the conjunction of the Council with the sovereign in acts of government. For when Ulysses in his youth undertook the mission to Messene, in the matter of the sheep that had been carried off from Ithaca, he did it under the orders of Laertes, together with his council":

πρὸ γὰρ ἦκε πατὴρ ἄλλοι τε γέροντες.

And Nausicaa meets her father Alcinous, on his way to the Boun of the Phracians.

Upon the whole, the Bouλn seems to have been a most important auxiliary instrument of government; sometimes as preparing materials for the more public deliberations of the Assembly, sometimes intrusted, as a kind of executive committee, with its confidence; always as supplying the Assemblies with an intellectual and authoritative element, in a concentrated form, which might give steadiness to its tone, and advise its course with a weight adequate to so important a function.

The individuals who composed this Council were of such a station that, when they acted separately, King Agamemnon himself might have to encounter resistance and reproof from them in various instances. Accordingly, upon the occasion when Agamemnon made a survey of the army, and when he thought fit to rebuke Ulysses for slackness, that chieftain remonz Il. xviii. 506. a Od. ii. 14.

b Od. xxi. 21.

Opposition in the βουλή.

99

strated with him something more than freely (vñоdρà idov) both in voice and manner. So far from trusting to his authority, Agamemnon made a soothing and even an apologetic reply. Again, when on the same occasion he reproved Diomed, Sthenelus defended his immediate Chief in vainglorious terms. These the more refined nature of Diomed himself induced him at once to disclaim, but they do not appear to have been considered as involving any thing in the nature of an offence against the station of Agamemnon. Again, though Diomed on this occasion restrained his lieutenant, yet, when he meets Agamemnon in the Assembly of the Ninth Book, he frankly tells him that Jupiter, who has given him the honours of the sceptre, has not endowed him with the superior power that springs from determined courage; and even the passionate invectives of Achilles in the First Book bear a similar testimony, because they do not appear to have been treated as constituting any infringement of his duty.

In the Bovλn', Nestor takes the lead more than Agamemnon. As to the Assembly, the whole plan in the Second Iliad is expressly founded upon the supposition, that the army was accustomed to hear the chiefs argue against, and even overthrow, the proposals of Agamemnon. His advice that they should return home, which Grotes considers only an unaccountable fancy and a childish freak, is however capable of being regarded in this view, that, before renewing active operations without Achilles, it was thought wise to test the feeling of the army, and that it could not be more effectually tried than by a recommendation from the commander-in-chief that they should re-embark for e Il. ix. 37.

e Il. iv. 329-63.

f Cf. Od. xi. 512.

d Ibid. 385-418.

8 Hist. of Greece, vol. ii. 95, 97.

Greece. The plan was over-refined; and it may even seem ridiculous, because it failed, and simply kindled an ungovernable passion, which would not listen to debate. But the proposal does not bear that character in the Ninth Book, where the same suggestion is renewed, without the previous knowledge of the chiefs, in the same words, and at a time when the Greeks were in far worse condition.

When Agamemnon made it in order to be overruled, it took effect: when he made it in good earnest, it failed. If then the Greeks could be retained contrary to his wish in the Ninth Book, it might be misjudged, but could hardly be absurd, to expect a similar result in the Second, when they had less cause for discouragement.

And why did it take effect? Simply because the Assembly, instead of being the simple mediums through which the king acted, was the arena on which either the will of the people might find a rude and tumultuary vent, or, on the other hand, his royal companions in arms could say, as Diomed says, I will use my right and resist your foolish project in debate; which you ought not to resent."

Ατρείδη, σοὶ πρῶτα μαχήσομαι ἀφραδέοντι,

ἡ θέμις ἐστὶν, ἄναξ, ἀγόρῃ· σὺ δὲ μή τι χολωθῇς.

The proposal of Agamemnon had been heard in silence, the mode by which the army indicated its disinclination or its doubt. But the counter proposal of Diomed, to fight to the last, was hailed with acclamationi;

οἱ δ ̓ ἄρα πάντες ἐπίαχον υίες Αχαιών, μῦθον ἀγασσάμενοι Διομήδεος ἱπποδάμοιο·

h Il. ix. 30.

i Ibid. 50.

g Grote ii. 104.

Opposition in the βουλή.

101

so that the Assembly was then ripe for the plan of Nestor, which at once received its approval:

ὡς ἔφαθ'· οἱ δ' ἄρα τοῦ μάλα μὲν κλύον, ἠδ ̓ ἐπίθοντο. Subsequently, in the Bouλn of the same Book, Nestor tells Agamemnon that it is his duty to listen as well as to speak, and to adopt the plans of others when they are good (100-2). At the same time, the aged chieftain appears to submit himself to the judgment of Agamemnon in the Councilk. His expressions are perhaps matter more of compliment than of business; and at any rate we do not find any like terms used in the Assembly.

It was a happy characteristic of heroic Greece, that while she abounded in true shame, she had no false shame. It was not thought that a king, who had done wrong, compromised his dignity by atonement; but, on the contrary, that he recovered it. So says Ulysses, in the Assembly of the Nineteenth Iliad1;

οὐ μὲν γάρ τι νεμεσσητὸν βασιλῆα

ἄνδρ' ἀπαρέσσασθαι, ὅτε τις πρότερος χαλεπήνῃ.

This passage at once establishes in the most pointed manner both the right to chide the head of the army, and the obligation incumbent on him, as on others, where he had given offence to make amends.

Thus then a large liberty of speech and judgment on the part of the kings or chiefs, when they differed from Agamemnon, would appear to be established beyond dispute, a liberty which in certain cases resulted in his being summarily overruled. I cannot therefore here subscribe even to the measured statement of Mure, who, admits the liberty of remonstrance, but asserts also the sovereignty of the will of Agamemnon. Much less to the very broad assertions of Grote, that the resolutions of Agamemnon appear uniformly to prevail in the

k Ibid. 97.

j Il. ix. 79.

Il. xix. 182.

Council, and that the nullity of positive function is still more striking in the Agorè".

To that institution it is now time for us to turn.

The trait which is truly most worthy of note in the polities of Homeric Greece, is also that which is so peculiar to them; namely, the substantive weight and influence which belonged to speech as an instrument of government; and of this power by much the most remarkable development is in its less confined and more popular application to the Assembly.

This power of speech was essentially a power to be exercised over numbers, and with the safeguards of publicity, by man among his fellow-men. It was also essentially an instrument addressing itself to reason and free will, and acknowledging their authority. No government which sought its power in force, as opposed to reason, has at any time used this form of deception. The world has seen absolutism deck itself with the titles and mere forms of freedom, or seek shelter under its naked abstractions: but from the exercise of free speech as an instrument of state, it has always shrunk with an instinctive horror.

One mode of proving the power of speech in the heroic age is, by showing what place it occupied in the thoughts of men, as they are to be gathered from their language. Another mode is, by pointing to its connection, in practical examples, with this or that course of action, adopted or shunned. A third is, by giving evidence of the earnestness with which the art was prosecuted, and the depth and comprehensiveness of the conceptions from which it derived its form.

We shall presently trace the course of public affairs, as they were managed by the Greeks of the heroic age m Grote's Hist. vol. ii. pp. 90, 2.