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.
Whosoever becomes prince of a city or State, more especially if his position be so insecure that he cannot resort to constitutional government either in the form of a republic or a monarchy, will find that the best way to preserve his princedom is to renew the whole institutions of that State; that is to say, to create new magistracies with new names, confer new powers, and employ new men, and like David when he became king, exalt the humble and depress the great, “filling the hungry with good things, and sending the rich empty away.” Moreover, he must pull down existing towns and rebuild them, removing their inhabitants from one place to another; and, in short, leave nothing in the country as he found it; so that there shall be neither rank, nor condition, nor honour, nor wealth which its possessor can refer to any but to him. And he must take example from Philip of Macedon, the father of Alexander, who by means such as these, from being a petty prince became monarch of all Greece; and of whom it was written that he shifted men from province to province as a shepherd moves his flocks from one pasture to another.