THE Arts of Empire AND Mysteries of State Discabineted IN Political and Polemical Aphorisms grounded on Authority and Experience AND Illustrated with the Choicest Examples and Historical Observations By the Ever-renowned Knight Sir WALTER RALEIGH Published By JOHN MILTON Esq Quis Martem tunica tectum Adamantina digne scripserit LONDON Printed by G. Croom for Joseph Watts at the Angel in St. Paul's Church-yard 1692. TO THE READER HAving had the Manuscript of this Treatise Written by Sir Walter Raleigh many Years in my Hands and finding it lately by chance among other Books and Papers upon reading thereof I thought it a kind of Injury to withhold longer the Work of so Eminent an Author from the Publick it being both answerable in Stile to other Works of his already Extant as far as the Subject would permit and given me for a true Copy by a Learned Man at his Death who had Collected several such Pieces John Milton THE Principal Contents CHAP. 1. THE Definition and Division of Publick Weales and Sovereign States according to their several Species or Kinds Page 1 Chap. 2. Of Sovereign or Monarchick Government with its Essential Marks and Specifical Differences P. 3 Chap. 3. Of Monarchies Seignioril exemplified in the Turkish and West-Indian Empire P. 6 Chap. 4. Of Monarchies Royal with the Means to maintain them P. 8 Chap. 5. Of Monarchies Tyrannical P. 11 Chap. 6. Of New-found Monarchies and Principalities with the Means to perpetuate them P. 12 Chap. 7. Of Councils and Counsellors in general P. 17 Chap. 8. Of Councils in some particular Monarchies Aristocraties and Democraties P. 18 Chap. 9. Of Officers and Commissioners with their respective Distinctions P. 21 Chap. 10. Of Magistrates their Qualifications and Elections P. 22 Chap. 11. Observations intrinsically concerning every Publick State in Points of Justice Treasure and War P. 24 Chap. 12. Extrinsick observations shewing how to deal with Neighbor Princes and Provinces respectively how to prevent their Designs and decypher their Intendments P. 30 Chap. 13. Observations confirmed by Authorities of Princes and Principalities Charactering an Excellent Prince or Governor P. 35 Chap. 14. Of the Princes intimate Counsellors and Ministers of State with their several Requisites P. 41 Chap. 15. The Art of Ruling or Mystery of Regiment P. 48 Chap. 16. Of Princely Authority wherein it consists and how far to be extended and delegated P. 51 Chap. 17. Of Power and Force and how to be raised and maintained P. 53 Chap. 18. Of Conspiracy and Treason with the Causes and ways of Prevention or Discovery P. 55 Chap. 19. Of Publick Hate and Contempt with the Occasions and Means to redress and avoid it P. 58 Chap. 20. Of Diffidence and Dissimulation in the Management of State Affairs P. 67 Chap. 21. Of War Defensive and Invasive with Instructions touching Laws of Arms Soldiers and Military Discipline P. 70 Chap. 22. Of Generals and Commanders and their requisite Abilities in Martial Enterprises and Expeditions P. 83 Chap. 23. Of Councils in War and Directions Tactick and Stratagematick with Advice how to make an honorable Peace P. 87 Chap. 24. Of Civil War with the Causes and Remedies thereof P. 97 Chap. 25. A Collection of Political Observations confirmed by Reason and Experience advertising Princes Statesmen and Private Persons how to demean themselves in all Fortunes and Events P. 107 Chap. 26. Maxims of State or Prudential Grounds and Polemical Precepts concerning all Estates and Forms of Policy in times of Peace or War c. confirmed by Select Narrations and Historical Parallels P. 184 ADVERTISEMENT THE Excellent Woman described by her True Characters and their Opposites Printed for J. Watts THE ARTS of EMPIRE AND Mysteries of State CHAP. I. The Definition and Division of Publick Weales and Sovereign States according to their several Species or Kinds A Common-wealth is a certain Sovereign Government of many Families with those things that are common among them All Common-wealths are either Monarchies or All Common-wealths are either Aristocraties or All Common-wealths are either Democraties or A Monarchy is that State where the Sovereignty resteth in the Person of one only Prince An Aristocraty is where some small part of the People have in them as a Body corporate the Sovereignty and Supreme Power of the whole State A Democraty is where all the People have Power and Authority Sovereign So doth it appear that the place and Person where the Sovereignty resteth doth cause the State to be either a Monarchy an Aristocraty or Popular Government CHAP. II. Of Sovereign or Monarchick Government with its Essential Marks and Specifical Differences SOvereignty is an absolute and perpetual Power in every publick State and he is properly and only a Sovereign that acknowledgeth no Superior or Equal nor holdeth of any other Prince Person or Power but God and his own Sword The first Mark of Sovereignty is absolute Power and Authority to command all Subjects in general and every of them in particular without consent of any other Person or Persons either greater or inferior to himself The second Mark of Majesty is Authority to make War and conclude Peace at his pleasure The third is Power to bestow all Honors and chief Offices at his pleasure The Fourth Mark of Sovereignty is Appellation The Fifth Mark and last is power to pardon all Subjects by rigor of Law or otherwise condemned in Life Lands Goods or Honors These Powers are not to be imparted to any Officer Deputy or other Magistrate but in the Prince's absence and for some urgent occasion Monarchies are of three sorts Signioril Royal and Tyrannical The Diversity of Monarchies doth not proceed from the Nature of the State but the diverse proceedings of those Princes that govern for great difference there may be between the nature of the Commonwealth and the Government thereof That Prince that giveth the Magistracies Honors and Offices without respect of Nobility Riches or Vertue may be said to govern popularly And that Monarchy may be said to be governed Aristocratically when the Monarch imparteth the principal Honors and Offices to the Noble and Rich Men only The same difference there is to be found in States Aristocratical and Popular for the one and the other may be both Signioril or Tyrannical A Monarch Signioril is he who by force of Arms and just War is made Owner of Mens Bodies and Goods and governeth them as a Master of a Family governeth base Servants and Slaves A Monarch Royal is he whose Subjects are obedient unto his Laws and the Monarch himself obeyeth the Laws of God and Nature suffering every Subject to enjoy Liberty natural with Property in Lands and Goods governing as a Father governeth his Children A Monarch Tyrannical is he who without regard to the Law of God or Nature commandeth Free-men as Slaves and useth their Lands and Goods as his own CHAP. III. Of Monarchy Signioril Exemplified in the Turkish and West-Indian Empire ALL People subject to Princes are governed as Free-men by
beholdeth the new prosperity of others with an envious Eye and wisheth a moderation of Fortune no where so much as in those we have known in equal degree with our selves In all Enterprises of War if present necessity doth not otherwise require Leisure and Deliberation ought to be used for often it sufficeth in lieu of Wisdom to take the advantage of other Mens folly All Men that are to consider of great Actions ought to be informed whether that which is undertaken be profitable for the Commonweal honourable to themselves and easie to be effected or at least not greatly difficult Also he that persuadeth is to be examined whether besides bare Words and Counsel he will joyn his own Peril and if Fortune favour the attempt to whom the principal Glory shall redound The Perils which accompany private Enterprises are far unlike to those which he doth enter that aspireth to Principality For in private attempts a Man may pause or proceed as he will But to him that aspires to Empire there remains no middle course but either by Victory to triumph as a Prince or being vanquished to endure death as a Traytor Let no Man in his Prosperity give much credit to common Applause or Service assured by any of whom in meaner Fortune he hath had no experience for the base People are learned in no Lesson only without difference of Truth or Falshood to flatter Men in Authority and with Shouts and Words of great rejoycing make shew of great Affection As overmuch haste is dangerous so too great delay oftentimes proveth disadvantagious for albeit consultation ought to forego action yet to Dispute long and in the end reject the advice of either side or take a middle course which in cases of doubt and danger is worst was ever accompted great discretion There is no course more comely nor any resolution so well beseeming a wise Man having made proof of his own Vertue and finding in Age no Fortune due to such effect as to retire himself from the Court and Company for so shall he shun the Inconveniences of Contempt and the Discommodity of Travel Jucunda senectuti otia yet true it is that whoso hath lived a Prince or governed as a publick Person cannot expect security in a private Estate Whensoever danger draweth near and terror is at hand all Men look about but none willingly adventure For in such Cases every Man will give Council but few will take part of the peril In Common-wealths where Sects or Partialities be the Leader of any side is able to kindle Civil War yet is he unable to moderate the Victory For to stir up dissentions and troubles the worst Man most commonly bears the stroke but peace and quietness are not established but by Men of rare Gifts and excellent Vertue It may seem strange and contrary both to courtesie and Christian profession that Men are far more mindful of Injuries done unto them than of benefits received by them The reason thereof is that Thankfulness is accompted a burden but Revenge is sweet and reckoned a great gain Of reconciled Foes and such as know that our harms were caused by their means we oft-times expect favour as persuaded that new Friendship will repair the loss of old displeasure But the matter doth seldom so fall out for the quality of Man's nature is ever to hate those whom he hath hurt and love them whom he hath made beholding Quos laeserunt oderunt Tac. To common Persons and such as are ignorant in Matters of State every Taxation and Imposition seemeth heavy or superfluous yet the wiser sort know that the end of all publick endeavour is to confirm People in Peace and Peace cannot be maintained without Arms nor Arms without Pay nor Pay without Impositions As fortunate Folk are envied so are the poor contemned which Rule reacheth also to Princes The one lives in Plenty with War the other in Poverty with Peace For seldom is it seen that those People are assaulted where nothing is to be gained and whose base Beings afford no other spoils than Blood and Beggery Wisemen have observed that in matter of State and the managing thereof three Things are especially to be looked unto The first is Occasion the second the Intentions of other Men the third our own Affection For there is nothing that slippeth away so soon as Occasion nothing so difficult as to judge what an other Man intendeth nor any thing more nocent than our own immoderate desires It hath been ever a course observed by wise Princes but much more by Aristocracies and Popular States against Force and Fury of the Multitude to defend themselves with Silver and Gold How much more it importeth all Princes to lead a vertuous Life and give daily example of Piety and Justice appears apparently in the Proceedings of the Roman Bishops who by the well-doing of some few of them at the first became greatly honoured but afterwards they became contemptible For the Reverence which Men did bear to the sanctity of their Lives failing it was impossible of so contrary Manners and Examples to look for like effects The success of the War chiefly dependeth on the Reputation of the Prince which declining the vertue also of the Soldiers faileth Likewise the fidelity of the People decayeth and their Mony to maintain the War ceaseth contrarywise the Courage of the Enemy is increased they that stood doubtful become resolved and every difficulty augmenteth The Authority which Princes give is chiefly in respect of Wisdom and Valour Yet true it is that for the most part they account them the wisest Men that can best accommodate themselves to their Humour The greatest Distress and Difficulty which can come to any Army doth proceed of these Causes Want of Mony scarcity of Victuals hatred of People discord of Captains disobedience of Soldiers and their flying to the Enemy either of necessity or free-will A Prince or great Magistrate having long maintained the reputation of Wisdom and Vertue must take heed that no rash or dangerous Resolution do taint the Honourable Fame of his former Life For to be transported with Anger against his own Profit is lightness and to esteem small dangers more than great is want of Judgment A Prince or Person of great Estate must be wary not to inure the conceit of double dealing For little Sincerity and Trust is looked in his Actions of whom there is an opinion of Craft and Falshood conceived Experience hath always proved that whatsoever the most part of men desire rarely cometh to pass The reason hereof is that the effects of Human Actions commonly depend on the will of a few and their Intentions ever differing from the greater number the end and success cannot be other than as pleaseth the few that are to direct them There is nothing more dangerous than to enterprise a War or other Actions of Importance upon popular persuasion for such expectations are vain and such designs fallible Also the Fury of the Multitude
nature of Man so much or so soon as the immoderate desire of Honour in so much as Men of honest Minds and vertuous Inclinations are sometimes by Ambition drawn to abuse that Goodness whereunto they are inclined Example Appius Claudius having lived long an Enemy to the Multitude hoping by their aid to continue his Authority of the Decemviri in Rome became their Friend and disfavoured the Factions of great Men. Likewise Q. Fabius a Man of singular vertue being also called to that dignity by Appius's self adulterated his nature and became like unto him Seldom or never is any People discontented without just cause yet if happily they be asked whereof their offence proceedeth many times for want of some fit Man to pronounce their grief they stand silent Example The Romans at the death of Virginia were gathered together armed upon Mount Sacro and being asked by the Senate for what cause they so did No Answer was made until Virginio Father of the Virgin had procured that twenty of the Tribunes might be made to be as Head of the People and confer with the Senate A great Folly or rather meer Madness it seemeth to desire any thing and tell before-hand that the end and purpose of the desire is evil for thereby he sheweth Reason why it ought not to be granted Example The Romans required of the Senate that Appius and the rest of the Decemviri should be delivered into their Hands being determined to burn them all alive The first part of their Request seemed reasonable but the end thereof unreasonable A course very dangerons it is in all States by continual accusing and punishing to hold the Subject in doubt and daily fear For he that stands always looking for some trouble becometh careless and apt to attempt Innovation Example The Decemviri being opprest the Tribunes authorized in their place endeavoured daily to call in question the most part of the Decemviri and many other Citizens also whereof great Inconveniences arose and much danger would have ensued had not a Decree propounded by M. Duillius been made that for one year no Roman Citizen should be accused Strange it is to see how Men in seeking their own security lay the Injuries which they fear upon other Men as though it were necessary either to offend or to be offended Example The Romans among themselves united and strong always endeavoured to offend the Nobles and the Nobles likewise being persuaded they were strong laboured to oppress the People Which Humours were the cause of continual Troubles To make estimation and choice of Men fit to govern the best course is to consider in particular otherwise it might be imagined that among the Multitude or meaner People they being the greatest number might be found some Persons of more perfection Example The People of Rome desiring that the Consulship might be given among them as Men of most Merit did by all means endeavour to obtain that Honour but being come to Election and every Mans Vertue particularly considered there could not be among the Multitude only one found fit for so great a place and therefore the People themselves consented that the Dignity should still remain as it was To persuade a Multitude to any Enterprise is easie if that which is persuaded doth promise either Profit or Honour yet oft under that external apparence lies hid loss or disadvantage Example The Romans persuading themselves that the slow Proceedings of Fabius Maximus in the War was both chargeable and cowardly required That the General of the Horse might direct the War which course had ruined Rome if the Wisdom of Fabius had not been Likewise when Hannibal had divers years reigned in Italy one M. Centenius Penula a Man of base Birth yet a Soldier of some Repute undertook that if he with such Voluntiers as would follow him might have Authority to Fight he would within few days deliver Hannibal either alive or dead Which Offer was by the Senate accounted rash yet for fear to offend the People granted and Penula with his Soldiers was cut in pieces To appease a Mutiny or Tumult in any Camp or City there is no means more speedy or successful than if some Person of great Quality and Respect present himself to the People and by his Wisdom lay before them the damage of their Discords persuading them to Peace and Patience Example The Faction of the Frateschi and Arratiati in Florence the one ready to assault the other Francisco Soderini Bishop of Voterra in his Episcopal Habit went between the Parties and appeased them Also Count Egremont by the Authority of his Wisdom and Presence supprest a great Mutiny in Antwerp between the Martinists and Papists A People corrupted do rarely or never observe any Order or Ordinance unless by Force of some Prince's Power they be thereto inforced but where the Multitude is Incorrupt and Religious all things are done justly and without Compulsion Example Camillus at the Victory against the Urienti vowed that the tenth part of the Pillage should be offered to Apollo but the Senate supposing that the People would not consent to so great a Contribution studied to dispense with that Vow and to please Apollo and the People also by some other Means Whereat the People shewed themselves openly offended and willingly gave no less than the Sum formerly decreed When the Free-Cities of Germany are occasioned to make Mony for any Publick Service the Magistrates impose one or two in the hundred on every City which done every one is sworn to lay down so much as in his own Conscience he is able and he with his own Hand no other Witness being present casteth the Mony into a Coffer prepared for the purpose which he would not if his own Conscience did not inforce him When any extraordinary occasion happens to a City or Province some prodigious Voice is heard or some marvelous Sights are seen Before T. Gracchus General of the Roman Army was betraid by Flavius Lucanus the Aruspices discovered two Serpents eating the Entrails of the Beasts sacrificed which done they vanish'd Which Vision as they divined prognosticated the General 's Death Likewise F. Savanarola foretold the coming of King Charles VIII into Italy And M. Sedigitus when the Gauls first came towards Rome informed the Senate he heard a Voice much louder than any Man's crying aloud Galli veniunt The multitude of base People is naturally audacious and apt to Innovation yet unless they be directed by some Persons of Reputation and Wisdom rarely do they joyn in any Action of great import Example The Romans when their City was taken and sack'd by the Gauls went to Veio with determination to dwell there The Senate informed thereof commanded That upon great Pain every Citizen should return to Rome whereat the People at first mocked but when every Man particularly within himself considered his own Peril all in general determined to obey the Magistrates In the Employment of Men for Service neither Age nor Fortune
Providence is a Forecast and likely conjectures of things to come supposed to be in those Princes that in their Actions proceed slowly and circumspectly it seemeth also a course of Princely Discretion to be retired aud not ordinarily to converse with many Autoritatem absentia tueare Suet. CHAP. XVIII Of Conspiracy and Treason with the Causes and ways of Prevention or Discovery COnspiracy is commonly addressed to the Princes Person Treasons are addressed against his Government Authority Country Subjects or Places of Srength These Mischiefs are easily feared but hardly eschewed for albeit open Enemies are openly encountred yet Fraud and Subtilty are secret Foes and consequently not to be avoided Occulta pericula neque praevidere neque vitare in promptu est Salust The danger of Conspiracy proceedeth of divers Causes as Avarice Infidelity of Subjects Ambition in Servants and Corruption in Soldiers therefore with great difficulty to be avoided Vitae tuae dominus est quisquis suam contempsit Sen. Notwithstanding it seemeth that either by Inquisition Punishment Innocency or Destiny the evil Affection of Men may be oft-tentimes discovered 1. For whoso will curiously inquire and consider the Actions and ordinary Speechees of Men I mean those that be Persons of Honor and Reputation may oft-tentimes vent the Myne that lurketh in the Minds Quoniam rarò nisi male loqunti mali faciunt Lips 2. Punishment is likewise a thing so terrible that the Consideration thereof with the hope of Reward doth often discover those dangerous Intentions Cruciatu aut praemio cunct a pervia sunt Tac. But as it is Wisdom in Princes to give ear to Informers so are they not always to be believed for Hope Envy Hate or some other Passion oft-tentimes draws them to speak untruly Quis innocens esse potest si accusare sufficit Tac. 3. The third and likeliest Defence against Conspiracy is the Princes own Innocency for never having injured any Man it cannot be thought there liveth any Subject so lewd as will endeauor to hurt him Fidelissima custodia principis ipsius innocentia Plin. 4. The last and best Bulward to withstand the force of this Mischief we call Destiny which proceeding from the Fountain of Divine Providence may be truly called the Will of God in whose only Power it resteth to protect and defend good Princes Ille erit a latere tuo custodiet pedem tuum ne capiaris Salo. Treasons are most commonly enterprized by covetous Persons who preferring private Profit before Fame or Fidelity do not fear to enter into any impious Action To this humor ambitious Men dissentious and all such as be desirous of Innovation are inclined Pulcra loquentes iidem in pectore prava struentes Hom. To these Offenders no Punishment is equal to their impious Merit can be devised being Persons odious as well to Friends as Foes Proditores etiam in quos anteponunt invisi sunt Tac. CHAP. XIX Of Publick Hate and Contempt with the Occasions and Means to redress and avoid it HAving briefly touched the Virtues and Means whereby Princes are maintained in Authority and Honor let something be said of the Causes from whence their Ruine doth proceed the chief whereof seemeth to be Hate and Contempt Hate cometh of Fear which the more Common it is the more Dangerous Nulla vis imperii tanta est quae premente metu possit esse diuturna Cic. The causes of Fear are Punishments Impositions and Rigor and therefore it behoveth a Prince not only to shun them but to eschew those Actions whereby he may reasonable incur their Suspision Sentias enim homines ut metuant aut oderint non minus opinione fama quam certa aliqua ratione moveri Cic. Yet Punishment Imposition and Censure are in all States necessary although they shew and seem terrible and consequently breed a certain Desperation in Subjects unless they be discreetly and modestly used for extream and frequent Punishments taste of Cruelty great and many Imposts savor of Covetousness Censure of Manners when it exceedeth the quality of Offences doth seem Rigour in these matters therefore it behoveth the Prince to be moderate and cautelous chiefly in Capital Punishment which must be confined within the Bounds of Justice Sit apud principem parsimonia etiam viliffimi sanguinis Sen. But if for Security sake the Prince be forced to punish let the same be done with shew of great Sorrow and Lothness Tanquam invitus magnocum tormento ad castigandum veniat Sen. Let all Punishments also be slowly executed for they that are hastily punished do seem to have been willingly condemned neither ought any Capital Punishment to be inflicted but only that which is profitable to the Commonweale and for Example sake Non tam ut ipsi pareant quam ut alios pereundo deterreant Sen. In punishing also a specil respect must be had that no shew of content or pleasure be taken therein Forma rabiei est sanguine vulneribus gaudere Sen. Also in Punishing equality must be observed and the nature of the Punishment according to the Custom Nec eisdem de causis alii plectantur alii ne appellentur quidem Cic. But in punishing publick Offences wherein a Multitude have part the Execution ought to be otherwise and as it were at an instant which may haply seem terrible but in effect is not Frequens vindict a paucorum odium reprimit omnium irritat Sen. Another means to satisfie a People offended is to punish the Ministers of Cruelty and with their Blood to wash away the common hatred Piaculares publici odii victimae Plin. By this King David did appease the Gibeonites The next cause of Discontent cometh of Impositions under which word is comprehended all Levies of Money a matter nothing pleasing to People as that which they esteem equal to their own Lives Pecunia anima sanguis est mortalibus Plaut First to remove Hate conceived of this cause there is nothing better then publick Expostulation of Necessity for what Commonwealth or Kingdom can be without Tributes Nulla quies gentium sine armis nec arma sine stipendiis nec stipendia sine Tributis haberi queunt Tac. The second Remedy against Hate for Impositions is to make moderate Levies and rare For as Tiberius the Emperor was wont to say a Sheep should be fleeced not flead Qui nimis emungit elicit sanguinem Tac. Thirdly also to eschew the Offence of People it behoveth the Prince to have a vigilant Eye on Informers Promoters and such fiscal Ministers whose Cruelty and covetous Proceedings do oft-tentimes occasion great Hate but this mischief may be though hardly encountred either by choosing honest Officers or proving otherwise not only to remain them but to use them as Spunges Exprimendi post quam biberint Suet. In all Impositions or Taxations no Cruelty or Force ought to be used the second cause to kindle Hate and to meet with that mischief nothing is better than to proceed moderately and
without Extremity Ne Boves ipsos mox agros postremo corpora servitio aut poenae tradant Tac. The fourth Remedy is the Princes own Parsimony not giving so largely to private Persons as thereby to be forced to take from the Multitude Magnae opes non tam multa capiendo quam haud multa perdendo quaeruntur Maecaenas The last help against Hate is in Taxation to proceed equally indifferently and without Favor or Respect and that the Assessors of Taxes may be elected of the meaner fort of People Populis maximam fidem rerum suarum habet Tac. Touching Censure which we numbred amongst the causes whereof Hate is conceived much needeth not to be spoken because the same is discontinued or rather utterly forgotten yet doth it seem a thing necessary being a certain Observation and Controlement of such evil Manners and Disorders as were not by Law corrigible these Officers were of the Romans called Magistri pudoris modestiae Livi. To the Function of Censures these two things are anciently subject Manners and Excess under Manners I comprehend Wantonness Drunkenness Dicing Brawling Perjury and all such Lewdness as Modesty condemneth These Disorders were anciently punished by the discretion of Censors in all Ages and Sexes to the end that Idleness might be generally avoided Universa plebs habeat negotia sua quibus a malo publico detineatur Salust Excess includeth Riotousness expence of Money Prodigal House-keeping Banquetting and Superfluity in Apparel which things are the Mothers of many Mischiefs It also seemeth in some sort perilous to the Prince that the Subject should exceed either in Covetize or Consuming Nemo nimis excedat five amicorum copia sine opum Arist. The Punishment inflicted upon these sorts of Offenders were either Ignominy or Pecuniary Punishments Censoris judicium damnato nihil affert nisi ruborem Tac. The first and chiefest means to remove these Inconveniences is the Princes own Example whose Life being well censured easily reduceth others to order Vita principis censura perpetua Plin. Secondly Those Disorders may be taken away without danger if the Censures do proceed by degrees and leasurely for the Nature of Man may not suddenly be altered Vitia quaedam tollit facilius princeps si eorum sit patiens Sen. These are the chiefest Rules whereby to eschew Hate but impossible it is for any Prince or Minister utterly to avoid it for being himself good he incurreth the Offence of all bad Folk if he be Evil Good Men will hate him this Danger therefore Wise and Vertuous Princes have little regarded because Hate may be gained as well by good as evil Doing Odia qui nimium timet regnare nescit Sen. One other means to remove this Error is to reward the good and well deserving Subjects for no Man can think him Cruel that for love to Vertue useth Austerity which will appear when he bestoweth Bountifully on the Good Praemio poena Respublica continetur Solon The other Vice which indangereth the State of Princes we call Contempt being a certain base and vile Conceit which entereth into the Subjects Strangers or Servants of the Prince and his Proceedings for the Authority of a King may be resembled to the Powers of Mans Mind whereunto the Hands the Feet the Eyes do by consent obey Vires imperii in consensu obedientium sunt Livi. The Causes of Contempt do proceed chiefly from the Form of Government Fortune or the Prince's Manners the Form of Government becometh Contemptible when the Prince desiring to be thought Merciful ruleth rather Pitifully than Justly which manner of Proceeding taketh away all Reverence in the People and in lieu thereof entereth Liberty or at least a certain Boldness to offend Facult as faciendi quod cuilibet visum non potest comprimere ingenitam singulis hominibus pravitatem Tac. Also to be Mutable Irresolute Light and Inconsiderate in bestowing the Honors and Offices of State maketh the Prince Contemptible Qui praesentibus fruitur nec in longius consultat Arist. But if Contempt be caused by Fortune or as may be said more reasonably by Destiny and that those Friends do fail who ought in Duty to defend the Prince and his Authority then is there small hope to eschew Contempt Fato obnoxia virtus Plaut The Prince's Manners do breed Contempt when he yieldeth his Affections to Sensuality and Sloth or if he incur the Suspition of Simplicity Cowardise or any such Vice unworthy the Dignity he beareth Common People do sometimes also disesteem the Prince for external and light causes as Deformity of Person Sickness or such like Mos vulgi est fortuita externa ad culpam trahere Tac. CHAP. XX. Of Diffidence and Dissimulation in the Management of State Affairs ALbeit roundness and plain dealing be most worthy Praise chiefly in private Persons yet because all Men in their Actions do not so proceed it behoveth Wise Men and Princes above others at occasions to Semble and Dissemble for as in all Actions a Prince ought to be Slow and Advised so in Consent and Believing Haste and Facility is most dangerous and though Credulity be rather an Error than a Fault yet for Princes it is both Unfit and Perilous Wherefore it importeth them to be defended with this Caution Nihil credendo atque omnia cavendo Cic. Notwithstanding he must not shew himself Diffident or Distrustful utterly but as I wish he should not over-slightly believe all Men so ought he not for small causes distrust every Man Multi fallere docuerunt dum timent falli Sen. Dissimulation is as it were begotten by Diffidence a Quality in Princes of so great Necessity as moved the Emperor Tiberius to say Nescit regnare qui nescit dissimulare The Necessity of Dissimulation is chiefly to be used with Strangers and Enemies it also sheweth a certain Discretion in Magistrates sometimes to disguise with Friends when no Offence doth thereof follow Doli non sunt doli nisi astu colas Plaut This kind of Craft albeit in every Mans Conceit not praisable is nevertheless tolerable and for Princes and Magistrates the same being used to good ends very necessary But those Cunnings which are contrary to Vertue ought not of Honest Men to be used neither dare I commend Adulation and Corruption though they be often used in Court and are of some Learned Writers allowed Decipere pro moribus temporum prudentia est Plin. By great Subtilty and Frauds contrary to Vertue and Piety I mean Perjury and Injustice which though all Men in Words detest yet in Deeds are used of many perswading themselves by Cavillations and Sophistications to excuse the Impiety of their False Oaths as it is written of Lysander Pueros talis viros juramentis circumvenire solebat Plut. CHAP. XXI Of War Defensive and Invasive with Instructions touching Laws of Arms Soldiers and Military Discipline THE Art Military is of all other Qualities most necessary for Princes for without it they cannot be defended force of Men only
sufficeth not unless the same be governed by Council and Martial Wisdom Duo sunt quibus resp servatur in hostes fortitudo domi concordia Tac. Military knowledge concerneth War and every War is either Forreign or Domestical Touching Forreign it must be considered when it must be begun how to continue it and when to be ended to begin War a Prince is to take heed that the Cause be Just and the Enterprise advisedly entred into Sunt enim belli sicut pacis jura justeque ea non minus ac fortiter gerere debes Livi. The Laws of Arms are in all Common-weales to be duly observed for to enter Fight rashly and without respect to Reason were Beastly also to Kill or Slay would work no better Effect than that all Nations should without Mercy Murder one another Barbaro ritu coedem coede sanguinem sanguine expiare Sal. No War therefore is to be made but such as is Just and in every Just War these three things are to be looked into viz. That the Author be of Authority That the Cause be Good and the End Just for in all States the Prince or they in whom the Sovereignty resteth are the Just Authors of War others have no such Authority Si quis privatim sine publico scito pacem bejumve fecerit capitale esto Plato Wars are of two sortt Defensive and Offensive the one to Resist the other to Invade against Defence nothing can be said because it is Natural and Necessary Est non modo justum sed etiam necessarium cum vi vis illat a defenditur Cic. Defensive War is of two sorts either to defend thine own or thy Friends for it is reason that every one should keep securely that which to him appertaineth and therewith also by Arms to defend the Liberty of Country Parents and Friends Nullum bellum a civitate suscipitur nisi aut pro fide aut pro salute Cic. The like reason leadeth us to assist and protect Friends for the common Obligation of Humane Society doth so require Qui enim non obsistit si potest injuriae tam est in vitio quam si parentes aut patriam aut socios deserat Cic. Invasion is also just and allowable but not ever for whoso hath been robbed or spoiled of his Lands or Goods may lawfully seek Repossession by Force yet so as before any Force be used he first civilly seek Restitution wherein if Justice be denied then is the use of Arms necessary Justum bellum quibus necessarium pia arma quibus nulla nisi in armis relinquitur spes Liv. Likewise Invasion is lawful against Barbarians whose Religion and Impiety ought to be abhorred chiefly if they be Potent and apt to offend for the cause of such War is Compulsion and Suppression of Evil Cui licentia iniquitatis eripitur utiliter vincitur August Finally To conclude this matter of Invasion I say That no Revenge no desire of Honor or Empire are any lawful Causes of War but the intent thereof ought to be directed only to Defence and Security For Wise Men do take Arms to win Peace and in hope of Rest they endure Travel It a bellum suscipiatur ut nihil aliud quam pax quaesit a videatur Cic. Having said somewhat against unjust War let us speak of Temerity and unadvised War an Enterprise worthy discommendation Omnes bellum sumunt facile agerrime desinunt nec in ejusdem potestate initium finis est Sal. A wise I rince therefore ought neither to undertake any unlawful Invasion nor without sober and mature Deliberation enter into any War as he that is unwilling to offend yet of Courage enough to defend Nec provoces bellum nec timeas Plin. To make War three things are required Money Men and Arms and to maintain a War Provision and Council are needful Therefore a wise Prince before he begins a War doth carefully consider what Forces and charge thereunto belongeth Diu apparandum est bellum ut vincas melius Pub. Above all other Provisions care must be had that Bread be not wanting for without it neither Victory nor Life can be looked for Qui frumentum necessariumque commeatum non praeparat vincitur sine ferro Vegetius Lastly It behoveth a Prince always to have Arms in readiness I mean Harness Horses Weapons Artillery Engines Powder and every other thing necessary either for Service on Horse or Foot We may add hereunto Ships and Shipping of all sorts with every Furniture of Offence or Defence for these Preparations make a Prince formidable because no Man dare do or attempt Injury to that King or People where Preparation is ever ready to revenge Qui desiderat pacem praeparat bellum Cass. By Men we mean a Multitude of Subjects armed trained to defend or offend These are of two sorts Captains and Soldiers and Soldiers are either Footmen or Horse-men the one of great use in the Champion the other in Mountainous places also for defence or assault of Towns or Grounds fortified most necessary and consequently meet for Service in all places which moved Tacitus to say Omne in pedite robur Tac. For sudden Service Horses do seem most meet and the Execution of any Enterprise is by them most speedily performed Nevertheless the Actions of Foot-men do seem most certainly executed chiefly if they be well armed and skilfully lead for so Experience hath of late time proved besides that they are of less Expence and of greater number In universum aestimanti plus in pedite robur Tac. Having thus proved that both Horse and Foot be necessary let us remember that unless they be serviceable great Numbers are to small purpose Manibus opus est bello non multis nominibus Livi. To make Soldiers serviceable consisteth in good Choice and good Discipline the one at this day little regarded Emunt militem non legunt Livi. Soldiers ought to be elected out of the most honest and able Number of Bodies and every Company composed of Men known one to the other for thereby they are made the more Confident But hereof is small heed taken for commonly they are Purgament a urbium suarum Curt. Touching Discipline it seemeth that thereof the external Form and not the certain Substance is observed For as in former Ages Soldiers endeavored to be Vertuous and Modest so now they rather study to excel in Riot than in Martial Knowledge Exercitus lingua quam manu promptior praedator est sociis ipsa praeda hostiam Sal. For as much as Soldiers are made good by Election and Choice it seemeth that the Foundation and Ground of Service consisteth in the Discretion and Judgment of those that have Authority to make Election yet will we add that they must be chosen of Natural Subjects for Strangers are Covetous and consequently Corruptible they are also Mutinous and Cowardly Their Custom likewise is to Rob Burn and Spoil both Friends and Foes and to consume the Princes Treasure Ossa vides
is great when danger is little or far off but Perils growing great and near their Courage quaileth as they whose Passions have no Rule or Measure It is strange to see how apt Men are to doubt displeasure threatned by Enemies chiefly when they draw near for the People do naturally over-much fear Dangers at hand and esteem less than is fit of things present Also to make small account of those that are far from them because divers Remedies may be hoped as well by time as other accidents The offensive Words or Answers of Indignation proceeding from great Princes ought never to admit displeasure into the Minds of them against whom they are spoken For having by Speech uttered a great part of Choler the edge of their Deeds becomes the calmer and more easily appeased Such is the condition of noble and generous Spirits To judge right of other Mens merit seems of great difficulty for time and tryal is thereto required Also it is not easie to answer the expectation of Men but oft-times inconsiderate and not measured in due proportion It is a part of great discretion to divide the seasons of Affairs and Vacations For as it fitteth well a Prince or Person of Dignity in times of Audience and Judgment to be grave heedful and austere So those Offices performed all shew of Authority and sad looks ought to be set apart for by that means neither courteous Behaviour shall detract from the Reverence due to his place nor severity diminish the Love which to his Behaviour appertaineth Magistrates must look into all things but not exact all things to rigor Light Faults may be pardoned but great Offences severely corrected yet not always proceeding to punishing but oft contented with Repentance To be bitter in rebuking is also fit for a Magistrate shewing himself sowre to the bad and sweet to the good framing both Countenance and Condition according to the Merit of Men and be persuaded that it is more honest to offend than to hate Soldiers must be encouraged in all Fortunes to stand resolved and not to be daunted with any passed misadvantage ever attending a Time and Opportunity of Revenge which commonly cometh to pass where Mens Minds are united For common Danger must be repelled with Union and Concord Among other Reasons wherewith Soldiers are encouraged Necessity and Distress doth oft inforce them For as Men of Vertue perform the Actions of Arms for Honour so the Coward must do them for his Security All Enterprises attempted by Arms are Honourable but those that are done in Countries remote are more praiseable For the less they be in Knowledge the greater is the Glory to Archieve them To be truly and faithfully loved is a thing greatly to be desired for Terror and Fear are weak Works of Affection For they being taken away he that ceaseth to fear will soon begin to hate and as they that by Force are kept under obey with ill Will so they that govern without Line justly rule against Right Some Men either deserving to be accounted of excellent Wisdom or singular in that Skill whereof they make Profession do ordinarily love the Proceedings of others taking that Advantage of their ill Success Yet sure it is that Disaster and unhappy Event of some Actions proceed not of Disorder nor Human Imperfection but from a certain Fatal Fury which neither Counsel nor Constancy of Men can withstand It is a matter of much difficulty or rather impossible for any Prince to maintain the Law Civil or Military without Severity For where Men hope to be easily pardoned there are they apt to offend Contrarily where Mens Actions are precisely fitted there do they live in over-great Aw and Hatred doth always accompany such Severity The best course therefore is to punish Offences severely and reward vertuous Merits liberally so shall Fear be converted to reverend Respect and none have cause to complain For as it lies in each Man's Power to shun offending so is it in their Power also to deserve well and merit Reward Whosoever after mature deliberation hath resolved what Course to hold in the Action he hath in hand must not after repent or fear any Difficulty For such Thoughts would break the Vigour of the Mind and impeach the Proceedings of that which was resolved And albeit some Differences do happily arise yet must he believe that every other course would have been accompanied with the same or greater Impediments Young Men for the warmness of their Blood and for not having before-time been deceived by Fortune more willingly enterprise Actions rather honourable than severe But Old Men as well for that their Heat is cooled as also for having attempted many things in vain make choice of Enterprises severe rather than those that are followed with Fame and Glory The greatness of one Prince is nothing else but the Ruin and Distress of another Likewise his Strength is the Weakness and Oppression of others Some Conquests are of such Quality as albeit a victorious Captain merit triumphal Honour yet a modest refusal becomes his greater Glory The Dignity of Magistrates is not assured without Arms for when Obedience faileth no other means is left to continue a People united As willing Obedience in Subjects is the Prince's Strength so is the same their own Security For as by the Princes Authority the People are governed so by their Consent he is maintained Three things Men covet with immoderate Desire Lands Riches and Honours but as seldom they compass their full Content so are they for the most part to endure a Destiny far other than they wished Strange it is yet by Experience proved true That in Time of Danger Fortune or rather Destiny so much amazeth the Judgment of Wise Men as seldom they conceive what Resolution is best to be taken No great Free-City can long continue quiet unless the same be used to foreign Assaults For wanting Foes without some inward Enmity will arise not unlike to strange Bodies of Men which being secure from external Injury are nevertheless by their own Poise oppressed As every Pilot of ordinary Skill knoweth in calm and quiet Seas to direct the Course of his Ship so every Governor of Capacity doth understand how the Affairs of State are in peaceable Times to be handled But when Tempests are and Subjects bent to Sedition the one requires an excellent Sailer the other the Aid of some excellent Wisdom It oft happens that Publick Duty is opposite to private Friendship so as we are either forced to omit the Offices due to our Country or draw our dearest Friends into Danger In which case we are to prefer publick Respect before particular Obligation The nature of base People is such as either they obey slavishly or command insolently For Liberty being the Mark whereat they aim is by them of that Quality neither moderately desired nor discreetly continued and always there are some seditious Leaders to be found who of Disorder are inclined to kindle the Ire and
armed to receive them But the Spaniards being come found no Forces at all to joyn with them and therefore wanting Victual offered Composition The Florentines finding the Enemy distressed grew insolent and refused Peace whereof followed the loss of Prato and many other Inconveniences The like happened to them of Tyre as before The denial or delay of Justice desired in revenge of Injuries either publick or privately offered is a thing very dangerous to every Prince or other State for that the Party injured doth oft by indirect means though with hazard of his Country and himself seek satisfaction Example The Complaint which the Galli made against the Fabii who sent Ambassadors in favour of the Tossani not being heard nor any punishment inflicted upon them for Fighting against the Law of Nations was the cause that the Galli were offended with the States whereof followed the sack of Rome and the delay of Justice in Philip of Macedon for not revenging the incestuous oppression of Attalus to Pausanias was the Motive to murther that King Whoso endeavours the alteration of any State must of necessity proceed with all severity and leave some memorable Example to those that shall impugn the Ordinance of Government newly setled Example When Junius Brutus had by his great Valour banish'd the Tarquins and sworn the People that no King should ever reign in Rome within short time after many young Nobles among whom was Brutus's Son impatient of the equality of the new Government conspired to recall the Tarquins but Brutus thereof informed caused his own Son not only to be condemned to death but was himself present at the Execution As Health and soundness of the Hands Legs and other outward Members cannot continue Life unless the Heart and vital Spirits within be strong and firm so Fortifications and Frontier-defences do not prevail unless the whole Corps of the Kingdom and People be well armed Example When the Emperor came into Italy and had with some difficulty past the confines of the Venetians well near without resistance his Army march'd to Venice and might doubtless have possest the City had it not been defended with Water Likewise the English in their assault of France excepting a few Encounters on the Frontiers found no puissant resistance within the Realm And Anno 1513. they forced all that State and the King himself to tremble as oft before they had done but contrariwise the Romans knowing that Life lay in the Heart ever held the Body of their State strongest For the nearer the Enemy approach'd Rome the better they found the Country armed and defended The desire to command sovereignly is of so great Force as doth not only work in those that are in expectation of Principality but also in them that have no Title at all Example this Appetite moved the Wife of Tarquinius Priscus contrary to all natural Duty to incite her Husband to murder her own Father Servius and possess his Kingdom as being persuaded it were much more honourable to be a Queen than to be the Daughter of a King The violation of ancient Laws Orders and Customs under which People have long time lived is the chief and only Cause whereby Princes hazard their Estate and Royal Dignity Example Albeit the deflowring of Lucrece was the occasion yet was it not the cause that moved the Romans to take Arms against Tarquin for he having before that fact of Sextus his Son governed Tyrannically and taken from the Senate all Authority was become odious both to the Senate Nobility and People who finding themselves well-governed never seek or wish any other liberty or alteration A Prince that desires to live secure from Conspiracy hath cause rather to fear those on whom he hath bestowed over-great Riches and Honors than those whom he hath greatly injured because they want Means to offend the other have many opportunities to do it Example Perrenius the prime Favorite of Commodus the Emperor conspired his Death Plautianus did the like to Severus and Sejanus to Tiberius for being advanced to so great Honors Riches and Offices as nothing remained desirable but the Imperial Title they conspired against the Persons of their Sovereigns in hope of the Dignity but in the end they endured that Punishment which to such Disloyalty and Ingratitude appertaineth An Army which wants Experience albeit the Captain be expert is not greatly to be feared neither ought an Army of well-train'd Soldiers to be much esteemed whose Captain is ignorant Example Caesar going into Africa against Afranius and Petraeus whose Army was full of old Soldiers said he feared them little Quia ibat ad exercitum sine duce Contrariwise when he went to Pharsalia to encounter Pompey he said Ibo ad ducem fine exercitu A Captain-General commanding an Army ought rather to govern with Curtesie and Mildness than with over-much Austerity and Severity Example Q. and Appius Claudius being Consuls were appointed to govern the War To Q. was allotted one Army which served very dutifully but Appius commanding the other with great Cruelty was by his Soldiers unwillingly obeyed Nevertheless Tacitus seems of contrary Opinion saying Plus Poena quam obsequium valet Therefore to reconcile these different Conceits I say that a General having power to command Men either they are Confederates or Subjects If Confederates or Voluntaries he may not proceed to extream punishment if Subjects and his power absolute they may be governed otherwise yet with such respect as the insolence of the General inforce not the Soldiers to hate him Honour may sometime be got as well by the loss as gaining of Victory Every Man knoweth Glory is due to the Victor and we deny not the same Priviledge to the vanquished being able to make proof that the Loss proceeded not from his Default Neither is it dishonourable to violate those Promises whereto the necessity or disadvantage of War inforceth And forced Promises which concern a whole State are not binding and rarely or ever kept nor is the Breaker thereby to receive Disgrace Example Posthumus the Consul having made a dishonourable Peace with the Samnites was by them with his whole Army sent home disarmed Being arrived at Rome the Consul informed the People they were not bound to perform the base Conditions he was compelled to yield unto albeit he and those few that promised were bound to perform them The Senate thereupon concluded to send him Prisoner to Samno where he constantly protested the Fault to be only his own wherefore the People by that Peace incurred no Dishonour at all And Fortune so much favoured Posthumus as the Samnites were content presently to return him to Rome where he became more glorious for losing the Victory than was Pontius at Samno for having won the Victory Wise Men have long observed That who so will know what shall be must consider what is past for all worldly Things hold the same course they had at first The Reason is that as long as Men are possest with the