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 a few subordinate officials, freedmen, friends, and slaves. A few dozen of men governed the provinces, as vast as states. Augustus added to this rudimentary administration but one organ, the procurator, chosen from freedmen or knights, charged with overseeing the collection of tribute and expenses; that is, caring for the interests, not of the provinces, but of Rome. Consequently, the government was weak and inactive in all the provinces.

Whoever fancies the government of Rome modelled after the type of modern governments, invading, omnipotent, omnipresent, deceives himself. There were sent into the provinces nobles belonging to rich and noted families, who had therefore no need to rob the subjects too much; and these men ruled, making use of the laws, customs, institutions, families of nobles, of each place, exactly as England now does in many parts of its Empire. As in general these governors were not possessed of any great activity, they did not meddle much in the internal affairs of the subject peoples. To preserve the unity of the Empire and the supremacy of Italy against all enemies, within and without; to exploit reasonably this supremacy; for the rest, to let every people live as best pleased it: such was the policy