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 *—the fas or jus which lies at the background of the state and which the people themselves dare not infringe. The scruple was expressed in the saving clause—

Primarily this clause guarded a law against being a breach of a religious obligation; but, as interpreted by Cicero, it was a profession of respect even for certain ultimate secular rights—the rights for instance, to the possession of citizenship.

The creation of limitations may be instanced by the provision of the Twelve Tables, which forbade enactments to the detriment of individuals (privilegia), and by a principle—perhaps rather a rule of procedure analogous to the formalities of legislation—which forbade laws on different subjects to be passed en bloc (per saturam), a provision re-enacted by a lex Caecilia Didia of 98

The creation of new magistracies was also within the power of the people, and, originally, the extension of an office beyond its proper term. In the year 327, at the commencement of the second Samnite war, the consul Q. Publilius Philo had his imperium prolonged by a plebiscitum; although, as early as 308, in the prorogation of the command of the consul Q. Fabius Maximus, the Senate alone is mentioned as giving its sanction.

The establishment of special judicial commissions to decide without appeal, in cases where the ordinary authorities were felt to be unable to cope with crime or conspiracy, was, in the strict theory of the constitution, entirely in the people's hands. Commissions