CHAPTER XXV.: whoever wishes to reform an existing government in a free state should at least preserve the semblance of the old forms.

He who desires or attempts to reform the government of a state, and wishes to have it accepted and capable of maintaining itself to the satisfaction of everybody, must at least retain the semblance of the old forms; so that it may seem to the people that there has been no change in the institutions, even though in fact they are entirely different from the old ones. For the great majority of mankind are satisfied with appearances, as though they were realities, and are often even more influenced by the things that seem than by those that are. The Romans understood this well, and for that reason, when they first recovered their liberty, and had created two Consuls in place of a king, they would not allow these more than twelve lictors, so as not to exceed the number that had served the king. Besides this,

the Romans were accustomed to an annual sacrifice that could only be performed by the king in person; and as they did not wish that the people, in consequence of the absence of the king, should have occasion to regret the loss of any of their old customs, they created a special chief for that ceremony, whom they called the king of the sacrifice, and placed him under their high priest; so that the people enjoyed these annual sacrificial ceremonies, and had no pretext, from the want of them, for desiring the restoration of the kings. And this rule should be observed by all who wish to abolish an existing system of government in any state, and introduce a new and more liberal one. For as all novelties excite the minds of men, it is important to retain in such innovations as much as possible the previously existing forms. And if the number, authority, and duration of the term of service of the magistrates be changed, the titles at least ought to be preserved. This, as I have said, should be observed by whoever desires to convert an absolute government either into a republic or a monarchy; but, on the contrary, he who wishes to establish an absolute power, such as ancient writers called a tyranny, must change everything, as we shall show in the following chapter.