tried experiments in constitutional revolution. For, indeed, during the closing stages of the war even the citizens of Athens could see, what was painfully obvious to the rest of the world, that she was not well governed for the purposes of external politics. Popular institutions exist for the sake of popular liberties. There are better ways of maintaining order, if that is your prime object, and much better ways of securing “efficiency.” Democracy may “reign”; it cannot “govern”—not, at any rate, without the help of a trained bureaucracy. Above all, in the conduct of a war a meeting of citizens in the market-place is the clumsiest deliberative body that can be conceived. We have seen how ignorant they were when they embarked on the Sicilian expedition without knowing anything more than interested parties chose to tell them of the resources of their allies and the disposition of the other Sicilian Greeks. Besides ignorance, they had shown