The third method is to hold other states in direct subjection to you, and not merely associated with you as companions; and this was the plan pursued by the Spartans and Athenians.
Of these three methods, the last is wholly useless, as was seen in the case of the two states named, which came to ruin from no other cause than that they had acquired a dominion greater than they could maintain. For to undertake to govern cities by force, especially such cities as have been used to live in freedom, is a difficult and arduous task, in which you never can succeed without an army and that a great one. But to have such an army you must needs have associates who will help to swell the numbers of your own citizens. And because Athens and Sparta neglected this precaution, whatever they did was done in vain; whereas Rome, which offers an instance of the second of the methods we are considering, by attending to this precaution reached a power that had no limit. And as she alone has lived in this way, so she alone has attained to this pitch of power. For joining with herself many states throughout Italy as her companions, who in most respects lived with her on a footing of equality, while, as has been noted, always reserving to herself the seat of empire and the titular command, it came about that these states, without being aware of it, by their own efforts, and with their own blood, wrought out their own enslavement.
For when Rome began to send armies out of Italy, for the purpose of reducing foreign kingdoms to provinces, and of subjugating nations who, being used to live under kings, were not impatient of her yoke, and who, receiving Roman governors, and having been conquered by armies bearing the Roman name, recognized no masters save the Romans, those companions of Rome who dwelt in Italy suddenly found themselves surrounded by Roman subjects, and weighed down by the greatness of the Roman power; and when at last they came to perceive the mistake in which they had been living, it was too late to remedy it, so vast was the authority which Rome had then obtained over foreign countries, and so great the resources which she possessed within herself; having by this time grown to be the mightiest and best-armed of states. So that although these her companions sought to avenge their wrongs by conspiring against her, they were soon defeated in the attempt, and remained in a worse plight than before, since they too became subjects and no longer associates. This method, then, as I have said, was followed by the Romans alone; but no other plan can be pursued by a republic which desires to extend its power; experience having shown none other so safe and certain.
The method which consists in forming leagues, of which I have spoken above as having been adopted by the Etruscans, the Achaians, and the Etolians of old, and in our own days by the Swiss, is the next best after that followed by the Romans, for as in this way there can be no great extension of power, two advantages result: first, that you do not readily involve yourself in war; and, second, that you can easily preserve any little acquisition which you may make. The reason why you cannot greatly extend your power is, that as your league is made up of separate states with distinct seats of government, it is difficult for these to consult and resolve in concert. The same causes make these states careless to enlarge their territories; because acquisitions which have to be shared among many communities are less thought of than those made by a single republic which looks to enjoy them all to itself. Again, since leagues govern through general councils, they must needs be slower in resolving than a nation dwelling within one frontier.
Moreover, we find from experience that this method has certain fixed limits beyond which there is no instance of its ever having passed; by which I mean that some twelve or fourteen communities may league themselves together, but will never seek to pass beyond that limit: for after associating themselves in such numbers as seem to them to secure their safety against all besides, they desire no further extension of their power, partly because no necessity compels them to extend, and partly because, for the reasons already given, they would find no profit in extending. For were they to seek extension they would have to follow one of two courses: either continuing to admit new members to their league, whose number must lead to confusion; or else making subjects, a course which they will avoid since they will see difficulty in making them, and no great good in having them. Wherefore, when their number has so increased that their safety seems secured, they have recourse to two expedients: either receiving other states under their protection and engaging for their defence (in which way they obtain money from various quarters which they can easily distribute among themselves); or else hiring themselves out as soldiers to foreign states, and drawing pay from this or the other prince who employs them to carry out his enterprises; as we see done by the Swiss at the present day, and as we read was done in ancient times by certain of those nations whom we have named above. To which we have a witness in Titus Livius, who relates that when Philip of Macedon came to treat with Titus Quintius Flamininus, and while terms were being discussed in the presence of a certain Etolian captain, this man coming to words with Philip, the latter taunted him with greed and bad faith; telling him that the Etolians were not ashamed to draw pay from one side, and then send their men to serve on the other; so that often the banner of Etolia might be seen displayed in
