specially by
his power as censor, and the law of _majestas_, which was virtually a
great system of espionage and public accusation, which the emperor
encouraged. But his general administration was marked by prudence, equity,
and mildness. Under him the Roman dominion was greatly consolidated, and
it was his policy to guard rather than extend the limits of the empire.
The legions were stationed in those provinces which were most likely to be
assailed by external dangers, especially on the banks of the Rhine, in
Illyricum, and Dalmatia. But they were scattered in all the provinces. The
city of Rome was kept in order by the praetorian guards. Their discipline
was strenuously maintained. Governors of provinces were kept several years
in office, which policy was justified by the apologue he was accustomed to
use, founded on the same principle as that which is recognized in all
corrupt times by great administrators, whether of States, or factories, or
railroads. "A number of flies had settled on a soldier's wound, and a
compassionate passer-by was about to scare them away. The sufferer begged
him to refrain. 'These flies,' he said, 'have nearly sucked their full,
and are beginning to be tolerable; if you drive them away, they will be
immediately succeeded by fresh-comers with keener appetites.' " The
emperor saw the abuses which existed, but despaired to remedy them, since
he distrusted human nature. But there is no doubt that the government of
the provinces was improved under this prince, and the governors were made
responsible. The emperor also was assiduous to free Italy from robbers and
banditti, and in stimulating the diligence of the police, so that riots
seldom occurred, and were severely punished. There was greater security of
life and property throughout the empire, and the laws were wise and
effective. Tiberius limited the number of the gladiators, expelled the
soothsayers from Italy, and suppressed the Egyptian rites. The habits of
the people, even among the higher classes, were so generally disgraceful
and immoral,--the dissipation was so widely spread, that Tiberius despaired
to check it by sumptuary laws, but he restrained it all in his power. He
was indefatigable in his vigilance. For several years he did not quit the
din and dust of the city for a single day, and he lived with great
simplicity, apparently anxious to exhibit the ancient ideal of a Roman
statesman. He took no pleasure in the sports of the circus or