of attack and defence, to combine and to direct
masses, to calculate expeditions extending over long periods and great
distances, and to adjust their co-operation; if these things were not
attended to, even an enemy far weaker in the tactics of the field
might easily vanquish a stronger opponent. Is there any wonder that
the reins of government in such an exigency slipped from the hands of
a deliberative assembly and of commanding burgomasters?

It was plain, that at the beginning of the war the Romans did not
know what they were undertaking; it was only during the course of the
struggle that the inadequacies of their system, one after another,
forced themselves on their notice--the want of a naval power, the
lack of fixed military leadership, the insufficiency of their
generals, the total uselessness of their admirals. In part these
evils were remedied by energy and good fortune; as was the case with
the want of a fleet. That mighty creation, however, was but a grand
makeshift, and always remained so. A Roman fleet was formed, but it
was rendered national only in name, and was always treated with the
affection of a stepmother; the naval service continued to be little
esteemed in comparison with the high honour of serving in the legions;
the naval officers were in great part Italian Greeks; the crews were
composed of subjects or even of slaves and outcasts. The Italian
farmer was at all times distrustful of the sea; and of the three
things in his life which Cato regretted one was, that he had travelled
by sea when he might have gone by land. This result arose partly out
of the nature of the case, for the vessels were oared galleys and the
service of the oar can scarcely be ennobled; but the Romans might at
least have formed separate legions of marines and taken steps towards
the rearing of a class of Roman naval officers. Taking advantage
of the impulse of the nation, they should have made it their aim
gradually to establish a naval force important not only in numbers
but in sailing power and practice, and for such a purpose they had a
valuable nucleus in the privateering that was developed during the
long war; but nothing of the sort was done by the government.
Nevertheless the Roman fleet with its unwieldy grandeur was the
noblest creation of genius in this war, and, as at its beginning, so
at its close it was the fleet that turned the scale in favour of Rome.

Far more difficult to be overcome were those de