William Gladstone - Studies on Homer and the Homeric Age, Vol. 3 of 3

Among other causes, which might tend to promote the establishment of the Greek βουλὴ or Council, we may perhaps reckon with propriety the inability of the old to discharge the full duties of sovereignty in the heroic age. Bodily force usually undergoes a certain amount of decay, before the mind has passed out of its ripeness; and both kings and subordinate lords, who had ceased to possess the strength that was requisite for bearing the principal burdens of government, might still make their experience available for the public good in the Council; even as we find that in Troas the brothers of Priam, with others advanced in life, were the principal advisers of the Assembly 195 195 Il. iii. 146-53. .

The βουλὴ in time of peace.

I admit that we have no example to give of the use of the βουλὴ by the Greeks during peace, so precise as those which the Iliad supplies for time of war. But even in war we do not find it except before Assemblies, which had deliberative business to transact. Now the only deliberative Greek ἀγορὴ which we meet with in time of peace is that of the Twenty-fourth Odyssey. The absence of a sovereign and a government in Ithaca at that time, and the utter discord of the principal persons, made a Council quite impossible, and left no measure open except a direct appeal to the people.

It appears however clear, that the action of the βουλὴ was not confined to war. For we not only find the γέροντες on the Shield 196 196 Il. xviii. 506. , who sit in the ἀγορὴ, exercising exclusively the office of judges, but they are also distinctly noticed as a class or order 197 197 Od. ii. 14. in the Ithacan Assembly, who had a place in it set apart for themselves. Nor are we without a proof which, though conveyed in few words, is complete, of the conjunction of the Council with the sovereign in acts of government. For when Ulysses in his youth undertook the mission to Messene, in the matter of the sheep that had been carried off from Ithaca, he did it under the orders of Laertes, together with his council 198 198 Od. xxi. 21. :

πρὸ γὰρ ἧκε πατὴρ ἄλλοι τε γέροντες.

And Nausicaa meets her father Alcinous, on his way to the βουλὴ of the Phæacians.

Upon the whole, the βουλὴ seems to have been a most important auxiliary instrument of government; sometimes as preparing materials for the more public deliberations of the Assembly, sometimes intrusted, as a kind of executive committee, with its confidence; always as supplying the Assemblies with an intellectual and authoritative element, in a concentrated form, which might give steadiness to its tone, and advise its course with a weight adequate to so important a function.

Opposition in the βουλή.

The individuals who composed this Council were of such a station that, when they acted separately, King Agamemnon himself might have to encounter resistance and reproof from them in various instances. Accordingly, upon the occasion when Agamemnon made a survey of the army, and when he thought fit to rebuke Ulysses for slackness, that chieftain remonstrated with him something more than freely (ὑποδρὰ ἰδὼν) both in voice and manner. So far from trusting to his authority, Agamemnon made a soothing and even an apologetic reply 199 199 Il. iv. 329-63. . Again, when on the same occasion he reproved Diomed 200 200 Ibid. 385-418. , Sthenelus defended his immediate Chief in vainglorious terms. These the more refined nature of Diomed himself induced him at once to disclaim, but they do not appear to have been considered as involving any thing in the nature of an offence against the station of Agamemnon. Again, though Diomed on this occasion restrained his lieutenant, yet, when he meets Agamemnon in the Assembly of the Ninth Book, he frankly tells him that Jupiter, who has given him the honours of the sceptre, has not endowed him with the superior power that springs from determined courage 201 201 Il. ix. 37. ; and even the passionate invectives of Achilles in the First Book bear a similar testimony, because they do not appear to have been treated as constituting any infringement of his duty.

In the βουλὴ 202 202 Cf. Od. xi. 512. , Nestor takes the lead more than Agamemnon. As to the Assembly, the whole plan in the Second Iliad is expressly founded upon the supposition, that the army was accustomed to hear the chiefs argue against, and even overthrow, the proposals of Agamemnon. His advice that they should return home, which Grote 203 203 Hist. of Greece, vol. ii. 95, 97. considers only an unaccountable fancy and a childish freak, is however capable of being regarded in this view, that, before renewing active operations without Achilles, it was thought wise to test the feeling of the army, and that it could not be more effectually tried than by a recommendation from the commander-in-chief that they should re-embark for Greece. The plan was over-refined; and it may even seem ridiculous, because it failed, and simply kindled an ungovernable passion, which would not listen to debate. But the proposal does not bear that character in the Ninth Book, where the same suggestion is renewed, without the previous knowledge of the chiefs, in the same words, and at a time when the Greeks were in far worse condition.

When Agamemnon made it in order to be overruled it took effect: when he made it in good earnest, it failed. If then the Greeks could be retained contrary to his wish in the Ninth Book, it might be misjudged, but could hardly be absurd, to expect a similar result in the Second, when they had less cause for discouragement.

And why did it take effect? Simply because the Assembly, instead of being the simple medium 204 204 Grote ii. 104. through which the king acted, was the arena on which either the will of the people might find a rude and tumultuary vent, or, on the other hand, his royal companions in arms could say, as Diomed says, ‘I will use my right and resist your foolish project in debate; which you ought not to resent.’

The proposal of Agamemnon had been heard in silence 205 205 Il. ix. 30. , the mode by which the army indicated its disinclination or its doubt. But the counter proposal of Diomed, to fight to the last, was hailed with acclamation 206 206 Ibid. 50. ;

so that the Assembly was then ripe for the plan of Nestor, which at once received its approval 207 207 Il. ix. 79. :

ὣς ἔφαθ’· οἱ δ’ ἄρα τοῦ μάλα μὲν κλύον, ἠδ’ ἐπίθοντο.

Subsequently, in the βουλὴ of the same Book, Nestor tells Agamemnon that it is his duty to listen as well as to speak, and to adopt the plans of others when they are good (100-2). At the same time, the aged chieftain appears to submit himself to the judgment of Agamemnon in the Council 208 208 Ibid. 97. . His expressions are perhaps matter more of compliment than of business; and at any rate we do not find any like terms used in the Assembly.

It was a happy characteristic of heroic Greece, that while she abounded in true shame, she had no false shame. It was not thought that a king, who had done wrong, compromised his dignity by atonement; but, on the contrary, that he recovered it. So says Ulysses, in the Assembly of the Nineteenth Iliad 209 209 Il. xix. 182. ;