[-23-] "Let all these men to whom affairs outside the city are committed receive pay, the greater ones more, the inferior ones less, those of medium importance a medium amount. They can not in a foreign land live on their own resources nor as now stand an unlimited and uncalculated expense. Let them govern not less than three years (unless any one of them commits a crime), nor more than five. These limits are because annual and short-time appointments after teaching persons what they need to know send them back again before they can display any of their knowledge: and, on the other hand, longer and more lasting positions fill many with conceit and incline them to rebellion. Hence I think that the greater posts of authority ought not to be given to persons consecutively, without interval, for it makes no difference whether a man is governor in the same province or in several in succession, if he holds office longer than is proper. Appointees improve when a period of time is allowed to elapse and they return home and live as ordinary citizens.
"The senators, accordingly, I affirm ought to discharge these duties and in the way described. [-24-] Of the knights the two best should command the body-guard which protects you. To entrust it to one man is hazardous, and to several is sure to breed turmoil. Let these prefects therefore be two in number, in order that, if one of them suffers any bodily harm, you may still not lack a person to guard you: and let them be appointed from those who have been on many campaigns and have been active also in many other capacities. Let them have command both of the Pretorians and of all the remaining soldiers in Italy with such absolute power that they may put to death such of them as do wrong, except in the case of the centurions and any others who have been assigned to members of the senate holding office. These should be tried by the senatorial magistrates themselves, in order that the latter may have authority both to honor and to chastise their dependents and so be able to count on their unhesitating support. Over all the other soldiers in Italy those prefects should have dominion (aided of course by lieutenants), and further over the Cæsarians, both such as wait upon you and all the rest that are of any value. These duties will be both fitting and sufficient for them to discharge.[11] They should not have more labors laid upon them than they will be able to dispose of effectively, that they may not be weighed down by the press of work or find it impossible to see to everything. These men ought to hold office for life like the præfectus urbi and the sub-censor. Let some one else be appointed night watchman, and still another commissioner of grain and of the other market produce, both of these from the foremost knights after those mentioned and appointed to hold their posts for a definite time like the magistrates elected from the senatorial class. [-25-] The disposition of the funds, also,--of both the people and the empire, I mean, whether in Rome or in the rest of Italy or outside,--should be entirely in the hands of the knights. These treasurers also, as well as all of the same class who have the management of anything, should draw pay, some more and some less, with reference to the dignity and magnitude of their employment. The reason is that it is not possible for them, since they are poorer than the senators, to spend their own means while engaged in no business in Rome. And then again, it is neither possible nor advantageous for you that the same men should be made masters of both the troops and the finances. Furthermore, it is well that all the business of the empire should be transacted through a number of agents, in order that many may receive the benefit of it and become experienced in affairs. In this way your subjects, reaping a multiform enjoyment from the public treasures, will be better disposed toward you, and you will have an abundant supply of the best men on each occasion for all necessary lines of work. One single knight with as many subordinates (drawn from the knights and from your freedmen) as the needs of the case demand, is sufficient for every separate form of business in the City and for each province outside. You need to have these assistants along with them in order that your service may contain a prize of excellence, and that you may not lack persons from whom you may learn the truth even contrary to the wishes of their superiors, in case there is anything irregular happening.