DEMOCRACY IN ATHENS
Michael Hintze
History 498 F
May 8, 1991
Athens, during the time of Socrates, had a unique governmental system which is often called the only "true" democracy in history. Although the system was not perfect, it allowed for the citizens of Athens to directly take part in their government, not by electing well known politicians to represent their interests, but by representing their own interests and the interests of the polis through direct participation in the policy making bodies and the administration of the polis.
The governmental system of Athens consisted of two main bodies, the Ecclesia (Assembly) and the Boule (Council).[1] The members of the Ecclesia were all the adult male citizens of Athens. Although the number of eligible members was probably somewhere between twenty-five and thirty-five thousand, the number of people who actually met was more like five or six thousand.[2] For certain issues such as grants of citizenship or ostracism, a quorum of 6,000 was required.[3] The Ecclesia met on a regular basis, 40 times per year. They could also call additional special meetings if circumstances warranted. All major policy decisions, even including at times military strategy, were made in the Ecclesia. [4] In contrast to what is generally meant by the term "democracy" today, the Athenian system was not government through representatives of the people; it was instead a "true" democracy, government by the people, in which all the citizens of Athens were allowed to directly participate in the vital decisions required for governing a powerful polis.[5]
The other major governmental body was the Boule. This body consisted of 500 male citizens over the age of 30 chosen annually by lot for one-year terms. No citizen could serve in the Boule two consecutive years or for more than two years in his life. The 500 were divided evenly from among each of the ten tribes (50 from each) that were established by Cleisthenes in the early fifth century.[6] Each tribe took the presidency for one-tenth of the year in a rotation determined by lot. A new chairman was chosen daily from the presiding tribe (prytany), also by lot.
The Boule tended to contain mainly upper or middle class citizens. Since the members were paid about one-half a laborer's rate of pay and serving required a lengthy time commitment, farmers and the very poor could not afford to take significant amounts of time off to serve in the Boule. [7] Furthermore, those from the lower classes may have been hesitant to assume a position of great visibility and prominence.[8]
The main function of the Boule was to set the agenda, prepare the business, and send recommendations (probouleumas) to the Ecclesia. The Ecclesia could not pass any decree unless the Boule had previously passed a formal resolution introducing the topic and placing it on the agenda. The probouleumas sent to the Ecclesia by the Boule could be in the form of a decree which could then simply be "rubber stamped" if the issue was not controversial.[9] Other probouleumas were left open or non-committal, perhaps with the Boule offering one or more recommendations or options, so that the people (the Demos) in the Ecclesia could debate and make the final decisions on the various issues. On highly contested issues or those of major importance, the Boule could simply place the matter on the agenda without offering any recommendations.
When the Ecclesia received a probouleuma from the Boule, it had several options. It could not only accept or reject the Boule's recommendations, it could also amend a recommendation or it could substitute a completely different motion relating to the same general topic.[10]
It is clear that the Ecclesia was the main policy making body of the Athenian democratic government. The final decisions were regarding all major issues was made by the demos through the institution of the Ecclesia.
In contrast, the Boule was not a policy making body, at least not directly. Instead it was more of a "screening committee" for the Ecclesia [11] which was supposed to determine the merit and legality of a given proposal and separate out those that were imprudent, senseless and/or illegal. It seems clear, however, that the power to determine what shall be put on the agenda is a significant, though indirect, policy making power which the Boule had at its disposal. While it could not give final approval to a decree relating to public policy, it could prevent a given issue from being discussed in the Ecclesia. If modern political practices are to serve at all as a guide, it is at least feasible that should the Boule decide it wanted a certain decree to be passed by the Ecclesia, it could hold another issue which the Ecclesia wanted to be put on the agenda "hostage" until the given decree was passed. Thus, even within the framework which did not give the Boule any direct policy making powers, the potential to significantly influence public policy certainly did exist. Probably the reason we do not hear of the Boule often engaging in such tactics is that since the members could not serve two years in a row or more than two years in a lifetime, the body had no chance to develop a corporate sense as an independent policy making body.
To the modern student of Athenian democracy, it may seem unbelievable that such a system could work so well for so long. How can a government operate when its most important decisions are subject to the whims of popular opinion? What kept the Athenian system from degenerating into mob-rule? The evidence clearly shows that, despite a limited number of rash or unwise decisions, the Athenian democracy performed remarkably well. Its success can be attributed, in part, to institutional safeguards that were built into the system. As stated previously, the fact that the Boule screened the business to be placed before the Ecclesia for action was supposed to prevent illegal of unwise proposals from even getting on the agenda. [12] Furthermore, the author of a measure and/or the presiding chairman could be indicted or penalized should the measure later prove to be ill-advised or illegal.[13] Thus, there was a high level of accountability, and men were usually cautious in the proposals they put forward.
The administration of the polis was carried out by a large number of boards which were selected annually by lot for very specific duties. [14] The members of the boards had to undergo a preliminary examination, and the boards themselves were overseen by the Boule and reviewed at the end of the year by the courts. [15] The only elected positions in the polis were the ten generals and a few technical experts. [16] The Athenians saw elections as aristocratic rather than democratic because those men with the most widely recognized names would inevitably win elections, while the practice of choosing positions by lot would guarantee a more representative sample of the citizen population in the administrative boards, the Boule, and other governmental positions.
Although the Athenian system has often been described as the ideal democratic structure, there was, as in all political systems, the opportunity for ambitious individual politicians to exert substantial influence. It is obvious that a skilled orator could have been quite influential in the Ecclesia in guiding and shaping the decisions of the whole body. There was still the rule, however, that an issue could only be put on the agenda by the Boule. Thus, if an individual wanted to get an item on the agenda, he could try to ensure that he had friends in the Boule who could introduce an item, he could make a written application to the Boule asking that it take up a certain topic, or he could move in the Ecclesia that the Boule pass a probouleuma on a specific issue.[17]
Toward the end of the fifth century and through the fourth, professional or semi-professional politicians became more prominent. [18] For these orators, politics became an almost full-time job. They would have to spend their time, not only attending the meetings of the Ecclesia, put they would have to devote extra hours to keeping up on various issues such as foreign affairs and domestic agricultural production. They also would have, no doubt, spent time outside of the regular Ecclesia meetings promoting their issues through private contacts with prominent and influential citizens. Such politicians were generally from the upper classes and had some independent wealth. Some supplemented their income by writing speeches for private litigants or perhaps by accepting bribes from foreign powers who's interests they supported in the Ecclesia. More often, they would charge fees in exchange for the promotion of measures that were in their client's favor.[19]
The Athenian democratic government was innovative in its own time and unique throughout history. It is the closest example that has ever existed to the democratic ideal of direct rule by the people. Virtually every position in the government was chosen by lot and there were restrictions against serving repeatedly in any given position. While such regulations ensured a very democratic government, they usually were at the expense of continuity and efficiency. The system had built into it certain safeguards which kept it from breaking down, but only so much as were absolutely necessary and not enough to allow the system to become aristocratic or oligarchic. The Athenian system was not perfect, but it operated very well for two full centuries. Perhaps its success can only be explained by the Athenians' devotion to their polis and their governmental system. This devotion is expressed by Pericles in his famous funeral oration. "Everyone is equal before the law... We are free and tolerant in our private lives; but in public affairs we keep to the law. This is because it commands our deep respect. ...each individual is interested not only in his own affairs but in the affairs of the state as well."[20] Such devotion and respect on the part of the Athenian people not only allowed the democratic system to survive, but it enabled it to thrive during a period in which Athens achieved political, artistic, and intellectual greatness, which like their governmental system, was and is unique in history.
[1] While the terms "Assembly" and "Council" are often used to speak of the Ecclesia and the Boule respectively, they both vague terms that carry misleading connotations. These institutions are unique to Athens of the classical period an thus will be referred to by their own unique names.