advancement of the state which they serve. There are also (no doubt) counsellors and governors which may be held sufficient, “negotiis pares,”277 able to manage affairs, and to keep them from precipices and manifest inconveniences; which, nevertheless, are far from the ability to raise and amplify an estate in power, means, and fortune. But be the workmen what they may be, let us speak of the work; that is, the true greatness of kingdoms and estates, and the means thereof. An argument fit for great and mighty princes to have in their hand; to the end, that neither by overmeasuring their forces, they lose themselves in vain enterprises: nor, on the other side, by undervaluing them, they descend to fearful and pusillanimous counsels.
The greatness of an estate, in bulk and territory, doth fall under measure; and the greatness of finances and revenue doth fall under computation. The population may appear by musters, and the number and greatness of cities and towns by cards and maps; but yet there is not anything amongst civil affairs more subject to error than the right valuation and true judgment concerning the power and forces of an estate. The kingdom of heaven is compared, not to any great kernel, or nut, but to a grain of mustard-seed;278 which is one of the least grains, but hath in it a property and spirit hastily to get up and spread. So are there states great in territory, and yet not apt to enlarge or command; and some that have but a small dimension of stem, and yet apt to be the foundations of great monarchies.
Walled towns, stored arsenals and armories, goodly races of horse, chariots of war, elephants, ordnance, artillery, and the like; all this is but a sheep in a lion’s skin, except the breed and disposition of the people be stout and warlike. Nay, number itself in armies importeth not much, where the people is of weak courage; for, as Virgil saith, “It never troubles a wolf how many the sheep be.”279 The army of the Persians in