Spain, on its part, had always practised the good old Roman rule of "divide and govern." Its policy was to hold the balance among officials, civil and ecclesiastical, and inhabitants, white and colored.

It knew how strongly individualistic the Spaniard was and realized the full force of the adage, "I obey, but I do not fulfill!" Legislatures and other agencies of government directly representative of the people did not exist in Spanish or Portuguese America.

The Spanish cabildo, or town council, however, afforded an opportunity for the expression of the popular will and often proved intractable.

Its membership was appointive, elective, hereditary, and even purchasable, but the form did not affect the substance.

The Spanish Americans had an instinct for politics.