If the circumstances of the state required it, the complement could be expanded to include more men, or the consuls could draft as many as four legions each. Additional forces could be drafted under ad hoc commanders called proconsules, who served "in place of consuls." In the later republic, the relatively small number of legions commanded by the consuls (2-4) resulted in their power being overshadowed by the proconsuls, the provincial governors. Provincial governors often would command more loyalty from their troops than their consular counterparts did, and governors were able to raise vast numbers of troops.