Public Lands and Agrarian Laws of the Roman Republic Part 6

[Footnote 17: Livy, VI, 38; Momm., _loc. cit._]

[Footnote 18: Dion Ca.s.sius, Fragment, x.x.xIII, with Reimer's note.]

[Footnote 19: Livy, VI, 42.]

[Footnote 20: Livy, VI, 42: et comitia consulum adversa n.o.bilitate habita, quibus Lucius s.e.xtius de plebe primus consul factus.]

[Footnote 21: Livy, _loc. cit._]

[Footnote 22: Livy, VI, 42; Ovid, Faustus, I, 641, seq.:

"Furius antiquam populi superator Hetrusci Voverat et voti solverat ante fidem Causa quod a patribus sumtis secesserat annis Vulgus; et ipsa suas Roma timebat opes."]

[Footnote 23: Momm., I, 389.]

[Footnote 24: Momm., I, 384.]

[Footnote 25: Arnold, _Roman History_, II, 35; Ihne, _Essay on the Roman Const.i.tution_, p. 72. Ihne, _Roman Hist._, I, 332-334. Long, I, ch. XI.

Lange, _loc. cit._]

[Footnote 26: Livy, VII, 16: "Eodem anno Caius Licinius Stolo a Marco Popillio Laenate sua legi decem milibus aeris est d.a.m.natus, quod mille jugerum agri c.u.m filio possideret, emanc.i.p.andoque filium fraudem legi fecisset." Appian, _Bell. Civ._, 1, 8; "_[Greek: taen gaen es tous oikeious epi upokrisei dienemon.]_"]

[Footnote 27: Momm., I, 389.]

[Footnote 28: Momm., I, 389, 390.]

[Footnote 29: Momm., I, 389, 390.]

SEC. VIII.--AGRARIAN MOVEMENTS BETWEEN 367 AND 133.

The first agrarian movement after the enactment of lex Licinia took place in the year 338, after the battle of Veseris in which the Latini and their allies were completely conquered. According to Livy,[1] the several peoples engaged in this rebellion were mulcted of a part of their land which was divided among the plebeians. Each plebeian receiving an allotment in the territory of the Latini had 2 jugera a.s.signed him, while those in Privernum received 2-3/4, and those in Falernian territory received 3 jugera each (p.

252). This distribution of domain lands seems to have been spontaneous on the part of the senate. But it led to grave consequences as the Latini, indignant at their being despoiled of their lands, resorted again to arms.

The plebeians, moreover, were roused to the verge of rebellion by the consul Aemilius who had been alienated from the patricians by their refusing him a triumph, and now strove to ingratiate himself with the commons by making them dissatisfied with their meagre allotments. The law, however, was carried into execution, and thus showed that the senate acquiesced in and even initiated laws when they did not in any way interfere with their possession, but referred only to territory which had just been conquered.

_Agrarian Law of Curius._ Beyond the distribution of the _ager publicus_ which formed the basis of the numerous colonies of this period and which will be considered in their proper place, the next agrarian movement was that of Curius Dentatus. At the close of the third Samnite War the people were in great distress, as agricultural pursuits had been greatly interrupted by continued warfare. Now there seemed to be a chance of remedying this. Large tracts of land had been taken from the Samnites and Sabines, and it was now at the disposal of the Roman[2] state for purposes of colonization and division among the impoverished citizens. In the year 287,[3] a bill was introduced by Manius Curius Dentatus, the plebeian consul for this year, and hero of the third Samnite War. He proposed giving to the citizens a.s.signments of land in the Sabine country of seven jugera[4] each. It is certain that this bill met with great opposition but we have not been informed as to the causes.[5] It is safe to conclude, however, that the question was whether a.s.signments of land with full right of property should be made in districts which the great land-owners wished to keep open for occupation in order that they might pasture herds thereon.

The senate and the n.o.bility so bitterly opposed the plan that the plebeians despairing of success, withdrew to the Janiculum and only on account of threatening war did they consent to the proposals of Quintus Hortensius.[6]

By this move the _lex Hortensia_[7] was pa.s.sed and, doubtless, the _agraria lex_ was enacted at the same time although nothing definite is known concerning this point. The people must have been pacified by some other means than the mere granting of more political power. Nothing less than a share of the conquered territory would have satisfied them or induced them to return and again take up the burden of war.

_Lex Flaminia._ Fifty four years after the enactment of the law of Curius Dentatus, in the year 232, the tribune Caius Flaminius,[8] the man who afterwards was consul and fell in the b.l.o.o.d.y battle of lake Trasimenus, brought forward and carried a law for the distribution of the _Gallicus Ager_[9] among the plebeians. This territory[10] had been taken from the Galli Semnones fifty-one years before and was now occupied as pasture land by some large Roman families. This territory lay north of Picenum and extended as far as Ariminum[11](Rimini.) This was an excellent opportunity for awarding lands to Roman veterans for military service, and thus to establish a large number of small farms, rather than to leave the land in the possession of the rich who resided in Rome and, consequently, formed no frontier protection against the inroads of barbarians from the north. By alloting the land, the Latin race and Latin tongue would help to Romanize territory already conquered by Roman arms. The only thing opposed to this was the possession of the land by the aristocracy. But they had no legal claim to the land and could be dispossessed without any indemnification.

The senate opposed this measure to the utmost of their ability and, after all other means had failed, threatened to send an army against the tribune if he urged his bill through the tribes. They further induced his father to make use of his _potestas_ in restraining his son.[12] When Flaminius was bringing up the bill for decision he was arrested by his father. "Come down, I bid thee," said the father. And the son humbled "by private authority,"[13] obeyed. It finally became necessary for the plebeians to take their stand on the formal const.i.tutional law and to cause the _agraria lex_ to be pa.s.sed by a vote of the a.s.sembly of the tribes without a previous resolution or subsequent approbation of the senate.[14] Polybius dates a change for the worse in the Roman const.i.tution from this time.[15]

The relief of the plebeians was further promoted by the foundation[16] of new colonies.

In the year 200, after Scipio returned as conqueror of Carthage, the senate decreed that he should be a.s.signed some lands for his soldiers, but Livy does not tell us where they were to be a.s.signed; whether they were to be a part of the ancient _ager publicus_ or of the territory of Carthage, Sicily, or Campania, _i.e._ the new conquests of Rome. He merely says that for each year of service in Spain or Africa the soldiers were to receive two jugera each, and that[17] the distributions should be made by the _decenvirs_. In spite of the insufficiency of these details the pa.s.sage reveals to us two important facts:

1. Decemvirs as well as triumvirs were at times appointed to make distributions of domain lands in accordance with the provisions of an agrarian law.

2. It reveals the profound modifications which Roman customs had pa.s.sed through. The riches which began at this time to flow into Rome by reason of the many successful wars revolutionized the economic conditions of the city. It is not necessary to see only a proof of corruption in this tendency of all cla.s.ses to grasp for riches and to desire luxury and ease.

We must also consider that comfort was more accessible and that the price of everything, especially of the necessaries of life, had increased. In consequence of this it was difficult for soldiers to support themselves with their pay. The presents of a few sesterces given them as prize money in no way made sufficient recompense for all the miseries and privations which they had pa.s.sed through during their long absence. Grants of land were the only means of recompensing their military services. This is the first example that we have found of soldiers being thus rewarded, and it consequently initiated a custom which became most frequent especially in the time of the empire. Upon the conquest of Italy which followed the expedition of Pyrrhus, the Romans found themselves led into a long series of foreign wars; Sicily furnished the stepping-stone to Africa; Africa to Spain; all these countries becoming Roman provinces. As soon as the second Punic war closed, Hannibal formed an alliance with the king of Macedonia.

A war-cloud rose[18] in the east. The aetolians asked aid from Rome, and statesmen could foretell that it would be impossible for Roman armies not to interfere between Greece and Macedonia. But these countries had been from ancient times most intimately connected with the orient, _i.e._, Asia, where the Seleucidae still ruled, so that a war with Greece, which was inevitable, could not fail to bring on a war with the successors of Alexander, and, these hostilities once engaged in, who could say where these accidents of war would cease, or when Roman arms could be laid aside?

In this critical condition it was prudent to attach the soldiers to the republic by bonds and interests the most intimate, to make them proprietors and to a.s.sure subsistence to their families during their long absence.

These wars did not much resemble those of the early republic which had for a theatre of war the country in the immediate vicinity of Rome.

The senate continued to take the initiative in agrarian movements. In 172, after the close of the wars against the Ligurians and Gauls, we again see the senate spontaneously decreeing a new division of the lands. A part of the territory of Liguria and Cisalpine Gaul was confiscated and a _senatus consultum_ ordered a distribution of this land to the commons. The praetor of the city A. Atilius, was authorized to appoint _decemvirs_, whose names Livy gives, to a.s.sign ten jugera to Roman citizens and three jugera to Latin[19] allies. Thus the senate, with a newly-born sagacity, rendered useless the demands of the tribune and recognized the justice and the utility of the agrarian laws against which it had so long protested.

Indeed, it justified the propositions of the first author of an agrarian law by admitting to a share in the conquered lands the Latin allies who had so often contributed to their growth. This is the last agrarian law which Livy mentions. The Persian war broke out in this year, and an account of it fills the remaining books of this author which have come down to us. However, prior to the proposition of Tiberius Gracchus, we find in Varro[20] the mention of a new a.s.signment of land of seven jugera _viritim_, made by a tribune named Licinius in the year 144; but the author has given such a meagre mention of it that we are unable to determine where these lands were located. If we join to these facts the cession of public territories to the creditors of the state, in 200, we shall have mentioned all agrarian laws and distributions of territory which took place before the _lex Semp.r.o.nia Tiberiana_ in 133.

_Condition of the Country at the time of the Gracchan Rogations._ During the period between 367 and 133 we find no record of serious disputes between the patricians and commons. Indeed, the senate usually took the lead in popular measures; lands were a.s.signed without any demand on the part of the plebeians. We must not be deceived by this seeming harmony. In the midst of this apparent calm a radical change was taking place in Roman society. It is necessary for us to understand this new condition of affairs in the republic before it will be possible to comprehend the rogations of the Gracchi.

One of the greatest dangers to the republic at this time reveals itself in the claims[21] of the Italians. These people had poured out their blood for Rome; they had contributed more than the Romans themselves to the accomplishing of those rapid conquests which, after the subjugation of Italy, quickly extended the power of Rome. In what way had they been rewarded? After the terrible devastations which afflicted Italy in the Hannibalic war had ceased, the Italian allies found themselves ruined.

Whilst Latium, which contained the princ.i.p.al part of the old tribes of citizens, had suffered comparatively little, a large portion of Samnium, Apulia, Campania, and more particularly of Lucania and Bruttium, was almost depopulated; and the Romans in punishing the unfaithful "allies" had acted with ruthless cruelty.[22] When at length peace was concluded, large districts were uncultivated and uninhabited. This territory, being either confiscated from the allies for taking part with Hannibal, or deserted by the colonists, swelled the _ager publicus_ of Rome, and was either given to veterans[23] or occupied by Roman capitalists, thus increasing the revenues of a few n.o.bles.

If a nation is in a healthful condition politically and economically so that the restorative vigor of nature is not impeded by bad restrictive laws, the devastations of land and losses of human life are quickly repaired. We might the more especially have expected this in a climate so genial and on a soil so fertile as that of Italy. But Roman laws so restricted the right of buying and selling land that in every Italian community none but members of that community, or Roman citizens, could[24]

buy or inherit. This restriction upon free compet.i.tion, by giving the advantage to Roman citizens, was in itself sufficient to ruin the prosperity of every Italian town. This law operated continually and un.o.bservedly and resulted in placing,[25] year by year, a still larger quant.i.ty of the soil of Italy in the hands of the Roman aristocracy.

In order to palliate the evils of conquest or at least to hide their conditions of servitude, the Romans had accorded to a part of the Italians the t.i.tle of allies, and to others the privileges of _municipia_.[26] These privileges were combined in a very skillful manner in the interest of Rome, but this skill did not hinder the people from perceiving that they depended upon the mere wish of the conquerors and consequently were not rights, but merely favors to be revoked at will. The Latini, who had been the first people conquered by Rome and who had almost always remained faithful, enjoyed under the name of _jus Latii_ considerable privileges. They held in great[27] part the civil and political rights of Roman citizens. They were able by special services individually to become Roman citizens and thus to obtain the full _jus Romanum_. There were other peoples who, although strangers to Latium, had been admitted, by reason of their services[28] to Rome, to partic.i.p.ate in the benefits of the _jus Latii_. The other peoples, admitted merely to the _jus Italic.u.m_, did not enjoy any of the civil or political rights of Roman citizens, nor any of the privileges of Latin[29]

allies; at best they kept some souvenirs of their departed independence in their interior administration, but otherwise were considered as subjects of Rome. And yet it was for the aggrandizement of this city that they shed their blood upon all the fields of battle which it pleased Rome to choose; it was for the glory and extension of the Roman power that they gained these conquests in which they had no share. Some who had attempted to regain their independence were not even accorded the humble privileges of the other people of Italy, but were reduced to the state of prefectures.

These were treated as provinces and governed by prefects or proconsuls sent[30] out from Rome. Such were Capua, Bruttium, Lucania, the greater part of Samnium, and Cisalpine Gaul, which country, indeed, was not even considered as a part of Italy. Those who had submitted without resistance to the domination of the Romans, and had rendered some services to them, had bestowed upon them the t.i.tle of _municipia_.[31] These _municipia_ governed themselves and were divided into two cla.s.ses:

(1.) _Municipia sine suffragio_, for example, Caere and Etruria, had only interior privileges; their inhabitants could not vote at Rome and, consequently, could not[32] partic.i.p.ate in the exercise of sovereignty.

(2.) _Municipia c.u.m suffragio_ had, outside of their political and civil rights, the important right of voting[33] at Rome. These citizens of villages had then, as Cicero said of the citizens of Arpinum, two countries, one _ex natura_, the other _ex jure_. Lastly, there were some cities in the south of Italy, _i.e._ in Magna Graecia, that had received[34] the name of federated cities. They did not appear to be subject to Rome; their contingents of men and money were looked upon as voluntary[35] gifts; but, in reality, they were under the domination of Rome, and had, at Rome, defenders or patrons chosen because of their influence with the Roman citizens and charged with maintaining their interests. Such was the system adopted by Rome. It would have been easy for a person in the compa.s.s of a few miles to find villages having the _jus Latii_, others with simply the _jus Italic.u.m_, colonies, prefectures, municipia _c.u.m_ et _sine suffragio_. The object of the Romans was evident.

They planned to govern. Cities alike in interests and patriotic motives were separated by this diversity of rights and the jealousies and hatreds which resulted from it. Concord, which was necessary to any united and general insurrection, was rendered impossible between towns, some of which were objects of envy, others, of pity. Their condition, moreover, was such that all, even the most fortunate, had something to gain by showing themselves faithful; and all, even the most wretched, had something to fear if they did not prove tractable. These Italians, with all the varied privileges and burdens enumerated above, far outnumbered the Roman citizens.[36] A comparison of the numbers of the census of 115 and that of 70 shows that the numbers of Italians and Romans were[37] as three to two.

All these Italians aspired to Roman citizenship, to enjoy the right to vote to which some of their number had been admitted, and the struggle which was sometime to end in their complete emanc.i.p.ation had already commenced.

During the first centuries of Roman history, Rome was divided into two cla.s.ses, patricians and plebeians. The plebeians by heroic efforts had broken down the barriers that separated them from the patricians. The privilege of intermarriage, the possibility of obtaining the highest offices of the state, the subst.i.tution of the _comitia tributa_ for the other two a.s.semblies, had not made of Rome "an unbridled democracy," but all these benefits obtained by tribunician agitation, all the far-reaching advances gained by force of laws and not of arms, had const.i.tuted at Rome a single people and created a true Roman nation. There were now at Rome only rich and poor, n.o.bles and proletariat. With intelligence and ability a plebeian could aspire to the magistracies and thence to the senate. Why should not the Italians be allowed the same privilege? It was neither just nor equitable nor even prudent to exclude them from an equality of rights and the common exercise of civil[38] and political liberty. The Gracchi were the first to comprehend the changed state of affairs and the result of Roman conquest and administration in Italy. Their demands in favor of the Italians were profoundly politic. The Italians would have demanded, with arms in their hands, that which the Gracchi asked for them, had not this attempt been made. They failed; Fulvius[39] Flaccus, Marius,[40] and Livius Drusus[41] failed in the same attempt, being opposed both by the n.o.bility and the plebs.

The agrarian laws, as we have seen, had been proposed by the senate, in the period which we are considering. How was it then that the Gracchi had been compelled to take the initiative and that the senate had opposed them? This contradiction is more apparent than real. It explains itself in great part by the following considerations. Upon the breaking down of the aristocracy of birth, the patriciate, the senate was made accessible to the plebeians who had filled the curule magistracies and were possessed of 800,000 sesterces. Knights were also eligible to the senate to fill vacancies, and it was this fact which caused the equestrian order to be called _seminarium senatus_. For some time the new n.o.bles, in order to strengthen their victory and make it permanent, had formed an alliance with the plebeians.

For this reason were made the concessions and distributions of land which the old senators were unable to hinder. These concessions were the work of the plebeians who had been admitted to the senate. But when their position was a.s.sured and it was no longer necessary for them to make concessions to the commons in order to sustain themselves, they manifested the same pa.s.sions that the patricians had shown before them. Livy has expressed the situation very clearly: "These n.o.ble plebeians had been initiated into the same mysteries, and despised the people as soon as they themselves ceased to be despised by the patricians."[42] Thus, then, the unity and fusion which had been established by the tribunician laws disappeared and there again existed two peoples, the rich and the poor.

If we examine into the elements of these two distinct populations, separated by the pride of wealth and the misery and degradation of poverty, we shall understand this. The new n.o.bility was made up partially of the descendants of the ancient patrician _gentes_ who had adapted themselves to the modifications and transformations in society. Of these persons, some had adopted the ideas of reform; they had flattered the lower cla.s.ses in order to obtain power; they profited by their consulships and their prefectures to increase or at least conserve their fortunes. Others having business capacity gave themselves up to gathering riches; to usurious speculations which at this time held chief place among the Romans. Even Cato was a usurer and recommended usury as a means of acquiring wealth. Or they engaged in vast speculations in land, commerce, and slaves, as Cra.s.sus did a little later. The first mentioned cla.s.s was the least numerous. To those n.o.bles who gave their attention to money-getting must be added those plebeians who elevated themselves from the ma.s.ses by means[43] of the curule magistracies. These were insolent and purse-proud, and greedy to increase their wealth by any means in their power. Next to these two divisions of the n.o.bility came those whom the patricians had been wont to despise and to relegate to the very lowest rank under the name of _aerarii_; merchants,[44] manufacturers, bankers, and farmers of the revenues. These men were powerful by reason of their union and community of interests, and money which they commanded. They formed a third order and even became so powerful as to control the senate and, at times, the whole republic. In the time of the Punic wars the senate had been obliged to let go unpunished the crimes committed by the publican Posthumius and the means which he had employed in order to enrich himself at the expense of the republic, because it was imprudent to offend[45] the order of publicans.

Thus const.i.tuted an order or guild, they held it in their hands at will to advance or to withhold the money for carrying on wars or sustaining the public credit. In this way they were the masters of the state. They also grasped the public lands, as they were able to command such wealth that no individual could compete with them. They thus became the only farmers of the domain lands, and they did not hesitate to cease paying all tax on these. Who was able to demand these rents from them? The senate? But they either composed the senate or controlled it. The magistrates? There was no magistracy but that of wealth. The tribunes and the people? These they had disarmed by frequent grants of land of two to seven jugera each, and by the establishment of numerous colonies. This was beyond doubt the real reason for their frequent distributions. They had all been made from land recently conquered. The ancient _ager_ had not been touched, and little by little the Licinian law had fallen into disuetude.

[Footnote 1: Livy, VIII, 11, 12.]

[Footnote 2: Ihne, I, 447.]

[Footnote 3: I have followed Ihne and Arnold in giving this date, but there is reason for placing it later as Valerius Maximus says, IV, 3,5: "Manius Curius c.u.m Italia Pyrrhum regem exegisset ... decretis a senatu septenis jugeribus agri populo."]

[Footnote 4: "Manii Curii nota conscio est, perniciosum intellegi civem cui septem jugera non essent satis." Pliny, _Hist. Nat._, XVIII.; Aurelius Victor, De Viris Illus.: Septenis "jugeribus viritim dividendis, quibus qui contentus non esset, eum perniciosum intellegi civem, nota et praeclare concione Manius Curius dict.i.tabat." The same author speaks of four jugera being given by Curius, "Quaterna dono agri jugera viritim populo dividit."

Juvenal implies a distribution of two jugera; Sat. XIV, V, 161-164:

"Mox etiam fructis aetate, ac Punica pa.s.sis Proelia vel Pyrrhum immanem glacosque Molossos, Tandem pro multis vix jugera bina dabantur Vulneribus Merces ea sanguinis atque labores."]

[Footnote 5: Appian, III, 5: Zonarius, VIII, 2.]

[Footnote 6: Ihne, I, 447.]