The Works of the Right Honourable Edmund Burke Volume VII Part 9

Tiberius came a regular successor to an established government. But his politics were dictated rather by his character than his situation. He was a lawful prince, and he acted on the maxims of an usurper. Having made it a rule never to remove far from the capital, and jealous of every reputation which seemed too great for the measure of a subject, he neither undertook any enterprise of moment in his own person nor cared to commit the conduct of it to another. There was little in a British triumph that could affect a temper like that of Tiberius.

His successor, Caligula, was not influenced by this, nor indeed by any regular system; for, having undertaken an expedition to Britain without any determinate view, he abandoned it on the point of execution without reason. And adding ridicule to his disgrace, his soldiers returned to Rome loaded with sh.e.l.ls. These spoils he displayed as the ornaments of a triumph which he celebrated over the Ocean,--if in all these particulars we may trust to the historians of that time, who relate things almost incredible of the folly of their masters and the patience of the Roman people.

But the Roman people, however degenerate, still retained much of their martial spirit; and as the Emperors held their power almost entirely by the affection of the soldiery, they found themselves often obliged to such enterprises as might prove them no improper heads of a military const.i.tution. An expedition to Britain was well adapted to answer all the purposes of this ostentatious policy. The country was remote and little known, so that every exploit there, as if achieved in another world, appeared at Rome with double pomp and l.u.s.tre; whilst the sea, which divided Britain from the continent, prevented a failure in that island from being followed by any consequences alarming to the body of the Empire. A pretext was not wanting to this war. The maritime Britons, while the terror of the Roman arms remained fresh, upon their minds, continued regularly to pay the tribute imposed by Caesar. But the generation which experienced that war having pa.s.sed away, that which succeeded felt the burden, but knew from rumor only the superiority which had imposed it; and being very ignorant, as of all things else, so of the true extent of the Roman power, they were not afraid to provoke it by discontinuing the payment of the tribute.

[Sidenote: A.D. 43]

This gave occasion to the Emperor Claudius, ninety-seven years after the first expedition of Caesar, to invade Britain in person, and with a great army. But he, having rather surveyed than conducted the war, left in a short time the management of it to his legate, Plautius, who subdued without much difficulty those countries which lay to the southward of the Thames, the best cultivated and most accessible parts of the island.

But the inhabitants of the rough inland countries, the people called Cattivellauni, made a more strenuous opposition. They were under the command of Caractacus, a chief of great and just renown amongst all the British nations. This leader wisely adjusted his conduct of the war to the circ.u.mstances of his savage subjects and his rude country. Plautius obtained no decisive advantages over him. He opposed Ostorius Scapula, who succeeded that general, with the same bravery, but with unequal success; for he was, after various turns of fortune, obliged to abandon his dominions, which Ostorius at length subdued and disarmed.

This bulwark of the British freedom being overturned, Ostorius was not afraid to enlarge his plan. Not content with disarming the enemies of Rome, he proceeded to the same extremities with those nations who had been always quiet, and who, under the name of an alliance, lay ripening for subjection. This fierce people, who looked upon their arms as their only valuable possessions, refused to submit to terms as severe as the most absolute conquest could impose. They unanimously entered into a league against the Romans. But their confederacy was either not sufficiently strong or fortunate to resist so able a commander, and only afforded him an opportunity, from a more comprehensive victory, to extend the Roman province a considerable way to the northern and western parts of the island. The frontiers of this acquisition, which extended along the rivers Severn and Nen, he secured by a chain of forts and stations; the inland parts he quieted by the settlement of colonies of his veteran troops at Maldon and Verulam: and such was the beginning of those establishments which afterwards became so numerous in Britain.

This commander was the first who traced in this island a plan of settlement and civil policy to concur with his military operations. For, after he had settled these colonies, considering with what difficulty any and especially an uncivilized people are broke into submission to a foreign government, he imposed it on some of the most powerful of the British nations in a more indirect manner. He placed them under kings of their own race; and whilst he paid this compliment to their pride, he secured their obedience by the interested fidelity of a prince who knew, that, as he owed the beginning, so he depended for the duration of his authority wholly upon their favor. Such was the dignity and extent of the Roman policy, that they could number even royalty itself amongst their instruments of servitude.

Ostorius did not confine himself within the boundaries of these rivers.

He observed that the Silures, inhabitants of South Wales, one of the most martial tribes in Britain, were yet unhurt and almost untouched by the war. He could expect to make no progress to the northward, whilst an enemy of such importance hung upon his rear,--especially as they were now commanded by Caractacus, who preserved the spirit of a prince, though he had lost his dominions, and fled from nation to nation, wherever he could find a banner erected against the Romans. His character obtained him reception and command.

[Sidenote: A.D. 51]

Though the Silures, thus headed, did everything that became their martial reputation, both in the choice and defence of their posts, the Romans, by their discipline and the weight and excellence of their arms, prevailed over the naked bravery of this gallant people, and defeated them in a great battle. Caractacus was soon after betrayed into their hands, and conveyed to Rome. The merit of the prisoner was the sole ornament of a triumph celebrated over an indigent people headed by a gallant chief. The Romans crowded eagerly to behold the man who, with inferior forces, and in an obscure corner of the world, had so many years stood up against the weight of their empire.

As the arts of adulation improved in proportion as the real grandeur of Rome declined, this advantage was compared to the greatest conquests in the most flourishing times of the Republic: and so far as regarded the personal merit of Caractacus, it could not be too highly rated. Being brought before the emperor, he behaved with such manly fort.i.tude, and spoke of his former actions and his present condition with so much plain sense and unaffected dignity, that he moved the compa.s.sion of the emperor, who remitted much of that severity which the Romans formerly exercised upon their captives. Rome was now a monarchy, and that fierce republican spirit was abated which had neither feeling nor respect for the character of unfortunate sovereigns.

The Silures were not reduced by the loss of Caractacus, and the great defeat they had suffered. They resisted every measure of force or artifice that could be employed against them, with the most generous obstinacy: a resolution in which they were confirmed by some imprudent words of the legate, threatening to extirpate, or, what appeared to them scarcely less dreadful, to transplant their nation. Their natural bravery thus hardened into despair, and inhabiting a country very difficult of access, they presented an impenetrable barrier to the progress of that commander; insomuch that, wasted with continual cares, and with the mortification to find the end of his affairs so little answerable to the splendor of their beginning, Ostorius died of grief, and left all things in confusion.

The legates who succeeded to his charge did little more for about sixty years than secure the frontiers of the Roman province. But in the beginning of Nero's reign the command in Britain was devolved on Suetonius Paulinus, a soldier of merit and experience, who, when he came to view the theatre of his future operations, and had well considered the nature of the country, discerned evidently that the war must of necessity be protracted to a great length, if he should be obliged to penetrate into every fastness to which the enemy retired, and to combat their flying parties one by one. He therefore resolved to make such a blow at the head as must of course disable all the inferior members.

The island then called Mona, now Anglesey, at that time was the princ.i.p.al residence of the Druids. Here their councils were held, and their commands from hence were dispersed among all the British nations.

Paulinus proposed, in reducing this their favorite and sacred seat, to destroy, or at least greatly to weaken, the body of the Druids, and thereby to extinguish the great actuating principle of all the Celtic people, and that which was alone capable of communicating order and energy to their operations.

Whilst the Roman troops were pa.s.sing that strait which divides this island from the continent of Britain, they halted on a sudden,--not checked by the resistance of the enemy, but suspended by a spectacle of an unusual and altogether surprising nature. On every side of the British army were seen bands of Druids in their most sacred habits surrounding the troops, lifting their hands to heaven, devoting to death their enemies, and animating their disciples to religious frenzy by the uncouth ceremonies of a savage ritual, and the horrid mysteries of a superst.i.tion familiar with blood. The female Druids also moved about in a troubled order, their hair dishevelled, their garments torn, torches in their hands, and, with an horror increased by the perverted softness of their s.e.x, howled out the same curses and incantations with greater clamor.[15] Astonished at this sight, the Romans for some time neither advanced nor returned the darts of the enemy. But at length, rousing from their trance, and animating each other with the shame of yielding to the impotence of female and fanatical fury, they found the resistance by no means proportioned to the horror and solemnity of the preparations. These overstrained efforts had, as frequently happens, exhausted the spirits of the men, and stifled that ardor they were intended to kindle. The Britons were defeated; and Paulinus, pretending to detest the barbarity of their superst.i.tion, in reality from the cruelty of his own nature, and that he might cut off the occasion of future disturbances, exercised the most unjustifiable severities on this unfortunate people. He burned the Druids in their own fires; and that no retreat might be afforded to that order, their consecrated woods were everywhere destroyed. Whilst he was occupied in this service, a general rebellion broke out, which his severity to the Druids served rather to inflame than allay.

From the manners of the republic a custom had been ingrafted into the monarchy of Rome altogether unsuitable to that mode of government. In the time of the Commonwealth, those who lived in a dependent and cliental relation on the great men used frequently to show marks of their acknowledgment by considerable bequests at their death. But when all the scattered powers of that state became united in the emperor, these legacies followed the general current, and flowed in upon the common patron. In the will of every considerable person he inherited with the children and relations, and such devises formed no inconsiderable part of his revenue: a monstrous practice, which let an absolute sovereign into all the private concerns of his subjects, and which, by giving the prince a prospect of one day sharing in all the great estates, whenever he was urged by avarice or necessity, naturally pointed out a resource by an antic.i.p.ation always in his power. This practice extended into the provinces. A king of the Iceni[16] had devised a considerable part of his substance to the emperor. But the Roman procurator, not satisfied with entering into his master's portion, seized upon the rest,--and pursuing his injustice to the most horrible outrages, publicly scourged Boadicea, queen to the deceased prince, and violated his daughters. These cruelties, aggravated by the shame and scorn that attended them,--the general severity of the government,--the taxes, (new to a barbarous people,) laid on without discretion, extorted without mercy, and, even when respited, made utterly ruinous by exorbitant usury,--the farther mischiefs they had to dread, when more completely reduced,--all these, with, the absence of the legate and the army on a remote expedition, provoked all the tribes of the Britons, provincials, allies, enemies, to a general insurrection. The command of this confederacy was conferred on Boadicea, as the first in rank, and resentment of injuries. They began by cutting off a Roman legion; then they fell upon the colonies of Camelodunum and Verulam, and with a barbarous fury butchered the Romans and their adherents to the number of seventy thousand.

An end had been now put to the Roman power in this island, if Paulinus, with unexampled vigor and prudence, had not conducted his army through the midst of the enemy's country from Anglesey to London. There uniting the soldiers that remained dispersed in different garrisons, he formed an army of ten thousand men, and marched to attack the enemy in the height of their success and security. The army of the Britons is said to have amounted to two hundred and thirty thousand; but it was ill composed, and without choice or order,--women, boys, old men, priests,--full of presumption, tumult, and confusion. Boadicea was at their head,--a woman of masculine spirit, but precipitant, and without any military knowledge.

The event was such as might have been expected. Paulinus, having chosen a situation favorable to the smallness of his numbers, and encouraged his troops not to dread a mult.i.tude whose weight was dangerous only to themselves, piercing into the midst of that disorderly crowd, after a blind and furious resistance, obtained a complete victory. Eighty thousand Britons fell in this battle.

[Sidenote: A.D. 61] Paulinus improved the terror this slaughter had produced by the unparalleled severities which he exercised. This method would probably have succeeded to subdue, but at the same time to depopulate the nation, if such loud complaints had not been made at Rome of the legate's cruelty as procured his recall.

Three successive legates carried on the affairs of Britain during the latter part of Nero's reign, and during the troubles occasioned by the disputed succession. But they were all of an inactive character. The victory obtained by Paulinus had disabled the Britons from any new attempt. Content, therefore, with recovering the Roman province, these generals compounded, as it were, with the enemy for the rest of the island. They caressed the troops; they indulged them in their licentiousness; and not being of a character to repress the seditions that continually arose, they submitted to preserve their ease and some shadow of authority by sacrificing the most material parts of it. And thus they continued, soldiers and commanders, by a sort of compact, in a common neglect of all duty on the frontiers of the Empire, in the face of a bold and incensed enemy.

[Sidenote: A.D. 69]

[Sidenote: A.D. 71]

But when Vespasian arrived to the head of affairs, he caused the vigor of his government to be felt in Britain, as he had done in all the other parts of the Empire. He was not afraid to receive great services. His legates, Cerealis and Frontinus, reduced the Silures and Brigantes,--one the most warlike, the other the most numerous people in the island. But its final reduction and perfect settlement were reserved for Julius Agricola, a man by whom, it was a happiness for the Britons to be conquered. He was endued with all those bold and popular virtues which would have given him the first place in the times of the free Republic; and he joined to them all that reserve and moderation which enabled him to fill great offices with safety, and made him a good subject under a jealous despotism.

[Sidenote: A.D. 84.]

Though the summer was almost spent when he arrived in Britain, knowing how much the vigor and success of the first stroke influences all subsequent measures, he entered immediately into action. After reducing some tribes, Mona became the princ.i.p.al object of his attention. The cruel ravages of Paulinus had not entirely effaced the idea of sanct.i.ty which the Britons by a long course of hereditary reverence had annexed to that island: it became once more a place of consideration by the return of the Druids. Here Agricola observed a conduct very different from that of his predecessor, Paulinus: the island, when he had reduced it, was treated with great lenity. Agricola was a man of humanity and virtue: he pitied the condition and respected the prejudices of the conquered. This behavior facilitated the progress of his arms, insomuch that in less than two campaigns all the British nations comprehended in what we now call England yielded themselves to the Roman government, as soon as they found that peace was no longer to be considered as a dubious blessing. Agricola carefully secured the obedience of the conquered people by building forts and stations in the most important and commanding places. Having taken these precautions for securing his rear, he advanced northwards, and, penetrating into Caledonia as far as the river Tay, he there built a _praetentura_, or line of forts, between the two friths, which are in that place no more than twenty miles asunder. The enemy, says Tacitus, was removed as it were into another island. And this line Agricola seems to have destined as the boundary of the Empire. For though in the following year he carried his arms further, and, as it is thought, to the foot of the Grampian Mountains, and there defeated a confederate army of the Caledonians, headed by Galgacus, one of their most famous chiefs, yet he built no fort to the northward of this line: a measure which he never omitted, when he intended to preserve his conquests. The expedition of that summer was probably designed only to disable the Caledonians from attempting anything against this barrier. But he left them their mountains, their arms, and their liberty: a policy, perhaps, not altogether worthy of so able a commander. He might the more easily have completed the conquest of the whole island by means of the fleet which he equipped to cooperate with his land forces in that expedition. This fleet sailed quite round Britain, which had not been before, by any certain proof, known to be an island: a circ.u.mnavigation, in that immature state of naval skill, of little less fame than a voyage round the globe in the present age.

In the interval between his campaigns Agricola was employed in the great labors of peace. He knew that the general must be perfected by the legislator, and that the conquest is neither permanent nor honorable which is only an introduction to tyranny. His first care was the regulation of his household, which under former legates had been always full of faction and intrigue, lay heavy on the province, and was as difficult to govern. He never suffered his private partialities to intrude into the conduct of public business, nor in appointing to employments did he permit solicitation to supply the place of merit, wisely sensible that a proper choice of officers is almost the whole of government. He eased the tribute of the province, not so much by reducing it in quant.i.ty as by cutting off all those vexatious practices which attended the levying of it, far more grievous than the imposition itself. Every step in securing the subjection of the conquered country was attended with the utmost care in providing for its peace and internal order. Agricola reconciled the Britons to the Roman government by reconciling them to the Roman manners. He moulded that fierce nation by degrees to soft and social customs, leading them imperceptibly into a fondness for baths, for gardens, for grand houses, and all the commodious elegancies of a cultivated life. He diffused a grace and dignity over this new luxury by the introduction of literature. He invited instructors in all the arts and sciences from Rome; and he sent the princ.i.p.al youth of Britain to that city to be educated at his own expense. In short, he subdued the Britons by civilizing them, and made them exchange a savage liberty for a polite and easy subjection. His conduct is the most perfect model for those employed in the unhappy, but sometimes necessary task, of subduing a rude and free people.

Thus was Britain, after a struggle of fifty-four years, entirely bent under the yoke, and moulded into the Roman Empire. How so stubborn an opposition, could have been so long maintained against the greatest power on earth by a people ill armed, worse united, without revenues, without discipline, has justly been deemed an object of wonder. Authors are generally contented with attributing it to the extraordinary bravery of the ancient Britons. But certainly the Britons fought with armies as brave as the world ever saw, with superior discipline, and more plentiful resources.

To account for this opposition, we must have recourse to the general character of the Roman politics at this time. War, during this period, was carried on upon principles very different from, those that actuated the Republic. Then one uniform spirit animated one body through whole ages. With whatever state they were engaged, the war was so prosecuted as if the republic could not subsist, unless that particular enemy were totally destroyed. But when the Roman dominion had arrived to as great an extent as could well be managed, and that the ruling power had more to fear from disaffection to the government than from enmity to the Empire, with regard to foreign affairs common rules and a moderate policy took place. War became no more than a sort of exercise for the Roman forces.[17] Even whilst they were declaring war they looked towards an accommodation, and were satisfied with reasonable terms when they concluded it. Their politics were more like those of the present powers of Europe, where kingdoms seek rather to spread their influence than to extend their dominion, to awe and weaken rather than to destroy.

Under unactive and jealous princes the Roman legates seldom dared to push the advantages they had gained far enough to produce a dangerous reputation.[18] They wisely stopped, when they came to the verge of popularity. And these emperors fearing as much from the generals as their generals from them, such frequent changes were made in the command that the war was never systematically carried on. Besides, the change of emperors (and their reigns were not long) almost always brought on a change of measures; and the councils even of the same reign were continually fluctuating, as opposite court factions happened to prevail. Add to this, that during the commotions which followed the death of Nero the contest for the purple turned the eyes of the world from every other object. All persons of consequence interested themselves in the success of some of the contending parties; and the legates in Britain, suspended in expectation of the issue of such mighty quarrels, remained unactive till it could be determined for what master they were to conquer.

On the side of the Roman government these seem to have been some of the causes which so long protracted the fate of Britain. Others arose from the nature of the country itself, and from the manners of its inhabitants. The country was then extremely woody and full of mora.s.ses.

There were originally no roads. The motion of armies was therefore difficult, and communication in many cases impracticable. There were no cities, no towns, no places of cantonment for soldiers; so that the Roman forces were obliged to come into the field late and to leave it early in the season. They had no means to awe the enemy, and to prevent their machinations during the winter. Every campaign they had nearly the same work to begin. When a civilized nation suffers some great defeat, and loses some place critically situated, such is the mutual dependence of the several parts by commerce, and by the orders of a well-regulated community, that the whole is easily secured. A long-continued state of war is unnatural to such a nation. They abound with artisans, with traders, and a number of settled and unwarlike people, who are less disturbed in their ordinary course by submitting to almost any power than in a long opposition; and as this character diffuses itself through the whole nation, they find it impossible to carry on a war, when they are deprived of the usual resources. But in a country like ancient Britain there are as many soldiers as inhabitants. They unite and disperse with ease. They require no pay nor formal subsistence; and the hardships of an irregular war are not very remote from their ordinary course of life. Victories are easily obtained over such a rude people, but they are rarely decisive; and the final conquest becomes a work of time and patience. All that can be done is to facilitate communication by roads, and to secure the princ.i.p.al avenues and the most remarkable posts on the navigable rivers by forts and stations. To conquer the people, you must subdue the nature of the country. The Romans at length effected this; but until this was done, they never were able to make a perfect conquest.

I shall now add something concerning the government the Romans settled here, and of those methods which they used to preserve the conquered people under an entire subjection. Those nations who had either pa.s.sively permitted or had been instrumental in the conquest of their fellow-Britons were dignified with the t.i.tle of allies, and thereby preserved their possessions, laws, and magistrates: they were subject to no kind of charge or tribute. But as their league was not equal, and that they were under the protection, of a superior power, they were entirely divested of the right of war and peace; and in many cases an appeal lay to Rome in consequence of their subordinate and dependent situation. This was the lightest species of subjection; and it was generally no more than a step preparatory to a stricter government.

The condition of those towns and communities called _municipia_, by their being more closely united to the greater state, seemed to partake a degree less of independence. They were adopted citizens of Rome; but whatever was detracted from their ancient liberty was compensated by a more or less complete possession of the privileges which const.i.tuted a Roman city, according to the merits which had procured their adoption.

These cities were models of Rome in little; their courts and magistrates were the same; and though they were at liberty to retain their old laws, and to make new at their pleasure, they commonly conformed to those of Rome. The _municipia_ were not subject to tribute.

When a whole people had resisted the Roman power with great obstinacy, had displayed a readiness to revolt upon every occasion, and had frequently broken their faith, they were reduced into what the Romans called the form of a province: that is, they lost their laws, their liberties, their magistrates; they forfeited the greatest part of their lands; and they paid a heavy tribute for what they were permitted to retain.

In these provinces the supreme government was in the praetor sent by the senate, who commanded the army, and in his own person exercised the judicial power. Where the sphere of his government was large, he deputed his legates to that employment, who judged according to the standing laws of the republic, aided by those occasional declarations of law called the praetorial edicts. The care of the revenue was in the quaestor.

He was appointed to that office in Rome; but when he acted in a judicial capacity, it was always by commission from the praetor of the province.[19] Between these magistrates and all others who had any share in the provincial government the Roman manners had established a kind of sacred relation, as inviolable as that of blood.[20] All the officers were taught to look up to the praetor as their father, and to regard each other as brethren: a firm and useful bond of concord in a virtuous administration; a dangerous and oppressive combination in a bad one.

But, like all the Roman inst.i.tutions, it operated strongly towards its princ.i.p.al purpose, the security of dominion, which is by nothing so much exposed as the factions and compet.i.tions of the officers, when the governing party itself gives the first example of disobedience.

On the overthrow of the Commonwealth, a remarkable revolution ensued in the power and the subordination of these magistrates. For, as the prince came alone to possess all that was by a proper t.i.tle either imperial or praetorial authority, the ancient praetors dwindled into his legates, by which the splendor and importance of that dignity were much diminished.

The business of the quaestor at this time seems to have been transferred to the emperor's procurator. The whole of the public revenue became part of the fisc, and was considered as the private estate of the prince. But the old office under this new appellation rose in proportion as the praetorship had declined. For the procurator seems to have drawn to himself the cognizance of all civil, while capital cases alone were reserved for the judgment of the legate.[21] And though his power was at first restrained within narrow bounds, and all his judgments were subject to a review and reversal by the praetor and the senate, he gradually grew into independence of both, and was at length by Claudius invested with a jurisdiction absolutely uncontrollable. Two causes, I imagine, joined to produce this change: first, the sword was in the hands of the legate; the policy of the emperors, in order to balance this dangerous authority, thought too much weight could not be thrown into the scale of the procurator: secondly, as the government was now entirely despotical, a connection between the inferior officers of the empire and the senate[22] was found to shock the reason of that absolute mode of government, which extends the sovereign power in all its fulness to every officer in his own district, and renders him accountable to his master alone for the abuse of it.

The veteran soldiers were always thought ent.i.tled to a settlement in the country which had been subdued by their valor. The whole legion, with the tribunes, the centurions, and all the subordinate officers, were seated on an allotted portion of the conquered lands, which were distributed among them according to their rank. These colonies were disposed throughout the conquered country, so as to sustain each other, to surround the possessions that were left to the conquered, to mix with the _municipia_ or free towns, and to overawe the allies. Rome extended herself by her colonies into every part of her empire, and was everywhere present. I speak here only of the military colonies, because no other, I imagine, were ever settled in Britain.

There were few countries of any considerable extent in which all these different modes of government and different shades and gradations of servitude did not exist together. There were allies, _municipia_, provinces, and colonies in this island, as elsewhere; and those dissimilar parts, far from being discordant, united to make a firm and compact body, the motion of any member of which could only serve to confirm and establish the whole; and when time was given to this structure to coalesce and settle, it was found impossible to break any part of it from the Empire.

By degrees the several parts blended and softened into one another. And as the remembrance of enmity, on the one hand, wore away by time, so, on the other, the privileges of the Roman citizens at length became less valuable. When, nothing throughout so vast an extent of the globe was of consideration but a single man, there was no reason to make any distinction amongst his subjects. Claudius first gave the full rights of the city to all the Gauls. Under Antoninus Rome opened her gates still wider. All the subjects of the Empire were made partakers of the same common rights. The provincials flocked in; even slaves were no sooner enfranchised than they were advanced to the highest posts; and the plan of comprehension, which had overturned the republic, strengthened the monarchy.

Before the part.i.tions were thus broken down, in order to support the Empire, and to prevent commotions, they had a custom of sending spies into all the provinces, where, if they discovered any provincial laying himself out for popularity, they were sure of finding means, for they scrupled none, to repress him. It was not only the praetor, with his train of lictors and apparitors, the rods and the axes, and all the insolent parade of a conqueror's jurisdiction; every private Roman seemed a kind of magistrate: they took cognizance of all their words and actions, and hourly reminded them of that jealous and stern authority, so vigilant to discover and so severe to punish the slightest deviations from obedience.

As they had framed the action _de pecuniis repetundis_ against the avarice and rapacity of the provincial governors, they made at length a law[23] which, one may say, was against their virtues. For they prohibited them from receiving addresses of thanks on their administration, or any other public mark of acknowledgment, lest they should come to think that their merit or demerit consisted in the good or ill opinion of the people over whom they ruled. They dreaded either a relaxation of government, or a dangerous influence in the legate, from the exertion of an humanity too popular.

These are some of the civil and political methods by which the Romans held their dominion over conquered nations; but even in peace they kept up a great military establishment. They looked upon the interior country to be sufficiently secured by the colonies; their forces were therefore generally quartered on the frontiers. There they had their _stativa_, or stations, which were strong intrenched camps, many of them fitted even for a winter residence. The communication between these camps, the colonies, and the munic.i.p.al towns was formed by great roads, which they called military ways. The two princ.i.p.al of these ran in almost straight lines, the whole length of England, from north to south. Two others intersected them from east to west. The remains show them to have been in their perfection n.o.ble works, in all respects worthy the Roman military prudence and the majesty of the Empire. The Anglo-Saxons called them streets.[24] Of all the Roman works, they respected and kept up these alone. They regarded them, with a sort of sacred reverence, granting them a peculiar protection and great immunities. Those who travelled on them were privileged from arrests in all civil suits.

As the general character of the Roman government was hard and austere, it was particularly so in what regarded the revenue. This revenue was either fixed or occasional. The fixed consisted, first, of an annual tax on persons and lands, but in what proportion to the fortunes of the one or the value of the other I have not been able to ascertain. Next was the imposition called _dec.u.ma_, which consisted of a tenth, and often a greater portion of the corn of the province, which was generally delivered in kind. Of all other products a fifth was paid. After this tenth had been exacted on the corn, they were obliged to sell another tenth, or a more considerable part, to the praetor, at a price estimated by himself. Even what remained was still subject to be bought up in the some manner, and at the pleasure of the same magistrate, who, independent of these taxes and purchases, received for the use of his household a large portion of the corn of the province. The most valuable of the pasture grounds were also reserved to the public, and a considerable revenue was thence derived, which they called _scriptura_.

The state made a monopoly of almost the whole produce of the land, which paid several taxes, and was further enhanced by pa.s.sing through several hands before it came to popular consumption.

The third great branch of the Roman revenue was the _portorium_, which did not differ from those impositions which we now call customs and duties of export and import.

This was the ordinary revenue; besides which there were occasional impositions for shipping, for military stores and provisions, and for defraying the expense of the praetor and his legates on the various circuits they made for the administration of the province. This last charge became frequently a means of great oppression, and several ways were from time to time attempted, but with little effect, to confine it within reasonable bounds.[25] Amongst the extraordinary impositions must be reckoned the obligation they laid on the provincials to labor at the public works, after the manner of what the French call the _corvee_, and we term statute-labor.

As the provinces, burdened by the ordinary charges, were often in no condition of levying these occasional taxes, they were obliged to borrow at interest. Interest was then to communities at the same exorbitant rate as to individuals. No province was free from a most onerous public debt; and that debt was far from operating like the same engagement contracted in modern states, by which, as the creditor is thrown into the power of the debtor, they often add considerably to their strength, and to the number and attachment of their dependants. The prince in this latter case borrows from a subject or from a stranger. The one becomes more the subject, and the other less a stranger. But in the Roman provinces the subject borrowed from his master, and he thereby doubled his slavery. The overgrown favorites and wealthy n.o.bility of Rome advanced money to the provincials; and they were in a condition both to prescribe the terms of the loan and to enforce the payment. The provinces groaned at once under all the severity of public imposition and the rapaciousness of private usury. They were overrun by publicans, farmers of the taxes, agents, confiscators, usurers, bankers, those numerous and insatiable bodies which always flourish in a burdened and complicated revenue. In a word, the taxes in the Roman Empire were so heavy, and in many respects so injudiciously laid on, that they have been not improperly considered as one cause of its decay and ruin. The Roman government, to the very last, carried something of the spirit of conquest in it; and this system of taxes seems rather calculated for the utter impoverishment of nations, in whom a long subjection had not worn away the remembrance of enmity, than for the support of a just commonwealth.

FOOTNOTES:

[15] There is a curious instance of a ceremony not unlike this in a fragment of an ancient Runic history, which it may not be disagreeable to compare with this part of the British manners. "Ne vero regent ex improviso adoriretur Ulafus, admoto sacculo suo, eundem quatere cpit, carmen simul magic.u.m obmurmurans, hac verborum formula: Duriter increpetur c.u.m tonitru; stringant Cyclopia tela; injiciant manum Parcae; ... acriter excipient monticolae genii plurimi, atque gigantes ...