The Roman Empire was a growth, an unplanned novel growth; the Roman people found themselves engaged almost unawares in a vast administrative experiment. It cannot be called a successful experiment. In the end their empire collapsed altogether. And it changed enormously in form and method from century to century. It changed more in a hundred years than Bengal or Mesopotamia or Egypt changed in a thousand. It was always changing. It never attained to any fixity.
In a sense the experiment failed. In a sense the experiment remains unfinished, and Europe and America to-day are still working out the riddles of world-wide statescraft first confronted by the Roman people.
It is well for the student of history to bear in mind the very great changes not only in political but in social and moral matters that went on throughout the period of Roman dominion. There is much too strong a tendency in people’s minds to think of the Roman rule as something finished and stable, firm, rounded, noble and decisive. Macaulay’s Lays of Ancient Rome, S.P.Q.R. the elder Cato, the Scipios, Julius Caesar, Diocletian, Constantine the Great, triumphs, orations, gladiatorial combats and Christian martyrs are all mixed up together in a picture of something high and cruel and dignified. The items of that picture have to be disentangled. They are collected at different points from a process of change profounder than that which separates the London of William the Conqueror from the London of to-day.
We may very conveniently divide the expansion of Rome into four stages. The first stage began after the sack of Rome by the Goths in 390 B.C. and went on until the end of the First Punic War (240 B.C.). We may call this stage the stage of the Assimilative Republic. It was perhaps the finest, most characteristic stage in Roman history. The age-long dissensions of patrician and plebeian were drawing to a close, the Etruscan threat had come to an end, no one was very rich yet nor very poor, and most men were public-spirited. It was a republic like the republic of the South African Boers before 1900 or like the northern states of the American Union between 1800 and 1850; a free-farmers republic. At the outset of this stage Rome was a little state scarcely twenty miles square. She fought the sturdy but kindred states about her, and sought not their destruction but coalescence. Her centuries of civil dissension had trained her people in compromise and concessions. Some of the defeated cities became altogether Roman with a voting share in the government, some became self-governing with the right to trade and marry in Rome; garrisons full of citizens were set up at strategic points and colonies of varied privileges founded among the freshly conquered people. Great roads were made. The rapid Latinization of all Italy was the inevitable consequence of such a policy. In 89 B.C. all the free inhabitants of Italy became citizens of the city of Rome Formally the whole Roman Empire became at last an extended city. In 212 A.D. every free man in the entire extent of the empire was given citizenship; the right, if he could get there, to vote in the town meeting in Rome.
This extension of citizenship to tractable cities and to whole countries was the distinctive device of Roman expansion. It reversed the old process of conquest and assimilation altogether. By the Roman method the conquerors assimilated the conquered.
But after the First Punic War and the annexation of Sicily, though the old process of assimilation still went on, another process arose by its side. Sicily for instance was treated as a conquered prey. It was declared an “estate” of the Roman people. Its rich soil and industrious population was exploited to make Rome rich. The patricians and the more influential among the plebeians secured the major share of that wealth. And the war also brought in a large supply of slaves. Before the First Punic War the population of the republic had been largely a population of citizen farmers. Military service was their privilege and liability. While they were on active service their farms fell into debt and a new large-scale slave agriculture grew up; when they returned they found their produce in competition with slave-grown produce from Sicily and from the new estates at home. Times had changed. The republic had altered its character. Not only was Sicily in the hands of Rome, the common man was in the hands of the rich creditor and the rich competitor. Rome had entered upon its second stage, the Republic of Adventurous Rich Men.
For two hundred years the Roman soldier farmers had struggled for freedom and a share in the government of their state; for a hundred years they had enjoyed their privileges. The First Punic War wasted them and robbed them of all they had won.
The value of their electoral privileges had also evaporated. The governing bodies of the Roman republic were two in number. The first and more important was the Senate. This was a body originally of patricians and then of prominent men of all sorts, who were summoned to it first by certain powerful officials, the consuls and censors. Like the British House of Lords it became a gathering of great landowners, prominent politicians, big business men and the like. It was much more like the British House of Lords than it was like the American Senate. For three centuries, from the Punic Wars onward, it was the centre of Roman political thought and purpose. The second body was the Popular Assembly. This was supposed to be an assembly of all the citizens of Rome. When Rome was a little state twenty miles square this was a possible gathering. When the citizenship of Rome had spread beyond the confines in Italy, it was an altogether impossible one. Its meetings, proclaimed by horn-blowing from the Capitol and the city walls, became more and more a gathering of political hacks and city riff-raff. In the fourth century B.C. the Popular Assembly was a considerable check upon the Senate, a competent representation of the claims and rights of the common man. By the end of the Punic Wars it was an impotent relic of a vanquished popular control. No effectual legal check remained upon the big men.
Nothing of the nature of representative government was ever introduced into the Roman republic. No one thought of electing delegates to represent the will of the citizens. This is a very important point for the student to grasp. The Popular Assembly never became the equivalent of the American House of Representatives or the British House of Commons. In theory it was all the citizens; in practice it ceased to be anything at all worth consideration.
The common citizen of the Roman Empire was therefore in a very poor case after the Second Punic War; he was impoverished, he had often lost his farm, he was ousted from profitable production by slaves, and he had no political power left to him to remedy these things. The only methods of popular expression left to a people without any form of political expression are the strike and the revolt. The story of the second and first centuries B.C., so far as internal politics go, is a story of futile revolutionary upheaval. The scale of this history will not permit us to tell of the intricate struggles of that time, of the attempts to break up estates and restore the land to the free farmer, of proposals to abolish debts in whole or in part. There was revolt and civil war. In 73 B.C., the distresses of Italy were enhanced by a great insurrection of the slaves under Spartacus. The slaves of Italy revolted with some effect, for among them were the trained fighters of the gladiatorial shows. For two years Spartacus held out in the crater of Vesuvius, which seemed at that time to be an extinct volcano. This insurrection was defeated at last and suppressed with frantic cruelty. Six thousand captured Spartacists were crucified along the Appian Way, the great highway that runs southward out of Rome (71 B.C.).
The common man never made head against the forces that were subjugating and degrading him. But the big rich men who were overcoming him were even in his defeat preparing a new power in the Roman world over themselves and him, the power of the army.
Before the Second Punic War the army of Rome was a levy of free farmers, who, according to their quality, rode or marched afoot to battle. This was a very good force for wars close at hand, but not the sort of army that will go abroad and bear long campaigns with patience. And moreover as the slaves multiplied and the estates grew, the supply of free-spirited fighting farmers declined. It was a popular leader named Marius who introduced a new factor. North Africa after the overthrow of the Carthaginian civilization had become a semi-barbaric kingdom, the kingdom of Numidia. The Roman power fell into conflict with Jugurtha, king of this state, and experienced enormous difficulties in subduing him. Marius was made consul, in a phase of public indignation, to end this discreditable war. This he did by raising paid troops and drilling them hard. Jugurtha was brought in chains to Rome (106 B.C.) and Marius, when his time of office had expired, held on to his consulship illegally with his newly created legions. There was no power in Rome to restrain him.