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86 ORIGINAL CONSTITUTION OF ROME BOOK 1
scheme of the Latin or burgess communities that subse quently sprang up under the influence of Rome; these had uniformly the number of a hundred councillors (:entumzu'ri). But the same normal numbers make their appearance throughout in the earliest tradition regarding the tripartite Rome, which assigns to it thirty curies, three hundred horse men, three hundred senators, three thousand foot-soldiers.
Nothing is more certain than that this earliest constitu tional scheme did not originate in Rome ; it wasa primitive institution common to all the Latins, and perhaps reached
back to a period anterior to the separation of the stocks. The Roman constitutional tradition quite deserving of credit in such matters, while it accounts historically for the other divisions of the burgesses, makes the division into curies alone originate with the origin of the city ; and in entire harmony with that view not only does the curial constitu~ tion present itself in Rome, but in the recently discovered
scheme of the organization of the Latin communities appears as an essential part of the Latin municipal system.
The essence of this scheme was, and remained, the dis tribution into curies. The tribes (“parts”) cannot have been an element of essential importance for the simple reason that their occurrence at all was, not less than their number, the result of accident; where there were tribes, they certainly had no other significance than that of pre serving the remembrance of an epoch when such “parts ” had themselves been wholes. 1 There is no tradition that the individual tribes had special presiding magistrates or special assemblies of their own; and it is highly probable that in the interest of the unity of the commonwealth tribes which had joined together to form it were never in reality allowed to have such institutions. Even in the army,
1 This is implied in their very name. The “ part ”
know, simply that which has once been or may herealter come to be whole, and so has no real standing of its own in the present.
(tribur)
is, as jurists I
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CRAP. v ORIGINAL CONSTITUTION OF ROME
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it is true, the inhntry had as many pairs of leaders as there were tribes ; but each of these pairs of military tribunes did not command the contingent of a tribe; on the contrary each individual war-tribune, as well as all in conjunction, exercised command over the whole infantry. The clans were distributed among the several curies; their limits and those of the household were furnished by nature. That the legislative power interfered in these groups by way of modification, that it subdivided the large clan and counted it as two, or joined several weak ones together, there is no indication at all in Roman tradition ; at any rate this took place only in a way so limited that the fundamental char acter of afiinity belonging to the clan was not thereby altered. We may not therefore conceive the number of the clans, and still less that of the households, as a legally fixed one; if the curia had to furnish a hundred men on foot and ten horsemen, it is not aflirmed by tradition, nor is it credible, that one horseman was taken from each clan and one foot-soldier from each house. The only member that
discharged functions in the oldest constitutional organization was the curia. Of these there were ten, or, where there were several tribes, ten to each tribe. Such a “wardship” was a real corporate unity, the members of which assembled at least for holding common festivals. Each wardship was under the charge of a special warden (curio), and had a priest of its own (flamen :urialis) ; beyond doubt also levies and valuations took place according to curies, and in judicial matters the burgesses met by curies and voted by curies. This organization, however, cannot have been introduced primarily with a view to voting, for in that case they would certainly have made the number of subdivisions uneven.
Sternly defined as was the contrast between burgess and Equality non-burgess, the equality of rights within the burgess-body “a” was complete. No people has ever perhaps equalled that
of Rome in the inexorable rigour with which it has carried
88 ORIGINAL CONSTITUTION OF ROME BOOK I
out these principles, the one as fully as the other. The strictness of the Roman distinction between burgesses and non-burgesses is nowhere perhaps brought out with such clearness as in the treatment of the primitive institution of honorary citizenship, which was originally designed to mediate between the two. When a stranger was, by resolution of the community, adopted into the circle of the burgesses, he might surrender his previous citizenship, in which case he passed over wholly into the new community; but he might also combine his former citizenship with that which had just been granted to him. Such was the primitive custom, and such it always remained in Hellas, where in later ages the same person not unfrequently held the freedom of several communities at the same time. But the greater vividness with which the conception of the community as such was realized in Latium could not tolerate the idea that a man might simultaneously belong in the character of a burgess to two communities ; and accordingly, when the newly-chosen burgess did not intend to surrender his previ ous franchise, it attached to the nominal honorary citizen ship no further meaning than that of an obligation to befriend and protect the guest (ius lwspitii), such as had
alwaysbeen recognized as incumbent in reference to foreigners. But this rigorous retention of barriers against those that
were without was accompanied by an absolute banishment of all difference of rights among the members included in the burgess community of Rome. We have already men tioned that the distinctions existing in the household, which ofcourse could not be set aside, were at least ignored in the community; the son who as such was subject in property to his father might thus, in the character of a. burgess, come to have command over his father as master. There were no class-privileges: the fact that the Tities took precedence of the Ramnes, and both ranked before the Luceres, did not affect their equality in all legal rights.
CRAP. V ORIGINAL CONSTITUTION OF ROME
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The burgess cavalry, which at this period was used for single combat in front of the line on horseback or even on foot, and was rather a select or reserve corps than a special arm of the service, and which accordingly contained by far the wealthiest, best-armed, and best-trained men, was natur ally held in higher estimation than the burgess infantry; but this was a distinction purely do fade, and admittance to the cavalry was doubtless conceded to any patrician. It was simply and solely the constitutional subdivision of the burgess-body that gave rise to distinctions recognized by the law; otherwise the legal equality of all the members of the community was carried out even in their external appear ance. Dress indeed served to distinguish the president of the community from its members, the grown-up man under obligation of military service from the boy not yet capable of enrolment; but otherwise the rich and the noble as well as the poor and low-born were only allowed to appear in public in the like simple wrapper (toga) of white woollen stuff. This complete equality of rights among the burgesses had beyond doubt its original basis in the Indo-Germanic type of constitution ; but in the precision with which it was thus apprehended and embodied it formed one of the most characteristic and influential peculiarities of the Latin nation. And in connection with this we may recall the fact that in Italy we do not meet with any race of earlier settlers less capable of culture, that had become subject to the Latin immigrants (p. to). They had no conquered race to deal with, and therefore no such condition of things as that which gave rise to the Indian system of caste, to the nobility of Thessaly and Sparta and perhaps of Hellas generally, and probably also to the Germanic distinction of ranks.
The maintenance of the state economy devolved, of course, upon the burgesses. The most important function
of the burgess was his service in the army; for the burgesses 2f alone had the right and duty of bearing arms. The
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ORIGINAL CONSTITUTION OF ROME 300K I
burgesses were at the same time the "body of warriors” (populas, related to popularz', to lay waste) : in the old litanies it is upon the “ spear-armed body of warriors ” (pilumnuspoplus) that the blessing of Mars is invoked ; and even the designation with which the king addresses them, that of Quirites,1 is taken as signifying “ warrior. ” We have already stated how the army of aggression, the “gathering ” (Iegr'o), was formed. In the tripartite Roman community it consisted of three “ hundreds ” (:enturiae) of horsemen (celeres, “the swift,” or flexuntes, “ the wheelers ”) under the three leaders-of-division of the horsemen (tribum' celerum),'
1 Qulrir, quiritir, or quirinus is interpreted by the ancients as “lance-bearer," from qulrir or cfirir=lance and ire, and so far in their view agrees with ramnir, ramrritir and . rd'binur, which also among the ancients was derived from o'ativtov, spear. This etymology, which asso ciates the word with arguilts, militer, pediter, aquifer, velile. t—those respectively who go with the bow, in bodies of a thourand, on foot, on barre
bark, without armour in their mere over-gament—may
is bound up with the Roman conception of a burgess.
(Mars)quirinus, Janus quirinus, areconceivedasdivinities
and, employed in reference to men, quirir is the warrior, that is, the full burgess. With this view the urns loquendi coincides. Where the locality was to be referred to, " Quirites" was never used, but always " Rome " and " Romans" (urbr Roma, popular, ci-uir, ager Romania), because the term quirir had as little of a local meaning as cim‘s or miles. For the same reason these designations could not be combined ; they did not say civic guirir, because both denoted, though from different points of view, the same legal conception. On the other hand" the solemn announcement of the funeral of a burgess ran in the words this warrior has departed in death " (ollus quirir 1:10 datur); and in like manner the king addressed the assembled community by this name, and, when he sat in judgment, gave sentence according to the law of the warrior-freemen (ex iure quiritiuwr, quite similar to the later ex iure cit/iii). The phrase popular Romanur, quiriler " (popular Romanas quirilium is not sufficiently attested), thus means the community and the individual burgesses," and therefore in an old formula (Liv. i. 32) to the papulur Ramanur are opposed the prirci Latina", to the quiriter the [. aminar prirci Latin! ’ (Becker, Handb. 20 reg.
the face of these facts nothing but ignorance of language and of history can still adhere to the idea that the Roman community was once confronted by Quirite community of similar kind, and that after their incorporation the name of the newly received community supplanted in ritual and legal phraseology that of the receiver. —Comp. p. 68 note.
Among the eight ritual institutions of Numa, Dionysius (ii. 64) after’ naming the Curiones and Flamines, specifies as the third the leaders of the horsemen (ol 'h-yquéves r6511 Keheplwv). According to the Praenesu'ne calendar festival was celebrated at the Comitium on the rgth March [ad
be incorrect, but it So too Juno quiritis, that hurl the spear;
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CHAP. V ORIGINAL CONSTITUTION OF ROME
91
and three “ thousands ” of footmen (milz'tes) under the three leaders-of-division of the infantry (trz'bum' militum) ; the latter were probably from the first the flower of the general levy. To these there may perhaps have been added a number of light-armed men, archers especially, fighting out side of the ranks. 1 The general was regularly the king him self. Besides service in war, other personal burdens might devolve upon the burgesses; such as the obligation of undertaking the king’s commissions in peace and in war (p. 82), and the task-work of tilling the king’s lands or of constructing public buildings. How heavily in particular the burden of building the walls of the city pressed upon the community, is evidenced by the fact that the ring-walls retained the name of “tasks” (maenia). There was no regular direct taxation, nor was there any direct regular ex penditure on the part of the state. Taxation was not needed
stantibus panyificibus et tri6(unir) celer(um). Valerius Antias (in Dionys. i. r3, comp. iii. 41) assigns to the earliest Roman cavalry a leader, Celer, and three centurions; whereas in the treatise De m'rir ill. I, Celer him self is termed centurio. Moreover Brutus is aflirmed to have been tribunur celerum at the expulsion of the kings (Liv. i. 59), and according to Dionysius (iv. 71) to have even by virtue of this oflice made the proposal to banish the Tarquins. And, lastly, Pomponius (Dig. i. a, 2, r5, 19) and Lydus in a similar way, partly perhaps borrowing from him (D: Mag. i. 14, 37), identify the lribunus celerum with the Celer of Antias, the "regirter eguitum of the dictator under the republic, and the Praeflctu: praetorio of the empire.
Of these-the only statements which are extant regarding the lribum' alerum-the last mentioned not only proceeds from late and quite untrust worthy authorities, but"is inconsistent with the meaning of the term, which can only signify divisional leaders of horsemen ; " and above all the master of the horse of the republican period, who was nominated only on extraordinary occasions and was in later times no longer nominated at all, cannot possibly have been identical with the magistracy that was rel quired for the annual festival of the 19th March and was consequently standing oflice. Laying aside, as we necessarily must, the account of Pomponius, which has evidently arisen solely out of the anecdote oi
Brutus dressed up with ever-increasing ignorance as history, we reach the simple result that the tribum' celerum entirely correspond in number and character to the tribuni mih'tum, and that they were the leaders-of division of the horsemen, consequently quite distinct from the magister qur'lum.
1 This is indicated by the evidently very old forms wh'ta and arquitu and by the subsequent organization of the legion.
9:
ORIGINAL CONSTITUTION OF ROME I00! I
for defraying the burdens of the community, since the state gave no recompense for serving in the army, for task-work, or for public service generally ; so far as there was any such recompense at all, it was given to the person who performed the service either by the district primarily concerned in
or the person who could not or would not himself serve. The victims needed for the public service of the gods were procured by tax on actions at law the defeated party in an ordinary process paid down to the state cattle fine (summentum) proportioned to the value of the object in dispute. There no mention of any regular presents to the king on the part of the burgesses. On the other hand there flowed into the royal coffers the port-duties
60), as well as the income from the domains-in particular, the pasture tribute (sm'ptura) from the cattle driven out upon
the common pasture, and the quotas of produce (vectzlgalia), which those enjoying the use of the lands of the state had to pay instead of rent. To this was added the produce of cattle-fines and confiscations and the gains of war. In cases of need contribution (trz'butum) was imposed, which was looked upon, however, as forced loan and was repaid when the times improved; whether fell upon the bur gesses generally, or only upon the melom', cannot be determined; the latter supposition however, the more probable.
The king managed the finances. The property of the state, however, was not identified with the private property of the king; which, judging from the statements regarding the extensive landed possessions of the last Roman royal house, the Tarquins, must have been considerable. The ground won by arms, in particular, appears to have been constantly regarded as property of the state. Whether and how far the king was restricted by use and wont in the administration of the public property, can no longer be ascertained; only the subsequent course of things shows
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CHAP. v ORIGINAL CONSTITUTION OF ROME
93
that the burgesses can never have been consulted regarding whereas was probably the custom to consult the senate
in the imposition of the trz'butum and in the distribution of the lands won in war.
The Roman burgesses, however, do not merely come Rights into view as furnishing contributions and rendering service
they also bore part in the public government. For this purpose all the members of the community (with the ex ception of the women, and the children still incapable of bearing arms)—in other words, the “spearmen ” (quiriter)
as in addressing them they were designated-‘assembled at the seat of justice, when the king convoked them for the purpose of making a communication (convenlio, :ontia), or formally bade them meet (comitia) for the third week (in trinum noundinum), to consult them curies. He
such formal assemblies of the community to be held regularly twice year, on the 24th of March and the 24th of May, and as often besides as seemed to him neces sary. The burgesses, however, were always summoned not to speak, but to hear; not to ask questions, but to answer them. No one spoke in the assembly but the king, or he to whom the king saw fit to grant liberty of speech; and the speaking of the burgesses consisted of simple answer to the question of the king, without discussion, without reasons, without conditions, without breaking up the question even into parts. Nevertheless the Roman burgess-community, like the Germanic and not improbably the primitive Indo-Germanic communities in general, was the real and
ultimate basis of the political idea of sovereignty. But in the ordinary course of things this sovereignty was dormant, or only had its expression in the fact that the burgess-body voluntarily bound itself to render allegiance to its president. For that purpose the king, after he had entered on his oflice, addressed to the assembled curies the question whether they would be true and loyal to him and would
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94
ORIGINAL CONSTITUTION OF ROME BOOK 1
according to use and wont acknowledge himself as well as his messengers (lidares) ; a question, which undoubtedly might no more be answered in the negative than the parallel homage in the case of a hereditary monarchy might be refused.
It was in thorough consistency with constitutional princi ples that the burgesses, just as being the sovereign power, should not on ordinary occasions take part in the course of public business. So long as public action was confined to the carrying into execution of the existing legal arrange ments, the power which was, properly speaking, sovereign in the state could not and might not interfere: the laws governed, not the lawgiver. But it was different where a change of the existing legal arrangements or even a mere deviation from them in a particular case was necessary; and here accordingly, under the Roman constitution, the burgesses emerge without exception as actors ; so that each act of the sovereign authority is accomplished by the co operation of the burgesses and the king or interrex. As the legal relation between ruler and ruled was itself sanc tioned after the manner of a contract by oral question and answer, so every sovereign act of the community was accom plished by means of a question (rogatio), which the king addressed to the burgesses, and to which the majority of the curies gave an affirmative answer. In this case their consent might undoubtedly be refused. Among the Romans, therefore, law was not primarily, as we conceive com mand addressed by the sovereign to the whole members of the community, but primarily contract concluded between
the constitutive powers of the state by address and counter address. 1 Such a legislative contract was dejure requisite
Us that which binds," related to llgare, "to bind to something") denotes, u well known, contract in general, along, however, with the connotation of contract whose terms the proposer dictates and the other party simply accepts or declines as was usually the case, eg. with public licitalianu. In the [ex publica pupuli Romans‘ the proposer was
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:rrar. v ORIGINAL CONSTITUTION OF ROME
95
in all cases which involved a deviation from the ordinary consistency of the legal system. In the ordinary course of law any one might without restriction give away his property to whom he would, but only upon condition of its immediate transfer: that the property should continue for the time being with the owner, and at his death pass over to another, was a legal impossibility—unless the community should allow it; a permission which in this case the burgesses could grant not only when assembled in their curies, but also when drawn up for battle. This was the origin of testaments. In the ordinary course of law the freeman could not lose or surrender the inalienable blessing of freedom, and therefore one who was subject to no house master could not subject himself to another in the place of a son-unless the community should grant him leave to do so. This was the adrogatio. In the ordinary course of law burgess-rights could only be acquired by birth and could never be lost—unless the community should confer the
or allow its surrender; neither of which acts, doubtless, could be validly done originally without a decree of the curies. In the ordinary course of law the criminal whose crime deserved death, when once the king or his deputy had pronounced sentence according to judgment and justice, was inexorably executed; for the king could only judge, not pardon-unless the condemned burgess appealed to the mercy of the community and the judge
allowed him the opportunity of pleading for pardon. This was the beginning of the pro'aocatio, which for that reason was especially permitted not to the transgressor who had refused to plead guilty and had been convicted, but to him who confessed his crime and urged reasons in palliation of it. In the ordinary course of law the perpetual treaty con cluded with a neighbouring state might not be broken
the king, the acceptor the people; the limited co-operation of the latter was thus significantly indicated in the very language.
patriciate
96
ORIGINAL CONSTITUTION OF ROME BOOK]
unless the burgesses deemed themselves released from it on account of injuries inflicted on them. Hence it was necessary that they should be consulted when an aggressive war was contemplated, but not on occasion of a defensive war, where the other state had broken the treaty, nor on the conclusion of peace; it appears, however, that the question was in such a case addressed not to the usual assembly of the burgesses, but to the army. Thus, in
it was necessary to consult the burgesses whenever the king meditated any innovation, any change of the exist ing public law; and in so far the right of legislation was from antiquity not a right of the king, but a right of the king and the community. In these and all similar cases the king could not act with legal effect without the co operation of the community; the man whom the king alone declared a patrician remained as before a non-burgess, and the invalid act-could only carry consequences possibly de
facto, not de jure. Thus far the assembly of the community, however restricted and bound at its emergence, was yet from antiquity a constituent element of the Roman common wealth, and was in law superior to, rather than co-ordinate with, the king.
But by the side of the king and of the burgess-assernbly there appears in the earliest constitution of the community a third original power, not destined for acting like the fomier or for resolving like the latter, and yet co-ordinate with both and within its own rightful sphere placed over both. This was the council of elders or senatus. Beyond doubt it had its origin in the clan-constitution: the old tradition that in the original Rome the senate was composed of all the heads of households is correct in state-law to this extent, that each of the clans of the later Rome which had not merely migrated thither at a more recent date referred its origin to one of those household-fathers of the primitive city as its ancestor and patriarch. If, as is probable, there
general,
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CRAP. V ORIGINAL CONSTITUTION OF ROME
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was once in Rome or at any rate in Latium a time when, like the state itself, each of its ultimate constituents, that is
to say each clan, had virtually a monarchical
and was under the rule of an elder-whether raised to that position by the choice of the clansmen or of his predecessor, or in virtue of hereditary succession-the senate of that time was nothing but the collective body of these clan-elders, and accordingly an institution independent of the king and of the burgess-assembly ; in contradistinction to the latter, which was directly composed of the whole body of the burgesses, it was in some measure a representative assembly of persons acting for the people. Certainly that stage of independence when each clan was virtually a state was surmounted in the Latin stock at an immemorially early period, and the first and perhaps most diflicult step towards developing the community out of the clan-organization-the setting aside of the clan-elders-had possibly been taken in Latium long before the foundation of Rome; the Roman clan, as we know without any visible head, and no one of the living clansmen especially called to represent the common patriarch from whom all the clansmen descend or profess to descend, so that even inheritance and guardianship, when they fall by death to the clan, devolve on the clan-members as whole. Nevertheless the original character of the council of elders bequeathed many and important legal
consequences to the Roman senate. To express the matter briefly, the position of the senate as something other and more than mere state-council—than an assemblage of number of trusty men whose advice the king found
fitting to obtain—hinged entirely on the fact that was once an assembly, like that described by Homer, of the princes and
rulers of the people sitting for deliberation in circle round the king. So long as the senate was formed by the aggregate of the heads of clans, the number of the members :annot have been tired one, since that of the clans was
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not so; but in the earliest, perhaps even in pre-Roman, times the number of the members of the council of elders for the community had been fixed without respect to the number of the then existing clans at a hundred, so that the amalgamation of the three primitive communities had in state-law the necessary consequence of an increase of the seats in the senate to what was thenceforth the fixed normal number of three hundred. Moreover the senators were at all times called to sit for life; and if at a later period the lifelong tenure subsisted more de facto than dejure, and the revisions of the senatorial list that took place from time to time afforded an opportunity to remove the unworthy or the unacceptable senator, it can be shown that this arrangement only arose in the course of time. The selection of the senators certainly, after there were no longer heads of clans, lay with the king; but in this selection during the earlier epoch, so long as the people retained a vivid sense of the individuality of the clans, it was probably the rule that, when a senator died, the king should call another experienced and aged man of the same clanship to fill his place. It was only, we may surmise, when the community became more thoroughly amalgamated and inwardly united, that this usage was departed from and the selection of the senators was left entirely to the free judgment of the king, so that he was only regarded as failing in his duty when be omitted to fill up vacancies.
The prerogatives of this council of elders were based on the view that the rule over the community composed of clans rightfully belonged to the collective clan-elders, although in accordance with the monarchical principle of the Romans, which already found so stern an expression in the household, that rule could only be exercised for the time being by one of these elders, namely the king. Every member of the senate accordingly was as such, not‘ in practice but in prerogative, likewise king of the community;
98
ORIGINAL CONSTITUTION OF ROME 300! I
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CI-IAP- v ORIGINAL CONSTITUTION OF ROME
99
and therefore his insignia, though inferior to those of the king, were of a similar character: he wore the red shoe like the king; only that of the king was higher and more hand some than that of the senator. On this ground, moreover, as was already mentioned, the royal power in the Roman community could never be left vacant. When the king died, the elders at once took his place and exercised the prerogatives of regal power. According to the immutable
however that only one can be master at a time, even now it was only one of them that ruled, and such an “interim king” (im‘errex) was distinguished from the king nominated for life simply in respect to the duration, not in respect to the plenitude, of his authority. The duration of the oflice of interrex was fixed for the individual holders at not more than five days ; it circulated accordingly among the senators on the footing that, until the royal oflice was again permanently filled up, the temporary holder at the expiry of that term nominated a successor to himself, likewise for five days, agreeably to the order of succession fixed by lot. There was not, as may readily be conceived, any declaration of allegiance to the intcrrex on the part of the community. Nevertheless the interwx was entitled and bound not merely to perform all the oflicial acts otherwise pertaining to the king, but even to nominate a king for life with the single exception, that this latter right was not vested in the first who held the office, presumably because the first was regarded as defectively appointed inasmuch as he was not nominated by his predecessor. Thus this assembly of elders was the ultimate holder of the ruling power (imperzhm) and the divine protection (auspia'a) of the Roman
commonwealth, and furnished the guarantee for the uninterrupted continuance of that commonwealth and of its monarchical-though not hereditarily monarchical-organ ization. If therefore this senate subsequently seemed to the Greeks to be an assembly of kings, this was only
principle
roo ORIGINAL CONSTITUTION OF ROME 8003 I
what was to be expected; it had in fact been such originally.
But it was not merely in so far as the idea of a perpetual kingdom found its living expression in this assembly, that
The council of elders, indeed, had no title to interfere with oudoritar. the official functions of the king. The latter doubtless, in the event of his being unable personally to lead the army or to decide a legal dispute, took his deputies at all times
from the senate ; for which reason subsequently the highest
of command were regularly bestowed on senators alone, and senators were likewise employed by preference as jurymen. But the senate, in its collective capacity, was never consulted in the leading of the army or in the administration of justice ; and therefore there was no right of military command and no jurisdiction vested in the senate of the later Rome. On the other hand the council of elders was held as called to the guardianship of the existing constitution against encroachments by the king and the burgesses. On the senate devolved the duty of
examining every resolution adopted by the burgesses at the suggestion of the king, and of refusing to confirm it if it seemed to violate existing rights; or, which was the same thing, in all cases where a resolution of the community was constitutionally requisite-as on every alteration of the constitution, on the reception of new burgesses, on the declaration of an aggressive war-the council of elders had a right of veto. This may not indeed be regarded in the light of legislation pertaining jointly to the burgesses and the senate, somewhat in the same way as to the two chambers in the constitutional state of the present day; the senate was not so much law-maker as law-guardian, and could only cancel a decree when the community seemed to have exceeded its competence-to have violated by its decree existing obligations towards the gods or towards
The senate
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CHAP- V ORIGINAL CONSTITUTION OF ROME 101
foreign states or organic institutions of the community. But still it was a matter of the greatest importance that— to take an example-when the Roman king had proposed- a declaration of war and the burgesses had converted it into a decree, and when the satisfaction which the foreign community seemed bound to furnish had been demanded in vain, the Roman envoy invoked the gods as witnesses of the wrong and concluded with the words, “But on these matters we shall consult the elders at home how we may obtain our rights ;” it was only when the council of elders had declared its consent, that the war now decreed by the burgesses and approved by the senate was formally declared. Certainly it was neither the design nor the effect of this rule to occasion a constant interference of the senate with the resolutions of the burgesses, and by such guardianship to divest them of their sovereign power; but, as in the event of a vacancy in the supreme oflice the senate secured the continuance of the constitution, we find it here also as the shield of legal order in opposition even to the supreme power-the community.
With this arrangement was probably connected the The senate apparently very ancient usage, in virtue of which the king 9-! state
council. previously submitted to the senate the proposals that were
to be brought before the burgesses, and caused all its members one after another to give their opinion on the subject. As the senate had the right of cancelling the resolution adopted, it was natural for the king to assure himself beforehand that no opposition was to be appre hended from that quarter; as indeed in general, on the one hand, it was in accordance with Roman habits not to decide matters of importance without having taken counsel with other men, and on the other hand the senate was called, in virtue of its very composition, to act as a state council to the ruler of the community. It was from this usage of giving counsel, far more than from the prerogative!
The orl ginal con stitution of Rome.
I02 ORIGINAL CONSTITUTION OF ROME 800K I
which we have previously described, that the subsequent extensive powers of the senate were developed ; but it was in its origin insignificant and really amounted only to the prerogative of the senators to answer, when they were asked a question. It may have been usual to ask the previous opinion of the senate in affairs of importance which were neither judicial nor military, as, for instance—apart from the proposals to be submitted to the assembly of the people —in the imposition of task-works and taxes, in the summon ing of the burgesses to war-service, and in the disposal of the conquered territory; but such a previous consultation, though usual, was not legally necessary. The king convoked the senate when he pleased, and laid before it his questions ; no senator might declare his opinion unasked, still less might the senate meet without being summoned, except in the single case of its meeting on occasion of a vacancy to settle the order of succession in the oflice of interrex. That the king was moreover at liberty to call in and consult other men whom he trusted alongside of, and at the same time with, the senators, is in a high degree probable. The advice, accordingly, was not a command; the king might omit to comply with while the senate had no other means for giving practical effect to its views except the already-mentioned right of cassation, which was far from being universally applicable. “I have chosen you, not that ye may be my guides, but that ye may do my bidding:” these words, which later author puts into the mouth of king Romulus, certainly express with
substantial correctness the position of the senate in this respect.
Let us now sum up the results. Sovereignty, as con ceived by the Romans, was inherent in the community of burgesses but the burgess-body was never entitled to act alone, and was only entitled to co-operate in action, when there was to be departure from existing rules. By its
a
;
a
it,
,4,_-_ ____-_-¢__
CRAP. v ORIGINAL CONSTITUTION OF ROME
103
side stood the assembly of the elders of the community appointed for life, virtually a college of magistrates with
regal power, called in the event of a vacancy in the royal oflice to administer it by means of their own members until it should be once more definitively filled, and entitled to overturn the illegal decrees of the community. The royal power itself was, as Sallust says, at once absolute and limited by the laws (imperz'um legt'timum) ; absolute, in so far as the king's command, whether righteous or not, must in the first instance be unconditionally obeyed; limited, in so far as a command contravening established usage and not sanctioned by the true sovereign—the people-carried no permanent legal consequences. The oldest constitution of Rome was thus in some measure constitutional monarchy inverted. In that form of government the king is regarded as the possessor and vehicle of the plenary power of the state, and accordingly acts of grace, for example, proceed solely from him, while the administration of the state belongs to the representatives of the people and to the executive responsible to them. In the Roman constitution the community of the people exercised very much the same functions as belong to the king in England: the right of pardon, which in England is a prerogative of the crown, was in Rome a prerogative of the community; while all government was vested in the president of the state.
in conclusion, we inquire as to the relation of the state itself to its individual members, we find the Roman polity equally remote from the laxity of mere defensive combination and from the modern idea of an absolute omnipotence of the state. The community doubtless exercised power over the person of the burgess in the imposition of public burdens, and in the punishment of offences and crimes; but any special law inflicting, or threatening to inflict, punishment on an individual on account of acts not universally recognized as penal always
a
If,
r04
ORIGINAL CONSTITUTION OF ROME BOOK I
appeared to the Romans, even when there was no flaw in point of form, an arbitrary and unjust proceeding. Far more restricted still was the power of the community in respect of the rights of property and the rights of family which were coincident, rather than merely connected, with these ; in Rome the household was not absolutely annihilated and the community aggrandized at its expense, as was the case in the police organization of Lycurgus. It was one of the most undeniable as well as one of the most remarkable principles of the primitive constitution of Rome, that the state might imprison or hang the burgess, but might not take away from him his son or his field or even lay permanent taxation on him. In these and similar things the community itself was restricted from encroaching on the burgess, nor was this restriction merely ideal; it found its expression and its practical application in the constitu tional veto of the senate, which was certainly entitled and bound to annul any resolution of the community contraven
ing such an original right. No community was so all powerful within its own sphere as the Roman; but in no community did the burgess who conducted himself un blameably live in an equally absolute security from the risk of encroachment on the part either of his fellow burgesses or of the state itself.
These were the principles on which the community of Rome governed itself—a free people, understanding the duty of obedience, clearly disowning all mystical priestly delusion, absolutely equal in the eye of the law and one with another, bearing the sharply-defined impress of a nationality of their own, while at the same time (as will be afterwards shown) they wisely as well as magnanimously opened their gates wide for intercourse with other lands. This constitution was neither manufactured nor borrowed ; it grew up amidst and along with the Roman people. It was based, of course, upon the earlier constitutions-4h:
CHAP.
v ORIGINAL CONSTITUTION OF ROME
[05
Italian, the Graeco-Italian, and the Indo-Germanic ; but a long succession of phases of political development must have intervened between such constitutions as the poems of Homer and the Germania of Tacitus delineate and the oldest organization of the Roman community. In the aoclamation of the Hellenic and in the shield-striking of the Germanic assemblies there was involved an expres sion of the sovereign power of the community ; but a wide interval separated forms such as these from the organized
jurisdiction and the regulated declaration of opinion of the Latin assembly of curies. It is possible, moreover, that as the Roman kings certainly borrowed the purple mantle and the ivory sceptre from the Greeks (not from the Etruscans), the twelve lictors also and various other external arrange ments were introduced from abroad. But that the develop
ment of the Roman constitutional law belonged decidedly to Rome or, at any rate, to Latium, and that the borrowed elements in it are but small and unimportant, is clearly demonstrated by the fact that all its ideas are uniformly expressed by words of Latin coinage.
This constitution practically established for all time the fundamental conceptions of the Roman state; for, as long as there existed a Roman community, in spite of changes of form it was always held that the magistrate had absolute command, that the council of elders was the highest authority in the state, and that every exceptional resolution required the sanction of the sovereign or, in other words, of the community of the people.
/ v/
mntion of the Pala tine and
Quirinnl d.
CHAPTER VI
m NON-BURGESSES AND 'rrn: REFORMED cous'ri'r'rmou
THE history of every nation, and of Italy more especially, is a :ynoikismos on a great scale. Rome, in the earliest form in which we have any knowledge of was already triune, and similar incorporations only ceased when the spirit of Roman vigour had wholly died away. Apart from that primitive process of amalgamation of the Ramnes, Tities, and Luceres, of which hardly anything beyond the bare fact known, the earliest act of incorporation of this sort was that by which the Hill-burgesses became merged in the
Palatine Rome. The organization of the two communities, when they were about to be amalgamated, may be conceived to have been substantially similar; and in solving the problem of union they would have to choose between the alternatives of retaining duplicate institutions or of abolishing one set of these and extending the other to the whole united community. They adopted the former course with respect to all sanctuaries and priesthoods. Thenceforth the Roman community had its two guilds of Salii and two of Luperci,
and as had two forms of Mars, had also two priests for that divinity—the Palatine priest, who afterwards usually took the designation of priest of Mars, and the Colline, who was termed priest of Quirinus. It likely, although
can no longer be proved, that all the old Latin priest hoods of Rome—the Augurs, Pontifices, Vestals, and Fetials
106 THE NON-BURGESSES AND 800! I
it
it
is
it is
it,
CHAP- vr THE REF ORMED CONSTITUTION
r07
-originated in the same way from a combination of the priestly colleges of the Palatine and Quirinal communities. In the division into local regions the town on the Quirinal hill was added as a fourth region to the three belonging to the Palatine city, viz. the Suburan, Palatine, and suburban (Esquiliae). In the case of the original synoili’ismos the annexed community was recognized after the union as at least a tribe (part) of the new burgess-body, and thus had in some sense a continued political existence; but this course was not followed in the case of the Hill-Romans or in any of the later processes of annexation. After the
union the Roman community continued to be divided as formerly into three tribes, each containing ten wardships (:uriae); and the Hill-Romans-whether they were or were not previously distributed into tribes of their own-must have been inserted into the existing tribes and wardships. This insertion was probably so arranged that, while each tribe and wardship received its assigned proportion of the new burgesses, the new burgesses in these divisions were not amalgamated completely with the old ; the tribes hence forth presented two ranks : the Tities, Ramnes, and Luceres being respectively subdivided into first and second (prions,
With this division was connected in all prob ability that arrangement of the organic institutions of the community in pairs, which meets us everywhere. The three pairs of Sacred Virgins are expressly described as representatives of the three tribes with their first and second ranks; and it may be conjectured that the pair of Lares worshipped in each street had a similar origin. This arrangement is especially apparent in the army: after the union each half-tribe of the tripartite community furnished a hundred horsemen, and the Roman burgess cavalry was thus raised to six “ hundreds,” and the number of its cap tains probably from three to six. There is no tradition of any corresponding increase to the infantry; but to this
posterz'ores).
|o8 THE NON-BURGESSES AND BOOK 1
origin we may refer the subsequent custom of calling out the legions regularly two by two, and this doubling of the levy probably led to the rule of having not three, as was perhaps originally the case, but six leaders~of-division to command the legion. It is certain that no corresponding increase of seats in the senate took place: on the contrary, the primitive number of three hundred senators remained the normal number down to the seventh century ; with which it is quite compatible that a number of the more prominent men of the newly annexed community may have been received into the senate of the Palatine city. The same course was followed with the magistracies: a single king presided over the united community, and there was no change as to his principal deputies, particularly the warden of the city. It thus appears that the ritual institutions of the Hill-city were continued, and that the doubled burgess body was required to furnish a military force of double the numerical strength ; but in other respects the incorporation of the Quirinal city into the Palatine was really a subordina tion of the former to the latter. If we have rightly assumed that the contrast between the Palatine old and the Quirinal new burgesses was identical with the contrast between the first and second Tities, Ramnes, and Luceres, it was thus the gentes of the Quirinal city that formed the “second ” or the “lesser. ” The distinction, however, was certainly more
an honorary than a legal precedence. At the taking of the vote in the senate the senators taken from the old clans were asked before those of the “lesser. ” In like manner the Colline region ranked as inferior even to the suburban (Esquiline) region of the Palatine city; the priest of the Quirinal Mars as inferior to the priest of the Palatine Mars ; the Quirinal Salii and Luperci as inferior to those of the Palatine. It thus appears that the synaikismos, by which the Palatine community incorporated that of the Quirinal, marked an intermediate stage between the earliest . synm'kis
um. vr THE REFORMED CONSTITUTION
109
was by which the Tities, Ramnes, and Luceres became blended, and all those that took place afterwards. The annexed community was no longer allowed to form a separate tribe in the new whole, but it was permitted to furnish at least a distinct portion of each tribe; and its ritual institutions were not only allowed to subsist—as was afterwards done in other cases, after the capture of Alba for example—but were elevated into institutions of the united community, a course which was not pursued in any subsequent instance.
This amalgamation of two substantially similar common Depend‘
wealths produced rather an increase in the size than a change in the intrinsic character of the existing community. A second process of incorporation, which was carried out far more gradually and had far deeper effects, may be traced back, so far as the first steps in it are concerned, to this epoch; we refer to the amalgamation of the burgesses and the metom'. At all times there existed side by side with the burgesses in the Roman community persons who were protected, the “listeners” (clzhntes), as they were called from their being dependents on the several burgess-house holds, or the “multitude” (plebes, from plea, plenus), as they were termed negatively with reference to their want of
cuts and
guests.
The elements of this intermediate stage between the freeman and the slave were, as has been shown (p. 79), already in existence in the Roman household : but
in the community this class necessarily acquired greater importance a'efado and de fun, and that from two reasons. In the first place the community might itself possess half free clients as well as slaves; especially after the conquest of a town and the breaking up of its commonwealth it might often appear to the conquering community advisable not to sell the mass of the burgesses formally as slaves, but
I Hahn’! plateau in clientele: prina'pum dercriptam. Cicero, 4': Rep. "- 9
political rights. 1
no
THE NON-BURGESSES AND BOOK r
to allow them the continued possession of freedom defacto, so that in the capacity as it were of freedmen of the com munity they entered into relations of clientship whether to the clans, or to the king. In the second place by means of the community and its power over the individual burgesses, there was given the possibility of protecting the clients against an abusive exercise of the domim'um still subsist
ing in law. At an immemorially early period there was
into Roman law the principle on which rested the whole legal position of the metoea', that, when a master on occasion of a public legal act—such as in the making of a testament, in an action at law, or in the census-expressly or tacitly surrendered his domim'um, neither he himself nor his lawful successors should ever have power arbitrarily to recall
introduced
or reassert a claim to the person of the freedman himself or of his descendants. The clients and their posterity did not by virtue of their position
possess either the rights of burgesses or those of guests : for to constitute a burgess a formal bestowal of the privilege was requisite on the part of the community, while the relation of guest presumed the holding of burgess-rights in a com munity which had a treaty with Rome. What they did obtain was a legally protected possession of freedom, while
they continued to be de jure non-free. Accordingly for a lengthened period their relations in all matters of property seem to have been, like those of slaves, regarded in law as relations of the patron, so that it was necessary that the latter should represent them in processes at law ; in connec tion with which the patron might levy contributions from them in case of need, and call them to account before
him criminally. By degrees, however, the body of metom'
that resignation
to acquire and to alienate in their own name, and to claim and obtain legal
outgrew
these fetters; they began
redress from the Roman burgess-tribunals formal intervention of their patron.
without the
. __. . r~m,__
CHAP- V! THE REFORMED CONSTITUTION
In matters of marriage and inheritance, equality of rights with the burgesses was far sooner conceded to foreigners (p. 50) than to those who were strictly non-free and belonged to no community; but the latter could not well be pro hibited from contracting marriages in their own circle and from forming the legal relations arising out of marriage those of marital and paternal power, of agnatia and gentilita: of heritage and of tutelage—after the model of the corre sponding relations among the burgesses.
Similar consequences to some extent were produced by the exercise of the £14s lwspilii, in so far as by virtue of it foreigners settled permanently in Rome and established a domestic position there. In this respect the most liberal principles must have prevailed in Rome from primitive times. The Roman law knew no distinctions of quality in inherit ance and no locking up of estates. It allowed on the one hand to every man capable of making a disposition the entirely unlimited disposal of his property during his lifetime ; and on the other hand, so far as we know, to every one who was at all entitled to have dealings with Roman burgesses, even to the foreigner and the client, the unlimited right of acquiring moveable, and (from the time when immoveables could be held as private property at all) within certain limits also immoveable, estate in Rome. Rome was in fact a commercial city, which was indebted for the commence ment of its importance to international commerce, and which with a noble liberality granted the privilege of settle ment to every child of an unequal marriage, to every manu mitted slave, and to every stranger who surrendering his rights in his native land emigrated to Rome.
At first, therefore, the burgesses were in reality the pro Class of
tectors, the non-burgesses were the protected ; but in Rome as in all communities which freely admit settlement but do not throw open the rights of citizenship, it soon became a matter of increasing difliculty to harmonize this relation de
metoeri subsisting by the side of the com munlty.
II2 THE NON-BURGESSES AND BOOK r
fun with the actual state of things. The flourishing of com merce, the full equality of private rights guaranteed to all Latins by the Latin league (including even the acquisition of landed property), the greater frequency of manumissions as prosperity increased, necessarily occasioned even in peace a disproportionate increase of the number of metoea'. That number was further augmented by the greater part of the population of the neighbouring towns subdued by force of arms and incorporated with Rome ; which, whether it removed to the city or remained in its old home now reduced to the rank of a village, ordinarily exchanged its native burgess-rights for those of a Roman metoikor. Moreover the burdens of war fell exclusively on the Old
and were constantly thinning the ranks of their patrician descendants, while the nm‘om' shared in the results of victory without having to pay for it with their blood.
Under such circumstances the only wonder is that the Roman patriciate did not disappear much more rapidly than it actually did. The fact of its still continuing for a pro longed period a numerous community can scarcely be accounted for by the bestowal of Roman burgess-rights on several distinguished foreign clans, which after emigrating from their homes or after the conquest of their cities received the Roman franchise—for such grants appear to have occurred but sparingly from the first, and to have become always the more rare as the franchise increased in value. A cause of greater influence, in all likelihood, was the introduction of the civil marriage, by which a child begotten of patrician parents living together as married persons, although without wnfarrealr'o, acquired full burgess-rights equally with the child of a confarreatio marriage. It is at least probable that the civil marriage, which already existed in Rome before the Twelve Tables but was certainly not an original institution, was introduced for the purpose of
burgesses
CHAP- vi THE REFORMED CONSTITUTION
the disappearance of the patriciate. 1 To this connection belong also the measures which were already in the earliest times adopted with a view to maintain a numerous posterity in the several households (p. 74).
Nevertheless the number of the metoeci was of necessity constantly on the increase and liable to no diminution, while that of the burgesses was at the utmost perhaps not decreasing; and in consequence the metom' necessarily acquired by imperceptible degrees another and a freer
The non-burgesses were no longer merely emancipated slaves or strangers needing protection; their ranks included the former burgesses of the Latin com munities vanquished in war, and more especially the Latin settlers who lived in Rome not by the favour of the king or of any other burgess, but by federal right. Legally un restricted in the acquiring of property, they gained money and estate in their new home, and bequeathed, like the
their homesteads to their children and children's children. The vexatious relation of dependence on particular burgess-households became gradually relaxed. Ifthe liberated slave or the immigrant stranger still held an entirely isolated position in the state, such was no longer the case with his children, still less with his grandchildren, and this very circumstance of itself rendered their relations to the patron of less moment. While in earlier times the client was exclusively left dependent for legal protection on the intervention of the patron, the more the state became
l The enactment: of the Twelve Tables respecting mus show clearly that they found the civil marriage already in existence. In like manner the high antiquity of the civil marriage is clearly evident from the fact that equally with the religious marriage, necessarily involved the marital power (p. 73), and only differed from the religious marriage as respected the manner in which that power was acquired. The religious marriage itself was held as the proprietary and legally necessary form of acquiring a wife whereas, in the case of civil marriage, one of the general forms of acquiring property used on other occasions—delivery on the part of a person entitled to give away, or prescription-was requisite in order to lay the foundation of a valid marital power.
vol.
preventing
position.
r13
burgesses,
; r
it,
at
"4
THE NON-BURGESSES AND BOOK 1
and the importance of the clanships and households in consequence diminished, the more frequently must the individual client have obtained justice and redress of injury, even without the intervention of his patron, from the king. A great number of the non-burgesses, particularly the members of the dissolved Latin communities, had, as we have already said, probably from the outset not any place as clients of the royal or other great clans, and
the king nearly in the same manner as did the
The king, whose sovereignty over the burgesses
consolidated
obeyed
burgesses.
was in truth ultimately dependent
on the good-will of must have welcomed the means of forming out of his own pratégés essentially dependent on him a
body bound to him by closer ties.
Thus there grew up by the side of the burgesses a
second community in Rome: out of the clients arose the Plebs. This change of name is significant. In law there
was no difference between the client and the plebeian, the “dependent” and the "man of the multitude ;” but in fact there was a very important one, for the former term brought
those obeying,
Pllhl
The Ser vian con stitution.
the relation of dependence on a member of the politically privileged class; the latter suggested
merely the want of political rights. As the feeling of special dependence diminished, that of political inferiority forced itself on the thoughts of the free mined; and it was only the sovereignty of the king ruling equally over all that prevented the outbreak of political conflict between the privileged and the non-privileged classes.
The first step, however, towards the amalgamation of the two portions of the people scarcely took place in the revolutionary way which their antagonism appeared to
into prominence
The reform of the constitution, which bears the name of king Servius Tullius, is indeed, as to its historical origin, involved in the same darkness with all the
events of a period respecting which we learn whatever we
foreshadow.
CHAP- vr THE REFORMED CONSTITUTION
J15
know not by means of historical tradition, but solely by means of inference from the institutions of later times. But its character testifies that it cannot have been a change demanded by the plebeians, for the new con stitution assigned to them duties alone, and not
rights. It must rather have owed its origin either to the wisdom
of one of the Roman kings, or to the urgency of the burgesses that they should be delivered from exclusive liability to burdens, and that the non-burgesses should be made to share on the one hand in taxation-that in the obligation to make advances to the state (the tributum)_ and rendering task-work, and on the other hand in the levy. Both were comprehended in the Servian constitution, but they hardly took place at the same time. The bringing in of the non-burgesses presumably arose out of the econo mic burdens; these were early extended to such as were “possessed of means” (lamp/em) or “settled people” (ad sidui, freeholders), and only those wholly without means, the “ children-producers ” (proletarii, capite (emf), remained free from them. Thereupon followed the politically more important step of bringing in the non-burgesses to military duty. This was thenceforth laid not upon the burgesses as
such, but upon the possessors of land, the trz'éules, whether they might be burgesses or mere metom'; service in the army was changed from personal burden into burden on property. The details of the arrangement were as follow.
Every freeholder from the eighteenth to the sixtieth The in year of his age, including children in the household of am freeholder fathers, without distinction of birth, was under obligation of service; so that even the manumitted slave
had to serve, in an exceptional case he had come
into possession of landed property. The Latins also possessing land-others from without were not allowed to
acquire Roman soil—were called in to service, so far as they
if
a
a
is,
Cavalry.
116 THE NON-BURGESSES AND BOOK I
had, as was beyond doubt the case with most of them, taken up their abode on Roman territory. The body of men liable to serve was distributed, according to the size of their portions of land, into those bound to full service or the possessors of a full hide,1 who were obliged to appear in complete armour and in so far formed pre-eminently the war army (clams), and the four following ranks of smaller land holders-the possessors respectively of three fourths, of a half, of a quarter, or of an eighth of a whole farm—from whom was required fulfilment of service, but not equipment in complete armour, and they thus had a position below the full rate (infra :lassem). As the land happened to be at that time apportioned, almost the half of the farms were full hides, while each of the classes possessing respectively three-fourths, the half, and the quarter of a hide, amounted
to scarcely an eighth of the freeholders, and those again holding an eighth of a hide amounted to fully an eighth. It was accordingly laid down as a rule that in the case of the infantry the levy should be in the proportion of eighty holders of a full hide, twenty from each of the three next ranks, and twenty-eight from the last.
The cavalry was similarly dealt with. The number of divisions in it was tripled, and the only difference in this case was that the six divisions already existing with the old names (Tities, Ranmes, Luau: primi and secundz') were left to the patricians, while the twelve new divisions were formed chiefly from the non-burgesses. The reason for this difference is probably to be sought in the fact that at that period the infantry were formed anew for each campaign and discharged on their return home, whereas the cavalry with their horses were on military grounds kept together also in time of peace, and held their regular drills, which continued to subsist as festivals of the Roman
1 [Hg/2, hide, as much as can be properly tilled with one plough, nlled in Scotland at plough-gate. )
can. V] THE REFORMED CONSTITUTION
n7
equites down to the latest times. 1 Accordingly the squadrons once constituted were allowed, even under this reform, to keep their ancient names. In order to make the cavalry accessible to every burgess, the unmarried women and orphans under age, so far as they had possession of land, were bound instead of personal service to provide the horses for particular troopers (each trooper had two of them), and to furnish them with fodder. On the whole there was one horseman to nine foot-soldiers; but in actual service the horsemen were used more sparingly.
The non-freeholders (adcensi, people standing at the side of the list of those owing military service) had to supply the army with workmen and musicians as well as with a number of substitutes who marched with the army unarmed (velati), and, when vacancies occurred in the field, took their places in the ranks equipped with the weapons of the sick or of the fallen. .
To facilitate the levying of the infantry, the city was lf'l-fll distributed into four “parts” (tribus) ; by which the old me“ triple division was superseded, at least so far as concerned
its local significance. These were the Palatine, which comprehended the height of that name along with the
Velia; the Suburan, to which the street so named, the Carinae, and the Caelian belonged; the Esquiline; and the Colline, formed by the Quirinal and Viminal, the “hills” as contrasted with the “mounts” of the Capitol and Palatine. We have already spoken of the formation of these regions 64), and shown how they originated out of the ancient double city of the Palatine and the
By what process came to pass that every freeholder burgess belonged to one of those city-districts, we cannot tell; but this was now the case; and that
For the same reason, when the levy was enlarged after the admission of the Hill-Romans. the equites were doubled, while in the infantry force instead of the single "gathering " (Iegia) two legions were called out
(9- lwf-l
Quirinal.
1
it
(p.
US THE NON-BURGESSES AND sooK r
the four regions were nearly on an equality in point of numbers, is evident from their being equally drawn upon in the levy. This division, which had primary reference to the soil alone and applied only inferentially to those who
was merely for administrative purposes, and in particular never had any religious significance attached to it; for the fact that in each of the city-districts there were six chapels of the enigmatical Argei no more confers upon them the character of ritual districts than the erection of an altar to the Lares in each street implies such character in the streets.
Each of these four levy-districts had to furnish approxi mately the fourth part not only of the force as whole, but of each of its military subdivisions, so that each legion and each century numbered an equal proportion of conscripts from each region, in order to merge all distinctions of a gentile and local nature in the one common levy of the community and, especially through the powerful levelling influence of the military spirit, to blend the metom' and the burgesses into one people.
possessed
In military point of view, the male population capable tion of the of bearing arms was divided into first and second levy, my. the former of which, the “juniors” from the commence
ment of the eighteenth to the completion of the forty-sixth year, were especially employed for service in the field, while the “seniors” guarded the walls at home. The military unit came to be in the infantry the now doubled legion (p. 9o)-a phalanx, arranged and armed completely in the old Doric style, of 6000 men who, six file deep, formed front of race heavy-armed soldiers; to which were attached 2400 “unarmed” (iv/elites, see 91, note). The four first ranks of the phalanx, the classis, were formed by the fully-armed hoplites of those possessing full hide; in the fifth and sixth were placed the less completely equipped farmers of the second and third division; the
Organiza
. . _». -—~
4_—_'- — A
p. a
a
a
a
a
a
it,
cuxr. v! THE REFORMED CONSTITUTION
119
two last divisions were annexed as rear ranks to the phalanx or fought by its side as light-armed troops. Provision was made for readily supplying the accidental gaps which were so injurious to the phalanx. Thus there served in it 84 centuries or 8400 men, of whom 6000 were hoplites, 4000 of the first division, 1000 from each of the two following, and 2400 light-armed, of whom I000 belonged to tne fourth, and 1200 to the fifth division; approximately each levy-district furnished to the phalanx 2100, and to each century 2 5 men. This phalanx was the army destined for the field, while a like force of troops was reckoned for the seniors who remained behind to defend the city. In this way the normal amount'of the infantry
came to 16,800 men, 80 centuries of the first division, 20 from each of the three following, and 28 from the last division—not taking into account the two centuries
of substitutes or those of the workmen or the musicians. To all these fell to be added the cavalry, which consisted of 1800 horse; often when the army took the field, however, only the third part of the whole number was attached to it. The normal amount of the Roman army of the first and second levy rose accordingly to close upon
20,000 men: which number must beyond doubt have corresponded on the whole to the effective strength of the Roman population capable of arms, as it stood at the time
this new organization was introduced. As the
when
population
augmented, but the several divisions were strengthened by persons added, without altogether losing sight, however, of the fundamental number. Indeed the Roman corporations in general, closed as to numbers, very frequently evaded the limit imposed upon them by admitting supernumerary members.
This new organization of the army was accompanied by on. . . a more careful supervision of landed property on the part
increased the number of centuries was not
Political effects of the Ser vian‘ mili tary or ganization.
I20 THE NON-BURGESSES AND BOOK t
of the state. It was now either ordained for the first time or, if not, at any rate defined more carefully, that a land register should be established, in which the several
of land should have their fields with all their appurtenances, servitudes, slaves, beasts of draught and of burden, duly recorded. Every act of alienation, which did not take place publicly and before witnesses, was declared null; and a revision of the register of landed
which was at the same time the levy-roll, was directed to be made every fourth year. The manaltatio and the cem-us thus arose out of the Servian military organization.
It is evident at a glance that this whole institution was from the outset of a military nature. In the whole detailed scheme we do not encounter a single feature suggestive of any destination of the centuries to other than purely military purposes; and this alone must, with every one accustomed to consider such matters, form a suflicient reason for pronouncing its application to political objects a later innovation. as probable, in the earliest period every one who had passed his sixtieth year was excluded from the centuries, this has no meaning, so far as they were intended from the first to form representation of the burgess-community similar to and parallel with the curies. Although, however, the organization of the centuries was introduced merely to enlarge the military resources of the burgesses the inclusion of the "mom' and, in so far, there no greater error than to exhibit the Servian organization as the introduction of timocracy in Rome-yet the new obligation imposed upon the inhabit ants to bear arms exercised in its consequences material influence on their political position. He who obliged to become soldier must also, so long as the state not rotten, have in his power to become an oflicer; beyond question plebeians also could now be nominated in Rome as centurions and as military tribunes. Although, more
proprietors
property,
it a
is a is
a
is
by
If, is
a
can. VI THE REFORMED CONSTITUTION 1:1
over, the institution of the centuries was not intended to curtail the political privileges exclusively possessed by the burgesses as hitherto represented in the curies, yet it was inevitable that those rights, which the burgesses hitherto had exercised not as the assembly of curies, but as the burgess-levy, should pass over to the new centuries of burgesses and metoea'. Henceforward, accordingly, it was the centuries whose consent the king had to ask before beginning an aggressive war (p. 96). It is important, on account of the subsequent course of development, to note these first steps towards the centuries taking part in public
affairs; but the centuries came to acquire such rights at_ first more in the way of natural sequence than of direct design, and subsequently to the Servian reform, as before, the assembly of the curies was regarded as the proper burgess-community, whose homage bound the whole people in allegiance to the king. By the side of these new land owning full-burgesses stood the domiciled foreigners from the allied Latium, as participating in the public burdens, tribute and task-works (hence mum'a'pes) ; while the burgesses not domiciled, who were beyond the pale of the tribes, and had not the right to serve in war and vote, came into view only as “owing tribute” (aenm'i).
In this way, while hitherto there had been distinguished only two classes of members of the community, burgesses and clients, there were now established those three political classes, which exercised a dominant influence over the constitutional law of Rome for many centuries.
When and how this new military organization of the
Time and
Roman community came into existence, can only be con occasion of . the reform.
jectured. It presupposes the existence of the four regions ; in other words, the Servian wall must have been erected before the reform took place. But the territory of the city must also have considerably exceeded its original limits, when it could furnish 8000 holders of full hides and as
I78.
Ill THE NON-BURGESSES AND BOOK I
many who held lesser portions, or sons of such holders. We are not acquainted with the superficial extent of the normal Roman farm; but it is not possible to estimate it as under twenty jug'era. l If we reckon as a minimum 10,000 full hides, this would imply a superficies of 190 square miles of arable land; and on this calculation, if we make a very moderate allowance for pasture, the space occupied by houses, and ground not capable of culture, the territory, at the period when this reform was carried out, must have had at least an extent of 420 square miles, probably an extent still more considerable. If we follow tradition, we must assume a number of 84,000 burgesses who were freeholders and capable of bearing arms; for such, we are told, were the numbers ascertained by Servius at the first census. A glance at the map, however, shows that this number must be fabulous ; it is not even a genuine tradition, but a conjectural calculation, by which the
16,800 capable of bearing arms who constituted the nonnal strength of the infantry appeared to yield, on an average of
five persons to each family, the number of 84,000 burgesses, and this number was confounded with that of those capable of bearing arms. But even according to the more moderate estimates laid down above, with a territory of some 16,000 hides containing a population
1 Even about 480, allotments of land of seven jugera appeared to those that received them small (Val. Max. iii. 3, 5; Colum. i. praef. 14; i. 3, 1r ; Plin. H. N. xviii. 3, 18 : fourteen jugera, Victor, 33 ; Plutarch, Apopltllt. Reg. :1 Imp. p. 235 Dtlbner, in accordance with which Plutarch. Crass. 2, is to be corrected).
A comparison of the Germanic proportions gives the same result. The jugerum and the merger: [nearly i of an English acre], both originally measures rather of labour than of surface, may be looked upon as originally identical. As the German hide consisted ordinarily of 30, but not unfrequently of 20 or 40 margen, and the homestead frequently, at least
among the Anglo-Saxons, amounted to a tenth of the hide, it will appear, taking into account the diversity of climate and the size of the Roman keredium of a jugera, that the hypothesis of a Roman hide of 20 jugem is not unsuitable to the circumstances of the case. It is to be regretted certainly that on this very point tradition leaves us without precise informa tion.
can. v1 THE REFORMED CONSTITUTION I23
of nearly 20,000 capable of bearing arms and at least three times that number of women, children, and old men, persons who had no land, and slaves, it is necessary to assume not merely that the region between the Tiber and Anio had been acquired, but that the Alban territory had also been conquered, before the Servian constitution was established; a result with which tradition agrees. What were the numerical proportions of patricians and plebeianl originally in the army, cannot be ascertained.
Upon the whole it is plain that this Servian institution did not originate in a conflict between the orders. On the contrary, it bears the stamp of a reforming legislator like the constitutions of Lycurgus, Solon, and Zaleucus ; and it has evidently been produced under Greek influence. Par ticular analogies may be deceptive, such as the coincidence noticed by the ancients that in Corinth also widows and orphans were charged with the provision of horses for the
. cavalry; but the adoption of the armour and arrangements of the Greek hoplite system was certainly no accidental coincidence.