This agrarian law did not affect the existing rights of property and heritable possession. It destined for distribution only the Italian domain land, that is to say, merely the territory of Capua, as this was all that belonged to the state.[7] If this was not enough to satisfy the demand, other Italian lands were to be bought out of the revenue from the eastern provinces at the taxable value rated in the censorial rolls. The number of persons settled on the Campanus ager is said[8] to have been 20,000 citizens who had each three children or more. The land was not distributed by lot, but at the pleasure of the commissioners, each one receiving some 30 jugera.[9] If 20,000 heads of families with their wives and three children in each family were settled in Campania, the whole number of settlers would be 100,000. This great number could scarcely leave Rome at one time, and we find that as late as 51 the land was not all assigned.[10] While the tenor of the law does not imply that it was the intention to reward military service with grants of land, yet we may be sure that the veterans of Pompey were not forgotten.[11] There are no extant authorities which speak of the settlement of the Campanian land that say any thing about the soldiers settled there, unless it be Cicero. He speaks of the Campanian territory being taken out of the class that contributed a revenue to the state in order that it might be given to soldiers,[12] and he appears to refer to this time (59). Mommsen says that "the old soldiers as well as the temporary lessees to be ejected were simply recommended to the special consideration of the land distributors."[13] These latter were a commission of twenty appointed by the state. Cæsar, at his own request, was excused from serving, but Pompey and Crassus were the chief ones, thus furnishing sufficient reason for supposing that the soldier was provided for. The passage of this bill amounted in substance to the reëstablishment of the democratic colony founded by Marius and Cinna and afterwards abolished by Sulla.[14] Capua now became a Roman colony after having had no municipal constitution for one hundred and fifty-two years, when the city with all its dependencies was made a prefecture administered by a prefect of Rome. The revenues from this district were doubtless no longer needed, as those from Pontus and Syria[15] supplied all the needs of the government, but it is difficult to see what benefit could be reaped from the ejection of the thrifty farmers who, as tenants of the state, cultivated this territory and paid their rents regularly into the state coffers. Wherever the new settlers were brought in, the old cultivators were turned out. No ancient writer says anything about the condition of these people. Cicero, in his second speech upon the land bill of Rullus, when speaking of the consequences that would follow its enactment, declared that if the Campanian cultivators were ejected they would have no place to go, and he truly says that such a measure would not be a settlement of plebeians upon the land, but an ejection and expulsion of them from it.[16]

Did it pay to send out a swarm of 100,000 idle paupers[17] who, for two generations, had been fed at the public charge from the corn-bins of Rome, simply in order that a like number of honest peasants, who had been not only self-supporting but had paid a large part of the Roman revenue, should be compelled to sacrifice their goods in a glutted market and become debauched and idle?

[SEC. 18.]—DISTRIBUTION OF LAND AFTER THE CIVIL WAR BETWEEN CÆSAR AND POMPEY.

After Pompey had been vanquished at Pharsalia, and the republicans in Africa, Cæsar proceeded to distribute lands to his soldiers in accordance with his promise to give them lands, "not by taking them from their proprietors as Sulla did; not by mixing colonists with citizens despoiled of their goods and thus breeding perpetual strife,—but by dividing both public land and his own private property,[1] and, if this were not sufficient, by buying what was needed." Appian says that Caesar did not succeed in carrying out these promises in full, but that veterans were in some cases settled upon lands legally belonging to others.[2] However, his soldiers were not huddled together like those of Sulla, in military colonies of their own, but when they settled in Italy they were scattered[3] as much as possible throughout the entire peninsula in order to make them more easily amenable to the laws.[4] In Campania, where Cæsar had lands at his disposal, the soldiers were settled in colonies, and so, close together. According to a letter of Cicero to Paetus, among the lands distributed were those of Veii and Capena. Historians have estimated that there were 100,000 soldiers who received lands in Italy by this distribution.

[SEC. 19.]—DISTRIBUTIONS FROM THE DEATH OF CÆSAR TO THE TIME OF AUGUSTUS.

The [death of Cæsar] in no way stopped the assignment of lands, but rather rendered all possession of land in Italy unsafe. A few weeks after his death two new laws were promulgated, one by the tribune, Lucius Antonius,[1] a lex agraria, and the other the lex de colonis in agros deducendis by the consul Marcus Antonius. The first was enacted on the 5th of June,[2] and ordered that all the ager publicus still at the disposal of the state, including the Pomptine marshes which Cæsar had at one time planned to drain, but had not, be divided among the veterans and citizens. It was abrogated by a senatus consultum of the 4th of January, 43,[3] but was nevertheless carried into execution almost immediately with great relentlessness towards the enemies[4] of Antonius. The second, the Lex Antonia, perished in April of 44, and had as a result the establishment of a colony near Casilinum,[5] which Cæsar had already colonized; the remainder of the domain lands, the ager Campanus and ager Leontinus, was converted into a reward for the supporters of Antonius.[6] This was also set aside by the new law of the consul C. Vibius Pansa, in February, 43.[7]

[Second Triumvirate]. When Antony, Lepidus, and Octavius were reconciled, thus forming the second triumvirate, the treaty sanctioning this new state of affairs stipulated, in favor of the soldiers, a new distribution of lands, i.e., a new agrarian law; Appian says:—"In order to increase the zeal of the army, the triumvirs promised to the soldiers, independent[8] of other results of victory and a gratuity of colonies, 18 Italian towns, important by means of their wealth and the richness of their lands. These were divided among the soldiers with their lands and buildings, as conquered towns. Among the number were Capua, Rhegium, Venusia, Beneventum, Nuceria and Vibo. Thus the most beautiful part of Italy became the prey of the soldiers."

Dion Cassius, Suetonius and Velleius Paterculus all mention these assignments. After the battle of Philippi and the defeat and death of Brutus and Cassius, 170,000 men were provided for, in accordance with these promises, out of the goods of the proscribed and the lands confiscated to the state. The lands of the towns mentioned in Appian were taken under the form of a forced sale, but the purchase money was never paid owing to the bankrupt condition of the treasury.