Characters and events of Roman History

by Guglielmo Ferrero

For the past century, the vastness and power of the administration that governed the Empire has been greatly admired. Without discussing many things possible on this point, it must be observed that this judgment does not apply to the times of Augustus and Tiberius, because then this administration did not exist. During the first fifty years of the Empire, the provinces were all governed, as under the Republic, by proconsuls or proprætors, each accompanied by a quæstor, a few subordinate officials, freedmen, friends, and slaves. A few dozen of men governed the provinces, as vast as states. Augustus added to this rudimentary administration but one organ, the procurator, chosen from freedmen or knights, charged with overseeing the collection of tribute and expenses; that is, caring for the interests, not of the provinces, but of Rome. Consequently, the government was weak and inactive in all the provinces.

Whoever fancies the government of Rome modelled after the type of modern governments, invading, omnipotent, omnipresent, deceives himself. There were sent into the provinces nobles belonging to rich and noted families, who had therefore no need to rob the subjects too much; and these men ruled, making use of the laws, customs, institutions, families of nobles, of each place, exactly as England now does in many parts of its Empire. As in general these governors were not possessed of any great activity, they did not meddle much in the internal affairs of the subject peoples. To preserve the unity of the Empire and the supremacy of Italy against all enemies, within and without; to exploit reasonably this supremacy; for the rest, to let every people live as best pleased it: such was the policy of Augustus and of Tiberius, the policy of the first century A.D. In short, this was but the idea of the old aristocratic party, adapted to the new times.

So the Roman Government gave itself little concern at this time for the provinces, nor did it build in them any considerable public work. It did not construct roads, nor canals, nor harbours, except when they were necessary to the metropolis; for example, Agrippa made the network of Gallic roads; Augustus opened the first three great highways that crossed the Alps. It would be a mistake to suppose that these important constructions were designed to favour the progress of Gallic commerce; they were strategic highways made to defend the Rhine. As gradually Gaul grew rich, Rome had to recognise that the weak garrisons, set apart in the year 27 for the defence of the Rhine and the Danube, were insufficient. It would have been necessary to increase the army, but the finances were in bad condition. Augustus then thought to base defence on the principle that the immense frontiers could not all be assailed at the same time, and therefore he constructed some great military roads across the Alps and Gaul, to be able to collect the soldiery rapidly from all parts of the Empire at any point menaced, on the Rhine or on the Danube.

The imperial policy of Augustus and that of Tiberius, who applied the same principles with still greater vigour, was above all a negative policy. Accordingly, it could please only those denying as useful to progress another kind of men, the great agitators of the masses. Shall we therefore conclude that Augustus and Tiberius were useless? So doing, we should run the risk of misunderstanding all the history of the Roman conquest. By merely comprehending the value of the apparent inactivity of Augustus and Tiberius, one can understand the essence of the policy of world expansion initiated by the Roman aristocracy after the Second Punic War. At the beginning, this policy was pre-eminently destructive. Everywhere Rome either destroyed or weakened, not nations or peoples, but republics, monarchies, theocracies, principalities—that is, the political superstructures that framed the different states, great or small; everywhere it put in place of these superstructures the weak authority of its governors, of the Senate, of its own prestige; everywhere it left intact or gave greater freedom to the elementary forms of human association, the family, the tribe, the city.

So for two centuries Rome continued in Orient and Occident to suppress bureaucracies, to dismiss or reduce armies, to close royal palaces, to limit the power of priestly castes or republican oligarchies, substituting for all these complicated organisations a proconsul with some dozens of vicegerent secretaries and attendants. The last enterprise of this policy, which I should be tempted to call "state-devouring," was the destruction of the dynasty of the Ptolemies, in Egypt. Without doubt, the suppression of so many states, continued for two centuries, could not be accomplished without terrible upheavals. It would be useless to repaint here the grim picture of the last century of the Republic; sufficient to say, the grandiosity of this convulsion has hindered most people from seeing that the state-devouring policy of Rome included in itself, by the side of the forces of dissolution, beneficent, creative forces, able to bring about a new birth. If this policy had not degenerated into an unbridled sacking, it could have effectuated everywhere notable economies in the expenses of government that were borne by the poorer classes, suppressing as it did so many armies, courts, bureaucracies, wars. It is clear that Rome would have been able to gather in on all sides, especially in the Orient, considerable tribute, merely by taking from the various peoples much less than the cost of their preceding monarchies and continuous wars. Moreover, Rome established with the conquests throughout the immense Empire what we would call a régime of free exchange; made neighbours of territories formerly separated by constant wars, unsafe communication, and international anarchy; and rendered possible the opening up of mines and forests hitherto inaccessible.

The apparent inactivity of Augustus and Tiberius was simply the ultimate and most beneficent phase of the state-devouring policy of Rome, that in which, the destructive forces exhausted, the creative forces began to act. Augustus and Tiberius only prolonged indefinitely by means of expedients that mediocre order and that partial tranquillity re-established after Actium by the general weariness; but exactly for this reason were they so useful to the world. In this peace, in this mediocre order, the policy of expansion of Rome, finally rid of all the destructive forces, matured all the benefits inherent within it. Finally, after a frightful crisis, the world was able to enjoy a liberty and an autonomy such as it had never previously enjoyed and which perhaps it will never again in an equal degree of civilisation and in so great an extension.

The Empire then covered Spain, France, Belgium, a part of Germany and Austria, Switzerland and Italy, the Balkanic countries, Greece, Asia Minor, Syria, Palestine, a part of Arabia, Egypt, and all northern Africa. I do not believe that the political personnel that made up the central government of this enormous Empire ever comprised more than 2000 men. The army charged with defending so many territories numbered about 200,000 men—fewer than the present army of Italy alone. The effects of this order of things were soon to be seen; in all the Mediterranean basin there began a rapid and universal economic expansion, which, on a smaller scale, might remind one of what Europe and America have seen in the nineteenth century. New lands were cultivated, new mines opened, new wares manufactured, exports sent into regions formerly closed or unknown; and every new source of wealth, creating new riches, made labour and commerce progress.

Foremost among all nations of the Empire, at the centre, Italy rapidly consolidated its fortune and its domination. After the mad plundering of the times of Cæsar, followed methodical exploiting. Italy attracted to itself by the power of political leadership the precious metals and wares of luxury from every part of the Empire; the largest quantity of these things passed through Rome, before being scattered throughout the peninsula in exchange for the agricultural and industrial products of Italy, consumed in the capital. Consequently the middle classes and many cities grew rich, especially the cities of the Campania, Pompeii, Herculaneum, Naples, Pozzuoli, through which passed all the trade between Italy and Egypt. In addition, Italy found an abundant source of income in the exportation of wine and oil.

In short, having at last emerged from revolution, the peoples of Italy rallied around Rome and the imperial power, united and relatively content. At the same time, the provinces began among themselves, about Italy, a great interchange of merchandise, men, ideas, customs, across the Mediterranean. Rome and Italy were invaded by a crowd of Orientals, slaves, freedmen, merchants, artisans, litterati, artists, acrobats, poets, adventurers; and contemporaneously with Rome and Italy, the agricultural provinces of the West, especially those along the Danube. Rome did not conquer the barbarous provinces of Europe for itself alone; it conquered them also for the East, which, in Mesia, Dalmatia, Pannonia, among those barbarians growing civilised and eager to live in cities, found customers for their industries in articles of luxury, for their artists, teachers of literature, and propagandists of religion.

We are therefore able to explain to ourselves why, beginning from the time of Augustus, all the industrial cities of the Orient—Pergamon, Laodicea, Ephesus, Ierapolis, Tyre, Sidon, Alexandria—entered upon an era of new and refulgent prosperity. Finally, we add the singular enriching of two nations, whose names return anew united for the last time, Egypt and Gaul. To all the numerous sources of Gallic wealth there is to be added yet another, the importance of which is easier to understand after what I have said on the development of the Empire. Pliny tells us that all Gaul wove linen sails. The progress of navigation, a consequence of the progress of commerce, much increased the demand for linen sail-cloth, something that explains the spread of flax cultivation in Gaul and the profit derived from it.