The Outline of History: Being a Plain History of Life and Mankind

by H. G. Wells

This extraordinary political growth was manifestly the precursor of all modern states of the western type. It is as interesting to the political student, therefore, as a carboniferous amphibian or an archæopteryx to the student of zoological development. It is the primitive type of the now dominant order. Its experiences throw light upon all subsequent political history.

One natural result of this growth of a democracy of hundreds of thousands of citizens scattered over the greater part of Italy was the growth in power of the Senate. There had been in the development of the Roman constitution a variety of forms of the popular assembly, the plebeian assembly, the assembly by tribes, the assembly by centuries, and the like, into which variety we cannot enter here with any fullness; but the idea was established that with the popular assembly lay the power of initiating laws. It is to be noted that there was a sort of parallel government in this system. The assembly by tribes or by centuries was an assembly of the whole citizen body, patrician and plebeian together; the assembly of the plebeians was of course an assembly only of the plebeian class. Each assembly had its own officials; the former, the consuls, etc.; the latter, the tribunes. While Rome was a little state, twenty miles square, it was possible to assemble something like a representative gathering of the people, but it will be manifest that with the means of communication existing in Italy at that time, it was now impossible for the great bulk of the citizens even to keep themselves informed of what was going on at Rome, much less to take any effective part in political life there. Aristotle in his Politics had already pointed out the virtual disenfranchisement of voters who lived out of the city and were preoccupied with agricultural pursuits, and this sort of disenfranchisement by mechanical difficulties applied to the vast majority of Roman citizens. With the growth of Rome an unanticipated weakness crept into political life through these causes, and the popular assembly became more and more a gathering of political hacks and the city riffraff, and less and less a representation of the ordinary worthy citizens. The popular assembly came nearest to power and dignity in the fourth century B.C. From that period it steadily declined in influence, and the new Senate, which was no longer a patrician body, with a homogeneous and on the whole a noble tradition, but a body of rich men, ex-magistrates, powerful officials, bold adventurers, and the like, pervaded by a strong disposition to return to the idea of hereditary qualification, became for three centuries the ruling power in the Roman world.

There are two devices since known to the world which might have enabled the popular government of Rome to go on developing beyond its climax in the days of Appius Claudius the Censor, at the close of the fourth century B.C., but neither of them occurred to the Roman mind. The first of these devices was a proper use of print. In our account of early Alexandria we have already remarked upon the strange fact that printed books did not come into the world in the fourth or third century B.C. This account of Roman affairs forces us to repeat that remark. To the modern mind it is clear that a widespread popular government demands, as a necessary condition for health, a steady supply of correct information upon public affairs to all the citizens and a maintenance of interest. The popular governments in the modern states that have sprung up on either side of the Atlantic during the last two centuries have been possible only through the more or less honest and thorough ventilation of public affairs through the press. But in Italy the only way in which the government at Rome could communicate with any body of its citizens elsewhere was by the antiquated device of sending a herald, and with the individual citizen it could hold no communication by any means at all.

The second device, for which the English are chiefly responsible in the history of mankind, which the Romans never used, was the almost equally obvious one of representative government. For the old Popular Assembly (in its threefold form) it would have been possible to have substituted a gathering of delegates. Later on in history, the English did, as the state grew, realize this necessity. Certain men, the Knights of the Shire, were called up to Westminster to speak and vote for local feeling, and were more or less formally elected for that end. The Roman situation seems to a modern mind to have called aloud for such a modification. It was never made.[234]

The method of assembling the comitia tributa[235] (one of the three main forms of the Popular Assembly) was by the proclamation of a herald, who was necessarily inaudible to most of Italy, seventeen days before the date of the gathering. The augurs, the priests of divination whom Rome had inherited from the Etruscans, examined the entrails of sacrificial beasts on the night before the actual assembly, and if they thought fit to say that these gory portents were unfavourable, the comitia tributa dispersed. But if the augurs reported that the livers were propitious, there was a great blowing of horns from the Capitol and from the walls of the city, and the assembly went on. It was held in the open air, either in the little Forum beneath the Capitol or in a still smaller recess opening out of the Forum, or in the military exercising ground, the Campus Martius, now the most crowded part of modern Rome, but then an open space. Business began at dawn with prayer. There were no seats, and this probably helped to reconcile the citizen to the rule that everything ended at sunset.

After the opening prayer came a discussion of the measures to be considered by the assembly, and the proposals before the meeting were read out. Is it not astonishing that there were no printed copies distributed? If any copies were handed about, they must have been in manuscript, and each copy must have been liable to errors and deliberate falsification. No questions seem to have been allowed, but private individuals might address the gathering with the permission of the presiding magistrate.

The multitude then proceeded to go into enclosures like cattle-pens according to their tribes, and each tribe voted upon the measure under consideration. The decision was then taken not by the majority of the citizens, but by the majority of tribes, and it was announced by the heralds.

The Popular Assembly by centuries, comitia centuriata, was very similar in its character, except that instead of thirty-five tribes there were, in the third century B.C., 373 centuries, and there was a sacrifice as well as prayer to begin with. The centuries, originally military (like the “hundreds” of primitive English local government), had long since lost any connection with the number one hundred. Some contained only a few people; some very many. There were eighteen centuries of knights (equites), who were originally men in a position to maintain a horse and serve in the cavalry, though later the Roman knighthood, like knighthood in England, became a vulgar distinction of no military, mental, or moral significance. (These equites became a very important class as Rome traded and grew rich; for a time they were the real moving class in the community. There was as little chivalry left among them at last as there is in the “honours list” knights of England of to-day. The senators from about 200 B.C. were excluded from trade. The equites became, therefore, the great business men, negotiatores, and as publicani they farmed the taxes.) There were, in addition, eighty (!) centuries of wealthy men (worth over 100,000 asses), twenty-two of men worth over 75,000 asses, and so on. There were two centuries each of mechanics and musicians, and the proletarii made up one century. The decision in the comitia centuriata was by the majority of centuries.

Is it any wonder that with the growth of the Roman state and the complication of its business, power shifted back from such a Popular Assembly to the Senate, which was a comparatively compact body varying between three hundred as a minimum, and, at the utmost, nine hundred members (to which it was raised by Cæsar), men who had to do with affairs and big business, who knew each other more or less, and had a tradition of government and policy? The power of nominating and calling up the senators vested in the Republic first with the consuls, and when, some time after, “censors” were created, and many of the powers of the consuls had been transferred to them, they were also given this power. Appius Claudius, one of the first of the censors to exercise it, enrolled freedmen in the tribes and called sons of freedmen to the Senate. But this was a shocking arrangement to the conservative instincts of the time; the consuls would not recognize his Senate, and the next censors (304 B.C.) set aside his invitations. His attempt, however, serves to show how far the Senate had progressed from its original condition as a purely patrician body. Like the contemporary British House of Lords, it had become a gathering of big business men, energetic politicians, successful adventurers, great landowners, and the like; its patrician dignity was a picturesque sham; but, unlike the British House of Lords, it was unchecked legally by anything but the inefficient Popular Assembly we have already described, and by the tribunes elected by the plebeian assembly. Its legal control over the consuls and proconsuls was not great; it had little executive power; but in its prestige and experience lay its strength and influence. The interests of its members were naturally antagonistic to the interests of the general body of citizens, but for some generations that great mass of ordinary men was impotent to express its dissent from the proceedings of this oligarchy. Direct popular government of a state larger than a city state had already failed therefore in Italy, because as yet there was no public education, no press, and no representative system; it had failed through these mere mechanical difficulties, before the first Punic War. But its appearance is of enormous interest, as the first appearance of a set of problems with which the whole political intelligence of the world wrestles at the present time.