In almost every city there were then two bishops, one representing the Empire, the other the Holy See, and each sought to increase the number of his followers for the purpose of overcoming and expelling his rival; hence innumerable concessions, privileges, and franchises were granted the citizens, until finally, when the struggle was brought to a close by the Concordat of Worms, in 1122, almost all the sovereign rights—the regalia—had passed into the hands of the people.
Not only were the bishops forced to yield but the Emperor himself, the Countess Matilda, and all the great lords were compelled to acquiesce in the movement which even extended to cities that were independent of any bishop.
Henceforth the cities governed themselves and elected their own chiefs or consuls. They, however, did not pretend to be wholly independent of the Empire but readily acknowledged themselves its feudatories. The movement spread throughout Italy, and many of the cities became so powerful that they compelled the feudal lords of the surrounding country to apply for citizenship and to agree to obey the communal statutes. These various elements introduced into the city soon occasioned discord and quarrels, in which bloodshed became frequent; in addition to this intestine warfare, the rivalry between the different communes resulted in continual strife among them.
For a time they were left to prey on each other; for, although they were feudatories of the Empire, the Emperors were unable to devote any attention to the affairs of Italy, Germany being torn asunder by the Guelphs, adherents of the house of Bavaria, and the Ghibellines, supporters of the house of Franconia.
The communal regime was an advance over the Feudal System, but it could not survive the internal and external quarrels; it soon began to show signs of weakness, and by the end of the century it was apparent that it was doomed. The majority of the people, interested in commerce and manufacturing, grew tired of the strife and were ready to welcome any strong power that would assume the leadership and put an end to the internal dissension and protect the city from attacks from without. As the commune was broken up into innumerable factions it was in a peculiarly suitable condition to be seized by any strong and daring adventurer who might aspire to the control, and when this man happened to be the head of the city government, the podestà or captain of the people, it was an easy step to the tyranny. During the later years of the communes the magistrates were usually selected from among the feudal families of the neighbourhood. They were accustomed to command and were supplied with arms, and in addition to their supporting faction in the city they had, in many cases, a large following of kinsmen and retainers on their neighbouring estates. Consequently nothing was easier than for them to seize the supreme power in the city, hold, and transmit it to their descendants.
Among the first families to secure and preserve this illegitimate power were the Della Scala, who appropriated Verona; the Este, who imposed themselves on Ferrara; the Medici, who secured the powerful commune of Florence; and the Gonzaga, who seized Mantua.
The vast multitude which came to Rome for the jubilee of 1300 inspired Boniface VIII. with dreams of empire, and a year later he published a bull in which he affirmed the absolute power of the Pope above all princes, kings, and emperors. This view was contested by Philippe le Bel of France, who was supported by the nobles, clergy, and people. Boniface retired to his city of Anagni to prepare a bull of excommunication, whereupon, acting in accord with Sciarra Colonna and other enemies of the Pope, Nogaret, Philippe’s minister, took possession of the town of Anagni and seized his Holiness, who was, however, liberated by the people a few days later. The Holy Father returned to Rome, where he died shortly afterwards (1303).
Two years later a Frenchman, Bertrand Got, Archbishop of Bordeaux, was elected Pope. He, however, did not go to Italy, but established the Papal See at Avignon, and the Popes finally placed themselves under the protection of the kings of France and their political authority rapidly declined.
During the succeeding two hundred years the tyrannies established on the ruins of the communes were growing stronger, and in many cities powerful dynasties had established themselves, handing the government down from father to son, or to the member of the clan best fitted to conserve the power, priority or legitimacy of birth having little to do with the succession, the possession of virtu, the characteristic most necessary for the preservation of self and family, determining the descent. Wherever the legitimate heir was found to be inferior, mentally or physically, to one of the bastards of the family, he was set aside for the latter.
The companies of paid soldiers now began to appear in Italy. These bands of mercenaries were captained by the so-called condottieri, and when the war for which they had been engaged was ended they were discharged like other wage-workers. Their leaders were bold and unscrupulous and had no personal interest at stake. This system gave rise to the gravest dangers to the peninsula; it brought into Italy swarms of worthless adventurers, who sold their services to any one able to pay for them and often they turned against their employer. They overran the country, robbing, murdering, debauching.