Statue of Augustus in the Vatican
The whole body of the population then remaining (some 1,200,000 souls) consisted of the free inhabitants of the metropolis, most of whom lived from hand to mouth without any definite means of support. Of these a large proportion were aliens and freedmen. Almost the only occupations open to them were retail trading and traffic in the necessaries of daily life, or posts as subordinate clerks and officials; for most trades and manufactures were carried on by slaves for their masters’ profit, while wholesale trade and financial affairs were almost entirely in the hands of knights and revenue farmers, who frequently took up their abode in the large provincial cities for this purpose. Consequently, great as were the riches which poured into the metropolis every year from all quarters under heaven, there was no well-to-do middle class, the groundwork of every healthy political society; the influx of wealth only increased the luxuries and enjoyments of the aristocratic class, the gulf between the senatorial and knightly nobility and the populace of the capital was nowhere bridged over, nor was there any transition or compromise between the palaces of ostentatious and gormandising luxury and the hovels of the poverty-stricken and starving masses.
The dying republic had suffered under this incongruity, and whatever efforts Augustus might make to mitigate the evil, it was too deep-seated to be radically cured. The number of citizens who had to be maintained by regular donations of provisions from the public storehouses and by charitable gifts amounted to half a million, and yet this aid was but an inadequate makeshift; many of those disqualified to receive it were in no better case. There were thousands of free Romans who had no shelter but the public halls and colonnades of the temples, whose hopes were set upon the luck of the next minute, whose cares did not extend beyond the coming morrow.
The distress was the less capable of remedy because, under the most galling circumstances, the free Roman cherished the proud consciousness that he was a member of the ruling race, and was withheld by his innate pride of nationality and hereditary prejudice from the humble tasks which furnished the alien, the freedman, and the slave with a tolerable livelihood and occasionally with wealth. He felt it less disgraceful to starve or live upon alms and gifts than to labour with his hands; he scorned the physical toils of agriculture and handicraft, and the trouble of serving another; but he had no scruples about begging for his living, and regarded the distributions of corn and the popular entertainments as no more than his due. The free beggar looked haughtily upon the bedizened slave, whose alms he took as he would have taken the fruit of the woodland tree or the draught from a spring. The easy life of the capital attracted needy and indolent persons from all parts of Italy to Rome, the city swarmed with beggars and vagrants, with idlers and proletarians, who all claimed their maintenance from the state.
Augustus, like Cæsar before him, strove to remedy these evils to the best of his power. To reduce the hungry rabble in the capital he devised methods of emigration to the colonies and established settlements on property purchased out of the public funds; he restricted the number of recipients of corn by a careful scrutiny of the material circumstances of the applicants and by the exclusion of all aliens, non-citizens, and abusers of the public bounty. But all these restrictions were palliatives merely; the sources of misery were not stopped. The provisioning of the capital with cheap corn was one of the most onerous duties of the government. That he might more directly control the regular supply from the “grain provinces” of Sicily, Africa, and Egypt, Augustus caused the office of “cereal prefect,” which Pompey had once held, to be conferred upon himself, and then appointed a permanent bureau to manage and superintend the importation of corn, the markets, and the public storehouses from which the indigent populace monthly drew their fixed allowance on presentation of a counter. In times of scarcity and want, such as not unfrequently occurred, the distributions were made on a larger scale, and every joyful or propitious event was a welcome opportunity for the emperor to purchase the favour of the populace with gifts and pecuniary donations.
Augustus devoted the same attention to other parts of the Italian peninsula. He endeavoured to recover waste districts for agriculture and industry by establishing settlements, and made use of rewards and privileges as inducements and incitements to energy. He cleared the country of robber bands by squadrons and armed watchmen, protected the coast towns from pirates, and by a careful examination of slave-tenements (ergastula) set at liberty all freeborn persons who had been kidnapped and sold into slavery by these roving gangs. With the establishment of the monarchy, Italy, like the provinces, entered upon a new life, and there also the restoration of security and order brought vigour and prosperity into being. The twenty-eight colonies which Augustus peopled, partly with veterans, and partly with Roman and Italian settlers of the poorer class, were furnished with a suitable legal and political status. Their municipal constitution was modelled on that of Rome, and served in its turn as a model for the other municipia and prefectures of the peninsula. Beside their local rights of citizenship they all possessed the civitas or freedom of Rome; they all had the right of electing their officers and chief magistrates (decuriones) in the assembly of the people, the autonomous administration of communal property, freedom of worship according to their hereditary ritual and solemnities, and their own judicature according to Roman law; and any burgess removing to Rome ranked in all things on the same footing as the old freemen of the capital. The differences of legal status which at first prevailed gradually disappeared under the empire; all provincial towns occupied the same relative position towards the capital, and approximated to each other by degrees in their individual organisation and administration.
Everywhere we come upon a college of decuriones or civic magistrates,—composed of a greater or lesser number of members elected from among the wealthiest citizens or supplemented from the government departments of the city,—which gradually absorbed all authority and constituted the supreme governing body of the municipium, under the presidency of two or four chief magistrates (duumviri or quatuorviri). In the prefecture cities the control of the administration and judicature was vested in a prefect annually appointed by Rome, under whom a number of elective municipal officers managed the current affairs of the city. The magistracies of all provincial towns were modelled, both as to titles and departments, upon those of the capital. The heads of the decuriones exercised jointly the functions of consuls and prætors, and were attended in public by lictors with fasces; the public revenue and expenditure was controlled by quæstors, ædiles superintended the markets and retail trades and were responsible for the town police; censors kept the lists of burgesses and the census records. In questions of criminal law, however, the decisive sentence was usually pronounced at Rome. The imperial court of appeal was the court of highest instance for the whole empire. In upper Italy, which Cæsar had been the first to transfer from the position of a province to that of an integral part of the Roman state and jurisdiction, the administration of justice in civil affairs—left in older municipalities to the municipal courts—was subject to considerable restriction.
The rigid rule of the monarchy and the exact organisation and strict supervision of the municipal authorities obviated the danger of revolts and serious disturbances among the populace, and Italy (the capital and its vicinity only excepted) was clear of garrisons. The naval forces stationed at Ravenna and Misenum served to protect the coast and maritime towns, and in the hour of danger a sufficient army could always be summoned from Dalmatia and Pannonia. The imperial guard of prætorians (of which three cohorts consisting of one thousand men apiece were quartered in Rome, and the other six in the neighbouring towns) was mainly composed of Italians. It shared with a German and Batavian troop of horse the duty of guarding the palace and the sacred person of the monarch.
It is in the nature of every monarchical system of government to bring all conditions into congruity, to smooth over the diversities which prevail among its subjects, and to impress the stamp of uniformity upon the whole state. This was the case in the organisation of both provinces and municipalities, for in spite of modifications of legal status they were all cut upon the same pattern and organised according to definite classes. The same thing took place in financial affairs and taxation. During the republican period Rome and Italy had enjoyed a privileged position, and foreign countries had been exploited for the advantage of the dominant race. The principate, on the contrary, endeavoured to bring about an equalisation of duties and contributions as well as of privileges. The customs dues, which formerly applied only to subject countries, were extended to Italy under the monarchy, part of the proceeds being allotted to the public revenue and part to the Italian municipalities; the property tax, from which Italy had been exempt in the later days of the republic, was likewise introduced throughout the empire on the basis of the census or rating of property; an excise duty was levied for the fiscus (imperial privy purse) upon all articles imported into Italy for sale, amounting to one per cent. of the price, and two or even four per cent. in the case of slaves; the twentieth part of every inheritance which did not fall by right to the next of kin had to be paid into the military treasury, and a tax was imposed on the manumission of slaves.
If the revenues of the state were increased by these means under the empire the improvement was mainly due to sounder financial administration, to the abolition of revenue farming for the regular land tax and property tax in subject countries, and to the strict control exercised over the tax-gatherers; and according to Gibbon’s estimate the annual revenue secured must have amounted to at least fifteen to twenty million pounds sterling [$75,000,000 to $100,000,000]. Even if five million pounds were spent on the army and navy, if the distributions of corn to the poor of the city swallowed a few millions more, and the salaries of the imperial officials in Rome and the provinces and the police expenditure disposed of no inconsiderable sum, the surplus was none the less sufficient to provide for the erection of magnificent buildings, to cover the empire with a network of highroads, to satisfy the popular love of spectacles by gorgeous entertainments, and to rejoice the hearts of citizens and soldiers with gifts and feasts.