SPQR

Second, the Romans did not plan to conquer and control Italy. No Roman cabal in the fourth century BCE sat down with a map, plotting a land grab in the territorial way that we associate with imperialist nation-states in the nineteenth and twentieth centuries. For a start, simple as it sounds, they had no maps. What this implies for how they, or any other ‘precartographic’ people, conceived the world around them, or just over their horizons, is one of history’s great mysteries. I have tended to write of the spread of Roman power through the peninsula of Italy, but no one knows how many – or, realistically, how few – Romans at this date thought of their homeland as part of a peninsula in the way we picture it. A rudimentary version of the idea is perhaps implied by references in literature of the second century BCE to the Adriatic as the Upper Sea and the Tyrrhenian as the Lower Sea, but notably this is on a different orientation from ours, east–west rather than north–south.
These Romans saw their expansion more in terms of changing relationships with other peoples than in terms of control of territory. Of course, Rome’s growing power did dramatically transform the landscape of Italy. There was little that was more obviously transformative than a brand-new Roman road striking out across empty fields, or land being annexed and divided up among new settlers. It continues to be convenient to measure Roman power in Italy in terms of geographical area. Yet Roman dominion was primarily over people, not places. As Livy saw, the relations that the Romans formed with those people were the key to the dynamics of early Roman expansion.
There was one obligation that the Romans imposed on all those who came under their control: namely, to provide troops for the Roman armies. In fact, for most of those who were defeated by Rome and forced, or welcomed, into some form of ‘alliance’, the only long-term obligation seems to have been the provision and upkeep of soldiers. These peoples were not taken over by Rome in any other way; they had no Roman occupying forces or Roman-imposed government. Why this form of control was chosen is impossible to know. But it is unlikely that any particularly sophisticated, strategic calculation was involved. It was an imposition that conveniently demonstrated Roman dominance while requiring few Roman administrative structures or spare manpower to manage. The troops that the allies contributed were raised, equipped and in part commanded by the locals. Taxation in any other form would have been much more labour-intensive for the Romans; direct control of those they had defeated would have been even more so.
The results may well have been unintended, but they were ground-breaking. For this system of alliances became an effective mechanism for converting Rome’s defeated enemies into part of its growing military machine; and at the same time it gave those allies a stake in the Roman enterprise, thanks to the booty and glory that were shared in the event of victory. Once the Romans’ military success started, they managed to make it self-sustaining, in a way that no other ancient city had ever systematically done. For the single most significant factor behind victory at this period was not tactics, equipment, skill or motivation. It was how many men you could deploy. By the end of the fourth century BCE, the Romans had probably not far short of half a million troops available (compare the 50,000 or so soldiers under Alexander in his eastern campaigns, or perhaps 100,000 when the Persians invaded Greece in 481 BCE). This made them close to invincible in Italy: they might lose a battle, but not a war. Or as one Roman poet put it in the 130s BCE, ‘The Roman people has often been defeated by force and overcome in many battles, but never in an actual war on which everything depends.’
There were, however, other far-reaching implications of the way the Romans defined their relations with other peoples in Italy. The ‘allies’, who were committed to no more than supplying manpower, were the most numerous, but they were only one of the categories concerned. To some communities over wide areas in central Italy, the Romans extended Roman citizenship. Sometimes this involved full citizen rights and privileges, including the right to vote or stand in Roman elections while also continuing to be a citizen of a local town. In other cases they offered a more limited form of rights that came to be known (self-explanatorily) as ‘citizenship without the vote’, or civitas sine suffragio. There were also people who lived on conquered territories in settlements known as colonies (coloniae). These had nothing to do with colonies in the modern sense of the word but were new (or expanded) towns usually made up of a mixture of locals and settlers from Rome. A few had full Roman citizenship status. Most had what was known as Latin rights. That was not citizenship as such but a package of rights believed to have been shared since time immemorial by the Latin towns, later formally defined as intermarriage with Romans, mutual rights to make contracts, free movement and so on. It was a halfway house between having full citizenship and being a foreigner, or hostis.
How this complicated mosaic of statuses had originated is again hard to know. Roman writers of the first century BCE, followed by modern legal scholars, tended to treat them as part of a highly technical, carefully calibrated system of civic rights and responsibilities. But that is almost certainly the product of later legal rationalisation. It is inconceivable that the men of the fourth century BCE sat down to debate the precise implications of civitas sine suffragio or the exact privileges that went with belonging to a ‘Latin’ colony. Much more likely, they were improvising their new relationships with different peoples in the outside world by using, and adjusting, their existing, rudimentary categories of citizenship and ethnicity.
The implications, however, were again revolutionary. In extending citizenship to people who had no direct territorial connections with the city of Rome, they broke the link, which most people in the classical world took for granted, between citizenship and a single city. In a systematic way that was then unparalleled, they made it possible not just to become Roman but also to be a citizen of two places at once: one’s home town and Rome. And in creating new Latin colonies all over Italy, they redefined the word ‘Latin’ so that it was no longer an ethnic identity but a political status unrelated to race or geography. This set the stage for a model of citizenship and ‘belonging’ that had enormous significance for Roman ideas of government, political rights, ethnicity and ‘nationhood’. This model was shortly extended overseas and eventually underpinned the Roman Empire.