The Historians' History of the World 06

Full rights of citizenship were also bestowed on the peregrine soldiers when they entered the oriental legions, and on the Vigiles at Rome, and the soldiers of the fleet and auxiliary forces on their discharge. But from the reign of Antoninus Pius onwards this important privilege was not accorded, as before, to the children of these soldiers, but churlishly confined, with few exceptions, to the men themselves; and the bestowal consequently lost its virtue as an agency for the assimilation of the population of the empire; and when, two hundred years after the death of Augustus, the son of the emperor Septimius Severus, who himself had broken with all the national traditions of Rome, granted Roman citizenship to all subjects of the empire, as we are informed (though by authorities which greatly exaggerate the scope of the measure), it was no longer felt as a political privilege but as the outcome of a greedy financial policy.

REFORMS OF AUGUSTUS

The reorganisation of the government by Augustus, open to criticism as it is in many respects, was a blessing to the Roman Empire. The view which prevailed under the republic, that the provinces had been conquered only to be sucked dry by senators and knights, governors and tax-farmers, in league or in rivalry of greed (we have one example out of hundreds in Verres, condemned to immortality by the eloquence of Cicero), this view was laid aside with the advent of the empire, and even if extortion did not wholly cease in the senatorial provinces, yet the provincial administration of the first two centuries A.D. is infinitely superior to the systematic spoliation of the republic. The governors are no longer masters armed with absolute authority, constrained to extort money as fast as possible from the provincials committed to their charge in order to meet debts contracted by their own extravagance and, more especially, by that bribery of the populace which was indispensable to their advancement. They are officials under strict control, drawing from the government salaries fully sufficient to their needs. It was a measure imperatively called for by the altered circumstances of the time and fraught with most important consequences to create, as Augustus did, a class of salaried imperial officials and definitively break with the high-minded but wrong-headed principle of the republic by which the higher posts were bestowed as honorary appointments, and none but subordinate officials were paid, thus branding the latter with the stigma of servitude.

It is true that the cautious reformer adopted into his new system of government the old names and the offices which had come down from republican times, with the exception of the censorship and the dictatorship, which last had long been obsolete. But these were intended from the outset to lead but a phantom existence and to take no part in the great task of imperial administration. Augustus drew his own body of officials from the knightly class, and under the unpretentious titles of procurator and præfect practically committed the whole administration of the empire to their hands, reserving, apart from certain distinguished sinecures in Rome and Italy for the senators the præfecture of the city, all the great governorships except Egypt, and the highest commands in the army. The handsome salaries—varying in the later days of the empire from £600 to £3,600 ($3,000 to $18,000)—and the great influence attached to the procuratorial career, which opened the way to the lofty positions of præfect of Egypt and commander of the prætorian guards at Rome, rendered the service very desirable and highly esteemed.

While the high-born magistrates of the republic entered upon their one year’s tenure of office without any training whatsoever, and were, of course, obliged to rely upon the knowledge and trustworthiness of the permanent staff of clerks, recorders and cashiers in their department, there grew up under the empire a professional class of government officials who, schooled by years of experience and continuance in office and supported by a numerous staff recruited from the imperial freedmen and slaves, were in a position to cope with the requirements of a world-wide empire. These procurators, some as governors-in-chief of the smaller imperial provinces, some as assistants to the governors of the greater, watched over the interests of the public exchequer and the emperor’s private property, or looked after the imperial buildings and aqueducts, the imperial games, the mint, the corn supply of Rome and the alimentary institutions, the legacies left to the emperors, their castles and demesnes in Italy and abroad—in short, everything that fell within the vast and ever widening sphere of imperial government. Meanwhile the exchequer of the senate dwindled and dwindled, till it finally came to be merely the exchequer of the city of Rome.

Taxation Reforms