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The Gracchan Agrarian Reform and the Italians Michael Claiborne Washington University in St

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The Gracchan Agrarian Reform and the Italians Michael Claiborne Washington University in St Washington University in St. Louis Washington University Open Scholarship All Theses and Dissertations (ETDs) January 2011 The Gracchan Agrarian Reform and the Italians Michael Claiborne Washington University in St. Louis Follow this and additional works at: https://openscholarship.wustl.edu/etd Recommended Citation Claiborne, Michael, "The Gracchan Agrarian Reform and the Italians" (2011). All Theses and Dissertations (ETDs). 479. https://openscholarship.wustl.edu/etd/479 This Thesis is brought to you for free and open access by Washington University Open Scholarship. It has been accepted for inclusion in All Theses and Dissertations (ETDs) by an authorized administrator of Washington University Open Scholarship. For more information, please contact [email protected]. WASHINGTON UNIVERSITY Department of Classics THE GRACCHAN AGRARIAN REFORM AND THE ITALIANS by Michael Claiborne A thesis presented to the Graduate School of Arts and Sciences of Washington University in partial fulfillment of the requirements for the degree of Master of Arts May 2011 Saint Louis, Missouri CONTENTS 1. Problems and sources 1 1.1 The ancient evidence 5 1.2 The modern scholarship 18 2. Legal aspects of land distribution 28 2.1 Methodology 28 2.2 The legal status of ager publicus 35 2.3 The vectigal 39 2.3.1 Privatus vectigalisque 40 2.3.2 Vectigalia in Italy 48 2.4 Inalienability 52 2.4.1 Sulla 56 2.4.2 Rullus 58 2.4.3 Caesar 62 2.5 Tiberius's motives 63 3. The Agrarian law of 11 69 3.1 Lines 1-8 70 3.1.1 Text 70 3.1.2 Categories of land 72 3.1.3 The significance of "ceivi Romano" in line 3 73 3.1.4 The land excluded from distribution by Gaius Gracchus 74 3.2 Explicit mentions of non-citizens 81 3.2.1: Lines 20-23 81 3.2.1.1: Text 81 3.2.1.2: Analysis 83 3.2.2 Line 29 85 3.2.2.1: Text 85 3.2.2.2: Analysis 86 3.2.3: Lines 30-31 90 3.2.3.1: Text 90 3.2.3.2: Analysis 91 3.3: Conclusion 92 4. Appian and Plutarch 93 4.1 Appian's historicity 93 4.2 Plutarch's methods and aims 98 4.3 Italians, Latins and plebs 105 4.4 The Latin vote 112 4.5 Precedents for non-citizen participation 120 ii 5. The Italians and the land after 122 124 5.1 Appian's three laws and the law of 111 125 5.2 The fate of the Gracchan program 131 5.3 Implications for the Italians and Latins 133 6. Epilogue 137 7. Bibliography 141 iii 1. PROBLEMS AND SOURCES The purpose of this thesis is to investigate an old controversy about the agrarian legislation of Tiberius Gracchus: whether the bill distributed land exclusively to citizens, or also to non-Roman allies. Both possibilities have been argued before. I will argue that non-citizens did benefit, and that many of the contradictions in our sources can be explained if we understand that these non-citizens were primarily Latins rather than other Italians. At the same time, in supporting this theory it will be necessary to demonstrate an important aspect of Tiberius's law. It has generally been assumed that the distributed land remained public property. But in recent years some scholars have called this into question, arguing instead that the land was partially or completely privatized. For reasons that will soon be clear, this view is probably incompatible with the possibility that non- citizens received land. I will therefore defend the traditional understanding in more detail than has been considered necessary before. Finally, I will show how my understanding of the law explains certain developments of the subsequent half-century better than the alternatives. However, before discussing uncertainties about the land bill, it will help for the sake of clarity to mention briefly the facts that are more or less firmly established, and then to survey the sources and their differences. Rome began as a city-state, and only very slowly did it evolve to something more. In its early history it was one of a number of Latin-speaking cities joined together in an alliance known as the Latin League. Citizens of these states enjoyed a privileged status throughout the league, marked by special rights of association, including connubium, the right to intermarry, ius migrationis, the right to move to another city and adopt its 1 citizenship, and commercium the right to engage in commerce. When the league defeated an outside city it would sometimes establish a joint colony on the conquered territory, which would then enjoy these same rights. Rome's dominance over the other Latin cities, if Livy is to be believed, was acknowledged even in the monarchic period. However it was Rome's victory over its Latin allies in 338 that established Latinitias as a secondary status, divorced from its original ethno-liguisic and and geographic significance.1 Many of the original Latin cities were incorporated into the Roman state as full citizens.2 But the number of individuals possessing Latin rights continued to grow, for it remained the policy to establish Latin colonies on conquered territory throughout Italy until after the Second Punic War. At the same time, as it expanded beyond the boundaries of Latium, Rome incorporated a number of non-Latin peoples through diplomacy or conquest. These it ruled on an ad hoc basis by individual treaties rather than according to a fixed system. Their citizens typically did not enjoy the rights associated with Latinitas. However their service to the Roman state was the same: both were obligated to provide a certain quota of soldiers to the Roman army. Collectively these non-citizens were known as socii nominisque Latini. Not all of the territory that Rome conquered was used to establish colonies. The rest became ager publicus, public land left open to individual use. This land became a center of controversy in 133, when Tiberius Gracchus, tribune of the plebs, promulgated legislation to create a committee titled tresviri agris iudicandis adsignandis, composed of 1 Sherwin-White (1973, 96-102). 2 Ibid., 59. 2 himself, his brother Gaius, and his father-in-law Appius Claudius. Their task was to confiscate public land from those who held more than 500 iugera, without compensation, and to distribute that land to poorer individuals. The law passed over the opposition of the Senate and the veto of one of his colleagues, whom Tiberius persuaded the plebeian assembly to impeach. When the Senate refused to grant money to fund the work of the commission, Tiberius appropriated the funds bequeathed to Rome by the recently deceased king of Pergamum. At the end of the year Tiberius announced his intention to seek reelection, an unusual action in the Roman system. The day of the election saw fighting break out between Tiberius's supporters and opponents led by the pontifex maximus, who was acting in a private capacity. Tiberius was killed along with many others. The Senate gave retrospective approval to action by prosecuting some of Tiberius's supporters. However the law remained in effect. In 129 a delegation of Latins and socii came to Scipio Aemilianus to complain that the commission was violating their rights. Scipio intervened to persuade the Senate to deprive the commission of at least some of its power of adjudication, and thus, in a way that is too complicated to be worth explaining, unintentionally impeded to some degree the commissions ability to distribute land. Scipio's popularity suffered. Soon after he died in bed, and, it seems that no one yet doubted, from natural causes. Eventually the anti-Gracchan faction decided that Scipio had been murdered and adopted him as their own martyr to set against Tiberius. In 126 a tribune M. Junius Pennus proposed, in Cicero's words, usu urbis prohibere perigrinos. Gaius Gracchus, then quaestor, spoke against the proposal, and a 3 fragment of this speech survives. The same year he served in Sardina under one of the consuls. In 125 Fulvius Flaccus, consul and now a member of Tiberius's commission, proposed extending Roman citizenship to all Italians. The bill was withdrawn in the face of opposition from the senate. The same year the Latin city of Fregellae revolted and was destroyed. Gaius, then governor of Sardinia, was accused of involvement. In 124 Gaius returned from Sardina and successfully sought the office of Tribune of the Plebs, to which he was reelected the following year. His legislation during these two years was much more ambitious than his brother's. Its exact composition and chronology are subject to debate, but a few laws are important for our purposes.3 First, he promulgated another land bill. Second, he secured passage, through the agency of another tribune named Rubrius, of a law establishing Rome's first transmarine colonies. Third, he proposed, unsuccessfully, to extend full citizenship to the Latins, and voting rights to the other Italians. Finally, he may have proposed, again unsuccessfully, that the order in which the centuries voted in the centurian assembly should be randomized instead of voting according to census class. In 122 Gaius failed to secure a third term as tribune, allegedly because the votes had been miscounted. His popularity had perhaps suffered because of the activities of another tribune, Livius Drusus, who spent the year trying to out-demagogue Gaius on the Senate's behalf through his own laws, including one establishing more colonies and another protecting Latins from corporal punishment. After Gaius left office the plebeian assembly was scheduled to vote on the repeal of his legislation.
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