It was plain, that at the beginning of the war the Romans did not know what they were undertaking; it was only during the course of the struggle that the inadequacies of their system, one after another, forced themselves on their notice - the want of a naval power, the lack of fixed military leadership, the insufficiency of their generals, the total uselessness of their admirals. In part these evils were remedied by energy and good fortune; as was the case with the want of a fleet. That mighty creation, however, was but a grand makeshift, and always remained so. A Roman fleet was formed, but it was rendered national only in name, and was always treated with the affection of a stepmother; the naval service continued to be little esteemed in comparison with the high honour of serving in the legions; the naval officers were in great part Italian Greeks; the crews were composed of subjects or even of slaves and outcasts. The Italian farmer was at all times distrustful of the sea; and of the three things in his life which Cato regretted one was, that he had travelled by sea when he might have gone by land. This result arose partly out of the nature of the case, for the vessels were oared galleys and the service of the oar can scarcely be ennobled; but the Romans might at least have formed separate legions of marines and taken steps towards the rearing of a class of Roman naval officers. Taking advantage of the impulse of the nation, they should have made it their aim gradually to establish a naval force important not only in numbers but in sailing power and practice, and for such a purpose they had a valuable nucleus in the privateering that was developed during the long war; but nothing of the sort was done by the government. Nevertheless the Roman fleet with its unwieldy grandeur was the noblest creation of genius in this war, and, as at its beginning, so at its close it was the fleet that turned the scale in favour of Rome. Far more difficult to be overcome were those deficiencies, which could not be remedied without an alteration of the constitution. That the senate, according to the strength of the contending parties within it, should leap from one system of conducting the war to another, and perpetrate errors so incredible as the evacuation of Clupea and the repeated dismantling of the fleet; that the general of one year should lay siege to Sicilian towns, and his successor, instead of compelling them to surrender, should pillage the African coast or think proper to risk a naval battle; and that at any rate the supreme command should by law change hands every year - all these anomalies could not be done away without stirring constitutional questions the solution of which was more difficult than the building of a fleet, but as little could their retention be reconciled with the requirements of such a war.
Above all, moreover, neither the senate nor the generals could at once adapt themselves to the new mode of conducting war. The campaign of Regulus is an instance how singularly they adhered to the idea that superiority in tactics decides everything. There are few generals who have had such successes thrown as it were into their lap by fortune: in the year 498 he stood precisely where Scipio stood fifty years later, with this difference, that he had no Hannibal and no experienced army arrayed against him. But the senate withdrew half the army, as soon as they had satisfied themselves of the tactical superiority of the Romans; in blind reliance on that superiority the general remained where he was, to be beaten in strategy, and accepted battle when it was offered to him, to be beaten also in tactics. This was the more remarkable, as Regulus was an able and experienced general of his kind. The rustic method of warfare, by which Etruria and Samnium had been won, was the very cause of the defeat in the plain of Tunes. The principle, quite right in its own province, that every true burgher is fit for a general, was no longer applicable; the new system of war demanded the employment of generals who had a military training and a military eye, and every burgomaster had not those qualities. The arrangement was however still worse, by which the chief command of the fleet was treated as an appanage to the chief command of the land army, and any one who chanced to be president of the city thought himself able to act the part not of general only, but of admiral too. The worst disasters which Rome suffered in this war were due not to the storms and still less to the Carthaginians, but to the presumptuous folly of its own citizen-admirals.
Rome was victorious at last. But her acquiescence in a gain far less than had at first been demanded and indeed offered, as well as the energetic opposition which the peace encountered in Rome, very clearly indicate the indecisive and superficial character of the victory and of the peace; and if Rome was the victor, she was indebted for her victory in part no doubt to the favour of the gods and to the energy of her citizens, but still more to the errors of her enemies in the conduct of the war - errors far surpassing even her own.
Chapter III
The Extension of Italy to Its Natural Boundaries
Natural Boundaries of Italy
The Italian confederacy as it emerged from the crises of the fifth century - or, in other words, the State of Italy - united the various civic and cantonal communities from the Apennines to the Ionian Sea under the hegemony of Rome. But before the close of the fifth century these limits were already overpassed in both directions, and Italian communities belonging to the confederacy had sprung up beyond the Apennines and beyond the sea. In the north the republic, in revenge for ancient and recent wrongs, had already in 471 annihilated the Celtic Senones; in the south, through the great war from 490 to 513, it had dislodged the Phoenicians from the island of Sicily. In the north there belonged to the combination headed by Rome the Latin town of Ariminum (besides the burgess-settlement of Sena), in the south the community of the Mamertines in Messana, and as both were nationally of Italian origin, so both shared in the common rights and obligations of the Italian confederacy. It was probably the pressure of events at the moment rather than any comprehensive political calculation, that gave rise to these extensions of the confederacy; but it was natural that now at least, after the great successes achieved against Carthage, new and wider views of policy should dawn upon the Roman government - views which even otherwise were obviously enough suggested by the physical features of the peninsula. Alike in a political and in a military point of view Rome was justified in shifting its northern boundary from the low and easily crossed Apennines to the mighty mountain-wall that separates northern from southern Europe, the Alps, and in combining with the sovereignty of Italy the sovereignty of the seas and islands on the west and east of the peninsula; and now, when by the expulsion of the Phoenicians from Sicily the most difficult portion of the task had been already achieved, various circumstances united to facilitate its completion by the Roman government.
Sicily a Dependency of Italy
In the western sea which was of far more account for Italy than the Adriatic, the most important position, the large and fertile island of Sicily copiously furnished with harbours, had been by the peace with Carthage transferred for the most part into the possession of the Romans. King Hiero of Syracuse indeed, who during the last twenty-two years of the war had adhered with unshaken steadfastness to the Roman alliance, might have had a fair claim to an extension of territory; but, if Roman policy had begun the war with the resolution of tolerating only secondary states in the island, the views of the Romans at its close decidedly tended towards the seizure of Sicily for themselves. Hiero might be content that his territory - namely, in addition to the immediate district of Syracuse, the domains of Elorus, Neetum, Acrae, Leontini, Megara, and Tauromenium - and his independence in relation to foreign powers, were (for want of any pretext to curtail them) left to him in their former compass; he might well be content that the war between the two great powers had not ended in the complete overthrow of the one or of the other, and that there consequently still remained at least a possibility of subsistence for the intermediate power in Sicily. In the remaining and by far the larger portion of Sicily, at Panormus, Lilybaeum, Agrigentum, Messana, the Romans effected a permanent settlement.
Sardinia Roman - The Libyan Insurrection - Corsica
They only regretted that the possession of that beautiful island was not enough to con
vert the western waters into a Roman inland sea, so long as Sardinia still remained Carthaginian. Soon, however, after the conclusion of the peace there appeared an unexpected prospect of wresting from the Carthaginians this second island of the Mediterranean. In Africa, immediately after peace had been concluded with Rome, the mercenaries and the subjects of the Phoenicians joined in a common revolt. The blame of the dangerous insurrection was mainly chargeable on the Carthaginian government. In the last years of the war Hamilcar had not been able to pay his Sicilian mercenaries as formerly from his own resources, and he had vainly requested that money might be sent to him from home; he might, he was told, send his forces to Africa to be paid off. He obeyed; but as he knew the men, he prudently embarked them in small subdivisions, that the authorities might pay them off by troops or might at least separate them, and thereupon he laid down his command. But all his precautions were thwarted not so much by the emptiness of the exchequer, as by the collegiate method of transacting business and the folly of the bureaucracy. They waited till the whole army was once more united in Libya, and then endeavoured to curtail the pay promised to the men. Of course a mutiny broke out among the troops, and the hesitating and cowardly demeanour of the authorities showed the mutineers what they might dare. Most of them were natives of the districts ruled by, or dependent on, Carthage; they knew the feelings which had been provoked throughout these districts by the slaughter decreed by the government after the expedition of Regulus[1] and by the fearful pressure of taxation, and they knew also the character of their government, which never kept faith and never pardoned; they were well aware of what awaited them, should they disperse to their homes with pay exacted by mutiny. The Carthaginians had for long been digging the mine, and they now themselves supplied the men who could not but explode it. Like wildfire the revolution spread from garrison to garrison, from village to village; the Libyan women contributed their ornaments to pay the wages of the mercenaries; a number of Carthaginian citizens, amongst whom were some of the most distinguished officers of the Sicilian army, became the victims of the infuriated multitude; Carthage was already besieged on two sides, and the Carthaginian army marching out of the city was totally routed in consequence of the blundering of its unskilful leader.
When the Romans thus saw their hated and still dreaded foe involved in a greater danger than any ever brought on that foe by the Roman wars, they began more and more to regret the conclusion of the peace of 513 - which, if it was not in reality precipitate, now at least appeared so to all - and to forget how exhausted at that time their own state had been and how powerful had then been the standing of their Carthaginian rival. Shame indeed forbade their entering into communication openly with the Carthaginian rebels; in fact, they gave an exceptional permission to the Carthaginians to levy recruits for this war in Italy, and prohibited Italian mariners from dealing with the Libyans. But it may be doubted whether the government of Rome was very earnest in these acts of friendly alliance; for, in spite of them, the dealings between the African insurgents and the Roman mariners continued, and when Hamilcar, whom the extremity of the peril had recalled to the command of the Carthaginian army, seized and imprisoned a number of Italian captains concerned in these dealings, the senate interceded for them with the Carthaginian government and procured their release. The insurgents themselves appeared to recognize in the Romans their natural allies. The garrisons in Sardinia, which like the rest of the Carthaginian army had declared in favour of the insurgents, offered the possession of the island to the Romans, when they saw that they were unable to hold it against the attacks of the un-conquered mountaineers of the interior (about 515); and similar offers came even from the community of Utica, which had likewise taken part in the revolt and was now hard pressed by the arms of Hamilcar. The latter suggestion was declined by the Romans, chiefly doubtless because its acceptance would have carried them beyond the natural boundaries of Italy and therefore farther than the Roman government was then disposed to go; on the other hand they entertained the offers of the Sardinian mutineers, and took over from them the portion of Sardinia which had been in the hands of the Carthaginians (516). In this instance, even more than in the affair of the Mamertines, the Romans were justly liable to the reproach that the great and victorious burgesses had not disdained to fraternize and share the spoil with a venal pack of mercenaries, and had not sufficient self-denial to prefer the course enjoined by justice and by honour to the gain of the moment. The Carthaginians, whose troubles reached their height just about the period of the occupation of Sardinia, were silent for the time being as to the unwarrantable violence; but, after this peril had been, contrary to the expectations and probably contrary to the hopes of the Romans, averted by the genius of Hamilcar, and Carthage had been reinstated to her full sovereignty in Africa (517), Carthaginian envoys immediately appeared at Rome to require the restitution of Sardinia. But the Romans, not inclined to restore their booty, replied with frivolous or at any rate irrelevant complaints as to all sorts of injuries which they alleged that the Carthaginians had inflicted on the Roman traders, and hastened to declare war[2]; the principle, that in politics power is the measure of right, appeared in its naked effrontery. Just resentment urged the Carthaginians to accept that offer of war; had Catulus insisted upon the cession of Sardinia five years before, the war would probably have pursued its course. But now, when both islands were lost, when Libya was in a ferment, and when the state was weakened to the utmost by its twenty-four years' struggle with Rome and the dreadful civil war that had raged for nearly five years more, they were obliged to submit It was only after repeated entreaties, and after the Phoenicians had bound themselves to pay to Rome a compensation of 1200 talents (292,000 pounds) for the warlike preparations which had been wantonly occasioned, that the Romans reluctantly desisted from war. Thus the Romans acquired Sardinia almost without a struggle; to which they added Corsica, the ancient possession of the Etruscans, where perhaps some detached Roman garrisons still remained over from the last war[3]. In Sardinia, however, and still more in the rugged Corsica, the Romans restricted themselves, just as the Phoenicians had done, to an occupation of the coasts. With the natives in the interior they were continually engaged in war or, to speak more correctly, in hunting them like wild beasts; they baited them with dogs, and carried what they captured to the slave market; but they undertook no real conquest. They had occupied the islands not on their own account, but for the security of Italy. Now that the confederacy possessed the three large islands, it might call the Tyrrhene Sea its own.
Method of Administration in the Transmarine Possessions - Provincial Praetors
The acquisition of the islands in the western sea of Italy introduced into the state administration of Rome a distinction, which to all appearance originated in mere considerations of convenience and almost accidentally, but nevertheless came to be of the deepest importance for all time following - the distinction between the continental and transmarine forms of administration, or to use the appellations afterwards current, the distinction between Italy and the provinces. Hitherto the two chief magistrates of the community, the consuls, had not had any legally defined sphere of action; on the contrary their official field extended as far as the Roman government itself. Of course, however, in practice they made a division of functions between them, and of course also they were bound in every particular department of their duties by the enactments existing in regard to it; the jurisdiction, for instance, over Roman citizens had in every case to be left to the praetor, and in the Latin and other autonomous communities the existing treaties had to be respected. The four quaestors who had been since 487 distributed throughout Italy did not, formally at least, restrict the consular authority, for in Italy, just as in Rome, they were regarded simply as auxiliary magistrates dependent on the consuls. This mode of administration appears to have been at first extended also to the territories taken from Carthage, and Sicily and Sardinia to have been governed for some years by quaestors under the superintendence of th
e consuls; but the Romans must very soon have become practically convinced that it was indispensable to have superior magistrates specially appointed for the transmarine regions. As they had been obliged to abandon the concentration of the Roman jurisdiction in the person of the praetor as the community became enlarged, and to send to the more remote districts deputy judges[4], so now (527) the concentration of administrative and military power in the person of the consuls had to be abandoned. For each of the new transmarine regions - viz. Sicily, and Sardinia with Corsica annexed to it - there was appointed a special auxiliary consul, who was in rank and title inferior to the consul and equal to the praetor, but otherwise was - like the consul in earlier times before the praetorship was instituted - in his own sphere of action at once commander-in-chief, chief magistrate, and supreme judge. The direct administration of finance alone was withheld from these new chief magistrates, as from the first it had been withheld from the consuls[5]; one or more quaestors were assigned to them, who were in every way indeed subordinate to them, and were their assistants in the administration of justice and in command, but yet had specially to manage the finances and to render account of their administration to the senate after having laid down their office.
The History of Rome. Book III Page 8