The Agrarian Policy of the Senate between Hannibal and the Gracchi

This chapter addresses the policy undertaken by the Senate in order to manage the agrarian developments in Italy in the second century. First it considers the specific social, demographic, and economic background in which some provisions are introduced. Competition for land appears to be a key feature of the period. Ancient sources attest at least three levels of competition in the use of Italian lands: competition between large owners and smallholders, competition between slaves and free manpower, and competition between different modes of exploitation. Roman agrarian policy in the second century bce offers a very complex scenario, with a variety of social actors and needs at stake. Indeed, the Roman Senate adopts various measures, which may be interpreted as responses to shifting circumstances. However, there are some consistent elements that may be understood as part of a general policy. For instance, the res publica is often interested in claiming ownership of land to which it is entitled and in using the uectigalia to keep public revenues in balance, especially after the collection of tributum was suspended in Italy. At the same time, the specific interest of the Senate—which in the second century assumed wide-ranging powers of direction in agrarian matters—in stimulating land exploitation across Italy emerges. These two aims were in fact complementary, even though they were the cause of contrasts, and responded to the need of managing a complex landscape in transformation.