The origin of the word Agrarianism, as an obnoxious political term, is somewhat curious. It is one of the items of our inheritance from the Romans, to whom we owe so much, both of good and evil, in politics and in law.
The Agrarian contests of that people were among the most interesting incidents in their wonderful career, and are full of instruction, though, until recently, their true character was not understood; and their explanation affords a capital warning against the effects of partisan literature. The common belief was,perhaps we should say is,that the supporters of the Agrarian laws were, to use a modern term, destructives; that they aimed at formal divisions of all landed property, if not of all property, among the whole body of the Roman people. Nothing can be more unfounded than this view of the subject, which is precisely the reverse of the truth. No Roman, whose name is associated with Agrarian laws, ever thought of touching private property, or of meddling with it, illegally, in any way. Neither Spurius Cassius, nor Licinius Stolo, nor the Gracchi, nor any other Roman whose name is identified with the Agrarian legislation of his country, was a destructive, or leveller. Quite the contrary; they were all conservatives,using that word in its best sense,and the friends of property. The lands to which their laws applied, or were intended to apply, were public lands, answering, in some sense, to those which are owned by the United States. When Spurius Cassius, a quarter of a century after that revolution which is known as the expulsion of the Tarquins, proposed a division of a portion of the public land among the poor commons, he did no more than had often been done by the Roman kings, with good effect, and with strict legality. Much of the public land was occupied by wealthy men, as tenants of the state; and some of these his law would have ousted from profitable spots, while the rest were to be forced to pay their rents, which they had done very irregularly or not at all. The operation of all Agrarian laws like that of Cassius was, undoubtedly, a matter well to be considered; for, after a man has long occupied a piece of land, he regards it as an act of injustice to be peremptorily removed therefrom, and he ought to have, at least, the privilege of buying it, if its possession be necessary to his support. This feeling must have been the stronger in the bosom of the Roman occupant in proportion to his poverty, but to legal possession he could make no claim. The position he held was that of tenant at will to the state, and he could be legally ejected at any moment. But it was not from poor occupants of the public domain, whose number was necessarily small, that opposition was experienced. It came from the rich, who had all but monopolized the use of that domain; and, in the time of Spurius Cassius, it was complicated with that quarrel of caste which we denominate the contest between the Patricians and the Plebeians. Property and political power were both involved in the dispute. The Patricians knew that the success of Cassius would make against them in two ways:it would strengthen the Plebeians, by lifting them out of the degradation consequent on poverty, and so render them more dangerous antagonists in political warfare; and it would render the Patricians less able to contend with aspiring foes, by taking from them one of the sources of their wealth. Cassius failed, and was executed, having been tried and condemned by the Patricians, who then alone constituted the Roman people.
More than a century after the failure of Cassius, the Agrarian question was again brought before the Roman nation, on a large scale. This was the time when the famous Licinian rogations, by the adoption of which a civil revolution was effected in Rome, were brought forward. They provided for the passage of an Agrarian law, for an equitable settlement of debts, and that thereafter one of the two Consuls should always be a Plebeian. It is something to be especially noted, that C. Licinius Stolo, the man from whom these laws take their name, was not a needy political adventurer, but a very wealthy man, his possessions being mainly in land; and that he belonged to a gens (the Licinii) who were noted in after days for their immense wealth, among them being that Crassus whose avarice became proverbial, and whose surname was Dives, or the Rich. The Licinian Agrarian law provided, that no one should possess more than five hundred jugers of the public land, (ager publicus,) that the state should resume lands that had been illegally seized by individuals, that a rent should be paid by the occupants of the public domain, that only freemen should be employed on that domain, and that every Plebeian should receive seven jugers of the public land in absolute property, to be taken from those lands which the state was to resume from Patricians who possessed (that is to say, who occupied) more than five hundred jugers. Such were the main provisions of the law, which did not touch private property of any kind. The state was merely to assert its undisputed legal right over the public domain, and the Plebeians became landholders, which was the best thing that could happen to the republic, and which was what was aimed at in every community of antiquity. Even the partial observance of this law was the cause of the supremacy of Rome being established over the finest portions of the ancient world. Had Licinius failed, Rome would have gone down in her contest with the Samnites, and the latter people would have become masters of Italy. As it was, his success created the Roman people; and from the time of that success must be dated the formation of the Roman constitution as it was recognized and acted on during the best period of the Republic. True, the Agrarian law was but one of three measures which he carried through in the face of all the opposition the Patricians could make; but the other laws were of a kindred character, and they all worked together for good. It was the triumph of the Plebeians for the benefit of all. The revolution then effected was strictly conservative in its nature, and whatever of internal evil Rome afterwards experienced was owing, not to the adoption of the Licinian law, but to the departure by the state from the practice under it which it was intended permanently to establish.
The last great Agrarian contest which the Romans had was that which takes its name from the Gracchi, and which began at the commencement of the fourth generation before the birth of Christ. On the part of the reformers, it was as strictly legal a movement as ever was known. Not a single acre of private land was threatened by them; and whoever pays attention to the details of their measures cannot fail to be struck with the great concessions they were ready to make to their opponents,the men who had literally stolen the public property, and who pretended to hold it as of right. Perhaps it was too late for any such reform as that contemplated by the Gracchi to succeed, the condition of Rome then being in no important respect like what it had been in the time of Licinius Stolo; but one of the most interesting chapters in the history of things which might have been is that which relates to the possible effect of the Sempronian legislation. Had that legislation been fairly tried, Roman history, and therefore human history, must have taken an entirely different course, with an effect on the fortunes of every man born since that time. Whether that effect would have been good or bad, who shall say? But one thing is certain, and that is, that the Gracchi and their supporters were not the enemies of property, and that their measures were not intended to interfere with the private estate of any citizen of the Roman Republic.