On Dec. 22, 69, the Senate conferred all the imperial powers upon Vespasian en bloc with the famous Lex de Imperio Vespasiani (“Law Regulating Vespasian’s authority”), and the Assembly ratified the Senate’s action. This apparently was the first time that such a law was passed; a fragmentary copy of it is preserved on the Capitol in Rome.
Vespasian (ruled 69–79) did not originate from Rome or its aristocracy. His family came from the Sabine municipality Reate, and with his elevation the Italian bourgeoisie came into its own. He and his two sons, both of whom in turn succeeded him, constituted the Flavian dynasty (69–96). Vespasian faced the same difficult task as Augustus—the restoration of peace and stability. The disorders of 69 had taken troops away from the Rhine and Danube frontiers. Thereupon, the Danubian lands were raided by Sarmatians, a combination of tribes who had overwhelmed and replaced the Scythians, their distant kinsmen, in eastern Europe. The assailants were repelled without undue difficulty; but the Sarmatian Iazyges, now firmly in control of the region between the Tisza and Danube rivers, posed a threat for the future.
Developments in the Rhineland were more immediately serious. There in 69 a certain Civilis incited the Batavians serving as auxiliaries in the Roman army to rebel. Gallic tribes joined the movement, and the insurgents boldly overran all but two of the legionary camps along the Rhine. Vespasian sent his relative Petilius Cerealis to deal with the rebels, who, fortunately for Rome, were not united in their aims; by 70 Cerealis had restored order. That same year Vespasian’s elder son, Titus, brought the bloody war in Judaea to its end by besieging, capturing, and destroying Jerusalem.
To rehabilitate the public finances, Vespasian introduced new imposts, including a poll tax on Jews, and practiced stringent economies. With the Senate he was courteous but firm. He allowed it little initiative but used it as a reservoir from which to obtain capable administrators. To that end he assumed the censorship and added senators on a larger scale than Claudius had done, especially from the municipalities of Italy and the western provinces. Already before 69 an aristocracy of service had arisen, and the provincialization of the Roman Senate had begun; thereafter this development made rapid headway. Besides the censorship, Vespasian also often held the consulship, usually with Titus as his colleague. His object presumably was to ensure that his own parvenu Flavian house outranked any other. In this he succeeded; the troops especially were ready to accept the Flavians as the new imperial family. On Vespasian’s death in 79, Titus, long groomed for the succession, became emperor and immediately had his father deified.
Titus (ruled 79–81) had a brief reign, marred by disasters (the volcanic eruption that buried Pompeii and Herculaneum and another great fire in Rome); but his attempts to alleviate the suffering and his general openhandedness won him such popularity that he was unhesitatingly deified after his early death.
Domitian (ruled 81–96), Titus’ younger brother, had never been formally indicated for the succession; but the praetorians acclaimed him, and the Senate ratified their choice. Throughout his reign Domitian aimed at administrative efficiency, but his methods were high-handed. For him the Senate existed merely to supply imperial servants. He also used equites extensively, more than any previous emperor. He held the consulship repeatedly, was censor perpetuus from 85 on, and demanded other extravagant honours. On the whole, his efficiency promoted the welfare of the empire. Above all, he retained the allegiance of the troops. Although scornful of the Senate’s dignity, he insisted on his own and mercilessly punished any act of disrespect, real or fancied, toward himself. He became even more suspicious and ruthless when Saturninus, commander in Upper Germany, attempted rebellion in 89. He crushed Saturninus; executions and confiscations ensued, and delatores flourished. The tyranny was particularly dangerous to senators, and it ended only with Domitian’s assassination in 96. The Flavian dynasty, like the Julio-Claudian, ended with an emperor whose memory was officially damned.
The disorders in 69 were the cause of some military reforms. Under the Flavians, auxiliaries usually served far from their native hearths under officers of different nationality from themselves. At the same time, the tasks assigned to them came increasingly to resemble those performed by the legionaries. The latter grew less mobile, as camps with stone buildings came to be the rule; and it became common for detachments from a legion (vexillationes), rather than the entire legion, to be used for field operations. This army of a new type proved its mettle in Britain, where the advance halted by Boudicca’s revolt was now resumed. Between 71 and 84 three able governors—Petilius Cerealis, Julius Frontinus, and Julius Agricola, the latter Tacitus’ father-in-law—enlarged the province to include Wales and northern England; Agricola even reached the Scottish highlands before Domitian recalled him.
Along the Rhine, weaknesses revealed by Civilis’ revolt were repaired. Vespasian crossed the river in 74 and annexed the Agri Decumates, the triangle of land between the Rhine, Danube, and Main rivers. To consolidate the position, he and Domitian after him penetrated the Neckar River valley and Taunus mountains, and fortifications began to take shape to the east of the Rhine, a military boundary complete with strongpoints, watchtowers, and, later, a continuous rampart of earthworks and palisades. Once Saturninus’ revolt in 89 had been suppressed, Domitian felt the situation along the Rhine sufficiently stable to warrant conversion of the military districts of Upper and Lower Germany into regular provinces and the transfer of some Rhineland troops to the Danube. To the north of this latter river, the Dacians had been organized into a strong kingdom, ruled by Decebalus and centring on modern Romania; in 85 they raided southward across the Danube, and in the next year they defeated the Roman punitive expedition. Domitian restored the situation in 88, but Saturninus’ rebellion prevented him from following up his success. Domitian and Decebalus thereupon came to terms: Decebalus was to protect the lower Danube against Sarmatian attack, and Domitian was to pay him an annual subsidy in recompense. The Danubian frontier, however, remained disturbed, and Domitian wisely strengthened its garrisons; by the end of his reign it contained nine legions, as against the Rhineland’s six, and Pannonia was soon to become the military centre of gravity of the empire.
The Flavians also took measures to strengthen the eastern frontier. In Asia Minor, Vespasian created a large “armed” province by amalgamating Cappadocia, Lesser Armenia, and Galatia; and the whole area was provided with a network of military roads. South of Asia Minor, Judaea was converted into an “armed” province by getting legionary troops; and two client kingdoms—Commagene and Transjordan—were annexed and added to Syria. Furthermore, the legionary camps seem now to have been established right on the Euphrates at the principal river crossings. This display of military strength kept the empire and Parthia at peace for many years. The early Antonine emperors: Nerva and Trajan
Marcus Cocceius Nerva, an elderly senator of some distinction, was the choice of Domitian’s assassins for emperor; and the Senate promptly recognized him. The soldiers, however, did so much more reluctantly, and, because the year 69 had revealed that emperors no longer needed to be Roman aristocrats and could be chosen in places other than Rome, their attitude imposed caution.