Grain Supply To The City of Rome - Politics and The Grain Supply

Politics and The Grain Supply

Throughout most of the Republican era, the care of the grain supply (cura annona) was part of the aedile's duties. The annona was personified as a goddess, and the grain dole was distributed from the Temple of Ceres. As early as 440 BC, however, the Roman Senate may have appointed a special officer called the praefectus annonae with greatly extended powers. An emergency cura annona was an important source of influence and power for Pompeius Magnus ("Pompey the Great") in his later career. Under the Principate, the position of praefectus annonae became permanent, while a range of privileges, including grants of citizenship and exemption from certain duties, were extended to ship-owners who signed contracts to transport grain to the city.

A large part of the city's supply was obtained through the free market. Prices in the city were invariably high, and merchants could count on making a profit. Grain was also collected as tax in kind from certain provinces; some of this was distributed to officials and soldiers and some was sold at market rates.

Grain supply was an important issue for the Gracchi, with the elder brother Tiberius Gracchus arguing that consolidation of Roman agricultural lands in the hands of a few had pushed landless Romans into the city, where they found poverty rather than employment. Under the grain law of Gaius Gracchus in 123 BC, a portion of the grain collected as revenue for the state was sold at a subsidised rate to citizens. The grain supply was a consistent plank in the popularist platform for political leaders who appealed to the plebs. But the unpopularity of these laws led to more conservative laws attempting to reign in the Gracchi reforms such as the lex Octavia and the lex Terentia Cassia

The price of grain became a major issue when the Roman province of Sicily revolted repeatedly, thus pushing the price to unaffordable levels. Lowering grain prices became an important part of the political platform of the radical popularist Saturninus, who acquired the office of plebeian tribune an unusual three times.

In 58 BC, the patrician-turned-plebeian Clodius Pulcher advanced a popularist political agenda in his bid for the tribunate by offering free grain for the poor. The expense was considerable, and Julius Caesar later reformed the dole. Augustus considered abolishing it altogether, but instead reduced the number of the recipients to 200,000, and perhaps later 150,000.

The official responsible for the provision of the alimenta was the Curator alimentorum. During the empire, this post became an important bureaucratic position to be filled by the senatorial elite prior to achieving a consulship. The last known official to hold this post was Titus Flavius Postumius Quietus, probably during the early 270s.

Later emperors all used free or greatly subsidized grain to keep the populace fed. The political use of the grain supply along with gladiatorial games and other entertainments gave rise to the saying "Bread and circuses". As the empire continued, the annona became more complex. During the reign of Septimius Severus, olive oil was added to the distribution. During the reign of Aurelian, however, a major reorganization of the alimenta took place. It appears that he ceased to distribute free grain; instead, he issued free bread, and added salt, pork and wine to the dole, which was provided free or at a reduced cost. These measures were continued by successive emperors.

With the devaluation of currency in the course of the third century, the army was paid in rationed supplies (annonae) as well as in specie from the later third century, through a cumbrous administration of collection and redistribution. The role of the state in distributing the annona remained a central feature of its unity and power: "the cessation of this state function in the fifth century was a major factor leading to economic fragmentation, as was the end of the grain requisition for the city of Rome" Averil Cameron notes.