of the Romans, and had rendered some services to them,
had bestowed upon them the title of _municipia_.[31] These _municipia_
governed themselves and were divided into two classes:

(1.) _Municipia sine suffragio_, for example, Caere and Etruria, had
only interior privileges; their inhabitants could not vote at Rome and,
consequently, could not[32] participate in the exercise of sovereignty.

(2.) _Municipia cum suffragio_ had, outside of their political and civil
rights, the important right of voting[33] at Rome. These citizens of
villages had then, as Cicero said of the citizens of Arpinum, two
countries, one _ex natura_, the other _ex jure_. Lastly, there were
some cities in the south of Italy, _i.e._ in Magna Graecia, that had
received[34] the name of federated cities. They did not appear to be
subject to Rome; their contingents of men and money were looked upon as
voluntary[35] gifts; but, in reality, they were under the domination of
Rome, and had, at Rome, defenders or patrons chosen because of their
influence with the Roman citizens and charged with maintaining their
interests. Such was the system adopted by Rome. It would have been easy for
a person in the compass of a few miles to find villages having the _jus
Latii_, others with simply the _jus Italicum_, colonies, prefectures,
municipia _cum_ et _sine suffragio_. The object of the Romans was evident.
They planned to govern. Cities alike in interests and patriotic motives
were separated by this diversity of rights and the jealousies and hatreds
which resulted from it. Concord, which was necessary to any united and
general insurrection, was rendered impossible between towns, some of which
were objects of envy, others, of pity. Their condition, moreover, was
such that all, even the most fortunate, had something to gain by showing
themselves faithful; and all, even the most wretched, had something to
fear if they did not prove tractable. These Italians, with all the varied
privileges and burdens enumerated above, far outnumbered the Roman
citizens.[36] A comparison of the numbers of the census of 115 and that of
70 shows that the numbers of Italians and Romans were[37] as three to two.
All these Italians aspired to Roman citizenship, to enjoy the right to vote
to which some of their number had been admitted, and the struggle which
was sometime to end in their complete emancipation had already commenced.
During the first centuries of Roman history, Rome was divid