the breakdown of such an impossible institution which led to the
establishment of the 'publicani.' [Sidenote: Composite nature of the
Licinian law.] Nothing, indeed, is more likely than that Licinius and
Sextius should have attempted to remedy by one measure the specific
grievance of the poor plebeians, the political disabilities of the
rich plebeians and the general deterioration of public morals; but,
though their motives may have been patriotic, such a measure could no
more cure the body politic than a man who has a broken limb, is blind,
and in a consumption can be made sound at every point by the heal-all
of a quack. Accordingly the Licinian law was soon, except in its
political provisions, a dead letter. Licinius was the first man
prosecuted for its violation, and the economical desire of the nation
became intensified. [Sidenote: The Flaminian law.] In 232 B.C.
Flaminius carried a law for the distribution of land taken from the
Senones among the plebs. Though the law turned out no possessors, it
was opposed by the Senate and nobles. Nor is this surprising, for any
law distributing land was both actually and as a precedent a blow to
the interests of the class which practised occupation. What is at
first sight surprising is that small parcels of land, such as must
have been assigned in these distributions, should have been so
coveted. [Sidenote: Why small portions of land were so coveted.] The
explanation is probably fourfold. Those who clamoured for them were
wretched enough to clutch at any change; or did not realise to
themselves the dangers and drawbacks of what they desired; or intended
at once to sell their land to some richer neighbour; or, lastly,
longed to keep a slave or two, just as the primary object of the 'mean
white' in America used to be to keep his negro. [Sidenote: Failure
of previous legislation.] On the whole, it is clear that legislation
previous to this period had not diminished agrarian grievances, and it
is clear also why these grievances were so sorely felt. The general