=The Provinces.=--The inhabitants of conquered countries did not enter into Roman citizenship, but remained strangers (peregrini), while yet subjects of the Roman empire. They were to pay tribute--the tithe of their crops, a tax in silver, a capitation tax. They must obey Romans of every order. But as the Roman people could not itself administer the province, it sent a magistrate in its place with the mission of governing. The country subject to a governor was called _province_ (which signifies mission). At the end of the republic (in 46), there were seventeen provinces: ten in Europe, five in Asia, two in Africa--the majority of these very large. Thus the entire territory of Gaul constituted but four provinces, and Spain but two. "The provinces," said Cicero, "are the domains of the Roman people"--if it made all these peoples subjects, it was not for their advantage, but for its own. Its aim was not to administer, but to exploit them. =The Proconsuls.=--For the administration of a province the Roman people always appointed a magistrate, consul or prætor, who was just finishing the term of his office, and whose prerogative it prolonged.[126] The proconsul, like the consul, had absolute power and he could exercise it to his fancy, for he was alone in his province;[127] there were no other magistrates to dispute the power with him, no tribunes of the people to veto his acts, no senate to watch him. He alone commanded the troops, led them to battle, and posted them where he wished. He sat in his tribunal (prætorium), condemning to fine, imprisonment, or death. He promulgated decrees which had the force of law. He was the sole authority over himself for he was in himself the incarnation of the Roman people. =Tyranny and Oppression of the Proconsuls.=--This governor, whom no one resisted, was a true despot. He made arrests, cast into prison, beat with rods, or executed those who displeased him. The following is one of a thousand of these caprices of the governor as a Roman orator relates it: "At last the consul came to Termini, where his wife took a fancy to bathe in the men's bath. All the men who were bathing there were driven out The wife of the consul complained that it had not been done quickly enough and that the baths were not well prepared. The consul had a post set up in a public place, brought to it one of the most eminent men of the city, stripped him of his garments, and had him beaten with rods."