But the praefect was far from representing the higher functions of government in every _municipium_. These towns fall into two broad divisions, not according to the rights which they receive, but according to the rights which they retain. The _civitas sine suffragio_ might be granted _honoris causa_ to a state which maintained its complete independence or its communal autonomy. It was thus conferred on Capua, Cumae, Formiae, and Fundi,[1426] and the gift of the partial citizenship under these conditions was a valued privilege. It enabled a Capuan to own Roman land, to settle on the _ager publicus_, to marry into the noble houses of Rome, and to serve, not in the auxiliary cohort, but in her army or in the legion raised from the _municipes_. But meanwhile his own magistrate, the _meddix tuticus_, administers in the Campanian courts the native Sabellian law,[1427] his senate deliberates, and his popular assembly decides. Sometimes, as in the case of Capua, the state is still bound by treaty relations to Rome, and the two conflicting principles of armed alliance and of absorption are for once commingled.[1428] Yet, in spite of their independence, there is every reason to believe that the inevitable praefects visited these states. We must assume, at least in the cases where autonomy reached the grade which is visible in Capua, that a dual system of law prevailed in these communities; the court and the procedure would follow the form of contract, whether Sabellian or Roman, and the parties might appear indifferently before the Capuan _meddix_ or the Roman praefect. In other cases, where a large measure of administrative autonomy is visible, but where no magistrate with a higher rank than that of aedile is found within the state,[1429] it is possible that Roman law alone prevailed and that the Roman praefect was the only judge. The lower class of _municipia_ was represented by states “whose whole commonwealth had been merged in that of Rome.”[1430] Of this class Anagnia, the degraded town of the Hernici, was a type.[1431] Stripped of all the active rights of citizenship, and under the direct government of a Roman praefect, the members of such towns possessed no personality in public law at all. Their position was that of the free Plebeians previous to their admission to the _suffragium_ and the _honores_.