Upper and Lower Germany.
The two headquarters of the army of the Rhine were always Vetera near Wesel and Mogontiacum, the modern Mentz, both doubtless older than the division of the command, and one of the reasons for introducing that division. The two armies numbered in the first century four legions each, thus about 30,000 men63; at or between those two points lay the main bulk of the Roman troops, besides one legion at Noviomagus (Nimeguen), another at Argentoratum (Strassburg), and a third at Vindonissa (Windisch not far from Zürich) not far from the Raetian frontier. To the lower army belonged the not inconsiderable fleet on the Rhine. The boundary between the upper and the lower army lay between Andernach and Remagen near Brohl,64 so that Coblenz and Bingen fell to the upper, Bonn and Cologne to the lower military district. On the left bank there belonged to the upper German administrative circuit the districts of the Helvetii (Switzerland), the Sequani (Besançon), the Lingones (Langres), the Rauraci (Basle), the Triboci (Alsace), the Nemetes (Spires), and the Vangiones (Worms); to the more restricted lower German circuit belonged the district of the Ubii, or rather the colony Agrippina (Cologne), those of the Tungri (Tongern), the Menapii (Brabant), and the Batavi, while the cantons situated farther to the west, including Metz and Treves, were placed under the different governors of the three Gauls. While this separation has merely administrative significance, on the other hand the varying extent of the two jurisdictions on the right bank coincides with the varying relations to their neighbours and the advancing or receding of the bounds of the Roman rule conditioned by those relations. With these neighbours confronting them, matters on the lower and on the upper Rhine were regulated in ways so diverse, and the course of events was so thoroughly different that here the provincial separation became historically of the most decisive importance. Let us look first at the development of things on the lower Rhine.
Lower Germany.
We have formerly described how far the Romans had subjugated the Germans on both banks of the Rhine. The Germanic Batavi had been peacefully united with the empire not by Caesar, but not long afterwards, perhaps by Drusus (p. 28). They were settled in the Rhine delta, that is on the left bank of the Rhine and on the islands formed by its arms, upwards as far at least as the Old Rhine, and so nearly from Antwerp to Utrecht and Leyden in Zealand and southern Holland, on territory originally Celtic—at least the local names are predominantly Celtic; their name is still borne by the Betuwe, the lowland between the Waal and the Leck with the capital Noviomagus, now Nimeguen. They were, especially compared with the restless and refractory Celts, obedient and useful subjects, and hence occupied a distinctive position in the aggregate, and particularly in the military system, of the Roman empire. They remained quite free from taxation, but were on the other hand drawn upon more largely than any other canton in the recruiting; this one canton furnished to the army 1000 horsemen and 9000 foot soldiers; besides, the men of the imperial body–guard were taken especially from them. The command of these Batavian divisions was conferred exclusively on native Batavi. The Batavi were accounted indisputably not merely as the best riders and swimmers of the army, but also as the model of true soldiers, and in this case certainly the good pay of the Batavian body–guard, as well as the privilege of the nobles to serve as officers, considerably confirmed their loyalty. These Germans accordingly had taken no part either preparatory to, or consequent upon, the disaster of Varus; and if Augustus, under the first impression of the terrible news, discharged his Batavian guard, he soon became convinced of the groundlessness of his suspicion, and the troop was a short time afterwards reinstated.
Cannenefates.
On the other bank of the Rhine next to the Batavi, in the modern Kennemer district (North Holland beyond Amsterdam), dwelt the Cannenefates, closely related to them but less numerous; they are not merely named among the tribes subjugated by Tiberius, but were also treated like the Batavi in the furnishing of soldiers.
Frisians.
The Frisians, adjoining these further on, in the coast district that is still named after them, as far as the lower Ems, submitted to Drusus and obtained a position similar to that of the Batavi. There was imposed on them instead of tribute simply the delivery of a number of bullocks’ hides for the wants of the army; on the other hand they had to furnish comparatively large numbers of men for the Roman service. They were the most faithful allies of Drusus as afterwards of Germanicus, useful to him in constructing canals as well as especially after the unfortunate North Sea expeditions (p. 53).
Chauci.
They were followed on the east by the Chauci, a widely extended tribe of sailors and fishermen along the coast of the North Sea on both sides of the Weser, perhaps from the Ems to the Elbe; they were brought into subjection to the Romans by Drusus at the same time with the Frisians, but not, like these, without resistance. All these Germanic coast tribes submitted either by agreement or at any rate without any severe struggle to the new rule, and as they had taken no part in the rising of the Cherusci, they still continued after the battle of Varus in their earlier relations to the Roman empire; even from the more remote cantons of the Frisians and the Chauci the garrisons were not at that time withdrawn, and the latter still furnished a contingent to the campaigns of Germanicus. On the renewed evacuation of Germany in the year 17 the poor and distant land of the Chauci, difficult of protection, seems certainly to have been given up; at least there are no later evidences of the continuance of the Roman dominion there, and some decades later we find them independent. But all the land westward of the lower Ems remained with the empire, whose boundary thus included the modern Netherlands. The defence of this part of the imperial frontier against the Germans not belonging to the empire was left in the main to the subject maritime cantons themselves.
Limes and desert–frontier on the lower Rhine.
Farther up the stream a different course was taken; a frontier–road was here marked off, and the land lying between it and the Rhine was depopulated. With the frontier–road drawn at a greater or less distance from the Rhine, the Limes,65 was associated the control of frontier–intercourse, as the crossing of this road was forbidden altogether by night, and, as regards armed men, by day, and was permitted in the case of others, as a rule, only under special precautions for security and on payment of the prescribed transit–dues. Such a road was drawn opposite to the headquarters on the lower Rhine, in what is now Münster, by Tiberius after the disaster of Varus, at some distance from the Rhine, seeing that between it and the river stretched the “Caesian forest,” the more precise position of which is not known. Similar arrangements must have been made at the same time in the valleys of the Ruhr and the Sieg as far as that of the Wied, where the province of the lower Rhine ended. This road did not necessarily require to be militarily occupied and arranged for defence, although of course the defence of the frontier and the fortification of it always aimed at making the frontier–road as far as possible secure. A chief means for protecting the frontier was the depopulation of the tract of land between the river and the road. “The tribes on the right bank of the Rhine,” says a well–informed author of the time of Tiberius, “have been in part transferred by the Romans to the left bank, in part withdrawn of their own accord into the interior.” This applied, in what is now the Münster country, to the Germanic stocks earlier settled there of the Usipes, Tencteri, Tubantes. In the campaigns of Germanicus these appear dislodged from the Rhine, but still in the region of the Lippe, afterwards, probably in consequence of those very expeditions, farther southward opposite to Mentz. Their old home lay thenceforth desolate, and formed the extensive pasture–country reserved for the herds of the lower Germanic army, on which in the year 58 first the Frisii and then the Amsivarii, wandering homeless, thought of settling, without