No-one did. The system of checks and balance
of powers of the Roman Republic was restricted to the executive
officers of state (the consuls, praetors, censors, aediles and
quaestors). Officers of the same rank could veto each other and
officers of higher rank could veto officers of lower rank. The
Roman senate was not a legislative body. Bills were submitted by
the consuls to the vote of the Assembly of the Soldiers or the
Assembly of the Tribes (an assembly of the districts) or by the
plebeian tribunes who submitted them to the vote of the Plebeian
Council. These were popular assemblies. Thus, the people themselves
voted on bills. The senators were not elected. They were drawn for
the families of the patrician aristocracy or they were former
officers of state. The latter automatically became senators for
life. It was an advisory body were policy matters were discussed
and which provided advice on bills (senatus consultum) and
sometimes issued decrees. It also supervised the treasury. On
social matters it represented the interests of the aristocracy.
With the increase in Roman military activity and imperial expansion
it became the most powerful institution of the Republic. This is
because it was a body which was capable of co-ordinating the
deployment of several legions on several fronts and of organising
the administration of the Roman provinces.
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