In theory, the popular assemblies held sovereign power. But in practice, the Senate was the most powerful institution in the republic. The Senate could not pass laws, but it would prepare legislation for the popular assemblies with the expectation that it would be ratified. It also controlled finances and foreign affairs.44 In the Senate, political discussions were free and senators would often attack each other viciously. But freedom of discussion was not equal, seeing that senators spoke in order of rank.45 Neither was it possible for just anyone to become a senator. Members were usually
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