Rome fed a significant portion of its population for free, and had been doing so, in various forms, for over five centuries by the time the Western Empire collapsed. The grain dole — the frumentatio in its Republican form, the annona in its more developed imperial incarnation — was not a welfare program in the modern sense, though it served some of the same social functions. It was a political institution, a mechanism for managing the relationship between the imperial government and the volatile urban population of the capital, and it was expensive enough, logistically complex enough, and politically significant enough to have shaped the development of Roman administration, agriculture, and provincial policy for centuries.