Central to the Gracchi reforms was an attempt to address economic distress and its military consequences. Much public land ("ager publicus") had been divided among large landholders and speculators who further expanded their estates by driving peasants off their farms. While their old lands were being worked by slaves, the peasants were often forced into idleness in Rome where they had to subsist on handouts due to a scarcity of paid work. They could not legally join the army because they did not meet the property qualification; and this, together with the lack of public land to give in exchange for military service and the mutinies in the Numantine War, caused recruitment problems and troop shortages.