Shame on me for not contributing to this discussion sooner.
As many of you know, I am working on a series of rulebooks that are intended to cover the entirety of Star Trek history, for the purpose of starship wargaming. The Original Series era is the first cab off the rank, and the Romulan War is likely to be the second.
I've put a lot of thought into my interpretation of the Romulans, and here's some of my observations:
Firstly, we know that the Romulans are but a shadow of their former glorious selves by the time of 'Balance of Terror'. Why? Simply because they didn't simply lose their war against Earth and her allies between 2156 and 2160 – they were thrashed.
Following their defeat, the Romulan Empire was reduced to a handful of systems (perhaps only 2?) and restricted from expansion coreward by a far more powerful Starfleet, supporting a cordon of military outposts, standing like watchtowers around a prison.
The one concession the Romulans could wring from their victorious opponents was that their coreworlds were not occupied. (A kindness the Federation may have later regretted.)
During the Enterprise era, we see that the Romulans are building advanced, highly capable warships, probably to a quality far higher than the efforts of Earth shipwrights. Ship-for-ship, Romulan designs could beat anything Earth's Starfleet could put in the field.
But, as the Germans discovered in WW2, quantity has a quality of its own.
When war finally broke out, after Romulan attempts to sabotage the 'Coalition of Planets' failed, their initial gains were staggering. The Romulan fleet pushed Humanity to the brink, in spite of the sacrifices of Starfleet, and their Andorian and Tellarite allies.
Vulcan, of course, did assist in the war. But, still reeling from the recent cultural tsunami that was the recovery of Surak's Katra, their contribution was limited to humanitarian and scientific aid. No Vulcan ship actively participated in the war against Romulus.
(That there was some kind of Romulan subterfuge to keep Vulcan out of the war now seems likely, but that alone cannot explain the planet-wide pacifism that now guided the actions of all Vulcans. )
Although the Romulan fleet pushed all the way through to Earth itself, it was fighting a losing battle. As lines of communication grew untenably long and thin, Starfleet's superior numbers began to tell. Raids against Romulan convoys and supply depots left battlegroups without ordinance or fuel.
Compounding the difficulty was the nature of Romulan faster-that-light technology. Romulan vessels relied on 'Jump' FTL technology. This had the advantage of requiring only simpler, safer fusion reactors as a power source, but unlike a ship with warp drive, a 'jumping' vessel cannot communicate or use sensors while underway.
Romulan development of matter / antimatter reactors (essential for warp technology) was hampered by a misguided enthusiasm for a more sophisticated quantum singularity reactor, but such a reactor would not become a reality for more that two centuries.
Once Starfleet understood this disadvantage, it was exploited to the full; systems would be left with a small, understrength force to defend them, which would be set upon by a jumped-in Romulan fleet. But then, the real Starfleet force would be called in by the 'bait', trapping the Romulans with superior numbers.
As the losses of their finest ships piled up, the Romulans turned to simpler, less sophisticated technologies and ship building techniques, desperate to match the industrial might of the coalition. As they did so, their ships became more primitive, less capable, and in the end, worthless.
This is where we see the 'wonder weapon' mentality of the Romulan military begin. Their high command spent the last months of the war trying to perfect cloaking devices, plasma weapons, and singularity reactors, diverting vitally needed resources from the front lines in the arrogant belief that superior Romulan intellect would deliver victory from the jaws of defeat.
It didn't.
But their legacy was a profound shift in Starfleet's thinking about ship design. In the future, rather than rely on numerous, lesser-quality vessels, Starfleet would emulate the Romulans by producing smaller numbers of ships built to the highest standards. It proved a winning formula during the war with the Klingon Empire a century later, but only by the slimmest of margins.
In the meantime, the Romulans, reduced to a handful of worlds, became the also-ran power of the Alpha / Beta Quadrants. Unsurprisingly, in such a precarious position, even Romulan arrogance and pride had to take a back seat to practicality, leading to the alliance with the Klingon Empire.
Working to the principle that 'my enemy's enemy is my friend', the Romulans accepted the Klingon's offer of a mutual protection treaty in 2205. This was expanded to a technological exchange treaty in 2267, leading to the Romulans gaining a number of Klingon vessels and warp systems, while the Klingons obtained early cloaking devices and plasma weapons.
This allowed the Romulans to expand their empire rimward, carefully choosing systems unlikely to attract the attentions of the Federation until it was too late for Starfleet to do anything about it.
At the same time, Romulan ship builders benefited from the exchange treaty, leading to new designs that could match Starfleet's capabilities, such as the Gallant Wing class cruiser.
However, even these advances could not offset the Federation's great technological and industrial advantages. Romulan foreign policy was still reliant on espionage and manipulation, leaving the fleet as a poor cousin to the intelligence service – the Tal Shiar.
This state of affairs would continue until the early 2300's, when the Romulans felt sufficiently strong enough to shake off the bonds imposed by their alliance with the Klingons. (They were likely spurred to action by the warming of relations between the Klingons and the UFP.)
War with the Klingons followed, which again, the Romulans lost. But at least this was not as severe a defeat as the war with Earth, and the Romulans, after a period of isolation, returned to the galactic stage in a big way by the 2360's.
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Phew!
Of course this is only IMT (In My Trek – thank you Will for that phrase!) and your interpretation may differ however you desire. But I have thought (much too) long and hard about this dilemma of Star Trek's portrayal of the Romulans, and this is my resolution for the sometimes conflicting information.
It is also why the Romulans don't feature much in volume 1 of KotSB! but will dominate volume 2. I thought people might like to see my thinking as to why. :)
- Martin