Meanwhile, the Romans took drastic steps to raise new legions: enrolling slaves, criminals and those who did not meet the usual property qualification. By early 215BC they were fielding at least 12 legions; by 214BC, 18; and by 213BC, 22. By 212 BC the full complement of the legions deployed would have been in excess of 100,000 men, plus, as always, a similar number of allied troops. The majority were deployed in southern Italy in field armies of approximately 20,000 men each. This was insufficient to challenge Hannibal's army in open battle, but sufficient to force him to concentrate his forces and to hamper his movements.