Scipio made himself unpopular again. Appian related that Fulvius Flaccus, Papirius Carbo and Tiberius’ younger brother, Gaius Sempronius Gracchus, chaired a commission to implement the Gracchian law. There never had been a land survey and land owners often did not have land deeds. The land was resurveyed. Some owners had to give up their orchards and farm buildings and go to empty land or move from cultivated to uncultivated land or swamps. As anyone was allowed to work undistributed land, many tilled land next to their own, blurring the demarcation between public and private land. Rome's Italian allies complained about lawsuits brought against them and chose Scipio Aemilianus to defend them. As the allies had fought in his wars, he accepted. In the senate Scipio did not criticise the Law, but argued that the cases should be heard by a court rather than the commission which did not have the confidence of the litigants. This was accepted and the consul Gaius Sempronius Tuditanus was appointed to give judgment. However, seeing that the job was difficult he found a pretext to fight a war in Illyria. The people were angry "because they saw a man, in whose favour they had often opposed the aristocracy and incurred their enmity, electing him consul twice contrary to law, now taking the side of the Italian allies against themselves" His enemies claimed that he was determined to abolish the Gracchian law and was about to start "armed strife and bloodshed". When the people heard these allegations they were in a state of alarm until Scipio died at home in his bed; according to Appian, without a wound.