When LoR goes live everyone will get a free Romulan character slot. It has nothing to do with the Legacy or Starter Packs - as those are just C--Store bundles. You do not need to buy either to play as a Romulan.
STO is about my Liberated Borg Federation Captain with his Breen 1st Officer, Jem'Hadar Tactical Officer, Liberated Borg Engineering Officer, Android Ops Officer, Photonic Science Officer, Gorn Science Officer, and Reman Medical Officer jumping into their Jem'Hadar Carrier and flying off to do missions for the new Romulan Empire. But for some players allowing a T5 Connie to be used breaks the canon in the game.