‘Salute all those who have the rule over you, and all the saints. They of Italy salute you.'
He then calls on them to pass his greetings on to the leadership of their church, and all the other Christians who are there. This would seem to confirm that he is writing to a group within that church, possibly a house group or a special interest group, for he wants his greeting passed on to ‘all the saints', all God's people in that area.
‘They of Italy salute you.' Paul regularly passed on greetings from those whom he was with, and no doubt his fellow-workers, especially those who worked as his emanuenses (personal secretaries), had also learned the habit from him. This might suggest that he was writing from Italy. But it may equally signify ‘those who come from Italy', that is, possibly, those who have brought him news of this group of people and their troubles, having arrived from Italy to where the writer was to be found.