BUREAUCRACY IN THE ROMAN EMPIRE

ADMINISTRATION IN THE ROMAN EMPIRE


Roman seal

Some people regard the Roman Empire as the Golden Age of Europe. The Romans created a legal and political system that endures to this day, and not only conquered a lot of territory but established an administration system to run it.

Andrew Wallace-Hadrill of the University of Reading wrote for the BBC: “ One image of the imperial system is of strong, effective central control. The figure of the emperor himself, as defined by Julius Caesar and Augustus, stands for good order in contrast to the chaos of pluralism - squabbling city-states or competing aristocrats. [Source: Professor Andrew Wallace-Hadrill, BBC, February 17, 2011 |::|]

“Historians have underlined the benefits of provincial government restrained by imperial control and the development of a sophisticated and complex law code which still underlies continental legal systems. They have pointed to the benefits of the central bureaucracy built up by the early emperors, especially Claudius, which provided a structure for long-term continuity amid changing dynasties. That bureaucratic mentality, you could say, transmitted from late antiquity through the papacy to modern nation states, is what makes contemporary Brussels possible. |::|

It was during the period of the Antonines (A.D. 96-192 particularly Hadrian: 117 – 138 and Antoninus Pius: 138 – 161) that the imperial government reached its highest development. This government was, in fact, the most remarkable example that the world has ever seen of what we may call a “paternal autocracy”—that is government in the hands of a single ruler, but exercised solely for the benefit of the people. In this respect the ideals of Julius and Augustus seem to have been completely realized. The emperor was looked upon as the embodiment of the state, the personification of law, and the promoter of justice, equality, and domestic peace. Every department of the administration was under his control. He had the selection of the officials to carry into execution his will. The character of such a government the Romans well expressed in their maxim, “What is pleasing to the prince has the force of law.” [Source: “Outlines of Roman History” by William C. Morey, Ph.D., D.C.L. New York, American Book Company (1901) \~]

Websites on Ancient Rome: Internet Ancient History Sourcebook: Rome sourcebooks.fordham.edu ; Internet Ancient History Sourcebook: Late Antiquity sourcebooks.fordham.edu ; BBC Ancient Rome bbc.co.uk/history; Perseus Project - Tufts University; perseus.tufts.edu ; Lacus Curtius penelope.uchicago.edu; The Internet Classics Archive classics.mit.edu ; Bryn Mawr Classical Review bmcr.brynmawr.edu; Cambridge Classics External Gateway to Humanities Resources web.archive.org; Ancient Rome resources for students from the Courtenay Middle School Library web.archive.org ; History of ancient Rome OpenCourseWare from the University of Notre Dame web.archive.org ; United Nations of Roma Victrix (UNRV) History unrv.com

Civitates — Roman City-States

J. A. S. Evans wrote in the New Catholic Encyclopedia: The empire was made up of civitates (or, in the Greek-speaking east, poleis), that is, territories with their political and administrative centers in their chief town. In the east, Rome found poleis or "city-states" already well established with their own laws and customs, and Rome allowed these to continue. Life in the Hellenistic cities in the east continued with little change. Rome continued to foster cities as the Hellenistic kings had done before they were overtaken by Roman imperialism. In the west, cities and Romanization went hand in hand, and the Italian municipality provided the model for new city foundations. The city was responsible for administering its own territory. Egypt was the exception: except for Alexandria, the old capital of the Ptolemaic kingdom, cities were foreign to Egypt. The prefect ruled as the Ptolemaic kings had done before him until the Severan period, when municipalities were established there, too. [Source: J. A. S. Evans, New Catholic Encyclopedia, Encyclopedia.com]

The members of the city councils (curiae) were chosen from the wealthy notables of the city, and during the great period of the pax Romana they considered it an honor to serve. The curiae were responsible for collecting the taxes, the tributum soli, a tax on land, and the tributum capitis, a poll tax. These were the empire's chief source of revenue, though in addition there were customs dues at the frontiers and at provincial boundaries as well as the aurum coronarium, which began as a voluntary offering of a gold crown by a city to an emperor on his accession and evolved into a supplementary tax that was demanded with increased frequency. Wealthy notables were also generous donors and paid for many of the public amenities out of their own pockets. The ruined cities of Roman Africa in particular bear mute witness to the euergetism of their citizens, who grew rich from the production of wheat and olive oil for export.

Bureaucracy and Administration Under Augustus


In accordance with his general policy Augustus did not interfere with the old republican offices and magistrates, but allowed them to remain as undisturbed as possible. The consuls, praetors, quaestors, and other officers continued to be elected just as they had been before. But the emperor did not generally use these magistrates to carry out the details of his administration. This was performed by other officers appointed by himself. The position of the old republican magistrates was rather one of honor than one of executive responsibility. [Source: “Outlines of Roman History” by William C. Morey, Ph.D., D.C.L. New York, American Book Company (1901)

Suetonius wrote: “To enable more men to take part in the administration of the State, he devised new offices: the charge of public buildings, of the roads, of the aqueducts, of the channel of the Tiber, of the distribution of grain to the people, as well as the prefecture of the city, a board of three for choosing Senators, and another for reviewing the companies of the knights whenever it should be necessary. He appointed censors, an office which had long been discontinued. He increased the number of praetors. He also demanded that whenever the consulship was conferred on him, he should have two colleagues instead of one; but this was not granted, since all cried out that it was a sufficient offence to his supreme dignity that he held the office with another and not alone. [Source: Suetonius (c.69-after 122 A.D.): “De Vita Caesarum — Divus Augustus” (“The Lives of the Caesars — The Deified Augustus”), written A.D. c. 110, “Suetonius, De Vita Caesarum,” 2 Vols., trans. J. C. Rolfe (Cambridge, Mass.: Harvard University Press, 1920), pp. 123-287]

“He was not less generous in honouring martial prowess, for he had regular triumphs voted to above thirty generals, and the triumphal regalia to somewhat more than that number. To enable Senators' sons to gain an earlier acquaintance with public business, he allowed them to assume the broad purple stripe immediately after the gown of manhood and to attend meetings of the Senate; and when they began their military career, he gave them not merely a tribunate in a legion, but the command of a division of cavalry as well; and to furnish all of them with experience in camp life, he usually appointed two Senators' sons to command each division. He reviewed the companies of knights at frequent intervals, reviving the custom of the procession after long disuse. But he would not allow an accuser to force anyone to dismount as he rode by, as was often done in the past; and he permitted those who were conspicuous because of old age or any bodily infirmity to send on their horses in the review, and come on foot to answer to their names whenever they were summoned. Later he excused those who were over thirty-five years of age and did not wish to retain their horses from formally surrendering them. “Having obtained ten assistants from the Senate, he compelled each knight to render an account of his life, punishing some of those whose conduct was scandalous and degrading others; but the greater part he reprimanded with varying degrees of severity. The mildest form of reprimand was to hand them a pair of tablets publicly, which they were to read in silence on the spot. He censured some because they had borrowed money at low interest and invested it at a higher rate.

Administrative Corps of the Roman Empire


J. A. S. Evans wrote: The Senate. Augustus' accomplishment displays a nice balance between respect for senatorial traditions and eagerness to harness the abilities and loyalty of new blood. He chose his highest civil and military officers from among the senators, and three times (29/8, 18, 13 B.C.) he purged the rolls of the senate to rid it of undesirable members. For the first time he set a property qualification: either 800 thousand sesterces, according to Suetonius or 400 thousand (Cassius Dio) but he raised it periodically and at the start of Tiberius' reign it stood at one million. The republican magistrates continued to be elected. [Source: J. A. S. Evans, New Catholic Encyclopedia, Encyclopedia.com]

The consuls had little to do except preside over the Senate, but the consulship was still prestigious, and it opened the door for military commands and the governorship of senatorial provinces. Competition for the consulship was keen, and around 5 B.C. the number chosen each year was doubled by introducing suffect consuls: the two consuls would resign office after six months and their places would be taken by two suffects. The praetors, eight until 23 B.C. then ten, and in Augustus' last years, 12, still had judicial duties; two of them became treasury officials after 23, managing the aerarium, and the next year they took over from the aediles the attractive duty of giving public games.

The tribunes had nothing left to do, and the office became so unattractive to senators that in A.D. 12, Augustus opened it to the equites. Aediles had little to do except to repair streets and act as a small claims court in commercial cases, so there was, understandably, a dearth of candidates. The quaestorship gave admission to the Senate. Twenty quaestors were elected each year and about half served in the provinces. Elections in the Centuriate Assembly for the praetors and consuls were lively, and Augustus had to take steps to control corruption. He had another control as well: by virtue of his proconsular imperium he could reject nominees, and present his own preferred list of candidates for the consulship and the praetorship. Other consuls could also commend nominees, and Roman politicians regularly canvassed for their candidates, but when Augustus canvassed, his commendation carried particular weight. It would be too much to say that the elections in the Centuriate Assembly were entirely free. The emperor Tiberius abolished them, and henceforth magistrates were elected in the Senate.

Administration of Rome and Italy

After more than a hundred years of civil war Rome was in need of some improvement to say the least. Augustus met this need by creating certain new officers to keep the city under better control. In the first place, he established a city police under the charge of a chief (praefectus urbi), to preserve order and prevent the scenes of violence which had been of such frequent occurrence. In the next place, he created a fire and detective department under the charge of another chief (praefectus vigilum), to have jurisdiction over all incendiaries, burglars, and other night-prowlers. [Source: “Outlines of Roman History” by William C. Morey, Ph.D., D.C.L. New York, American Book Company (1901) \~]


Caesar with some surrendering Gauls

“He then placed the grain supply under a regular officer (praefectus annonae) who was to superintend the transport of grain from Egypt, and was held responsible for its proper distribution. Moreover, he broke up the “secret clubs” which had been hotbeds of disorder, and substituted in their place more orderly societies under the supervision of the government. For administrative purposes the city was divided into fourteen districts, or wards. By these arrangements, life and property became more secure, and the populace became more orderly and law-abiding. \~\

“Italy was now extended to the Alps, the province of Cisalpine Gaul having lately been joined to the peninsula. The whole of Italy was divided by Augustus into eleven “regions,” or administrative districts. In order to maintain the splendid system of roads which had been constructed during the republican period, the emperor appointed a superintendent of highways (curator viarurn) to keep them in repair. He also established a post system by which the different parts of the peninsula could be kept in communication with one another. He suppressed brigandage by establishing military patrols in the dangerous districts. It was his policy to encourage everywhere the growth of a healthy and vigorous municipal life. To relieve the poverty of Italy he continued the plan of Julius Caesar in sending out colonies into the provinces, where there were better opportunities to make a living.” \~\

Roman Bureaucracy and Administration Improved Under Claudius

The Roman Empire prospered during the reign Claudius I (born 10 B.C, ruled A.D. 37 -45). Regarded as a crippled, uncouth scholar and characterized by some as a "dim-witted oaf" because he stuttered and had the habit of drooling, Claudius improved Rome’s administrative efficiency by centralizing the government, taking control of the treasury, and expanding the civil service. According to the Metropolitan Museum of Art: “Rome prospered during the succeeding He engaged in a vast program of public works, including new aqueducts, canals, and the development of Ostia as the port of Rome.

It is to the credit of Claudius that he was greatly interested in the condition of the provinces. He spent much time in regulating the affairs of the East. The kingdom of Thrace was changed into a province, and governed by a Roman procurator. Lycia, in Asia Minor, also was made a province, as well as Mauretania in Africa. One of the most important changes which he made was the restoration of the kingdom of the Jews to Herod Agrippa. This he did out of respect for this people, and to allay the bad feeling which had been stirred up during the previous reign. But Claudius especially showed his interest in the provinces by extending to them the rights of Roman citizenship. The civitas was granted to a large part of Gaul, thus carrying out the policy which had been begun by Julius Caesar. If we except the scandals of the court, the reign of Claudius may be regarded as inspired by prudence and a wise regard for the welfare of his subjects. [Source: “Outlines of Roman History” by William C. Morey, Ph.D., D.C.L. New York, American Book Company (1901) \~]


Claudius

Suetonius wrote: “Jurisdiction in cases of trust, which it had been usual to assign each year and only to magistrates in the city, he delegated for all time and extended to the governors of the provinces. He annulled a clause added to the Lex Papia Poppaea by Tiberius, implying that men of sixty could not beget children. He made a law that guardians might be appointed for orphans by the consuls, contrary to the usual procedure, and that those who were banished from a province by its magistrates should also be debarred from the city and from Italia. He himself imposed upon some a new kind of punishment, by forbidding them to go more than three miles outside of the city [The "relegatio" was a milder form of exile, without loss of citizenship or confiscation of property, but in this case the offenders were not banished, but confined to the city and its immediate vicinity]. When about to conduct business of special importance in the Senate, he took his seat between the two consuls or on the tribunes' bench. He reserved to himself the granting of permission to travel, which had formerly been requested of the Senate. [Source: Suetonius (c.69-after 122 A.D.) : “De Vita Caesarum:Claudius” (“The Lives of the Caesars: Claudius”), written in A.D. 110, 2 Vols., translated by J. C. Rolfe, (Cambridge, Mass.: Harvard University Press, and London: William Henemann, 1920), Vol. I, pp. 405-497, modernized by J. S. Arkenberg, Dept. of History, Cal. State Fullerton]

“He gave the consular regalia even to the second grade of stewards [The procuratores were the emperor's agents, who performed various administrative duties throughout the empire. They were members of the equestrian ordo and were ranked on the basis of their annual stipend as trecenarii, ducenarii, centenarii, and sexagenarii, receiving, respectively, 300,000, 200,000, 100,000, and 60,000 sesterces]. If any refused senatorial rank [A common reason for this was the desire to engage in commerce, which senators were not allowed to do], he took from them the rank of eques also. Though he had declared at the beginning of his reign that he would choose no one as a senator who did not have a Roman citizen for a great-great-grandfather, he gave the broad stripe even to a freedman's son, but only on condition that he should first be adopted by a Roman eques.

Vespasian (ruled A.D. 69-79), Money and Control of the Roman Treasury

According to the Metropolitan Museum of Art: “ Vespasian showed great moderation and common sense in his dealings as emperor, but he was also known for his greed. One reason was that he needed to increase taxation in order to restore public finances and refill the imperial treasury. He reformed the Senate, whose authority and numbers had diminished under Nero and during the civil wars. Vespasian also recruited equestrian officers, who brought personal wealth, and Italian and provincial members, who brought local knowledge, to the imperial administration and civil service. Furthermore, he guaranteed a stable succession with his sons Titus and Domitian, both able administrators. [Source: Department of Greek and Roman Art,Metropolitan Museum of Art, October 2000, metmuseum.org ]

Suetonius wrote: “The only thing for which he can fairly be censured was his love of money. For not content with reviving the imposts which had been repealed under Galba, he added new and heavy burdens, increasing the amount of tribute paid by the provinces, in some cases actually doubling it, and quite openly carrying on traffic which would be shameful even for a man in private life; for he would buy up certain commodities merely in order to distribute them at a profit. He made no bones of selling offices to candidates and acquittals to men under prosecution, whether innocent or guilty. [Source: Suetonius (c.69-after 122 A.D.): “De Vita Caesarum: Vespasian” (“Life of Vespasian”), written c. A.D. 110, translated by J. C. Rolfe, Suetonius, 2 Vols., The Loeb Classical Library (London: William Heinemann, and New York: The MacMillan Co., 1914), II.281-321]


Vespasian is famous for introducing a a tax on toilets, like these in Ephesus

“He is even believed to have had the habit of designedly advancing the most rapacious of his procurators to higher posts, that they might he the richer when he later condemned them; in fact, it was common talk that he used these men as sponges, because he, so to speak, soaked them when they were dry and squeezed them when they were wet. Some say that he was naturally covetous and was taunted with it by an old herdsman of his, who on being forced to pay for the freedom for which he earnestly begged Vespasian when he became emperor cried: "The fox changes his fur, but not his nature." Others, on the contrary, believe that he was driven by necessity to raise money by spoliation and robbery because of the desperate state of the treasury and the privy purse; to which he bore witness at the very beginning of his reign by declaring that forty thousand millions were needed to set the State upright. This latter view seems the more probable, since he made the best use of his gains, ill gotten though they were.

“He was most generous to all classes, making up the requisite estate for senators [This had been increased to 1,200,000 sesterces by Augustus], giving needy ex-consuls an annual stipend of five hundred thousand sesterces, restoring to a better condition many cities throughout the empire which had suffered from earthquakes or fires, and in particular encouraging men of talent and the arts.

“He was the first to establish a regular salary of a hundred thousand sesterces for Latin and Greek teachers of rhetoric, paid from the privy purse. He also presented eminent poets with princely largess and great rewards, and artists, too, such as the restorer of the Venus of Cos [Doubtless referring to the statue of Venus consecrated by Vespasian in his Temple of Peace, the sculptor of which, according to Pliny, was unknown. The Venus of Cos was the work of Praxiteles], and of the Colossus [The colossal statue of Nero; see Nero, xxxi.1]. To a mechanical engineer, who promised to transport some heavy columns to the capitol at small expense, he gave no mean reward for his invention, but refused to make use of it, saying: "You must let me feed my poor commons."

“When Titus found fault with him for contriving a tax upon public toilets, he held a piece of money from the first payment to his son's nose, asking whether its odor was offensive to him. When Titus said "No," he replied, "Yet it comes from urine." On the report of a deputation that a colossal statue of great cost had been voted him at public expense, he demanded to have it set up at once, and holding out his open hand, said that the base was ready. He did not cease his jokes even then in apprehension of death and in extreme danger; for when among other portents the Mausoleum [Of Augustus] opened on a sudden and a comet appeared in the heavens, he declared that the former applied to Junia Calvina of the family of Augustus, and the latter to the king of the Parthians, who wore his hair long; and as death drew near, he said: "Woe's me. Methinks I'm turning into a god."”

Pliny the Younger as an Administrator for Trajan in Asia Minor

Bithynia was Roman province in the northwest of Asia Minor (present-day Turkey). William Stearns Davis wrote: “About 112 CE. Trajan appointed Pliny the Younger, a distinguished Senator and literary man, as governor of Bithynia — a province suffering from previous maladministration. The nature of the governor's problems and the obligation he was under of referring very petty matters to the Emperor appears clearly in the following letters. This correspondence of Trajan and Pliny (given here only in small part) is among the most valuable bits of historical data we have for the whole Imperial Age.

Pliny the Younger: Letters, X.25 ff: The Correspondence of a Provincial Governor and the Emperor Trajan: Pliny to Trajan: “The people of Prusa, Sire, have a public bath in a neglected and dilapidated state. They wish - with your kind permission — to restore it; but I think a new one ought to be built, and I reckon you can safely comply with their wishes. [Then the governor names various ways to find the money, especially cutting down the free distribution of oil.]” [Source: Pliny the Younger (61/62-113 A.D.) and Trajan (r.98-117 A.D.): Letters, Book X. 25ff : The Correspondence of a Provincial Governor and the Emperor Trajan, c. 112 A.D. William Stearns Davis, ed., “Readings in Ancient History: Illustrative Extracts from the Sources,” 2 Vols. (Boston: Allyn and Bacon, 1912-13), Vol. II: Rome and the West, 196-210, 215-222, 250-251, 289-290, 295-296, 298-300]


Trajan to Pliny: “If the building of a new bath will not cripple the finances of Prusa, we can indulge their wishes; only it must be understood that no new taxes are to be raised to meet the cost, and that their contributions for necessary expenses shall not show any falling off.”

Pliny to Trajan: “A desolating fire broke out in Nicomedia, and destroyed a number of private houses, and two public buildings — the almshouse and the temple of Isis — although a road ran between them. The fire was allowed to spread farther than it need, first owing to the violent wind; second, to the laziness of the citizens, it being generally agreed they stood idly by without moving, and simply watched the conflagration. Besides there was not a single public fire engine or bucket in the place, and not one solitary appliance for mastering a fire. However, these will be provided upon orders I have already given. But, Sire, I would have you consider whether you think a fire company of about 150 men ought not to be formed? I will take care that no one not a genuine fireman shall be admitted, and that the guild should not misapply the charter granted it. Again there would be no trouble in keeping an eye on so small a body.”

Trajan to Pliny: “You have formed the idea of a possible fire company at Nicomedia on the model of various others already existing; but remember that the province of Bithynia, and especially city-states like Nicomedia, are the prey of factions. Give them the name we may, and however good be the reasons for organization, such associations will soon degenerate into dangerous secret societies. It is better policy to provide fire apparatus, and to encourage property holders to make use of them, and if need comes, press the crowd which collects into the same service.”

Pliny to Trajan: “Sire, a person named Julius Largus of Pontus, whom I have never seen or heard of before, has intrusted me with the management of his property with which he seeks to prove his loyalty to you. For he has asked me in his will to undertake as heir the division of his property, and after keeping 50,000 sesterces, hand over all the remainder to the free cities of Heraclea and Teos. He leaves it to my discretion whether I think it better to erect public works and dedicate them to your glory, or to start an athletic festival, to be held every five years, and to be called the "Trajan Games." I have decided to lay the facts before you and ask your decision.”

Trajan to Pliny: “Julius Largus, in picking you out for your trustworthiness, has acted as though he knew you intimately. So do you consider the circumstances of each place, and the best means of perpetuating his memory, and follow the course you think best.”

Reforms of Diocletian


Diocletian coin

Dr Jon Coulston of the University of St. Andrews wrote for the BBC: “The denigration of the imperial office through a vicious cycle of usurpations and assassinations was halted long enough by Diocletian (ruled 284 - 305 AD) and his co-emperors for stable rule to be re-established. He established a 'college' of four emperors - two senior men with the title 'Augustus' who appointed two junior 'Caesars' - called the Tetrarchy. This ensured stability of succession and meant that four men could handle simultaneous crises on widely-spread frontiers. [Source: Dr Jon Coulston, BBC, February 17, 2011 |::|]

“Military and civil (judicial and financial) administrations were entirely separated for enhanced security against rivals. Currency reforms, regularisation of army supply, enlargement of the army, and successful operations against usurpers and foreign enemies contributed to internal stability. New legions were raised and new, imposing designs in fortifications were applied across the empire. A programme of regime propaganda and harnessed traditional cults enhanced loyalty to the state.” |::|

The general result of the new policy of Diocletian was to give to the empire a strong and efficient government. The dangers which threatened the state were met with firmness and vigor. A revolt in Egypt was quelled, and the frontiers were successfully defended against the Persians and the barbarians. Public works were constructed, among which were the great Baths of Diocletian at Rome. At the close of his reign he celebrated a triumph in the old capital. [Source: “Outlines of Roman History” by William C. Morey, Ph.D., D.C.L. New York, American Book Company (1901) \~]

Notitia Dignitatum (Register of Dignitaries), A.D. 400

The Notitia Dignitatum (Register of Dignitaries, c. A.D. 400) is an official listing of all civil and military posts in the Roman Empire, East and West. It survives as a 1551 copy of the now-missing original and is the major source of information on the administrative organization of the late Roman Empire. William Fairley wrote: “The Notitia Dignitatum is an official register of all the offices, other than municipal, which existed in the Roman Empire.... Gibbon gave to this document a date between 395 and 407 when the Vandals disturbed the Roman regime in Gaul. [Source: Notitia Dignitatum (Register of Dignitaries), William Fairley, in Translations and Reprints from Original Sources of European History, Vol. VI:4 (Philadelphia: University of Pennsylvania Press), 1899].

“The Notitia Dignitatum has preserved for us, as no other document has done, a complete outline view of the Roman administrative system in early fifth century. The hierarchic arrangement is displayed perfectly. The division of prefectures, dioceses and provinces, and the rank of their respective governors is set forth at length. The military origin of the whole system appears in the titles of the staff officers, even in those departments whose heads had, since the time of Constantine, been deprived of all military command.”

Image Sources: Wikimedia Commons

Text Sources: Internet Ancient History Sourcebook: Rome sourcebooks.fordham.edu ; Internet Ancient History Sourcebook: Late Antiquity sourcebooks.fordham.edu ; “Outlines of Roman History” by William C. Morey, Ph.D., D.C.L. New York, American Book Company (1901) ; “The Private Life of the Romans” by Harold Whetstone Johnston, Revised by Mary Johnston, Scott, Foresman and Company (1903, 1932); BBC Ancient Rome bbc.co.uk/history/ ; Project Gutenberg gutenberg.org ; Metropolitan Museum of Art, National Geographic, Smithsonian magazine, New York Times, Washington Post, Los Angeles Times, Live Science, Discover magazine, Archaeology magazine, Reuters, Associated Press, The Guardian, AFP, The New Yorker, Wikipedia, Encyclopædia Britannica, Encyclopedia.com and various other books, websites and publications.

Last updated November 2024


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