The Historians' History of the World 06 [The Early Roman Empire]

Hadrian’s successors had every reason to regard with the utmost reverence the many administrative reforms made by him in the course of his long and prosperous reign. Though he did not pursue his predecessor’s policy of conquest, he used every means to maintain the strength and efficiency of the army; above all, he did not govern it by decrees issued from the palace, but constantly appeared in the camps in person, and examined all things with the eye of an expert. Military appointments were made solely on consideration of personal capacity and genuine merit, and various arrangements were made to augment the fighting power of the army, all of which stood the test of practice. Hadrian’s army system, and more particularly the drill introduced by him, proved so excellent that Hadrian’s regulations formed the basis of military organisation as late as the time of Constantine. The change which took place in strategy, for instance, after the introduction of his reforms is of the highest importance. Trajan had resorted to the ancient Roman practice with telling effect.

But the scientific study of military tactics which had come into existence in connection with Greek studies after the middle of the first century B.C. and much costly experience won in conflict with barbarian frontier tribes in Europe and with the horsemen of Asia had led to changes in the old battle array. The cavalry were taught to practise all the strategic movements of the Parthian, Armenian, Sarmatian, and Celtic hordes. In order to spare the valuable infantry of the legions as much as possible, auxiliary troops were more and more largely used in the first line, and an order of battle was introduced which combined the advantages of retaining the system of reserve divisions, promising speedier victory over hordes of gallant barbarians, and making the struggle less deadly to the Romans. The practice of early antique times—that of drawing up the men in serried ranks, or “phalanxes,” was again systematically resorted to. The van of the legion was no longer divided by vacant intervals. The “phalanx” of the legion was eight men deep. By a skilful combination of the various weapons in use, the soldiers of the first four files were armed with the pilum, the four behind them with spears. A ninth file consisted of auxiliaries aimed with arrows. The place of the cavalry and artillery was on the wings and rear of the phalanx. Further still to the rear was a reserve of picked troops, ready to help at every point where help was needed.

Hadrian’s labours in the field of civil administration were even more considerable. As a financier he was the best economist since Tiberius, and once more showed what results a sound financial policy and wise economy could create from the vast resources of the empire, both in the sphere of production and in that of artistic and monumental creation. At the same time he displayed great skill in introducing reforms into every department of finance, removing numerous harsh regulations, and in organising the affairs of the free peasants and tenant farmers on the imperial and fiscal domains in Africa on more humane and economical principles. He increased the revenue of the public treasury by undertaking the direct management of many imperial estates, instead of farming out the returns.

Nor was he less active in the sphere of jurisprudence. By his command all the prætorian edicts, which till then had been arranged in chronological order only, were collected into a systematic compilation in 131-132 B.C. by the eminent jurist Salvius Julianus. In connection with this work Hadrian caused the senate to issue a decree [Edictum Perpetuum] ordaining that no magistrate in office should henceforth add fresh clauses to the edict, but that necessary additions should be deduced by analogy from the materials already existing or made by imperial “constitutions.” Hadrian’s decisions in points concerning slavery are of interest, as showing his humane disposition. Prominent among these was the abolition of the cruel and cowardly system which enacted that where the master of a house was found murdered all the slaves of the household should be put to death. After Hadrian’s time only those slaves were examined who might be supposed to have had a hand in the murder.

The monarchical tendency of the Roman diarchy and the levelling effect of the empire became more and more distinctly marked under Hadrian. He did more than any emperor before him to place the provincials on an equal footing with the Roman citizens of Italy. Moreover, by conferring the jus Latinum on many cities, he paved the way for the extension of the rights of Roman citizenship to the whole empire.

In Italy he appointed a number of juridici, with powers to deal with bequests in trust, with the appointment of guardians, and with disputes concerning the eligibility of candidates for the decurionate. The power to deal with these questions was withdrawn, not from the municipal authorities, but (except in specially important cases) from the law-courts of the capital, before which suits of this sort had hitherto been carried. Rome and its environs—comprising an area of 100 Roman miles, or 150 kilometres, within the competency of the chief of police—of course remained under the jurisdiction of the tribunals of the capital. But, on the other hand, the growing power of the imperial officials in matters of criminal law becomes steadily more apparent, and the competency of the chief of police and the prefect of the guard is extended at the expense of the old courts of law. These two officers represent the emperor more and more in the administration of criminal law in Italy. Their departments were subsequently made separate, possibly after the reign of Marcus Aurelius, certainly after that of Severus. Rome and a space of 150 kilometres round it were under the jurisdiction of the chief of police, Italy beyond these limits under that of the prefects of the guard. The latter officers took on more and more of the character of representative organs of the personal intervention of the emperor and thus were bound to be eminent jurisconsults.