The Restitutio of 1204
The Roman Republic of the 12th century was in the process of retrenchment and centralization, in the wake of the Centralist faction's pre-eminance in Constantinople (the broad political faction that traced its roots to Domenicus Zeno). Their policy of collecting as much power within the confines of the capital was popular, of course, within the city, though it was less so in the outlying regions of the Republic, for self evident reasons. Centralizing power in the capital made more sense for the Romans than almost any other state in history, given the near-perfect situation of that capital. Sitting abroad key trade routes and almost impregnable, it made sense to make the city the cornerstone of the entire political machine. The majority of the Republic did not strain too much under this arrangement, and many border regions actually favored the Centralists, due to their general peaceful foreign policy. With the coup of allying the entirety of the Crusader states at the dawn of the 12th Century, and the diplomatic successes in the Iberian peninsula, it was no small wonder that many saw the idea of the Republic being first and foremost about Constantinople in a favorable light.
However, it was the other core regions of the Empire, particularly Italy, that chaffed under the new order. They were naturally safe from most foreign concerns, and the cities of Italy had been prospering almost continuously since the Lombards and Franks were completely expelled from the peninsula, and the borders of the Roman Republic restored to the Alps. Despite their population and wealth, however, the whole of Italy - just like the rest of the Republic - played second fiddle to Constantinople. Ironically enough, Domenicus Zeno himself was from Italy, before he made his mark in the capital. Because of this dissatisfaction, Italy in particular - and other secure coastal regions within the Mediterranean in general - became gradually more and more restive, as their concerns became increasingly set aside by the political leaders in the capital. A new faction began to coalesce around the interests of several of the maritime cities of the Adriatic, in particular, Venetia, Ragusa, and Ancona, which became known, appropriately enough, as the Adriatic faction. Despite the name, they soon found much support in other regions of Italy and Africa. Their general goal was to reverse the centralizing reforms of the Centralists, and increase the power of the outlying prosperous and heavily Roman regions of the Republic. Their power increased, ironically enough, due to the stability brought by the Centralists, and the large increase in trade that accompanied the re-securing of the Mediterranean, after the success of the Crusades.
The Adriatic and Centralists factions were not the only two power blocs of the era, and there were no less than three different, mutually hostile, factions broadly dedicated to expansionism, either to the east, against the Muslims, to the northeast, against the Cumans (who had by now replaced the far more friendly Pechenegs as the main steppe confederation along the Black Sea coast) and the Rus, or further into the old Roman parts of Europe, either through force of arms or diplomacy, as needed. Though the expansionists could have been considered powerful as a whole, their divided goals meant they played a minimal role in the politics of the era.
The Centralists were not ignorant of the discontent among many powerful people across the Republic, and they did their best to assert a broadly popular foreign policy. When the Cumans began pushing the Pechenegs out of their lands along the coast, around the 1130s, the Republic took in many Pecheneg refugees as mercenaries, settling them along border regions, and the Thematic armies fought a few inconclusive battles in order to blunt the Cuman advance. When the government in Baghdad adopted a more hostile posture towards the Roman client states in Armenia, the armies defended those territories and even managed to secure a sizable indemnity from Baghdad after the Battle of Mosul, in AD 1147. A brief war with Persia was fought in AD 1154 and, while it was not the victory that the Mosul war was, the Thematic armies did still acquit themselves well, and the border was adjusted slightly in favor of several of the pro-Roman Armenian border princes. All these solid performances on the field of battle helped stem the growing calls for a different type of reform than the Centralists were gradually pursuing.
However, the victories couldn't last forever, and the leading figures of the Centralists faction dug their own grave, when war broke out in response to Rus raiding along the Black Sea, in AD 1176. The pre-eminant statesman of the time, Markos Argyros, lead an expedition into the Rus lands, and suffered an ignominous defeat north of the ruins of the ancient Pontic city of Olbia. Argyros' army was cut off from its supplies and trapped against a river, unable to form a solid pike and shield square on the river flank. The Rus had plenty of ships on the river, and were able to disrupt the Roman formation enough from the river itself that the Rus army could then defeat them. Argyros died in the fighting, along with a large portion of the army, the remnants of which limped to Cherson. Adding onto the woes of the Romans, the Cumans took advantage of the weakness and forced the remnants of the Pechenegs to their authority, removing the last vestiges of a key buffer state the Romans had, east of the Carpathians and north of the Danube. From that point on, Roman Thracia was exposed to raiding, and the Romans were fighting against the ever-persistent steppe tribes on their home turf. Their current military structure was based on fighting a heavily cavalry-based army, but was less well suited to facing down raiders that were specifically avoiding them.
Argyros' death was a blow for the Centralists, but he was not the only major figure in their party, and, despite his pre-eminence, he was no monarch, whose death could throw an entire state into disarray. Stepping up to lead the faction, after some brief infighting, was Konstantinos Kamytzes. Kamytzes himself was killed in battle, while successfully defending against the Cumans, in AD 1184, but ably kept the Centralists' agenda from falling apart. After his death, the Centralists began to splinter, though the cracks had been showing even before his death, and historians generally disregard the narrative that they fell from power solely due to the deaths of their leaders.
In the power vacuum, the politics of the Republic began to become increasingly unstable, and the pendulum of policy began to swing back and forth between various extremes. When, in AD 1196, an army led by Konstantinos Taronites was able to trap a large contingent of Cumans and defeat them - partly with the help of a more pro-Roman leadership now in power in Kiev - and secure a reasonable peace with the nomads, many thought that the instability would settle down, particularly after Taronites was elected as Consul following his victory. However, peace only exacerbated the growing factionalism, and political violence began to rear its head in Constantinople and in major cities of the Empire: Rome, Antioch, Nicomedia, Tunes, Venetia, and others. Even the major factions themselves largely broke down by AD 1197, with a brief period of re-organization between AD 1199-1200, as political loyalties were re-oriented.
Though, for the time being, nobody could decide what needed to be done, the consensus was that something did, in fact, need to be done. It was only the instability of the time, so far, that had prevented power from being consolidated enough in the hands of a few leaders to re-institute an Imperial system of government - and even that had some advocates. Ultimately, an assembly of leading jurists, historians, philosophers, clergy, merchants, and magnates from across the Roman world came together, in Thesalonica, in order to see what improvements could be made to the current system. As they decided to work on fixing the flaws in the system, much note should be made to the fact that, ever since the fall of the Empire, in the dark days of the early 8th century, the Republic had run on the gradual formalization of what had been an ad-hoc power sharing agreement in the political turmoil of the time. That organic legacy of political growth had led to all sorts of problems over the years, that were papered over and fixed with short-term solutions, and the Restitution Council - as it came be known by later scholars - noted how that sort of 'quick fix' constitutional evolution led directly to the fall of the First Republic, in the first century, BC.
The Council first noted that there were several key power groupings within the Republic: the landed magnates, the thematic armies, the Church, and the various mercantile and craft interests and guilds. However, the factions of the day themselves did not line up neatly with these power bases, so the general decision was made to find a new structure that would appeal to these power blocs, rather than the existing factions, which were blamed for the chaos of the era. Ultimately, the Church's role was moved to an apolitical mediator between other power blocs - a sensible decision, since the Church structure itself was not synonymous with the borders of the Republic, and there were concerns of putting too much power into the hands of clergy that might not even be Roman, or even speak good Latin or Greek. Thus, the general balance of powers was between the magnates, army, and guilds.
On a geographic scale, the decision was made to reform the organization of the Republic's administrative division, the Theme. By this time, there were around 70 major themes, not counting tiny border regions and other such ad hoc territories, and their use as both civil and military administration was cumbersome in the best of times. The basic unit of a theme would be kept, though they'd be restructured and their borders adjusted (in fact, there was a net gain of official themes by the end of the reforms). Taking a page from Diocletian's reforms, the Council revived the old administrative division of the Prefecture. Each prefecture would have multiple themes, and would be responsible for administering them. The prefecture would be lead by two Prefects, one civil and one military, harkening back to the old days when the civil and military administrations were more separate, and both were appointed by the central government in Constantinople. The themes, meanwhile, would similarly have their authority divided between two men, a Strategos handling military authority, and a Governor handling civil authority, but only the Strategos would be appointed by Constantinople, with the Governor being appointed by the Prefectural administration. Further, each Theme was to maintain an assembly to govern in conjunction with its Governor and Strategos, and each Prefecture was to maintain a similar assembly, from the ranks of the thematic assemblies, to govern in conjunction with the Civil and Military Prefects. In this way, the territories of the Republic were given a tightly controlled channel from which power could flow up to the capital, instead of strictly down from it.
The prefectures established at this time were:
- Mauretania, comprising the western reaches of the North African coast
- Tunes, stretching from Hippo (or Annaba), stopping before Sabratha
- Libya, stretching from Sabratha to the border with Egypt
- Lombardia, the northern part of Italy, centered on the Po
- Latium, the central and southern portion of Italy, centered on Rome
- Dalmatia, similar to the old Diocese of Pannonia and Moesia
- Dacia, covering the trans-Danubian regions, up to the Carpathians
- Thracia, similar to the old Diocese of Thracia, without the Aegean coastline
- Anatolia, covering roughly the western half of the Anatolian peninsula
- Cappadocia, covering the northern portion of the eastern half of the peninsula, into the Caucasus
- Cilicia, covering the southern portion, and into Syria
- Palaestina, covering the small region around Jerusalem that was under Roman control
The territory along the Aegean coastline, including Constantinople, as well as the entirety of Greece, was structured similar to a prefecture, but was titled the Capital Region, and had no prefects, since it was administered directly by the government in Constantinople, and the thematic governments, though identical to their counterparts in the rest of the Republic, had no intermediary between them and Constantinople.
The central government in Constantinople would consist of the Senate and three Assemblies, in addition to the Consulate. The Assemblies would be:
- The Prefectural Assembly, with members sent by the Prefectural administrations
- The Urban Assembly, with members drawn from the leading men of the mercantile and craft interests of Constantinople
- The Military Assembly, with members drawn directly from the military
Thus, respectively, the assemblies represented the interests of the Magnates, Guilds, and Military, more or less directly.
The Consulate, as it had been more or less since the founding of the city of Rome, still consisted of two Consuls (Hypatoi in the Greek), but their election was now a much more elaborate process. The office of Praetor (Praitor) was fully re-instituted, and was composed of 6 men, to serve as junior executives under the 2 Consuls, as in the days of the First Republic, when the Praetors were effectively the workhorses of the government. Each Assembly would elect 3 Praetors, annually, with 1 each eliminated by lot, for the total of 6. From the 6 Praetors of the previous year, 3 would be elected, and 1 eliminated by lot (though the Consul-elect eliminated could not have been originally elected as Praetor by the same assembly whose Consul-elect was eliminated the previous year), to serve as Consuls for the year. A sitting Praetor or Consul was not eligible to be elected Praetor, but that was the only restriction against continuous service, so the more ambitious men could just sit out a year in the Senate and then be elected again.
In addition to the elimination, by lot, of 3 of the Praetors-elect, and 1 of the Consuls-elect, the election process itself incorporated several rounds of voting. Each assembly would have a set number of electors drawn, by lot, from their number, who would vote for the next round of electors, who were reduced by lot again, and who would then vote for another round of electors, again to be reduced by lot. This final group of electors would then elect their 3 Praetors-elect, but each assembly was required to elect 1 of that number from one of the other two assemblies (in even numbered election years, the prefectural assembly had to send one candidate from the urban assembly; the urban, one from the military; the military, one from the prefectural. In odd numbered election years, the order was reversed). Through this rigorous system, factionalism and corruption were weeded out - as well as could be in this time period.
The Senate, meanwhile, was composed of 300 men (one retained the rank of Senator for life, but only 300 sat at any given time). The previous year's Consuls and Preators (those not elected to be Consul) were automatically enrolled into the Senate, as were those Consuls-elect and Praetors-elect that had been eliminated by lot. Thus, each year, 9 new Senators entered the ranks of sitting Senators, and the 9 longest-serving Senators left the body. Any vacancies were filled by vote by the Senate itself. The 5 Patriarchs held Ex Officio seats in the Senate, and usually filled them by proxy; these seats were exempt from the rule of the longest-serving rule, but also did not formally confer the rank of Senator (though the proxies of the Patriarchs were generally Senators in their own right, and it was not unheard of that the Patriarchs themselves were Senators in their own right).
These three branches, Consulate, Senate, and Assemblies, had to work in conjunction with each other. A law could originate in any of the Assemblies, and required the approval of all 3, and then review by the Senate (what, exactly 'review' meant, was a debate not solved for some time), before it could go into effect. The Consulate was responsible for overall executive authority such as the implementation of laws and overall administration and the command of the military. The Senate was the body responsible first and foremost in diplomacy, and had the power to declare war or peace. Each branch had consultative checks on the others, designed to slow, rather than to stop, any action that was deemed unwise.
The Restitution Council presented their proposed reforms to the Republic in the spring of AD 1203, and they were largely accepted by all those in authority at the time. Officially, they went into effect on January 1st, AD 1204 - hence the moniker of 'The Restitutio of 1204.' Overall, the result was a stunning success. It gave each power bloc in society a well structured way to advance their agenda, while also serving to break up concentrated factions within the government. Indeed, by isolating each main power bloc into its own assembly, the Restitutio effectively divided up each power bloc into two rival parties, with little in common with their counterparts in the other two assemblies. Even then, these parties were very transitory and weak, made all the weaker by their lack of reliable access to the Consulate. The Restitutio would endure, with modest changes, as the basic Roman Constitution for several centuries after this time.
End
Don't hate me for being too cute with the year, it just lined up close enough that I had to do it. Basically, I took some elements of the Classical Roman Constitution and Venetian Constitution, as well as a few touches from the American Constitution, and whipped something up. I had more fun composing this entry than any other post in the entire timeline, I think. I might need to draw one of those hand gov't org charts that Wikipedia has, but I hope I conveyed the structure well enough.