Senate House, Rome, September 174
Marcus Aurelius himself presided the seance of the Senate, a not so exceptional occurrence since his return from the war in the north. Yet today was an important day because the senior consul was about to present to the Senate a law proposal which everyone knew came from the Emperor himself although its topic was unknown from most senators. There was no doubts it would be adopted as wanted by the princeps, but there might be room for either improvements or flattery for the Emperor, which was never bad even if Marcus Aurelius was known to be rather indifferent to sycophants.
“Conscript fathers, most honourable senators, I would present before you a new law about the establishment of the command of the provinces and of the armies.
Our empire grew since the time of the divine Trajan in ways not seen since the time of the divine Augustus himself, but we keep managing it as if it were olden times. We need to correct this situation because as it is the action of the emperor cannot reach every inhabitant of the Republic in an equal manner.
We have thus conferred with our Princeps and his advisors and would submit to this assembly a major reorganization of the empire and of the career of those who, like us, serve the senate and the people of Rome.
While the full text of the law will be given to you before any vote takes place, and while this is but the first of a number of meetings we will have on the topic, I would like to introduce you to the main changes we intend to operate in the empire.
First, it has come to the attention of our princeps that the provinces are too big to be properly managed, especially in these times of innovations and changes and prosperity. Given the number of request coming to the princeps, it stands to reason that we need to add new ways to manage things such as requests for new aqueducts, city walls or public baths, and we need to make sure governors worry about the civilian affairs and not the military defense of the borders which requires the full attention of those who are in charge of it.
Every request that comes to the Emperor for approval has to travel for months before it comes to wherever the Emperor is, and then it has to travel back with the response after weeks if not months waiting for the Emperor to reply to it. In the end many demands require one or two year before being examined. Some other decisions are to be taken by governors, but they too are as you are well aware kept busy by the twin demands of their charge, meaning that often the decision they have to take also demand months before they are taken and implemented.
In the beginning every governor worked with a staff made of his personal slaves and a few public slaves. When the divine Augustus became princeps of this assembly he did work in the same way, and most of those who work in Rome to make the wheels of government work are still the property of the Emperor or their freedmen.
Maybe an increase of efficiency could be had by increasing their numbers, but this is not what we deem to be the best course of action. An increased central administration would simply create new offices, add new layers, but requests would still have to come to Rome and time would still be lost.
Instead we think it best to improve the administration in the provinces, and that means changing things abroad, in many number of ways.
Every year thirty of you serve as legion commanders, and the empire is divided in almost forty provinces. With this reform the number of legions will stay the same, but their commanders will have no other responsibility than their force. They will, as tradition mandates, young senatorial tribunes as aides in their command, alongside the other officers such as our forces already have.
As for the provinces, they will now number a hundred and twenty. Of course this noble assembly could not be counted upon to provide such a high number of administrators, that is why the position will be given for a period of two years to procurator centenarii who may not be born in the diocese in which their allotted province lies.
Of course such a number of provinces requires an organization, and that his why seventeen diocesis are to be created, a position from which propraetors from our noble assembly will rule for two years in the name of the Senate.
Finally four proconsuls with two years mandates will be named by this august body to the new rank of senatorial praefect, on a suggestion by our Princeps. Their task will be to be the highest authority in their area of responsibility after the Emperor, and to assume command of multiples legions if the security of the Empire requires it and both the Emperor and his heir are otherwise occupied. Their imperium will only be surpassed by the Augustus and the Caesar or a general sent by them in exceptional circumstances, and no one may become senatorial praefect in the prefecture in which his family has its roots.
Beside this our princeps has seen that change is needed in the way the provinces themselves are managed, to provide more opportunities for the talented amongst the local equestrians and notables to serve the empire.
But more importantly it has become the conviction of our Princeps that the traditional cursus honorum is no longer sufficient to provide the Republic with able advisors and commanders. The example of the Academia Militaria Practica has shown that much is to be gained by having the state train its best engineers, be it for the prosperity of the land or for military confrontations, as has been shown five years ago both in the Marcoman war and in the Caledonian revolt.
Likewise too often our centurions think like their predecessor did and lack flexibility of thought, because they’ve been doing what they learned while serving. Likewise our tribune and legates could be better soldiers and better generals if they had been trained more rigorously for their function so that no Varus may ever command a legion of Rome.
The old idea of Aristotle that the philosopher must not dirty his hands has been proven wrong, and the same is true for us : one can’t be a good soldier because one’s parents were, and too often our arrogance, our hubris even, caused the unnecessary deaths of legionaries of Rome. Commanding men in battle is a skill that has one has to learn as much as the skill of the carpenter or that of the smith. And if the commander is the backbone of any army, then he must be forged before the fight as is the spine of a gladius so that he may not shatter when striking the foe.
If the elder Cato, one of the noblest men to have ever been seated in this assembly, thought it useful to write practical treatises on topics such as agriculture, if we send our sons to practise oratory to the schools of Rhodes or Athens, then we must plan for a formal training of our senior officers, be they from senatorial or equestrian rank.
Youths who expect to enter the Senate have to do their ten years of service, and this period will now include a first year of formal training at a new military academy that will be established close by the Academia Militaria Practica, in which it will be determined if they are fit for the command of men.
Likewise men destined to become legion legati will have to spend six months learning the tricks of higher command in Rome before going to their command, and while it will still be possible to become consul without having been legatus it will not be possible to become senatorial praefect, a position that will also require six months of intensive training.
Each diocese will also have its own academia for the newly promoted centurions, so that they receive six months of education in the art of war seen from a wider perspective than what they know and that they receive some education in law and civilian matters, because they may have to enforce rules on request from local civilian authorities or otherwise interact with them.
All this will require an increased administration, generate new costs and require new taxes. But the princeps does not want that to be an obstacle and wants to simplify the transition period. This is why he as decided, as had the divine Hadrianus before him, to remit all the debts due to the state by individuals or collectivities, so that from a clear situation each may now what he owns the state for his protection.
This is, in the great lines, what is now presented to this honourable assembly for discussion”