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 CHAPTER VII

THE INTERNAL ADMINISTRATION OF THE EMPIRE: INSURRECTION OF THE CIRCUS FACTIONS IN THE CAPITAL

The keystone of Justinian's administration was his lavish expenditure of money. Every enterprise that could engage the attention of a monarch incited him to emulation, and in arms, legislation, civil reform, public works, and religion, he aspired to equal the achievements of the greatest princes. Hence the persistent need for a well-filled treasury, and the constant injunction to the Rectors in the provinces. "Above all things apply yourselves to gathering in the imposts"; whilst the subject is urged by the frequent reminder, "Pay up your taxes promptly, our great undertakings cannot be accomplished without money."

For centuries, as we have already seen, a latent anarchy had prevailed throughout the Empire, but the evils of such a condition had always been less apparent under a quiescent administration. Moderation in the bureaucracy in the capital gave a measure to the proceedings of its deputies in the provinces, and doubtless had a restraining influence, at least that of example, over the rural aristocracy who almost arrogated to themselves a local sovereignity. The considerate,