The history of paternalism in Rome, when it is written, might approach the subject from several different points. If the writer were inclined to interpret history on the economic side, he might find the explanation of the change in the policy of the government toward its citizens in the introduction of slave labor which, under the Republic, drove the free laborer to the wall and made him look to the state for help, in the decline of agriculture, and the growth of capitalism. The sociologist would notice the drift of the people toward the cities and the sudden massing there of large numbers of persons who could not provide for themselves and in their discontent might overturn society. The historian who concerns himself with political changes mainly, would notice the socialistic legislation of the Gracchi and their political successors and would connect the growth of paternalism with the development of democracy. In all these explanations there would be a certain measure of truth.
But I am not planning here to write a history of paternalism among the Romans. That is one of the projects which I had been reserving for the day when the Carnegie Foundation should present me with a wooden sword and allow me to retire from the arena of academic life. But, alas! the trustees of that beneficent institution, by the revision which they have lately made of the conditions under which a university professor may withdraw from active service, have in their wisdom put off that day of academic leisure to the Greek Kalends, and my dream vanishes into the distance with it.
Here I wish to present only an episode in this history which we have been discussing, an episode which is unique, however, in ancient and, so far as I know, in modern history. Our knowledge of the incident comes from an edict of the Emperor Diocletian, and this document has a direct bearing on a subject of present-day discussion, because it contains a diatribe against the high cost of living and records the heroic attempt which the Roman government made to reduce it. In his effort to bring prices down to what he considered a normal level, Diocletian did not content himself with such half-measures as we are trying in our attempts to suppress combinations in restraint of trade, but he boldly fixed the maximum prices at which beef, grain, eggs, clothing, and other articles could be sold, and prescribed the penalty of death for any one who disposed of his wares at a higher figure. His edict is a very comprehensive document, and specifies prices for seven hundred or eight hundred different articles. This systematic attempt to regulate trade was very much in keeping with the character of Diocletian and his theory of government. Perhaps no Roman emperor, with the possible exception of Hadrian, showed such extraordinary administrative ability and proposed so many sweeping social reforms as Diocletian did. His systematic attempt to suppress Christianity is a case in point, and in the last twenty years of his reign he completely reorganized the government. He frankly introduced the monarchical principle, fixed upon a method of succession to the throne, redivided the provinces, established a carefully graded system of officials, concerned himself with court etiquette and dress, and reorganized the coinage and the system of taxation. We are not surprised therefore that he had the courage to attack this difficult question of high prices, and that his plan covered almost all the articles which his subjects would have occasion to buy.
It is almost exactly two centuries since the first fragments of the edict dealing with the subject were brought to light. They were discovered in Caria, in 1709, by William Sherard, the English consul at Smyrna. Since then, from time to time, other fragments of tablets containing parts of the edict have been found in Egypt, Asia Minor, and Greece. At present portions of twenty-nine copies of it are known. Fourteen of them are in Latin and fifteen in Greek. The Greek versions differ from one another, while the Latin texts are identical, except for the stone-cutters' mistakes here and there. These facts make it clear that the original document was in Latin, and was translated into Greek by the local officials of each town where the tablets were set up. We have already noticed that specimens of the edict have not been found outside of Egypt, Greece, and Asia Minor, and this was the part of the Roman world where Diocletian ruled. Scholars have also observed that almost all the manufactured articles which are mentioned come from Eastern points. From these facts it has been inferred that the edict was to apply to the East only, or perhaps more probably that Diocletian drew it up for his part of the Roman world, and that before it could be applied to the West it was repealed.
From the pieces which were then known, a very satisfactory reconstruction of the document was made by Mommsen and published in the Corpus of Latin Inscriptions.[88]
The work of restoration was like putting together the parts of a picture puzzle where some of the pieces are lacking. Fragments are still coming to light, and possibly we may have the complete text some day. As it is, the introduction is complete, and perhaps four-fifths of the list of articles with prices attached are extant. The introduction opens with a stately list of the titles of the two Augusti and the two Caesars, which fixes the date of the proclamation as 301 A.D. Then follows a long recital of the circumstances which have led the government to adopt this drastic method of controlling prices. This introduction is one of the most extraordinary pieces of bombast, mixed metaphors, loose syntax, and incoherent expressions that Latin literature possesses. One is tempted to infer from its style that it was the product of Diocletian's own pen. He was a man of humble origin, and would not live in Rome for fear of being laughed at on account of his plebeian training. The florid and awkward style of these introductory pages is exactly what we should expect from a man of such antecedents.