… I’d also argue that the office [of Dictator as created by Sulla and then by Caesar] didn’t work for the goals of either of the men that recreated it.
For Sulla, the purpose of using the dictatorship was to offer his reforms to the Republic some degree of legitimacy (otherwise why not just force them through purely by violence without even the fig leaf of law). Sulla was a reactionary who quite clearly believed in the Republic and seems to have been honestly and sincerely attempting to fix it; he was also a brutal, cruel and inhuman man who solved all of his problems with a mix of violence and treachery. While we can’t read Sulla’s mind on why he chose this particular form, it seems likely the aim here was to wash his reforms in the patina of something traditional-sounding in order to give them legitimacy so that they’d be longer lasting, so that Sulla’s own memory might be a bit less tarnished and to make it harder for a crisis like this to occur again.
And it failed at all three potential goals.
When it comes to the legitimacy of Sulla’s reforms and the memory that congealed around Sulla himself, it is clear that he was politically toxic even among many more conservative Romans. A younger Cicero was already using Sulla’s memory to tarnish anyone associated with him in 80, casting Chrysogonus, Sulla’s freedman, as the villain of the Pro Roscio Amerino, delivered in that year. In the sources written in the following decades at best Sulla is a touchy subject best avoided; when he is discussed, it is as a villain. Our later sources on Sulla are uniform in seeing his dictatorship as lawless. Moreover, his own reforms were picked apart by his former lieutenants, with key provisions being repealed before he was even dead (in 78 BC so that’s not a long time).
Finally, of course, far from securing the Republic, Sulla’s dictatorship provided the example and opened the door for more mayhem. Crucially, Sulla had not fixed the army problem and in fact had made it worse. You may recall one benefit of the short dictatorship is that no dictator – indeed, no consul or praetor either – would be in office long enough to secure the loyalty of his army against the state. But in the second and early first century that system had broken down. Gaius Marius had been in continuous military command from 107 to 100. Moreover, the expansion of Rome’s territory demanded more military commands than there were offices and so the Romans had begun selecting proconsuls and propraetors (along with the consuls and praetors) to fill those posts. Thus Sulla was (as a result of the Social War in Italy) a legate in 90, a propraetor in 89, and consul in 88 and so had been in command for three consecutive years (albeit the first as a legate) when he decided to turn his army – which had just, under his command, besieged the rebel stronghold of Nola – against Rome in 88, precisely because his political enemies in Rome had revoked his proconsular command for 87 (by roughing up the voters, to be clear). And then Sulla has that same army under his command as a proconsul from 87 to 83, so by the time he marches on Rome the second time with the intent to mass slaughter his enemies, his soldiers have had more than half a decade under his command to develop that ironclad loyalty (and of course a confidence that if Sulla didn’t win, their service to him might suddenly look like a crime against the Republic).
Sulla actually made this problem worse, because one of the things he legislated by fiat as dictator was that the consuls were now to always stay in Italy (in theory to guard Rome, but guard it with what, Sulla never seems to have considered). That, along with Sulla having butchered quite a lot of the actual experienced and talented military men in the Senate, left a Senate increasingly reliant on special commands doled out to a handful of commanders for long periods, leading (through Pompey‘s unusual career, holding commands in more years than not between 76 and 62) to Julius Caesar being in unbroken command of a large army in Gaul from 58 to 50, by which point that army was sufficiently loyal that it could be turned against the Republic, which of course Caesar does in 49.
For Caesar, the dictatorship seems to have been purely a tool to try to legitimate his own permanent control over the Roman state. Caesar is, from 49 to 44, only in Rome for a few months at a time and so it isn’t surprising that at first he goes to the expedient of just having his appointment renewed. But it is remarkable that his move to dictator perpetuo comes immediately after the “trial balloon” of making Caesar a Hellenistic-style king (complete with a diadem, the clear visual marker of Hellenistic-style kingship) had failed badly and publicly (Plut. Caes. 61). Perhaps recognizing that so clearly foreign an institution would be a non-starter in Rome – unpopular even among the general populace who normally loved Caesar – he instead went for a more Roman-sounding institution, something with at least a pretense of tradition to it.
And if the goal was to provide himself with some legitimacy, the effort clearly catastrophically backfired. The optics of the dictatorship were, at this point, awful; as noted, the only real example anyone had to work with was Sulla, and everyone hated Sulla. Many of Caesar’s own senatorial supporters had probably been hoping, given Caesar’s repeatedly renewed dictatorship, that he would eventually at least resign out of the office (as Sulla had done), allowing the machinery of the Republic – the elections, office holding and the direction of the Senate – to return. Declaring that he was dictator forever, rather than cementing his legitimacy clearly galvanized the conspiracy to have him assassinated, which they did in just two months.
It is striking that no one after Caesar, even in the chaotic power-struggle that ensued, no one attempted to revive the dictatorship, or use it as a model to institutionalize their power, or employ its iconography or symbolism in any way. Instead, Antony, who had himself been Caesar’s magister equitum, proposed and passed a law in 44 – right after Caesar’s death – to abolish the dictatorship, make it illegal to nominate a dictator, or for any Roman to accept the office, on pain of death (App. BCiv, 3.25, Dio 44.51.2). By all accounts, the law was broadly popular. As a legitimacy-building tool, the dictatorship had been worse than useless.
So what might we offer as a final verdict on the dictatorship? As a short-term crisis office used during the early and middle republic, a tool appropriate to a small state that had highly fragmented power in its institutions to maintain internal stability, the dictatorship was very successful, though that very success made it increasingly less necessary and important as Rome’s power grew. The customary dictatorship withered away in part because of that success: a Mediterranean-spanning empire had no need of emergency officials, when its military crises occurred at great distance and could generally be resolved by just sending a new regular commander with a larger army. By contrast, the irregular dictatorship was a complete failure, both for the men that held it and for the republic it destroyed.
The real problem wasn’t the office of dictator, but the apparatus that surrounded it: the short duration of military commands, the effectiveness and depth of the Roman aristocracy (crucially undermined by Sulla and Marius) and – less discussed here but still crucial in understanding the collapse of the Republic – the willingness of the Roman elite to compromise in order to maintain social cohesion. Without those guardrails, the dictatorship became dangerous, but without them any office becomes dangerous. Sulla and Caesar, after all, both marched on Rome not as dictators, but as consuls and proconsuls. It is the guardrails, not the office, that matter.
Bret Devereaux, “Collections: The Roman Dictatorship: How Did It Work? Did It Work?”, A Collection of Unmitigated Pedantry, 2022-03-18.
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