Hadrian’s Codification of the
Praetorian Edict by Salvius Julianus
Jim Safley
In this essay I will interpret the circumstances culminating to Hadrian’s
codification of the praetorian edict by the renowned jurist Salvius Julianus
(c. 130 CE). Accordingly, I will attempt to explain how and why the codification
occurred. The codification was a considerable turning point in the process of
Roman law: the imperial juror gained supreme prestige, and, more importantly,
the praetor surrendered his ability to augment his legal jurisdiction while
the emperor legitimized his own predominant rank in Roman law. To lend this
essay coherence I will explore the imperial system of law during the early Empire,
focusing on the role of the juror, the praetor, and, to a lesser extent, the
emperor. It is important to understand the evolution of the juror and the praetor
to fully appreciate the enormity of the codification. For this reason I have
also included some historical information regarding the origin of these offices
of law.
There are many sources available in Ancient Roman law. Classical jurisprudence
is, in fact, one of the most documented subjects in Roman history. Because Roman
law has flourished in some form or another since its establishment, much of
its principles and analyses are still contemporary. The current knowledge of
the codification of the praetorian edict is a good example of the contemporary
nature of some historical events. There is no definitive primary source on the
subject, and only through intensive study of myriad ancient works of law can
one find reference to it. The earliest reputable source that mentions the codification
is Emperor Justinian’s Constitution, Tanta.[1] Though it is a vague and
contradictory reference, Justinian is precise in his statement regarding the
existence of such a codification.[2]
Some of the foremost treatises on Roman legal history were written by German
and British law scholars during an age of classical law revival. In the late
nineteenth century, German law professor Rudolph Sohm wrote The Institutes,
a systematic survey of the entire field of Roman law.[3] Even before Institutes,
Sir Henry Maine, a distinguished English law scholar, wrote Ancient Law, an
extensive comparison of ancient law and Modern English law.[4] In 1932 another
English scholar, H. F. Jolowicz, authored an updated treatise on classical legalism,
titled Historical Introduction to the Study of Roman Law.[5] Some of the most
scholastic modern sources on Ancient law can be found in the form of these “historical
introductions of law.” In 1966, Wolfgang Kunkel, an accomplished German
law professor, wrote An Introduction to Roman Legal and Constitutional History.[6]
Twenty-four years later a Dutch author, Olga Tellegen-Couperus, wrote A Short
History of Roman Law.[7] Both of these texts are effectively utilized by law
professors worldwide.
The system of law in the Roman Empire relied heavily on the influences of several
imperial offices. Each of these offices had unique and indispensable responsibilities,
and all issued written documents of one form or another that announced their
opinions, intentions, or decrees. Jurors, through their responsa, provided legal
opinions to judges, magistrates, and citizens. Praetors, whose role was the
administration of justice, annually issued an edictum perpetuum that laid out
the terms of their office. Emperors, who obtained much of the magisterial powers
of the high offices in the Republic, enjoyed the right to issue two imperial
proclamations: the edictum (a decree addressed to the general public) and the
mandata (an official directive to the officials in the emperor’s service).
JURISTS
In Rome the knowledge of law and its procedure fell primarily on jurists. They
were the center of the Roman legal system and influenced the decisions of judges
and magistrates, who were not necessarily schooled on jurisprudence. During
the Republic, jurists were closely associated with the Roman senate, and most
originated from the senatorial class. The jurists’ influence was pervasive
in law. They assisted private citizens by drafting legal texts, wills, etc.
(cavere), serving as advocates in lawsuits (agere), and giving legal opinion
on questions of law submitted to them (respondere).[8]
The role and character of the jurist changed under the reign of Augustus. Imperial
backing of the equestrian class assured a rise in equestrian jurists, though
most remained of the senatorial class.[9] Whereas in the Republic jurists had
a limited capacity in legal authority and legislation, the new princeps gave
certain preeminent jurists the privilege of giving their legal opinion ex auctoritate
principis – that is, in the name of the emperor.[10] In turn, jurists’
written replies to matters of law (rensponsa) had the force of law.[11] By bestowing
on jurists the ius respondendi, or the imperial right to give legal opinions,
Augustus ushered in an unprecedented age of classical jurisprudence.
SALVIUS JULIANUS
Among the greatest of Roman jurists was the renowned Salvius Julianus (Lucius
Octavious Cornelius Publius Salvius Julianus Aemilianus). Julianus was born
around the turn of the second century CE at the village of Pupput, near Hadrumetum,
in the province of Africa. Of Roman birth he belonged to a family evidently
so distinguished that he was able to enter upon a senatorial career.[12]
Julianus served in a wide variety of senatorial offices under Hadrian, Antoninus
Pius, and Marcus Aurelius. His imperial roles included: decemvir stlitibus iudicandis,
quaestor Augusti of Hadrian, one of the tribuni plebis, praetor, praefectus
both of the aerarium Saturni and of the aerarium militare, consul in 148, pontifex,
curator aedium sacrarum, imperial governor of Germania Inferior, imperial governor
of Hispania Citerior, and republican governor of Africa.[13]
Julianus acknowledged himself as a disciple under the prominent Roman jurist
Javolenus Priscus (Gaius Octavius Tidius Tossianus Javolenus Priscus), who was
a member of Trajan’s consilium and head of the Sabinian School.[14] Sabinus
Masurius, a Roman jurist of the first half of the first century CE, founded
the Sabinian School, which began as a doctrinal school for jurists.[15] There
was an unspecified rivalry between the Sabinian School and another school for
jurists, the Proculian School.[16] Both schools died out after the death of
Salvius Julianus, who was the last recorded head of the Sabinian School. In
a measure of his supreme authority, there is no doubt that Julianus’ death
allayed the hostility between the schools.[17]
Julianus was a man of high authority and fame among his contemporaries. He
enjoyed such repute even at a young age that Hadrian doubled his salary as quaestor
Augusti.[18] His most important legal work is his Digesta, organized into 90
books detailing virtually every aspect of civil and praetorian law. It introduced
the theory and nature of Roman legalism. The work is preserved mainly in subsequent
codes, especially in Justinian’s Digesta and among other works by classical
jurists.[19]
Before Julianus was 30 years old Hadrian entrusted him with the revision and
rearrangement of the praetorian edict, which secured his enduring and distinguished
reputation. To understand the significance of this codification, the role of
the praetor and his edict in Roman legalism must be understood and appreciated.
To be sure, a systematic revision and permanent rearrangement of a body of precepts
is a considerable and serious event.
PRAETORS AND THE PRAETORIAN EDICT
In the early Roman Republic, the office of the praetor was synonymous with
the consulship; but in 366 BCE the judicial powers of the consuls were delegated
to special officers, each named praetor urbanus. The paramount responsibility
of the praetor urbanus was the administration of civil and criminal justice
in Rome and in Roman Italy, though he occasionally exercised his right of military
command (imperium), and he had the authority to convene the comitia and initiate
legislation.[20] Over a century later the proliferation of commerce necessitated
the appointment of a second officer, the praetor qui inter peregrinos ius dicit,
a title which afterwards was shortened to praetor peregrinus. The praetor peregrinus
supervised civil litigation in which one or both parties were foreigners.[21]
In their early capacity, praetors had an enormous sphere of judicial and executive
influence (certain praetors were appointed as provincial governors). However,
Sullan reforms in the late Republic limited the role of the praetor in executive
positions, and after Augustus’ judiciary laws, both the praetor urbanus
and the praetor peregrinus were restricted entirely to the administration of
private law. In the provinces the former jurisdictional and executive roles
of the praetor were consigned to the quaestor.[22]
On entering office, praetors were required to outline the central principles
of their jurisdiction and ostentatiously display them in the Roman Forum.[23]
In this outline, titled the edictum perpetuum, or simply edict, the praetors
declared the steps they intended to take in the implementation of their office.
Officially, once the magistrate left his post (usually after one year), the
edict ceased to be binding, and the succeeding praetor had a free hand in the
matter of his edict; but in practice the successor usually confirmed the previous
edict (the edictum tralaticium), only amending what expediency dictated.[24]
The right of praetors to alter the edict, no matter how negligible the changes,
was a component of their ius honorarium, or magisterial law.
Though the edicts were an important source of law, the praetor was not a legislator.
He was unable to formulate or alter the law itself, as could the assemblies
in the Republic and the Senate in the early Empire by a lex (statute) or a plebiscitum
(ordinance of the people).[25] Consequently the edict did not take the same
form of a statute. It consisted mainly of statements detailing how the praetor
would carry out his office, and of what he would do in certain legal circumstances.
It was in these respects that made it possible for the praetor to influence
the laws to such a large degree.
The edict’s advantage over strict statutory code was its expedient and
organic nature. Although praetors tended not to alter it greatly, over time,
when a procedure became obsolete or unnecessary, it was deleted. Similarly,
when a course of action was necessary and an applicable precept did not exist,
the praetor revised the edict to provide for the action.[26] Initially the edictum
perpetuum was not binding and the praetor could arbitrarily disregard his own
principles. Later however, by a lex Cornelia (67 BCE), the praetor was legally
bound to his edict, unable by law to modify it while in office.[27]
CODIFICATION OF THE PRAETORIAN EDICT
By the second century CE the edictum tralaticium had accrued to a formidable
and arduous size. There were at least two hundred separate provisions in the
edict before Emperor Hadrian commissioned Salvius Julianus to codify the edict
(c. CE 130), effectively fixing it in permanent form – taking away the
praetor’s right to alter it.[28] The praetorian edict was confirmed by
a senatus consultum, and all further legislative revisions fell to the emperor.[29]
Why exactly did the codification occur? Ancient sources are silent on the subject,
and modern sources deal exclusively on assumptions and conjectures. Certainly
it is debatable whether Hadrian intended the codification to be a protective
action regarding the edict’s immense size and complexity, or an attempt
to stifle the innovative legal abilities of the praetor (ius honorarium).
Many modern authors of law differ in opinion. Rudolph Sohm points out that
emperors were well aware that the legal power of the praetor originated from
Republican magistrates – offices that emperors found distasteful. “The
rising imperial power could not permanently tolerate any rival independent authority.”[30]
Thus, Hadrian ordered the codification to suppress the jurisdictional power
of the praetors. H. F. Jolowicz offers a more moderate version of Sohm’s
theory. He writes that the overarching power of the emperor inherently limited,
and was incompatible with, the authority of Republican magisterial offices,
including the praetor. Hadrian, in his decision to codify the edict, was simply
“bringing the republican form into line with the new realities.”[31]
Incompatibility with the authority of the emperor is not the only rationale
given for the codification. The eminent law scholar Sir Henry Maine, on the
other hand, believed that the edict’s “immense length” and
“disorderly texture” demanded the codification.[32] I have found
that most law textbooks concur with Maine in that the edict was merely too large
and unwieldy for practical use, so Hadrian had no other choice but to order
it written as a final draft (though Kunkel and Tellegen-Couperus do mention
the gradual weakening power of the praetor under the Principate).[33]
Hadrian’s own administrative character may prove to be the defining clue
into why he ordered the edict to be set into permanent form. He had a cold relationship
with the Senate, and distrusted the few remnants of Republican government. While
he slowly deserted the already eroding old system of government, he strengthened
the new, imperial system. Under his rule, the Equestrian Order obtained a more
ennobled status: they secured many civil service positions, and even joined
Hadrian’s board (consilium principis).[34] He also appointed judges in
place of the traditional role of the Senate, furthering the imperial centralization
of the state. It would be consistent with his mistrust of Republican customs
that Hadrian ordered the codification of the praetorian edict. Indeed, what
better way to limit the powers of the praetor than to deny him the ius honorarium?
Whatever Hadrian’s motives, his decision to order the final revision
of the praetorian edict permanently shifted legal initiative to the emperor.
As a result, praetors suffered a precipitous decline in power. Now more than
ever, jurists, who had been rising in eminence since Augustus’ ius respondendi,
played a vital role in the interpretation of Roman law. Their influence on the
emperor’s legal decisions was unprecedented, as is exemplified by the
codification of the praetorian edict by Salvius Julianus.
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[1] Justinian, constitutio Tanta, 18.
[2] Olga Tellegen-Couperus, A Short History of Roman Law (London: Routledge,
1993), 89; Wolfgang Kunkel, An Introduction to Roman Legal and Constitutional
History, 2d ed. trans. J. M. Kelly (London: Oxford University Press, 1973),
93.
[3] Rudolph Sohm, The Institutes: A Textbook of the History and System of Roman
Private Law, 3d ed. trans. James Crawford Ledlie, B. C. L., M. A. (London: The
Clarendon Press, 1940; reprint, New York: Augustus M. Kelley Publications, 1970)
(page citation are to the reprint edition).
[4] Henry Maine, Ancient Law (London: The Aldine Press, 1954).
[5] H. F. Jolowicz and Barry Nicholas, Historical Introduction to the Study
of Roman Law, 3d ed. (London: Cambridge University Press, 1972).
[6] Kunkel.
[7] Tellegen-Couperus.
[8] Ibid., 60-61.
[9] Kunkel, 109.
[10] Ibid., 107; J. Declareuil, Rome the Law-Giver (London: Trubner & Co.,
1927; reprint, Westport: Greenwood Press, 1970), 24 (page citations are to the
reprint edition).
[11] Will Durant, The Story of Civilization, vol. 3, Caesar and Christ: A History
of Roman Civilization and of Christianity from Their Beginnings to A.D. 325
(New York: Simon and Schuster, 1972), 394.
[12] Oxford Classical Dictionary, 2d ed., s.v. “Julianus (2) Salvius,”
by Adolf Berger and Barry Nicholas.
[13] Ibid.
[14] Ibid. s.v. “Javolenus Priscus,” by Berger and Nicholas.
[15] Ibid. s.v. “Sabinus (2),” by Berger and Nicholas.
[16] Alan Watson, The Law of the Ancient Romans (Dallas: Southern Methodist
University Press, 1970), 29.
[17] Kunkel, 118.
[18] Ibid., 117; Durant, 392.
[19] OCD, 2d ed., s.v. “Julianus (2) Salvius,” by Berger and Nicholas.
[20] Ibid., s.v. “Praetor,” by Piero Treves and Eastland Stuart
Staveley.
[21] Sohm, 73-74; Tellegen-Couperus, 41.
[22] Kunkel, 84-85.
[23] Durant, 393.
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Hadrian’s Codification of the Praetorian Edict by Salvius Julianus by Jim Safley