In the domestic sphere the consuls retained certain powers of jurisdiction. This jurisdiction was either (i.) administrative or (ii.) criminal. (i.) Their administrative jurisdiction was sometimes concerned with financial matters such as pecuniary claims made by the state and individuals against one another. They acted in these matters in the periods during which the censors were not in office. We also find them adjudicating in disputes about property between the cities of Italy, (ii.) Their criminal jurisdiction was of three kinds. In the first place it was their duty, before the development of the standing commissions which originated in the middle of the 2nd century B.C., to set in motion the criminal law against offenders for the cognizance of ordinary, as opposed to political, crimes. The reference of such cases to the assembly of the people was effected through their quaestors (see [Quaestor]). Secondly, when the people and senate, or the senate alone, appointed a special commission (see [Senate]), the commissioner named was often a consul. Thirdly, we find the consul conducting a criminal inquiry raised by a point of international law. It is possible that in this case his advising body (consilium) was composed of the fetiales (see [Herald], ad fin.). (Cicero, De republica, iii. 18. 28; Mommsen, Staatsrecht, ii. p. 112, n. 3).
During the greater part of the republic the consuls were recognized as the heads of the administration abroad as well as at home. It thus became necessary that departments of administration (provinciae) should be determined and assigned. The method of assignment varied. The least usual device was for one consul to take the field at the head of an army, while the other remained at home to transact the civil business of state. More often foreign wars demanded the attention of both consuls. In this case the regular army of four legions was usually divided between them. When it was necessary that both armies should co-operate, the principle of rotation was adopted, each consul having the command for a single day—a practice which may be illustrated by the events preceding the battle of Cannae (Polybius iii. 110; Livy xxii. 41). During the great period of conquest from 264 to 146 B.C. Italy was generally one of the consular “provinces,” some foreign country the other; and when at the close of this period Italy was at peace, this distinction approximated to one between civil and military command. The consuls settled their departments amongst themselves by agreement or by lot (comparatio, sortitio), the power of declaring what should be the consular provinciae was usurped by the senate, (see [Senate]), and a lex Sempronia passed by C. Gracchus, probably in 122 B.C., ordained that the two consular provinces should be declared before the election of the consuls. At this time the consuls entered office on the 1st of January (a practice which commenced in 153 B.C.), and their military command began on the 1st of March. They could hold this military command until they were superseded in the following March, and thus their tenure of power was practically raised to fourteen months. But meanwhile the home officials invested with the imperium had proved insufficient for the military needs of the empire, and the system of prolonging the command (prorogatio imperii) had been growing up (see [Province]). The consul whose command had been prolonged now served abroad as proconsul. It is probable that Sulla in his legislation of 81 B.C. did something to stereotype this system. Certainly the government by pro-magistrates becomes the rule after this period (cf. Cicero, De natura deorum, ii. 3. 9; De divinatione, ii. 36. 76, 77), although there are several instances of consuls assuming the active command of provinces between the years 74 and 55 B.C. (Mommsen, Rechtsfrage, p. 30), and Cicero declares that the consul has a right to approach every province (“consules, quibus more majorum concessum est vel omnes adire provincias,” Cicero, Ad Atticum, viii. 15. 3). Certainly in theory the provinces were still regarded as “consular,” not “proconsular,” and were technically, although not practically, held from the 1st of March of the consul’s tenure of office at Rome (cf. Cicero, De provinciis consularibus, 15. 37; Mommsen, Rechtsfrage, passim). It was not until the lex Pompeia of 52 B.C. (Dio Cassius xl. 56) had established a five years’ interval between home and foreign command that the theory of the prorogatio imperii vanished and the proconsulate became a separate office.
Since the theory of the persistence of the republican constitution was of the essence of the Principate, the consuls necessarily lost little of their outward position and dignity under the rule of the Caesars. The consulship was the only office in which a citizen, other than a member of the imperial house, might have the princeps as a colleague, and in the interval between the death or deposition of one princeps and the appointment of another the consuls resumed their normal position as the heads of the state (cf. Herodian ii. 12). As the presidents of the senate, who after A.D. 14 elected them to their office, they were the chief personal representatives of those elements of sovereignty that were supposed to attach to that body, and they directed that high criminal jurisdiction which the senate of this period assumed (see [Senate]). A restored power of jurisdiction is indeed one of the features of their position during this time, and it is probable that the civil appeals which came to the senate were delegated to the consuls. They also acted for a time as delegates to the princeps in matters of Chancery jurisdiction such as trusts and guardianship (Mommsen, Staatsrecht, ii. p. 103). The consulship was also a preparation for certain high commands, such as the government of certain public and imperial provinces (see [Province]) and the praefecture of the city. It was probably due to the fact that the consulship was such a prize, and perhaps also to the expense imposed on the office by its association with the celebration of games (Dio Cassius lvi. 46, lix. 20) that the tenure was progressively shortened. In the early principate the consuls hold office for six months, later for four to two months (Mommsen, Staatsrecht, ii. pp. 84-87). The consuls appointed for the 1st of January were called ordinarii, the others suffecti; and the whole year was dated by the names of the former.
This distinction continued in the Empire that was founded by Diocletian and Constantine. The ordinarii were nominated by the emperor, the suffecti were nominated by the senate, and their appointment was ratified by the emperor. The consulship was still the greatest dignity which the Empire had to bestow; and the pomp and ceremony of the office increased in proportion to the decline in its actual power. The entry of the consuls on office was celebrated by a great procession, by games given to the people, by a distribution of gifts, such as the ivory diptychs, a long series of which has been preserved. But the senate, over which they presided until the time of Justinian, was little more than the municipal council of the city of Rome; and the justice which they meted out had dwindled down to the formal and uncontested acts of manumission and the granting of guardians. Sometimes there was a consul of the West at Rome and a consul of the East at Constantinople; at other times both consuls might be found in either capital. The last consul born in a private station was Basilius in the East in A.D. 541. But the emperors continued to bear the title for some time longer.
Authorities.—Mommsen, Römisches Staatsrecht, ii. pp. 74-140 (3rd ed., Leipzig, 1887); Herzog, Geschichte und System der römischen Staatsverfassung, i. p. 688 foll., 827 foll. (Leipzig, 1884, &c.), Lange, Römische Alterthümer, i. p. 524 foll. (Berlin, 1856, &c.); Schiller, Staats- und Rechtsaltertümer, p. 53 foll. (Munich, 1893, Handbuch der klassischen Altertums-Wissenschaft, von Dr Iwan von Müller); Daremberg-Saglio, Dictionnaire des antiquités grecques et romaines, i. 1455 foll. (1875, &c.); De Ruggiero, Dizionario epigrafico di antichità Romane, ii. 679 foll., 868 foll. (Rome, 1886, &c.); Pauly-Wissowa, Realencyclopädie, iv. 1112 foll. (new edition, Stuttgart, 1893, &c.).
For the consular diptychs, cf. besides Daremberg-Saglio, l.c., Gori, Thesaurus veterum diptychorum (Florence, 1759), and Labarte, Histoire des arts industriels au moyen âge, i. p. 10 foll., 190 foll. (1st ed., Paris, 1864).
(A. H. J. G.)
CONSUL, a public officer authorized by the state whose commission he bears to manage the commercial affairs of its subjects in a foreign country, and formally permitted by the government of the country wherein he resides to perform the duties which are specified in his commission, or lettre de provision. (For the ancient magisterial office of consul see separate article above.)
A consul, as such, is not invested with any diplomatic character, and he cannot enter on his official duties until a rescript, termed an exequatur (sometimes a mere countersign endorsed on the commission), has been delivered to him by the authorities of the state to which his nomination has been communicated by his own government. This exequatur, called in Turkey a barat, may be revoked at any time at the discretion of the government where he resides. The status of consuls commissioned by the Christian powers to reside in Mahommedan countries, China, Korea, Siam, and, until 1899, in Japan, and to exercise judicial functions in civil and criminal matters between their own countrymen and strangers, is exceptional to the common law, and is founded on special conventions or [capitulations] (q.v.).