in any matter which related to the administration of justice
or the revenue; but the command which they exercised over the troops of
their department, was independent of the authority of the magistrates.
About the same time that Constantine gave a legal sanction to the
ecclesiastical order, he instituted in the Roman empire the nice balance
of the civil and the military powers. The emulation, and sometimes the
discord, which reigned between two professions of opposite interests
and incompatible manners, was productive of beneficial and of pernicious
consequences. It was seldom to be expected that the general and the
civil governor of a province should either conspire for the disturbance,
or should unite for the service, of their country. While the one delayed
to offer the assistance which the other disdained to solicit, the troops
very frequently remained without orders or without supplies; the public
safety was betrayed, and the defenceless subjects were left exposed to
the fury of the Barbarians. The divided administration which had been
formed by Constantine, relaxed the vigor of the state, while it secured
the tranquillity of the monarch.

The memory of Constantine has been deservedly censured for another
innovation, which corrupted military discipline and prepared the ruin
of the empire. The nineteen years which preceded his final victory over
Licinius, had been a period of license and intestine war. The rivals
who contended for the possession of the Roman world, had withdrawn the
greatest part of their forces from the guard of the general frontier;
and the principal cities which formed the boundary of their respective
dominions were filled with soldiers, who considered their countrymen as
their most implacable enemies. After the use of these internal garrisons
had ceased with the civil war, the conqueror wanted either wisdom or
firmness to revive the severe discipline of Diocletian, and to suppress
a fatal indulgence, which habit had endeared and almost confirmed to the
military order. From the reign of Constantine, a popular and even legal
distinction was admitted between the Palatines and the Borderers; the
troops of the court, as they were improperly styled, and the troops of
the frontier. The former, elevated by the superiority of their pay and
privileges, were permitted, except in the extraordinary emergencies of
war, to occupy their tranquil stations in the heart of the provinces.
The most flourishing cities