had nothing to
fear from refusing, he had no alternative but to send the appellant on
to the metropolis. Arrived there, the prisoner was taken to the
guardrooms or cells in the barracks of a special prefect who had
charge of such arrivals from abroad, and his case would in due course
be taken either by the emperor himself, if it was sufficiently
important, or by magistrates to whom the emperor delegated his powers
for the purpose.

Meanwhile, provincials other than full Roman citizens enjoyed no such
privilege. They could make no appeal. The governor was supreme judge,
and his verdict or sentence was carried out. In matters of doubt,
whether administrative or judicial, the governor might refer to the
emperor for direction or advice, and we have at a somewhat later date
a considerable collection of letters and their replies which passed in
this manner between Pliny and the Emperor Trajan.

* * * * *

A glance at the map will show some provinces named in heavy type and
some in italics. Those in _italics_ are the provinces to which the
Senate has the right to appoint the governors, in this case called
"proconsuls." Of course His Highness the Head of the State is
graciously pleased to approve the choice of the Senate; which means
that the Senate will not attempt any appointment which the emperor
would dislike. The revenues of these provinces go into a treasury
controlled by the Senate. Of those named in heavy type the emperor is
himself the governor or proconsul. Theoretically he is made governor
of all these simply because they contain, or may need, armies, and he
is the commander-in-chief of those armies. But since he is at Rome,
and in any case cannot be everywhere at once, he governs all such
provinces by means of his deputies, whom he appoints for himself. They
are his lieutenants, and are so called--to wit, "lieutenants of
Caesar" and "deputies of the commander." The revenues of these
imperial provinces are collected by an "agent" or "factor" of Caesar,
and go into a treasury controlled by the emperor. In any one of his
provinces the emperor would be its governor, and would exercise the
usual military and civil powers of a governor. His lieutenant to each
province simply acts in his place, receives the same powers, and is
the governor of that province exactly as the proconsul sent by the
Senate is governor in his. But whereas the governors in the senatorial
provinces wear the garb of