We will reserve to a later chapter some account of the remodelled administration, which Constantine for the most part accepted without demur. Here we may briefly mention the decentralisation which Diocletian carried out in the provinces. Lactantius[7] says that “he carved the provinces up into little fragments that he might fill the earth with terror,” and suggests that he multiplied officials in order to wring more money out of his subjects. That is an enemy’s perversion of a wise statesman’s plan for securing efficiency by lessening the administrative areas, and bringing them within working limits. Diocletian split up the Empire into twelve great dioceses. Each diocese again was subdivided into provinces. There were fifty-seven of these when he came to the throne; when he quitted it there were ninety-six. The system had grave faults, for the principles on which the finances of the Empire rested were thoroughly mischievous and unsound. But the reign of Diocletian was one of rapid recuperation and great prosperity, such as the Roman world had not enjoyed since the days of the Antonines. ----- Footnote 7: _Et, ut omnia terrore complerentur, provinciæ quoque in frusta concisæ_ (_De Mort. Persec._, c. 7). ----- [Illustration] [Illustration] CHAPTER II THE PERSECUTION OF THE CHURCH Unfortunately for the fame of Diocletian there is one indelible blot upon the record of his reign. He attached his name to the edicts whereby was let loose upon the Christian Church the last and—in certain provinces—the fiercest of the persecutions. Inasmuch as the affairs of the Christian Church will demand so large a share of our attention in dealing with the religious policy of Constantine, it will be well here to describe, as briefly as possible, its condition in the reign of Diocletian. It has been computed that towards the end of the third century the population of the Roman Empire numbered about a hundred millions. What proportion were Christians? No one can say with certainty, but they were far more numerous in the East than in the West, among the Greek-speaking peoples of Asia than among the Latin-speaking peoples of Europe. Perhaps if we reckon them at a twelfth of the whole we shall rather underestimate than overestimate their number, while in certain portions of Asia and Syria they were probably at least one in five. Christianity had spread with amazing rapidity since the days of Domitian. There had been spasmodic outbreaks of fierce persecution under Decius,—“that execrable beast,” as Lactantius calls him,—under Valerian, and under Aurelian. But Aurelian’s reign was short and he had been too busy fighting to spare much time for religious persecution. The tempest quickly blew over. For fully half a century, with brief interludes of terror, the Church had been gathering strength and boldness.