The Roman Empire, at the end of the fourth century, was in a condition which made the experiment of Theodosius particularly dangerous. The government was highly centralized and bureaucratic; hosts of officials, appointed directly from Constantinople, administered every provincial post from the greatest to the least. There was little local self-government and no local patriotism. The civil population was looked on by the bureaucratic caste as a multitude without rights or capacities, existing solely for the purpose of paying taxes. So strongly was this view held, that to prevent the revenue from suffering, the land-holding classes, from the _curialis_, or local magnate, down to the poorest peasant, were actually forbidden to move from one district to another without special permission. A landowner was even prohibited from enlisting in the army, unless he could show that he left an heir behind him capable of paying his share in the local rates. An almost entire separation existed between the civil population and the military caste; it was hard for a civilian of any position to enlist; only the lower classes—who were of no account in tax-paying—were suffered to join the army. On the other hand, every pressure was used to make the sons of soldiers continue in the service. Thus had arisen a purely professional army, which had no sympathy or connection with the unarmed provincials whom it protected. The army had been a source of unending trouble in the third century; for a hundred years it had made and unmade Cæsars at its pleasure. That was while it was still mainly composed of men born within the empire, and officered by Romans. But Theodosius had now swamped the native element in the army by his wholesale enlistment of Gothic war-bands. And he had, moreover, handed many of the chief military posts to Teutons. Some of them indeed had married Roman wives and taken kindly to Roman modes of life, while nearly all had professed Christianity. But at the best they were military adventurers of alien blood while at the worst they were liable to relapse into barbarism, cast all their loyalty and civilization to the winds, and take to harrying the empire again in the old fearless fashion of the third century. Clearly nothing could be more dangerous than to hand over the protection of the timid and unarmed civil population to such guardians. The contempt they must have felt for the unwarlike provincials was so great, and the temptation to plunder the wealthy cities of the empire so constant and pressing, that it is no wonder if the Teutons yielded. Cæsar-making seemed as easy to the leaders as the sack of provincial churches and treasuries did to the rank and file.