Government without bureaucracy could operate successfully only if it was government with consent —even if the motivation for consent was ultimately the fear of extreme violence by the state as penalty for open opposition. Much administration, such as the collection of taxes at the local level, was in effect carried out on behalf of the state by local urban elites in return for Roman support of their local status. The success of government thus depended upon acceptance by provincial aristocrats of the value of honors and tites bestowed by local people and recognized by Rome. Much of the extant evidence for this “empire of honor” appears to confirm such a consensus. Inscriptions on monuments from all over the empire boast about the status of local magistrates and the favors granted to them, and through them to their communities, by governors and emperors. Such evidence suggests an integrated society of provincials willingly cooperating with a benevolent and responsive state. But of course only those individuals who accepted and benefitted from the system will have paid for such monuments to be erected…
…More significant than the overt recognition by provincials of their place in the Roman system of power was the nearly universal practice of patronage to give individuals of all backgrounds a sense of connection, however tenuous, between themselves and the emperor. Almost everyone in the Roman empire knew someone who knew someone who might be able to intervene, through however many links in the chain of patronage, at the center of power in the state…. But for the provincials far away from the locus of power in Rome, the most effective invocation of patronage ties was achieved either by traveling to Rome in person or sending an embassy.
"— Martin Goodman, Rome and Jerusalem: The Clash of Ancient Civilizations
