The reign of Constantine must be interpreted against the background of his personal commitment to Christianity. His public actions and policies, however, were not entirely without ambiguity. Roman opinion expected of its emperors not innovation but the preservation of traditional ways; Roman propaganda and political communication were conditioned, by statement, allusion, and symbol, to express these expectations. It is significant, for instance, not that the pagan gods and their legends survived for a few years on Constantine’s coinage but that they disappeared so quickly: the last of them, the relatively inoffensive “Unconquered Sun,” was eliminated just over a decade after the defeat of Maxentius.

Some of the ambiguities in Constantine’s public policies were therefore exacted by the respect due to established practice and by the difficulties of expressing, as well as of making, total changes suddenly. The suppression of paganism, by law and by the sporadic destruction of pagan shrines, is balanced by particular acts of deference. A town in Asia Minor mentioned the unanimous Christianity of its inhabitants in support of a petition to the emperor; while, on the other hand, one in Italy was allowed to hold a local festival incorporating gladiatorial games and to found a shrine of the imperial dynasty—although direct religious observance there was firmly forbidden. In an early law of Constantine, priests and public soothsayers of Rome were prohibited entry to private houses; but another law, of 320 or 321, calls for their recital of prayer “in the manner of ancient observance” if the imperial palace or any other public building were struck by lightning. Traditional country magic was tolerated by Constantine. Classical culture and education, which were intimately linked with paganism, continued to enjoy enormous prestige and influence; provincial priesthoods, which were as intimately linked with civic life, long survived the reign of Constantine. Constantinople itself was predominantly a Christian city, its dedication celebrated by Christian services; yet its foundation was also attended by a well-known pagan seer, Sopatros.

An objective assessment of Constantine’s secular achievements is not easy—partly because of the predominantly religious significance with which the emperor himself invested his reign, partly because the restlessly innovatory character that dissenting contemporaries saw in his religious policy was also applied by them to the interpretation of his secular achievement. Some of Constantine’s contributions can, in fact, be argued to have been already implicit in the trends of the last half century. So may be judged the further development, taking place in his reign, of the administrative court hierarchy and an increasing reliance upon a mobile field army, to what was considered the detriment of frontier garrisons. The establishment by Constantine of a new gold coin, the solidus, which was to survive for centuries as the basic unit of Byzantine currency, could hardly have been achieved without the work of his predecessors in restoring political and military stability after the anarchy of the 3rd century. Perhaps more directly linked with Constantine’s own political and dynastic policies was the emergence of regional praetorian prefectures with supreme authority over civil financial administration but with no direct control over military affairs; this they yielded to new magistri, or “masters,” of the cavalry and infantry forces. The reduction of the prefects’ powers was seen by some as excessively innovatory, but the principle of the division of military and civil power had already been established by Diocletian. A real innovation, from which Constantine could expect little popularity, was his institution of a new tax, the collatio lustralis. It was levied every five years upon trade and business and seems to have become genuinely oppressive.

A lavish spender, Constantine was notoriously openhanded to his supporters and was accused of promoting beyond their deserts men of inferior social status. More to the point is the accusation that his generosity was only made possible by his looting of the treasures of the pagan temples as well as by his confiscations and new taxes; and there is no doubt that some of his more prominent supporters owed their success, at least partly, to their timely adoption of the emperor’s religion.

The foundation of Constantinople, an act of crucial long-term importance, was Constantine’s personal achievement. Yet it, too, had been foreshadowed; Diocletian enhanced Nicomedia to an extent that was considered to challenge Rome. The city itself exemplified the “religious rapacity” of the emperor, being filled with the artistic spoils of the Greek temples, while some of its public buildings and some of the mansions erected for Constantine’s supporters soon showed signs of their hasty construction. Its Senate, created to match that of Rome, long lacked the aristocratic pedigree and prestige of its counterpart.

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In military policy Constantine enjoyed unbroken success, with triumphs over the Franks, Sarmatians, and Goths to add to his victories in the civil wars; the latter, in particular, show a bold and imaginative mastery of strategy. Constantine was totally ruthless toward his political enemies, while his legislation, apart from its concessions to Christianity, is notable mainly for a brutality that became characteristic of late Roman enforcement of law. Politically, Constantine’s main contribution was perhaps that, in leaving the empire to his three sons, he reestablished a dynastic succession, but it was secured only by a sequence of political murders after his death.

Above all, Constantine’s achievement was perhaps greatest in social and cultural history. It was the development, after his example, of a Christianized imperial governing class that, together with his dynastic success, most firmly entrenched the privileged position of Christianity; and it was this movement of fashion, rather than the enforcement of any program of legislation, that was the basis of the Christianization of the Roman Empire. Emerging from it in the course of the 4th century were two developments that contributed fundamentally to the nature of Byzantine and Western medieval culture: the growth of a specifically Christian, biblical culture that took its place beside the traditional Classical culture of the upper classes; and the extension of new forms of religious patronage between the secular governing classes and bishops, Christian intellectuals and holy men. Constantine left much for his successors to do, but it was his personal choice made in 312 that determined the emergence of the Roman Empire as a Christian state. It is not hard to see why Eusebius regarded Constantine’s reign as the fulfillment of divine providence—nor to concede the force of Constantine’s assessment of his own role as that of the 13th Apostle.