Formation of the exarchates and the revolution of 610.

            In connection with the Lombard conquest an important change took place in the government of Italy, which, together with a similar contemporary innovation in the administration of North Africa, laid the foundation for the new provincial administration of the Empire: the so-called system of themes. The Byzantine authorities in Italy had not been able to offer the proper resistance to the Lombards, who conquered two-thirds of the peninsula with great ease. Therefore in the face of great danger, the Byzantine government determined to strengthen its power in Italy by placing the civil administrative functions in the hands of the military rulers. Byzantine administration in Italy was to be headed by a military governor-general, the exarch, who was to direct the activities of all civil officials from his residence at Ravenna, The formation of the Ravenna exarchate dates back to the end of the sixth century, to the period of Emperor Maurice. This combination of administrative and judicial functions with military authority did not involve the immediate abolition of civil officials. They continued to exist along with the military rulers, but acted under the guidance of the military exarch. Only later the civil officials seem to have been completely replaced by military authorities. The exarch, as a representative of imperial power, followed in his administration certain principles of Caesaropapism, so much favored by the emperors. This policy was expressed in such acts, for example, as the interference as a final authority in the religious affairs of the exarchate. Unlimited in his power, the exarch was given imperial honors. His palace at Ravenna was considered sacred and called Sacrum palatium, a name usually applied only to an imperial residence. Whenever he arrived at Rome, he was accorded an imperial reception: the senate, the clergy, and the populace met him outside the city walls in triumphant procession. All military affairs, the entire administration, judicial and financial matters — all were at the full disposal of the exarch.[128]

            Just as the Ravennese exarchate arose because of the attacks of the Lombards in Italy, so the formation of the African exarchate in the place of the former Vandal kingdom was called forth by a similar menace on the part of the native African Moors, or, as they are sometimes called in sources, the Maurusii (Berbers), who frequently engaged in serious uprisings against the Byzantine troops who occupied that country. The beginning of the African, or Carthaginian, exarchate (often called so because the residence of the exarch was at Carthage) dates also from the end of the sixth century, the time of Emperor Maurice. The African exarchate was founded on the same principles as its predecessor at Ravenna, and was endowed with similar unlimited power.[129]

            Naturally, it was only extreme necessity that could force the Emperor to create such an unlimited office as that of the exarch, who, granting the desire and the presence of certain conditions, could become a very dangerous rival of the Emperor himself. And in reality the African exarch was to raise the banner of sedition against Phocas, and the son of the exarch was to become emperor in the year 610. In Africa the exarchs were chosen very wisely by Maurice and demonstrated much skill and energy in governing the land, defending it successfully against the attacks of the natives. On the other hand, the exarchs of Ravenna were unable to overcome the Lombard menace.

            According to the French scholar, Diehl,[130] the two exarchates must be viewed as the beginning of the theme (province or district) organization, that provincial reform in the Byzantine Empire which started in the seventh century and spread gradually through the entire territory of the Empire. Its distinguishing feature was the gradual dominance of the military authority over the civil. While the attacks of the Lombards and Moors produced significant changes in the West and the South at the end of the sixth century, the attacks of the Persians and Arabs caused later the introduction of similar measures in the East, and the onslaught of the Slavs and Bulgars resulted in the same reforms in the Balkan peninsula.

            The unsuccessful external policy of Phocas in regard to the Avars and the Persians, as well as the bloody terror which was his only means of maintaining his position, finally resulted in the revolt of the African exarch, Heraclius. Egypt soon joined in this revolt, and the African fleet under the direction of the exarch’s son, also named Heraclius, sailed forth to the capital, which deserted Phocas and came over to the side of Heraclius. Phocas was captured and executed. Heraclius, the son, ascended the Byzantine throne and thus started a new dynasty.