At the beginning of 81 BC, Sulla was appointed
dictator, rei publicae constituendae causa, by the Senate and subsequently ratified by the "Assembly of the People", with no limit on time in office. Sulla had total control of the city and empire of Rome, except for Spain (which Marius's general
Quintus Sertorius had established as an independent state). This unusual honour (used hitherto only in times of extreme danger to the city, such as the
Second Punic War, and only for 6 month periods) represented an exception to Rome's policy of not giving total power to a single individual. Sulla can be seen as setting the precedent for
Julius Caesar's dictatorship, and the eventual end of the Republic under
Augustus.
In total control of the city and its affairs, Sulla instituted a reign of terror, akin to and in response to, that which Marius and Cinna had implemented while they were in control during Sulla's absence.
Proscribing or outlawing every one of his political opponents, Sulla ordered some 1,500 Roman nobles (
i.e., senators and
equites) executed, although it is estimated that as many as 9,000 people were killed. The bloodbath went on for several months. Romans were executed for any reason or none at all. Helping or sheltering a person who was proscribed was also punishable by death. The State confiscated the wealth of the outlawed and then auctioned it off, making Sulla and his supporters vastly rich. (One option commonly taken by those who had been proscribed was suicide, which under Roman law allowed their property to be inherited by their families, and not as spoils to Sulla.) The sons and grandsons of the proscribed were banned from future political office, a restriction not removed for over 30 years.
The young Caesar, as Cinna's son-in-law, was one of Sulla's targets and fled the city. He was saved through the efforts of his relatives, many of whom were Sulla's supporters, but Sulla noted in his memoirs that he regretted sparing Caesar's life, because of the young man's notorious ambition. The historian
Suetonius records that when agreeing to spare Caesar, Sulla warned those who were pleading his case that he would become a danger to them in the future, saying "In this Caesar there are many a Marius."
Only
Quintus Sertorius, the last supporter of Marius, held out against Sulla's armies under
Metellus Pius in distant
Hispania.
Without any political obstacle, Sulla enacted a series of reforms to put control of the State firmly in the hands of the Senate. He arranged that the number of
senators be doubled from 300 to 600 and that membership was automatic on election to the office of
quaestor instead of at the discretion of the
censors. He also increased the number of quaestors from eight to twenty and the number of praetors from six to eight, ensuring the numbers in the Senate and giving them a larger base of experienced politicians to draw from. He regulated the courts and re-passed a law regulating the
cursus honorum, giving specific ages for each magistracy, and forbidding the repetition of any office within ten years. He also reduced the
tribunes' political power by restricting their veto and blocking them from further office, and limited the
Assembly's ability to pass laws without the Senate's approval. This was to ensure that no man who had real political ambition would run for the tribunate. Sulla remembered the tribunates of the Gracchi and how they had caused upheaval throughout the Roman world with their radical policies. Now, only second-rate politicians would want to run for the office of tribune, securing the preeminence of the Senate.
Finally, in a demonstration of his absolute power, he expanded the "
Pomerium", the sacred boundary of Rome, untouched since the time of the kings. In this act, Sulla was trying to invoke the memory of Servius Tullius, the last man believed to have performed this ceremony. Servius Tullius had done much to shape the Roman constitution, and Sulla was comparing himself to this great leader. Many of Sulla's reforms looked to the past (often re-passing former laws), but he also regulated for the future, particularly in his redefinition of maiestas (treason) laws.
After two years of unchallenged power, Sulla stunned Rome by resigning the Dictatorship. He disbanded his legions and reestablished consular government. (In accordance to his own rules, he stood for and was elected consul in 80 BC). He dismissed his lictors and walked unguarded in the forum, offering to give account of his actions to any citizen. In a manner that the historian
Suetonius thought arrogant, Caesar later ridiculed Sulla for resigning, stating "Sulla did not know his political ABCs".