Neither politically, socially, intellectually, nor geographically[242] was there discontinuity or break or sudden change between the Merovingian and the Carolingian periods.[243] The character of the monarchy was scarcely affected by the substitution of the house of Pippin of Heristal for the house of Clovis. The baleful custom of dividing the realm upon a monarch's death survived; but Fortune rendered it innocuous through one strong century, during which (719-814) the realm was free from internecine war, while the tossing streams of humanity were driven onward by three great successive rulers.
The Carolingian, like the Merovingian, realm included many different peoples who were destined never to become one nation; and the whole Carolingian system of government virtually had existed in the Merovingian period. Before, as well as after, the dynastic change, the government throughout the realm was administered by _Counts_. Likewise the famous _missi dominici_, or royal legates, are found in Merovingian times; but they were employed more effectively by Charles Martell, Pippin, and, finally, by Charlemagne, who enlarged their sphere of action. He elaborately defined their functions in a famous Capitulary of the year 802. It was set forth that the emperor had chosen these legates from among his best and greatest (_ex optimatibus suis_), and had authorized them to receive the new oaths of allegiance, and supervise the observance of the laws, the execution of justice, the maintenance of the military and fiscal rights of the emperor. They were given power to see that the permanent functionaries (the counts and their subordinates) duly administered the law as written or recognized. The _missi_ had jurisdiction over ecclesiastical as well as lay officials; and many of them were entrusted with special powers and duties in the particular instance.
Thus Charlemagne developed the functions of these ancient officers. Likewise his Court and royal council, the synods and assemblies of his reign, the military service, modes of holding land, methods of collecting revenue, were not greatly changed from Merovingian prototypes. Yet the old institutions had been renewed and bettered. A vast misjoined and unrelated realm was galvanized into temporary unity. And, most impressive and portentous thing of all, an _Empire_--the _Holy_ Roman Empire--was resurrected for a time in fact and verity: the same was destined to endure in endeavour and contemplation.