structural:scholar_edition
Empire and nature of government

Henry controlled more of France than any ruler since the 9th century Carolingians; these lands, combined with his possessions in England, Wales, Scotland and later parts of Ireland, produced a vast domain often referred to by historians as the Angevin Empire. The empire lacked a coherent structure or central control; instead, it consisted of a loose, flexible network of family connections and lands. Different local customs applied within each of Henry's different territories although common principles underpinned some of these local variations. Henry travelled constantly across the empire, producing what the historian John Edward Austin Jolliffe describes as a "government of the roads and roadsides". His journeys coincided with regional governmental reforms and other local administrative business although messengers were able to connect him to all of his domains wherever he went. In his absence the lands were ruled by seneschals and justiciars, and beneath them, local officials in each of the regions carried on with the business of government. Nonetheless, many of the functions of government centred on Henry himself, and he was often surrounded by petitioners requesting decisions or favours.

From time to time, Henry's royal court became a magnum concilium, a great council, which was sometimes used to take major decisions, but the term was loosely applied whenever many barons and bishops attended the king. A great council was supposed to advise the King and give assent to royal decisions, yet it is unclear how much freedom they actually enjoyed to oppose Henry's intentions. Henry also appears to have consulted with his court when making legislation; the extent to which he then took their views into account is unclear. As a powerful ruler, Henry was able to provide either valuable patronage or impose devastating harm on his subjects. He was very effective at finding and keeping competent officials, including within the Church, a key part of royal administration in the 12th century. Royal patronage within the Church provided an effective route to advancement under Henry, and most of his preferred clerics eventually became bishops and archbishops. By contrast, the number of earldoms in England shrank considerably, removing the potential for advancement for many traditional barons. Henry could also show his ira et malevolentia – "anger and ill-will" – a term that described his ability to punish or financially destroy particular barons or clergy.

In England, Henry initially relied on his father's former advisers whom he brought with him from Normandy and on some of Henry I's remaining officials, reinforced with some of Stephen's senior nobility who made their peace with Henry in 1153. During his reign, Henry, like his grandfather, increasingly promoted " new men ", minor nobles without independent wealth and lands, to positions of authority in England. By the 1180s this new class of royal administrators was predominant in England, supported by various illegitimate members of Henry's family. The links between the nobility in Normandy and England had weakened during the first half of the 12th century and continued to do so under Henry. Henry drew his close advisers from the ranks of the Norman bishops and, as in England, recruited many "new men" as Norman administrators: few of the larger landowners in Normandy benefited from the King's patronage. He frequently intervened with the Norman nobility through arranged marriages or the treatment of inheritances, either using his authority as duke or his influence as king of England over their lands there. Across the rest of France, local administration was less developed. Anjou was governed through a combination of officials called prévôts and seneschals based along the Loire and in western Touraine, but Henry had few officials elsewhere in the region. In Aquitaine, ducal authority remained very limited, despite increasing substantially during Henry's reign, largely owing to Richard's efforts in the late 1170s.