(Warhammer 40,000) Eras of the Imperium

Winged Knight

Still just a crazy man with a wolf on his head
Location
Texas
So there's a statement that's been made in a few different parts of the Internet I frequent about Warhanmer 40,000. Specifically, it's about the Imperium. It is typically a complaint about the Imperium and how its existence gets in the way of the setting's themes about how it is a terrible, broken giant that is rotting away and in its rotting creates the worst of mankind. That this fact doesn't work with the Imperium being a message about how authoritarianism is ultimately self-defeating and creates most of its own problems.

Namely, it's the idea that the Imperium should be considered the most successful government to ever exist because it has lasted for over 10,000 years.

I have issues with this. My biggest is that I think there are many more qualifications for what makes a successful government than how long it has lasted. I would also argue the Imperium is less of a government outside of Segmentum Solar, which is the imperial core, and more tens of thousands of individual armies roving around extracting resources from the other Segmentums. A planet can go hundreds, sometimes even thousands, of years without any wider contact from the rest of the Imperium until dozens of ships show up in orbit with lots of guns demanding they pay their tithes.

But really, and this is the point of this essay, I would say that it is incorrect to look at the Imperium as a singular state that has existed whole and coterminous for over ten millennia. The Imperium has changed an incredible amount over its history, and I think a strong argument can be made that what is called "The Imperium" is really a number of successor states all taking the same name in order to maintain legitimacy.

I have included dates where I can for the eras presented, but some time periods don't have hard numbers so I was left with approximations. I apologize if that causes any frustration.

Let's get to it.

Great Crusade: 798.M30-005.M31

For simplicity's sake we're going to say this era begins with the unification of Terra. That's where we really get the beginning of the Imperium, with the signing of the Treaty of Mars to bring the Mechanicum on board. We get the creation of both the Primarchs and the Legions, as well as the Imperial Army. This era lasts for a bit over 200 years and sets the bones for everything that comes afterward. It's a time of rapid expansion, with much territory gained and a great deal of resources being funneled back to Segmentum Solar.

Perhaps most importantly comes the institution of the Adeptus Terra during this time, along with many of its various subordinate offices like the Adeptus Administratum, the Adeptus Astra Telepathica, and the Adeptus Arbites. These are administration/logistics, communication, and policing respectively. As well, there is the Adeptus Astronomica which works closely with the Astra Telepathica to ensure the Astronomicon remains working in good order.

This is also where we see the Council of Terra come into being, and while it did not have any military authority it was the overall governing body under the Emperor, who left it to administrate while he went off to work on the Webway Project. The Council of Terra was made up of heads of the divisions of the Adeptus Terra, who acted as representatives of their various offices.

Then comes the Horus Heresy and over the course of about ten years we see a massive shift in how the Imperium operates.

Post Crusade/Scouring: 015.M31-???.M31

At this point the galaxy might no longer be burning, but you can still smell the smoke. The Traitor Legions and their Imperial Army attachments are hounded all the way to the Eye of Terror, planets with traitor leanings that weren't already destroyed during the Heresy are decisively dealt with, and the Emperor is interred on the Golden Throne unable to communicate with any reliability with those around him. The surviving Primarchs, along with the newly formed Senatorum Imperialis rising from the ashes of the Council of Terra, are left to pick up the pieces of the Imperium.

The Mechanicum becomes the Adeptus Mechanicus, ceasing to be an autonomous allied empire and joined properly as a part of the Imperium. The Imperial Army is dissolved, split into the Astra Militarum and the Navis Imperialis. The Astartes Legions, as well, are broken up into thousands of smaller groupings called Chapters of roughly 1,000 Astartes each. We also see these military institutions placed under the purview of the Senatorum Imperialis as the title of Warmaster ceases to be an independent office after the betrayal of Horus. The creation of the Inquisition also occurs at this time, though it does not split into its various Ordos until much later.

These are massive shifts in the structure of the Imperium, and while there are similarities to what has come before the differences are stark enough that it's become essentially a successor state. This is especially true since we know the Imperium wasn't actually the end goal of the Emperor. It was supposed to be an interstitial stage, something to hold off the rest of the galaxy while he moved all the people he actually liked into the Webway to somehow become psychic gods like himself.

This will be the state of affairs for some time until we get to the War of the Beast.

War of the Beast and its Aftermath: 544.M32-646.M32

Before the War of the Beast the Imperium enjoys a reprieve from the constant warfare of the Great Crusade, the Horus Heresy, and the subsequent Scouring. This is where we see the Imperium settle properly into the shape of a galactic empire, solidifying gains over its territory and even bringing more worlds into the fold. The various surviving Primarchs die, disappear, or are incapacitated and the Senatorum Imperialis becomes the overall ruling body of the Imperium.

The Ecclesiarchy comes into existence during this time, various cults dedicated to worship of the Emperor either merging with or being stomped out by this rising power. It becomes the state religion, and joins the Adeptus Terra as the Adeptus Ministorum. The position of Ecclesiarch from this point on joins the Senatorum Imperialis as one of the High Lords.

This is, overall, a pretty good time for the Imperium. Most conflict is at its borders, with the occasional internal rebellion easily put down with minimal fuss. Then the orks come roaring in like a rock through a glass window to break everything,

Say what you will about the War of the Beast novel series, and there's much to critique, but at the very least a lot happens during the two years of the war. There is a massive ork offensive against the Imperium, including an invasion of the Sol system, which is only stopped at great cost. This is where we see the Inquisition split with the birth of the Ordo Xenos, with many more Ordos to come. The organization of the Deathwatch also comes into existence as a response to this war.

In the immediate aftermath of the War of the Beast we get the Beheading, where the Grand Master of the Officio Assassinorum assassinates his fellow High Lords in a vicious coup. He rules for a century as a singular tyrant, militarizing the already militant Imperium even further to ensure Terra would never again be under threat of invasion. He is eventually deposed in a bloody battle involving 400 Astartes and 100 Eversor Assassins, and new High Lords are put in place after fifty Chapter Masters of the Adeptus Astartes arrive on Terra to restore order.

Nova Terra Interregnum: Early M35-Late M35

The Nova Terra Interregnum is a huge event that doesn't have any novels set during it, but we have a fair amount of information all the same. The ruling council of the planet of Nova Terra rejects the authority of the Senatorum Imperialis and claims rulership of the entirety of Segmentum Pacificus. Why they do this is unknown, but it sparks several other conflicts like the Moirae Schism within the Adeptus Mechanicus and the Tellarite Rebellion.

This state of affairs goes on for over 900 years, with the majority of Segmentum Pacificus following the banner of Nova Terra. The various broken parts of the Imperium are locked for some time in a prolonged cold war with occasional flareups, until eventually the Nova Terra Interregnum ends with the Cataclysm of Souls. This is when the Ecclesiarchy attempts to bring the fractured elements of the Imperium together as a theocratic state with worship of the Emperor acting as a bridge to bring groups together across political divides.

Nova Terra's immediate response is rejection of the Ecclesiarchy and its teachings, which results in an enormous war of faith that brings many different factions together. This crusade breaks the power of Nova Terra and over the next few centuries the Imperium knits itself back together due in no small part because of the Ecclesiarchy's efforts. It is at this point that, while it was already mostly there, the Imperium properly settles as a theocracy on top of its other authoritarian elements.

The era of the Nova Terra Interregnum is, for all intents and purposes, a time of warring states where the Imperium's rule doesn't really extend much further than Segmentum Solar. Even outside Segmentum Pacificus there were rebellions popping up all over the place with different groups carving out their own pocket empires, and one can make an argument that the Imperium functionally didn't exist as a full galactic polity for a good chunk of M35. It takes quite some time for the Imperium to recover from this prolonged era of civil war, and just when it's back on its feet it stumbles into another one.

Age of Apostasy: Beginning of M36-Early M36

While Goge Vandire gets the most credit for this era, and believe me we'll get to him, it actually has its roots much earlier in M35 before it culminates completely in what will be known as the Age of Apostasy. Appropriately enough, it all begins with the Ecclesiarchy making a mess of things.

Attempting to get out from under the thumb of the Administratum, the Ecclesiarchy moves its base of operations from Terra to Ophelia VII in Segmentum Tempestus. This is for a few reasons, not least of which nepotism, but the separation allows the Ecclesiarchy to build up an impressive military force without the Administratum able to do much about it. 300 years after this move the Ecclesiarchy, at great expense, relocates back to Terra. At this point the Ecclesiarchy is incredibly wealthy from the tithes it had taken without Administratum oversight and incredibly powerful from the military it had built up around itself.

Into all this, as the Imperium is recovering from the Nova Terra Interregnum, comes Goge Vandire. He is the High Lord of the Administratum, and through political machinations and a great deal of assassination manages to also become the Ecclesiarch. This dual position gives him an absurd amount of control over the workings of the Imperium, and he uses it to purge both the Administratum and the Ecclesiarchy of anyone who might contest his rule.

What follows is a period of bloody unrest and comical mismanagement. Having achieved nigh infinite political power, Vandire's instability grows to equal heights. Billions die on numerous worlds as people follow insane decrees like melting ice caps of one planet and arresting all children under 12 years old on another. It is also during this time that it becomes an accepted practice for Imperial Navy officers to kill their superiors in order to speed along their own promotions.

All of this resulted in a great many people wanting Vandire dead. He was not without loyal bodyguards, however, and through deceit managed to convince a cult of devout Emperor worshippers called the Daughters of the Emperor to become his personal army. They are renamed the Brides of the Emperor and protect Vandire through several assassination attempts. They would also eventually be his end, as 70 years after Vandire rose to power the priest Sebastian Thor convinces the Brides of the Emperor to turn against him.

The Age of Apostasy actually continues a few decades beyond Vandire's death with the Plague of Unbelief. An apostate cardinal by the name of Bucharis manages to carve out an empire of around 1,000 worlds for himself thanks to warp storms cutting off most communication to his region of Segmentum Solar. He takes control of several military elements within this region of space, and might have made a go at Terra if he hadn't run afoul of the Space Wolves Chapter and a religious uprising within his own territory. He is eventually deposed and his worlds brought back into the Imperial fold.

Post Age of Apostasy: Mid M36-M41

This is an era of massive reforms to the Imperium's governing structures, as well as its ossification into what can be considered the modern Imperium before the formation of the Great Rift and the rebirth of Roboute Guilliman. Sebastian Thor, now named Ecclesiarch, creates the Holy Synod consisting of Adeptus Ministorum Cardinals. They, alongside a sister Synod on Ophelia VII, are there to disperse the Ecclesiarchy's overall power end prevent total centralization under a singular individual.

The Ecclesiarchy is also banned from holding "men at arms" in this era, though gets around that with creation of the Adeptus Sororitas from the dissolution of the Brides of the Emperor. The Ordo Hereticus of the Inquisition also comes into existence in response to the Age of Apostasy, creating the third and final Order Majoris branch alongside the Ordo Malleus and the Ordo Xenos. The Imperium recaptures a great deal of lost territory over the course of 1,000 years, once more solidifying itself as the premier galactic power before eventually overreaching and stretching itself too thin to actually maintain its holdings.

It is at this time the Imperium takes the shape it is arguably most known for throughout the existence of Warhammer 40,000 as a setting. The Administratum, Ecclesiarchy, Mechanicus, Inquisition, Astartes, Guard, and Navy are all about with their various subfactions. After a period of renewal we see the Imperium begin its slow decline, and while it will be engaged in several large conflicts none will shift the framework of the Imperium to such a wide degree like the eras already listed.

Until, of course, Chaos splits the galaxy in half.

Era Indomitus: 001.M42-Present

Abaddon finally wins a Black Crusade! 13th one is the charm, and all that.

With the violent emergence the Great Rift the galaxy is split asunder. Outside of a few isolated pockets the Imperium effectively loses half of its overall territory, and in the immediate aftermath the Astronomicon goes out entirely in an event that lasts between 33 days and several months known as the Noctis Aeterna. During this time the Imperium grinds to a halt and billions of lives are lost.

It is in the wreckage of this fallen empire that Roboute Guilliman, Primarch of the Ultramarines, is brought back to life after languishing at the cusp of death in stasis for over 10,000 years. He kills a great many Black Legion Astartes who had invaded Macragge, and then makes a beeline for Terra to both relieve it from a massive daemonic siege and to also take back his old job as Imperial Regent.

Guilliman goes on to enact a purge both the Senatorum Imperialis, as well as the general population, to solidify his rule of Terra. This involves at a later point a coup that he himself coaxes into existence with the help of the Grand Master of Assassins. Traitorous current and former High Lords are baited into working against Guilliman, who attempt to take control of Terra while Guilliman was away on the Indomitus Crusade. Guilliman, having anticipated this, works with the Grand Master of Assassins to have the conspirators killed after they reveal their hand calling in the Minotaurs Chapter for support.

Most, if not all, of the highest ranking members of the Senatorum Imperialis are now those Guilliman himself has chosen. At this point he is effectively the ruler of the Imperium, and has centralized a great deal of power around himself during his Indomitus Crusade to maintain the functioning of the state. He is helped in this matter by the Adeptus Custodes, who are no longer bound to Terra and with the Emperor's blessing are enacting Guilliman's will in bolstering the various Astartes Chapters.

The shape of the Imperium is radically different in this era, with so much territory lost and its leadership replaced and centralized around Guilliman. Dante might be named Regent of Imperium Nihilus, the half of the galaxy separated from the Astronomicon by the Great Rift, but that territory is effectively lawless considering the Imperium's extremely limited ability to project force and control. Maybe Lion El'Jonson, newly reawakened Primarch of the Dark Angels, can help Dante in getting things organized over there. I doubt it, but the possibility exists.

Conclusion

And there you have it. These are seven distinct eras of the Imperium's history where I believe a strong case can be made they are less a proper continuation of what has come before, but rather new states building atop the corpse of the previous one and keeping the name of "Imperium" in order to better legitimize their rule. Each is marked by massive shifts in the Imperium's governmental and territorial makeup, altering it in monumental ways compared to previous incarnations. There are similarities between eras, of course, but overall I feel each is unique enough to be considered its own beast.

I spent way too much time on this, and it's rough as hell, but with any luck you found some value in reading me ramble on for over 3,000 words. This was an itch in my brain that I just needed to scratch, and now it's finished. I hope you enjoyed it.
 
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The more obvious rebuttal is that authors can slap whatever massive numbers they want on a fictional setting, we don't have to actually care. Like are we meant to be impressed that somebody put an extra zero or two on their timeline? What does it matter, one way or another, when everyone knows WH40K writers don't bother having their setting cohere with itself, let alone any theory of economics and history?

Congratulations, Imperium of Man. You've outlasted the Stark Dynasty by a factor of 1.25, roughly. Amazing.
 
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The more obvious rebuttal is that authors can slap whatever massive numbers they want on a fictional setting, we don't have to actually care. Like are we meant to be impressed that somebody put an extra zero or two on their timeline? What does it matter, one way or another, when everyone knows WH40K writers don't bother having their setting cohere with itself, let alone any theory of economics and history?

Congratulations, Imperium of Man. You've outlasted the Stark Dynasty by a factor of 1.25, roughly. Amazing.
Shockwave canonically ruled Cybertron for four million years in the Transformers cartoon. That puts him ahead of every government in 40k put together, and that was as a regent.
 
The Imperium of Man is meant to be the story of Empire writ large. You have parallels across it's history to many events within the life span of the Roman Empire and also the British Empire. Ultramar at present is as distinct from the Empire in Segmentum Solar as the East was different from the West in the twilight of Rome. Even after Rome "Fell" you had about twenty different things claiming the heritage of Rome
 
Post Age of Apostasy: Mid M36-M41
Since I'm currently listening to the Adeptus Ridiculous episode on them, I'd like to point out for reference's sake that the early years of M37 is when the Blood Ravens's records of themselves start. Everything before that regarding them - mainly M30 to M37 - is a big ol' mystery.

This is, as you have probably noticed, a really big stretch of time during which a lot of shit happened.
 
My great dream is that one day there will be a novel series detailing the exploits of Sebastian Thor. It and the War in Heaven feel like really interesting things they could turn into a narrative. Now that they are done with the Horus Heresy maybe we will see some expansion on non-Primarch related things...oh who am I kidding
 
My great dream is that one day there will be a novel series detailing the exploits of Sebastian Thor. It and the War in Heaven feel like really interesting things they could turn into a narrative. Now that they are done with the Horus Heresy maybe we will see some expansion on non-Primarch related things...oh who am I kidding

I'd like novels about the Nova Terra Interregnum, myself. A proper Warring States Era Imperium is a concept that has a lot of potential.
 
Yes, the Nova Terra Interregnum is the most appetizing target.

For my money, the best bit to focus on is the Moirae schism. The Ad Mech essentially splits alongside the broader imperium, as a group of Tech Priests believed that, Wanted Style, they were getting messages from the Omnissiah via fluctuations in the Astronomican's Beacon.

A first founding chapter bites on this! Like, a sizable chunk of the Iron Hands are like 'yes, that sounds plausible, we are Team Moirae now'. And they don't get killed! The splinter sect are Moirae (quietly) to this day. The Iron Hands and these new Sons of Medusa manage to negotiate them into becoming a whole ass separate chapter.

Like, trilogy of novels based around the Iron Hands during this time when? Like, keep your Badab War novels (don't, actually, write them and give them to me), I'm desperate to read about the tortured space fascist politics that lead to every bit of this nonsense.
 
I think I disagree with some of your conclusions, on the basis that a number of these eras don't mark any meaningful changes to the Imperium. My thoughts on criteria in rough order from least to most important-

1. The idols & iconography don't change - the God-Emperor and the Primarchs and the Saints and the Angels of Death remain venerated throughout the Imperium's history. The Imperium being a theocratic state I feel compelled to throw this in although it's easy to change government while paying lip service to religious figures, which is why this criteria is the least important.

2. The offices don't change - Vangorich and Vandire might kill the rest of the high lords and rule as de facto Emperor for awhile, but both their reigns are ended by the Astartes coming in to reassert the Council of Terra, which is narratively framed as a return to normalcy and the Imperium goes on trucking as it did before, albeit perhaps with a more wary eye to council members with a 'V' name.

3. The structures don't change - Even in times when some dude ganks the high lords or chunks of the Imperium try to break off like Nova Terra or Badab, it's not like the Imperium's government changes in any fundamental way. The black ships keep on coming, Imperial law enforcement (the Arbites) keeps working, the armed forces keep fighting wars, sector and sub-sector governments remain intact and the hereditary lines of Imperial planetary governors aren't disrupted. Sure, such periods are often marked by widespread unrest and civil war, but also this is 40k where mass death atrocities can happen because a dude transposed a 2 and a 5 when sending out Guard orders.

4. The mechanisms don't change - I think this is the big one. For most of the Imperium's history, the edifices of power are more or less eternal. Although the Inquisition gets a new branch and the Ecclesiarchy's private army switches from brothers to sisters after the Reign of Blood, these are two of the bigger changes in the Imperium's history which amount to more or less bookkeeping, and while the Imperium occasionally adds government, it never really takes any away. Most importantly, the Administratum never goes through any significant change, and if the office that collects taxes and distributes funds for the entire Imperium stands resolute - in conjunction with the mechanisms of war and law enforcement and especially the Mechanicus' control of high technology and means of production - I don't think the government of the Imperium can be said to have changed meaningfully. Of course, this comes with the caveat that most of these structures have gotten worse over time - bureaucracy fossilizing and grinding to a halt and records being lost - but that's in keeping with 40k's byline "welcome to the future, where everything is worse."

If there's no fundamental alteration to the levers of power can it really be said that the Imperial state now is different to the one from two weeks ago before 10 billion people got shot?



All that being said, I do think one can point to there being three periods in the Imperium's history where the character of the Imperium changed sufficiently that one could argue it has become a different state-

1. The Emperor's Imperium - established at the beginning of the Great Crusade and then undergoes a long transition period from M31 to M32, which is where most of the significant changes to the structure of government are made - the Inquisition and Ecclesiarchy are established, while the primarchs die or turn traitor or go missing or are shoved in a bubble. The Beheading can be pointed to as an exclamation point to end this part of the Imperium's history.

2. The High Lords' Imperium - lasts from M32 to the end of M41. Although frequently marked by unrest and outright civil war, the character of the Imperium remains largely unchanged throughout history. It's a Thursday. Billions die. Grim. Dark.

3. Guilliman's Imperium - established when Guilliman wakes up in M42. Roboute Guilliman more or less takes direct control of the Imperium's government, an event which is also marked by the galaxy being split in half and the establishment of Imperium Nihilus. To the best of my knowledge Guilliman hasn't actually done much yet - there's been some mention of "reforms" but unsurprisingly for a tabletop game setting we've mostly focused on the little plastic dudes chainsawing each other.

The Imperium goes through fewer changes than imperial China in a new dynastic era or even the United States flipping two-thirds of its federal government. And no, that's not realistic, but 40k has never really cared about realism...and frankly anyone who points to the Imperium's longevity as if that makes it some kind of success story or example to be emulated is just being immensely silly, because 40k is a nightmare setting with nightmare mode baked into the writing, and a theocratic dystopia that constantly wars with itself as much as it fights everybody around it is the buy-in for players of the various space marine, imperial guard, sisters, mechanicus, imperial knights, etc to all play against each other.
 
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Another interesting aspect to this is that fully half the Inquisition is very dedicated to ensuring the Imperium runs exactly as "intended." Within the context any form of reform or change is considered heretical or radical
 
Eh from what you described the 40k Imperium claims greater continuity than say the Roman Empire or the Chinese Empire? The religion is more or less the same, the Armed Forces the same as well as the various Imperial institutions.

Civil Wars and periods of centralization and decentralization or even fragmentation certainly but nothing worse than say the 3rd Century crisis of the Roman Empire?
 
Gonna be honest, I think the biggest driver of the Imperium's stagnation is how little the leadership changes.

IRL, the character of nations inevitably changes as the people making decisions age out, are coup'd, or are otherwise replaced by time. The amount of power a particular seat has changes depending on the ability of the person in the seat and the ability of those around them. The Emperor of Japan flip flops in history between being a figurehead and a position of power depending on who is on the throne and whether the Shogunate is in control. Same with the Papacy and any other crown you'd care to mention.

The Imperium by contrast has access to various sci-fi conveniences that mean that even planetary governors don't really age out of their positions. The Emperor was a perpetual, his sons are so near to being immortal that in how we interpret time they may as well be, the High Lords are either chromed up or high on anti-aging drugs. The same people making the same decisions ad infinitum for thousands of years.
 
The Imperium by contrast has access to various sci-fi conveniences that mean that even planetary governors don't really age out of their positions. The Emperor was a perpetual, his sons are so near to being immortal that in how we interpret time they may as well be, the High Lords are either chromed up or high on anti-aging drugs. The same people making the same decisions ad infinitum for thousands of years.

While it's true that the aristocracy in 40k has access to scifi treatments that let them live extended lives, 40k writers usually describe "extended" as meaning 100+ like Commissar Cain or at most a few hundred. People who live over a thousand years are vanishingly rare, like Dante being over 1000 or Bjorn the Fellhanded and Belisarius Cawl having been alive for the entire duration of the Imperium, but none of them have been politically running things until recently.

In my opinion the fundamental reason that the Imperium stays stagnant (apart from writer fiat) is that the highest levels of the Imperium are deliberately built to ensure constant deadlock. Consider the Senatorum Imperialis-

The Senatorum is an Imperial governing body led by twelve leaders of the most powerful organisations of the Imperium. This body rules the Imperium in the Emperor's name. The Senatorum itself is composed of tens of thousands of Imperial dignitaries, nobleman, lords, and other officials, but these rarely meet and instead the "High Twelve" conduct the vast majority of affairs.

Determining who will hold the position of High Lord has resulted in millennia of political intrigue between the various bureaucracies seeking to increase their power. However, some organisations are so powerful, so fundamentally important to the Imperium, that their position on the Council is considered sacrosanct. For this reason the following nine offices are almost always represented as High Lords:

The Master of the Administratum
The Inquisitorial Representative
The Ecclesiarch of the Adeptus Ministorum
The Fabricator-General of the Adeptus Mechanicus
The Grand Provost Marshal of the Adeptus Arbites
The Paternoval Envoy of the Navigators
The Master of the Astronomican
The Grand Master of the Officio Assassinorum
The Master of the Adeptus Astra Telepathica

The remaining three positions are most likely to be filled from among the following powerful leaders:

Lord Commander of Segmentum Solar
Lord Commander Militant of the Imperial Guard
Cardinal(s) of the Holy Synod of Terra
The Abbess of the Adepta Sororitas
Captain-General of the Adeptus Custodes
The Chancellor of the Estate Imperium
The Speaker for the Chartist Captains
Lord High Admiral of the Imperial Navy

The actual institution of the Senatorum itself is overseen by a Chancellor of the Imperial Council. While not among the High Twelve, it is nonetheless a powerful and influential position. There are also lesser lords who, while not part of the High Twelve, are still full members of the Senatorum Imperialis.

Commandant of the Schola Progenium
Lord Constable of the Synopticon
Mistress Plenary of the Catacombs
The Consul Pre-Eminus of the Navis Nobilite
The Chirurgeon-General of the Order Hospitaller
The High Lord of the Imperial Chancellery
(text taken from the lexicanum article)

...it's a fucking mess. You don't even have to know thing one about 40k and you can already see how this is a fucking mess. Imagine reps of the Army and two different Navy admirals having to compete for a Senate seat, all while the Pope tries to get the Head Nun to take the seat while they're not looking. And once you add in the fact this is 40k, you can layer that with the knowledge that every member of the council is primed to hate and fear all the other members of the council the same way the organizations under them - the Inquisition, the Ecclesiarchy, the Administratum - all likewise hate and fear one another. Imagine trying to pass legislation through this mob. You have to appease some combination of multiple psykers, church reps, bureaucrats, the Emperor's Own Dudes Who Kill People, a shitload of obscenely wealthy people who don't want to rock the boat, and all of them would rather see a cookie thrown in the incinerator before letting it go to one of their hated rivals. This is like Imperial Japan where the Army and Navy hated each other enough to kill over it, only blown up to a cosmic scale.

I have some headcanons on why this is. The first version of the Council of Terra was set up before the Heresy, when the Emperor and Malcador were still around, and the pair of them probably figured that if push came to shove they could use their status and/or expertise to force whatever measures they wanted through the deadlock. (EDIT: they probably also wanted to ensure the Imperium stayed more or less in place while the Emperor was distracted with his webway project.)

And I think Guilliman left it that way for similar reasons - it's a notable facet of the Heresy that Chaos managed to corrupt entire legions by means of swaying a handful of individuals at the top of the leadership structure. An Imperium where all the heads of state are constantly hawk-watching each other for taint and heresy is one where it's much harder for the screaming gribblies from the hell dimension to attack from the top down. This meshes with 40k's penchant for black humor like something out of Blackadder or Yes Minister-

"You're telling me the only way to stop these demons from destroying everything-"
"Is to ensure nothing gets done, yessir-"
[audience laughs]
"-and that way nothing untoward gets past us!"
[audience laughs]
"But then what of the people? They'll be bloody mad once they notice."
"Ah, well it goes without saying, doesn't it, sir? If nothing gets done no one can file a complaint!"
[audience laughs harder]
 
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