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"Bread and circuses" (or bread and games) (from Latin: panem et circenses) is metonymic for a superficial means of appeasement. In the case of politics, the phrase is used to describe the creation of public approval, not through exemplary or excellent public service or public policy, but through diversion; distraction; or the mere satisfaction of the immediate, shallow requirements of a populace, as an offered "palliative." Juvenal decried it as a simplistic motivation of common people. The phrase also implies the erosion or ignorance of civic duty amongst the concerns of the commoner.
This phrase originates from Rome in Satire X of the Roman satirist and poet Juvenal (circa A.D. 100). In context, the Latin metaphor panem et circenses (bread and circuses) identifies the only remaining cares of a new Roman populace which cares not for its historical birthright of political involvement. Here Juvenal displays his contempt for the declining heroism of his contemporary Romans. Roman politicians devised a plan in 140 B.C. to win the votes of these new citizens: giving out cheap food and entertainment, "bread and circuses", would be the most effective way to rise to power.
… Already long ago, from when we sold our vote to no man, the People have abdicated our duties; for the People who once upon a time handed out military command, high civil office, legions — everything, now restrains itself and anxiously hopes for just two things: bread and circuses
[...] iam pridem, ex quo suffragia nulli / uendimus, effudit curas; nam qui dabat olim / imperium, fasces, legiones, omnia, nunc se / continet atque duas tantum res anxius optat, / panem et circenses. [...]
Juvenal here makes reference to the Roman practice of providing free wheat to Roman citizens as well as costly circus games and other forms of entertainment as a means of gaining political power. The Annona (grain dole) was begun under the instigation of the popularis politician Gaius Sempronius Gracchus in 123 B.C.; it remained an object of political contention until it was taken under the control of the autocratic Roman emperors.