It is to the advantage of every “emperor” that law and order be maintained throughout his realm; chaos does not generate good taxes and potentially requires additional soldiers and/or police. Hence the mandate to governors: maintain law and order on the streets of your jurisdiction. To do that well, governors obviously need to punish those who do wrong and praise those who do good.
14 or to governors as sent by him to punish those who do evil and to praise those who do good.