ment of families, and of armies, from which, according to our account, civil government derived its institution, and probably its form, is universally monarchical.

CHAPTER II.

HOW SUBJECTION TO CIVIL GOVERNMENT IS MAINTAINED.

COULD we view our own species from a distance, or regard mankind with the same sort of observation with which we read the natural history, or remark the manners, of any other animal, there is nothing in the human char acter which would more surprise us, than the almost universal subjugation of strength to weakness;-than to see many millions of robust men, in the complete use and exercise of their personal faculties, and without any defect of courage, waiting upon the will of a child, a woman, a driveller, or a lunatick. And although, when we suppose a vast empire in absolute subjection to one person, and that one depressed beneath the level of his species by infirmities, or vice, we suppose perhaps an extreme case; yet in all cases even in the most popular forms of civil government, the physical strength resides in the governed. In what manner opinion thus prevails over strength, or how power, which naturally belongs to superiour force is maintained in opposition to it; in other words, by what motives the many are induced to submit to the few, becomes an inquiry which lies at the root of almost every political speculation. It removes, indeed, but does not resolve the difficulty, to say that civil governments are now-a-days almost universally upholden by standing armies; for the question still returns, How are these armies themselves kept in subjection, or made to obey the commands, and carry on the designs, of the prince or state which employs them?

Now, although we should look in vain for any single reason which will account for the general submission of mankind to civil government, yet it may not be difficult to assign for every class and character in the community, considerations powerful enough to dissuade each from any attempts to resist established authority. Every man has his motive, though not the same. In this, as in other instances, the conduct is similar, but the principles which produce it extremely various.

There are three distinctions of character, into which the subjects of a state may be divided into those who obey from prejudice; those who obey from reason; and those who obey from self-interest.

I. They who obey from prejudice are determined by an opinion of right in their governours; which opinion is founded upon prescription. In monarchies and aristocracies which are hereditary, the prescription operates in favour of particular families in republicks and elective offices, in favour of particular forms of government, or constitutions. Nor is it to be wondered at, that mankind should reverence authority founded in prescription, when they observe that it is prescription which confers the title to almost every thing else. The whole course, and all the habits of civil life, favour this prejudice. Upon what other foundation stands any man's right to his estate? The right of primogeniture, the succession of kindred, the descent of property, the inheritance of honours, the demand of tithes, tolls, rents, or services from the estates of others, the right of way, the powers of office and magistracy, the priviliges of nobility, the immunities of the clergy, upon what are they all founded, in the apprehension at least of the multitude, but upon prescription? To what else, when the claims are contested, is the appeal made? It is natural to transfer the same principle to the affairs of government, and to regard those exertions of power, which have been long exercised and acquiesced in, as so many rights in the

sovereign; and to consider obedience to his commands, within certain accustomed limits, as enjoined by that rule of conscience, which requires us to render to every man his due.

ces.

In hereditary monarchies, the prescriptive title is corroborated, and its influence considerably augmented, by an accession of religious sentiments, and by that sacredness which men are wont to ascribe to the persons of prinPrinces themselves have not failed to take advantage of this disposition, by claiming a superiour dignity, as it were, of nature, or a peculiar delegation from the Supreme Being. For this purpose were introduced the titles of sacred majesty, of God's anointed, representative, vicegerent, together with the ceremonies of investitures and coronations, which are calculated not so much to recognize the authority of sovereigns, as to consecrate their persons. Where a fabulous religion permitted it, the publick veneration has been challenged by bolder pretensions. The Roman Emperors usurped the titles and arrogated the worship of gods. The mythology of the heroick ages, and of many barbarous nations, was easily converted to this purpose. Some princes, like the heroes of Homer, and the founder of the Roman name, derived their birth from the gods others, with Numa, pretended a secret communication with some divine being: and others again, like the Incas of Peru, and the ancient Saxon kings, extracted their descent from the deities of their country. The Lama of Thibet, at this day, is held forth to his subjects, not as the offspring or successor of a divine race of princes, but as the immortal God himself, the object at once of civil obe. dience and religious adoration. This instance is singular, and may be accounted the farthest point to which the abuse of human credulity has ever been carried. But in all these instances the purpose was the same,-to engage the reverence of mankind, by an application to their religious principles.

The reader will be careful to observe, that in this article we denominate every opinion, whether true or false, a prejudice, which is not founded upon argument, in the mind of the person who entertains it.

II. They who obey from reason, that is to say, from conscience as instructed by reasonings and conclusions of their own, are determined by the consideration of the necessity of some government or other; the certain mischief of civil commotions; and the danger of resettling the gov ernment of their country better, or at all, if once subverted or disturbed.

III. They who obey from self-interest, are kept in order by want of leisure; by a succession of private cares, pleasures, and engagements; by contentment, or a sense of the ease, plenty, and safety which they enjoy; or lastly, and principally, by fear, foreseeing that they would bring themselves by resistance into a worse situation than their present, inasmuch as the strength of government, each discontented subject reflects, is greater than his own, and he knows not that others would join him.

This last consideration has often been called opinion of power.

This account of the principles by which mankind are retained in their obedience to civil government, may suggest the following cautions:

1. Let civil governours learn hence to respect their subjects; let them be admonished, that the physical strength resides in the governed; that this strength wants only to be felt and roused, to lay prostrate the most ancient and confirmed dominion; that civil authority is founded in opinion; that general opinion therefore ought always to be treated with deference, and managed with delicacy and circumspection.

2. Opinion of right, always following the custom, being for the most part founded in nothing else, and lending one principal support to government, every innovation in

the constitution, or, in other words, in the custom of gov erning, diminishes the stability of government. Hence some absurdities are to be retained, and many small inconveniences endured in every country, rather than that the usage should be violated, or the course of publick affairs diverted from their old and smooth channel. Even names are not indifferent. When the multitude are to be dealt with, there is a charm in sounds. It was upon this principle, that several statesmen of those times advised Cromwell to assume the title of king, together with the ancient style and insignia of royalty. The minds of many, they contended, would be brought to acquiesce in the authority of a King, who suspected the office, and were offended with the administration, of a Protector. Novelty reminded them of usurpation. The adversaries of this design op posed the measure, from the same persuasion of the effica cy of names and forms, jealous lest the veneration paid to these, should add an influence to the new settlement which might ensnare the liberty of the commonwealth.

3. Government may be too secure. The greatest tyrants have been those, whose titles were the most unquestioned. Whenever therefore the opinion of right becomes too predominant and superstitious, it is abated by breaking the custom. Thus the Revolution broke the custom of suc cession, and thereby moderated, both in the prince and in the people, those lofty notions of hereditary right, which in the one were become a continual incentive to tyranny, and disposed the other to invite servitude, by undue compliances and dangerous concessions.

4. As ignorance of union, and want of communication, appear amongst the principal preservatives of civil authori ty, it behoves every state to keep its subjects in this want and ignorance, not only by vigilance in guarding against actual confederacies and combinations, but by a timely care to prevent great collections of men of any separate party of religion, or of like occupation or profession, or in