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CHAP. I: general effects of the political superintendence of opinion. - William Godwin, An Enquiry Concerning Political Justice, Vol. II. 
An Enquiry Concerning Political Justice, and its Influence on General Virtue and Happiness, vol. 2 (London: G.G.J. and J. Robinson, 1793).
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general effects of the political superintendence of opinion.
arguments in favour of this superintendence.—answer.—the exertions of society in its corporate capacity are, 1. unwise—2. incapable of proper effect.—of sumptuary laws, agrarian laws and rewards.—political degeneracy not incurable.—3. superfluous—in commerce—in speculative enquiry—in morality.—4. pernicious—as undermining intellectual capacity—as suspending intellectual improvement—contraryto the nature of morality—to the nature of mind.—conclusion.
book vi. chap. i Arguments in favour of this superintendence.A principle, which has entered deeplyinto the systems of the writers on political law, isthat of the duty of governments to watch over the mannersof the people. “Government,” say they, “playsthe part of an unnatural step-mother, not of an affectionateparent, when she is contented by rigorous punishmentsto avenge the commission of a crime, while she is whollyinattentive beforehand to imbue the mind with thosevirtuous principles, which might have rendered punishmentunnecessary. It is the business of a sage and patrioticmagistracy to have its attention ever alive to thesentiments of the people, to encourage such as arefavourable to virtue, and to check in the bud suchas may lead to disorder and corruption. How long shallgovernment be employed to display its terrors, withoutever having recourse to the gentleness of invitation? How long shall she deal in retrospect and censure tothe utter neglect of prevention and remedy?” Thesereasonings have in some respects gained additionalstrength by means of the latest improvements and clearestviews upon the subject of political truth. It has beenrendered more evident than in any former period, thatgovernment, instead of being an object of secondaryconsideration, has been the principal vehicle of extensiveand permanent evil to mankind. It was natural thereforeto say, “since government can produce so muchpositive mischief, surely it can do some positive good.”
book vi. chap. i Answer. But these views, however specious and agreeable they may in the first instance appear, are liable to very serious question. If we would not be seduced by visionary good, we ought here more than ever, to recollect the principles that have repeatedly been insisted upon and illustrated in this work, “that government is in all cases an evil,” and “that it ought to be introduced as sparingly as possible.” Nothing can be more unquestionable than that the manners and opinions of mankind are of the utmost consequence to the general welfare. But it does not follow that government is the instrument by which they are to be fashioned.
One of the reasons that may lead us to doubt of its fitness forThe exertions of society in its corporate capacity are, 1. unwise: this purpose, is to be drawn from the view we have already taken of society considered as an agent* . A multitude of men may be feigned to be an individual, but they cannot become a real individual. The acts which go under the name of the society, are really the acts now of one single person and now of another. The men who by turns usurp the name of the whole, perpetually act under the pressure of incumbrances that deprive them of their true energy. They are fettered by the prejudices, the humours, the weakness and the vice of those with whom they act; and, after a thousand sacrifices to these contemptible interests, their project comes out at last distorted in every joint, abortive and monstrous. Society therefore in its corporate capacity can by no book vi. chap. i means be busy and intrusive with impunity, since its acts must be expected to be deficient in wisdom.
2. incapable of proper effect. Secondly, they will not be less deficient in efficacy than they are in wisdom. The object at which we are supposing them to aim, is to improve the opinions, and through them the manners of mankind; for manners are nothing else but opinions carried out into action: such as is the fountain, such will be the streams that are supplied from it. But what is it upon which opinion must be founded? Surely upon evidence, upon the perceptions of the understanding. Has society then any particular advantage in its corporate capacity for illuminating the understanding? Can it convey into its addresses and expostulations a compound or sublimate of the wisdom of all its members, superior in quality to the individual wisdom of any? If so, why have not societies of men written treatises of morality, of the philosophy of nature, or the philosophy of mind? Why have all the great steps of human improvement been the work of individuals?
If then society considered as an agent have no particular advantage for enlightening the understanding, the real difference between the dicta of society and the dicta of individuals must be looked for in the article of authority. But is authority a proper instrument for influencing the opinions and manners of men? If laws were a sufficient means for the reformation of error and vice, it is not to be believed but that the world long ere this would have become the seat of every virtue. Nothing canbook vi. chap. i be more easy than to command men to be just and good, to love their neighbours, to practise universal sincerity, to be content with a little, and to resist the enticements of avarice and ambition. But, when you have done, will the characters of men be altered by your precepts? These commands have been issued for thousands of years; and, if it had been decreed that every man should be hanged that violated them, it is vehemently to be suspected that this would not have secured their influence.
But it will be answered, “that laws need not deal thus in generals,Of sumptuary laws, agrarian laws and rewards. butmay descend to particular provisions calculated to secure their success. We mayinstitute sumptuary laws, limiting the expence of our citizens in dress and food. We may institute agrarian laws, forbidding any man to possess more than a certainannual revenue. We may proclaim prizes as the reward of acts of justice, benevolenceand public virtue.” And, when we have done this, how far are we really advancedin our career? If the people be previously inclined to moderation in expence, the laws are a superfluous parade. If they are not inclined, who shall executethem, or prevent their evasion? It is the misfortune in these cases, that regulationscannot be executed but by individuals of that very people they are meant to restrain. If the nation at large be infested with vice, who shall secure us a successionof magistrates that are free from the contagion? Even if we could surmount thisdifficulty, still it would be vain. Vice is ever more book vi. chap. i ingeniousin evasion, than authority in detection. It is absurd to imagine that any lawcan be executed, that directly contradicts the propensities and spirit of thenation. If vigilance were able fully to countermine the subterfuges of art, themagistrates, who thus pertinaciously adhered to the practice of their duty, wouldnot fail to be torn in pieces.
What can be more contrary to the most rational principles of human intercourse than the inquisitorial spirit which such regulations imply? Who shall enter into my house, scrutinise my expenditure and count the dishes upon my table? Who shall detect the stratagems I employ to cover my real possession of an enormous income, while I seem to receive but a small one? Not that there is really any thing unjust and unbecoming, as has been too often supposed, in my neighbour's animadverting with the utmost freedom upon my personal conduct. But that such regulations include a system of petty watchfulness and inspection; not contenting themselves with animadversion whenever the occasion is presented, but making it the business of one man constantly to pry into the proceedings of another, the whole depending upon the uniformity with which this is done; creating a perpetual struggle between the restless curiosity of the first, and the artful concealment of the second. By what motives will you make a man an informer? If by public spirit and philanthropy inciting him to brave obloquy and resentment for the sake of duty, will sumptuary laws be very necessary among a people thus far advanced in virtue? If by sinister and indirect considerations, willbook vi. chap. i not the vices you propagate be more dangerous than the vices you suppress?
Such must be the case in extensive governments: in governments of smaller dimensions opinion would be all sufficient; the inspection of every man over the conduct of his neighbours, when unstained with caprice, would constitute a censorship of the more irresistible nature. But the force of this censorship would depend upon its freedom, not following the positive dictates of law, but the spontaneous decisions of the understanding.
Again, in the distribution of rewards who shall secure us against error, partiality and intrigue, converting that which was meant for the support of virtue into a new engine for her ruin? Not to add, that prizes are a very feeble instrument for the generation of excellence, always inadequate to its reward where it really exists, always in danger of being bestowed on its semblance, continually misleading the understanding by foreign and degenerate motives of avarice and vanity.
In truth, the whole system of such regulations is a perpetual struggle against the laws of nature and necessity. Mind will in all instances be swayed by its own views and propensities. No project can be more absurd, than that of reversing these propensities book vi. chap. i by the interposition of authority. He that should command a conflagration to cease or a tempest to be still, would not display more ignorance of the system of the universe, than he, who, with a code of regulations, whether general or minute, that he has framed in his closet, expects to restore a corrupt and luxurious people to temperance and virtue.
Political degeneracy not incurable. The force of this argument respecting the inefficacy of regulations has often been felt, and the conclusions that are deduced from it have been in a high degree discouraging. “The character of nations,” it has been said, “is unalterable, or at least, when once debauched, can never be recovered to purity. Laws are an empty name, when the manners of the people are become corrupt. In vain shall the wisest legislator attempt the reformation of his country, when the torrent of profligacy and vice has once broken down the bounds of moderation. There is no longer any instrument left for the restoration of simplicity and frugality. It is useless to declaim against the evils that arise from inequality of riches and rank, where this inequality has already gained an establishment. A generous spirit will admire the exertions of a Cato and a Brutus; but a calculating spirit will condemn them, as inflicting useless torture upon a patient whose disease is irremediable. It was from a view of this truth that the poets derived their fictions respecting the early history of mankind; well aware that, when luxury was introduced and the springs of mind unbent, it would be a vain expectation that should hope to recal men from passion to reason, and from effeminacy to energy* .”book vi. chap. i But this conclusion from the inefficacy of regulations is so far from being valid, that in reality,
A third objection to the positive interference of society in its3. superfluous: corporate capacity for the propagation of truth and virtue is, that such interference is altogether unnecessary. Truth and virtue are competent to fight their own battles. They do not need to be nursed and patronised by the hand of power.
The mistake which has been made in this case, is similar toin commerce: the mistake which is now universally exploded upon the subject of commerce. It was long supposed that, if any nation desired to extend its trade, the thing most immediately necessary was for government to interfere, and institute protecting duties, bounties and monopolies. It is now well known that commerce never flourishes so much, as when it is delivered from the guardianship of legislators and ministers, and is built upon the principle, not of forcing other people to buy our commodities dear when they might purchase them elsewhere cheaper and better, but of ourselves feeling the necessity of recommending them by their intrinsic advantages. Nothing can be at once so unreasonable and hopeless, as to attempt by positive regulations to disarm the unalterable laws of the universe.
book vi. chap. i in speculative enquiry: The same truth which has been felt under the article of commerce, has also made a considerable progress as to the subjects of speculative enquiry. Formerly it was thought that the true religion was to be defended by acts of uniformity, and that one of the principal duties of the magistrate was to watch the progress of heresy. It was truly judged that the connexion between error and vice is of the most intimate nature, and it was concluded that no means could be more effectual to prevent men from deviating into error, than to check their wanderings by the scourge of authority. Thus writers, whose political views in other respects have been uncommonly enlarged, have told us “that men ought indeed to be permitted to think as they please, but not to propagate their pernicious opinions; as they may be permitted to keep poisons in their closet, but not to offer them to sale under the denomination of cordials* .” Or, if humanity have forbidden them to recommend the extirpation of a sect which has already got footing in a country, they have however earnestly advised the magistrate to give no quarter to any new extravagance that might be attempted to be introduced† .—The reign of these two errors respecting commerce and theoretical speculation is nearly at an end, and it is reasonable to believe that the idea of teaching virtue through the instrumentality of government will not long survive them.
All that is to be asked on the part of government in behalf ofbook vi. chap. i in morality: morality and virtue is a clear stage upon which for them to exert their own energies, and perhaps some restraint for the present upon the violent disturbers of the peace of society, that the efforts of these principles may be allowed to go on uninterrupted to their natural conclusion. Who ever saw an instance in which error unaided by power was victorious over truth? Who is there so absurd as to believe, that with equal arms truth can be ultimately defeated? Hitherto every instrument of menace or influence has been employed to counteract her. Has she made no progress?—Has the mind of man the capacity to chuse falshood and reject truth, when her evidence is fairly presented? When it has been once thus presented and has gained a few converts, does she ever fail to go on perpetually increasing the number of her votaries? Exclusively of the fatal interference of government, and the violent irruptions of barbarism threatening to sweep her from the face of the earth, has not this been in all instances the history of science?
Nor are these observations less true in their application to the manners and morals of mankind. Do not men always act in the manner which they esteem best upon the whole or most conducive to their interest? Is it possible then that evidence of what is best or what is most beneficial can be thrown away upon them? The real history of the changes of character they experience in this respect is this. Truth for a long time spreads itself book vi. chap. i unobserved. Those who are the first to embrace it are little aware of the extraordinary effects with which it is pregnant. But it goes on to be studied and illustrated. It perpetually increases in clearness and amplitude of evidence. The number of those by whom it is embraced is gradually enlarged. If it have relation to their practical interests, if it show them that they may be a thousand times more happy and free than at present, it is impossible that in its perpetual increase of evidence and energy, it should not at last break the bounds of speculation, and become an animating principle of action. What can be more absurd than the opinion, which has so long prevailed, “that justice and an equal distribution of the means of happiness may appear ever so clearly to be the only reasonable foundation of political society, without ever having any chance of being reduced into practice? that oppression and misery are draughts of so intoxicating a nature, that, when once tasted, we can never afterwards refuse to partake of them? that vice has so many advantages over virtue, that the reasonableness and wisdom of the latter, however powerfully exhibited, can never obtain a hold upon our affections?”
While therefore we decry the efficacy of unassisted laws, we are far from throwing any discouragement by that means upon the prospect of social improvement. The true tendency of this view of the subject is to suggest indeed a different, but a more consistent and promising method by which this improvement is to be produced. The legitimate instrument of effecting politicalbook vi. chap. i reformation is truth. Let truth be incessantly studied, illustrated and propagated, and the effect is inevitable. Let us not vainly endeavour by laws and regulations to anticipate the future dictates of the general mind, but calmly wait till the harvest of opinion is ripe. Let no new practice in politics be introduced, and no old one anxiously superseded, till called for by the public voice. The task, which for the present should wholly occupy the friend of man, is enquiry, instruction, discussion. The time may come when his task shall be of another sort. Error, being completely detected, may indeed sink into unnoticed oblivion, without one partisan to interrupt her fall. This would inevitably be the event, were it not for the restlessness and inconsiderate impetuosity of mankind. But the event may be otherwise. Political change, by advancing too rapidly to its crisis, may become attended with commotion and hazard; and it will then be incumbent on him actively to assist in unfolding the catastrophe. The evils of anarchy have been shown to be much less than they are ordinarily supposed* ; but, whatever be their amount, the friend of man will not, when they arise, timidly shrink from the post of danger. He will on the contrary by social emanations of wisdom endeavour to guide the understandings of the people at large to the perception of felicity.
book vi. chap. i 4. pernicious: In the fourth place the interference of an organised society for the purpose of influencing opinions and manners, is not only useless, but pernicious. We have already found that such interference is in one view of the subject ineffectual. But here a distinction is to be made. Considered with a view to the introduction of any favourable changes in the state of society, it is altogether impotent. But, though it be inadequate to change, it is powerful to prolong. This property in political regulation is so far from being doubtful, that to it alone we are to ascribe all the calamities that government has inflicted on mankind. When regulation coincides with the habits and propensities of mankind at the time it is introduced, it will be found sufficiently capable of maintaining those habits and propensities in the greater part unaltered for centuries. In this view it is doubly pernicious.
as undermining intellectual capacity: To understand this more accurately, let us apply it to the case of rewards, which has always been a favourite topic with the advocates of an improved legislation. How often have we been told, “that talents and virtues would spring up spontaneously in a country, one of the objects of whose constitution should be to secure to them an adequate reward?” Now to judge of the propriety of this aphorism we should begin with recollecting that the discerning of merit is an individual, and not a social capacity. What can be more reasonable than that each man for himself should estimate the merits of his neighbour? To endeavour to institute a general judgment in the name of thebook vi. chap. i whole, and to melt down the different opinions of mankind into one common opinion, appears at first sight so monstrous an attempt, that it is impossible to augur well of its consequences. Will this judgment be wise, reasonable or just? Wherever each man is accustomed to decide for himself, and the appeal of merit is immediately to the opinion of its contemporaries, there, were it not for the false bias of some positive institution, we might expect a genuine ardour in him who aspired to excellence, creating and receiving impressions in the judgment of an impartial audience. We might expect the judgment of the auditors to ripen by perpetual exercise, and mind, ever curious and awake, continually to approach nearer to the standard of truth. What do we gain in compensation for this, by setting up authority as the general oracle, from which the active mind is to inform itself what sort of excellence it should seek to acquire, and the public at large what judgment they should pronounce upon the efforts of their contemporaries? What should we think of an act of parliament appointing some particular individual president of the court of criticism, and judge in the last resort of the literary merit of dramatic compositions? Is there any solid reason why we should expect better things, from authority usurping the examination of moral or political excellence?
Nothing can be more unreasonable than the attempt to retain men in one common opinion by the dictate of authority. The book vi. chap. i opinion thus obtruded upon the minds of the public is not their real opinion; it is only a project by which they are rendered incapable of forming an opinion. Whenever government assumes to deliver us from the trouble of thinking for ourselves, the only consequences it produces are those of torpor and imbecility. Wherever truth stands in the mind unaccompanied by the evidence upon which it depends, it cannot properly be said to be apprehended at all. Mind is in this case robbed of its essential character and genuine employment, and along with them must be expected to lose all that which is capable of rendering its operations salutary and admirable. Either mankind will resist the assumptions of authority undertaking to superintend their opinions, and then these assumptions will produce no more than an ineffectual struggle; or they will submit, and then the effects will be injurious. He that in any degree consigns to another the task of dictating his opinions and his conduct, will cease to enquire for himself, or his enquiries will be languid and inanimate.
Regulations will originally be instituted in favour either of falshood or truth. In the first case no rational enquirer will pretend to alledge any thing in their defence; but, even should truth be their object, yet such is their nature, that they infallibly defeat the very purpose they were intended to serve. Truth, when originally presented to the mind, is powerful and invigorating; but, when attempted to be perpetuated by political institution, becomes flaccid and lifeless. Truth in its unpatronised state strengthens and improves the understanding; because in that state it is embracedbook vi. chap. i only so far as it is perceived to be truth. But truth, when recommended by authority, is weakly and irresolutely embraced. The opinions I entertain are no longer properly my own; I repeat them as a lesson appropriated by rote, but I do not strictly speaking understand them, and I am not able to assign the evidence upon which they rest. My mind is weakened, while it is pretended to be improved. Instead of the firmness of independence, I am taught to bow to authority I know not why. Persons thus trammelled, are not strictly speaking capable of a single virtue. The first duty of man is to take none of the principles of conduct upon trust, to do nothing without a clear and individual conviction that it is right to be done. He that resigns his understanding upon one particular topic, will not exercise it vigorously upon others. If he be right in any instance, it will be inadvertently and by chance. A consciousness of the degradation to which he is subjected will perpetually haunt him; or at least he will want the consciousness that accrues from independent consideration, and will therefore equally want that intrepid perseverance, that calm self approbation that grows out of independence. Such beings are the mere dwarfs and mockery of men, their efforts comparatively pusillanimous, and the vigour with which they should execute their purposes, superficial and hollow.
Strangers to conviction, they will never be able to distinguishas suspending intellectual improvement: between prejudice and reason. Nor is this the worst. Even book vi. chap. i when the glimpses of enquiry suggest themselves, they will not dare to yield to the temptation. To what purpose enquire, when the law has told me what to believe and what must be the termination of my enquiries? Even when opinion properly so called suggests itself, I am compelled, if it differ in any degree from the established system, to shut my eyes, and loudly profess my adherence where I doubt the most. This compulsion may exist in many different degrees. But, supposing it to amount to no more than a very flight temptation to be insincere, what judgment must we form of such a regulation either in a moral or intellectual view? of a regulation, inviting men to the profession of certain opinions by the proffer of a reward, and deterring them from a severe examination of their justice by penalties and disabilities? A system like this does not content itself with habitually unnerving the mind of the great mass of mankind through all its ranks, but provides for its own continuance by debauching or terrifying the few individuals, who, in the midst of the general emasculation, might retain their curiosity and love of enterprise. We may judge how pernicious it is in its operation in this respect by the long reign of papal usurpation in the dark ages, and the many attacks upon it that were suppressed, previously to the successful one of Luther. Even yet, how few are there that venture to examine into the foundation of Mahometanism and Christianity, or the effects of monarchy and aristocratical institution, in countries where those systems are established by law? Supposing men were free from persecution for their hostilities in this respect, yet the investigation could never be impartial,book vi. chap. i while so many allurements are held out, inviting men to a decision in one particular way.
To these considerations it should be added, that what is rightcontrary to the nature of morality: under certain circumstances to-day, may by an alteration in those circumstances become wrong to-morrow. Right and wrong are the result of certain relations, and those relations are founded in the respective qualities of the beings to whom they belong. Change those qualities, and the relations become altogether different. The treatment that I am bound to bestow upon any one depends upon my capacity and his circumstances. Increase the first, or vary the second, and I am bound to a different treatment. I am bound at present to subject an individual to forcible restraint, because I am not wise enough by reason alone to change his vicious propensities. The moment I can render myself wise enough, I ought to confine myself to the latter mode. It is perhaps right to suffer the negroes in the West Indies to continue in slavery, till they can be gradually prepared for a state of liberty. Universally it is a fundamental principle in sound political science, that a nation is best fitted for the amendment of its civil government by being made to understand and desire the advantage of that amendment, and the moment it is so understood and desired it ought to be introduced. But, if there be any truth in these views, nothing can be more adverse to reason or inconsistent book vi. chap. i with the nature of man, than positive regulations tending to continue a certain mode of proceeding when its utility is gone.
to the nature of mind. If we would be still more completely aware of the pernicious tendency of positive institutions, we ought in the last place explicitly to contrast the nature of mind and the nature of government. It is one of the most unquestionable properties of mind to be susceptible of perpetual improvement. It is the inalienable tendency of positive institution, to retain that with which it is conversant for ever in the same state. Is then the perfectibility of understanding an attribute of trivial importance? Can we recollect with coldness and indifference the advantages with which this quality is pregnant to the latest posterity? And how are these advantages to be secured? By incessant industry, by a curiosity never to be disheartened or fatigued, by a spirit of enquiry to which a sublime and philanthropic mind will allow no pause. The circumstance of all others most necessary, is that we should never stand still, that every thing most interesting to the general welfare, wholly delivered from restraint, should be in a state of change, moderate and as it were imperceptible, but continual. Is there any thing that can look with a more malignant aspect upon the general welfare, than an institution tending to give permanence to certain systems and opinions? Such institutions are two ways pernicious; first, which is most material, because they render all the future advances of mind infinitely tedious and operose;book vi. chap. i secondly, because, by violently confining the stream of reflexion, and holding it for a time in an unnatural state, they compel it at last to rush forward with impetuosity, and thus occasion calamities, which, were it free from restraint, would be found extremely foreign to its nature. Is it to be believed that, if the interference of positive institution were out of the question, the progress of mind in past ages would have been so slow, as to have struck the majority of ingenuous observers with despair? The science of Greece and Rome upon the subjects of political justice was in many respects extremely imperfect: yet could we have been so long in appropriating their discoveries, had not the allurements of reward and the menace of persecution united to induce us, not to trust to the first and fair verdict of our own understandings?
The just conclusion from the above reasonings is nothing moreConclusion. than a confirmation, with some difference in the mode of application, of the fundamental principle, that government is little capable of affording benefit of the first importance to mankind. It is calculated to induce us to lament, not the apathy and indifference, but the inauspicious activity of government. It incites us to look for the moral improvement of the species, not in the multiplying of regulations, but in their repeal. It teaches us that truth and virtue, like commerce, will then flourish most, when least subjected to the mistaken guardianship of authority and laws. This maxim will rise upon us in its importance, in book vi. chap. i proportion as we connect it with the numerous departments of political justice to which it will be found to have relation. As fast as it shall be adopted into the practical system of mankind, it will go on to deliver us from a weight intolerable to mind, and in the highest degree inimical to the progress of truth.
[*]Book V, Chap. XXIII, p. 572.
[*]Book I, Chap. VIII.
[*]Gulliver's Travels, Part II, Chap. VI.
[†]Mably, de la Législation, Liv. IV, Chap. III: des Etats Unis d’Amerique, Lettre III.
[*]Book V, Chap. XX, p. 548.