The statesman, on the other hand, is like the physician, who knows that he can stop the pain at once by an opiate; but who also knows that the opiate may do more harm than good in the long run. In three cases out of four

the wisest thing he can do is to wait, and leave the case to nature. But in the fourth case, in which the symptoms are unmistakable, and the cause of the disease distinctly known, prompt remedy saves a life. Is the fact that a wise physician will give as little medicine as possible any argument for his abstaining from giving any at all?

But the argument may be met directly. It may be granted that the State, or corporate authority of the people, might with perfect propriety order my religion, or my waistcoat, if as good grounds could be assigned for such an order as for the command to educate my children. And this leads us to the question which lies at the root of the whole discussion-the question, namely, upon what foundation does the authority of the State rest, and how are the limits of that authority to be determined?

One of the oldest and profoundest of English philosophers, Hobbes of Malmesbury, writes thus:

"The office of the sovereign, be it monarch or an assembly, consisteth in the end for which he was entrusted with the sovereign power, namely, the procuration of the safety of the people: to which he is obliged by the law of nature, and to render an account thereof to God, the author of that law, and to none but Him. But by safety, here, is not meant a bare preservation, but also all other contentments of life, which every man by lawful industry, without danger or hurt to the commonwealth, shall acquire to himself."

At first sight this may appear to be a statement of the police-theory of government, pure and simple; but it is not so. For Hobbes goes on to say:

"And this is intended should be done, not by care applied to individuals, further than their protection from injuries, when they shall

complain; but by a general providence contained in public instruction both of doctrine and example; and in the making and executing of good laws to which individual persons may apply their own cases.

ނ

To a witness of the civil war between Charles I. and the Parliament, it is not wonderful that the dissolution of the bonds of society which is involved in such strife should appear to be "the greatest evil that can happen in this life;" and all who have read the "Leviathan" know to what length Hobbes's anxiety for the preservation of the authority of the representative of the sovereign power, whatever its shape, leads him. But the justice of his conception of the duties of the sovereign power does not seem to me to be invalidated by his monstrous doctrines respecting the sacredness of that power.

To Hobbes, who lived during the break-up of the sovereign power by popular force, society appeared to be threatened by everything which weakened that power: but, to John Locke, who witnessed the evils which flow from the attempt of the sovereign power to destroy the rights of the people by fraud and violence, the danger lay in the other direction.

The safety of the representative of the sovereign power itself is to Locke a matter of very small moment, and he contemplates its abolition when it ceases to do its duty, and its replacement by another, as a matter of course. The great champion of the revolution of 1688 could do no less. Nor is it otherwise than natural that he should seek to limit, rather than to enlarge, the powers of the State, though in substance he entirely agrees with Hobbes's view of its duties:

"But though men," says he, "when they enter into society, give up the equality, liberty, and executive power they had in the state of nature, into the hands of the society, to be so far disposed of by the Legislature as the good of society shall require ; yet it being only with

1 "Leviathan," Molesworth's ed. p. 322.

an intention in every one the better to preserve himself, his liberty and property (for no rational creature can be supposed to change his condition with an intention to be worse), the power of the society, or legislation, constituted by them can never be supposed to extend further than the common good, but is obliged to secure every one's property by providing against those three defects above mentioned, that made the state of nature so unsafe and uneasy. And so, whoever has the legislative or supreme power of any commonwealth, is bound to govern by established standing laws, promulgated and known to the people, and not by extemporary decrees; by indifferent and upright judges, who are to decide controversies by those laws: and to employ the force of the community at home only in the execution of such laws; or abroad, to prevent or redress foreign injuries, and secure the community from inroads and invasion. And all this to be directed to no other end than the peace, safety, and public good of the people."

"1

Just as in the case of Hobbes, so in that of Locke, it may at first sight appear from this passage that the latter philosopher's views of the functions of Government incline to the negative, rather than the positive, side. But a further study of Locke's writings will at once remove this misconception. In the famous "Letter concerning Toleration," Locke says:

"The commonwealth seems to me to be a society of men constituted only for the procuring, preserving, and advancing their own civil interests.

"Civil interests I call life, liberty, health, and indolency of body; and the possession of outward things, such as money, lands, houses, furniture, and the like.

"It is the duty of the civil magistrate, by the impartial execution of equal laws, to secure unto all the people in general, and to every one of his subjects in particular, the just possession of those things belonging to this life.

"... The whole jurisdiction of the magistrate reaches only to these civil concernments. . . . All civil power, right, and dominion, is bounded and confined to the only care of promoting these things."

Elsewhere in the same "Letter," Locke lays down the proposition that if the magistrate understand washing a 1 Locke's Essay, “Of Civil Government,” § 131.

child "to be profitable to the curing or preventing any disease that children are subject unto, and esteem the matter weighty enough to be taken care of by a law, in that case he may order it to be done."

Locke seems to differ most widely from Hobbes by his strong advocacy of a certain measure of toleration in religious matters. But the reason why the civil magistrate ought to leave religion alone is, according to Locke, simply this, that "true and saving religion consists in the inward persuasion of the mind." And since "such is the nature of the understanding that it cannot be compelled to the belief of anything by outward force," it is absurd to attempt to make men religious by compulsion. I cannot discover that Locke fathers the pet doctrine of modern Liberalism, that the toleration of error is a good thing in itself, and to be reckoned among the cardinal virtues; on the contrary, in this very "Letter on Toleration" he states in the clearest language that "No opinion contrary to human society, or to those moral rules which are necessary to the preservation of civil society, are to be tolerated by the magistrate." And the practical corollary which he draws from this proposition is that there ought to be no toleration for either Papists or Atheists.

After Locke's time the negative view of the functions of Government gradually grew in strength, until it obtained systematic and able expression in Wilhelm von Humboldt's "Ideen," the essence of which is the denial that the State has a right to be anything more than chief policeman. And, of late years, the belief in the efficacy of doing nothing, thus formulated, has acquired considerable popularity for several reasons. In the first place, men's speculative convictions have become less and less real; their tolerance is large

1 An English translation has been published under the title of "Essay on the Sphere and Duties of Government.”

because their belief is small; they know that the State had better leave things alone unless it has a clear knowledge about them; and, with reason, they suspect that the knowledge of the governing power may stand no higher than the very low watermark of their own.

In the second place, men have become largely absorbed in the mere accumulation of wealth and as this is a matter in which the plainest and strongest form of self-interest is intensely concerned, science (in the shape of Political Economy) has readily demonstrated that self-interest may be safely left to find the best way of attaining its ends. Rapidity and certainty of intercourse between different countries, the enormous development of the powers of machinery, and general peace (however interrupted by brief periods of warfare), have changed the face of commerce as completely as modern artillery has changed that of war. The merchant found himself as much burdened by ancient protective measures as the soldier by his armour-and negative legislation has been of as much use to the one as the stripping off of breast-plates, greaves, and buff-coat to the other. But because the soldier is better without his armour it does not exactly follow that it is desirable that our defenders should strip themselves stark naked; and it is not more apparent why laissez-faire-great and beneficial as it may be in all that relates to the accumulation of wealth—should be the one great commandment which the State is to obey in all other matters; and especially in those in which the justification of laissez-faire, namely, the keen insight given by the strong stimulus of direct personal interest, in matters clearly understood, is entirely absent.

Thirdly, to the indifference generated by the absence of fixed beliefs, and to the confidence in the efficacy of laissez faire, apparently justified by experience of the