Nothing is more surprising to those who consider human affairs with a philosophical eye, than to see the easiness with which the many are governed by the few; and to observe the implicit submission with which men resign their own sentiments and passions to those of their rulers. When we inquire by what means this wonder is brought about, we shall find that, as force is always on the side of the governed, the governors have nothing to support them but opinion. It is therefore on opinion only that government is founded, and this maxim extends to the most despotic and most military governments, as well as to the most free and most popular. The Soldan of Egypt, or the Emperor of Rome, might drive his harmless subjects like brute beasts against their sentiments and inclination; but he must, at least, have led his mamalukes, or prætorian bands, like men, by their opinion.
Opinion is of two kinds—viz., opinion of interest and opinion of right. By opinion of interest, I chiefly understand the sense of the public advantage which is reaped from government, together with the persuasion that the particular government which is established is equally advantageous with any other that could easily be settled. When this opinion prevails among the generality of a state, {p244} or among those who have the force in their hands, it gives great security to any government.
Right is of two kinds—right to power and right to property. What prevalence opinion of the first kind has over mankind may easily be understood by observing the attachment which all nations have to their ancient government, and even to those names which have had the