allowed to be inseparable with regard to commerce; and as private men receive greater security in the possession of their trade and riches from the power of the public, so the public becomes powerful in proportion to the riches and extensive commerce of private men. This maxim is true in general, though I cannot forbear thinking that it may possibly admit of some exceptions, and that we often establish it with too little reserve and limitation. There may be some circumstances where the commerce, and riches, and luxury of individuals, instead of adding strength to the public, will serve only to thin its armies, and diminish its authority among the neighbouring nations. Man is a very variable being, and susceptible of many different opinions, principles, and rules of conduct. What may be true while he adheres to one way of thinking will be found false when he has embraced an opposite set of manners and opinions.
The bulk of every state may be divided into husbandmen and manufacturers. The former are employed in the culture of the land; the latter work up the materials furnished by the former, into all the commodities which are necessary and ornamental to human life. As soon as men quit their savage state, where they live chiefly by hunting and fishing, they must fall into these two classes; though the arts of agriculture employ at first the most numerous part of the society.7 Time and experience improve so much these arts, that the land may easily maintain a much greater number of men than those who are immediately employed in its {p4} cultivation, or who furnish the more necessary manufactures to such as are so employed.
If these superfluous hands apply themselves to the finer arts, which are commonly denominated the arts of luxury, they add to the happiness of the state, since they afford to many the opportunity of receiving enjoyments with which they would otherwise have been unacquainted. But may not another scheme be proposed for the employment of these superfluous hands? May not the sovereign lay claim to them, and employ