Since I am upon this head,° of the alterations which time has produced, or may produce in politics, I must observe, that all kinds of government, free and absolute, seem to have undergone, in modern times, a great change for the better, with regard both to foreign and domestic management. The balance of power is a secret in politics, fully known only to the present age; and I must add, that the internal POLICE° of states has also received great improvements within the last century. We are informed by SALLUST, that CATILINE’S army was much augmented by the accession of the highwaymen about ROME;13 though I believe, that all of that profession, who are at present dispersed over EUROPE, would not amount to a regiment. In CICERO’S pleadings for MILO, I find this argument, among others, made use of to prove, that his client had not assassinated CLODIUS. Had MILO, said he, intended to have killed CLODIUS, he had not attacked him in the daytime, and at such a distance from the city: He had way-laid him at night, near the suburbs, where it might have been pretended, that he was killed by robbers; and the frequency of the accident would have favoured the deceit. This is a surprizing proof of the loose police of ROME, and of the number and force of these robbers; since CLODIUS14 was at that time attended by thirty slaves, who were completely armed, and sufficiently accustomed to blood and danger in the frequent tumults excited by that seditious tribune.f
But though all kinds of government be improved in modern times, yet monarchical government seems to have made the greatest advances towards perfection. It may now be affirmed of civilized monarchies, what was formerly said in praise of republics alone, that they are a government of Laws, not of Men. They are found susceptible of order, method, and constancy, to a surprizing degree. Property is there secure; industry encouraged; the arts flourish; and the prince lives secure among his subjects, like a father among his children. There are perhaps, and have been for two centuries, near two hundred absolute princes, great and small, in EUROPE; and allowing twenty years to each reign, we may suppose, that there have been in the whole two thousand monarchs or tyrants, as the GREEKS would have called them: Yet of these there has not been one, not even PHILIP II. of SPAIN, so bad as TIBERIUS, CALIGULA, NERO, or DOMITIAN,15 who were four in twelve amongst the ROMAN emperors.g It must, however, be confessed, that, though monarchical governments have approached nearer to popular ones, in gentleness and stability; they are still inferior. Our modern education and customs instil more humanity and moderation than the ancient; but have not as yet been able to overcome entirely the disadvantages of that form of government.
But here I must beg leave to advance a conjecture, which seems probable, but which posterity alone can fully judge of. I am apt to think, that, in monarchical governments there is a source of improvement, and in popular governments a source of degeneracy, which in time will bring these species of civil polity still nearer an equality. The greatest abuses, which arise in FRANCE, the most perfect model of pure monarchy, proceed not from the number or weight of the taxes, beyond what are to be met with in free countries; but from the expensive, unequal, arbitrary, and intricate method of levying them, by which the industry of the poor, especially of the peasants and farmers, is, in a great measure, discouraged, and agriculture rendered a beggarly and slavish employment. But to whose advantage do these abuses tend? If to that of the nobility, they might be esteemed inherent in that form of government; since the nobility are the true supports of monarchy; and it is natural their interest should be more consulted, in such a constitution, than that of the people. But the nobility are, in reality, the chief losers by this oppression; since it ruins their estates, and beggars° their tenants. The only gainers by it are the Finançiers,h a race of men rather odious to the nobility and the whole kingdom. If a prince or minister, therefore, should arise, endowed with sufficient discernment to know his own and the public interest, and with sufficient force of mind to break through ancient customs, we might expect to see these abuses remedied; in which case, the difference between that absolute government and our free one, would not appear so considerable as at present.
The source of degeneracy, which may be remarked in free governments, consists in the practice of contracting debt, and mortgaging the public revenues, by which taxes may, in time, become altogether intolerable, and all the property of the state be brought into the hands of the public. This practice is of modern date. The ATHENIANS,i though governed by a republic, paid near two hundred per Cent. for those sums of money, which any emergence made it necessary for them to borrow; as we learn from XENOPHON.16 Among the moderns, the DUTCH first introduced the practice of borrowing great sums at low interest, and have well nigh ruined themselves by it. Absolute princes have also contracted debt; but as an absolute prince may make a bankruptcy when he pleases, his people can never be oppressed by his debts. In popular governments, the people, and chiefly those who have the highest offices, being commonly the public creditors, it is difficult for the state to make use of this remedy, which, however it may sometimes be necessary, is always cruel and barbarous. This, therefore seems to be an inconvenience, which nearly threatens all free governments; especially our own, at the present juncture of affairs. And what a strong motive is this, to encrease our frugality of public money; lest for want of it, we be reduced, by the multiplicity of taxes, or what is worse, by our public impotence and inability for defence, to curse our very liberty, and wish ourselves in the same state of servitude with all the nations that surround us?
THOSE, who consider the periods and revolutions of human kind, as represented in history, are entertained with a spectacle full of pleasure and variety, and see, with surprize, the manners, customs, and opinions of the same species susceptible of such prodigious changes in different periods of time. It may, however, be observed, that, in civil history, there is found a much greater uniformity than in the history of learning and science, and that the wars, negociations, and politics of one age resemble more those of another, than the taste, wit, and speculative principles. Interest and ambition, honour and shame, friendship and enmity, gratitude and revenge, are the prime movers in all public transactions; and these passions are of a very stubborn and intractable nature, in comparison of the sentiments and understanding, which are easily varied by education and example. The GOTHS were much more inferior to the ROMANS, in taste and science, than in courage and virtue.
But not to compare together nations so widely different;a it may be observed, that even this later period of human learning is, in many respects, of an opposite character to the ancient; and that, if we be superior in philosophy, we are still, notwithstanding all our refinements, much inferior in eloquence.
In ancient times, no work of genius was thought to require so great parts and capacity, as the speaking in public; and some eminent writers have pronounced the talents, even of a great poet or philosopher, to be of an inferior nature to those which are requisite for such an undertaking. GREECE and ROME produced, each of them, but one accomplished orator; and whatever praises the other celebrated speakers might merit, they were still esteemed much inferior to these great models of eloquence. It is observable, that the ancient critics could scarcely find two orators in any age, who deserved to be placed precisely in the same rank, and possessed the same degree of merit. CALVUS, CÆLIUS, CURIO, HORTENSIUS, CÆSAR rose one above another:1 But the greatest of that age was inferior to CICERO, the most eloquent speaker, that had ever appeared in ROME. Those of fine taste, however, pronounced this judgment of the ROMAN orator, as well as of the GRECIAN, that both of them surpassed