In the first ages of the world, when men are as yet barbarous and ignorant, they seek no farther security against mutual violence and injustice, than the choice of some rulers, few or many, in whom they place an implicit confidence, without providing any security, by laws or political institutions, against the violence and injustice of these rulers. If the authority be centered in a single person, and if the people, either by conquest, or by the ordinary course of propagation, encrease to a great multitude, the monarch, finding it impossible, in his own person, to execute every office of sovereignty, in every place, must delegate his authority to inferior magistrates, who preserve peace and order in their respective districts. As experience and education have not yet refined the judgments of men to any considerable degree, the prince, who is himself unrestrained, never dreams of restraining his ministers, but delegates his full authority to every one, whom he sets over any portion of the people. All general laws are attended with inconveniencies, when applied to particular cases; and it requires great penetration and experience, both to perceive that these inconveniencies are fewer than what result from full discretionary powers in every magistrate; and also to discern what general laws are, upon the whole, attended with fewest inconveniencies. This is a matter of so great difficulty, that men may have made some advances, even in the sublime arts of poetry and eloquence, where a rapidity of genius and imagination assists their progress, before they have arrived at any great refinement in their municipal laws, where frequent trials and diligent observation can alone direct their improvements. It is not, therefore, to be supposed, that a barbarous monarch, unrestrained and uninstructed, will ever become a legislator, or think of restraining his Bashaws,° in every province, or even his Cadis° in every village. We are told, that the late Czar,7 though actuated with a noble genius, and smit with the love and admiration of EUROPEAN arts; yet professed an esteem for the TURKISH policy in this particular, and approved of such summary decisions of causes, as are practised in that barbarous monarchy, where the judges are not restrained by any methods, forms, or laws. He did not perceive, how contrary such a practice would have been to all his other endeavours for refining his people. Arbitrary power, in all cases, is somewhat oppressive and debasing; but it is altogether ruinous and intolerable, when contracted into a small compass; and becomes still worse, when the person, who possesses it, knows that the time of his authority is limited and uncertain. Habet subjectos tanquam suos; viles, ut alienos.8 He governs the subjects with full authority, as if they were his own; and with negligence or tyranny, as belonging to another. A people, governed after such a manner, are slaves in the full and proper sense of the word; and it is impossible they can ever aspire to any refinements of taste or reason. They dare not so much as pretend to enjoy the necessaries of life in plenty or security.
To expect, therefore, that the arts and sciences should take their first rise in a monarchy, is to expect a contradiction. Before these refinements have taken place, the monarch is ignorant and uninstructed; and not having knowledge sufficient to make him sensible of the necessity of balancing his government upon general laws, he delegates his full power to all inferior magistrates. This barbarous policy debases the people, and for ever prevents all improvements. Were it possible, that, before science were known in the world, a monarch could possess so much wisdom as to become a legislator, and govern his people by law, not by the arbitrary will of their fellow-subjects, it might be possible for that species of government to be the first nursery of arts and sciences. But that supposition seems scarcely to be consistent or rational.
It may happen, that a republic, in its infant state, may be supported by as few laws as a barbarous monarchy, and may entrust as unlimited an authority to its magistrates or judges. But, besides that the frequent elections by the people, are a considerable check upon authority; it is impossible, but, in time, the necessity of restraining the magistrates, in order to preserve liberty, must at last appear, and give rise to general laws and statutes. The ROMAN Consuls, for some time, decided all causes, without being confined by any positive statutes, till the people, bearing this yoke with impatience, created the decemvirs, who promulgated the twelve tables; a body of laws, which, though, perhaps, they were not equal in bulk to one ENGLISH act of parliament, were almost the only written rules, which regulated property and punishment, for some ages, in that famous republic. They were, however, sufficient, together with the forms of a free government, to secure the lives and properties of the citizens, to exempt one man from the dominion of another; and to protect every one against the violence or tyranny of his fellow-citizens. In such a situation the sciences may raise their heads and flourish: But never can have being amidst such a scene of oppression and slavery, as always results from barbarous monarchies, where the people alone are restrained by the authority of the magistrates, and the magistrates are not restrained by any law or statute. An unlimited despotism of this nature, while it exists, effectually puts a stop to all improvements, and keeps men from attaining that knowledge, which is requisite to instruct them in the advantages, arising from a better police, and more moderate authority.
Here then are the advantages of free states. Though a republic should be barbarous, it necessarily, by an infallible operation, gives rise to LAW, even before mankind have made any considerable advances in the other sciences. From law arises security: From security curiosity: And from curiosity knowledge. The latter steps of this progress may be more accidental; but the former are altogether necessary. A republic without laws can never have any duration. On the contrary, in a monarchical government, law arises not necessarily from the forms of government. Monarchy, when absolute, contains even something repugnant to law. Great wisdom and reflexion can alone reconcile them. But such a degree of wisdom can never be expected, before the greater refinements and improvements of human reason. These refinements require curiosity, security, and law. The first growth, therefore, of the arts and sciences can never be expected in despotic governments.b
There are other causes, which discourage the rise of the refined arts in despotic governments; though I take the want of laws, and the delegation of full powers to every petty magistrate, to be the principal. Eloquence certainly springs up more naturally in popular governments: Emulation too in every accomplishment must there be more animated and enlivened: And genius and capacity have a fuller scope and career. All these causes render free governments the only proper nursery for the arts and sciences.
The next observation, which I shall make on this head, is, That nothing is more favourable to the rise of politeness and learning, than a number of neighbouring and independent states, connected together by commerce and policy. The emulation, which naturally arises among those neighbouring states, is an obvious source of improvement: But what I would chiefly insist on is the stop,° which such limited territories give both to power and to authority.
Extended governments, where a single person has great influence, soon become absolute; but small ones change naturally into commonwealths. A large government is accustomed by degrees to tyranny; because each act of violence is at first performed upon a part, which, being distant from the majority, is not taken notice of, nor excites any violent ferment. Besides, a large government, though the whole be discontented, may, by a little art, be kept in obedience; while each part, ignorant of the resolutions of the rest, is afraid to begin any commotion or insurrection. Not to mention, that there is a superstitious reverence for princes, which mankind naturally contract when they do not often see the sovereign, and when many of them become not acquainted with him so as to perceive his weaknesses. And as large states can afford a great expence, in order to support the pomp of majesty; this is a kind of fascination on men, and naturally contributes to the enslaving of them.
In a small government, any act of oppression is immediately known throughout the whole: The murmurs and discontents, proceeding from it, are easily communicated: And the indignation arises the higher, because the subjects are not apt to apprehend in such states, that the distance is very wide between themselves and their sovereign. “No man,” said the prince of CONDE, “is a hero to his Valet de Chambre.”9 It is certain that admiration and acquaintance