# Cato's Letters/Letter 25

SIR, The good of the governed being the sole end of government, they must be the greatest and best governors, who make their people great and happy; and they the worst, who make their people little, wicked, and miserable. Power in a free state, is a trust committed by all to one or a few, to watch for the security, and pursue the interest, of all: And, when that security is not sought, nor that interest obtained, we know what opinion the people will have of their governors.
It is the hard fate of the world, that there should be any difference in the views and interests of the governors and governed; and yet it is so in most countries. Men who have a trust frankly bestowed upon them by the people, too frequently betray that trust, become conspirators against their benefactors, and turn the sword upon those who gave it; insomuch that in the greatest part of the earth, people are happy if they can defend themselves against their defenders.
Let us look round this great world, and behold what an immense majority of the whole race of men crouch under the yoke of a few tyrants, naturally as low as the meanest of themselves, and, by being tyrants, worse than the worst; who, as Mr. Sidney observes, use their subjects like asses and mastiff dogs, to work and to fight, to be oppressed and killed for them. Even the good qualities and courage of such subjects are their misfortune, by strengthening the wicked hands of their brutal masters, and strengthening their own chains. Tyrants consider their people as their cattle, and use them worse, as they fear them more. Thus the most of mankind are become the wretched slaves of those, who are or should be their own creatures; they maintain their haughty masters like gods, and their haughty masters often use them like dogs: A fine specimen of gratitude and duty!
Yet this cruel spirit in tyrants is not always owing naturally to the men, since they are naturally like other men; but it is owing to the nature of the dominion which they exercise. Good laws make a good prince, if he has a good understanding; but the best men grow mischievous when they are set above laws. Claudius was a very harmless man, while he was a private man; but when he came to be a tyrant, he proved a bloody one, almost as bloody as his nephew and predecessor Caligula; who had also been a very good subject, but when he came to be the Roman emperor, grew the professed executioner of mankind.
There is something so wanton and monstrous in lawless power, that there scarce ever was a human spirit that could bear it; and the mind of man, which is weak and limited, ought never to be trusted with a power that is boundless. The state of tyranny is a state of war; and where it prevails, instead of an intercourse of confidence and affection, as between a lawful prince and his subjects, nothing is to be seen but jealousy, mistrust, fear, and hatred: An arbitrary prince and his slaves often destroy one another, to be safe: They are continually plotting against his life; he is continually shedding their blood, and plundering them of their property.
Cuncta ferit, dum cuncta timet.
I think it was Justinian, the Emperor, who said, "Though we are above the law, yet we live according to the law." But, by his Majesty's favour, there was more turn than truth in the saying; for princes that think themselves above law, act almost constantly against all law; of which truth Justinian himself is a known instance. Good princes never think themselves above it.
It is an affecting observation, that the power given for the protection of the world, should, in so many places, be turned to the destruction of it.
"As if the law was in force for their destruction, and not for their preservation; that it should have power to kill, but not to protect, them: A thing no less horrid, than if the sun should burn us without lighting us, or the earth serve only to bury, and not feed and nourish us,"
says Mr. Waller in a speech of his in Parliament.
Despotick power has defaced the Creation, and laid the world waste. In the finest countries in Asia, formerly full of people, you are now forced to travel by the compass: There are no roads, houses, nor inhabitants. The sun is left to scorch up the grass and fruits, which it had raised; or the rain to rot them: The gifts of God are left to perish; there being none of his creatures, neither man nor beast, left to use and consume them. The Grand Seignior, who (if we may believe some sanctified mouths, not addicted to lying) is the vicegerent of heaven, frustrates the bounty of heaven; and, being the father of his people, has almost butchered them all. Those few (comparatively very few) who have yet survived the miserable fate of their brethren, and are reserved for sacrifices to his cruelty, as occasion offers, and his lust prompts him, live the starving and wretched property of ravenous and bloody bashaws; whose duty to their master, as well as their own avarice, obliges them to keep the people, over whom they preside, poor and miserable.
But neither bashaws, nor armies, could keep that people in such abject slavery, if their priests and doctors had not made passive obedience a principle of their religion. The holy name of God is profaned, and his authority belied, to bind down wretchedness upon his creatures, and to secure the tyrant that does it. The most consummate of all wickedness, and the highest of all evils, are sanctified by the teachers of religion, and made by them a part of it. Yes, Turkish slavery is confirmed, and Turkish tyranny defended, by religion!
Sir Paul Ricaut tells us, that the Turks maintain, "That the Grand Seignior can never be deposed, or made accountable for his crimes, whilst he destroys carelessly of his subjects under a hundred a day": 'Tis made martyrdom to die submissively by the hand of the tyrant; and some of his highest slaves have declared that they wanted only that honour to complete their felicity. They hold, that it is their duty to submit, though their tyrant "command a whole army of them to precipitate themselves from a rock, or to build a bridge with piles of their bodies for him to pass a river, or to kill one another to afford him pastime and pleasure."
Merciful God! Is this government! And do such governors govern by authority from thee!
It is scarce credible what Monsieur de L'Estoille tells us: He says he travelled in the Indies for above twenty days together, through lanes of people hanged upon trees, by command of the King; who had ordered above a hundred thousand of them to be thus murdered and gibbeted, only because two or three robberies had been committed amongst them.Bayle, Reponse aux Quest. d'un Provinc. tom. I. p. 595.
It is one of the great evils of servitude, that let the tyranny be ever so severe, 'tis always flattered; and the more severe 'tis, the more 'tis flattered. The oppressors of mankind are flattered beyond all others; because fear and servitude naturally produce, as well as have recourse to, flattery, as the best means of self-preservation; whereas liberty, having no occasion for it, scorns it. Sir Paul Ricaut ascribes the decay of the Ottoman Empire to the force of flattery, and calls the Turkish court, a prison and banniard of slaves.
Old Muley, the Lord's anointed of Morocco, who it seems is still alive, is thought to have butchered forty thousand of his subjects with his own hands. Such a father is he of his people! And yet his right to shed human blood being a genuine characteristick of the church of Morocco, as by law established, people are greedy to die by his hand; which, they are taught to imagine, dispatches them forthwith to paradise: Insomuch that, though, as I am told, every time he mounts his horse, he slices off the head of the slave that holds his stirrup, to shew that he is as good an executioner as he is a horseman, yet there is a constant contention among his slaves, who shall be the happy martyr on that occasion; so that several of them crowding to his stirrup at once, for the gracious favour, his Majesty has sometimes the honour to cut off two heads, and to make two saints, with one blow.
The exercise of despotick power is the unrelenting war of an armed tyrant upon his unarmed subjects: it is a war of one side, and in it there is neither peace nor truce. Tacitus describes it, Saeva jussa, continuas accusationes, fallaces amicitias, perniciem innocentium: "Cruel and bloody orders, continual accusations, faithless friendships, and the destruction of innocents." In another place he says, that
"Italy was one continual shambles, and most of its fair cities were defaced or overthrown; Rome itself was in many places laid in ashes, with the greatest part of its magnificent buildings: virtue was despised, and barefaced debauchery prevailed. The solitary islands were filled with illustrious exiles, and the very rocks were stained with slaughters: but, in the city itself, cruelty raged still more; it was dangerous to be noble, it was a crime to be rich, it was capital to have borne honours, and high treason to have refused them; and for virtue and merit, they brought sure and sudden destruction."
These were some of the ravages of absolute dominion! And as to the common people, the same author says, "They were debauched and dispirited, and given up to idleness and seeing shews." Plebs sordida circo & theatris sueta.
Oh! abject state of such as tamely groan Under a blind dependency on one!
This is a sort of government, which is too great and heavy a curse for any one to wish, even upon those who are foolish enough, or wicked enough, to contend for its lawfulness; or, which is the same thing, for submission to it: But surely, if ever any man deserved to feel the merciless gripesof tyranny, it is he who is an advocate for it. Phalaris acted justly, when he hanselled his brazen bull with the wretch who invented it.
As arbitrary power in a single person has made greater havock in human nature, and thinned mankind more, than all the beasts of prey and all the plagues and earthquakes that ever were; let those men consider what they have to answer for, who would countenance such a monstrous evil in the world, or would oppose those that would oppose it. A bear, a lion, or a tiger, may now and then pick up single men in a wood, or a desert; an earthquake sometimes may bury a thousand or two inhabitants in the ruins of a town; and the pestilence may once in many years carry off a much greater number: But a tyrant shall, out of a wanton personal passion, carry fire and sword through a whole continent, and deliver up a hundred thousand of his fellow creatures to the slaughter in one day, without any remorse or further notice, than that they died for his glory. I say nothing of the moral effect of tyranny; though 'tis certain that ignorance, vice, poverty, and vileness, always attend it.
He who compares the world now with what it was formerly, how populous once, how thin now; and considers the cause of this doleful alteration, will find just reason to fear, that spiritual and temporal tyranny, if they go on much longer, will utterly extinguish the human race. Of Turkey I have spoken already: The great continent of America is almost unpeopled, the Spaniards having destroyed, ’tis thought, about forty millions of its natives; and for some kingdoms in Europe, especially towards the north, I do not believe that they have now half the inhabitants that they had so lately as a hundred years ago.
Blessed be God, there are still some free countries in Europe, that abound with people and with plenty, and England is the foremost. This demonstrates the inestimable blessing of liberty. Can we ever over-rate it, or be too jealous of a treasure which includes in it almost all human felicities? Or can we encourage too much those that contend for it, and those that promote it? It is the parent of virtue, pleasure, plenty, and security; and 'tis innocent, as well as lovely. In all contentions between liberty and power, the latter has almost constantly been the aggressor. Liberty, if ever it produce any evils, does also cure them: Its worst effect, licentiousness, never does, and never can, continue long. Anarchy cannot be of much duration: and where 'tis so, it is the child and companion of tyranny; which is not government, but a dissolution of it, as tyrants are the enemies of mankind.
Power is like fire; it warms, scorches, or destroys, according as it is watched, provoked, or increased. It is as dangerous as useful. Its only rule is the good of the people; but because it is apt to break its bounds, in all good governments nothing, or as little as may be, ought to be left to chance, or the humours of men in authority: All should proceed by fixed and stated rules, and upon any emergency, new rules should be made. This is the constitution, and this the happiness of Englishmen; as hath been formerly shewn at large in these letters.
We have a constitution that abhors absolute power; we have a King that does not desire it; and we are a people that will never suffer it: No free people will ever submit to it, unless it steal upon them by treachery, or they be driven into it by violence. But a state can never be too secure against this terrible, this last of all human evils; which may be brought upon them by many causes, even by some that at first sight do not seem to threaten any such thing: And of all those causes, none seems more boding than a general distress, which certainly produces general discontent, the parent of revolutions; and in what such a circumstance of affairs may end, no man can ever foresee: Few are brought about without armies; a remedy almost always worse than the disease. What is got by soldiers, must be maintained by soldiers; and we have, in this paper, already seen the frightful image of a military government; a government, which, at best, is violent and bloody, and eternally inconsistent with law and property.
It is therefore a dreadful wickedness to have any share in giving occasion for those discontents, which are so apt to burst into rage and confusion. A state sometimes recovers out of a convulsion, and gains new vigour by it; but it much oftener expires in it. Heaven preserve me from ever beholding contending armies in England! They are different things from what they once were. Our armies formerly were only a number of the people armed occasionally; and armies of the people are the only armies which are not formidable to the people. Hence it is, that, in the many revolutions occasioned by the strife between the two royal houses of York and Lancaster, there never was any danger of slavery from an armed force: A single battle decided the contention; and next day these popular soldiers went home, and resumed their ordinary arms, the tools of husbandry. But since that time armies have not been so easily parted with; but after the danger was over for which they were raised, have often been obstinately kept up, and by that means created dangers still as great.
Some quacks in politicks may perhaps venture publick disturbances, out of an opinion that they shall be able to prevent them by art, or suppress them by force. But this shews their capacity, as well as their wickedness: For, not to mention the malignity of their hearts, in risking publick ruin, to gratify a private appetite; how can any event be certainly foreseen, when the measure of the cause cannot be certainly known? They can never ascertain the degree of opposition; they cannot foreknow what circumstances may happen, nor into whose hands things may fall. Cicero did not dream, when he employed Octavius for the commonwealth, that his young champion for liberty would ever be the tyrant of his country. Who could foresee that Cromwell would enslave those whom he was employed to defend? But there is no trusting of liberty in the hands of men, who are obeyed by great armies.
From hence may be seen what a fatal and crying crime it would be, in any free country, to break the confidence between the prince and his people. When loyalty is once turned into indifference, indifference will soon be turned into hatred; hatred will be returned with hatred; resentment may produce tyranny, and rage may produce rebellion. There is no mischief which this mutual mistrust and aversion may not bring forth. They must therefore be the blackest traitors, who are the first authors of so terrible an evil, as are they who would endeavour to protect them.
Henry III of Castile said, that he feared the curse of his people more than he did the arms of his enemies: In which saying he shewed as much wisdom as humanity; since, while he was beloved at home, he had nothing to fear from abroad, and the curses of his subjects were the likeliest means to bring upon him the arms of his enemies.
G. I am, &c.