It might be supposed that this order had been established as a jest, by way of satire upon all other orders. To this question it appears difficult to give a decisive answer. They are bestowed for so great a variety of reasons, that to give any description of them, which shall be applicable to all cases, is impossible. In these cases, the merit proved is, that the individual has made himself agreeable to the sovereign. We shall return to this subject.
Power is created for a purpose altogether different from that of serving as matter of reward.
Merit is not the only consideration by which its distribution must be governed. Under a monarchical government, for example, the inconveniences attending the election of a king may be so serious, that the supreme power ought to be attached to some qualification more manifest and indispensable than the personal merit of an individual. Thus far, however, we may determine in general, viz. Were this not the case, the greater number of public employments might be conferred as rewards for the performance of some determinate service, respectively relating to them. Because it is by no means uncommon for a man who is in an eminent degree endowed with one of the qualities requisite, to be altogether destitute of other equally indispensable.