Popular Basis of Political Authority
CHAPTER 2|Document 4
David Hume, Of the Original Contract1752
When we consider how nearly equal all men are in their bodily force, and even in their mental powers and faculties, till cultivated by education, we must necessarily allow that nothing but their own consent could at first associate them together and subject them to any authority. The people, if we trace government to its first origin in the woods and deserts, are the source of all power and jurisdiction, and voluntarily, for the sake of peace and order, abandoned their native liberty and received laws from their equal and companion. The conditions upon which they were willing to submit were either expressed or were so clear and obvious that it might well be esteemed superfluous to express them. If this, then, be meant by the original contract, it cannot be denied that all government is, at first, founded on a contract and that the most ancient rude combinations of mankind were formed chiefly by that principle. In vain are we asked in what records this charter of our liberties is registered. It was not written on parchment, nor yet on leaves or barks of trees. It preceded the use of writing and all the other civilized arts of life. But we trace it plainly in the nature of man and in the equality, or something approaching equality, which we find in all the individuals of that species. The force which now prevails, and which is founded on fleets and armies, is plainly political and derived from authority, the effect of established government. A man's natural force consists only in the vigor of his limbs and the firmness of his courage, which could never subject multitudes to the command of one. Nothing but their own consent and their sense of the advantages resulting from peace and order could have had that influence.
Yet even this consent was long very imperfect and could not be the basis of a regular administration. The chieftain, who had probably acquired his influence during the continuance of war, ruled more by persuasion than command; and till he could employ force to reduce the refractory and disobedient, the society could scarcely be said to have attained a state of civil government. No compact or agreement, it is evident, was expressly formed for general submission, an idea far beyond the comprehension of savages. Each exertion of authority in the chieftain must have been particular and called forth by the present exigencies of the case. The sensible utility resulting from his interposition made these exertions become daily more frequent; and their frequency gradually produced a habitual and, if you please to call it so, a voluntary and therefore precarious acquiescence in the people.
But philosophers who have embraced a party--if that be not a contradiction in terms--are not content with these concessions. They assert not only that government in its earliest infancy arose from consent, or rather the voluntary acquiescence of the people, but also that, even at present, when it has attained its full maturity, it rests on no other foundation. They affirm that all men are still born equal and owe allegiance to no prince or government unless bound by the obligation and sanction of a promise. And as no man, without some equivalent, would forego the advantages of his native liberty and subject himself to the will of another, this promise is always understood to be conditional and imposes on him no obligation, unless he meet with justice and protection from his sovereign. These advantages the sovereign promises him in return; and if he fail in the execution, he has broken on his part the articles of engagement, and has thereby freed his subject from all obligations to allegiance. Such, according to these philosophers, is the foundation of authority in every government, and such the right of resistance possessed by every subject.
But would these reasoners look abroad into the world, they would meet with nothing that in the least corresponds to their ideas or can warrant so refined and philosophical a system. On the contrary, we find everywhere princes who claim their subjects as their property and assert their independent right of sovereignty from conquest or succession. We find also everywhere subjects who acknowledge this right in their prince and suppose themselves born under obligations of obedience to a certain sovereign, as much as under the ties of reverence and duty to certain parents. These connections are always conceived to be equally independent of our consent, in Persia and China, in France and Spain, and even in Holland and England, wherever the doctrines above mentioned have not been carefully inculcated. Obedience or subjection becomes so familiar that most men never make any inquiry about its origin or cause, more than about the principle of gravity, resistance, or the most universal laws of nature. Or if curiosity ever move them, as soon as they learn that they themselves and their ancestors have, for several ages, or from time immemorial, been subject to such a form of government or such a family, they immediately acquiesce and acknowledge their obligation to allegiance. Were you to preach, in most parts of the world, that political connections are founded altogether on voluntary consent or a mutual promise, the magistrate would soon imprison you as seditious for loosening the ties of obedience, if your friends did not before shut you up as delirious for advancing such absurdities. It is strange that an act of the mind which every individual is supposed to have formed, and after he came to the use of reason too--otherwise it could have no authority--that this act, I say, should be so much unknown to all of them that over the face of the whole earth there scarcely remain any traces or memory of it.
But the contract on which government is founded is said to be the original contract, and consequently may be supposed too old to fall under the knowledge of the present generation. If the agreement by which savage men first associated and conjoined their force be here meant, this is acknowledged to be real; but being so ancient and being obliterated by a thousand changes of government and princes, it cannot now be supposed to retain any authority. If we would say anything to the purpose, we must assert that every particular government which is lawful and which imposes any duty of allegiance on the subject was at first founded on consent and a voluntary compact. But besides that this supposes the consent of the fathers to bind the children, even to the most remote generations--which republican writers will never allow--besides this, I say, it is not justified by history or experience in any age or country of the world.
Almost all the governments which exist at present, or of which there remains any record in story, have been founded originally either on usurpation or conquest or both, without any pretense of a fair consent or voluntary subjection of the people. When an artful and bold man is placed at the head of an army or faction, it is often easy for him, by employing sometimes violence, sometimes false pretenses, to establish his dominion over a people a hundred times more numerous than his partisans. He allows no such open communication that his enemies can know with certainty their number or force. He gives them no leisure to assemble together in a body to oppose him. Even all those who are the instruments of his usurpation may wish his fall, but their ignorance of each other's intention keeps them in awe and is the sole cause of his security. By such arts as these many governments have been established, and this is all the original contract which they have to boast of.
The face of the earth is continually changing by the increase of small kingdoms into great empires, by the dissolution of great empires into smaller kingdoms, by the planting of colonies, by the migration of tribes. Is there anything discoverable in all these events but force and violence? Where is the mutual agreement or voluntary association so much talked of?
Even the smoothest way by which a nation may receive a foreign master, by marriage or a will, is not extremely honorable for the people, but supposes them to be disposed of like a dowry or a legacy, according to the pleasure or interest of their rulers.
But where no force interposes and election takes place, what is this election so highly vaunted? It is either the combination of a few great men who decide for the whole and will allow of no opposition or it is the fury of a multitude that follow a seditious ringleader who is not known, perhaps, to a dozen among them and who owes his advancement merely to his own impudence or to the momentary caprice of his fellows.
Are these disorderly elections, which are rare too, of such mighty authority as to be the only lawful foundation of all government and allegiance?
In reality there is not a more terrible event than a total dissolution of government, which gives liberty to the multitude and makes the determination or choice of a new establishment depend upon a number which nearly approaches to that of the body of the people. For it never comes entirely to the whole body of them. Every wise man, then, wishes to see at the head of a powerful and obedient army a general who may speedily seize the prize and give to the people a master which they are so unfit to choose for themselves--so little correspondent is fact and reality to those philosophical notions.
Let not the establishment at the Revolution deceive us or make us so much in love with a philosophical origin to government as to imagine all others monstrous and irregular. Even that event was far from corresponding to these refined ideas. It was only the succession, and that only in the regal part of the government, which was then changed. And it was only the majority of seven hundred who determined that change for near ten millions. I doubt not, indeed, but the bulk of those ten millions acquiesced willingly in the determination. But was the matter left in the least to their choice? Was it not justly supposed to be from that moment decided and every man punished who refused to submit to the new sovereign? How otherwise could the matter have ever been brought to any issue or conclusion?
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It is in vain to say that all governments are or should be at first founded on popular consent as much as the necessity of human affairs will admit. This favors entirely my pretension. I maintain that human affairs will never admit of this consent, seldom of the appearance of it; but that conquest or usurpation--that is, in plain terms, force--by dissolving the ancient governments, is the origin of almost all the new ones which were ever established in the world. And that in the few cases where consent may seem to have taken place, it was commonly so irregular, so confined, or so much intermixed either with fraud or violence that it cannot have any great authority.
My intention here is not to exclude the consent of the people from being one just foundation of government. Where it has place, it is surely the best and most sacred of any. I only contend that it has very seldom had place in any degree, and never almost in its full extent, and that, therefore, some other foundation of government must also be admitted.
Were all men possessed of so inflexible a regard to justice that of themselves they would totally abstain from the properties of others, they had forever remained in a state of absolute liberty, without subjection to any magistrate or political society. But this is a state of perfection of which human nature is justly deemed incapable. Again, were all men possessed of so perfect an understanding as always to know their own interests, no form of government had ever been submitted to but what was established on consent and was fully canvassed by every member of the society. But this state of perfection is likewise much superior to human nature. Reason, history, and experience show us that all political societies have had an origin much less accurate and regular; and were one to choose a period of time when the people's consent was the least regarded in public transactions, it would be precisely on the establishment of a new government. In a settled constitution their inclinations are often consulted, but during the fury of revolutions, conquests, and public convulsions, military force or political craft usually decides the controversy.
When a new government is established, by whatever means, the people are commonly dissatisfied with it and pay obedience more from fear and necessity than from any idea of allegiance or of moral obligation. The prince is watchful and jealous, and must carefully guard against every beginning or appearance of insurrection. Time, by degrees, removes all these difficulties and accustoms the nation to regard as their lawful or native princes that family which at first they considered as usurpers or foreign conquerors. In order to found this opinion, they have no recourse to any notion of voluntary consent or promise which, they know, never was in this case either expected or demanded. The original establishment was formed by violence and submitted to from necessity. The subsequent administration is also supported by power and acquiesced in by the people, not as a matter of choice but of obligation. They imagine not that their consent gives their prince a title. But they willingly consent because they think that, from long possession, he has acquired a title independent of their choice or inclination.
Should it be said that, by living under the dominion of a prince which one might leave, every individual has given a tacit consent to his authority and promised him obedience, it may be answered that such an implied consent can only have place where a man imagines that the matter depends on his choice. But where he thinks--as all mankind do who are born under established governments--that by his birth he owes allegiance to a certain prince or certain form of government, it would be absurd to infer a consent or choice which he expressly in this case renounces and disclaims.
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Did one generation of men go off the stage at once and another succeed, as is the case with silkworms and butterflies, the new race, if they had sense enough to choose their government, which surely is never the case with men, might voluntarily and by general consent establish their own form of civil polity without any regard to the laws or precedents which prevailed among their ancestors. But as human society is in perpetual flux, one man every hour going out of the world, another coming into it, it is necessary in order to preserve stability in government that the new brood should conform themselves to the established constitution and nearly follow the path which their fathers, treading in the footsteps of theirs, had marked out to them. Some innovations must necessarily have place in every human institution; and it is happy where the enlightened genius of the age give these a direction to the side of reason, liberty, and justice. But violent innovations no individual is entitled to make. They are even dangerous to be attempted by the legislature. More ill than good is ever to be expected from them. And if history affords examples to the contrary, they are not to be drawn into precedent and are only to be regarded as proofs that the science of politics affords few rules which will not admit of some exception and which may not sometimes be controlled by fortune and accident. The violent innovations in the reign of Henry VIII proceeded from an imperious monarch seconded by the appearance of legislative authority; those in the reign of Charles I were derived from faction and fanaticism; and both of them have proved happy in the issue. But even the former were long the source of many disorders, and still more dangers; and if the measures of allegiance were to be taken from the latter, a total anarchy must have place in human society and a final period at once be put to every government.
Suppose that a usurper, after having banished his lawful prince and royal family, should establish his dominion for ten or a dozen years in any country and should preserve so exact a discipline in his troops and so regular a disposition in his garrisons that no insurrection had ever been raised or even murmur heard against his administration. Can it be asserted that the people, who in their hearts abhor his treason, have tacitly consented to his authority and promised him allegiance merely because, from necessity, they live under his dominion? Suppose again their native prince restored by means of an army which he levies in foreign countries. They receive him with joy and exultation, and show plainly with what reluctance they had submitted to any other yoke. I may now ask upon what foundation the prince's title stands? Not on popular consent surely; for though the people willingly acquiesce in his authority, they never imagine that their consent made him sovereign. They consent because they apprehend him to be already, by birth, their lawful sovereign. And as to tacit consent, which may now be inferred from their living under his dominion, this is no more than what they formerly gave to the tyrant and usurper.
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But would we have a more regular, at least a more philosophical, refutation of this principle of an original contract or popular consent, perhaps the following observations may suffice.
All moral duties may be divided into two kinds. The first are those to which men are impelled by a natural instinct or immediate propensity which operates on them, independent of all ideas of obligation and of all views either to public or private utility. Of this nature are love of children, gratitude to benefactors, pity to the unfortunate. When we reflect on the advantage which results to society from such humane instincts, we pay them the just tribute of moral approbation and esteem. But the person actuated by them feels their power and influence antecedent to any such reflection.
The second kind of moral duties are such as are not supported by any original instinct of nature, but are performed entirely from a sense of obligation, when we consider the necessities of human society and the impossibility of supporting it if these duties were neglected. It is thus justice, or a regard to the property of others, fidelity, or the observance of promises, become obligatory and acquire an authority over mankind. For as it is evident that every man loves himself better than any other person, he is naturally impelled to extend his acquisitions as much as possible; and nothing can restrain him in this propensity but reflection and experience, by which he learns the pernicious effects of that license and the total dissolution of society which must ensue from it. His original inclination, therefore, or instinct, is here checked and restrained by a subsequent judgment or observation.
The case is precisely the same with the political or civil duty of allegiance as with the natural duties of justice and fidelity. Our primary instincts lead us either to indulge ourselves in unlimited freedom or to seek dominion over others; and it is reflection only which engages us to sacrifice such strong passions to the interests of peace and public order. A small degree of experience and observation suffices to teach us that society cannot possibly be maintained without the authority of magistrates, and that this authority must soon fall into contempt where exact obedience is not paid to it. The observation of these general and obvious interests is the source of all allegiance and of that moral obligation which we attribute to it.
The Founders' Constitution
Volume 1, Chapter 2, Document 4
The University of Chicago Press
Hume, David. Essays Moral, Political and Literary. 1742, 1752.
Easy to print version.