ions;
because, as opinions soon combine with passions, even when they do not
produce them, they have much influence on actions. Factions are formed
upon opinions, which factions become in effect bodies corporate in the
state; nay, factions generate opinions, in order to become a centre of
union, and to furnish watchwords to parties; and this may make it
expedient for government to forbid things in themselves innocent and
neutral. I am not fond of defining with precision what the ultimate
rights of the sovereign supreme power, in providing for the safety of
the commonwealth, may be, or may not extend to. It will signify very
little what my notions or what their own notions on the subject may be;
because, according to the exigence, they will take, in fact, the steps
which seem to them necessary for the preservation of the whole: for as
self-preservation in individuals is the first law of Nature, the same
will prevail in societies, who will, right or wrong, make that an object
paramount to all other rights whatsoever. There are ways and means by
which a good man would not even save the commonwealth.... All things
founded on the idea of danger ought in a great degree to be temporary.
All policy is very suspicious that sacrifices any part to the ideal good
of the whole. The object of the state is (as far as may be) the
happiness of the whole. Whatever makes multitudes of men utterly
miserable can never answer that object; indeed, it contradicts it wholly
and entirely; and the happiness or misery of mankind, estimated by their
feelings and sentiments, and not by any theories of their rights, is,
and ought to be, the standard for the conduct of legislators towards the
people. This naturally and necessarily conducts us to the peculiar and
characteristic situation of a people, and to a knowledge of their
opinions, prejudices, habits, and all the circumstances that diversify
and color life. The first question a good statesman would ask himself,
therefore, would be, How and in what circumstances do you find the
society? and to act upon them.

To the other laws relating to other sects I have nothing to say: I only
look to the petition which has given rise to this proceeding. I confine
myself to that, because in my opinion its merits have little or no
relation to that of the other laws which the right honorable gentleman
has with so much ability blended with it. With the Catholics, with the
Presbyterians, with the Anabaptists, with