Government is deeply interested in everything which, even through the
medium of some temporary uneasiness, may tend finally to compose the
minds of the subjects, and to conciliate their affections. I have
nothing to do here with the abstract value of the voice of the people.
But as long as reputation, the most precious possession of every
individual, and as long as opinion, the great support of the state,
depend entirely upon that voice, it can never be considered as a thing
of little consequence either to individuals or to governments. Nations
are not primarily ruled by laws; less by violence. Whatever original
energy may be supposed either in force or regulation, the operation of
both is, in truth, merely instrumental. Nations are governed by the
same methods, and on the same principles, by which an individual without
authority is often able to govern those who are his equals or his
superiors--by a knowledge of their temper, and by a judicious management
of it; I mean, when public affairs are steadily and quietly conducted;
and when government is nothing but a continued scuffle between the
magistrate and the multitude; in which sometimes the one and sometimes
the other is uppermost; in which they alternately yield and prevail,
in a series of contemptible victories, and scandalous submissions. The
temper of the people amongst whom he presides ought therefore to be the
first study of a statesman. And the knowledge of this temper it is by no
means impossible for him to attain, if he has not an interest in being
ignorant of what it is his duty to learn.