But though this knowledge be necessary to happiness, this knowledge is not sufficient. Liberty, if not regulated by virtue, can be only license to do evil; and property, if not virtuously enjoyed, can only corrupt the possessour, and give him the power to injure others. Trade may make us rich; but riches, without goodness, cannot make us happy.
Let us, however, suppose that these external goods have that power which wisdom cannot believe, and which experience never could confirm; let us suppose that riches and liberty could make us happy. It then remains to be considered how riches and liberty can be secured. To this the politician has a ready answer, that they are to be secured by laws wisely formed, and vigorously executed. But, as laws can be made only by a small part of an extensive empire, and must be executed by a part yet far smaller, what shall protect us against the laws themselves? And how shall we be certain, that they shall not be made without regard to the publick good, or shall not be perverted to oppression by the ministers of justice?
But if prosperity, and laws, by which, as far as the mutability of this world permits, that prosperity is made permanent and safe, cannot make the people happy, what is it the governours can do? How far is their care to be extended, and what more can skill and vigilance perform? The wisdom of mankind has been exercised in inquiries how riches may be gained and kept; how the different claims of men may be adjusted without violence; and how one part of the community may be restrained from encroachments on the other. For this end governments have been instituted, in all their various forms, with much study, and too often with much bloodshed. But what is the use of all this, if, when these ends are obtained, there is yet so much wanting to felicity?
I am far from intending to insinuate, that the studies of political wisdom, or the labours of legislative patriotism, have been vain and idle. They are useful, but not effectual; they are conducive to that end, which yet they can-
