The consecration of the state by a state religious establishment is necessary also to operate with a wholesome awe upon free citizens; because, in order to secure their freedom, they must enjoy some determinate portion of power.  To them, therefore, a religion connected with the state, and with their duty towards it, becomes even more necessary than in such societies where the people, by the terms of their subjection, are confined to private sentiments, and the management of their own family concerns.  All persons possessing any portion of power ought to be strongly and awfully impressed with an idea that they act in trust, and that they are to account for their conduct in that trust to the one great Master, Author, and Founder of society.

This principle ought even to be more strongly impressed upon the minds of those who compose the collective sovereignty than upon those of single princes.  Without instruments, these princes can do nothing.  Whoever uses instruments, in finding helps, finds also impediments.  Their power is therefore by no means complete; nor are they safe in extreme abuse.  Such persons, however elevated by flattery, arrogance, and self-opinion, must be sensible, that, whether covered or not by positive law, in some way or other they are accountable even here for the abuse of their trust.  If they are not cut off by a rebellion of their people, they may be strangled by the very janissaries kept for their security against all other rebellion.  Thus we have seen the king of France sold by his soldiers for an increase of pay.  But where popular authority is absolute and unrestrained, the people have an infinitely greater, because a far better founded, confidence in their own power.  They are themselves in a great measure their own instruments.  They are nearer to their objects.  Besides, they are less under responsibility to one of the greatest controlling powers on earth, the sense of fame and estimation.  The share of infamy that is likely to fall to the lot of each individual in public acts is small indeed:  the operation of opinion being in the inverse ratio to the number of those who abuse power.  Their own approbation of their own acts has to them the appearance of a public judgment in their favor.  A perfect democracy is therefore the most shameless thing in the world.  As it is the most shameless, it is also the most fearless.  No man apprehends in his person that he can be made subject to punishment.  Certainly the people at large never ought:  for, as all punishments are for example towards the conservation of the people at large, the people at large can never become the subject of punishment by any human hand.[96] It is therefore of infinite importance that they should not be suffered to imagine that their will, any more than that of kings, is the standard of right and wrong.  They ought to be persuaded that they are full as little entitled, and far less qualified, with safety to themselves, to use any arbitrary power whatsoever; that therefore