III.—Now, therefore, we must see what is the end of the whole civil order of men; and when we have found this, then, as the Philosopher[152] says in his book to Nicomachus,[153] the half of our labour will have been accomplished. And to render the question clearer, we must observe that as there is a certain end for which nature makes the thumb, and another, different from this, for which she makes the whole hand, and again another for which she makes the arm, and another different from all for which she makes the whole man; so there is one end for which she orders the individual man, and another for which she orders the family, and another end for the city, and another for the kingdom, and finally an ultimate one for which the Everlasting God, by His art which is nature, brings into being the whole human race. And this is what we seek as a first principle to guide our whole inquiry.
Let it then be understood that God and nature make nothing to be idle. Whatever comes into being, exists for some operation or working. For no created essence is an ultimate end in the creator's purpose, so far as he is a creator, but rather the proper operation of that essence. Therefore it follows that the operation does not exist for the sake of the essence, but the essence for the sake of the operation.
There is therefore a certain proper operation of the whole body of human kind, for which this whole body of men in all its multitudes is ordered and constituted, but to which no one man, nor single family, nor single neighbourhood, nor single city, nor particular kingdom can attain. What this is will be manifest, if we can find what is the final and characteristic capacity of humanity as a whole. I say then that no quality which is shared by different species of things is the distinguishing capacity of any one of them. For were it so, since this capacity is that which makes each species what it is, it would follow that one essence would be specifically distributed to many species, which is impossible. Therefore the ultimate quality of men is not existence, taken simply; for the elements share therein. Nor is it existence under certain conditions;[154] for we find this in minerals too. Nor is it existence with life; for plants too have life. Nor is it percipient existence; for brutes share in this power. It is to be percipient[155] with the possibility of understanding, for this quality falls to the lot of none but man, either above or below him. For though there are other beings which with him have understanding, yet this understanding is not, as man's, capable of development. For such beings are only certain intellectual natures, and not anything besides, and their being is nothing other than to understand; which is without interruption, otherwise they would not be eternal. It is plain, therefore, that the distinguishing quality of humanity is the faculty or the power of understanding.
And because this faculty cannot be realised in act in its entirety at one time by a single man, nor by any of the individual societies which we have marked, therefore there must be multitude in the human race, in order to realise it: just as it is necessary that there should be a multitude of things which can be brought into being,[156] so that the capacity of the primal matter for being acted on may be ever open to what acts on it. For if this were not so, we could speak of a capacity apart from its substance, which is impossible. And with this opinion Averroes, in his comment on [Aristotle's] treatise on the Soul, agrees. For the capacity for understanding, of which I speak, is concerned not only with universal forms or species, but also, by a kind of extension, with particular ones. Therefore it is commonly said that the speculative understanding becomes practical by extension; and then its end is to do and to make. This I say in reference to things which may be done, which are regulated by political wisdom, and in reference to things which may be made, which are regulated by art; all which things wait as handmaidens on the speculative intellect, as on that best good, for which the Primal Goodness created the human race. Hence the saying of the Politics[157] that those who are strong in understanding are the natural rulers of others.
IV.—It has thus been sufficiently set forth that the proper work of the human race, taken as a whole, is to set in action the whole capacity of that understanding which is capable of development: first in the way of speculation, and then, by its extension, in the way of action. And seeing that what is true of a part is true also of the whole, and that it is by rest and quiet that the individual man becomes perfect in wisdom and prudence; so the human race, by living in the calm and tranquillity of peace, applies itself most freely and easily to its proper work; a work which, according to the saying; "Thou hast made him a little lower than the angels," is almost divine. Whence it is manifest that of all things that are ordered to secure blessings to men, peace is the best. And hence the word which sounded to the shepherds from above was not riches, nor pleasure, nor honour, nor length of life, nor health, nor strength, nor beauty; but peace. For the heavenly host said: "Glory to God in the highest, and on earth, peace to men of goodwill." Therefore also, "Peace be with you," was the salutation of the Saviour of mankind. For it behoved Him, who was the greatest of saviours, to utter in His greeting the greatest of saving blessings. And this custom His disciples too chose to preserve; and Paul also did the same in his greetings, as may appear manifest to all.
Now that we have declared these matters, it is plain what is the better, nay the best, way in which mankind may attain to do its proper work. And consequently we have seen the readiest means by which to arrive at the point, for which all our works are ordered, as their ultimate end; namely, the universal peace, which is to be assumed as the first principle for our deductions. As we said, this assumption was necessary, for it is as a sign-post to us, that into it we may resolve all that has to be proved, as into a most manifest truth.
V.—As therefore we have already said, there are three doubts, and these doubts suggest three questions, concerning Temporal Monarchy, which in more common speech is called the Empire; and our purpose is, as we explained, to inquire concerning these questions in their given order, and starting from the first principle which we have just laid down. The first question, then, is whether Temporal Monarchy is necessary for the welfare of the world; and that it is necessary can, I think, be shown by the strongest and most manifest arguments; for nothing, either of reason or of authority, opposes me. Let us first take the authority of the Philosopher in his Politics.[158] There, on his venerable authority, it is said that where a number of things are arranged to attain an end, it behoves one of them to regulate or govern the others, and the others to submit. And it is not only the authority of his illustrious name which makes this worthy of belief, but also reason, instancing particulars.
If we take the case of a single man, we shall see the same rule manifested in him: all his powers are ordered to gain happiness; but his understanding is what regulates and governs all the others; and otherwise he would never attain to happiness. Again, take a single household: its end is to fit the members thereof to live well; but there must be one to regulate and rule it, who is called the father of the family, or, it may be, one who holds his office. As the Philosopher says: "Every house is ruled by the oldest."[159] And, as Homer says, it is his duty to make rules and laws for the rest. Hence the proverbial curse: "Mayst thou have an equal at home."[160] Take a single village: its end is suitable assistance as regards persons and goods, but one in it must be the ruler of the rest, either set over them by another, or with their consent, the head man amongst them. If it be not so, not only do its inhabitants fail of this mutual assistance, but the whole neighbourhood is sometimes wholly ruined by the ambition of many, who each of them wish to rule. If, again, we take a single city: its end is to secure a good and sufficient life to the citizens; but one man must be ruler in imperfect[161] as well as in good forms of the state. If it is otherwise, not only is the end of civil life lost, but the city too ceases to be what it was. Lastly, if we take any one kingdom, of which the end is the same as that of a city, only with greater security for its tranquillity, there must be one king to rule and govern. For if this is not so, not only do his subjects miss their end, but the kingdom itself falls to destruction, according to that word of the infallible truth: "Every kingdom divided against itself shall be brought to desolation." If then this holds good in these cases, and in each individual thing which is ordered to one certain end, what we have laid down is true.
Now it is plain that the whole human race is ordered to gain some end, as has been before shown. There must, therefore, be one to guide and govern, and the proper title for this office is Monarch or Emperor. And so it is plain that Monarchy or the Empire is necessary for the welfare of the world.
VI.—And as the part is to the whole, so is the order of parts to the order of the whole. The part is to the whole, as to an end and highest good which is aimed at; and, therefore, the order in the parts is to the order in the whole, as it is to the end and highest good aimed at. Hence we have it that the goodness of the order of parts does not exceed the goodness of the order of the whole, but that the converse of this is true. Therefore we find a double order in the world, namely, the order of parts in relation to each other, and their order in relation to some one thing which is not a part (as there is in the order of the parts of an army in relation to each other, and then in relation to the general); and the order of the parts in relation to the one thing which is not a part is the higher, for it is the end of the other order, and the other exists for the sake of it. Therefore, if the form of this order is found in the units of the mass of mankind, much more may we argue by our syllogism that it is found in mankind considered as a whole; for this latter order, or its form, is better. But as was said in the preceding chapter, and it is sufficiently plain, this order is found in all the units of the mass of mankind. Therefore it is, or should be, found in the mass considered as a whole. And therefore all the parts that we have mentioned, which are comprised in kingdoms, and the kingdoms themselves ought to be ordered with reference to one Prince or Princedom, that is, with reference to a Monarch or Monarchy.