As force is always on the side of the governed, the governors have nothing to support them but opinion. It is therefore on opinion only that government is founded; and this maxim extends to the most despotic and the most military governments as well as to the most free and popular. The soldan of Egypt, or the emperor of Rome, might drive their helpless subjects, like brute beasts, against their sentiments and inclinations, but he must at least have led his mameluks, or praetorian bands, like men, by their opinions.
Hume's statement is too epigrammatic to be true. Governments can and do maintain themselves by force rather than consent. They have done this even when they were greatly inferior in numbers. Witness Cortez in Mexico, the Belgians in the Congo, and the recent English conquest, with two hundred aeroplanes, of the Mad Mullah in Somaliland. Civilized people must be governed in subtle ways. Unpopular governments maintain themselves sometimes by taking possession of the means of communication, by polluting the sources of information, by suppressing newspapers, by propaganda.
Caspar Schmidt, "Max Stirner," the most consistent of anarchists, said the last tyranny is the tyranny of the idea. The last tyrant, in other words, is the propagandist, the individual who gives a "slant" to the facts in order to promote his own conception of the welfare of the community.
We use the word public opinion in a wider and in a narrower sense. The public, the popular mind, is controlled by something more than opinion, or public opinion, in the narrower sense.
We are living today under the subtle tyranny of the advertising man. He tells us what to wear, and makes us wear it. He tells us what to eat, and makes us eat it. We do not resent this tyranny. We do not feel it. We do what we are told; but we do it with the feeling that we are following our own wild impulses. This does not mean that, under the inspiration of advertisements, we act irrationally. We have reasons; but they are sometimes after-thoughts. Or they are supplied by the advertiser.
Advertising is one form of social control. It is one way of capturing the public mind. But advertising does not get its results by provoking discussion. That is one respect in which it differs from public opinion.
Fashion is one of the subtler forms of control to which we all bow. We all follow the fashions at a greater or less distance. Some of us fall behind the fashions, but no one ever gets ahead of them. No one ever can get ahead of the fashions because we never know what they are, until they arrive.
Fashion, in the broad sense, comes under the head of what Herbert Spencer called ceremonial government. Ceremony, he said, is the most primitive and the most effective of all forms of government. There is no rebellion against fashion; no rebellion against social ritual. At least these rebellions never make martyrs or heroes. Dr. Mary Walker, who wore men's clothes, was a heroine no doubt, but never achieved martyrdom.
So far as ceremonial government finds expression in a code it is etiquette, social ritual, form. We do not realize how powerful an influence social form is. There are breaches of etiquette that any ordinary human being would rather die than be guilty of.
We often speak of social usages and the dictates of fashion as if they were imposed by public opinion. This is not true, if we are to use public opinion in the narrower sense. Social usages are not matters of opinion; they are matters of custom. They are fixed in habits. They are not matters of reflection, but of impulse. They are parts of ourselves.