A Letter Concerning Toleration and Other Writings. John Locke
Letter and Evangelical Tolerance
John Locke’s Letter Concerning Toleration was one of the seventeenth century’s most eloquent pleas to Christians to renounce religious persecution. It was also timely. It was written in Latin in Holland in 1685, just after the Revocation of the Edict of Nantes, and published in Latin and English in 1689, just after the English parliament conceded a statutory toleration for Protestant dissenters. Locke was certainly not the first writer to argue for toleration. The case can be traced to authors such as Sebastian Castellio and Jacopo Acontius in the late sixteenth century, to the radical Puritans of Civil War England, such as William Walwyn and Roger Williams, and to Locke’s contemporaries, such as Penn and, in Holland, the Jew Baruch Spinoza, the Arminian Philip van Limborch, and the Huguenot Pierre Bayle, whose Philosophical Commentary on the Words of Our Lord, “Compel Them to Come In” (1686) is exactly contemporary with Locke’s Letter.
Today Locke is regarded as the canonical philosopher of liberalism. Theorists continue to invoke Locke in addressing religious questions: the relationship between religion and civil society, and the boundaries of public tolerance of cultural pluralism, particularly in a West suddenly less convinced that secularism is an ineluctable characteristic of modernity. Locke’s liberalism is not, however, the same as modern secular liberalism. His Letter can surprise and disconcert by the apparently limited basis and extent of its tolerance. It is not just that Locke excludes Roman Catholics and atheists from tolerance, but also that his very premises are rooted in Christian evangelism. His arguments are not as radical as those of Spinoza or Bayle, who were more inclusive and more skeptical. Crudely, Locke is not John Stuart Mill, for it is to On Liberty (1859) that we turn to find a celebration of pluralism and arguments for moral diversity. “Tolerance,” after all, denotes forbearance, not approval, and Locke defends rather than applauds religious diversity. Moreover, he does not offer toleration in the ethical sphere; quite the contrary, he upholds godly living as a better aspiration for civil societies than the disciplining of doctrine and worship. The first thing to emphasize, therefore, about Locke’s Letter is that it is limited to a case for toleration of religious conscience in matters of worship and speculative theology. Furthermore, its argument is grounded in the question: What are the legitimate means at the disposal of Christians to bring the wayward to the truth? While Locke is absolutely emphatic that coercion is not a legitimate means, the Letter remains an essay in evangelical tolerance, penned by a devout Christian, albeit one whom contemporaries suspected of theological heterodoxy and who thereby himself needed—or, in his enemies’ eyes, did not deserve— the blessings of toleration.
Separating Church from State
Locke’s Letter offers three principal arguments for toleration. He begins by asserting that peaceable means are of the essence of Christianity, and that Scripture does not authorize harshness. This point, however, is scarcely developed, and he does not explicitly discuss Jesus’ exhortation to “compel.” Rather, Locke’s overriding case is for the separation of the church from the state. Religion is not the business of the magistrate, and the state is not a proper instrument for the saving of souls. Church and state are “perfectly distinct and infinitely different” (p. 24). A church is a voluntary association within civil society; it is not a department of government. In this respect, churches are no different from other associations, such as “merchants for commerce” (p. 16). Broadly, this is a teleological argument: each gathering of people has its own ends or purposes and is delimited in its remit and governance by those ends. The state is no exception, for it cannot make totalizing claims: it, too, is limited by its temporal and secular purposes: the protection of life, liberty, and property. Locke was scarcely the first to offer such an assertion, but it is not too much to claim that he had broken with the concept of the “confessional state” that had governed medieval and Reformation Europe. Shockingly to his contemporaries, he avers that “there is absolutely no such thing, under the Gospel, as a Christian commonwealth” (p. 42). Temporal governors may and should be Christians, but Locke’s point is that their religious profession pertains to their private selves and not their public office.
Locke underpins the case for separation by showing that it is we who designate the purposes of our several communities. The state has its source in the “consent of the people.” It is for the protection of “civil rights and worldly goods” that the people originally authorized the state. People therefore have worldly purposes when they form states and spiritual purposes when they form churches. “The care of each man’s soul” (p. 48) cannot be part of the “mutual compacts” (p. 47) that create the polity. Fundamentally this is because it would be irrational to consent to a government that claimed a right to enforce a particular path to heaven, since that path might prove abhorrent to our conscience. This aspect of Locke’s argument firmly connects the Letter with his Two Treatises of Government, also published in 1689, and represents a crucial extrapolation of the latter’s premises. While it may appear puzzling that Locke does not supply this deduction in the Treatises themselves, which are conspicuously silent on the problem of religious persecution, their relentless insistence on the state’s purely secular purposes is so eloquent in its silence that Locke’s strategy is surely deliberate. The Treatises are not about religion because the state is not about religion.
A momentous corollary of Locke’s position is that toleration must be extended to non-Christians. Since the commonwealth is not, in its nature, Christian, then its ambit is extensive. Locke is quite clear that purely religious opinions of any sort cannot provide a ground for civil discrimination. “Neither pagan, nor Mahumetan, nor Jew, ought to be excluded from the civil rights of the commonwealth, because of his religion” (pp. 58–59). Furthermore, “not even [Native] Americans … are to be punished … for not embracing our faith and worship” (p. 39).
Locke’s separation of church and state is problematic in relation to the circumstances of England after the passage of the Toleration Act in 1689. Though toleration of Protestant dissenters was now legal, the Anglican creed in the Thirty-Nine Articles, the rituals of the Book of Common Prayer, and episcopacy continued to constitute the “Established” Church of England, which in turn retained a panoply of legal jurisdictions over people’s lives and a great body of landed and financial wealth. Citizens remained obliged to pay church taxes known as tithes; it was difficult to conduct marriage and burial outside the official church; and bishops were crown appointees who sat in the House of Lords. Furthermore, the Test Acts remained in place, by which citizens were disabled from holding public office unless they were communicant members of the Anglican Church. Although the Tests were often evaded in practice, they were not formally repealed until 1828. The separation of religion from public institutions proved a long, slow, and incomplete process, and in national schooling, for example, it has never fully occurred. Today, while religious schooling has been pluralized beyond Anglicanism, Britons remain wedded to tax-funded “faith schools,” apparently believing that the saving of souls is one purpose of the state.
It is unclear if Locke was a categorical separationist. The logic of his position is abolition of the state church. Yet he does not categorically say so in the Letter, nor did he show any personal inclination to worship outside the established church. Some of his remarks point toward “comprehension,” which would have entailed liberalizing the terms of membership of the national church so as to admit moderate dissenters. On the other hand, even if Locke favored comprehension, he clearly also upheld the rights of separatists. Moreover, he exhibited a strong streak of anticlericalism, criticizing the tendency of established religions to serve as engines of clerical “avarice and insatiable desire of dominion” (p. 60). In the Constitutions of Carolina (1669), which he helped to draft, the attitude toward churches is radically congregationalist: any group can register themselves as a church. If we assume that Locke was a categorical separationist, then it is not to Britain that one would look for a modern Lockean state, but to the United States, where the argument of Locke’s Letter found fulfillment in Thomas Jefferson’s Virginia Statute for Religious Freedom (1779), or to France, with its secular republican tradition of laïcité.
The Ineffectiveness of Intolerance
The second principal argument of the Letter in seeking to preclude coercion is Locke’s insistence that persecution is radically ineffective.