§. 147. These two powers, executive and federative, though they be really
distinct in themselves, yet one comprehending the execution of the municipal
laws of the society within itself upon all that are parts of it, the other the
management of the security and interest of the public without with all those
that it may receive benefit or damage from, yet they are always almost united.
And though this federative power in the well or ill management of it be of
great moment to the commonwealth, yet it is much less capable to be directed by
antecedent, standing, positive laws than the executive, and so must necessarily
be left to the prudence and wisdom of those whose hands it is in, to be managed
for the public good. For the laws that concern subjects one amongst another,
being to direct their actions, may well enough precede them. But what is to be
done in reference to foreigners depending much upon their actions, and the
variation of designs and interests, must be left in great part to the prudence
of those who have this power committed to them, to be managed by the best of
their skill for the advantage of the commonwealth.
