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 Baptists and Quakers, but only to these; Catholics and Unitarians were expressly excepted and the repressive legislation of Charles II remained in force against them. It was a characteristically English measure, logically inconsistent and absurd, a mixture of tolerance and intolerance, but suitable to the circumstances and the state of public opinion at the time.

In the same year John Locke's famous (first) Letter concerning Toleration appeared in Latin. Three subsequent letters developed and illustrated his thesis. The main argument is based on the principle that the business of civil government is quite distinct from that of religion, that the State is a society constituted only for preserving and promoting the civil interests of its members—civil interests meaning life, liberty, health, and the possession of property. The care of souls is not committed to magistrates more than to other men. For the magistrate can only use outward force; but true religion means the inward persuasion of the mind, and the mind is so made that force cannot compel it to believe. So too it is absurd for a State to make laws to enforce a religion, for laws are useless without penalties, and penalties are impertinent because they cannot convince.

Moreover, even if penalties could change