146. This, therefore, contains the power of war and peace, leagues
and alliances, and all the transactions with all persons and
communities without the commonwealth, and may be called federative
if any one pleases. So the thing be understood, I am indifferent as to
the name.
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.
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