"Politics vs. Literature: An Examination of Gulliver's Travels," Polemic (September/October 1946) - Full text online http://orwell.ru/library/reviews/swift/english/e_swift
Context: In a Society in which there is no law, and in theory no compulsion, the only arbiter of behaviour is public opinion. But public opinion, because of the tremendous urge to conformity in gregarious animals, is less tolerant than any system of law. When human beings are governed by "thou shalt not", the individual can practise a certain amount of eccentricity: when they are supposedly governed by "love" or "reason", he is under continuous pressure to make him behave and think in exactly the same way as everyone else.
“The power of the State may be brought to bear, as it often is in England, through public opinion rather than through the laws. By oratory and the influence of the Press, public opinion is largely created by the State, and a tyrannous public opinion is as great an enemy to liberty as tyrannous laws. If the young man who will not fight finds that he is dismissed from his employment, insulted in the streets, cold-shouldered by his friends, and thrown over with scorn by any woman who may formerly have liked him, he will feel the penalty quite as hard to bear as a death sentence. A free community requires not only legal freedom, but a tolerant public opinion, an absence of that instinctive inquisition into our neighbors' affairs which, under the guise of upholding a high moral standard, enables good people to indulge unconsciously a disposition to cruelty and persecution. Thinking ill of others is not in itself a good reason for thinking well of ourselves. But so long as this is not recognized, and so long as the State can manufacture public opinion, except in the rare cases where it is revolutionary, public opinion must be reckoned as a definite part of the power of the State.”
Source: 1910s, Why Men Fight https://en.wikisource.org/wiki/Why_Men_Fight (1917), pp. 48-50
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Bertrand Russell 562
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