ENCYCLICAL OF POPE JOHN XXIII
ON ESTABLISHING UNIVERSAL PEACE IN TRUTH,
JUSTICE, CHARITY, AND LIBERTY
APRIL 11, 1963
To Our Venerable Brethren the Patriarchs, Primates, Archbishops, Bishops,
and all other Local Ordinaries who are at Peace and in Communion with
the Apostolic See, and to the Clergy and Faithful of the entire Catholic
World, and to all Men of Good Will.
Venerable Brethren and Dearest Sons Health and Apostolic Benediction.
Peace on Earth-which man throughout the ages has so longed for and sought
after-can never be established, never guaranteed, except by the diligent
observance of the divinely established order.
Order in the Universe
2. That a marvelous order predominates in the world of living beings and
in the forces of nature, is the plain lesson which the progress of modern
research and the discoveries of technology teach us. And it is part of
the greatness of man that he can appreciate that order, and devise the
means for harnessing those forces for his own benefit.
3. But what emerges first and foremost from the progress of scientific
knowledge and the inventions of technology is the infinite greatness of
God Himself, who created both man and the universe. Yes; out of nothing
He made all things, and filled them with the fullness of His own wisdom
and goodness. Hence, these are the words the holy psalmist used in praise
of God: "O Lord, our Lord: how admirable is thy name in the whole
earth!" (1) And elsewhere he says: "How great are thy works,
O Lord! Thou hast made all things in wisdom." (2)
Moreover, (2a) God created man "in His own image and likeness,"
(3) endowed him with intelligence and freedom, and made him lord of creation.
All this the psalmist proclaims when he says: "Thou hast made him
a little less than the angels: thou hast crowned him with glory and honor,
and hast set him over the works of thy hands. Thou hast subjected all
things under his feet." (4)
Order in Human Beings
And yet there is a disunity among individuals and among nations which
is in striking contrast to this perfect order in the universe. One would
think that the relationships that bind men together could only be governed
5. But the world's Creator has stamped man's inmost being with an order
revealed to man by his conscience; and his conscience insists on his preserving
it. Men "show the work of the law written in their hearts. Their
conscience bears witness to them." (5) And how could it be otherwise?
All created being reflects the infinite wisdom of God. It reflects it
all the more clearly, the higher it stands in the scale of perfection.
6. But the mischief is often caused by erroneous opinions. Many people
think that the laws which govern man's relations with the State are the
same as those which regulate the blind, elemental forces of the universe.
But it is not so; the laws which govern men are quite different. The Father
of the universe has inscribed them in man's nature, and that is where
we must look for them; there and nowhere else.
7. These laws clearly indicate how a man must behave toward his fellows
in society, and how the mutual relationships between the members of a
State and its officials are to be conducted. They show too what principles
must govern the relations between States; and finally, what should be
the relations between individuals or States on the one hand, and the world-wide
community of nations on the other. Men's common interests make it imperative
that at long last a world-wide community of nations be established.
I. ORDER BETWEEN MEN
8. We must devote our attention first of all to that order which should
prevail among men.
9. Any well-regulated and productive association of men in society demands
the acceptance of one fundamental principle: that each individual man
is truly a person. His is a nature, that is, endowed with intelligence
and free will. As such he has rights and duties, which together flow as
a direct consequence from his nature. These rights and duties are universal
and inviolable, and therefore altogether inalienable. (7)
10. When, furthermore, we consider man's personal dignity from the standpoint
of divine revelation, inevitably our estimate of it is incomparably increased.
Men have been ransomed by the blood of Jesus Christ. Grace has made them
sons and friends of God, and heirs to eternal glory.
11. But first We must speak of man's rights. Man has the right to live.
He has the right to bodily integrity and to the means necessary for the
proper development of life, particularly food, clothing, shelter, medical
care, rest, and, finally, the necessary social services. In consequence,
he has the right to be looked after in the event of illhealth; disability
stemming from his work; widowhood; old age; enforced unemployment; or
whenever through no fault of his own he is deprived of the means of livelihood.
Rights Pertaining to Moral and Cultural Values
12. Moreover, man has a natural right to be respected. He has a right
to his good name. He has a right to freedom in investigating the truth,
and-within the limits of the moral order and the common good-to freedom
of speech and publication, and to freedom to pursue whatever profession
he may choose. He has the right, also, to be accurately informed about
13. He has the natural right to share in the benefits of culture, and
hence to receive a good general education, and a technical or professional
training consistent with the degree of educational development in his
own country. Furthermore, a system must be devised for affording gifted
members of society the opportunity of engaging in more advanced studies,
with a view to their occupying, as far as possible, positions of responsibility
in society in keeping with their natural talent and acquired skill. (9)
The Right to Worship God According to One's Conscience
14. Also among man's rights is that of being able to worship God in accordance
with the right dictates of his own conscience, and to profess his religion
both in private and in public. According to the clear teaching of Lactantius,
"this is the very condition of our birth, that we render to the God
who made us that just homage which is His due; that we acknowledge Him
alone as God, and follow Him. It is from this ligature of piety, which
binds us and joins us to God, that religion derives its name.'' (l0)
Hence, too, Pope Leo XIII declared that "true freedom, freedom worthy
of the sons of God, is that freedom which most truly safeguards the dignity
of the human person. It is stronger than any violence or injustice. Such
is the freedom which has always been desired by the Church, and which
she holds most dear. It is the sort of freedom which the Apostles resolutely
claimed for themselves. The apologists defended it in their writings;
thousands of martyrs consecrated it with their blood.'' (11)
The Right to Choose Freely One's State in Life
15. Human beings have also the right to choose for themselves the kind
of life which appeals to them: whether it is to found a family-in the
founding of which both the man and the woman enjoy equal rights and duties-or
to embrace the priesthood or the religious life. (l2)
16. The family, founded upon marriage freely contracted, one and indissoluble,
must be regarded as the natural, primary cell of human society. The interests
of the family, therefore, must be taken very specially into consideration
in social and economic affairs, as well as in the spheres of faith and
morals. For all of these have to do with strengthening the family and
assisting it in the fulfilment of its mission.
17. Of course, the support and education of children is a right which
belongs primarily to the parents. (l3)
18. In the economic sphere, it is evident that a man has the inherent
right not only to be given the opportunity to work, but also to be allowed
the exercise of personal initiative in the work he does. (14)
19. The conditions in which a man works form a necessary corollary to
these rights. They must not be such as to weaken his physical or moral
fibre, or militate against the proper development of adolescents to manhood.
Women must be accorded such conditions of work as are consistent with
their needs and responsibilities as wives and mothers. (15)
20. A further consequence of man's personal dignity is his right to engage
in economic activities suited to his degree of responsibility. (l6) The
worker is likewise entitled to a wage that is determined in accordance
with the precepts of justice. This needs stressing. The amount a worker
receives must be sufficient, in proportion to available funds, to allow
him and his family a standard of living consistent with human dignity.
Pope Pius XII expressed it in these terms:
"Nature imposes work upon man as a duty, and man has the corresponding
natural right to demand that the work he does shall provide him with the
means of livelihood for himself and his children. Such is nature's categorical
imperative for the preservation of man.'' (l7)
21. As a further consequence of man's nature, he has the right to the
private ownership of property, including that of productive goods. This,
as We have said elsewhere, is "a right which constitutes so efficacious
a means of asserting one's personality and exercising responsibility in
every field, and an element of solidity and security for family life,
and of greater peace and prosperity in the State.'' (18)
22. Finally, it is opportune to point out that the right to own private
property entails a social obligation as well. (l9)
The Right of Meeting and Association
23. Men are by nature social, and consequently they have the right to
meet together and to form associations with their fellows. They have the
right to confer on such associations the type of organization which they
consider best calculated to achieve their objectives. They have also the
right to exercise their own initiative and act on their own responsibility
within these associations for the attainment of the desired results ,
24. As We insisted in Our encyclical Mater et Magistra, the founding of
a great many such intermediate groups or societies for the pursuit of
aims which it is not within the competence of the individual to achieve
efficiently, is a matter of great urgency. Such groups and societies must
be considered absolutely essential for the safeguarding of man's personal
freedom and dignity, while leaving intact a sense of responsibility. (21)
The Right to Emigrate and Immigrate
25. Again, every human being has the right to freedom of movement and
of residence within the confines of his own State. When there are just
reasons in favor of it, he must be permitted to emigrate to other countries
and take up residence there. (22) The fact that he is a citizen of a particular
State does not deprive him of membership in the human family, nor of citizenship
in that universal society, the common, world-wide fellowship of men.
26. Finally, man's personal dignity involves his right to take an active
part in public life, and to make his own contribution to the common welfare
of his fellow citizens. As Pope Pius XII said, "man as such, far
from being an object or, as it were, an inert element in society, is rather
its subject, its basis and its purpose; and so must he be esteemed."
27. As a human person he is entitled to the legal protection of his rights,
and such protection must be effective, unbiased, and strictly just. To
quote again Pope Pius XII: "In consequence of that juridical order
willed by God, man has his own inalienable right to juridical security.
To him is assigned a certain, well-defined sphere of law, immune from
arbitrary attack." (24)
8. The natural rights of which We have so far been speaking are inextricably
bound up with as many duties, all applying to one and the same person.
These rights and duties derive their origin, their sustenance, and their
indestructibility from the natural law, which in conferring the one imposes
9. Thus, for example, the right to live involves the duty to preserve
one's life; the right to a decent standard of living, the duty to live
in a becoming fashion; the right to be free to seek out the truth, the
duty to devote oneself to an ever deeper and wider search for it.
Reciprocity of Rights and Duties Between Persons
30. Once this is admitted, it follows that in human society one man's
natural right gives rise to a corresponding duty in other men; the duty,
that is, of recognizing and respecting that right. Every basic human right
draws its authoritative force from the natural law, which confers it and
attaches to it its respective duty. Hence, to claim one's rights and ignore
one's duties, or only half fulfill them, is like building a house with
one hand and tearing it down with the other.
31. Since men are social by nature, they must live together and consult
each other's interests. That men should recognize and perform their respective
rights and duties is imperative to a well ordered society. But the result
will be that each individual will make his whole-hearted contribution
to the creation of a civic order in which rights and duties are ever more
diligently and more effectively observed.
32. For example, it is useless to admit that a man has a right to the
necessities of life, unless we also do all in our power to supply him
with means sufficient for his livelihood.
33. Hence society must not only be well ordered, it must also provide
men with abundant resources. This postulates not only the mutual recognition
and fulfillment of rights and duties, but also the involvement and collaboration
of all men in the many enterprises which our present civilization makes
possible, encourages or indeed demands.
An Attitude of Responsibility
34. Man's personal dignity requires besides that he enjoy freedom and
be able to make up his own mind when he acts. In his association with
his fellows, therefore, there is every reason why his recognition of rights,
observance of duties, and many-sided collaboration with other men, should
be primarily a matter of his own personal decision. Each man should act
on his own initiative, conviction, and sense of responsibility, not under
the constant pressure of external coercion or enticement. There is nothing
human about a society that is welded together by force. Far from encouraging,
as it should, the attainment of man's progress and perfection, it is merely
an obstacle to his freedom.
Social Life in Truth, Justice, Charity and Freedom
35. Hence, before a society can be considered well-ordered, creative,
and consonant with human dignity, it must be based on truth. St. Paul
expressed this as follows: "Putting away lying, speak ye the truth
every man with his neighbor, for we are members one of another."
(25) And so will it be, if each man acknowledges sincerely his own rights
and his own duties toward others.
Human society, as We here picture it, demands that men be guided by justice,
respect the rights of others and do their duty. It demands, too, that
they be animated by such love as will make them feel the needs of others
as their own, and induce them to share their goods with others, and to
strive in the world to make all men alike heirs to the noblest of intellectual
and spiritual values. Nor is this enough; for human society thrives on
freedom, namely, on the use of means which are consistent with the dignity
of its individual members, who, being endowed with reason, assume responsibility
for their own actions .
36. And so, dearest sons and brothers, we must think of human society
as being primarily a spiritual reality. By its means enlightened men can
share their knowledge of the truth, can claim their rights and fulfill
their duties, receive encouragement in their aspirations for the goods
of the spirit, share their enjoyment of all the wholesome pleasures of
the world, and strive continually to pass on to others all that is best
in themselves and to make their own the spiritual riches of others. It
is these spiritual values which exert a guiding influence on culture,
economics, social institutions, political movements and forms, laws, and
all the other components which go to make up the external community of
men and its continual development.
God and the Moral Order
37. Now the order which prevails in human society is wholly incorporeal
in nature. Its foundation is truth, and it must be brought into effect
by justice. It needs to be animated and perfected by men's love for one
another, and, while preserving freedom intact, it must make for an equilibrium
in society which is increasingly more human in character.
38. But such an order-universal, absolute and immutable in its principles-finds
its source in the true, personal and transcendent God. He is the first
truth, the sovereign good, and as such the deepest source from which human
society, if it is to be properly constituted, creative, and worthy of
man's dignity, draws its genuine vitality. (26) This is what St. Thomas
means when he says: "Human reason is the standard which measures
the degree of goodness of the human will, and as such it derives from
the eternal law, which is divine reason . . . Hence it is clear that the
goodness of the human will depends much more on the eternal law than on
human reason." (27)
Characteristics of the Present Day
39. There are three things which characterize our modern age.
40. In the first place we notice a progressive improvement in the economic
and social condition of working men. They began by claiming their rights
principally in the economic and social spheres, and then proceeded to
lay claim to their political rights as well. Finally, they have turned
their attention to acquiring the more cultural benefits of society.
Today, therefore, working men all over the world are loud in their demands
that they shall in no circumstances be subjected to arbitrary treatment,
as though devoid of intelligence and freedom. They insist on being treated
as human beings, with a share in every sector of human society: in the
socio-economic sphere, in government, and in the realm of learning and
41. Secondly, the part that women are now playing in political life is
everywhere evident. This is a development that is perhaps of swifter growth
among Christian nations, but it is also happening extensively, if more
slowly, among nations that are heirs to different traditions and imbued
with a different culture. Women are gaining an increasing awareness of
their natural dignity. Far from being content with a purely passive role
or allowing themselves to be regarded as a kind of instrument, they are
demanding both in domestic and in public life the rights and duties which
belong to them as human persons.
42. Finally, we are confronted in this modern age with a form of society
which is evolving on entirely new social and political lines. Since all
peoples have either attained political independence or are on the way
to attaining it, soon no nation will rule over another and none will be
subject to an alien power.
43. Thus all over the world men are either the citizens of an independent
State, or are shortly to become so; nor is any nation nowadays content
to submit to foreign domination. The longstanding inferiority complex
of certain classes because of their economic and social status, sex, or
position in the State, and the corresponding superiority complex of other
classes, is rapidly becoming a thing of the past.
Equality of Men
44. Today, on the contrary the conviction is widespread that all men are
equal in natural dignity; and so, on the doctrinal and theoretical level,
at least, no form of approval is being given to racial discrimination.
All this is of supreme significance for the formation of a human society
animated by the principles We have mentioned above, for man's awareness
of his rights must inevitably lead him to the recognition of his duties.
The possession of rights involves the duty of implementing those rights,
for they are the expression of a man's personal dignity. And the possession
of rights also involves their recognition and respect by other people.
45. When society is formed on a basis of rights and duties, men have an
immediate grasp of spiritual and intellectual values, and have no difficulty
in understanding what is meant by truth, justice, charity and freedom.
They become, moreover, conscious of being members of such a society. And
that is not all. Inspired by such principles, they attain to a better
knowledge of the true God-a personal God transcending human nature. They
recognize that their relationship with God forms the very foundation of
their life-the interior life of the spirit, and the life which they live
in the society of their fellows.
II. RELATIONS BETWEEN INDIVIDUALS AND THE PUBLIC AUTHORITIES
46. Human society can be neither well-ordered nor prosperous without the
presence of those who, invested with legal authority, preserve its institutions
and do all that is necessary to sponsor actively the interests of all
its members. And they derive their authority from God, for, as St. Paul
teaches, "there is no power but from God". (28)
In his commentary on this passage, St. John Chrysostom writes: "What
are you saying? Is every ruler appointed by God? No, that is not what
I mean, he says, for I am not now talking about individual rulers, but
about authority as such. My contention is that the existence of a ruling
authority-the fact that some should command and others obey, and that
all things not come about as the result of blind chance-this is a provision
of divine wisdom." (29)
God has created men social by nature, and a society cannot "hold
together unless someone is in command to give effective direction and
unity of purpose. Hence every civilized community must have a ruling authority,
and this authority, no less than society itself, has its source in nature,
and consequently has God for its author." (30)
47. But it must not be imagined that authority knows no bounds. Since
its starting point is the permission to govern in accordance with right
reason, there is no escaping the conclusion that it derives its binding
force from the moral order, which in turn has God as its origin and end.
Hence, to quote Pope Pius XII, "The absolute order of living beings,
and the very purpose of man-an autonomous being, the subject of duties
and inviolable rights, and the origin and purpose of human society-have
a direct bearing upon the State as a necessary community endowed with
authority. Divest it of this authority, and it is nothing, it is lifeless....
But right reason, and above all Christian faith, make it clear that such
an order can have no other origin but in God, a personal God, our Creator.
Hence it is from Him that State officials derive their dignity, for they
share to some extent in the authority of God Himself." (31)
An Appeal to Conscience
48. Hence, a regime which governs solely or mainly by means of threats
and intimidation or promises of reward, provides men with no effective
incentive to work for the common good. And even if it did, it would certainly
be offensive to the dignity of free and rational human beings. Authority
is before all else a moral force. For this reason the appeal of rulers
should be to the individual conscience, to the duty which every man has
of voluntarily contributing to the common good. But since all men are
equal in natural dignity, no man has the capacity to force internal compliance
on another. Only God can do that, for He alone scrutinizes and judges
the secret counsels of the heart.
49. Hence, representatives of the State have no power to bind men in conscience,
unless their own authority is tied to God's authority, and is a participation
in it. (32)
50. The application of this principle likewise safeguards the dignity
of citizens. Their obedience to civil authorities is never an obedience
paid to them as men. It is in reality an act of homage paid to God, the
provident Creator of the universe, who has decreed that men's dealings
with one another be regulated in accordance with that order which He Himself
has established. And we men do not demean ourselves in showing due reverence
to God. On the contrary, we are lifted up and ennobled in spirit, for
to serve God is to reign. (33)
5l. Governmental authority, therefore, is a postulate of the moral order
and derives from God. Consequently, laws and decrees passed in contravention
of the moral order, and hence of the divine will, can have no binding
force in conscience, since "it is right to obey God rather than men
Indeed, the passing of such laws undermines the very nature of authority
and results in shameful abuse. As St. Thomas teaches, "In regard
to the second proposition, we maintain that human law has the rationale
of law in so far as it is in accordance with right reason, and as such
it obviously derives from eternal law. A law which is at variance with
reason is to that extent unjust and has no longer the rationale of law.
It is rather an act of violence." (35)
52. The fact that authority comes from God does not mean that men have
no power to choose those who are to rule the State, or to decide upon
the type of government they want, and determine the procedure and limitations
of rulers in the exercise of their authority. Hence the above teaching
is consonant with any genuinely democratic form of government. (36)
Attainment of the Common Good is the Purpose of the Public Authority
53. Men, both as individuals and as intermediate groups, are required
to make their own specific contributions to the general welfare. The main
consequence of this is that they must harmonize their own interests with
the needs of others, and offer their goods and services as their rulers
shall direct-assuming, of course, that justice is maintained and the authorities
are acting within the limits of their competence. Those who have authority
in the State must exercise that authority in a way which is not only morally
irreproachable, but also best calculated to ensure or promote the State's
54. The attainment of the common good is the sole reason for the existence
of civil authorities. In working for the common good, therefore, the authorities
must obviously respect its nature, and at the same time adjust their legislation
to meet the requirements of the given situation .(37)
Essentials of the Common Good
55. Among the essential elements of the common good one must certainly
include the various characteristics distinctive of each individual people.
(38) But these by no means constitute the whole of it. For the common
good, since it is intimately bound up with human nature, can never exist
fully and completely unless the human person is taken into account at
all times. Thus, attention must be paid to the basic nature of the common
good and what it is that brings it about. (39)
56. We must add, therefore, that it is in the nature of the common good
that every single citizen has the right to share in it-although in different
ways, depending on his tasks, merits and circumstances. Hence every civil
authority must strive to promote the common good in the interest of all,
without favoring any individual citizen or category of citizen. As Pope
Leo XIII insisted: "The civil power must not be subservient to the
advantage of any one individual, or of some few persons; inasmuch as it
was established for the common good of all." (40)
Nevertheless, considerations of justice and equity can at times demand
that those in power pay more attention to the weaker members of society,
since these are at a disadvantage when it comes to defending their own
rights and asserting their legitimate interests. (41)
The Spiritual, Too
57. In this connection, We would draw the attention of Our own sons to
the fact that the common good is something which affects the needs of
the whole man, body and soul. That, then, is the sort of good which rulers
of States must take suitable measure to ensure. They must respect the
hierarchy of values, and aim at achieving the spiritual as well as the
material prosperity of their subjects. (42)
58. These principles are clearly contained in that passage in Our encyclical
Mater et Magistra where We emphasized that the common good "must
take account of all those social conditions which favor the full development
of human personality. (43)
59. Consisting, as he does, of body and immortal soul, man cannot in this
mortal life satisfy his needs or attain perfect happiness. Thus, the measures
that are taken to implement the common good must not jeopardize his eternal
salvation; indeed, they must even help him to obtain it. (44)
Responsibilities of the Public Authority, and Rights and Duties of Individuals
60. It is generally accepted today that the common good is best safeguarded
when personal rights and duties are guaranteed. The chief concern of civil
authorities must therefore be to ensure that these rights are recognized,
respected, co-ordinated, defended and promoted, and that each individual
is enabled to perform his duties more easily. For "to safeguard the
inviolable rights of the human person, and to facilitate the performance
of his duties, is the principal duty of every public authority."
61. Thus any government which refused to recognize human rights or acted
in violation of them, would not only fail in its duty; its decrees would
be wholly lacking in binding force. (46)
Reconciliation and Protection of Rights and Duties of Individuals
62. One of the principal duties of any government, moreover, is the suitable
and adequate superintendence and co-ordination of men's respective rights
in society. This must be done in such a way 1) that the exercise of their
rights by certain citizens does not obstruct other citizens in the exercise
of theirs; 2) that the individual, standing upon his own rights, does
not impede others in the performance of their duties; 3) that the rights
of all be effectively safeguarded, and completely restored if they have
been violated. (47)
Duty of Promoting the Rights of Individuals
63. In addition, heads of States must make a positive contribution to
the creation of an overall climate in which the individual can both safeguard
his own rights and fulfill his duties, and can do so readily. For if there
is one thing we have learned in the school of experience, it is surely
this: that, in the modern world especially, political, economic and cultural
inequities among citizens become more and more widespread when public
authorities fail to take appropriate action in these spheres. And the
consequence is that human rights and duties are thus rendered totally
64. The public administration must therefore give considerable care and
thought to the question of social as well as economic progress, and to
the development of essential services in keeping with the expansion of
the productive system. Such services include road-building, transportation,
communications, drinking-water, housing, medical care, ample facilities
for the practice of religion, and aids to recreation. The government must
also see to the provision of insurance facilities, to obviate any likelihood
of a citizen's being unable to maintain a decent standard of living in
the event of some misfortune, or greatly in creased family responsibilities.
The government is also required to show no less energy and efficiency
in the matter of providing opportunities for suitable employment, graded
to the capacity of the workers. It must make sure that working men are
paid a just and equitable wage, and are allowed a sense of responsibility
in the industrial concerns for which they work. It must facilitate the
formation of intermediate groups, so that the social life of the people
may become more fruitful and less constrained. And finally, it must ensure
that everyone has the means and opportunity of sharing as far as possible
in cultural benefits.
Harmonious Relations Between Public Authority's Two Forms of Intervention
65. The common welfare further demands that in their efforts to co-ordinate
and protect, and their efforts to promote, the rights of citizens, the
civil authorities preserve a delicate balance. An excessive concern for
the rights of any particular individuals or groups might well result in
the principal advantages of the State being in effect monopolized by these
citizens. Or again, the absurd situation can arise where the civil authorities,
while taking measures to protect the rights of citizens, themselves stand
in the way of the full exercise of these rights. "For this principle
must always be retained: that however extensive and far-reaching the influence
of the State on the economy may be, it must never be exerted to the extent
of depriving the individual citizen of his freedom of action. It must
rather augment his freedom, while effectively guaranteeing the protection
of everyone's essential, personal rights." (48)
66. And the same principle must be adopted by civil authorities in their
various efforts to facilitate the exercise of rights and performance of
duties in every department of social life.
Structure and Operation of the Public Authority
67. For the rest, it is not possible to give a general ruling on the most
suitable form of government, or the ways in which civil authorities can
most effectively fulfill their legislative, administrative, and judicial
68. In determining what form a particular government shall take, and the
way in which it shall function, a major consideration will be the prevailing
circumstances and the condition of the people; and these are things which
vary in different places and at different times.
We think, however, that it is in keeping with human nature for the State
to be given a form which embodies a threefold division of public office
properly corresponding to the three main functions of public authority.
In such a State a precise legal framework is provided, not only for the
official functions of government, but also for the mutual relations between
citizens and public officials. This will obviously afford sure protection
to citizens, both in the safeguarding of their rights and in the fulfilment
of their duties.
69. If, however, this juridical and political structure is to realize
its potential benefits, it is absolutely essential that public officials
do their utmost to solve the problems that arise; and they must do so
by using policies and techniques which it is within their competence to
implement, and which suit the actual condition of the State. It is also
essential that, despite constantly changing conditions, legislators never
disregard the moral law or constitutional provision, nor act at variance
with the exigencies of the common good. And as justice must be the guiding
principle in the administration of the State, and executives must thoroughly
understand the law and carefully weigh all attendant circumstances, so
too in the courts: justice must be administered impartially, and judges
must be wholly incorrupt and uninfluenced by the solicitations of interested
parties. The good order of society also requires that individuals and
subsidiary groups within the State be effectively protected by law in
the affirmation of their rights and the performance of their duties, both
in their relations with each other and with government officials. (49)
Law and Conscience
70. There can be no doubt that a State juridical system which conforms
to the principles of justice and rightness, and corresponds to the degree
of civic maturity evinced by the State in question, is highly conducive
to the attainment of the common good.
71. And yet social life is so complex, varied and active in this modern
age, that even a juridical system which has been established with great
prudence and foresight often seems inadequate to the need.
72. Moreover, the relations of citizens with each other, of citizens and
intermediate groups with public authorities, and the relations between
public authorities of the same State, are sometimes seen to be of so ambiguous
and explosive a nature, that they are not susceptible of being regulated
by any hard and fast system of laws.
In such cases, if the authorities want to preserve the State's juridical
system intact-in itself and in its application to specific cases-and if
they want to minister to the principal needs of society, adapt the laws
to the conditions of modern life and seek solutions to new problems, then
it is essential that they have a clear idea of the nature and limits of
their own legitimate spheres of action. Their calmness, integrity, clear
sightedness and perseverance must be such that they will recognize at
once what is needed in a given situation, and act with promptness and
Citizens' Participation in Public Life
73. A natural consequence of men's dignity is unquestionably their right
to take an active part in government, though their degree of participation
will necessarily depend on the stage of development reached by the political
community of which they are members.
74. For the rest, this right to take part in government opens out to men
a new and extensive field of opportunity for service. A situation is created
in which civic authorities can, from the greater frequency of their contacts
and discussions with the citizens, gain a clearer idea of what policies
are in fact effectual for the common good; and in a system which allows
for a regular succession of public officials, the authority of these officials,
far from growing old and feeble, takes on a new vitality in keeping with
the progressive development of human society. (51)
Characteristics of the Present Day
75. There is every indication at the present time that these aims and
ideals are giving rise to various demands concerning the juridical organization
of States. The first is this: that a clear and precisely worded charter
of fundamental human rights be formulated and incorporated into the State's
76. Secondly, each State must have a public constitution, couched in juridical
terms, laying down clear rules relating to the designation of public officials,
their reciprocal relations, spheres of competence and prescribed methods
77. The final demand is that relations between citizens and public authorities
be described in terms of rights and duties. It must be clearly laid down
that the principal function of public authorities is to recognize, respect,
co-ordinate, safeguard and promote citizens' rights and duties
78. We must, however, reject the view that the will of the individual
or the group is the primary and only source of a citizen's rights and
duties, and of the binding force of political constitutions and the government's
79. But the aspirations We have mentioned are a clear indication of the
fact that men, increasingly aware nowadays of their personal dignity,
have found the incentive to enter government service and demand constitutional
recognition for their own inviolable rights. Not content with this, they
are demanding, too, the observance of constitutional procedures in the
appointment of public authorities, and are insisting that they exercise
their office within this constitutional framework.
III. RELATIONS BETWEEN STATES
80. With respect to States themselves, Our predecessors have constantly
taught, and We wish to lend the weight of Our own authority to their teaching,
that nations are the subjects of reciprocal rights and duties. Their relationships,
therefore, must likewise be harmonized in accordance with the dictates
of truth, justice, willing cooperation, and freedom. The same law of nature
that governs the life and conduct of individuals must also regulate the
relations of political communities with one another.
81. This will be readily understood when one reflects that it is quite
impossible for political leaders to lay aside their natural dignity while
acting in their country's name and in its interests They are still bound
by the natural law, which is the rule that governs all moral conduct,
and they have no authority to depart from its slightest precepts.
82. The idea that men, by the fact of their appointment to public office,
are compelled to lay aside their own humanity, is quite inconceivable
Their very attainment to this high-ranking office was due to their exceptional
gifts and intellectual qualities, which earned for them their reputation
as outstanding representatives of the body politic
83. Moreover, a ruling authority is indispensable to civil society. That
is a fact which follows from the moral order itself. Such authority, therefore,
cannot be misdirected against the moral order. It would immediately cease
to exit, being deprived of its whole raison d'etre. God Himself warns
us of this: "Hear, therefore, ye kings, and understand: learn, ye
that are judges of the ends of the earth. Give ear, you that rule the
people, and that please yourselves in multitudes of nations. For power
is given you by the Lord, and strength by the Most High, who will examine
your works, and search out your thoughts." (53)
84. And lastly one must bear in mind that, even when it regulates the
relations between States, authority must be exercised for the promotion
of the common good. That is the primary reason for its existence.
An lmperative of the Common Good
85. But one of the principal imperatives of the common good is the recognition
of the moral order and the unfailing observance of its precepts. "A
firmly established order between political communities must be founded
on the unshakable and unmoving rock of the moral law, that law which is
revealed in the order of nature by the Creator Himself, and engraved indelibly
on men's hearts . . . Its principles are beacon lights to guide the policies
of men and nations. They are also warning lights-providential signs-which
men must heed if their laborious efforts to establish a new order are
not to encounter perilous storms and shipwreck." (54)
86. The first point to be settled is that mutual ties between States must
be governed by truth. Truth calls for the elimination of every trace of
racial discrimination, and the consequent recognition of the inviolable
principle that all States are by nature equal in dignity.
Each of them accordingly has the right to exist, to develop, and to possess
the necessary means and accept a primary responsibility for its own development.
Each is also legitimately entitled to its good name and to the respect
which is its due.
87. As we know from experience, men frequently differ widely in knowledge,
virtue, intelligence and wealth, but that is no valid argument in favor
of a system whereby those who are in a position of superiority impose
their will arbitrarily on others. On the contrary, such men have a greater
share in the common responsibility to help others to reach perfection
by their mutual efforts.
88. So, too, on the international level: some nations may have attained
to a superior degree of scientific, cultural and economic development.
But that does not entitle them to exert unjust political domination over
other nations. It means that they have to make a greater contribution
to the common cause of social progress.
89. The fact is that no one can be by nature superior to his fellows,
since all men are equally noble in natural dignity. And consequently there
are no differences at all between political communities from the point
of view of natural dignity. Each State is like a body, the members of
which are human beings. And, as we know from experience, nations can be
highly sensitive in matters in any way touching their dignity and honor;
and with good reason.
The Question of Propaganda
90. Truth further demands an attitude of unrufffled impartiality in the
use of the many aids to the promotion and spread of mutual understanding
between nations which modern scientific progress has made available. This
does not mean that people should be prevented from drawing particular
attention to the virtues of their own way of life, but it does mean the
utter rejection of ways of disseminating information which violate the
principles of truth and justice, and injure the reputation of another
91. Relations between States must furthermore be regulated by justice.
This necessitates both the recognition of their mutual rights, and, at
the same time, the fulfilment of their respective duties.
92. States have the right to existence, to self development, and to the
means necessary to achieve this. They have the right to play the leading
part in the process of their own development, and the right to their good
name and due honors. Consequently, States are likewise in duty bound to
safeguard all such rights effectively, and to avoid any action that could
violate them. And just as individual men may not pursue their own private
interests in a way that is unfair and detrimental to others, so too it
would be criminal in a State to aim at improving itself by the use of
methods which involve other nations in injury and unjust oppression. There
is a saying of St. Augustine which has particular relevance in this context:
"Take away justice, and what are kingdoms but mighty bands of robbers
93. There may be, and sometimes is, a clash of interests among States,
each striving for its own development. When differences of this sort arise,
they must be settled in a truly human way, not by armed force nor by deceit
or trickery. There must be a mutual assessment of the arguments and feelings
on both sides, a mature and objective investigation of the situation,
and an equitable reconciliation of opposing views.
The Treatment of Minorities
94. A special instance of this clash of interests is furnished by that
political trend (which since the nineteenth century has become widespread
throughout the world and has gained in strength) as a result of which
men of similar ethnic background are anxious for political autonomy and
unification into a single nation. For many reasons this cannot always
be effected, and consequently minority peoples are often obliged to live
within the territories of a nation of a different ethnic origin. This
situation gives rise to serious problems.
95. It is quite clear that any attempt to check the vitality and growth
of these ethnic minorities is a flagrant violation of justice; the more
so if such perverse efforts are aimed at their very extinction .
96. Indeed, the best interests of justice are served by those public authorities
who do all they can to improve the human conditions of the members of
these minority groups, especially in what concerns their language, culture,
ancient traditions, and their economic activity and enterprise. (57)
A Cautionary Note
97. It is worth noting, however, that these minority groups, in reaction,
perhaps, to the enforced hardships of their present situation, or to historical
circumstances, frequently tend to magnify unduly characteristics proper
to their own people. They even rate them above those human values which
are common to all mankind, as though the good of the entire human family
should subserve the interests of their own particular groups. A more reasonable
attitude for such people to adopt would be to recognize the advantages,
too, which accrue to them from their own special situation. They should
realize that their constant association with a people steeped in a different
civilization from their own has no small part to play in the development
of their own particular genius and spirit. Little by little they can absorb
into their very being those virtues which characterize the other nation.
But for this to happen these minority groups must enter into some kind
of association with the people in whose midst they are living, and learn
to share their customs and way of life. It will never happen if they sow
seeds of disaffection which can only produce a harvest of evils, stifling
the political development of nations.
98. Since relationships between States must be regulated in accordance
with the principles of truth and justice, States must further these relationships
by taking positive steps to pool their material and spiritual resources.
In many cases this can be achieved by all kinds of mutual collaboration;
and this is already happening in our own day in the economic, social,
political, educational, health and athletic spheres-and with beneficial
results. We must bear in mind that of its very nature civil authority
exists, not to confine men within the frontiers of their own nations,
but primarily to protect the common good of the State, which certainly
cannot be divorced from the common good of the entire human family
99. Thus, in pursuing their own interests, civil societies, far from causing
injury to others, must join plans and forces whenever the efforts of particular
States cannot achieve the desired goal. But in doing so great care must
be taken. What is beneficial to some States may prove detrimental rather
than advantageous to others.
Contacts Between Races
100. Furthermore, the universal common good requires the encouragement
in all nations of every kind of reciprocation between citizens and their
intermediate societies. There are many parts of the world where we find
groupings of people of more or less different ethnic origin. Nothing must
be allowed to prevent reciprocal relations between them. Indeed such a
prohibition would flout the very spirit of an age which has done so much
to nullify the distances separating peoples.
Nor must one overlook the fact that whatever their ethnic background,
men possess, besides the special characteristics which distinguish them
from other men, other very important elements in common with the rest
of mankind. And these can form the basis of their progressive development
and self-realization especially in regard to spiritual values. They have,
therefore, the right and duty to carry on their lives with others in society.
The Proper Balance Between Population, Land and Capital
101. As everyone is well aware, there are some countries where there is
an imbalance between the amount of arable land and the number of inhabitants;
others where there is an imbalance between the richness of the resources
and the instruments of agriculture available. It is imperative, therefore,
that nations enter into collaboration with each other, and facilitate
the circulation of goods, capital and manpower. (58)
102. We advocate in such cases the policy of bringing the work to the
workers, wherever possible, rather than bringing workers to the scene
of the work. In this way many people will be afforded an opportunity of
increasing their resources without being exposed to the painful necessity
of uprooting themselves from their own homes, settling in a strange environment,
and forming new social contacts.
The Problem of Political Refugees
103. The deep feelings of paternal love for all mankind which God has
implanted in Our heart makes it impossible for Us to view without bitter
anguish of spirit the plight of those who for political reasons have been
exiled from their own homelands. There are great numbers of such refugees
at the present time, and many are the sufferings-the incredible sufferings-to
which they are constantly exposed.
104. Here surely is our proof that, in defining the scope of a just freedom
within which individual citizens may live lives worthy of their human
dignity, the rulers of some nations have been far too restrictive. Sometimes
in States of this kind the very right to freedom is called in question,
and even flatly denied. We have here a complete reversal of the right
order of society, for the whole raison d'etre of public authority is to
safeguard the interests of the community. Its sovereign duty is to recognize
the noble realm of freedom and protect its rights.
The Refugee's Rights
105. For this reason, it is not irrelevant to draw the attention of the
world to the fact that these refugees are persons and all their rights
as persons must be recognized. Refugees cannot lose these rights simply
because they are deprived of citizenship of their own States.
106. And among man's personal rights we must include his right to enter
a country in which he hopes to be able to provide more fittingly for himself
and his dependents. It is therefore the duty of State officials to accept
such immigrants and-so far as the good of their own community, rightly
understood, permits-to further the aims of those who may wish to become
members of a new society.
107. We therefore take this opportunity of giving Our public approval
and commendation to every undertaking, founded on the principles of human
solidarity or of Christian charity, which aims at relieving the distress
of those who are compelled to emigrate from their own country to another.
108. And We must indeed single out for the praise of all right-minded
men those international agencies which devote all their energies to this
most important work.
Causes of the Arms Race
109. On the other hand, We are deeply distressed to see the enormous stocks
of armaments that have been, and continue to be, manufactured in the economically
more developed countries. This policy is involving a vast outlay of intellectual
and material resources, with the result that the people of these countries
are saddled with a great burden, while other countries lack the help they
need for their economic and social development .
110. There is a common belief that under modern conditions peace cannot
be assured except on the basis of an equal balance of armaments and that
this factor is the probable cause of this stockpiling of armaments. Thus,
if one country increases its military strength, others are immediately
roused by a competitive spirit to augment their own supply of armaments.
And if one country is equipped with atomic weapons, others consider themselves
justified in producing such weapons themselves, equal in destructive force.
111. Consequently people are living in the grip of constant fear. They
are afraid that at any moment the impending storm may break upon them
with horrific violence. And they have good reasons for their fear, for
there is certainly no lack of such weapons. While it is difficult to believe
that anyone would dare to assume responsibility for initiating the appalling
slaughter and destruction that war would bring in its wake, there is no
denying that the conflagration could be started by some chance and unforeseen
circumstance. Moreover, even though the monstrous power of modern weapons
does indeed act as a deterrent, there is reason to fear that the very
testing of nuclear devices for war purposes can, if continued, lead to
serious danger for various forms of life on earth.
Need for Disarmament
112. Hence justice, right reason, and the recognition of man's dignity
cry out insistently for a cessation to the arms race. The stock-piles
of armaments which have been built up in various countries must be reduced
all round and simultaneously by the parties concerned. Nuclear weapons
must be banned. A general agreement must be reached on a suitable disarmament
program, with an effective system of mutual control. In the words of Pope
Pius XII: "The calamity of a world war, with the economic and social
ruin and the moral excesses and dissolution that accompany it, must not
on any account be permitted to engulf the human race for a third time.''
113. Everyone, however, must realize that, unless this process of disarmament
be thoroughgoing and complete, and reach men's very souls, it is impossible
to stop the arms race, or to reduce armaments, or-and this is the main
thing-ultimately to abolish them entirely. Everyone must sincerely co-operate
in the effort to banish fear and the anxious expectation of war from men's
minds. But this requires that the fundamental principles upon which peace
is based in today's world be replaced by an altogether different one,
namely, the realization that true and lasting peace among nations cannot
consist in the possession of an equal supply of armaments but only in
mutual trust. And We are confident that this can be achieved, for it is
a thing which not only is dictated by common sense, but is in itself most
desirable and most fruitful of good.
114. Here, then, we have an objective dictated first of all by reason.
There is general agreement-or at least there should be-that relations
between States, as between individuals, must be regulated not by armed
force, but in accordance with the principles of right reason: the principles,
that is, of truth, justice and vigorous and sincere co-operation.
115. Secondly, it is an objective which We maintain is more earnestly
to be desired. For who is there who does not feel the craving to be rid
of the threat of war, and to see peace preserved and made daily more secure?
116. And finally it is an objective which is rich with possibilities for
good. Its advantages will be felt everywhere, by individuals, by families,
by nations, by the whole human race. The warning of Pope Pius XII still
rings in our ears: "Nothing is lost by peace; everything may be lost
by war." (60)
A Call to Unsparing Effort
117. We therefore consider it Our duty as the vicar on earth of Jesus
Christ-the Saviour of the world, the Author of peace-and as interpreter
of the most ardent wishes of the whole human family, in the fatherly love
We bear all mankind, to beg and beseech mankind, and above all the rulers
of States, to be unsparing of their labor and efforts to ensure that human
affairs follow a rational and dignified course.
118. In their deliberations together, let men of outstanding wisdom and
influence give serious thought to the problem of achieving a more human
adjustment of relations between States throughout the world. It must be
an adjustment that is based on mutual trust, sincerity in negotiation,
and the faithful fulfilment of obligations assumed. Every aspect of the
problem must be examined, so that eventually there may emerge some point
of agreement from which to initiate treaties which are sincere, lasting,
and beneficial in their effects.
119. We, for Our part, will pray unceasingly that God may bless these
labors by His divine assistance, and make them fruitful.
120. Furthermore, relations between States must be regulated by the principle
of freedom. This means that no country has the right to take any action
that would constitute an unjust oppression of other countries, or an unwarranted
interference in their affairs. On the contrary, all should help to develop
in others an increasing awareness of their duties, an adventurous and
enterprising spirit, and the resolution to take the initiative for their
own advancement in every field of endeavor.
The Evolution of Economically Under-developed Countries
121. All men are united by their common origin and fellowship, their redemption
by Christ, and their supernatural destiny. They are called to form one
Christian family. In Our encyclical Mater et Magistra, therefore, We appealed
to the more wealthy nations to render every kind of assistance to those
States which are still in the process of economic development. (6l)
122. It is no small consolation to Us to be able to testify here to the
wide acceptance of Our appeal, and We are confident that in the years
that lie ahead it will be accepted even more widely. The result We look
for is that the poorer States shall in as short a time as possible attain
to a degree of economic development that enables their citizens to live
in conditions more in keeping with their human dignity.
123. Again and again We must insist on the need for helping these peoples
in a way which guarantees to them the preservation of their own freedom.
They must be conscious that they are themselves playing the major role
in their economic and social development; that they are themselves to
shoulder the main burden of it.
124. Hence the wisdom of Pope Pius XII's teaching: "A new order founded
on moral principles is the surest bulwark against the violation of the
freedom, integrity and security of other nations, no matter what may be
their territorial extension or their capacity for defense. For although
it is almost inevitable that the larger States, in view of their greater
power and vaster resources, will themselves decide on the norms governing
their economic associations with small States, nevertheless these smaller
States cannot be denied their right, in keeping with the common good,
to political freedom, and to the adoption of a position of neutrality
in the conflicts between nations. No State can be denied this right, for
it is a postulate of the natural law itself, as also of international
law. These smaller States have also the right of assuring their own economic
development. It is only with the effective guaranteeing of these rights
that smaller nations can fittingly promote the common good of all mankind,
as well as the material welfare and the cultural and spiritual progress
of their own people". (62)
125. The wealthier States, therefore, while providing various forms of
assistance to the poorer, must have the highest possible respect for the
latter's national characteristics and timehonored civil institutions.
They must also repudiate any policy of domination. If this can be achieved,
then "a precious contribution will have been made to the formation
of a world community, in which each individual nation, conscious of its
rights and duties, can work on terms of equality with the rest for the
attainment of universal prosperity." (63)
Signs of the Times
126. Men nowadays are becoming more and more convinced that any disputes
which may arise between nations must be resolved by negotiation and agreement,
and not by recourse to arms.
127. We acknowledge that this conviction owes its origin chiefly to the
terrifying destructive force of modern weapons. It arises from fear of
the ghastly and catastrophic consequences of their use. Thus, in this
age which boasts of its atomic power, it no longer makes sense to maintain
that war is a fit instrument with which to repair the violation of justice.
128. And yet, unhappily, we often find the law of fear reigning supreme
among nations and causing them to spend enormous sums on armaments. Their
object is not aggression, so they say-and there is no reason for disbelieving
them-but to deter others from aggression.
129. Nevertheless, We are hopeful that, by establishing contact with one
another and by a policy of negotiation, nations will come to a better
recognition of the natural ties that bind them together as men. We are
hopeful, too, that they will come to a fairer realization of one of the
cardinal duties deriving from our common nature: namely, that love, not
fear, must dominate the relationships between individuals and between
nations. It is principally characteristic of love that it draws men together
in all sorts of ways, sincerely united in the bonds of mind and matter;
and this is a union from which countless blessings can flow.
IV. RELATIONSHIP OF MEN AND OF POLITICAL COMMUNITIES WITH THE WORLD COMMUNITY
130. Recent progress in science and technology has had a profound influence
on man's way of life. This progress is a spur to men all over the world
to extend their collaboration and association with one another in these
days when material resources, travel from one country to another, and
technical information have so vastly increased. This has led to a phenomenal
growth in relationships between individuals, families and intermediate
associations belonging to the various nations, and between the public
authorities of the various political communities. There is also a growing
economic interdependence between States. National economies are gradually
becoming so interdependent that a kind of world economy is being born
from the simultaneous integration of the economies of individual States.
And finally, each country's social progress, order, security and peace
are necessarily linked with the social progress, order, security and peace
of every other country.
131. From this it is clear that no State can fittingly pursue its own
interests in isolation from the rest, nor, under such circumstances, can
it develop itself as it should. The prosperity and progress of any State
is in part consequence, and in part cause, of the prosperity and progress
of all other States.
Inadequacy of Modern States to Ensure Universal Common Good the
132. No era will ever succeed in destroying the unity of the human family,
for it consists of men who are all equal by virtue of their natural dignity.
Hence there will always be an imperative need-born of man's very nature-to
promote in sufficient measure the universal common good; the good, that
is, of the whole human family.
133. In the past rulers of States seem to have been able to make sufficient
provision for the universal common good through the normal diplomatic
channels, or by top-level meetings and discussions, treaties and agreements;
by using, that is, the ways and means suggested by the natural law, the
law of nations, or international law.
134. In our own day, however, mutual relationships between States have
undergone a far reaching change. On the one hand, the universal common
good gives rise to problems of the utmost gravity, complexity and urgency-especially
as regards the preservation of the security and peace of the whole world.
On the other hand, the rulers of individual nations, being all on an equal
footing, largely fail in their efforts to achieve this, however much they
multiply their meetings and their endeavors to discover more fitting instruments
of justice. And this is no reflection on their sincerity and enterprise.
It is merely that their authority is not sufficiently influential.
135. We are thus driven to the conclusion that the shape and structure
of political life in the modern world, and the influence exercised by
public authority in all the nations of the world are unequal to the task
of promoting the common good of all peoples.
Connection Between the Common Good and Political Authority
136. Now, if one considers carefully the inner significance of the common
good on the one hand, and the nature and function of public authority
on the other, one cannot fail to see that there is an intrinsic connection
between them. Public authority, as the means of promoting the common good
in civil society, is a postulate of the moral order. But the moral order
likewise requires that this authority be effective in attaining its end.
Hence the civil institutions in which such authority resides, becomes
operative and promotes its ends, are endowed with a certain kind of structure
and efficacy: a structure and efficacy which make such institutions capable
of realizing the common good by ways and means adequate to the changing
137. Today the universal common good presents us with problems which are
world-wide in their dimensions; problems, therefore, which cannot be solved
except by a public authority with power, organization and means co-extensive
with these problems, and with a world-wide sphere of activity. Consequently
the moral order itself demands the establishment of some such general
form of public authority.
Public Authority Instituted by Common Consent and Not Imposed by Force
138. But this general authority equipped with world-wide power and adequate
means for achieving the universal common good cannot be imposed by force.
It must be set up with the consent of all nations. If its work is to be
effective, it must operate with fairness, absolute impartiality, and with
dedication to the common good of all peoples. The forcible imposition
by the more powerful nations of a universal authority of this kind would
inevitably arouse fears of its being used as an instrument to serve the
interests of the few or to take the side of a single nation, and thus
the influence and effectiveness of its activity would be undermined. For
even though nations may differ widely in material progress and military
strength, they are very sensitive as regards their juridical equality
and the excellence of their own way of life. They are right, therefore,
in their reluctance to submit to an authority imposed by force, established
without their co-operation, or not accepted of their own accord.
The Universal Common Good and Personal Rights
139. The common good of individual States is something that cannot be
determined without reference to the human person, and the same is true
of the common good of all States taken together. Hence the public authority
of the world community must likewise have as its special aim the recognition,
respect, safeguarding and promotion of the rights of the human person.
This can be done by direct action, if need be, or by the creation throughout
the world of the sort of conditions in which rulers of individual States
can more easily carry out their specific functions.
The Principle of Subsidiarity
140. The same principle of subsidiarity which governs the relations between
public authorities and individuals, families and intermediate societies
in a single State, must also apply to the relations between the public
authority of the world community and the public authorities of each political
community. The special function of this universal authority must be to
evaluate and find a solution to economic, social, political and cultural
problems which affect the universal common good. These are problems which,
because of their extreme gravity, vastness and urgency, must be considered
too difficult for the rulers of individual States to solve with any degree
141. But it is no part of the duty of universal authority to limit the
sphere of action of the public authority of individual States, or to arrogate
any of their functions to itself. On the contrary, its essential purpose
is to create world conditions in which the public authorities of each
nation, its citizens and intermediate groups, can carry out their tasks,
fullfill their duties and claim their rights with greater security. (64)
142. The United Nations Organization (U.N.) was established, as is well
known, on June 26, 1945. To it were subsequently added lesser organizations
consisting of members nominated by the public authority of the various
nations and entrusted with highly important international functions in
the economics, social, cultural, educational and health fields. The United
Nations Organization has the special aim of maintaining and strengthening
peace between nations, and of encouraging and assisting friendly relations
between them, based on the principles of equality, mutual respect, and
extensive cooperation in every field of human endeavor.
143. A clear proof of the farsightedness of this organization is provided
by the Universal Declaration of Human Rights passed by the United Nations
General Assembly on December 10, 1948. The preamble of this declaration
affirms that the genuine recognition and complete observance of all the
rights and freedoms outlined in the declaration is a goal to be sought
by all peoples and all nations.
144. We are, of course, aware that some of the points in the declaration
did not meet with unqualified approval in some quarters; and there was
justification for this. Nevertheless, We think the document should be
considered a step in the right direction, an approach toward the establishment
of a juridical and political ordering of the world community. It is a
solemn recognition of the personal dignity of every human being; an assertion
of everyone's right to be free to seek out the truth, to follow moral
principles, discharge the duties imposed by justice, and lead a fully
human life. It also recognized other rights connected with these.
145. It is therefore Our earnest wish that the United Nations Organization
may be able progressively to adapt its structure and methods of operation
to the magnitude and nobility of its tasks. May the day be not long delayed
when every human being can find in this organization an effective safeguard
of his personal rights; those rights, that is, which derive directly from
his dignity as a human person, and which are therefore universal, inviolable
and inalienable. This is all the more desirable in that men today are
taking an ever more active part in the public life of their own nations,
and in doing so they are showing an increased interest in the affairs
of all peoples. They are becoming more and more conscious of being living
members of the universal family of mankind.
V. PASTORAL EXHORTATIONS
146. Here once more We exhort Our sons to take an active part in public
life, and to work together for the benefit of the whole human race, as
well as for their own political communities. It is vitally necessary for
them to endeavor, in the light of Christian faith, and with love as their
guide, to ensure that every institution, whether economic, social, cultural
or political, be such as not to obstruct but rather to facilitate man's
self betterment, both in the natural and in the supernatural order.
Scientific Competence, Technical Capacity and Professional Experience
147. And yet, if they are to imbue civilization with right ideals and
Christian principles, it is not enough for Our sons to be illumined by
the heavenly light of faith and to be fired with enthusiasm for a cause;
they must involve themselves in the work of these institutions, and strive
to influence them effectively from within.
148. But in a culture and civilization like our own, which is so remarkable
for its scientific knowledge and its technical discoveries, clearly no
one can insinuate himself into public life unless he be scientifically
competent, technically capable, and skilled in the practice of his own
profession . Apostolate of a Trained Laity
149. And yet even this must be reckoned insufficient to bring the relationships
of daily life into conformity with a more human standard, based, as it
must be, on truth, tempered by justice, motivated by mutual love, and
holding fast to the practice of freedom.
150. If these policies are really to become operative, men must first
of all take the utmost care to conduct their various temporal activities
in accordance with the laws which govern each and every such activity,
observing the principles which correspond to their respective natures.
Secondly, men's actions must be made to conform with the precepts of the
moral order. This means that their behavior must be such as to reflect
their consciousness of exercising a personal right or performing a personal
duty. Reason has a further demand to make. In obedience to the providential
designs and commands of God respecting our salvation and neglecting the
dictates of conscience, men must conduct themselves in their temporal
activity in such a way as to effect a thorough integration of the principal
spiritual values with those of science, technology and the professions.
Integration of Faith and Action
151. In traditionally Christian States at the present time, civil institutions
evince a high degree of scientific and technical progress and possess
abundant machinery for the attainment of every kind of objective. And
yet it must be owned that these institutions are often but slightly affected
by Christian motives and a Christian spirit.
152. One may well ask the reason for this, since the men who have largely
contributed-and who are still contributing-to the creation of these institutions
are men who are professed Christians, and who live their lives, at least
in part, in accordance with the precepts of the gospels. In Our opinion
the explanation lies in a certain cleavage between faith and practice.
Their inner, spiritual unity must be restored, so that faith may be the
light and love the motivating force of all their actions.
153. We consider too that a further reason for this very frequent divorce
between faith and practice in Christians is an inadequate education in
Christian teaching and Christian morality. In many places the amount of
energy devoted to the study of secular subjects is all too often out of
pro portion to that devoted to the study of religion. Scientific training
reaches a very high level, whereas religious training generally does not
advance beyond the elementary stage. It is essential, therefore, that
the instruction given to our young people be complete and continuous,
and imparted in such a way that moral goodness and the cultivation of
religious values may keep pace with scientific knowledge and continually
advancing technical progress. Young people must also be taught how to
carry out their own particular obligations in a truly fitting manner.
154. In this connection We think it opportune to point out how difficult
it is to understand clearly the relation between the objective requirements
of justice and concrete situations; to define, that is, correctly to what
degree and in what form doctrinal principles and directives must be applied
in the given state of human society.
155. The definition of these degrees and forms is all the more difficult
in an age such as ours, driven forward by a fever of activity. And yet
this is the age in which each one of us is required to make his own contribution
to the universal common good. Daily is borne in on us the need to make
the reality of social life conform better to the requirements of justice.
Hence Our sons have every reason for not thinking that they can relax
their efforts and be satisfied with what they have already achieved.
156. What has so far been achieved is insufficient compared with what
needs to be done; all men must realize that. Every day provides a more
important, a more fitting enterprise to which they must turn their hands-industry,
trade unions, professional organizations, insurance, cultrual institutions,
the law, politics, medical and recreational facilities, and other such
activities. The age in which we live needs all these things. It is an
age in which men, having discovered the atom and achieved the breakthrough
into outer space, are now exploring other avenues, leading to almost limitless
Relations Between Catholics and Non-Catholics in Social and Economic Affairs
157. The principles We have set out in this document take their rise from
the very nature of things. They derive, for the most part, from the consideration
of man's natural rights. Thus the putting of these principles into effect
frequently involves extensive co-operation between Catholics and those
Christians who are separated from this Apostolic See. It even involves
the cooperation of Catholics with men who may not be Christians but who
nevertheless are reasonable men, and men of natural moral integrity. "In
such circumstances they must, of course, bear themselves as Catholics,
and do nothing to compromise religion and morality. Yet at the same time
they should show themselves animated by a spirit of understanding and
unselfishness, ready to co-operate loyally in achieving objects which
are good in themselves, or conducive to good." (66)
Error and the Errant
158. It is always perfectly justifiable to distinguish between error as
such and the person who falls into error-even in the case of men who err
regarding the truth or are led astray as a result of their inadequate
knowledge, in matters either of religion or of the highest ethical standards.
A man who has fallen into error does not cease to be a man. He never forfeits
his personal dignity; and that is something that must always be taken
into account. Besides, there exists in man's very nature an undying capacity
to break through the barriers of error and seek the road to truth. God,
in His great providence, is ever present with His aid. Today, maybe, a
man lacks faith and turns aside into error; tomorrow, perhaps, illumined
by God's light, he may indeed embrace the truth.
Catholics who, in order to achieve some external good, collaborate with
unbelievers or with those who through error lack the fullness of faith
in Christ, may possibly provide the occasion or even the incentive for
their conversion to the truth.
Philosophies and Historical Movements
l59. Again it is perfectly legitimate to make a clear distinction between
a false philosophy of the nature, origin and purpose of men and the world,
and economic, social, cultural, and political undertakings, even when
such undertakings draw their origin and inspiration from that philosophy.
True, the philosophic formula does not change once it has been set down
in precise terms, but the undertakings clearly cannot avoid being influenced
to a certain extent by the changing conditions in which they have to operate.
Besides, who can deny the possible existence of good and commendable elements
in these undertakings, elements which do indeed conform to the dictates
of right reason, and are an expression of man's lawful aspirations?
160. It may sometimes happen, therefore, that meetings arranged for some
practical end-though hitherto they were thought to be altogether useless-may
in fact be fruitful at the present time, or at least offer prospects of
success. But whether or not the moment for such cooperation has arrived,
and the manner and degree of such co-operation in the attainment of economic,
social, cultural and political advantages-these are matters for prudence
to decide; prudence, the queen of all the virtues which rule the lives
of men both as individuals and in society.
As far as Catholics are concerned, the decision rests primarily with those
who take a leading part in the life of the community, and in these specific
fields. They must, however, act in accordance with the principles of the
natural law, and observe the Church's social teaching and the directives
of ecclesiastical authority. For it must not be forgotten that the Church
has the right and duty not only to safeguard her teaching on faith and
morals, but also to exercise her authority over her sons by intervening
in their external affairs whenever a judgment has to be made concerning
the practical application of this teaching. (67)
Little by Little
161. There are indeed some people who, in their generosity of spirit,
burn with a desire to institute wholesale reforms whenever they come across
situations which show scant regard for justice or are wholly out of keeping
with its claims. They tackle the problem with such impetuosity that one
would think they were embarking on some political revolution.
162. We would remind such people that it is the law of nature that all
things must be of gradual growth. If there is to be any improvement in
human institutions, the work must be done slowly and deliberately from
within. Pope Pius XII expressed it in these terms: "Salvation and
justice consist not in the uprooting of an outdated system, but in a well
designed policy of development. Hotheadedness was never constructive;
it has always destroyed everything. It has inflamed passions, but never
assuaged them. It sows no seeds but those of hatred and destruction. Far
from bringing about the reconciliation of contending parties, it reduces
men and political parties to the necessity of laboriously redoing the
work of the past, building on the ruins that disharmony has left in its
An Immense Task
163. Hence among the very serious obligations incumbent upon men of high
principles, We must include the task of establishing new relationships
in human society, under the mastery and guidance of truth, justice, charity
and freedom-relations between individual citizens, between citizens and
their respective States, between States, and finally between individuals,
families, intermediate associations and States on the one hand, and the
world community on the other. There is surely no one who will not consider
this a most exalted task, for it is one which is able to bring about true
peace in accordance with divinely established order.
164. Considering the need, the men who are shouldering this responsibility
are far too few in number, yet they are deserving of the highest recognition
from society, and We rightfully honor them with Our public praise. We
call upon them to persevere in their ideals, which are of such tremendous
benefit to mankind. At the same time We are encouraged to hope that many
more men, Christians especially, will join their cause, spurred on by
love and the realization of their duty. Everyone who has joined the ranks
of Christ must be a glowing point of light in the world, a nucleus of
love, a leaven of the whole mass. He will be so in proportion to his degree
of spiritual union with God.
165. The world will never be the dwellingplace of peace, till peace has
found a home in the heart of each and every man, till every man preserves
in himself the order ordained by God to be preserved. That is why St.
Augustine asks the question: "Does your mind desire the strength
to gain the mastery over your passions? Let it submit to a greater power,
and it will conquer all beneath it. And peace will be in you-true, sure,
most ordered peace. What is that order? God as ruler of the mind; the
mind as ruler of the body. Nothing could be more orderly." (69)
The Prince of Peace
166. Our concern here has been with problems which are causing men extreme
anxiety at the present time; problems which are intimately bound up with
the progress of human society. Unquestionably, the teaching We have given
has been inspired by a longing which We feel most keenly, and which We
know is shared by all men of good will: that peace may be assured on earth.
167. We who, in spite of Our inadequacy, are nevertheless the vicar of
Him whom the prophet announced as the Prince of Peace, (70) conceive of
it as Our duty to devote all Our thoughts and care and energy to further
this common good of all mankind. Yet peace is but an empty word, if it
does not rest upon that order which Our hope prevailed upon Us to set
forth in outline in this encyclical. It is an order that is founded on
truth, built up on justice, nurtured and animated by charity, and brought
into effect under the auspices of freedom.
168. So magnificent, so exalted is this aim that human resources alone,
even though inspired by the most praiseworthy good will, cannot hope to
achieve it. God Himself must come to man's aid with His heavenly assistance,
if human society is to bear the closest possible resemblance to the kingdom
169. The very order of things therefore, demands that during this sacred
season we pray earnestly to Him who by His bitter passion and death washed
away men's sins, which are the fountainhead of discord, misery and inequality;
to Him who shed His blood to reconcile the human race to the heavenly
Father, and bestowed the gifts of peace. "For He is our peace, who
hath made both one . . . And coming, He preached peace to you that were
afar off; and peace to them that were nigh.'' (71)
170. The sacred liturgy of these days reechoes the same message: "Our
Lord Jesus Christ, after His resurrection stood in the midst of His disciples
and said: Peace be upon you, alleluia. The disciples rejoiced when they
saw the Lord." (72) It is Christ, therefore, who brought us peace;
Christ who bequeathed it to us: "Peace I leave with you: my peace
I give unto you: not as the world giveth, do I give unto you." (73)
171. Let us, then, pray with all fervor for this peace which our divine
Redeemer came to bring us. May He banish from the souls of men whatever
might endanger peace. May He transform all men into witnesses of truth,
justice and brotherly love. May He illumine with His light the minds of
rulers, so that, besides caring for the proper material welfare of their
peoples, they may also guarantee them the fairest gift of peace.
Finally, may Christ inflame the desires of all men to break through the
barriers which divide them, to strengthen the bonds of mutual love, to
learn to understand one another, and to pardon those who have done them
wrong. Through His power and inspiration may all peoples welcome each
other to their hearts as brothers, and may the peace they long for ever
flower and ever reign among them.
172. And so, dear brothers, with the ardent wish that peace may come upon
the flocks committed to your care, for the special benefit of those who
are most lowly and in the greatest need of help and defense, lovingly
in the Lord We bestow on you, on Our priests both secular and regular,
on religious both men and women, on all the faithful and especially those
who give wholehearted obedience to these Our exhortations, Our Apostolic
Blessing. And upon all men of good will, to whom We also address this
encyclical, We implore from God health and prosperity.
Given at Rome, at St. Peter's, on Holy Thursday, the eleventh day of April,
in the year 1963, the fifth of Our
LATIN TEXT: Acta Apostolicae Sedis, 55 (1963), 257-304.
ENGLISH TRANSLATION: The Pope Speaks, 9 (1963), 13-48.
(1) Ps. 8:1.
(2) Ps. 103:24.
(2a) In the Latin text this paragraph is part of the preceding one, hence
we have not assigned it a number. For format reasons we have broken paragraphs
down in a few places but have kept our numbering system keyed to the Latin
paragraphs.-Ed. of TPS
(3) Cf. Gen. 1:26.
(4) Ps. 8:5-6.
(5) Rom. 2:15.
(6) Cf. Ps. 18:8-11.
(7) Cf. Pius XII's broadcast message, Christmas 1942, AAS 35 (1943) 9-24;
and John XXIII's sermon, Jan. 4, 1963, AAS 55 (1963) 89-91.
(8) Cf. Pius XI's encyclical letter Divini Redemptoris, AAS 29 (1931)
78; and Pius XII's broadcast message, Pentecost, June 1, 1941, AAS 33
(9) Cf. Pius XII's broadcast message, Christmas 1942, AAS 35 (1943) 9-24.
(10) Divinae Institutiones, lib. IV, c.28.2; PL 6.535.
(11) Encyclical letter "Libertas praestantissimum," Acta Leonis
XIII, VIII, 1888, pp. 237-238.
(12) Cf. Pius XII's broadcast message, Christmas 1942, AAS 35 (1943) 9-24.
(13) Cf. Pius XI's encyclical letter Casti connubii, AAS 22 (1930) 539-592,
and Pius XII's broadcast message, Christmas 1942, AAS 35 (1943) 9-24.
(14) Cf. Pius XII's broadcast message, Pentecost, June 1 ,1941, AAS 33
(15) Cf. Leo XIII's encyclical letter Rerum novarum, Acta Leonis XIII,
XI, 1891, pp. 128-129.
(16) Cf John XXIII's encyclical letter Mater et Magistra, AAS 53 (1961)
(17) Cf. Pius XII's broadcast message, Pentecost, June 1, 1941, AAS 33
(18) John XXIII's encyclical letter Mater et Magistra, AAS 53 (1961) 428.
(19) Cf. ibid., p. 430; TPS v. 7, no. 4, p. 318.
(20) Cf. Leo XIII's encyclical letter Rerum novarum, Acta Leonis XIII,
XI, 1891, pp. 134-142; Pius XI's encyclical letter Quadregesimo anno,
AAS 23 (1931) 199-200; and Pius XII's encyclical letter Sertum laetitiae,
AAS 31 (1939) 635-644.
(21) Cf. AAS 53 (1961) 430.
(22) Cf. Pius XII's broadcast message, Christmas 1952, AAS 45 (1953) 36-46.
(23) Cf. Pius XII's broadcast message, Christmas 1944, AAS 37 (1945) 12.
(24) Cf. Pius XII's broadcast message, Christmas 1942, AAS 35 (1943) 21.
(25) Eph. 4:25.
(26) Cf. Pius XII's broadcast message, Christmas 1942, AAS 35 (1943) 14.
(27) Summa Theol. Ia-IIae, q. 19, a.4; cf. a.9.
(28) Rom . 13: 1-6.
(29) In Epist. ad Rom. c. 13, vv. 1-2, homil. XXIII; PG 60. 615.
(30) Leo XIII's encyclical epistle Immortale Dei, Acta Leonis XIII, V,
1885, p. 120.
(31) Cf. Pius XII's broadcast message, Christmas 1944, AAS 37 (1945) 15.
(32) Cf. Leo XIII's encyclical epistle Diutumum illud, Acta Leonis XIII,
11, 1881, p. 274.
(33) Cf. ibid., p. 278; also Leo XIII's encyclical epistle Immortale Dei,
Acta Leonis XIII, V, 1885, p. 130.
(34) Acts 5:29.
(35) Summa Theol. Ia-IIae, q. 93., a.3 ad 2um; cf. Pius XII's broadcast
message, Christmas 1945, AAS 37 (1945) 5-23.
(36) Cf. Leo XIII's encyclical epistle Diuturnum illud, Acta Leonis XIII,
II, 1881, pp. 271-273; and Pius XII's broadcast message, Christmas 1944,
AAS 37 (1945) 5-23.
(37) Cf. Pius XII's broadcast message, Christmas 1942, AAS 35 (1943) 13,
and Leo XIII's encyclical epistle Immortale Dei, Acta Leonis XIII, V,
1885, p. 120.
(38) Cf. Pius XII's encyclical letter Summi Pontificatus, AAS 31 (1939)
(39) Cf. Pius XI's encyclical Mit brennender Sorge, AAS 29 (1937) 159,
and his encyclical letter Divini Redemptoris, AAS 29 (1937) 65-106.
(40) Leo XIII's encyclical letter Immortale Dei." Acta Leonis XIII,
V, 1885, p. 121.
(41) Cf. Leo XIII's encyclical letter Rerum novarum, Acta Leonis XIII,
XI, 1891, pp. 133-134.
(42) Cf. Pius XII's encyclical letter Summi Pontificatus, AAS 31 (1939)
(43) AAS 53 (1961) 417.
(44) Cf. Pius XI's encyclical letter Quadragesimo anno, AAS 23 (1931)
(45) Cf. Pius XII's broadcast message, Pentecost, June 1, 1941, AAS 33
(46) Cf. Pius XI's encyclical letter Mit brennender Sorge, AAS 29 (1937)
159, and his encyclical Divini Redemptoris, AAS 29 (1937) 79; and Pius
XII's broadcast message, Christmas 1942, AAS 35 (1943) 9-24.
(47) Cf. Pius XI's encyclical letter Divini Redemptoris, AAS 29 (1937)
81, and Pius XII's broadcast message, Christmas 1942, AAS 35 (1943) 9-24.
(48) John XXIII's encyclical letter Mater et Magistra, AAS 53 (1961) 415.
(49) Cf. Pius XII's broadcast message, Christmas 1942, AAS 35 (1943) 21.
(50) Cf. Pius XII's broadcast message, Christmas 1944, AAS 37 (1945) 15-16.
(51) Cf. Pius XII's broadcast message, Christmas 1942, AAS 35 (1943) 12.
(52) Cf. Leo XIII's apostolic letter Annum ingressi, Acta Leonis XIII,
XXII, 1902-1903, pp. 52-80.
(53) Wisd. 6:2-4.
(54) Cf. Pius XII's broadcast message, Christmas 1941, AAS 34 (1942) 16.
(55) Cf. Pius XII's broadcast message, Christmas 1940, AAS 33 (1941) 5-14.
(56) De civitate Dei, lib. IV, c. 4; PL 41. 115; cf. Pius XII's broadcast
message, Christmas 1939, AAS 32 (1940) 5-13.
(57) Cf. Pius XII's broadcast message, Christmas 1941, AAS 34 (1942) 10-21.
(58) Cf. John XIII's encyclical letter Mater et Magistra, AAS 53 (1961)
(59) Cf. Pius XII's broadcast message, Christmas 1941, AAS 34 (1942) 17,
and Benedict XV's exhortation to the rulers of the belligerent powers,
August 1, 1917, AAS 9 (1917) 418.
(60) Cf. Pius XII's broadcast message, August 24, 1939, AAS 31 (1939)
(61) AAS 53 (1961) 440-441.
(62) Cf. Pius XII's broadcast message, Christmas 1941, AAS 34 (1942) 16-17.
(63) John XXIII's encyclical letter Mater et Magistra, AAS 53 (1961) 443.
(64) Cf. Pius XII's address to Young Members of Italian Catholic Action,
Rome, Sept. 12, 1948, AAS 40 (1948) 412.
(65) Cf. John XXIII's encyclical letter Mater et Magistra, AAS 53 (1961)
(66) Ibid., p. 456.
(67) Ibid., p. 456; cf. Leo XIII's encyclical epistle Immortale Dei, Acta
Leonis XIII, V, 1885, p. 128; Pius XI's encyclical letter Ubi arcano,
AAS 14 (1922) 698; and Pius XII's address to the Union of International
Sodalities of Catholic Women, Rome, Sept. 11, 1947, AAS 39 (1947) 486.
AAS 39 (1947) 486.
(68) Cf. Pius XII's address to Italian workers, Rome, Pentecost, June
13, 1943, AAS 35 (1943) 175.
(69) Miscellanea Augustiniana . . . St. Augustine, Sermones post Maurinos
reperti, Rome, 1930, p. 633.
(70) Cf. Is. 9:6.
(71) Eph. 2:14-17.
(72) Responsory at Matins, Feria VI Within the Octave of Easter.
(73) John 14:27.