noncombatant citizens

Why would it be “vain” to suppose a law without rewards or punishments?

1. In the Essay concerning Human Understanding, Locke writes that, “since it would be utterly in vain to suppose a rule set to the free actions of man, without annexing to it some enforcement of good and evil to determine his will, we must wherever we suppose a law, suppose also some reward or pun-ishment […]

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