Nations are not primarily ruled by laws; less by violence.
 Edmund Burke, Thoughts on the Cause of the Present Discontents (1770). copy citation

Context

“But as long as reputation, the most precious possession of every individual, and as long as opinion, the great support of the State, depend entirely upon that voice, it can never be considered as a thing of little consequence either to individuals or to Government. Nations are not primarily ruled by laws; less by violence. Whatever original energy may be supposed either in force or regulation; the operation of both is, in truth, merely instrumental. Nations aregoverned by the same methods, and on the same principles, by which an individual without authority is often able to govern those who are his equals or his superiours;” source