We Americans live in a country that was founded on a revolution and in which defiance of government authority is viewed as a basic constitutional right. The question here: what is the proper relationship of Christian citizens toward their government?

Christians must live as good citizens by submitting to human government.

“Submit” (2:13) is a dirty word to Americans, but it is a favorite with Peter. In fact, it dominates much of the rest of this epistle (it occurs in 2:13, 18; 3:1, 5, 22; 5:5; the concept is implicit in 4:12-19).

It is a military word, meaning to put oneself under another in rank. Submission is an attitude of respect that results in obedience to authority and positive good deeds. While there are exceptions, we need to be careful not to run to the exceptions, but to make sure that our normal posture toward government is that of submission.

As Christian citizens, we should submit to the authority vested in human government. The word translated “ordinance” in our Authorized Version simply means “creation or institution.” It does not refer to each individual law, but to the institutions that make and enforce the laws. It is possible to submit to the institutions and still disobey the laws.

For example, when Daniel and his three friends refused to obey the king’s dietary regulations, they disobeyed the law; but the way that they did it proved that they honored the king and respected the authorities (Dan. 1).

They were not rebels; they were careful not to embarrass the official in charge or get him into trouble; and yet they stood their ground. They glorified God and, at the same time, honored the authority of the king.

Peter and the other Apostles faced a similar challenge shortly after Pentecost (Acts 4–5). The Jewish council commanded them to stop preaching in the name of Jesus, but Peter and his associates refused to obey (see Acts 4:19; 5:29).

They did not cause a rebellion or in any way question or deny the authority of the council. They submitted to the institution but they refused to stop preaching. They showed respect to their leaders even though these men were opposed to the Gospel.

It is important that we respect the office even though we cannot respect the man or woman in the office. As much as possible, we should seek to cooperate with the government and obey the law; but we must never allow the law to make us violate our conscience or disobey God’s Word.

Unfortunately, some zealous but ignorant Christians use these differences as opportunities for conflict and loud sermons about “freedom” and “separation of church and state.”

When a local church constructs and furnishes a building, there is a local code that must be obeyed. The government has no right to control the pulpit or the business meeting, but it has every right to control matters that relate to safety and operation.

If the law requires a certain number of exits, or fire extinguishers, or emergency lights, the church must comply. The state is not persecuting when it sets up the code, nor is the church compromising when it obeys the code.^[1]

Those to whom Peter wrote lived with a government and society that was not favorable toward the Christian faith. Both Peter and Paul were executed at the hands of the Roman tyrant Nero. It was not until the fourth century, under Constantine, that Christianity was afforded official legitimacy and protection by the government.

I want to look first at the purpose of human government; then at the meaning of submission to government; at the reason for submission to government; and, finally, at the limits of submission to government.

1. The purpose of human government: To promote justice and peace in society.

The government should promote justice and peace by upholding law and order and by maintaining reasonable national defense.

Peter writes (2:14) that kings and governors are “for the punishment of evildoers and the praise of those who do right.”

This points to the power of the state to use capital punishment, as well as lesser punishment, to bring about justice for all. The Old Testament often talks about the role of the king in promoting justice and righteousness in society.

The government does this (in part) by legislating morality. Don’t let anybody sell you the idea that we shouldn’t legislate morality. That is precisely what the government does, and rightly so.

Laws against murder and theft are moral and biblical. Laws against racial discrimination reflect the biblical teaching that God is no respecter of persons (Acts 10:34; Deut. 10:17).

Laws should protect citizens from sin (for example, pornography and prostitution laws, drug laws, etc.). The fact that something is illegal will restrain many who otherwise may be tempted to engage in the particular activity.

The real debate is, which morality should we legislate? Laws against abortion, laws protecting the handicapped and the elderly, laws against pornography and child abuse, and many other such issues, can be argued for on the grounds of basic human rights, apart from Christianity.

Most unbelievers recognize the inherent “rightness” of the Golden Rule. We can use this biblical ethical standard as the basis for legislating proper morality in our democratic, pluralistic country.

Although Peter doesn’t touch on it specifically, a result of promoting justice will be promoting peace and order in society.

1 Timothy 2:1-2 states that we should pray for kings and those in authority “in order that we may lead a tranquil and quiet life in all godliness and dignity.”

For us to live a quiet and tranquil life, the government must maintain adequate national defense so that we are not overrun by some totalitarian power that would rob us of our peace and liberty. And internally the government should not interfere with religious liberty, within the bounds of human safety and rights. Thus government should promote justice and peace in society.

2. The meaning of submission to government. Submission means obedience to the laws of the state.

The basic meaning of the word “submit” is “obey.” Christians must obey the laws of their government unless those laws force them to disobey God. “Kings” we can apply to federal laws; “governors” we can apply to state and local laws. To give practical examples, we need to pay our taxes and comply with traffic laws

Submission means showing respect to governmental authorities.

You can obey with a rotten attitude. But Peter says that we are to “honor all men,” and specifies, “Honor the king” (2:17).

But what if he’s a scoundrel? Even if we can’t respect a leader because he is corrupt or immoral, we should respect his office.

Again, this isn’t an American tradition. We make jokes about our political leaders, portraying them as buffoons or idiots. Political satire is accepted fare. I confess that some of the things politicians do invite satire!

Jesus called Herod a fox, so there may be some basis for taking a swipe at certain political leaders. But we need to be careful to promote respect for government authorities. Since God ordained government authority, to despise such authority is to despise God Himself.

C. Submission means positive good deeds.

“That by doing right you may silence the ignorance of foolish men” (2:15).

“To silence” means, literally, to muzzle. The idea is that by our active good deeds, we take away the basis for criticism of Christianity from those who oppose it.

When Christians live like that in the midst of a pagan culture, it is a powerful testimony. On the other hand, when professing Christians disrespect authority, when they disobey the law, or when they just withdraw from society and live unto themselves without doing good deeds, it leaves a bad taste in the mouths of those who are prone to criticize Christianity.

When Israel was sent into exile in Babylon, their situation was parallel to that of Christians today, in that they were strangers and aliens in a foreign land, looking to be restored to their promised land.

God told Jeremiah (29:5-6) to tell the exiles to build houses there, plant gardens, take wives and raise children. Then He added, “And seek the welfare of the city where I have sent you into exile, and pray to the Lord on its behalf; for in its welfare you will have welfare” (lit., “peace”).

That’s good counsel for Christians who are exiled as strangers and aliens in this wicked world: Build houses, live in them, plant gardens, raise families, seek and pray for the welfare of the cities where we live.

Buy property, work to improve the schools, help out in community projects, be good citizens. Submitting to government means that we obey the law, respect authorities, and do good deeds in our communities.

3. The reason for submission to government: For the Lord’s sake.

“Submit yourselves for the Lord’s sake” (2:13). There are at least two ideas inherent in this phrase:

A. Since God ordains civil government, by submitting to it, we submit to Him.

Remember, both Paul and Peter wrote when the debauched, godless Nero was on the throne. Daniel lived under the ruthless Nebuchadnezzar. Since both rulers obviously fell far short of the ideal, we must conclude that we cannot make exceptions to the biblical principle of obedience to government authority based on how bad the ruler may be.

Peter wrote (2:16), “Act as free men, and do not use your freedom as a covering for evil, but use it as bondslaves of God.”

True freedom is living righteously in submission to God. Anything less means that we’re enslaved to sin.

B. Since Christians are identified with God, our submission to government bears witness for God.

When it comes to politics, we need to remember that while God uses civil government to accomplish His purposes (thus it is proper for Christians to serve in political leadership and be involved in the political process), evangelism is His primary means of dealing with world problems and bringing lasting change. If we get sidetracked into winning political victories for our cause, but do not win men and women to Christ, we ultimately fail.

We are to love even our enemies, of course. But Peter singles out our love for the Christian brotherhood because if Christians fight among themselves, the watching world shrugs its shoulders and says, “Why become a Christian? They’re no different than anyone else.”

4. The limits of submission to government: When honoring the government violates the fear of God.

Peter differentiates between God and the king: “Fear God, honor the king.”

The emperor deserves appropriate honor, but he is not on the same level with God. If he violates his responsibility which has been given to him by God, then the believer is responsible to confront that violation (Dan. 5:18-28) and, if it comes down to it, to obey God rather than men (Acts 4:19-20; 5:29).

He demotes the emperor and his government from being absolutely sovereign, in that he (and it) are creations, not the Creator. But he also gives dignity to each ruler and government, in that he is created by God, and thus worthy of our honor.

If it comes to a tug of war between God and government, we must follow God. If the government forces us to disobey God, we first appeal to the government, if possible.

If we have opportunity, we confront the government with its wrong. But if all that fails, we disobey the government and submit to our punishment.

^[1] Warren W. Wiersbe, The Bible Exposition Commentary, vol. 2 (Wheaton, IL: Victor Books, 1996), 405.