Governors, as unto them that are sent by him. — This word will include legati, proconsuls, propraetors, procurators, all officers entrusted with the administration of provinces. Of course the person “by” whom they are here said to be (from time to time) “sent” is Cæsar, not “the Lord.” The persons to whom the letter is addressed would have very little to do with Cæsar himself directly, their submission would be chiefly shown to the lieutenants. Yet how personal was the Imperial government, even in details, is shown in Pliny’s letters; the very letter before that in which he asks how to deal with the Christians of Bithynia requests Trajan’s leave to cover in an unhealthy beck in the town of Amastris.
For the punishment of evildoers. — St. Peter credits Roman imperialism (rightly in the main) with having as its aim the promotion of moral behaviour among its subjects. The word for “punishment” is that which is translated “vengeance” in 2 Thessalonians 1:8, and implies forcing the malefactors to make satisfaction to those whom they had wronged, the “avenger” being, of course, quite disinterested. The “praise” which here, as in Romans 13:3, is said to have been bestowed by the government on welldoers, must mean the solid praise of preferments, which is hardly so marked a feature of government as the foregoing. Be it observed that neither St. Peter nor St. Paul lay down any exceptions to the rule of complete obedience. They refuse to contemplate, at least to formulate, the occasions when disobedience may be necessary. Obedience is the first thing to learn, and when they have learnt it, they will know of themselves when to disobey. St. Peter himself stands to all time as the type of magnificent disobedience (Acts 4:19).