The Pulpit Commentary
From admonitions to keep peace, if possible, with all men, whether or not within the Christian circle, and to act honourably and benevolently towards all, the apostle now passes to the duty of Christians towards the civil government and the laws of the country in which they lived. It is well known that the Jews were impatient of the Roman dominion, and that some held it to be unlawful, on religious grounds, to pay tribute to Caesar (Mat_22:17). Insurrections against the government had consequently been frequent. There had been the notable one under Judas the Gaulonite of Gamala (called ὁ Γαλιλαῖος, Act_5:37), who left followers behind him, called Gaulonites, and to whose tenets Josephus attributes all subsequent insurrections of the Jews ('Ant.,' 18.1. § 1). Recently one had broken out in Rome, which had caused Claudius to order the expulsion of all Jews from the city (Act_17:2; cf. Suetonius, 'Claud.,' 25; Din Cassius, 60.6). The Christians, being regarded as a Jewish sect, and known for their acknowledgment of a Messiah and their refusal to comply with heathen usages, were not unnaturally confounded with such disturbers of the peace (cf. Act_17:6, Act_17:7; Act_21:37). It was, therefore, peculiarly needful that the Christian communities should be cautioned to disprove such accusations by showing themselves in all respects good, law-abiding subjects. They might easily be under a temptation to be otherwise. Feeling themselves already subjects of Christ's new kingdom, and regarding the second advent as probably near at hand, they might seem to themselves above the powers and institutions of the unbelieving world, which were so soon to pass away. St. Paul himself condemned resort to heathen tribunals in matters which Christians might settle among themselves (1Co_6:1, etc.); and many might go so far as to ignore the authority of such tribunals over the saints at all. Peter and John had at the first defied the authority even of the Sanhedrin in matters touching conscience (Act_4:19); and many might be slow to distinguish between temporal and spiritual spheres of jurisdiction. St. Paul, therefore, lays down the rule that the civil government, in whatsoever hands it might be, was, no less than the Church, a Divine institution for the maintenance of order in the world, to be submitted to and obeyed by Christians within the whole sphere of its legitimate authority. He does not refer to cases in which it might become necessary to obey God rather than man: his purpose hero does not call on him to do so; nor were the circumstances so far such as to bring such cases into prominence; for he was writing in the earlier part of Nero's reign, before any general persecution of Christians had begun. Nor does he touch on the question whether it may be right in some cases for subjects to resist usurped power or tyranny, or to take part in political revolutions, and even fight for freedom. Such a question was apart from his subject, which is the general duty of obedience to the law and government under which we are placed by Providence. This is the only passage in which he treats the subject at length and definitely. In a doctrinal and practical treatise like this Epistle, addressed as an apologia pro fide sua to the metropolis of the world and the seat of government, it was fitting that he should express clearly the attitude of the Church with regard to the civil order. But his teaching in other Epistles is in accordance with this; as where (1Co_7:21) he bids slaves acquiesce in the existing law of slavery, and (1Ti_2:1, etc.) he desires especially prayers to be made in behalf of kings and rulers. And he himself notably carried out his principles in this regard (cf. Act_23:1-35. 5; Act_25:8-11). There is a closely similar passage in the First Epistle of St. Peter (1Pe_2:12-18).

Let every soul be subject unto the higher powers. For there is no power but of (rather, from) God: the powers that be are ordained of God. It is of God's ordering that there should be human governments and human laws. Without them there could be no order, security, or progress among mankind. Imperfect as they may often be, and in some instances oppressive and unjust, still they exist for a purpose of good, and form part of the Divine order for the government of the world. In this sense all are from God, and ordained of God; and in submitting to them we are submitting to God.

The Pulpit Commentary
Whosoever therefore resisteth the power, withstandeth the ordinance of God: and they which withstand shall receive to themselves condemnation (i.e. really God's, operating through the human "power;" not meaning damnation in the common sense of the word). For rulers are not a terror to good works, but to the evil. Wilt thou then not be afraid of the power? do that which is good, and thou shalt have praise of the same. It is the theory of the laws of all civilized governments to uphold justice, and only to punish what is wrong; and in the main they do so. The principles of the Roman law were just, and Paul himself found protection from its officers and tribunals, whose fairness he had, and had reason to have, more confidence in than in the tender mercy of either Gentile or Jewish zealots (cf. Act_19:35, seq.; Act_21:31, seq.; Act_22:30; Act_24:10; Act_25:10, Act_25:11; Act_26:30, seq.). As has been observed already, the Neronian persecutions had not yet begun. For he is the minister of God to thee for good. But if thou do that which is evil, be afraid; for he beareth not the sword in vain: for he is the minister of God, an avenger to execute wrath upon him that doeth evil. Wrath here expresses the familiar idea of the Divine wrath against evil-doing, for the execution of which, in the sphere of human law, the magistrate is the appointed instrument (see note on Rom_12:19). Wherefore ye must needs be subject, not only for wrath, but also for conscience' sake. Not only for fear of penal consequences, but because it is your duty, whatever might ensue, to submit to the ordinance of God. Similarly, in 1Pe_2:13, submission to every ordinance of man is enjoined "for the Lord's sake (διὰ τὸν Κύριον)."

For for this cause ye pay. And what the apostle means may be that the same principle on which they paid their taxes extended to all legal requirements) tribute also: for they (i.e. the officers who exact tribute) are God's ministers (not, as in Rom_13:4, διακόνοι, but λειτουργοὶ. This word, with its correlatives, is used in the New Testament especially with reference to the ceremonial services of the temple, and to their counterpart in Christian devotion; but not exclusively so (see Rom_15:27; Php_2:25). In classical Greek it denotes peculiarly persons performing public duties, or works of public use. This well-known use of the word may have suggested it here, the apostle meaning to say that such as in any such way served the state were in fact serving God), attending continually upon this very thing; i.e. on λειτουργία for God.

The Pulpit Commentary
Render to all their dues; tribute to whom tribute is due; custom to whom custom; fear to whom fear; honour to whom honour. Whatever, either by law or by the constituted order of society, may be due to any, in the way of deference and honour, as well as payments, Christians, as members of society, are bound to render.