 Locke had been thinking, talking and writing about religious toleration since 1659. His views evolved. In the early 1660s he very likely was an orthodox Anglican. He and Shaftesbury had instituted religious toleration in the Fundamental Constitutions of the Carolinas (1669). He wrote the Epistola de Tolerantia in Latin in 1685 while in exile in Holland. He very likely was seeing Protestant refugees pouring over the borders from France where Louis XIV had just revoked the Edict of Nantes. Holland itself was a Calvinist theocracy with significant problems with religious toleration. But Locke’s Letter does not confine itself to the issues of the time. Locke gives a principled account of religious toleration, though this is mixed in with arguments which apply only to Christians, and perhaps in some cases only to Protestants. He excluded both Catholics and atheists from religious toleration. In the case of Catholics it was because he regarded them as agents of a foreign power. Because they do not believe in God, atheists, on Locke’s account: “Promises, covenants and oaths, which are the bonds of human society, can have no hold upon an atheist” (Mendus 1991: 47). He gives his general defense of religious toleration while continuing the anti-Papist rhetoric of the Country party which sought to exclude James II from the throne.