11 And I saw another beast rising out of the earth; and it had two horns like to a lamb, and spake as a dragon;
12 and it exercises all the authority of the first beast before it, and causes the earth and those that dwell in it to do homage to the first beast, whose wound of death was healed.
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Commentary on Revelation 13 Matthew Henry Commentary
Chapter 13
We have, in this chapter, a further discovery and description of the church's enemies: not other enemies than are mentioned before, but described after another manner, that the methods of their enmity may more fully appear. They are represented as two beasts; the first you have an account of (v. 1-10) the second (v. 11-18). By the first some understand Rome pagan, and by the second Rome papal; but others understand Rome papal to be represented by both these beasts, by the first in its secular power, by the second in its ecclesiastical.
Rev 13:1-10
We have here an account of the rise, figure, and progress of the first beast; and observe,
Rev 13:11-18
Those who think the first beast signifies Rome pagan by this second beast would understand Rome papal, which promotes idolatry and tyranny, but in a more soft and lamb-like manner: those that understand the first beast of the secular power of the papacy take the second to intend its spiritual and ecclesiastical powers, which act under the disguise of religion and charity to the souls of men. Here observe,