Power is a continuum, not a binary. A foundational element in politics is the use of narratives to influence behaviour.
You can't stop a bullet with a piece of paper. But what's written on the paper can persuade a would-be shooter that the cost of their actions is likely to outweigh the benefits - because it legitimises and encourages counter-actions and severe penalties.
The efficient way to maintain power is by controlling what people believe. It's a lot less effort and mess than trying to torture and murder everyone who opposes you.
You can't stop a bullet with a piece of paper. But what's written on the paper can persuade a would-be shooter that the cost of their actions is likely to outweigh the benefits - because it legitimises and encourages counter-actions and severe penalties.
The efficient way to maintain power is by controlling what people believe. It's a lot less effort and mess than trying to torture and murder everyone who opposes you.