ABSTRACT
When the People are the object on which government is exercised, there might seem to be a paradox in saying that the same People was the agent in that government. Government is needed only where, if left to themselves, a part of the people would make life and property insecure for the rest. In a small, homogeneous, and highly civilised group, such as once were the travellers in a first-class carriage, a policeman was not required. The individuals could be relied upon to respect and if necessary to assist one another. And the same thing happens, in spots among exiles and refugees, 403when the destitute practice charity among themselves. Ordinarily, however, it becomes necessary to entrust charity as well as repression to a special body of professionals, probably under a chief appointed to keep those agents themselves in order. Thus government is never long exercised by all or sundry members of society, but by a single specially instituted government.
