me to be, not only to enforce the renunciation of the anti-social desires, but, wherever it may be necessary, to promote the satisfaction of those which are conducive to progress.

The great metaphysician, Immanuel Kant, who is at his greatest when he discusses questions which are not metaphysical, wrote, nearly a century ago, a wonderfully instructive essay entitled "A Conception of Universal History in relation to Universal Citizenship,"1 from which I will borrow a few pregnant sentences:

"The means of which Nature has availed herself, in order to bring about the development of all the capacities of man, is the antagonism of those capacities to social organization, so far as the latter does in the long run necessitate their definite correlation. By antagonism, I here mean the unsocial sociability of mankind—that is, the combination in them of an impulse to enter into society, with a thorough spirit of opposition which constantly threatens to break up this society. The ground of this lies in human nature. Man has an inclination to enter into society, because in that state he feels that he becomes more a man, or, in other words, that his natural faculties develop. But he has also a great tendency to isolate himself, because he is, at the same time, aware of the unsocial peculiarity of desiring to have everything his own way; and thus, being conscious of an inclination to oppose others, he is naturally led to expect opposition from them.

"Now it is this opposition which awakens all the dormant powers of men, stimulates them to overcome their inclination to be idle, and, spurred by the love of honour, or power, or wealth, to make themselves a place among their fellows, whom they can neither do with, nor do without.

"Thus they make the first steps from brutishness towards culture, of which the social value of man is the measure. Thus all talents become gradually developed, taste is formed, and by continual enlightenment the foundations of a way of thinking are laid, which gradually changes the mere rude capacity of moral perception into

1“Idee zu einer allgemeinen Geschichte in weltbürgerlichen Absicht,” 1784. This paper has been translated by De Quincey, and attention has been recently drawn to its "signal merits" by the Editor of the Fortnightly Review in his Essay on Condorcet. (Fortnightly Review, No. xxxviii. N.S. pp. 136, 137.)

determinate practical principles; and thus society, which is originated by a sort of pathological compulsion, becomes metamorphosed into a moral unity." (Loc. cit. p. 147.)

"All the culture and art which adorn humanity, the most refined social order, are produced by that unsociability which is compelled by its own existence to discipline itself, and so by enforced art to bring the seeds implanted by nature into full flower." (Loc. cit. p. 148.)

In these passages, as in others of this remarkable tract, Kant anticipates the application of the "struggle for existence" to politics, and indicates the manner in which the evolution of society has resulted from the constant attempt of individuals to strain its bonds. If individuality has no play, society does not advance; if individuality breaks out of all bounds, society perishes.

But when men living in society once become aware that their welfare depends upon two opposing tendencies of equal importance-the one restraining, the other encouraging, individual freedom-the question "What are the functions of Government?" is translated into another-namely, What ought we men, in our corporate capacity, to do, not only in the way of restraining that free individuality which is inconsistent with the existence of society, but in encouraging that free individuality which is essential to the evolution of the social organization? The formula which truly defines the function of Government must contain the solution of both the problems involved, and not merely of one of them.

Locke has furnished us with such a formula, in the noblest, and at the same time briefest, statement of the purpose of Government known to me:

THE END OF GOVERNMENT IS THE GOOD OF
MANKIND."1

But the good of mankind is not a something which is absolute and fixed for all men, whatever their capacities.

1 "Of Civil Government," § 229.

or state of civilization. Doubtless it is possible to imagine a true "Civitas Dei," in which every man's moral faculty shall be such as leads him to control all those desires which run counter to the good of mankind, and to cherish only those which conduce to the welfare of society; and in which every man's native intellect shall be sufficiently strong, and his culture sufficiently extensive, to enable him to know what he ought to do and to seek after. And, in that blessed State, police will be as much a superfluity as every other kind of government.

But the eye of man has not beheld that State, and is not likely to behold it for some time to come. What we do see, in fact, is that States are made up of a considerable number of the ignorant and foolish, a small proportion of genuine knaves, and a sprinkling of capable and honest men, by whose efforts the former are kept in a reasonable state of guidance, and the latter of repression. And, such being the case, I do not see how any limit whatever can be laid down as to the extent to which, under some circumstances, the action of Government may be rightfully carried.

Was our own Government wrong in suppressing Thuggee in India? If not, would it be wrong in putting down any enthusiast who attempted to set up the worship of Astarte in the Haymarket? Has the State no right to put a stop to gross and open violations of common decency? And if the State has, as I believe it has, a perfect right to do all these things, are we not bound to admit, with Locke, that it may have a right to interfere with "Popery" and "Atheism," if it be really true that the practical consequences of such beliefs can be proved to be injurious to civil society? The question where to draw the line between those things with which the State ought, and those with which it ought not, to

interfere, then, is one which must be left to be decided separately for each individual case. The difficulty which meets the statesman is the same as that which meets us all in individual life, in which our abstract rights are generally clear enough, though it is frequently extremely hard to say at what point it is wise to cease our attempts to enforce them.

The notion that the social body should be organized in such a manner as to advance the welfare of its members, is as old as political thought; and the schemes of Plato, More, Robert Owen, St. Simon, Comte, and the modern socialists, bear witness that, in every age, men whose capacity is of no mean order, and whose desire to benefit their fellows has rarely been excelled, have been strongly, nay, enthusiastically, convinced that Government may attain its end-the good of the people-by some more effectual process than the very simple and easy one of putting its hands in its pockets, and letting them alone.

It may be, that all the schemes of social organization which have hitherto been propounded are impracticable follies. But if this be so, the fact proves, not that the idea which underlies them is worthless, but only that the science of politics is in a very rudimentary and imperfect state. Politics, as a science, is not older than astronomy; but though the subject-matter of the latter is vastly less complex than that of the former, the theory of the moon's motions is not quite settled yet.

Perhaps it may help us a little way towards getting clearer notions of what the State may and what it may not do, if, assuming the truth of Locke's maxim that "the end of Government is the good of mankind," we consider a little what the good of mankind is.

I take it that the good of mankind means the attainment, by every man, of all the happiness which he can

enjoy without diminishing the happiness of his fellowmen.1

If we inquire what kinds of happiness come under this definition, we find those derived from the sense of security or peace; from wealth, or commodity, obtained by commerce; from Art-whether it be architecture, sculpture, painting, music, or literature; from knowledge, or science; and, finally, from sympathy or friendship. No man is injured, but the contrary, by peace. No man is any the worse off because another acquires wealth by trade, or by the exercise of a profession; on the contrary, he cannot have acquired his wealth, except by benefiting others to the full extent of what they considered to be its value; and his wealth is no more than fairy gold if he does not go on benefiting others in the same way. A thousand men may enjoy the pleasure derived from a picture, a symphony, or a poem, without lessening the happiness of the most devoted connoisseur. The investigation of nature is an infinite pasture-ground, where all may graze, and where the more bite, the longer the grass grows, the sweeter is its flavour, and the more it nourishes. If I love a friend, it is no damage to me, but rather a pleasure, if all the world also love him and think of him as highly as I do.

It appears to be universally agreed, for the reasons already mentioned, that it is unnecessary and undesirable. for the State to attempt to promote the acquisition of wealth by any direct interference with commerce. But there is no such agreement as to the further question

1 “Hic est itaque finis ad quem tendo, talem scilicet Naturam acquirere, et ut multi mecum eam acquirant, conari hoc est de mea felicitate etiam operam dare, ut alii multi idem atque ego intelligant, ut eorum intellectus et cupiditas prorsus cum meo intellectu et cupiditate conveniant: atque hoc fiat, necesse est tantum de Natura intelligere, quantum sufficit ad talem naturam acquirendam; deinde formare talem societatem qualis est desideranda, ut quam plurimi quam facillime et secure eo perveniant."-B. SPINOZA, De Intellectus Emendatione Tractatus.