But there has also been another force at work of equally far-reaching importance. This force is the modern idea of democracy, in which justice is modified by good-will. With the ancients justice meant "that every man should practise one thing only, that being the thing to which his nature was most perfectly adapted." 10 Equality upon the highest plane of human capacity was limited even in theory to a privileged class. But since the advent of Christianity it has never been possible for European society to acquiesce with good conscience in a limited distribution of the benefits of civilization. For the new enlightenment teaches that when men's potentialities are considered, rather than their present condition, there are no classes. As a consequence men demand representation not for what they are, but for what they may become if given their just opportunity. The body of citizens whose good is the final end of government virtually includes, then, all men without exception. It is no longer possible simply to dismiss large groups of human beings from consideration on grounds of what is held to be their unfitness. For they now demand that they be made fit. Burke expresses this enlightenment when he says, in speaking of the lower strata of society:

As the blindness of mankind has caused their slavery, in return their state of slavery is made a pretence of keeping them in a state of blindness; for

the politician will tell you gravely, that their life of servitude disqualifies the greater part of the race of man for a search of truth, and supplies them with no other than mean and insufficient ideas. This is but too true; and this is one of the reasons for which I blame such institutions."1

And so does every man now demand of the community as a whole that he shall be permitted to share equally in its benefits, and also, in order that his claims may be represented, that he shall have a voice in its councils. Do not misunderstand me. I do not mean that all men, therefore, must here and now be held to be equal; but only that they must be held to be capable of being as good as the best until they have demonstrated the contrary by forfeiting their opportunity. Nor do I mean that all men must therefore be given the ballot. We are discussing a question not of instrument, but of principle. I do mean that there is an idea that the best of life is for all; and that if there are many that are incapable of entering into it, then they must be helped to be capable. And I mean, furthermore, that this idea works irresistibly. It commands the support of the whole army of interests. It will never be abandoned because it makes for the increase of life on the whole; and hence no social order will from henceforth be stable that is not based upon it.

This idea that all men alike shall be the beneficiaries of government, when taken together

with the ancient ideas that government shall be directly responsible to its beneficiaries, and shall make as liberal an allowance as possible for their individual claims and opinions, constitutes the general principle upon which the progressive modern state is founded. Let me briefly recapitulate certain characteristics of the modern state" which indicate its recognition of this principle, and hence its advance on the whole over earlier types.

1. In the first place, the modern state is essentially a territorial rather than a racial or proprietary unit. In other words, it is clearly defined as a necessity and utility arising out of the circumstance of propinquity. If men are to cast in their lot together they must submit to organization, and obey laws promulgated in the interest of the community as a whole. To-day men understand that if they had no government it would be necessary to invent one; that the existing government, whatever divinity doth hedge it, is thus virtually the instrument of their needs.

2. Secondly, this moral function of government is emphasized through being largely freed from personal or dynastic connections and expressed as a constitutional office.

3. Thirdly, the requirements of justice and good-will are reconciled with order through the principle of representation. Without this prin

ciple it would be impossible for societies large enough to afford men protection, to admit all men to a share in their positive benefits and to a voice in their councils. Representative government is a method of political procedure through which authority is made answerable in the long run to all interests within its jurisdiction. The more recent tendencies in democratic communities to modify the representative system indicate the direction in which the pressure of interests is still urging society forward. It is no longer a question merely of the extension of the suffrage, but of directness and publicity. The procedure of government being recognized as of vital importance to all citizens, it must be straightforward and businesslike, with its books constantly open to inspection. The present distrust in elected representatives is not a sign of reaction, but of the evolution of the democratic intelligence. Where the machinery of representation becomes wasteful and clumsy, it ceases to serve the community. But this may mean either direct legislation, that is, a direct participation in public affairs by the people at large, or the intrusting of these affairs to a few conspicuously responsible agents selected for their businesslike competence and owing their tenure of office to the consent of their constituency. These methods are entirely consistent with one another; and they owe their

adoption entirely to their better execution of the intent of democracy. Both presuppose that political authority is empowered by all the interests of the community to serve them, and that these interests shall in the end decide whether or not that service is adequately performed.

4. Fourthly, the modern state lays a constantly greater stress on questions of internal policy, thus emphasizing its basal function of conserving and fostering the interests directly committed to its charge. It is less occupied with war, and more occupied with education, sanitation, the conservation of national resources, and the regulation of commerce and industry.

5. Fifthly, the sequel to this is the growing recognition of the folly and wastefulness of war. War is becoming a last resort, a hard necessity, rather than an opportunity of national glory. The growth of the idea of international peace, and the improvement and extension of the method of arbitration, are evidence of a yielding to the weight of the collective interests of humanity. They prove the priority of the principle of construction over that of destruction, and the essentially thrifty and provident function of the state.

The present form of progressive political institutions will serve as an index of the times and a pledge of the future. It reflects better than any other element of civilization that growth of liber