VII

PROGRESS IN GOVERNMENT

A. E. ZIMMERN

When I was asked to speak to you on the subject of Progress in Government I gladly accepted, for it is a subject on which I have reflected a good deal. But when I came to think over what I should say, I saw that you had asked me for the impossible. For what is Government?

I do not know whether there are any here for whom Government means no more than a policeman, or a ballot-box, or a list of office-holders. The days of such shallow views are surely over. Government is the work of ordering the external affairs and relationships of men. It covers all the activities of men as members of a community--social, industrial, and religious as well as political in the narrower sense. It is concerned, as the ancients had it, with 'that which is public or common', what the Greeks called [Greek: to koinon] and the Romans _res publica_. The Old English translation of these cla.s.sical terms is 'The Commonwealth' or Common Weal; and I do not see that we can do better than adopt that word, with its richness of traditional meaning and its happy a.s.sociation of the two conceptions, too often separated in modern minds, of Wealth and Welfare.

Our subject then is the Progress of the Commonwealth or, in other words, the record of the course of the common life of mankind in the world. It is a theme which really underlies all the other subjects of discussion at this week's meetings: for it is only the existence of the Commonwealth and its organized efforts to preserve and sustain the life of the individuals composing it, which have made possible the achievements of mankind in the various separate fields of effort which are claiming your attention. Lord Acton spent a lifetime collecting material for a History of Liberty. He never wrote it: but, if he had, it would have been a History of Mankind. A History of Government or of the Commonwealth would be nothing less. Such is the nature of the invitation so kindly given to me and so cheerfully accepted. If you could wait a lifetime for the proper treatment of the subject I would gladly give the time; for, in truth, it is worth it.

What is the nature of this common life of mankind and with what is it concerned? The subjects of its concern are as wide as human nature itself. We cannot define them in a formula: for human nature overleaps all formulas. Whenever men have tried to rule regions of human activity and aspiration out of the common life of mankind, and to hedge them round as private or separate or sacred or by any other kind of taboo, human nature has always ended by breaking through the hedges and invading the retreat. Man is a social animal. If he retires to a monastery he finds he has carried problems of organization with him, as the promoters of this gathering would confess you have brought with you here. If he shuts himself up in his home as a castle, or in a workshop or factory as the domain of his own private power, social problems go with him thither, and the long arm of the law will follow after. If he crosses the seas like the Pilgrim Fathers, to worship G.o.d unmolested in a new country, or, like the merchant-venturers, to fetch home treasure from the Indies, he will find himself unwittingly the pioneer of civilization and the founder of an Empire or a Republic. In the life of our fellows, in the Common Weal, we live and move and have our being.

Let us recall some wise words on this subject from the Master of Balliol's book on the Middle Ages. 'The words "Church" and "State"', he writes,

represent what ought to be an alliance, but is, in modern times, at best a dualism and often an open warfare.... The opposition of Church and State expresses an opposition between two sides of human nature which we must not too easily label as good and evil, the heavenly and the earthly, the sacred and the profane. For the State, too, is divine as well as the Church, and may have its own ideals and sacramental duties and its own prophets, even its own martyrs. The opposition of Church and State is to be regarded rather as the pursuit of one great aim, pursued by contrasted means. The ultimate aim of all true human activity must be in the n.o.ble words of Francis Bacon 'the glory of G.o.d and the relief of man's estate'.[53]

Bacon's words form a fitting starting-point for our reflections: for they bring vividly before us both the idealism which should inspire all who labour at the task of government and the vastness and variety of the field with which they are concerned. Looked at in this broad light, the history of man's common life in the world will, I think, show two great streams of progress--the progress of man over Nature, or, as we say to-day, in the control of his environment, and the progress of man in what is essentially a moral task--the art of living together with his fellows. These two aspects of human activity and effort are in constant contact and interaction. Studied together, they reveal an advance which, in spite of man's ever-present moral weakness, may be described as an advance from Chaos to Cosmos in the organization of the world's common life; yet they are so distinct in method and spirit that they can best be described separately.

Let us first, then, consider the history of Government, as a record of the progress of man's power over Nature.

Human history, in this sphere, is the story of man making himself at home in the world. When human history begins we find men helpless, superst.i.tious, ignorant, the plaything of blind powers in the natural and animal world. Superst.i.tious because he was helpless, helpless because he was ignorant, he eked out a bare existence rather by avoiding than controlling the forces in the little world by which he found himself surrounded. Human life in its earliest stages is, as Hobbes described it, nasty, brutish, and short. Man was the slave of his environment. He has risen to become its master. The world, as the prophetic eye of Francis Bacon foretold, has become 'The Kingdom of Man'.

How complete this conquest is, can best be realized perhaps by considering man's relation to the lower animals. When history opens, the animals are in their element; it is man who is the interloper. Two thousand years ago it was not the Society of Friends but wolves and wild boars who felt themselves at home on the site of Bournville Garden Village. To-day we are surprised when we read that in remote East Africa lions and giraffes venture occasionally to interfere in the murderous warfare between man and man. Man has imposed himself on the animals, by dint of his gradual acc.u.mulation of knowledge and his consequent power of organization and government. He has destroyed the conditions under which the animals prospered. He has, as we might say, destroyed their home life, exposing them to dangers of his own making against which they are now as powerless as he was once against them. 'It is a remarkable thing,' writes Sir E. Ray Lankester,

which possibly may be less generally true than our present knowledge seems to suggest--that the adjustment of organisms to their surroundings is so severely complete in Nature apart from Man, that diseases are unknown as constant and normal phenomena under those conditions. It is no doubt difficult to investigate this matter, since the presence of Man as an observer itself implies human intervention. But it seems to be a legitimate view that every disease to which animals (and probably plants also) are liable, excepting as a transient and very exceptional occurrence, is due to Man's interference. The diseases of cattle, sheep, pigs, and horses are not known except in domesticated herds and those wild creatures to which Man's domesticated productions have communicated them. The trypanosome lives in the blood of wild game and of rats without producing mischief. The hosts have become tolerant of the parasite. It is only when man brings his unselected, humanly-nurtured races of cattle and horses into contact with the parasite, that it is found to have deadly properties. The various cattle-diseases which in Africa have done so much harm to native cattle, and have in some regions exterminated big game, have _per contra_ been introduced by man through his importation of diseased animals of his own breeding from Europe. Most, if not all, animals in extra-human conditions, including the minuter things such as insects, sh.e.l.lfish, and invisible aquatic organisms, have been brought into a condition of 'adjustment' to their parasites as well as to the other conditions in which they live: it is this most difficult and efficient balance of Nature which Man everywhere upsets.[54]

And Sir E. Ray Lankester goes on to point out the moral to be drawn from this development. He points out that

civilized man has proceeded so far in his interference with extra-human nature, has produced for himself and the living organisms a.s.sociated with him such a special state of things by his rebellion against natural selection and his defiance of Nature's pre-human dispositions, that he must either go on and acquire firmer control of the conditions, or perish miserably by the vengeance certain to fall on the half-hearted meddler in great affairs. We may indeed compare civilized man to a successful rebel against Nature, who, by every step forward, renders himself liable to greater and greater penalties, and so cannot afford to pause or fail in one single step. Or again we may think of him as the heir to a vast and magnificent kingdom, who has been finally educated so as to take possession of his property, and is at length left alone to do his best; he has wilfully abrogated, in many important respects, the laws of his mother Nature by which the kingdom was. .h.i.therto governed; he has gained some power and advantage by so doing, but is threatened on every hand by dangers and disasters. .h.i.therto restrained: no retreat is possible--his only hope is to control, as he knows that he can, the sources of these dangers and disasters.

The time will come, not too long hence, as I believe, when men have realized, with the scientists, that the world is one kingdom not many, and these problems of man's relation to his non-human environment will be the first concern of statesmen and governors. In some of our tropical colonies they have, perforce, become so already. If you live on the Gold Coast, the war against malaria cannot help seeming more important to you than the war against German trade: and in parts of Central Africa the whole possibility of continued existence centres round the presence or absence of the tsetse fly which is the carrier of sleeping sickness.

Some day, when means have been adopted for abating our fiercer international controversies, we shall discover that in these and kindred matters lies the real province of world-politics. When that day comes the chosen representatives of the human race will see their const.i.tuents, as only philosophers see them now, as the inheritors of a great tradition of service and achievement, and as trustees for their successors of the manifold sources of human happiness which the advance of knowledge has laid open to us.

If the first and most important of these sources is the discovery of the conditions of physical well-being, the second is the discovery of means of communication between the widely separate portions of man's kingdom. The record of the process of bringing the world under the control of the organized government of man is largely the record of the improvement of communications. Side by side with the unending struggle of human reason against cold and hunger and disease we can watch the contest against distance, against ocean and mountain and desert, against storms and seasons. There can be few subjects more fascinating for a historian to study than the record of the migrations of the tribes of men. He might begin, if he wished, with the migrations of animals and describe the westward progress of the many species whose course can be traced by experts along the natural highways of Western Europe. Some of them, so the books tell us, reached the end of their journey while Britain was still joined to the continent. Others arrived too late and were cut off by the straits of Dover. I like to form an imaginary picture, which the austerity of the scientific conscience will, I know, repudiate with horror, of the unhappy congregation, mournfully a.s.sembled bag and baggage on the edge of the straits and gazing wistfully across at the white cliffs of England, which they were not privileged to reach--_tendentesque ma.n.u.s ripae ulterioris amore_, 'stretching out their paws in longing for the further bank.'

Our historian would then go on to describe the early 'wanderings of peoples' (_Volkerwanderungen_) how whole tribes would move off in the spring-time in the search for fresh hunting-grounds or pasture. He would trace the course of that westward push which, starting from somewhere in Asia, brought its impact to bear on the northern provinces of the Roman Empire and eventually loosened its whole fabric. He would show how Europe, as we know it, was welded into unity by the attacks of migratory warriors on three flanks--the Huns and the Tartars, a host of hors.e.m.e.n riding light over the steppes of Russia and Hungary: the Arabs, bearing Islam with them on their camels as they moved westward along North Africa and then pushing across into Spain: and the Northmen of Scandinavia, those carvers of kingdoms and earliest conquerors of the open sea, who left their mark on England and northern France, on Sicily and southern Italy, on the Balkan Peninsula, on Russia, on Greenland, and as far as North America. Then, pa.s.sing to Africa and Asia, he would describe the life of the pack-saddle and the caravan, the long and mysterious inland routes from the Mediterranean to Nubia and Nigeria, or from Damascus with the pilgrims to Medina, and the still longer and more mysterious pa.s.sage through the ancient oases of Turkestan, now buried in sand, along which, as recent discoveries have shown us, Greece and China, Christianity and Buddhism, exchanged their arts and ideas and products. Then he would tell of the great age of maritime discovery, of the merchant-adventurers and buccaneers, of their gradual transformation into trading companies, in the East and in the West, from companies to settlements, from settlements to colonies. Then perhaps he would close by casting a glimpse at the latest human migration of all, that which takes place or took place up to 1914, at the rate of a million a year from the Old World into the United States. He would take the reader to Ellis Island in New York harbour, where the immigrants emerge from the steerage to face the ordeal of the Immigration Officer. He would show how the same causes, hunger, fear, persecution, restlessness, ambition, love of liberty, which set the great westward procession in motion in the early days of tribal migration, are still alive and at work to-day among the populations of Eastern Europe. He would look into their minds and read the story of the generations of their nameless fore-runners; and he would ask himself whether rulers and statesmen have done all that they might to make the world a home for all its children, for the poor as for the rich, for the Jew as for the Gentile, for the yellow and dark-skinned as for the white.

Let us dwell for a moment more closely on one phase of this record of the conquest of distance. The crucial feature in that struggle was the conquest of the sea. The sea-surface of the world is far greater than its land-surface, and the sea, once subdued, is a far easier and more natural means of transport and communication. For the sea, the uncultivable sea, as Homer calls it, is itself a road, whereas on earth, whether it be mountain or desert or field, roads have first painfully to be made. Man's definitive conquest of the sea dates from the middle of the fifteenth century when, by improvements in the art of sailing and by the extended use of the mariner's compa.s.s, it first became possible to undertake long voyages with a.s.surance. These discoveries are a.s.sociated with the name of Prince Henry of Portugal, whose life-long ambition it was, to quote the words engraved on his monument at the southern extremity of Portugal, 'to lay open the regions of West Africa across the sea, hitherto not traversed by man, that thence a pa.s.sage might be made round Africa to the most distant parts of the East.'

The opening of the high seas which resulted from Prince Henry's activities is one of the most momentous events in human history. Its effect was, sooner or later, to unite the scattered families of mankind, to make the problems of all the concern of all: to make the world one place. Prince Henry and his sailors were, in fact, the pioneers of internationalism, with all the many and varied problems that internationalism brings with it. 'In 1486,' says the most recent history of this development,

Bartholomew Dias was carried by storm beyond the sight of land, round the southern point of Africa, and reached the Great Fish River, north of Algoa Bay. On his return journey he saw the promontory which divides the oceans, as the narrow waters of the Bosphorus divide the continents, of the East and West. As in the crowded streets of Constantinople, so here, if anywhere, at this awful and solitary headland the elements of two hemispheres meet and contend. As Dias saw it, so he named it, 'The Cape of Storms'. But his master, John II, seeing in the discovery a promise that India, the goal of the national ambition, would be reached, named it with happier augury 'The Cape of Good Hope'. No fitter name could have been given to that turning-point in the history of mankind. Europe, in truth, was on the brink of achievements destined to breach barriers, which had enclosed and diversified the nations since the making of the World, and commit them to an intercourse never to be broken again so long as the World endures. That good rather than evil may spring therefrom is the greatest of all human responsibilities.[55]

The contrast between Constantinople and the Cape, so finely drawn in these lines, marks the end of the age when land-communications and land-power were predominant over sea-power. The Roman Empire was, and could only be, a land-power. It is no accident that the British Commonwealth is, as the American Commonwealth is fast becoming, predominantly a sea-power.

How was 'the greatest of all human responsibilities', arising from this new intercourse of races, met? Knowledge, alas, is as much the devil's heritage as the angels': it may be used for ill, as easily as for good.

The first explorers, and the traders who followed them, were not idealists but rough adventurers. Breaking in, with the full tide of western knowledge and adaptability, to the quiet backwaters of primitive conservatism, they brought with them the worse rather than the better elements of the civilization, the control of environment, of which they were pioneers. To them Africa and the East represented storehouses of treasure, not societies of men; and they treated the helpless natives accordingly.

England and Holland as well as the Latin monarchies treated the natives of Africa as chattels without rights and as instruments for their own ends, and revived slavery in a form and upon a scale more cruel than any practised by the ancients. The employment of slaves on her own soil has worked the permanent ruin of Portugal. The slave trade with America was an important source of English wealth, and the philosopher John Locke did not scruple to invest in it.

There is no European race which can afford to remember its first contact with the subject peoples otherwise than with shame, and attempts to a.s.sess their relative degrees of guilt are as fruitless as they are invidious. The question of real importance is how far these various states were able to purge themselves of the poison, and rise to a higher realization of their duty towards their races whom they were called by the claims of their own superior civilization to protect. The fate of that civilization itself hung upon the issue.[56]

The process by which the Western peoples have risen to a sense of their duty towards their weaker and more ignorant fellow citizens is indeed one of the chief stages in that progress of the common life of mankind with which we are concerned.

How is that duty to be exercised? The best way in which the strong can help the weak is by making them strong enough to help themselves. The white races are not strong because they are white, or virtuous because they are strong. They are strong because they have acquired, through a long course of thought and work, a mastery over Nature and hence over their weaker fellow men. It is not virtue but knowledge to which they owe their strength. No doubt much virtue has gone to the making of that knowledge--virtues of patience, concentration, perseverance, unselfishness, without which the great body of knowledge of which we are the inheritors could never have been built up. But we late-born heirs of the ages have it in our power to take the knowledge of our fathers and cast away any goodness that went to its making. We have come into our fortune: it is ours to use it as we think best. We cannot pa.s.s it on wholesale, and at one step, to the more ignorant races, for they have not the inst.i.tutions, the traditions, the habits of mind and character, to enable them to use it. Those too we must transmit or develop together with the treasure of our knowledge. For the moment we stand in the relation of trustees, teachers, guides, governors, but always in their own interest and not ours, or rather, in the interest of the commonwealth of which we and they, since the opening of the high seas, form an inseparable part.

It has often been thought that the relation of the advanced and backward races should be one purely of philanthropy and missionary enterprise rather than of law and government. It is easy to criticize this by pointing to the facts of the world as we know it--to the existing colonial empires of the Great Powers and to the vast extension of the powers of civilized governments which they represent. But it may still be argued that the question is not Have the civilized powers annexed large empires? but Ought they to have done so? Was such an extension of governmental authority justifiable or inevitable? Englishmen in the nineteenth century, like Americans in the twentieth, were slow to admit that it was; just as the exponents of _laissez-faire_ were slow to admit the necessity for State interference with private industry at home. But in both cases they have been driven to accept it by the inexorable logic of facts. What other solution of the problem, indeed, is possible? 'Every alternative solution', as a recent writer remarks,[57]

breaks down in practice. To stand aside and do nothing under the plea that every people must be left free to manage its own affairs, and that intervention is wicked, is to repeat the tragic mistake of the Manchester School in the economic world which protested against any interference by the State to protect workmen ... from the oppression and rapacity of employers, on the ground that it was an unwarranted interference with the liberty of the subject and the freedom of trade and compet.i.tion. To prevent adventurers from entering the territory is impossible, unless there is some civilized authority within it to stop them through its police. To shut off a backward people from all contact with the outside world by a kind of blockade is not only unpracticable, but is artificially to deny them the chances of education and progress. The establishment of a genuine government by a people strong enough and liberal enough to ensure freedom under the law and justice for all is the only solution.... They must undertake this duty, not from any pride of dominion, or because they wish to exploit their resources, but in order to protect them alike from oppression and corruption, by strict laws and strict administration, which shall bind the foreigner as well as the native, and then they must gradually develop, by education and example, the capacity in the natives to manage their own affairs.

Thus we see that the progress in knowledge and in the control of their environment made by the civilized peoples has, in fact and inevitably, led to their leadership in government also, and given them the predominant voice in laying down the lines along which the common life of mankind is to develop. If we are to look for the mainspring of the world's activities, for the place where its new ideas are thought out, its policies framed, its aspirations cast into practical shape, we must not seek it in the forests of Africa or in the interior of China, but in those busy regions of the earth's surface where the knowledge, the industries, and all the various organizations of government and control find their home. Because organization is embodied knowledge, and because knowledge is power, it is the Great Powers, as we truly name them,[58]

who are predominantly responsible for the government of the world and for the future of the common life of mankind.

In the exercise of this control the world has already, in many respects, become a single organism. The conquest of distance in the fifteenth century was the beginning of a process which led, slowly but inevitably, to the widening of the boundaries of government. Two discoveries made about the same time accentuated the same tendency. By the invention of gunpowder the people of Europe were given an overwhelming military superiority over the dwellers in other continents. By the invention of printing, knowledge was internationalized for all who had the training to use it. Books are the tools of the brain-worker all the world over; but, unlike the file and the chisel, the needle and the hammer, books not only create, but suggest. A new idea is like an electric current set running throughout the world, and no man can say into what channels of activity it may not be directed.

But neither travel nor conquest nor books and the spread of ideas caused so immense a transformation in the common life of mankind as the process beginning at the end of the eighteenth century which is known to historians as the Industrial Revolution. As we have spoken of the conquest of distance perhaps a better name for the Industrial Revolution would be the Conquest of Organization. For it was not the discovery of the steam-engine or the spinning-jenny which const.i.tuted the revolution: it was the fact that men were now in a position to apply these discoveries to the organization of industry. The ancient Greeks played with the idea of the steam-engine: it was reserved for eighteenth-century England to produce a generation of pioneers endowed with the knowledge, the power, the foresight, and the imagination to make use of the world-transforming potentialities of the idea. The Industrial Revolution, with its railways and steamships, telegraphs and telephones, and now its airships and submarines and wireless communication, completed the conquest of distance. Production became increasingly organized on international lines. Men became familiar with the idea of an international market. Prices and prospects, booms and depressions, banking and borrowing, became international phenomena. The organization of production led to an immensely rapid increase of wealth in Western Europe. The application of that wealth to the development of the world's resources in and outside Europe led to a correspondingly huge advance in trade and intercourse. The breakfast-table in an ordinary English home to-day is a monument to the achievements of the Industrial Revolution and to the solid reality of the economic internationalism which resulted from it. There is still poverty in Western Europe, but it is preventable poverty. Before the Industrial Revolution, judged by a modern standard, there was nothing but poverty.

The satisfying physical and economic condition which we describe by the name of comfort did not exist. The Italian historian Ferrero, in one of his essays, recommends those who have romantic yearnings after the good old times to spend one night on what our forefathers called a bed. Mr.

Coulton, in his books on the Middle Ages, has used some very plain language on the same text. And Professor Smart, in his recently published posthumous work, pointing a gentle finger of rebuke at certain common Socialist fantasies, remarks:

There never was a golden age of equality of wealth: there was rather a leaden one of inequality of poverty.... We should speak more guardedly of the riches of the old world.

A careful examination of any old book would show that the most splendid processions of pomp and luxury in the Middle Ages were poor things compared to the parade of a modern circus on its opening day.[59]

Such prosperity as we enjoy to-day, such a scene as we can observe on these smiling outskirts of Birmingham, is due to man's Conquest of Organization and to the consequent development and linking-up, by mutual intercourse and exchange, of the economic side of the world's life.

So far we have been watching the progress of man in his efforts to 'make himself at home' in the world. We have seen him becoming more skilful and more masterful century by century, till in these latter days the whole world is, as it were, at his service. He has planted his flag at the two poles: he has cut a pathway for his ships between Asia and Africa, and between the twin continents of America: he has harnessed torrents and cataracts to his service: he has conquered the air and the depths of the sea: he has tamed the animals: he has rooted out pestilence and laid bare its hidden causes: and he is penetrating farther and ever farther in the discovery of the causes of physical and mental disease. He has set his foot on the neck of Nature. But the last and greatest conquest is yet before him. He has yet to conquer himself.

Victorious against Nature, men are still at war, nay, more than ever at war, amongst themselves. How is it that the last century and a half, which have witnessed so unparalleled an advance in the organization of the common life of man on the material side, should have been an age of wars and rumours of wars, culminating in the vastest and most destructive conflict that this globe of ours has ever witnessed? What explanation could we give of this to a visitor from the moon or to those creatures of inferior species whom, as Sir E. Ray Lankester has told us, it is our function, thanks to our natural superiority, to command and control?

This brings us to the second great branch of our subject--the progress of mankind in the art of living together in the world.

Government, as we have seen, covers the whole social life of man: for the principles that regulate human a.s.sociation are inherent in the nature of man. But in what follows we shall perforce confine ourselves mainly to the sphere of what is ordinarily called politics, that is to the recognized and authoritative form of human a.s.sociation called the State, as opposed to the innumerable subordinate or voluntary bodies and relationships, which pervade every department of man's common life.

The progress of Government in this second sphere may be defined as the deepening and extension of man's duty towards his neighbour. It is to be reckoned, not in terms of knowledge and organization, but of character.

The ultimate goal of human government, in the narrower sense, as of all social activity--let us never forget it--is liberty, to set free the life of the spirit. 'Liberty,' said Lord Acton, who could survey the ages with a wealth of knowledge to which no other man, perhaps, ever attained, 'Liberty is not a means to a higher political end. It is itself the highest political end. It is not for the sake of a good public administration that it is required but for security in the pursuit of the highest objects of civil society and of private life.'[60] Government is needed in order to enable human life to become, not efficient or well-informed or well-ordered, but simply good; and Lord Acton believed, as the Greeks and generations of Englishmen believed before him, that it is only in the soil of liberty that the human spirit can grow to its full stature, and that a political system based upon any other principle than that of responsible self-government acts as a bar at the outset to the pursuit of what he called 'the highest objects of civil society or of private life'. For though a slave, or a man living under a servile political system, may develop many fine qualities of character: yet such virtues will, in Milton's words, be but 'fugitive and cloistered', 'unexercised and unbreathed'.

For liberty, and the responsibilities that it involves, are the school of character and the appointed means by which men can best serve their neighbours. A man deprived of such opportunities, cut off from the quickening influence of responsibility, has, as Homer said long ago 'lost half his manhood'. He may be a loyal subject, a brave soldier, a diligent and obedient workman: but he will not be a full-grown man.

Government will have starved and stunted him in that which it is the supreme object of government to develop and set free.

It is idle, then, to talk in general terms about the extension of government as a good thing, whether in relation to the individual citizen or to the organization of the world into an international State.

We have always first to ask: What kind of Government? On what principles will it be based? What ideal will it set forth? What kind of common life will it provide or allow to its citizens? If the whole world were organized into one single State, and that State, supreme in its control over Nature, were armed with all the knowledge and organization that the ablest and most fa.r.s.eeing brains in the world could supply, yet mankind might be worse off under its sway, in the real essentials of human life, than if they were painted savages. 'Though I have the gift of prophecy and understand all mysteries and all knowledge: and though I have all faith, so that I could remove mountains, and have not charity, I am nothing.' Government may be the organization of goodness, or the organization of evil. It may provide the conditions by which the common life of society can develop along the lines of man's spiritual nature: or it may take away the very possibility of such a development. Till we know what a Government stands for, do not let us judge it by its imposing externals of organization. The Persian Empire was more imposing than the Republics of Greece: a.s.syria and Babylon than the little tribal divisions of Palestine: the Spanish Empire than the cities of the Netherlands. There is some danger that, in our new-found sense of the value of knowledge in promoting happiness, we should forget what a tyrant knowledge, like wealth, can become. No doubt, just as we saw that moral qualities, patience and the like, are needed for the advancement of knowledge, so knowledge is needed, and greatly needed, in the task of extending and deepening the moral and spiritual life of mankind. But we cannot measure that progress in terms of knowledge or organization or efficiency or culture. We need some other standard by which to judge between Greece and Persia, between Israel and Babylon, between Spain and the Netherlands, between Napoleon and his adversaries, and between contending powers in the modern world. What shall that standard be?

It must be a similar standard--let us boldly say it--to that by which we judge between individuals. It must be a standard based on our sense of right and wrong. But right and wrong in themselves will not carry us very far, any more than they will carry the magistrate on the bench or the merchant in his counting-house. Politics, like business, is not the whole of life--though some party politicians and some business men think otherwise--but a department of life: both are means, not ends; and as such they have developed special rules and codes of their own, based on experience in their own special department. In so far as they are framed in accordance with man's spiritual nature and ideals these rules may be considered to hold good and to mark the stage of progress at which Politics and Business have respectively arrived in promoting the common weal in their own special sphere. With the rules of business, or what is called Political Economy, we have at the moment no concern. It is the rules of politics, or the working experience of rulers, crystallized in what is called Political Science or Political Philosophy, to which we must devote a few moments' attention.

We are all of us, of course, political philosophers. Whether we have votes or not, whether we are aware of it or not, we all have views on political philosophy and we are all constantly making free use of its own peculiar principles and conceptions. Law, the State, Liberty, Justice, Democracy are words that are constantly on our lips. Let us try to form a clear idea of the place which these great historic ideals occupy in the progress of mankind.

The great political thinkers of the world have always been clear in their own minds as to the ultimate goal of their own particular study.

Political thought may be said to have originated with the Jewish prophets, who were the first to rebuke kings to their faces and to set forth the spiritual aims of politics--to preach Righteousness and Mercy as against Power and Ambition and Self-interest. Their soaring imagination, less systematic than the Greek intellect, was wider in its sweep and more fa.r.s.eeing in its predictions. 'As the earth bringeth forth her bud and as the garden causeth the things sown in it to spring forth', says Isaiah, in magnificent antic.i.p.ation of the doctrine of Natural Law, 'so the Lord G.o.d will cause righteousness and praise to spring forth before all the nations.' 'Peace, peace, to him that is far off, and to him that is near, saith the Lord, and I will heal him: but the wicked are like the troubled sea when it cannot rest, whose waters cast up mire and dirt. There is no peace, saith my G.o.d, for the wicked.'

'Out of Zion shall go forth the Law and the word of the Lord from Jerusalem. And he shall judge between the nations and shall reprove many peoples; and they shall beat their swords into plowshares and their spears into pruning hooks: nation shall not lift up sword against nation, neither shall they learn war any more.'[61]