POLITICAL ORGANIZATION IN GENERAL. 147 



greatly farthers combined action. From the beginning, therefore, this 

 kind of social cooperation is a conscious cooperation, and a cooperation 

 which is not wholly a matter of choice is often much at variance with 

 private wishes. As the organization initiated by it develops, we see 

 that, in the first place, the fighting division of the society displays in a 

 more marked degree these same traits ; the grades and divisions con- 

 stituting an army cooperate more and more under a regulation, con- 

 sciously established, of agencies which override individual volitions 

 or, to speak strictly, control individuals by motives which prevent them 

 from acting as they would spontaneously act. In the second place, we 

 see that, throughout the society as a whole, there spreads a kindred 

 form of organization kindred in so far that, for the purpose of main- 

 taining the militant organization and the government which directs it, 

 there are similarly established over citizens agencies which force them 

 to labor more or less largely for public ends instead of private ends. 

 And, simultaneously, there develops a further organization, still akin 

 in its fundamental principle, which restrains individual activities in 

 such wise that social safety shall not be endangered by the disorder 

 consequent on imchecked pursuit of personal ends. So that this kind 

 of social organization is distinguished from the other, as arising through 

 conscious pursuit of public ends, in furtherance of which individual 

 wills are constrained, first of all by the joint wills of the entire group, 

 and afterward more definitely by the will of a regulative agency which 

 the group evolves. 



Most clearly shall we perceive the contrast between these two kinds 

 of organization on obseiwing that, while they are both instrumental to 

 social welfare, they are instrumental in converse ways. That organi- 

 zation shown us by the division of labor for industrial purposes exhib- 

 its combined action ; but it is a combined action w^hich directly seeks 

 and subserves the welfares of individuals, and indirectly subserves the 

 welfare of society as a whole by pi'eserving individuals. Conversely, 

 that kind of organization evolved for governmental and defensive pur- 

 poses exhibits combined action ; but it is a combined action which 

 directly seeks and subserves the welfare of the society as a whole, and 

 indirectly subserves the welfares of individuals by preserving the 

 society. Efforts for self-preservation by the units originate the one 

 form of oi-ganization ; while efforts for self-preservation by the aggre- 

 gate originate the other form of organization. In the one case there is 

 conscious pursuit of private ends only ; and the correlative organization 

 resulting from this pursuit of private ends, growing up unconsciously, 

 is without coercive power. In the other case there is conscious pursuit 

 of public ends ; and the correlative organization, consciously estab- 

 lished, exercises coercion. 



Of these two kinds of cooperation and the structui'es effecting them, 

 we are here concerned only with one. Political organization is to be 

 understood as that part of social organization which consciously carries 



