THE FUNCTIONS OF GOVERNMENT 275 



(i. e., in the patriarchate, in which organization rests on consanguinity 

 traced in the male line), the elder-man becomes vicar or priest, and 

 hence law-giver and judge as well as both administrative and executive 

 — as when a patriarch communes with his deity over sacrificing a son 

 or daughter, or a kalif commands of his own impeccability, sits in judg- 

 ment, awards and rewards, imposes and deposes, and (like a later 

 emperor) personifies the state; yet his primary power is imputed mainly 

 or solely to that supernatural source of which he is deemed but the 

 agent. "With the growth of cities and those civic usages in which the 

 organization arises in proprietary right (especially in lands), rulers 

 long remain vicars of mystical or spiritual powers manifested in symbols 

 and ceremonies though often exercised through arms and armies ; and 

 until within recent centuries each monarchy was virtually a hierarchy 

 whose king or emperor stood — panoplied in the " divinity which doth 

 hedge about a king " — as the source and exponent of both temporal and 

 spiritual power, performing so much as he would of all governmental 

 functions, his rule ranging from hierarchic to autocratic according to 

 the faith and custom of the time. Gradually (the rate being vastly ac- 

 celerated by the American Revolution) the monarchs surrendered legis- 

 lative functions, delegated judicative powers, divided administrative 

 and executive duties with the agents of parliaments and courts, some- 

 times shared their vicarial powers with ecclesiastic potentates, and began 

 yielding to the inevitable growth of petition into suffrage ; yet no mon- 

 arch was ever quite independent of putative supernatural powers resid- 

 ing within or conveyed through his own personally, or of the symbolism 

 or ceremonial tending to perpetuate the imputation. 



In brief, during each stage of governmental growth from the sim- 

 plicity of primal clan to the pomp and circumstance of gilded empire, 

 the primary functions remain much the same despite sweeping changes 

 in structure. In logical order the functions are (I.) initiatory, and 

 (II.) directive, the former connoting the source and the latter the aim 

 or control of institutional power. In genetic sequence, or in that order 

 of successive manifestation illustrated, e. g., in the natural family of 

 which the clan, gens, city and nation are outgrowths, they are (1) 

 administrative, or concerned with the current regulation of every-day 

 affairs; (2) legislative, or concerned with the establisbment of rules 

 of conduct (always finally adopted only through common consent) ; (3) 

 judicative, or concerned with the peaceful settlement of disputes in 

 accordance with custom and established rules; (4) executive, or con- 

 cerned chiefly with the carrying out of rules and judicative decisions; 

 and as the natural source of power gradually comes into ratiocinative 

 view in the light of the general good, (5) determinative, or concerned 

 with the primary expression of common judgment and desire. 



Now when the founders of the American nation undertook to frame 



