MINISTRIES. 449 



on by the soldiery. Naturally in respect of these administra 

 tive offices, as in respect of all other places of power, there 

 arises a conflict between the chiefs of the warrior class, who 

 are the agents of the terrestrial ruler, and the chiefs of the 

 clerical class, who profess to be agents of the celestial ruler ; 

 and the predominance of the one or the other class, is in 

 many cases implied by the extent to which it fills the chief 

 offices of State. 



Such facts show us that where there has not yet been 

 established any regular process for making the chief advisers 

 and agents of the ruler into authorized exponents of public 

 opinion, there nevertheless occurs an irregular process by 

 which some congruity is maintained between the actions of 

 these deputy rulers and the will of the community ; or, at 

 any rate, the will of that part which can express its will. 



506. Were elaboration desirable, and collection of the 

 needful data less difficult, a good deal might here be added 

 respecting the development of ministries. 



Of course it could, in multitudinous cases, be shown 

 how, beginning as simple, they become compound the soli 

 tary assistant to the chief, helping him in all ways, develop 

 ing into the numerous great officers of the king, dividing 

 among them duties which have become extensive and in 

 volved. Along with this differentiation of a ministry might 

 also be traced the integration of it that takes place under 

 certain conditions : the observable change being from a state 

 in which the departmental officers separately take from the 

 ruler their instructions, to a state in which they form an 

 incorporated body. There might be pursued an inquiry 

 lespecting the conditions under which this incorporated body 

 gains power and accompanying responsibility ; with the pro 

 bable result of showing that development of an active 

 executive council, and accompanying reduction of the original 

 executive head to an automatic state, characterizes that re 

 presentative form of government proper to the industrial 



