052 POLITICAL INSTITUTIONS. 



continue to display a contrast in some degree analogous to 

 that which they have displayed thus far. For however great 

 the degree of evolution reached by an industrial society, it 

 cannot abolish the distinction between the superior and the 

 inferior the regulators and the regulated. Whatever ar 

 rangements for carrying on industry may in times to come be 

 established, must leave outstanding the difference between 

 those whose characters and abilities raise them to the higher 

 positions, and those who remain in the lower. Even should 

 all kinds of production and distribution be eventually carried 

 on by bodies of cooperators, as a few are now to some extent, 

 such bodies must still have their appointed heads and com 

 mittees of managers. Either from an electorate constituted 

 not, of course, of a permanently-privileged class, but of a 

 class including all heads of industrial organizations, or from 

 an electorate otherwise composed of all persons occupied in 

 administration, a senate may perhaps eventually be formed 

 consisting of the representatives of directing persons as dis 

 tinguished from the representatives of persons directed. Of 

 course in the general government, as in the government of 

 each industrial body, the representatives of the class regu 

 lated must be ultimately supreme ; but there is reason for 

 thinking that the representatives of the regulating class 

 might with advantage exercise a restraining power. Evidently 

 the aspect of any law differs according as it is looked at from 

 above or from below by those accustomed to rule or by 

 those accustomed to be ruled. The two aspects require to be 

 coordinated. Without assuming that differences between the 

 interests of these bodies will, to the last, make needful dif 

 ferent representations of them, it may reasonably be con 

 cluded that the higher, experienced in administration, may 

 with advantage bring its judgments to bear in qualifying the 

 judgments of the lower, less conversant with affairs ; and that 

 social needs are likely to be most effectually met .by lawa 

 issuing from their joint deliberations. Far from suggesting 

 an ultimate unification of the two legislative bodies, the facts 



