Xr ADMINISTRATIVE KEPORT [etii. as-x.20 



names ot" units of the same order, altliongli tlie different terms 

 are used in different sections of the conntry and under differ- 

 ent conditions. The fVunihes which constitute the townships 

 are also org'anized into comities. iSometinies a city embraces 

 more than (me county, but usually the people of the city and 

 the people of the countv are identical. The families of town- 

 ships and of counties are organized into states. Here we adopt 

 Amei'ican usage in the names of the subordinate units of the 

 nation. The people of the states are organized into the nation 

 wdiich we call the United States of America. Wherever the 

 Eno-lish lang-uaa'e issi)oken this nation is known as the Ameri- 

 can nation. In considering this organization we must clearly 

 conceive of its miit;; as a hierarchv of subordinate units in the 

 uation;\l unit, and recognize that the nation is not something 

 different in its personnel from the states, the state not some- 

 thing different in its personnel from the counties of wdiich it is 

 composed, the county not something different in its personnel 

 from the townships of which it is composed, and the township 

 not something different from the families ()f which it is com- 

 posed, but that the people are organized in this manner by 

 the territorial g-rouping of their domiciles for the purpose of 

 promoting and securing justice, and that jiart of the social 

 relations of the jieople are regulated l)y the agencies of the 

 nation, another part by the agencies of the state, another by 

 the countv, anotlier bA' the township, and another b}^ the 

 family. Thus rights and duties are parceled out among the 

 units of "overnmental orgfanization. 



Over those relations which the nation controls, its organs 

 are of sujireme authoritv. but it does not control those rela- 

 tions which are relegated to the state governments, nor do the 

 states assume to control the relations relegated to the counties, 

 nor do the counties assume to control the relations relegated 

 to the townships, nor do the townships assume -to control those 

 relations relegated to the families. At <me j^eriod the differ- 

 entiation l)etween national and state government may differ 

 from the differentiation which prevails in another period; but 

 when tliis differentiation is changed, it must be done by a 

 change in the written constitution snl)mitted to the states sev- 



