POLITICAL ORGANIZATION IN GENERAL. 245 



generally co-exist, and are more or less interfused, yet they 

 are distinct in their origins and natures. There is a spon 

 taneous cooperation which grows up without thought during 

 the pursuit of private ends ; and there is a cooperation which, 

 consciously devised, implies distinct recognition of public 

 ends. The ways in which the two are respectively established 

 and carried on, present marked contrasts. 



Whenever, in a primitive group, there begins that coopera 

 tion which is effected by exchange of services whenever 

 individuals find their wants better satisfied by giving certain 

 products which they can make best, in return for other pro 

 ducts they are less skilled in making, or not so well circum 

 stanced for making, there is initiated a kind of organization 

 which then, and throughout its higher stages, results from 

 endeavours to meet personal needs. Division of labour, 

 to the last as at first, grows by experience of mutual facilita 

 tions in living. Each new specialization of industry arises 

 from the effort of one who commences it to get profit ; and 

 establishes itself by conducing in some way to the profit of 

 others. So that there is a kind of concerted action, with an 

 elaborate social organization developed by it, which does not 

 originate in deliberate concert. Though within the small sub 

 divisions of this organization, we find everywhere repeated 

 the relation of employer and employed, of whom the one 

 directs the actions of the other; yet this relation, sponta 

 neously formed in aid of private ends and continued only at 

 will, is not formed with conscious reference to achievement of 

 public ends: these are not thought of. And though, for 

 regulating trading activities, there arise agencies serving to 

 adjust the supplies of commodities to the demands ; yet such 

 agencies do this not by direct stimulations or restraints, but 

 by communicating information which serves to stimulate or 

 restrain; and, further, these agencies grow up not for the 

 avowed purpose of thus regulating, but in the pursuit of gain 

 by individuals. So unintentionally has there arisen the 

 elaborate division of labour by which production and distil- 



