POLITICAL ORGANIZATION IN GENERAL. 247 



endangered by the disorder consequent on unchecked pursuit 

 of personal ends. So that this kind of social organization is 

 distinguished from the other, as arising through conscious 

 pursuit of public ends ; in furtherance of which individual 

 wills are constrained, first by the joint wills of the entire 

 group, and afterwards more definitely by the will of a regu 

 lative agency which the group evolves. 



Most clearly shall we perceive the contrast between these 

 two kinds of organization on observing that, while they are 

 both instrumental to social welfare, they are instrumental in 

 converse ways. That organization shown us by the division 

 of labour for industrial purposes, exhibits combined action ; 

 but it is a combined action which directly seeks and subserves 

 the welfares of individuals, and indirectly subserves the 

 welfare of society as a whole by preserving individuals. 

 Conversely, that organization evolved for governmental and 

 defensive purposes, exhibits combined action ; but it is a com 

 bined action which directly seeks and subserves the welfare 

 of the society as a whole, and indirectly subserves the wel 

 fares of individuals by protecting the society. Efforts for 

 self-preservation by the units originate the one form of 

 organization ; while efforts for self-preservation by the aggre 

 gate originate the other form of organization. In the first 

 case there is conscious pursuit of private ends only ; and the 

 correlative organization resulting from this pursuit of private 

 ends, growing up unconsciously, is without coercive power. 

 In the second case there is conscious pursuit of public ends ; 

 and the correlative organization, consciously established, 

 exercises coercion. 



Of these two kinds of cooperation and the structures 

 effecting them, we are here concerned only with one. Poli 

 tical organization is to be understood as that part of social 

 organization which consciously carries on directive and re 

 straining functions for public ends. It is true, as already 

 hinted, and as we shall see presently, that the two kinds are 

 mingled in various ways that each ramifies through the 



