POLITICAL HEADS CHIEFS, KINGS, ETC. 357 



without impiety, or where he unites the characters of con 

 queror and god, he naturally absorbs every kind of authority. 

 He is at once military head, legislative head, judicial head, 

 ecclesiastical head. The fully developed king is the supreme 

 centre of every social structure and director of every social 

 function. 



480. In a small tribe it is practicable for the chief per 

 sonally to discharge all the duties of his office. -Besides 

 leading the other warriors in battle, he has time to settle 

 disputes, he can sacrifice to the ancestral ghost, he can keep 

 the village in order, he can inflict punishments, he can regu 

 late trading transactions ; for those governed by him are but 

 few, and they live within a narrow space. When he acquires 

 the headship of many united tribes, both the increased 

 amount of business and the wider area covered by his sub 

 jects, put difficulties in the way of exclusively personal 

 administration. It becomes necessary to employ others for 

 the purposes of gaining information, conveying commands, 

 seeing them executed ; and in course of time the assistants 

 thus employed grow into established heads of departments 

 with deputed authorities. 



While this development of governmental structures in 

 creases the ruler s power, by enabling him to deal with more 

 numerous affairs, it, in another way, decreases his power ; for 

 his actions are more and more modified by the instrumentali 

 ties through which they are effected. Those who watch the 

 working of administrations, no matter of what kind, have 

 forced upon them the truth that a head regulative agency is 

 at once helped and hampered by its subordinate agencies. 

 In a philanthropic association, a scientific society, or a club, 

 those who govern find that the organized officialism which 

 they have created, often impedes, and not unfrequently 

 defeats, their aims. Still more is it so with the immensely 

 larger administrations of the State. Through deputies the 

 ruler receives his information; by them his orders are 



