THE FUNCTIONS OF GOVERNMENT 275 
(i. e., in the patriarchate, in which organization rests on consanguinity 
traced in the male line), the elder-man becomes vicar or priest, and 
hence law-giver and judge as well as both administrative and executive 
—as when a patriarch communes with his deity over sacrificing a son 
or daughter, or a kalif commands of his own impeccability, sits in judg- 
ment, awards and rewards, imposes and deposes, and (like a later 
emperor) personifies the state; yet his primary power is imputed mainly 
or solely to that supernatural source of which he is deemed but the 
agent. With the growth of cities and those civic usages in which the 
organization arises in proprietary right (especially in lands), rulers 
long remain vicars of mystical or spiritual powers manifested in symbols 
and ceremonies though often exercised through arms and armies; and 
until within recent centuries each monarchy was virtually a hierarchy 
whose king or emperor stood—panoplied in the “ divinity which doth 
hedge about a king ”—as the source and exponent of both temporal and 
spiritual power, performing so much as he would of all governmental 
functions, his rule ranging from hierarchic to autocratic according to 
the faith and custom of the time. Gradually (the rate being vastly ac- 
celerated by the American Revolution) the monarchs surrendered legis- 
lative functions, delegated judicative powers, divided administrative 
and executive duties with the agents of parliaments and courts, some- 
times shared their vicarial powers with ecclesiastic potentates, and began 
yielding to the inevitable growth of petition into suffrage; yet no mon- 
arch was ever quite independent of putative supernatural powers resid- 
ing within or conveyed through his own personality, or of the symbolism 
_ or ceremonial tending to perpetuate the imputation. 
In brief, during each stage of governmental growth from the sim- 
plicity of primal clan to the pomp and circumstance of gilded empire, 
the primary functions remain much the same despite sweeping changes 
in structure. In logical order the functions are (I.) initiatory, and 
(II.) directive, the former connoting the source and the latter the aim 
or control of institutional power. In genetic sequence, or in that order 
of successive manifestation illustrated, e. g., in the natural family of 
which the clan, gens, city and nation are outgrowths, they are (a) 
auministrative, or concerned with the current regulation of every-day 
affairs; (2) legislative, or concerned with the establishment of rules 
of conduct (always finally adopted only through common consent) ; (3) 
judicative, or concerned with the peaceful settlement of disputes in 
accordance with custom and established rules; (4) executive, or con- 
cerned chiefly with the carrying out of rules and judicative decisions : 
and as the natural source of power gradually comes into ratiocinative 
view in the light of the general good, (5) determinative, or concerned 
with the primary expression of common judgment and desire. 
Now when the founders of the American nation undertook to frame 
