politics, and indicates the manner in which the evolution of society
has resulted from the constant attempt of individuals to strain its
bonds. If individuality has no play, society does not advance; if
individuality breaks out of all bounds, society perishes.

But when men living in society once become aware that their welfare
depends upon, two opposing tendencies of equal importance--the one
restraining, the other encouraging, individual freedom--the
question "What are the functions of Government?" is translated into
another--namely, What ought we men, in our corporate capacity, to do,
not only in the way of restraining that free individuality which is
inconsistent with the existence of society, but in encouraging that
free individuality which is essential to the evolution of the
social organization? The formula which truly defines the function of
Government must contain the solution of both the problems involved,
and not merely of one of them.

Locke has furnished us with such a formula, in the noblest, and at the
same time briefest, statement of the purpose of Government known to
me:--

"THE END OF GOVERNMENT IS THE GOOD OF MANKIND."[1]

[Footnote 1: "Of Civil Government," § 229.]

But the good of mankind is not a something which is absolute and
fixed for all men, whatever their capacities or state of civilization.
Doubtless it is possible to imagine a true "Civitas Dei," in which
every man's moral faculty shall be such as leads him to control all
those desires which run counter to the good of mankind, and to cherish