within reach, of educating the mind of the nation not only for
accepting or claiming, but also for working, the institution. What
means had Italian patriots, during the last and present generation, of
preparing the Italian people for freedom in unity, but by inciting
them to demand it? Those, however, who undertake such a task, need to
be duly impressed, not solely with the benefits of the institution or
polity which they recommend, but also with the capacities, moral,
intellectual, and active, required for working it; that they may
avoid, if possible, stirring up a desire too much in advance of the
capacity.

The result of what has been said is, that, within the limits set by
the three conditions so often adverted to, institutions and forms of
government are a matter of choice. To inquire into the best form of
government in the abstract (as it is called) is not a chimerical, but
a highly practical employment of scientific intellect; and to
introduce into any country the best institutions which, in the
existing state of that country, are capable of, in any tolerable
degree, fulfilling the conditions, is one of the most rational
objects to which practical effort can address itself. Every thing
which can be said by way of disparaging the efficacy of human will and
purpose in matters of government might be said of it in every other of
its applications. In all things there are very strict limits to human
power. It can only act by wielding some one or more of the forces of
nature. Forces, therefore, that can be applied to the desired use must
exist; and will only act according to their own laws. We can not make
the river run backwards; but we do not therefore say that watermills
"are not made, but grow." In politics, as in mechanics, the power
which is to keep the engine going must be sought for _outside_ the
machinery; and if it is not forthcoming, or is insufficient to