going must be sought for outside the machinery； and if it is not forthcoming； or is insufficient to surmount the obstacles which may reasonably be expected； the contrivance will fail。 This is no peculiarity of the political art； and amounts only to saying that it is subject to the same limitations and conditions as all other arts。 At this point we are met by another objection； or the same objection in a different form。 The forces； it is contended； on which the greater political phenomena depend； are not amenable to the direction of politicians or philosophers。 The government of a country； it is affirmed； is； in all substantial respects； fixed and determined beforehand by the state of the country in regard to the distribution of the elements of social power。 Whatever is the strongest power in society will obtain the governing authority； and a change in the political constitution cannot be durable unless preceded or accompanied by an altered distribution of power in society itself。 A nation； therefore； cannot choose its form of government。 The mere details； and practical organisation； it may choose； but the essence of the whole； the seat of the supreme power； is determined for it by social circumstances。 That there is a portion of truth in this doctrine I at once admit； but to make it of any use； it must be reduced to a distinct expression and proper limits。 When it is said that the strongest power in society will make itself strongest in the government； what is meant by power？ Not thews and sinews； otherwise pure democracy would be the only form of polity that could exist。 To mere muscular strength； add two other elements； property and intelligence； and we are nearer the truth； but far from having yet reached it。 Not only is a greater number often kept down by a less； but the greater number may have a preponderance in property； and individually in intelligence； and may yet be held in subjection； forcibly or otherwise； by a minority in both respects inferior to it。 To make these various elements of power politically influential they must be organised； and the advantage in organisation is necessarily with those who are in possession of the government。 A much weaker party in all other elements of power may greatly preponderate when the powers of government are thrown into the scale； and may long retain its predominance through this alone： though； no doubt； a government so situated is in the condition called in mechanics unstable equilibrium； like a thing balanced on its smaller end； which； if once disturbed； tends more and more to depart from； instead of reverting to； its previous state。 But there are still stronger objections to this theory of government in the terms in which it is usually stated。 The power in society which has any tendency to convert itself into political power is not power quiescent； power merely passive； but active power； in other words； power actually exerted； that is to say； a very small portion of all the power in existence。 Politically speaking； a great part of all power consists in will。 How is it possible； then； to compute the elements of political power； while we omit from the computation anything which acts on the will？ To think that because those who wield the power in society wield in the end that of government； therefore it is of no use to attempt to influence the constitution of the government by acting on opinion； is to forget that opinion is itself one of the greatest active social forces。 One person with a belief is a social power equal to ninety…nine who have only interests。 They who can succeed in creating a general persuasion that a certain form of government； or social fact of any kind； deserves to be preferred； have made nearly the most important step which can possibly be taken towards ranging the powers of society on its side。 On the day when the proto…martyr was stoned to death at Jerusalem； while he who was to be the Apostle of the Gentiles stood by 〃consenting unto his death；〃 would any one have supposed that the party of that stoned man were then and there the strongest power in society？ And has not the event proved that they were so？ Because theirs was the most powerful of then existing beliefs。 The same element made a monk of Wittenberg； at the meeting of the Diet of Worms； a more powerful social force than the Emperor Charles the Fifth； and all the princes there assembled。 But these； it may be said； are cases in which religion was concerned； and religious convictions are something peculiar in their strength。 Then let us take a case purely political； where religion； so far as concerned at all； was chiefly on the losing side。 If any one requires to be convinced that speculative thought is one of the chief elements of social power； let him bethink himself of the age in which there was scarcely a throne in Europe which was not filled by a liberal and reforming king； a liberal and reforming emperor； or； strangest of all； a liberal and reforming pope； the age of Frederic the Great； of Catherine the Second； of Joseph the Second； of Peter Leopold； of Benedict XIV。； of Ganganelli； of Pombal； of Aranda； when the very Bourbons of Naples were liberals and reformers； and all the active minds among the noblesse of France were filled with the ideas which were soon after to cost them so dear。 Surely a conclusive example how far mere physical and economic power is from being the whole of social power。 It was not by any change in the distribution of material interests； but by the spread of moral convictions； that negro slavery has been put an end to in the British Empire and elsewhere。 The serfs in Russia owe their emancipation； if not to a sentiment of duty； at least to the growth of a more enlightened opinion respecting the true interest of the State。 It is what men think that determines how they act； and though the persuasions and convictions of average men are in a much greater degree determined by their personal position than by reason； no little power is exercised over them by the persuasions and convictions of those whose personal position is different； and by the united authority of the instructed。 When； therefore； the instructed in general can be brought to recognise one social arrangement； or political or other institution； as good； and another as bad； one as desirable； another as condemnable； very much has been done towards giving to the one； or withdrawing from the other； that preponderance of social force which enables it to subsist。 And the maxim； that the government of a country is what the social forces in existence compel it to be； is true only in the sense in which it favours； instead of discouraging； the attempt to exercise； among all forms of government practicable in the existing condition of society； a rational choice。 Chapter 2 The Criterion of a Good Form of Government。
THE FORM of government for any given country being （within certain definite conditions） amenable to choice； it is now to be considered by what test the choice should be directed； what are the distinctive characteristics of the form of government best fitted to promote the interests of any given society。 Before entering into this inquiry； it may seem necessary to decide what are the proper functions of government； for； government altogether being only a means； the eligibility of the means must depend on their adaptation to the end。 But this mode of stating the problem gives less aid to its investigation than might be supposed； and does not even bring the whole of the question into view。 For； in the first place； the proper functions of a government are not a fixed thing； but different in different states of society； much more extensive in a backward than in an advanced state。 And； secondly； the character of a government or set of political institutions cannot be sufficiently estimated while we confine our attention to the legitimate sphere of governmental functions。 For though the goodness of a government is necessarily circumscribed within that sphere； its badness unhappily is not。 Every kind and degree of evil of which mankind are susceptible may be inflicted on them by their government； and none of the good which social existence is capable of can be any further realised than as the constitution of the government is compatible with； and allows scope for； its attainment。 Not to speak of indirect effects； the direct meddling of the public authorities has no necessary limits but those of human existence； and the influence of government on the well…being of society can be considered or estimated in reference to nothing less than the whole of the interests of humanity。 Being thus obliged to place before ourselves； as the test of good and bad government； so complex an object as the aggregate interests of society； we would willingly attempt some kind of classification of those interests； which； bringing them before the mind in definite groups； might give indication of the qualities by which a form of government is fitted to promote those various interests respectively。 It would be a great facility if we could say the good of society consists of such and such elements； one of these elements requires such conditions； another such others； the government； then； which unites in the greatest degree all these conditions； must be the best。 The theory of government would thus be built up from the separate theorems of the elements which compose a good state of society。 Unfortunately； to enumerate and classify the constituents of social well…being； so as to admit of the formation of such theorems； is no easy task。 Most of those who； in the last or present generation； have applied themselves to the philosophy of politics in any comprehensive spirit； have felt the importance of such a classification； but the attempts which have been made towards it are as yet limited； so far as I am aware； to a single step。 The classification begins and ends with a partition of the exigencies of society between the two heads of Order and Progress （in the phraseology of French thinkers）； Permanence and Progression in the words of Coleridge。 This division is plausible and seductive； from the apparently clean…cut opposition between its two members； and the remarkable difference between the sentiments to