It is the author's hope that this volume may assist in making clear the relation of the state and government, so as to aid in developing that political intelligence without which no nation can make progress. In this era of world war, international politics, and national readjustments, a generalized view of political development may help towards a better comprehension of changing political situations and towards the possibility of a governmental policy based on scientific knowledge.

J. Q. DEALEY

Government as Leadership, 1.-Social Government, 1.-

The War Band, 2.-The State Supreme, 5.-Political

Science, 6.-Subdivisions of Political Science, 7. I

CHAPTER II

THE SOCIAL BACKGROUND OF THE STATE

Social Institutions, 11.-Meaning of Civilization, 13.-Its

Earlier Stages, 14.-Conditions that Affect Social

Development, 16.-I. Physical Factors, 17.-Abundant

Food Supplies Essential, 17.-Expansion through

Commerce, 18.-Expansion through Manufactures, 19.

-II. The Factor of Population, 20.-The Standard of

Living, 20.-Need of Economic Opportunity, 21.-

III. Mentality as a Factor, 22

CHAPTER III

THE DEVELOPMENT OF POLITICAL GOVERNMENT

Four Periods of Development, 24.-I. The Primitive

Period, 26.-The Early Condition of Man, 26.—The

Beginnings of the State, 27-II. The Patriarchal

Period, 28.-The Development of the Tribe, 28.—

Permanent Elements, 30.-Agriculture, 31.-Changes

in Tribal Organization, 32.-The Village Community,

33-Loose Confederations, 34.-III. The Period of

II

Urban Civilization, 35.-The Influence of Commerce,

35. Changes in Political Organization, 37.-National

States, 38.-IV. The Period of Industrial Civilization,

39.-The Problems of Food, 39.-Invention of Tools,

40.-Utilization of Natural Power, 41.-The Struggle

for Supremacy, 42.-Summary, 43

CHAPTER IV

DEFINITIONS AND EXPLANATIONS

Political Organization, 46.-Sovereignty, 48.-Sovereignty

in International Relations, 49.-Limitations on Gov-

ernments, 50.-Public Opinion, 52.-Development of

Sovereignty, 53-Sovereignty as Supremacy, 54-

Protection of Life and Property, 55.-Importance of

Political Theories, 56.

CHAPTER V

SOVEREIGN POWERS, TAXATION AND WAR

Sovereign Powers, 58.-The Essential Aspects of Sov-

ereignty, 58.-The Development of Sovereign Pow-

ers, 60.-Forms of Taxation, 61.-Taxation through

Service, 62.-Taxation of Property, 63.-The Budget,

65.-The War Power, 66.-War and Peace, 66.-

Service in Army or Navy, 67.-Beginnings of

Diplomacy, 70.-International Law,
Law, 71.-Policy

towards the Conquered, 72.-Dominant Races, 73-

Race Conflict, 73.-A World Federation, 74.

CHAPTER VI

INTERNAL PEACE, FAMILY, AND CHURCH

Internal Peace, 77.-Social Regulation of Crime, 77-

Outlawry, 78.-Minor Breaches of the Peace, 78.-

The Fine System, 80.-Methods of Trial, 81.-Crimes

Against Property, 81.-Civil Disputes, 82.-The Fam-

ily in Its Relation to the State, 83.-The Metronymic

Family, 83.-The Patronymic Family, 84.-Types of

Family Groups, 86.-The Family and the State, 87.-

The Modern Family, 88.-The Relation of Church

and State, 89.-Totemism, 89.-Ancestor Worship,

90.-The Rift Between Church and State, 91.-Sep-

PAGE

24

46

58

aration of Church and State, 93.-Passing of Re-

ligious Functions to the State, 96

CHAPTER VII

ECONOMIC REGULATION

Territory, 96.-The Ownership of Land, 96.-The Utiliza-

tion of Land, 97.-The System of Mandataries, 98.—

The Individual and the Land, 99.-Communal Owner-

ship, 100.-The Rise of Personal Ownership, 101.-

Survivals of Communal Ownership, 103.-Coloniza-

tion, 104.-Agriculture, 106.-Food Supplies, 106.-

Commerce, 107.-The Market Place, 107-A Medium

of Exchange, 108.-The Bank, 109.-Governmental

Regulation, 110.-Manufacturing, III.-The Skilled

Worker, 111.-The Industries, 112.-Labor, 113

PAGE

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96

PART II

ORGANIZATION OF GOVERNMENT AND DEMOCRACY

CHAPTER VIII

DISTINCTION BETWEEN STATE AND GOVERNMENT

The Danger of Confusing State with Government, 119.

-I. Popular Sovereignty, 120.-II. Fundamental

Law, 121.-III. Separation of Powers, 122.-IV.

Marsiglio's Conciliar Theory, 123.-The First Writ-

ten Constitution, 125.-Relationship of State and

Government, 125 .

119

CHAPTER IX

THE LEGAL SOVEREIGN AND THE CONSTITUTION

The Legal Sovereign, 128.-The Constitution of the State,

128. The Constitution as the Expression of Dominant

Interests, 129.-The Legal Sovereign, 130.-Location

of Legal Sovereignty, 131.-Revolutionary Origin of

the Legal Sovereign, 134.-The Constitutional Con-

vention, 135.-The Written Constitution, 136.-The

Importance of Constitutions, 136.-I. The Contract

Theory, 136.-II. The Constitution as Fundamental

Law, 137.-III. The Constitution as a Check on

Government, 137.-Growing Importance of the Writ-

ten Constitution, 139.-American National Constitu-

tion, 139.-Constitution of the Commonwealth, 140.

-The Amendment of Constitutions, 141.-Amend-

ment of State Constitutions, 142.-Usual Provisions

of State Constitutions, 143.-How a Constitution Is

Made, 145.-Conflicting Theories as to the Powers of

the Constitutional Convention, 145

CHAPTER X

THE CLASSIFICATION OF GOVERNMENTS AND

FUNCTIONS OF GOVERNMENT

PAGE

. 128

Classification of Governments, 147.-The Greek Classifi-

cation, 148.-Classification by the Extent of Popular

Control, 150.-Classification by Form, 151.-Federa-

tive Forms, 151.-The Federation, 153.-Contrasted

with the Confederation, 154.-Origin of Federations,

155 The Utility of the Federation, 156.-Dual Form

of Federal Government, 157.-Classification of Gov-

ernmental Functions, 158.-Classification by Depart-

mental Activities, 159.-Five Classes of Govern-

mental Functions, 159.-I. The Deliberative Func-

tion, 160.-II. The Legislative Function, 160.-III.

The Executive Function, 161.-IV. The Adminis-

trative Function, 161.-V. The Judicial Function,

161.-Origin and Differentiation of These Func-

tions, 163

147

CHAPTER XI

THE DIVISIONS OF GOVERNMENT

The Separation of Powers, 164.-Montesquieu's Theory,

164.-Powers of the Usual Three Departments, 166.

-İ. The Executive Department, 166.-II. The Law-

making Department, 166.-III. The Judicial Depart-

ment, 167.-The Check and Balance System, 167.-

The Differentiation of Powers, 169.-I. The Differ-

entiation of the Administrative from the Executive,

169.-II. Differentiation of the Lawmaking Body,

169.-III. Differentiation of the Judiciary, 170.-

IV. Differentiation of the Electorate, 171.-Broader

Definition of Government, 172.-Summary of Gov-