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ruling of men is the effort to direct the individual actions of many persons toward some end. This end theoretically should be the greatest good of all, but no human group has ever reached this ideal because of ignorance and selfishness. The simplest object would be rule for the Pleasure of One, namely the Ruler; or of the Few—his favorites; or of many—the Rich, the Privileged, the Powerful. Democratic movements inside groups and nations are always taking place and they are the efforts to increase the number of beneficiaries of the ruling. In 18th century Europe, the effort became so broad and sweeping that an attempt was made at universal expression and the philosophy of the movement said that if All ruled they would rule for All and thus Universal Good was sought through Universal Suffrage.

The unrealized difficulty of this program lay in the widespread ignorance. The mass of men, even of the more intelligent men, not only knew little about each other but less about the action of men in groups and the technique of industry in general. They could only apply universal suffrage, therefore, to the things they knew or knew partially: they knew personal and menial service, individual craftsmanship, agriculture Rh