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2 The State is but one of the forms taken by Society in the course of history. How can one be confused with the other?

On the other hand, the State has also been confused with Government, It seems to me, however, that State and Government represent two ideas of a different kind. The State idea implies quite another idea to that of Government. It not only includes the existence of a power placed above Society, but also a territorial concentration and a concentration of many functions of the life of Society in the hands of a few or even of all. It implies new relations among the members of society.

This characteristic distinction, which perhaps escapes notice at first sight, appears clearly when the origin of the State is studied.

Really to understand the State there is, in fact, but one way: it is to study it in its historical development, and that is what I am going to endeavor to do.

The Roman Empire was a State in the true sense of the word. To the present day it is the ideal of students of law. Its organs covered a vast domain with a close network. Everything flowed towards Rome, economic life, military life, judicial relations, riches, education, even religion. From Rome came laws, magistrates, legions to defend their territory, governors to rule the provinces, gods. The whole life of the Empire could be traced back to the Senate; later on to the Cæsar, the omnipotent and omniscient, the god of the Empire. Every province and every district had its miniature Capitol, its little share of Roman sovereignty to direct its whole life. One law, the law imposed by Rome, governed the Empire; and that Empire did not represent a confederation of citizens,—it was only a flock of subjects.

Even at present, the students of law and the authoritarians altogether admire the unity of that Empire, the spirit of unity of those laws, the beauty (they say), the harmony of that organisation.

But the internal decomposition furthered by barbarian invasion, the death of local life, henceforth unable to resist