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 what are necessary expenses resting with the managing bureaucracy. Often the occasion for the levy disappears, but the levy does not; as when interest on bonds continues to be a drain on the community long after the road or the schoolhouse which was the excuse for the issue is abandoned.

The historic urgency of political establishments for centralization, for the expansion of cities and the creation of nations, with which imperialistic ventures must be included, thus becomes meaningful. The wider the area of control the weaker the resistance of social pressures; the larger the population under control the more taxpayers to contribute to the political coffers. Centralization is the setting up of a protective distance between State and Society, of the insulation of the State from social sanctions. In a village the citizenry have an immediate influence on political behavior; when the village is incorporated into the City of Chicago, this influence tends to evaporate, particularly its impact on taxation practices.

Realization of the dangers of centralization, of the divorcement of political power from social control, gave rise to the idea of constitutionalism. A constitution undertakes to define the scope of political power, to delimit the functions the State may assume, as a condition for public support. It is a contractual agreement. But it is a matter of record that no State has long abided by the terms of the agreement; its inherent compulsion toward the acquisition of power cannot be inhibited by law. The best example of this is the life story of the American Constitution. It originated in the convention that a State is inherently incapable of containing its urge for power, and the writers not only defined and limited the scope of the new State but also provided for a system of "checks and balances" that presumably would prevent its getting out of bounds. It 141