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Rh imposed by accident or outside force. The State, being geographical, cannot be a wholly voluntary association, but for that very reason there is need of a strong public opinion to restrain it from a tyrannical use of its powers. This public opinion, in most matters, can only be secured by combinations of those who have certain interests or desires in common.

The positive purposes of the State, over and above the preservation of order, ought as far as possible to be carried out, not by the State itself, but by independent organizations, which should be left completely free so long as they satisfied the State that they were not falling below a necessary minimum. This occurs to a certain limited extent at present in regard to elementary education. The universities, also, may be regarded as acting for the State in the matter of higher education and research, except that in their case no minimum of achievement is exacted. In the economic sphere, the State ought to exercise control, but ought to leave initiative to others. There is every reason to multiply opportunities of initiative, and to give the greatest possible share of initiative to each individual, for if this is not done there will be a general sense of impotence and