804 THE AMERICAN JOURNAL OF SOCIOLOGY
and the word purpose sufficiently indicates their telic character. It shows that there may be a thought common to a number of persons, and that several individuals can, as well as a single one, act ideologically towards a desired end. In modern society there is scarcely any limit to the variety in such organizations. These bodies may in a very just sense be regarded as conscious and intelligent, and they conduct their operations in all essential respects in the same way that individuals conduct theirs. ^Even if we were to suppose such an organization to embrace all the individuals of a nation and no others, it would still differ from the government of that nation in its specific object. The sup- position is, however, inadmissible, since a limited organization must be voluntary, and the inhabitants of a country include minors and infants who have no intelligent ideas of the purposes of association. If a very large and powerful limited organiza- tion were to coerce its members or other persons to perform certain acts, it would be usurping the sphere of government, and if this were acquiesced in it would become, in so far, the govern- ment. Such was the case when the Church of Rome assumed such powers.
If a small number of individuals may think and act for a common purpose a larger number may, and there is no necessary limit until the totality of a people is embraced in the number. If such a universal organization has for its sole object the good of its members in general it thereby virtually becomes the gov- ernment. To justify this title, however, and accomplish its pur- pose it must assume full power, and this single act deprives it of the character of a purely voluntary association. No govern- ment can be such, although, so long as the right of voluntary expatriation exists, as it almost always has done, it is virtually a voluntary association.
Now there is a sense in which the very existence of govern- ment implies a consensus of intelligent purpose. Mr. Spencer, the severest critic of the acts of government that we have ever had, admits that all governments roughly represent the general sentiment and will of the people, and cites the failure of the
