WORKING HYPOTHESIS IN SOCIAL REFORM 3^9
organization of the business world — an organization that depends most immediately upon growing publicity. The study of the criminal and defective classes, as an expression of the conditions of the social body in which they are found, and their treatment from this new standpoint, as well as the movement toward arbi- tration for the solution of international differences, all point to the passing of functions which are supposed to inhere in the government into activities that belong to the community simply through its organization apart from government as a separate institution. On the other hand, certainly one of the most impor- tant so-called governmental functions, that is characteristic of the time, is the committee work, which is but a part of the general process of gaining publicity as regards what is going on in the country and the world. This is often done, not by a legislative commission, but by the university as well as the newspaper. In attempting to forecast what is to be the result of the movement of municipal ownership, we have to consider, therefore, not only the development of the municipal corporation and the industry that it conducts, but also that of a government tiiat is changing fully as rapidly as the industrial and commercial world.
I have adduced this as an illustration of the attitude which social reformers must assume toward their problems. It is impossible to so forecast any future condition that depends upon the evolution of society as to be able to govern our con- duct by such a forecast. It is always the unexpected that hap- pens, for we have to recognize, not only the immediate change that is to take place, but also the reaction back upon this of the whole world within which the change takes place, and no human foresight is equal to this. In the social world we must recognize the working hypothesis as the form into which all theories must be cast as completely as in the natural sciences. The highest criterion that we can present is that the hypothesis shall work in the complex of forces into which we introduce it. We can never set up a detailed statement of the conditions that are to be ultimately attained. What we have is a method and a control in application, not an ideal to work toward. As has been stated, this is the attitude of the scientist in the laboratory.
