made the special functions of an organized government. In short, to use the language in which Herbert Spencer has defined evolution, the development of society is, in relation to its component individuals, the passing from an indefinite, incoherent homogeneity to a definite, coherent heterogeneity. The lower the stage of social development, the more society resembles one of those lowest of animal organisms which are without organs or limbs, and from which a part may be cut and yet live. The higher the stage of social development, the more society resembles those higher organisms in which functions and powers are specialized, and each member is vitally dependent on the others.
Now, this process of integration, of the specialization of functions and powers, as it goes on in society, is, by virtue of what is probably one of the deepest laws of human nature, accompanied by a constant liability to inequality. I do not mean that inequality is the necessary result of social growth, but that it is the constant tendency of social growth if unaccompanied by changes in social adjustments, which, in the new conditions that growth produces, will secure equality. I mean, so to speak, that the garment of laws, customs, and political institutions, which each society weaves for itself, is constantly tending to become too tight as the society develops. I mean, so to speak, that man, as he advances, threads a labyrinth, in which, if he keeps straight ahead, he will infallibly lose his way, and through which reason and justice can alone keep him continuously in an ascending path.
For, while the integration which accompanies growth tends in itself to set free mental power to work improvement, there is, both with increase of numbers and with increase in complexity of the social organization, a counter tendency set up to the production of a state of inequality, which wastes mental power, and, as it increases, brings improvement to a halt.
