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least the rank of non commissioned officers； there are in every
popular insurrection several persons competent to take the lead； and
improvise some tolerable plan of action。 What the French are in
military affairs； the Americans are in every kind of civil business；
let them be left without a government； every body of Americans is able
to improvise one； and to carry on that or any other public business
with a sufficient amount of intelligence； order； and decision。 This is
what every free people ought to be： and a people capable of this is
certain to be free； it will never let itself be enslaved by any man or
body of men because these are able to seize and pull the reins of
the central administration。 No bureaucracy can hope to make such a
people as this do or undergo anything that they do not like。 But where
everything is done through the bureaucracy； nothing to which the
bureaucracy is really adverse can be done at all。 The constitution
of such countries is an organisation of the experience and practical
ability of the nation into a disciplined body for the purpose of
governing the rest； and the more perfect that organisation is in
itself； the more successful in drawing to itself and educating for
itself the persons of greatest capacity from all ranks of the
community； the more complete is the bondage of all； the members of the
bureaucracy included。 For the governors are as much the slaves of
their organisation and discipline as the governed are of the
governors。 A Chinese mandarin is as much the tool and creature of a
despotism as the humblest cultivator。 An individual Jesuit is to the
utmost degree of abasement the slave of his order； though the order
itself exists for the collective power and importance of its members。
It is not； also； to be forgotten； that the absorption of all the
principal ability of the country into the governing body is fatal；
sooner or later； to the mental activity and progressiveness of the
body itself。 Banded together as they are… working a system which；
like all systems； necessarily proceeds in a great measure by fixed
rules… the official body are under the constant temptation of sinking
into indolent routine； or； if they now and then desert that mill…horse
round； of rushing into some half…examined crudity which has struck the
fancy of some leading member of the corps； and the sole check to these
closely allied； though seemingly opposite； tendencies； the only
stimulus which can keep the ability of the body itself up to a high
standard； is liability to the watchful criticism of equal ability
outside the body。 It is indispensable； therefore； that the means
should exist； independently of the government； of forming such
ability； and furnishing it with the opportunities and experience
necessary for a correct judgment of great practical affairs。 If we
would possess permanently a skilful and efficient body of
functionaries… above all； a body able to originate and willing to
adopt improvements； if we would not have our bureaucracy degenerate
into a pedantocracy； this body must not engross all the occupations
which form and cultivate the faculties required for the government
of mankind。
To determine the point at which evils； so formidable to human
freedom and advancement； begin； or rather at which they begin to
predominate over the benefits attending the collective application
of the force of society； under its recognised chiefs； for the
removal of the obstacles which stand in the way of its well…being；
to secure as much of the advantages of centralised power and
intelligence as can be had without turning into governmental
channels too great a proportion of the general activity… is one of
the most difficult and complicated questions in the art of government。
It is； in a great measure； a question of detail； in which many and
various considerations must be kept in view； and no absolute rule
can be laid down。 But I believe that the practical principle in
which safety resides； the ideal to be kept in view； the standard by
which to test all arrangements intended for overcoming the difficulty；
may be conveyed in these words： the greatest dissemination of power
consistent with efficiency； but the greatest possible centralisation
of information； and diffusion of it from the centre。 Thus； in
municipal administration； there would be； as in the New England
States； a very minute division among separate officers； chosen by
the localities； of all business which is not better left to the
persons directly interested； but besides this； there would be； in each
department of local affairs； a central superintendence； forming a
branch of the general government。 The organ of this superintendence
would concentrate； as in a focus； the variety of information and
experience derived from the conduct of that branch of public
business in all the localities； from everything analogous which is
done in foreign countries； and from the general principles of
political science。 This central organ should have a right to know
all that is done； and its special duty should be that of making the
knowledge acquired in one place available for others。 Emancipated from
the petty prejudices and narrow views of a locality by its elevated
position and comprehensive sphere of observation； its advice would
naturally carry much authority； but its actual power； as a permanent
institution； should； I conceive； be limited to compelling the local
officers to obey the laws laid down for their guidance。 In all
things not provided for by general rules； those officers should be
left to their own judgment； under responsibility to their
constituents。 For the violation of rules； they should be responsible
to law； and the rules themselves should be laid down by the
legislature； the central administrative authority only watching over
their execution； and if they were not properly carried into effect；
appealing； according to the nature of the case； to the tribunals to
enforce the law； or to the constituencies to dismiss the functionaries
who had not executed it according to its spirit。
Such； in its general conception； is the central superintendence
which the Poor Law Board is intended to exercise over the
administrators of the Poor Rate throughout the country。 Whatever
powers the Board exercises beyond this limit were right and
necessary in that peculiar case； for the cure of rooted habits of
maladministration in matters deeply affecting not the localities
merely； but the whole community； since no locality has a moral right
to make itself by mismanagement a nest of pauperism； necessarily
overflowing into other localities； and impairing the moral and
physical condition of the whole labouring community。 The powers of
administrative coercion and subordinate legislation possessed by the
Poor Law Board （but which； owing to the state of opinion on the
subject； are very scantily exercised by them）； though perfectly
justifiable in a case of first…rate national interest； would be wholly
out of place in the superintendence of interests purely local。 But a
central organ of information and instruction for all the localities
would be equally valuable in all departments of administration。 A
government cannot have too much of the kind of activity which does not
impede； but aids and stimulates； individual exertion and
development。 The mischief begins when； instead of calling forth the
activity and powers of individuals and bodies； it substitutes its
own activity for theirs； when； instead of informing； advising； and；
upon occasion； denouncing； it makes them work in fetters； or bids them
stand aside and does their work instead of them。 The worth of a State；
in the long run； is the worth of the individuals composing it； and a
State which postpones the interests of their mental expansion and
elevation to a little more of administrative skill； or of that
semblance of it which practice gives； in the details of business； a
State which dwarfs its men； in order that they may be more docile
instruments in its hands even for beneficial purposes… will find that
with small men no great thing can really be accomplished； and that the
perfection of machinery to which it has sacrificed everything will
in the end avail it nothing； for want of the vital power which； in
order that the machine might work more smoothly； it has preferred to
banish。
THE END
。