It is hardly needful to show that races and nations cannot be defined by the merely political arrangements which group men under various governments. For some purposes of ordinary language, for some purposes of ordinary politics, we are tempted, sometimes driven, to take this standard. And in some parts of the world, in our own Western Europe for instance, nations and governments do in a rough way fairly answer to one another. And in any case, political divisions are not without their influence on the formation of national divisions, while national divisions ought to have the greatest influence on political divisions. That is to say, _prima facie_ a nation and a government should coincide. I say only _prima facie_, for this is assuredly no inflexible rule; there are often good reasons why it should be otherwise; only, whenever it is otherwise, there should be some good reason forthcoming. It might even be true that in no case did a government and a nation exactly coincide, and yet it would none the less be the rule that a government and a nation should coincide. That is to say, so far as a nation and a government coincide, we accept it as the natural state of things, and ask no question as to the cause; so far as they do not coincide, we mark the case as exceptional by asking what is the cause. And by saying that a government and a nation should coincide, we mean that as far as possible the boundaries of governments should be so laid out as to agree with the boundaries of nations. That is, we assume the nation as something already existing, something primary, to which the secondary arrangements of government should as far as possible conform. How then do we define the nation which is, if there is no special reason to the contrary, to fix the limits of a government? Primarily, I say, as a rule,--but a rule subject to exceptions,--as a _prima facie_ standard, subject to special reasons to the contrary,--we define the nation by language. We may at least apply the test negatively. It would be unsafe to rule that all speakers of the same language must have a common nationality; but we may safely say that where there is not community of language, there is no common nationality in the highest sense. It is true that without community of language there may be an artificial nationality, a nationality which may be good for all political purposes, and which may engender a common national feeling. Still, this is not quite the same thing as that fuller national unity which is felt where there is community of language.