If we now turn to consider as a whole the character of this vast Empire,[1] whose principal regions we have been examining, the first thing that must strike us is that, while it is by far the biggest of all the world-dominions which have come into existence in modern times, it is also the most loosely organised of them all. It is rather a partnership of a multitude of states in every grade of civilisation and every stage of development than an organised and consolidated dominion. Five of its chief members are completely self-governing, and share in the common burdens only by their own free will. All the remaining members are organised as distinct units, though subject to the general control of the home government. The resources of each unit are employed exclusively for the development of its own welfare. They pay no tribute; they are not required to provide any soldiers beyond the minimum necessary for their own defence and the maintenance of internal order. This Empire, in short, is not in any degree organised for military purposes. It is strong for defence so long as it is sure of the command of the sea, since it is open to attack at singularly few points by land. But it is incapable, by its very nature and system of organisation, of threatening the existence of any of its rivals or of making a bid for world-supremacy. For, vast though its population and resources are, they _cannot_ be made available for war except under the impulse of a great enthusiasm simultaneously dominating all its members, like that which has led them all to share in this war; and if its directors were to undertake an aggressive and conquering policy, not only could they not count upon general support, but they would probably bring about the disruption of the Empire. The life-blood of this Empire is trade; its supreme interest is manifestly peace. The conception of the meaning of empire which is indicated by its history is not a conception of dominion for dominion's sake, imposed by brute force. On the contrary, it has come to be regarded as a trust, a trust to be administered in the interests of the subjects primarily, and secondarily in the interests of the whole civilised world. That this is not the assertion of a boast or of an unrealised ideal, but of a fact and a practice, is sufficiently demonstrated by two unquestionable facts, to which we have already referred, but which cannot be too often repeated. The first is the fact that the units of this empire are not only free from all tribute in money or men, but are not even required to make any contribution to the upkeep of the fleet, upon which the safety of all depends. The second is the fact that every port and every market in this vast empire, so far as they are under the control of the central government, are thrown open as freely to the citizens of all other States as to its own.