The attempt to bring power under control by offsetting it with power was sound enough in intention. The conflicting purposes of men cannot be held under pacific control unless the tendency of all power to become arbitrary is checked by other force. All the machinery of conference, of peaceful negotiation, of law and the rule of reason is workable in large affairs only where the power of the negotiators is neutralized one against the other. It may be neutralized because the parties are in fact equally powerful. It may be neutralized because the weaker has invisible allies among the other powers of the world, or in domestic affairs among other interests in society. But before there can be law there must be order, and an order is an arrangement of power. The worst that can be said of the nationalists and collectivists is that they attempted to establish balances of power which could not endure. The pluralist at least would say that the end they sought must be attained differently, that in place of vast wholesale balances of power it is necessary to create many detailed balances of power. The people as a whole supporting a centralized government cannot tame capitalism as a whole. For the powers which are summed up in the term capitalism are many. They bear separately upon different groups of people. The nation as a unit does not encounter them all, and cannot deal with them all. It is to the different groups of people concerned that we must look for the power which shall offset the arbitrary power that bears upon them. The reduction of capitalism to workable law is no matter of striking at it wholesale by general enactments. It is a matter of defeating its arbitrary power in detail, in every factory, in every office, in every market, and of turning the whole network of relations under which industry operates from the dominion of arbitrary forces into those of settled rules.