1. We are about to analyse a modern State into groups of facts which are also ways of thinking. And a question may arise in what sense the connection is to be understood which will be alleged to bind together these groups of facts or points of view. When it is urged that group _b_ or view _b_ is suggested and made necessary by the shortcomings of group _a_ or view _a_, does this imply that group a or its idea came into existence first, and group _b_ or the notion of it sprang up subsequently or as an effect of the former? And could such a relation be reasonably maintained as between the component parts of a unity like the State? An answer may be indicated as follows. We are dealing, in society and in the State, with an _ideal fact_. As a fact, a form of life, society has always been a many-sided creature, meeting the varied needs of human nature by functions no less varied. As an ideal fact, however, its advance has partaken of the nature of theoretical progress. In the continuous attempt to deal satisfactorily {257} with the needs of intelligent beings, the mind, the intelligent will, has thrown itself with predominant interest now into one of its functions and now into another. And this has not been a chance order of march. Obviously, what it has emphasised and modified in the second place has depended both positively and negatively on what it had emphasised and modified in the first place. Positively, because when one step is thoroughly secured the next may be definitely attempted. Negatively, because the definite attainment of one step exposes the limitations of what has been achieved, and the need for another. At every stage the will is dissatisfied with the expression of itself which it has created. Till some public order has been established, morality can hardly find expression; but when a legal system is thoroughly in force it becomes apparent how far the letter may fall short of the spirit. We see the same action of intelligence in pure theory. Every conquest of science leads to a new departure. It suggests it by its success, and demands it by its failure.