He dwells meditatively upon that tenacity of life which he finds to characterize them--a tenacity very much dependent upon physical[13] circumstances, and in that respect so memorably inferior to the social economy of Jewish existence, that we have been led to dwell with some interest upon the following distinctions as applicable to the political existence of all nations who are in any degree civilized. It seems to us that three forces, amongst those which influence the movement of nations, are practically paramount; viz., first, the _legislation_ of a people; secondly, the _government_ of a people; thirdly, the _administration_ of a people. By the quality of its legislation a people is moulded to this or that character; by the quality of its government a people is applied to this or that great purpose; by the quality of its administration a people is made disposable readily and instantly and completely for every purpose lying within the field of public objects. _Legislation_ it is which shapes or qualifies a people, endowing them with such qualities as are more or less fitted for the ends likely to be pursued by a national policy, and for the ends suggested by local relations when combined with the new aspects of the times. _Government_ it is which turns these qualifications to account, guiding them upon the new line of tendencies opening spontaneously ahead, or (as sometimes we see) upon new tendencies created deliberately and by forethought. But _administration_ it is which organizes between the capacities of the people on the one hand, and the enlightened wishes of the government on the other--that intermediate _nexus_ of social machinery without which both the amplest powers in a nation and the noblest policy in a government must equally and continually fall to the ground. A general system of instruments, or if we may use the word, system of instrumentation and concerted arrangements--behold the one sole _conditio sine qua non_ for giving a voice to the national interests, for giving a ratification to the national will, for giving mobility to the national resources. Amongst these three categories which we have here assigned as summing up the relations of the public will in great nations to the total system of national results, this last category of _administration_ is that which (beyond the rest) postulates and presupposes vast developments of civilization. Instincts of nature, under favourable circumstances, as where the national mind is bold, the temper noble, veracity adorning the speech, and simplicity the manners, may create and _have_ created good elementary laws; whilst it is certain that, where any popular freedom exists, the government must resemble and reflect the people. Hence it cannot be denied that, even in semi-barbarous times, good legislation and good government may arise. But good administration is not conceivable without the aids of high civilization. How often have piracy