Sometimes these groups combine with the full approval of the union leaders, local and international. Sometimes they are more in the nature of an insurgent body, either desiring greater liberty of self-government for themselves, or questioning the methods of the organization's leaders, and desiring to introduce freer, more democratic and more modern methods into the management of the parent organization. This may take the form of a district council, and in at least one noteworthy instance, the employés of one large corporation send their representatives to a joint board, for purposes of collective bargaining. The railway unions within the American Federation of Labor, one of the largest and most powerful bodies of union men in the United States feel the need of some method of grouping which shall link together the men's locals and the internationals into which the locals are combined. This is seen in the demand made by the men for the acknowledgment by the railways of the "system federation." The reason some of the more radical men were not found supporting the proposal was not that they objected to a broader form of organization, but because they considered the particular plan outlined as too complicated to be effective. There is one problem pressing for decisive solution before very long, and it concerns equally organized labor, governments and public bodies and the community as a whole. That is, the relations that are to exist between governing bodies in their function as employer, and the workers employed by them. So far all parties to this momentous bargain are content to drift, instead of thinking out the principles upon which a peaceful and permanent solution can be found for a condition of affairs, new with this generation, and planning in concert such arrangements as shall insure even-handed justice to all three parties. It is true that governments have always been employers of servants, ever since the days when they ceased to be masters of slaves, but till now only on a limited scale. But even on this limited scale no entirely satisfactory scheme of civil-service administration has anywhere been worked out. Of late years more and more have the autocratic powers of public bodies as employers been considerably clipped, but on the other hand, the ironclad rules which make change of occupation, whether for promotion or otherwise, necessary discipline and even deserved dismissal, so difficult to bring about, have prejudiced the outside community whom they serve against the just claims of an industrious and faithful body of men and women. And the very last of these just claims, which either governing bodies or communities are willing to grant, is liberty to give collective expression to their common desires.