confusion of democratic pride and personal fear they submit to the destruction of their livelihood if not their lives, in a way that would formerly have seemed to them so obnoxious as to be incredible. In this great herd-machinery, dissent is like sand in the bearings. The State ideal is primarily a sort of blind animal push towards military unity. Any interference with that unity turns the whole vast impulse towards crushing it. Dissent is speedily outlawed, and the Government, backed by the significant classes and those who in every locality, however small, identify themselves with them, proceeds against the outlaws, regardless of their value to the other institutions of the nation, or to the effect their persecution may have on public opinion. The herd becomes divided into the hunters and the hunted, and war-enterprise becomes not only a technical game but a sport as well. It must never be forgotten that nations do not declare war on each other, nor in the strictest sense is it nations that fight each other. Much has been said to the effect that modern wars are wars of whole peoples and not of dynasties. Because the entire nation is regimented and the whole resources of the country are levied on for war, this does not mean that it is the country _qua_ country which is fighting. It is the country organized as a State that is fighting, and only as a State would it possibly fight. So, literally, it is States which make war on each other and not peoples. Governments are the agents of States, and it is Governments which declare war on each other, acting truest to form in the interests of the great State ideal they represent. There is no case known in modern times of the people being consulted in the initiation of a war. The present demand for democratic control of foreign policy indicates how completely, even in the most democratic of modern nations, foreign policy has been the secret private possession of the executive branch of the Government.