[76] _Official Correspondence_ (1887), 308. [77] Greville's _George IV. and William IV._, iii. 155, 167-69, 171. [78] Bentham's _Works_, x. 571. [79] Romilly's _Memoirs_, ii. 67, 222. CHAPTER III POLITICAL THEORY I. MILL ON GOVERNMENT I now turn to the general political theory of which Mill was the authoritative exponent. The _Encyclopædia_ article upon 'Government' (1820) gives the pith of their doctrine. It was, as Professor Bain[80] thinks, an 'impelling and a guiding force' in the movement which culminated in the Reform Bill. The younger Utilitarians regarded it, says J. S. Mill, as 'a masterpiece of political wisdom';[81] while Macaulay[82] taunts them for holding it to be 'perfect and unanswerable.' This famous article is a terse and energetic summary of the doctrine implied in Bentham's _Works_, but there obscured under elaboration of minute details. It is rather singular, indeed, that so vigorous a manifesto of Utilitarian dogma should have been accepted by Macvey Napier--a sound Whig--for a publication which professed scientific impartiality. It has, however, in the highest degree, the merits of clearness and condensation desirable in a popular exposition. The reticence appropriate to the place excuses the omission of certain implicit conclusions. Mill has to give a complete theory of politics in thirty-two 8vo pages. He has scanty room for qualifying statement or historical illustration. He speaks as from the chair of a professor laying down the elementary principles of a demonstrated science.[83] Mill starts from the sacred principle. The end of government, as the end of all conduct, must be the increase of human happiness. The province of government is limited by another consideration. It has to deal with one class of happiness, that is, with the pains and pleasures 'which men derive from one another.' By a 'law of nature' labour is requisite for procuring the means of happiness. Now, if 'nature' produced all that any man desired, there would be no need of government, for there would be no conflict of interest. But, as the material produced is finite, and can be appropriated by individuals, it becomes necessary to insure to every man his proper share. What, then, is a man's proper share? That which he himself produces; for, if you give to one man more than the produce of his labour, you must take away the produce of another man's labour. The greatest happiness, therefore, is produced by 'assuring to every man the greatest possible quantity of the produce of his own labour.' How can this be done? Will not the strongest take the share of the weakest? He can be prevented in one and apparently only in one way. Men must unite and delegate to a few the power necessary for protecting all. 'This is government.'[84]