9. _There can be no State without a power to guide and govern it_. It
has indeed become the fashion to repeat, as the latest discovery in
politics, that what a State needs is not government but
administration. This saying comes of a theory, to be examined
presently, that sovereign power abides permanently with the people at
large, and that the sole function of princes, cabinets, and
parliaments, is to provide means of giving effect to the popular will.
This however is not quite a repudiation of government, but a peculiar
view as to the seat and centre of government. Those who hold it,
vigorously maintain the right of the Many to govern, control, and
command the Few. The need of some governing authority in a State can
be denied by none but an Anarchist, a gentleman who lives two doors
beyond Rousseau on the side of unreason.
10. _Every State is autonomous, self-governing, independent_. Either
the whole people taken collectively must rule the same whole taken
distributively, or a part must rule the rest. The ruler is either the
whole commonwealth, or more frequently a part of the commonwealth.
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