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 by sea, systematic robbery by land, tainted as with a curse the blessings of life and property in great nations! Witness the state of the Mediterranean under the Cilicians during the very sunset of Marius; or, again, of the Caribbean seas, in spite of a vast Spanish empire, of Buccaneers and Filibusters. Witness Bagandæ in Roman Spain, or the cloud of robbers gathering in France through twelve centuries after
every period of war; witness the scourges of public peace in Italy, were it in papal Rome or amongst the Fra Diavolos of Naples.