Above the sphere of the elemental cravings and necessities, the soul of man is in a perpetual vacillation between two conflicting impulses: the desire to assert his individual differences, the desire for distinction, and his terror of isolation. He wants to stand out, but not too far out, and, on the contrary, he wants to merge himself with a group, with some larger body, but not altogether. Through all the things of life runs this tortuous compromise, men follow the fashions but resent ready-made uniforms on every plane of their being. The disposition to form aggregations and to imagine aggregations is part of the incurable nature of man; it is one of the great natural forces the statesman must utilise, and against which he must construct effectual defences. The study of the aggregations and of the ideals of aggregations about which men’s sympathies will twine, and upon which they will base a large proportion of their conduct and personal policy, is the legitimate definition of sociology.

Now the sort of aggregation to which men and women will refer themselves is determined partly by the strength and idiosyncrasy of the individual imagination, and partly by the reek of ideas that chances to be in the air at the time. Men and women may vary greatly both in their innate and their acquired disposition towards this sort of larger body or that, to which their social reference can be made. The “natural” social reference of a man is probably to some rather vaguely conceived tribe, as the “natural” social reference of a dog is to a pack. But just as the social reference of a dog may be educated until the reference to a pack is completely replaced by a reference to an owner, so on his higher plane of educability the social reference of the civilised man undergoes the most remarkable transformations. But the power and scope of his imagination and the need he has of response sets limits to this process. A highly intellectualised mature mind may refer for its data very consistently to ideas of a higher being so remote and indefinable as God, so comprehensive as humanity, so far-reaching as the purpose in things. I write “may,” but I doubt if this exaltation of reference is ever permanently sustained. Comte, in his Positive Polity, exposes his soul with great freedom, and the curious may trace how, while he professes and quite honestly intends to refer himself always to his “Greater Being” Humanity, he narrows constantly to his projected “Western Republic” of civilised men, and quite frequently to the minute indefinite body of Positivist subscribers. And the history of the Christian Church, with its development of orders and cults, sects and dissents, the history of fashionable society with its cliques and sets and every political history with its cabals and inner cabinets, witness to the struggle that goes on in the minds of men to adjust themselves to a body larger indeed than themselves, but which still does not strain and escape their imaginative grasp.

The statesman, both for himself and others, must recognise this inadequacy of grasp, and the necessity for real and imaginary aggregations to sustain men in their practical service of the order of the world. He must be a sociologist; he must study the whole science of aggregations in relation to that World State to which his reason and his maturest thought direct him. He must lend himself to the development of aggregatory ideas that favour the civilising process, and he must do his best to promote the disintegration of aggregations and the effacement of aggregatory ideas, that keep men narrow and unreasonably prejudiced one against another.

He will, of course, know that few men are even rudely consistent in such matters, that the same man in different moods and on different occasions, is capable of referring himself in perfect good faith, not only to different, but to contradictory larger beings, and that the more important thing about an aggregatory idea from the State maker’s point of view is not so much what it explicitly involves as what it implicitly repudiates. The natural man does not feel............