ervation of order. We think of this function
most frequently as exercised in the arrest of offenders who violate the
law. In fact, most young persons receive their earliest ideas of
government by seeing the policeman, or constable, who stands for the
authority of the government. But he is not the only officer who is
concerned in preserving order. The police officer who makes an arrest
cannot punish his prisoner, but must merely hold him until it is decided
that he deserves punishment. This is the work of a court, with its
justice, or judge, and the jury. If the prisoner is declared guilty,
then the police officer executes the orders of the court by collecting a
fine or by imprisoning him. We have here illustrated two divisions of
governmental authority: (1) the _judicial_, which decides whether the
law applies in particular cases; and (2) the _executive_, which carries
out the requirements of the law and the orders of the court.

Law-Making.--The executive and the judicial officers are both
subject to higher authority: the one applies and the other executes _the
law_. The framing of the law is the third function of government. This
work is called _legislation_, and is carried on by such bodies as the
town board, the village board, and the city council. But these
law-making bodies do not have independent authority; they are bound more
or less strictly by the opinions of those who elected them to office;
i.e., the body of voters.

The Three Divisions of Government.--We say, then, that in our
country government is based finally upon _the will of the people_. For
the expression of their will they choose numerous officers, who may be
grouped under three heads, corresponding to the general divisions of
government: legislative, executive, and judicial.

Just as it would be impossible for all the voters to take part in
applying or interpreting the law, so it is in most cases impossible
for them to assemble in a body and make the laws. They generally
delegate this work to legislators; but in some States the voters of
a town (or township) assemble yearly in town meeting, where all may
take part in discussion and in voting.

Roads and Streets.--The preservation of order is but one of the
functions of government. In towns where the population is scattered,
roads must be built, and it is still more necessary that in villages and
cities, where many people live within a small area, streets should b