lth among the
agents of production, but says practically nothing about the
distribution between individuals and classes, which is the only thing
of any real interest to practical people. Now the economist
concentrates on the agents of production for the very good reason that
it is only with respect to them that any clear and certain laws as to
distribution can be laid down. Into the distribution between
individuals and classes there enter other and variable factors,
governed by no fundamental economic law; and _here_, the conclusion
should at once suggest itself, is the field for action designed to
alter the distribution of wealth. What is possible or desirable in
this field, it is again not the purpose of this volume to discuss. It
is an obvious, even if not a very helpful conclusion that an increase
in the habit of saving among weekly wage-earners might, without
appreciably affecting the distribution between Capital and Labor,
greatly modify the resulting distribution between social classes. But
questions as to how far it might be possible or justifiable to achieve
a similar result by the use of the weapon of taxation, by changes in
inheritance laws, or by the public ownership of industry take us into
a far more uncertain and controversial sphere. The difficulties and
objections which present themselves are familiar and formidable; but
they are of quite a different order from the economic laws which we
have been examining. The laws themselves do not entitle us to make any
dogmatic pronouncement upon these large issues of social policy.

But this is not to deprive these laws of practical importance. They
represent essential criteria of sound policy in the sphere of social
reorganization no less than in ordinary business. In our days a
curious obsession has led many people to disparage these criteria, as
though they were the sordid prejudices of a stupid tradesman. Because
it has been found a matter of obvious practical convenience to
maintain the roads out of taxation or of rates, and to dispense with
charges for their use, it is suggested that the same principle should
be applied to the railways. Or, more commonly, because it has been
found convenient to make the same charge for the carrying of letters
between Land's End and John o' Groats as between Hampstead and
Highgate, it is suggested that _this_ principle should be applied to
railway rates and fares. It may be well, therefore, to point out that
the justificatio