rtunately, this need grows with the
growing density of population. Crime increases when men swarm in
great cities. The courts which settle disputes between men, and which
interpret their contracts, are agencies of peace, displacing physical
contests. To maintain and operate the various parts of the social
machinery requires ever increasing governmental revenues. From many
causes government has, in modern times, grown increasingly costly.

Sec. 3. #Social and industrial functions.# The social and industrial
functions of government seem naturally to grow out of the primary
ones just mentioned. In a democratic society, popular education is
a necessity, as it appears that domestic order is not possible in a
democratic state without intelligent citizens. The system of public
education has, in many states, expanded to include a publicly
supported university as the dominant educational and scientific organ
of the community. Some industrial functions are performed by the
government in connection with the primary needs. Lighthouses are
necessary to guide the navy, but they also serve to guide the merchant
marine and to aid industry. The post was established as an agent
of political and military government to connect the ruler with the
outposts (a fact the name post indicates), but the postal service has
grown in every country to be a great industrial and social agency.
The consular service, originating in the political need of keeping
official representatives in foreign lands, has become a valuable
economic agency; consuls are commercial agents, advancing the business
interests of their countries in all quarters of the globe.

Sec. 4. #The enlarging sphere of the state.# A mere police state would
leave to private initiative the provision of every kind of economic
agencies not needed for political government. The state might, for
example, even leave the provision of roads and bridges to private
individuals or to companies, permitting them to charge tolls to obtain
a return on their investment. Whenever a toll-road is made public and
a toll-bridge becomes free, and the state maintains the roads, it is
becoming less strictly a mere police state. Reacting from the ideal
of the police state which was most highly praised in the first half
of the nineteenth century, the functions of government have been
extending in many directions in the last half century. More and more
economic functions are performed through the agency of governmen