dual character in all its
proportions is individual growth, which can be fostered but not forced.
All the catalogue of virtues is made up of elements of character, not one
of which can be made by force. So government of every grade fosters the
highest welfare of individuals by sustaining virtuous motives and
restraining vicious ones, or rather by encouraging right action in its
enjoyment of welfare and restraining wrong action by deprivation of
welfare. Government, therefore, is best when its aims are distinctly
confined to universal welfare. The distinctly personal wants can be best
provided for by affording the best conditions for free exercise of
individual powers. Governments can never wisely do favors for a class,
since such favors weaken the power of government for promoting general
welfare. What government does for any it needs to do for all. What it does
for all it must secure to each in fair proportion. In any effort to extend
the range of governmental action this natural limit of universal welfare
for individuals must be considered.

_Ends of government._--In this view of the reasons for organized government
and its natural limits, certain universal wants can be clearly perceived.
Most obvious is protection against external foes, personal or material.
This universal need, in the presence of personal enemies, is so plain as
to make the crime of treason notorious. The internal peace of society is
just as evidently a universal necessity, and so any infringement upon the
order of society, as agreed upon either by express statute or by the
common law of established precedent, is punished as a crime against all.
Personal violence, even in the shape of private vengeance for wrong done,
is a menace to internal order, and so a crime against the whole
organization. The mutual dependence of each upon all and all upon each in
every-day transactions enforces the interest of the organization in
personal contracts, and makes the government a partner with every
right-doer against every wrong-doer in all attempts at fraud or abuse of
power of every kind. This guardianship of personal freedom makes necessary
the bulk of criminal law and most of the machinery of courts. The
arbitration of disputes between interested parties is a natural sequence
of the effort to prevent violence. Government does not and cannot right
wrongs; it barely saves a remnant of good to the individual wronged, and
furnishes a warning to others against futu