than to simply be a part of another state and share the government of another people. The theory that every nation should constitute a state is called the principle of nationality.

4. Sovereignty Defined. The most important element of the state is called "sovereignty." It is the supreme and absolute power of the state over its citizens and its territory. In republics, sovereignty belongs to the people; but its exercise is generally delegated to the government.

No group of persons can have an independent government without sovereignty. While the Philippines remains under the American flag, the sovereignty that enforces order and secures obedience to the government is the sovereignty of the United States. All the laws of the Philippines are made by authority of the United States. When the Philippines obtains its independence, it will have a government independent of any other, and will possess its own sovereignty, to which all the people inhabiting Philippine territory will owe obedience.

Sovereignty is one and indivisible; but it may have different manifestations. Thus, in a democracy it may appear through the ballot and public opinion, in which case it is called political sovereignty. Again, it may appear in more concrete forms, through recognized governmental channels, like promulgated laws and judicial decisions, in which case it is called legal sovereignty. As will be noticed, it is the legal sovereignty which we are bound to obey, otherwise we are likely to be punished. But those who exercise legal sovereignty must in turn be subject to the control of those expressing political sovereignty.

5. Forms of State. States are classified according to the number of people in whom sovereignty resides. If sovereignty, or the supreme power to command, resides in one man, the state is called a monarchic state. If it resides in a few per

sons, the state is called an aristocratic state. If it resides in a majority of the people, it is called a democratic state.

The theory of a monarchic state is that the supreme power resides in the monarch, and that whatever governmental power the people or their representatives may have is simply a grant from the monarch. An example of a monarchy is the Empire of Japan, for the Mikado still considers himself the source of all powers. In the words of the Constitution of · Japan," the Emperor is the head of the empire, combining in himself the rights of sovereignty."

The United States is an example of a democratic state. The fundamental tenet of the American nation is that sovereignty resides in the people, that is, the supreme authority to command is not in the President or the Congress but in the people. The people created the President and the Congress.

6. Forms of Government. We have seen that government is simply the organ through which a state exercises its will. There are many ways of describing forms of government. One method is based on the number of people who exercise the powers of government. A monarchic government is a government by one man; an aristocratic government is a government by a few men; and a democratic government is a government by all citizens.

We have also divided states into monarchies, aristocracies, and democracies, based on the number of people in whom sovereignty resides. But it is easy to confuse a monarchic state and a monarchic government. The two are by no means synonymous. A monarchic state is one in which the sovereignty or the ultimate supreme power reside in one man. We have cited Japan as an example of a monarchic state, for in the Mikado is supposed to reside the ultimate power of government, the power of sovereignty. But the Mikado does

not personally exercise this power of government. He has allowed the Japanese people to choose representatives, to whom he delegates the principal powers of government. The government of Japan is, therefore, not exactly a monarchic government, for Japan is not ruled by one man; but Japan is a monarchic state, for the Mikado retains the ultimate

"Democratic government may be again divided into "direct democracies" and "representative democracies." A direct democracy is one in which the people actually do the governing. It is naturally impossible, in the case of a large country, for all of the people to gather together to make and administer the laws. A " representative democracy" is therefore established in which the people elect representatives to take charge of the government.

Instead of the term "representative democracy," " republic" is often used. A republic is "a state in which the government is delegated to representatives chosen by its citizens." The chief characteristics of a republic are a constitution (a fundamental law), majority rule, and representation of the people in the government by individuals whom they elect.

7. Constitutional and Despotic Governments. - Governments may also be divided into "constitutional" and "despotic."

A "constitutional " government is a government in which the power of the officials is limited by a set of rules or laws, called a constitution, agreed upon or freely acquiesced in by the people. It is, in the words of President Wilson, "a government with the consent of the governed.”

A "despotic" government is one in which the powers of those who rule are not limited by any constitutional understanding or agreement with the people.

Normally, a democratic state must have a constitutional government. Sovereignty being in the people, the people themselves find it convenient to draft a constitution defining the powers and limitations of those to whom they entrust the power of the government they are establishing. But a monarchic state may also have a constitutional government. We again cite the example of Japan in which the monarch promulgated a constitution which was received and accepted by the people.

8. Individualistic and Paternal Governments. - Governments may be also classified as "individualistic" and "paternal."

An "individualistic " government is one whose activities are limited mainly to police functions, the maintaining of peace, order, and security, and the protection of private rights. It leaves less essential work to private persons.

A "paternal" government is one which not only protects property and life and restrains wrongdoing, but also promotes the economic, social, and educational well-being of the people. It does things which are ordinarily left with the individuals to do. A paternal government, for instance, supplies the hungry, provides the destitute with clothing, prohibits factories from employing children, and takes charge of the transportation and other necessaries which citizens in their individual capacities are unable to do.

9. Organization of Government. — Governments, as the instrumentalities through which the purposes of states are realized, must necessarily be complex and intricate machines, differing greatly in type and organization. They may, for instance, be either highly bureaucratic or popular. A bureaucratic government is one in which most of the officials and administrators are not elected by the people at short intervals, but serve, usually, for long terms during good behavior. A popular government is one in which the majority of the officials are called, through election and at short intervals, from the ranks of the people.

The functions of government are usually divided into legislative, executive, and judicial. Legislative functions pertain to the making of the laws the expression of the state will. Executive functions pertain to the enforcement of these laws the execution of the state will. Judicial functions pertain to the interpretation of the laws promulgated by the state or the legislature and to meting out punishment for their violation.

In the organization of the legislative and executive departments, two main practices and theories have been used and maintained. One theory makes the executive not only separate from, but completely independent of, the legislature. No one official is allowed to hold both executive and legis