4 THE BRITISH APPROACH TO POLITICS

able, or are prepared to tolerate. A Sovereign, therefore, is a
body exercising, not all power, but the maximum power within
these limits. Such a Sovereign is found in every human group
—or else a state of confusion and change exists, out of which a
new Sovereign will arise.

A Sovereign which fulfils its part of the Social Contract is
said to do justice, and this word also needs examination. There ,
are some happenings which illustrate it plainly enough. When
Ahab and Jezebel killed Naboth in order to take his vineyard,
they committed injustice. But when Solon announced that
debts owing to rich landowners in ancient Attica were not to be
paid, he won a reputation for wisdom. When the British Parlia-
ment in 1832 deprived some landowners of the power to say
who should be Members of Parliament, the justice of their action
was hotly disputed, though nearly everyone would approve it
to-day. When the Spanish Republic deprived some religious
orders of their property, there was, and still is, fierce controversy.
So an abstract rule, that justice means not interfering with the
rights and powers which people have, will not serve. The question
must be put, what is the power of Government for? Its purpose
is to make such a framework of rules that men can perform the
business of getting their living as efficiently and happily as
technical knowledge permits, and then enjoy their leisure, and
develop their talents and personalities, as freely as the need to
respect* other people's freedom allows. Any actions of Govern-
ment which help to this end are just; as ways of getting a living
change, so the list of what actions are just also changes*

There is, however, one positive rule that may be laid down
about justice. Although laws must be changed from time to
time, they ought at any one time to be definite and known. Even
a-game cannot be played with someone who invents a new rule
every time he is in difficulties. No one will be eagsr to work on
a piece of land if he does not knpw whether the law requires
him to pay a rent or not. Certainty of the rules is a necessary
condition of activity, and without activity man cannot live.