be no security that there will not be war. There will have to be in the world only one Army and one Navy before there will be any reason to think that wars have ceased. This means that, so far as the military functions of the State are concerned, there will be only one State, which will be world-wide.
The civil functions of the State—legislative, administrative, and judicial—have no very essential connection with the military functions, and there is no reason why both kinds of functions should normally be exercised by the same State. There is, in fact, every reason why the civil State and the military State should be different. The greater modern States are already too large for most civil purposes, but for military purposes they are not large enough, since they are not world-wide. This difference as to the desirable area for the two kinds of State introduces a certain perplexity and hesitation, when it is not realized that the two functions have little necessary connection: one set of considerations points towards small States, the other towards continually larger States. Of course, if there were an international Army and Navy, there would have to be some international authority to set them
