their united force in accordance with the commands of a Government. In a civilized State force is only employed against its own citizens in accordance with rules previously laid down, which constitute the criminal law. But the employment of force against foreigners is not regulated by any code of rules, and proceeds, with few exceptions, according to some real or fancied national interest.
There can be no doubt that force employed according to law is less pernicious than force employed capriciously. If international law could acquire sufficient hold on men's allegiance to regulate the relations of States, a very great advance on our present condition would have been made. The primitive anarchy which precedes law is worse than law. But I believe there is a possibility of a stage to some extent above law, where the advantages now secured by the law are secured without loss of freedom, and without the disadvantages which the law and the police render inevitable. Probably some repository of force in the background will remain necessary, but the actual employment of force may become very rare, and the degree of force required very small. The anarchy which precedes law gives freedom only to the
