Legislators, while vociferously voicing their determination to cause to be invoked the law, every now and then take out from the application of these laws varying groups: railroads, public utilities, farmers, laborers, and so forth; while the courts are called upon to revise decrees against packers and these find support for their plea from erstwhile opponents. Meanwhile, the merger movement under strong economic urge goes striding forward and the stock market gets frenzied support from twenty million small speculator-investors who are determined to own a few shares in our great industries, confident in the destiny of our great business enterprises. Likewise the advance of scientific attainment, and the growth of new economic conception that high earnings for the individual are in accord with the possibilities of wider markets and lower costs, daily presents a new picture in which legal prohibitions take a constantly diminishing part. The American legislator understands no better than other legislators the new technical sciences with which he has to deal, and he is puzzled and uncomfortable in passing laws he does not understand to remedy conditions he cannot explain. Government is political. Quite likely it must, and always should, so remain. Mass government will probably be a full test for its capacities. Modern mass production, mass distribution, mass credit and mass enterprise are, generally, and must remain, without the scope of government, except as to most general rules and specific kinds of malevolence. But the political theory comprehends and asserts that only rdinary intelligence and average equipment are necessary for one to make a success in administering the affairs of government. President Jackson, in his first message to Congress, wrote: