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“The essential characteristic of all government, whatever its form, is authority. There must, in every instance, be, on the one hand, governors, and on the other hand, those who are governed. And the authority of governors, directly or indirectly, rest in all cases ultimately on FORCE. Government, in its last analysis, is organized force. Not necessarily or invariably organized, armed force, but the will of a few men, of many men, or of a community prepared by organization to realize its own purposes with reference to the common affairs of the community. Organized, that is, to rule, to dominate.”