THE FUNCTIONS OF GOVERNMENT.
92. Functions mean performances (Latin, _fungi_, _functus_, to perform),
and the functions of government mean those things which a government
ought to do,--the duties which it undertakes to perform, or the services
which it may be expected to render to the people governed. These
functions are commonly divided into two classes--
(1) The necessary functions.
(2) The optional functions.
The #necessary functions# of a government are such as it is obliged to
undertake; thus it must defend the nation against foreign enemies, it
must keep the peace within the country, and prevent insurrections which
might threaten the existence of the government itself; it must also
punish evildoers who break the laws, and try to become rich by robbery;
it must also maintain law courts in which the disputes of its subjects
can be fairly decided, and set at rest. These are far from being all the
necessary functions.
The #optional functions# of government consist of those kinds of work
which a government can execute with advantage, such as providing a good
currency, establishing a uniform system of weights and measures,
constructing and maintaining the roads, carrying letters through a
national post office, keeping up a national observatory and a
meteorological office, &c. The optional functions are in fact very
numerous, and there is hardly any end to the things which one government
or another has provided for the people. It would be a most important
work, if it were possible, to decide exactly what undertakings a
government should take upon itself, and what it should leave to the free
action of other people; but it is impossible to lay down any precise
rules upon this subject. The characters and habits and circumstances of
nations differ so much, that what is good in one case might be bad in
another. Thus in Russia the government makes all the railways, and the
same is the case in the Australian States; but it does not at all follow
that, because this is necessary or desirable in those countries,
therefore it is desirable in England, or Ireland, or the United States.
Experience shows that though the English Post Office is very profitable,
the Postal Telegraphs cannot at present be made to pay. There can be no
doubt that #it would be altogether ruinous to put the enormous system of
English railways under the management of government officers#. Each case
has thus to be judged upon its own merits, and all that the political
economist can do is to point out the general advantages and
disadvantages of government management.
#93. The Advantage of Government Management.# There is often immense
economy in having a single establishment to do a certain kind of work
for the whole country. For instance, a weather office in London can get
daily telegraphic reports of the weather in all parts of the kingdom and
many parts of Europe; combining and comparing these reports it can form
a much better opinion about the coming weather than would be possible to
private persons, and this opinion can be rapidly made known by the
telegraph and newspapers. The few thousand pounds spent by the
government yearly on the meteorological office are inconsiderable
compared with the services which it may render to the public by
preventing shipwrecks, colliery explosions, and other great disasters
and inconveniences which often arise from our ignorance of the coming
weather. It is certainly proper then to make meteorological observation
one of the functions of government.
Great economy would arise, again, if an establishment like the
post-office were created in Great Britain in order to convey small goods
and parcels. At present there are a great number of parcel companies,
but they often send a cart a long way to deliver a single parcel. In
London some half a dozen independent companies send carts all over the
immense town; each of the chief railway companies has its own system of
delivering parcels, and the larger shops have their own delivery vans as
well. Thus there is an enormous loss of horse power and men's time. If a
government postal system undertook the work, only one cart would deliver
goods in each street, and as there might be a parcel for almost every
house, or sometimes several, there would be an almost incredible saving
in the distance travelled and the time taken up. This illustrates the
economy which may arise from government management.
#94. The Disadvantage of Government Management.# On the other hand there
is great evil in the government undertaking any work which can be fairly
done by private persons or companies. Officers of the government are
seldom dismissed when once employed, or, if turned away, they receive
pensions. Thus when the government establishes any new work, it cannot
stop it without great expense, and the work is usually carried on
whether it is done economically or not. Then again, government officers,
knowing that they will not be dismissed without a pension, are commonly
less active and careful than men in private employment. For the work
which they do they are paid at a higher rate than in private
establishments.
It is therefore very undesirable that the Government should take any
kind of work into its own hands, unless it is perfectly clear that the
work will be done much better, and more cheaply than private persons
could do it. There is a balance of advantages and disadvantages to be
considered: the advantage of a single great establishment with plenty of
funds; and the disadvantage that work is always done more expensively by
Government. In the case of the post-office, the advantages greatly
outweigh the disadvantages; the same would probably be the case with a
well-arranged parcel post; in the postal telegraphs, there are many
advantages, but they are obtained at a considerable loss of revenue. If
the state were to buy up and manage the railways of Great Britain, the
advantages would be comparatively small, but the losses would be
enormous. In America the express or parcel companies are so admirably
managed that they do the work more safely and better than the Government
post office. There can be little doubt, too, that the American railways
and telegraphs are far better managed now than they would be if acquired
by the Federal Government.