The two contrasting policies are those of _laissez-faire_ (let alone) and Protection, or individualism and state-socialism, the one a policy of non-interference with the free play of social forces, the other of their regulation for the benefit of the community. The _laissez-faire_ theory was prominently upheld by John Stuart Mill, whose essay on _Liberty_, together with the concluding chapters of his treatise on _Political Economy_, gives a tolerably complete view of the principles of government. There is a general presumption against the interference of government, which is only to be overcome by very strong evidence of necessity. Governmental action is generally less effective than voluntary action. The necessary duties of government are so burdensome, that to increase them destroys its efficiency. Its powers are already so great that individual freedom is constantly in danger. As a general rule, nothing which can be done by the voluntary agency of individuals should be left to the state. Each man is the best judge of his own interests. But, on the other hand, when the thing itself is admitted to be useful or necessary, and it cannot be effected by voluntary agency, or when it is of such a nature that the consumer cannot be considered capable of judging of the quality supplied, then Mill would allow the state to interpose. Thus the education of children, and even of adults, would fairly come within the province of the state. Mill even goes so far as to admit that, where a restriction of the hours of labour, or the establishment of a periodical holiday, is proved to be beneficial to labourers as a class, but cannot be carried out voluntarily on account of the refusal of individuals to co-operate, government may justifiably compel them to co-operate. Still further, Mill would desire to see some control exercised by the government over the operations of those voluntary associations which, consisting of large numbers of shareholders, necessarily leave their affairs in the hands of one or a few persons. In short, Mill's general rule against state action admits of many important exceptions, founded on no principle less vague than that of public expediency. The essay on _Liberty_ is mainly concerned with freedom of individual character, and its arguments apply to control exercised, not only by the state, but by society in the form of public opinion. The leading principle is that of Humboldt, "the absolute and essential importance of human development in its richest diversity." Humboldt broadly excluded education, religion and morals from the action, direct and indirect, of the state. Mill, as we have seen, conceives education to be within the province of the state, but he would confine its action to compelling parents to educate their children.