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Nobody can plan the actions of even a thousand living persons, separately. Anyone attempting to control millions must divide them into classes, and make a plan applying to these classes.
But these classes do not exist. No two persons are alike. No two are in the same circumstances; no two have the same abilities; beyond getting the barest necessities of life, no two have the same desires.
Therefore the men who try to enforce, in real life, a planned economy that is their theory, come up against the infinite diversity of human beings. The most slavish multitude of men that was ever called "demos" or "labor" or "capital" or "agriculture" or "the masses," actually are men; they are not sheep.
Naturally, by their human nature, they escape in all directions from regulations applying to non-existent classes. It is necessary to increase the number of men who supervise their actions. Then (for officials are human, too) it is necessary that more men supervise the supervisors. Still, individuals will continue to act individually, in ways that they plan. These ways do not fit into Authority's plan. So still more men are needed, imperatively needed, to stop or to supervise these new ways of acting; and more men to supervise these supervisors; and more men to co-ordinate the constantly increasing complexity of all this supervision.
An attempt to exercise a control of individuals that in reality does not exist, must increase in volume.
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