There are empires due to conquest where political rule exists only in forced levies of taxes and soldiers, and in which, though the word state may be used, the characteristic signs of a public are notable for their absence.
Dewey critiques the nature of political power in empires that lack genuine public engagement.
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But in this respect he does not differ from those explicitly designated public officials who have also been known to betray the interest committed to them instead of faithfully representing it.
What he believes, hopes for and aims at is the outcome of association and intercourse.
But it indicates where the problem resides, whatever guise it assumes.
The foe to be dreaded is interference of government.