INTRODUCTION
Ensign Peak is a mountain summit that rises behind the state capitol building in Utah. Early settlers climbed it because it afforded them a view of the entire valley. During my time as governor, I often climbed Ensign Peak at lunch for exercise. At the summit, I would imagine the barren landscape the settlers beheld and contrast it with what I saw—a matrix of highways, utility systems, businesses, schools, hospitals, and neighborhoods.
The social landscape shows a similar growth in variety and complexity. To bring order to the complex sociology, politics, and economic self-interest of any growing society, government was established. ...
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