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A modern state does not rest content with being merely a “police” or law and order state. It is much more than that. It tends to become a social welfare state. And in order to carry out its activities and function, whatever may be the range, it become necessary for any state to establish certain basic organs or agents or instrumentalities which act on its behalf and through which the State can function and operate. All the people in a state cannot combine and operate all together all the time to achieve the desired goals. Thus certain fundamental organs become necessary.