In this sense, what is at issue in the controversy over the administration’s rule is not just the question of religious liberty but the question of non-governmental institutions in a free society. Does civil society consist of a set of institutions that help the government achieve its purposes as it defines them when their doing so might be more efficient or convenient than the state’s doing so itself, or does civil society consist of an assortment of efforts by citizens to band together in pursuit of mutual aims and goods as they understand them?