3
Whosoever wishes to describe the political life of the
American people can accomplish this end from a number
of starting points. Perhaps he would begin most
naturally with the Articles of the Constitution and expound the
document which has given to the American body-politic its remarkable
and permanent form; or he might ramble through history
and trace out from petty colonies the rise of a great world-power;
or he might make his way through that multitude of events
which to-day arouse the keenest public interest, the party strifes
and presidential elections, the burdens and amenities of city and
state, the transactions of the courts and of Congress. Yet all this
would be but a superficial delineation. Whoever wishes to understand
the secret of that baffling turmoil, the inner mechanism and
motive behind all the politically effective forces, must set out from
only one point. He must appreciate the yearning of the American
heart after self-direction. Everything else is to be understood
from this.
In his social life the American is very ready to conform to the
will of another. With an inborn good-nature, and often too willingly,
perhaps, he lends himself to social situations which are otherwise
inconvenient. Thus his guest, for instance, is apt to feel like
a master in his house, so completely is his own will subordinated
to that of the guest. But, on the other hand, in the sphere of public
life, the individual, or a more or less restricted group of individuals,
feels that it must guide its own activities to the last detail
if these are to have for it any value or significance whatsoever. He
will allow no alien motive to be substituted—neither the self-renunciation
of fidelity or gratitude, nor the æsthetic self-forgetfulness
of hero-worship, nor even the recognition that a material
4advantage would accrue or some desirable end be more readily
achieved if the control and responsibility were to be vested in some
one else. This self-direction is neither arbitrary nor perverse;
least of all does it indicate a love of ease or aversion to toil. In
Russia, as a well-known American once said, serfdom could be
wiped out by a stroke of the Czar’s pen, and millions of Russians
would be freed from slavery with no loss of life or property.
“We Americans had to offer up a half-million lives and many millions’
worth of property in order to free our slaves. And yet nothing
else was to be thought of. We had to overcome that evil by
our own initiative, and by our own exertions reach our goal. And
just because we are Americans and not Russians no power on
earth could have relieved us of our responsibility.”
When in any people the desire of self-direction dominates all
other motives, the form of government of that people is necessarily
republican. But it does not conversely follow that every republic
is grounded in this spirit of self-direction. Hence it is that the
republic of the United States is so entirely different from all other
republics, since in no other people is the craving for self-determination
so completely the informing force. The republics of
Middle and South America, or of France, have sprung from an
entirely different political spirit; while those newer republics,
which in fundamental intention are perhaps more similar, as for
instance Switzerland, are still not comparable because of their
diminutive size. The French republic is founded on rationalism.
The philosophy of the eighteenth century, with its destructive
criticism of the existing order, furnished the doctrines, and from
that seed of knowledge there grew and still are growing the practical
ideals of France. But the political life of the United States
sprang not from reasoned motives but from ideals; it is not the
result of insight but of will; it has not a logical but a moral foundation.
And while in France the principles embodied in the constitution
are derived from theory, the somewhat doubtful doctrines
enunciated in the Declaration of Independence are merely
a corollary to that system of moral ideals which is indissolubly
combined with the American character.
It is not here to be questioned whether this character is purely
the cause and not also the effect of the American system; but so
much is sure, that the system of political relations which has
5sprung from these ethical ideals constitutes the actual body-politic
of America. Such is the America which receives the immigrant
and so thoroughly transforms him that the demand for
self-determination becomes the profoundest passion of his soul.
Such is the America toward which he feels a proud and earnest
patriotism. For the soil on which his kingdom has been reared
he knows but scanty sentiment or love; indeed, the early progress
of America was always an extension of the frontier, an unremitting
pushing forth over new domain. The American may be
linked by personal ties to a particular plot of land, but his national
patriotism is independent of the soil. It is also independent of
the people. A nation which in every decade has assimilated millions
of aliens, and whose historic past everywhere leads back to
strange peoples, cannot with its racial variegation inspire a profound
feeling of indissoluble unity. And yet that feeling is present here
as it is perhaps in no European country. American
patriotism is directed neither to soil nor citizen, but to a system of
ideas respecting society which is compacted by the desire for self-direction.
And to be an American means to be a partizan of this
system. Neither race nor tradition, nor yet the actual past binds
him to his countryman, but rather the future which together they
are building. It is a community of purpose, and it is more effective
than any tradition, because it pervades the whole man. Participation
in a common task holds the people together, a task with
no definite and tangible end nor yet any special victory or triumph
to look forward to, but rather a task which is fulfilled at each
moment, which has its meaning not in any result but in the doing,
its accomplishment not in any event which may befall, but only in
the rightness of the motive. To be an American means to co-operate
in perpetuating the spirit of self-direction throughout the
body-politic; and whosoever does not feel this duty and actively
respond to it, although perhaps a naturalized citizen of the land,
remains an alien forever.
If the newcomer is readily assimilated in such a society, commonly,
yet it must not be overlooked that those who come from
across the seas are not selected at random. Those who are
strong of will are the ones who seek out new spheres of activity.
Just those whose satisfaction in life has been stunted by a petty
and oppressive environment have always cherished a longing for
6the New World. That conflict which every one must wage in his
own bosom before he can finally tear himself away from home, has
schooled the emigrant for the spirit of his new home; and only
those who have been impelled by the desire for self-direction have
had the strength to break the ties with their own past. Thus it is
that those of Germanic extraction adapt themselves so much more
quickly and thoroughly to the political spirit of America than those
of Romanic blood. The Latin peoples are much more the victims
of suggestion. Being more excitable, they are more imitative,
and therefore as individuals less stable. The Frenchman,
Italian, or Spaniard is often a sympathetic member of the social
life of the country, but in its political life he introduces a certain
false note; his republicanism is not the American republicanism.
As a moral ideal he has little or no concern with the doctrine of
self-direction.
The American political system, therefore, by no means represents
an ideal of universal significance; it is the expression of
a certain character, the necessary way of living for that distinct
type of man which an historically traceable process of selection
has brought together. And this way of living reacts in its turn
to strengthen the fundamental type. Other nations, in whom
other temperamental factors no less significant or potent or admirable
are the fundamental traits, must find the solution of
their political problems in other directions. No gain would accrue
to them from any mere imitation, since it would tend to nothing
but the crippling and estranging of the native genius of their
people.
The cultivated American of to-day feels this instinctively.
Among the masses, to be sure, the old theme is still sometimes
broached of the world-wide supremacy of American ideals: and
a part of the necessary paraphernalia of popular assemblages will
naturally consist in a reaffirmation that the duty of America is to
extend its political system into every quarter of the globe; other
nations will thus be rated according to their ripeness for this system,
and the history of the world appear one long and happy
education of the human race up to the plane of American conceptions.
But this tendency is inevitable and not to be despised. It
must more nearly concern the American than the citizen of other
states to propagate his ideals, since here everything depends on
7each individual co-operating with all his might, and this co-operation
must succeed best when it is impelled by an uncritical and
blindly devoted faith. And such a faith arouses, too, a zealous missionary
spirit, which wants to carry this inspired state-craft unto
all political heathen. But the foreigner is apt to overestimate
these sentiments. The cultivated American is well aware that the
various political institutions of other nations are not to be gauged
simply as good or bad, and that the American system would be as
impossible for Germany as the German system for America.
Those days are indeed remote when philosophy tried to discover
one intrinsically best form of government. It is true that in the
conflicts of diverse nations the old opposition of realistic and idealistic,
of democratic and aristocratic social forces is repeated over
and over. But new problems are always coming up. The
ancient opposition is neutralized, and the problem finds its practical
solution in that the opposing forces deploy their skirmish
lines in other territory. The political ideas which led to the
French Revolution had been outlived by the middle of the nineteenth
century. A compromise had been effected. The whole
stress of the conflict had transferred itself to social problems, and
no one earnestly discussed any more whether republic or monarchy
was the better form of government. The intellectual make-up
of a people and its history must decide what shall be the outward
form of its political institutions. And it is to-day tacitly admitted
that there are light and shade on either side.
The darker side of democracy, indeed, as of every system which
is founded on complete individualism, can be hidden from no one;
nor would any one be so foolish, even though he loved and admired
America, as to deny that weaknesses and dangers, and evils
both secret and public, do there abound. Those who base their
judgments less on knowledge of democratic forces than on obvious
and somewhat sentimental social prejudices are apt to look for
the dangers in the wrong direction. A German naturally thinks
of mob-rule, harangues of the demagogue, and every form of lawlessness
and violence. But true democracy does not allow of such
things. A people that allows itself to turn into a mob and to be
guided by irresponsible leaders, is not capable of directing itself.
Self-direction demands the education of the nation. And nowhere
else in the world is the mere demagogue so powerless, and
8nowhere does the populace observe more exemplary order and
self-discipline.
The essential weakness of such a democracy is rather the importance
it assigns to the average man with his petty opinions,
which are sometimes right and sometimes wrong, his total lack of
comprehension for all that is great and exceptional, his self-satisfied
dilettanteism and his complacency before the accredited and trite in
thought. This is far less true of a republic like the French, with its
genius for scepticism, a republic nourished in æsthetic traditions
and founded on the ruins of an empire. The intellectual conditions
are there quite different. But in an ethical democracy,
where self-direction is a serious issue, domination by the average
intelligence is inevitable; and those who are truly great are the
ones who find no scope for their powers. Those who appear
great are merely men who are exploiting to the utmost the tendencies
of the day. There are no great distinctions or premiums
for truly high achievements which do not immediately concern
the average man, and therefore the best energies of the nation are
not spurred on to their keenest activity. All ambition is directed
necessarily toward such achievements as the common man can
understand and compete for—athletic virtuosity and wealth.
Therefore the spirit of sport and of money-getting concerns the
people more nearly than art or science, and even in politics the
domination of the majority easily crowds from the arena those
whose qualifications do not appeal to its mediocre taste. And by
as much as mature and capable minds withdraw from political
life, by so much are the well-intentioned masses more easily led
astray by sharp and self-interested politicians and politics made to
cater to mean instincts. In short, the danger is not from any wild
lawlessness, but from a crass philistinism. The seditious demagogue
who appeals to passion is less dangerous than the sly political
wire-puller who exploits the indolence and indifference of
the people; and evil intent is less to be feared than dilettanteism
and the intellectual limitations of the general public.
But, on the other hand, it is also certain that when it comes to
a critical comparison between the weaknesses and theoretical dangers
of democracy and aristocracy, the American is at no loss to
serve up a handsome list of shortcomings to the other side. He
has observed and, perhaps overestimating, he detests the spirit of
9caste, the existence of those restrictions which wrongfully hamper
one individual and as undeservedly advantage another. Again,
the American hates bureaucracy and he hates militarism. The
idea of highest authority being vested in a man for any other
reason than that of his individual qualifications goes against all
his convictions; and his moral feeling knows no more detestable
breed of man than the incompetent aspirant who is servile with his
superiors and brutal to his inferiors. It is typically un-American.
And if, in contrast to this, one tries to do justice to the proved advantages
of monarchy, of aristocracy and the spirit of caste, to
justify the ruler who stands above the strife of parties, and to defend
that system of symbols by which the sentiment of the past is
perpetuated in a people, and the protection which is instituted for
all the more ideal undertakings which surpass the comprehension
of the masses, or if one urges the value of that high efficiency
which can arise only from compact political organization—then
the American citizen swells with contempt. What does he care
for all that if he loses the inestimable and infinite advantage
which lies in the fact that in his state every individual takes an
active hand, assumes responsibility, and fights for his own ideals?
What outward brilliancy of achievement would compensate him
for that moral value of co-operation, initiative, self-discipline, and
responsibility, which the poorest and meanest citizen enjoys? It
may be that an enlightened and well-meaning monarch sees to it
that the least peasant can sit down to his chicken of a Sunday;
but God raised up the United States as an example to all nations,
that it shall be the privilege of every man to feel himself responsible
for his town, county, state, and country, and even for all mankind,
and by his own free initiative to work to better them. The
strife of parties would better be, than that a single man should be
dead to the welfare of his country; and it is good riddance to aristocracy
and plenty, if a single man is to be prevented from emulating
freely the highest that he knows or anywise detained from his
utmost accomplishment.
All such speculative estimates of different constitutional forms
lead to no result unless they take into account the facts of history.
Every side has its good and evil. And all such discussions are the
less productive in that superiorities of constitution, although
soundly argued, may or may not in any given country be fully
10made use of, while on the other hand defects of constitution are
very often obviated. Indeed, to take an example from present
tendencies in America, nothing is more characteristic than the
aristocratic by-currents through which so many dangers of democracy
are avoided. Officially, of course, a republic must remain
a democracy, otherwise it mines its own foundations, and
yet we shall see that American social and political life have developed
by no means along parallel lines but rather stand out often
in sharp contrast. The same is true of Germany. Official Germany
is aristocratic and monarchic through and through, and no
one would wish it other; but the intimate life of Germany becomes
every day more democratic, and thus the natural weaknesses of an
aristocracy are checked by irresistible social counter-tendencies.
It may have been the growing wealth of Germany which raised
the plane of life of the middle classes; or the industrial advance
which loaned greater importance to manufacturer and merchant,
and took some social gloss from the office-holding class; it may
have been the colonial expansion which broadened the horizon
and upset a stagnant equilibrium of stale opinion; or, again, the renewed
efforts of those who felt cramped and oppressed, the labourers,
and, above all, the women; it does not matter how it arose—a
wave of progress is sweeping over that country, and a political
aristocracy is being infused with new, democratic blood.
Now in America, as will often appear later, the days are over
in which all aristocratic tendencies were strictly held back. The
influence of intellectual leaders is increasing, art, science, and the
ideals of the upper classes are continually pushing to the front,
and even social lines and stratifications are beginning more and
more to be felt. The soul of the people is agitated by imperialistic
and military sentiments, and whereas in former times it was
bent on freeing the slaves it now discovers “the white man’s burden”
to lie in the subjugation of inferior races. The restrictions
to immigration are constantly being increased. Now of course
all this does not a whit prejudice the formal political democracy
of the land; it is simply a quiet, aristocratic complement to the
inner workings of the constitution.
The presence, and even the bare possibility, here, of such by-currents,
brings out more clearly how hopeless the theoretical estimation
of any isolated form of statehood is, if it neglects the factors
11introduced by the actual life of the people. The American
democracy is not an abstractly superior system of which a European
can approve only by becoming himself a republican and condemning,
incidentally, his own form of government: it is rather,
merely, the necessary form of government for the types of men and
the conditions which are found here. And any educated American
of to-day fully realizes this. No theoretical hair-splitting will
solve the problem as to what is best for one or another country;
for that true historical insight is needed. And even when the
histories of two peoples are so utterly dissimilar as are those of
America and Germany, it by no means follows, as the social by-currents
just mentioned show, that the real spirit of the peoples
must be unlike. Democratic America, with its unofficial aristocratic
leanings, has, in fact, a surprising kinship to monarchical
Germany, with its inner workings of a true democracy.
The two peoples are growing into strong resemblance, although
their respective constitutions flourish and take deeper root.
The beginnings of American history showed unmistakably and
imperatively that the government of the American people must
be, in the words of Lincoln, “a government of the people, by the
people, and for the people.” No one dreamed when the Constitution
of the United States was framed, some hundred and seventeen
years ago, that this democratic instrument would ever be
called on to bind together a mighty nation extending from Maine
to California. And, indeed, such a territorial expansion would
undoubtedly have stretched and burst the unifying bonds of this
Constitution, if the distance between Boston and San Francisco
had not meanwhile become practically shorter than the road from
Boston to Washington was in those early days. But that this
Constitution could so adapt itself to the undreamt broadening of
conditions, that it could continue to be the mainstay of a people
that was indefinitely extending itself by exchange and purchase,
conquest and treaty, and that in no crisis has an individual or
party succeeded in any tampering with the rights of the people; all
this shows convincingly that the American form of state was not
arbitrarily hit on, but that it was the outcome of an historical
development.
12The spirit of this commonwealth was not first conceived
in the year 1787. It was strong and ripe long before the delegates
from the Thirteen States assembled under Washington’s leadership
in Independence Hall at Philadelphia. The history of the
English colonists to the Atlantic coast shows from the very first
what weight they attached to the duties and rights of the individual,
and foretells as well the inevitable result, their unloosing from
the mother country and final declaration of their independence.
We may consider the different lines of development which
began early in the seventeenth century, after the feeble attempts
at colonization from England, France and Spain in the latter half
of the sixteenth century had miscarried and left socially no traces.
French settlements flourished as early as 1605, chiefly however in
Nova Scotia and other parts of Canada, and in 1609 settlements
of Dutch, whose colony on the Hudson River, the present New
York, soon passed over into English hands. The development of
the Spanish colonies on the Gulf of Mexico went on outside the
territory of these young United States; and so the story of the
meagre years of America is comprised in the history of the
English colonies alone.
These colonies began diversely but came to resemble one
another more and more as time went on. There can be no greater
contrast than between the pioneer life of stout-willed men, who
have left their native soil in order to live in undisturbed enjoyment
of their Puritan faith, seeking to found their little communities on
simple forms of self-government, and on the other hand the occupation
of a rich trading company under royal charter, or the inauguration
of a colony of the crown. But these differences could not be preserved.
The tiny independent communities, as they grew in consideration,
felt the need of some protecting power and therefore
they looked once more to England; while, on the other hand,
the more powerful, chartered colonies tended to loose themselves
from the mother country, feeling, as they soon did, that their
interests could not be well administered from across a broad
ocean. In spite of the protecting arm of England, they felt it to
be a condition of their sound growth that they should manage their
domestic affairs for themselves. Thus it happened that all the colonies
alike were externally dependent on England, while internally
they were independent and were being schooled in citizenship.
13The desire for self-government as a factor in the transformations
which went on can very easily be traced; but it would be harder
to say how far utilitarian and how far moral factors entered in.
Virginia took the first step. Its first settlement of 1606 was
completely subject to the king, who granted homesteads but no
political rights to the colonists. It was a lifeless undertaking until
1609, when its political status was changed. The administration
of the colony was entrusted to those who were interested in
its material success. It became a great business undertaking
which had everything in its favour. At the head was a London
company, which for a nominal sum had been allowed to purchase
a strip of land having four hundred miles of seacoast and extending
inland indefinitely. This land contained inestimable natural
resources, but needed labour to exploit them. The company then
offered to grant homes on very favourable terms to settlers, receiving
in return either cash or labour; and these inducements,
together with the economic pressure felt by the lower classes at
home, brought about a rapid growth of the colony. Now since
this colony was organized like a military despotism, whose ruler,
however, was no less than three thousand miles away, the interests
of the company had to be represented by officials delegated to live
in the colony. The interests of these officials were of course never
those of the colonists, and presently, moreover, unscrupulous
officials commenced to misuse their power; so that as a result, while
the colony flourished, the company was on the brink of failure.
The only way out of this difficulty was to concede something to the
colonists themselves, and harmonize their interests with those of
the company by granting them the free direction of their own
affairs. It was arranged that every village or small city should be
a political unit and as such should send two delegates to a convention
which sat to deliberate all matters of common concern.
This body met for the first time in 1619; and in a short time it
happened, as was to be expected, that the local government felt
itself to be stronger than the mercantile company back in London.
Disputes arose, and before five years the company had ceased to
exist, and Virginia became a royal province. But the fact remained
that in the year 1619 for the first time a deliberative body
representing the people had met on American soil. The first step
toward freedom had been taken. And with subtle irony fate decreed
14that in this same year of grace a Dutch ship should land the
first cargo of African negroes in the same colony, as slaves.
That other form of political development, which started in the
voluntary compact of men who owned no other allegiance, was
first exemplified in the covenant of those hundred and two Puritans
who landed from the Mayflower at Plymouth, in the year
1620, having forsaken England in order to enjoy religious freedom
in the New World. A storm forced them to land on Cape
Cod, where they remained and amid the severest hardships built
up their little colony, which, as no other, has been a perpetual
spring of moral force. Even to-day the best men of the land derive
their strength from the moral courage and earnestness of life
of the Pilgrims. Before they landed they signed a compact, in
which they declared that they had made this voyage “for ye glory
of God and advancement of ye Christian faith, and honour of our
King and countrie,” and that now in the sight of God they would
“combine ... togeather into a civil body politik for our better
ordering and preservation and furtherance of ye end aforesaid,
and by vertue hearof to enacte, constitute and frame such just
and equal lawes, ordinances, actes, constitutions and offices from
time to time, as shall be thought most meete and convenient for
ye generall good of ye colonie.”
The executive was a governor and his assistants, elected annually
from the people: while the power to make laws remained
with the body of male communicants of the church. And so it remained
for eighteen years, until the growth of the colony made it
hard for all church-members to meet together, so that a simple
system of popular representation by election had to be introduced.
This colony united later with a flourishing trading settlement,
which centred about Salem; and these together formed the Massachusetts
Bay Colony, which in 1640 numbered already twenty
thousand souls.
The covenant which was drawn up on board the Mayflower is
to be accounted the first voluntary federation of independent
Americans for the purposes of orderly government. The first
written constitution was drawn up in the colony of Connecticut,
a colony which repeated essentially the successful experiments of
New Plymouth, and which consisted of agricultural settlements
and small posts for trading with the Indians situated at Windsor
15and Hartford and other places along the Connecticut Valley.
Led by common interests, they adopted in 1638 a formal constitution.
There was still a third important type of colonial government,
which was at first thoroughly aristocratic and English, and nevertheless
became quickly Americanized. It was the custom of the
King to grant to distinguished men, under provision of a small
tribute, almost monarchical rights over large tracts of land. The
first such man was Lord Baltimore, who received in 1632 a title to
the domain of Maryland, on the Chesapeake Bay. He enjoyed
the most complete princely prerogatives, and pledged to the crown
in return about a fifth part of the gold and silver mined in his
province. In 1664 Charles the Second gave to his brother, the Duke
of York, a large territory, which was soon broken up, and which
included what are now known as the States of Vermont, New Jersey,
and Delaware. The great provinces of Georgia and Carolina—now
North and South Carolina—were awarded by the same
King to one of his admirals, Sir William Penn, for certain services.
Penn died, and his son, who found himself in need of the sixteen
thousand pounds which his father had loaned to the King, gratified
that monarch by accepting in their stead a stretch of coast
lands extending between the fortieth and forty-third degrees of
latitude.
In this way extensive districts were turned over to the caprice
of a few noblemen; but immediately the spirit of self-direction
took everywhere root, and a social-political enthusiasm proceeded
to shape the land according to new ideals. Carolina took counsel
of the philosopher, Locke, in carrying out her experiment. Maryland,
which was immediately prospered with two hundred men of
property and rank, chiefly of Roman Catholic faith, started out
with a general popular assembly, and soon went over to the representative
system. And Penn’s constructive handiwork, the
Quaker State of Pennsylvania, was intended from the first to be
“a consecrated experiment.” Penn himself explained that he
should take care so to arrange the politics of his colony that
neither he himself nor his successors should have an opportunity
to do wrong. Penn’s enthusiasm awoke response from the
continent: he himself founded the “city of brotherly love,”
Philadelphia; and Franz Daniel Pastorius brought over his
16colony of Mennonites, the first German settlers, who took up
their abode at Germantown.
Thus it was that the spirit of self-reliant and self-assertive independence
took root in the most various soils. But that which
led the colonies to unite was not their common sentiments and
ambitions, but it was their common enemies. In spite of the
similarity of their positions there was no lack of sharp contrasts.
And perhaps the most striking of these was the opposition between
the southern colonies, with their languid climate, where the planters
left all the work to slaves, and the middle and northern provinces,
where the citizens found in work the inspiration of their
lives. The foes which bound together these diverse elements were
the Indians, the French, the Spanish, and lastly their parent
race, the English.
The Indian had been lord of the land until he was driven back
by the colonists to remoter hunting territory. The more warlike
tribes tried repeatedly to wipe out the white intruder, and constantly
menaced the isolated settlements, which were by no means
a match for them. Soon after the first serious conflict in 1636, the
Pequot war, Rhode Island, which was a small colony of scattered
settlements, made overtures toward a protective alliance with her
stronger neighbours. In this she was successful, and together
with Massachusetts, Plymouth, New Haven, and Connecticut,
formed the United Colonies of New England. This union was of
little practical importance except as a first lesson to the colonies to
avoid petty jealousies and to consider a closer mutual alliance as a
possibility which would by no means impair the freedom and independence
of the uniting parties.
The wars with the French colonies had more serious consequences.
The French, who were the natural enemies of all English
settlements, had originally planted colonies only in the far
north, in Quebec in 1608. But during those decades in which the
English wayfarers were making homes for themselves along the
Atlantic coast, the French were migrating down from the north
through the valley of the Saint Lawrence and along the Great
Lakes to the Mississippi River. Then they pressed on down this
stream to its mouth and laid title to the tremendous tracts which it
drains, in the name of the French crown. This country they
called after King Louis XIV, Louisiana. They had not come as
17colonists, but solely with an eye to gain, hoping to exploit these untouched
resources in behalf of the Canadian fur traffic; and close
on the heels of the trader came the Catholic priest. Thus the
territory that flanked the English colonies to inland fell into French
hands, whereas the land-grants of the English crown so read that
only the Pacific Ocean should be the western boundary. A collision
was therefore inevitable, although indeed mountains and
virgin forests separated the coastland settlements from the inland
regions of the Mississippi where the French had planted and fortified
their trading posts.
When, in 1689, war broke out in Europe between England and
France, a fierce struggle began between their representatives in
the New World. But it was not now as it had been in the Indian
war, where only a couple of colonies were involved. All the
colonies along the coast were threatened by a common enemy.
A congress of delegates convened at New York in April of 1690,
in which for the first time all the colonies were invited to take part.
Three long wars followed. The greatest advantage on the French
side was that from the first they had been on good terms with the
Indians, whose aid they were now able to enlist. But the French
were numerically weak, and received but little assistance from
their mother country. When in 1766 the last great war broke out
the English colonies had a population of a million and a quarter,
while the French had only a tenth as many. Chiefly and finally,
the English colonists were actual settlers, hardened and matured
through carrying the responsibilities of their young state, and
fighting for hearth and home; the French were either traders or
soldiers. The principle of free government was destined on this
continent to triumph. Washington, then a young man, led the
fight; the English Secretary of State, William Pitt, did everything
in his power to aid; and the victory was complete. By the treaty
of 1763 all French possessions east of the Mississippi were given to
England, with the exception of New Orleans, which, together with
the French possessions west of the Mississippi, went to Spain.
Spain meanwhile ceded Florida to England. Thus the entire
continent was divided between England and Spain.
But the Seven Years War had not merely altered the map of
America; it had been an instructive lesson to the colonists. They
had learned that their fortunes were one; that their own generals
18and soldiers were not inferior to any which England could send
over; and lastly, they had come to see that England looked at the
affairs of the colonies strictly from the point of view of her own
gain. Herewith was opened up a new prospect for the future:
the French no longer threatened and everything this side of
the Mississippi stood open to them and promised huge resources.
What need had they to depend further on the English throne?
The spirit of self-direction could now consistently come forward
and dictate the last move.
It is true that the colonists were still faithful English subjects,
and in spite of their independent ambitions they took it for granted
that England would always direct their foreign policy, would have
the right to veto such laws as they passed, and that the English
governors would always be recognized as official authorities. But
now the English Parliament planned certain taxations that were the
occasion of serious dispute. The Thirteen Colonies, which in the
meantime had grown to be a population of two million, had by
their considerable war expenditures shown to the debt-encumbered
Britons the thriving condition of colonial trade. And the latter
were soon ready with a plan to lay a part of the public taxation on
the Americans. It was not in itself unfair to demand of the colonies
some contribution to the public treasury, since many of the expenditures
were distinctly for their benefit; and yet it must have
seemed extraordinary to these men who had been forced from
childhood to shift for themselves, and who believed the doctrine
of self-government to be incontrovertible. They objected to paying
taxes to a Parliament in which they had no representation;
and the phrase, “no taxation without representation,” became
the motto of the hour.
The Stamp Tax, which prescribed the use of revenue stamps on
all American documents and newspapers, was received with consternation,
and societies called the Sons of Freedom were formed
throughout the land to agitate against this innovation. The
Stamp Tax Congress, which met in New York in 1765, repudiated
the law in outspoken terms. Nor did it halt with a mere expression
of opinion; the spirit of self-direction was not to be molested
with impunity. Close on the resolve not to observe the law, came
the further agreement to buy no English merchandise. England
had to waive the Stamp Tax, but endless mutterings and recriminations
19followed which increased the bitterness. Both sides
were ripe for war when, in 1770, England issued a proclamation
laying a tax on all tea imported to the colonies. The citizens of
Boston became enraged and pitched an English ship-load of tea
into the harbour. Thereupon England, equally aroused, proceeded
to punish Boston by passing measures designed to ruin the
commerce of Boston and indeed all Massachusetts. The Thirteen
Colonies took sides with Massachusetts and a storm became
imminent. The first battle was fought on the 19th of April, 1775;
and on July 4th, 1776, the Thirteen Colonies declared their independence
of England. Henceforth there were to be no colonies
but in their place thirteen free states.
The Declaration of Independence was composed by Jefferson,
a Virginian, and is a remarkable document. The spirit that informs
it is found in the following lines: “We hold these truths to
be self-evident, that all men are created equal; that they are endowed
by their Creator with certain unalienable rights; that
among these are life, liberty, and the pursuit of happiness. That
to secure these rights, governments are instituted among men, deriving
their just powers from the consent of the governed....”
The sins of the English king and people against America are
enumerated at length, and in solemn language the United States
of America are declared independent of the English people, who
are henceforth to be as “the rest of mankind, enemies in war, in
peace friends.” This Declaration was signed by delegates from
the states in Independence Hall, in Philadelphia, where hung the
famous bell, with its inscription, “Proclaim liberty throughout
all the land, unto all the inhabitants thereof.”
The spirit of self-direction had triumphed; but the dangers were
by no means wholly passed. England sent over no more governors,
and had indeed been repulsed; but she had as yet no intention
of giving in. The war dragged on for five long years, and the
outcome was uncertain until in 1781 Cornwallis was brought to
surrender. Then England knew that she had lost the contest.
The king desired still to prolong the war, but the people were tired
of it and, the ministry having finally to yield, peace was declared
in April of the year 1783. This was no assurance of an harmonious
future, however. That solidarity which the colonies had felt
in the face of a common enemy now gave way to petty jealousies
20and oppositions, and the inner weakness of the new Union was revealed.
In itself the Union had no legal authority over the several
states, and while during the war the affairs of the country had
fallen into disorder, yet the Union had no power to conduct
foreign diplomacy or even to collect customs.
It was rather in their zeal for self-direction that at first considerable
portions of the population seemed disinclined to enlarge the
authority of the central organization. Self-direction begins with
the individual or some group of individuals. The true self-direction
of society as a whole was not to be allowed to encroach on the
rights of the individual, and this was the danger feared. Each
state, with its separate interests and powers, would not give up
its autonomy in favour of an impersonal central power which
might easily come to tyrannize over the single state in much the
same way as the hated English throne had done. And yet the
best men of the country were brought at length more and more
to the opposite view; a strong central authority, in which the
states as a whole should become a larger self-directing unit,
carrying out and ensuring the self-direction of the component
members, was seen to be a necessity. Another congress of representatives
from all the states was convened in Independence Hall,
at Philadelphia, and this body of uncommonly able men sat for
months deliberating ways by which the opposing factions of federalism
and anti-federalism could be brought together in a satisfactory
alliance. It was obvious that compromises would have to
be made. So, for instance, it was conceded that the smallest state,
like the largest, should be represented in the senate by two delegates:
and the single state enjoyed many other rights not usual in
a federation. But, on the other hand, it was equally certain that
the chief executive must be a single man with a firm will, and that
this office must be refilled at frequent intervals by a popular election.
A few had tentatively suggested making Washington king,
but he stood firm against any such plan. The republican form of
government was in this instance no shrewdly devised system
which was adopted for the sake of nicely spun theoretical advantages—it
was the necessity of the time and place, the natural
culmination of a whole movement. It was as absolutely necessary
as the consolidation of the German states, eighty years later, under
an imperial crown. The congress eventually submitted a constitutional
21project to the several state legislatures, for their summary
approval or rejection. Whereon the anti-federalistic factions
made a final effort, but were outvoted, and the Constitution
was adopted. In 1789 George Washington was elected the first
president of the United States.
It would take a lively partisan to assert, as one sometimes does,
that this Constitution is the greatest achievement of human intellect,
and yet the severest critics have acknowledged that a genius
for statesmanship is displayed in its text. Penned in an age
which was given over to bombastic declamation, this document
lays down the fundamental lines of the new government with great
clearness and simplicity. “We, the people of the United States,”
it begins, “in order to form a more perfect union, establish justice,
insure domestic tranquillity, provide for the common defence,
promote the general welfare, and secure the blessings of liberty to
ourselves and our posterity, do ordain and establish this Constitution
for the United States of America.” This is the entire introduction.
The contents come under seven articles. The first article
provides for the making of laws, this power to be vested in a Congress
consisting of a Senate and House of Representatives; for the
business and daily routine of this Congress, as well as its powers
and obligations. The second article provides for the executive
power, to be vested in the person of the President, who is elected
every fourth year; the third article provides for a judiciary; the
fourth defines the mutual relations of separate states; and the last
three articles concern the adoption of the Constitution and the
conditions under which it may be amended.
The need of amendments and extensions to this Constitution
was foreseen and provided for. How profoundly the original
document comprehended and expressed the genius of the American
people may be seen from the fact that during a century which
saw an unexampled growth of the country and an undreamed-of
transformation of its foreign policy, not a single great principle of
the Constitution was modified. After seventy-seven years one
important paragraph was added, prohibiting slavery; and this
change was made at a tremendous cost of blood. Otherwise the
few amendments have been insignificant and concerned matters
of expediency or else, and more specially, further formulations of
what, according to American conceptions, are the rights of the individual.
22Although the original Constitution did not contain a
formal proclamation of religious freedom, freedom of speech, of
the press, and of public assemblage, this was not because those
who signed the document did not believe in these things, but because
they had not aimed to make of the Constitution of the Union
either a treatise on ethics or yet a book of law. But as early as
1789 the states insisted that all the rights of the individual, as
endorsed by the national ideals, should be incorporated in the
articles of this document. In the year 1870 one more tardy
straggler was added to the list of human rights, the last amendment;
the right of the citizens to vote was not to be abridged on
account of race, colour, or previous condition of servitude.
Of the other amendments, the tenth had been tacitly assumed
from the first year of the Republic; this was that “The powers
not delegated to the United States by the Constitution, nor prohibited
by it to the States, are reserved to the States respectively,
or to the people.” This principle also was surely in no way at
variance with the spirit of the original document. It was, indeed,
the lever that ensured the great efficacy of the Constitution, so that
by its provisions the centrifugal forces were never disturbed by
centripetal ones; an equilibrium was effected between the tendencies
that made for unity and those that made against it, in
such a way that the highest efficiency was ensured to the whole
while the fullest encouragement was given to the enterprise and
initiative of the parts. In no direction, probably, would an improvement
have been possible. More authority concentrated at
the head would have impeded general activity, and less would
have lost the advantages of concerted action; in neither case
would material growth or the reconciliation of conflicting opinions
have been possible. Constant compensation of old forces and
the quickening of new ones were the secret of this documented
power, and yet it was only the complete expression of the spirit
of self-direction, which demands unremittingly that the nation as
a whole shall conduct itself without encroaching on the freedom
of the individual, and that the individual shall be free to go his
own ways without interfering with the unfettered policy of the
nation.
Under the auspices of this Constitution the country waxed and
throve. As early as 1803 its land area was doubled by the accession
23of Louisiana, which had been ceded by Spain to France, and
was now purchased from Napoleon for fifteen million dollars—an
event of such far-reaching importance that the people of St. Louis
have not inappropriately invited the nations of the earth to participate
in a Louisiana Purchase Exposition. In 1845 Texas was
taken into the Union, it having broken away from Mexico just
previously and constituted itself an independent state. The large
region on the Pacific slope known as Oregon came in 1846 to the
United States by treaty with England, and when finally, in 1847,
after the war with Mexico, New Mexico and California became
the spoils of the victor and in 1867 Russia relinquished Alaska,
the domain of the country was found to have grown from its
original size of 324,000 square miles to one of 3,600,000. The
thirteen states had become forty-five, since the newly acquired
lands had to be divided. But all this growth brought no alteration
in the Constitution, whose spirit of self-direction, rather, had led
to this magnificent development, had fortified and secured the
country, and inspired it with energy and contentment. The
population also has grown under this benevolent Constitution.
Millions have flocked hither to seek and to find prosperity on this
new and inexhaustible soil. The area has increased tenfold, but
the population twenty-fold; and the newcomers have been disciplined
in the school of self-direction and educated to the spirit
of American citizenship.
There is a certain kind of character which must be developed
in this school. It is true, of course, that there is no one model
which just fits every one, the native-born Yankee as well as
the European immigrant, the farmer as well as the resident in
cities. The Irish-American is not the German-American, nor is
the New Englander like the Virginian, nor the son of the East like
his brother in the West. The infinite shadings of personal character,
temperament, and capacity which nature has produced,
have, of course, not been lost. And, nevertheless, just as the human
race in America has begun to differentiate into a species which is
anthropologically distinct, and this partly under the influence of the
climate since the species has several characters in common with the
aboriginal Indian, so also in the moral atmosphere of this body-politic
24a distinct type of human character is undoubtedly being
evolved; and one may note with perpetual surprise how little
the other great divisions of social life, as of rich and poor, cultivated
and ignorant, native-born and immigrant, manual labourer
and brain-worker—how little these differentiate the American
citizen in his political capacity. Of course only the political life
is in question here; that new groupings and divisions are being
continually formed in the economic, intellectual, and social life
need not concern us for the present. In the individual it may not
be easy to follow the threads through the tissue of his psychic
motions, but in the abstract and schematic picture of the type it
is by no means impossible to trace them out.
What is it, then, which the American has gotten from his training?
Many and apparently unrelated lessons are taught in the
school of self-direction, and perhaps none of them are without
their dangers. For it is here not a matter of theoretical knowledge,
which may be remembered or forgotten and may be well or
ill selected, but which in itself involves no scale of excellence and,
therefore, has no need to be tempered or restrained. Theoretical
knowledge cannot be overdone or exaggerated into untruth. But
the practical conduct which is here in question is different; it involves
an ideal, and in such a way that a man may not only misapprehend
or forget what is the best course of action, but also he
may err in following it, he may give it undue place and so neglect
opposing motives which in their place are no less requisite. In
short, conduct, unlike knowledge, demands a fine tact and unflagging
discernment for the fitness of things. In this sense it cannot
be denied that the teaching of American democracy is itself
the source of serious errors, and that the typical American citizen
is by no means free from the failings of his virtues. His fundamental
traits may be briefly sketched, and from the excellencies
which he strives for many of his defects can be understood.
There is, firstly, a group of closely related impulses, which springs
from the American’s unbounded belief in his own strength, a trait
which in the last analysis must be, of course, the foundation-stone
of any doctrine of self-direction. He will not wait for others to
look out for him, counsel him, or take cognizance of his interests,
but relies wholly on his own judgment and his own strength, and
believes no goal too high for his exertions to attain. Every true
25American will have found in himself some trace of this spirit.
Each day of his life has suggested it to him, and all the institutions
of his country have reinforced the teaching. Its most immediate
result is such a strength of initiative as no other people on earth
possesses, an optimism, a self-reliance and feeling of security
which contribute more than half to his success. Faint heart is not
in the American’s dictionary. Individual, corporation, or country
may be undecided, and dispute whether a certain end is desirable
or whether a certain means is best to a given end, but no one
ever doubts or goes into his work with misgivings lest his strength
be not enough to traverse the road and reach the goal. And such
an attitude encourages every man to exert himself to the utmost.
The spirit of self-direction is here closely allied with that self-initiative
which is the mainspring of the economic life of America.
But the initiative and optimistic resolution shown in the political
arena astonish the stranger more than the same traits displayed
in the economic field. It is shown in the readiness for argument,
in which every one can express himself accurately and effectively;
in the indefatigable demand that every public office shall be
open to the humblest incumbent, and in the cool assurance
with which thousands and thousands of persons, without any
technical knowledge or professional training, assume the most
exacting political offices, and become postmasters, mayors,
ministers and ambassadors, without even pausing before their
grave responsibilities. But most of all, American initiative is
shown in the structure of all her institutions, great or small, which
minimizes transitions and degrees between higher and lower, and
so facilitates the steady advance of the individual. Each and all
must have the chance to unfold and there must be no obstacles to
hinder the right ambition from its utmost realization. Every impulse
must be utilized; and however far toward the periphery a
man may be born he must have the right of pressing forward to
the centre. The strength of this nation lies at the periphery, and
the American government would never have advanced so unerringly
from success to success if every village stable-lad and city
messenger-boy had not known with pride that it depends only on
himself if he is not to become President of the United States.
But the transition is easy and not well marked from such
strength to a deplorable weakness. The spirit of initiative and
26optimism is in danger of becoming inexcusable arrogance as to
one’s abilities and sad underestimation of the value of professional
training. Dilettanteism is generally well-meaning, often successful,
and sometimes wholly admirable; but it is always dangerous.
When brawny young factory-hands sit on a school committee,
sturdy tradesmen assume direction of a municipal postal service,
bankers become speakers in legislature, and journalists shift over
to be cabinet ministers, the general citizen may sometimes find
cold comfort in knowing that the public service is not roped off
from private life, nor like to become effete through stale traditions.
It is very evident that America is to-day making a great effort to
ward off the evils of amateurish incompetence and give more prominence
to the man of special training. And yet it cannot be denied
that very noticeably in the intellectual make-up of the American
his free initiative and easy optimism are combined with a readiness
to overestimate his own powers and with a bias for dilettanteism.
Another psychological outcome of this individualism seems inevitable.
When every member of a nation feels called on to
pass judgment on all subjects for himself, it will come about
that public opinion reaches an uncommonly high mean level, but
it will also happen that the greatest intellects are not recognized
as being above this mean. The genius, who in his day is always
incomprehensible to the masses, goes to waste; and the man who
sees beyond the vulgar horizon fights an uphill battle. The glittering
successes are for the man whose doings impress the multitude,
and this fact is necessarily reflected in the mind of the aspirant,
who unconsciously shapes his ambitions to the taste of the
many rather than of the best. Wherever the spirit of initiative
possesses all alike, a truly great individual is of course insufferable;
any great advance must be a collective movement, and the best
energies of the country must be futilely expended in budging the
masses. It is no accident that America has still produced no great
world genius. And this is the other side of the vaunted and truthful
assertion, that whenever in a New England town a question is
brought to an open debate, the number of those who will take a
lively, earnest, orderly, and intelligent part in the discussion is
perhaps greater in proportion to the total number of inhabitants
than in any place in Europe.
This leads us to a second consequence of the desire for self-direction.
27It stimulates not only initiative and self-reliance, but
also the consciousness of duty. If a man earnestly believes that
the subject must also be potentate, he will not try to put off his
responsibilities on any one else but will forthwith set himself to
work, and prescribe as well his own due restrictions. If a neighbourhood
or club, town, city, or state, or yet the whole federation
sees before it some duty, the American will not be found waiting
for a higher authority to stir him up, for he is himself that authority;
his vote it is which determines all who are to figure in the affair.
Wherefore he is constrained by the whole system to an earnest and
untiring co-operation in everything. This is not the superficial
politics of the ale-house, with its irresponsible bandying of yeas and
nays. When Secretary of the Navy under McKinley, Mr. Long said
that when the cabinet at Washington was in conference, every member
was of course better posted on the matter than the average citizen;
but that nevertheless a dozen villagers, say in northern Maine,
would read their New York and Boston papers and talk over the
affairs with as much intelligence and as good a comprehension of the
points at issue as would appear at any cabinet debates. This was
by no means meant as a reflection on his colleagues of the cabinet,
but as a frank recognition of an aspect of American life which invariably
surprises the foreigner. One needs only to recall the discussion
which preceded the last presidential election, and more
especially the one preceding that; the silver question was the great
issue, and evening after evening hundreds of thousands listened
to technical arguments in finance such as no European orator could
hope to lay before a popular assembly. Huge audiences followed
with rapt attention for hours lectures on the most difficult points
of international monetary standards. And this intellectual seriousness
springs from the feeling of personal responsibility which
is everywhere present. The European is always astonished at the
exemplary demeanour of an American crowd; how on public occasions
great multitudes of men and women regulate their movements
without any noticeable interference by the police, how the
great transportation companies operate with almost no surveillance
of the public, trusting each person to do his part, and how
in general the whole social structure is based on mutual confidence
to a degree which is nowhere the case in Europe. The feeling
that the ruler and the ruled are one pervades all activities, and its
28consequences are felt far beyond the political realm. Especially
in the social sphere it makes for self-respect among the lower
classes; they adapt themselves readily to discipline, for at the
same time they feel themselves to be the masters; and the dignity
of their position is the best security for their good behaviour.
But here, too, excellence has its defects. Where every one is so
intensely aware of an identity between political authority and political
subject, it is hard for the feeling of respect for any person
whatsoever to find root. The feeling of equality will crop out
where nature designed none, as for instance between youth and
mature years. A certain lack of respect appears in the family and
goes unpunished because superficially it corresponds to the political
system of the land. Parents even make it a principle to implore
and persuade their children, holding it to be a mistake to
compel or punish them; and they believe that the schools should
be conducted in the same spirit. And thus young men and women
grow up without experiencing the advantages of outer constraint
or discipline.
Hitherto we have considered only those intellectual factors derived
from the spirit of self-direction which bear on the will of the
individual, his rights and duties; but these factors are closely
bound up with the others which concern the rights and privileges
of one’s neighbour. We may sketch these briefly. Deeply as he
feels his own rights, the American is not less conscious of those of
his neighbour. He does not forget that his neighbour may not
be molested and must have every opportunity for development and
the pursuit of his ambitions, and this without scrutiny or supervision.
He recognizes the other’s equal voice and influence in
public affairs, his equally sincere sense of duty and fidelity to it.
This altruism expresses itself variously in practical life. Firstly,
in a complete subordination to the majority. In America the
dissenting minority displays remarkable discipline, and if the
majority has formally taken action, one hears no grumbling or
quibbling from the discontented, whether among boys at play or
men who have everything at stake. The outvoiced minority is
self-controlled and good-natured and ready at once to take part
in the work which the majority has laid out; and herein lies one of
the clearest results of the American system and one of the superior
traits of American character.
29Closely related to this is another trait which lends to American
life much of its intrinsic worth—the unconditional insistence in
any competition on equal rights for both sides. The demand for
“fair play” dominates the whole American people, and shapes
public opinion in all matters whether large or small. And with
this, finally, goes the belief in the self-respect and integrity of one’s
neighbour. The American cannot understand how Europeans
so often reinforce their statements with explicit mention of their
honour which is at stake, as if the hearer is likely to feel a doubt
about it; and even American children are often apt to wonder at
young people abroad who quarrel at play and at once suspect one
another of some unfairness. The American system does not wait
for years of discretion to come before exerting its influence; it
makes itself felt in the nursery, where already the word of one
child is never doubted by his playmates.
Here too, however, the brightest light will cast a shadow.
Every intelligent American is somewhat sadly aware that the vote
of a majority is no solution of a problem, and he realizes oftener
than he will admit that faith in the majority is pure nonsense if
theoretical principles are at issue. This is a system which compels
him always where a genius is required to substitute a committee,
and to abide by the majority vote. The very theory of
unlimited opportunity has its obvious dangers arising, here as
everywhere, from extremes of feeling and so exaggeration of the
principle. The recognition of another’s rights leads naturally to
a sympathy for the weaker, which is as often as not unjustified,
and easily runs over into sentimentalism, not to say an actual
hysteria of solicitude. And this is in fact a phase of public opinion
which stands in striking contrast to the exuberant health of
the nation. What is even worse, the ever-sensitive desire not to
interfere in another’s rights leads to the shutting of one’s eyes and
letting the other do what he likes, even if it is unjust. And in this
way a situation is created which encourages the unscrupulous and
rewards rascality.
For a long time the blackest spot on American life, specially in
the opinion of German critics, has been the corruption in municipal
and other politics. We need not now review the facts. It
is enough to point out that a comparison with conditions in Germany,
say, is entirely misleading if it is supposed to yield conclusions
30as to the moral character of the American people. Unscrupulous
persons who are keen for plunder, are to be found
everywhere; merely the conditions under which the German public
service has developed and now maintains itself make it almost
impossible for a reprobate of that sort to force his entrance. And
if a German official were discovered in dishonest practices it would
be, in fact, discrediting to the people. In America the situation
is almost reversed. The conditions on which, according to the
American system, the lesser officials secure their positions, specially
in municipal governments, and the many chances of enriching
oneself unlawfully and yet without liability to arrest, while the
regular remuneration and above all the social dignity of the positions
are relatively small, drive away the better elements of the
population and draw on the inferior. The charge against the
Americans, then, should not be that they make dishonest officials,
but that they permit a system which allows dishonest persons to
become officials. This is truly a serious reproach, yet it is not a
charge of contemptible dishonesty but of inexcusable complacency;
and this springs from the national weakness of leniency toward
one’s neighbour, a trait which comes near to being a fundamental
democratic virtue. It cannot be denied, moreover, that the whole
nation is earnestly and successfully working to overcome this
difficulty.
The denunciations of the daily papers, however, must not be
taken as an indication of this, for the uncurbed American press
makes the merest unfounded suspicion an occasion for sensational
accusations. Any one who has compared in recent years the
records of unquestionably impartial judicial processes with the
charges which had previously been made in the papers, must be
very sceptical as to the hue and cry of corruption. Even municipal
politics are much better than they are painted. The easiest
way of overcoming every evil would be to remove the public service
from popular and party influences, but this is, of course, not
feasible since it would endanger the most cherished prerogatives
of individualism. Besides, the American is comforted about his
situation because he knows that just this direct efficiency of the
people’s will is the surest means of thoroughly uprooting the evil
as soon as it becomes really threatening. He may be patient or
indifferent too long, but if he is once aroused he finds in his
31system a strong and ready instrument for suddenly overturning
an administration and putting another in its stead. Moreover, if
corruption becomes too unblushing an “educational campaign”
is always in order. James Bryce, who is of all Europeans the one
most thoroughly acquainted with American party politics, gives his
opinion, that the great mass of civil officials in the United States is
no more corrupt than that of England or Germany. An American
would add, however, that they excel their European rivals
in a better disposition and greater readiness to be of service.
But the situation is complicated by still another tendency which
makes the fight for clean and disinterested politics difficult. The
spirit of self-direction involves a political philosophy which is
based on the individual; and the whole commonwealth has no
other meaning than an adding up of the rights of separate individuals,
so that every proposal must benefit some individual or
other if it is to commend itself for adoption. Now since the state
is a collection of numberless individuals and the law merely a
pledge between them all, the honour of the state and the majesty
of the law do not attach to a well organized and peculiarly exalted
collective will, which stands above the individual. Such a thing
would seem to an individualist a hollow abstraction, for state and
law consist only in the rights and responsibilities of such as he.
From this more or less explicitly formulated conception of political
life there accrue to society both advantages and dangers.
The advantages are obvious: the Mephistophelian saying, “Vernunft
wird Unsinn, Wohltat Plage,” becomes unthinkable, since
the body-politic is continually tested and held in check by the
lively interests of individuals. Any obvious injustice can be
righted, for above the common weal stands the great army of
individuals by whom and for whom both state and law were made.
But the disadvantages follow as well. If state and law are only
a mutual restraint agreed on between individuals, the feeling of
restraint becomes lively in proportion as the particular individuals
in question can be pointed to, but vanishingly weak when, in a
more intangible way, the abstract totality requires allegiance. So
one finds the finest feeling for justice in cases of obligation to an
individual, as in contracts, for instance, and the minimum sense of
right where the duty is toward the state. There is no country of
Europe where the sense of individual right so pervades all classes
32of the inhabitants, a fact which stands in no wise contradictory to
the other prevalent tendency of esteeming too lightly one’s righteous
obligations to city or state. Men who, in the interests of
their corporations, try to influence in irregular ways the professional
politicians in the legislatures, observe nevertheless in private
life the most rigid principles of right; and many a one who could
safely be trusted by the widows and orphans of his city with every
cent which they own, would still be very apt to make a false
declaration of his taxable property.
There is a parallel case in the sphere of criminal law. Possibly
even more than the abuses of American municipal politics, the
crimes of lynch courts have brought down the condemnation of the
civilized world. Corruption and “lynch justice” are usually
thought of as the two blemishes on the nation, and it is from them
that the casual observer in Europe gets a very unfavourable impression
of the American conception of justice. We have already
tried to rectify this estimate in so far as it includes corruption, and
as regards lynching it is perhaps even more in error. Lynch
violence is of course not to be excused. Crime is crime; and the
social psychologist is interested only in deciding what rubric to
put it under. Now the entire development of lynch action shows
that it is not the wanton violence of men who have no sense of
right, but rather the frenzied fulfillment of that which we have
termed the individualistic conception of justice. The typical
case of lynching is found, of course, in Southern States with a considerable
negro population. A negro will have attempted violence
on a white woman, whereon all the white men of the neighbourhood,
assuming that through the influence of his fellow negroes
the criminal would not be duly convicted, or else feeling that the
regular legal penalty would not suffice to deter others from the
same crime, violently seize the culprit from out the jurisdiction of
the law, and after a summary popular trial hang him. But these
are not men who are merely seeking a victim to their brutal instinct
for murder. It is reported that after the deed, when the
horrid crime has been horribly expiated, the participants will
quietly and almost solemnly shake one another by the hand and
disperse peacefully to their homes, as if they had fulfilled a sacred
obligation of citizenship. These are men imbued with the individualistic
notion of society, confident that law is not a thing
33whose validity extends beyond themselves, but something which
they have freely framed and adopted, and which they both may
and must annul or disregard as soon as the conditions which made
it necessary are altered. It is a matter of course that such presumption
is abhorred and condemned in the more highly civilized
states of the Union, also by the better classes in the Southern
States; and a lyncher is legally a murderer. His deed, however,
is not to be referred psychologically to a deficient sense of justice.
That which is the foundation of this sense, resentment at an infringement
of the individual’s rights and belief in the connection
between sin and expiation, are all too vividly realized in his soul.
We have dwelt on these two offshoots of the individualistic idea
of law because they have been used constantly to distort the true
picture of American character. Rightly understood, psychologically,
these phenomena are seen to be black and ugly incidents,
which have little to do with the national consciousness of right and
honour; they are the regrettable accompaniments of an extreme
individualism, which in its turn, to be sure, grows naturally out of
the doctrine of self-direction. Every American knows that it is
one of the most sacred duties of the land to fight against these
abuses, and yet the foreigner should not be deceived into thinking,
because so and so many negroes are informally disposed of each
year, and the politicians of Philadelphia or Chicago continue to
stuff their pockets with spoils in ways which are legally unpunishable,
that the American is not thoroughly informed with a respect
for law. He has not taken his instruction in the system of
self-direction in vain. And the German who estimates the tone
of political life in America by the corruption and lynch violence
narrated in the daily papers, is like the American who makes up
his opinion of the German army, as he sometimes does, from the
harangues of social democrats on the abuses of military officers, or
from sensational disclosures of small garrisons on the frontier.
One more trait must be mentioned, finally, which is characteristic
of every individualistic community, and which, having been
impressed on the individual by the American system, has now reacted
and contributed much to the working out of this system.
The American possesses an astonishing gift for rapid organization.
His highest talents are primarily along this line, and in the
same way every individual has an instinct for stationing himself
34at the right place in any organization. This is true both high and
low, and can be observed on every occasion, whether in the concerted
action of labouring men, in a street accident, or in any sort
of popular demonstration. For instance, one has only to notice
how quickly and naturally the public forms in orderly procession
before a ticket-office. This sure instinct for organization, which
is such an admirable complement to the spirit of initiative, gives
to the American workman his superiority over the European,
for it is lamentably lacking in the latter, and can be replaced only
by the strictest discipline. But this instinct finds its fullest expression
in the political sphere. It is this which creates parties,
guarantees the efficiency of legislatures, preserves the discipline
of the state, and is in general the most striking manifestation of the
spirit of self-direction. But we have seen that none of the merits
of this system are quite without their drawbacks, and this gift for
organization has also its dangers. The political parties which it
fosters may become political “machines,” and the party leader a
“boss”—but here we are already in the midst of those political
institutions with which we must deal more in detail.
35
The Presidency is the highest peak in the diversified range of
political institutions, and may well be the first to occupy our
attention. But this chief executive office may be looked at in
several relations: firstly, it is one of the three divisions of the Government,
which are the executive, the legislative, and the judicial.
And these might well be considered in this order. But, on the
other hand, the President stands at the head of the federation of
states; and the structural beauty of the American political edifice
consists in the repetition of the whole in each part and of the part
in every smaller part, and so on down. The top governmental stratum
of the federation is repeated on a smaller scale at the head of
each of the forty-five states, and again, still smaller, over every city.
The governor of a state has in narrower limits the functions of the
President, and so, within still narrower, has the mayor of a city.
We might, then, consider the highest office, and after that its
smaller counterparts in the order of their importance.
But neither of these methods of treatment would bring out the
most important connection. It is possible to understand the
President apart from the miniature presidents of the separate
states, or apart from the Supreme Court, or even Congress, but it
is not possible to understand the President without taking account
of the political parties. It is the party which selects its candidate,
elects him to office, and expects from him in return party support
and party politics. The same is true, moreover, of elections to
Congress and to the state legislatures. For here again the party
is the background to which everything is naturally referred, and
any description of the President, or Congress, or the courts, which,
like the original Constitution, makes no mention of the parties,
appears to us to-day as lacking in plastic reality, in historical perspective.
36We shall, therefore, attempt no such artificial analysis,
but rather describe together the constitutional government and the
inofficial party formations. They imply and explain each other.
Then on this background of party activities we can view more
comprehensively the President, Congress, the Supreme Court, and
the entire politics of the federation and the states.
We must not forget, however, that in separating any of these
factors from the rest, we deal at once with highly artificial abstractions,
so that this description will have continually to neglect many
facts and cut the threads that cross its path. The history of the
American Presidency shows at all times its close connection with
other institutions. A treaty or even a nomination by the President
requires the ratification of the Senate before it is valid; and
on the other side, the President can veto any bill of Congress.
Even the Supreme Court and the President can hardly be considered
apart, as was seen, for instance, in the time of Cleveland,
when his fiscal policy took final shape in an income tax which the
Supreme Court declared unconstitutional, and therefore unlawful;
or again when the colonial policy of McKinley was upheld and
validated by a decision of the same court. Again, the party politics
of state and town are no less intimately related to the federal
government and the Presidency. Here, too, the leadings are in
both directions; local politics condition the national, and these in
turn dominate the local. Cleveland was a man who had never
played a part in national politics until he became the executive
head of the nation. As Mayor of Buffalo he had been so conspicuous
throughout the State of New York as to be elected Governor
of that state, and then in the state politics so won the confidence
of his party as to be nominated and elected to the highest
national office. McKinley, on the other hand, although he, too,
had been the Governor of a state, nevertheless gained the confidence
of his party during his long term of service in Congress.
Similarly it may be said that local politics are the natural path
which leads to any national position, whether that of senator or
representative. And inversely the great federal problems play an
often decisive rôle in the politics of the states with which they
strictly have no connection. Federal party lines divide legislatures
from the largest to the smallest, and even figure in the municipal
elections. Unreasonable as it may seem, it is a fact that the
37great national questions, such as expansion, free trade, and the
gold standard, divide the voters of a small village into opposing
groups when they have to elect merely some one to the police or
street-cleaning department. It is, therefore, never a question of
a mechanical co-ordination and independence of parts, but of an
organic interdependence, and every least district of the Union is
thoroughly en rapport with the central government and doings of
the national parties.
There are political parties in every country, but none like the
American parties. The English system presents the nearest
analogy, with its two great parties, but the similarity is merely
superficial and extends to no essential points. Even in the comparison
between America and Germany it is not the greater number
of the German parties that makes the real difference. For
the German his party is in the narrower sense a group of legislators,
or, more broadly, these legislators together with the general
body of their constituents. The party has in a way concrete
reality only in the act of voting and the representation in parliament
of certain principles. Of course, even in Germany there
exists some organization between the multitude of voters and the
small group which they return to the Reichstag. Party directors,
who are for the most part the representatives themselves, central
committees and local directors, local clubs and assemblies are all
necessary to stir up the voters and to attend to various formalities
of the election; but no one has dreamt of a horde of professional
politicians who are not legislators, of party leaders who are more
powerful than the representative to be elected, or of parties
which are stronger than either the parliament or the people.
The American party is first of all a closely knit organization with
extensive machinery and rigid discipline; to be represented in
Congress or legislature is only one of its many objects.
This situation is, however, no accident. One may easily understand
the incomparable machinery and irresistible might of the
parties, if one but realizes a few of the essential factors in American
party life. First, of course, comes the tremendous extent of
the field in which the citizens’ ballots have the decision. If it were
as it is in the German elections to the imperial diet, the American
party organization would never have become what it is.
But besides the elections to Congress, the state legislatures and local
38assemblies, there is the direct choice to be made for President,
vice-president, governor, the principal state officials and deputies,
judges of the appellate court, mayor and city officials, and many
others. The entire responsibility falls on the voters, since the
doctrine of self-direction ordains that only citizens of the state shall
vote for state officials, and of the city for city officers. The governor,
unlike an “Oberpräsident,” is not appointed by the Government,
nor a mayor by any authority outside his city. The voter is
nowhere to be politically disburdened of responsibility. But,
with the direct suffrage, his sphere of action is only begun. Almost
every one of the men he elects has in turn to make further
appointments and choices. The members of a state legislature
elect senators to Congress, and both governor and mayor name
many officials, but most of all, the President has to give out offices
from ambassadors and ministers down to village postmasters and
light-house keepers, in all of which there is ample chance to put
the adherents of one’s party in influential positions. Thus the
functions of the American voter are incomparably more important
and far-reaching than those of the German voter.
But even with this, the political duties of the American citizen
in connection with his party are not exhausted. The spirit of
self-direction demands the carrying out of a principle which is unknown
to the German politician. The choice and nomination
of a candidate for election must be made by the same voting public;
it must be carried on by the same parliamentary methods, and
decided strictly by a majority vote. There are in theory no committees
or head officials to relieve the voting public of responsibility,
by themselves benignly apportioning the various offices
among the candidates. A party may propose but one candidate
for each office, whereas there will often be several men within the
party who wish to be candidates for the same office, as for instance,
that of mayor, city counsellor, or treasurer. In every case the
members of a party have to select the official nominee of their
party by casting ballots, and thus it may happen that the contest
between groups within the party may be livelier than the ultimate
battle between the parties.
Now on a large scale such transactions can be no longer carried
on directly. All the citizens of the state cannot come together to
nominate the party candidate for governor. For this purpose,
39therefore, electors have to be chosen, every one by a strict majority
vote, and these meet to fix finally on the candidates of the party.
And when it comes to the President of the whole country, the voting
public elects a congress of electors, and these in turn choose
other electors, and this twice-sifted body of delegates meets in
national convention to name the candidate whom the party will
support in the final, popular elections. Through such a strict
programme for nominations the duties of the voters towards their
party are just doubled, and it becomes an art considerably beyond
the ability of the average citizen to move through this regressive
chain of elections without losing his way. It requires, in short,
an established and well articulated organization to arrange and
conduct the popular convocations, to deliberate carefully on the
candidates to be proposed for nomination, and to carry the infinitely
complicated and yet unavoidable operations through to
their conclusion.
Finally, another factor enters in, which is once more quite foreign
to the political life of Germany. Every American election is
strictly local, in the sense that the candidate is invariably chosen
from among the voters. In Germany, when a provincial city is
about to send a representative to the Reichstag, the party in power
accounts it a specially favourable circumstance if the candidates
are not men of that very city, to suffer the proverbial dishonour
of prophets in their own country, and prefers to see on the ballot
the names of great party leaders from some other part of the empire.
And when Berlin, for example, selects a mayor, the city is
glad to call him from Breslau or Königsberg. This is inconceivable
to the American. It is a corollary to the doctrine of self-determination
that whenever a political district, whether village or
city, selects a representative, the citizens shall not only nominate
and elect their candidate, but that they shall also choose him from
their own midst. But this makes it at once necessary for the
party to have its organized branches in every nook and corner of
the country. A single central organization graciously to provide
candidates for the whole land is not to be thought of. The party
organization must be everywhere efficient, and quick to select and
weigh for the purposes of the party such material as is at hand.
It is obvious that this is a very intricate and exacting task, and that
if the organization were sentimental, loose, or undisciplined, it
40would go to pieces by reason of the personal and other opposing
interests which exist within it. And if it were less widely branched
or less machine-like in its intricate workings, it would not be able
to do its daily work, pick candidates for posts of responsibility,
nominate electors, and elect its nominees; and eventually it would
sink out of sight. The American political party is thus an essentially
complete and independent organization.
Two evils are necessarily occasioned by this invulnerable organization
of party activities, both of which are peculiar and of
such undoubtedly bad consequences as to strike the most superficial
observer, and specially the foreigner; and yet both of which
on closer view are seen to be much less serious than one might have
supposed at first. After a party has grown up and become well
organized in its purpose of representing these or those political
principles and of defending and propagating them, it may at
length cease to be only the means to an end, and become an end
unto itself. There is the danger that it will come to look on its
duties as being nothing else than to keep itself in power, even by
denying or opposing the principles with which it has grown up.
Moreover, such an organization exacts a colossal amount of labour
which must be rewarded in some form or other; and so it will find
it expedient, quite apart from the political ideals of the party, to
exert its influence in the patronage of state and other offices. The
result is that the rewards and honours conferred necessarily draw
men into the service of the party who care less for its ideals than
for the emoluments they are to derive. And thus two evils spring
up together; firstly, the parties lose their principles, and, secondly,
take into their service professional politicians who have no principles
to lose. We must consider both matters more in detail, the
party ideals and the politicians.
America has two great parties, the Republican, which is just
now in power, and the Democratic. Other parties, as, for instance,
the Populist, are small, and while they may for a while secure a
meagre representation in Congress, they are too insignificant to
have any chance of success in the presidential elections: although,
to be sure, this does not prevent various groups of over-enthusiastic
persons from seizing the politically unfitting and impracticable
occasion to set up their own presidential candidate as a sort of
figure-head. Any political amateur, who finds no place in the
41official parties, may gather a few friends under his banner and
start a new, independent party; but the bubble bursts in a few
days. And even if it is a person like Admiral Dewey, whose party
banner is the flag under which he has sent an enemy’s fleet to the
bottom, he will succeed only in being amusing. The regular, organized
parties are the only ones which seriously count in politics.
It sometimes happens, however, that a few months before the
elections a small band of politically or industrially influential men
will meet to consider the project of a third party, while their real
aim is to create a little organization whose voting power will be
coveted by both of the great parties. In this way the founders
plan to force one or both of these to make concessions to the principles
of their little group, since the most important feature is
that Republicans and Democrats are so nearly equally balanced
that only a slight force is needed to turn the scales to either side.
In recent elections McKinley and Cleveland have each been elected
twice to the Presidency, and no one can say whether the next
presidential majority will be Republican or Democrat. On
Cleveland’s second election the Democrats had 5,556,918, and the
Republicans 5,176,108 votes, while the Populists made a showing
of one million votes. But four years later the tables were turned,
and McKinley won on 7,106,199 votes, while Bryan lost on 6,502,685.
It is clear, therefore, that neither of the parties has to fear
that a third party will elect its candidate; nor can either rest on old
laurels, for any remission of effort is a certain victory for the other
side. A third party is dangerous only in so far as it is likely to
split up one of the two parties and so weaken it in an otherwise
almost equal competition.
What, now, are the principles and aims of the Republican and
Democratic parties? Their names are not significant, since
neither do the Republicans wish to do away with American democracy,
nor do the Democrats have any designs on the republican
form of government. At the opening of the nineteenth century
the present Democrats were called “Democratic-Republicans,”
and this long abandoned name could just as well be given
to all surviving parties. Neither aristocracy nor monarchy nor
anarchy nor plutocracy has ever so far appeared on a party
programme, and however hotly the battle may be waged between
Republicans and Democrats, it is forever certain that both opponents
42are at once Democrats and Republicans. Wherein, then,
do they differ?
The true party politician of America does not philosophize overmuch
about the parties; it is enough for him that one party has
taken or is likely to take this, and the other party that position on
the living questions, and beyond this his interest is absorbed by
special problems. He is reluctant enough when it comes to taking
up the nicer question of deducing logically from the general principles
of a party what attitude it ought to take on this or that
special issue. The nearest he would come to this would be conversely
to point out that the attitude of his opponents directly refutes
their party’s most sacred doctrines. Those who philosophize
are mostly outsiders, either sojourners in the country, or
indigenous critics who are considerably more alive to the unavoidable
evils of party politics than to the merits. From such opponents
of parties as well as from foreigners, one hears again and
again that the parties do not really stand for any general principles
at the present time, that their separate existence has lost whatever
political significance it may have had, and that to-day they are
merely two organizations preserving a semblance of individuality
and taking such attitude toward the issues of the day as is likely
to secure the largest number of votes, in order to distribute among
their members the fruits of victory. The present parties, say
these critics, were formed in that struggle of intellectual forces
which took place during the third quarter of the last century; it
was the dispute over slavery which led to the Civil War. The
Republican party was the party of the Northern States in their
anti-slavery zeal; the Democratic was the party of the slave-holding
Southern States; and the opposition had political significance
as long as the effects of the war lasted, and it was necessary to
work for the conciliation and renewed participation of the defeated
Confederacy. But all this is long past. Harrison, Cleveland,
Blaine, Bryan, McKinley, and Roosevelt became the standard-bearers
of their respective parties long after the wounds of the
war had healed. And it is no outcome from the original, distinguishing
principles of the parties, if the slave-holding party
takes the side of free-trade, silver currency and anti-imperialism,
while the anti-slavery elements stay together in behalf of the gold
standard, protection, and expansion.
43It looks, rather, as if the doctrines had migrated each to the
other’s habitat. The party which was against slavery was supporting
the rights of the individual; how comes it, then, to be bitterly
opposing the freedom of trade? And how do the friends of slavery
happen to champion the cause of free-trade, or, more remarkably,
to oppose so passionately to-day the oppression of the people of
the Philippines? And what have these questions to do with
the monetary standard? It looks as if the organization had
become a body without a soul. Each party tries to keep the
dignity of its historic traditions and at every new juncture bobs
and ducks before the interests and prejudices of its habitual
clientèle, while it seeks to outwit the opposite party by popular
agitation against persistent wrongs and abuses or by new
campaign catch-words and other devices. But there is no further
thought of consistently standing by any fundamental principles.
This hap-hazard propping up of the party programme is evinced
by the fact that either party is divided on almost every question,
and the preference of the majority becomes the policy of the
party only through the strict discipline and suppression of the
minority. The Republicans won in their campaign for imperialism,
and yet no anti-imperialist raised his voice more loudly
than the Republican Senator Hoar. The Democrats acclaimed
the silver schemes of Bryan, but the Gold Democrats numbered
on their side really all the best men of the party. Again,
on other important issues both parties will adopt the same platform
as soon as they see that the masses are bound to vote that
way. Thus neither party will openly come out for trusts, but
both parties boast of deprecating them; and both profess likewise
to uphold civil-service reform. This is so much the case that
it has often been observed that within a wide range the programmes
of the two parties in no way conflict. One party extols
that which the other has never opposed, and the semblance
of a difference is kept up only by such insistent vociferation of the
policy as implies some sly and powerful gainsayer. And then
with the same histrionic rage comes the other party and pounces
on some scandal which the first had never thought of sanctioning.
In short, there are no parties to-day but the powerful election organizations
which have no other end in view than to come into
power at whatever cost. It should seem better wholly to give up
44the outlived issues, and to have only independent candidates who,
without regard to party pressure, would be grouped according to
their attitude on the chief problems of the day.
And yet, after the worst has thus been said, we find ourselves
still far removed from the facts. Each separate charge may be
true, but the whole be false and misleading: even although many
a party adherent admits the justness of the characterization, and
declares that the party must decide every case “on its merits,”
and that to hold to principles is inexpedient in politics. For the
principles exist, nevertheless, and have existed, and they dominate
mightily the great to and fro of party movements. Just as there
have always been persons who pretend to deduce the entire history
of Europe from petty court intrigues and jealousies of the
ante-room or the boudoir, so there will always be wise-heads in
America to see through party doings, and deduce everything from
the speculative manipulations of a couple of banking houses or the
private schemes of a sugar magnate or a silver king. Such explanations
never go begging for a credulous public, since mankind
has a deep-rooted craving to see lowness put on exhibition. No
man is a hero, it is said, in the eyes of his valet. Nations, too, have
their valets; and with them, too, the fact is not that there are no
heroes, but that a valet can see only with the eyes of a valet.
It is true that the party lines of to-day have developed from the
conflicting motives of the Civil War. But the fundamental error
which prevents all insight into the deeper connections, lies in supposing
that the anti-slavery party was first inspired by the individual
fate of the negro, or in general the freedom of the individual.
We must recall some of the facts of history. The question of
slavery did not make its first appearance in the year 1860, when the
Republican party became important. The contrast between the
plantation owners of the South, to whom slave labour was apparently
indispensable, and the industry and trade of the North,
which had no need of slaves, had existed from the beginning of the
century and was in itself no reason for the formation of political
parties. It was mainly an economic question which, together with
many other factors, led to a far-reaching opposition between the
New England States and the South, an opposition which was
strengthened, to be sure, by the moral scruples of the Puritanical
North. But the earlier parties were not marked off by degrees of
45latitude, and furthermore the Southerner was by no means lacking
in personal sympathy for the negro. The question first came
into politics indirectly. It was in those years when the Union was
pushing out into the West, taking in new territories and then making
them into states by act of Congress, according to the provisions
of the Constitution. In 1819 the question came up of admitting
Missouri to the Union, and now for the first time Congress
faced the problem as to whether slavery should be allowed in a
new state. The South wished it and the North opposed it. Congress
finally decided that Missouri should be a slave state, but that
in the future slavery should be forbidden north of a certain geographical
line. Thus slavery came to be recognized as a question
within the jurisdiction of the federal Congress. Wherewith, if
Congress should vote against slavery by a sufficient majority, it
could forbid the practice in all the Southern states. And this
would mean their ruin.
It came thus to be for the interest of the Southern states, which
at that time had a majority, to see to it that for every free state
admitted to the Union there should be at least one new slave state;
this in order to hold their majority in Congress. Now it happened
at that time that the territories which, by reason of their population,
would have next to be admitted, lay all north of the appointed
boundary and would, therefore, be free states. Therefore the
slave-holders promulgated the theory that Congress had exceeded
its jurisdiction and interfered with the rights of the individual
states. The matter was brought before the Supreme Court, and
in 1857 a verdict was given which upheld the new theory. Thus
Congress, that is, the Union as a whole, could not forbid slavery in
any place, but must leave the matter for each state to decide.
Herewith an important political issue was created, and a part of
the country stood out for the rights of the Union, a part for those
of the individual states. The group of men who at that time foresaw
that the whole Union was threatened, if so far-reaching rights
were to be conceded to the states, was the Republican party. It
rose up defiantly for the might and right of the federation, and
would not permit one of the most important social and economic
questions to be taken out of the hands of the central government
and left to local choice. It was, of course, not a matter of chance
that slavery became the occasion of dispute, but the real question
46at issue was the jurisdiction of the Federal Government. The
federal party won, under the leadership of Abraham Lincoln. His
election was the signal for the slave states to secede, South Carolina
being the first. In February, 1861, these states formed a Confederation,
and the Union was formally cleft. In his inaugural
speech of the following March, Lincoln firmly declared that the
Union must be preserved at all cost. The Civil War began in
April, and after fearful fighting the secessionists were returned to
the Union, all slaves were freed, and the Southern states were reconstructed
after the ideas of the Republican party. The opposing
party, the Democratic, was the party of decentralization. Its
programme was the freedom of the individual state but not the
servitude of the individual man.
When one understands in this way the difference between the
two parties, one sees that the Republicans were not for freedom
nor the Democrats for slavery, but the Republicans were for a
more complete subordination of the states to the federation and
the Democrats were for the converse. This is a very different point
of view, and from it very much which seems incompatible with
the attitude of the two parties toward the question of slavery may
now be seen as a necessary historical consequence.
If we cast a glance at foregoing decades, we see that ever
since the early days of the republic there has been hardly a time
when these two forces, the centralizing and the decentralizing,
have not been in play. It has lain deep in the nature of Teutonic
peoples to pull apart from one another, while at the same
time the struggle for existence has forced them to strong and well
unified organization, so that scarcely a single Teutonic people
has been spared that same opposition of social forces which is
found in America. The origin of the Constitution itself can be
understood only with reference to these antagonistic tendencies.
The country wanted to be free of the miserable uncertainty, the
internal discord and outward weakness which followed the Declaration
of Independence; it wanted the strength of unity. And
yet every single state guarded jealously its own rights, suspected
every other state, and wished to be ensured against any encroachment
of the federal power. And so the Constitution was drawn
up with special precautions ensuring the equilibrium of power.
At once, in Washington’s cabinet, both tendencies were distinctly
47and notably represented. There sat the distinguished Hamilton,
the minister of finance and framer of the Constitution, who was a
tireless champion of the federal spirit, and beside him sat Jefferson,
the minister of state, who would have preferred to have the federation
transact nothing but foreign affairs and who believed in general
the less the legislation the better for the people. The adherents
of Hamilton’s policy formed the federalist party, while
Jefferson’s supporters were called the Democratic Republicans.
The names have changed and the special issues have altered with
the progress of events; indeed, apparently the centralist party has
gone twice out of existence, yet it was actually this party of which
Lincoln became the leader. Jefferson’s party, on the other hand,
in spite of its change of name, has never as an organization
ceased to exist. The Democrats who, in 1860, wished to submit
the question of slavery to the individual states, were the immediate
heirs of the anti-federalists who had elected their first president in
1800.
Now if the centralizing and decentralizing character of the two
parties is borne in mind, their further development down to the
present day can be understood. This development seems disconnected
and contradictory only when the slavery question is thought
to be the main feature and the Republicans are accounted the
champions of freedom and the Democrats of slavery. Even
Bryce, who has furnished by far the best account of the American
party system, underestimates somewhat the inner continuity of the
parties. Even he believes that the chief mission of the Republican
party has been to do away with slavery and to reconstruct the
Southern states, and that since this end was accomplished as far
back as in the seventies, new parties ought naturally to have been
formed by this time. Although the old organizations have in
fact persisted, a certain vagueness and lack of vitality can be
detected, he says, in both parties. According to that conception,
however, it would be incomprehensible why those who formerly
went forth to put an end to slavery now advance to bring the
Filipinos into subjection, and to detain the poor man from purchasing
his necessities where they are the cheapest.
As we have seen, the Democrats were the party which was true
to the Jeffersonian principles, and in opposition to the supporters
of congressional authority defended the rights and free play of the
48individual states. And the Republicans were those who wished to
exalt beyond any other the authority of the Federal Government.
This is the key to everything which has since come to pass. At
the last presidential elections there were three great party issues—the
tariff, the currency, and the question of expansion. In deciding
on all three of these points, the parties have conformed to their
old principles. Free-trade versus protective tariff was not a new
bone of contention. Jefferson’s party had urged free-trade with
all the nations of the earth at the very beginning of the century,
and, of course, a decentralizing party which likes as little supervision
and paternalism as possible, will always concede to the
individual his right to buy what he requires where it will cost the
least. The Democrats did not oppose a tariff for revenue, to
help defray the public expenses, but they objected on principle
to that further tariff which was laid on goods in order to keep the
prices of them high and so to protect home industries. The centralists,
that is, the whigs or the Republicans, on the contrary, by
their supreme confidence in the one national government, had
early been led to expect from it a certain protection of the national
market and some regulation of the economic struggle for existence.
And protective tariff was one of the main planks in their platform
early in the century.
It is clear, once more, that the anti-centralists had a direct and
natural interest in the small man, his economic weaknesses and
burdens; every member of society must have equal right and opportunity
to work out his career. It does not contradict this that
the Democrats believed in slavery. In the Southern states the
negro had come in the course of generations to be looked on as
property, as a possession to be held and utilized in a special way,
and any feeling of personal responsibility was of a patriarchal
and not a political nature. The peculiarly democratic element
in the position taken was the demand that the slavery question
be left with the separate states to decide. As soon as fellow
citizens were concerned, the anti-centralist party held true to
its principles of looking out for the members on the periphery
of society. In this way the party favoured the progressive income
tax, and has always espoused any cause which would assist
the working-man against the superior force of protected capital,
or the farmer against the machinations of the stock market.
49The exaggerated notions as to the silver standard of currency
originated outside of the Democratic party, and have intrinsically
nothing to do with democracy. But as soon as a considerable
part of the people from one cause or another began really to
believe that nothing but a silver currency could relieve the condition
of the artisans and farmers, it became logically necessary
for the party which opposed centralization to adopt and foster this
panacea, however senseless it might seem to the more thoughtful
elements within the party. And it was no less necessary for the
party which upholds federal authority to oppose unconditionally
anything which would endanger the coinage and credit of the country.
The gold standard is specifically a Republican doctrine only
when it is understood to repudiate and oppose all risky experimenting
with bimetallism.
In the new imperialistic movement, on the other hand, it was
the Democrats who were put on the defensive. Any one who leans
toward individualism must instinctively lean away from militarism,
which makes for strength at the centre; from aggressive
movements to annex new lands, whereby the owners are deprived
of their natural rights to manage their own affairs, and from any
meddling with international politics, for this involves necessarily
increased discretionary powers for the central government. It is
not that the Democrats care less for the greatness of their fatherland,
but they despise that jingo patriotism which abandons the
traditions of the country by bringing foreign peoples into subjection.
It is left for the centralists to meet the new situation squarely,
undertake new responsibilities, and convince the nation that it
is strong and mature enough now to play a decisive rôle in the
politics of the world. And thus the two great parties are by no
manner of means two rudderless derelicts carried hither and
thither by the currents ever since the Civil War, but, rather, great
three-deckers following without swerve their appointed courses.
The parties have sometimes been distinguished as conservative
and liberal, but this is rather a reminiscence of conditions in Europe.
Both of the parties are really conservative, as results
from both the American character and the nature of the party
organization. Even in the most radical Democratic gathering
the great appeal is never made in behalf of some advantageous
or brilliant innovation but on the grounds of adherence to
50the old, reliable, and well-nigh sacred party principles. If
either party is at present departing from the traditions of the
past, it is the Republican party, which has always figured as
the more conservative of the two. Yet such a distinction is
partly true, since the centralists in conformity to their principles
must specially maintain the Federal authority and precedent,
while the Democratic party is more naturally inclined to give ear
to discontented spirits, clever innovators, and fantastic reformers,
lest some decentralizing energy should be suppressed. So the Republican
party gains a fundamental and cheerful complacence
with the prevailing order of things, while the Democratic party,
even when it is in power, can never come quite to rest. The contrast
is not that between rich and poor; the Democratic party has
its quota of millionaires, and the Republican has, for instance, in
its negro clientage many of the poorest in the land. But the Republican
party is filled with self-satisfaction and the consciousness
of power and success, while the Democrats are forever measuring
the actual according to an ideal which can never be realized.
Like all centralists, the Republicans are essentially opportunists
and matter-of-fact politicians; and the Democrats, like all anti-centralists,
are idealists and enthusiasts. It has been well said
that a Democratic committee is conducted like a debating club, but
a Republican like a meeting of the stockholders in a corporation.
These facts clearly hint at a certain personal factor which influences
the citizen’s allegiance to one or other of the parties. In
meeting a man on a journey one has very soon the impression,
though one may often be mistaken, as to what party he belongs to,
although he may not have spoken a word about politics. But
more distinctive than the personal bias are the groupings by classes
and regions which have come about during the course of time.
In the North and West the Republicans have the majority
among the educated classes, but in the South the educated
people are Democrats, particularly since the negro population
there holds to the old abolition party, so that the whites are the
more ready to be on the other side. The lower classes are moved
by the most diverse motives; the farmer is inclined to be Republican
and the artisan of the cities Democratic; Protestants are
more often Republicans and Catholics Democrats, a partition
which began with the early identification of the Puritan clergy of
51New England with the Republican party. This resulted in an
affiliation of Catholicism and Democracy which has had very important
consequences, particularly in municipal politics; the
Irish, who are invariably Catholics, vote with the Democratic
party. The Germans and Swedes, specially in the West, are
mostly Republicans. In these ways the most complicated combinations
have come about, particularly in the Middle West,
where many of the larger states are always uncertain at election
time. In the elections of the State of New York, the Democrats
and Republicans have been alternately successful. Very often
the capital city votes differently from the rural districts, as in Massachusetts,
which is a stalwart Republican state, although Boston,
owing to the Irish population, is Democratic.
These considerations as to the groupings of the party adherents
bring us directly to our second question—who are the party
politicians? We have aimed to refute the assertion that the parties
are without their principles, but there is the further assertion
that the politicians are without principles. In asking whether
politics are really in the hands of unscrupulous men, one should
first ascertain whether there are any honourable motives which
would lead a man to devote himself thereto. And it appears
that nowhere else are there such powerful inducements for a
conscientious man to go into politics. First of all there is the
best possible motive, the wish to see one’s country governed according
to one’s own ideas of justice and progress, and the desire
to work in this way for the honour, security, and welfare of the
nation. Any one who has witnessed the American presidential
elections once or twice will be convinced that the overwhelming
majority of voters casts its votes in a truly ethical spirit, although,
of course, the moral feeling is now more, now less, profound. At
times when technical matters are chiefly the order of the day, or at
best matters of expediency, enthusiasm for a party victory has to
be kept up in other ways; but when it comes to questions of the
national solidarity and honour, or of justice and freedom, then
really high ethical enthusiasm holds place before all other political
motives. In fact, the keen party spirit of the American is
rather in danger of making him feel a virtuous indignation against
52the opposing party, even in regard to purely technical issues, as if
it had fallen into mere frivolity or been criminally irresponsible.
And in this way the American is never at a loss for a moral stream
of some sort to keep the political mill-wheel turning.
After patriotic enthusiasm come the economic and social motives
which even the most high-flown idealist would not designate as
corrupt. It is not only just, but it is actually the ideal of politics
that every portion of the population, every class and calling, as
well as every geographical section, should see its peculiar interests
brought up for political debate. It is possible for an equilibrium
of all existing forces to be reached only when all elements alike are
aware of their chance to assert themselves. Nothing could be
gained if agriculture were to become political sponsor for the industrial
interests, or if industry were to assume the care and protection
of agriculture. A due and proper emphasis by the respective
interests of their own needs will always be an honourable and,
for the public welfare, useful incentive to political efficiency. It
is not to be doubted that in this way American politics have always
induced millions of citizens to the liveliest participation. As we
have seen, free-trade and protective tariff grew out of the chief demands
of the two parties; but this does not prevent the same party
opposition from standing in a way for the diverse and partly contradictory
interests of Northern industry and Southern plantation
life. Hence the parties are immediately interested in trade and
commerce. In a similar way the interests of the West have been
bound up in bimetallism schemes, while the commercial integrity
of the East depends on a gold currency. Legislation affecting
trusts and banks and the policy of expansion touch some of the
deepest economic problems, and summon all those concerned to
come forward and play their part. The same holds true of social
interests. The negro, struggling against legislation aimed directly
at himself, seeks social protection through the Republican party,
while the Irish, Swedes, and Russians also look for political
recognition to advance their social interests.
Now these moral, social, and economic motives interest the citizen
of every land in politics; but there are other considerations here in
play, which, although no less honourable, figure less importantly
in Germany for example. First of all stands loyalty to the traditions
of one’s party. The son joins the party of his father, and
53is true to it for life. In this way many are held in the party net
who otherwise might not agree to its general tenets. In a country
where there are many parties with only slight shades of difference,
where, say, the national-liberals are only a step removed from the
independents or the independent-conservatives, each new election
period offers the voter a free choice between parties. But where
there are only two camps a party loyalty is developed which leaves
very much less to personal inclination, and makes possible a
firm party discipline. Then the citizen may come to say of his
party as of his fatherland, “It may be right or wrong, it is still my
party.” A man like Hoar may use all the force of his rhetoric to
condemn imperialism and to stigmatize it as a crime, and he may
leave no stone unturned to bring his own Republican party to
abandon the imperialistic policy, and yet, if his recommendations
are officially outvoiced, he will not falter in supporting the regular
candidates of his party, imperialists though they be, as against the
anti-imperialist Democratic candidates. The typical American
will rather wait for his own party to take up and correct the evils
which he most deplores than go over to the other party which may
be already working for the same reforms.
To be sure, there are Americans who account this point of view
narrow or even culpable, and who reserve the right of judging the
programmes of both parties afresh each time and of casting their
lot on the side which they find to be right. The example of Carl
Schurz will be readily recalled, who in 1896 delivered notable
speeches in favour of McKinley against Bryan, but came out in
1900 for Bryan as against McKinley. He was a Republican on
the first occasion, because at that time the question of currency
was in the foreground, and he thought it paramount to preserve
the gold standard, while in the next election he went over to the
Democrats because the question of expansion had come to the
fore, and he preferred the short-sighted silver policy to the unrighteous
programme of war and subjugation. The number of
such independent politicians is not small, and among them are
many of the finest characters in the land. Behind them comes
the considerable class of voters who may be won over to either
party by momentary considerations of business prosperity, by any
popular agitation for the sake of being with the crowd, by personal
sympathies or antipathies, or merely through discontent with the
54prevailing régime. If there were not an appreciable part of the
people to oscillate in this way between the parties, the elections
would fall out the same way from year to year, the result could always
be told beforehand, and neither party would have any incentive
to active effort; in short, political life would stagnate.
Thus the citizens who owe no party allegiance but take sides according
to the merits of the case are very efficient practically: in a
way they represent the conscience of the country, and yet three-fourths
of the population would look on their political creed with
suspicion, or, indeed, contempt. They would insist that the American
system needs great parties, and that parties cannot be practically
effective if there is no discipline in their organization—that
is, if the minority of their membership is not ready to submit cheerfully
to the will of the majority. If any man wishes to make reforms,
he should first set about to reform his party. Whereas, if
on every difference of opinion he goes over to the enemy’s camp,
he simply destroys all respect for the weight of a majority, and
therewith undermines all democracy. It is as if a party, which
found itself defeated at the polls, should start a revolution; whereas
it is the pride of the American people to accept without protest
the government which the majority has chosen. And so party
allegiance is taken as the mark of political maturity, and the men
who hold themselves superior to their parties are influential at the
polls, but in the party camps they see their arguments held in light
esteem. They are mistrusted by the popular mind.
In addition to all this the American happens to be a born politician.
On the one hand the mere technique of politics fascinates
him; every boy is acquainted with parliamentary forms, and to
frame amendments or file demurrers appeals vastly to his fancy.
It is an hereditary trait. On the other hand, he finds in the party
the most diversified social environment which he may hope to
meet. Aside from his church, the farmer or artisan finds his sole
social inspiration in his party, where the political assemblies and
contact with men of like opinions with himself make him feel
vividly that he is a free and equal participant in the mighty game.
Moreover, local interests cannot be separated from those of the
state, nor these from the affairs of the whole country; for the party
lines are drawn even in the smallest community, and dominate
public discussions whether great or small, so that even those who
55feel no interest in national questions but are concerned only with
local reforms, perhaps the school system or the police board, find
themselves, nevertheless, drawn into the machinery of the great
national parties.
Yet another motive induces the American to enter politics, a
motive which is neither good nor bad. Party politics have for
many an aspect of sport, as can be easily understood from the
Anglo-Saxon delight in competition and the nearly equal strength
of the two parties. All the marks of sport can be seen in the daily
calculations and the ridiculous wagers which are made, and in the
prevalent desire to be on the side of the winner. Not otherwise
can the parades, torch-light processions, and other demonstrations
be explained, which are supposed to inspire the indifferent or wavering
with the conviction that this party and not the other will
come out victorious.
The American, it is seen, has ample inducements to engage in
the activities of party, from the noblest patriotic enthusiasm down
to the mere excitement over a sport. And it is doubtless these
various motives which sustain the parties in their activity and supply
such an inexhaustible sum of energy to the nation’s politics.
By them the masses are kept busily turning the political wheels
and so provided with a political schooling such as they get in no
other country.
But we have seen that to enlist in the service of a political party
means more than to discuss and vote conscientiously, to work on
committees, or to contribute to the party treasury. Every detail
of elections, local or national, in every part of the country, has to
be planned and worked out by the party organization; and particularly
in the matter of nomination of candidates by the members
of the party, the work of arranging and agitating one scheme
or another has become a veritable science, demanding far more
than merely amateur ability. It must not be forgotten that in
questions of a majority the American complacent good humour
is put aside. The party caucuses are managed on such business-like
methods that even in the most stormy debates the minutest
points of expediency are kept well in mind. If the several
interests are not represented with all that expertness with which
an attorney at court would plead the cause of a client, their case is
as good as lost. The managers have to study and know the least
56details, be acquainted with personal and local conditions, with the
attitude of the press, of the officials, and of the other party leaders.
Those members of the organization who conduct the large federal
sections and so deal with more than local affairs, have to be at
once lawyers, financiers, generals, and diplomats. Shrewd combinations
have to be devised in which city, state, and national
questions are nicely interwoven and matters of personal tact and
abstract right made to play into each other; and these arrangements
must be carried out with an energy and discretion that will
require the undivided attention of any man who hopes to succeed
at the business. Thus the American conditions demand in the way
of organization and agitation such an outlay of strength as could
not be expected of the citizens of any country, except in times of
war, unless in addition to patriotic motives some more concrete
inducements should be offered. And thus there are certain advantages
and rewards accruing to the men who devote themselves
to this indispensable work.
The first of these inducements is, presumably, honour. The personal
distinctions which may be gotten in politics cannot easily be
estimated after German standards. There are both credits and
debits which the German does not suspect. To the former belongs
the important fact that all offices up to the very highest can
be reached only by the way of party politics. The positions of
president, ambassadors, governors, senators, ministers, and so
forth are all provided with salaries, but such inadequate ones as
compared with the scale of living which is expected of the incumbents
that no one would even accept any of these positions for the
sake of the remuneration. In most cases an actual financial sacrifice
has to be made, since the holding of office is not an assured
career, but rather a brief interruption of one’s private business.
It is to be remembered, moreover, that a civil office carries no pension.
And thus it frequently happens that a man ends his political
career because he has spent all of his money, or because he
feels it a duty to secure his financial position. Reed, who was in
a way the most important Republican leader, gave up his position
as speaker of the House of Representatives and broke off all political
entanglements in order to become partner in a law firm. In
the same way Harrison, on retiring from the presidency, resumed
his practice of law, and Day resigned the secretaryship of state
57because his financial resources were not adequate. An ambassador
hardly expects his salary to be more than a fraction of his expenditures.
Now this circumstance need excite no pity, since
there is an abundance of rich men in America, and the Senate has
been nicknamed the Millionaire’s Club; but it should serve to
show that honour, prestige, and influence are the real incentives
to a political career, and not the “almighty dollar,” as certain
detractors would have one believe. There are persons, to be
sure, who have gotten money in politics, but they are few and insignificant
beside those who have been in politics because they had
money. The political career in America thus offers greater social
rewards than in Germany, where the holding of office is divorced
from politics, where the government is an hereditary monarchy
and strongly influenced by an hereditary aristocracy, and where
even the merest mayor or city councilman must have his appointment
confirmed by the government.
Since the social premiums of the political life are so many and
so important it may seem astonishing that this career does not attract
all the best strength of the nation, and even embarrass the
parties with an overplus of great men. The reasons why it does
not are as follows: Firstly, distinctions due merely to office or
position have not in a democratic country the same exclusive
value which they have with an aristocratic nation. The feeling
of social equality is much stronger, and all consideration and regard
are paid to a man’s personal qualities rather than to his station.
A land which knows no nobility, titles, or orders is unschooled
in these artificial distinctions, and while there is some
social differentiation it is incomparably less. One looks for one’s
neighbour to be a gentleman, and is not concerned to find out
what he does during office hours. The reputation and influence
which are earned in political life are much more potent than any
honour deriving from position. But here is found a second
retarding factor: the structure of American politics does not conduce
to fame. In Germany the party leaders are constantly in
the public eye; they deliver important speeches in the Reichstag
or the Landtag, and their oratorical achievements are read in
every home. In America the debates of Congress are very little
read, and those of the state legislatures almost not at all; the
work of government is done in committees. The speeches of the
58Senate are the most likely to become known, and yet no one
becomes famous in America through his parliamentary utterances,
and public sentiment is seldom influenced by oratorical performances
at Washington.
In the third place, every American party officer must have
served in the ranks and worked his way up. It is not every man’s
business to spend his time with the disagreeable minutiæ of the
local party organization; and even if he does not dislike the work,
he may well object to the society with which he is thrown in these
lower political strata. A fourth and perhaps the principal item
comes in here. In its lowest departments politics can be made to
yield a pecuniary return, and for this reason attracts undesirable
and perhaps unscrupulous elements whose mere co-operation is
enough to disgust better men and to give the purely political career
a lower status in public opinion than might be expected in such a
thoroughly political community.
This question of the pecuniary income from political sources is
even by the Americans themselves seldom fairly treated. There
are three possible sources of income. Firstly, the representatives
of the people are directly remunerated; secondly, the politician
may obtain a salaried federal, state, or municipal office; and,
thirdly, he may misuse his influence or his office unlawfully to enrich
himself. It is a regrettable fact that the first source of revenue
attracts a goodly number into politics. It is not the case with
Congress, but many a man sits in the state legislatures who is
there only for the salary, while in reality the monetary allowance
was never meant as an inducement but as a compensation, since
otherwise many would be deterred altogether from politics. But
the stipend is small and attracts no one who has capacity enough
to earn more in a regular profession. It attracts, however, all
kinds of forlorn and ill-starred individuals, who then scramble into
local politics and do their best to bring the calling into disrepute.
And yet, after all, these are so small a fraction of the politicians as
to be entirely negligible. There would be much worse evils if the
salaries were to be abolished. There are others who make money
in criminal ways, and of course they have ample opportunity for
deception, theft, and corruption in both town and country. Their
case is not open to any difference of opinion. It is easy for a
member of the school committee to get hold of the land on which
59the next school-house is to be built, and to sell it at a profit; or for
a mayor to approve a street-car line which is directly for the advantage
of his private associates; or for a captain of police to accept
hush money from unlawful gambling houses. Everybody
knows that this sort of thing is possible, and that the perpetrators
can with difficulty be convicted, yet they occasionally are and then
get the punishment which they deserve. But this is no more a
part of the political system than the false entries of an absconding
cashier are a part of banking. And even if every unproved suspicion
of dishonesty were shown to be well founded, the men who
so abuse their positions would be as much the exceptions as are
those who enter politics for the sake of the salary. We shall return
later to these excrescences.
Of the three sources of income from politics, only one remains to
be considered—the non-legislative but salaried offices with
which the politician may be rewarded for his pains. This is the
first and surest means by which the party keeps its great and indispensable
army of retainers contentedly at work. And here the
familiar evils enter in which are so often held up for discussion in
Germany. An American reformer, in criticizing the condition of
the parties, is very apt not to distinguish between the giving out
of offices to professional politicians as rewards and the later corrupt
using of these offices by their incumbents. And as soon as
the politician receives an income from the public treasury, the
reformer will cry “stop thief.” The so-called “spoils system,”
by which the federal offices in the patronage of the President are
distributed to those who have worked hardest in the interests of
the victorious party, will occupy our attention when we come to
the political problems of the day. We shall have then to mention
the advantages and disadvantages of civil service reform. But it
must be said right here that, however commendable this reform
movement may be in many respects, and in none more than in the
increased efficiency which it has effected in the public service,
nevertheless the spoils system cannot be called dishonourable, and
no one should characterize professional politicians as abominable
reprobates because they are willing to accept civil positions as rewards
from the party for which they have laboured.
It is a usage which has nothing to do with the corrupt exploitation
of office, and the German who derives from it the favourite
60prejudice against the political life of the United States must not
suppose that he has thereby justified the German conception of
office. Quite on the contrary, no one ever expects the German
government to bestow offices, titles, or orders on members of the
political opposition, to confirm, for instance, an independent for the
position of Landrat or a social democrat for city councillor, while
co-operation in the plans of the government never goes unrewarded.
Above all, a German never looks on his official salary as a
sort of present taken from the public treasury, but as the ordinary
equivalent of the work which he does, while the American has a
curious conception of the matter quite foreign to the German,
which is the ground for his contempt of the “spoils system.” To
illustrate by a short example: a state attorney who had been elected
to the same office time after time, was asked to renew his candidacy
at the coming elections. But he declined to do so, and explained
that he had been supported for twenty years out of the
public funds, and that it was therefore high time for him to earn
his own living by the ordinary practice of law. A German cannot
understand this conception, traditional though it is in America,
but he can easily see that the man who shares such views as to public
salaries will naturally consider it an act of plunder when the
party in power distributes the best public posts to its own followers.
The case would be somewhat different if the politicians who step
into offices were essentially incapable or indolent, though this is
aside from the principle in question. Germans have recently become
used to seeing a general or a merchant become minister. In
America it is a matter of course that a capable man is qualified,
with the aid of technically trained subordinates, for any office.
And no one denies that politicians make industrious office-holders.
And yet the same remarkable charge is always made, that the
holder of an office receives a gift from the public chest.
These considerations are not meant as an argument against civil
service reform, which is supported by the best men of both parties,
although they are not exactly the most zealous party “heelers.”
But the superficial assertion must be refuted, that the spoils system
shows lack of morality in party politics. No unprejudiced
observer would find anything improper in the attitude of those who
endure the thankless and arduous labours imposed by the party
for the sake of a profitable position in the government service. It
61would be equally just to reproach the German official with lack of
character because he rises to a high position in the service of the
government. If this were the true idea, Grover Cleveland, who
has done more than any other president for the cause of civil service
reform, could be said actually to have favored the spoils
system. In an admirable essay on the independence of the executive,
he says:—
“I have no sympathy with the intolerant people who, without
the least appreciation of the meaning of party work and service,
superciliously affect to despise all those who apply for office as
they would those guilty of a flagrant misdemeanor. It will indeed
be a happy day when the ascendancy of party principles and the
attainment of wholesome administration will be universally regarded
as sufficient rewards of individual and legitimate party
service.... In the meantime why should we indiscriminately
hate those who seek office? They may not have entirely
emancipated themselves from the belief that the offices should pass
with party victory, but in all other respects they are in many instances
as honest, as capable, and as intelligent as any of us.”
There are such strong arguments for separating public office
from the service of party, that every reformer is amply justified if
on his native soil he stigmatizes the present usage as corrupt. But
the representation that all professional politicians are despicable
scamps because they work for their party in the hope of being preferred
for public office, is unjust and misleading when it is spread
abroad in other countries. Abuses there are, to be sure, and the
situation is such as to attract swarms of worthless persons. It is
true, moreover, that even in the higher strata of professional politics
there is usually less of broad-minded statesmanship than of ingenious
compromise and clever exploitation of the opposing party’s
weaknesses and of popular whims and prejudices. Petty
methods are often more successful than enlightened ones, and
cunning men have better chances than those who are more high-minded.
In the lower strata, moreover, where it is important to
cajole the voting masses into the party fold, it may be inevitable
that men undertake and are rewarded for very questionable services.
Nevertheless the association of party and office is not intrinsically
improper.
In the same category of unjust reproaches, finally, belongs the
62talk over the money paid into the party treasury. It is, of course,
true that the elections both great and small eat up vast sums of
money; the mountains of election pamphlets, the special trains for
candidates who journey from place to place in order to harangue
the people at every rural railway station, from the platform of the
coach—Roosevelt is said at the last election in this way to have
addressed three million persons—the banquet-halls and bands of
music, and the thousand other requisites of the contest are not to
be had for nothing. It is taken as a matter of course that the supporters
of the party are taxed, and of course just those will be apt
to contribute who look for further material benefit in case of victory;
it is also expected that, of course, the larger industries will
help the propaganda of the high-tariff party, that the silver mine
owners will generously support bimetallism, and that the beer
brewers will furnish funds when it is a question between them and
the Prohibitionists. But in the endeavour to hurt the opposing
party some persons make such contributions a ground of despicable
slander. Any one who considers the matter really without
prejudice will see not only that the American party politics are a
necessary institution, but also that they are infinitely cleaner and
better than the European newspaper reader will ever be inclined
to believe.
63
The President of the United States is elected by the people
every four years. He may be re-elected and, so far as the
Constitution provides, he may hold the first position in the
land for life, by terms always of four years at a time. A certain
unwritten law, however, forbids his holding office for more than
two terms. George Washington was elected for two terms, and
after him Thomas Jefferson, James Madison, James Monroe, Andrew
Jackson, Abraham Lincoln, Ulysses Grant, Grover Cleveland,
and William McKinley; that is, nine out of twenty presidents
have received this distinction. No president has served a
third term of office, because since Washington declined to be
nominated for a third time the conservative sense of the Americans
has cherished the doctrine that no man should stand at the
helm of the nation longer than eight years.
At the present day it is urged from many sides that the provisions
of the Constitution ought to be changed. It is said that
the frequently recurring presidential elections, with the popular
excitement which they involve during the months immediately
preceding, are an appreciable disturbance to economic life and
that the possibility of being re-elected is too apt to make the
President in the first term of office govern his actions with an eye
to his second election. It is proposed, therefore, that every President
shall be elected for six years and that re-election shall be forbidden
by the Constitution. Experience of the past, however,
hardly speaks for such a plan. The inclination shown by the
President to yield to popular clamours or the instances of his
party has been very different with different presidents, but on the
whole it has not been noticeably greater in the first than in the
second term of office. More especially, the disadvantages which
64come from the excitement over elections are certainly made up
for by the moral advantage which the act of election brings to the
people. The presidential election is a period of considerable
reflection and examination of the country’s condition, and everybody
is worked up to considerable interest; and the more changeable
the times are so much the more rapidly new problems come
up. Therefore there should be no thought of putting the decisive
public elections, with their month-long discussions, at further intervals
apart.
The most important duties and prerogatives of the President
involve foreign as well as domestic affairs, and of the latter the
most important concern the administration; a less important, although
by no means an insignificant, part of his duties relates to
legislation. The President is commander-in-chief of the army
and of the navy, and with the approval of a majority of the Senate
he appoints ambassadors, consuls, judges of the Supreme Court,
and all the higher federal officials. Subject to the ratification of
two-thirds of the Senate, he concludes treaties with foreign powers
and regulates diplomatic relations. He has, moreover, the right
to send back inside of ten days, with his veto, any bill which Congress
has passed, and in this case the bill can become law only by
being once more voted on by Congress and receiving in both
houses a two-third’s majority. The President has the power to
convene both houses in special sessions, and is expected to send
messages to both houses when they meet, in which he describes
the political situation of the country and recommends new measures.
In addition to this he has the right of pardon and the right
to afford protection to individual states against civil violence, if
they cannot themselves quell the disturbance.
Such are the principal features of the presidential office, and it
is clear that here as everywhere in American civil law the spirit of
precaution has tried from the outset to limit the possibilities of
abuse. Although he is commander-in-chief of the army, the
President has not the right to declare war, this right being given
to Congress. The President negotiates with foreign representatives
and signs all treaties, but these are not valid until the Senate
has approved them with a two-thirds vote. He nominates government
officials, but once again only with the sanction of the
Senate. The President convenes Congress and recommends matters
65for its legislative consideration, but the President cannot, like
the German Government, lay bills before Congress for its ratification.
While the President sends his message to Congress his
ministers have not, as in Germany, a seat in parliament, and cannot,
therefore, in the debates actively support the President’s
policy.
The President is authorized to veto any bill that is passed
through Congress, but his veto is not final since the bill can still become
a law if Congress is sufficiently of one accord to override his
veto. Therefore a whimsical or arbitrary president would find
small scope for his vagaries so long as he keeps within his powers,
while if he exceeds them he can be impeached, like a king
under old English law. The House of Representatives can at any
time file complaint against the President if he is suspected of
treason or corruption or any other crime. In such case the Senate,
under the chairmanship of a judge of the Supreme bench, constitutes
a court of trial which is empowered to depose the President
from office. Up to the present time but one president,
Andrew Johnson, has been impeached, and he was acquitted.
The seditionary ambition of a man who should try to gain complete
control, to overthrow the Constitution, and at the head of the
army, or of the populace, or, as might be more likely, of the millionaires,
to institute a monarchy, would have no chance of success.
Neither a Napoleon nor a Boulanger would be possible in America.
In spite of these provisions, it is to be observed that tremendous
power is in the hands of this one man. Thousands and thousands
of officials appointed by his predecessor can be removed by a
stroke of his pen, and none can take their places except those
whom he nominates. And he can put a barrier before any law
such as Congress could only in exceptional cases ride over. Cleveland,
for instance, who to be sure made the freest use of his authority
in this respect, vetoed more than three hundred bills, and
only twice did Congress succeed in setting aside his veto. The
President may negotiate with foreign powers up to the point
where a loyal and patriotic Congress has hardly any choice
but to acquiesce. The President can virtually force Congress to
a declaration of war, and if insurrection breaks out in any state he
can at his pleasure employ the federal troops on behalf of one or
the other faction, and when war has once been declared the
66presidential authority grows hourly in importance. The army
and navy stand under his direction, and since the Constitution
makes him responsible for the maintenance of law and order in
the country he becomes virtually dictator in case of an insurrection.
Bryce says very justly that Abraham Lincoln exercised more power
than any man in England since Oliver Cromwell, and the anti-imperialistic
papers of America always assert that in their Philippine
policy McKinley and Roosevelt have taken on themselves
more authority than any European monarch, excepting the Czar,
could acquire.
In two respects the President is more important as compared
with the representatives of the people, even in times of peace, than
the king of England or the President of France. Firstly, his cabinet
is entirely independent of the voice of parliament, and it has
often been the case that while a majority in Congress sharply opposed
the party policy of the President, this has not influenced the
composition of his cabinet. The cabinet ministers are the representatives
of the presidential policy, and they do not even take
part in the doings of Congress.
Secondly, the President is not less but rather more than Congress
a representative of the people. A monarch who takes up a
position against the parliament thereby antagonizes the people.
The President of France is elected by the people, but only through
their parliamentary representatives; the chambers elect him, and
therefore he is not an independent authority. The President of
the United States, on the other hand, is in his own person a symbol
of the collective will of the people, as opposed to the different
members of Congress, which is of diverse composition and chosen
on more local issues. There is moral authority, therefore, vested
in the President. He is the true will of the people and his veto is
their conscience. It is almost astonishing that a Republican
democracy should have put such tremendous power into the hands
of a single man. It is the more striking inasmuch as the Declaration
of Independence related at length the sins of the English monarch.
But we must bear in mind that the framers of the Constitution
had to make a new and dangerous experiment, wherein
they were much more afraid of that so far unknown and incalculable
factor, the rule of the people, than the power of that single
person whose administrative possibilities they had, in the colonial
67days, been able to observe in the governors of the several states.
These had been diminutive but, on the whole, encouraging examples.
Before all else the great and incomparable George
Washington, the popular, dashing, and yet cautious aristocrat,
had presided at the deliberations in which the Constitution was
discussed, and had himself stood tangibly before the popular
mind as the very ideal of a president.
Thus the President stands with tremendous powers at the helm
of the nation. Who has sought him out for this position from the
hundreds of thousands, whose hot ambition has led them to dream
of such a distinction, and who has finally established him in
this highest elective office on the face of the earth? The Constitution
makes no other provision for the selection of a candidate
than that he shall have been born in the land, that he shall be at
least thirty-five years old, and shall have resided at least fourteen
years in this his native country. On the other hand, the Constitutional
provisions for his election are highly complicated, much
more so indeed than the circumstances really call for. In fact,
while the electoral procedures still comply with the wording of the
original Constitution, actual conditions have so changed since the
establishment of the Union that the prescribed machinery is not
only partly unnecessary, but in some cases even works in opposition
to what had been originally intended, and inconsistently with
itself. The law requires, merely to mention the main point, that
every state shall elect by popular vote a certain number of men
who are called electors, and that a majority of the electors shall
choose the President. For each state the number of electors is
the same as that of the representatives which it sends to both
houses of Congress together; it depends, therefore, on the number
of inhabitants. Out of the 447 electors, 36 come from the State
of New York, 32 from Pennsylvania, 24 from Illinois, 23 from
Ohio, 15 from Massachusetts, but only 4 from Colorado, Florida,
or New Hampshire; and only 3 from Delaware, Idaho, North
Dakota, Utah, and several others. In case the vote of the electors
should give no absolute majority to any candidate, the House of
Representatives has to elect the President from among the three
candidates who have received the greatest number of electoral votes.
The intention of the men who framed the Constitution in making
these roundabout electoral provisions is clear enough; the
68election was not meant to be made directly by the people. When
in the first discussions of the Constitution it was suggested that
the President be elected directly by the people, some of the framers
called the scheme chimerical and others called it impracticable.
Indeed, some even doubted whether the people would be competent
to choose the electors since, it was said, they would know
too little about the persons and so would be liable to grave errors.
This mistrust went so far, it is said, that leaving the election of the
highest executives directly to the people seemed as unnatural
as asking a blind man to match colors. The first plan which was
at all approved by the Assembly was that Congress should elect
the President; and not until later did it adopt the system of electors.
It was hoped that for the electoral college the people would
select the best, most experienced, and most cautious men of the
country, and that these men should be left quite free to choose the
highest executive as carefully and conscientiously as possible: and
so it really happened when the electors met for the first time and
fixed unanimously on George Washington.
But the situation is somewhat changed to-day: for a hundred
years it has been the case that the electors have inevitably been
deprived of all free choice. They are as passive as a printed ballot.
They are no longer elected in order to come to a decision as to the
best President, but merely to vote for this or that special candidate
as designated, and for a hundred years not a single elector has disappointed
this expectation. Thus the election of the President
is practically accomplished on the day in November when the
electors are voted for. McKinley defeated Bryan for the Presidency
on the ninth of November, 1900, although no elector had
officially voted for either one or the other; nor would he have a
chance to vote until the first day of January, when he was mechanically
to deposit his ballot.
The indirect election prescribed by the Constitution has therefore
become to all intents and purposes a direct one, and the whole
machinery of electors is really superfluous. It may, indeed, be
said to have become contradictory in itself.
Since the original intention to make an electoral college of the
best citizens has been frustrated by the popular spirit of self-determination,
the electoral apparatus can have to-day no other
significance than to give expression to the voice of the majority.
69But now just this it is in the power of the electoral system completely
to suppress. Let us suppose that only two candidates
are in question. If the election were simply a direct one, of course
that candidate would win who received the most votes; but with
electors this is not the case, because the number of electors who
are pledged to vote for these two candidates need not at all correspond
to the number of ballots cast on the two sides. If in the
State of New York, for instance, three-fifths of the population are
for the first candidate and two-fifths for the second, the three-fifths
majority determines the whole list of 36 electors for the first
candidate, and not an elector would be chosen for the other. Now
it can very well happen that a candidate in those states in which he
secures all the electors will have small majorities, that is, his opponent
will have large minorities, while his opponent in the states
which vote for him will have large majorities; and in this way the
majority of electors will be pledged for that candidate who has received
actually the smaller number of votes. It is a fact that both
Hayes in 1877 and Harrison in 1889 were constitutionally elected
for the Presidency by a minority of votes.
While in form the voters choose only the electors from their
state, nevertheless these ballots thus actually count for a certain
candidate. At the last election 292 electors voted for McKinley,
and 155 for Bryan, while for the McKinley electors 832,280 more
votes were cast than for the Bryan electors. We have already
seen how it is that the best man will no longer, as in Washington’s
time, be unequivocally elected by the people, and why, although
a unanimous choice of President has not taken place since
Washington’s time, nevertheless no more than two candidates are
ever practically in question. It was for this that we have discussed
the parties first. The parties are the factor which makes
it impossible for a President to be elected without a contest, and
which, as early as 1797, when the successor of Washington had to
be nominated, divided the people in two sections, the supporters
of Jefferson and of Adams. At the same time, however, the parties
prevent the division from going further, and bring it about
that this population of millions of people compactly organizes itself
for Presidential elections in only two groups, so that although
never less than two, still never more than two candidates really
step into the arena.
70For both great parties alike, with their central and local committees,
with their professional politicians, with their leaders and
their followers, whether engaging in politics out of interest or in
hope of gain, as an ideal or as sport—for all alike comes the great
day when the President is to be elected. For years previous
the party leaders will have combined and dissolved and speculated
and intrigued, and for years the friends of the possible candidates
have spoken loudly in the newspapers, since here, of
course, not only the election but also the nomination of the candidate
depends on the people. Although the election is in November,
the national conventions for nominating the party candidates
come generally in July. Each state sends its delegation, numbering
twice as many as the members of Congress from that state, and
each delegation is once more duly elected by a convention of representatives
chosen by the actual voters out of their party lists.
In these national conventions the great battles of the country
are fought, that is, within the party, and here the general trend of
national politics is determined. It is the great trial moment for
the party and the party heroes. At the last election McKinley
and Bryan were the opposing candidates, and it is interesting to
trace in their elections by the respective conventions two great
types of party decision.
McKinley had grown slowly in public favour; he was the accomplished
politician, the interesting leader of Congress, the sympathetic
man who had no enemies. When the Republican convention
met at Chicago, in 1888, he was a member of the delegation
from Ohio and was pledged to do his utmost for the nomination of
John Sherman. The ballots were cast five different times and
every time no one candidate was found to have a majority. On
the sixth trial one vote was cast for McKinley, and the announcement
of this vote created an uproar. A sudden shifting of the
opinions took place amid great acclamation, and the delegations
all went over to him. He jumped up on a stool and called loudly
through the hall that he should be offended by any man who voted
for him since he himself had been pledged to vote for Sherman.
Finally a compromise was found in Benjamin Harrison. At the
convention in Minneapolis four years later McKinley was chairman,
and once more the temptation came to him. The opponents
of Harrison wished to oppose his re-election by uniting on the Ohio
71statesman, and again it was McKinley himself who turned the
vote this time in favour of Harrison. His own time came finally
in 1896. In the national convention at St. Louis 661 votes were
cast in the first ballot for McKinley, while 84 were cast for
Thomas Reed, 61 for Quay, 58 for Morton, and 35 for Allison.
And when, in 1900, the national convention met in Philadelphia,
926 votes were straightway cast for McKinley, and none
opposing. His was the steady, sure, and deserved rise from
step to step through tireless exertions for his party and his
country.
Bryan was a young and unknown lawyer, who had sat for a
couple of years in the House of Representatives like any other
delegate, and had warmly upheld bimetallism. At the Democratic
national convention at Chicago in 1896 almost nobody
knew him. But it was a curious crisis in the Democratic party.
It had been victorious four years previous in its campaign for
Cleveland against Harrison, but the party as such had enjoyed no
particular satisfaction. The self-willed and determined Cleveland,
who had systematically opposed Congress tooth and nail, had
fallen out with his party and nowhere on the horizon had appeared
a new leader. And after a true statesman like Cleveland had
come to grief, the petty politicians, who had neither ideas nor a
programme, came to their own. Every one was looking for a
strong personality when Bryan stepped forth to ingratiate himself
and his silver programme in the affections of his party. His
arguments were not new, but his catch-words were well studied,
and here at last stood a fascinating personality with a forceful
temperament which was all aglow, and with a voice that sounded
like the tones of an organ. And when he cried out, “You must
not nail humanity to a cross of gold,” it was as if an omen had
appeared. He became at once the Democratic candidate for the
Presidency, and six months later six and one-half million votes
were cast for him against the seven million for McKinley. Nor
did the silver intoxication succumb to its first defeat. When the
Democrats met again in 1900, all the endeavours of those who
had adhered to a gold currency were seen to be futile. Once
again the silver-tongued Nebraskan was carried about in triumph,
and not until its second defeat did the Democratic party wake up.
Bryanism is now a dead issue, and before the next Presidential
72election the programme of the Democratic party will be entirely
reconstructed.
Thus the presidents of the nation grow organically out of the
party structure, and the parties find in turn their highest duty and
their reward in electing their President. The people organized in
a party and the chief executive which that party elects belong necessarily
together. They are the base and the summit. Nothing
but death can overthrow the decision of the people; death did
overthrow, indeed, the last decision after a few months, in September,
1901, when the cowardly assassination accomplished by a
Polish anarchist brought the administration of McKinley to an
end. As the Constitution provides, the man whom the people
had elected to the relatively insignificant office of Vice-President
became master in the White House.
The Vice-Presidency is from the point of view of political logic
the least satisfactory place in American politics. Very early in
the history of the United States the filling of this office occasioned
many difficulties, and at that time the provisions of the Constitution
referring to it were completely worked over. The Constitution
had originally said that the man who had the second largest
number of votes for the Presidency should become Vice-President.
This was conceived in the spirit of the time when the two-party
system did not exist and when it was expected that the electors
should not be restricted by the voting public in their choice of the
best man. As soon, however, as the opposition between the two
parties came into being, the necessary result of such provision was
that the presidential candidate of the defeated party should become
Vice-President, and therefore that President and Vice-President
should always represent diametrically opposed tendencies.
A change in the Constitution did away with this political impossibility.
Each elector was instructed to deposit separate ballots
for President and Vice-President, and that candidate became
Vice-President who received the largest number of votes for that
office, both offices being thus invariably filled by candidates of the
same party.
In spite of this the position has developed rather unsatisfactorily
for an obvious reason. The Constitution condemns the Vice-President,
so long as the President holds office, to an ornamental
inactivity. It is his duty to preside at sessions of the Senate, a
73task which he for the most part performs silently, and which has
not nearly the political significance enjoyed by the Speaker of the
House of Representatives. On the other hand, men still in the
prime of life are almost always elected to the Presidency; the possibility
is therefore almost always lost sight of that the President
can die before the expiration of his four years’ term of office. The
result has been that less distinguished men, who have, nevertheless,
served their parties, are usually chosen for this insignificant and
passive rôle. The office is designed to be an honour and a consolation
to them, and sometimes for one reason or another their
candidacy is supposed otherwise to strengthen the outlook of the
party. It is not accident that while in the several states the Lieutenant-Governor
is very often the next man to be elected Governor,
it has never so far happened that a Vice-President has been
elected to the Presidency.
Now in the unexpected event of the President’s death a man
stands at the helm whom no one really wants to see there; and it
has five times happened that the chief executive of the nation has
died in office, and four times, indeed, only a few months after being
installed, so that the Vice-President has had to guide the destinies
of the country for almost four years. When Tyler succeeded to
the place of Harrison in 1841, there arose at once unfavourable
disputes with the Whig party, which had elected him. When,
after the murder of Lincoln in 1865, Johnson took the reins, it was
his own Republican party which regretted having elected this impetuous
man to the Vice-Presidency; and when, in 1881, after the
assassination of Garfield, his successor, Arthur, undertook the
office, and filled it indeed by no means badly, considerable consternation
was felt throughout the country when people saw that
so ordinary a professional politician was to succeed Garfield, on
whom the country had pinned its faith.
On the death of McKinley a Vice-President succeeded him toward
whom, in one respect at least, the feeling was very different.
If ever a man was born to become President that man was Theodore
Roosevelt. Nevertheless, he had not been elected in expectation
of becoming President, and at first the whole country
felt once more that it was a case which had lain outside of all
reasonable calculations. Roosevelt’s friends had asked him to
make a sacrifice and to accept a thankless office because they
74knew that his name on the ballot of the Republican party—for his
Rough Rider reputation during the war was still fresh—would be
pretty sure to bring about the election of McKinley. The opponents
also of this strong and energetic young man, against his stoutest
protestations, upheld his candidacy with every means in their
power. Firstly because they wanted to get rid of him as Governor
of the State of New York, where he made life too hard for the
regular politicians, and secondly because they relied on the tradition
that holding the Vice-Presidency would invalidate him as a
Presidential candidate in 1904. Neither friends nor enemies had
thought of such a possibility as McKinley’s death. Roosevelt’s
friends had rightly judged; the hero of San Juan did bring victory
to his party. His enemies, on the other hand, had entirely missed
their mark not only on the outcome, but from the very beginning.
Odell became Governor of New York, and quite unexpectedly he
stood out even more stoutly against the political corruptionists.
And, on the other hand, Roosevelt’s impulsive nature quickly
found ways to break the traditional silence of the Vice-President
and to keep himself before the eyes of the world. There is no
doubt that in spite of all traditions his incumbency would have
been a preparation for the presidential candidacy. But when,
through the crime committed at Buffalo, everything came out so
differently from that which the politicians expected, it seemed to
the admirers of Roosevelt almost like the tragic hand of fate; he
had done his best to attain on his own account the Presidency,
and now it came to him almost as the gift of chance. Only the
next election may be expected to do him full justice.
The successive moments in his rapid rise are generally known.
Roosevelt was born in New York in 1858, his father being a prosperous
merchant and well-known philanthropist, and a descendant
of an old Knickerbocker family. The son was prepared for
college and went to Harvard, where he made a special study of
history and political economy. After that he travelled in Europe,
and when he was still only twenty-four years old, he plunged into
politics. He soon obtained a Republican seat in the state legislature
of New York, and there commenced his tireless fight for reform
in municipal and state administration. In 1889 President
Harrison appointed him Commissioner of the Civil Service, but
he resigned this position in 1895 in order to become Chief of Police
75in New York. Only two years later he was once more called from
municipal to national duties. He was appointed Assistant Secretary
of the Navy. All this time his administrative duties did not
interrupt his literary, historical, and scientific work. He had begun
his career as an author with his studies in the history of the
navy and his admirable biographies of American statesmen.
When he was thirty years old he wrote the first part of his great
work, “The Winning of the West,” and often between the publication
of his scientific works he published lesser books, describing
his adventures as huntsman in the primeval wilderness, and later
on volumes in which his social and political essays were collected.
Then the Spanish War arose and the Assistant Secretary could
not bear to sit at his desk while others were moving to the field of
battle. He gathered about him a volunteer regiment of cavalry,
in which the dare-devil cow-punchers of the prairie rode side by
side with the adventurous scions of the most distinguished families
in Boston and New York. Roosevelt’s friend, Wood, of the
regular army, became Colonel in this soon-famous regiment, and
Roosevelt himself Lieutenant-Colonel. A few days after they had
successfully stormed the hill at San Juan, Wood became General
and Roosevelt Colonel.
His native State of New York received him on his home-coming
with general rejoicing, and he found himself a few months later
Governor of the State. At Albany he showed tremendous energy,
put through popular reforms, and fought against the encroachments
of the industrial corporations. It had been his personal
wish to be Governor for a second year, but this was denied him by
the admirable doings of his Eastern enemies and Western admirers
at the national convention of June, 1900, held in Pennsylvania,
where he was forced to become candidate for the position of Vice-President.
On the 14th of September, 1901, in Buffalo, he took
the Presidential oath of office.
At that time a quiet anxiety for the future was mingled with the
honest sorrow which the whole land felt for the death of McKinley.
A nation which had been sunning itself in peace suddenly found
itself under the leadership of an impulsive colonel of cavalry, who
carried in his hand the banner of war. The nation was in the
midst of an economic development which needed before everything
else to have a mature and careful leader who was honoured
76and trusted by all classes, and who would be able to effect some
work of reconciliation between them; when suddenly there stood
in the place of a most conservative statesman an impetuous young
man who was not intimately connected with industrial life,
who had for a long time made himself unpopular with party politicians,
and whom even his admirers in the land seemed hardly to
trust on account of his hasty and determined impetuosity. Roosevelt
had been envisaged by the masses, through the cinematograph
of the press, in campaign hat and khaki uniform, just in the attitude
of taking San Juan hill. Nearly everybody forgot that he had
for a long time quietly carried on the exacting labours of Police
Commissioner in the largest city of the country; and forgot how,
from his first year of study at Harvard on, every day had been given
to preparing himself for public service and for acquiring a thorough
understanding of all the political, social, and economic problems
which the country had to face; they forgot also that he had wielded
the sword for only a few months, but the pen of the historian for
about two decades. Roosevelt’s first public utterance was a pledge
to continue unchanged the peaceful policy of his predecessor
and always to consider the national prosperity and honour.
Still, people felt that no successor would be able to command that
experience, maturity, and party influence which McKinley had
had.
There have been differences of opinion, and, as was to be expected,
complaints and criticisms have come from the midst of his
own party. Yet anyone who looks at his whole administration
will see that in those first years Roosevelt won a more difficult and
brilliant victory than he had won over the Spanish troops.
He had three virtues which especially overcame all small criticism.
The people felt, in the first place, that a moral force was
here at work which was more powerful than any mere political
address or diplomatic subtlety. An immediate ethical force was
here felt which owned to ideas above any party, and set inner
ideals above merely outward success. Roosevelt’s second virtue
was courage. A certain purely ethical ideal exalted above all
petty expediencies was for him not only the nucleus of his own
creed, but was also his spring of action; and he took no account
of personal dangers. Here was the keynote of all his speeches—it
is not enough to approve of what is right, it is equally necessary
77to act for it fearlessly and unequivocally. Then he went on to his
work, and if, indeed, in complicated political situations the President
has had at times to clinch some points by aid of compromise,
nevertheless the nation has felt with growing confidence that at no
serious moment has he wavered a hair’s breadth from the straight
line of his convictions, and that he has had the courage to disregard
everything but what he held to be right. And, thirdly,
Roosevelt had the virtue of being sincere.
McKinley also had purposed to do right, but he had hardly an
occasion for displaying great courage since so incomparably discreet
a politician as he was could avoid every conflict with his associates,
and he was ever the leader on highways which the popular
humour had indicated. Thus the masses never felt that he
was at bottom lacking in courage or that he always put off responsibility
on others. The masses did, however, instinctively
feel that McKinley’s astute and kindly words were not always sincere;
his words were often there to conceal something which was
locked up behind his Napoleonic forehead. And now there succeeded
him an enthusiast who brimmed over with plain expressions
of what he felt, and whose words were so convincingly candid
and so without reservation that every one had the feeling of being
in the personal confidence of the President.
There was a good deal more besides his moral earnestness, his
courage, and his frank honesty which contributed to Roosevelt’s
entire success. His lack of prejudice won the lower classes, and
his aristocratic breeding and education won the upper, while the
middle classes were enthusiastic over his sportsmanship. No President
had been more unprejudiced or more truly democratic. He
met the poor miner on the same footing as he met the mine owner;
he invited the negro to the White House; he sat down and broke
bread with the cow-boys; and when he travelled he first shook the
sooty hand of the locomotive engineer before he greeted the gentlemen
who had gathered about in their silk hats. And, nevertheless,
he was in many years the first real aristocrat to become President.
The changes in the White House itself were typical. This
venerable Presidential dwelling had been, up to Roosevelt’s time,
in its inner arrangements a dreary combination of bare offices,
somewhat crudely decorated private dwelling, and cheerless reception-halls.
To-day it is a very proper palace, containing many
78fine works of art, and office-seekers no longer have access to the
inner rooms. His predecessors, the Clevelands and Harrisons
and McKinleys, had been, in fact, very respectable philistines.
They had come from the middle classes of the country, which are
in thought and feeling very different from that upper class which,
up to a short time ago, had bothered itself less about practical
politics than about general culture, literature, art, criticism, and
broadly conceived industrial operations, combined with social
high-life. This class, however, had begun at length to feel that it
ought not to disdain to notice political abuses, to walk around
the sea of troubles; but had begun to take up arms and by opposing
end them. Aristocracy had too long believed in political mercenaries.
Roosevelt was the first to lift himself from these circles and become
a great leader. Not alone the nobility of his character but
also of his culture and traditions was shown in his entire habit of
mind. Never in his speeches or writings has he cited that socially
equalizing Declaration of Independence, and while his speeches
at banquets and small gatherings of scholarly men have been incomparably
more fascinating than his strenuous utterances to
the voters, which he has made on his public tours, it has been
often less the originality of his thoughts and still less the peculiarly
taking quality of his delivery, than the evidences of ripe
culture, which seem to pervade his political thought. Thus the
smaller the circle to which he speaks the greater is his advantage;
and in speaking with him personally on serious problems one feels
that distinction of thought, breadth of historical outlook, and confidence
in self have united in him to create a personality after the
grand manner.
The impression which Roosevelt has made on his own country
has not been more profound than his influence on the galaxy of
nations. At the very hour when the United States by their economic
and territorial expansion stepped into the circle of world powers,
they had at their head a personality who, for the first time in decades,
had been able to make a great, characteristic, and, most of
all, a dramatic impression on the peoples of Europe. And if this
hour was to be made the most of it was not enough that this leader
should by his impulsiveness and self-will, by his picturesque
gestures and effective utterance, chain the attention of the masses
79and excite all newspaper readers, but he must also win the sympathies
of the keener and finer minds, and excite some sympathetic
response in the heads of monarchies. A second Lincoln would
never have been able to do this, and just this was what the moment
demanded. The nation’s world-wide position in politics needed
some comparable expansion in the social sphere. Other peoples
were to welcome their new comrades not only in the official bureau
but also in the reception-room, and this young President had
always at his command a graceful word, a tactful expedient, and a
distinguished and hospitable address. He was, in short, quite the
right man.
Any new person taking hold so firmly has to disturb a good
many things; busied with so much, he must overturn a good deal
which would prefer to be left as it was. The honest man has his
goodly share of enemies. And it is not to be denied that Roosevelt
has the failings of his virtues, and these have borne their consequences.
Many national dangers, which are always to be feared
from officials of Roosevelt’s type, are largely obviated by the democratic
customs of the country. He lives amid a people not afraid
to tell him the whole truth, and every criticism reaches his ear.
And there is another thing not less important: democracy forces
every man into that line of activity for which the nation has elected
him. A somewhat overactive mind like Roosevelt’s has opinions
on many problems, and his exceptional political position easily betrays
one at first into laying exceptional weight on one’s own opinions
about every subject. But here the traditions of the country
have been decisive; it knows no President for general enlightenment,
but only a political leader whose private opinions outside politics
are of no special importance. In this as in other respects Roosevelt
has profited by experience. There is no doubt that when he
came to the White House he underestimated the power of Senators
and party leaders. The invisible obstructions, which were somehow
hidden behind the scenes, have no doubt given him many
painful lessons. In his endeavour to realize so many heartfelt
convictions, he has often met with arbitrary opposition made
simply to let the new leader feel that obstructions can be put in his
way unless he takes account of all sorts of factors. But these
warnings have really done him no harm, for Roosevelt was not the
man to be brought by them into that party subserviency which had
80satisfied McKinley. They merely held him back from that reckless
independence which is so foreign to the American party spirit,
and which in the later years of Cleveland’s administration had
worked so badly. Indeed, one might say that the outcome has
been an ideal synthesis of Cleveland’s consistency and McKinley’s
power of adaptation.
For the fanatics of party Roosevelt has been, of course, too independent,
while to the opponents of party he has seemed too
yielding. Both of these criticisms have been made, in many
different connections, since everywhere he has stood on a watch
tower above the fighting lines of any party. When in the struggles
between capital and labour he seriously took into account
the just grievances of the working-man he was denounced as a
socialist. And when he did not at once stretch out his hand to
demolish all corporations he was called a servant of the stock exchange.
When he appointed officials in the South without reference
to their party allegiance, the Republicans bellowed loudly;
and when he did not sanction the Southern outrages against the
negro the Democrats became furious. When everything is considered,
however, he has observed the maxim of President Hayes,
“He best serves his party who serves his country best.”
In this there has been another factor at work. Roosevelt may
not have had McKinley’s broad experience in legislative matters,
nor have known the reefs and bars in the Congressional sea, but
for the executive office, for the administration of civil service and
the army and navy, for the solution of federal, civil, and municipal
problems his years of study and travel have been an ideal preparation.
Behind his practical training he has had the clear eye of the
historian. The United States had their proverbial good luck
when the Mephistos of the Republican party prevailed on the
formidable Governor of New York to undertake the thankless
office of Vice-President. If this nomination had gone as the better
politicians wished it to go, the death of McKinley would have
placed a typical politician at the helm instead of the best President
which the country has had for many years.
The President is closely associated with the Cabinet, and he is
entirely free in his choice of advisers. There is no question here
81of the influence of majorities on the composition of the ministry,
as there is in England or France. In this way Cleveland, in his
second term, had already announced by his choice of cabinet ministers
that he should go his own ways regardless of the wire-pullers
of the party. He gave the Secretaryship of War to his former
private secretary; the position of Postmaster-General to his former
partner in law; the Secretaryship of Justice to a jurist who had
never taken any interest in politics. His Secretary of the Interior
was a personal friend, and the Secretary of Foreign Affairs a man
who shortly before had left the ranks of the Republican party to
become a Cleveland Democrat. The Secretaryships of Commerce
and the Treasury were the sole cabinet positions which were given
to well-known party leaders. The very opposite was to have been
expected from a man of McKinley’s disposition. Even when he
became the chief executive of the country he remained the devoted
servant of his party, and just as his success was owing in large part
to his sympathetic relations with all the important factions in Congress,
so the success of his Cabinet was due to his having chosen
none but men who had enjoyed for a long time the confidence of
the party.
Roosevelt did at the outset an act of political piety when he
left the Cabinet, for the time being, unchanged. It was at the
same time a capital move toward reassuring public opinion,
which had stood in fear of all sorts of surprises, owing to his impetuous
temperament. Slowly, however, characteristic readjustments
were made and a new cabinet office was created under his
administration, the Secretaryship of Commerce and Labour. This
was entrusted to Cortelyou, who had been the private secretary of
two presidents, and who, through his tact, discretion, and industry,
had contributed not a little to their practical success.
The highest minister in order of rank is the Secretary of State,
who is the Minister for Foreign Affairs, and who, in the case
that both the President and Vice-President are unable to complete
their term of office, assumes the Presidency. He is responsible
for the diplomatic and consular representation of the
United States and he alone negotiates with representatives of
foreign powers at Washington; moreover, it is through him that
the President treats with the separate states of the Union. He
publishes the laws passed by Congress and adds his signature to
82all of the President’s official papers. He is, next to the President,
so thoroughly the presiding spirit of the administration that it is
hardly a mistake to compare him to the Chancellor of the German
Empire. It happens at the moment that the present incumbent
makes this comparison still more apt, since John Hay, the present
Secretary of Foreign Affairs, resembles Count von Bülow in several
ways. Both have been in former years closely affiliated to the
national heroes of the century, both have gotten their training in
various diplomatic positions, both are resourceful, accommodating,
and brilliant statesmen, and both have a thoroughly modern
temperament, intellectual independence bred of a broad view of
the world, both are apt of speech and have fine literary feeling.
Hay was the secretary of President Lincoln until Lincoln’s death,
and has been secretary of the embassies in France, Austria, and
Spain, has taken distinguished place in party politics, has been
Assistant Secretary of State, Ambassador to England, and in 1898
was placed at the head of foreign affairs. His “Ballads,” “Castilian
Days,” and “Life of Lincoln,” call to mind his literary reputation.
How far foreign affairs are really conducted by the President
and how far by the Secretary of State is, of course, hard to say, but,
at any rate, the representatives of foreign powers treat officially
only with the Secretary, who has his regular days for diplomatic
consultation, so that the relations of foreign representatives to the
President, after their first official introduction, remain virtually
social. Yet all important measures are undertaken only with the
approval of the President, and on critical questions of international
politics the whole cabinet deliberates together. Hay’s personal
influence came clearly before the public eye especially in his negotiations
regarding the Central American canal, and in his handling
of the Russian and Asiatic problems. Particularly after the
Chinese imbroglio he came to be generally reputed the most
astute and successful statesman of the day. It will probably not
be far wrong to ascribe such tendencies in American politics as are
friendly toward England chiefly to his influence. On the other
hand, he is supposed to feel no special leanings toward Germany.
The Secretary of the Treasury is next in rank. He administers
the Federal finances to all intents and purposes like a large banker,
or, rather, like a bank president who should have Congress for his
83board of directors. Since customs and international revenues are
levied by the Federal Government, and not by the several states,
and since the expenditures for the army and navy, for the postal
service, and for the Federal Government itself, the national debt
and the mints come under Federal administration, financing operations
are involved which are so extensive as to have a deciding
influence on the banking system of the entire country.
The third official in rank is the Secretary of War, while the Secretary
of the Navy holds only the sixth place, with the Attorney-General
and the Postmaster-General in between. The General
Staff of the Secretary of War, which was organized in 1903, is composed
of officers of high rank, although the Secretary himself is a
civilian. In the case of the army, as well as of the navy, the
functions of the secretary are decidedly more important than
those, say, of a Prussian Minister. They concern not only administration,
but also, in case of war, are of decisive weight on the
movements of all the forces, since the President as commander-in-chief
has to act through these ministers. Elihu Root was for almost
five years Secretary of War; and on his retirement in January,
1904, Roosevelt declared: “Root is the greatest man who has
appeared in our times in the public life of any country, either in
the New World or the Old.”
The position of Attorney-General is less comparable with a
corresponding office in the German state. This minister of the
President has no influence on the appointment of judges or the administration
of the courts. The official representative of justice
in the Cabinet is really an exalted lawyer, who is at the same
time the President’s legal adviser. So far as appointments to
office go, the Secretary of the Post Office Department has practically
no influence regarding those who are under him, since the
tremendous number of postal officials of any considerable importance
have to be confirmed in their appointments by the
Senate, so that the appointing power has virtually gone over to
that body. On the other hand, the whole postal service is under
his direction; but it is here not to be forgotten that the American
railroads and, what the German may think more extraordinary,
the telegraph lines, are not government property.
The Secretary of the Interior is merely a name for a great many
unrelated administrative functions. In the long list of duties
84which fall to this office comes education, although this seemingly
most important responsibility is really rather slight, since all educational
matters fall to the separate states and the Federal Government
has nothing to do but to give out statistics and information,
to collect material, and to offer advice. The national Bureau of
Education is not empowered to institute any practical changes. A
much more important function, practically, of the Secretary of the
Interior is the Pension Bureau, since the United States pay yearly
about $138,000,000 in pensions. Other divisions are the Patent
Office, which grants every year about 30,000 patents, the Railroad
Bureau, the Indian Bureau, and the Geological Survey. The
Secretary of Agriculture has not only certain duties connected with
agriculture, but is also in charge of the Weather Bureau, and of
zoölogical, botanical, and chemical institutes, and especially of
the large number of scientific departments which indirectly serve
the cause of agriculture. Last in rank comes the recently created
Secretary of Commerce and Labour, who has charge of the Corporation
Bureau, the Labour Bureau, the Census Bureau, and
the Bureaus of Statistics, Immigration, and Fisheries.
There are some 240,000 positions under the direction of these
ministers; and all of these, from ambassadors to letter-carriers,
are in the national service and under the appointment of the
President, and are entirely independent of the government of the
separate states in which the offices are held.
85
There is an avenue which leads from the White House in
a direct line to the Capitol, the dominating architectural feature
of Washington. On walking up the broad terraces one
comes first to the great central hall, over which rises the dome;
to the right one passes through the Hall of Fame and comes finally
to the uncomfortably large parliamentary chamber, in which 386
Representatives sit together as the direct delegates of the people.
Going from the central hall to the left one passes by the apartments
of the Supreme Court, and comes finally to the attractive
room in which the ninety state delegates hold their sessions. The
room on the right is called the “House,” on the left the Senate;
both together make up Congress, the law-giving body of the
nation. When the thirteen states which first formed the Union
in the year 1778 adopted the Articles of Federation, it was intended
that Congress should be a single body, in which each state,
although it might be represented by a varying number of members,
should nevertheless have the right to only one vote. Nine years
later, however, the final Constitution of the United States replaced
this one simple system by dividing Congress into Senate and
House of Representatives, doing this simply by analogy with the
traditions of the state governments. Pennsylvania was the only
state which had but one legislative chamber, while the others had
taken over from England the system of double representation and
had carried out the English tradition, although probably nothing
was further from their intention than to divide their legislators
into lords and commoners.
For the United States the dual division inevitably seemed the
shortest way to balance off conflicting requirements. On the one
side every state, even the smallest, should have the same prerogatives
86and equal influence: on the other side, every citizen must
count as much as every other, so that the number of inhabitants
must be duly represented. It was necessary, therefore, to create
one chamber in which all States should have the same number of
Representatives, and another in which every delegate should represent
an equal number of voters. Furthermore, on the one
hand a firm and conservative tradition was to be built up, while
on the other the changing voice of the people was to be reflected.
It was, therefore, necessary to remove one chamber from popular
election and leave it to the appointment of the separate state
legislatures. It was also necessary to put the age for candidacy
for this chamber high, and to make the term of office rather long,
and finally to contrive that at any one time only a fraction of the
numbers should be replaced, so that a majority of the members
could carry on their work undisturbed. The other chamber,
however, was to be completely replaced by frequent direct popular
elections. Thus originated the two divisions of Congress
which so contrast in every respect. A comparison with European
double legislative systems is very natural, and yet the
Senate is neither a Bundestag, nor a Herrenhaus, nor a House
of Lords; and the House of Representatives is fundamentally different
from the Reichstag. One who wishes to understand the
American system must put aside his recollections of European
institutions, since nothing except emphasis on the difference between
the American and European legislatures will make clear
the traditions of Washington.
As has been said, the Senators are representatives of the several
states; every state sends two. The State of New York, with its
seven million inhabitants, has no more representatives in the
Senate than the State of Wyoming, which has less than one hundred
thousand inhabitants. Every Senator is elected for six
years by the law-giving body of the individual state. Every second
year a third of the Senators retire, so that the Senate as a whole
has existed uninterruptedly since the foundation of the Union.
Curiously enough, however, the Senators vote independently, and
thus it often happens that the two Senators from one State cast
opposite votes. A candidate for the Senate has to be thirty
years old.
The members of the House are elected every two years and by
87direct popular vote. The number of delegates is here not prescribed
by the Constitution. It is constantly modified on the
basis of the ten-year census, since every state is entitled to a number
of delegates proportionate to its population. While there
were slaves, who could not vote, the slave states nevertheless objected
to the diminution in the number of their representatives,
due to the fact that the negro was not considered an inhabitant,
and it was constitutionally provided to compute the number of
Representatives on the basis that every slave was equivalent to
three-fifths of a man. To-day neither colour nor race constitutionally
affects the right to vote. On the other hand, the nation as
such does not concern itself to consider who is allowed to vote, but
leaves this completely to the different states, and requires only
that for the national elections in every state the same provisions
are observed which are made for the elections to the state legislature.
Moreover, it is left to every state in what wise it shall
choose the allotted number of Representatives at Washington.
Thus, for instance, in those four Western States in which women
are allowed to vote for members of the legislature, women have
also the right to vote for Congressmen.
The first House of Representatives had 65 members, while
the House of 1902 had 357, and the political centre of gravity
of the country has so shifted that the states which originally
made up Congress send now only 137 of the members. The
number of delegates has recently been increased to 386. The
age of candidacy is 25, and while a Senator must have lived in
the country for nine years, only seven years are required of a
Representative.
The differences in the conditions of election are enough to bring
it about that the personal make-up of the two Houses, as had been
originally intended, give very different impressions. The dignity of
being Senator is granted to but few, and to these for a long time,
and as it is bestowed by that somewhat small circle of the legislators
of the state, is naturally accounted the highest political honour;
it is thus desired by the most successful leaders of public life and
the most respected men of the several states. The ideal condition
is, to be sure, somewhat frustrated, since in reality the
members of a state legislature are generally pledged, when
they themselves are elected, to support this or that particular
88candidate for the Senate. Thus the general body of voters
exerts its influence after all pretty directly; and, moreover, this
distinction depends not a little, in the West and especially in the
thinly populated states, on the possession of great wealth. Since,
however, in these cases such wealth has generally been won by
exceptional energy and keen insight, even in this way men come
to Washington who are a good deal above the average voter, and
who represent the most significant forces in American popular life
earnestly, worthily, and intelligently.
In the last Senate the average age of ninety Senators was sixty
years, and seventeen were more than seventy years old. Sixty-one
of them were jurists, eighteen were business men, three were
farmers, and two had been journalists. As to the jurists, they
are not men who are still active as attorneys or judges. Generally
men are in question who went over early from the legal profession
into politics, and who have lived almost entirely in politics.
Indeed, not a few of these lawyers who have become legislators
have been for some years in commercial life at the head of great
industrial or railroad corporations, so that the majority of jurists
is no indication whatsoever of any legal petrifaction. All sides of
American life are represented, and only such professions as that of
the university scholar or that of the preacher are virtually excluded
because circumstances make it necessary for the Senator to
spend six winters in Washington. It will be seen that politics
must have become a life profession with most of these men, since
many are elected four and five times to the Senate. Among the
best known Senators, Allison, Hoar, Cockrell, Platt, Morgan,
Teller, and several others have been there for more than twenty-five
years. Of course the conservative traditions of the Senate are
better preserved by such numerous re-elections than by any possible
external provision.
It is also characteristic of the composition of the Senate that,
with a single exception, no Senator was born on the European
continent. Nelson, the Senator from Minnesota, came from Norway
when he was a boy. Thus in this conservative circle there is
little real representation of the millions who have immigrated to
this country. In the autobiographies of the Senators, two relate
that, although they were born in America, they are of German
descent; these are Wellington, the Senator from Maryland, and
89Dietrich, the Senator from Nebraska. The Senators are notoriously
well-to-do, and have been called the “Millionaires’ Club”;
and yet one is not to suppose that these men have the wealth of the
great industrial magnates. Senator Clarke, of Montana, whose
property is estimated at one hundred million dollars, is the single
one who, according to American standards, could be called rich.
Most of the others have merely a few modest millions, and for
many the expensive years of residence in Washington are a decided
sacrifice. And, most of all, it is certain that the Senators who are
materially the least well-off are among the most respected and influential.
The most highly educated member of the Senate would
probably be the young delegate from Massachusetts, the historian
Lodge, who is the President’s most intimate friend; but the most
worthy and dignified member has been the late Senator from
Massachusetts, the impressive orator, Hoar.
It is a matter of course that the social level of the House of Representatives
lies considerably lower. Here it is intended that
the people shall be represented with all their diverse interests and
ambitions. The two-thirds majority of lawyers is found, however,
even here; of the 357 members of the last House, 236 had
been trained in law, 63 were business men, and 17 were farmers.
The House is again like the Senate, since, in spite of the fact that
the membership is elected entirely anew, it remains in good part
made up of the same people. The fifty-eighth Congress contained
250 members who had already sat in the fifty-seventh. About
one-tenth of the Representatives have been in the House ten years.
The general physiognomy is, however, very different from that of
the Senate. It is more youthful, less serene and distinguished,
and more suggestive of ordinary business. The average age is
forty-eight years, while there are some men under thirty. The
total impression, in spite of several exceptions, suggests that these
men come from the social middle class. However, it is from just
this class that the notably clear-cut personalities of America have
come; and the number of powerful and striking countenances to
be seen in the House is greater than that in the German Reichstag.
The Representatives, like Senators, have a salary of $5,000 and
their travelling expenses.
What is now the actual work of these two chambers in Congress,
and how do they carry it on? The work cannot be wholly separated
90from its manner of performance. Perhaps the essentials of
this peculiar task and method could be brought together as
follows: on the basis of committee reports, Congress decides
whether or not to accept bills which have been proposed by its
members. This is indeed the main part of the story. Congress
thus passes on proposed bills; its function is purely legislative, and
involves nothing of an executive nature. On the other hand, these
bills have to be proposed by members of Congress; they cannot be
received from the President or from members of his Cabinet.
Thus the Executive has no influence in the law-giving body. The
method of transacting business, finally, consists of laying the emphasis
on the deliberations in committees, and it is there that the
fate of each bill is virtually settled. The committee determines
whether the proposed measure shall come before the whole House;
and both House and Senate have finally to decide about accepting
the measure. Each of these points requires further comment.
So far as the separation of the legislative and executive functions
of the government is concerned, it is certainly exaggeration to say
that it is complete, as has often been said. There is, to be sure, a
somewhat sharper distinction than is made in Germany, where the
propositions of the Executive form the basis of legislative activity;
and yet even in the United States the ultimate fate of every measure
is dependent on the attitude taken by the President. We have
seen that a bill which is sent by Congress to the President can be
returned with his veto, and in that case becomes a law only when
on a new vote in both Houses it receives a two-thirds majority. A
law which obtains only a small majority in either one of the
Houses can thus easily be put aside by the Executive.
On the other hand, Congress has a very important participation
in executive functions, more particularly through the Senate, inasmuch
as all appointments of federal officers and the ratification of
all treaties require the approval of the Senate. International politics,
therefore, make it necessary for the President to keep closely
in touch with at least the Senate, and in the matter of appointments
the right of the Senators to disapprove is so important that
for a large number of local positions the selection has been actually
left entirely to the Senators of the respective states. The Constitution
gives to Congress even a jurisdictional function, in the
case that any higher federal officers abuse their office. When
91there is a suspicion of this, the House of Representatives brings its
charges and the Senate conducts the trial. The last time that
this great machinery was in operation was in 1876, when the Secretary
of War, Belknap, was charged and acquitted; thus suspicion
has not fallen on any of the higher officials for twenty-eight years.
The separation of the Legislative from the Executive is most
conspicuously seen in the fact that no member of the Cabinet has
a seat in Congress. At the beginning of the Congressional session
the President sends his message, in which he is privileged politically
to pour out his entire heart. Yet he may only state his
hopes and desires, and may not propose definite bills. The
Cabinet ministers, however, are responsible solely to the President,
and in no wise to Congress, where they have no right to discuss
measures either favourably or unfavourably. They do not
come into contact with Congress. This is in extreme contrast with
the situation in England, where the ministers are leaders of the
Parliamentary party. The American sees in this a strong point
of his political system, and even such a man as the former ambassador
to Germany, Andrew D. White, who admired so much of
what he saw there, considers the ministerial benches in the German
and French representative chambers a mistake. It occasions, he
says, a constant and vexatious disagreement between the delegates
of the people and the ministers, which disturbs the order
and effectiveness of parliamentary transactions. The legislative
work should be transacted apart, and the popular representatives
ought to have only one another to take care of.
We must not, however, understand that there are practically no
relations existing between Congress and the ministry. A considerable
part of the bills, which have to be discussed, consist, of
course, in appropriations for public expenditures, so far as these
come out of the federal rather than the state treasuries. Such
appropriations included at the last time $139,000,000 for pensions,
$138,000,000 for the post office, $91,000,000 for the army, $78,000,000
for the navy, $26,000,000 for rivers and harbours, and so
on; making in all $800,000,000 for the annual appropriations, besides
$253,000,000 for special contracts. Thus the total sum of
appropriations in one session of Congress amounted to over
$1,000,000,000, in America called a billion. This authorized appropriation
has to be made on the basis of proposals, submitted
92by the members of Congress; but it is a matter of course that every
single figure of such propositions has to come originally from the
bureau of the army or navy, or whatever department is concerned,
if it is to serve as the basis of discussion. Thus while the
Executive presents to Congress no proposals for the budget, it
hands over to the members of Congress so empowered the whole
material; and this is, after all, not very different from the European
practice. However, the voice of the Executive is indeed not
heard when the budget is under debate. The members of Congress
who are to receive the ministerial propositions through
mediation of the Treasury, must belong to the House; for one of
the few advantages which the House of Representatives has over
the Senate is that it has to initiate all bills of appropriation. This
is a remnant of the fundamental idea that all public expenditures
should be made only at the instance of the taxpayers themselves,
wherefore the directly elected members of the House are more
fitted for this than are the Senators, who are indirectly elected.
This single advantage is less than it looks to be, since the Senate
may amend at will all bills of appropriation that it receives from
the House.
Thus every measure which is ever to become law must be proposed
by members of Congress. One can see that this privilege
of proposing bills is utilized to the utmost, from the simple fact
that during every session some fifteen thousand bills are brought
out. We may here consider in detail the way in which the House
transacts its affairs. It is clear that if more than three hundred
voluble politicians are set to the task of deliberating in a few
months on fifteen thousand laws, including all proposed appropriations,
that a perfect babel of argument will arise which can
lead to no really fruitful result, unless sound traditions, strict rules
and discipline, and autocratic leadership hold this chaotic body
within bounds. The American instinct for organization introduced
indeed long ago a compact orderliness. Here belongs first
of all that above-mentioned committee system, which in the House
is completed by the unique institution of the Speaker. But one
thing we must constantly bear in mind: the whole background of
Congressional doings is the two-party system. If the House or the
Senate were to break out in the prismatic variegation of the German
parliamentary parties, no speaker and no system of committees
93would be able to keep the elements in hand. It is, after
all, the party in majority which guarantees order, moulds the committees
into effective machines, and lends to the Speaker his
extraordinary influence.
The essential feature of the whole apparatus lies in the fact that
a bill cannot come up before the House until it has been deliberated
in committee. The chairman of the committee then presents
it personally at some meeting. The presiding officer, the so-called
Speaker, exerts in this connection a threefold influence;
firstly, he appoints the members of all the committees, of which,
for instance, there were in the last Congress sixty-three. The
most important, and, therefore, the largest, of these committees
are those on appropriations, agriculture, banking, coinage, foreign
and Indian affairs, interstate and foreign commerce, pensions,
the post office, the navy, railroads, rivers and harbours,
patents, and finance. Both the majority and minority parties are
represented in every committee, and its chairman has almost unlimited
control in its transaction of business. All members of the
more important committees are experienced men, who have been
well schooled in the traditions of the House.
The Speaker is allowed further to decide as to what committee
each bill shall be referred. In many cases, of course, there is no
choice; but it not seldom happens that there are several possibilities,
and the decision between them often determines the fate of
the bill. In the third place, the Speaker, as chairman of the Committee
on Rules, decides what reports, of those which have been so
far prepared by the committees, shall come up for discussion at
each meeting of the House. As soon as the committee has agreed
on recommendations, its report is put on the calendar; but whether
it then comes up for debate in the House depends on a good many
factors. In the first place, of course, many of the proposed matters
take naturally first rank, as for instance, the appropriations.
The chairman of the Committee on Appropriations is given the
floor whenever he asks for it; thus there are express trains on this
Congressional railroad which have the right-of-way before suburban
trains, and then, too, there are special trains which take preference
before everything else. But aside from such committee reports
as are especially privileged, a very considerable opportunity
of selection exists among those which remain.
94It is here that the really unlimited influence of the Speaker
comes in. He is in no way required to give the floor to the committees
which ask for it first. If the chairman of the committee
is not called on by the Speaker for his report, he is said to be not
“noticed” and he is helpless. Of course, whether he is noticed or
not depends on the most exact prearrangement. If now a bill is
finally reported to the House, it is still not allowed an endless debate,
for the Speaker is once more empowered to appoint a particular
time when the debate must end, and thereby he is able to
come around any efforts at obstruction. If, however, the minority
wishes to make itself heard by raising the point of no quorum, then
not only those who are voting, but all those who are present in the
House, are counted, and if these are not enough the delinquents
can be hunted out and forced to come in. But in most cases there
is little or no debate, and the resolutions of the committee are accepted
by the House without a word. In certain of the most important
cases, as in matters of appropriation or taxation, the
House constitutes itself a so-called committee of the whole. Then
the matter is seriously discussed under a special chairman, as at the
session of an ordinary committee. Even here it is not the custom
to make long speeches, and the members are often contented with
a short sketch of their arguments, and ask permission to have the
rest published in the Congressional Report. The speeches which
thus have never been delivered are printed and distributed in innumerable
copies through the district from which that speaker
comes and elsewhere as well.
Thus if an ordinary Representative proposes a measure, which
perhaps expresses the local wishes of his district, such a bill goes
first to the Secretary and from him to the Speaker. He refers it to
a special committee, and at the same time every Representative
receives printed copies of it. The committee decides whether the
bill is worth considering. If it has the good fortune to be deliberated
by the committee it is often so amended by the members that
little remains of its original substance. If it then has the further
good fortune to be accepted by the committee, it comes on the
House calendar, and waits until the Committee on Rules puts
it on the order of the day. If it then has the exceptional good fortune
of being read to the House it has a fairly good chance of being
accepted.
95But of course its pilgrimage is not ended here. It passes next
to the Senate, and goes through much the same treatment once
more; first a committee, then the quorum. If it does not there
come up before the quorum, it is lost in spite of everything; but if
it does finally come up, after all hindrances, it may be amended
once more by the Senate. If this happens, as is likely, its consideration
is begun all over again. A composite committee from
both Houses considers all amendments, and if it cannot come to an
agreement the measures are doomed. If the committee does
agree, the close of the session of Congress may intervene and prevent
its last hearing in the House, and in the next Congress the
whole process is repeated. But if a measure has passed through
all these dangers and been approved by both Houses, the President
then has the opportunity to put his veto on it.
Thus it comes about that hardly a tenth part of the bills which
are introduced each year ever become laws, and that they are
sifted out and amended surely and speedily. Indeed, it can hardly
be doubted that a large part of the fifteen thousand bills are introduced
out of personal consideration for constituents, or even out of
less worthy motives, with no expectation that they will possibly be
accepted. Moreover, the popular tribunal, the House, spares itself
too great pains, because it knows that the Senate will certainly
amend all its provisions; and the Senate indulges itself in voting
unnecessary favours to constituents because it relies on their negation
by the House.
The Senate works on fundamentally the same plan. When a
Senator brings his proposition, it goes likewise to the appropriate
committee, then is read before a quorum, and is passed on to the
other chamber. Nevertheless, there is a considerable difference
in procedure; the House behaves like a restless popular gathering,
while the Senate resembles a conference of diplomats. The
House is a gigantic room, in which even the best orators can
hardly make themselves heard, and where hundreds are writing or
reading newspapers without paying any attention to the man who
speaks. But the Senate is a parliamentary chamber, where a
somewhat undue formality prevails. A strict discipline has to be
observed in the House in order to preserve its organization, while
the Senate needs no outward discipline because the small circle of
elderly gentlemen transacts its business with perfect decorum.
96Thus the Senate tolerates no Speaker over it, no president with
discretionary powers. In the Senate both parties have the right
to appoint the members of the committees. The Chairman of
the Senate must also not fail to notice any one who asks for the
floor; whoever wishes to speak has every chance, and this freedom
implies of course that the debates shall not be arbitrarily terminated
by the Chairman. A debate can be closed only by unanimous
consent. The influence of the Chairman of the Senate is,
therefore, only a shadow beside that of the Speaker, and since the
Chairman is not elected by the Senate itself, but is chosen directly
by the people in the person of the Vice-President of the United
States, it may happen that this Chairman belongs to the party in
minority, and that he has practically no influence at all. Conformably
with the extreme formality and courtesy of the Senate, majorities
are counted on the basis of the votes actually cast, and not, as
in the House, on the basis of members actually present. For both
Houses alike it is possible for those who intend to be absent to
be paired off beforehand, so that if one absentee has announced
himself for, and another against, a certain bill, they can both be
counted as having voted.
It is clear what the consequences of this unlimited exchange of
Senatorial courtesy must be; the concessions in outward form
must lead immediately to compromises and tacit understandings.
If a debate can be closed only by unanimous agreement, it is possible
for a single opposing politician to obstruct the law-making
machinery. A handful of opponents can take the stand for weeks
and block the entire Senate. Such obstructionist policy has to be
prevented at any cost, and therefore on all sides and in every least
particular friendly sympathy must be preserved. Of course, the
opposition between the two parties cannot be obviated; so much
the more, then, it is necessary for each man to be bound by personal
ties to every other, and to feel sure of having a free hand in his own
special interests so long at least as he accords the same right to
others in theirs. Thus, merely from the necessity of preserving
mutual good feeling, it too often happens that the other members
close their eyes when some willing Senator caters to local greed or
to the special wishes of ambitious persons or corporations, by
proposing a Congressional bill.
This “Senatorial courtesy” is most marked in the matter of the
97appointment of officials, where matters go smoothly only because
it has been agreed that no proposals shall be made without the approval
of the Senators of the state concerned. Every Senator
knows that if to-day one local delegate is outvoted, the rebellion
may to-morrow be directed against another; and thus many a
doubtful appointment, given as hush money or as a reward for
mean political services, is approved with inward displeasure by
courteous colleagues merely in order to save the principle of individual
omnipotence. There is no doubt that in this way the individual
Senator comes to have much more power than does a
single Representative. The latter is really the member of a party,
with no special opportunities for satisfying his individual wishes;
while the Senator may have his personal points of view, and is
really an independent factor.
If to-day the Senate, contrary to the expectation of former
times, really plays a much more important rôle before the public
than the House, this is probably not because more important
functions are given to the Senate, but because it is composed of
persons of whom every one has peculiar significance in the political
situation, while the House is nothing but a mass-meeting
with a few leaders. This increased importance before the public
eye works back again on the Senator’s opinion of himself, and the
necessary result is a steady increase in the Senate’s aspirations and
the constant growth of its rights. Perhaps the most characteristic
exhibition of this has been the gradual evolution of the part
taken by the Senate in the matter of foreign treaties. The
Constitution requires the ratification of the Senate, and the original
construction was that the Administration should present a treaty
all made out, which the Senate had to accept or reject as it stood.
But soon the Senate arrogated to itself the right to amend treaties,
and then it came about that the Senate would never accept a
treaty without injecting a few drops of its own diplomatic wisdom.
It might be that these would be merely a change of wording, but
just enough to let the President feel the Senatorial power. The
result has been that the treaties that are now presented to the
Senate are called nothing but proposals.
Looking behind the scenes one discovers that at bottom, even in
the Senate, only a few have real influence. The more recently appointed
Senators earn their spurs in unimportant committees, and
98even if they get into more important ones they are constrained by
tradition to fall in line behind the more experienced members. In
the House there is half a dozen, and in the Senate perhaps a
dozen men who shape the politics of the country. Here, as in all
practical matters, the American is ready to submit to an oligarchical
system so long as he knows that the few in question derive
their power from the free vote of the many. In fact nothing
but oligarchy is able to satisfy the profoundly conservative feeling
of the American. Behind the scenes one soon discovers also that
the Senatorial courtesy, which neutralizes the party fanaticism and
encourages compromises to spring up like mushrooms, still leaves
room for plenty of fighting; and even intrigue thrives better on
this unctuous courtesy than in the coarser soil of the lower house.
The sanctified older Senators, such as Allison, Frye, Platt, Aldrich,
and Hale, know where to place their levers so as to dislodge all opposition.
Perhaps McKinley’s friend, Hanna, who was the grand
virtuoso in Republican party technique, knew how always to overcome
such political intrigue; but even Roosevelt’s friend, Lodge,
has sometimes found that the arbitrarily shaped traditions of the
seniors weigh more than the most convincing arguments of the
younger men.
The moral level of Congress is, in the judgment of its best critics,
rather high. The fate of every one of the thousands of bills is
settled virtually in a small committee, and thus, time after time,
the weal and woe of entire industries or groups of interests depend
on one or two votes in the committee. The possible openings for
corruption are thus much greater in Congress than in any other
parliament, since no other has carried the committee system to
such a point. In former times political scoundrels went around
in great numbers through the hotels in Washington and even in
the corridors of the Capitol trying to influence votes with every device
of bribery. To be sure, it is difficult to prove that there are no
such hidden sins to-day; but it is the conviction of those who are
best able to judge that nothing of the sort any longer exists. To
be sure, there are still lobbyists in Washington, who as a matter
of business are trying to work either for or against impending
bills, but direct bribery is no longer in question. On the slightest
suspicion the House itself proceeds to an investigation and
appoints a committee, which has the right of collecting sworn
99testimony; and time after time these suspicions have been found
to be unjust.
A different verdict, however, would have to be passed if only that
delegate were to be called morally upright who surveys every question
from the point of view of the welfare of the entire nation; for
then indeed the purity of Congress will be by no means free from
doubt. Few Americans, however, would recognize such a political
standard. When great national questions come up for discussion
Congress has always shown itself equal to the occasion,
and when the national honour is at stake, as it was during the
Spanish War, party lines no longer exist; but when the daily drift
of work has to be put through it is the duty of every man to uphold
as obstinately as possible the interests of his constituency. Especially
the political interests of his party then become predominant,
and, seen from a higher point of view, there are no doubt
many sins committed in this direction. Many a measure is given
its quietus by one party, not because of any real inexpediency, but
simply in order to embarrass the other party, to tie up the Administration,
and thus to weaken the hopes of that party at the
next election. In recent years such party tactics on both sides
have prevailed time after time. Most frequently it is the present
minority, under its leader, Senator Gorman, which has resorted to
this policy and held out against the most reasonable propositions
of the Republicans, simply because these measures would have
increased the Republican respect before the nation.
On the other hand, party lines are all the time being broken
through by these or those local interests, and any one observing the
distribution of votes cast in the House will see clearly how, oftentimes,
the parties mingle while the issue lies perhaps between two
different geographical sections. When oleomargarine is the order
of the day the representatives of the farming districts are lined up
against those from industrial sections. If it is a question of getting
Congress to approve the great irrigation measures, whole
troops of Democrats hasten to forget that, according to their fundamental
principles, such an undertaking belongs to the state, and
not to the federal, government; the representatives from all the
Democratic states which are to be benefited by such irrigation,
fall into sweet accord with the Republicans. Thus the party
divisions are all the time being forgotten for the moment, and
100it looks as if this weakening of party bonds were on the increase.
By supporting his party principles each Congressman assists toward
the next victory of his party, but by working for the interests
of his locality he is surer of his own renomination. The requirement
that a candidate must reside in the district that elects him
naturally strengthens his consideration for the selfish claims of
his constituency. Thus it is only at notable moments that the
popular representative stands above all parties; he generally
stands pat with his own party, and if the voters begin to nod
he may take his stand somewhat below the parties.
Yet, on looking at Congress as a whole, one has the impression
that it accomplishes a tremendous amount of work, and in a more sober,
business-like, and efficient way than does any other parliament
in the world. There is less talking against time; in fact, there is less
talking of any kind, and because the Administration is not represented
at all there is less fighting. The transactions as a whole
are therefore somewhat less exciting; a single Congressman has
less opportunity to become personally famous. Yet no American
would desire to introduce a ministerial bench at the Capitol, or to
have the next Congress adopt Austrian, French, German, or
English methods.
101
Going from the hall beneath the central dome of the
Capitol toward the Senate, in the left wing one passes by
an extraordinary room, in which there is generally a crowd
of people. The nine judges of the federal court, the Supreme
Court of the United States, are sitting there in their black gowns,
between Greek columns. The President and his Cabinet, the
Senate, and the House of Representatives fill the American with a
pride which is tempered by some critical judgment on this or that
feature, or perhaps by a lively party dissatisfaction. But every
American who is competent to judge looks on the Supreme Court
with unqualified admiration. He knows very well that no force
in the country has done more for the peace, prosperity, and dignity
of the United States. In the constitutional make-up of the Federal
Government, the Supreme Court is the third division, and
co-ordinate with the Legislative and the Executive departments.
The jurisprudence of a nation forms a totality; and therefore
it will not do to discuss the work of the nine men sitting at the
Capitol, without throwing at least a hasty glance at the administration
of justice throughout this enormous country. There is
hardly anything more confusing to a European; and while the
Englishman finds many features which are reminiscent of English
law, the German stands helpless before the complicated situation.
It is, most of all, the extreme diversity of methods which disquiets
him. It will be quite impossible to give here even a superficial
picture of the machinery of justice. A few hints must suffice at
this point, while we shall consider many features in other connections,
especially in discussing social problems.
The jurisprudence adopted by the United States comes from
three sources. The average American, on being asked what the
102law of his country is, would say that it is “common law.” If we
except the State of Louisiana, which by a peculiarity has the
Napoleonic Code, this reply suffices for a rough idea. But if a
German, having in mind perhaps the two German law books, the
penal and the civil codes, both of which he can put so easily into
his pocket, were to ask after some formulation of the common law,
he would be shown a couple of huge bookcases with several hundred
stout volumes. Common law is not a law book, nor is it a
system of abstract formulations, nor yet a codification of the prevailing
ideas of justice. It is, in fact, the sum total of judicial
decisions. The establishment of common law signifies that every
new case as it comes up is decided in conformity with previous decisions.
The earlier decision may be a bad one, and very much
offend one’s sense of justice; but if no superior authority has
annulled it, it becomes historic law and determines the future
course of things. American law came originally from the English.
The early English colonists brought with them across the ocean
the ideas of the English judges, and the states which have sprung
up lately have taken their law from the thirteen original states.
If to-day, in Boston or San Francisco, any one finds a piece of
jewelry on the street and another snatches it from him, he can
have the thief arrested, although the object found is not his property.
The judge will decide that he has a right to the object
which he has found until the original owner appears, and the judge
will so decide because in the year 1722 a London chimney-sweep
found a valuable ornament, out of which a jeweler later stole a
precious stone; and the English judge decided in favour of the
chimney-sweep.
The disadvantages of such a system are obvious. Instead of a
single book of law embodying the will of the nation, the decisions
handed down by single insignificant judges in different parts of the
world, decisions which originated under wholly other states of
civilization and from other traditions, still have final authority.
Again and again the judge has to adapt himself to old decisions,
against which his sense of right morally rebels. Yet the deep,
ethical motive behind this legal system is certainly plainly evident.
The Anglo-Saxon would say that a national code cannot
be constructed arbitrarily and artificially. Its only source is in
the careful, responsible decisions given down by the accredited
103representatives of the public will in actual disputes which have
arisen. There is no right or wrong, he would say, until two persons
disagree and make a settlement necessary, and the judge who
decides the case creates the right with the help of his own conscience;
but as soon as he has given his decision, and it is set aside
by no higher authority, the principle of the decision becomes justice
for all times. Every day sees new formulations of justice, because
new conflicts between human wills are always arising and require
new settlements; but up to the moment when a decision is
made there exist only two conflicting desires existing in the matter,
but nothing which could be called justice.
Although it seems at first sight as if a legal system, which is composed
of previous decisions, would soon become antiquated and
petrified, the Anglo-Saxon would say with firm conviction that
just such justice is the only one which can be living, because it
springs not out of rationalistic preconceptions, but from actual
experience. The Anglo-Saxon jurisprudence is full of historical
reality and of picturesque individuality. It has grown as organically
as language, and is, in the estimation of the Anglo-Saxon, as
much superior to a mere code as the ordinary speech of a people,
in spite of all its historical inconsistencies, is superior to an
artificially constructed speech like Volapük. And he would find
many other points of superiority. He would say, for instance,
that this is the only system which gives to every man on the judge’s
bench the serious sense of his responsibility; for the judge knows
that in every case which he decides, he settles not only the fortunes
of James and John there present, but he influences for all times the
conception of justice of the entire nation. He feels especially that
the binding force of previous decisions reassures the public sense
of right, and lends a continuity which could never be afforded by
the theoretical formulations of an abstract code.
Another factor must be taken into account. A judicial decision
which is forgotten as quickly as the voice of the judge who
speaks it, can never have so considerable an influence on the public
mind as one which itself creates law. In one sense, to be sure,
the German judge creates law too; the penal code sets wide limits
to the punishment of a criminal, and within these limits the judge
assigns a certain penalty. He does in a sense create the right for
this particular case; but the characteristic difference is, that in the
104German Empire no subsequent decision is in the least affected by
such preceding decision. The German judge finds justice prescribed
for him and he is its servant, while the American makes it
and is its master. This gives to the judicial utterance an historical
weight and enduring significance, which contribute vastly
toward keeping judicial doings in the focus of the public consciousness.
The same is brought about in still another way. Since the decision
of the judge is largely dependent on previous cases, the fate
of the parties contending may depend on whether they are able to
point to previous decisions which are favourable to their side.
The layman cannot do this, and it falls to the counsel. In this
wise a sphere of action is open to the American lawyer which is
incomparably greater than that of any German Anwalt. The
former has to concern himself not only with the case in hand, but
he has to connect this concrete instance with the whole historic past.
Thus the profession of the lawyer comes to have an inner importance
which is unknown to the European, and which in many
cases necessarily exceeds the importance of the judge, since he is
bound to comply with the decisions adduced by the counsels for
both sides. The judges are selected from the ranks of lawyers,
and are, therefore, brought up in the idea that law is composed of
former decisions, and that the decisions of the bench are admirable
only so far as they are consistent enough with the earlier ones
to force the conviction and respect of the lawyers. Thus barristers
and judges are entirely at one, and are together entrusted with the
public sense of right, as it has developed itself historically, and as
it is day by day added to and perpetuated, so that it shall be a
never-failing source of quickening to the conscience of the masses.
In the masses of the people, on the other hand, the natural tendencies
are favourable anyhow for developing a lively sense of justice.
It is a necessity devolving naturally on the individualistic view
of things. The protection of individual rights and the inviolability
of the individual person, with all that belongs to it, are the individualist’s
most vital concern. Many outward features of American
life may seem, indeed, to contradict this, but any one who looks
more deeply will see that everywhere the desire for justice is the
essential trait of both the individual and the nation; and the public
consciousness would rather endure the crassest absurdities and misunderstandings
105in public affairs than the least conscious violation
in the administration of justice. Again and again important
trials go to pieces on small technical errors, from which the
severe sense of justice of the American is not able to free itself.
The public is always willing to endure any hardship rather than
to tolerate any maladministration of justice.
On the finest square in Boston stands a large and magnificent
hotel, erected by rich capitalists. The building laws provide that
structures facing that square shall not exceed a height of ninety
feet; but in violation of the law certain cornices and balustrades
were added to this building above the ninety-foot line, in order to
give an artistic finish to the structure, and still to turn practically
every inch allowed by law to account for rentals, which are high
in so palatial a building. Every one agreed that this ornamental
finish was highly decorative and satisfactory in the æsthetic
sense, but that it must, nevertheless, be taken down, because it
violated the law by some seven feet. The cornice and balustrades
have, therefore, been demolished at great expense, and a handsome
structure has been made absolutely hideous—a veritable
monstrosity. The best square in the city is disfigured, but every
Bostonian looks on this building with gratification. Beautiful
architectural detail may indeed have been sacrificed; but the
public conscience has won, and it is on this that the nation
rests.
It is merely incidental that very much, and indeed much too
much, of that which the Germans account matters of justice, is
relegated by the American point of view to other tribunals; some,
for instance, are held to be political questions, and thus it often appears
to the foreigner as if there had been a violation of justice
where really there has been only some political abuse. But matters
of that sort loom up whenever any nation tries to form an
opinion about another. In Germany, indeed, the American
seems to see many violations of justice, where the German would
find only an historically established social or political abuse.
As we have said, American justice is based on the decisions
handed down in earlier cases. But this is, after all, only one of
the three sources of law. That form of law-making is also here
recognized which in Europe is the only form; the law-making by
the majority of the people’s representatives. We have seen how
106Congress passes every year hundreds of laws. Many of these are
indeed special measures, with no universal application; not a few,
however, are of very broad application and involve an unlimited
number of possible instances. And just as the Congress of the
United States, so also can the legislature of each state prescribe
general regulations, applicable within the state. Such laws made by
the legislature are technically called statutes. These are engrossed
in the statute-books of the state, and supersede all opposed decisions
which may then exist. The federal judge, like the judge
in a special state, is therefore bound to earlier decisions only so
far as these are not expressly annulled by statutes.
Here we find one of the main reasons for the extraordinary complexities
of the American law; forty-five legislatures are making
laws for their several states, and in this way they of course give
expression to the diversity of local needs and the varying grades
of culture. At the same time, the principle of law, based on
earlier decisions, is always combined with the principle of the
statute-book. In the cases, both of the laws of Congress and those
of the separate states, the judges who first come to apply the
statutes in practice, are privileged to make their own interpretation;
and here, too, the interpretation handed down in the judge’s decision
is valid for all future cases.
In both the federal and state courts a legal action may be carried
from the lower to the higher courts, and the decision of the
highest tribunal becomes definitely law. The forty-five-fold
diversity refers thus not merely to the statutes of the separate
states, but also to the interpretations of those statutes which have
been given by the upper courts of those states.
The third source of law is the only one that prescribes absolute
uniformity for all parts of the country. This is the Constitution
of the United States. The Constitution must not be
conceived as the creation of Congress; Congress was created by
the Constitution. Therefore every provision of the Constitution
is a higher law than any bill which Congress can pass, just as the
law made by Congress is higher than the decision of any judge.
No Congress can modify a clause of the Constitution. The assent
of the entire people is necessary for such a revision. Congress can,
however, propose an amendment to the Constitution, and a two-thirds
majority in the Senate and the House suffice to bring the
107proposed change before the nation, to be voted on. It has then to
be passed on by the forty-five state legislatures, and will become
a law with the approval of three-quarters of the states.
At first glance it seems as if this were a judicial machinery
which would be far too complicated to work smoothly; it seems as
if sources of friction had been arbitrarily devised, and as if continual
collisions between the authorities of the several systems
would be inevitable. This is true in two instances especially;
firstly, the judicial machinery, which carries out the federal laws,
sometimes collides with that of the separate states. Then, secondly,
the complicated system of Constitutional provisions, devised
a hundred years since, may interfere with the progressive
measures of Congress or the separate states; and this must be a
source of much uncertainty in law. These are the actual difficulties
of a legal sort. Everything else, as for instance the enormous
diversity of the laws in the separate states, is of course very
inconvenient, but gives rise to no conflicts of principle.
Neither of these two difficulties finds its counterpart in Germany.
In no Prussian city is there a German tribunal side by
side with the Prussian, no imperial judge beside the local judge;
nor can one conceive of a conflict in the German Empire between
the creators of the legal code and the law-givers who frame the
provisions of the Constitution. This doubleness of the judicial
officials is in every part of the Union, however, characteristic
of the American system and necessary to it. The wonderful
equilibrium between centripetal and centrifugal forces which
characterizes the whole American scheme of things makes it
impossible from the outset for either the whole Federation to
become the sole administrator of justice, or for such administration,
on the basis of federal law, to be left entirely to the separate
states. As a matter of course, a clear separation of jurisdiction
has been necessary. The Constitution provides for this in a way
clearly made necessary by the conditions under which the Federation
was formed. Justice in the army and navy, commercial policies,
and political relations with other countries; weights and
measures, coinage, provisions, interstate commerce, and the postal
system, the laws of patents and copyrights, of bankruptcy, and of
naturalization, the laws of river and harbour, cases of treason,
and much else are left to the Federation as a whole. While all
108these matters fall naturally within the scope of federal law, there
are, on the other hand, obvious reasons whereby certain classes
of persons should be under the jurisdiction of the federal courts.
These are, firstly, diplomatic ministers and consuls; secondly,
either actual or legal parties when they belong in different states;
thirdly, and most important, the states themselves. Wherever a
state is party to an action, the Supreme Federal Court must hear
the case and give the decision. On the other hand, the Constitution
declares expressly that, wherever jurisdiction is not explicitly
conferred on the federal courts, it pertains to the individual
states; therefore, much the larger part of criminal law belongs to
the states, and so the laws of marriage and inheritance, of contract,
property ownership, and much else.
For the administration of cases within its jurisdiction, the Federation
has divided the whole country into twenty-seven districts,
whose boundaries coincide partly with state lines, and of which
each has a district court. Groups of such districts form a circuit,
of which each has a circuit court, which sits on the more important
cases, especially civil cases involving large interests. And, finally,
there is a court of appeals. These districts and circuits are now
coincident with the regions lying in the jurisdiction of the several
states. In their method of procedure the federal and the state
courts resemble each other, especially in the general conduct of
criminal cases, which is everywhere the same, because the Constitution
itself has fixed the main features. Both state and federal
courts are alike bound by the extraordinarily rigid rules framed
by the Constitution in order to protect the innocent man against
the severity of the law.
No criminal can be condemned except by a jury which has been
sworn to perform its duty, and before he comes before this jury a
provisional jury has to make the accusation against him. Thus
one sworn jury must be convinced of the justice of the suspicion
before a second jury can give its verdict. A person cannot be
brought up for trial twice for the same crime; no one can be compelled
to testify against himself; every one has the right to be
brought before a jury in the district where the crime was committed,
to hear all the testimony against him, to have counsel for his
own defence, and to avail himself of the strong arm of the law in
bringing to court such witnesses as would speak in his favour;
109cruel or excessive penalties may not be fixed, nor a man’s freedom
or property interfered with except after due process of law. The
Constitution provides this, and a good deal else, and thus makes
the conduct of trials uniform. In other respects, however,
there are not a few differences which are not so obvious in the
courts. Among these is the circumstance that federal judges
are appointed for life, while the judges of the separate states are
elected for short periods of from four to seven years.
The relations between constitutional laws and legislative laws
seem even more complicated. Here, too, in a way, the same
province is covered by a two-fold system of laws. The fixed letter
of the Constitution and the living decisions by a majority in Congress
or in a state legislature, stand in opposition to each other.
It is established that no legislature can ride over the Constitution;
and if the interpretation of a court brings out a contradiction between
the two systems, a conflict arises which in principle makes
justice uncertain. If we now ask how it is possible that all such
conflicts have disappeared without the least prejudice to the national
sense of justice, how in spite of all these possibilities of
friction no disturbance is seen, or how in a land which has been
overrun with serious political conflicts, a jurisprudence so lacking
in uniformity has always been the north star of the nation—the
reply will be that the Supreme Court has done all this. The upper
federal court has been the great reconciling factor in the history
of the United States, and has left behind it a succession of honourable
memorials. Its most distinguished chief justice has been
John Marshall, who presided over it from 1801 to 1835. He was
America’s greatest jurist, and contributed more than any one else
toward impressing the spirit of the Constitution on the country.
The German reader who hears of the Supreme Court sitting at
the Capitol, must not turn back in his mind to the Imperial Court
at Leipzig. The Supreme Court is by no means the sole court of
highest instance, for the suits in single states which properly fall
within the jurisdiction of a state can go no higher than the highest
court of appeal of that state. The Supreme Court in Washington
is the court of last instance for federal cases; but in order
to disburden the judges in Washington, there are large classes of
civil cases pertaining to the federal courts, which can be carried
no higher than the federal court of appeals of a given circuit.
110Much more important than the cases in which the Supreme Court
is really the court of highest instance for federal suits, are those
others in which it is at once the court of first and last instance;
these are the processes which the Constitution assigns immediately
to the Supreme Court. They are chiefly suits in which a single
state, or in which the United States is itself a party, for the Supreme
Bench alone can settle disagreements between states and
decide whether the federal or state laws conflict with the Constitution.
In this sense the Supreme Court is higher than both
President and Congress. If it decides that a treaty which the
Executive has concluded, or a law which has been passed by the
Legislative, violates the Constitution, then the doings of both
Congress and the President are annulled. There is only one way
by which a decision of the Supreme Court can be set aside—namely,
by the vote of a three-fourths majority of all the states; that is, by
an amendment of the Constitution. There are some instances of
this in the history of the United States; but virtually the decision
of the nine judges of the Supreme Court is the highest law of the
land.
The Supreme Court has annulled Congressional measures
twenty-one times and state statutes more than two hundred times,
because these were at variance with the Constitution. Many of
these have been cases of the greatest political importance, long
and bitterly fought out in the legislatures, and followed with excitement
by the public. The whole country has often been divided
in its opinion on a legal question, and even the decision itself of
the nine judges has sometimes been handed down with only a
small majority. Nevertheless, for many years the country has
every time submitted to the oracle of the Supreme Court, and considered
the whole issue definitely closed.
One is not to suppose that the Supreme Court occupies itself
with handing down legal verdicts in the abstract and in a way declaring
its veto whenever Congress or some legislature infringes
the Constitution. Such a thing is out of the question, since theoretically
the Supreme Court, although the equal is not the superior of
Congress; most of all, it is a court and not a legislature. The
question of law does not come up then before this tribunal until
there is a concrete case which has to be decided, and the Supreme
Court has always declined to hand down a theoretical interpretation
111in advance of an actual suit. As early as the eighteenth
century, Washington was unable to elicit from the Supreme Court
any reply to a hypothetical question. Even when the actual case
has come up, the Supreme Court does not say that a certain law
is invalid, but decides strictly on the one case before it, and announces
on what principle of the law it has based its decision. If
there is a disagreement between two laws, the decision of the Court
simply lays the practical emphasis on one rather than on the other.
It is true that in this way nothing but one single case is decided;
but here the principle of common law comes in—one decision
establishes a point of law, and the Supreme Court and all lower
courts likewise must in future hand down verdicts conformable
thereto. The legislative law so superseded is thus practically
annulled and made non-existent. In the Supreme Court one sees
again that the security of national justice rests on the binding
force of former decisions.
It will be enough to point out two decisions which have been
given in recent years and which have interested the whole country.
In the year 1894 Congress passed a new tax law; one clause of
this law taxed every income which was larger than a certain
amount. It was taxation of the wealthy. So far as income
was obtained by actual labour the tax was undoubtedly valid.
But New York barristers doubted the constitutionality of this tax
in so far as it was laid on the interest from securities or on rents;
because the Constitution expressly says that direct taxation for the
country must be levied by the separate states, and in such a way
that the whole sum to be raised shall be apportioned among the
different states according to their population. The counsels of
the wealthy New Yorkers said this provision ought to apply here.
The difference would be for every rich man in thickly populated
states a very considerable one. If the tax was to be apportioned
according to population, the poor states must also bear their share.
While it came to be levied on the individuals the largest part of the
burden would fall to the millionaires, who are grouped in a few
states. The Supreme Court would say nothing so long as the discussion
was theoretical. Finally, a case was tested; when the
lawyers were prepared, a certain citizen refused to pay the income
tax and let the matter go to court. The first barristers in the
country were divided on the question, as was also the Supreme
112Court. The majority decided in favour of the citizen who refused
to pay the tax, because in its opinion the tax was a direct
one, and therefore the constitutional provision relating to direct
taxation was in force. By this one decision the income tax was
set aside, and instead of ten thousand new suits being brought, of
which the outcome was already clear, the excess taxes were everywhere
paid back. At bottom this was the victory, over both
President and Congress, of a single eminent barrister, who is
to-day the ambassador to England.
A still more important decision, because it involved the whole
political future of the United States, was that on the island possessions.
By the treaty with Spain, Porto Rico had become a
possession of the United States, and was therefore subject to United
States law; but Congress proceeded to lay a tariff on certain wares
which were imported from the island. There were two possible
views. On the one hand, the Constitution prescribes that there
shall be no customs duties of any sort between the states which belong
to the Union; and since Porto Rico is a part of the Union the
rest of the states may not levy a tariff on imports from the island.
On the other hand, the Constitution empowers Congress to regulate
at its discretion the affairs of such territory as belongs to the
United States, but has not yet been granted the equal rights of
states; thus the other provision of the Constitution would not immediately
apply to this island. The question had never before
been decided, because the Indian territories, the Mexican accessions,
and Alaska had never been treated as Porto Rico now was.
Congress had previously taken for granted that the Constitution
was in force for these territories, but now the imperialistic tendencies
of politics had created a new situation, and one which had
to be settled.
Here too, of course, the Supreme Court did not try to settle the
theoretical question which was stirring the whole country; but
presently came the action of Downes vs. Bidwell, a simple suit
in which a New York commercial house was the complainant, and
the New York Customs the defendant. In case the provisions
of the Constitution were to hold for the entire domain of the United
States, the tariff which Congress had enacted was unconstitutional,
but if the Constitution was to hold only for the states, while
Congress was sovereign over all other possessions, the tariff was
113constitutional. The Supreme Court decided for this latter interpretation
by five votes against four, and the commercial house paid
its tax. Therewith the principle was decided for all time, and if
to-morrow the United States should get hold of Asia and Africa,
it is assured from the outset that the new domain would not be
under the Constitution, but under the authority of Congress—simply
because Downes lost his case against Customs Inspector
Bidwell, and had to pay six hundred dollars in duty on oranges.
This last case shows clearly that the decisions by no means always
support the Constitution against legislative bodies; and statistics
show that although in two hundred cases the verdict has
been against the legislatures, it has been more often decided in
their favour. The entire history of the Supreme Court shows that
in a conservative spirit it has always done full justice to both the
centralizing and particularizing tendencies. It has shown this
conciliatory attitude especially by the firm authority with which
it has decided the hazardous disputes over boundaries and other
differences, between the several states, so that such disputes really
come up no longer. For a century the Supreme Court has been a
shining example of a federal tribunal.
Such complete domination of the national life could not have
been attained by the Supreme Bench if it had not remained well
above all the doings of the political parties, and that it does so may
seem surprising when one considers the conditions under which
the judges are appointed. The President selects the new judge
whenever, by death or retirement, a vacancy occurs among the
nine judges; and the Senate confirms the selection. Party factors,
therefore, determine the appointment, and in point of fact
Democratic Presidents have always appointed judges belonging
to their own party, and Republicans have done the same. The
result is that both parties are represented in the Supreme Court.
That in political questions, such as the case of Porto Rico, which
we have mentioned, party conceptions figure somewhat in the decision
of the judges is undoubted. Yet they figure only in the
sense that allegiance to one or the other party involves certain
fundamental convictions, and these necessarily come into play in
the judicial verdict. On the other hand, there is never the least
suspicion that the judges harbour political schemes or seek in their
decision to favour either political party. This results from the
114fact that it is a matter of honour with both parties to place really
the most distinguished jurists in these highest judicial offices—jurists
who will be for all time an honour to the administration
which appointed them. They are almost exclusively men who
have never taken part in technical politics, but who have been
either distinguished judges elsewhere or else leading barristers,
and who, from the day of their appointment on, will be only judges.
Their position is counted among the most honourable which there
is, and it would almost never happen that a jurist would decline
his appointment, although the position, like all American official
positions, is inadequately rewarded; the salary is ten thousand
dollars, while any great lawyer is able to earn many times that sum.
At the present moment there sits on the Supreme Bench a group of
men, every one of whom represents the highest kind of American
spirit. The bustle and confusion, which prevail in the two wings
of the Capitol, does not invade the hall where the nine judges hold
their sessions. These men are, in the American public mind, the
very symbol of conscience.
We shall have occasion to consider later on the administration
of justice by the nation, under various points of view. While in
many respects this will appear less conscientious and more especially
less deliberate, it will, nevertheless, recall not a few
admirable features of the Supreme Court.
115
The Constitution, the President and his Cabinet, the Senate,
the House of Representatives, and the Supreme Court, in
short all of those institutions which we have so far sketched,
belong to the United States together. The European who pictures
to himself the life of an American will inevitably come to
think that these are the factors which most influence the life of the
political individual. But such is not the case; the American
citizen in daily life is first of all a member of his special state.
The organization of the Union is more prominent on the surface
than that of the single state, but this latter is more often felt by
the inhabitants.
The quality of an American state can be more easily communicated
to a German than to an Englishman, Frenchman, or Russian.
The resident of Bavaria or Saxony knows already how a man may
have a two-fold patriotism, allegiance to the state and also to the
empire; so that he can recognize the duties as well as the privileges
which are grouped around two centres. The essentials of
the American state, however, are not described by the comparison
with a state in the German Empire, which is relatively of too
little importance; for in comparison with the Union the American
state has more independence and sovereignty than the German.
We have observed before that it has its own laws and its own court
of last appeal; but these are only two of the many indications of
its practical and theoretical independence. The significant organic
importance of the state shows itself not less clearly if one
thinks of the cities subordinate to it, rather than of the Federation
which is superior to it. While the German state is more dependent
on the Federation than is the American, the German city is
more independent of the state than is any city in the United
116States. The political existence of the American city is entirely
dependent on the legislature of its state. The Federation on
the one hand and the cities on the other, alike depend for their
administrative existence on the separate states.
It is not merely an historical relic of that time when the thirteen
states united, but hesitated to give up their individual rights to the
Federation; a time when there were only six cities of more than
eight thousand inhabitants. Nothing has changed in this respect,
and it is not only the Democratic party to-day which jealously
guards state rights; the state all too often tyrannizes still over the
large cities within its borders. There are some indications, indeed,
that the state rights are getting even more emphasis than formerly—perhaps
as a reaction against the fact that, in spite of all constitutional
precautions, those states which have close commercial
relations tend practically to merge more and more with one another.
On observing the extraordinary tenacity with which the federal
laws and the local patriotism of the individual cling to the independence
of each one of the forty-five states, one is inclined to
suppose that it is a question of extremely profound differences in
the customs, ideals, temperaments, and interests of the different
states. But such is not at all the case. The states are, of course,
very unlike, especially in size; Texas and Rhode Island, for
instance, would compare about as Prussia and Reuss. There are
even greater differences in the density of population; and the
general cast of physiognomy varies in different regions of the
country. The Southerner shows the character bred by plantation
life; the citizen of the North-east evinces the culture bred of
higher intellectual interests; while the citizens of the West
attest the differences between their agricultural and mining districts.
Yet the divisions here are not states, but larger regions
comprising groups of states, and it sometimes happens that more
striking contrasts are found within a certain state than would be
found between neighbouring states. The state lines were after all
often laid down on paper with a ruler, while nature has seldom
made sharp lines of demarcation, and the different racial elements
of the population are fairly well mixed. For the last century the
pioneers of the nation have carried it steadily westward, so that in
many states the number of those born in the state is much less than
117of those who have migrated to it; and of course the obstinate assertion
of the prerogatives of such a state does not arise from any
cherished local traditions to which the inhabitants are accustomed.
The special complexion of any provincial district, moreover, is assailed
from all sides and to a large extent obliterated, in these days
of the telegraph and of extraordinarily rapid commercial intercourse
and industrial organization.
The uniformity of fashions, the wide-spread distribution of
newspapers and magazines, the great political parties, and the intense
national patriotism all work towards the one end—that
from Maine to California the American is very much the same sort
of man, and feels himself, in contrast with a foreigner, to be merely
an American. And yet in spite of all this each single state holds
obstinately to its separate rights. It is the same principle which
we have seen at work in the American individual. The more the
individuals or the states resemble one another the more they seem
determined to preserve their autonomy; the more similar the substance,
the sharper must be the distinctions in form.
The inner similarity of the different states is shown by the fact
that, while each one has its own statute-book and an upper court
which jealously guards its special constitution, nevertheless all
of the forty-five state constitutions are framed very much alike.
The Constitution of the United States would by no means require
this, since it prescribes merely that every state constitution shall be
republican in form; and yet not a single state has taken advantage
of its great freedom. The constitutions of the older states were
modelled partly on the institutions of the English fatherland,
partly on those of colonial days; and when many of these features
were finally embodied in the Federal Constitution, they were reflected
back once more in the constitutions of the states which later
came to be. The new states have simply borrowed the general
structure of the older states and of the Federation, without much
statesmanlike imagination; although here and there is some adaptation
to special circumstances. There are indeed some odd differences
at superficial points, and inasmuch as, in contrast to the
Federal Constitution, the state constitutions have frequently been
reshaped by the people, a reactionary tendency or some radical
and hasty innovation has here and there been incorporated.
The principles, however, are everywhere the same. Each state
118has framed a reduced copy of the Federal Constitution, and one
finds a still more diminutive representation of the same thing in
the American city charter. Yet we must not forget here that,
although theoretically and constitutionally the state is greater
than the city, yet in fact the city of New York has a population
eighty times as large as the State of Nevada, with its bare 40,000
inhabitants; or, again, that the budget of the State of Massachusetts
is hardly a quarter as large as that of Boston, its capital city.
Thus, like the Union, both city and state have a charter and an
executive, a dual legislature, and a judiciary, all of which reproduce
on a small scale all the special features of the federal organization.
The city charter is different from that of the state, in
that it is not drawn up by the inhabitants of the city, but, as we
have said, has to be granted by the state legislature. The head
of the state executive, the governor, is in a way a small president,
who is elected directly by the people, generally for a two years’
term of office. In the city government the mayor corresponds to
him, and is likewise elected by the citizens; and in the larger
cities for the same period. A staff of executive officers is provided
for both the mayor and the governor.
Under the city government are ranged the heads of departments,
who are generally chosen by the mayor himself; New York, for
instance, has eighteen such divisions—the departments of finance,
taxation, law, police, health, fire, buildings, streets, water-supply,
bridges, education, charities, penal institutions, park-ways, public
buildings, etc. The most important officials under the state
government are always the state secretary, the state attorney-general,
and the treasurer. Close to the governor stands the
lieutenant-governor, who, after the pattern of the federal government,
is president of the upper legislative chamber. The governor
is empowered to convene the legislature, to approve or to
veto all state measures, to pardon criminals, to appoint many of
the lower officials, although generally his appointment must be
confirmed by the upper legislative body, and he is invariably in
sole command of the state militia. The legislature of the state
is always, and that of the cities generally, divided into two
chambers. Here again the membership in the upper chamber
is smaller than that of the lower and more difficult to obtain.
Often the state legislature does not meet in the largest city, but
119makes for itself a sort of political oasis, a diminutive Washington.
The term of office in the legislature is almost always two years,
and everywhere the same committee system is followed as at the
Capitol in Washington. Only a member of the legislative body
can propose bills, and such propositions are referred at once to a
special committee, where they are discussed and perhaps buried.
They can come to the house only through the hands of this committee.
The freedom given to the state legislature is somewhat
less than that given by the Constitution to Congress. While all
the parliamentary methods are strikingly and often very naïvely
copied after those in use at Washington, the state constitutions were
careful from the outset that certain matters should not be subject
to legislative egotism. On the other hand the state legislature
hands down many of its rights to inferior bodies, such as district,
county, and city administrations; but in all these cases in which
there is a real transfer of powers, it is characteristic that these really
pertain to the state as such, and can, therefore, be withdrawn by
the state legislatures from the smaller districts at any time.
The entire administration of the state falls to the state
legislature; that is, the measures for public instruction, taxation,
public works, and the public debt, penal institutions, the supervision
of railroads, corporations, factories, and commerce. In
addition to this there are the civil and criminal statutes, with the
exception of those few cases which the Constitution reserves for
federal legislation; and, finally, there is the granting of franchises
and monopolies to public and industrial corporations. Of course,
within this authority there is nothing which concerns the relation
of one state to other states or to foreign powers, nor anything of
customs revenues or other such matters as are enacted uniformly
for all parts of the country by the federal government. The
state has, however, the right to fix the conditions under which
an immigrant may become a naturalized citizen; and a foreigner
becomes an American citizen by being naturalized under the law
of any one of the forty-five states. All this gives an exceedingly
large field of action to state legislatures, and it is astonishing
how little dissimilar are the provisions which the different states
have enacted.
The city governments are very diverse in size, but in all the
larger cities consist of two houses. The German reader must not
120suppose that these work together like the German magistrate and
the municipal representative assembly. Since in America the
legislative and executive are always sharply sundered, the heads of
departments under the executive—that is, the German Stadträte—have
no place in the law-making body. The dual legislative
is, therefore, in a way an upper and lower municipal representative
assembly, elected in different ways and having similar differences
in function as the two chambers of Congress. Here too, for
instance, bills of appropriation have to originate in the lower
house. Oddly enough, the city legislative is generally not entrusted
with education, but this is administered by a separate municipal
board, elected directly by the people. One who becomes acquainted
with the intellectual composition of the average city
father, will find this separation of educational matters not at all
surprising, and very beneficent and reasonable.
In general, one may say that the mayor is more influential in
the city government than that body which represents the citizens;
this in contrast to the situation in the state government, where the
governor is relatively less influential than the legislature. The
chief function of the governor is really a negative one, that of
affixing his veto from time to time on an utterly impossible law.
The mayor, on the other hand, can shape things and leave the
stamp of his personality on his city. In the state, as in the city, it
often happens that the head of the executive and a majority of the
legislative belong to opposite parties, and this not because the
party issues are forgotten in the local elections, but because the
methods of election are different.
The division of public affairs into city and state issues leaves, of
course, room for still a third group, namely, the affairs of communities
which are still smaller than cities. These, too, derive
their authority entirely from the state legislature, but all states
leave considerable independence to the smaller political units. In
local village government the historic differences of the various regions
show out more clearly than in either state or city government.
The large cities are to all intents and purposes cast in the same
mould everywhere; their like needs have developed like forms of
life; and the coming together of great numbers of people have
everywhere created the same economic situation. But the scattered
population gets its social and economic articulation in the
121North, South, and West, in quite different ways; and this difference,
at an early time when the problems of a large city were so
far not known, led to different types of village organizations, which
have been historically preserved.
When the English colonies were growing up, the differences
in this connection between the New England states and Virginia
were extreme. The colonies on the northern shores, with their
bays and harbours, their hilly country and large forests, could not
spread their population out over large tracts of land, and were
concentrated within limited regions; and this tendency was further
emphasized by Puritan traditions, which required the population
to take active part in church services. There naturally was
developed a local form of government for small districts, which
corresponded to old English traditions. The citizens gathered
from all parts of every district to discuss their common affairs and
to decide what taxes should be raised, what streets built, and, most
of all, what should be done for their churches and schools, and for
the poor. In Virginia, on the other hand, where very large
plantations were laid out, there could be no such small communities;
the population was more scattered, and affairs of general
interest had necessarily to be entrusted to special representatives,
who were in part elected by small parishes and in part appointed
by the governor. The political unit here was not the town, but the
county.
The difference in these two types is the more worthy of consideration
because it explains how the North and South have been able
to contribute such different and yet such equally valuable factors
to all the great events of American history. New England and
Virginia were the two centres of influence in Revolutionary times
and when the Union was being completed, but their influences
were wholly different. New England served the country by
effecting an extraordinarily thorough education of its masses by
giving them a long schooling in local self-government; each individual
was obliged to meditate on public affairs. Virginia,
however, gave to the country its brilliant leaders; the masses remained
backward, but the county representatives practised and
trained themselves to the rôle of leading statesmen. Between
these two extremes lay the Middle Atlantic States, where a mixed
form of town and county representation had necessarily developed
122from the social conditions; and these three types, the Northern,
Southern, and mixed, worked slowly back during the nineteenth
century from the coast toward the West. Settlers in the new states
carried with them their familiar forms of local government, so
that to-day these three forms may still be found through the country.
To-day the chief functions of town governments are public
instruction, care for the poor, and the building of roads. Religious
life is, of course, here as in the city, state, and Union, wholly
separated from the political organization. The police systems
of these local governments in town and village are wholly rudimentary.
While the police system is perhaps the most difficult
chapter in American city government, the country districts have
always done very well with almost none. This reflects the moral
vigour of the American rural population. The people sleep everywhere
with their front doors open, and everywhere presuppose the
willing assistance of their neighbours. It was not until great
populations commenced to gather in cities, that those social evils
arose, of which the police system, which was created to obviate
them, is itself not the least.
Any one overlooking this interplay of public forces sees that in
town and city, state and Union, it is not a question of forcing administrative
energies into a prescribed sphere of action. They
expand everywhere as they will, both from the smaller to the larger
sphere and from the larger to the smaller. Therefore, the Union
naturally desires to take on itself those functions of state legislation
in which a lack of uniformity would be dangerous; as, for
instance, the divorce laws, the discrepancies in which between
different states are so great that the necessity of more uniform
divorce regulations is ever becoming more keenly felt. At present
it is a fact that a man who is divorced under the laws of
Dakota and marries again can be punished in New York for
bigamy. A similar situation exists in regard to certain trade
regulations, where there are unfortunate discrepancies. Many
opponents of the trusts want even an amendment to the Constitution
which will bring them under federal law, and prevent these
huge industrial concerns from incorporating under the too lax
laws of certain states.
Still easier is it for the states to interfere in the city governments.
If the Union wishes to make new regulations for the state,
123the Federal Constitution has to be amended; while if the state
wants to hold a tighter rein on city government it can do so directly,
for, as we have seen, the cities derive all their powers from
the state legislature. There is, indeed, considerable tendency
now to restrict the privileges of cities, and much of this is sound,
especially where the state authority is against open municipal
corruption. The general tendency is increasing to give the state
considerable rights of supervision over matters of local hygiene,
industrial conditions, penal and benevolent institutions. The advantages
of uniformity which accrue from state supervision are
emphasized by many persons, and still more the advantage derived
from handing over hygienic, technical, and pedagogical questions
to the well-paid state experts, instead of leaving them to the
inexperience of small districts and towns. There is no doubt that
on these lines the functions of the state are being extended slowly
but steadily.
Then again the cities and towns in their turn are tending to
absorb once more such forces as are subordinate to them, and thus
to increase the municipal functions. The fundamental principles
which have dominated the economic life in the United States and
brought it to a healthful development, leave the greatest possible
play for private initiative; thus not very long ago it was a matter
of course that the water supply, the street lighting, the steam and
electric railways should be wholly in the hands of private companies.
A change is coming into these affairs, for it is clearly seen
that industries of this sort are essentially different from ordinary
business undertakings, not only because they make use of public
roads, but also because such plants necessarily gain monopolies
which find it easy to levy tribute upon the public. In recent
years, therefore, city governments have little by little taken over
the water supplies, and tend somewhat to limit the sphere of other
private undertakings of this sort—as, for instance, that of street-lighting.
At the same time there is an unmistakable tendency
for city and town to undertake certain tasks which are not economically
necessary, and which have been left hitherto to private
initiative. Cities are building bath-houses and laundries, playgrounds
and gymnasiums, and more especially public libraries
and museums, providing concerts and other kinds of amusements
and bureaus for the registration of those needing employment; in
124short, are everywhere taking up newly arisen duties and performing
them at public expense.
There is, on the other hand, a strong counter-current to these
tendencies of the large units to perform the duties of the small—the
strong those of the weak, the city those of the individual, the
state those of the city, and the Union those of the state. The opposition
begins already in the smallest circle of all, where one sees
a strong anti-centralizing tendency. The county or city is not
entitled, it is said, to expend the taxpayers’ money for luxuries or
for purposes other than those of general utility. It should be generous
philanthropists or private organizations that build museums
and libraries, bath-houses and gymnasiums, but not the city,
which gets its money from the pockets of the working classes. Although
optimists have proposed it, there will certainly be for a
long time yet no subsidized municipal theatres; and it is noticeable
that the liberal offers of Carnegie to erect public libraries are
being more and more declined by various town councils, because
Carnegie’s plan of foundation calls for a considerable augmentation
from the public funds. And wherever it is a question of indispensable
services, such as tramways and street-lighting, the
majority generally says that it is cheaper every time to pay a small
profit to a private company than to undertake a large business at
the public expense. From the American point of view private
companies are often too economical, while public enterprises are
invariably shamelessly wasteful.
The city pays too dear and borrows at too high a rate; in short,
regulates its transactions without that wholesome pressure exerted
by stockholders who are looking for dividends. Worst of all,
the undertakings which are carried on by municipalities are often
simply handed over to political corruption. Instead of trained
experts, political wire-pullers of the party in office are employed
in all the best-paid positions, and even where no money is consciously
wasted, a gradual laxness creeps in little by little, which
makes the service worse than it would ever be in a private company,
which stands all the time in fear of competition. For this
reason the American is absolutely against entrusting railroads and
telegraph lines to the hands of the state. When a large telegraph
company did not adequately serve the needs of the public, another
concern spread its network of wires through the whole country;
125and since then the Western Union and Postal Telegraph have been
in competition, and the public has been admirably served. But
what relief would there have been if the state had had a monopoly
of the telegraph lines, with politicians in charge who would have
been indifferent to public demands? The wish to be economical, to
keep business out of politics, and to keep competition open, all work
together, so that the extension of municipal functions, although
ardently wished on many sides, goes on very slowly; and it is
justly pointed out that whenever private corporations in any way
abuse their privileges the community at large has certainly plenty
of means for supervising them, and of giving them franchises under
such conditions as shall amply protect public interests. When
a private company wishes to use public streets for its car-tracks,
gas or water pipes, or electric wires, the community can easily
enough grant the permission for a limited length of time, reserving
perhaps the right to purchase or requiring a substantial payment
for the franchise and a portion of the profits, and can leave
the rest to public watchfulness and to the regular publication of
the company’s reports. It is not to be doubted that the tendencies
in this direction are to-day very marked.
Just as private initiative is trying not to be swallowed up by the
community, so the community is trying to save itself from the state.
So far as the village, town, or county is concerned, nobody denies
that state experts could afford a better public service than the
inexperienced local boards, and, nevertheless, it is felt that every
place knows best after all just what is adapted to its own needs.
The closest adaptation to local desires, as, say, in questions of
public schools and roads, has been always a fundamental American
principle. This principle started originally from the peculiar
conditions which existed in the several colonies and from the
needs of the pioneers; but it has led to such a steady progress in
the country’s development that no American would care to give it
up, even if here and there certain advantages could be had by introducing
greater uniformities. There is a still more urgent
motive; it is only this opportunity of regulating the affairs of the
small district which gives to every community, even every neighbourhood,
the necessary schooling for the public duties of the
American citizen. If he is deprived of the right to take care of his
own district, that spirit of self-determination and independence
126cannot develop, on which the success of the American experiment
in democracy entirely depends. Political pedagogy requires that
the state shall respect the individuality of the small community so
far as this is in any way possible.
The relation between the city and the state is somewhat different;
no one would ask the parliamentarians of the state legislature
to hold off in order that the population of the large city may have
the opportunity to keep their political interests alive and to preserve
their spirit of self-determination. This spirit is at home in
the streets of the great city; it is not only wide-awake there, but it
is clamorous and almost too urgent. When, now, the municipalities
in their struggle against the dictation of the state, meet
with the sympathies of intelligent people, this is owing to the simple
fact that the city, in which all cultured interests are gathered
generally, has in all matters a higher point of view than the representatives
of the entire state, in which the more primitive rural
population predominates. When, for instance, the provincial
members which the State of New York has elected meet in Albany,
and with their rural majority make regulations for governing the
three million citizens of New York City, regulations which are perhaps
paternally well meant, but which sometimes show a petty
distrust and disapproval of that great and wicked place, the result
is often grotesque. The state laws, however, favour this sort
of dictation.
The state constitutions still show in this respect the condition of
things at a time in which the city as such had hardly come into
recognition. The nineteenth century began in America with six
cities of over eight thousand inhabitants, and ended with 545.
Moreover, in 1800 those six places contained less than four per
cent. of the population, while in 1900 the 545 cities contained more
than thirty-three per cent. thereof. Since only a twenty-fifth part
of the nation lived in cities, the greater power of the scattered provincial
population seemed natural; but when now a third of the
nation prefers city life, and especially the more intelligent, more
educated, and wealthy third, the limitations to independent
municipal rights become an obstacle to culture.
Finally, the states themselves are opposing on good grounds
every assumption of rights by the Federation—the same good
grounds, indeed, which the community has for opposing the state,
127and many others besides. It is felt that historically it has been the
initiative of individuals rather than of the central government
which has helped the nation to make its tremendous strides forward,
and that this initiative should not only be rewarded with
privileges, but should also be stimulated by duties. The more
nearly one state is like another, so much the more energetically
does it forbid the others to interfere in its affairs; and the more it
is like the Union the more earnestly it seeks not to let its distinct
individuality be swallowed up. Besides the moral effort toward
state individuality, there is a powerful state egotism at work in
many states which makes for the same end. Back of everything,
finally, there is the fear of the purely political dangers which are
involved in an exaggerated centralization. We have seen in this
a fundamental sentiment of the Democratic party.
Thus at every step in the political organization centrifugal and
centripetal forces stand opposite each other in the Federal Union,
in the state, in the county, and in the city. And public opinion is
busy discussing the arguments on both sides. Every day sees
movements in one or the other direction, and there is never any
let up. In all these discussions it is a question of conflicting principles,
which in themselves seem just. There is, however, another
contrast—that between principle and lack of principle. In
the Union, the state, and the city, centralists and anti-centralists
meet on questions of law; but in each one of these places there are
groups of people working against the law and trying in every way
to get around it. In these discussions there is a true and false, but
in the conflicts there is a right and wrong; and here argumentation
is not needed, but sheer resistance. If one does not purposely
close one’s eyes, one cannot doubt that the public life of America
holds certain abuses, which are against the spirit of the Constitution
and which too often come near to being criminal. One can
ask, to be sure, if that lack of conscience does not have place
in every form of state in one way or another, and if the necessity
of developing a sound public spirit to fight against abuse may itself
not be an important factor in helping on the spirit of self-determination
to victory.
Any one who should write the history of disorganizing forces in
American public life will have the least to say about federal politics,
a good deal more about those of the state, and most of all
128about those of the city. Certain types of temptation are repeated
at every stage. There is, for instance, the legislative committee,
which is found alike in Congress, in the state legislatures, and in
the city councils. Bills are virtually decided at first by two or
three persons who exert their influence behind the closed doors
of the committee room; and naturally enough corrupt influences
can much more easily make their way there than in the discussions
of the whole house. If a municipal committee has a bill under
discussion, the acceptance of which means hundreds of thousands
of dollars saved or lost to the street railway company, then certainly,
although the president and directors of the company will not
themselves take any unlawful action, yet in some way some less
scrupulous agent will step in who will single out a bar-keeper
or hungry advocate or fourth-class politician in the committee,
who might be amenable to certain gilded arguments. And if
this agent finds no such person he will find some one else who does
not care for money, but who would like very well to see his
brother-in-law given a good position in the railway company, or
perhaps to see the track extended past his own house.
Of course the same thing happens when a measure is brought
before the state legislature, and the vote of some obscure provincial
attorney on the committee means millions of dollars to the
banking firm, the trust, the mining company, or the industrial
community as a whole. Here the lobby gets in its work. The
different states are, of course, very different in this respect; the
cruder forms of bribery would not avail in Massachusetts and
would be very dangerous; but they feel differently about such
things in Montana. As we have already said, Congress is free of
such taints.
Another source of temptation, which likewise exists for all
American law-giving bodies, arises from the fact that all measures
must be proposed by the members of such body. Thus local
needs are taken care of by the activity of the popular representatives,
and, therefore, the number of bills proposed becomes
very large. Just as during the last session of Congress, 17,000
measures were proposed in the lower house, hundreds of thousands
of bills are brought before the state legislatures and city
councils. There is never a lack of reasons for bringing up superfluous
bills. And since the system of secret committees makes it
129difficult for the individual representative to appear before the
whole house and to make a speech, it follows that the introduction
of a few bills is almost the only way in which the politician can
show his constituency that he was not elected to the legislature in
vain, and that he is actually representing the interests of his supporters.
A milder form of this abuse consists of handing in bills
which are framed by reason of personal friendships or hatreds;
and the same thing appears in uglier form when it is not a question
of personal favour, but of services bought and paid for, not of
personal hatred, but of a systematic conspiracy to extort money
from those who need legislation. The milder form of wrongdoing,
in which it is only a question of personal favours, can be
found everywhere, even in the Capitol at Washington, and the
much-boasted Senatorial courtesy lends a sort of sanction to the
abuse.
This evil is strengthened, as it perhaps originated, by the tacit
recognition of the principle that every legislator represents, first of
all, his local district. It is not expected of a senator that he shall
look at every question from the point of view of the general welfare,
but rather that he shall take first of all the point of view of his
state. It has indeed been urged that the senator is nothing but
an ambassador sent to represent his state before the federal government.
If this is so, it follows at once that no state delegate
ought to have any control over the interests of another state, and
so the wishes of any senator should be final in all matters pertaining
to his own state. From this it is only a small step to the existing
order of things, in which every senator is seconded on his own
proposals by his colleagues, if he will second them on theirs. In
this way each delegate has the chance to place the law-giving
machinery at the service of those who will in any way advance his
political popularity among his constituents, and help him during
his next candidacy. And then, too, a good deal is done merely for
appearances; bills are entered, printed, and circulated in the local
papers to tickle the spirits of constituents, while the proposer
himself has not supposed for a moment that his proposition will
pass the committee. Things go in the state legislatures in quite
the same way. Each member is first of all the representative of
his own district, and he claims a certain right of not being interfered
with in matters which concern that district. In this way he
130is accorded great freedom to grant all sorts of legislative favours
which will bring him sufficient returns, or to carry through legal
intrigues to the injury of his political opponents. And here in the
state legislature, as in the city council, where the same principles
are in use, there is the best possible chance of selling one’s friendly
services at their market value. If a railroad company sees a bill
for public safety proposed which is technically senseless and exaggerated,
which will impede traffic in the state, and involve ruinous
expenditures, it will naturally be tempted not to sit idle in the
hope that a majority of the committee will set the bill aside; for
that course would be hazardous. It may be that all sorts of prejudices
will work together toward reporting the bill favourably.
If the company wants to be secure, it will rather try such arguments
as only capitalists have at their command. And it has here
two ways open: either to “convince” the committee or else to
make arrangements with the man who proposed the bill, so that
he shall recall it. If the possibility of such doings once exists in
politics, there is no means of preventing dishonourable persons
from making money in such ways; not only do they yield to temptation
after they have been elected, but also they seek their elections
solely in order to exploit just such opportunities.
Here we meet that factor which distinguishes the state legislature,
particularly of those states whose traditions are less firmly
grounded, and still more the city councils, so completely from the
federal chambers in Washington. The chance to misuse office
is alike in all three places, but men who have entered the political
arena with honourable motives very seldom yield to criminal
temptation. The usual abuses are committed almost wholly by
men who have sought their political office solely for the sake of
criminal opportunities; and this class of pseudo-politicians can
bring itself into the city council very easily, in the state legislature
without much difficulty, but almost never into Congress. If it were
attractive or distinguished or interesting to be in the state legislature,
or on the board of aldermen, there would be a plenty of
worthy applicants for the position, and all doubtful persons would
find the door closed; but the actual case is quite different.
To be a member of Congress, to sit in the House of Representatives
or perhaps in the Senate, is something which the very best
men may well desire. The position is conspicuous and picturesque,
131and against the background of high political life the individual
feels himself entrusted with an important rôle. And although
many may hesitate to transfer their homes to the federal
capital, nevertheless the country has never had difficulty in finding
sufficient Representatives who are imbued with the spirit of the
Constitution. On the other hand, to serve as popular representative
in the state legislature means for the better sort of man, unless
he is a professional politician, a considerable sacrifice. The
legislature generally meets in a remote part of the state, at every
session requires many months of busy work on some committee,
and most of this work is nothing but disputing and compromising
over the thousand petty bills, in which no really broad political
considerations enter. It is a dreary, dispiriting work, which can
attract only three kinds of men: firstly, those who are looking forward
to a political career in the service of the party machine and
undergo a term in the state legislature only as preparation for
some more important office; secondly, those who are glad of the
small and meagre salary of a representative; and finally, those
whose modest ambition is satisfied if they are delegated by their
fellow-citizens in any sort of representative capacity. Therefore
the general level of personality in the state legislature is low.
Men who have important positions will seldom consent to go, and
when influential persons do enter state politics it is actually with
a certain spirit of renunciation, and not so much to take part in
the business of the legislature as to reform the legislature itself.
Since this is the case, it is not surprising that the most unwholesome
elements flock thither, extortioners and corrupt persons who
count on it, that in regard to dishonourable transactions, the other
side will have the same interest in preserving silence as themselves.
We must also not forget that the American principle of strictly
local representation works in another way to keep down the level
of the smaller legislative bodies. If the Representative of a certain
locality must have his residence there, the number of possible
candidates is very much restricted. This is even more true of the
city government, where the principle of local representation requires
that every part of the city, even the poorest and most
squalid, shall elect none but men who reside in it. To be sure,
there is a good deal in this that is right; but it necessarily brings
a sort of people together in public committee with whom it is not
132exactly a pleasure for most men to work. The questions which
have to be talked over here are still more trivial, and more than
that, the motives which attract corrupt persons are somewhat
more tangible here; since in the rapid growth of the great city the
awarding of monopolies and contracts creates a sort of spoilsman’s
paradise. As the better elements hold aloof from this city government,
by so much more do corrupt persons have freer play.
The relation of the city to both the state and Federation is
even more unfavourable when one comes to consider not the legislative,
but the executive, department. Whereas in Washington,
for example, a single man stands at the head of every department
in the administration, and is entirely responsible for the running
of things, there has frequently been in the city administrations,
up to a short time ago, a committee which is so responsible—this
in agreement with the old American idea that a majority can
decide best. Where, however, a single man was entrusted with
administrative powers, he was selected generally by the mayor
and the city council together, and they seldom called a real expert
to such a position. In any case, since the administration depends
wholly on party politics, and the upper staff changes with
each new party victory, there is no such chance for a life career
here as would tempt competent men to offer their services.
In this part of the government, moreover, there is more danger
from the administration by committees than anywhere else. The
responsibility of a majority cannot be fixed anywhere; and where
the mayor and aldermen work together in the selection of
officials, neither of the two parties is quite responsible for the
outcome—which is naturally not to be compared with the closely
guarded election of officials under German conditions. For in
Germany the selection of the head of a city department will lie
between a few similarly trained specialists, while the administration
of a New York or a Chicago department, as, say, that of
the police or of street-cleaning, is thought to presuppose no
special preparation, and therefore the number of possible candidates
is unlimited. It is not surprising that such irresponsible
committees are not above corruption, and that many a man who
has received a well-paid administrative position in return for his
services to the party, proceeds to make his hay while the sun
shines. It is true that there are many departments where no such
133temptation comes in question. It is, for example, universally believed
that the fire departments of all American cities are admirably
managed. The situation is most doubtful in the case of
the police departments, which, of course, are subject to the greatest
temptations; and here, too, there can be the worst abuses in
some ways along with the highest efficiency in others. The service
for public protection in a large city may be admirably organized
and crime strenuously followed up, and nevertheless the
police force may be full of corruption. Thieves and murderers
are punctiliously suppressed, while at the same time the police are
extorting a handsome income from bar-rooms which evade the
Sunday laws, from public-houses which exist in violation of city
statutes, and from unlawful places of amusement.
To be sure, we must again and again emphasize two things. In
the first place, it is probable that nine-tenths of the charges are exaggerated
and slanderous. The punishments are so considerable,
the means of investigation so active, and the public watchfulness
so keen, both on account of the party hostility and by virtue
of a sensational press, that it would be hardly comprehensible
psychologically, if political crime in the lowest strata of city or
state were to be really anything but the exception. The many almost
fanatically conducted investigations produce from their
mountains of transactions only the smallest mice, and the state
attorney is seldom able to make out a case of actual bribery. In
this matter the Anglo-Americans are pleased to point out that
wherever investigations have ended in making out a case which
could really be punished, the person has been generally an Irishman
or some other European immigrant. In any case, the collection
of immigrants from Europe in the large cities contributes
importantly to the unhappy condition of city politics.
In the second place, we must urge once more that the mere distribution
of well-paid municipal positions to party politicians is
not necessarily in itself an abuse. When, for instance, in a large
city, a Republican is succeeded by a Democratic mayor, he can
generally bestow a dozen well-paid and a hundred or two more
modest commissions to men who have helped in the party victory.
But he will be careful not to pick out those who are wholly unworthy,
since that would not only compromise himself, but would
damage his party and prevent its being again victorious. If he
134succeeds, on the other hand, in finding men who will serve the
city industriously, intelligently, and ably in proportion to their pay,
it is ridiculous to call the promise of such offices by way of party
reward in any sense a plundering of the city, or to make it seem
that the giving of positions to colleagues of one’s party is another
sort of corruption.
The evils of public life and the possibility of criminal practices
are not confined to legislative and executive bodies. The judiciary
also has its darker side. One must believe fanatically in
the people in order not to see what judicial monstrosities occasionally
come out of the emphasis which is given to the jury system.
The law requires that the twelve men chosen from the people to
the jury must come to a unanimous decision; they are shut in a
room together and discuss and discuss until all twelve finally decide
for guilty or not guilty. If they are not unanimous, no verdict
is given, and the whole trial has to begin over again. A single
obstinate juryman, who clings to his particular ideas, is able,
therefore, to outweigh the decision of the other eleven. And it is
to be remembered that every criminal case is tried before a jury.
The case is still worse if all twelve agree, but agree only in their
prejudices. Especially in the South, but also in the West sometimes,
juries return decisions which simply insult the intelligence
of the country. It is true that the unfairness is generally in the
direction of declaring the defendant not guilty.
The law’s delay is also exceedingly regrettable, as well as the
extreme emphasis on technicalities, in consequence of which no
one dares, even in the interests of justice, to ignore the slightest
inaccuracy of form—a fact whose good side too, of course, no one
should overlook. It is most of all regrettable that the choice of
judges depends to so large an extent on politics, and that so many
judicial appointments are made by popular elections and for a
limited term. The trouble here is not so much that a faithful party
member is often rewarded with a judicial position, since for the
matter of that there are equally good barristers to be chosen from
either party for vacant positions on the bench; the real evil is that
during his term of office the judge cannot help having an eye to his
reëlection or promotion to some higher position. This brings
politics into his labours truly, and it too often happens that a
ready compliance with party dictates springs up in the lower judicial
135positions. Only the federal and the superior state courts
are entirely free from this.
In a similar way, politics sometimes play a part in the doings
of the state attorney. He is subordinate to the state or federal
executive, that is, to a party element which has contracted obligations
of various sorts, and it may so happen that the state
attorney will avoid interfering here and there in matters where a
justice higher than party demands interference. Especially in
the quarrels between capital and labour, one hears repeatedly that
the state attorney is too lenient toward large capitalists. Then
there are other evils in judicial matters arising from the unequal
scientific preparation of jurists; the failing here is in the judicial
logic and pregnancy of the decision.
Finally, one source which is a veritable fountain of sin against
the commonwealth is the power of the party machine. We have
traced out minutely how the public life of the United States demands
two parties, how each of these may hope for victory only if
it is compactly organized, and how such organizations need an
army of more or less professional politicians. They may be in the
legislature or out of it; it is their position in the party machine
which gives them their tremendous powers—powers which do not
derive from constitutional principles nor from law, but which are
in a way intangible, and therefore the more liable to abuse.
Richard Croker has never been mayor of New York, and yet he
was for a long time dictator of that city, no matter what Democratic
mayor was in office, and remained dictator even from his country
place in England. He ruled the municipal Democratic party
machine, and therefore all the mayors and officials were merely
pawns in his hands. Millions of dollars floated his way from a
thousand invisible sources, all of which were somehow connected
with municipal transactions; and his conscience was as elastic as
his pocket-book. That is what his enemies say, while his friends
allege him to be a man of honour; and nothing has really been
proved against him. But at least one thing is incontestable, that
the system of the party machine and the party boss makes such
undemonstrable corruption possible. Almost every state legislature
is in the clutches of such party mandarins, and even men who
are above the suspicion of venality misuse the tempting power
which is centred in their hands in the service of their personal
136advantage and reputation, of their sympathies and antipathies,
and transform their Democratic leadership into autocracy and
terrorism. In the higher sense, however, every victory which they
win for their party is like the victory of Pyrrhus, for their selfish
absolutism injures the party more than any advantage which it
wins at the polls benefits it. Their omnipotence is, moreover,
only apparent, for in reality there is a power in the land which
is stronger than they, and stronger than Presidents or legislatures,
and which takes care that all the dangers and evils, sins and
abuses that spring up are finally thrown off without really hindering
the steady course of progress. This power is public opinion.
137
We have spoken of the President and Congress, of the organization
of court and state, and, above all, of the parties,
in order to show the various forms in which the
genius of the American nation has expressed itself. It may seem
almost superfluous to recognize public opinion as a separate
factor in political affairs. It is admitted that public opinion is
potent in æsthetic, literary, moral, and social problems, with all
of which parties and constitutions have nothing to do. But it
might be supposed that when a people has surrounded itself with
a network of electoral machinery, supports hundreds of thousands
of representatives and officials, has perfected parties with
their armies of politicians and legislatures which every year discuss
and pass on thousands of laws—it might be supposed that
in regard to political questions public opinion would have found
its complete expression along official channels, and in a sense
would have exhausted itself. Yet this is not the case. The entire
political routine, with its paraphernalia, forms a closed system,
which is distinct in many ways from the actual public opinion of
the country.
It is indeed no easy matter to find under what conditions the
will of a people can most directly express itself in the official machinery
of politics. Many Germans, for instance, entertain the
notion that no government is truly democratic except the cabinet
be in all matters dependent on a majority in parliament; and
they are astonished to learn that in democratic America Congress
has no influence on the election of the highest officials; that the
President, in fact, may surround himself with a cabinet quite antagonistic
to the political complexion of Congress. But no American
believes that politics would represent public opinion any better
138if this independence of the Executive and his cabinet were to be
modified, say in conformity with the English or French idea. The
reasons for a discrepancy between public opinion and official politics
lie anyhow not in the special forms prescribed by the Constitution,
but in the means by which the forms prescribed by the Constitution
are practically filled by the nation. In the English Constitution,
for instance, there is nothing about a cabinet; and yet
the cabinet is the actual centre of English politics. American
politics might keep to the letter of the Constitution, and still be the
truest reflection of public opinion. That they are not such a reflection
is due to the strong position of the parties. The rivalry
of these encourages keen competition, in which the success of the
party has now become an end in itself quite aside from the principles
involved. Personal advantages to be derived from the
party have become prominent in the minds of its supporters; and
even where the motives are unselfish, the tactics of the party are
more important than its ideals. But tactics are impossible without
discipline, and a party which hopes to be victorious in defending
its own interests or in opposing others’ will be no mere debating
club, but a relentlessly strict and practical organization. Wherewith
the control must fall to a very few party leaders, who owe
their positions to professional politicians—that is, to men who for
the most part stand considerably below the level of the best Americans.
The immense number of votes cast in the Presidential elections
is apt to hide the facts. Millions vote for one candidate and millions
for the other, without knowing perhaps that a few months before
the national convention some ten or twelve party leaders, sitting
at a quiet little luncheon, may have had the power to fix on
the presidential candidate. And these wise foreordainings are
even less conspicuous in the case of governors, senators, or representatives.
Everywhere the masses believe that they alone decide,
and so they do between the nominees of one party and of the
other, or sometimes between several candidates within the party;
but they are not aware that a more important choice is made behind
the scenes before these candidates make their appearance.
As with the incumbents, so it is with the platform. The party
leaders practically decide what questions shall be made the political
issues; and this is the most important function of all. We
139have seen that dissenting groups can hardly hope on ordinary occasions
to make a break in the firm party organization, and
though they may vigorously discuss questions which have not been
approved by the party leaders, they will, nevertheless, arrive at no
practical results. It therefore happens very often that voters are
called on to decide issues which seem to them indifferent, or to
choose between two evils, and can expect nothing from either candidate
in the matters which they think most vital. They go to the
polls merely out of consideration for their party. Thus, in reality,
the people do not decide the issues on which they are to vote, nor on
the candidates whom they elect, nor yet on the party leaders who do
decide these things. Nor can the people, if discontented with the
party in power, recall that party during its term of office. In Germany
the government can dissolve parliament if new issues arise;
in England the Cabinet resigns if it fails to carry a measure; but
in America the party with a congressional majority has nothing to
fear during its appointed term. In short, the political life of
America is dominated by those forces which rule the parties, and
only in so far as the nation is filled with the party spirit, is the
official political hierarchy an expression of the nation’s will.
Now it is not in the nature of public opinion to nerve itself up to
clear and definite issues. Unless worked on by party demagogues,
it never formulates itself in a mere yes or no, but surveys
the situation impartially, seeing advantages and disadvantages
on both sides, and passes a conservative judgment. The man who
thinks only of parties will often agree to a compromise which is
unjust to both parties and in general unworthy of them; but the
man who takes his stand above the parties knows that many problems
are not fathomed with a yea or nay; he does not see two opposite
sides between which an artificial compromise is to be found,
but he appreciates the given situation in its organic unity and
historical perspective. Historical understanding of the past and
moral seriousness for the future guarantee his right judgment.
He sees the practical opposition of interests, which is always more
complex than the two-horned dilemma that the parties advertise,
in a true light, and testimony of experts instead of politicians
suggests to him the rational solution of the problem. The actual
course of action to be followed may coincide with the plan of one
or the other party, or may be a compromise between them, and yet
140it will be a distinct policy. In such decisions there lives ever the
spirit of immediate reality; no artificial dichotomy nor any political
tactics are involved, and the natural moral feeling of a
healthy nation is then sufficient for every issue. Nowhere is this
naïve moral sense more potent among the masses than in America;
will then these unpartisan convictions have no weight in political
life? Will they not rather strive to have an independent effect
on the destinies of the nation? The centre and real expression
of these politics for essentials is the system of public opinion.
We have seen that every American legislature has two parts, an
upper and a lower house, which have different ways of procedure
and different prerogatives. One might similarly say that the
parties with all their paraphernalia are merely the lower house of
the nation, while Public Opinion is the upper house; and only
the two houses together constitute the entire national political
life. The nation is represented in each branch, but in different
senses. In a way the parties express quantitatively the will of the
nation, and public opinion does it qualitatively. Whenever a
quantitative expression is wanted, the issues must be sharply contrasted
in order to separate clearly the adherents of each; all fine
shades and distinctions have to be sacrificed to an artificial clearness
of definition, much as is done in mechanics, when any motion
is schematically represented, as the diagonal in a parallelogram of
two other forces. As a quantity any yea or nay is as good as any
other, and the intensity of any party movement is due to the accumulation
of small increments. The great advantage of this
lower house is, as of every lower house, that its deliberations can
be brought to an end and its debates concluded. Every political
election is such a provisional result.
It is very different in the upper house. Public opinion accepts
no abstract schematizations, but considers the reality in all its
complication, and in its debates no weight is given to any show of
hands or other demonstration of mere numbers. Crass contrasts
do not exist here, but only subtle shadings; men are not grouped
as friends and foe, but they are seen to differ merely in their
breadth of outlook, their knowledge, their energy, and in their
singleness of heart. The end in view is not to rush politics, but
to reform politics and in all matters to shape public events to
national ideals. Here one vote is not like another, but a single
141word wisely and conscientiously spoken is heard above the babel
of thousands. And here the best men of the nation have to show
themselves, not with programmes nor harangues, but with a quiet
force which shapes and unites public opinion and eventually carries
all parties before it.
Public opinion may be responsible now for a presidential veto
on a bill of Congress, now for the sudden eclipse of a party leader,
or the dropping of a list of candidates, or again it may divide a
party in the legislature. Public opinion forces the parties, in
spite of themselves, to make mere party advantage secondary to a
maturer statesmanship.
Germans will not readily appreciate this double expression of
the popular will; they would find it more natural if party life and
public opinion were one. For in Germany the conditions are
quite different. In the first place there are a dozen parties, which
express the finer shades of public opinion more adequately than
the two parties can in America. And this division into many
small parties prevents the development of any real party organization
such as would be needed by a party assuming entire responsibility
for the affairs of the nation. The nearest approach
to two great parties is the opposition between all the “bürgerliche”
parties on the one hand and the social democrats on the other.
But the development of really responsible parties is hardly to be
expected, since the German party is allowed only a small degree
of initiative. The representatives of the people have the right to
accept or reject or to suggest improvements in the proposals of the
government; but with the government rest the initiative and the
responsibility. The government stands above the parties, and
is not elected by the people nor immediately dependent on them.
It originates most of the legislative and executive movements, and
therewith represents exactly that moral unity of the nation which
is above all parties, and which is represented in America by public
opinion; while in America the government is the creature of the
parties.
One should not draw the conclusion that the public opinion of
America is the quintessence of pure goodness. Public opinion in
the United States would be no true indication of the forces at
work in the nation if it did not represent all the essentials of the
typical American. In order to find this typical man, it would be
142misleading simply to take the average of the millions; one leaves
out of account the great herd of colourless characters, and selects
the man who harmoniously combines in himself, without exaggeration,
the most striking peculiarities of his countrymen. He
is not easy to find, since eccentricity is frequent; one man is grotesquely
patriotic, another moral to intolerance, another insipidly
complacent, and another too optimistic to be earnest or too acquisitive
to be just.
And yet if one goes about much in American society, one finds
oneself now and then, not only in New York or Boston or Washington,
but quite as well in some small city of the West, in a little
circle of congenial men who are talking eagerly, perhaps over their
cigars after dinner; and one has the feeling that the typical American
is there. His conversation is not learned nor his rhetoric
high-flown; but one has the feeling that he is alive and worth
listening to, that he sees things in sharp perspective, is sincerely
moral, and has something of his own to say. Party politics do
not interest him specially, although as citizen he goes to a few
meetings, contributes to the party funds, and votes on election day
if the weather permits. But he speaks of politics generally with a
half-smile, and laughs outright at the thought of himself running for
the legislature. He sees the evil about him, but is confident that
everything will come around all right; the nation is young, strong,
and possessed of boundless resources for the future. Of course
he understands the prejudices of the masses, and knows that mere
slap and dash will not take the place of real application in solving
the problems which confront the nation; he knows, too, that
technical proficiency, wealth, and luxury alone do not constitute
true culture. And herewith his best energies are enlisted; he contributes
generously to libraries and universities, and very likely
devotes much of his time to the city schools. But he is frank to
confess, as well, that he has a weakness for good-fellowship and
superficiality, preferring operetta to tragedy every time. He is
not niggardly in anything; to be so is too unæsthetic. At first
one is astonished by his insouciance and the optimism with which
he makes the best of everything. One feels at once his good
nature and readiness to help, and finds him almost preternaturally
ready to be just to his opponents and overlook small failings. He
envelops everything with his irrepressible sense of humour, and
143is always reminded of a good story, which he recounts so drolly
and felicitously that one is ready to believe that he never could be
angry. But this all changes the instant the talk turns from amusing
stupidities or little weaknesses and goes over to indecency or
corruption or any baseness of character. Then the typical American
is quite changed; his genuine nobility of soul comes out and
he gives his unvarnished opinion, not blusteringly, but with self-controlled
indignation. One feels that here is the real secret of
his character; and one is surprised to see how little he cares for
political parties or social classes. He will fiercely condemn the
delinquencies of his own party or the unfair dealings of his own
social set. It now appears how honestly religious he is, and how
far the inner meaning of his life lies beyond the merely material.
Such a good fellow it is, with all his greater and lesser traits,
who may at any time voice undiluted public opinion. Thousands
who are better, wiser, more learned, or less the spendthrift and
high-liver, and the millions of inferior natures, will show one trait
or another of the national character in higher relief. And yet the
type is well marked; it is always optimistic and confident in the
future of America, indifferent to party tactics, but enthusiastically
patriotic. It is anxious to be not merely prosperous but just and
enlightened as well; it is almost hilariously full of life, and yet
benevolent and friendly; conservative although sensitive, without
respect for conventions and yet religious, sanguine but
thoughtful, scrupulously just to an opponent but unrelenting toward
any mean intent. Probably the most characteristic traits
of public opinion are a patient oversight of mistakes and weaknesses,
but relentless contempt and indignation for meanness and
lack of honour. This is in both respects the very reverse of the
party spirit, which is too apt to hinge its most boasted reforms on
trivial evils, and pass over the greatest sins in silence.
One element of public opinion should be suggested in even the
briefest sketch—its never-failing humour. It is the antiseptic
of American politics, although it would be better, to be sure, if
political doings could be aseptic from the outset. But probably
dirty ambition and selfishness are harder to keep down in a democracy
than anywhere else. The humour of public opinion
stands in striking contrast, moreover, to party life; as one cannot
fail to discover on looking closely. Party tactics demand that the
144masses have hammered into them the notion that the sacred
honour of the nation lies with their party, but that on the other
side there lies hopeless ruin. The man who urges this dogma must
keep a very solemn face, for if he were to bring it out with a
twinkle in his eye, he would destroy the force of his suggestion.
The voter, too, is serious in his duties as a citizen,
and demands of the candidates this extremely practical mien
and solemn party arrogance. But when the same citizen
talks the matter over with his friends, he is no longer a
stickler for party, but a voicer of public opinion, and he sees
at once the humour of the situation. He punctures the party
bubbles with well-aimed ridicule. So it happens that the population
is more ruled by humour here than anywhere else, while the
party leaders stand up, at least before the public, in the most solemn
guise. Just as in some American states the men drink wine
at home, but at official banquets call for mineral water; so out
of the political harness one may commit excesses of humour, but
in it one must be strictly temperate. This is, of course, the reverse
of the well-known English method, where the masses are
rather dull, while the leaders are famous wits and cynics. America
would never allow this. When one meets leading politicians or
members of the Cabinet in a social way, one is often amazed at
their ready wit, and feels that these men have decidedly the capacity
to shine as do their English colleagues. But that would wreck
the party service. The people are sovereign; public opinion has,
therefore, the right to ironical humour, and can smilingly look down
on the parties from a superior height; while those who play the
party game of government have still to keep demure and sober.
In England it is the Cabinet, in America public opinion, which
assumes the gentle rôle of wit. Hardly could the contrast between
aristocracy and democracy be more clearly exemplified.
If some one should ask who makes public opinion, he might
well be referred at first to that class which at present does not enjoy
the suffrage, and presumably will not for some time to come—the
women. The American woman cares little enough for party
politics, and this is not so much because she has no rights. If she
had the interest she probably would have the rights. But while
the best people have no wish to see the women mix in with the
routine of party machinery, this is not at all in order that they
145may not concern themselves with the public problems of the day.
On the contrary, women exert a marked influence on public opinion;
and here, as might be expected, it is not the organized
crusades, like the temperance movement, which count, but rather
their less noisy demonstrations, their influence in the home and
their general rightness of feeling. Every reform movement which
appeals to moral motives is advanced by the public influence of
women, and many a bad piece of jobbery is defeated by their instrumentality.
If the boundaries between the sexes are forgotten in the matter
of public opinion, so even more are those between the various
classes. Public opinion is not weakened by any class antipathies.
To be sure, every profession and occupation has its peculiar interests,
and in different quarters the public opinion takes on somewhat
different hues; the agricultural states have other problems
than the industrial; the South others than the North; and the mining
districts still others of their own. But these are really not differences
of public opinion, but different sectors of the one great circle.
In spite of the diverse elements and the prejudices which go to
make up public opinion, it is everywhere remarkably self-consistent.
This is because it is the voice of insight, conscience, and
brotherly feeling, as against that of carelessness, self-interest, and
exclusiveness. The particular interests of capital and labour, of
university and primary school, of city and country, have not their
special representatives at the court of public opinion. And least
in evidence of all, of course, are the officials and professional politicians.
These men are busy in strictly party affairs, and have no
time to dabble in the clear stream of public opinion. At best, a
few distinguished senators or governors, together with the President
and an occasional member of the Cabinet, come to have an
immediate influence on public opinion.
The springs of public opinion flow from the educated and substantial
members of the commonwealth, and are often tinged at
first with a very personal colouring; but the streamlets gather and
flow far from their sources and every vestige of the personal is lost.
Ideas go from man to man, and those which are typically American
find as ready lodgment with the banker, the manufacturer, or
the scholar as with the artisan or the farm-hand. Any man who
appeals to the conscience, morality, patriotism, or brotherly feeling
146of the American, or to his love of progress and order, appeals
to no special parties or classes, but to the one public opinion, the
community of high-minded citizens to the extent of their disinterestedness.
Yet even such a public opinion requires some organization and
support. Bold as the statement may sound, the American newspaper
is the main ally of public opinion, serving that opinion more
loyally than it serves either official politics or the party spirit. The
literary significance of the newspaper we shall consider in another
connection, but here only its public influence. An American
philosophizing on the newspapers takes it as a matter of course
that they serve the ends of party politics; and it is true enough
that party life as it is would not be possible without the highly disseminated
influence of the newspaper. A German coming to the
country is apt to deny it even this useful function. He is acquainted
in Europe with those newspapers which commence on the first
page with serious leading articles, and relegate the items of the
day to a back page along with the advertisements. But here he finds
newspapers which have on the first pages not a word of editorial
comment and hardly even a serious piece of politics—nothing, in
fact, but an unspeakable muddle of undigested news items; and as
his eye rests involuntarily on the front page, with its screaming
headlines in huge type, he will find nothing but crimes, sensational
casualties, and other horrors. He will not before have realized
that the devouring hunger of the American populace for the daily
news, has brought into existence sheets of large circulation adapted
to the vulgar instincts of the millions, the giant headlines of which
warn off the educated reader from as far as he can see them; that
paper is not for him. But a foreigner does not realize the injustice
of estimating the political influence of the press from a
glance at these monstrosities, which could not thrive abroad, not
so much because the masses are better and more enlightened as
because they care less about reading. Moreover, he will come
slowly to realize that what he missed from the front page is somewhere
in the middle of the paper; that the street-selling makes it
necessary to make the most of sensations on the outside, and to
put the better things where they are better protected. And so
he learns that the American newspaper does express opinions,
although its looks belie it.
147The better sort of American newspaper is neither a party publication
nor yet merely a news-sheet, but the conscious exponent of
public opinion. Its columns contain a tiresome amount of party
information, it is true; but a part of this is directly in the interests
of an intelligent public opinion, since every citizen needs to be
instructed in all the phases of party life, of political and congressional
doings, and in regard to the candidates who are up for office.
It is to be admitted, moreover, that some of the better newspapers,
although not the very best, are unreservedly committed to the
leaders of some party—in short, are party organs. In the same
way several newspapers are under the domination of certain industrial
interests and cater to the wishes of a group of capitalists.
But any such policy has to be managed with the utmost discretion,
for the American newspaper reader is far too experienced to
buy a sheet day after day which he sees to be falsified; and
he has enough others to resort to, since the competition is always
keen, and even middle-sized cities have three or four large daily
papers.
It is perhaps fortunate that any such extreme one-sidedness is
not to the commercial advantage of the newspapers, for in America
they are preëminently business enterprises. Their financial success
depends in the first place on advertisements, and only secondarily
on their sales in the streets. The advertising firm does
not care whether the editorials and news items are Republican or
Democratic, but it cares very much about the number of copies
which are circulated; and this depends on the meritorious features
which the paper has over competing sheets. Newspapers like
the German, which count on only a small circle of readers, and
these assured, at least for the time being, by subscriptions, can far
more readily treat their readers cavalierly and constrain their attention
for a while to a certain party point of view. In an American
city the daily sales are much greater than the subscriptions,
and the sheets which get the most trade are those which habitually
treat matters from all sides, and voice opinions which fall in with
every point of view. Of course, this circumstance cannot prevent
every paper from having its special political friends and foes, its
special hobbies, its own style, and, above all, its peculiar material
interests. But, on the whole, the American newspaper is extraordinarily
non-partisan on public questions, notwithstanding the
148statements in many German books to the contrary; and the ordinary
reader might peruse a given paper for weeks, except just
on the eve of an election, without really knowing whether it was
Republican or Democratic. Now one party and now the other is
brought up for criticism, and even when the sheet is distinctly in
favour of a certain side, it will print extracts from the leading articles
of opposing journals, and so well depict the entire situation
that the reader can form an opinion for himself.
While the newspapers are in this way largely emancipated from
the yoke of parties, they are the exponents of a general set of tendencies
which, in opposition to party politics, we have called public
opinion. In other words, the papers stand above the parties with
their crudely schematic programmes and issues, and aspire to
measure men and things according to their true worth. Though
ostensibly of one party, a journal will treat men of its own side to
biting sarcasm, and magnanimously extol certain of its opponents.
The better political instincts, progress and reform, are appealed to;
and if doubtful innovations are often brought in and praised as reforms,
this is not because the newspaper is the organ of a party, but
rather of public sentiment, as it really is or is supposed to be. The
newspaper reflects in its own way all the peculiarities of public
opinion—its light-heartedness and its often nervous restlessness,
its conservative and prudent traits, its optimism, and its ethical
earnestness; above all, its humour and drastic ridicule. It is well
known that the American newspaper has brought the art of political
caricature to perfection. The satirical cartoon of the daily
paper is of course much more effective than that of the regular
comic papers. And these pictures, although directed at a political
opponent, are generally conceived in a broader spirit than that of
any party. The cap and bells are everywhere in evidence, and
there is nothing dry or pedantic. From the dexterous and incisive
leading article to the briefest jottings, one notes the same
good humour and playful satire which are so characteristic of public
opinion. This general humorous turn makes it possible to
give an individual flavour to the most ordinary pieces of daily
news, so that they have a bearing considerably broader than the
bare facts of the case, and may conceivably add their mite to public
opinion. And herewith a special newspaper style has come in,
a combination of a photographically accurate report and the
149whimsical feuilleton. Thus it happens that the best papers editorially
persuade where they cannot dictate to their readers, and
so, apart from party politics, nourish public opinion and create
sentiment for or against persons, and legislative and other measures,
while ostensibly they are merely giving the news of the last
twelve hours.
There is another distinctly American invention—the interview.
Doubtless it was first designed to whet the reader’s curiosity with
the piquant suggestion of something personal or even indiscreet.
In Europe, where this form of reporting is decidedly rudimentary,
it usually evinces neither tact nor taste; whereas in America it is
really a literary form, and so familiar now as to excite no remark.
It has come to be peculiarly the vehicle of public opinion, as opposed
to party politics. The person interviewed is supposed to
give his personal opinions, and it is his authority as a human personality
which attracts the reader. A similar function is served
by the carefully selected letters to the editor, which take up a considerable
space in the most serious sheets.
The outer form of the newspaper is a matter really of the technical
ability of the American, rather than of his political tastes; and it
is to be observed at once that the general appearance, and above all,
the whole system of getting and printing news rapidly, is astonishing.
Every one has heard of the intrepid and fertile reporters, and
how on important occasions they leave no stone unturned to obtain
the latest intelligence for their papers. But the persistence
of these men is less worthy of note than the regular system by
which the daily news is gathered and transmitted to every paper
in the land. With an infallible scent, a pack of reporters follows
in the trail of the least event which may have significance for the
general public. A good deal of gossip and scandal is intermingled,
to be sure, and much that is trivial served up to the readers; but
granted for once, that millions in the lower classes, as members of
the American democracy, wish, and ought to wish, to carry home
every night a newspaper as big as a book, then, of course, such a
hunger for fresh printed matter can be satisfied only by mental
pabulum adapted to the vulgar mind. The New York Evening
Post will have nothing of this sort; it appeals more to bank directors
and professors; but shop-hands prefer the World. It is the
same as with the theatres; if the ordinary citizen is prosperous
150enough to indulge frequently in an evening at the theatre, then, of
course, melodrama and farce will become the regular thing, since
the common man must always either laugh or cry.
The lightning news service is, of course, somewhat superficial
and frequently in error, not to say that it is served up often with
the minimum of taste; but the readers gladly take the risk of mistakes
for the sake of the greater advantage it is to public opinion
to have a searchlight which penetrates every highway and byway,
showing up every sign of change in the social or political situation,
and every intimation of danger.
And if reporters are accused of being indiscreet, one must first
inquire whether the fault does not really lie with some one or other
who, while pretending to shrink from publicity, really wants to see
his name in the paper. Anyone familiar with the newspapers of
the country knows that he is perfectly safe in telling any editor, and
even any reporter, whatever he likes if he adds the caution that he
does not wish it given out. It will not be printed. The American
journalist is usually a gentleman, and can be relied on to be
discreet. The principal journalists and editors of the leading
newspapers are among the ablest men of the country, and they
often go over to important political positions and become even
ministers and ambassadors.
The powerful influence of the American newspapers is outwardly
displayed in the sumptuous buildings which they occupy.
While in Europe the newspapers are published generally in very
modest quarters, where the editors have to sit in dingy rooms, the
buildings of the American newspapers compare favourably with
the best commercial edifices; and the whole business is conducted
on an elaborate scale. Scarcely less astonishing are their achievements
in the way of illustration. While the most select papers decline
on principle to appeal to the taste for sensation, many large
papers have yielded to the demand, and have brought the technique
of illustration nearly to perfection. A few hours after any event
they will have printed a hundred thousand copies of the paper
with pictures taken on the spot, and reproduced in a manner of
which any European weekly might well be proud.
Taken all in all, the American press very worthily represents
the energy, prosperity, and greatness of the American nation; and
at the same time with its superficial haste, its vulgarity and excitability,
151with its lively patriotism and irrepressible humour, it
clearly evinces the influence of democracy. The better the paper
the more prominent are the critical and reflective features; while
the wider the circulation, the more noticeable are the obtrusive
self-satisfaction and provincialism, and the characteristic disdain
of things European. Going from the East to the West, one finds a
fairly steady downward gradation in excellence, although some
samples of New York journalism can vie for crude sensationalism
with the most disgusting papers of the Wild West. And yet the
best papers reach a standard which in many respects is higher
than that of the best journals of the Old World. A paper like the
Boston Transcript will hardly find its counterpart in the German
newspaper world; and much good can be said of the Sun, Tribune,
Times, and Post in New York, the Star in Washington,
the Public Ledger in Philadelphia, the Sun in Baltimore, the
Eagle in Brooklyn, the Tribune in Chicago, the Herald in Boston,
the Evening Wisconsin in Milwaukee, and many others which
might be named. Even small cities like Springfield, Massachusetts,
produce such large and admirable papers as the Springfield
Republican. And to be just, one must admit that the bad papers
could be condensed into tolerably good ones by a liberal use of the
blue pencil. For their mistakes lie not so much in their not having
good contributions as in their inclusion of crude and sensational
material by way of spice. Very often the front page of a paper
will be overrun with the most offensive scandals, caricatures, and
criminal sensations, while the ninth and tenth pages will offer
editorials and other articles of decided merit. The newspapers
which care only for a large circulation will have something for
everybody; and they are not far out of the way in calculating that
the educated reader who looks first at the editorials and political
dispatches, will have enough that is unregenerate in his soul to
make him relish a sideward glance at the latest sensational reports.
The newspaper is content on the whole not to bore its
readers, and to hold a close rein on public opinion rather than on
party politics.
With all this, it is not to be denied that there are lower motives
which degrade journalism. One of the chief temptations lies in
the amalgamation of newspaper politics and party activities. The
editor who, in the interests of public opinion, scans all the parties
152with a critical eye and professes to be impartial, is for this very reason
the more tempted to misuse his position for private gain. He
may diligently support one party in the name of impartiality and
fairness, while in reality he counts on a remunerative office if that
party is successful; and from this point the steps are few to the
moral state of those who attack a certain party or an industrial
enterprise in order to discover the error of their position on receipt
of a sufficient compensation. The energy with which some
newspapers stand up for certain financial interests casts grave
doubt on their personal independence; and yet direct bribery plays
an exceedingly small role, and the government or a foreign country
is never the corrupting influence. Very much more important are
the vanity and selfishness of newspaper proprietors, who for one
reason or another choose to lead the public astray. But such perversities
are less dangerous than one might think, for the American
newspaper reader reads too much and is politically too discerning
to take these newspapers at their face value. The mood induced
by one paper is corrected by another; and while the journalist is
tickled at his own shrewdness in writing only what his readers will
like, the reader slyly preserves his self-respect and belief in his own
critical ability, by hunting out everything with which he does not
agree and reading that carefully. If the journal is above the
party, the reader is above the journal, and thus it is that the newspapers
are the most influential support of public opinion.
In this, however, they do not enjoy a monopoly; beside them
are the weekly and monthly papers. Here again we shall consider
their literary merits in another connection, but their greatest
significance lies in their influence on public opinion. The political
efforts of the weekly papers are mostly indirect; they deal primarily
with practical interests, religious and social problems, and
literary matters; but the serious discussions are carried on as it
were against a political background which lends its peculiar hue
to the whole action. The monthly magazines are somewhat more
ambitious, and consider politics more directly. In their pages,
not merely professional politicians, but the very ablest men of the
nation, are accustomed to treat of the needs and duties of city and
state; and these discussions are almost never from a one-sided
point of view. A magazine like the North American Review
usually asks representatives of both parties to present their opinions
153on the same question; and a similar breadth of view is adopted
by the Atlantic Monthly, the Review of Reviews, and other
leading monthlies, whose great circulation and influence are hardly
to be compared with similar magazines of Europe. The point of
view common to all is that of a very critical public opinion, well
above party politics and devoted to national reform and everything
which makes for progress and enlightenment. Much the
same can be said of those magazines which combine politics
with literature and illustrations, such as the Century, Harper’s,
Scribner’s, McClure’s, and many others. When McClure’s Magazine,
for example, presents to its half-million readers month after
month an illustrated history of the Standard Oil Trust, every page
of which is an attack on secret evasions of the law, it is not serving
the interests of any party, but is reading public opinion a lesson.
The spoken word vies with the printed. The capacity of
Americans, and especially of the women, to listen to lectures is
well-nigh abnormal. And in this way social and political propagandas
find a ready hearing, although a purely party speech
would not be effective outside of a party convention. The wit
and pathos of the speaker generally reach a level considerably
above mere matters of expediency, and appeal to public opinion
from a broadly historical point of view. The dinner speaker is
also a power, since he is not constrained, as in Germany, to sandwich
his eloquence in between the fish and game or to make every
speech wind craftily around and debouch with the inevitable
“dreimal Hoch.” He is quite at liberty to follow either his whims
or his convictions, and herein has come to be a recognized spring
of public opinion.
Finally, somewhat the same influence is exerted by the countless
clubs and associations, and the various local and national societies
which are organized for specific ends. Every American of the
better sort belongs to any number of such bodies, and although
concerning two-thirds of them he knows no more than that he pays
his dues, there is left a third for which he sincerely labours. There
is much in these organizations which is one-sided, egotistical, and
trivial, and yet in the most of them there is something which is
sound and right. There is not one at least which fails to strengthen
the conviction that every citizen is called to be the bearer of
public opinion. Just as the parties complain that the voters neglect
154the routine duties of the organization, so to be sure do the
strenuous reformers of the country complain that the ranks behind
them informally break step. But the main thing is that
behind them there is a host, and that public opinion is to-day as
thoroughly organized as the official parties, and that it sees each
day more clearly that its qualitative effect on the national life is
at least equally important with the quantitative efficacy of the
parties.
Every important question is treated by both organizations, public
opinion, and the parties. At the approach of a great election
the parties create such a stir and bustle that for a couple of months
the voice of public opinion seems hushed. Party tactics rule the
day. But on the other hand, public opinion has its own festivals,
and above all, works on tirelessly and uninterruptedly, except for
the short pause just before elections. Public opinion reacts
equally on both parties, forces them to pass laws that the politicians
do not relish, and to repeal others that the politicians would
gladly keep; and, ignoring these men, it brings the public conscience
to bear on the issues to be pressed, the candidates to be
nominated, and the leaders to be chosen.
155
We have surveyed public opinion and party politics as two
distinct factors in the American national consciousness,
as two factors which are seldom in complete agreement,
and which are very often in sharp opposition, but which finally
have to work together like an upper and lower legislative chamber
in order to solve the problems of the day. We have not the space
to speak minutely of all these problems themselves with which the
American is at the present moment occupied; since the politics of
the day lie outside of our purpose. This purpose has been to
study that which is perennial in the American spirit, the mental
forces which are at work, and the forms in which these work themselves
out. But the single questions on which these forces operate,
questions which are to-day and to-morrow are not, must be
left to the daily literature. It is our task, however, to indicate
briefly in what directions the most important of these problems
lie. Every one of them would require the broadest sort of handling
if it were to be in the least adequately presented.
So many problems which in European countries occupy the
foreground, and which weigh particularly on the German mind,
are quite foreign to the American. Firstly, the church problem as
a political one is unknown to him. The separation of church and
state is so complete, and the results of this separation are viewed
on all sides with so much satisfaction, that there is nowhere the
least desire to introduce a change. It is precisely in strictly religious
circles that the entire independence of the church is regarded
as the prime requisite for the growth of ecclesiastical influence.
Even the relations between the church and party politics are distinctly
remote, and the semi-political movements once directed
against the Catholic Church are already being somewhat forgotten.
156There is no Jesuit question, and the single religious order which
has precipitated a real political storm has been the sect of Mormons,
which ecclesiastically sanctions an institution that the
monogamous laws of the nation forbid. Even here the trouble has
been dispelled by the submission of the Mormon Church.
As a matter of course, America has also never known a real conflict
between the executive and the people. The government
being always elected at short intervals by the people and the head
of the state with his Cabinet having no part in legislation, while
his executive doings merely carry out the wishes of the dominant
political party, of course no conflicts can arise. To be sure, there
can be here and there small points of friction between the legislative
and executive, and the President can, during his four years
of office, slowly drift away from the party which elected him, and
thus bring about some estrangement; but even this would only be
an estrangement from the professional politicians of his party.
For experience has shown that the President, and on a smaller
scale the governor of a state, is successful in breaking with his
party only when he follows the wishes of public opinion instead of
listening to the dictates of his party politicians. But in that case
the people are on his side. One might rather say that the conflicts
between government and people, which in Europe are
practically disputes between the government and the popular
representatives of political parties, repeat themselves in America
in the sharp contrast between public opinion on the one hand
and the united legislative and executive on the other; since the
government is itself of one piece with the popular representation.
Public opinion, indeed, preserves its ancient sovereignty as
against the whole system of elections and majorities.
There is another vexation spared to the American people; it
has no Alsace-Lorraine, no Danish or Polish districts; that is,
it has no elements of population which seek to break away from
the national political unity, and by their opposition to bring about
administrative difficulties. To be sure, the country faces difficult
problems of population, but there is no group of citizens struggling
to secede; and in the same way the American has nothing in the
way of emigration problems. Perhaps one may also say finally
that social democracy, especially of the international variety, has
taken such tenuous root that it can hardly be called a problem,
157from the German point of view. For although there is a labour
question, this is not the same as social democracy. The labour
movements, as part of the great economic upheaval, are certainly
one of the main difficulties to be overcome by the New World; but
the social democratic solution, with its chiefly political significance,
is essentially unknown to the American. All this we shall have to
consider in other connections. Although this and that which
worry the European appear hardly at all in American thought, there
is, on the other hand, a great sea of problems which have mercifully
been spared to the European. It is due to the transitional
quality of our time that on this sea of problems the most tempestuous
are those of an economic character. The fierce conflicts of
recent Presidential elections have been waged especially over the
question of currency, and it is not until now that the silver programme
may be looked on as at least provisionally forgotten.
These conflicts were immediately preceded by others which concerned
protection and free-trade, and the outlook is clear that these
two parties will again meet each other in battle array.
Meanwhile the formation of large trusts has loomed up rapidly
as a problem, and in this one sees the real influence of public opinion
as against that of party politics, since both parties would doubtless
have preferred to leave the trusts alone. At the same time
the great strikes, especially that of the Pennsylvania coal districts,
have brought the conflicts between capital and labour so clearly to
the national consciousness that the public attention is strained on
this point. Others say that the most serious economic problem
of the United States is the irrigation of the parched deserts of the
West, where whole tracts of land, larger than Germany, cannot
be cultivated for lack of water; while American engineers,
however, now think it entirely possible with a sufficient outlay of
money to irrigate this region artificially. Still others regard the
tax issue as of prime importance; and the circle of those who believe
in single-tax reform is steadily growing. Every one agrees
also that the status of national banks needs to be extensively
modified; that the reckless devastation of forests must be stopped;
and that the commercial relations between the states must be regulated
by new laws. Some are hoping for new canals, others for the
subvention of American ships. In short, the public mind is so
filled with important economic questions that others which are
158merely political stand in the background; and, of course, political
questions so tremendous as was once that of independence
from England and the establishment of the Federation, or later,
the slave question and the secession of the South, have not come
up through four happy decades.
Besides the economic problems there are many social problems
which appear in those quarters where public opinion is best organized,
and spread from there more and more throughout
political life; such are the question of woman’s suffrage, and the half
economic and half social problem of the extremes between poor
and rich, extremes which were unknown to the New World in the
early days of America and even until very recent times. The unspeakable
misery in the slums of New York and Chicago, in which
the lowest immigrants from Eastern Europe have herded themselves
together and form a nucleus for all the worst reprobates of
the country, is an outcome of recent years and appeals loudly to
the conscience of the nation. On the other side, the fatuous extravagance
of millionaires threatens to poison the national sense
of thrift and economy.
Among these social problems there belongs specially the earnest
desire of the best citizens to develop American art and science at
a pace comparable with the extraordinary material progress of the
country. Doubtless the admirable results which have here been
obtained, came from the extraordinary earnestness with which
public opinion has discussed these problems. The great development
of universities, the increase in the number of libraries and
scientific institutions, the creation of museums, the observance of
beauty in public buildings, and a hundred other things would
never have come about if public opinion had let things go their own
way; here public opinion has consciously done its duty as a governing
power. Somewhat nearer the periphery of public thought
there are various other social propagandas, as that for the relief of
the poor and for improving penal institutions; the temperance
movement is flourishing, and the more so in proportion as it gives
up its fanatical eccentricities. Also the fight against what the
American newspaper reader calls the “social evil,” attracts more
and more serious attention.
Besides all these, there is a considerable number of purely political
problems; first among these are the problems of population,
159and notably the questions of immigration and of the negro; then
come internal problems of government, such as civil service and
municipal reforms, which especially engage the public eye; finally,
the problems of external politics, in which the watchwords of imperialism
and the Monroe Doctrine can be heard shouted out above
all others. At least we must briefly take our bearings, and see why
these problems exist, although the treatment cannot be exhaustive.
The first issue in the problem of population is, as we have said,
that which concerns immigration; and this is just now rather up
before public opinion since the last fiscal year which was closed
with the beginning of July, 1903, showed the largest immigration
ever reached, it being one-tenth greater than the previous record,
which was for the year ending in 1882. The facts are as follows:
The total immigration to the United States has been twenty million
persons. The number of those who now live in the United States,
but were born in foreign countries, is more than ten millions; and
if we were to add to these those who, although born here, are of
foreign parentage, the number comes up to twenty-six millions.
Last year 857,000 immigrants came into the country. Out of the
ten millions of the foreign-born population, 2,669,000 have come
from Germany, and 1,619,000 from Ireland.
The fluctuations in immigration seem to depend chiefly on the
amount of prosperity in the United States, and, secondly, on the
economic and political conditions which prevail from year to year
in Europe. Up to 1810 the annual immigration is estimated to
have been about 6,000; then it was almost wholly interrupted for
several years, owing to the political tension between the United
States and England; as soon as peace was assured the immigration
increased in 1817 to 20,000; and in the year 1840 to 84,000. The
hundred thousand mark was passed in 1842, and from then on the
figure rose steadily, until in 1854 it amounted to 427,000. Then
the number fell off rapidly. It was a time of business depression
in the United States, and, moreover, the slavery agitation was already
threatening a civil war. The immigration was least in 1861,
when it had sunk to 91,000. Two years later it began to rise
again, and in 1873 was almost half a million. And again there
followed a few years of business depression, with its correspondingly
lessened immigration. But the moment economic conditions
improved, immigration set in faster than ever before, and in
1601882 was more than three-quarters of a million. Since 1883 the
average number of persons coming in has been 450,000, the variation
from year to year being considerable. The business reverses
of 1893 cut the number down to one-half, but since 1897 it has
steadily risen again.
Such bare figures do not show that which is most essential from
the point of view of public opinion, since the quality of the immigration,
depending as it does on the social condition of the countries
from which it comes, is the main circumstance. In the
decade between 1860 and 1870, 2,064,000 European wanderers
came to the American shores; of these 787,000 were Germans,
568,000 English, 435,000 Irish, 109,000 Scandinavians, 38,000
Scotch, and 35,000 French. Now for the decade between 1890
and 1900 the total number was 3,844,000; of these Germany contributed
543,000, Ireland 403,000, Norway and Sweden 325,000,
England 282,000, Scotland 60,000, and France 36,000. On the
other hand, we find for the first time three countries represented
which had never before sent any large number of immigrants;
Italy, Russia, and Austria-Hungary. In the decade ending 1870
there were only 11,000 Italians, 7,000 Austrians, and 4,000 Russians,
while in the decade ending in the year 1900 the Russian
immigrants, who are mostly Poles and Jews, numbered 588,000,
the Austrian and Hungarian 597,000, and the Italian no less
than 655,000; and the proportion of these three kinds of immigrants
is steadily increasing. In the year 1903 Germany sent
only 40,000, Ireland 35,000, and England 26,000; while Russia
sent 136,000, Austria-Hungary 206,000, and Italy 230,000. Herein
lies the problem.
A few further figures may help to make the situation clearer.
For instance, it is interesting to know what proportion of the total
emigration from Europe came to America. In round numbers
we may say that since 1870 Europe has lost 20,000,000 souls by
emigration, and that some 14,000,000 of these, that is, more than
two-thirds, have ultimately made their homes in the United States
of America. Of the German emigrants some 85 or 90 per cent.
have gone to the United States; of the Scandinavian as many as
97 per cent.; while of the English and Italian only 66 and 45 per
cent. respectively. It is worth noting, moreover, that in spite of
the extraordinary increase in immigration, the percentage of
161foreign-born population has not increased; that is, the increase
of native-born inhabitants has kept up with the immigration. In
1850 there were a few more than two million foreign-born inhabitants,
in 1860 more than four millions, in 1870 there were five and
a half millions, in 1880 six and a half millions, in 1890 nine and
a quarter millions, and in 1900 ten and one-third millions. In
1850 these foreigners amounted, it is true, to only 11 per cent. of
the population; but in 1860 they had already become 15 per cent.
of the whole, and diminished in 1870 to 14.4 per cent., in 1880 to
13.3 per cent.; in 1890 they were 14.8 per cent., and in 1900 13.6
per cent.
The State of New York has the largest number of foreigners,
and in the last fifty years the percentage of foreigners has risen
steadily from 21 per cent. to 26 per cent. Pennsylvania stands
second in this respect, and Illinois third. On the other hand, the
small states have the largest percentage of foreign population.
North Dakota has 35 per cent. and Rhode Island 31 per cent.
The Southern states have fewest foreigners of any. These figures
are, of course, greatly changed if we add to them the persons who
were not themselves born in other countries, but of whom one or
both parents were foreigners. In this way the foreign population
in the so-called North Atlantic States is 51 per cent., and is
34 per cent. throughout the country. If a foreigner is so defined,
the cities of New York and Chicago are both 77 per cent. foreign.
These figures are enough by way of mere statistics. The thing
which arouses anxiety is not the increasing number of immigrants,
but the quality of them, which grows continually worse. Just fifty
years ago the so-called Know-Nothings made the anti-foreign
sentiment the chief plank of their programme, but the “pure”
American propaganda of the Know-Nothings was forgotten in the
excitement which waged over slavery; and the anti-foreign issue
has never since that time been so brutally stated. There has always
been much objection to the undeniable evils involved in this
immigration, and the continual cry for closer supervision and restriction
of immigration has given rise to several new legal measures.
Partly, this movement has been the expression of industrial
jealousy, as when, for instance, Congress in 1885, in an access of
protectionist fury, forbade the immigration of “contract labour,”
that is, forbade any one to land who had already arranged to fill
162a certain position. This measure was meant to protect the workmen
from disagreeable competition. But right here the believers
in free industry object energetically. It is just the contract labour
from the Old World which brings new industries and a new development
of old industries into the country, and such a quickening
of industry augments the demand for labour to the decided
advantage of native workmen. The law still stands in writing,
but in practice it appears to be extensively corrected, since it is
very easily evaded.
The more important measures, however, have arisen less from
industrial than from social and moral grounds. Statistics have
been carefully worked up again and again in order to show
that the poor-houses and prisons contain a much larger percentage
of foreigners than their proportionate numbers in the community
warrant. In itself this will be very easy to understand,
owing to the unfavourable conditions under which the foreigner
must find himself, particularly if he does not speak English, in his
struggle for existence in a new land. But most striking has been
the manner in which the magic of statistics has shown its ability
to prove anything it will; for other statistics have shown that if certain
kinds of crime are considered, the foreign-born Americans
are the best children the nation has. The question of illiteracy
has been discussed in similar fashion. The percentage of
immigrants who can neither read nor write has seemed alarmingly
high to those accustomed to the high cultivation of the northeastern
states, but gratifyingly small to those familiar with the
negro population in the South. One unanimous opinion has been
reached; it is that the country is bound to keep out such elements
from its borders as are going to be a public burden. At first idiots
and insane persons, criminals, and paupers made up this undesirable
class, but the definition of those who are not admitted to the
country has been slowly broadened. And since the immigration
laws require the steamship companies to carry back at their own
expense all immigrants who are not allowed to land, the selection
is actually made in the European ports of embarkation. In this
wise the old charge that the agents of European packet companies
encouraged the lowest and worst individuals of the Old World to
expend their last farthing for a ticket to the New World, has
gradually died out. Nevertheless, in the last year, 5,812 persons
163were sent back for lack of visible means of support, 51 because
of criminal record, and 1773 by reason of infectious diseases.
The fact remains, however, that the social mires of every large
city teem with foreigners, and that among these masses the
worst evils of municipal corruption find favourable soil, that all
the sporadic outbreaks of anarchy are traceable to these foreigners,
and that the army of the unemployed is mostly recruited from
their number. These opinions were greatly strengthened when
that change in the racial make-up set in which we have followed by
statistics, and which a census of the poorer districts in the large
cities quickly proves: Italians, Russian Jews, Galicians, and
Roumanians everywhere. The unprejudiced American asks with
some concern whether, if this stream of immigration is continued,
it will not undermine the virility of the American people.
The American nation will continue to fulfil its mission so long as
it is inspired with a spirit of independence and self-determination;
and this instinct derives from the desire of freedom possessed by
all the Germanic races. In this way the German, Swedish, and
Norwegian newcomers have adapted themselves at once to the
Anglo-Saxon body politic, while the French have remained intrinsically
strangers. Their number, however, has been very
small. But what is to happen if the non-Germanic millions of
Italians, Russians, and Turks are to pour in unhindered? It is
feared that they will drag down the high and independent spirit
of the nation to their low and unworthy ideals. Already many
citizens wish to require of the immigrants a knowledge of the
English language, or to make a certain property qualification by
way of precaution against unhappy consequences, or perhaps to
close entirely for awhile the portals of the nation, or, at least, to
make the conditions of naturalization considerably harder in
order that the Eastern European, who has never had a thought
of political freedom, shall not too quickly receive a suffrage in the
freest democracy of the world. And those most entitled to an
opinion unconditionally demand at the least the exclusion of all
illiterates.
Against all this there stand the convictions of certain rather
broader circles of people who point with pride at that great American
grist-mill, the public school, which is supposed to take the
foreign youth into its hopper, grind him up quickly and surely, and
164turn him out into good American material. It is, in fact, astonishing
to look at the classes in the New York schools down on the
East Side, where there is not a child of American parentage, and
yet not one who will admit that he is Italian, Russian, or Armenian.
All these small people declare themselves passionately to be
“American,” with American patriotism and American pride; and
day by day shows that in its whole system of public institutions
the nation possesses a similar school for the foreign-born adult.
Grey-haired men and adolescent youths, who in their native countries
would never have emerged from their dull and cringing existence,
hardly touch the pavement of Broadway before they find
themselves readers of the newspaper, frequenters of the political
meetings, and in a small way independent business men; and they
may, a few years later, be conducting enterprises on a large scale.
They wake up suddenly, and although in this transformation
every race lends its own colour to the spirit of self-determination,
nevertheless the universal trait, the typical American trait, can
appear in every race of man, if only the conditions are favourable.
In the same direction it is urged once more that America needs
the labour of these people. If Southern and Eastern Europe had
not given us their cheaper grades of workmen, we should not have
been able to build our roads or our railroads, nor many other
things which we have needed. In former decades this humble
rôle fell to the Germans, the Scandinavians, and the Irish, and the
opposition against their admission was as lively as it now is against
the immigrants from the south and east of Europe; while the development
of the country has shown that they have been an economic
blessing; and the same thing, it is said, will be true of the
Russians and Poles. There are still huge territories at our disposal
which are virtually unpopulated, untold millions can still
employ their strength to the profit of the whole nation, and it
would be madness to keep out the willing and peaceable workers.
Moreover, has it not been the proud boast of America that her
holy mission was to be a land of freedom for every oppressed individual,
an asylum for every one who was persecuted? In the
times then of her most brilliant prosperity is she to be untrue to
her noble role of protectress, and leave no hope to those who have
been deprived of their human rights by Russian or Turkish
despots, by Italian or Hungarian extortionists, to disappoint their
165belief that at least in the New World even the most humble man
has his rights and will be received at his true value? Thus the
opinions differ, and public opinion at large has come as yet to no
decision.
A curious feature in the immigration problem is the Chinese
question, which has occasioned frequent discussion on the Pacific
coast. The Chinaman does not come here to enjoy the blessings
of American civilization, but merely in order to earn a competence
in a short time so that he can return to his Asiatic home and be
forever provided for. He does not bring his family with him, nor
attempt in any way to adapt himself; he keeps his own costume,
stays apart from his white neighbours, and lives, as for instance
in the Chinese Quarter of San Francisco, on such meagre nourishment
and in such squalid dwellings that he can save up wealth
from such earnings as an American workman could hardly live on.
A tour through the Chinese sleeping-rooms in California is in fact
one of the most depressing impressions which the traveller on
American soil can possibly experience. The individuals lie on
large couches, built over one another in tiers, going quite up to the
ceiling; and in twenty-four hours three sets of sleepers will have
occupied the beds. Under such conditions the number of newcomers
steadily increased because large commercial firms imported
more and more coolie labour. Between 1870 and 1880
more than 122,000 had come into the country. Then Congress
began to oppose this immigration, and since 1879 has experimented
with various laws, until now the Chinese workman is almost
wholly excluded. According to the last census there were only
81,000 Chinese in the whole United States.
More attractive than the yellow immigrants to these shores are
the red-skinned aborigines of the land, the Indians, whom the
Europeans found when they landed. The world is too much inclined,
however, to consider the fate of the Indian in a false light,
just because his manner of life captures the fancy and his picturesque
barbarity has often attracted the poet. The American
himself is rather inclined to see in his treatment of the Indian a
grave charge against his own nation, and to find himself guilty of
the brutal extermination of a native race. To arrive at such an
opinion he assumes that in former centuries great tribes of Indians
scoured the tremendous hunting-grounds of the land. But science
166has done away with this fanciful picture, and we know to-day that
these millions of natives never existed. There are to-day about
270,000 Redskins, and it is very doubtful whether the number was
ever much greater. It is true, of course, that between Central
America and the Arctic Sea, hundreds of different Indian languages
were spoken, and many of these languages have twenty or
thirty different dialects. But the sole community in which such
a dialect developed would include only a few hundred persons, and
broad tracts of land would lie between the neighbouring communities.
They used to live in villages, and wandered over the country
only at certain seasons of the year in order to hunt, fish, and collect
fruits.
As soon as the European colonies established themselves in the
country the Indians used to take part in their wars, and on such
occasions were supplied by the colonists with arms and employed
as auxiliary forces. But the delights of these new methods of warfare,
which they learned quickly, broke up their own peaceful life.
The new weapons were employed for war between the Indian
races, and eventually were turned by the Indians against the
white settlers themselves. But, after all, the peaceful contact of
Indians and whites was more productive of results. Only the
French and Spanish permitted a mixture of the races, and in
Canada especially to-day there is a mixed race of French and
Indians; while in Mexico a large part of the inhabitants is Spanish
and Indian. The truly American population sought above all
else peaceably to disseminate its own culture; some Indian races
became agricultural and devoted themselves to certain industrial
pursuits.
Since the time when the United States gained actual possession
of a larger part of the continent, a systematic Indian policy has
been pursued, although administered largely, it must be admitted,
in the American interests, and yet with considerable consideration
of the natural inclinations of these hunting peoples. In various
states, territories were set apart for them, which were certainly
more than adequate to afford their sustenance; schools were built,
and even institutions of higher learning; and through solemn
treaties with their chiefs important rights were assigned to different
races. To be sure, the main idea has always been to persuade
the Indians to take up agricultural pursuits; to live merely by
167hunting flesh and eating wild fruits seemed hardly the thing at a
time when millions of people were flocking westward out of
Europe. Therefore, with every new treaty, the Indian reservations
have been made smaller and smaller. The Indians, who
would have preferred always to keep up their wild hunting life,
felt, and still feel, that this has been unjust, and certainly many
of their racial peculiarities have made it difficult to adapt American
legal traditions fairly to their needs. The Indians had no
idea of the private ownership of the soil; they considered everything
as belonging to their tribe, and least of all had they any
notion of the inheritance of property in the American sense.
The Indian children belonged to the mother’s family and the
mother never belonged to the tribe of the father.
Although all these sources of friction have led the Indian to feel
unjustly treated, it is still true that there has been scarcely any
actually destructive oppression. The very races which have been
influenced most by American culture have developed favourably.
Last year the Indian mortality was 4,728, and the number of
births 4,742; the Indians are, therefore, not dying out. The
largest community is in the so-called Indian Territory and consists
of 86,000 people, while there are 42,000 in Arizona. The
several Indian reservations together embrace 117,420 square
miles.
The Indian question is the least serious problem of all those
which concern population in America; by far the most difficult
is the negro question. The Indian lives within certain reservations,
but the negro lives everywhere side by side with the American.
So also the Indian troubles are narrowly confined to a small
reservation in the great field of American problems, but the negro
question is met everywhere in American thought, and in connection
with every American interest. There could hardly be a
greater contrast than that between the Indian and the negro; the
former is proud, self-contained, selfish and revengeful, passionate
and courageous, keen and inventive. The negro, on the other
hand, is subservient, yielding, almost childishly good natured,
lazy and sensual, without energy or ambition, outwardly apt to
learn, but without any spirit of invention or intellectual independence.
168And still one ought not to speak of these millions of
people as if they were of one type. On the Gulf of Mexico there
are regions where the black population lives almost wholly sunk
in the superstitions of its African home; while in Harvard University
a young negro student has written creditable essays on
Kant and Hegel. And between these opposite poles exists a
population of about nine millions.
The negro population of America does not increase quite so
rapidly as the white, and yet in forty years it has increased two-fold.
In the year 1860, before the slaves were freed, there were
4,441,000 blacks; in 1870, 4,880,000; in 1880, 6,580,000; in 1890,
7,470,000; in 1900, 8,803,000. In view of this considerable increase
of the negro, it is not to be expected that the problem will
lose anything of its urgency by the more rapid growth of the white
population. And at the same time the physical contrast between
the races is in no wise decreasing, because there is no mixing of
the white and black races to-day, as there very frequently was before
the war. It will not be long before the coloured population
will be twice the entire population which Canada to-day has. These
people are distributed geographically, so that much the largest
part lives in those states which before the war practised slavery.
To be sure, an appreciable part has wandered into the northern
states, and the poorer quarters of the large cities are well infiltrated
with blacks. Four-fifths, however, still remain in the South,
owing probably to climatic conditions; the negro race thrives
better in a warm climate. But it belongs there economically also,
and has nearly every reason for staying there in future.
Nevertheless, the negro question is by no means a problem for
the South alone; the North has its interests, and it becomes clearer
all the time that the solution of the problem will depend in large
part on the co-operation of the North. In the first place it was the
North which set the negro free, and which, therefore, is partly responsible
for what he is to-day; and it must lie with the North to
decide whether the great dangers which to-day threaten can in any
way be obviated. Europe has so far considered only one feature
of the negro question—that of slavery. All Europe read “Uncle
Tom’s Cabin,” and thought the difficulty solved as soon as the
negro was freed from his chains and the poorest negro came into
his human right of freedom. Europe was not aware that in this
169*wise still greater problems were created, and that greater springs
of misery and misfortune for the negro there took their origin.
Nor does Europe realize that opposition between whites and blacks
has never been in the history of America so sharp and bitter and
full of hatred as it is to-day. Just in the last few years the hatred
has grown on both sides, so that no friend of the country can look
into the future without misgivings. “Das eben ist die Frucht der
bösen Tat.”
Yet where did the sin begin? Shall the blame fall on the English
Parliament, which countenanced and even encouraged the
trade in human bodies, or shall it fall on the Southern States, which
kept the slaves in ignorance, and even threatened to punish any one
who should instruct them? Or shall it fall on the Northern States,
which were chiefly responsible for immediately granting to the
freedmen, for the sake of party politics, all prerogatives of fellow-citizenship?
Or shall the fault be put on the negro himself, who
saw in his freedom from slavery an open door to idleness and
worthlessness?
For generations the white man has regarded the black man as
merchandise, has forcibly dragged him from his African jungles to
make him work in ignorance and oppression on the cotton, rice, and
tobacco fields of a white master. Then all at once he was made
free and became an equal citizen in a country which, in its abilities,
its feelings, its laws, and its Constitution, had the culture of two
thousand years behind it. How has this emancipation worked on
these millions? The first decade was a period of unrest and of
almost frightened awakening to the consciousness of physical freedom,
in the midst of all the after-effects of the fearful war. The
negro was terrified by Southern secret societies which were planning
vengeance, and confused by the dogmas of unscrupulous politicians
who canvassed the states which had been so savagely
shaken by the war, in order to gather up whatever might be found;
and he was confused by a thousand other contradictions in public
sentiment. Nowhere was there a secure refuge. Then followed
the time in which the negroes hoped to employ their political power
to advantage; the negroes were to be prospered by their ballot.
But they found this to be a hopeless mistake. Then they believed
a better way was to be found in the public schools and books. But
the negro was again turned back; he needed not knowledge but
170the power to do, not books but a trade. So his rallying-cry has
shifted. The blacks have never lost heart, and in a certain sense
it must in justice be added the whites have never lacked good-will.
And yet, after forty years of freedom, the results are highly discouraging.
On the outside there is much that speaks of almost brilliant success.
The negroes have to-day in the United States 450 newspapers
and four magazines; 350 books have been written by negroes;
half of all the negro children are regularly taught in schools;
there are 30,000 black teachers, school-houses worth more than
$10,000,000, forty-one seminaries for teachers, and churches worth
over $25,000,000. There are ten thousand black musicians and
hundreds of lawyers. The negroes own four large banks,
130,000 farms, and 150,000 homes, and they pay taxes on $650,000,000
worth of real and personal property. The four past
decades have therefore brought some progress to the freedman.
And yet, in studying the situation, one is obliged to say that these
figures are somewhat deceptive. The majority of negroes are
still in such a state of poverty and misery, of illiteracy and mental
backwardness, that the negroes who can be at all compared with
the middle class of Americans are vanishingly few. Even the
teachers and the doctors and pastors seem only very little to differ
from the proletariat; and although there is many a negro of
means, it is still a question whether he is able to enjoy his property,
whether the dollar in his hand is the same as in the hand of a
white man.
A part of the black population has certainly made real progress,
but a larger part is humanly more degraded than before the slaves
were freed; and if one looks at it merely as a utilitarian, considering
only the amount of pleasure which the negroes enjoy, one cannot
doubt that the general mass of negroes was happier under
slavery. Their temperament is crueller to them than any plantation
master could have been. The negro—we must have no
illusions on that point—has partly gone backward. The capacity
for hard work which he acquired in four generations of slavery,
he has in large part lost again during forty years of freedom;
although, indeed, the tremendous cotton harvests from the
Southern States are gathered almost wholly by negro labour. It
must be left to anthropology to find out whether the negro
171race is actually capable of such complete development as
the Caucasian race has come to after thousands of years of
steady labour and progress. The student of social politics need
not go into such speculations; he faces the fact that the African
negro has not had the thousands of years of such training, and
therefore, although he might be theoretically capable of the highest
culture, yet practically he is still unprepared for the higher
duties of civilization. Under the severe discipline of slavery he
overcame his lazy instincts and learned how to work both in the
field and in the shop, according as the needs of his master required,
and became in this way a useful member of society; but he was relieved
of all other cares. His owner provided him with house and
nourishment, cared for him in illness, and protected him like any
other valuable piece of property.
All this was suddenly changed on the great day when freedom
was declared; no one compelled the negro to work then; he was
free to follow his instinct to do nothing; no one punished him when
he gave himself over to sensuality and indolence. But on the other
side nobody now took care of him; in becoming his own master he
remained his own slave. He was suddenly pushed into the struggle
for existence, and the less he was forced to learn the less he was
ready for the fight. There thus grew up an increasing mass of
poverty-stricken negroes, among whom immorality and crime
could thrive; and oftentimes the heavy weight of this mass has
dragged down with it those who would have been better. Worst
of all, it has strengthened the aversion of the whites a hundred-fold,
and the best members of the negro race have had to suffer for the
laziness, the sensuality, and the dishonesty of the great masses.
The real tragedy is not in the lives of the most miserable, but
in the lives of those who wish to rise, who feel the mistakes of their
fellow-negroes and the injustice of their white opponents, who desire
to assimilate everything high and good in the culture about
them, and yet who know that they do not, strictly speaking, belong
to such a culture. The negroes of the lower type are sunk in their
indifference; they while away the hours in coarse enjoyments, and
are perfectly content with a few watermelons while they dance and
sing. The onlooker is disheartened, but they themselves laugh like
children. The better negroes, on the other hand, feel all the hardship
and carry the weight of the problem on their souls. They go
172through life fully conscious of an insoluble contradiction in their
existence; they feel that it is denied them to participate immediately
in life, and that they must always see themselves with the eyes
of others, and lead in a way a double existence. As one of them
has recently said, they are always conscious of being a problem.
They themselves have not chosen their lot, they did not come of
their own accord from Africa, nor gladly take on the yoke of slavery;
nor were they by their own efforts saved from slavery. They
have been passive at every turn of fortune. Now they wish to commence
to do their best and to give their best, and they have to do
this in an environment for which they are wholly unprepared and
which is wholly beyond them in its culture They have not themselves
worked out this civilization; they belong historically in another
system, and remain here at best mere imitators. And the
better they succeed in being like their neighbours, the more they
become unlike what they ought naturally to develop into.
This feeling of disparateness leads directly to the feeling of embitterment.
In the general masses, however, it is the feeling of
incompetence to support the struggle for existence successfully
which turns necessarily into a bitter hatred of the whites. And the
more the lack of discipline and the laziness of the black cause the
whites to hold him in check, so much the more brightly burns this
hatred. But all students of the South believe that this hatred
has come about wholly since the negro was declared free. The
slave was faithful and devoted to his master, who took care of him;
he hated work, but did not hate the white man, and took his state
of slavery as a matter of course, much as one takes one’s inability
to fly. A patriarchal condition prevailed in the South before the
war, in spite of the representations made by political visionaries.
Indeed, it is sometimes difficult not to doubt whether it was
necessary to do away with slavery so suddenly and forcibly;
whether a good deal of self-respect would not have been saved on
both sides, and endless hatred, embitterment, and misery spared,
if the Northern States had left the negro question to itself, to be
solved in time through organic rather than mechanical means.
Perhaps slavery would then have gone gradually over into some
form of patriarchal relation.
It is too late to philosophize on this point; doctrinarianism has
shaped the situation otherwise. The arms of the Civil War have
173decided in favour of the North. It is dismal, but it must be said
that the actual events of the ensuing years of peace have decided
rather in favour of the view of the South. To comprehend this
fully, it is not enough to ask merely, as we have done so far, how
the negro now feels; but more specially to ask what the American
now thinks.
What is to-day the relation between the white man and the negro?
There is a difference here between the North and the South,
and yet one thing is true for both: the American feels that the
cleft between the white and black races is greater now than ever
before. So far as the North is concerned, the political view of the
problem has probably changed very little. Specially the New
England States, whose exalted ethical motives were beyond all
doubt—as perhaps is not so certain of the Middle States—still
sympathize to-day with the negro as a proper claimant of human
rights. But unfortunately one may believe in the negro in the abstract,
and yet shrink from contact with him in the concrete. The
personal dislike of the black man, one might even call it an æsthetic
antipathy, is really more general and wide-spread in the North
than in the South. South of Washington one can scarcely be
shaved except by a negro, while north of Philadelphia a white man
would quite decline to patronize a coloured barber. A Southerner
is even not averse to having a black nurse in the house, while in the
Northern States that would never be thought of. Whenever the
principle is to be upheld, the negro is made welcome in the North.
He is granted here and there a small public office; he delivers orations,
and is admitted to public organizations; he marches in the
parades of war veterans, and a few negroes attend the universities.
And still there is no real social intercourse between the races. In
no club or private house and on no private occasions does one meet
a negro. And here the European should bear specially in mind
that negroes are not seldom men and women whose faces are perhaps
as white as any Yankee’s, and who often have only the faintest
taint of African blood.
At the very best the Northerner plays philanthropist toward the
negro, takes care of his schools and churches, helps him to help
himself, and to carve out his economic freedom. But even here the
feeling has been growing more and more in recent years that the
situation is somehow fundamentally false, and that the North has
174acted hastily and imprudently in accepting the emancipated negro
on terms of so complete equality. The feeling of dissatisfaction is
growing in the North, and it is not an accident that the negro population
of the North grows so slowly, although the negro is always
ready to wander, and would crowd in great numbers to the
North if he might hope to better his fortunes there. The negro
feels, however, intensely that he is still less a match for the energetic
Northerner in the industrial competition than for the white
man of the South, and that it is often easier to endure the
hatred of the Southerner than the coldly theoretical sufferance of
the Northerner when joined, as it is, with a personal distaste so
pronounced.
In the South it is quite different. There could hardly be an æsthetic
aversion for the race, when for generations blacks and whites
have lived together, when all the servants of the home have been
coloured, and the children have grown up on the plantations with
their little black playmates. There has been a good deal in the easy
good-nature of the negro which the Southern white man has always
found sympathetic, and he responded in former times to the disinterested
faithfulness of the slaves with a real attachment. And
although this may have been such fondness as one feels for a faithful
dog or an intelligent horse, there was in it, nevertheless, no trace
of that physical repulsion felt by the Northerner. The same is fundamentally
true to-day, and the rhetorical emphasis of the physical
antipathy toward the black which one finds in Southern speeches
is certainly in part hypocritical. It is true that even to-day the
poorest white man would think himself too good to marry the
most admirable coloured woman; but the reason of this would lie
in social principles, and not, as politicians would like to make
it appear, in any instinctive racial aversion, since so long as the
negroes were in slavery the whites had no aversion to such personal
contamination.
The great opposition which now exists is two-fold: it is on the
one hand political and on the other social. The political situation
of the South has been indeed dominated in the last forty years by
the negro question. There have been four distinct periods of development;
the first goes from the end of the Civil War to 1875.
It was the time when the negro had first received the suffrage and
become a political factor, the most dreary time which the South
175ever knew. It was economically ruined, was overrun with a disgusting
army of unscrupulous politicians, who wanted nothing but
to pervert the ignorant coloured voters for the lowest political ends.
The victorious party in the North sent its menials down to organize
the coloured quarry, and by mere numbers to outdo all independent
activities of the white population.
One can easily understand why a Southern historian should say
that the Southern States look back without bitterness on the years
of the war, when brave men met brave men on the field of battle;
but that they are furious when they remember the years which followed,
when the victors, partly out of mistaken philanthropy,
partly out of thoughtlessness and indifference, and partly out of
evil intent, hastened to put the reins of government into the hands
of a race which was hardly out of African barbarism; and thus utterly
disheartened the men and women who had built up the splendid
culture of the Old South. Perhaps there was no phase of
American history, he says, so filled with poetry and romantic charm
as the life of the South in the last ten years before the war; and
certainly no period has been so full of mistakes, uncertainties, and
crime as the decade immediately following. A reaction had to
come, and it came in the twenty years between 1875 and 1895.
The South betook itself to devious methods at the ballot-box. It
was recognized that falsification of election returns was an evil, but
it was thought to be a worse evil for the country to be handed over
to the low domination of illiterate negroes. The political power of
the negro has been broken in this way. Again and again the same
method was resorted to, until finally the public opinion of the South
approved of it, and those who juggled with the ballot-box were
not pursued by the arm of the law, because the general opinion
was with them.
There has been another and more important fact. Slowly all
party opposition between the whites vanished, and the race question
became the sole political issue. To be sure, there have been
free-traders and protectionists in the South, and representatives of
all other party principles; but all genuine party life flagged and all
less important distinctions vanished at the ballot-box when the
whites rallied against the blacks, and since the negroes voted invariably
with the Republican party, which had set them free, the entire
white population of the South has become Democratic. By this
176political consolidation, the power of the negro has been further
restricted.
People have gradually become convinced, however, that political
life stagnates when large states have only the one fixed idea, as if
hypnotized by the race issue. The need has been felt anew of participating
once more in all the great problems which interest the
nation and which create the parties. The South looks back longingly
on the time when it used to furnish the most brilliant statesmen
of the nation. The South has become also aware that so soon
as public opinion allows a systematic corruption of the ballot-box,
then every kind of selfishness and corruption has an easy chance
to creep in.
Let once the election returns be falsified in order to wipe out a
negro majority, and they may be falsified the next time in favour of
some commercial conspiracy. An abyss opens up which is truly
bottomless. So a third period has arrived. In place of nullifying
the negro suffrage by illegal means, the South has been thinking
out legal measures for limiting it. The Constitution prescribes
merely that no one shall be deprived of his vote by reason of his
colour, but it has been left to the several states to determine what
the other conditions shall be which govern the right to vote. Thus
any state is free to place a certain property condition, or to require
a certain degree of education from every man who votes; but all
such conditions must apply to all inhabitants of the state alike;
thus, for instance, in four states, and only in those four, do women
enjoy the suffrage. Now the Southern States have commenced to
make extensive use of this state privilege. They are not allowed
to exclude the negro as a negro since the Northern States have
added the Fifteenth Amendment of the Constitution, and there
would be no hope of altering this. But so long as the educational
status of the negro is so far behind that of the white man, the number
of those who cannot read is still so large that a heavy blow is
struck at negro political domination when a state decides to restrict
the suffrage to those who can read and understand the Constitution.
It is clear that at the same time the test of this which
necessarily has to be made leaves the coveted free-play to the
white man’s discretion.
The last few years have witnessed a great advance of this new
movement. The political power of the negro is less than ever, and
177the former illegal measures to circumvent it are no longer needed.
It cannot be denied that in two ways this works directly in the interests
of civilization. On the one hand, it incites the negro population
to take measures for the education of its children, since by
going to school the negro can comply with the conditions of suffrage.
On the other hand, it frees Southern politics from the oppressive
race question, and allows real party problems to become
once more active issues among the whites. The political contrast
is, therefore, to-day somewhat lessened, although both parties regard
it rather as a mere cessation of hostilities; since it is by no
means certain that Northern political forces at Washington will
not once more undo this infringement on the negroes’ rights, and
whether once more, in case of a real party division between the
Southern whites, the negroes will not have the deciding vote. If
the doctrinarianism of the North should actually prevail and be
able to set aside these examinations in reading and in intelligence
which have been aimed against the negro, on the ground that
they are contrary to the Constitution, it would indeed frustrate a
great movement toward political peace. When the abolitionists
at the end of the Civil War granted the suffrage to the negroes,
they were at least able to adduce one very good excuse; they
claimed that the Southern States would continue in some new form
to hold the negro in subjection if he was not protected by either a
military guard or by his right to vote, and since the army was to be
disbanded the right to vote was given him. To-day there is no
such danger; the legal exclusion of the Southern negro from the
ballot-box must be accounted an advance.
The social question, however, is even more important to-day than
the political one, and it is one which grows day by day. We have
said already that the Southerner has no instinctive aversion to the
negro race, and his desire for racial purity is not an instinct but a
theory, of which the fathers of the present white man knew nothing.
To be sure, the situation cannot be simply formulated, but it
probably comes nearest to the truth to say that the white man’s
hatred is the inherited instinct of the slave-holder. In all his sentiments
the Southerner is dominated by the once natural feeling
that the negro is his helpless subject. The white man is not cruel
in this; he wants to protect the negro and to be kind, but he can
allow him no will of his own. He has accustomed himself to the
178slavish obedience of the negro, as the opium-eater is accustomed
to his opium. And to give up the paralyzing drug is intolerable to
his nervous system.
The everywhere repeated cry that the purity of the race is in danger,
if social equality is established, is only a pretext; it is in truth
the social equality itself which calls forth the hysterical excitement.
No white man, for instance, in the South would go into the dining-room
of a hotel in which a single negro woman should be sitting;
but this is not because a mere proximity would be disagreeable, as
it would actually be to the Northerner, but because he could not
endure such appearance of equality. So soon as a little white
child sits beside the negro woman, so that she is seen to be a servant
and her socially inferior station is made plain, then her presence
is no longer felt to be at all disagreeable.
In his fight against social equality with the negro, the Southerner
resorts to more and more violent means; and while he works himself
up to an increasing pitch of excitement by the energy of his
opposition, the resulting social humiliation increases the embitterment
of the negro. That no white hotel, restaurant, theatre, or
sleeping-car is open to the black is a matter of course; this is virtually
true also in the North. But it has contributed very much
to renewed disaffection, that also the ordinary railroad trains and
street cars begin to make a similar distinction.
The South is putting a premium on every kind of harsh social
affront to the black man, and relentlessly punishes the slightest
social recognition. When the president of a negro college was the
guest of a Northern hotel and the chamber-maid refused to put his
room to rights and was therefore dismissed, the South got together,
by a popular subscription, a large purse for this heroine. It is only
from this point of view that one can understand the great excitement
which swept through the South when President Roosevelt
had the courage to invite to his table Booker T. Washington, the
most distinguished negro of the country. Professor Basset, the
historian, has declared, amid the fierce resentment of the South,
that, with the exception of General Lee, Booker Washington is the
greatest man who has been born in the South for a hundred years.
But who inquires after the merits of a single man when the principle
of social inequality is at stake? If the President had worked for
several months from early to late at his desk with Booker T. Washington,
179the fact would have passed unnoticed. But it is simply unpardonable
that he invited him to the luncheon table, and even
very thoughtful men have shaken their heads in the opinion that
this affront to the social superiority of the white man will very
sadly sharpen the mutual antagonism.
We must not overlook in this connection the various minor circumstances
which have strengthened the lingering feeling of the
slave-owner. First of all, there is the unrestrained sensuality of
the negro, which has led him time after time to attempt criminal
aggressions on white women, and so contributed infinitely to the
misery of his situation. It is a gross exaggeration when the Southern
demagogue reiterates again and again that no man in the South
can feel that his wife, his sister, or daughter is secure from the bestiality
of the blacks; and yet it cannot be denied that such crimes
are shockingly frequent, and they are the more significant, since
the continual fear of this danger seriously threatens the growth of
farming life with its lonely farm-houses. Here the barbarities of
lynch law have come in, and the rapid growth of racial hatred may
be seen in the increased number of lynchings during recent years.
But every lynching reacts to inoculate hatred and cruel ferocity in
the public organism, and so the bestial instincts and the lawless
punishments work together to debase the masses in the Southern
States.
It is not only a question of the immorality of the negro and the
lynch courts of the white man, but in other ways the negro shows
himself inclined to crime, and the white man to all sorts of lawless
acts against him. The negroes are disproportionately represented
in Southern prisons, although this comes partly from the fact that
the black man is punished for the slightest misdemeanour, while
the white man is readily let off. In fact, it is difficult in the South
to find a jury to convict a white man of any crime done against a
negro. This application of a two-fold standard of justice leads
quickly to a general arbitrariness which fits only too well with the
natural instincts of the slave-holder. Arbitrary privileges in place
of equal rights have always been the essential point in his existence,
and so it happens that even where no negroes are in question
Southern juries hand down verdicts which scandalize the whole
country. Indeed, there is no doubt that secret attempts have even
been made, in all sorts of devious forms, to re-establish the state of
180slavery. For some small misdemeanour negroes are condemned to
pay a very heavy fine, and to furnish this they have to let themselves
out to some sort of contract labour under white masters,
which amounts to the same thing as slavery. Here again the
whole country is horrified when the facts come to be known. But
no means have yet been thought of for lessening the bitter hatred
which exists, and so long as the sharp social contrast remains there
will continue to be evasions and violations of the law, to give vent
to the hatred and bitter feeling.
What now may one look for, that shall put an end to these
unhappy doings? The Africans have had their Zionists, who wish
to lead them back to their native forests in Africa, and many people
have recently fancied that the problem would be solved by forcible
deportation to the Philippines. These dreams are useless;
nine million people cannot be dumped on the other side of the
ocean, cannot be torn from their homes. Least of all could they be
brought to combine with the entirely different population of the
Philippines. More than that, the South itself would fight tooth and
nail against losing so many labourers; it would be industrially
ruined, and would be more grievously torn up than it was after the
Civil War, if in fact some magic ship could carry every black to the
negro republic of Liberia, on the African coast. For the same
reason it is impracticable to bring together all negroes in one or
two Southern States and leave them to work out their own salvation.
In the first place, no state would be willing to draw this black
lot, while the white population of the other Southern States would
suffer fully as much. The student of social politics, finally, cannot
doubt for a moment that the negro progresses only when he is
in constant contact with white men, and degenerates with fearful
speed when he is left to himself.
Among those negroes who have been called to be the leaders of
their people, and who form an independent opinion of the situation,
one finds two very different tendencies. One of these is to
reform from the top down, the other from the bottom up. The
energies of Dubois are typical of the first tendency, Booker Washington’s
of the second. Dubois, and many of the most educated
and advanced negroes with him, believe in the special mission of
the negro race. The negro does not want to be, and ought not to
be, a second order of American, but the United States are destined
181by Providence to develop two great and diverse but co-operating
peoples, the Americans and the negroes. It is therefore the work
of the African not simply to imitate the white man’s culture, but to
develop independently a special culture suited to his own national
traits. They feel instinctively that a few great men of special physiognomy,
two or three geniuses coming from their race, will do more
for the honour of their people and for the belief in its possibilities,
than the slow elevation of the great mass. They lay strong emphasis
on the fact that in his music, religion, and humour the negro
has developed strongly individual traits, and that the people who
forty years ago were in slavery have developed in a generation under
unfavourable circumstances a number of shining orators, politicians,
and writers. Thus they feel a most natural ambition to make
away for the best and strongest, to elevate them, and to incite them
to their highest achievements. The ideal is thus, in the work of
the most gifted leaders to present to the world a new negro culture,
by which the right of independent existence for the black race in
America may be secured.
Booker Washington and his friends wish to go a quieter road;
and he has with him the sympathies of the best white people in the
country. They look for salvation not from a few brilliantly exceptional
negroes, but from the slow and steady enlightenment of
the masses; and their real leaders are to be not those who accomplish
great things as individuals, but rather they who best serve
in the slow work of uplifting their people. These men see clearly
that there are to-day no indications of really great accomplishments
and independent feats in the way of culture, and that such
things are hardly to be looked for in the immediate future. At
the very best it is a question of an unusual talent for imitating an
alien culture.
If, then, one can hardly speak of brilliant genius in the upper
strata—and it is to be admitted that Booker Washington himself
is not a really great, independent, and commanding personality—it
would be on the other hand much more distorted to estimate
the negro from his lowest strata, from the lazy and criminal individuals.
The great mass of negroes is uneducated and possesses
no manual training for an occupation; but it is honest, healthy, and
fit social material, which only needs to be trained in order to become
valuable to the whole community. First of all, the negro ought to
182learn what he has once learned as a slave—a manual trade; he
should perfect himself in work of the hands or in some honest
agricultural occupation, not seek to create a new civilization, but
more modestly to identify his race with the destinies of the white
nation by real, honest, thoughtful, true, and industrious labour.
Brilliant writers they do not need so much as good carpenters and
school-teachers; nor notable individual escapades in the tourney-field
of culture so much as a general dissemination of technical
training. They need schools for manual training and institutes
for the development of technical teachers.
Booker Washington’s own institution in Tuskegee has set the
most admirable example, and the most thoughtful men in the
North and South alike are very ready to help along all his plans.
They hope and believe that so soon as the masses of coloured
people have begun to show themselves somewhat more useful to
the industry of the country as hand-workers, expert labourers, and
farmers, that then the mutual embitterment will gradually die out
and the fight for social equality slowly vanish. For on this point
the more thoughtful men do not deceive themselves; social equality
is nothing but a phrase when it is applied to the relation of millions
of people to other millions. Among the whites themselves
no one ever thinks of any real social equality; the owner of a plantation
no more invites his white workmen in to eat with him than
he would invite a coloured man. And when the Southern white
replies scornfully to any one who challenges his prejudices, with
the convincing question, “Would you let your sister marry a nigger?”
he is forgetting, of course, that he himself would not let his
sister marry nine-tenths of the white men of his community. Social
equality can be predicated only of small groups, and in all
exactness only of individuals.
Thus it might be said that peace is advanced to-day chiefly by
the increasing exertions for the technical industrial education of
the black workman. But it is not to be forgotten that the negro
himself, and with him many philanthropists of the North, comprehends
the whole situation very differently from the Southern
supporters of the movement. These latter are contented with
recent tendencies, because the negro’s vote is curtailed in the
political sphere, and because he comes to be classed socially with
the day-labourer and artisan. The negro, however, looks on this
183as a temporary stage in his development, and hopes in good time
to outgrow it. He is glad that the election returns are no longer
falsified on his account, and that legal means have been resorted
to. But of course he hopes that he will soon grow beyond these
conditions, and be finally favoured once more with the suffrage,
just as any white man is.
It is much the same in the social sphere. He may be satisfied
for the present that the advantages of manual training and farm
labour are brought to the fore, but this must only be to lead his
race up step by step until it has developed from a mere working
class to entire social equality. That which the negro approves
for the moment is what any white man in the Southern States
would fix as a permanent condition. And so it appears that even in
this wise no real solution of the problem has been reached, although
a cessation of hostilities has been declared. But all these
efforts on the part of leaders and philanthropists, these deliberations
of the best whites and blacks in both the North and South,
are still far from carrying weight with the general public; and
thus, although the beginnings toward improvement are good, it
remains that on the outside the situation looks to-day darker than
ever before.
Whoever frees himself from theoretical doctrines will hardly
doubt that the leading whites of the Southern States have to-day
once more the better insight, since they know the negro better
than the Northerners do. They demand that this limitation of
the negro in his political rights and in his daily occupation shall
be permanent, and that thus an organic situation shall come about
in which the negro, although far removed from an undeserved
slavery, shall be equally far from the complete enjoyment of that
civilization which his own race has not worked out. That is,
he is to be politically, economically, and socially dependent. If
this had happened at the outset, the mutual hatred which now
exists would never have been so fierce; and if the African succeeds
materially he will hardly notice the difference, while the
white man will feel with satisfaction that his superiority has been
vindicated. The condition of the island of Jamaica is a good instance
in point. Its inhabitants are strikingly superior to the
debased negroes of the Republic of Hayti.
But it is not to be forgotten that history has repeatedly shown
184how impossible it is for a people numbering millions, with limited
rights, to dwell in the midst of an entirely free race. Oppression
and injustice constantly arise from the limitation of rights, and
thence grow retaliation and crime. And the hour in which the
American people narrow down the rights of ten million blacks
may be the starting-point for fearful struggles. The fact remains
that the real solution of the question is nowhere in sight. The
negro question is the only really dark cloud on the horizon of the
American nation.
185
The problems of population, especially those concerning the
immigration and the negro, have taken considerable of our
attention. We shall be able to survey problems of internal
politics more quickly, since we have already met most of them in
considering the American form of government. The insane programme
of those who desire no government at all, that is, anarchy,
is one of the American’s political problems only when the deed of
some foreign assassin gives him a sudden fright. Then all sorts
of propositions are on foot to weed out anarchism stem and root;
but after a little time they subside. One sees how difficult it is to
draw the lines, and the idea of suppressing free political speech is
too much against the fundamental principles of the American democracy.
But the fundamental principles of anarchism, or rather
its fundamental confusions, have so little hope of influencing the
conservative ideas of the Americans, that there need be no fear of
anarchism creeping into the national mind. In so far as there is
any such problem in America, it is connected solely with the question
of immigration. Up to the present time, the government has
been content to forbid acknowledged anarchists to land; but this
involves such an un-American intermeddling with private convictions
that the regulation will hardly be tolerated much longer.
The true American, in any case, believes in state ordinances and
loves his governmental machinery.
This apparatus itself of government has many details which
offer problems, indeed, and are much discussed. Some of its elements
have been added recently by President Roosevelt; the most
important of them is the newly created Department of Commerce
and Labour. This new division of the government, with over ten
thousand officials, embraces also the Bureau of Corporations,
186which is designed to collect statistics regarding trusts and the
overcoming of their influence; but the struggle promises to be a
two-sided one. To the present administration belongs also the
creation of a general staff for the Army, and on this head there
seems to be a unanimous opinion that the Army is distinctly benefited
by the measure. In some other directions, moreover, the
make-up of the Army has become more similar to European models;
new schools of war have been founded and the plan of holding
great manœuvres introduced. The weakness of the military
system is that preferments go according to seniority. It is clear
to all that a merely mechanical advancement of officers is not
advantageous to the military service; and yet everybody is afraid,
if the uniform principle is given up and personal preferment is
introduced, that all sorts of regrettable political and social influences
will be brought to bear in the matter. Many persons see a
difficult problem here; the young officer has almost no incentive
to-day to special exertions.
The government has more and various plans with regard to the
Navy. There, too, it seems as if a general staff similar to that of
the Army is indispensable. The steady growth of the Navy itself
is assured, since everyone recognizes that America could not carry
out its present policy without a strong fleet. The fleet, which
dates virtually from 1882, won the hearts of the imperialistic public
by its victories at Manila and Santiago; and its growth is nowhere
seriously opposed. Likewise, the Navy is introducing more
large manœuvres. The real difficulty lies in lack of men; it becomes
more and more difficult to get officers and sailors; and even
in the question of manning a ship, the inevitable negro question
plays a part.
There are many open questions also in regard to the diplomatic
and consular service. The United States maintains an uncommonly
large number of consuls, whose enterprise is nowhere contested,
but whose preparation, tact, and personal integrity often
leave a good deal to be desired. Their remuneration through fees
contributes a good deal toward creating unwholesome conditions.
The personnel of the diplomatic service is perhaps still more unequal
than that of the consular. Since early times the United
States has had the discernment to send some of its most distinguished
men to fill important ambassadorial positions. At a time
187when the international relations of the country were still insignificant,
such a position was often given to distinguished authors and
poets, who represented their country at a foreign court in an intellectual
and cultivated way, and contributed much to its esteem.
This can happen no longer, and yet America has had again and
again the good fortune to send to diplomatic positions men of uncommon
caliber; scholars like Andrew D. White, statesmen like
John Hay, and brilliant jurists like Choate. The danger still subsists,
however, that men who are merely rich, and who have done
small services to Senators, expect in return a diplomatic appointment,
for the sake of the social glory. There is a growing desire
to make the diplomatic service a regular career, in which a man
progresses step by step.
As to the postal service, the foremost problem is now that of
free delivery in rural districts. The tremendous extent of the
country and the thinness of its population had at first made it a
matter of course that the farmer should fetch his own mail from
the nearest village. The rural letter-carrier was unknown, as he
is still unknown in small towns; every man in the village goes to
the post-office to get his newspapers and letters. But like every
country at the present time, the United States is trying to check
the continual afflux of population into the cities. It is obvious
that specially with the intellectual make-up of the American, every
effort must be made to make rural life less monotonous and tiresome,
and that it is necessary most of all to establish ready communication
between the remote farm-houses and the rest of the
world. The more frequently and easily the farming people receive
their letters and magazines, so much the less do they feel
tempted to leave the soil. For this reason the very expensive
rural delivery has spread rapidly. In the last year nine thousand
new appointments were made in this service. Another important
problem connected with the Post-Office is the fact that it does
not pay for itself, because it carries printed matter at unprofitably
low rates, and in this way has stimulated to an extraordinary
degree the sending of catalogues and advertising matter. One
can see how far this goes from the fact that a short time ago a factory
for medicine sent out so many copies of a booklet advertising
its specific through the so-called “testimonials,” that a railway
train with eight large freight cars was necessary to carry them to
188the nearest post-office. Part of the difficulty comes from the private
ownership of the railroads, whose contracts with the government
for carrying the mails involve certainly no loss to the
stockholders.
In similar wise, all of the great departments of government have
their problems, large or small, and the most important of these
must be dealt with when we come to speak of the economic situation.
But there is one problem that is common to all branches of
the government; it is the most important one which concerns internal
affairs, and although it is discussed somewhat less actively
to-day than in former years, it continues none the less in some
new form or other to worry the parties, the government, and more
especially public opinion. It is the question of civil-service
reform.
We have touched on this question before when we spoke of the
struggles between parties, and of the motives which bring the individual
into the party service. Some things remain to be said by
way of completely elucidating one of the most important problems
of American public life. To commence with, if we abstract from
the civil service in city and state—although the question is much
the same there—that is, if we take into account only the federal
service—we find over a hundred thousand official appointments:
and the question is—Shall these appointments, with their assured
salaries, be distributed to adherents of the party in power,
chiefly with reference to their services to the party, or shall these
positions be removed from all touch with the parties and given to
the best and ablest applicants? It is clear that the problem could
easily be so exhibited that the appointment of the best and most
capable applicant, without reference to his party, should seem to
be absolutely and unequivocally necessary, and as if any other
opinion could proceed only from the desire to work corruption.
The situation is not quite so simple, however.
In the first place, every one is aware that the highest administrative
positions are invariably places of confidence, where it is
very necessary that the incumbent shall be one in thought and
purpose with the Executive; and this is more than ever necessary
in a democracy composed of two parties. If the majority of the
people elects a certain President in order to carry out the convictions
of one party in opposition to the other, the will of the people
189would be frustrated if the upper members of the governmental
staffs were not to be imbued with the same party ideas. A Republican
President could not work together with a Democratic Secretary
of State without sacrificing the efficiency of his administration,
and struggling along on such compromises as would ultimately
make meaningless the existence of two organized parties.
A Republican Secretary of State must have, however, if he is to be
spared a good deal of friction, an assistant secretary of state with
whom he is politically in harmony; and so it goes on down.
But if we begin at the bottom and work up, the situation looks
different. The book-keeper to the ministry, the small postal
clerk, or the messenger boy in the treasury, has no opportunity to
realize his personal convictions. He has merely his regular task
to perform, and is not immediately concerned whether the policy
of state is Republican or Democratic, imperialistic or anti-imperialistic.
We have then to ask—Where lie the boundaries between
those higher positions in which the private convictions of the incumbents
ought properly to be with the administration, and those
lower positions where party questions are in no way involved?
Opinions vary very widely as to where this boundary lies.
Some put it rather low, and insist that the American by his whole
political training is so thoroughly a creature of the party, that true
harmony in state offices can be had only if the whole service from
top to bottom is peopled with adherents of the ruling party; and
this opinion, although it may be refuted on good grounds, is
neither absurd nor dishonest. The population of Germany is
divided to-day into a civil and a social-democratic party, and it
appears to the dominant civil party by no means unnatural to
exclude the social-democrats so far as possible from participation
in the public service.
It is quite possible, moreover, for each party to furnish competent
incumbents for all the leading positions; and so long as capable
men can be found who will acquit themselves well in office,
there is of course no reason for charging the party with greed or
spoils-gathering, as if the public funds were a pure gift, and it were
unworthy to accept an official appointment given in recognition
of services to the party. We have already emphasized how extremely
German conceptions differ from American on this point,
and how the customary reiteration in Germany of the unfavourable
190comments made by certain American reform enthusiasts,
leads to much misunderstanding. It is well-known that Germany
has, for instance, for the university professors a system of state appointment,
which rests wholly on personal recommendation; this
in sharp contrast to England, where the candidates for every
vacant chair must compete, and where no one can be called who
does not compete; or with France, where the positions are awarded
on the basis of an examination.
The considerations which we have stated are not at all to be
taken as an argument against civil-service reform, but only as an
indication that the problem is complicated and has its pros and
cons. In fact, the grounds for the widest possible extension of a
civil-service independent of party are many and urgent. In the first
place, the service itself demands it. The appointments by party
are really appointments on the basis of recommendations and
wishes of political leaders. The Senators, for instance, from a certain
state advise the President as to who should be appointed for
postmasters in the most important post-offices; and the smaller
positions are similarly filled on the recommendation of less influential
politicians.
Therefore, it is only to a limited extent that there is any real
estimation of the capacity and fitness of the proposed incumbent.
Public opinion is always watchful, however, and the politician is
generally afraid to press an appointment which he knows would be
disapproved by public opinion, or which would later be seen to be
absurd, would damage his own political credit, and perhaps even
wreck his political future.
It is equally true that the political parties have become expert
in sifting human material and finding just the right people for the
places; and that, moreover, the American with his extraordinary
capacity for adaptation and organization easily finds himself at
home in any position and fills it creditably. And yet it remains,
that in this way the best intentioned appointer works in the dark,
and that a technical examination would more accurately select
the fittest man from among the various candidates.
Most of all, by this method of appointment on the ground of
political influence, where the petitions of the incumbent’s local
friends, commendatory letters from well-known men, and the
thousand devices of the wire-puller play an important part, the
191feeling of individual responsibility is always largely lost. The head
of the department must rely on local representatives, and these
politicians again know that they do not themselves actually make
the appointments; and the candidate is put into office with no
exertion on his own part—almost passively.
It is not to be denied that in this way many an unworthy man
has come to office. The very lowest political services have been
rewarded with the best positions. Political candidates have had
to promise before their election to make certain appointments to
office which had nothing at all to do with the fitness of the appointee;
and such appointee, when actually instated, has not only
neglected his office, but sometimes criminally misused it for embezzlement
and fraudulent contracts, for government deals in which
he has had some personal advantage, or for the smuggling in of
friends and relatives to inferior positions. Politicians have too often
sought to exact all sorts of devious personal and political services
from those whom they have previously recommended for office in
order to hush them up. Through the intrigues of such men all sorts
of unnecessary positions have been created, in order to provide
for political friends from the public treasury; and the contest
for these personal nominations has consumed untold time and
strength in the legislative chambers. No one can fail to see that
such sores will develop over and over in the political organism so
long as the principle is recognized of making official appointments
on the basis of party allegiance. While criminal misuse of
such a practice is the exception, and the honourable endeavour to
pick out the best candidates and their honest performance of duty
are the rule, nevertheless every thoughtful friend of the country’s
welfare must wish to make all such exceptions impossible.
There is another unfavourable effect which such a system must
have, within the party itself. A man who is put into office by politicians,
unless he is a strong man, will labour in the interests of his
benefactors, will carry party politics into places where they do not
belong, and be ready to let the party rob him of a certain portion
of his salary as a contribution to the party treasury, as has been
customary for a long time. In this way salaries have been increased
in order that a considerable portion might redound to
the party treasury, and thus the means be won for bringing the
party victoriously through the next elections; and in this way the
192official has been able to assure himself as good an office, or perhaps
a better one, in the future. The same thing happens once
more in city politics where the funds levied on city officials have
made a considerable share of the party’s assets. There has been
good reason, therefore, why public opinion has for a long time
demanded, and with increasing energy, an entire change in such a
state of things; and aside from the positions of actual confidence,
in which in fact only men of a certain political faith could be of
any service, it has demanded that public offices be put on a non-partisan
basis and given out with a view solely to the efficiency of
the appointee.
Such a problem hardly existed during the first forty years of
American constitutional government; officials were appointed in
a business-like way. A man in office stayed there as long as
he did his duties well, and the advent of a new party in the higher
positions had very little influence on the lower ones. It was
deemed tyranny to dismiss a competent official in order to put a
party adherent in his position. The statistics show that at that
time not more than forty-two changes on the average were made
on such political grounds every year. The opposite practice first
arose in the cities, and especially in New York, whence it spread
to the state, where in 1818 a whole regiment of party followers was
established in the government offices of the state by Van Buren.
And under President Jackson the principle finally became adopted
in the federal government. About the year 1830, it became an unwritten
law that official positions should be the spoils of victory at
the elections and go to the favoured party. People were aware
that there was no better way of getting party adherents to be
industrious than to promise them positions if they would help the
party to gain its victory. The reaction commenced at about the
middle of the last century, closely following on a similar movement
in England.
As the power of the English Parliament grew, popular representatives
had demanded their share in the distributing of offices,
and an obnoxious trading in salaries had become prevalent.
When at last the abuses became too frequent, just before the
middle of the last century, England instituted official examinations
in order to weed out the obviously unfit candidates. It was
not really a true competition, since the candidate was still appointed
193to office by the politicians. But the examination made
sure of a minimal amount of proper training.
The American Congress followed this example during the fifties.
Certain groups of minor positions were made, for which appointment
could be had only after an examination. England now
went further on the same course, and America followed her lead.
On both sides of the ocean the insignificant examination of the
candidate who had backing, became a general examination for
all who wished to apply; so that the position came to be given to
the best candidate. The Civil-Service Commission was instituted
by President Grant, and for thirty years its beneficent influence
has steadily grown, and it has made great inroads on the old
system. The regular politicians who could not endure being
deprived of the positions which they wished to pledge to their
campaign supporters have naturally tried time after time to stem
the current, and with some success. In 1875 Congress discontinued
the salaries which had been paid the Commissioners; then
competitive examinations were given up, and in their stead single
examinations instituted for candidates who had been recommended
by political influence.
But here, if anywhere, public opinion has been stronger than
party spirit. Under President Hayes, and then under Garfield and
Arthur, the competitive system was partly reinstated, and while
the number of positions which were open only to those who had
successfully passed the public examinations increased, at the same
time the reprehensible taxation of officials for party ends was
finally stopped. This did not prevent a certain smaller number
of positions from retaining their partisan complexion; and the
opinions and party creed of these incumbents continued to be
important, so that whenever one party succeeded another, a certain
amount of change was still necessary. So there remain two
great divisions of the public service—the political offices which the
President fills by appointment in co-operation with the Senate, and
the so-called “classified” offices which are given out on the basis
of public examinations. Public opinion and the sincere supporters
of civil-service reform, among whom is President Roosevelt
himself, are working all the time for an increase in the number
of classified positions and a corresponding decrease in the
political group.
194The open opponents of this movement, of whom there are many
in both parties, are hard at work in the opposite direction, and are
too often supported by the faint-hearted friends of the reform,
who recognize its theoretical advantages, but have some practical
benefit to derive by pursuing the methods which they decry.
There is no doubt that again in the last ten years some steps have
been taken backward, and on various pretexts many important
positions have been withdrawn from the classified service and
restored to Senatorial patronage.
The actual situation is as follows. There are 114,000 non-classified
positions, with a total salary of $45,000,000, and 121,000
classified positions which bring a salary of $85,000,000. Among
the former, where no competition exists, over 77,000 are postmasterships;
then there are consular, diplomatic, and other high
positions, and a large number of places for labourers. In the
classified service, there are 17,000 positions for officials who live
in Washington, 5,000 of which are in the treasury. The committees
on the commission have about 400 different kinds of
examinations to give. Last year 47,075 persons were examined
for admission to the civil service; 21,000 of these for the government
service, 3,000 for the customs, and 21,000 for the postal
service. There were about 1,000 examinations more for advancements
in office and exchange from one part of the service to
another, and 439 persons were examined for service in the Philippines.
Out of all these applicants 33,739 passed the examinations,
and of these 11,764 obtained positions which are theirs for
life, independent of any change which may take place at the White
House. It is a matter of course that the security which these
positions give of life-long employment is the highest incentive to
faithful service and conscientious and industrious labour.
The difference between the two services was again clearly
brought out in the last great scandal, which greatly stirred up the
federal administration. The Post-Office Department had closed a
number of contracts for certain utensils from which certain officials,
or at least their relatives, made considerable profits. Everything
had been most discreetly hidden, and it took an investigation
of several months to uncover the crookedness. But when everything
had come out, it appeared that the officials who were seriously
involved all belonged to the unclassified service, while the
195classified service of the Post-Office was found to be an admirable
example of conscientious and faithful office-holding. Certain it
is that such criminal misuse, even among the confidential positions,
is a rare exception; it is no less sure that the temptations are
much greater there. A man who holds office, not because he is
peculiarly fitted for it, but because he has been generally useful in
politics, knowing as he does that the next time the parties change
places his term of office will be up, will always be too ready to use
his position for the party rather than for the country, and finally
for himself and his pocket-book rather than for his party.
Now, if civil-service reform is to spread or even to take no steps
backward, public opinion must be armed for continual battle
against party politicians. But it is an insult to the country when,
as too often happens, some one tries to make it appear that the
opponents of reform are consciously corrupt. The difficulty of
the problem lies just in the fact that most honourable motives
may be uppermost on both sides; and one has to recognize this,
although one may be convinced that the reformer has the better
arguments on his side. The filling of positions by party adherents,
as a reward for their services, puts an extraordinary amount
of willing labour at the service of the party. And undoubtedly
the party system is necessary in America, and demands for its existence
just such a tremendous amount of work. The non-classified
positions are to the American party politicians exactly what
the orders and titles which he can award are to the European
monarch; and the dyed-in-the-wool party leader would in all
honesty be glad to throw overboard the whole “humbug” of civil-service
reform, since he would rather see his party victorious—that
is, his party principles acknowledged in high federal places—than
see his country served as economically, faithfully, and ably as
possible. In fact, the regular party politician has come to look on
the frequent shake-up among office-holders as an ideal condition.
Just as no President can be elected more than twice, he conceives
it to be unsound and un-American to leave an official too long in
any one position.
The full significance of the problem comes out when one
realizes that the same is true once more in the separate state, and
again in every municipality. The states and cities have their
classified service, appointment to which is independent of party
196allegiance, as of governor or mayor, and in addition to this confidential
positions for which the governor and legislature or the
mayor and city council are responsible. Municipal service has
attracted an increasing amount of public attention in recent years,
owing to the extremely great abuses which it can harbour.
Fraudulent contracts, the grant of handsome monopolies to
street railway, gas, electric-light, telephone, and pier companies,
the purchase of land and material for public buildings, and the
laying out of new streets—all these things, owing to the extraordinarily
rapid growth of municipalities, afford such rich opportunities
for theft, and this can be so easily hidden from the state
attorney, that frightfully large numbers of unscrupulous people
have been attracted into public life. And the more that purely
municipal politics call for a kind of party service which is very
little edifying or interesting to a gentleman in frock and silk hat,
so much the more other kinds of men force their way into politics
in large cities and get control of the popular vote, not in order to
support certain principles, but to secure for themselves positions
from the winning party, of which the salary is worth something
and the dishonest perquisites may be “worth” a great deal more.
Even here again the service to the city is not necessarily bad, and
certainly not so bad as the scandal-mongering press of the opposite
party generally represents it. Most of the office-holders are
decent people, who are contented with the moderate salary and
modest social honour of their positions. Nevertheless, a good
deal that is impure does creep in, and the service would be more
efficient if it could be made independent of the party machine.
Public opinion is sure of this.
Each party is naturally convinced that the greatest blame belongs
with the other, and in strict logic one can no more accuse
one party of corruption than the other. The Republican party in
a certain sense whets the general instinct for greed more than the
Democratic, so that its opponents like to call it “the mother of
corruption.” It is a part of the Republican confession of faith, in
consequence of its centralizing spirit, that the state cannot leave
everything to free competition, but must itself exert a regulating
influence; thus the Republican does not believe in free-trade, and
he thinks it quite right for an industry or any economic enterprise
which is going badly, or which fancies that it is not prospering
197enough, or which for any reason at all would like to make more
money, to apply to the state for protection, and to be favoured at
the expense of the rest of the community. The principle of complete
equality is here lost, and the spirit of preference, of favours
for the few against the many, and of the employment of public
credit for the advantage of the avaricious, is virtually recognized.
And when this spirit has once spread and gone through all party
life, there is no way of preventing a situation in which every one
applies to the public funds for his own enrichment, and the strongest
industries secure monopolies and influence the legislatures in
their favour by every means which the party has at its disposal.
The Democrats, on the other hand, desire equal rights for all,
and free competition between all economic enterprises; they approve
of all centrifugal and individualistic tendencies. And yet
if the state does not exert some regulative influence, the less moral
elements of society will misuse their freedom, and they will be freer
in the end than the citizens who scrupulously and strictly govern
themselves. And the spirit of unrestraint and immorality will be
ever more in evidence. The Democratic party will be forced to
make concessions to this idea if it desires to retain its domination
over the masses, and any one who first begins to make concessions
to individual crookedness is necessarily inoculated. Thus it
happens that in the Republican party there is a tendency to introduce
corruption from above, and in the Democratic party
from below.
If in a large town, say, the Republican party is dominant, the
chief public enemies will be the industrial corporations, with
their tremendous means and their watered securities; but if the
Democratic party is uppermost, the worst enemies will be the
liquor dealers, procurers, and gamblers. Correspondingly, in
the former case, the honour of the city council which closes huge
contracts with stock companies will succumb, while in the latter it
will be the conscience of the policeman on the corner who pockets
a little consideration when the bar-keeper wants to keep open
beyond the legal hour. And since the temptation to take small
bribes are ten thousand times more frequent than the chances for
graft on a large scale, the total damage to public morals is about
the same in both cases. But we must repeat once more that these
delinquencies are after all the exception rather than the rule, and
198happily are for the most part expiated behind the bars of a penitentiary.
Most of all, it must be insisted that public opinion is all the time
following up these excrescences on party life, and that public opinion
presses forward year by year at an absolutely sure pace, and
purifies the public atmosphere. All these evil conditions are easy
to change. When Franklin came to England he was alarmed to
see what fearful corruptions prevailed in English official life; such
a thing was unknown at that time in America. Now England
has long ago wiped out the blot, and America, which fell into its
political mire a half-century later, will soon be out again and free;
just as it has got rid of other nuisances. Every year brings some
advance, and the student of American conditions should not let
himself be deceived by appearances.
On the surface, for instance, the last mayoralty election in New
York City would seem to indicate a downward tendency. New
York two years previously had turned out the scandalous Tammany
Hall gang with Van Wyck and his brutal extortionist, Chief
of Police Devery, by a non-partisan alliance of all decent people
in the city. New York had elected by a handsome majority
Seth Low, the President of Columbia University, to be its mayor,
and thereby had instated the principle that, the best municipal
government must use only business methods and be independent
of political parties. Seth Low was supported by distinguished
reformers in both parties, and was brilliantly successful in placing
the entire city government on a distinctly higher level. The public
schools, the general hygiene, the highways, and the police force
were all thoroughly cleansed of impure elements and reformed
without regard to party, on the purest and most business-like
principle.
And then came the day for another election. Once more the
independent voters, including the best men in both parties, the
intellectual leaders and the socially dominant forces of the city,
were banded together again to save their city of three million
inhabitants from party politics, and to insure by their co-operation
a continuance of the honest, business-like administration.
They made Seth Low their candidate again; he was opposed by
McClellan, the candidate of Tammany Hall, the party which
loudly declares that “To the victors belong the spoils,” and that
199the thousands of municipal offices are to be the prey of party
adherents. This was the candidate of the party which admitted
that all the hopes of the worst proletariat, of prostitution and
vagabondage, depended on its success; the candidate of a party
which declared that it would everywhere rekindle the “red light,”
that it would not enforce the unpopular temperance laws, and
that it would leave the city “wide open.” On the day of election
251,000 votes were cast for Mayor Low, but 313,000 for Colonel
McClellan.
Now, does this really indicate that the majority of the city of
New York consists of gamblers, extortioners, and criminals? One
who read the Republican campaign literature issued before the
election might suppose so. After reading on every street corner and
fence and on giant banners the campaign cry, “Vote for Low and
keep the grafters out,” one might think that 300,000 pick-pockets
had united to force out a clean administration and to place corruption
on the throne. But on looking more closely at the situation
one must see that no such thing was in question. Seth Low
had furnished a clean administration, yet not a perfect one, and his
mistakes had so seriously disaffected many citizens that they would
rather endure the corruption of Tammany Hall than the brusqueness
and various aggravations which threatened from his side.
Of these grievances, a typical one was the limitation of German
instruction in the public schools. From the pedagogical point of
view, this was not wholly wrong; and leading educationists, even
German ones, had recommended the step. But at the same time
the great German population was bitterly offended, and the whole
discussions of the school board had angered the German citizens
enough to cool off considerably their enthusiasm for reform.
Then on top of this, Low’s administration had rigorously enforced
certain laws of Sunday observance which the German part of the
population cordially hated. Here, too, Mayor Low was undoubtedly
right; he was enforcing the law; but when two years previously
he had wished to win over the German vote, he had promised
more than he could fulfill. But, most of all, Seth Low was
socially an aristocrat, who had no common feeling with the masses;
and whenever he spoke in popular assemblies he displayed no
magnetism. Every one felt too keenly that he looked down on
them from his exalted social height.
200Against him were the Tammany people, of whom at least one
thing must be said: they know the people and their needs. They
have grown up among the people. In contrast to many a Republican
upstart who, according to the European fashion, is servile
to his superiors and harsh with his inferiors, these Tammany men
are harsh to their superiors—that is, they shake the nerves of the
more refined—but are servile before the masses and comply with
every wish. And most of all, they are really the friends of the
populace, sincerely true and helpful to it. Moreover, just these
great masses have more to suffer under a good administration
than under the corrupt government which lets every one do as he
likes. These people do not notice that the strict, hygienic administration
reduced the death-rate and the list of casualties, and improved
the public schools; but they notice when for such improvements
they have to pay a cent more in taxation, or have to
put safer staircases or fire-escapes on their houses, or to abandon
tottering structures, or if they are not allowed to beg without a
permit, or are forbidden to throw refuse in the streets. In short,
these people notice a slight expense or an insignificant prohibition,
and do not see that in the end they are greatly benefited.
And so, when the day of reckoning comes, when the election campaigns
are fought, in which distinguished reformers deliver scholarly
addresses on the advantages of a non-partisan administration
while the candidates of the people excite them with promises that
they shall be free from all these oppressive burdens—it is no
wonder that Seth Low is not returned to the City Hall, and that
McClellan, who by the way is a highly educated and cultured
politician, is entrusted with the city government.
Such an outcome is not a triumph for vice and dishonour. In
two years the reformers will probably conquer again, since every
administration makes its enemies and so excites opposition. But
there can be no doubt that even on this occasion public opinion,
with its desire to reform, has triumphed, although the official
friends of reform were outdone; such a man as the former Chief
of Police, Devery, will be impossible in the future. Public opinion
sees to it that when the two parties stand in opposition the fight
is fought each successive time on a higher level. And Tammany
of to-day as compared with the Tammany of years gone by is the
best evidence for the victory of public opinion and the reformers.
201
The attitude of America in international affairs can hardly be
referred to any one special trait of mind. If one were to seek
a simple formula, one would have to recognize in it a certain
antithesis of mood; an opposition which one encounters in the
American people under the most varied circumstances, and which
perhaps depends on the fact that it is a people which has developed
an entirely new culture, although on the basis of the high
culture of the Old World. When we come to speak of American
intellectual life we shall have again to consider this extraordinary
combination of traits. The people are youthful and yet mature;
they are fresher and more spontaneous than those of other mature
nations, and wiser and more mature than those of other youthful
nations; and thus it is that in the attitude of the Americans toward
foreign affairs the love of peace and the delight in war combine to
make a contrast which has rarely been seen. Doubtless there is an
apparent contradiction here, but this contradiction is the historical
mark of the national American temperament; and it is not to be
supposed that the contradiction is solved by ascribing these diverse
opinions to diverse elements in the population, by saying,
for instance, that one group of citizens is more warlike, another
more peaceable; that perhaps the love of hostile interference
springs from the easily excited masses, while the love of peace is
to be sought in their more thoughtful leaders, or that perhaps, on
the other hand, the masses are peaceably industrious while their
leaders draw them into war.
Such is not at all the case. There is not any such contrast
between the masses and the classes; personal differences of opinion
there are and some individuals are more volatile than others,
but the craze for expansion in its newest form finds strong supporters
202and violent opponents in all parties and occupations.
The most characteristic feature is, that just those who show the
love for war most energetically are none the less concerned, and
most earnestly so, for the advance of peace. President Roosevelt
is the most striking example of the profound combination of these
opposing tendencies in one human breast.
Every movement toward peace, in fact every international
attempt toward doing away with the horrors of war, has found in
the New World the most jealous and enthusiastic supporters;
whenever two nations have come to blows the sympathies of the
Americans have always been on the side of the weaker nation, no
matter which seemed to be the side of justice. And the mere
circumstance that two nations have gone to war puts the stronger
power in a bad light in the eyes of America.
The nation has grown strong by peaceful industry; its greatest
strength has lain in trade and the arts, its best population has
come across the ocean in order to escape the military burdens of
Europe; and the policy of the founders of the Republic, now become
a tradition, was always to hold aloof from any dealings
with the quarrelsome continent of Europe. During the short time
of its existence, the United States has settled forty-nine international
disputes in a peaceable court of arbitration, and oftentimes
these have been in extremely important matters; and
America has been a party in over half of the disputes which have
been settled before a court of arbitration in recent times. America
was an important participant in the founding of the Peace
Tribunal at The Hague. When negotiations for that tribunal
threatened to be frustrated by the opposing nations of Europe,
the American government sent its representatives to the very
centre of the opposition, and won a victory for the side of peace.
It is almost a matter of course that it is the munificent gift of
an American which has erected a palace at The Hague for this
international Peace Tribunal. While the European nations are
groaning under the burden of their standing armies, and are
weakened by wars over religious matters or the succession of
dynasties, happy America knows nothing of this; her pride is the
freedom of her citizens, her battles are fought out at the ballot-box.
The disputes between sects and royal houses are unknown
in the New World; its only neighbours are two oceans on the
203east and west, and on the north and south good friends. No end
of progress remains to be made, but everything works together
under the protection of the American Constitution to produce a
splendid home in the New World for peace. America is the one
world power which makes for peace; and it will only depend on
the future growth of this nation, which has been ordained to become
such an example, whether the idea of peace will finally prevail
throughout the world over the immoral settlement of disputes
by mere force of arms.
All this is not merely the programme of a party or of a group of
people, but the confession of faith of every American. The
American finds no problem here, since none would dispute the
contention. It has all impressed itself so fully on the consciousness
of the American people that it gives to the whole nation a feeling
of moral superiority. Nor is this merely the pathos uttered
in moral orations; it is the conviction with which every child
grows up and with which every farmer goes to his plough, every
artisan and merchant to his machine and desk, and the President
to his executive chamber. And this conviction is so admirable
that it has always been contagious, and all Europe has become
quite accustomed to considering the Republic across the water as
the firmest partisan of peace. The Republic has in fact been this,
is now, and always will be so; while the riddle is—how it can be
such a friend of peace when it was conceived in war, has settled
its most serious problems by war, has gone to war again and
again, has almost played with declarations of war, is at war to-day,
and presumably will be at war many times again.
The Spanish war has shown clearly to European onlookers the
other side of the shield, and many have at once concluded that
the boasted American love of peace has been from the first a grand
hypocrisy, that at least under McKinley’s administration an
entirely new spirit had suddenly seized the New World. But
McKinley’s predecessor, Cleveland, in the disputes arising between
England and Venezuela, had waved the sabre until it hissed
so loudly that it was not at all due to the American love of peace
but rather to England’s preoccupation in the Transvaal which
prevented the President’s message and the national love of interference
from stirring up a war. And it is now several years since
the successor of McKinley moved into the White House, yet
204McKinley’s war is still going on; for although a war has never
been officially declared in the Philippines, war seems the only
correct name for the condition which there prevails.
This Philippine question is a real political problem. That
America is to serve the interests of peace is certain; every one
is agreed on that; and the great majority of the people was
also enthusiastically in favour of ending the Spanish misrule in
Cuba. But the same is not true of the war in the Philippines, and
becomes less true every day. The enthusiasts have subsided,
the masses have become indifferent, while the politicians carry on
the discussion; and since it is a question of motives which cannot
be put aside for the present, and which at any time may so excite
the nation as to become the centre of political discussion, it is well
worth while to look more fully into these points.
The imperialists say that the events in the Pacific Ocean have
followed exactly the traditions of the land; that expansion has
always been a fundamental instinct of the nation; that its whole
development shows that from the day when the Union was
founded it commenced to increase its territory. The tremendous
expansion gained by the purchase of Louisiana was followed
by the annexation of Florida, and still later by that of the great
tract called Texas. In the war with Mexico the region between
Texas and California was acquired. Alaska was next gathered in.
The narrow strip originally occupied by the Thirteen States became
a huge country within a century, and thus the nation simply
remains true to its traditions in stretching out over the ocean
and carrying the Stars and Stripes toward Asia.
To this the anti-imperialists reply, on the contrary, that the
United States is repudiating an honourable history and trampling
down that which has been sacred for centuries. For if there
has been any underlying principle at all to guide the United
States in moments of perplexity, it has been a firm faith in the
rights of people to govern themselves. The United States has
never exchanged or acquired a foot of land without the consent
of those who dwelt thereon. Where such lands have held nothing
but the scattered dwellings of isolated colonists there existed
no national consent to be consulted, and where there were no
people no national self-government could come in question;
neither Louisiana, California, nor Alaska was settled by a real
205nation, and Texas had of itself decided to become independent
of Mexico. But the Philippines are inhabited by ten million
people, with striking national traits and an organized will; and
the United States, for the first time in history, now misuses its
strength by oppressing another nation and forcing its own will
on a prostrate people.
Now the imperialists reply they do not mean at all to dispute
the right of self-government, a principle on which the greatness
of our nation is founded. But it is a narrow and absurd conception
of self-government which regards every people, however
backward and unruly, capable thereof, and divinely privileged to
misrule itself. The right of self-government must be deserved;
it is the highest possession of civilized nations, and they have
earned it by labour and self-discipline. The Americans derive
their right to govern themselves from the toil of thirty generations.
The Filipinos have still to be educated up to such a
plane. To this the anti-imperialists enquire, Is that to be called
education which subdues, like rebels, a people desirous of freedom?
Are you helping those people by sending soldiers to assert
your sovereignty?
And the imperialists reply again that we have sufficiently
shown, in the case of Cuba, how seriously we take our moral obligations
toward weaker peoples. When we had done away by
force of arms with all Spanish domination in America, and had
Cuba quite in our power, all Europe was convinced that we
should never relax our hold, and that the war would result simply
in a mere annexation of the rich island; in short, that we should
pursue a typical European policy. But we have shown the world
that America does not send her sons to battle merely for aggrandizement,
but only in a moral cause; just as we demanded of the
conquered Spaniards no indemnity, so we have made a general
sacrifice for Cuba. We have laboured tirelessly for the hygiene
and the education of the island, have strengthened its trade and
awakened to new life the country which had been desolated by
Spanish misrule, and, having finished the work, we have restored
to Cuba her freedom and her right of self-government; and we
recognize that we owe a similar duty to the Philippines. We have
not sought to obtain those islands. At the outset of the war no
American foresaw that the island kingdom in the tropics, ten
206thousand miles away, would fall into our hands; but when the
chain of events brought it about, we could not escape the call of
duty. Were we to leave the discontented Philippine population
once more to the cruelty of their Spanish masters, or were we to
displace the Spaniards and then leave the wild race of the islands
to their own anarchy, and thus invoke such internal hostilities as
would again wipe out all the beginnings which had been made
toward culture? Was it not rather our duty to protect those who
turned to us, against the vengeance of their enemies, and before
all else to establish order and quietude? The anti-imperialists
retort—the quietude of a grave-yard. If America’s policy had
been truly unselfish, it should have made every preparation for
dealing with the Philippines as it had dealt with Cuba; instead of
fighting with the Filipinos we should at once have co-operated
with Aguinaldo and sent over a civil instead of a military regiment.
Nor is the world deceived into supposing that our boasted
civil rule in the Philippines is anything more than a name, used in
order somewhat to pacify the sentimentalists of the New England
States; while in reality our rule is a military one, and the small
success of a few well-meaning civil officials merely distracts the
world’s attention from the constant outbreaks of war. We have
not worked from the point of view of the Philippines, but from that
of the United States.
The imperialists answer that it is no disgrace to have been patriotic
to our Fatherland; the national honour requires us, indeed, to
remain for the present in the Philippines, and not to take down the
flag which we have hoisted so triumphantly. We should not flee
before a few disaffected races living in those islands. Then the
other side replies, you have not protected the honour of your nation,
but you have worked its disgrace. The honour of America
has been the moral status of its army; it was America’s boast that
its army had never lost the respect of an enemy, and that it had
held strictly aloof from every unnecessary cruelty. But America
has learned a different lesson in the Philippines, and such a one as
all thoughtful persons have foreseen; for when a nation accustomed
to a temperate climate goes to the tropics to war with wild races
which have grown up in cruelty and the love of revenge, it necessarily
forgets its moral standards, and gives free rein to the lowest
and worst that is in it. The American forces have learned
207there, to their disgrace, to conquer by deception and trickery;
to be cruel and revengeful, and so return torture for torture.
Then the imperialists say that this is not a question of the army
which was landed in the tropical islands, but of the whole American
people, which undertook new duties and responsibilities
for the islands, and wished to try, not only its military, but also
its political, economic, and social powers along new lines. A
people also must grow and have its higher aspirations. The
youthful period of the American nation is over; manhood has
arrived, when new and dangerous responsibilities have to be
assumed. To this the anti-imperialists reply, that a nation
is surely not growing morally when it gives up the principles
which have always been its sole moral strength. If it gives up
believing in the freedom of every nation and carries on a war
of subjugation, it has renounced all moral development, and
instead of growing it begins internally to decay. But this, the
imperialists say, is absurd—since, outwardly, at least, we are
steadily growing; our reputation before other nations is increasing
with our military development; we have become a powerful
factor in the powers of the world, and our Philippine policy shows
that our navy can conquer even in remote parts of the earth,
and that in the future America will be a power to reckon with
everywhere. But, on the contrary, say the others, our nation
held a strong position so long as, in accordance with the Monroe
Doctrine, it was able to keep any European power from getting
a foothold on the American continents, and so long as we made
the right of self-government a fundamental principle of our
international politics. But the instant we adopted a policy of
conquest and assumed the right to subjugate inferior peoples
because our armies were the stronger, the Monroe Doctrine became
at once and for the first time an empty phrase, if not a
piece of arrogance. We are no better than the next nation; we
have no right to prevent others from acting like ourselves, and
we have sacrificed our strong position, and shall be led from
war to war, and the fortunes of war are always uncertain.
The imperialists reply somewhat more temperately:—Ah, but
the new islands will contribute very much to our trade. Their
possession means the beginning of a commercial policy which will
put the whole Pacific Ocean at the disposal of the American
208merchant. Who can foresee what tremendous developments
may come from availing ourselves of regions lying so advantageously?
When Congress in 1803 started to buy the great
Province of Louisiana from France, there were also narrow-minded
protests. At that time, too, anti-imperialists and fanatics became
excited, and said that it was money thrown away; the
land would never be populated. While to-day, a hundred years
later, the world prepares to celebrate the anniversary of the
purchase of Louisiana by a magnificent exposition at St. Louis—a
transaction which has meant for the country a tremendous
gain in wealth and culture. America is destined to be the mistress
of the Pacific Ocean, and as soon as the canal is built across
the isthmus the economic importance of the Philippines will
appear more clearly every day. The anti-imperialists deny
this. The financial statement of the entire war with Spain to
the present moment shows that $600,000,000 have been wasted
and ten thousand young men sacrificed without any advantage
being so much as in sight. Whereto the imperialists reply:—There
are other advantages. War is a training. The best thing
which the nation can win is not riches, but strength; and in the
very prosperity of America the weakening effect of luxury is
greatly to be feared. The nerves of the nation are steeled in the
school of war, and its muscles hardened. But the other side
says that our civilization requires thousands of heroic deeds of
the most diverse kinds, more than it needs those of the field of
battle; and that the American doctrine of peace is much better
adapted to strengthen the moral courage of the nation and to
stimulate it than the modern training of war, which, in the end,
is only a question of expenditure and science. What we chiefly
need is serious and moral republican virtue. The incitements
toward acquisition and the spirit of war, on the other hand,
destroy the spirit of our democracy, and breed un-American,
autocratic ambitions. War strengthens the blind faith of the
leaders in their own dictatorial superiority, and so annihilates the
feeling of independence and responsibility in the individual; and
this is just the way for the nation to lose its moral and political
integrity. The true patriotism which our youth ought to learn
is not found in noisy jingoism, but in the silent fidelity to the
Declaration of Independence of our fathers.
209Thus the opinions are waged against one another, and so they
will continue to be. We must emphasize merely again and
again that that majority which to-day is on the side of the imperialists
believes at the same time enthusiastically in the international
movement for peace, and quite disinterestedly favours,
as far as possible, the idea of the peace tribunal. Most of all, the
treatment of Cuba certifies to the honourable and peaceful tendencies
of the dominant party. That which was done under
Wood’s administration for the hygiene of a country which had
always been stricken with yellow fever, for the school and judicial
systems of that unfortunate people, is remarkable; and the readiness
with which the new republic was afterward recognized,
and with which, finally, by special treaties extensive tariff reductions
were made to a people really dependent on trade with
America, makes one of the most honourable pages in American
history. And all this happened through the initiative of these
same men whose Philippine policy has been styled in the Senate
Napoleonic. Thus the fact remains that there is an almost
inexplicable mixture in the American nature of justice and covetiveness,
conscience and indifference, love of peace and love of war.
The latest phase in expansion has been toward the south.
America has assumed control of Panama. Constitutionally, the
case is somewhat different here. Panama belonged to the
Republic of Colombia, and when the government of Colombia,
which conducts itself for the most part like the king and his advisers
in a comic opera, tried to extort more money than was
thought just from Washington before it would sign the treaty
giving the United States a right to build a canal through Panama,
and at first pretended to decline the treaty altogether, a revolution
broke out in the part of the country which was chiefly affected.
Panama declared itself an independent state, and the United
States recognized its claim to independence, and concluded the
canal treaty, not with Colombia, but with the upstart government
of Panama. This was really part and parcel of the general
imperialistic movement. We need not ask whether the
American government encouraged Panama to secede; it certainly
did nothing of the sort officially, although it is perfectly certain
that the handful of people in Panama would not have had the
slightest chance of escaping unpunished by Colombia if it had
210not been for American protection; indeed, it seemed to feel sure
beforehand that the United States would keep Colombia at
bay. And in fact, the baby republic was recognized with all
the speed of telegraph and cable, and the treaty was signed before
Panama had become quite aware of its own independence; while
at the same time Colombia’s endeavour to bring the rebellious
district into line was suppressed with all the authority of her
mighty neighbour.
It is not to be denied that this transaction called into play new
principles of international politics; nor can it be excused on the
ground that new governments have been quickly recognized
before. Never before had the United States declared a rebellion
successful so long as the old government still stood, and the
new one was able to hold out only by virtue of the interference
of the United States itself. It is to be admitted that this was
an imperialistic innovation, as was the subjugation of the Filipinos.
But we should not be so narrow as to condemn a
principle because it is new. All past history makes the expansion
of American influence necessary; the same forces which make
a state great continue to work through its later history. America
must keep on in its extension, and if the methods by which the
present nations grow are necessarily different from those by
which the little Union was able to stretch out into uninhabited
regions a hundred years ago, then, of course, the expansion of
the twentieth century must take on other forms than it had in
the nineteenth. But expansion itself cannot stop, nor can it be
altered by mere citations from the Declaration of Independence,
or pointings to the petty traditions of provincial days. The
fight which the anti-imperialists are waging is thoroughly justified
in so far as it is a fight against certain outgrowths of such expansion
which have appeared in the Philippines, and most of all
when it is against the loss to the Republic, through expansion, of its
moral principles and of its finer and deeper feelings through
the intoxication of power. But the fight is hopeless if it is waged
against expansion itself. The course of the United States is
marked out.
It requires no special gift of prophecy to point out that the
211next expansion will be toward the north. Just as the relations in
Panama were fairly obvious a half year before the catastrophe
came, the suspicion cannot be now put by that at a time not far
hence the Stars and Stripes will wave in the northwestern part of
Canada, and that there too the United States will be unwilling
to lower its flag.
A newspaper is published in Boston which announces every
day, at the top of the page, in bold type, that it is the first duty
of the United States to annex Canada. On the other hand, one
hears the opinion that nothing could be worse for the United
States than to receive this immense, thinly populated territory
even as a gift. There are the same differences of opinion on the
other side of the boundary; some say that the Canadians are glad
to be free from the problems which face the United States, from
its municipal politics, its boss rule in political parties, and from
the negro and Philippine questions, and that Canadian fidelity
to the English Crown is not to be doubted for a moment. While
others admit quite openly that to be annexed to the United States is
the only natural thing that can happen to Canada. The immediate
future will probably see some sort of compromise. It
is wholly unlikely that the eastern part of Canada, in view of all
its traditions, will prove untrue to its mother country; whereas
the western part of Canada is under somewhat different economic
conditions; it has so different a history, and is to-day so
much more closely related to the United States than to England
that the political separation will hardly continue very long.
The thousands who have gone from the United States across
the Canadian frontier in order to settle the unpeopled Northwest
will, in the not distant future, give rise to some occasion
in which economic and political logic will decree a transfer of the
allegiance of Western Canada, with the exception of a narrow
strip of land along the Pacific Coast. The area of the United
States would then include a new region of about 250 million acres of
wheat lands, of which to-day hardly two millions are in cultivation.
The Canadian problem, of course, arose neither to-day nor
yesterday. The first permanent colony in Canada was a French
colony, begun in the year 1604. Frenchmen founded Quebec in
the year 1608, and French settlements developed along the St.
212Lawrence River. In the year 1759 General Wolfe conquered
Quebec for the English, and in the following year the whole
of Canada fell into their power. English and Scotch immigrants
settled more and more numerously in Upper Canada. The
country was divided in 1791 in two provinces, which were later
called Ontario and Quebec; and in 1867, by an act of the British
Parliament, Ontario, Quebec, New Brunswick, and Nova Scotia
were made into one country. A short time thereafter the government
of the new country bought the possessions of the Hudson
Bay Company, and soon afterward the large western region called
Manitoba was organized as a distinct province. In 1871 British
Columbia was taken in, and in the eighties this extensive
western land was divided into four provinces. During this
time there were all sorts of interruptions, wars with the Indians,
and disputes over boundaries; but there has never been open
warfare between Canada and the United States. The many
controversies that have arisen have been settled by treaty, and
a court of arbitration met even recently in London to settle a
dispute about boundaries which for many years had occasioned
much feeling. It was a question whether the boundary of the
Northwest should lie so as to leave to Canada a way to the coast
without crossing United States territory. The boundaries were
defined by the treaties as lying a certain distance from the coast;
was this coast meant to be mainland, or was it coastline marked
out by the off-lying groups of islands? This was a question of
great economic importance for a part of Canada. The court
decided in favour of the United States, but the decision does not
belong on one of the most honourable pages of American history.
It had been agreed that both England and the United States
should appoint distinguished jurists to the court of arbitration;
and this the English did, while the United States sent prejudiced
politicians. This has created some embitterment in Canada, and
the mood is not to-day entirely friendly, although this will doubtless
give way in view of the great economic development which
works toward union with the United States.
Such a union would be hindered very much more by the
friendly relations existing between the United States and England.
At the time when the family quarrel between mother and
daughter countries had made an open breach, it seemed almost
213certain that America would take the first good opportunity of
robbing England of her Canadian possessions. Even before the
early colonies decided on revolution, they tried to draw the
northern provinces into their train. And when the new Union
was formed, it seemed a most natural thing for all English speaking
inhabitants of the American Continent to participate therein.
It was no friendliness toward England that diverted the expansion
of the young country toward the south rather than
toward the north. It was rather the influence of the Southern
States of the Federation which encouraged the expansion toward
the south, because in that way their adjacent territory was increased,
and therewith the number of the slave states represented
in Congress; and the institution of slavery was thereby better
protected from Northern interference. England was the hereditary
foe of the country for an entire century, and every school
boy learned from his history book to hate England and to desire
revenge. But this has been wholly changed in recent years
by the sympathy which John Bull showed during the Spanish
war, and by his far-seeing magnanimity shown on a hundred
occasions. There are already preparations making for a special
court of arbitration to sit on all Anglo-American disputes, and
the mood of the American people is certainly inclined to avoid
everything that would unnecessarily offend England. American
politicians would thus hesitate very long before attempting so
bold a step as the annexation of Canada; and thus it is that the
Canadian problem gets into the programme of neither party.
Another consideration which perhaps makes a difference is
that no party is quite sure which side would be the gainer; whether
among the millions of people in the Canadian West there would
be found to be more Republicans or Democrats. Therefore,
Canada is not now an issue between the parties. Nevertheless,
the problem grows more and more important in public opinion,
and however much Congress may be concerned to avoid a war
with England, and determined never deliberately to bring about
any disloyalty in Canada, we may be certain that once the American
farmers and gold miners in Northwestern Canada have set
the pro-American ball rolling, then the general mood will speedily
change and the friendly resolutions toward England which will
be proposed by Senators will sound very feeble.
214The most natural desire, which seems to be wide-spread, is
for reciprocity with Canada. Both countries are aware that
they are each other’s best purchasers, and yet they put difficulties
in the way of importing each other’s products. American industry
has already invested more than $100,000,000 for branch factories
in Canada, in order to avoid duties; and the industry of
New England would doubtless be much benefited if Canadian
coal might be delivered duty-free along the Atlantic coast; nevertheless,
the chief disadvantages in the present arrangements fall
to Canada. A treaty was concluded in 1854 which guaranteed
free entrance to the markets of the United States for all Canadian
natural products, and during the twelve years in which the treaty
was in force, Canadian exports increased fourfold. Then the
American protective tariff was restored; and while, for example,
the agricultural products which Canada sold to the United States
in 1866 amounted to more than $25,000,000, they had decreased
by the beginning of the twentieth century to $7,367,000; and all
Canadian exports to the United States, with the exception of
coin and precious metals, in spite of the tremendous growth of
both countries, had increased at the same time only 5 per cent.
Canada, on the other hand, contented herself with modest duties,
so that the commerce of the United States with Canada has increased
from $28,000,000 in the year 1866 to $117,000,000 in the
year 1900. The necessary result of this policy of exclusion on the
part of the United States has necessarily been closer economic
relations between Canada and England. The Canadian exports
to Great Britain have increased steadily, and the bold plans
of those who are to-day agitating a tariff union for all Great
Britain would, of course, specially benefit Canadian commerce.
But the United States knows this, and does not fail to think
on the future. The agitation for new commercial treaties with
Canada does not spring from the supporters of free-trade, but
from some most conservative protectionists, and may be ascribed
even to McKinley and Dingley; and this agitation is steadily
growing. On the other hand, Canada is by no means unanimously
enthusiastic for the universal British reciprocity alliance. The
industrial sections of Eastern Canada see things with different
eyes from the agrarians of Western Canada, and opinions are just
as diverse as they are in England. The economic needs of the
215East and West are so fundamentally different, and since the West
so greatly needs reciprocity, it is coming more and more to look
for a solution of this problem by seeking, through a union of the
West with the United States, all that which England cannot offer.
The government of Canada, which comprises remarkably effective
and intelligent men, is aiming to nip the incipient disaffection of
the West in the bud, by means of its railroad policy. Railroad
lines connect to-day the western portion of Canada much more
closely with the eastern portion than with the northern parts of
the United States.
The economic possibilities of Western Canada are enormous,
and would suffice for a population of a hundred million. The
supply of lumber exceeds that of the United States. Its gold
regions are more extensive, its coal and iron supplies are inexhaustible,
its nickel mines the richest in the world; it has twice
the supply of fish of the United States, and its arable lands could
feed the population of the United States and Europe together.
Everything depends on making the most of these possibilities,
and the Canadian of the West looks with natural envy on the
huge progress which the entirely similar regions of the United
States are making, and is moved to reflect how different things
would be with him if only the boundary lines could be altered.
More than anything else, however, the Westerner feels that a
spirit of enterprise, industrial energy, and independent force
is needed to exploit these enormous natural resources, such
as the inhabitants of a dependent colony can never have.
Even when a colony like Canada possesses a certain independence
in the administration of its own affairs, it is still
only the appearance and not the fact of self-government. One
sees clearly how colourless and dull the intellectual life of Canada
is, and how in comparison with the very different life of England
on the one hand, and of the United States on the other,
the colonial spirit saps and undermines the spirit of initiative.
The people do not suffer under such a rule; they do not
feel the political lack of fresh air, but they take on a subdued
and listless way of life, trying to adapt themselves to an alien
political scheme, and not having the courage to speak out boldly.
This depression is evinced in all their doings; and this is not the
spirit which will develop the resources of Western Canada. But
216this infinite, new country attracts to its pioneer labours fresh energies
which are found south of the Canadian line and across the
ocean. The Scotch, Germans, Swedes, and especially Americans
emigrate thither in great numbers. The farmers in the western
United States are to-day very glad to sell their small holdings,
in order to purchase broad tracts of new, fresh ground in Canada,
where there is still no lack of room. They will be the leaders
in this new development of the West. And while they bring with
them their love of work and enterprise, they are of course
without sympathy with Canadian traditions; nor do they feel
any patriotism toward the country: their firmest convictions
point toward such political freedom as the United States offers.
Whether the tariff schemes of England will be able to win back
some advantages for Canada, only the future can say. It is more
likely that inasmuch as the Philippine agitation has extended
the influence of the United States into the tropics, the climatic
equilibrium will be restored by another extension into the Canadian
Northwest.
The relations of the United States to Cuba and to the Philippines,
to Panama and to Canada, have been regulated by the
immediate needs of the country without bringing into special
prominence any general principles. Economic interest and
general ethics have so far sufficed, and only here and there has
mention been made of the fundamental doctrines contained in the
Declaration of Independence. The case of South America is
quite different; the policy of the United States toward South
America is dictated to-day neither by economic interests nor
moral principles; in fact, it is a mockery of morals and a great
prejudice to American industry. The sole source of this policy
is an abstract political doctrine, which a long time ago was
both economically and morally necessary, but is to-day entirely
without value; this is the Monroe Doctrine. The observance of
this famous doctrine is one of the most interesting instances
of the survival of an outlived political principle, and the blind
way in which this prejudice is still favoured by the masses, so that
even the leading politicians would not dare, at the present time,
to defend the real interests of the country by opposing this doctrine,
217shows clearly how democracy favours rule of thumb, and
how the American people is in its thought conservative to the
last degree. The Monroe Doctrine has done the United States
good service, and redounded to both its profit and its honour.
And so no one ventures to disturb it, although it has long ceased
to bring anything except disadvantage. Some of the best people
know this; but where the people rule it is as true as where a
monarch rules, that the misfortune of rulers is not to wish to hear
the truth.
The blind folly of the Americans in holding tenaciously to
the antiquated Monroe Doctrine is surpassed only by the madness
of those Europeans who wish to take up arms against that
doctrine. All the declarations of the Old World to the effect that
the Monroe Doctrine is an unheard of piece of arrogance, and that
the Americans have no right to assert themselves in such a way,
and that it is high time forcibly to call their right in question, are
historically short-sighted as well as dangerous. They are unhistorical,
because there really was a time when this doctrine
was necessary to the existence of the United States, and when,
therefore, the country had a right to assert such doctrine; and
now that it has been silently respected for a hundred years, any
protest against it comes too late. Opposition to the doctrine
from the side of Europe would be foolish, because no European
country has any really vital reason for calling it in question, and
there would be a very lively war indeed if Europe were to try
to overstep the Monroe Doctrine as long as the great mass of
the American people still hold it sacred. The Monroe Doctrine
must and will succumb, but it will only be through the convictions
of the Americans, never because some European nation
threatens to batter down the wall. The logic of events is, after
all, stronger than the mere inertia of inherited doctrines. The
hour seems near when the error and folly of the Monroe Doctrine
are about to be felt in wider circles than ever before. The opposite
side is already ably supported in addresses and essays. Soon
the opposition will reach the newspapers, which are to-day, of
course, still unanimous on the popular side; and whenever a
wholesome movement commences among the American people
it generally spreads with irresistible speed. We have seen how
rapidly the imperialistic idea took hold on the masses, and the
218repudiation of the theory of Monroe will follow quite as rapidly;
since the nation cannot, for the sake of a mere whim, permanently
forget its best interests. It is only a question of overcoming
the inertia of long custom.
The spirit of the Monroe Doctrine was abroad long before
the time of Monroe. It was agreed, from the earliest days of
the federal government, that the new nation should keep itself
clear of all political entanglement with Europe, that it would not
mix in with the destinies of European peoples, and that it would
expect of those peoples that they should not spread the boundaries
of their possessions over to the American continents. When
President Washington, in 1796, took his farewell of the nation, he
recommended an extension of commercial relations with Europe,
but entire aloofness from their political affairs. “The nations
of Europe,” he said, “have important problems which do not
concern us as a free people. The causes of their frequent misunderstandings
lie far outside of our province, and the circumstance
that America is geographically remote will facilitate our
political isolation, and the nations who go to war will hardly
challenge our young nation, since it is clear that they will have
nothing to gain by it.”
This feeling, that America was to have nothing to do with
European politics, and that the European nations should on no
condition be allowed to extend their sphere of action on to the
American continents, grew steadily. This national conviction
rested primarily on two motives: firstly, America wanted to be
sure of its national identity. It felt instinctively that, if it were to
become involved in European conflicts, the European powers
might interfere in the destinies of the smaller and growing nation,
and that the danger of such interference would increase tremendously
if the great nations of Europe were to gain a foothold
in the neighbourhood of the young republic on this side
of the ocean. In the second place, this nation felt that it had
a moral mission to perform. The countries of Europe were
groaning under oppression, whereas this nation had thrown
off the English yoke, and proposed to keep the new continent
free from such misrule. In order to make it the theatre for an
experiment of modern democracy, no absolute monarchs were
to set foot in this new world; the self-government of the people was
219to remain unquestioned, and every republic was to be free to
work out its own salvation.
Thus the desire for self-protection and a moral interest in the
fight against absolutism have prescribed a course of holding aloof
from European affairs, and of demanding that Europe should
not reach out toward the American continents. This has become
a cardinal principle in American politics. The opportunity soon
came to express this principle very visibly in international politics.
The Holy Alliance between Austria, Russia, and Prussia
was believed by America, ever since 1822, to have been arranged
in order to regain for Spain the Spanish colonies in South
America. England wished to ally itself with the United States;
but they, with excellent tact, steered their course alone. In 1822
the United States recognized the independence of the Central
American republics; and in 1823, President Monroe, in his
message to Congress, which was probably penned by John
Quincy Adams, who was then Secretary of State, set down this
policy in black and white. Monroe had previously asked ex-President
Jefferson for his opinion, and Jefferson had written that
our first and fundamental maxim should be, never to involve
ourselves in European disputes; and our second, never to permit
Europe to meddle in cis-Atlantic affairs, North and South
America having their own interests, which are fundamentally
different from those of Europe. Now the message of President
Monroe contained the following declarations: “That we should
consider any attempt on their part [of the allied powers] to extend
their system to any portion of this hemisphere as dangerous to our
peace and safety,” and “that we could not view any interposition
for the purpose of oppressing [governments on this side of the
water whose independence we had acknowledged], or controlling
in any manner their destiny by any European power, in any other
light than as a manifestation of an unfriendly disposition toward
the United States.”
Thus the famous Monroe Doctrine was announced to the
world, and became an international factor sufficiently potent
even to prevent Napoleon from realizing his plans regarding
Mexico, and in more recent times to protect Venezuela from
the consequences of her misdeeds. And although, at just that
time of the Venezuelan dispute, the old Monroe Doctrine was
220in so far modified that the Presidential message conceded to
European powers their right to press their claims by force of
arms, so long as they claimed no permanent right of occupation,
nevertheless the discussions ended with the extreme demand that
foreign powers should be content with the promise of a South
American state to pay its debts, and should receive no security;
nor did the United States give security for the payment, either.
After eighty years the doctrine is still asserted as it has been
from the first, although the situation is in all respects very different.
A few brief instances of these changes must suffice us.
In the first place, the two fundamental motives which gave rise
to the doctrine, and in which all important documents are so
clearly enunciated from the time of Washington to that of Monroe,
have long since ceased to exist. The contrast between Europe
as the land of tyranny and America as a democratic free soil,
no longer holds; nor can the notion be bolstered up any longer,
even for political ends. In the first place all countries of Western
Europe now enjoy popular representation, while the Latin republics
of South America, with the exception of Chili and
the Argentine Republic, are the most absurd travesties of freedom
and democracy. Conditions in Venezuela and Colombia are
now pretty well known. It has been shown, for instance, that
about one-tenth of the population consists of highly cultivated
Spaniards, who take no part in politics, and suffer under a
shameless administrative misrule; that some eight-tenths more are
a harmless and ignorant proletariat of partly Spanish and partly
Indian descent—people who likewise have no political interest,
and who are afraid of the men in power—while the remaining
tenth, which is of mixed Spanish, Indian, and negro blood, holds
in its hands the so-called republican government, and keeps
itself in power with every device of extortion and deception, and
from time to time splits up into parties which throw the whole
country into an uproar, merely for the personal advantages of the
party leaders.
Even in America there is no longer a political back-woodsman
who supposes that a republic like what the founders of the United
States had in mind, can ever be made out of such material; and
when, in spite of this, as in the negro question, some one gets up
at the decisive moment of every discussion and tries to conjure with
221the Declaration of Independence, even such an appeal now often
misses its effect. Since the Americans have gone into the
Philippines they can no longer hold it an axiom that every government
must be justified by the assent of the governed. People
have learned to understand that the right of self-government must
be earned, and is deserved only as the reward of hard work; that
nations which have not yet grown to be orderly and peaceable
need education like children who are not yet of age and do not
know what is good for them. To say that the pitiable citizen of a
corrupt South American republic is freer than the citizen of
England, France, or Germany would be ridiculous; to protect the
anarchy of these countries against the introduction of some
European political system is at the present time not a moral
obligation, surely, which the American Republic need feel itself
called on to perform. The democratic idea, as realized in American
life, has become much more influential on the governments
of Europe than on those of South America, notwithstanding their
lofty constitutions, which are filled with the most high-flown moral
and philosophical utterances, but are obeyed by no one.
Now the other motive which supported the Monroe Doctrine,
namely, the security of the United States and of their peaceful isolation,
has to-day not the slightest validity; on the contrary, it is the
superstitious faith in this doctrine which might conceivably endanger
the peace of the country. Of course, this is only in so
far as the doctrine applies to South America, not to Central
America. It would indeed be impossible for the United States
to allow, say Cuba, in passing from Spanish hands, to come
into possession of another European nation; in fact, no part of
Central America could become the seat of new European colonies
without soon becoming a seat of war. The construction of
the canal across the isthmus confirms and insures the moral
and political leadership of the United States in Central America
and the Antilles. But the situation is quite different in South
America. The Americans are too apt to forget that Europe is
much nearer to the United States than, for instance, the Argentine
Republic, and that if one wants to go from New York to the
Argentine Republic, the quickest way to go is by way of Europe.
And the United States have really very little industrial intercourse
or sympathy with the Latin republics. A European power adjoins
222the United States from the Atlantic to the Pacific Ocean; and
the fact that England, at one time their greatest enemy, abuts
along this whole border has never threatened the peace of the
United States; but it is supposed to be an instant calamity if
Italy or England or Holland gets hold of a piece of land far away
in South America, in payment of debts or to ensure the safety
of misused colonists.
So long as the United States were small and weak, this exaggerated
fear of unknown developments was intelligible; but
now that the country is large and strong, and the supposed contrast
between the Old and New Worlds no longer exists, since the
United States are much more nearly like the countries of Europe
than like the South American republics, any argument for the
Monroe Doctrine on the ground of misgivings or fear comes to
be downright hysterical. In the present age of ocean cables,
geographical distances disappear. The American deals with the
Philippines as if they were before his door, although they are
much farther from Washington than any South American country
is from Europe. Occasions for dispute with European countries
may, on the other hand, come up at any time without the
slightest reference to South America, since the United States have
now become an international power; it requires merely an objectionable
refusal to admit imports, some diplomatic mishap, or
some unfairness in a matter of tariff.
If, on the other hand, the European countries were to have
colonies in South America, as they have in Africa, no more occasions
for complaint or dissatisfaction would accrue to the United
States than from the similar colonies in Africa. No Russian
or French or Italian colony in South America would ever in the
world give rise to a difficulty with the United States through any
real opposition of interests, and could only do so because a
doctrine forbidding such colonies, which had been adopted
under quite different circumstances, was still bolstered up and
defended. If the Monroe Doctrine were to-day to be applied no
farther than Central America, and South America were to be
exempted, the possibilities of a conflict with European powers
would be considerably decreased. That which was meant
originally to guarantee peace, has, under the now wholly altered
conditions, become the greatest menace of war.
223But the main point is not that the motives which first led to the
Monroe Doctrine are to-day invalid; the highest interests of the
United States demand that this moribund doctrine be definitely
given up. In the first place, it was never doubted that the exclusion
of the Old World countries from the new American continents
was only the conclusion of a premise, to the effect that the Americans
themselves proposed to confine their political interests to their
own continent. That was a wise policy in the times of Washington
and Monroe; and whether or not it would have been
wise in the time of McKinley, it was in any case at that time
thrown over. The Americans have united with the European
forces to do battle in China; they have extended their own dominion
toward Asia; they have sent men-of-war to Europe on
political missions; in short, the Americans have for years been
extending their political influence around the world, and Secretary
Hay has for a long time played an influential part in the
European concert of powers. The United States have too often
defended their Monroe claim on the ground of their own aloofness
from these powers to feel justified in urging the claim when
they no longer do keep aloof.
There is another and more important consideration. The
real interest of the United States with regard to South America
is solely that that land shall develop as far as possible, that its
enormous treasures shall be exploited, and that out of a prosperous
commercial continent important trade advantages shall accrue
to the United States. This is possible only by the establishment
of order there—the instant termination of anarchy. As long as the
Monroe Doctrine is so unnecessarily held to, the miserable and
impolitic stagnation of that ravaged country can never be bettered,
since all the consequences of that doctrine work just in the
opposite direction. It is sufficiently clear that progress will not
be made until fresh, healthy, enterprising forces come in from
outside; but now so soon as an Englishman or German or
other European undertakes to earn his livelihood there, he
is at once exposed to the shameless extortion and other chicanery
of the so-called governments. And when European capital wishes
to help the development of these countries, it is given absolutely
no protection against their wretched politics. And all this is
merely because the chartered rascals in power know that they
224can kill and steal with impunity, so long as the sacred Monroe
Doctrine is there, like an enchanted wall, between them
and the mother countries of their victims; they know only too
well that no evil can come to them, since the statesmen at Washington
are bound down to a prejudice, and required scrupulously
to protect every hair on their precious heads. All this prevents
any infusion of good blood from coming into these countries, and
so abandons the land entirely to the indolence of its inhabitants.
The conditions would be economically sounder, in almost every
part of South America, if more immigrants came in, and more
especially if those that came could take a larger part in the governments.
It would be somewhat different if the United States were to
admit, as a consequence of the Monroe Doctrine, its own responsibility
for the public administration of these countries, for
their debts and for whatever crimes they commit; in other words,
if the United States were virtually to annex South America.
There is no thought of this; the United States have recently, in
the Venezuela matter, clearly declined all responsibility. If,
while declining the responsibility, the United States persist in
affirming the Monroe Doctrine, they are to be charged inevitably
with helping on anarchy, artificially holding back the progress of
one of the richest and least developed portions of the earth, and
thereby hurting their own commercial outlook more than any
European protective tariff could possibly do. The greater part
Europe takes in South America, so much the more will trade and
commerce prosper; and in this pioneer labour, as history has
shown, the patient German is the best advance-agent. Almost all
the commercial relations between the United States and the South
American republics are meditated by European, and especially
German, business houses. The trade of the United States with
South America is to-day astonishingly small, but when finally the
Monroe barrier falls away it will develop enormously.
In all this America has not, from its previous policy, derived
even the modest advantage of endearing itself to the inhabitants
of these South American republics. Quite on the contrary,
the Monroe Doctrine sounds like the ring of a sword in the South
American ear. The American of the south is too vividly reminded
that, although the province of the United States is after
225all only a finite portion of the New World, the nation has, nevertheless,
set itself up as the master of both continents; and the
natural consequence is, that all the small and weak countries join
forces against the one great country and brood continually over
their mistrust. The attempts of the United States to win the
sympathies of the rest of America have brought no very great
results—since, in the States, sympathy has been tempered with
contempt, and in South America with fear. In short, the unprejudiced
American must come back every time to the ceterum censeo
that the Monroe Doctrine must finally be given up.
One point, however, must always be emphasized—that all the
motives speaking against the doctrine will be efficient only so
far as they appeal to the soul of the American people, and overthrow
there the economically suicidal Monroe Doctrine. On the
other hand, Europe would gain nothing by trying to tear in
pieces the sacred parchment; no possible European interest in
South America would compare in importance with the loss of
friendship of the United States. And so long as the overwhelming
majority of Americans holds to its delusions, the hostility
would be a very bitter one. Indeed, there would be no surer
way of stopping the gradual abandonment of the doctrine than
for Europe to attempt to dispute its validity.
The process of dissolution must take place in America; but
the natural interest and needs of the country so demand this
development that it may be confidently expected. A new time
has come: the provinciality of the Monroe Doctrine no longer
does for America as a world power, and events follow their
logical development; the time will not be long before the land
of the Stars and Stripes will have extended across Western Canada
to Alaska, and have annexed the whole of Central America;
while the Latin republics of South America, on the other hand,
will have been sprinkled in with English, Italian, French, and
German colonies; and most of all, those republics themselves, by
the lapse of the Monroe Doctrine, will have been won over to
law and order, progress and economic health. The United States
are too sound and too idealistic to continue to oppose the demands
of progress for the sake of a mere fetish.
Thus the dominion of this world power will grow. The influence
of the Army, and even more of the Navy, will help in
226this growth; even if the dreams of Captain Hobson are not realized.
To be sure, the dangers will also grow apace; with a great
navy comes the desire to use it. Nevertheless, one must not overlook
the fact that international politics are much less a subject
of public thought and discussion in America than in Europe.
For the American thinks firstly of internal politics, and secondly of
internal politics, and lastly of internal politics; and only at
some distant day does he plan to meditate on foreign affairs.
Unless the focus of public attention is distinctly transferred,
the idea of expansion will meet with sufficient resistance to check
its undue growth.
There is specially a thorough-going distrust of militarism, and
an instinctive fear that it works against democracy and favours
despotism; and there is, indeed, no doubt that the increasingly
important relations between this country and foreign powers
put more authority into the hands of the Presidential and Senatorial
oligarchy than the general public likes to see. Every
slightest concealment on the part of the President or his Cabinet
goes against the feelings of the nation, and this state of feeling
will hardly alter; it comes from the depths of the American character.
On the other hand, it is combined with a positive belief
in the moral mission of the United States, which are destined to
gain their world-wide influence, not by might, but by the force
of exemplary attainment, of complete freedom, admirable organization,
and hard work. Any one who observes the profound
sources of this belief will be convinced that any different feelings
in the public soul, any greed of power, and any imperialistic instincts,
are only a passing intoxication. In its profoundest
being, America is a power for peace and for ethical ideals.