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THE SOCIAL SCIENCE LIBRARY 
 
 SUGGESTIONS ON GOVERNMENT 
 
SUGGESTIONS 
 
 ON 
 
 GOVERNMENT 
 
 BY 
 
 SAMUEL E. MOFFETT 
 
 NEW AND REVISED EDITION 
 
 NEW YORK 
 
 THE HUMBOLDT LIBRARY 
 64 FIFTH AVENUE 
 
GENERAL 
 
 COPYRIGHT, 1894, MY S. E. MOFFETT. 
 COPYRIGHT, 1899, KY S. E. MOFFETT. 
 
CONTENTS. 
 
 CHAPTER PAGE 
 
 I The Source of Power, 9 
 
 II Direct Legislation, 24 
 
 III The True Functions of Representation, 46 
 
 IV -The Referendum and the Popular 
 
 Assembly, 53 
 
 V -- The Branches of Government, ... 60 
 
 VI Parties, 74 
 
 VII Municipal Government, 86 
 
 VIII Town and County Government, . . . 105 
 
 IX The State Legislature, 113 
 
 - The State Executive, 123 
 
 XI The National Legislature, 129 
 
 XII The National Executive 160 
 
 XIII Proportional Representation, . . . .167 
 
 - The Work of the Popular Assembly, . 179 
 -The Boss, 184 
 
 - The Referendum in Calif ornia, . . .192 
 
 XVII Some Practical Examples, 196 
 
 XVIII 1894-1897, 201 
 
 (3) 
 
 120836 
 
PREFACE TO THE SECOND EDITION. 
 
 Except for the final chapter and the correction of 
 a few verbal slips the following pages remain as they 
 were written in 1894. I have left them purposely 
 without alteration, notwithstanding the temptation 
 to avail myself of the easy wisdom that follows the 
 event, in order that the truth of the principles they set 
 forth may be subjected to the test of experience, each 
 reader making the application for himself, with the 
 developments of the past three years for his guide. 
 
 S. E. M. 
 
 NEW YORK, August, 1897. 
 
 (4) 
 
SUGGESTIONS ON GOVERNMENT 
 
 THE SOURCE OF PO\V 
 
 The American citizen is fond of calling himself a 
 sovereign. As a rule, however, his only act of sov- 
 ereignty is that of deciding which of two bosses shall 
 rule over him. When the two bosses are privately 
 in partnership, as they often are, the principle of 
 independent self-government, as we practice it, is 
 carried to its logical limit. 
 
 The first requisite to a thorough reform in Amer- 
 ican politics is the restoration of close contact 
 between the individual citizen and the agents whom 
 he selects to conduct his public affairs. Everything 
 depends upon that. We often talk about the advan- 
 tages of managing the Government on business 
 principles, but no attempt has yet been made in this 
 country to carry out the idea to its natural con- 
 clusion. Municipal reformers have imagined that 
 they were returning to business principles when 
 they advocated the concentration of executive power 
 in a mayor elected for two years, and of legislative 
 power in a council elected for the same period, and 
 subject to the mayor's veto. To comprehend the 
 
 (9) 
 
10 SUGGESTIONS ON GOVERNMENT. 
 
 business-like nature of this arrangement it is suffi- 
 cient to imagine it transferred to the affairs of a 
 private establishment. We may suppose the owner 
 of a great dry-goods house saying to his manager : 
 " You are to have the absolute control of the business 
 for two years, except when a new policy is to be 
 adopted, and then you will have the assistance of a 
 dozen clerks. I shall keep my eye on you, and if I 
 see you wasting my money or tangling up my 
 affairs, I shall beg you to stop. You are under no 
 obligation to pay any attention to my wishes, but, if 
 you persist in wrecking the business, I may get a 
 new manager when your two years are up, if you 
 have left anything to manage." 
 
 The first principle of business is that the pro- 
 prietor shall have, not merely the right of reviewing 
 the actions of his employes at fixed intervals, but 
 absolute control of them all the time. This should 
 also be recognized as the first principle of sensible 
 politics. 
 
 But how is the individual voter, who is the political 
 proprietor, to exercise his right of regular control 
 over his servants ? He must do it through a legal 
 organization, and the best form of organization for 
 the purpose is the popular assembly. The ancient 
 Teutonic folkmoot is still the basis upon which a 
 thoroughly trustworthy government must rest. All 
 students of our institutions unite in. commending the 
 admirable workings of the New England town meet- 
 ing, but they do not seem to realize the fact that the 
 principle of the town meeting is not bounded by the 
 needs of a rural community, but is one of universal 
 
THE SOURCE OF POWER. 11 
 
 application. This truth has been more nearly recog- 
 nized by Mr. Albert Stickney than by any other 
 writer with -whom I am familiar, and I wish at the 
 outset to acknowledge my obligations to his works 
 for ideas on this subject, which have been of infinite 
 service to me, and of which I have not hesitated to 
 make free use. But 'even Mr. Stickney, in his 
 luminous exposition of the value of the public meet- 
 ing as the primary organ of sovereignty, falls short 
 of appreciating its full possibilities. He limits the 
 work of the local assembly to local matters, and 
 contemplates an irrevocable delegation of the power 
 of the people to representative bodies ; and he con- 
 fides a more implicit trust in these bodies than there 
 is any reason to believe they deserve, or would 
 deserve, even under an ideal method of election. 
 The people in their primary assemblies should not 
 only be the ultimate source of power, but its per- 
 manent depository. They should be able to check 
 and guide the proceedings of their executive and 
 legislative servants at every stage. 
 
 The world has never yet had an opportunity to 
 see what a scientifically organized system of govern- 
 ment, regulated by public meeting, can accomplish, 
 and yet it has witnessed some amazingly successful 
 results, even with the imperfect methods hitherto 
 in vogue. The Athenian Assembly was too vast 
 for anything like real deliberation ; the New Eng- 
 land town meeting tries to do a year's business in 
 one day, and the Swiss Landesgemeinde combines 
 both of these disadvantages. Excellent work on 
 democratic lines is done by village communities in 
 
12 SUGGESTIONS ON GOVERNMENT. 
 
 various countries, but as it is all of a local nature it 
 fails to call out the highest interest of the electors. 
 An assembly of moderate size, in which every voter 
 would be able to express his individual opinions, 
 and which would not only deal with local affairs but 
 would directly exercise a share of the national 
 sovereignty, would develop a degree of intelligent 
 activity in the citizenship of which as yet we have 
 had no example. 
 
 If the country were evenly settled, with a moderate 
 degree of density, it would be easy to divide it into 
 precincts, or townships, of about five hundred voters 
 each, and these could be made the basis for a sym- 
 metrical system of representation and legislation ; 
 but we must build upon existing conditions, and 
 make some sacrifice of symmetry to convenience. 
 The assembly of five hundred voters, however, may 
 be considered the normal unit of the body politic. 
 In small towns it would constitute the supreme local 
 government ; in larger ones it would form a council 
 district. It would elect a county supervisor, and, 
 alone or in conjunction with others, a member of the 
 State Legislature. It would be the organ for the 
 expression of the popular will in the initiative and 
 referendum. It would be an arena in which all 
 political and social elements would meet on common 
 ground, and every measure of public policy would 
 find assailants and defenders. 
 
 The American citizen is the most diligent at- 
 tendant on public meetings in the world, but the 
 trouble is that he wastes his strength in futilities. 
 It is pitiful to see him striving to satisfy his craving 
 
THE SOURCE OF POWER. 13 
 
 for association and deliberation with his fellow-men 
 by decking himself out in the regalia of some 
 " order " and parroting " rituals," or performing the 
 solemn duty of " attending the primaries," whose 
 decisions have been prepared in advance and forti- 
 fied by stuffed rolls in the back-room of some saloon ; 
 or taking part in indignation meetings to make 
 " demands " on officials, which there is no legal 
 power to enforce ; or joining in campaign rallies at 
 which candidates rhapsodize over the beauties of 
 platforms which they will forget by the day after 
 election. When citizens are willing to put them- 
 selves to so much inconvenience to accomplish 
 imperceptible results, or no results at all, it is 
 hardly unreasonable to assume that they will be will- 
 ing to take a considerably smaller share of trouble for 
 the sake of exerting a direct and material influence 
 upon the management of public affairs in all their 
 ramifications, State, local, and national. 
 
 Universal suffrage has been criticised for making 
 no distinction between wisdom and folly in the 
 voters. Mr. Stickney has explained, so well that the 
 elaboration of the point here would look like 
 plagiarism, how the popular assembly meets this 
 objection by making votes count by weight as well 
 as by numbers. The man of intelligence can 
 explain his views to the meeting and carry his less 
 acute auditors with him. The man of lustrous 
 integrity can always command a following for any 
 plan to which he lends the sanction of his name. 
 Disreputable votes would be neutralized by the 
 repulsive influence of the men who cast them. 
 
14 SUGGESTIONS ON GOVERNMENT. 
 
 The habit of discussing public questions in 
 assemblies in which all shades of belief were repre- 
 sented would tend to promote a spirit of moderation 
 and mutual concession. Under our present methods 
 the country is split into innumerable cliques, in each 
 of which narrow-minded intolerance is rampant. 
 The members of bankers' associations encourage 
 each other in the belief that farmers are visionary 
 lunatics; farmers flock together in alliances and 
 granges, and resolve that bankers are Wall Street 
 cormorants ; manufacturers and railroad managers 
 commiserate each other on the total depravity of 
 workmen, and the halls of labor unions echo with 
 denunciations of the tyranny of employers ; Repub- 
 lican conventions announce that Democrats are 
 bought with British gold, and Democratic cor 
 tions brand Republicans as the hirelings of the 
 American plutocracy. Even when the people of a 
 city are discussing such a matter as a proposed : 
 of bonds for the acquisition of water- \v< >rks, they 
 do not, as a rule, come together and candidly discuss 
 all the arguments, pro and con, but the advocates of 
 the proposition hold a series of meetings in which 
 the opponents of the plan are pilloried as the tools 
 of a corporation, while the objections to the scheme 
 are set forth in another series of meetings in which 
 its promoters are arraigned as the heelers of polit- 
 ical bosses. Neither side gives any fair considera- 
 tion to the arguments of the other. A common 
 assembly, in which men of all parties, creeds, and 
 positions in life should meet on even terms, and 
 every man should have an equal opportunity with 
 
THE SOURCE OF POWER. 15 
 
 every other to convince his neighbors of the sound- 
 ness of his views, would be sure to mitigate asperi- 
 ties, prevent rash and unbalanced decisions, and 
 secure the nearest possible approach to a wise deter- 
 mination of public issues. 
 
 The assemblies should meet, of course, at the most 
 convenient times and places. Instead of accu- 
 mulating so much business as to absorb an entire 
 day, as in the New England towns, they should 
 meet often enough to dispose of their work com- 
 fortably in an evening. One evening in a month 
 would probably be found sufficient in most cases. 
 Special meetings should be held as often as required. 
 The attention of the assembly should not be dis- 
 tracted by a multiplicity of duties. As a rule, not 
 more than two or three subjects should be disposed 
 of at one meeting, and never more than one at a 
 single vote. 
 
 The assemblies would dispense with all our pres- 
 ent cumbrous and costly election machinery. They 
 would take charge of the registration of voters, 
 which should take place in every precinct in open 
 meeting. Any qualified resident of the precinct 
 should have the privilege of signing the roll at any 
 meeting, subject to the challenge of any voter 
 present, but he should not be permitted to take part 
 in the proceedings until the following month, in 
 order to give time for an investigation of his right 
 to vote. Ordinary questions coming up for deci- 
 sion would usually be decided viva voce, but all 
 elections of officers should be by ballot, and a small 
 number of voters, say five, should have the right to 
 
If) SUGGESTIONS ON GOVERNMENT. 
 
 demand a ballot on any question. Nominations for 
 office should be open up to the moment of balloting. 
 The essential features of the Australian system 
 could be preserved with the utmost cheapness and 
 simplicity. A small booth could be set up on each 
 side of the platform, in full view of the meeting. 
 The secretary could be provided with a supply of 
 hand-stamps and movable rubber type. Nominations 
 being called for, each name submitted could be set 
 up in a stamp for each booth. When the nomina- 
 tions were concluded the stamps, with ink-pads 
 and a sufficient number of slips of blank paper, 
 could be put in the booths, and the voters could pass 
 through, one at a time, and prepare their ballots. 
 If, from intimidation or any other reason, the friends 
 of any candidate failed to nominate him in open 
 meeting, there would be nothing to hinder them 
 from writing his name on their ballots. As soon as 
 the votes were cast they would be counted in the 
 presence of the assembly, and the work of the elec- 
 tion would be over. As everything would be done 
 in an evening, after business hours, there would be 
 no need of paying the judges and clerks, and the 
 whole cost of the election could be limited to the 
 price of the blank paper and ink and the wear and 
 tear of the hand-stamps. 
 
 Of course this plan would not work where seventy 
 or eighty officers were to be voted for at once, as is 
 often the case under present conditions. But this 
 multiplicity of elective officers is recognized on all 
 hands as an evil that must be abolished before we 
 can hope to secure any improvement in our govern- 
 
THE SOURCE OF POWER. 17 
 
 ment, or even to check its progressive degradation. 
 Under a proper system of official tenure, there would 
 never be any necessity of electing more than one 
 officer at a time. 
 
 The plan of election suggested would enable us to 
 go back to the wise and safe principle of majority 
 rule. No candidate should ever be elected except 
 by an absolute majority of all the votes cast. In 
 this country circumstances have conspired to give 
 the pernicious system of plurality election a fac- 
 titious popularity. Chief among these circumstances 
 has been the caricature of majority rule existing in 
 some New England States a perversion by which 
 a small minority has been enabled to retain perma- 
 nent power. Candidates for State offices have been 
 required to secure a majority on the first ballot, and 
 in default of this have been compelled to submit 
 their claims to a Legislature so apportioned as to be 
 always controlled by a minority of the people. Can- 
 didates for the Legislature have been forced into an 
 indefinite succession of re-ballots, without any pro- 
 vision for reaching an ultimate conclusion, until the 
 patience of their constituents has been exhausted 
 and the attempt at election has been abandoned. 
 Instead of correcting these defects the tendency has 
 been to' escape from them by plunging into plurality 
 rule, which is another name for machine rule. When 
 a plurality can elect, the support of party nomina- 
 tions, good or bad, becomes a necessity for voters 
 who regard the principles of their party as more 
 important than the merits of candidates. Any divis- 
 ion of the party vote may let in the other side. 
 
18 SUGGESTIONS ON GOVERNMENT. 
 
 When a majority is required to elect, votes may 
 safely be scattered. There should be a provision, 
 however, for reducing the number of candidates 
 after the first ballot, in order to bring the contest to 
 an early conclusion. It would not be expedient, as 
 Mr. Gamaliel Bradford proposes, to eliminate all the 
 candidates but the highest two on the second ballot, 
 for that would destroy independent voting almost 
 as effectually as election by pluralities. Suppose, 
 for instance, that the Democrats, being in the major- 
 ity in a given constituency, should divide their votes 
 on the first ballot among four candidates, and the 
 Republicans among only two. Each of the two 
 Republican candidates would probably have more 
 votes than the highest Democratic, and the Demo- 
 cratic majority would be reduced on the second bal- 
 lot to a choice between Republicans. This possi- 
 bility would force partisans to stick to the regular 
 nominees from the beginning. 
 
 Independent voting could be made safe enough 
 for all practical purposes by the adoption of the 
 preferential principle, combined with a provision 
 for two possible supplementary ballots. The work- 
 ings of the system will be described in more detail 
 in the chapter on Proportional Representation, but 
 it may be said briefly that it would allow every 
 voter to stamp on his ballot the names of candidates 
 in addition to his first choice, indicating by num- 
 bers, or by the arrangement of names, his order 
 of preference among them. If any candidate had 
 a majority of first-choice votes he would be elected. 
 If not, the candidates having the fewest first-choice 
 
THE SOURCE OF POWER. 19 
 
 votes would be eliminated, and their votes would 
 be counted for those whose names stood second 
 in order on their lists. This process would be 
 continued until some candidate had a majority 
 or the preference lists became exhausted. Under 
 this plan an election would almost always be 
 brought about on the first ballot, but it might 
 occasionally happen that the voters would be so 
 divided into groups, each confining its expressions 
 of choice within its own circle, that after all possible 
 eliminations and transfers had been made a united 
 majority would still be lacking. In this case a 
 second ballot could be held, limited to the five 
 candidates receiving the highest votes on the first, 
 or to such smaller number as remained in the field 
 after the possible eliminations had been completed. 
 With the help of transfers an election would be 
 almost inevitable on this ballot, but in the almost 
 impossible contingency of a continued failure to 
 elect a third ballot could be ordered, at which only 
 the two leading candidates could be voted for. 
 This would insure a choice except in case of a tie, 
 when the result could be decided by lot. 
 
 Under our present method these supplementary 
 ballots would cause some trouble and expense, but 
 with election by popular assemblies, in the manner 
 suggested, all inconvenience would disappear. In 
 the case of local offices, if no candidate were elected 
 on the first ballot, the chairman of the meeting 
 would announce the fact, and order a second, and, if 
 necessary, a third trial, on the spot. In the case of 
 officers representing larger constituencies the pro- 
 
20 SUGGESTIONS ON GOVERNMENT. 
 
 cess would require a little more time, but no more 
 trouble or expense. When the votes were can- 
 vassed by the central authority and the lack of a 
 majority discovered, the assemblies would be noti- 
 fied to vote again at their next meetings, and if a 
 third ballot were required the process would be 
 repeated. If time pressed, special meetings could 
 be called. It would be important, of course, to have 
 all meetings at which joint action was to be taken 
 held on the same day. 
 
 For all business except elections the presence of a 
 majority of the registered voters of the precinct 
 should be required to constitute a quorum. This 
 would prevent the affairs of the locality from fall- 
 ing into the hands of a little knot of regular 
 attendants at the meetings while the citizens in 
 general stayed at home. The assembly should 
 have the right, just as in the case of a representative 
 legislative body, to compel the attendance of 
 absent members, under penalty of fine or sus- 
 pension from the privilege of voting. But even 
 if it did not exercise this right, and persistent 
 abstentions delayed" the public business, no harm 
 would result, for the delinquents would begin to 
 feel the inconvenience caused by their negleet of 
 duty, and would soon muster in sufficient numbers 
 to keep the machine going. 
 
 In the case of elections, however, no fixed quorum 
 should be required. The proper punishment for a 
 failure to vote for good officers is to be ruled by bad 
 ones. If good citizens do not take sufficient interest 
 in their own affairs to elect the right men to office, 
 
THE SOURCE OF POWER. 21 
 
 it is fitting that the persons who do take enough 
 interest to vote should be allowed to have their own 
 way. It may be said that the same principle would 
 apply to all kinds of business, but there is a differ- 
 ence. An unfortunate choice of officials can always 
 be corrected, especially under the system of tenure 
 to be hereafter explained, but a mistake in meas- 
 ures is sometimes irremediable. Besides, if the 
 assemblies were allowed to act on all questions, 
 regardless of the number present, the fact that 
 business always got itself accomplished somehow, 
 whether the mass of the voters turned out or not, 
 might induce in them a stay-at-home habit, which 
 would be demoralizing. 
 
 Even if parties retained their vigor, which would 
 be impossible after the custom of direct legislation 
 became well established, the combination of open 
 nominations and majority elections would destroy 
 the power of the political machines. That power 
 rests, first, upon the control of nominations, and, 
 second, upon the necessity pressing upon the rank 
 and file of the party of supporting those nominations, 
 under penalty of suffering defeat in the election. 
 If anybody could nominate candidates up to the 
 hour of voting, and partisans could scatter their 
 votes without fear of giving the election to the other 
 party, a machine nomination would carry no more 
 weight than would be given by the character of the 
 men who made it. 
 
 The public-meeting system would enable young 
 men to get into politics without crawling through 
 the mud. There would be no necessity of bargain- 
 
22 SUGGESTIONS ON GOVERNMENT. 
 
 ing with a boss for an opportunity to be heard. 
 Every citizen would be a legislator as a matter of 
 right. He could attend the meetings of his precinct 
 assembly, express his views there, and fit himself by 
 practice in debate, in lawmaking, and in honorable 
 political strategy, for more extended responsibilities. 
 No debating society or school of politics could com- 
 pare in fascination or in educating power with 
 this open arena, whose prizes would be the things 
 that grown men strive for, and not the counterfeit 
 honors of school-boys. 
 
 There is many a man who would not accept the 
 Presidency of the United States, if he had to pawn his 
 self-respect with a boss to get it, but who would 
 gladly devote time and effort to work in a local 
 assembly which he could enter freely, without any 
 man's permission, and in which he could try, by 
 honest, open argument, to win his neighbors to his 
 views. The practice of acting together in such 
 assemblies would develop among the people of every 
 locality a habit of listening to reason instead of 
 basing conclusions entirely upon prejudice and pas- 
 sion. The feeling, too, that their deliberations were 
 not mere talk, or mere appeals to officials to do 
 something that might be refused, but were in them- 
 selves the very mainsprings of political action, would 
 give them the sobering responsibilities of power. 
 
 When we remember that thousands of high- 
 minded citizens are now willing to encounter the 
 repulsive atmosphere of primaries held in saloons 
 and billiard halls, for the sake of grappling with 
 political evils intrenched behind almost every pos- 
 
THE SOURCE OF POWER. 23 
 
 sible advantage, and that thousands more are doing- 
 hard, thankless, unpleasant work for the same ends 
 through Good Government clubs and similar organi- 
 zations, we can hardly doubt that they would wel- 
 come the opportunity to make a clean, open fight for 
 the right on a fair field. 
 
CHAPTER II. 
 
 DIRECT LEGISLATION. 
 
 The ideal democracy is that form of government 
 in which the people in their own persons make their 
 own laws. This was the only form of democratic 
 rule known to the civilized republics of antiquity. 
 It was abandoned for purely physical reasons, be- 
 cause as States grew in size it became impossible for 
 the citizens to gather and deliberate in a single 
 assembly, and it was not seen how they could 
 deliberate and vote without coming together in one 
 place. This was why Rousseau thought that a true 
 republic must necessarily be small. Montesquieu 
 saw the logical connection between democracy and 
 direct popular legislation, and he, too, was staggered 
 by physical difficulties. "As, in a free State," he 
 said, " every man who is held to have a free spirit 
 ought to be governed by himself, the people in a 
 body ought to have the legislative power; but as 
 that is impossible in large States, and subject to 
 many inconveniences in small ones, it is necessary 
 that the people do by their representatives all that 
 they are unable to do by themselves." 
 
 The Teutonic device of representation was such a 
 convenient substitute for the unwieldy, popular 
 mass-meeting that it gradually came to be looked 
 upon as a political end in itself, instead of as a con- 
 
 (24) 
 
DIRECT LEGISLATION. 25 
 
 venient means of enabling- the electorate to evade 
 the limitations of time and space, and we now hear 
 practical methods of restoring the direct rule of the 
 people criticised as "violations of the representa- 
 tive principle." The representative system is a 
 convenient medium for the transmission of political 
 power, just as a system of shafts and pulleys is a 
 convenient medium for the transmission of mechan- 
 ical power, and it would be precisely as reasonable 
 to object to a plan for gearing a generator directly 
 to the machine it was to work, as a violation of the 
 shaft-and-pulley principle, as to object to a practi- 
 cable plan of direct legislation as an infraction of the 
 principle of representation. 
 
 The Swiss method of popular law-making through 
 the referendum and initiative has been made so famil- 
 iar to the American public through the works of Vin- 
 cent, Adams and Cunningham, Moses, Winchester, 
 McCracken, Cree, Sullivan, and others, that no very 
 detailed account of it is necessary here. In Switzer- 
 land, thirty thousand voters, or eight cantons, may 
 demand the submission of any law passed by the 
 Federal Assembly to the people at the polls, and fifty' 
 thousand voters may demand the submission of a con- 
 stitutional amendment proposed by themselves. All 
 the cantons, except Freiburg, have the referendum 
 in some form, and in several of them it is obligatory. 
 In these no general law is valid until it has been rati- 
 fied by a popular vote. The voting is carried on by 
 ballot, precisely as in the election of officials. 
 
 Although this particular form of direct legislation 
 is, as I believe, capable of great improvement, it is 
 
26 SUGGESTIONS ON GOVERNMENT. 
 
 so infinitely superior to our present methods of law- 
 making, that, if we should transplant it bodily to the 
 United States, we should be vastly the gainers. The 
 testimony of foreign observers to its admirable work- 
 ing in Switzerland is almost unanimous. If we had 
 nothing but theory to guide us, we should infer that 
 the right of appeal from a legislative body to the 
 people would greatly diminish the intensity of party 
 conflicts; that it would tend to keep legislators 
 of ability in place, regardless of their opinion on 
 current issues; that it would promote sincerity 
 among public men, prevent filibustering and log-roll- 
 ing, check corruption, and make legislative debates 
 business-like discussions of practical matters, instead 
 of oratorical tournaments for the benefit of the 
 reporters. Practical Swiss experience has shown 
 us these results in actual operation. 
 
 " One in visiting the chambers of the Assembly," 
 remarks one observer, "is much impressed with 
 the smooth and quiet dispatch of business. The 
 members are not seated with any reference to their 
 political affiliations. There are no filibustering, no 
 vexatious points of order, no drastic rules of cloture, 
 to ruffle the decorum of its proceedings. Interrup- 
 tions are few, and angry personal bickerings never 
 occur. . . . Leaves to print, or a written speech 
 memorized and passionately declaimed, are un- 
 known ; there are none of these extraneous and 
 soliciting conditions to invite * buncombe ' speeches 
 or flights of oratory for the press and the gallery. 
 The debates are more in the nature of an informal 
 consultation of business men about common inter- 
 
DIRECT LEGISLATION. 27 
 
 ests ; they talk and vote, and there is an end of it. 
 This easy, colloquial disposition of affairs by no 
 means implies any slip-shod indifference or super- 
 ficial method of legislation. There is no legislative 
 body where important questions are treated in a 
 more fundamental and critical manner."* 
 
 The same author adds that " the members of the 
 Assembly practically enjoy life tenure ; once chosen 
 a member, one is likely to be reflected as long as 
 he is willing to serve. Reelection, alike in the 
 whole Confederation and in the single Canton, is the 
 rule ; rejection of a sitting member, a rare exception. 
 Death and voluntary retirement accounted for nine- 
 teen out of twenty-one new members at the last gen- 
 eral election. There are members who have served 
 continuously since the organization of the Assembly 
 in 1848. Referring to this sure tenure of officials 
 generally, the President of the Confederation, in a 
 public address, said : ' Facts, and not persons, are 
 what interest us. If you were to take ten Swiss, 
 every one of them would know whether the country 
 was well-governed or not, but I venture to say that 
 nine of them would not be able to tell the name of 
 the President, and the tenth, who might think he 
 knew it, would be mistaken.' To some extent this 
 remarkable retention of members of the Assembly 
 may be ascribed to the fact that the people feel 
 they are masters of the situation through the power 
 of rejecting all measures which are put to the popu- 
 lar vote." f 
 
 *BOYD WINCHESTER, " The Swiss Republic," p. 78. 
 f WINCHESTER, p. 80. 
 
28 SUGGESTIONS ON GOVERNMENT. 
 
 And again : 
 
 " The members of the Federal Council can be, and 
 are, continually reflected, notwithstanding sharp 
 antagonisms among themselves, and it may be 
 between them and a majority in the Assembly. 
 They also continue to discharge their administrative 
 duties, whether the measures submitted by them are, 
 or are not, sanctioned by the voters. The rejection 
 of measures approved and proposed by them does 
 not necessarily injure their position with the coun- 
 try. The Swiss distinguish between men and meas- 
 ures. They retain valued servants in their employ- 
 ment, even though they reject their advice. Valuing 
 the executive ability of these men, still they may 
 constantly withhold assent from their suggestions. 
 The Council, substantially in its present form, came 
 into existence with the constitution of 1 848, the first 
 election of its members taking place in November 
 of that year. The election, therefore, which oc- 
 curred on the 1 3th of December, 1887, was the four- 
 teenth triennial renewal of the Council, and covered 
 a period of thirty-nine years. During this period 
 the complete roster of the members embraces only 
 twenty-seven names ; even this small ratio of change 
 resulted in seven cases from death and eleven from 
 voluntary retirement, leaving only two who failed 
 to be reflected on the avowed ground of political 
 divergence. This most remarkable conservatism on 
 the part of the Assembly, in retaining the members 
 of the Council by repeated reelections, has survived 
 important issues of public policy, including several 
 revisions of the constitution, upon which there was 
 
DIRECT LEGISLATION. 29 
 
 a wide diversity of opinion in the Council, some of 
 whom actively participated in the discussions, antag- 
 onizing the views of a majority of the Assembly 
 the Assembly to which they owed their election, and 
 upon which they relied for their retention in office. 
 Their periodical reelection, though seemingly pro 
 forma, carries with it a salutary sense of accountable- 
 ness. This sure tenure of service in the Federal 
 Council makes those chosen look upon it as the busi- 
 ness of their lives. Without this permanence 
 attached to the position, such men as now fill it 
 could not be induced to do so."* 
 
 The testimony of other witnesses to the effect of 
 the referendum in securing stability in the per- 
 sonnel of the government is quite as emphatic. 
 " The composition of the National Council has 
 changed but little of late," say Adams and Cun- 
 ningham. " The Swiss voter is quite ready to vote 
 again and again for the same candidates ; he proba- 
 bly looks upon them as good men of business with 
 long experience of parliamentary and federal af- 
 fairs, and he knows very well that if measures are 
 passed, of which, for some reason or other, he does 
 not approve, he and his fellows can combine to 
 reject them at the referendum. This, however, 
 does not prevent him from again voting for the old 
 representatives at the next election, and he will do 
 so, in many instances, time after time."f 
 
 "The members of the Federal Council are re- 
 
 * WINCHESTER, p. 95. 
 
 fSiK F. O. ADAMS and C. D. CUNNINGHAM, "The Swiss Con- 
 federation," pp. 41-42. 
 
30 SUGGESTIONS ON GOVERNMENT. 
 
 eligible, and, in point of fact, the same individuals 
 remain in office for a number of years, notwith- 
 standing the existence of well-known differences 
 among themselves, and between some of them and 
 a majority in the Assembly. There have been, 
 hitherto, only two instances of a member willing to 
 serve not being reflected ; but from time to time 
 some naturally resign, one for a more lucrative 
 post, another to become the head of a diplomatic 
 mission, another from a desire to retire into private 
 life."* 
 
 On the decorous and business-like proceedings of 
 the Swiss legislative bodies, the same observers re- 
 mark: 
 
 " The debates are carried on with much decorum. 
 There is seldom a noisy sitting, even when the 
 most important subjects are being discussed ; inter- 
 ruptions are few, and scenes such as unhappily have, 
 of late, been painfully frequent in our House of 
 Commons, do not exist. It is true that there are but 
 forty-four members in one chamber and one hun- 
 dred and forty-five in the other. But the sittings 
 strike a spectator as being those of men of business, 
 though the members are by no means devoid of 
 eloquence." f 
 
 In spite of the absence of any attraction in the 
 way of high salaries, Switzerland is able to com- 
 mand the services of its best and ablest citizens to a 
 degree which we are unable to approach. The 
 President of the Confederation is paid less than 
 
 * ADAMS and CUNNIXC.H'AM, pp. 58-59. 
 f ADAMS and CUNNINGHAM, p. 51. 
 
DIRECT LEGISLATION. 31 
 
 two thousand seven hundred dollars a year, and the 
 cost of the entire Executive Council does not reach 
 seventeen thousand dollars. But this modest out- 
 lay, which would hardly satisfy the bookkeepers 
 of an American business house, secures for Switzer- 
 land some of the best administrative skill in the 
 world. " Democracies have been justly reproached," 
 says a recent historian, "for the fact that their 
 political offices are not always filled by men of 
 recognized ability and unstained honor ; that the 
 best talent of the nation after a while yields the 
 political field to adventurers. This is not the case in 
 Switzerland, under the purifying working of the 
 referendum and initiative. Nowhere in the world 
 are government places occupied by men so well 
 'fitted for the work to be performed."* 
 
 Mr. J. W. Sullivan finds that "an impressive fact 
 in Swiss politics to-day is its peace. Especially is 
 this true of the contents and tone of the press. 
 . . . On all sides, over the border from Switzer- 
 land, political turmoil, with its rancor, personalities, 
 false reports, hatreds, and corruptions, is endless. 
 But in Switzerland, debate uniformly bears, not on 
 men, but on measures." 
 
 " Removals of federal office-holders in order to 
 repay party workers are unheard of." 
 
 " While both legislators and executives are elected 
 for short terms, it is customary for the same men to 
 serve in public capacities a long time. Though the 
 people may recall their servants at brief intervals, 
 
 *MCCRACKEN, " Rise of the Swiss Republic," p. 344. 
 
32 SUGGESTIONS ON GOVERNMENT. 
 
 they almost invariably ask them to continue in serv- 
 ice. Employes keep their places at will, during 
 good behavior. This custom extends to higher 
 offices rilled by appointment. One minister to Paris 
 held the position for twenty-three years; one to 
 Rome, for sixteen. Once elected to the Federal 
 Executive Council, a public man may regard his 
 office as a permanency. Of the Council of 1889, one 
 member had served since 1863, another since 1866. 
 Up to 1 879 no seat in the Council had ever become 
 vacant, excepting through death or resignation." * 
 
 All observers of Swiss politics are struck by the 
 unwillingness of the voters to sanction sudden and 
 radical changes. The referendum is the most 
 powerful conservative force in the republic. The 
 people are fearless in accepting innovations when 
 they are once thoroughly convinced of their justice 
 and necessity ; but rash and ill-considered projects 
 have no chance of adoption. On the $d of June, 
 1894, after these words were written, the Swiss 
 electorate voted upon a bill declaring that every 
 man had a right to employment, and that if he 
 could not get it elsewhere the State should furnish 
 it. There is much to be said for such a proposition, 
 and the average legislator would certainly regard it 
 as eminently popular, whatever he might think 
 about its wisdom, but the people of Switzerland 
 rejected it by a vote of three hundred and eight 
 thousand to seventy-five thousand. 
 
 It is hardly necessary to dwell upon the contrast 
 
 * J. W. Si i.i.i \ AN, " Direct Legislation by the Citizenship." 
 
DIRECT LEGISLATION. 33 
 
 to this state of affairs offered by our own conditions. 
 When a leading New York journal complains that 
 "Senators and representatives vote for the most 
 dangerous measures, not because they believe they 
 are sound or safe, but because they are afraid to 
 oppose them, lest ignorance among their constituents 
 should deprive them of their places in Congress," it 
 is merely formulating a truism. 
 
 Our political methods directly penalize independ- 
 ence and honesty. As the only way of passing a 
 given law is to elect legislators who will vote for it, 
 and the only way of repealing it is to turn those 
 legislators out and replace them by others who pro- 
 fess different opinions, questions of legislation are 
 inevitably and inextricably mixed with struggles for 
 official place. From this it necessarily follows, that 
 when a new issue comes up for discussion, our law- 
 makers are under the stongest possible pressure to 
 align themselves upon it, not according to their 
 opinions of its merits, but according to what they 
 believe to be the desires of their constituents ; and 
 that when they have once committed themselves in 
 this way, they are impelled to do all in their power 
 to confirm their constituents in these supposed 
 desires, which they themselves may, and often do, 
 believe to be dangerous delusions. 
 
 If they failed to read the prejudices of their dis- 
 tricts aright in the first place, or if, having read 
 them aright, and conformed to them, they allowed 
 them to yield to increasing enlightenment, they 
 would be in danger of losing their seats. Hence, 
 insincerity has become so completely the rule in 
 
34 SUGGESTIONS ON GOVERNMENT. 
 
 representative governments, that it has come to rank 
 as a virtue; and a politician who is always true to 
 his convictions endangers not only his place, but his 
 reputation. That this is literally true may be seen 
 in the most cursory observation of current politics 
 in America or Europe. It is not to be doubted, for 
 instance, that there is a considerable number of 
 Democrats who honestly believe in protection, and 
 of Republicans who honestly believe in free trade. 
 They are expected, however, to smother their own 
 opinions, and speak, and vote, in favor of measures 
 which they believe to be wrong; and if they fail to do 
 so they are impaled as traitors to their respective- 
 parties. In England, a Liberal may be elected to 
 Parliament on a general pledge to favor home rule, 
 and when he begins to legislate he may find that the 
 particular home rule bill introduced by the leaders 
 of his party is, in his judgment, so radically defective 
 as to endanger the national safety. Nevertheless he 
 must support it or be branded as a renegade. And, 
 indeed, this enforcement of party discipline at the 
 expense of personal independence, and even honesty, 
 is a necessity under the present system, since it is 
 the only way in which the people can retain any 
 sort of control over legislation. But its effect in 
 lowering the tone of public men is obvious. No 
 politician can habitually defend measures of which 
 he does not approve, for the sake of retaining his 
 party standing and official place, without blunting 
 his sense of right and wrong. This deterioration >f 
 character would be bad enough if it accomplished 
 effective results; but it does not even do that. The 
 
DIRECT LEGISLATION. 35 
 
 system that produces it is, of all known devices, the 
 clumsiest, slowest, and most uncertain method of 
 reaching any 'desired end. It has kept the United 
 States in a ferment over the tariff for a hundred 
 years and has settled nothing yet. Discussion on 
 this subject has hardly advanced an inch since the 
 debates on the first Revenue Act of 1789. For 
 nearly twenty years our parties have been trying to 
 find out what the people want done about silver, in 
 order that the politicians may know what opinions 
 to hold themselves, and they are rather more at sea 
 now than they were in 1875. 
 
 The only logical theory of representative govern- 
 ment is that the people select the wisest men among 
 them to decide things which they do not know 
 enough to decide for themselves. There is much to 
 be said for such a theory as that. If it could be 
 thoroughly and consistently carried out it would be 
 quite likely to give us an able government and a 
 corrupt one. But it never is, and never can be, con- 
 sistently carried out. Public opinion will insist on 
 making itself felt, and the moment public opinion 
 begins to interfere in the deliberations of a legisla- 
 ture, we paralyze the judgment of the legislators 
 without giving effective play to the desires of the 
 people. A member of Congress, intent above all 
 else upon saving his seat, hears ascending to him a 
 confused roar of demands from which he must con- 
 trive to extract the divine vox populi. Delegations 
 of manufacturers and workingmen visit him to pro- 
 test against the reform of the tariff. Mass meetings 
 of his party insist upon immediate and radical 
 
36 SUGGESTIONS ON GOVERNMENT. 
 
 reductions. Newspapers command him to work for 
 high, low, medium, or no duties on fifty different 
 articles produced or consumed in his district. Let- 
 ters and telegrams pour in upon him urging him to 
 support and oppose the free coinage of silver ; to 
 favor the coinage of the seigniorage and its sale as old 
 junk ; to promote the extension of the national bank- 
 ing system and the substitution of State bank issues. 
 He reads election returns, and is told that the result 
 means that the people do not want tariff reform ; that 
 they are incensed at the delay in giving it to them ; 
 that they are enraged at Congress for its partiality to 
 silver, and infuriated at the President for his devotion 
 to gold. In the confusion, his own opinions, if he 
 ever had any, utterly evaporate. 
 
 If we abandon the principle of independent action 
 by legislators trusted to do what is best without 
 regard to public opinion, we must fall back on the 
 theory that the members of a law-making body 
 should be true representatives of the people, endeav- 
 oring, to the best of their ability, to carry out the 
 popular will, and held accountable by their con- 
 stituents for the fidelity with which they execute 
 their trust. This idea is clearly stated by Mr. 
 Woodrow Wilson, one of the ablest advocates of the 
 party system of legislation : 
 
 " It should be desired that parties should act in 
 distinct organizations, in accordance with avowed 
 principles, under easily recognized leaders, in order 
 that the voters might be able to declare by their 
 ballots, not only their condemnation of any past 
 policy, by withdrawing all support from the party 
 
DIRECT LEGISLATION. 37 
 
 responsible for it, but also, and particularly, their 
 will as to the future administration of the govern- 
 ment, by bringing into power a party pledged to the 
 adoption of an acceptable policy."* 
 
 There is conspicuous here the assumption, which 
 lies at the base of all the arguments in behalf of 
 pure representative government, that a " party pol- 
 icy " is a clearly defined unit, which may be unmis- 
 takably condemned or approved by the voters. Yet 
 the fact that it is nothing of the kind is one that lies 
 on the very surface of our history. We have never 
 had a national election whose returns made it pos- 
 sible to determine just what policy, in the sense of 
 a programme of legislation, the people wanted, 
 although there have been a very few elections in 
 which the popular will on some one overshadowing 
 issue has been made tolerably clear. It was reason- 
 ably plain in 1864, for instance, that the Northern 
 people favored the prosecution of the war, but the 
 election threw no light on their ideas upon recon- 
 struction, emancipation, negro suffrage, or the 
 finances. 
 
 To put the " party-policy " idea to the test, let us 
 suppose that I desire the reform of the tariff, and 
 object to the further coinage of silver, the intensity 
 of my wish for tariff reform being represented by 
 one hundred, and that of my opposition to silver 
 legislation being represented by ninety-nine. Sup- 
 pose that my party passes a tariff bill satisfactory to 
 me, and also passes a silver coinage bill. I am 
 called upon to render judgment upon this " policy " 
 
 * WOODROW WILSON, " Congressional Government." 
 
38 SUGGESTIONS ON GOVERNMENT. 
 
 at the next election. I do violence to my convictions 
 on the silver question for the sake of my preponder- 
 ating convictions on the tariff ; but my dissatisfaction 
 (ninety-nine) on one question must be deducted from 
 my satisfaction (one hundred) on the other, leaving 
 me a net satisfaction of only one instead of the one 
 hundred and ninety-nine which I could have had if 
 I had been allowed to vote on each measure by 
 itself. 
 
 But this is putting the case too favorably for the 
 " policy " theory. In this example the voter does 
 get some opportunity, however slight, to move in 
 the direction of his preponderating desires. But 
 the situation is not often so simple. Suppose, for 
 instance, that my ideas of a national " policy," 
 quantitatively expressed, run like this : 
 
 Tariff reform 100 
 
 Opposition to silver coinage 99 
 
 Economy in government 80 
 
 Annexation of Hawaii 50 
 
 Extension of civil-service laws 50 
 
 Strong navy .40 
 
 419 
 
 Suppose that my party meets my wishes on tariff 
 reform and economy (one hundred and eighty), and 
 the other party on silver, Hawaii, and the navy (one 
 hundred and eighty-nine), while neither takes a satis- 
 factory position on the civil service (fifty). Then, if I 
 vote for my party, I vote for a policy of which I 
 approve of only one hundred and eighty parts and 
 disapprove of two hundred and thirty-nine, and if 
 I vote for the other I vote for a policy of which I 
 
DIRECT LEGISLATION. 39 
 
 approve of only one hundred and eighty-nine parts 
 and disapprove of two hundred and thirty. Thus 
 my net satisfaction is fifty-nine less than nothing in 
 one case and forty-one less than nothing in the other. 
 And, moreover, the situation is almost certain to be 
 still further complicated by the nomination of can- 
 didates whom I do not consider fit to hold office, but 
 for whom I must vote as the only way of exerting 
 an influence on the choice of any policy at all. If 
 the people were allowed to vote on measures as well 
 as on men, I could exert my full power at the polls 
 in favor of the whole four hundred and nineteen 
 points of the policy I desired to see carried out, and, 
 in addition, I could vote for the candidate I thought 
 best qualified for legislative business, regardless of 
 his opinions on disputed political issues. 
 
 A disadvantage of representative sovereignty, 
 which has become unpleasantly conspicuous within 
 the past year, is the power it gives to unscrupulous 
 minorities. When one party holds either branch of 
 a legislative body by a small majority, a few of its 
 members can absolutely dictate its policy. A half 
 dozen protectionist Democrats in the Senate held 
 their party by the throat last spring and summer, 
 and compelled it to adopt a tariff programme which 
 five-sixths of its voters would have repudiated. In 
 order to pass a tariff bill it was necessary to buy the 
 vote of each of these Senators by concessions to the 
 interests he particularly represented. If a measure 
 had been framed by a majority of the Democrats in 
 'Congress for submission to the people, it would have 
 been drawn on broad, logical lines, capable of public 
 
40 SUGGESTIONS ON GOVERNMENT. 
 
 defense on general principles. As the object in 
 view was to secure the votes, not of six or seven 
 million citizens, but of six or seven Senators, the 
 measure was logically and necessarily drawn in the 
 interest of the Senators, rather than in that of the 
 citizens. 
 
 Another abuse that would be extirpated by direct 
 legislation is the practice of log-rolling. An average 
 legislative body will pass half a dozen bad measures 
 of which no one, taken separately, would have 
 strength enough even to gain consideration. The 
 advocates of an unnecessary insane asylum at Goshen 
 combine with the champions of a superfluous nor- 
 mal school at Podunk, and with the help of the 
 friends of a useless reformatory at Way back, a 
 legislative majority is secured for a combined raid 
 on the State Treasury. No such combination would 
 be possible in a popular vote, where each propositi< >n 
 would have to stand on its own merits, and if such a 
 poll could be demanded, most of the schemes whose 
 success depends upon vote-trading in legislatures 
 would never be heard of. 
 
 But the most serious evil connected with the 
 delegation of the uncontrolled law-making power 
 to a limited number of representatives still remains 
 to be considered. It is the leverage given to corrup- 
 tion. That every man has his price is too hard a 
 saying, but that the great majority of men have 
 their price is the simple truth. When votes are 
 quoted at two dollars apiece, from five to ten per 
 cent of the voters of a State can be bought. Ten 
 dollars apiece would buy, perhaps, twenty per cent, 
 
DIRECT LEGISLATION. 41 
 
 a hundred dollars apiece would buy fifty per cent ; 
 and if the price were raised to a hundred thou- 
 sand dollars each, it is doubtful whether one voter 
 out of twenty in any State of the Union could resist 
 the temptation. Now, it often happens that the 
 enactment or defeat of certain legislation is import- 
 ant enough to rich corporations to make it worth 
 their while to offer a hundred thousand dollars 
 each, if necessary, for the assistance of a few 
 members of Congress or of a State Legislature, 
 but it would be impossible for any corporation to 
 offer one hundred dollars apiece to a majority of the 
 voters of the United States, and practically impos- 
 sible to make such an offer to the majority of the 
 voters of an average State. There are other ways, 
 too, in which the private interests of legislators are 
 made to influence their public action. The Con- 
 gressional silver pool, at the time of the passage of 
 the Sherman law of 1 890, and the senatorial specula- 
 tion in sugar stock during the manipulation of the 
 Wilson tariff bill in the Finance Committee, became 
 national scandals. Every great railroad whose in- 
 terests are affected by legislation has its attorneys in 
 Congress or in the State Legislatures. The presi- 
 dents and chief stockholders of important corpora- 
 tions have held seats in the Senate, and openly 
 spoken and voted in behalf of their private interests, 
 without betraying a thought of impropriety. 
 
 It is said that the true remedy for these evils is 
 to elect good men to office. The advocates of this 
 happy and original idea will have everything their 
 own way when they show us two things: First, 
 
42 SUGGESTIONS ON GOVERNMENT. 
 
 how to insure the election of good men, and, second, 
 how to keep them good after they are elected. It is 
 useless to expect representatives to be very much 
 better than the people they represent. It is as much 
 as we can reasonably look for if they are no worse. 
 A system of government whose satisfactory opera- 
 tion requires the continual election of archangels to 
 office is not a practicable working system. To have 
 a really stable fabric of government, we must base 
 it upon enlightened self-interest. As Mill puts it : 
 " The ideally perfect constitution of a public office 
 is that in which the interest of the functionary is 
 entirely coincident with his duty." Now the self- 
 interest of the average man, acting as one of the 
 mass of voters, lies in the direction of good and 
 honest government. It is worth more to him to 
 have cheap sugar, pure water, and safe, rapid, and 
 comfortable transportation, than to accept fifty 
 cents from the sugar trust, a dollar from a water 
 company, and two dollars from a railroad to be 
 cheated, poisoned, jostled, and belated, with the 
 prospect of being eventually flattened out or burned 
 alive in a wreck. But the average man in the place 
 of a legislator would certainly succumb to the same 
 influences that corrupt the politician. It is the con- 
 centration of temptation that makes the difference. 
 The pressure that would be easily resisted when 
 spread over the whole community becomes crushing 
 when converged upon one point. And this concen- 
 tration exists simply because the action of the 
 legislative body is final. If the people could always 
 demand the right to pass upon the decisions of their 
 
DIRECT LEGISLATION. 43 
 
 representatives, those decisions would no longer have 
 a commercial value ; the lobby would disappear, and 
 legislative bodies would once more become delibera- 
 tive assemblies in which it would be a pleasure for 
 men of intelligence and conscience to sit, and in 
 which it would be to the interest of all the members 
 to do the best possible work. 
 
 An appreciation of the unfitness of legislative 
 bodies to exercise unlimited power has led to a 
 growing practice in this country of applying the 
 referendum in its least scientific and most dan- 
 gerous form. Deprived of the right to express their 
 will, in case of need, in an orderly way, in the regu- 
 lar channels of legislation, the people have resorted 
 to the objectionable device of law-making by consti- 
 tutional amendment. In many States the distinction 
 between a constitution and a code has been almost 
 wiped out. To check unfaithful legislatures, the 
 ordinary course of law-making has been so hedged 
 about with minute restrictions that a plausible case 
 of unconstitutionality can be made out against any 
 statute distasteful to powerful interests. In Califor- 
 nia as many as ten constitutional amendments are 
 submitted to the people by a single legislature, and 
 an edition of the constitution five years old is as use- 
 less for instruction in the actual state of the funda- 
 mental law as a five-year-old almanac. A constitution 
 ought to contain nothing but a frame of government 
 and the necessary guaranties of individual liberty 
 and property against the excesses of a majority. 
 To protect the majority against betrayal by its own 
 servants is no part of the duty of an organic law. 
 
44 SUGGESTIONS ON GOVERNMENT. 
 
 The majority ought to have the power to do that at 
 all times for itself. If that power were secured to 
 it, our State, constitutions could be cleared of all 
 the undergrowth of petty restrictions that now 
 encumbers them, and the noble simplicity of the 
 national constitution could be imitated everywhere. 
 
 It may be said that the people are not qualified to 
 frame the details of legislation. Undoubtedly they 
 are not, and neither is a numerous representative 
 body. The critics of Congress and of our State 
 legislatures can hardly find words to describe the 
 botch-work with which our statute books are annually 
 disfigured. Even in England, where the control of 
 Parliament by the Cabinet secures a certain degree 
 of unity in legislation, things are not much butter. 
 On this point Mill remarks : 
 
 " Any government fit for a high state of civiliza- 
 tion would have, as one of its fundamental elements, 
 a small body not exceeding in number the members 
 of a cabinet, who should act as a commission of 
 legislation, having for its appointed office to make 
 all laws. * * * No one would wish that this 
 body should of itself have any power of enacting 
 laws ; the commission would only embody the 
 element of intelligence in their construction ; Parlia- 
 ment would represent that of will. No measure 
 would become a law until expressly sanctioned by 
 Parliament ; and Parliament, or either house, would 
 have the power, not only of rejecting, but of sending 
 back a bill to the commission for reconsideration 
 and improvement." 
 
 Now this device would work precisely as well in 
 
DIRECT LEGISLATION. 45 
 
 the preparation of laws to be submitted to the 
 people, as in that of laws to be submitted to a legis- 
 lative body. If Parliament or Congress is incapable 
 of constructing or amending bills intelligently, if 
 its proper function is merely to consider measures 
 submitted to it by an expert commission, to say 
 "yes" or "no," or to send them back for amend- 
 ment, its duties are quite within the capacity of the 
 mass of the voters. Of course, the public could not 
 take time enough to consider all the bills that must 
 be passed upon by a legislative body in the course 
 of a year, but those supreme issues which absorb 
 the popular mind, which divide parties, and with 
 reference to which legislators profess to try to fol- 
 low public opinion, could be quite as easily disposed 
 of by direct vote of the people as by the circuitous 
 and clumsy method of electing representatives to 
 guess at what the people want. 
 
CHAPTER III. 
 
 THE TRUE FUNCTIONS OF REPRESENTATION. 
 
 Notwithstanding the inefficiency, confusion, and 
 corruption that have flowed from the abuse of the 
 representative principle, the fact remains that the 
 device of representation in its proper place is an 
 indispensable aid to good government. The people 
 can safely intrust to a limited body the ordinary 
 work of legislation. The one thing which they can 
 not safely delegate to anybody, even for a limited 
 term, is the sovereign power. They may never have 
 occasion to review the work of their representatives 
 but unless they retain the legal right to do so they 
 will inevitably find their interests betrayed. The 
 quality of finality is what makes the acts of a legis- 
 lature worth buying. It is that which makes such 
 scenes as this the inevitable prelude to the close of 
 every session of a national or State law-making 
 body. 
 
 " ALBANY, April 27th. Sparks flew in both houses 
 of the Legislature just before final adjournment to- 
 day. For an hour the Senate was tied up on the 
 Huckleberry Railway bill, owing to the filibustering 
 tactics of the Democrats, who seemed to be able to do 
 what they pleased. 
 
 "In the Assembly there were several scenes of 
 turbulence. Ex-Speaker , the Democratic leader, 
 
 (*) 
 
THE TRUE FUNCTIONS OF REPRESENTATION. 47 
 
 assisted by John A. of Kings, Charles C. of 
 New York, and one-half of the Democratic minority, 
 took possession of the well, on the watch for ' sneak ' 
 bills, and their vociferous objections and demands to 
 have every bill of a questionable character read kept 
 the House in an uproar which the pounding of the 
 gavel could not quiet. Had it not been for these 
 watchful and energetic young men, Mr. of Fulton 
 and Hamilton, would have * sneaked ' through an 
 innocent-looking measure that contained hidden in 
 one page a clause to repeal section 57 of the general 
 insurance law, which would have destroyed the 
 existence of the American Lloyds." 
 
 If a " sneak bill " could be challenged, after the 
 adjournment of a legislature, and compelled to run 
 the gauntlet of a popular vote, it would not be intro- 
 duced. The people would never be compelled to 
 consider a palpably dishonest measure. The mere 
 fact that a constitutional right of appeal to the polls 
 existed would purify legislation at its source. 
 A business man with an efficient manager may be 
 so well served as never to find it necessary to inter- 
 fere with his subordinate's decisions. But he always 
 is careful to retain the power of interfering if neces- 
 sary. If his confidence in his manager's fidelity 
 and ability led him to intrust to him absolute 
 authority for two years to make contracts, buy and 
 sell stock, and incur debts without any right of 
 review on his own part, his business acquaintances 
 would suggest that what he needed was not so much 
 a manager as a guardian. And yet that is precisely 
 what the people do in their political capacity, with- 
 
48 SUGGESTIONS ON GOVERNMENT. 
 
 out even the excuse that their hired managers are 
 able and honest. On the contrary, the universa^ 
 complaint is that legislators are inefficient, ignorant, 
 and corrupt, in spite of which we grant them powers 
 which it would be unsafe to intrust to assemblies of 
 sages and saints. 
 
 The true object of representation is the conven- 
 ient dispatch of business. The great bulk of the 
 laws required by a State or the nation may properly 
 be disposed of by representative bodies, provided 
 always that the people retain the right of reviewing 
 the decisions of the legislators whenever they think 
 proper. It is not probable that the national ar 
 reviewed would average more than one a year. 
 Nobody would wish to submit to popular vote an 
 ordinary appropriation bill, or a bill for the estab- 
 lishment of a zoological park in the District of 
 Columbia. It is only those great measures that 
 touch the interests and arouse the passions of a 
 whole people, or which affect vast combinations of 
 capital so closely as to make corruption inevitable if 
 they are disposed of by a small body, that need to 
 be referred to the decision of the ultimate sovereign. 
 And it is these very measures that now fill our legis- 
 lative bodies with ignorant and unscrupulous mem- 
 bers, attracted by the opportunities for profit in 
 them, and which repel the men whose character 
 and talents ought to be at the service of the com- 
 munity, but who do not care to risk their reputa- 
 tions by mingling in contests from which no man's 
 name emerges unscathed. 
 
 There is no subject more important to the ulti- 
 
THE TRUE FUNCTIONS OF REPRESENTATION. 49 
 
 mate welfare of this country than that of the scien- 
 tific care of forests. It is one that requires much 
 expert investigation and studious attention to de- 
 tails. It is one of those questions which could be 
 dealt with to the best advantage by small represent- 
 ative bodies, but Congress and the State legisla- 
 tures have been so deeply absorbed in interminable 
 struggles over issues, each of which should have 
 been settled by a single vote at the polls, that they 
 have hardly had time to give it a thought. Inter- 
 national copyright, marriage and divorce laws, the 
 promotion of scientific research, the improvement of 
 the patent system, the development of irrigation, 
 the systematic extension of water transportation, 
 the elevation of Government art and architecture, 
 the increase in the efficiency of the postal service, 
 and the investigation of the best means of relieving 
 poverty, checking vagrancy, and preventing crime, 
 are a few out of hundreds of subjects which might 
 profitably engage the attention of our law-making 
 bodies. But our legislators seldom have time to 
 think of such things. It is safe to say that within 
 the past twenty years nine-tenths of the time of 
 Congress not spent in the consideration of the 
 regular appropriation bills has been devoted to the 
 five subjects of the tariff, the currency, the South, 
 pensions, and private claims. Of these, the last 
 should not have come before Congress at all, except 
 for the formal confirmation, in bulk, of the decrees 
 of another tribunal. The rest were proper subjects 
 for decision by popular vote. A commission of 
 eminent protectionists should have drawn up a 
 
50' SUGGESTIONS ON GOVERNMENT. 
 
 symmetrical protective tariff ; another commission of 
 well-known free-traders should have framed a scien- 
 tific tariff for revenue, and after full public discus- 
 sion the people should have been allowed to choose 
 between them. That would have settled the matter 
 on a logical basis without waste of time. As it is, 
 the majority of the Senate this year spent five 
 months in the secret manipulation of a tariff bill, 
 not in order to study and discuss its effects upon 
 industry, commerce, and the public revenues, but to 
 see how many favors would have to be given to 
 each of a number of Senators for his vote. What 
 these Senators needed was to be protected from 
 themselves. A tariff decision by the people would 
 have set them free for useful legislative work of a 
 kind which the people would not be competent to 
 perform. 
 
 So with the currency. Doubtless the question of 
 monetary standards is too recondite to be fully under- 
 stood by the average voter, but the average voter 
 who is honestly trying to discover the truth is at 
 least more likely to reach a sensible conclusion than 
 the Congressman who carefully avoids the truth if 
 it runs counter to his interpretation of the ignorant 
 prejudices of his constituents. No harmonious 
 currency policy adopted twenty years ago, even if 
 wrong in theory, would have been likely to do the 
 damage that has been wrought by the unspeakable 
 botch- work of insincere compromises perpetrated by 
 politicians playing for their seats. The Massachu- 
 setts Railroad Commission, although it has no power 
 to enforce its decisions, exerts more influence and 
 
THE TRUE FUNCTIONS OF REPRESENTATION. 51 
 
 commands more respect than the commissions in 
 other States whose laws invest them with autocratic 
 authority. The reason is obvious. In Massachusetts, 
 the commission, acting only through reason, must 
 make the wisdom of its recommendations clear to 
 the people, the Legislature, and the railroads. It 
 can not substitute brute force for argument. Having 
 no powers of oppression the corporations do not feel 
 obliged to exert themselves to fill it with their tools, 
 and men of high standing can serve in it without 
 endangering their reputations. Similar considera- 
 tions would improve the quality and increase the 
 influence of legislative bodies if they were deprived 
 of the dangerous gift of unchecked power. They 
 could be safely trusted then to deal with a much 
 wider range of subjects than now. Men of ability 
 and character would be glad to join them, and take 
 part in the discussion of the social, industrial, 
 economic, scientific, and artistic questions with 
 which they could occupy themselves, when there 
 was no longer any danger of becoming involved in 
 a scandal over the grant of a franchise or the pas- 
 sage of a law to relieve a railroad of its taxes. 
 
 The adoption of an important policy is a matter 
 that should usually be decided by the people, but 
 the detailed legislation needed to provide for its 
 execution is properly the work of the people's rep- 
 resentatives. In some cases, indeed, the people 
 themselves should attend even to the details. A 
 tariff bill, for instance, which, as usually framed, 
 contains a scandal in every line, should be drawn up 
 by a few experts of national reputation and voted 
 
52 SUGGESTIONS ON GOVERNMENT. 
 
 upon as a whole. But, in general, the citizens can 
 safely confine themselves to the broad outlines of 
 legislation. To fill in the lights and shadows in the 
 most effective way is the true function of represen- 
 tation. 
 
CHAPTER IV. 
 
 THE REFERENDUM AND THE POPULAR ASSEMBLY. 
 
 Thus far we have considered the referendum in 
 its primitive form, as applied in Switzerland, and, 
 for a few specific purposes, in the United States. 
 In this form it is subject to certain disadvantages 
 not great enough, indeed, to overbalance its supreme 
 merits, but sufficiently serious to give a standing- 
 ground for the opposition of conservatives reluc- 
 tant to make any change in established institutions. 
 If often used it is expensive. Our elections are 
 conducted on a costly plan. The fees of judges, 
 inspectors, and clerks, rent of booths, printing of 
 ballots, advertising election proclamations, publica- 
 tion of registers, and other necessary outlays, make 
 up a total load of expense which no community likes 
 to incur any oftener than necessary. More important 
 still is the fact that so large a proportion of the total 
 vote is cast without any clear understanding of the 
 questions to be decided. If proposed laws were sub- 
 mitted to popular vote, they would be published in 
 the newspapers, but that would not imply that they 
 would be generally read still less understood. 
 Undoubtedly thousand of voters would either cast 
 their ballots in entire ignorance of the subjects at 
 issue, or would neglect to cast them at all. And 
 those who thought they were voting intelligently 
 
 (53) 
 
54 SUGGESTIONS ON GOVERNMENT. 
 
 would in many cases be simply carrying out the 
 policy of certain newspapers, without ever having 
 considered the other side. Moreover, there are com- 
 plications in the way of securing and verifying 
 signatures to petitions for the referendum. Lastly, 
 a vote on laws held simultaneously with a general 
 election for officers would add to the already too 
 great confusion in the mind of the voter, while if it 
 were held at a different time there would be another 
 election day, with its inevitable inconvenience and 
 disorganization of business. 
 
 All these difficulties would be completely obviated 
 by the system of popular assemblies described in the 
 first chapter. The people being already organized 
 and in the habit of meeting at convenient times. 
 there would be no necessity for elaborate and expen- 
 sive arrangements for recording their opinions. 
 Suppose, for instance, that the question were whether 
 the State taxes on improvements and personal prop, 
 erty should be abolished. The people would be 
 called upon to vote in their assemblies on the night 
 of a regular monthly meeting. At the appointed 
 time each assembly would gather in its hall. The 
 advocates and opponents of the proposition would 
 advance their respective arguments. When the 
 discussion had proceeded far enough, a vote would 
 be taken. Every voter would have at least some 
 understanding of the question at issue, and the 
 understanding would be fresh not the mere dried - 
 up impressions of almost forgotten readings. In all 
 probability, too, the matter would have been fully 
 discussed at previous meetings as well as in the 
 
REFERENDUM AND POPULAR ASSEMBLY. 55 
 
 press in the intervals, so that the final debate would 
 be merely the summing up of arguments already 
 familiar. The vote would involve no more expense 
 than the cost of a quire of white paper and a pad 
 of stamping ink. It would be completed in an hour, 
 and counted in the presence of the meeting in ten 
 minutes more. 
 
 All the difficulty in deciding what measures should 
 be submitted to vote would be obviated. There would 
 be no need of collecting and verifying names for 
 petitions. A certain number of assemblies, could 
 have the right, at any time, to demand the referen- 
 dum on any bill. It could be provided, if thought 
 advisable, that if the vote for this proposition in the 
 assemblies reached a certain figure, the measure 
 should be submitted even if its advocates were in a 
 minority in each assembly, but this would be a 
 superfluous precaution, since any measure whose 
 friends commanded a majority in the nation or 
 State would necessarily have a majority in a suffi- 
 cient number of assemblies to secure its submission. 
 The necessity of obtaining the affirmative action of 
 these assemblies in advance would be a useful 
 check upon the activity of agitators, who might 
 otherwise be continually disturbing the people with 
 calls to vote upon propositions that had no chance 
 of success. 
 
 Mill devotes a chapter to the elaboration of the 
 thesis: " Representative Government the Ideally 
 Best Policy," and every argument in it is designed 
 to show the superiority of democracy over monarchy 
 or aristocracy. The capital thus accumulated for 
 
66 SUGGESTIONS ON GOVERNMENT. 
 
 popular rule is transferred to the rule of representa- 
 tive bodies with an easy celerity that reminds the 
 startled observer of Heller's invisible transfer of a 
 live rabbit from his sleeve to a hat. " From these 
 accumulated considerations," the chapter concludes, 
 " it is evident that the only government which can 
 fully satisfy all the exigencies of the social state is 
 one in which the whole people participate ; that any 
 participation, even in the smallest public function, 
 is useful ; that the participation should be every- 
 where as great as the general degree of improvement 
 of the community will allow ; and that nothing less 
 can be ultimately desirable than the admission of all 
 to a share in the sovereign power of the State. But 
 since all can not, in a community exceeding a single 
 small town, participate personally in any but some 
 very minor portions of the public business, it follows 
 that the ideal type of a perfect government must be 
 the representative." 
 
 It is evident that this conclusion is anything but 
 warranted by the premises. It has been shown in 
 Switzerland and elsewhere that it is quite possible 
 for all to participate in much more than " minor 
 portions of the public business," even when that 
 participation is facilitated by no special organization, 
 and the system of local assemblies would enable a 
 nation of any size to act as conveniently as a small 
 community, without some of its most conspicuous 
 dangers. The chief peril of democracy in the 
 ancient and mediaeval city states was the liability to 
 sudden tumults, or inconsiderate decisions. A 
 plausible demagogue, getting the ear of the popular 
 
REFERENDUM AND POPULAR ASSEMBLY. 57 
 
 assembly, could induce it to take action which it 
 regretted as soon as it had time for sober thought. 
 Athens voted on one day to massacre the men of 
 Mitylene, and on the next revoked the sentence. In 
 this country, under the plan proposed, a national 
 question important enough to be submitted to the 
 people would be voted upon simultaneously in thirty 
 thousand different assemblies. In each there would 
 be likely to be men who could offer fair statements 
 of the opposing arguments, but no Cleon could make 
 his voice reach far enough to have any dangerous 
 influence on the total result. The division of the 
 voting population into small bodies would be, not a 
 mere physical necessity, but a thing advantageous 
 in itself. 
 
 Montesquieu said : " The great advantage of rep- 
 resentatives is that they are capable of discussing 
 affairs. The people are not at all fitted for this, 
 which forms one of the chief inconveniences of 
 democracy." Under the plan proposed the people 
 would discuss affairs. They do it now, but for the 
 most part they do it ignorantly. They meet their 
 friends on street corners, or in saloons, or churches, 
 or lodge-rooms, and casually exchange prejudices 
 based on carelessly written, hastily read, and half- 
 understood newspaper articles. They come together 
 in political meetings, where all are of one way of 
 thinking, and listen to plausible speakers who are 
 under no obligation to consider facts or reason as 
 long as they flatter the prepossessions of their hear- 
 ers and make things warm for the enemy. In a 
 popular assembly representing all classes and all 
 
58 SUGGESTIONS ON GOVERNMENT. 
 
 factions, and invested with a share of sovereign 
 power, there would be discussions seriously deserv- 
 ing the name. The stump-speaker would not revel 
 in misrepresentations with impunity, because his 
 opponents would be there to expose him. It is 
 likely that the debates in such an assembly would 
 be quite equal, in enlightening effect, to those in 
 Congress, for what they might lack in ability they 
 would make up in sincerity. Congressional discus- 
 sions to a great extent are sham battles. The par- 
 ticipants are not trying to convince each other or to 
 exert any influence upon the determination of the 
 question at issue, but to impress their constituents. 
 This is why the reader of the Congressional Record 
 is so often exasperated at seeing fallacies and mis- 
 statements repeated and reiterated after one of the 
 speakers has so manifestly demolished them that 
 nobody has attempted to answer his arguments. He 
 wonders whether the debaters can be so densely 
 stupid as not to understand the refutation that is so 
 luminously clear to an average intelligence. Noth- 
 ing of the kind. They are merely counting on the 
 fact that they can have their fallacies printed and 
 circulated in their districts, while their constituents 
 will probably never see the refutation. It is this that 
 makes Congressional debates so unsatisfactory as a 
 means of arriving at truth. They purport to be dis- 
 cussions when they are really symposia of unrelated 
 stump-speeches. In the popular assemblies there 
 would be none of this double purpose. Having no 
 constituents, the speakers would attempt to influence 
 nobody beyond their immediate hearers. Those 
 
REFERENDUM AND POPULAR ASSEMBLY. 59 
 
 hearers would have to be convinced, in the very 
 presence of the advocates of opposing- opinions, and 
 every argument advanced would have to be met on 
 the spot by a counter-argument appealing to the 
 reason and sense of fairness of the audience. The 
 conclusion reached, whatever it might be, would be 
 the honest judgment of the assembly on the merits 
 of the conflicting arguments, and not a prearranged 
 verdict based on ulterior considerations. And, as 
 truth is single, and exists in itself, while error is 
 multifarious and exists only in the minds of those 
 who hold it, it is likely that the truth would find its 
 way into all the assemblies, while fallacies would be 
 limited in range. It would certainly be remarkable 
 if, after full and candid discussion, the same errors 
 should commend themselves to the reason of a 
 majority of the voters in thirty thousand independent 
 meetings, composed of citizens of all classes, parties, 
 and habits of thought. It will hardly be main- 
 tained that such a thing would be as probable as the 
 control of a single legislative body by prejudice, 
 carelessness, or sinister influences. 
 
CHAPTER V. 
 
 THE BRANCHES OF GOVERNMENT. 
 
 Since the time of Montesquieu, it has been cus- 
 tomary to treat the powers of government as falling 
 naturally into three branches, legislative, executive, 
 and judicial. As a convenient working arrange- 
 ment this division is satisfactory, but not as a funda- 
 mental principle. In that sense there are properly 
 only two divisions the legislative-executive, or 
 political, on one side, and the judicial on the other. 
 The theory that the branches of government should 
 be co-ordinate and independent is properly appli- 
 cable only to these two it does not apply to the 
 legislative and executive subdivisions of the polit- 
 ical branch in their relations with each other. The 
 duty of the judiciary is that of measuring the rights 
 of citizens by an existing standard that of the 
 laws and constitutional guaranties in force at the 
 time when the acts to be judged were to be per- 
 formed. This duty necessarily lies outside of the 
 discretionary powers of a legislature, and can not be 
 properly fulfilled if confused with them. But there 
 is no such broad distinction between the legislative 
 and executive powers. The executive is the hand 
 of the legislature, carrying out whatever that 
 decrees. The power of making laws necessarily 
 implies the power of procuring their execution. 
 
 (60) 
 
THE BRANCHES OF GOVERNMENT. 61 
 
 Without that power a legislature is a mere debating 
 society. But a numerous assembly is not fit for the 
 practical work of carrying out its own decrees, and, 
 therefore, as a simple matter of convenience, the 
 duty of execution is wisely intrusted to officials 
 employed for that express purpose. These officials 
 should properly be the servants of the legislature, 
 not its independent associates. In just so far as 
 they are independent they weaken the energy of 
 government, divide responsibility and impart con- 
 fusion where there should be unity and simplicity. 
 
 Nevertheless, there are good reasons for the inde- 
 pendence of the executive in the American system 
 of government, the chief of which is that our legis- 
 lative bodies are not trustworthy. As a rule they 
 perform even their own work so ill that, so far from 
 wishing them to control the executive, the people 
 prefer an executive strong enough to guide, and, if 
 need be, coerce the legislature. An Andrew Jack- 
 son is always sure of popularity. Congress has no 
 policy of its own, and even when elected under an 
 express mandate to carry out some policy demanded 
 by the people it muddles and blunders away its time, 
 wanders off into mischievous byways, and accom- 
 plishes anything at all only under the spur of con- 
 tinual executive and journalistic admonitions. State 
 and city legislatures are still more imbecile and 
 infinitely more corrupt. The idea of making presi- 
 dents, governors, and mayors the servants of con- 
 gresses, legislatures and common councils, as at 
 present constituted, is utterly out of the question. 
 
 That the executive power should be subordinate 
 
62 SUGGESTIONS ON GOVERNMENT. 
 
 to the legislative by no means implies that the legis- 
 lative body should take the lead and leave the 
 executive to follow in its wake. The guide of an 
 exploring expedition is subordinate to the travelers 
 to whom he shows the way. It would be well for the 
 executive to carry its leadership of the legislature 
 to a much greater extent than is ever seen in Amer- 
 ica. It should formulate policies, draw up bills, and 
 urge their enactment. Only there should be no pos- 
 sibility of a clash between the two powers. In case 
 of a disagreement, the will of the legislature should 
 always prevail, unless overruled by the people. 
 
 To insure the necessary unity in the political 
 branch of the government without incurring the 
 evils of legislative mob-rule on the one hand, or of 
 a perpetually belligerent party executive of the 
 English type on the other, six things are necessary. 
 
 1 . Every member of the legislative body must be 
 individually responsible to his constituents, and 
 subject to recall at any time. 
 
 2. The people at large must have the right at any 
 time of passing at the polls upon anything done or 
 left undone by the legislature. 
 
 3. The practical experience gained in administra- 
 tion must be made available for use in legislation 
 by giving the heads of executive departments scats 
 in the legislative body, and allowing their proposals 
 for improvements in the laws affecting their depart- 
 ments to take precedence over those of ordinary 
 members. 
 
 4. The financial budget, including all receipts and 
 expenditures, must be treated as a whole, and 
 
THE BRANCHES OF GOVERNMENT. 63 
 
 framed with the active cooperation of the treasury 
 officials. 
 
 5. The executive must have unlimited powers of 
 suggestion and initiative, but no power of veto. It 
 must be given every facility for guiding legislation, 
 but none for creating a deadlock. 
 
 6. The appointment and removal of subordinate 
 executive officials must be entirely free from legis- 
 lative interference, but the supreme executive head 
 must be subject to removal by a sufficiently large 
 legislative majority two-thirds, for instance on 
 due notice, giving the people time to interfere. 
 
 The continuous responsibility of the individual 
 legislator to his constituents not an intermittent 
 responsibility, reaching a crisis every two, four, or 
 six years, but one effective at every moment of his 
 career would rank with the referendum as a force 
 for the maintenance of a high standard of represent- 
 ation. The practice of ceding uncontrolled power 
 for a term of years corrupts even good men that 
 of keeping the representative always within reach 
 would secure good service even from bad ones. 
 The organization of the voters in popular assemblies 
 would enable this control to be exercised with the 
 utmost facility. In States of moderate size one 
 assembly could elect a member of the legislature, 
 and in any city at present existing in America one 
 would be a sufficient constituency for a member of 
 the common council. In such cases the control of 
 the representative would be simplicity itself. If he 
 were credibly accused of selling his vote to a corpo- 
 ration, or of speculating in a stock affected by his 
 
64 SUGGESTIONS ON GOVERNMENT. 
 
 official action, he would be summoned before his 
 assembly to explain. If his explanation appeared 
 unsatisfactory his credentials would be revoked, and 
 another representative would be elected. In the 
 largest States it would be necessary for two or 
 three assemblies to combine for the election of a 
 member of the legislature, but the procedure in this 
 case would be almost as simple as in the other. In 
 any assembly any voter dissatisfied with the course 
 of his representative could move that he be called 
 upon for a defense. If the motion prevailed, the 
 defense would be presented to all the assemblies 
 of the district, and they would all vote upon its 
 acceptance. 
 
 In the case of a member of Congress, when a hun- 
 dred assemblies might form the constituency, the 
 proceedings would be a little less summary, but 
 equally effective. Printed instead of oral explana- 
 tions could be furnished, although the representative 
 should have the right to appear in person before any 
 assembly if he desired. To prevent annoyance from 
 frivolous complaints it could be provided that no vote 
 on the question of recall should be taken except on 
 demand of ten assemblies, and that the representa- 
 tive should not be compelled to submit to the ordeal 
 twice within six months. 
 
 This unbroken control of the representatives by 
 the constituencies would dispense with the necessity 
 for periodical elections. The suggestion of Mr. Stick- 
 ney that members of legislative bodies should hold 
 office as long as their conduct satisfied their fellow 
 members is entirely impracticable, and would be 
 
THE BRANCHES OF GOVERNMENT. 65 
 
 open to obvious objections if it were not, but a 
 tenure dependent on the will of the constituency 
 would be both practicable and desirable. Under 
 such a system there would be no general election 
 day, and no fixed term of office. When there was a 
 vacancy from any district the people would elect a 
 man to fill it. As long" as he gave satisfaction he 
 would not be disturbed. He would be free to devote 
 himself to the business of legislation without the 
 necessity of preparing to meet an approaching 
 political revolution. If he ceased to do good work 
 his constituents would recall him and elect some- 
 body else in his place. There would be no disturb- 
 ance of business, no general political upheaval, no 
 sudden and violent changes of policy, no wholesale 
 substitution of apprentices for experienced legis- 
 lators. The legislative body would maintain its 
 continuous existence, and the methods of conducting 
 business would not have to be relearned at every 
 session. 
 
 The advantages of direct legislation by the people 
 have already been fully discussed. It is sufficient 
 to point out here the effect of the referendum and 
 initiative upon the relations between the legislative 
 and executive branches of the government. With 
 the right reserved to the people to pass final judg- 
 ment upon any measures deeply affecting their 
 interests, all occasion for clashes between law- 
 makers and administrators would disappear. The 
 wrestle between President Cleveland and the Senate 
 over the silver question, with its accompanying 
 scandals in the distribution of patronage, would 
 
bb SUGGESTIONS ON GOVERNMENT. 
 
 have been impossible if the whole subject could 
 have been referred to a popular vote. It was be- 
 cause Congress and the President were jointly in 
 complete possession of the sovereign power that they 
 wrangled over it like dogs over a bone. They 
 would not have quarreled over the right way to 
 frame a measure for submission to the people. If 
 this appeal were always open in the last resort, 
 Congress would always be willing to listen respect- 
 fully to the suggestions of the President, accepting 
 them as the advice of an expert counselor, and not 
 as the dictation of a rival power. 
 
 The official who has to execute a law has better 
 opportunities than anybody else for knowing how it 
 works and what changes in it are desirable. It is 
 most important that this experience should be 
 utilized by the legislative body to the fullest extent. 
 To make the head of a department dependent upon 
 the good-will of some private member for the intro- 
 duction of a needed bill, upon the courtesy of a 
 committee for a perfunctory hearing upon it, and 
 upon the indifferent services of half-instructed 
 friends for its advocacy upon the floor, is to sacrifice 
 knowledge to ignorance and force the government 
 needlessly to put up with poor work when it could 
 have good. In a legislative body not dominated by 
 party passion or selfish interests, thorough knowl- 
 edge will always take the lead. Mere eloquence 
 counts for little, but a man who knows exactly what 
 he is talking about, and who can give a candid and 
 satisfactory answer to every question propounded, 
 can generally carry his point. This expert knowl- 
 
THE BRANCHES OF GOVERNMENT. 67 
 
 edge, of course, is possessed by each official only with 
 regard to his own department. The very fact that 
 the Secretary of War has given such conscientious 
 attention to his own work as to enable him to speak 
 with authority upon it, disqualifies him from speak- 
 ing with similar, or any, authority upon the work of 
 the Secretary of the Treasury. This would be the 
 sufficient condemnation, if there were no other, of 
 tlie English system of cabinet solidarity, under 
 which fifteen gentlemen assume a joint responsi- 
 bility for things which only one of them knows any- 
 thing about. The presence of heads of departments 
 in the legislative body, each speaking for his own 
 department, would enable each branch of the gov- 
 ernment to exert its proper influence on the other. 
 The executive officials could initiate legislation, and 
 the legislator could hold the officials to the proper 
 performance of their duty. Any reported delin- 
 quency in a department could be brought at once to 
 the test of a series of questions propounded to the 
 head of that department on the floor. These ques- 
 tions could not be evaded , and unsatisfactory replies, 
 often repeated, would inevitably lead to a change of 
 officials. That executive bills should have prece- 
 dence over those introduced by private members is 
 a necessary corollary from the considerations that 
 make it desirable to give the heads of departments 
 seats in the legislative body. As these officers pos- 
 sess peculiar knowledge of the needs of their 
 departments, it is to be presumed that the measures 
 they propose are more urgent than those suggested 
 by others, Of course, all the advantages to be gained 
 
68 SUGGESTIONS ON GOVERNMENT. 
 
 from the presence of department chiefs in the legis- 
 lative bodies could be secured without giving them 
 votes. 
 
 The unity of the budget is a principle so essential 
 to anything like scientific, or even decent, finance 
 that nothing but inexhaustible wealth has enabled 
 this country to get along without it. Our national 
 financial system appears deliberately designed for 
 the encouragement of extravagance. The taxes are 
 fixed for an indefinite period, and the rates are- 
 based to a great extent on considerations independ- 
 ent of the needs of the Government. The general 
 appropriations arc under the control of eight dif- 
 ferent committees of the House and two of the 
 Senate, and special appropriations for particular pur- 
 poses may be proposed by any member of either 
 branch and reported by any committee. Any appro- 
 priation may be amended to any extent by either 
 house, and any committee may report bills involving 
 permanent expenditures on an unlimited scale. Each 
 committee feels bound in honor to secure as large 
 appropriations as possible for the subjects within its 
 own jurisdiction, and feels under no obligation to 
 exert itself toward maintaining a balance between 
 the total receipts and expenditures of the govern 
 ment. A single agency, having control of the whole 
 subject of finance, and including the Secretary of 
 the Treasury in its membership, would probably 
 save more than the entire cost of the army and navy 
 every year. 
 
 If law-making is to be carried on by the har- 
 monious cooperation of the legislative and execu- 
 
THE BRANCHES OF GOVERNMENT. 69 
 
 tive powers, there is obviously no room for an 
 executive veto. Under the system suggested the 
 functions of the executive would be advisory, not 
 dictatorial. If, after hearing all the arguments the 
 administrative officials had to offer, the legislature 
 still persisted in going wrong, the proper and all- 
 sufficient substitute for a veto would be an appeal 
 to the people. The referendum would constitute a 
 check on reckless legislation more effective than 
 any executive interference could possibly be, and 
 the voters would be restrained by no timidity in its 
 application. 
 
 As regards the sixth point, I must renew the 
 expression of my obligations to Mr. Stickney, whose 
 exposition of this branch of the subject leaves 
 hardly anything to be desired. The weakest point 
 in Mr. Stickney 's scheme of government is the 
 omnipotence and irresponsibility of his legislative 
 assemblies. It is this which would cause the whole 
 fabric to break down if it could ever be brought to 
 trial among a people of democratic traditions, 
 which would be an impossibility in itself. But 
 concerning the constitution and the responsibility 
 of the executive, the plan is very nearly perfect, and 
 it accords, in most essential respects, with the views 
 that are becoming generally held by political 
 thinkers. It establishes an unbroken chain of 
 responsibility from the lowest executive official to 
 the legislature. Each chief of a bureau should be 
 personally responsible for the management of that 
 bureau. That he may not be able to lay the blame 
 for mismanagement on incapable or corrupt sub- 
 
70 SUGGESTIONS ON GOVERNMENT. 
 
 ordinates, he must have the power of removing any 
 who fail to do good work. Similarly, every head of 
 a department must be responsible for the condition 
 of that department. He must obtain certain results 
 from every bureau, and the instrument by which he 
 must enforce them is the power of appointment and 
 removal of the bureau chiefs. The supreme execu- 
 tive head, in his turn, must be responsible for the 
 efficiency of the government in every department, 
 and he must change the head of any department 
 that appears to be badly managed. Thus far we 
 are not very remote from the theory, although con- 
 siderably removed from the practice, of our present 
 system of national administration. But when we 
 come to the responsibility of the chief executive, 
 we find something lacking. We do not theoretically 
 accept the English principle that the king can do no 
 wrong. We hold that the President is responsible, 
 but we have omitted to provide any means of 
 enforcing that responsibility. We can refuse to 
 reelect him at the end of his four years' term, but if 
 he be not a candidate for reelection, as often 
 happens, and always when he is in his second term, 
 he is as irresponsible as a Turkish sultan. Obviously 
 the whole chain of accountability is worthless when 
 this most important link is missing. If the chief 
 executive officer should be responsible, as is gener- 
 ally admitted in America, that responsibility must 
 be enforceable by somebody, and that somebody 
 can hardly be other than the legislature. Here we 
 have the unity of the government secured, and we 
 have the work of each man judged by the authority 
 
JNIVERSITY 
 
 THE BRANCHES OF GOVERNMENT." 71 
 
 O]*&s^ 
 
 most competent to decide whether it be well or ill 
 done. 
 
 Here Mr. Stickney stops. Everybody thus far 
 has an effective responsibility to an immediate 
 superior, all ending in the legislature. To whom is 
 the legislature to be responsible ? To itself ! Elected 
 to serve during good behavior, the members are 
 mutually to judge the behavior of each other, and to 
 expel those who fall below a proper standard. This 
 rcductio ad absurdum sufficiently explains why Mr. 
 Stickney 's many acute and admirable ideas have not 
 had the vogue they deserve. The present condition 
 of the United States Senate indicates the fate of a 
 government whose ultimate powers were lodged in 
 a body free from any control but that of its own 
 conscience. The natural sequence of the responsi- 
 bility of the executive to the legislature is to make 
 the legislature responsible to the people. Each 
 individual member should be accountable to his own 
 constituents for any wrong in which he had a share. 
 In that way only can a permanent regard for the 
 public interests be insured. 
 
 The effective control of the legislature over the 
 executive could be greatly promoted by the presence 
 of the heads of departments on the floor. Without 
 that presence the chief executive might sometimes 
 have difficulty in determining whether things were 
 going well in his administration or not. His sub- 
 ordinates, of course, would tell him that they were, 
 and he might not find it easy to check their asser- 
 tions. But if the heads of departments had seats in 
 the legislative body their manner of encountering 
 
72 SUGGESTIONS ON GOVERNMENT. 
 
 criticisms would show conclusively where the truth 
 lay, and if, after that, their chief refused to call them 
 to account for established mismanagement, he would 
 properly be subject to discipline himself. 
 
 Although the power of removal should everywhere 
 be unchecked, it seems reasonable to believe that 
 entrance to the public service, in the lowest grades, 
 should be by open competitive examination, fol- 
 lowed by probationary work, and that appointments 
 in the higher grades, up to those which demand a 
 degree of talent which could not be secured without 
 free range of choice, should be made by promotions 
 from the lower. This plan works well in the army 
 and navy, where, indeed, the idea of promotion is 
 maintained to the very top. It is the rule of the 
 civil service in the best administered foreign coun- 
 tries, and it has been applied with success to a lim- 
 ited extent in our own. Persons who have won their 
 places on their own merits are likely, on the whole, 
 to be better qualified than those selected through 
 favoritism, and the power of removal would be a 
 sufficient protection against the injury of the ser- 
 vice by the accidental intrusion of the undeserving. 
 
 The object of the requirement of due notice before 
 the removal of the chief executive by the legislative 
 body is obvious. It would not only give the accused 
 official an opportunity for defense, but would enable 
 the people, if they thought him unjustly treated, to 
 stop the proceedings, and, if necessary, recall their 
 representatives. The need for a two-thirds vote for 
 removal would also protect an accused head of the 
 government against tyrannical action by a hostile 
 
THE BRANCHES OF GOVERNMENT. 73 
 
 majority. It should be understood, however, that 
 removal as a means of enforcing a proper responsi- 
 bility in the government would not be analogous to 
 our present process of impeachment. There would 
 be no formal trial and no necessity of alleging crime 
 or misdemeanors. Simple mismanagement would 
 be enough, and the discretion of the legislature 
 would be absolute. 
 
CHAPTER VI. 
 
 PARTIES. 
 
 IT is an American and English habit of mind to 
 regard a free people as necessarily divided into two 
 great, hostile, political organizations. This sup- 
 posed necessity has even been exalted into an 
 immutable principle of human nature. The sug- 
 gestion that it might be possible to conceive a free 
 government without permanent parties has been 
 disposed of by the summary rejoinder that such a 
 thing would require a preliminary reconstruction <>f 
 the constitution of the mind. If this be true, of 
 course the question is settled, but possibly a little 
 reflection may put it in a different light. 
 
 The party system may be considered in two 
 aspects first, as to its necessity ; second, as to its 
 desirability. If it be an inevitable outgrowth of 
 the human mind, of course the discussion of the 
 second point will have a merely academic interest. 
 If, on the contrary, parties can be shown to have no 
 essential connection with the constitution of the 
 universe, it may be w r orth while to devote some 
 attention to the question whether they are a good 
 thing in themselves. 
 
 Parties are supposed to be the outgrowth of the 
 differences of opinion and interest characteristic of 
 free communities. Such differences have always 
 
 (74) 
 
PARTIES. 75 
 
 existed and may always be expected to exist. The 
 question is whether they necessarily tend to form a 
 permanent line of cleavage, splitting the community 
 into two approximately equal parts, each of which 
 acts in political matters as a unit, in opposition to 
 the other. There are something like fifteen million 
 voters in the United States. That they should 
 divide in the proportions of seven millions to each 
 of two great parties, and a million to three or four 
 scattering factions, seems no more necessarily 
 implied in the nature of things than that eight, ten, 
 twelve, or fourteen millions should act together, or, 
 on the other hand, that no single group should 
 exceed half a million or a million. If seven million 
 voters can act together as a party, there appears to 
 be no reason why they could not act together if they 
 constituted the whole nation. Yet we know that 
 when there were only seven million voters in this 
 country, party lines were as deep as now, and when 
 there were only a million, half of them were indus- 
 triously engaged in fighting the rest. 
 
 This curious persistence of party divisions, regard- 
 less of the number of persons involved in them, 
 seems to lend color to the theory that there is some 
 mysterious and irresistible propensity of human 
 nature that compels a community to segregate itself 
 on factional lines. And there is an irresistible 
 tendency in that direction, but it has nothing to do 
 with human nature in the abstract. It is the direct 
 result of our present methods of government, which 
 are so arranged that political results can be attained 
 only by putting certain men in office. Electioneering 
 
76 SUGGESTIONS ON GOVERNMENT. 
 
 for office, being thus made an indispensable means 
 to the attainment of any desired object, naturally 
 comes to be regarded as an end in itself. The 
 people who wish the enactment of certain measures 
 are compelled to associate themselves for the elec- 
 tion of certain men. Immediately personal ambi- 
 tions and loyalty to individual leaders overshadow 
 the nominal objects of party organization. Soon a 
 habit of joint action on all occasions is formed 
 among men who originally came together for cer- 
 tain definite purposes. The party assumes the 
 coherence, discipline, and permanence of an army ; 
 it persists long after the issues on which it came 
 into existence have been settled, and we have the 
 curious conception of " loyalty " and " treason " to a 
 voluntary association created solely for the effective 
 joint action of its members on matters upon which 
 they all a^ree. 
 
 The attempts to find an enduring philosophical 
 basis for parties are as remote from practical 
 affairs as Lucian's discussions of the politics of 
 the moon. In England it is generally said that 
 men naturally fall into the two great divisions of 
 those who are satisfied with things as they are and 
 those who want a change. In America we are told 
 that the line of separation is that between the 
 believers in a centralized government and the advo- 
 cates of the rights of the States. In practice these 
 distinctions are entirely mythical. The Tory Demo- 
 crats, who are among the most zealous conservative 
 campaigners in England, are less opposed to change 
 than the Whig aristocrats who continue to act with 
 
PARTIES. 77 
 
 the Liberals. In this country the most sweeping 
 encroachments on the rights of the States since the 
 time of reconstruction have been made by Demo- 
 cratic administrations and Democratic Congresses. 
 
 There is no obvious connection between the 
 exclusion of slavery from the Territories and the 
 protection of manufactures by tariff duties. Yet 
 the Republican party, which owed its existence to 
 the former idea, and which was originally composed 
 of men holding all varieties of opinions on economic 
 subjects, now makes protection its supreme test of 
 orthodoxy, in spite of which it still retains the 
 allegiance of low-tariff .men who joined it solely 
 because of its position on the dead and forgotten 
 issue of slavery. 
 
 That the persistence of parties is the result of 
 struggles for official place, rather than of differences 
 with regard to principles or policies, is demonstrated 
 by the fact that the two great parties remain nearly 
 equal in strength. When one greatly preponder- 
 ates over the other for any length of time, there is 
 a reorganization. This approximate equality is 
 necessarily involved in contests for place, because it 
 is essential to the vigorous prosecution of such 
 struggles that each side should have a chance of 
 success. If the question at issue were impersonal, 
 there would be no more probability of an equal 
 division than of a division in any other proportion. 
 The difference is well illustrated by the election of 
 1 892 in California. On that occasion the Democratic 
 vote for presidential electors ranged from 1 17,840 to 
 118,174, and the Republican vote from 117,504 to 
 
78 SUGGESTIONS ON GOVERNMENT. 
 
 1 18,027. At the same time the people voted on nine 
 constitutional amendments and other propositions. 
 On the question whether United States Senators 
 should be elected by the people there were 187,958 
 votes in the affirmative against 13,342 in the nega- 
 tive. The act authorizing the San Francisco Harbor 
 Commissioners to issue bonds to the amount of 
 five hundred thousand dollars, for the construction 
 of a new ferry depot, was approved by a vote of 
 91,296 to 90,430. An educational qualification for 
 the suffrage was favored by 151,320 votes to 41,059. 
 The proposition to refund the State debt was 
 rejected by 85,604 votes in the negative to 79,900 in 
 the affirmative. Three constitutional amendments 
 were defeated the first, altering the power of the 
 governor with reference to vetoes, by 87,708 votes to 
 69,286 ; the second, extending the length of legisla- 
 tive sessions, by 153,831 to 36,442, and the third, 
 increasing the salary of the lieutenant-governor, by 
 128,743 to 43,456. Two were ratified, one, limiting 
 local debts, by 108,942 to 59,548; and the other, 
 authorizing all cities of over three thousand live 
 hundred inhabitants to frame their own charters, by 
 1 14,617 to 42,076. 
 
 The fate of these nine propositions ranged all the 
 way from defeat by a margin of 117,389 votes to 
 success by a majority of 174,616. Yet if they had 
 depended entirely upon legislative action, and the 
 I )emocrats had indorsed them all while the Repub- 
 licans opposed them, or the Republicans had indorsed 
 them all and the Democrats opposed them, or one 
 party had taken precisely the ground on each which 
 
PARTIES. 79 
 
 the returns show the people to have favored while 
 the other took precisely the opposite ground, no 
 politician familiar with the facts will say that there 
 would have been a difference of ten thousand votes 
 in the strength of the party tickets. Nor would the 
 difference have been much greater if the Republican 
 platform had declared for free trade and the Demo- 
 cratic one for protection, or vice versa. Democrats 
 would have continued to vote for Cleveland, and 
 Republicans for Harrison, in any circumstances. 
 
 In all the States it is more usual for constitutional 
 amendments to be decided by enormous majorities 
 one way or the other than by close votes. This is 
 sufficient evidence that there is nothing in the 
 nature of things impelling the people to split into 
 two equal parts on questions of principle. There is 
 no reason to suppose that if the tariff, or silver, or 
 any other of the questions that now afford the pre- 
 text for party battles, were submitted without per- 
 sonal complications, the result would be different. 
 
 But with all questions of principle eliminated, it 
 would be impossible to maintain party divisions. 
 When the politician could no longer rally his 
 cohorts with an appeal to " stand by the immortal 
 principles of our party," and the stump-speaker had 
 nothing to say except, " Elect Smith because he 
 wants the office," political allegiance would sit 
 lightly on the masses. If one candidate were con- 
 spicuously superior to his opponent, the people would 
 be likely to flock to his support as generally as the 
 people of California supported the proposition to 
 take the election of United States Senators out of 
 
80 SUGGESTIONS ON GOVERNMENT. 
 
 the hands of the Legislature. This would be 
 especially probable if the methods of election were 
 properly reformed. 
 
 So much for the inherent necessity of parties. 
 What of their desirability? In England, where the 
 system is carried to its logical extreme, the country 
 is in a state of unceasing political war. Every 
 important measure proposed in Parliament is a party 
 measure, which must be supported in all its details 
 by the members of one party, even when they per- 
 sonally disapprove of it, and desperately fought at 
 all stages by the members of the other, even when 
 they think it in the public interest. At the begin- 
 ning of a session the Cabinet looks over the majority 
 upon which it must depend to keep it in office. Then 
 it reckons up the various reforms, jobs, and fads 
 upon which the hearts of different fractions of this 
 majority are especially set, and composes from them 
 a "programme," each item of which is the price of 
 a certain group of votes, and may be distasteful, not 
 only to the whole of the minority party, but to the 
 bulk of the majority. If, as sometimes happens, 
 there is some paramount issue on which the national 
 mandate has been clearly expressed, this central dish 
 on the parliamentary board is garnished with a 
 variety of relishes, added to please small cliques of 
 members whose support is necessary to the success 
 of the party in its chief objects. No measure pro- 
 posed by the minority, however meritorious it may 
 be, has any chance of adoption. There is no pos- 
 sibility of candid discussion, for almost every mem- 
 ber speaks as an attorney, not as an unprejudiced 
 
PARTIES. 81 
 
 reasoner, and the few free lances who say what they 
 think generally forfeit their influence by their 
 infractions of party discipline, and gain the reputa- 
 tion of being erratic and untrustworthy. The best 
 way to attain sound ideas, as Matthew Arnold tells 
 us, is to let the mind play easily about the subject 
 under consideration, and form its judgment uncon- 
 sciously from a contemplation of the topic from all 
 sides. " For this judgment comes almost of itself ; 
 and what it displaces, it displaces easily and natu- 
 rally, and without any turmoil of controversial rea- 
 sonings. The thing comes to look differently to us, 
 as we look at it by the light of fresh knowledge. 
 We are not beaten from our old opinion by logic ; 
 we are not driven off our ground ; our ground itself 
 changes with us." 
 
 If we were looking for the process of all others 
 most radically irreconcilable with the " sweet rea- 
 sonableness," through which- the truth is best 
 approached, we should find it in the clash of vin- 
 dictive, unthinking, and irreconcilable prejudices 
 that constitutes an English party contest. 
 
 In America things are better in some respects 
 and worse in others. Partisanship here is less 
 universal in its scope, but even more squalid in its 
 manifestations. The bulk of the legislation of Con- 
 gress, and almost all of that of an average State 
 legislature, in ordinary times, is non-partisan in 
 character, and an adroit leader of the political 
 minority may have almost or quite as much 
 influence in its passage as if he belonged to the 
 majority. But where the partisan spirit does get 
 
 6 
 
82 SUGGESTIONS ON GOVERNMENT. 
 
 in, its developments are expressibly small and 
 mean. It turns out door-keepers, degrades school- 
 teachers, and makes spoils out of the suffering 
 paupers. It is the sole support of the power of 
 bosses. It makes the promotion of one " party 
 measure," which it often fails to carry, the excuse 
 for years of jobbery and plunder. 
 
 The persistence of parties, under our present 
 conditions, is due to the fact that the citizen 
 exhausts all his political power for a fixed period 
 in a single act, and that act the election of some 
 man or men to office. There may be a dozen prin- 
 ciples which he would like to see embodied in 
 legislation, but he can neither vote for each of them 
 directly nor for a different man for each principle. 
 The best he can do is to vote for a candidate whose 
 views, on the whole, are most nearly in accordance 
 with his own, and resign himself to being mis- 
 represented on the points upon which lie and his 
 candidate differ. From this has arisen the habit of 
 picking out what seem to be for the moment the 
 most important subjects in dispute, making them 
 the issues on which candidates contest for election 
 and ignoring less pressing matters. This at once 
 divides the community into parties, having the 
 nominal ultimate purpose of carrying out their 
 characteristic principles, and the actual immediate 
 purpose of getting their candidates into office. To 
 attain this immediate purpose the parties bid for 
 the support of groups of voters with special hob- 
 bies by expressing sympathy with their desires, and 
 the result is the modern " platform," with its amaz- 
 
PARTIES. 83 
 
 ing jumble of ideas, which, as a whole, corresponds 
 to nobody's real opinions, and least of all to those of 
 the men who draw it up. 
 
 The party system, dividing the mass of the com- 
 munity into two immovable and nearly equal 
 sections, puts the entice control of politics into the 
 hands of the small mobile element between. Some 
 of these floating voters are independents, who 
 honestly try to use their power in the public 
 interest, but in too many cases they are in the 
 market, either for legislative favors or for ready 
 cash. The purchasable vote, whether of tramps or 
 of millionaires, would be harmless if the desires of 
 the whole people had free play. It is a division 
 which gives so much importance to the " balance of 
 power " that enables floaters and trusts to dictate 
 terms to party managers. 
 
 As party government has naturally grown out of 
 present conditions, so it would naturally disappear 
 if the conditions were changed. There is no reason 
 why the man who believes in free trade, the single 
 gold standard, and the Government ownership of 
 railroads, should seek all those objects through one 
 political organization, except that under our present 
 methods he has only one vote, and must cast it for 
 the candidate of one political organization or lose it. 
 If he could vote on each important measure sepa- 
 rately he would probably belong to one association, 
 or party, devoted to the propagation of the free- 
 trade idea ; to another working for the gold standard, 
 and to another engaged in agitating for the nationali- 
 zation of railroads. He would no more expect always 
 
84 SUGGESTIONS ON GOVERNMENT. 
 
 to associate with the same men in political matters 
 than in social, religious, and business matters. A 
 man does not attempt to promote the Westminster 
 Confession, encourage vaccination, prevent cruelty 
 to animals, and deal in stocks through a single 
 organization, and there is np more reason why a 
 single party should have the work of handling a 
 dozen unrelated problems of government. The 
 mere fact that all are called Democrats, and act 
 together on two or three questions, is not enough to 
 form one class of Representatives Bland, Johnson, 
 Harter, Bryan, Cockran, and Tracy, sharply marked 
 off from another class containing Senators Aid rich, 
 Sherman, Cameron, ILinsbrough, Teller, and Wol- 
 cott. 
 
 With the introduction of direct legislation and the 
 abolition of periodical elections, parties would cease 
 to be either permanent or rigid. If free trade once 
 became thoroughly established, and settled beyond 
 danger of early disturbance, the party formed to 
 work for it would disappear. New groups would be 
 continually forming and dissolving. There would 
 be no danger from excesses of party spirit, since 
 men would lose the habit of regarding themselves 
 as members of hostile armies when their allies on 
 one question were their opponents on another. As 
 the bulk of American legislation now is non- 
 partisan, and those questions which arouse partisan 
 antagonisms would then be withdrawn from the 
 determination of the legislative bodies and referred 
 to the people, there would be no occasion for parti- 
 sanship in the representative assemblies, and men 
 
PARTIES. 85 
 
 would be elected to them simply on the score of 
 their general ability and character, and would be 
 kept in office as long as they did satisfactory work. 
 There would be an end then of the curious super- 
 stition that an idea whose reasonableness commends 
 it to half of the nation must necessarily, by that very 
 fact, be repugnant to the other half. 
 
CHAPTER VII. 
 
 MUNICIPAL GOVERNMENT. 
 
 The various evils for which it is the purpose of 
 this book to suggest remedies are felt in their 
 acutest form in the government of cities. They are 
 so keenly realized that it is unnecessary to spend 
 any time here in expatiating upon them. Applying 
 the principles already discussed to the affairs of a 
 typical city, let us see what the results would be 
 likely to be as compared with those of the present 
 method. 
 
 Suppose our city to contain five hundred thousand 
 inhabitants, of whom one hundred thousand are 
 voters. We divide it into two hundred election 
 precincts, with approximately five hundred voters 
 in each. For every precinct we provide a meeting 
 hall. Of course, three or four adjoining precincts 
 could often use one convenient building in com- 
 mon. There would be a primary assembly in each 
 precinct composed of all the qualified voters within 
 its limits. These assemblies would hold regular 
 monthly meetings in the evenings, after working 
 hours, and special meetings as often as necessary. 
 Each precinct would be entitled to one representa- 
 tive in the city council, and this representative 
 would be the only municipal officer, except the 
 auditor, for whom the citizens would vote. He 
 
 (86) 
 
MUNICIPAL GOVERNMENT. 87 
 
 would hold his place as long as he suited his con- 
 stituents, and whenever he ceased to give satis- 
 faction his assembly could revoke his credentials 
 and elect somebody else. The members of the city 
 council would receive no salaries. They would 
 hold weekly meetings in the evening, and would 
 be expected to have some private occupation or 
 means of support with which their public duties 
 would not interfere. They would elect the mayor, 
 whom they would have the power of removing, 
 after two months' notice, by a two-thirds vote. 
 The mayor, like the members of the council, would 
 have no fixed term of office. 
 
 The mayor would appoint all the heads of the 
 executive departments, except the auditor, and they 
 would hold office at his 'pleasure. He would also 
 appoint the municipal judges, who would retain 
 their places during good behavior, and would not be 
 subject to removal, except after formal trial on 
 definite charges. All appointments would be made 
 on the sole responsibility of the appointing power, 
 without the necessity of' confirmation. The heads 
 of departments would have seats in the city council, 
 and each would be ex officio a member of the com- 
 mittee having jurisdiction over the subjects dealt 
 with by his department. The mayor, also, would 
 have the right to address the council at any time. 
 Each head of a department would have the right of 
 appointing and removing his immediate subordi- 
 nates, and they in turn would have the right of 
 appointing and removing the officials under them; 
 the principle being that every man in the public 
 
88 SUGGESTIONS ON GOVERNMENT. 
 
 service should be directly responsible to his imme- 
 diate superior, and to nobody else. Thus there 
 would be an unbroken chain of responsibility from 
 the lowest clerk or janitor, through the chief of 
 bureau, head of department, mayor, and city council, 
 direct to the people. Every superior official who 
 connived at a wrong committed by a subordinate 
 would take it on his own shoulders, and the matter 
 would come, by two or three stages at most, to the 
 mayor, whose failure to act would subject him to 
 removal by the city council, any member of which 
 who condoned the offense would be liable to chal- 
 lenge by any citizen in his precinct assembly, fol- 
 lowed by a vote of dismissal. 
 
 The auditor would be elected by the citizens at 
 large, acting through their several assemblies. He 
 would appoint his own deputies and would be sub- 
 ject to removal by a two-thirds vote of the council, 
 as in the case of the mayor. If reelected, however, 
 he would not be liable to removal again within a 
 year. It would be his duty to examine all claims 
 against the city ; to refuse to audit any improper 
 bills ; to maintain a general oversight over the finan- 
 cial operations of the municipal government, and to 
 report to the council, of which he would be ex officio 
 a member, any discoveries of misconduct or sugges- 
 tions of improvement. Every executive department 
 would have a single head, but the superintend- 
 ent of schools would have the assistance of an 
 advisory council of twelve principals selected by 
 himself. All important educational matters would 
 have to be referred to this council for public discus- 
 
MUNICIPAL GOVERNMENT. 89 
 
 sion and advice, but the ultimate decision in all 
 cases would rest with the superintendent alone. 
 Similarly, the chief of police would receive expert 
 advice from a board of captains, and the chief of the 
 fire department from a board of district engineers, 
 but the final control of each department would be 
 undivided. The city council would have the right 
 to pass any municipal ordinance, without liability to 
 executive veto, but on demand of one-fifth of the 
 members of the council, of the mayor, or of ten pre- 
 cinct assemblies, any measure so passed could be 
 submitted to popular vote for approval or rejection. 
 In the same way a vote could be procured on any 
 measure on which the council had refused to pass. 
 
 To see how such a system would work, let us com- 
 pare it with the present methods in actual operation. 
 San Francisco is an average city, with which I have 
 the advantage of a more thorough acquaintance than 
 with any other. It contains about sixty thousand 
 registered voters, and consequently, under the plan 
 proposed, would be divided into one hundred and 
 twenty precincts, giving a city council of one hun- 
 dred and twenty members. In each precinct the 
 people would vote at indeterminate times for the 
 auditor and for a member of the council. Only one 
 of these would be elected at a time, and the people 
 would have to show very much less political capacity 
 than they have ever shown yet if they did not scru- 
 tinize the names suggested with critical attention. 
 
 Under the present system every citizen of San 
 Francisco is expected to vote every two years for a 
 mayor, sheriff, auditor, treasurer, city and county 
 
90 SUGGESTIONS ON GOVERNMENT. 
 
 attorney, coroner, tax collector, county clerk, record- 
 er, district attorney, public administrator, surveyor, 
 superintendent of streets, four superior judges, four 
 police judges, five justices of the peace, twelve 
 supervisors, and twelve members of the board of 
 education a total of fifty municipal officials, in 
 addition to those elected to fill vacancies. Each 
 citizen is also called upon to vote at the same time 
 for a representative in Congress, and a member of 
 the State Assembly ; and every four years for an 
 assesssor, superintendent of schools, nine presi- 
 dential electors, a governor, lieutenant-governor, 
 secretary of State, controller, State treasurer, State 
 superintendent of public instruction, surveyor-gen- 
 eral, attorney-general, railroad commissioner, mem- 
 ber of the State board of equalization, State senator, 
 two or more supreme justices, and clerk of the 
 supreme court. At the last election, moreover, it 
 was necessary, in addition to all this, to vote for or 
 against five constitutional amendments and four 
 propositions, and at the next election there will be 
 nine constitutional amendments to be voted upon. 
 Whenever a citizen of San Francisco goes to the 
 polls he is required to assist in filling from sixty to 
 eighty different offices, and is obliged to select from 
 among about three hundred candidates. It would 
 be natural to expect him in despair to give up all 
 attempts at discrimination and vote a straight party 
 ticket, and the fact that a large majority of the bal- 
 lots deposited in San Francisco are scratched testifies 
 to an honest determination to perform political 
 duties which would work wonders for good govern- 
 
MUNICIPAL GOVERNMENT. 91 
 
 ment if it were exercised under less discouraging 
 circumstances. The mayor of San Francisco is 
 generally honest. The majority of the legislative 
 body, or board of supervisors, and most of the heads 
 of departments, are always corrupt. Seven mem- 
 bers of the board of supervisors can pass any ordi- 
 nance that does not require the mayor's signature, 
 and nine can pass anything over his veto. It has 
 been customary to organize a " Solid Nine" for 
 transactions in legislation of all descriptions, but 
 sometimes there are more than three honest mem- 
 bers in the board, and then it is necessary to be con- 
 tent with such speculations as can be carried through 
 by a " Solid Seven." This considerably restricts the 
 field for enterprise. Lately the discovery that the 
 annual order fixing water rates, which is usually 
 considered the most profitable perquisite of the 
 board, can be legally enacted without the mayor's 
 signature, has largely increased the possibilities 
 open to a bare majority, and correspondingly reduced 
 the importance of the mayor. 
 
 The income of the water company is over one 
 million six hundred thousand dollars a year. The 
 maintenance of this income depends entirely upon 
 the votes of seven members of the board of super- 
 visors, and these seven men have it in their power 
 to keep the company's stock at par or practically to 
 wipe out its value. The stock has never fallen very 
 far below par. The people have repeatedly elected 
 supervisors pledged to make material reductions in 
 water rates, but the pledges are never kept. Under 
 the present system of government there is absolutely 
 
92 SUGGESTIONS ON GOVERNMENT. 
 
 no remedy for these breaches of faith. Almost all 
 of the nostrums commonly recommended have been 
 tried. The plan of " electing good men to office " is 
 followed at almost every election, and the only 
 result is to turn good men into bad. The most sub- 
 stantial and respected citizens in the community 
 turn rascals when they become supervisors. The 
 concentration of temptation is too much for them. 
 The plan of rewards and punishments has been tried 
 to the fullest extent. For years it has been the 
 custom to promote honest supervisors to the mayor- 
 alty, and from that the road has been open to the 
 governorship, while dishonest ones have been 
 dropped into political oblivion at the end of their 
 first terms. There have always been a few ambi- 
 tious aspirants in training for higher office, but the 
 majority of the supervisors have been willing to 
 sacrifice their political future for the sake of winning 
 an independent competency for life in two years. 
 Mass meetings have been held, and " ringing resolu- 
 tions" adopted, mayors have remonstrated, and 
 newspapers have bombarded the board with " scath- 
 ing editorials," but as all these protests have been 
 destitute of legal authority, the community having 
 given an irrevocable power of attorney for two 
 years, the supervisors have stolidly consummated 
 their bargains without even taking the trouble to 
 defend them. 
 
 What would have been the situation under the 
 plan proposed ? In the first place it would have 
 been necessary for the corporation to obtain pos. 
 session of sixty-one men instead of seven, and this 
 
MUNICIPAL GOVERNMENT. 93 
 
 fact alone would have been likely either to raise the 
 cost beyond what the company could afford to pay, 
 or to reduce the temptation to a point at which it 
 could be resisted. Supposing this difficulty sur- 
 mounted, the work would have only begun. As 
 soon as the corporation acquired possession of a 
 councilman, he would be recalled by his precinct 
 assembly, and another sent to take his place. 
 It would be necessary to corrupt the whole 
 city before a stable majority in the council 
 could be secured. But before matters had pro- 
 gressed very far in that direction, the subject 
 would have been taken out of the hands of the 
 council and submitted to a direct vote of the 
 people. Obviously bribery under such circum- 
 stances would be a waste of money, of which no 
 sensible corporation would be guilty. A reasonable 
 policy would be adopted, which could be defended 
 before the public by honest arguments, and the 
 resources, now spent in corruption, would be saved, 
 to the common benefit of the pockets of the stock- 
 holders and the morals of the community. 
 
 Another common evil in San Francisco is fraudu- 
 lent street work. Paving contractors are usually 
 expected to share their profits with the officials 
 who pass upon the performance of their contracts. 
 If they make a satisfactory division, bad work 
 passes as easily as good. If they refuse, good work 
 is as certain to be rejected as bad. Obviously good 
 jobs under such conditions are scarce. The public 
 knows that this sort of thing is going on all the time, 
 but, not knowing how to apply a remedy, it does 
 
94 SUGGESTIONS ON GOVERNMENT. 
 
 nothing. It would do no good to complain to the 
 mayor. He has no authority to interfere with street 
 work. That is under joint control of the superin- 
 tendent of streets and the street committee of the 
 board of supervisors. These irresponsible auto- 
 crats may be, and often are, of different parties, so 
 that even the resource of partisan discipline, such as 
 it is, fails when applied to them. Is a party respon- 
 sible for a corrupt superintendent of streets to be 
 punished for the benefit of a party responsible for 
 his corrupt partners in the board of supervisors? 
 And what if the situation be, as sometimes happens, 
 that the obnoxious officials do not represent either 
 party, but were elected by a non-partisan uprising 
 for reform? Of course the people can threaten the 
 culprits with individual defeat at the next election, 
 and this is usually done, but the menace of political 
 action two years in the future does not protect the 
 streets in the meantime not to speak of the 
 paralyzing certainty that the persons to be eK 
 will faithfully copy the examples set by their 
 predecessors. 
 
 If the government were organized on the pro- 
 posed basis, any imperfect piece of street work 
 would be noticed by the citizens of the precinct 
 immediately affected, and would be discussed at 
 the next meeting of their local assembly. The 
 councilman from that precinct would be called upon 
 to have the matter righted. He would demand an 
 explanation from the superintendent of streets in 
 an open session of the council. If the superin- 
 tendent laid the blame upon a subordinate, he 
 
MUNICIPAL GOVERNMENT. 95 
 
 would be required to dismiss that subordinate or 
 assume the responsibility himself. If he chose the 
 latter alternative, it would become the duty of the 
 mayor to remove him, and the failure of the mayor 
 to take action would be punishable by the council, 
 which in turn would be held to account by the 
 voters in their various assemblies. Of course the 
 discovery of misconduct would not necessarily be 
 left entirely to the people of the localities especially 
 affected. Any resident of the city would have the 
 right to direct attention to any fault he might 
 discover in the administration of any branch of the 
 government. Any member of the council could 
 force any head of a department to furnish a public 
 explanation of any suspicious circumstance occur- 
 ring within his jurisdiction. Newspaper charges of 
 mismanagement and corruption, which now are 
 empty sensations, forgotten as soon as made, would 
 then lead in every case to definite results. No 
 journal could be so destitute of influence as to be 
 unable to secure the cooperation of a councilman in 
 putting its accusations into official form. Instead 
 of calling upon the people to rise and beat the air in 
 unavailing wrath, it would be able to concentrate 
 the whole force of public opinion, not only in a 
 moral, but in a legal, form upon the precise points 
 at which it could accomplish the needed results. 
 
 But now let us proceed to the crucial test of 
 municipal reform in America the government of 
 the city of New York. Any plan that would insure 
 a pure and efficient administration there would 
 work well anywhere. 
 
96 SUGGESTIONS ON GOVERNMENT. 
 
 New York is governed by corporations of politi- 
 cians organized to exploit the various sources of 
 revenue legitimately and illegitimately controlled 
 by the persons who hold the municipal offices. 
 The corporation at present in possession is known as 
 Tammany Hall, but it is a mistake to suppose that 
 the defeat or even the total destruction of Tammany 
 would imply any permanent change in the methods 
 of municipal administration. It is estimated that 
 the city government of New York is equivalent to a 
 capital of eight hundred million dollars, the income 
 of which may be enjoyed by whatever combination 
 of politicians succeeds in capturing it. It is doing 
 violence to all the principles of human nature to 
 imagine that this booty will be left to the disposal of 
 high-minded political amateurs after the art of 
 acquiring it has been so thoroughly taught by 
 Tammany and its predecessors. Reform is spas- 
 modic, but greed is permanent. Greed worl 
 the time; reform works when it has no previous 
 engagements. If Tammany were destroyed, a new 
 combination, just as powerful and just as hungry, 
 would be in control within four years. 
 
 The machinery of government in New York has 
 been brought to almost the highest possible point 
 of perfection attainable under the principles now in 
 VOL; tie. The confusion and irresponsibility that 
 reign in San Francisco and other cities have been 
 replaced by an almost complete concentration of 
 administrative authority in the hands of the mayor, 
 and the opportunities for corruption open to the 
 common council have been nearly eliminated. Yet 
 
MUNICIPAL GOVERNMENT. 97 
 
 New York is unable to secure even a tolerably good 
 government for more than two years out of six. 
 The only resource left to try on the old lines is the 
 complete separation of municipal affairs from State 
 and national politics, and this is the straw at which 
 reformers are now grasping most hopefully. But a 
 little reflection must show that no radical change in 
 the present conditions can be expected from this 
 reform, desirable as it is in itself. It has been tried 
 in various cities without startling results. If it 
 were completely established in New York, the 
 biennial election would still be a lottery. The 
 people of Brooklyn thought that they were getting 
 good mayors when they elected Mr. Chapin and 
 Mr. Boody. A mistake once made, would be 
 irrevocable for two years, and in that time a new 
 combination could be built up as formidable as 
 Tammany. By virtue of its possession of the 
 powers of the city government it would control 
 the largest, most compact, and best organized mass 
 of votes in the field, and to defeat it all the antago- 
 nistic elements would have to be united in the 
 support of a single ticket. Two opposition tickets, 
 under the prevailing system of plurality elections, 
 would insure the success of the combination. 
 
 If the plan of government advocated in these 
 pages were adopted for New York, it would be 
 advisable, for the sake of convenience, to put a 
 thousand voters in each precinct. As it is not 
 likely that over four-fifths of the number would be 
 in attendance at any one time, this would not swell 
 the assemblies to an unwieldly size. On the basis 
 
 7 
 
98 SUGGESTIONS ON GOVERNMENT. 
 
 of a total registration of three hundred thousand, 
 -the city council would contain three hundred mem- 
 bers. These would not be swept into place on a 
 general ticket on which, to most of the voters, the 
 names were mere fortuitous collocations of syllables, 
 but each would be elected on his own individual 
 merits by a meeting of his neighbors at which he 
 was bodily in evidence. The nominations would be 
 made at the hour of election, and the beetle-bi < 
 plug-ugly, ambitious of a seat in the council, would 
 have to stand up and let his fellow-citizens see what 
 they were voting for. The candidates could be 
 called upon by any voter to express their views 
 upon the proper choice for mayor, and the nature of 
 a desirable municipal policy. This exhibition would 
 be followed by an immediate vote, confined to the 
 single office of councilman for the precinct, with 
 no outside complications. 
 
 The council thus elected would choose the mayor. 
 This action would be more closely scrutinized than 
 any other in its career. A bad choice would ;^et the 
 councilmen responsible for it into immediate trouble 
 with their constituents. They would be recalled 
 and replaced by others who would vote to correct 
 the mistake by removing the bad mayor and elect- 
 ing a better one. The new mayor would appoint 
 his heads of departments, and the character of his 
 appointment would be subjected to microscopic 
 scrutiny by the press. If there were any faults 
 that failed to be detected by that examination, they 
 would be disclosed when the new officials took their 
 seats in the city council and submitted to a weekly 
 
MUNICIPAL GOVERNMENT. 99 
 
 baiting regarding the management of their depart- 
 ments. Whenever an acute reporter discovered a 
 lurking job in any corner of the city government, 
 he would prompt some friend in the council first, 
 of course, filing a caveat on it for the benefit of his 
 paper to ask embarrassing questions of the 
 responsible official. 
 
 Under this system the government would have a 
 constant tendency to improve, instead of to dete- 
 riorate, as it has now. The quality of the council 
 would grow better from year to year, as the voters 
 in the precinct assemblies became better acquainted 
 with each other and had time to observe the conduct 
 of their representatives. Unfit councilmen would 
 be gradually eliminated, and the men who had com- 
 mended themselves to their precinct assemblies by 
 their intelligent interest in public affairs would be 
 substituted. Of course there would always be a 
 number of bad men in the council. There are 
 certain districts in New York which could be fairly 
 represented only by thieves and ruffians, and these 
 would naturally elect thieves and ruffians to act for 
 them. But the influence of this vicious vote would 
 be localized and rendered harmless, instead of 
 being permitted, as now, to taint the elections 
 of the whole city, and even to determine the choice 
 of a President of the United States. The council, 
 in the end, would perfectly reflect the moral condi- 
 tion of its constituents. So long as the mass of the 
 people remains sound, that is all we need, and when 
 the mass becomes corrupt, it will be time to abandon 
 the attempt to maintain self-government. 
 
100 SU(i(.I-:s'l K'NS ON GOVERNMENT. 
 
 Compare the opportunities open to the well-mean- 
 ing; individual citizen under this system with those 
 open to him under the present methods. In the 
 New York of to-day, the individual voter can do 
 absolutely nothing in the intervals between cam- 
 paigns. Throughout these periods he must be 
 content to be governed by an irresponsible despot- 
 ism. Upon the approach of an election it is open to 
 him to decide whether to support or oppose Tam- 
 many. Assuming that he so far subdues his 
 feelings as to determine to act through the domi- 
 nant machine, and further that he carries his 
 devotion to the public welfare to such an extent as 
 to heed the appeals of reformers to " take part in 
 the primaries," he goes on the appointed evening to 
 a hall tilled with men of unfamiliar aspect and not 
 apparently intent upon the advancement of munic- 
 ipal reform. I le is handed a ballot as large as half a 
 page of a newspaper, filled with hundreds of names 
 in closely printed columns. Probably not one of 
 these names is known to our citizen, but he can 
 safely assume that if elected their holders will 
 stand, in the general committee and the nominating 
 conventions, as the defenders of all the evils which 
 our reformer particularly desires to suppress. It 
 will be safe, therefore, for him to scratch them all 
 and make out a new list. Supposing this physical 
 impossibility to be performed, and the amended 
 ballot, with the names of three or four hundred 
 trustworthy candidates written upon it, to be 
 dropped into the box, there remains the problem 
 of getting it out. Our pertinacious citizen remains 
 
MUNICIPAL GOVERNMENT. 101 
 
 on duty until the polls are closed, and then waits 
 patiently for the returns. As preparations are made 
 for putting out the lights and clearing the hall, he 
 ventures to ask when the count is going to begin. 
 An amiable inspector informs him that there is no 
 hurry about that the box will be taken up to the 
 Wigwam and opened sometime in the course of the 
 next day. 
 
 If the protesting citizen had a thousand com- 
 panions, and if instead of one hastily scratched 
 ticket they had provided a complete supply of 
 properly printed opposition ballots in advance, this 
 last precaution would finish them. 
 
 In the absence of a quarrel among ttie bosses, the 
 only opportunity to make a stand against Tammany 
 corruption is at the polls in a general election, where 
 a hundred and fifty thousand voters of all shades of 
 opinion must sink their individuality and loyally sup-~ 
 port exactly the same list of candidates, prepared for 
 them by conferences that must necessarily take in a 
 number of politicians as little worthy of confidence 
 as the Tammany sachems themselves. This supreme 
 effort must be made on a fixed day, and a failure or 
 mistake then is irremediable for two years. In any 
 case the part which any one ordinary citizen can 
 play is so infinitesimal that the spirit of independent 
 revolt against misgovernment is crushed out in 
 most men by the apparent impossibility of effecting 
 results. 
 
 Under the suggested reorganization of the gov- 
 ernment, the individual citizen would have at all 
 times the fullest opportunity to make his influence 
 
102 SUGGESTIONS ON GOVERNMENT. 
 
 felt. Whenever he saw anything going wrong he 
 could bring up the subject in his precinct assembly, 
 where he would feel at home, and where his char- 
 acter would have its due weight. If his arguments 
 were convincing, he could secure a vote of the 
 assembly instructing its councilman to demand a 
 public explanation of the responsible official, or, if 
 necessary, removing the councilman and substitut- 
 ing one more in sympathy with the desires of his 
 constituents. If the explanation demanded of the 
 executive official proved unsatisfactory, coiineilmen 
 from other precincts would at once join in the 
 attack, the press would take the matter up, and 
 before long there would have to be reform or resig- 
 nations. 
 
 Under the present system a corrupt government 
 is corrupt all through, and the only light that is 
 thrown into its foul recesses must come from the 
 outside, from newspapers or other amateur investi- 
 gators, with no official standing and no certainly 
 authentic sources of information. Under the new 
 plan, with each precinct assembly a living entity of 
 itself, there would always, in the worst possible cir- 
 cumstances, be a number of precincts controlled bv 
 the best citizens, and the representatives of these in 
 the city council would be in a position to posses 
 inside acquaintance with every detail of the munic- 
 ipal administration. They would have the right to 
 call every head of department publicly to account, 
 and to put searching questions, demanding categor- 
 ical answers, regarding every instance of misconduct. 
 With the chiefs of the city government thus pub- 
 
MUNICIPAL GOVERNMENT. 103 
 
 licly on trial at every meeting- of the council, these 
 meeting's would be fully reported in the newspapers, 
 which would make them the great news " features " 
 of their next morning's issues. The effect would 
 inevitably be to arouse an agitation that would lead 
 one precinct assembly after another to recall its 
 unworthy representative in the council, and as the 
 remainder saw their numbers diminishing and those 
 of the reformers increasing, there would come a 
 stampede for the winning side. The honest minor- 
 ity would grow to the necessary two-thirds majority, 
 the corrupt mayor would be removed, and his 
 successor would institute a general house-cleaning in 
 the departments. 
 
 It may be said that the power of removing the 
 mayor might be used by a dishonest council to rid 
 itself of an honest executive. This danger would 
 be effectively averted by forbidding the removal of 
 the mayor except on two months' notice. If the 
 mayor were plainly in the right and the council in 
 the wrong, the citizens in their precinct assemblies 
 could take advantage of the delay to instruct their 
 councilmen to stop the proceedings, and, if necessary, 
 they could recall their representatives and substitute 
 others friendly to the mayor's policy. If, at the end 
 of two months, there still remained a two-thirds 
 majority of the council in favor of removal, it would 
 be because the people plainly desired that action. 
 
 One objection to the proposed plan may be said 
 to be the fact that it subdivides the city so minutely 
 as to imprison candidates for the council within too 
 narrow limits. It should not be necessary, however, 
 
104 SUGGESTIONS ON GOVERNMENT. 
 
 for a councilman to live in the precinct he repre- 
 sented. Every assembly should have the privilege 
 of ranging over the whole city to find the man best 
 suited to its purpose. The very minuteness of the 
 subdivisions would tend to break down the per- 
 nicious American habit of the localization of candi- 
 dacies. A representative of some kind can always 
 be found in :i ward, and consequently, even when 
 the requirement is not enforced by law, there is a 
 tendency to confine candidates within ward lines. 
 But the proposed precincts would be so small that it 
 would often be necessary to go outside of them to 
 find somebody at once willing to serve and able to 
 make a creditable appearance before the voters, and 
 the good results of this practice would lead to its 
 extension in other directions. When the people 
 once became accustomed to the workings of the 
 new system, they would draw the best men into the 
 public service, wherever they might be found. 
 
CHAPTER VIII. 
 
 TOWN AND COUNTY GOVERNMENT. 
 
 The principles already developed are equally 
 applicable throughout the whole range of govern- 
 ment in this country, from that of the rural township 
 to that of the nation, and need only modifications in 
 details to fit them to any particular case. 
 
 In cities it is easy to carve out precincts of approx- 
 imately equal size as the electoral units. In the 
 rural districts regard must be paid to historical, 
 topographical, and industrial conditions. When a 
 certain community has been in the habit of consid- 
 ering itself as an independent political entity, it is 
 not well to cut it up because it has more than five 
 hundred voters, or to tack it to another because it 
 has less. Experience in New England has shown 
 that a town can be satisfactorily governed by a single 
 town-meeting when fifteen hundred voters, or even 
 more, are entitled to take part in the assembly, and 
 other towns govern themselves with fifty voters or 
 less. As a rule, however, it would be advisable to 
 introduce the precinct system when the number of 
 electors ran much over a thousand. In these mat- 
 ters a very wide latitude should be allowed to the 
 discretion of localities, and the central legislative 
 power should interfere as little as possible with the 
 wishes of the people immediately concerned. 
 
 (105) 
 
IOC) SUCCF.STIMNS ON GOVERNMENT. 
 
 It is the custom in most American States to treat 
 towns and counties as the creatures of the legisla- 
 tures. Their legal powers are exhaustively enu- 
 merated, and no action can be taken that is not 
 expressly provided for. I should reverse this rule. 
 Local government is nearer to the people than any 
 other, and therefore, if properly organized, ought to 
 have less need of restrictions in dealing with mat- 
 ters within its sphere. The people of a given 
 township know their own local needs and capacities 
 better than the members of the legislature from the 
 other end of the State. If they feel that it would be 
 to their advantage to maintain a town library, or 
 gymnasium, or bath-house, or street-car line, or 
 electric-light plant, or art gallery; to encourage 
 manufactures by exemption from taxation; to estab- 
 lish labor stations for unemployed workmen, or not 
 to do any of these things, it ought to be in their 
 power to do or not to do them without being in any 
 way hampered by general or special laws. Each 
 town and county should be a sovereign republic in 
 its local affairs, subject only to the general legal 
 safeguards of property, contracts, and order. The 
 recognition of this principle would immensely sim- 
 plify the work of the State legislatures, and remove 
 a prolific source of intrigue and corruption. There 
 are no more unscrupulous lobbyists than the repre- 
 sentatives of local interests, appealing to an indiffer- 
 ent legislature for privileges that ought to be 
 entirely within the discretion of the people immedi- 
 ately concerned, and there is no more corrupting 
 influence in the legislature than the habit of acting- 
 
TOWN AND COUNTY GOVERNMENT. 107 
 
 on matters upon which there can be no effective 
 public opinion among the constituents of the mem- 
 bers to enforce honest decisions. Some of the most 
 venal members of the New York legislature are 
 rural representatives who purchase, by absolute 
 fidelity to the interests of their own constituents, an 
 unlimited license to " strike " the corporations and 
 tax-payers of the great cities. It is never safe to 
 entrust a law-maker with jurisdiction over questions 
 in which the public opinion to which he is immedi- 
 ately responsible is not directly interested. 
 
 There is little new to be said about the govern- 
 ment of the rural town. Its main lines have been 
 admirably worked out in the New England town 
 meeting. It would probably be found best, how- 
 ever, to assimilate the town meeting in its methods 
 of action to the precinct assemblies already pro- 
 posed for cities. Instead of coming together once a 
 year for an all day's session, in which thirty or 
 forty subjects are to be disposed of, and a dozen 
 officers elected, the citizens could act more effec- 
 tively by meeting once a month or oftener in the 
 evening, and dealing with a few subjects at a time. 
 The primary assembly, or, as it would probably 
 continue to be called, the town meeting, should 
 exercise the legislative and control the executive 
 management of the town government. In addition 
 it should perform the other functions already 
 described as belonging to the precinct assemblies in 
 the cities. It should elect a member of the county 
 board of supervisors, take its part in the election of 
 members of the State legislature and of Congress, 
 
108 SUGGESTIONS ON GOVKRNMKNT. 
 
 and serve as the organ for the expression of the 
 popular will through the initiative and referendum. 
 The executive officers of the town would be in effect 
 a committee of the town meeting, just as the British 
 Cabinet is a committee of the House of Commons. 
 Each town should determine for itself what officers 
 it needed, and the scope of their duties. It would 
 probably be found best in all cases, however, to 
 have one chief executive officer or town president, 
 who would appoint and remove all the minor offi- 
 cials. There should also be aboard of trustees lo 
 attend to all legislative business that did not require 
 the action of the people. In towns large enough to 
 be divided into three or more precincts, one trustee 
 should represent each precinct; in those in which 
 all the voters met in a common assembly all the 
 trustees should be elected at large. In towns of the 
 former class the trustees should have the pov 
 appointing and removing the chief executive ; in 
 those of the latter class this power should be lodged 
 in the town meeting. Of course in any case every 
 trustee would hold his office at the pleasure of the 
 popular assembly that had elected him. 
 
 In the government of the small towns the people 
 could conveniently perform a much larger share of 
 public duties than in that of great cities. Every 
 considerable expenditure of money, all street 
 improvements, all questions of license and local 
 taxation, and all important contracts, could properly 
 be left to their determination. In towns divided 
 into several precincts, it would probably be found of 
 advantage to give each precinct assembly the con- 
 
TOWN AND COUNTY GOVERNMENT. 109 
 
 trol of such of its own street and road improvements 
 as were to be paid for by special assessments on the 
 adjoining property. This would bring such work 
 nearer to the persons who had to pay for it, and it 
 would develop a spirit of emulation among the 
 different sections of the town which would tend to 
 bring them all up to the level of the most pro- 
 gressive. 
 
 The government of counties is already developing 
 over a great part of the United States along the 
 right lines. We already have the board of super- 
 visors, which needs only to be suitably combined 
 with the town meeting to be a satisfactory organ of 
 legislation. In California the initiative for county 
 ordinances has just been introduced, and fifty per 
 cent of the voters have now the power to compel 
 the submission to the people of any measure they 
 desire to have adopted. The principal defects of 
 the best forms of county organization now existing 
 are that the responsibility of the supervisors to 
 their constituents is not fully secured, and that 
 there is no unity in the executive government. In 
 some States the supervisors are elected by artificial 
 districts so large as not to permit any common feel- 
 ing or interests among their inhabitants. In Califor- 
 nia, for instance, counties larger than any New 
 England State, except Maine, are governed by five 
 supervisors, each of whom represents an unorganized 
 district so extensive that the people of one end of 
 it are strangers to those of the other. As the elec- 
 tions are for four years, there is hardly more 
 effective responsibility than in the United States 
 
110 SUGGESTIONS ON GOVERNMENT. 
 
 Senate. In New York, where each town has its 
 supervisor and the elections are annual, the situa- 
 tion is much better in this respect, but it is still not 
 all that could be desired. Every member of the 
 board should represent a body of men capable of 
 getting together in a common assembly and dis- 
 cussing his character and conduct, and he should 
 hold his place as long as he satisfied this assembly, 
 and no longer. If every precinct had a supervisor, 
 and the precincts averaged five hundred voters 
 each, a county of twenty-five thousand inhabitants, 
 or five thousand voters, would have ten supervisors. 
 In very populous counties, composed of great cities 
 with fringes of suburban towns, such as Cook 
 County, Illinois ; Kings County, New York ; Alle- 
 gheny County, Pennsylvania, and Hamilton County, 
 Ohio, the members of the city council could also 
 act as supervisors, the representatives of the outside 
 precincts meeting with them at fixed times for the 
 transaction of county business. 
 
 The various county executive officers are now 
 usually elected independently. The same reasons 
 that call for unity and unevadible responsibility in 
 other spheres of government call for them equally 
 here. 
 
 It would be as easy to have a single executive 
 head for a county as for a city or State, and this 
 head, himself responsible to the supervisors, and 
 through them to the people, should have the 
 appointment and removal of all his subordinates. 
 Two officials, however, should be free from his 
 control. One is the auditor, who should be eleeted 
 
TOWN AND COUNTY GOVERNMENT. Ill 
 
 by the whole people, as in cities, and for similar 
 reasons. The atmosphere of county seats breeds 
 " court-house rings" with peculiar facility, and the 
 people should have the assistance of an entirely 
 independent expert in checking the financial opera- 
 tions of their servants. The other is the sheriff, 
 who should not be elected either by the people of 
 the county or by the supervisors, but, as all our 
 recent experience shows, should be appointed by, 
 and responsible to, the governor of the State. It is 
 the duty of the sheriff to preserve the peace and 
 execute the laws without fear or favor. It is the 
 duty of a roadmaster to make such road improve- 
 ments and repairs as the people of the vicinage 
 desire, but it is not the duty of a sheriff to give so 
 much protection to life and property as may suit his 
 neighbors. He must enforce the laws absolutely to 
 their fullest extent. Though all the voters in the 
 county may join a lynching party, or a whitecap 
 raid, or a mob of riotous strikers, he must not 
 hesitate to preserve the peace, and if necessary to 
 summon the military power of the State to his aid. 
 To ask this of him when he is dependent for office 
 upon the men his duty requires him to suppress is 
 to put too great a strain on ordinary human nature. 
 Some men bear the test nobly, but from Fire Island 
 to Sacramento the country is full of warnings that it 
 is unsafe to leave the enforcement of the laws to 
 local sentiment. The sheriff should be a State 
 officer acting within the county, not a county officer 
 executing the laws of the State. If that were the 
 rule, disorder would generally be suppressed before 
 
112 SUGGESTIONS ON GOVERNMENT. 
 
 it had time to grow into insurrection. With this 
 one exception there should be as little interference 
 as possible with local self-government. Within its 
 own sphere the county should be a democratic 
 republic, just as the town should be in its smaller 
 sphere and the State and nation in their larger 
 ones. 
 
CHAPTER IX. 
 
 THE STATE LEGISLATURE. 
 
 In the light of the experience of the past thirty 
 years it is amusing to read of the lofty expectations 
 cherished by the founders of our political system 
 with regard to the legislatures of the States. They 
 were to be composed of the wisest and purest men 
 of each commonwealth, selected by their neighbors 
 for conspicuous merit, and standing as vigilant 
 sentinels between the people and the encroaching 
 power of the federal government. In short, they 
 were to be and to do everything which the modern 
 legislature most palpably is not and does not. 
 
 The failure of our current political methods is 
 more marked in the State legislatures than any- 
 where else except in the government of cities. 
 All of these bodies are ignorant and inefficient 
 most of them are corrupt. They are usually 
 controlled by corporations and bosses. They are so 
 densely stupid that if properly managed they can 
 even be cajoled into passing good laws. Last year 
 the legislature of California passed one of the best 
 and most stringent corrupt practices acts in the 
 world without knowing what it was doing. The 
 bill was quietly prepared on the outside and put 
 through as a harmless concession to a few innocent 
 reformers who might as well be humored in their 
 
 8 (113) 
 
114 SUGGESTIONS ON GOVERNMENT. 
 
 unpractical theories. The dismay of the politicians 
 when they found out what they had really done was 
 pathetic. 
 
 Legislatures are corrupt and ignorant because, 
 under our present methods, able and honest men 
 can not usually get into them without sacrifices fur 
 which the honor of membership is not sufficient 
 reward ; because men of a low order of intelligence 
 and morality can easily reach them by methods well 
 within their capacity and congenial to their disjx >si- 
 tion, and because when a man is once in, there are 
 the strongest temptations to corruption, and hardly 
 any pressure, outside of his own conscience, in the 
 direction of honesty. In most of the States the leg- 
 islative sessions are biennial. A member is elected 
 in November, goes to the State capital in January, 
 and sits for sixty or ninety days. His constituents 
 have no hold on him, and, unless he represents a 
 country district, most of them do not know his name. 
 He is one of a crowd, and the session expires before 
 he has produced a clear impression on the public 
 mind. If he takes the precaution to avoid mixing 
 himself in some conspicuous scandal, he can "trans- 
 act business " every day with corporations and syn- 
 dicates without getting himself especially talked 
 about. After the close of the session he has over a 
 year and a half of retirement before the next elec- 
 tion, and long before that time expires nineteen 
 voters out of twenty have forgotten his existence/ 
 
 Moreover, the organization of the Legislature fur- 
 nishes the most perfect possible shield for miscon- 
 duct. All laws must have the concurrence of two 
 
THE STATE LEGISLATURE. 115 
 
 houses and the governor. In the case of good bills, 
 nothing is easier than to smother them in committee 
 in one house or the other, or to let them fall between 
 the houses through disagreements on points of 
 detail, or to crowd them out by other business, or to 
 put them in such shape as to invite a veto. No indi- 
 vidual member can be held responsible for the fail- 
 ure to accomplish results in- such circumstances. 
 When bad bills are to be passed, the evasion of 
 responsibility is equally easy. In the tumult of the 
 closing hours of a session almost anything can be 
 slipped through without fixing the blame definitely 
 upon the average member. At the worst, the 
 responsibility for the enactment of such measures 
 is divided among the members of both houses and 
 the governor, and the share that belongs to any 
 ordinary private in the legislative ranks is too small 
 to be burdensome. 
 
 These evils can be corrected by precisely the same 
 methods that have been suggested for the correc- 
 tion of corresponding ones in the cities. The Legis- 
 lature, like the city council, must be brought into 
 immediate and permanent contact with the individ- 
 ual voter, who must retain an unbroken control over 
 its action. There must be no division of responsi- 
 bility between two houses and an executive with the 
 veto power. The arguments for a second chamber 
 lose their force in any case when the people retain 
 the right of reviewing legislation through the refer- 
 endum, but such a chamber is especially undesirable 
 when it takes the form of a State Senate. Bad as 
 the average legislature is, the Senate is almost inva- 
 
116 SUGGESTIONS ON GOVERNMENT. 
 
 riably its worst element. It is a pestiferous little 
 cabal, always open to corrupt influences, always 
 ready to strangle good bills and smooth the way for 
 bad ones. 
 
 The bicameral system was defended by Madison 
 in the Federalist on six grounds : 
 
 1'irst. That a Senate " doubles the security of the 
 people by requiring the concurrence of two distinct 
 bodies in schemes of usurpation or perfidy, where 
 the ambition or corruption of one would otherwise 
 be sufficient." It is obvious that this argument 
 has weight only as against a single assembly of 
 unchecked powers. The function here assigned to 
 tlie Senate can be much better, more effectively, and 
 more certainly performed by the people through the- 
 re fere ml urn. 
 
 Second. That "the necessity of a Senate is not 
 less indicated by the propensity of all single and 
 numerous assemblies to yield to the impulse of sud- 
 den and violent passions, and to be seduced by 
 factious leaders into intemperate and pernicious 
 resolutions." Clearly the right of review at the 
 polls would be equally effective here. I may men- 
 tion a curious incident illustrating the comparative 
 value of the two proposed checks on "sudden and 
 violent passions." During the last session of the 
 legislature of California a Sacramento newspaper 
 criticised the conduct of the members in private 
 life. As soon as the infuriated legislators came 
 together after reading the articles the Assembly 
 proposed a constitutional amendment removing the 
 seat of government from Sacramento to San Jose. 
 
THE STATE LEGISLATURE. 117 
 
 The Senate, which exists for the purpose of moderat- 
 ing "sudden and violent passions " and preventing 
 the passage of " intemperate and pernicious resolu- 
 tions," promptly concurred in the resolution by 
 more than the requisite two-thirds vote, and so far 
 as the legislature could accomplish it, a public 
 investment of five million dollars and the estab- 
 lished business interests of an important city were 
 sacrificed for a newspaper squib. The Supreme 
 Court subsequently decided that the resolution had 
 not been passed in the proper form, and was there- 
 fore void, but if it had been allowed to reach the 
 polls the people would have corrected the reckless- 
 ness of their representatives. 
 
 Tliird. That a single popular assembly would 
 have " a want of due acquaintance with the objects 
 and principles of legislation. It is not possible that 
 an assembly of men, called for the most part from 
 pursuits of a private nature, continued in appoint- 
 ment for a short time, and led by no permanent 
 motive to devote the intervals of public occupation 
 to a study of the laws, the affairs, and the compre- 
 hensive interest of the country, should, if left 
 wholly to themselves, escape a variety of important 
 errors in the exercise of their legislative trust." 
 This point would be fully covered by the election 
 of members for indefinite terms. It is not met at 
 all by the current methods of electing State Senators, 
 few of whom have over six months of actual serv- 
 ice in their entire time of office. 
 
 Fourth. That " the mutability in the public 
 councils arising from a rapid succession of new 
 
118 SUGGESTIONS ON GOVERNMENT. 
 
 members, however qualified they may be, points out, 
 in the strongest manner, the necessity of some 
 stable institution in the government." This assumes, 
 of course, the complete renewal of the assembly at 
 short intervals. On the plan of gradual renewal 
 proposed, the assembly would be much more stable 
 in its composition than any senate is now. 
 
 /v/?//. That " without a select and stable member 
 of the government the esteem of foreign powers 
 will not only be forfeited by an unenlightened and 
 variable policy, proceeding from the causes already 
 mentioned, but the national councils will not p< 
 that sensibility to the opinion of the world which is 
 perhaps not less necessary in order to merit than it 
 is to obtain its respect and confidence." These con- 
 siderations, of course, apply chiefly to national 
 affairs, but in any case they are fully met by the 
 proposed method of election and tenure of office. 
 
 Sixth. That without a senate there would be a 
 " want, in some important cases, of a due respon- 
 sibility in the government to the people, arising 
 from that frequency of elections which in other 
 cases produces this responsibility." Clearly this 
 objection is totally irrelevant to an assembly whose 
 members serve during good behavior. 
 
 The principles already developed in treating of 
 city councils apply equally well to the composition 
 of State legislatures. If we assume the State to 
 be divided into precincts averaging five hundred 
 voters each, any State containing less than two 
 hundred and fifty thousand voters, or say one mill- 
 ion two hundred and fifty thousand inhabitants, 
 
THE STATE LEGISLATURE. 119 
 
 could conveniently allow each precinct to elect a 
 member of the single representative assembly which 
 would constitute its legislature. Nearly half of the 
 States of the Union would come in this class at 
 present, and their legislatures would range in size 
 from about twenty-five to five hundred members 
 each. The latter number may be taken as the 
 highest effective working limit, and it would prob- 
 ably be found best in practice to set the limit lower. 
 In the more populous States, two, three, four, or 
 more adjacent precincts would elect a joint repre- 
 sentative. The same rule would be followed in the 
 smaller States in the case of country precincts con- 
 taining much less than the average number of 
 inhabitants. A representative, once elected, would 
 hold his place until recalled by his constituents. 
 He could be called upon at any time to give an 
 account of his conduct before the voters of his 
 district in their primary assemblies. If he repre- 
 sented a single precinct, the assembly of that pre- 
 cinct would have the right to revoke his credentials 
 whenever he ceased to give satisfaction ; if he rep- 
 resented several precincts, a motion for his recall 
 could be made in any assembly of the district, and 
 if it prevailed there, would have to be voted upon 
 by all the other assemblies of the district. The 
 acts of the Legislature would not be subject to exec- 
 utive veto, but any measure on which the governor, 
 or one-fifth of the members of the Legislature, or 
 one-tenth of the precinct assemblies of the State, 
 demanded the referendum would have to be sub- 
 mitted to popular vote before becoming a law. 
 
120 SUGGESTIONS ON GOVERNMENT. 
 
 The Legislature would elect the governor, and, by 
 a two-thirds vote, after two months' notice, could 
 remove him. The reasons for granting this power, 
 and the safeguards against its abuse, would be the 
 same as in the case of the appointment and removal 
 of mayors by the city councils, and of executive 
 heads in general by the corresponding legislative 
 bodies. The heads of the principal departments of 
 the State government would have seats in the Leg- 
 islature, without votes, and would be consulting 
 members of the committees dealing with the sub- 
 jects under their charge. 
 
 It is certain that under this system the average 
 member of the State assembly would hold his place 
 for many years. He would be able to acquire a 
 thorough familiarity with the workings of the State 
 government, as well as with the practical meth- 
 legislation. Not being under obligation to any boss 
 for his seat, nobody could sell his vote except him- 
 self. But if he sold his vote the fact would imme- 
 diately become known to his constituents, to whom 
 he would not be a casual stranger, but an intimate 
 acquaintance. He would be in danger of recall, and 
 recall would mean, not the loss of the fag-end of a 
 cheap sixty-day job, but the ruin of the promise of 
 a long and honorable career. Besides, a bribed vote 
 would be not only dangerous, but useless, for a 
 reasonable suspicion of such a thing would lead 
 at once to a demand for the referendum on the 
 measure in whose interest it appeared to be east. 
 In such circumstances nobody would be offering 
 money for votes, and the members would be sub- 
 
THE STATE LEGISLATURE. 121 
 
 ject to no temptation. Thus the Legislature would 
 improve, both in ability and in character. 
 
 The length of the sessions would be a question to 
 be determined by the needs of each State. Whether 
 short or long, they should be held at least once a 
 year, and the Legislature should be considered a 
 continuous body, in which measures once introduced 
 would retain their standing until finally disposed of. 
 Biennial sessions are popular now, simply because 
 legislatures can not be trusted, and their meetings 
 are considered public calamities that should be 
 incurred as seldom as possible. The business of the 
 State often suffers by a two years' delay, and if the 
 law-making bodies were able and honest there would 
 be no more reason for limiting their sessions to alter- 
 nate years than for doing the same thing in the case 
 of a board of directors of a railroad. The conditions 
 of modern life change so rapidly that when a 
 growing State is bound in legislative ligaments that 
 can not be relaxed except at brief intervals two 
 years apart, there is certain to be distress. 
 
 That legislative business should be continuous 
 rather than spasmodic is a proposition that needs 
 little argument. More time and energy are wasted 
 in State legislatures, and in Congress, on measures 
 which get partly through, and fail for want of time, 
 than are devoted to those which finally become laws. 
 There are bills in Congress which have appeared at 
 regular intervals for twenty, thirty, or fifty years, 
 have advanced as far as favorable committee reports, 
 or even passage by one house or the other, and then 
 have fallen in the ruck of crowded-out measures at 
 
122 SUGGESTIONS ON GOVERNMENT. 
 
 the end of the short session, to be revived in the 
 next Congress, and laboriously helped through the 
 same preliminary work as before, with the same 
 futility. When a legislature meets once in two 
 years, for a ninety-day session, organizes itself as a 
 new body, receives every suggested project of law 
 in the form of an entirely new bill, and appoints its 
 committees to investigate all these measures from 
 the beginning as if they had never been heard of 
 before, it has not much time left for the actual con- 
 sideration of many bills on their merits. If it were 
 a permanent body, perpetually changing its indi- 
 vidual membership, but never losing its own corpo- 
 rate identity ; if its officers and committees retained 
 their places until discharged, and if a measure once 
 placed on its calendar were certain of being event- 
 ually reached, considered, and disposed of, an enor- 
 mous amount of wasted time would be saved. 
 heartsick advocates of mildewed legislation would 
 be relieved of suspense, the frenzied orgy of law- 
 making by which lobbyists profit at the end of every 
 session would be dispensed with, and new needs 
 would no longer be obstructed by the debris of past 
 failures. 
 
 A legislature so constituted would be trusted by 
 the people, and it would deserve the trust. If, by any 
 chance, the public confidence were ever betrayed. 
 the people would always have a remedy within easy 
 reach. 
 
CHAPTER X. 
 
 THE STATE EXECUTIVE. 
 
 The American lack of system and responsibility 
 in government is carried to the last extreme in the 
 organization of the executive authority of the 
 States. Some States are administered in a less 
 chaotic manner than others, but as a rule the 
 governing power is cut up into so many discon- 
 nected and unrelated pieces that it is impossible 
 either to preserve harmony among them or to 
 maintain any approach to an effective responsibility 
 for misconduct. The governor is supposed to be 
 the supreme executive head, but his nominal sub- 
 ordinates, in most cases, are absolutely independent 
 of him. They hold their places by the same tenure 
 by which he holds his own ; they are elected at the 
 same time, serve for the same terms, and are subject 
 to removal by the same process of impeachment. 
 Sometimes the unity of the administration is still 
 further broken up, and responsibility still further 
 obscured, by the ingenious device of making the 
 terms overlap. The governor and some of his 
 assistants are elected at one time, and the other 
 heads of departments a year or two years later. In 
 this way the last shred of public control over the 
 government is eliminated. When the governor 
 and all the State officers are elected at once, and all 
 
 (123) 
 
124 SUGGESTIONS ON GOVERNMENT. 
 
 happen to belong to the same party, it is possible to 
 exercise a sort of clumsy justice by turning out the 
 party if anything goes wrong in any department. 
 But if only half the officers are elected at once, and 
 tilings go wrong during the next two years, and 
 then the other party gets the remainder of the 
 officials, and they misbehave, too, the hold-overs < >f 
 the first party continuing their misconduct, how 
 is justice to be wreaked the next time ? 
 
 The administration of national affairs, imperfect 
 as it is, is undeniably better than that of the average 
 State government, and this superiority can hardly 
 come from anything else than the concentration of 
 executive power in the hands of the President. If 
 the governor of a State were given the right to 
 appoint and remove his subordinates there would 
 be a great gain in administrative efficiency. But 
 there would still be something lacking. The gov- 
 ernor would regulate the minor officials, but who 
 would regulate the governor? His responsibility, 
 under the present system, would be limited to the 
 possibility of impeachment for crime, and of c 
 for reelection at the end of his term. If he kept 
 clear of criminal offenses and did not expect to be 
 reflected, there would be no way of reaching him. 
 Incompetency, reckless mismanagement, inexcus- 
 able complaisance toward unfaithful subordinates, 
 or even corruption in many of its most dangerous 
 forms, might endanger the public safety without 
 subjecting the governor to impeachment, or hasten- 
 ing the slow progress of his official term. To be 
 sure, his party could be punished for his misdeeds 
 
THE STATE EXECUTIVE. 125 
 
 at the next election, but this form of postponed 
 vicarious atonement would neither afford relief 
 from present evils nor insure against their repeti- 
 tion under the new administration. 
 
 What is needed is just such a continuous responsi- 
 bility on the part of the governor himself to some 
 superior power as he should have the right to 
 enforce on his subordinates. An unfaithful clerk 
 can be disciplined, not through a party defeat at 
 the end of four years, but personally and at once, 
 by an immediate dismissal. An unfaithful head of 
 department or governor should be brought to account 
 in the same way. The proper authority to remove 
 the head of department would be the governor. The 
 proper authority to remove the governor would be 
 the people. As, under the system of continuous leg- 
 islative responsibility described in the last chapter, 
 the people would at all times be faithfully repre- 
 sented in the Legislature, which they are not now, 
 they could safely allow the Legislature to act for 
 them in maintaining their control over the executive. 
 The possibility of the abuse of this trust by the rep- 
 resentatives could be prevented by requiring two 
 months' notice of the removal of the governor, as in 
 the case of the mayors of cities. 
 
 There is no reason for any material structural dif- 
 ference between the government of a State and that 
 of a city on the one hand, or that of the nation on 
 the other. At the last census there were twenty- 
 eight States with smaller populations than the city 
 of New York, and four with more inhabitants each 
 than the Union had at the time of the Revolu- 
 
126 SUGGESTIONS ON GOVERNMENT. 
 
 tion. Several European kingdoms are less impor- 
 tant in every way than the principal American 
 vStatcs. The State governments have to deal with 
 education, police, and justice, as those of cities do, 
 and they have their armies, lands, and internal 
 improvements, and work in aid of labor, agricul- 
 ture, and mining, like the government of the 
 nation. There are State and national bureaus of 
 labor, State and national railroad commissioners, 
 State and national weather bureaus, and State and 
 national supervision of banks. The form of admin- 
 istration that produces the best results in one sphere 
 ought to produce them in the other. 
 
 Perhaps the most glaring example of the ineffi- 
 ciency of the present methods of government in the 
 States is to be found in the attempts to regulate 
 railroads. The favorite machinery for this purpose 
 is a railroad commission; in some cases having 
 merely advisory powers, and in others invested 
 with despotic authority. Without such authority 
 it is impossible to com pel obedience to the decisions 
 of the commission, but when it is given it is found 
 almost impossible to prevent its abuse. In California 
 the commissioners are elected for four years, and 
 although the system was created by the new consti- 
 tution of 1879, f r the express purpose of restraining 
 the exactions of a single corporation, the people have 
 never succeeded in all the fifteen years that have 
 since elapsed in electing a commission which that 
 corporation has been unable to control. Rampant 
 anti-monopoly demagogues; substantial, conserva- 
 tive citizens, and machine politicians have all been 
 
THE STATE EXECUTIVE. 127 
 
 tried, and all have succumbed without a struggle to 
 the arguments of the railroad lobby. The railroad 
 commission system has been wrecked by the one per- 
 vading political vice of irresponsibility. If, instead of 
 a headless board, intrenched in office for four years, 
 there had been one expert commissioner, appointed 
 by the governor, holding his place during good 
 behavior, and subject to questions in a legislature, 
 itself in immediate touch with the people, one of 
 three things would have happened. The commis- 
 sioner would have done what the people wanted 
 done, or he would have convinced them that they 
 were wrong and he was right, or there would have 
 been a new commissioner. 
 
 The pest of executive boards, from which the 
 national government is comparatively free, but 
 which plays such an important part in the demor- 
 alization of politics in the cities, is peculiarly preva- 
 lent in the States. California, to recur again to the 
 examples with which I am most familiar, has com- 
 missions to look after railroads, State prisons, asy- 
 lums, reformatories, harbors at three different ports, 
 pilotage at three ports, the Yosemite Valley, the 
 State Capitol, fish, health, dentistry, pharmacy, vet- 
 erinary, medicine, State burial grounds, horticulture, 
 viticulture, agriculture, silk culture, mining, educa- 
 tion, arbitration, banks, building and loan associa- 
 tions, claims, and equalization of taxes. 
 
 The result of all this subdivision of powers is 
 extravagance and general mismanagement. The 
 superfluity of boards and commissions to do the 
 work that ought to be done by single officers, inten- 
 
128 SUGGESTIONS ON GOVERNMENT. 
 
 sifies the obscurity, which is the worst of the dete- 
 riorating influences to which our present State 
 administrations are subject. At best our State offi- 
 cials are too much in the dark. They are farther 
 from the people than almost any other class of pub- 
 lic servants. Cabinet officers at Washington work in 
 a comparative blaze of light, and even in the govern- 
 ment of cities the proceedings of unfaithful struct 
 superintendents and police commissioners attract 
 ct >nsiderable attention. But the State capital, except 
 when the Legislature is in session, is under the obser- 
 vation neither of the individual voter nor of the 
 press. It is a retired nook, in which officials who 
 avoid glaring scandals may do or neglect almost 
 anything without bringing themselves into notice. 
 If at every session of the Legislature any member 
 could demand a public explanation from any head 
 of a vState department of anything suspicious in 
 the conduct of his office; if an unsatisfactory expla- 
 nation would throw the burden of approving or 
 punishing mismanagement upon the governor, who 
 would have the power of removal and would 
 be himself responsible to the Legislature for the 
 way in which he exercised it or failed to exercise it, 
 and if the members of the Legislature themselves 
 held their places at the pleasure of their constitu- 
 ents, there would be a substantial increase in the 
 inducements to a faithful performance of duty. 
 There would be light then where there is darkness 
 now, and it is reasonable to suppose that the same 
 law of human nature which now breeds deeds 
 appropriate to darkness would then engender those 
 that could thrive in the light. 
 
CHAPTER XL 
 
 THE NATIONAL LEGISLATURE. 
 
 Congress is at once the best and the worst of our 
 various legislative bodies. It contains the highest 
 average of ability ; it is much above the ordinary 
 level in honesty ; it has members representing 
 almost all shades of opinion, and it exhibits con- 
 siderable independence and sometimes a fair degree 
 of capacity for constructive statesmanship. But 
 these merits are balanced by grave faults. Con- 
 gress, like almost all other national parliaments, is 
 clogged with business to such an extent that it is 
 ceasing to be either a deliberative or a working body. 
 At both ends of the Capitol true debate is almost 
 extinct crushed out in the House by the pressure 
 of the legislative machinery, and drowned out in 
 the Senate by floods of inconsequential garrulity. 
 Of the thousands of bills introduced at every ses- 
 sion, the vast majority relate to matters of no public 
 importance. Most of them deal with small private 
 claims, which should never come before Congress 
 at all in separate form, but should be dealt with by 
 a special tribunal; those which passed the scrutiny 
 of the court being subsequently approved by Cor:- 
 gress in a general bill, and the rest being dropped. 
 Time is wasted in every conceivable way, and the 
 result is that the great measures of public policy, 
 
 9 (129) 
 
130 SUGGESTIONS ON GOVERNMENT. 
 
 which should absorb the attention of the national 
 legislative body, are hurriedly considered in the 
 intervals between trivialities. 
 
 In dealing with possible improvements in Con- 
 gressional organization and methods, I shall treat 
 the subject from two standpoints first that of the 
 government as at present organized; and second, 
 that of the government as it would be if it were 
 symmetrically reorganized on the lines laid down in 
 previous chapters. Such a reorganization would be 
 the work of a long time, and meanwhile the need 
 for immediate reform is pressing. I shall first con- 
 sider, therefore, the changes that may be readily 
 made in the composition and procedure of Congress 
 as it now exists, without the need of constitutional 
 amendments or any radical transformation in the 
 habits of the people. 
 
 The great evil that afflicts Congress, in common 
 with almost all other national parliaments, is that it is 
 an amateur body set to do professional work. There 
 is no work more complicated or more exacting than 
 that of legislation, and yet it is taken up confidently 
 by lawyers and merchants who never gave it a 
 thought before their election, who treat it as a minor 
 avocation during their terms, and who drop it as 
 soon as they go home. The first requisite to raising 
 the character of Congressional work is to make the 
 members take it seriously. To do this effectively 
 the term of office ought to be lengthened, or, better 
 still, made indefinite, but this would requi 
 stitutional amendment, and much can be done with- 
 out it. As the term is so short, it is all the more 
 
THE NATIONAL LEGISLATURE. 131 
 
 important that every moment of it should be utilized. 
 At present a new House comes into existence on the 
 fourth of March. Unless called in extra session it 
 meets for the first time in the following December, 
 nine months later. Its organization is not com- 
 pleted before the Christmas holidays, when it goes 
 home for two weeks. Sometimes it spends an addi- 
 tional month or two in discussing its rules. It takes 
 the committees until about the middle of April to 
 mature their projects of legislation, and in the inter- 
 val the House kills time. Unless a tariff bill or some 
 other important political measure demands attention, 
 the general appropriation bills absorb most of the 
 time until the end of June and often longer, leaving 
 new legislation to slip into such crannies as it may 
 find. Congress always tries to adjourn as early as 
 July, if possible, and business other than political is 
 ruthlessly sacrificed in the effort. In December it 
 comes together again. Little is usually accom- 
 plished before the Christmas holidays, and the 
 remaining two months of the term are monopolized 
 by the appropriation bills and such fag-ends of 
 legislation as can be squeezed in between conference 
 reports. 
 
 It is obvious that little could be accomplished 
 under such conditions, even if Congressional pro- 
 cedure were otherwise well adapted to facilitate the 
 transaction of important business, which it decidedly 
 is not. If the Secretary of the Treasury, appointed 
 in March, first visited his office in the following 
 December, got down to work in April, knocked off 
 in July, began again in January, and retired in 
 
132 SUGGESTIONS ON GOVERNMENT. 
 
 March in favor of a successor who would not think 
 it necessary to look at the office until the next 
 December, the financial interests of the Government 
 would be likely to suffer. The interests in charge 
 of Congress are certainly no less important than 
 those in charge of the Secretary of the Treasury. 
 The only difference is that the secretary's duties 
 are taken seriously and those of Congress are not. 
 
 Every Senator and Representative should consider 
 himself in the public service, precisely as the Presi- 
 dent is, or a member of the Cabinet, or a clerk in a 
 department. Congress should sit on every working 
 day in the year, except during such short vacations 
 as would be considered reasonable for a business 
 man to allow to his employes. Meeting on the 
 fourth of March, the House should complete its 
 organization during that month, and it would then 
 have twenty-three months of its term remaining f<>r 
 the orderly transaction of business. By diligent 
 application it would be possible to pass the appro- 
 priation bills by the end of June, but it would be- 
 better to make the fiscal year coincide with tru 
 endar year. This would give ample time for the 
 consideration of the appropriations, and would av< >id 
 statistical confusion. 
 
 This simple expedient would double the working 
 time of Congress. To increase it still further, the 
 number of members of the House should be red: 
 Almost all national parliaments are too large for the 
 effective management of so much business as they 
 are called upon to handle, and almost all, accordingly, 
 find themselves gorged by their own numbers. Un- 
 
THE NATIONAL LEGISLATURE. 133 
 
 der the plan of organization heretofore advocated in 
 this book, some State and municipal assemblies would 
 be even larger than the present national House, but 
 this disadvantage would be more than offset by the 
 benefits derived from keeping them in close touch 
 with the people. Beside, their business would be 
 simple and easily managed compared with that dealt 
 with by Congress. As long as we retain the present 
 irresponsible organization of the national legislature, 
 there is no reason why we should not have the 
 advantage to be gained from manageable numbers. 
 A House of one hundred and fifty members would 
 be amply large. On the basis of the last census 
 this would give about fifteen representatives to 
 New York, nine to Illinois, three to California, 
 two to Connecticut, and one each to Colorado, 
 Delaware, Florida, Idaho, Montana, Nevada, New 
 Hampshire, North Dakota, Oregon, Rhode Island, 
 South Dakota, Vermont, Washington, and Wyo- 
 ming. Nobody familiar with Congressional meth- 
 ods would maintain that such an arrangement 
 would not amply represent local interests. Senators 
 arc now as intently concerned for the advancement 
 of legislation demanded by localities in their respect- 
 ive vStates as the representatives from the districts 
 immediately affected, and, as a rule, the entire dele- 
 gation from a State stands together in such matters. 
 It would continue to do so if it were smaller, and, of 
 course, if all the delegations were proportionately 
 reduced in numbers their relative influence would be 
 unchanged. But it would be a good deal better 
 for a State to have one strong man in a House of 
 
134 SUGGESTIONS ON GOVERNMENT. 
 
 one hundred and fifty members than two weak ones 
 in a House of three hundred and fifty-six. 
 
 There can be no doubt of the fact that the reduc- 
 tion in numbers would tend to raise the average 
 ability of the House. In the first place, ability is not 
 a very abundant thing, and it would be easier to 
 find one hundred and fifty able men than three hun- 
 dred and fifty-six. In the next place, it is always 
 harder for a small man to make an impression 
 on a large constituency than on a small one. The 
 Senate, despite its pernicious method of election, 
 reaches a distinctly higher average level of ability 
 than the House. The President of the United States 
 is usually a man of larger caliber than the governor 
 of a State, and the governor of a State than the 
 mayor of a city. This increase in the average 
 ability of the House would be immensely promoted 
 if the members were elected by the method of pro- 
 portional representation, as they could easily be 
 whenever a State had an odd number of represent- 
 atives exceeding one. In that case the strongest 
 men of each party in each State would find their 
 way to Congress by a process of natural selection as 
 unerring as that which now keeps them at home. 
 Under the present system a Representative who fails 
 to retain the favor of the politicians of his party in 
 a single district is unable to gain a renotnination, 
 and must retire at the end of his term. This rule 
 tends to the progressive elimination of all the men 
 of original minds and independent characters. The 
 Representative is equally bound to lose his seat, 
 regardless of his personal merits, in the event of a 
 
THE NATIONAL LEGISLATURE. 135 
 
 change in the political sentiments of a sufficient 
 number of his constituents to hold the balance of 
 power, The change may not affect more than a hun- 
 dred voters out of fifty thousand, but if it is sufficient 
 to shift the control of the district it drives an able 
 man from public life. Under the proportional plan 
 such a man would have no trouble in finding a suf- 
 ficient number of admirers in a State to constitute 
 an electoral quota, and he would be sure of his seat 
 as long as he deserved it. 
 
 The importance of a reduction in the numbers of 
 the House, from a business point of view, may be 
 illustrated by a simple arithmetical computation. 
 Congress is in session, on an average, for about ten 
 months of its term. If all this time were devoted 
 to business, for six days a week and five hours a day, 
 with not an hour wasted in filibustering, prayers, roll- 
 calls, holidays, eulogies on deceased members, or other 
 traditional devices for avoiding work, this would 
 allow three hours and thirty-six minutes to each Rep- 
 resentative and Delegate during the whole of his Con- 
 gressional career. As less than half of the total 
 working time here assumed is really available, and 
 as some of the older members occupy days instead 
 of hours, the amount of time actually allowed to the 
 average member during his two years' term would 
 be liberally estimated at an hour. The value of 
 this allotment is almost destroyed by the fact that 
 when a member who has not acquired a reputation 
 succeeds in getting the floor, only the persons in his 
 immediate vicinity can hear what he says. 
 
 In the Fifty-second Congress 10,623 bills and 214 
 
136 SUGGESTIONS ON GOVERNMENT. 
 
 joint resolutions were introduced in the House, and 
 3,895 bills and 161 joint resolutions in the Senate. 
 If there had been seventy-eight thousand working 
 minutes available, which was far from being the case, 
 the House would have had seven minutes and twelve 
 seconds for the consideration of each of its own proj- 
 ects, taking no account of those that came over from 
 the Senate. As there were single measures whose 
 consideration took over a week apiece, it is clear that 
 there could not have been much time for the others. 
 Of course, the vast majority of the bills introduced 
 were never considered at all, and were never meant 
 to be considered. They were printed, sent to inter- 
 ested constituents as proof that their Representatives 
 were working for the good of their districts, and were 
 safely put to sleep in committees. They represented 
 part of the enormous glut of business caused by 
 sending to Washington a mob of small men with no 
 other means of securing home popularity than that 
 of acquiring reputations for industry in the promo- 
 tion of local interests. Much of this glut would be 
 relieved by reducing the number and raising the 
 standard of the Representatives, and the rest would 
 be disposed of by proper provisions against speeial 
 legislation. 
 
 In a House of one hundred and fifty members, 
 working eleven months in each year, or twenty-two 
 in the course of a two years' term, there would be an 
 average of nineteen hours available for each mem- 
 ber, which would be ample for the expression of all 
 the thoughts that would occur to the ordinary legis- 
 lator in the course of his term. Every speaker could 
 
THE NATIONAL LEGISLATURE. 137 
 
 be distinctly heard, and it would not be necessary 
 for opponents in debate to catch the points to which 
 they were replying from next morning's Record. 
 In the Fifty-second Congress the number of bills 
 and joint resolutions introduced in the House aver- 
 aged thirty to each Representative and Delegate. 
 There is no reason to believe that this proportion 
 would be materially increased if the membership 
 were reduced, especially, if the members were elected 
 by proportional representation. At this rate a House 
 of one hundred and fifty members would have four 
 thousand five hundred measures for consideration 
 instead of ten thousand eight hundred and thirty- 
 seven, and with two thousand eight hundred and 
 fifty working hours available there would be thirty- 
 eight minutes for each measure instead of seven, 
 and this time would be divided among one hundred 
 and fifty members instead of among three hundred 
 and sixty. Moreover, each roll-call, even if con- 
 ducted according to the present wasteful method, 
 would occupy only twelve minutes instead of half 
 an hour. 
 
 But the present method of voting is an anach- 
 ronism, and should be abolished, even if not another 
 change were made in the habits of Congress. It is 
 more wasteful of time than any other single thing, 
 and this wastefulness is deliberately perpetuated in 
 the interests of obstruction. The House first votes 
 on a proposition viva vocc. This is a process of 
 extreme celerity. When there is dissatisfaction 
 with the announced result or a desire to delay pro- 
 ceedings, a division is demanded. Each side is sue- 
 
138 SUGGESTIONS ON GOVERNMENT. 
 
 cessively asked to stand up, and the Speaker, rap- 
 idly running- his eye over the members voting, 
 counts them, with the assistance of the handle of 
 his gavel. This also is a reasonably expeditious 
 method, and does not usually occupy over two min- 
 utes. The next step is a call for tellers. When 
 this demand is supported by one-fifth of a quorum, 
 the Speaker appoints two members who take their 
 stand in front of the clerk's desk, and all the rest 
 file between them to be counted. At its best this is 
 a rather long process, and at its worst it is very 
 long. The members sometimes make their appear- 
 ance so slowly that a good part of an afternoon is 
 consumed in securing enough votes to make a 
 quorum. After all this there remains the resource 
 of the yeas and nays. On demand of one-fifth of 
 those present the clerk is required to call the roll, 
 when each member who desires to vote answers to 
 his name. The roll is then called a second time, 
 for the benefit of those who failed to hear their 
 names on the first call. This process takes half an 
 hour, and it is sometimes repeated a dozen times in 
 one day. On such days, it is hardly necessary to 
 remark, no other business is transacted. In the 
 Fifty-second Congress the yeas and nays were taken 
 in the House two hundred and eighty-four times, 
 representing a loss of one hundred and forty-two 
 working hours, or twenty-eight working days. As 
 every day of the existence of that House, including 
 Sundays and holidays, cost the people of the 
 United States about $6,285, tne expense of 
 maintaining this primitive way of voting footed up 
 
THE NATIONAL LEGISLATURE. 139 
 
 not less than $175,980. This loss was at least 
 doubled by the waste of time in voting by other 
 methods. In other words, over one-fifth of the 
 entire working time of the House was thrown away, 
 at a cost of upward of three hundred and fifty thou- 
 sand dollars, in the mere mechanical process of ascer- 
 taining the opinions of the members. And, in addi- 
 tion to the time lost in the act of voting, there were 
 fifty-two calls of the House, representing an addi- 
 tional waste of about five days and $31,425. All of 
 this lost time and money could be saved by a sim- 
 ple electrical device by which each member could 
 touch a button, and have his vote registered and 
 tabulated at the clerk's desk simultaneously with 
 those of all the rest. Such devices have not met 
 with favor because they would prevent filibuster- 
 ing, and that is a privilege which the members do 
 not like to abandon. But filibustering is not a 
 thing which it is desirable to encourage. It has 
 sometimes obstructed bad measures, but it has more 
 often defeated good one. It is a species of legis- 
 lative anarchy which is totally incompatible with 
 orderly democratic government, under which dis- 
 putes should be settled by votes and not by contests 
 of physical endurance. A further advantage of an 
 automatic registering apparatus would be the possi- 
 bility of recording every vote on every question. 
 At present in all cases in committee of the whole, 
 and in the majority of cases in the House, questions 
 are decided without calling the roll, and constitu- 
 ents have no means of knowing how their repre- 
 sentatives have voted. When acting in this irre- 
 
140 SUGGESTIONS ON GOVERNMENT. 
 
 sponsible way members often cast votes which they 
 would never dare to cast if their names were to go 
 on record. 
 
 Closely connected with the waste of time by 
 roll-calls is the wearisome quorum question, which 
 keeps Congress in a turmoil through a large part of 
 every session. The art of law-making often resolves 
 itself into the art of keeping a quorum. This end 
 has been reached by the clumsy and dangerous 
 method of counting members present and not 
 voting, but that plan is manifestly imperfect, since 
 a member who does not wish to be counted can 
 always evade the necessity by the simple expedient 
 <f staying away. The whole trouble about quorums 
 is an illustration of the remark heretofore sug- 
 gested that Congress does not take its duties 
 seriously. There is no such difficulty in a State 
 legislature, working under the regulations laid 
 down by the newer constitutions. No measure can 
 pass either house of such a legislature without the 
 recorded affirmative votes of a majority of all the 
 members elected. This disposes of all necessity for 
 counting a quorum, since the votes of a quorum 
 must be actually recorded in the affirmative before 
 the measure can pass. The members are obliged 
 to vote ; they are subject to severe discipline if they 
 refuse, and, as a matter of fact, they do not refuse. 
 It would be easy to require every member of Con- 
 gress to be present and vote unless excused, under 
 penalty of suspension for the first refusal, and 
 expulsion for the second, and that would instantly 
 settle the quorum problem. 
 
- \8 
 
 > OF THC 
 
 UNIVERSITY 
 
 OF 
 
 THE NATIONAL 5LA$2^ 141 
 
 The adoption of a system of instantaneous and 
 compulsory voting, together with the practice of 
 remaining at work throughout an entire congres- 
 sional term, instead of through less than half of it, 
 would effectually put an end to filibustering without 
 the need of suppressing the minority by oppressive 
 rules. A still more certain extinguisher of obstruc- 
 tion would be the referendum. A minority would 
 not venture to fight a measure by blocking public 
 business if it had the option of appealing to a 
 popular vote. In such a case filibustering would 
 be directed, not against an accidental legislative 
 majority, but against the people themselves, and 
 such a campaign would be neither tolerated nor 
 attempted. 
 
 The Congressional Record has been subjected to a 
 good deal of unthinking criticism, but it is really 
 one of the most useful time-saving devices employed 
 by Congress, and well worth its cost. The fact that 
 the vSenate does not make as free use of it as the 
 House, as an outlet for superfluous eloquence, is one 
 of the chief reasons for the comparative dilatoriness 
 of Senatorial proceedings. Speeches of Senators are 
 not printed in the Record unless actually delivered, 
 at least in part, while the House is generally glad to 
 escape the necessity of listening to its garrulous 
 members by granting them "leave to print." The 
 result is that the public business is blocked for weeks 
 in the Senate to allow prosy Senators to drone out 
 interminable dissertations to empty desks, while the 
 House consigns its unnecessary speeches to the 
 Record without delivery and proceeds to work. 
 
142 SUGGESTIONS ON GOVERNMENT. 
 
 The " leave-to-print " device costs a little money 
 for composition and paper, but the expense is 
 trivial compared to the saving. 
 
 The committee system is another feature of Con- 
 gressional practice that has suffered much unde- 
 served condemnation. While Mr. Gamaliel Bradford, 
 Mr. Woodrow Wilson, and others, have been setting 
 the fashion of an indiscriminate admiration of Eng- 
 lish methods, such English observers as Sir Henry 
 Maine have been impressed with the advantages of 
 our own. The habit of specializing the work of a 
 deliberative assembly, by assigning the preliminary 
 examination and study of different varieties of it to 
 different committees, is in strict accordance with 
 American traditions, as illustrated in every sphere 
 of life and every variety of organization, from 
 the trustees of a college to Congress. It can not be 
 uprooted, but the practice under it can be improved. 
 The criticism that the representation of both parties 
 on the committees destroys party responsibility 
 ignores the fact that the great bulk of legislation, 
 even in the times of the most intense political 
 excitement, is non-partisan in character and can 
 not be made partisan without destroying half its 
 value. The Congressional committee system is sim- 
 ply a recognition of the economic principle of the 
 division of labor. 
 
 It is beyond question, however, that this division 
 has been carried altogether too far. There is no 
 necessity for so many committees, except that of pro- 
 viding their chairmen with clerks and convenient 
 private rooms, and the efficiency of work which is 
 
THE NATIONAL LEGISLATURE. 143 
 
 promoted by a moderate specialization is impaired 
 by an excessive subdivision. There is no necessity 
 for one committee on banking- and currency, and 
 another on coinage, weights, and measures. These 
 two committees, which deal with different branches 
 of a single subject, on which it is imperatively neces- 
 sary to have a harmonious policy, are often antago- 
 nistic, and urge the passage of radically inconsistent 
 measures. The work of the committees on military 
 affairs and militia ought not to be divided ; nor that 
 of the committees on interstate and foreign com- 
 merce, merchant marine, and fisheries, railways and 
 canals, and Pacific railroads ; nor that of the commit- 
 tees on rivers, and harbors, and levees and improve- 
 ment of the Mississippi River; nor that of the 
 committees on pensions and invalid pensions ; nor 
 that of the committees on claims, war claims, and 
 private land claims ; nor that of the committees on 
 judiciary, and revision of the laws. But the most 
 mischievous instance of excessive subdivision of 
 work is found in the management of the revenues 
 and expenditures of the Government. Here, where, 
 if anywhere, there ought to be unity, there are nine 
 committees of the house, one with jurisdiction to 
 decide how the revenues shall be raised and how 
 much shall be levied, and eight to tell how the 
 money shall be spent ; and there are three similar 
 committees in the Senate. In addition to this, most 
 of the other committees have the right to report 
 legislation materially affecting the expenditure of 
 the Government. For instance, the Committee on 
 Invalid Pensions may report a pension bill whose 
 
144 SUGGESTIONS ON GOVERNMENT. 
 
 operations will drive the Treasury into actual bank- 
 ruptcy, and the committees which are supposed to 
 have charge of financial matters have no right to 
 interfere. Substantially this very thing has actually 
 been done. The Committee on Public Buildings and 
 Grounds may report bills authorizing the construc- 
 tion of twenty million dollars worth of new post 
 offices, and, if they pass, the Committee on Appropri- 
 ations has nothing to do but to find the money to 
 settle the accounts when they come due. 
 
 Of the committees which are given regular juris- 
 diction over the appropriations only one, as a rule, 
 pays any attention to the question of keeping 
 Government's total expenses within its ineoine. 
 The Committee on Appropriations, which controls 
 six of the general appropriation bills, covering 
 somewhat less than half of the aggregate expenses 
 of the Government, considers itself charged, in some 
 degree, with the duty of keeping an eye on the 
 national balance-sheet. The other committees eon- 
 fine their attention to the particular little reserva- 
 tions in their exclusive charge. If the army or 
 navy appropriation bill compare favorably with that 
 of the preceding year, the committee on military 
 or naval affairs thinks it has made a creditable 
 record, regardless of the general condition of the 
 Treasury. When, to this disjointed control of 
 expenditures, we add the fact that none of the com- 
 mittees that deal with appropriations have anything 
 to do with revenues, and the further fact that the 
 taxes are not adjusted to the needs of the Govern- 
 ment, but are fixed for indefinite periods, and regu- 
 
THE NATIONAL LEGISLATURE. 145 
 
 lated by considerations in which fiscal requirements 
 play only a secondary part, the confusion and mis- 
 management of American finances will need no 
 further explanation. 
 
 The way to import order and judicious economy 
 into the financial operations of the Government is 
 to put all matters relating to revenue and supply 
 under a single control. There should be one budget 
 committee in the Mouse, of which the Secretary of 
 the Treasury should be a consulting member, and 
 this committee should have exclusive jurisdiction 
 over the national income and expenditure. Instead 
 of reporting thirteen separate appropriation bills, 
 unconnected with each other or with the revenue 
 laws, it should present a complete budget, in which 
 the total revenue and the total expenditure would 
 be balanced ; any deficit under existing laws being 
 made good by increased taxes, and any immoderate 
 surplus being prevented by the remission of imposts. 
 In England the passage of the appropriations accord- 
 ing to the government estimates is made a question 
 of confidence, and their alteration by Parliament 
 involves the resignation of the ministry, but no such 
 sacredness need attach to the work of the budget 
 committee here. It would be sufficient to have the 
 entire financial operations of the Government for 
 the year provided for in one well-considered bill. 
 If that were done Congress would not amend the 
 measure without good cause, for every important 
 amendment would visibly disarrange the whole 
 fiscal programme, and would necessitate recasting 
 the entire project to restore the balance. No such 
 10 
 
146 SUGGESTIONS ON GOVERNMENT. 
 
 responsibility is felt now. When the work of one 
 committee is upset it is not felt that the work of 
 other committees is at all affected, or that the opera- 
 tions of the Treasury are embarrassed. When the 
 year's balance-sheet exhibits results ranging all the 
 way from a deficit of seventy million dollars to a 
 surplus of one hundred and fifty million dollars, a 
 discrepancy of a few millions more or less in one of 
 thirteen disconnected appropriations can not be 
 expected to make a very deep impression on the 
 Congressional mind. 
 
 Mill's idea of a legislative commission to prepare 
 all bills, leaving the parliamentary body nothing to 
 do but to accept or reject the measures formulated 
 by it, or send them back for amendment, may not be 
 practicable in this country, although such a commis- 
 sion could doubtless be made useful in Congress 
 merely as an agency for putting the crude notions 
 of unpracticed members into proper shape, leav- 
 ing the assembled legislators all their accustomed 
 powers of amendment. But each House should 
 certainly have a committee on the harmony of legis- 
 lation, whose duty it should be to examine and 
 report upon every measure submitted to it, not with 
 regard to its merits, but with respect to its relations 
 with existing laws. Every bill placed on the cal- 
 endar, with a favorable report from any other com- 
 mittee, should be referred to this committee before 
 action, in order to discover whether it conflicted 
 with any previous law, and if so, whether the repeal 
 of that law, or of a part of it, would be desirable or 
 the reverse. Of course such a committee should be 
 
THE NATIONAL LEGISLATURE. 147 
 
 composed of expert jurists, thoroughly familiar, 
 not only with federal legislation in all its branches, 
 but with the laws of all the States, since it often 
 happens that a new national statute produces serious 
 local results by its inconsistency with State enact- 
 ments or legal customs. A careful examination of 
 new bills by a committee of this nature would greatly 
 reduce the work of Congress, since it would show a 
 large proportion of them to be superfluous, as sub- 
 stantially duplicating existing laws, and another 
 large proportion to be harmful, as inharmonious 
 elements in the legal fabric. 
 
 Those critics to whom the one thing needful for 
 the reform of American Congressional practice is 
 the creation of a directing and co-ordinating agency, 
 like the English Cabinet, may take comfort in the 
 reflection that something which bids fair ultimately 
 to answer nearly the same purpose is being grad- 
 ually developed out of existing materials in a 
 natural and purely American way. The House 
 Committee on Rules, after forty years of modest 
 growth in power, rapidly rose in importance in the 
 epoch-making Fifty-first Congress, and still further 
 expanded its functions in the Fifty-second and Fifty- 
 third Congresses under the impulse of the Demo- 
 cratic desire to find some, means for the accomplish- 
 ment of business without palpably imitating what 
 they had so emphatically condemned under the 
 Reed regime. Substantially all the important busi- 
 ness of the House, aside from that of a routine 
 nature, is now under the control of this committee. 
 A bill to which there is determined opposition can 
 
148 SUGGESTIONS ON GOVERNMENT. 
 
 not even be considered without the consent of the 
 Committee on Rules, which sets apart a day for the 
 consideration of one measure, refuses to fix a day 
 for the consideration of another, and arranges the 
 order in which measures shall be taken up and the 
 hours at which they shall be finally voted upon, 
 in accordance with its views of party policy. Of 
 course the special orders reported by the committee 
 have to be ratified by the House, but this ratification 
 is hardly ever refused. In doubtful cases the com- 
 mittee is now accustomed to act in accordance with 
 petitions signed by a majority of the members of 
 the dominant party, so that the Committee on Rules 
 may be considered the organ through which the 
 majority acts. It is rapidly assuming the functions 
 of the British Cabinet in laying out a programme of 
 legislation, and it may very readily become in the 
 course of a few years what the British Cabinet would 
 be if its members had no executive duties and were 
 under no obligation to resign on the defeat of their 
 measures. 
 
 A serious interference with the transaction of 
 business in Congress is caused by the traditional 
 methods of showing respect to the memory of 
 deceased members. The death of a Senator or 
 Representative always causes more or less loss of 
 time, and sometimes absorbs two full working days 
 one when the event is announced, and the other 
 when eulogies are delivered. When there is a 
 funeral service in the Capitol, the time lost may even 
 reach three days. This would be excusable in a 
 debating society, whose business, besides being of 
 
THE NATIONAL LEGISLATURE. 149 
 
 small importance, is its own affair, but Congress, 
 representing the entire nation, has no more right to 
 waste the people's time in long-drawn conventional 
 grief than it would have to waste their money in the 
 same way which, by the way, it regularly does. It 
 would be as reasonable for the whole population 
 of the country to stop work for a day upon the 
 death of a member of Congress, as for the body 
 which transacts the collective business of that 
 population to do the same thing. Appropriate reso- 
 lutions, brief eulogies, and a committee to attend 
 the funeral would be ample testimonials of respect 
 without defrauding the public by making every 
 death the occasion of a holiday a holiday, it may 
 be mentioned, which the average member does not 
 spend in the trappings of woe. 
 
 The physical conditions under which Congress 
 works are not favorable to intelligent debate. The 
 spaces are too vast, especially in the hall of the 
 House, and the members are too widely separated. 
 The English plan of having benches with seats for 
 only half the members would not work in Washing- 
 ton, where the attendance is so much fuller, and the 
 total abolition of desks would be a little too severe a 
 privation. But the desks might well be reduced to 
 half their present liberal proportions, with a view 
 to having them serve merely for convenient note- 
 taking in discussions instead of for private corre- 
 spondence, and compact cushioned benches could 
 take the place of expansive revolving chairs. The 
 accommodation of the newspaper correspondents in 
 the press galleries may illustrate the possibilities in 
 
150 SUGGESTIONS ON GOVERNMENT. 
 
 the way of the compression of the unwieldy legislative 
 bodies that now sprawl disjointedly over their huge 
 halls. If this compression were carried to a sufficient 
 extent the members would doubtless acquire the 
 habit of doing their letter-writing and newspaper- 
 reading at home, or in rooms which could be pro- 
 vided for the purpose. 
 
 One of the most wasteful leaks of time in Con- 
 gress is the habit of making speeches on all con- 
 ceivable topics in total disregard of the pending 
 question. This not only dissipates time, but often 
 entirely prevents the enlightenment that ought to 
 come from a debate. When a certain hour has 
 been set for the final vote on the question of 
 abolishing the Geological Survey, and a dozen 
 members absorb all the intervening time with a 
 controversy concerning the effect of the tariff on 
 the production of tin plates, the vote has to be 
 taken in ignorance of the probable nature of its 
 far-reaching results. This abuse could be easily 
 checked if custom justified presiding officers in 
 calling members to order as soon as they began to 
 wander from the question. The rules of the House 
 require debaters to confine themselves to the ques- 
 tions under discussion, and violations of the rules 
 in this respect ought to be checked as promptly as 
 in any other. 
 
 It may contribute to a better understanding of 
 the question of time-saving in Congress if we con- 
 template some of the principal items of loss in 
 tabular form. To maintain the House in the Fifty- 
 second Congress cost $4,593,922.60. As there were 
 
THE NATIONAL LEGISLATURE. 
 
 151 
 
 seven hundred and thirty-one days, including Sun- 
 days, in the entire term, the average running 
 expense was about $6,285 a 'day. Dividing the 
 time as nearly as practicable according to the 
 way in which it was spent, and apportioning the 
 cost on this basis, we have : 
 
 CREDIT. 
 
 Days in term, including Sundays 731 
 
 
 DAYS. 
 
 COST. 
 
 Time lost before organization 
 
 278 
 
 $1 74.7 2^O 
 
 Vacations 
 
 147 
 
 023,895 
 
 Sundays during sessions 
 
 42 
 
 263,970 
 
 Other holidays 
 
 23 
 
 144, 5 5 5 
 
 Honors to deceased members . 
 
 14 
 
 87,990 
 
 Yeas and nays 
 
 28 
 
 I7c q8o 
 
 Other voting and quorum-hunting 
 
 *3O 
 
 *i88,55o 
 
 
 
 
 Total conspicuous losses 
 
 562 
 
 $3,532,170 
 
 
 
 
 Business (outside limit) 
 
 169 
 
 $1,062,165 
 
 
 
 
 Average cost of each working day 
 
 
 $ 27,183 
 
 
 
 
 * Approximate, but underestimated. 
 
 The average cost of each working day, of course, 
 represents the total expense of maintaining the 
 House through the entire term, divided by the num- 
 ber of working days. 
 
 If all practicable time-saving devices were adopted 
 it would be possible to pay some regard to the 
 calendars. At present the Congressional calen- 
 
SUGGESTIONS ON GOVERNMENT. 
 
 dars, except the private calendar of the House, are 
 legislative fictions. Measures are supposed to be 
 taken from them in their turn, but in practice 
 almost every public bill considered is taken up 
 under a special order, regardless of its place on the 
 nominal programme. If the calendars could be 
 once completely cleared, the work of Congress 
 would be lightened for a generation to come, for 
 the majority of the bills introduced at the begin ning 
 of every term are veterans that have been vainly 
 appealing for consideration for years or decades in 
 the past. 
 
 There is little to be said about reforms peculiarly 
 needed by the Senate. The best reform in that 
 quarter would be total abolition, but as that is 
 impracticable there is little to be done, in addition 
 to the improvements suggested for the House, 
 except to make such alterations in the rules as 
 would enable the majority to transact business, to 
 curtail speech-making on the floor by enlarging the 
 privilege of printing in the Congressional J\< 
 and to change the method of electing Senators. 
 The plan of election by State legislatures, which 
 seemed to the authors of the Federalist so obvi- 
 ously the best conceivable as hardly to need cle 
 fense, and which up to twenty or thirty years ago 
 appeared to have fully vindicated itself in practice, 
 has now unmistakably broken down. It is turning 
 out a poorer quality of Senators year by year ; it is 
 destroying the Senatorial sense of responsibility, 
 and it is steadily degrading the legislatures. When 
 a legislature that is to have the privilege of electing 
 
THE NATIONAL LEGISLATURE. 153 
 
 a Senator is to be chosen, all considerations of State 
 policy are submerged, the proper work of the body 
 is lost sight of, and its members are chosen solely 
 with a view to their action on the absorbing issue of 
 the Senatorship. Often the election expenses of the 
 majority are paid by one of the Senatorial candi- 
 dates, and when members take office sold in advance 
 on one question they are ready to be bought on all 
 others. A corrupt Senatorial campaign means a 
 corrupt legislative session for all matters of State 
 policy. As long as we are saddled with the Senate, 
 the only way of mitigating its evils is to have its 
 members elected by the people. One other impor- 
 tant reform remains to be mentioned. As long as we 
 retain the present organization of the Government, 
 the terms of Senators, Representatives, and Presi- 
 dent should be equalized. The present discrepan- 
 cies were intentionally created by the framers of 
 the Constitution in the belief that the greatest need 
 of the new government was a system of checks 
 adequate to prevent rash action on the part of the 
 people. Their various devices for attaining this 
 object have been altogether too successful. It may 
 be desirable to restrain the people from too hasty 
 action, but it is certainly not desirable so to tie their 
 hands as to prevent any action at all. The disloca- 
 tion of power in this country makes it almost 
 impossible to initiate and carry out a consistent 
 national policy. Of the last ten Congresses only 
 three have had even nominal political harmony 
 between their branches and with the executive, and 
 it is hardly necessary to say that the harmony exist- 
 
154 SUGGESTIONS ON COYKRXMENT. 
 
 ing at present is not more than nominal. In no 
 case has the formal accord among the vScnate. House, 
 and President lasted for more than two years, nor 
 in all that time has a party in full possession of the 
 Government ever developed its policy in Congress 
 for as much as a year without being rebuked and 
 discouraged at the State elections. If Senators, 
 Representatives, and President were all elected for 
 four-year terms, beginning and ending simul- 
 taneously, the people would have more than three 
 chances in ten of having their will executed, and 
 Congress would have time to carry out a policy and 
 have it in operation long enough to enable it to be 
 fairly judged. In addition, the House could clear 
 its calendar, instead of rolling the stone of business 
 half-way up the hill, and then letting it roll down 
 again for its successor to attempt to push up with 
 the same results. Chosen under such conditions, 
 the branches of government would generally be in 
 harmony. As for checks, the all-sufficient brake 
 on rash action could be found in the referendum. 
 
 So much for Congress as it is, and as it might be 
 made without seriously altering its structure. But 
 beyond make-shift reforms is an ultimate ideal, and 
 that ideal, it seems to me, is to be found in the reorgan- 
 ization of the national legislature on the principles 
 already developed in treating of State and local legis- 
 latures. We need stability, wisdom, and experience 
 in Congress. How can they be secured better than by 
 abolishing the term system and substituting a ten- 
 ure during good behavior? We need responsibility 
 to the people not an intermittent, periodical 
 
THE NATIONAL LEGISLATURE. 155 
 
 responsibility, but one felt in full vigor every hour. 
 What better way of obtaining it can be imagined 
 than to give the constituents of every member the 
 right to recall him whenever his conduct ceases 
 to meet their approval? Through a Congress so 
 organized every abuse in the Government could be 
 brought within the immediate control of the voters. 
 
 Under this plan, the members of the House would 
 be elected by the local primary assemblies, precisely 
 as in the case of the members of the State legislatures 
 and of the county boards of supervisors. The only 
 difference would be that a greater number of assem- 
 blies would have to unite in each election. For a 
 House of three hundred members, about a hundred 
 assemblies of average size would elect a Representa- 
 tive. For one of five hundred members, about sixty 
 assemblies would form a constituency. Once elected, 
 a member would hold his place until recalled. A 
 movement for the recall of any member could be 
 initiated by the formal vote of any assembly in his 
 district, on motion of any qualified voter. The 
 proposition having been advanced by one assembly, 
 all the others in the district would have to take 
 action upon it on a specified date, allowing time for 
 the Representative to offer his defense. If the 
 recall were carried, the assemblies would immedi- 
 ately proceed to a new election by the preferential 
 method, elsewhere explained. 
 
 The House thus constituted would remain in ses- 
 sion all the year, except during short vacations. 
 It would waste no time in periodical reorganiza- 
 tions. Its Speaker would remain in office as long 
 
156 SUGGESTIONS ON GOVERNMENT. 
 
 as he retained the confidence of his constituents 
 and of the members of the House. Its attaches 
 would constitute a permanent staff. The House itself 
 would be at once more stable and more responsive 
 to public opinion than any legislative body now in 
 existence. Its membership would be subject to no 
 sweeping revolutions, but would be gradually and 
 imperceptibly renewed. At all times the great 
 body of the members would be experienced and 
 competent legislators, and the apprentices would not 
 have to learn their business at the expense of the 
 public. The continuous existence of the assembly 
 would never be interrupted ; bills would hold their 
 place on the calendar until definitely passed or 
 rejected, and work once done in connection with any 
 measure would never have to be repeated. 
 
 The initiative and referendum would add to the 
 security of tenure. Under present conditions, while 
 the people of any district would be proud of the dis- 
 tinction and influence conferred upon them by the 
 possession of such a representative as William L. 
 Wilson, most protectionist voters would sacrifice 
 those advantages and try to replace Mr. Wilson with 
 an inferior man for the sake of carrying out their 
 own views upon the tariff. If it were possible to 
 take the final settlement of the tariff and all related 
 questions out of the hands of Congress, they would 
 gladly vote for the retention of the representative 
 whose character and ability were worth so much to 
 the district. 
 
 Intelligent legislation would be secured, and Con- 
 gress would be kept properly in touch with the exec- 
 
THE NATIONAL LEGISLATURE. 157 
 
 utive, by the presence of the members of the Cabinet 
 in the House, without votes, but with an unlimited 
 right of discussion, and subject to the obligation of 
 answering any questions asked concerning the oper- 
 ations of their departments. The head of each 
 department would be a consulting member of the 
 committee or committees dealing with his special 
 line of work. The Secretary of the Treasury would 
 belorg to the Finance Committee, which would have 
 exclusive jurisdiction over all questions of revenue 
 and expenditure. The Secretary of War would be 
 attached to the Military Committee ; the Secretary of 
 the Navy to the Naval Committee ; the Secretary of 
 State to the Committee on Foreign Affairs, and so on. 
 As these officials would hold office by a much less 
 precarious tenure than at present, they would be 
 much better acquainted than now with the affairs 
 of their respective departments, and there would 
 therefore be an assurance that all proposed leg- 
 islation would be subjected to expert scrutiny 
 before obtaining a favorable report from a com- 
 mittee. If, in spite of all the opportunities for 
 enlightenment, both in committee and on the floor, 
 laws which the executive authorities thought unwise 
 were still passed, the President would have no power 
 of veto, but he would have the right to demand the 
 vSubmission of the measure to the referendum. The 
 same test would have to be accorded on demand of 
 one-fifth of the members of the House, or of a thou- 
 sand primary assemblies, distributed among ten 
 States. An appeal could be taken from Congress to 
 the people in the case of measures defeated, as well 
 
158 SUGGESTIONS ON GOVERNMENT. 
 
 as of those passed, and on the same terms. This 
 would be a form of the initiative which would 
 answer all practical purposes and would avoid some 
 of the disadvantages of the inception of legislation 
 by volunteer effort. 
 
 With regard to the Senate, as previously remarked, 
 the best reform would be total abolition. Pernicious 
 even now, when it has some important functions to 
 perform, the Senate would be simply a useless 
 excrescence on a system in which the House accu- 
 rately mirrored the desires of the people, and in 
 which the power of ultimate decision in disputed 
 cases rested in the hands of the entire citizenship of 
 the nation. But the Constitution has tied our hands. 
 By guaranteeing that no State shall be deprived of 
 its equal representation in the Senate without its 
 own consent, it has made the superfluous second 
 chamber an indestructible part of our fabric of gov- 
 ernment. But if we must have a Senate, there is no 
 reason why it should not be rendered harmless. If 
 its membership were reduced to one Senator from 
 each State, the equal representation of the States 
 would not be affected. If then, it were provided 
 that in case of disagreement between the two 
 branches of Congress, they should meet together 
 and settle the dispute by a joint vote, the diminished 
 numbers of the Senate would be swamped by the 
 votes of the House. There are too many instances, 
 both here and abroad, of meetings between the tw 
 houses of legislative bodies in joint convention for 
 various purposes, to permit such a scheme to be dis- 
 missed as an unfair evasion of the constitutional 
 
THE NATIONAL LEGISLATURE. 159 
 
 safeguards of the Senate. The Senators would have 
 no right to complain, for they are elected themselves 
 in precisely that way. If, in addition to all this, the 
 Senate were deprived of the right of amending 
 revenue and appropriation bills, we might consider 
 that its teeth had been drawn, and, perhaps in time, 
 the small States might consent to the abolition of 
 the useless incumbrance. In the meantime, of 
 course, the Senators, like Representatives, would be 
 elected by the people in their primary assemblies. 
 
CHAPTER XII. 
 
 THE NATIONAL EXECUTIVE. 
 
 The executive administration of the United States 
 Government is carried on by a force of about two 
 hundred thousand office-holders. This enormous 
 machine is regulated, directly or indirectly, by the 
 President. He personally appoints the more impor- 
 tant officials, subject to confirmation by the Senate ; 
 and the minor ones are chosen by his subordinates, 
 the heads of departments. There are the possibili- 
 ties of efficient service here, but they are neutral- 
 ized by the customs under which the system is 
 worked. It is impossible for any man or group of 
 men at the head of a government to be personally 
 acquainted with the qualifications of two hundred 
 thousand minor officials still less with those of 
 the multitudinous applicants for their places. In 
 the vast majority of cases the men who hold the 
 appointing power must select their subordinates and 
 judge of their conduct on the testimony of others. 
 That is what the President and the heads of depart- 
 ments do. They take advice in the matter of 
 appointments, but unfortunately they take it from 
 the wrong sources. Instead of relying upon the 
 recommendations of the men who have to superin- 
 tend the work of the persons appointed, and who 
 are better acquainted than anybody else can be with 
 
 (160) 
 
THE NATIONAL EXECUTIVE. 161 
 
 the needs of their divisions and the efficiency of 
 their subordinates, they depend upon the sugges- 
 tions of Senators, Representatives, and local politi- 
 cians. These advisers are not particularly inter- 
 ested in the efficient administration of the govern- 
 ment, but they are decidedly interested in the 
 advancement of their own political fortunes. Con- 
 sequently, when a member of Congress "distributes 
 the patronage " of his district, he gives the places, 
 not to the men who will do the best work for the 
 public, but to those who can do the best work for 
 himself. 
 
 It is unsafe in the management of large affairs to 
 depend on advice from irresponsible sources, espe- 
 cially when there is a selfish interest in giving 
 unsound recommendations. When a Senator or 
 Representative suggests an unfit appointment, he 
 incurs no risk. He does not bear the blame for 
 poor work in the department upon which his man 
 is forced, nor can the President visit any punish- 
 ment tipon him for his bad advice. An administra- 
 tive official guilty of a similar betrayal of confidence 
 could be degraded or removed. 
 
 From many custom-houses, post-offices, and navy- 
 yards we hear accounts of gallant, but unsuccessful, 
 fights on the part of the men in charge, against the 
 local politicians who desire to debauch the service 
 for the profit of their retainers. These fights are 
 unsuccessful because the superiors of the men who 
 make them find it more to their advantage to have 
 the support of the local politicians than to have a 
 record of administrative efficiency in a particular 
 11 
 
162 SUGGESTIONS ON GOVERNMENT. 
 
 quarter. Displeased politicians make their displeas- 
 ure felt, and there is no certain retribution for bad 
 administration. Thus we have a grotesquely per- 
 verted form of responsible government respon- 
 sible to the politicians, but not to the people. 
 
 A good collector could give a good management 
 of any custom-house in the country if he were 
 allowed a free hand in dealing with his subor- 
 dinates. Under the present system we do not 
 usually get the good collector in the first place, 
 because it is not to the interest of the President's 
 local advisers to recommend such a man, and lie 
 would not be allowed a free hand if we had him. for 
 similar reasons. Before there can be a general 
 reform the motives for the appointment of the best 
 men to all administrative positions and their sup- 
 port in doing their work in the best way. regardless 
 of politics, must be made as strong as those that 
 now dictate submission to the demands of politi- 
 cians. The power to make this change through all 
 the grades of the services below himself now rests 
 with the President. The President alone, if thor- 
 oughly bent upon this object, could change the 
 whole spirit of the executive administration, to its 
 remotest ramifications, although he would be con- 
 siderably annoyed during the process by the 
 obstructive exercise of the confirming power of the 
 always pernicious Senate. Even under our present 
 system the President could make all executive offi- 
 cials below himself look to the faithful performance 
 of their duty, instead of politics, as the condition of 
 their retention and promotion. The question is 
 
THE NATIONAL EXECUTIVE. 163 
 
 how to secure this determination on the part of the 
 President. The subordinate officials would be held 
 to their duty by the supervision of their superiors, 
 upon whom their retention in office, promotion, or 
 removal would depend. All that would be neces- 
 sary to complete the chain would be to subject the 
 President to a similar supervision. 
 
 The only power that could exercise this control 
 over the chief magistrate would be Congress. But 
 Congress, as at present constituted, would be mani- 
 festly unfit to exercise such a function. Its mem- 
 bers are the chief breeders of demoralization in the 
 public service. To make it worthy to be trusted with 
 the appointment and removal of the President, it 
 must be made responsible itself by being brought 
 within the immediate control of its constituents. 
 When that is done a few trifling changes will be all 
 that is needed to give us a thoroughly capable and 
 honest executive administration. All we shall need 
 will be the abolition of the Senatorial power of med- 
 dling with appointments, and the establishment of a 
 uniform tenure during good behavior. 
 
 In France, the President is elected by the National 
 Assembly, but as he serves for seven years he is sub- 
 ject to no effective responsibility. This is a matter 
 of less importance, since the real government of the 
 country is in the hands of the ministers, who are 
 dependent for their official existence on the majority 
 of the moment in the Chamber of Deputies. The 
 French system is too rigid as regards the President, 
 and too unstable as regards the Cabinet, beside which 
 the people have no continuous -control over the 
 
164 SUGGESTIONS ON GOVERNMENT. 
 
 Chambers. A nearer approach to a true responsible 
 republican government is found in Switzerland, 
 where the executive administration is in the hands 
 of a council, elected by the Federal Assembly for 
 three years ; arid the President of the confederation, 
 whose special powers are only nominal, is elected 
 annually by the members of the council from ani( mg 
 its own members. Owing to the Swiss custom of 
 indefinite reflections there is a more effective resp< vi- 
 sibility here than appears on the surface. An official 
 elected for three years, and expecting to retire to 
 private life at the end of that time, may be careless 
 in the performance of his duties ; but one who occu- 
 pies a position which will be permanent if he con- 
 tinues to deserve it, but which he may lose at the 
 end of three years if he does not. is likely to be cir- 
 cumspect in his conduct. But the chief guaranty of 
 good government in Switzerland is the referendum. 
 The people there are not obliged to tolerate bad or 
 incompetent men for the sake of the measures they 
 are supposed to represent. They vote for their men 
 and measures separately. If the election of Presi- 
 dent of the United States were thrown into the 
 House of Representatives under present conditions, 
 no excellence of administration would give a Demo- 
 cratic incumbent any Republican votes. The reelec- 
 tion of a member of the Swiss Federal Council, 
 regardless of politics, is a matter of course. The 
 recognition of good service in Switzerland does not 
 involve the indorsement of an obnoxious policy. 
 
 The source, although not the cause, of all the 
 evils in American politics is the Presidential 
 
THE NATIONAL EXECUTIVE. 165 
 
 election, and the Presidential election is dangerous 
 because of the peculiar complication of interests 
 involved in it. It determines at once a national 
 policy that affects the interests and inflames the 
 passions of millions of voters, and a wholesale dis- 
 tribution of offices involving the livelihood of hun- 
 dreds of thousands more. The President, by his 
 veto power, can absolutely tie the hands of Congress, 
 and, by his power of appointment and removal, can 
 dispose of the fortunes, and almost of the lives, of 
 an army of men. By our peculiar electoral methods, 
 the choice of this potentate is made to depend upon 
 the action of a few voters in the doubtful States. 
 One vote in New York may make a change of 
 seventy-two in the relative strength of candidates in 
 the electoral college, and thereby may elect a Presi- 
 dent, alter all the conditions of industry in the 
 nation, and deprive hundreds of thousands of fami- 
 lies of their means of support. One vote may do all 
 this, and that vote may be had for two dollars, if not 
 for a glass of whisky. When such tremendous 
 results depend literally on the tossing of a coin, a 
 Presidential election instills the gambling madness 
 into the veins of the whole people. Nothing is seen 
 but the stakes, and everything that can help to win 
 is justified. Governors and State legislatures are 
 chosen, not for their fitness for the work of making 
 and administering the laws of the States, but to 
 strengthen the party for the next Presidential cam- 
 paign. Every attempt to throw off a corrupt local 
 ring is checked by the plea that this is not the time 
 the coming national campaign is too important to 
 
166 SUGGESTIONS ON GOVERNMENT. 
 
 permit the harmony of the organization to be dis- 
 turbed. Bosses are allowed free loot of city treas- 
 uries in exchange for votes for Presidential candi- 
 dates. Unfit aspirants are carried into Congress on 
 the back of a popular national ticket. 
 
 If the President were deprived of the veto power, 
 and the people were allowed to vote directly upon 
 measures, all the formidable pressure of commercial 
 and industrial interests would be lifted from the 
 elections. If all officials held their places on the 
 tenure of good behavior there would be no (U 
 ate struggle between ins and outs. If, finally, the 
 President himself, instead of owing his office to a 
 quadrennial scramble for the floating voters of the 
 doubtful States, were elected by the deliberate act 
 of an assembly truly representative of the whole 
 people, and held his place until the people, through 
 a two-thirds vote of that assembly, saw fit to remove 
 him, the whole demoralizing system of national 
 campaigns would be cut out by the roots, and local 
 officials and policies would have some chain 
 being judged on their merits. 
 
CHAPTER XIII. 
 
 PROPORTIONAL REPRESENTATION. 
 
 It is impossible to combine all conceivable 
 improvements in government in one system. 
 That unfortunate fact impels me reluctantly to 
 omit proportional representation of the completest 
 type from an ideal scheme of reform, although 
 I believe it will have a useful and important part 
 to play in the transition period. The proportional 
 plan of electing representatives to legislative bodies 
 is so incomparably superior to all existing methods 
 that it is not surprising that its advocates should 
 regard it with a species of religious enthusiasm. 
 It enables every important shade of opinion at the 
 time of election to be accurately reflected ; it pro- 
 motes the choice of the best and ablest men, as the 
 present system promotes that of the worst and most 
 commonplace, and it destroys the power of political 
 machines. The best form is that proposed by 
 Thomas Hare, with modifications in points of detail. 
 Under this system the constituencies are grouped, 
 several legislators being elected from each district. 
 According to Hare's original scheme, indeed, there 
 were to be no districts at all, but the entire legisla- 
 tive body was to be elected in bulk. This, of 
 course, would be subject to insuperable objections. 
 In each district the total vote is divided by the 
 
 (167) 
 
168 SUGGESTIONS ON GOVERNMENT. 
 
 number of members to be elected, and the quotient 
 constitutes the " quota " necessary for a choice. 
 The quota, as was shown by Mr. Droop, is more 
 accurately reached by dividing the vote by the 
 number of members plus one, and adding one to 
 the quotient. Each elector votes for as many 
 candidates as he pleases, designating them as first 
 choice, second choice, and so on, and his vote is 
 counted only for that one in the order of preference 
 who first needs it. If the quota is six thousand, 
 and A receives eight thousand votes, only the 
 necessary six thousand are counted for him, and 
 the remaining two thousand go to the next indi- 
 cated candidates on the ballots. It is in the 
 transfer of these surplus votes that the system has 
 its weakest point. It is usually proposed to leave 
 the selection of the surplus ballots to chance, either 
 by lot, or by numbering the ballots as they come 
 out of the box and making up the quota of those 
 bearing the lowest numbers. Aside from the 
 objection to allowing chance to- play any part in 
 government, it is evident that such methods offer 
 too good an opportunity for sharp practice. Mr. 
 W. H. Gove illustrates the danger by this example: 
 " Suppose one hundred votes cast showing a first 
 choice for X, fifty of whom show A as second choice, 
 and fifty show B as second choice, and that fifty of 
 X's votes are to be transferred as a surplus. Then, 
 although the votes to be transferred are selected by 
 lot, as the system intends, and although any one 
 selection by lot may hardly produce a materially 
 different result from any other selection fairly made 
 
PROPORTIONAL REPRESENTATION. 169 
 
 in the same way, it is evident that unfair enumera- 
 tors might, by selecting the votes to be transferred, 
 turn over all the fifty surplus votes either to A or B 
 as they might choose, and thus the result might be 
 very seriously affected." 
 
 To avert this danger, Mr. Gove proposes to alter 
 the whole character of the system by depriving the 
 voter of his liberty of choice and permitting the 
 candidate to determine in advance the disposition 
 to be made of his surplus votes. This would destroy 
 some of the principal merits of the reform, and 
 would leave to political machines a large share of 
 the power of which the Hare system would deprive 
 them. The desired end can be attained in a much 
 simpler way. In the example cited by Mr. Gove, 
 the fair way of distributing X's surplus votes would 
 be to give twenty-five to A and twenty-five to B. 
 This is what would be accomplished by lot, if it fell 
 out in exact accordance with the law of chances. 
 Why not do it directly ? All that would be neces- 
 sary would be to provide that the surplus votes cast 
 for any candidate should be distributed among the 
 second-choice candidates in the proportions in which 
 they were designated on all the ballots of the candi- 
 date elected. Suppose, for instance, that Smith, 
 Brown, Jones, and Robinson are among the competi- 
 tors at a certain election ; that one hundred is the 
 quota necessary for choice ; that Smith receives one 
 hundred and fifty votes, and is, therefore, elected 
 with fifty to spare, and that ninety of Smith's ballots 
 bear the name of Brown as second choice, thirty- 
 nine that of Jones, and twenty-one that of Robinson. 
 
170 SUGGESTIONS ON GOVERNMENT. 
 
 Distributing the surplus votes in this proportion, 
 Brown would receive thirty, Jones thirteen, and 
 Robinson seven. This would be as fair as the 
 fairest conceivable lot, and fairer than any lot that 
 would be realized in practice. To carry the illus- 
 tration further : Suppose that Brown had originally 
 eighty first-choice votes, which the thirty transferred 
 from Smith would raise to one hundred and ten, 
 leaving ten to be distributed as a surplus. In deter- 
 mining the proper proportions in this case only the 
 eighty original votes could be used, as there would 
 be no ballots to represent the thirty obtained from 
 Smith. Of these eighty, suppose forty designated 
 Smith as second choice, twenty-five Jones, and 
 fifteen Robinson. Smith being already elected, 
 his name would be eliminated, leaving the third- 
 choice names to be counted on his forty ballots, of 
 which Jones may be assumed to have twenty-five 
 and Robinson fifteen. Thus, of Brown's original 
 eighty votes Jones would have fifty as next choice, 
 and Robinson thirty. Consequently, Jones would 
 be entitled to five-eighths and Robinson to three- 
 eighths of the surplus ten. Disregarding fractions 
 and taking the nearest integer, Jones would gain 
 six votes and Robinson four. 
 
 The only objection to this method of transferring 
 surplus votes is that the ballots are not transferred 
 with them, and consequently the persons who have 
 cast unnecessary votes for successful candidates are 
 limited to a single additional choice: It is not likely 
 that this drawback would prove serious enough to 
 overbalance the advantage of absolute fairness in 
 
PROPORTIONAL REPRESENTATION. 171 
 
 the first transfer, but if it should turn out so in 
 practice the necessity of resorting to lot could still 
 be obviated by the adoption of the plan proposed by 
 Mr. Daniel H. Remsen, in his book on " Primary 
 Elections." Mr. Remsen's method is thus described : 
 " The votes which constitute the quota of each 
 candidate having more than a quota of first-choice 
 votes shall be (i) the votes of all those voters making 
 no second choice ; * (2) the votes of all those voters 
 whose second-choice candidate shall have received a 
 quota of first-choice votes ; f (3) the votes of all those 
 voters whose second-choice candidate shall have 
 received the least number of first-choice votes ; J 
 and thereafter, in order, the votes of all those voters 
 whose second-choice candidate received the next 
 higher number of first-choice votes until the said 
 quota is filled ; but when the excessive votes then 
 remaining to be credited would give any candidate 
 more than a quota, that excess shall form a part of 
 the quota in lieu of an equal number of votes having 
 an unappropriated second choice, last forming a part 
 of the quota as aforesaid. . . . When the quota 
 of a candidate shall be partly composed of second- 
 choice votes, the votes which constitute this quota 
 shall be (i) the second-choice votes placed to his 
 credit ; and thereafter first-choice votes in the 
 order as provided above." I 
 
 * Otherwise they would have no elective power. 
 f As they are not needed by the second-choice candidate, 
 j As such a candidate is supposed to be the least desirable. 
 Otherwise they would have no elective power. 
 (DANIEL H. REMSEN, " Primary Elections." 
 
172 SUGGESTIONS ON GOVERNMENT. 
 
 The Hare system, with some such modification, 
 would be an ideal method of securing the representa- 
 tion of all shades of political opinion in exact propor- 
 tion to their strength in the community. Under it no 
 ingenuity on the part of politicians would enable a 
 popular minority to secure a majority of the repre- 
 sentatives by any means short of fraud in the count. 
 No other plan that allows complete liberty to the 
 individual voter offers an absolute safeguard against 
 this possibility. The Free List system secures the 
 same result as far as parties are concerned, but it 
 sacrifices the preferences of the individual. The 
 plans of election by preponderance of choice, such 
 as the Burnitz system, and that employed by the 
 labor party in Cleveland, are peculiarly susceptible 
 to the danger of minority rule in its most aggravated 
 form. The Cleveland method is thus described by 
 Dr. L. B. Tuckerman : 
 
 "(i) Each voter will write on his ballot as many 
 names as there are persons to be chosen, writing the 
 names in the order of his choice ; first choice, first ; 
 second choice, second ; and so on. 
 
 " (2) In tallying the vote, the tellers will read the 
 last name on each ballot first, crediting that name 
 with one tally ; the name next to the last second, 
 crediting the same with two tallies ; and so on, always 
 crediting the name written first on each ballot with 
 as many tallies as there names written on that ballot. 
 And if a voter fails to write as many names as he is 
 allowed to, no variation is made in the method of 
 tallying the voter simply loses so much of his 
 vote, which he has a right to do, if he chooses the 
 
PROPORTIONAL REPRESENTATION. 173 
 
 last name still counts one tally, the next to the last 
 two, and so on. 
 
 "(3) The person receiving the highest number of 
 tallies is first declared elected ; the person receiving 
 the next highest, next, and so on, until all the vacan- 
 cies are filled. In case of a tie, with but one vacancy 
 to be filled, the incumbent is determined by lot. 
 
 " The practical working of this rule (and we have 
 tried it over and over again) is that every element 
 in the electing body large enough to have a quota 
 finds itself proportionately represented, and by its 
 own first choice or choices." 
 
 This desirable result would be attained under this 
 system as long as all the voters acted freely and 
 independently, but it would always be easy for an 
 organized minority to beat an unorganized majority. 
 A simple example will make the point clear. Sup- 
 pose a constituency in which there are five hundred 
 Democratic and four hundred and fifty Republican 
 voters. Suppose that five places are to be filled, and 
 that the Democrats, acting without concert, divide 
 their vote equally among twenty candidates, while 
 the Republicans, disciplined by an efficient machine, 
 concentrate their votes on five candidates in uniform 
 order. The vote of each of the twenty Democratic 
 candidates would be : 
 
 25X5+25X4+25X3+25X2+25 = 375 
 
 The vote of the five Republican candidates would 
 
 be: 
 
 A 450X5 = 2,250 
 B 450X4 1.800 
 C 450X3 - 1,350 
 D 450X2= 900 
 E 450X1= 450 
 
174 SUGGESTIONS ON GOVERNMENT. 
 
 Thus the minority would elect its entire ticket, 
 and the majority would not secure a single repre- 
 sentative. The possibility of such a result, of course, 
 would necessitate the creation of a strong Demo- 
 cratic machine to prevent the waste of the Demo- 
 cratic vote, and thus the politicians would be restored 
 to power, independent action within the parties 
 would be effectually suppressed, and the only 
 advantage gained would be the division of the offices 
 between the organized parties and such numerous 
 bodies of independents as could agree upon joint 
 action outside of them in fair proportion to their 
 numbers. 
 
 The same results would follow from the Burn it/, 
 system, which is simply the Cleveland system 
 inverted. Under this plan the lower-ehoiee votes 
 are divided by the numbers representing the order 
 of choice, instead of multiplying the higher-choice 
 votes by the numbers in inverse order. Treating 
 by this method the example already cited, we have 
 five hundred Democratic votes equally divided 
 among twenty candidates, each of whom would 
 receive : 
 
 The four hundred and fifty Republican votes 
 
 would be distributed among five candidates thus: 
 
 A *fo 45 o 
 
 6430 = 225 
 
 C 4 = 150 
 
 D *0 = H2\ 
 
 E -<8> = 90 
 
 All the candidates of the minority party would 
 have more votes than any of the majority party, and 
 
PROPORTIONAL REPRESENTATION. 175 
 
 all would be elected. This possibility is inseparably 
 involved in any system that admits the principle of 
 decision by plurality. The only way to avoid it is 
 to require either an absolute majority or a definite 
 quota for an election. With that safeguard the 
 original voter can feel free to act as he pleases 
 without the fear of contributing to the defeat of 
 his party. Under the Hare system it is mathemat- 
 ically impossible for a minority of voters to secure a 
 majority of. representatives, unless under circum- 
 stances so exceptional as not to need to be taken 
 into account. 
 
 Complete proportional representation requires the 
 election of several members to insure fair results, 
 an odd number from one district. It is therefore 
 inconsistent with the uninterrupted control of the 
 constituents over their representatives, since no sin- 
 gle member has a definite constituency that can call 
 him to account. It implies election for prescribed 
 terms, or at least the simultaneous renewal of an 
 entire group of representatives, and I do not know 
 of any practicable method of combining it with the 
 continuous responsibility of the individual repre- 
 sentative to a determinate body of electors. This 
 continuous individual responsibility I regard as even 
 more important than the maintenance of an exactly 
 uniform proportion between the strength of the 
 various groups of electors and the numbers of their 
 representatives in the legislative body, especially as 
 the referendum and initiative would furnish a per- 
 fect corrective for any injustice that might occur in 
 connection with particular measures. Proportional 
 
176 SUGGESTIONS ON GOVERNMENT. 
 
 representation would insure the choice of men in 
 whom the people had confidence at the moment of 
 election, but it would not afford any guaranty that 
 the elected representatives would retain or deserve 
 that confidence the next day. That guaranty would 
 be given by the system of continuous effective 
 responsibility. Under one plan the people would 
 make successive disconnected trials at long inter- 
 vals, and they might make mistakes every time ; 
 under the other they could correct mistakes as soon 
 as they were discovered. It would be the difference 
 between shooting at a mark with a pistol and play- 
 ing on it with a hose. A good shot might fail to 
 plant his bullet in the right spot, but anybody could 
 turn the stream on it after a moment's experiment- 
 ing. 
 
 But although all the advantages of proportional 
 representation in its most perfect form can not be 
 be combined with that election by single-membered 
 constituencies, which is essential to complete and 
 uninterrupted responsibility, there is no reason why 
 some of them should not be. The preferential prin- 
 ciple can be applied as well to the election of one 
 member as to that of several. Suppose, for instance, 
 that in a certain assembly four hundred and fifty 
 votes are cast, of which two hundred and fifty are 
 Democratic and two hundred Republican. I use the 
 party names, although I think that party divisions 
 would not long survive the accomplishment of the 
 various changes heretofore proposed. Suppose the 
 Democratic vote were divided among five candidates, 
 and the Republican among two, in these proportions : 
 
PROPORTIONAL REPRESENTATION. 177 
 
 DEMOCRATIC. REPUBLICAN. 
 
 Wilson 80 McKinley 105 
 
 Mills _ _ 75 Reed 95 
 
 Crisp _ 40 
 
 Johnson 30 
 
 Cockran ...25 
 
 Suppose that a clear majority were required to 
 elect, but that each voter were allowed to indicate 
 his preference among the different candidates, after 
 his first choice, his vote being counted for the one 
 for whom it would first become effective. Suppose 
 that, in the absence of a majority for any candidate, 
 it were required to eliminate successively the candi- 
 dates having the fewest first-choice votes and dis- 
 tribute their votes among the others in the order of 
 preference. We should begin, then, in the case 
 assumed, by dropping Mr. Cockran. The distribu- 
 tion of his votes according to the next choice of 
 those who cast them might give Wilson 90, Mills 85, 
 Crisp 43, and Johnson 32, with the votes of Reed and 
 McKinley unchanged. Johnson would go next, and 
 his 32 votes might raise Wilson's strength to 105, 
 while Mills might have 95, and Crisp 50. Next 
 Crisp would be eliminated, giving Wilson, perhaps, 
 135, and Mills 115. Reed would now drop out, and 
 all his votes would go to McKinley, who would have 
 200. Lastly Mills would be excluded, and, with the 
 addition of his 115 votes, Wilson would have 250 
 and be elected. The Democratic majority, which 
 under the prevailing plan of plurality elections 
 would have been defeated, unless its members 
 had abandoned the privilege of independent voting, 
 would be successful, and would be represented by 
 
 12 
 
178 SUGGESTIONS ON GOVERNMENT. 
 
 the man of its choice, without the intervention of a 
 political machine. 
 
 Of course if a number of assemblies were com- 
 prised in the constituency holding the election, the 
 transfers of votes just described would not be made 
 in each assembly, but would be effected by the cen- 
 tral canvassing authority. If it happened that so 
 many candidates were in the field, and the factional 
 divisions were so pronounced, that a majority could 
 not be secured, even after all possible eliminations 
 and transfers had been made, a new election would 
 be ordered, as described in the first chapter. The 
 choice in this case would be limited to the candi- 
 dates remaining in the field at the close of the first 
 count, if the number did not exceed five, or to the 
 five highest if it did. If there were no choice on 
 this trial, a third ballot between the two highest 
 would settle it. 
 
 This system would absolutely dispense with all 
 occasion for caucuses, conventions, or party machin- 
 ery of any kind. If parties continued to exist, which 
 would be hardly possible, no voter would need to 
 pay any attention to tickets prepared in advance, 
 for anybody could vote for any candidate he pre- 
 ferred without in the least endangering the success 
 of his party. The majority would rule, whether it 
 scattered its first-choice votes or not, and the bosses, 
 whose present influence is derived from the fact 
 that they can pin the rank and file of the citizens to 
 the alternative of voting the regular ticket or incur- 
 ring party defeat, would have to go out of politics. 
 
CHAPTER XIV. 
 
 THE WORK OF THE POPULAR ASSEMBLY. 
 
 As our political system is now organized, the 
 individual voter has nothing to do except to read 
 his paper if he can read attend the primaries, 
 if he think it worth while, argue with his neighbors, 
 and vote once a year, or once in two years, for a list 
 of candidates prepared for him by his party mana- 
 gers. This degree of political activity is certainly 
 better than absolute stagnation, of the Russian 
 kind. But it is far from exerting the stimulating 
 and enlightening effect that would be produced by 
 such a system of organized effort as would be 
 created by the enrollment of the whole voting 
 population in a network of primary assemblies, 
 invested with jurisdiction over all departments of 
 government, local, State, and national. 
 
 Let us suppose this system in operation, and try 
 to picture to ourselves the ordinary course of pro- 
 ceedings in the assemblies. It is the night of the 
 regular monthly meeting of the assembly of the 
 nineteenth precinct of New York City. There are 
 six or seven hundred voters in the hall the pre- 
 cincts in New York being unusually large. The 
 gathering is called to order by the chairman of the 
 previous meeting, a new chairman is elected, he 
 appoints a secretary, and the assembly is ready for 
 
 (179) 
 
180 SUGGESTIONS ON GOVERNMENT. 
 
 business. A member of Good Government Club A 
 rises to remark that there have been rumors of 
 corruption in the police force, and asks the council- 
 man for the precinct, who is in attendance at the 
 meeting, what he knows about it, and what he pro- 
 poses to do. The councilman responds that he has 
 heard of the rumors referred to, and will bring them 
 to the attention of the superintendent of police at 
 the next meeting of the council, and insist upon a 
 satisfactory explanation, or the removal of the 
 accused officials. 
 
 A citizen complains that the milkmen disturb his 
 rest by rattling over the streets before daylight. 
 A milkman explains that it is necessary to be out 
 early, but that the wagons would cause no disturb- 
 ance were it not for the bad condition of the street 
 pavements. Thereupon a resolution is passed 
 instructing the councilman to find out exactly what 
 defects there are in the pavements and who is 
 responsible for them, and report at the next meet- 
 ing. 
 
 A resolution is offered calling for a popular vote 
 on the proposition to abolish the State and local 
 taxes upon personal property and improvements. 
 After some discussion it is laid over until the next 
 meeting for further consideration. 
 
 The representative in Congress from the district 
 having died, and due notice having been given that 
 an election would be held this evening, nominations 
 are called for. Half a dozen candidates are pro- 
 posed, most of them being well-known men whose 
 names are offered at the same time in all the other 
 
THE WORK OF THE POPULAR ASSEMBLY. 181 
 
 precincts of the district. The hand-stamps and blank 
 slips of paper are put in the booths, and the voters 
 enter one by one and prepare their ballots, stamping 
 as many names as they please in the order of their 
 preference. When the voting is completed the 
 chairman and secretary count the ballots in the 
 presence of the meeting, and under the immediate 
 supervision of representatives of the various candi- 
 dates. The returns and ballots are then sealed and 
 forwarded to the Secretary of State for the final 
 canvass with the votes of the other precincts in the 
 district. 
 
 The next meeting, in addition to dealing with such 
 local matters as demand attention, may have to take 
 action upon a new tariff, and the next may be called 
 upon to handle the question of woman suffrage, or 
 prohibition. In the course of a year all the great, 
 practical problems of government would receive 
 intelligent discussion, and some of them would reach 
 a definite settlement. 
 
 The average Athenian citizen, who did not read 
 books, but received his education by' public discus- 
 sion in precisely this way, has been said to have 
 been better trained politically than the average 
 member of the British House of Commons. The 
 illiterate American citizen is now almost totally 
 inaccessible to enlightening influences, but the pop- 
 ular assembly would give him more instruction than 
 is enjoyed at present by the ordinary reader of books 
 and papers. The " ignorant vote" then would lose 
 most of its dangers, even if men unable to read and 
 write were allowed to continue to take part in politics. 
 
182 SUGGESTIONS ON GOVERNMENT. 
 
 But it is not likely that they would enjoy that privi- 
 lege very long. The result of the referendum in 
 California, on the question of establishing an educa- 
 tional qualification, indicates clearly that the masses 
 of the people do not consider the rule of illiterates 
 an essential part of popular government. No doubt 
 one of the first acts of a true democracy would be 
 to make education universal and compulsory on the 
 one hand, and to ordain, on the other, that nobody 
 should be intrusted with a share in the government 
 until he had availed himself of the privileges so 
 offered. 
 
 If the system of popular assemblies once took root 
 it is likely that the meeting-hall would supply the 
 need of a bond of union for the neighborhood. The 
 church used to be such a center of neighborly asso- 
 ciation, and in the country districts the schoolhouse 
 is now. But the precinct assembly hall would be 
 something more than either. It would touch the 
 life of the community at all points. In time, endear- 
 ing associations would grow up around it. In many 
 cases public-spirited citizens would give their pre- 
 cincts handsome buildings, which, in addition to the 
 meeting-halls, would contain libraries, gymnasia, 
 baths, and club-rooms. In other cases the people 
 would provide such buildings for themselves by tax- 
 ation. Instead of a huge, chaotic aggregation of 
 unconnected atoms, the nation would be a harmo- 
 nious organism, with every atom occupying a recog- 
 nized place. The individual citizen would have a 
 civic home ; he would be surrounded in his precinct 
 assembly and club-house with faces that would soon 
 
THE WORK OF THE POPULAR ASSEMBLY. 183 
 
 become familiar ; he would daily enjoy and appre- 
 ciate the advantages of public order, and no man 
 would be rendered indifferent to good government 
 by the feeling that las poverty deprived him of any 
 "stake in the country/- 
 
CHAPTER XV. 
 
 THE BOSS. 
 
 America has made two striking and original con- 
 tributions to the art of government. One is the 
 Supreme Court, invested with power to annul uncon- 
 stitutional legislation. The other is the Boss. The 
 former contribution is the one in which the Amer- 
 ican people take more pride, but the latter surp 
 it in practical importance. 
 
 Every form of government develops its own types 
 of leadership. Some forms breed demagogues, oth- 
 ers statesmen, others military adventurers, others 
 seraglio intriguers, others masterful orators. Ours 
 breeds bosses. From a scientific point of view the 
 system of boss-rule is one of the most perfeet and 
 beautifully complex developments of modern civili- 
 zation. It is a convincing illustration of the possible 
 stability of a pyramid resting on its apex. The apex 
 on which the boss rests his pyramid of government 
 is a body of a few hundreds or thousands of men, 
 who agree to render him any political serviees 
 required in exchange for support at the public 
 expense or protection in unlawful occupations. 
 This force he employs to gain possession of the 
 machinery of a party preferably the one locally 
 dominant. 
 
 Unless there is a rival boss in possession, this is 
 
THE BOSS. 185 
 
 not hard, for it is an unprofitable political servant 
 that can not make the tour of a dozen primary polling 
 places, and deposit at least one vote at each in the 
 course of a day. Against such a force, an undisci- 
 plined mob of reformers, limited to one vote each, 
 and giving politics only such attention as they can 
 spare from more serious occupations, is as helpless 
 as an infant Sunday-school class against a regiment 
 of regulars. When there are two aspirants for the 
 boss-ship, the one that gets control of the member- 
 ship rolls and the counting machinery of the party 
 wins. So conclusive is this preliminary test of 
 strength considered, that the embryo boss who fails 
 here generally declines to trouble himself with the 
 useless formality of voting his followers at the 
 primaries, but either bolts or makes terms with 
 his successful rival, and waits for a more favorable 
 opportunity. 
 
 Having once carried the primaries, the new polit- 
 ical leader finds easy sailing thereafter. He holds a 
 convention and nominates a local ticket, which, by 
 virtue of its " regularity," commands the support of 
 the entire party and is duly elected. The retainers 
 who have made the victory possible are appropriately 
 rewarded, some with city offices, some with contracts 
 or jobs under contractors, and some with police protec- 
 tion in dive-keeping, and other less reputable occu- 
 pations, whose profits depend on a good understand- 
 ing with the governing powers. The hold of the 
 boss on the party machinery is strengthened by 
 purging the rolls of the precinct clubs or associa- 
 tions of unruly members, and manning the organ- 
 
186 SUGGESTIONS ON GOVERNMENT. 
 
 ization throughout with officers who can be depended 
 upon to let in only the right kind of votes at the 
 primaries, and to correct in the counting any mis- 
 takes that may accidentally occur in the voting. 
 The dictator is now in a position to make the 
 political war pay its own expenses, and a handsome 
 profit in addition. Beside the regular percentage on 
 salaries, which his retainers in office cheerfully pay 
 as the skipper's proportion of the booty captured on 
 a successful cruise, he levies assessments on rich 
 corporations in need of official favors; on large 
 property-holders who wish to pay small taxes; on 
 saloon-keepers who desire to conduct their estab- 
 lishments under liberal interpretations of the laws ; 
 on gamblers, confidence men, and other followers of 
 vicious professions ; on purveyors of public supplies ; 
 on contractors for municipal work, and in short on 
 everybody whom the local government can either 
 help or harm. His power brings in wealth and his 
 wealth procures more power. He sends a solid 
 delegation to the State convention of his party, and, 
 by judicious combinations with the friends of candi- 
 dates from different sections, he allies his machine 
 with the State organization, and through it, if suc- 
 cessful at the polls, with the State government. He 
 sends another solid delegation to the Legislature, 
 and markets its votes on the most favorable terms. 
 Finally, if ambitious, he exerts his power as a State 
 leader in the national convention, and later, under 
 favoring conditions, his trades with the boss of the 
 other party for local offices may determine the choice 
 of a President of the United States. This is the 
 
THE BOSS. 187 
 
 mighty pyramid that rests upon the apex of a little 
 band of political men- of -all-work willing to devote 
 their entire attention to the duties laid out for 
 them by their employer. And the curious thing 
 about it is that this delicately balanced pyramid is 
 in a state of stable equilibrium. When disturbed it 
 always tends to return to its position on its point 
 never to one on the broad base of popular rule. If, 
 by a superhuman effort, it is set squarely upon its 
 base, it rolls over on its point again as soon as the 
 reformers who righted it let go their hold. 
 
 This apparent paradox is merely the inevitable 
 outcome of the principles of human nature. The 
 boss wins because at each stage of his proceedings 
 his forces are stronger than those of his opponents. 
 His drilled mercenaries are more effective for 
 carrying primaries than the undisciplined levies, 
 hampered by the troublesome impedimenta -of con- 
 scientious scruples, that oppose them. When the 
 primaries are carried, he has at his disposal the 
 potent force of party spirit. His fortunes in the 
 campaign are linked with those of the national 
 organization that holds a prescriptive right to the 
 support of a majority of the voters of the city. 
 Opposition to his ticket is disloyalty to the party. 
 When he has attained power he commands the 
 alliance of the great interests that consider it 
 necessary to stand well with the authorities; and 
 all the men for whom he has procured office or 
 other favors, together with their relatives and 
 friends, are diligent workers in his behalf. Here, 
 as everywhere, it is the first step that costs. The 
 
188 SUGGESTIONS ON GOVERNMENT. 
 
 first primaries of the boss correspond to the mil- 
 lionaire's first ten thousand dollars. After the 
 foothold is gained, power flows in on one as wealth 
 on the other. And even a complete victory at the 
 primaries is not indispensable, unless there is another 
 boss to fight. When there are only unorganized 
 reformers to contend with, the boss can win if he 
 can control a third or a fourth of the delegates in a 
 convention. With that force available for trading, 
 only a few judicious combinations are needed to 
 secure a majority. 
 
 .The boss system, having grown up of itself under 
 our present political methods, has thereby proved 
 its appropriateness to its environment. It is a 
 of the survival of the fittest, or rather of creation by 
 direct adaptation. Boss-rule has come to fill what 
 would otherwise have been a political vacuum. 
 And, although absolutely bad, it is not relatively an 
 unmixed evil. It does for us after a fashion what, 
 without it, we should have no means of having done 
 at all. It introduces a certain unity and responsi- 
 bility into the chaos of American municipal govern- 
 ment. When streets are dirty, sewers dilapidated, 
 schools inefficient, and police corrupt, the people 
 may not know what particular officials are legally 
 responsible, but they do know that their boss is not 
 giving them a good government, and that it is time 
 to change bosses. Sometimes, where abuses have 
 been flagrant and the public patience sorely tried, 
 such a realization has been known to work an 
 improvement that has lasted for as much as two or 
 three years. 
 
THE BOSS. 189 
 
 As the boss is the creation of our present methods, 
 the question arises whether he would flourish if the 
 system of government were changed. The natural 
 presumption is that he would not. A type of animal 
 life developed in accordance with the needs of life 
 on land would not flourish in the water. The very 
 perfection with which an organism meets the require- 
 ments of one environment is a disadvantage to it 
 when placed in another, and certainly there is no 
 more highly specialized type of animal life than the 
 boss. But let us imagine the experiment tried. 
 Suppose an aspirant for the career of a boss to make 
 his attempt in a city of five hundred thousand inhabit- 
 ants, organized on the plan heretofore described. As 
 there is no general ticket to be elected, there can be 
 no primaries to capture. The embryo boss must send 
 his retainers into two hundred precinct assemblies, 
 each containing several hundred voters of all parties 
 (if parties continue to exist) and induce at least two- 
 thirds of them to recall their councilmen and elect 
 others favorable to his schemes. As it is hardly sup- 
 posable that his forces at the start will be numerous 
 enough to allow him" to spare more than five or six 
 men to each assembly, and as impromptu nomina- 
 tions and the preferential system of voting will 
 make it impossible for him to secure any advantage 
 from the presentation of a "regular ticket," he is 
 likely to find his undertaking rather arduous before 
 he goes any farther. But assuming that five or six 
 heelers are able to hypnotize four or five hundred 
 voters in each precinct, the next step offers still more 
 serious difficulties. The mayor must be removed, 
 
190 SUGGESTIONS ON GOVERNMENT. 
 
 for until this is done the retainers of the boss can 
 not get the rewards earned by their extraordinary ser- 
 vices. But to remove the mayor, two months' notice 
 is necessary, and that means an appeal to the pre- 
 cinct assemblies, now fully aroused from their 
 hypnotic trance. But, suppose even this ordeal 
 passed, the mayor removed, one subservient to the 
 boss elected, and a clean sweep made of the subor- 
 dinate officials for the benefit of the invading force. 
 Instead of being ended, the work of the new dictator 
 would have only begun. He would have proceeded 
 thus far, simply because the people had allowed him 
 to do so. If, at any time, they became dissatisfied 
 with his rule, they could resume their control as 
 easily as if they had never given it up. The boss 
 could not fight from behind the intrenchments of 
 subservient committees and packed primaries. He 
 would have to stay out in the open, where his vote, 
 like that of each of his followers, would count one, 
 and the majority could always rule if it chose. And 
 the fact that he retained his political existent 
 one day would give no assurance that he would keep 
 it the next. Whenever the people took offense 
 and a boss never fails to offend them sooner or 
 later they could extinguish him on the instant, 
 withoiit waiting for a distant election day with the 
 chance that their anger might cool in the meantime. 
 And even while his power lasted the boss would be 
 deprived of the most precious privileges of his class. 
 He could not assess corporations and millionaires 
 for the price of favorable city ordinances, for every 
 such ordinance would be subject to rejection by 
 
THE BOSS. 1.91 
 
 popular vote. In such circumstances, is it likely that 
 a boss could even begin to grow ? 
 
 A boss is a specialist, who finds his opportunity in 
 the management of political machinery too compli- 
 cated to be worked by any but professional hands. 
 When the machinery is made so simple that the 
 people can work it easily and surely for themselves, 
 the boss will disappear. 
 
CHAPTER XVI. 
 
 THE REFERENDUM IN CALIFORNIA. 
 
 While direct legislation is still generally regarded 
 as a foreign novelty, its principle is recognized to a 
 greater or less extent in every State in the Union. 
 No State has made greater advances in this direc- 
 tion than California, where the abuses of power by 
 officials have been so flagrant as to compel the 
 people to take continually greater shares of the 
 work of law-making into their own hands. 
 
 Like other States, California is governed under a 
 constitution adopted by popular vote. In 1879, 
 when the present constitution was ratified, the 
 people were asked to express at the polls their 
 opinion on the subject of Chinese immigration. 
 The result of this referendum (883 in favor of the 
 Chinese to 154,638 against them), in conjunction 
 with a similar vote in Nevada, had much to do with 
 the inception of the national restrictive legislation 
 that followed. The practice of consulting the 
 people with regard to proposed policies took root, 
 and has since been widely applied. At the election 
 of 1892 four propositions were thus submitted to 
 vote. One of them related to an educational quali- 
 fication for the suffrage. It might have been 
 supposed that such a measure would be unpopular, 
 and certainly no legislature would have ventured to 
 
 (192) 
 
THE REFERENDUM IN CALIFORNIA. 193 
 
 commit itself to it without knowing what the voters 
 thought. The result showed that a majority in 
 every county in the State favored the restriction of 
 the suffrage, the aggregate vote cast for the propo- 
 sition being 151,320 to 41,059 against it. With this 
 encouragement the next Legislature found no diffi- 
 culty in framing a constitutional amendment, 
 limiting the franchise to men able to read the 
 constitution in the English language and write 
 their names, and nobody undertook to amass polit- 
 ical capital by denouncing the scheme as an attempt 
 to create an aristocracy. Another proposition voted 
 upon at the same time was one to settle the question 
 whether the people wanted to elect United States 
 Senators themselves, or whether they preferred to 
 have the work done by the legislatures. The people 
 decided, by a vote of 187,958 to 13,342, that they 
 would rather do it themselves, and again the fifty- 
 four counties were all agreed. 
 
 The new constitution of California is less a consti- 
 tution than a code of laws. Having tasted the pleas- 
 ures of law-making, the people are pursuing them 
 with progressive avidity. In 1890 they voted on 
 one constitutional amendment ; in 1 892 on five, and 
 this year they will vote on nine. They would have 
 had ten before them this year if the Supreme Court 
 had not decided that one of the proposed amend- 
 ments had been improperly submitted. The tend- 
 ency of these changes in the organic law is all in 
 the direction of taking power away from representa- 
 tive bodies and giving it to the people immediately 
 interested. For instance, all city charters used to be 
 
 13 
 
194 SUGGESTIONS ON GOVERNMENT. 
 
 framed by the Legislature. Then cities of over one 
 hundred thousand inhabitants were given the power 
 to adopt their own charters, subject to legislative 
 approval. Next this privilege was extended to cities 
 of ten thousand inhabitants, and now it is enjoyed 
 by all places with three thousand five hundred or 
 over. A fertile source of scandal in past sessions of 
 the Legislature has been the formation of new coun- 
 ties. A constitutional amendment to be voted on 
 this year will abolish this by authorizing the Legis- 
 lature to pass general laws, under which the people 
 who desire to form new counties will be able to do it 
 for themselves. 
 
 No county, city, town, township, or school district 
 is allowed to incur any indebtedness without the 
 assent of two-thirds of its qualified electors voting 
 at an election. Whenever a new schoolhouse is to 
 be built, or a sewer system constructed, or any 
 other public work undertaken, for which an issue of 
 bonds is necessary, the people have to sanction it by 
 their votes. Even the Legislature can not raise the 
 State debt above $300,000 without the consent of the 
 voters, which is equivalent to saying that it can not 
 now incur any new indebtedness at all. 
 
 The establishment of high schools, by counties, 
 towns, or union districts, has been left to the people 
 at the polls. 
 
 The control of irrigation is in the hands of the 
 people of the localities interested. The voters in 
 any drainage area may have an irrigation district 
 marked off, with such boundaries as they desire, and 
 may authorize an issue of bonds for the construction 
 
THE REFERENDUM IN CALIFORNIA. 195 
 
 of canals and ditches, the condemnation and purchase 
 of water-rights, and other purposes appropriate to 
 the objects desired, and the payments on these bonds 
 are met by taxes on the lands in the districts. 
 
 But the longest advance toward direct popular 
 rule was made by the last Legislature, which 
 inserted a provision in the county government law, 
 requiring the board of supervisors of any county, 
 on petition of half the qualified electors, to submit 
 any proposed ordinance to vote, and making such 
 ordinances, when ratified by a majority at the polls, 
 valid as if passed by the supervisors in the ordinary 
 way. This, of course, is the initiative in its com- 
 pletest form, the only material variation from the 
 Swiss system being the large proportion of signa- 
 tures required to set it going. In view of the ease 
 with which signatures to petitions are obtained in 
 this country, this is not a serious defect. Any 
 measure for which there is an earnest, popular 
 demand, can easily command the required number 
 of names. 
 
 At the last session of the Legislature, an attempt 
 was made to secure the submission of a constitu- 
 tional amendment establishing the initiative and 
 referendum in State matters. The referendum 
 alone could probably have been obtained, but the 
 legislative mind had not been educated quite up to 
 the initiative, and the two fell together. It is con- 
 fidently expected that both will be gained at the 
 coming session. Should this expectation prove well 
 founded, California may be the first American State 
 to establish true democratic government. 
 
CHAPTER XVII. 
 
 SOME PRACTICAL EXAMPLES. 
 
 The test of a pudding is traditionally and justly 
 believed to be in the eating. If the methods of 
 government advocated in this book had been in 
 operation during the past quarter of a century, how 
 would they have affected the settlement of the 
 practical problems we have been called upon to 
 meet within that time ? 
 
 In municipal affairs the most striking instance of 
 misgovernment recorded in American history was 
 the rule of the Tweed ring in New York. Tweed 
 was a boss who rose to power like any other boss, 
 except in so far as his methods were modified by 
 the fact that he had the peculiar organization of 
 Tammany to work with. The very existence of 
 such a ruler would have been impossible under a 
 system of government which gave the people com- 
 plete and continuous control over their agents, and 
 left no plausible ground on which political machines 
 could appeal for popular support. But if a Tweed 
 had been able to exist under such a system he could 
 never have maintained his frauds without detection 
 and punishment. Even if the ring had obtained 
 complete control of the mayor, the auditor, and all 
 the subordinate executive officials, it could not pos- 
 sibly have captured every member of a city council 
 
 (196) 
 
SOME PRACTICAL EXAMPLES. 197 
 
 elected independently by several hundred free popu- 
 lar assemblies, and all subject to recall at the pleas- 
 ure of their constituents. Even one such member, 
 representing one solitary uncorrupted precinct, would 
 have been able to lay bare all the records of the 
 ring, and after that the rest would have had to join 
 in the pursuit or be replaced by others who would. 
 As it was, although it was generally suspected that 
 something was wrong, the actual exposure of the 
 Tweed conspiracy depended upon the coincidence 
 of two extraordinary events. A subordinate official 
 copied off the secret accounts of the ring, and he had 
 the good fortune to intrust them to an incorruptible 
 newspaper proprietor. There was no certain, official 
 means of extracting information from unwilling cus- 
 todians. But for treason in his camp, combined with 
 his inability to buy back his betrayed secrets, Tweed 
 might have stolen millions more. 
 
 A parallel case is disclosed by the recent investi- 
 gations of the Lexow committee. But for a combi- 
 nation of national hard times and reckless political 
 mismanagement in the State, the party friendly to 
 Tammany would not have lost control of the Legis- 
 lature, and if the other party had not secured a ma- 
 jority there, no investigating committee would have 
 been appointed. But even after the investigation 
 had been held, and the truth about police corruption 
 extracted, little of practical importance was accom- 
 plished. Most of the smirched officials retained their 
 places, and Tammany offered the excuse, which was 
 sustained by the facts, that the blackmail and 
 bribery uncovered were not peculiar to its own rule, 
 
198 SUGGESTIONS ON GOVERNMENT. 
 
 but had existed under all city administrations. 
 Under the plan of popular government proposed, 
 no such excuse would have been available, for at the 
 first hint of corruption some member of the council, 
 not needing to wait for a partisan legislative majority 
 to order an investigation, would have probed for the 
 facts, and the guilty officers either would have been 
 dismissed at once or would have brought their supe- 
 riors down with them. In any case the question 
 would have been, not whether one political organi- 
 zation deserved more general blame than another, 
 but whether certain individual officials had been 
 guilty of specific misconduct or not. If they had, 
 they would have had to go, and their superiors 
 could not have shielded them without inviting the 
 same fate for themselves. 
 
 In State affairs an excellent example of the com- 
 parative working of the two systems is found in the 
 course of the New York Legislature with regard to 
 the government of certain cities. The Democratic 
 Legislature of 1893 passed a series of bills modify- 
 ing the governments of these places in the interest 
 of local politicians. That these measures were 
 locally unpopular was sufficiently demonstrated by 
 their political results, the vote of Erie County, for 
 instance, changing within a year from a small 
 Democratic plurality to a Republican plurality of 
 over ten thousand. Nevertheless, the bills had 
 passed, and they had to be subsequently repealed, 
 at the cost of much intervening trouble and con- 
 fusion. The only way in which Democrats could 
 resent an invasion of local self-government was to 
 
SOME PRACTICAL EXAMPLES. 199 
 
 assist in a political revolution which put the enemies 
 of their national policy into power and discouraged 
 the friends of Democratic principles throughout the 
 Union. With a government organized on the plan 
 suggested, no such trouble could have arisen in the 
 first place, because home rule is of the essence of 
 the system, and no Legislature would have had 
 authority to interfere with it. But if it had been 
 possible to start the schemes by which Mr. Sheehan 
 and his allies made so much trouble for themselves 
 and others, they could have been stopped before 
 they had accomplished any damage. The people of 
 Buffalo, and the other cities affected, could simply 
 have recalled their representatives, and the matter 
 would have been settled without a political upheaval. 
 Of course the actual procedure would have been that 
 when the representatives found how their conduct 
 was regarded at home, they would have abandoned 
 their plans before their constituents had a chance to 
 recall them. 
 
 In national matters the proposed system would 
 have saved us most of the troubles we have experi- 
 enced since the war. We should never had the 
 discreditable wrangle between Congress and Presi- 
 dent Johnson over reconstruction. The President 
 would not have had the veto power, but if he had 
 disapproved of the proposed legislation of Congress 
 he would have demanded the referendum, and that 
 would have ended the controversy. In the same 
 way the tariff and silver questions would have been 
 settled, sharply and decisively, nearly twenty years 
 ago, and we should have had peace. Obviously we 
 
200 SUGGESTIONS ON GOVERNMENT. 
 
 should not have had a disputed Presidential election 
 in 1 876, nor at any other time. We might have had 
 occasionally a close vote in Congress between two 
 popular candidates, but it is plain that such an inci- 
 dent would not have aroused the passions engendered 
 by a struggle involving the fate of two political 
 armies. 
 
 These are specimen instances. I can think of no 
 problem of government, national, State, or local, in 
 whose treatment the new methods would not bear 
 comparison with the old to equal advantage. 
 
CHAPTER XVIII. 
 1894-1897. 
 
 Events have moved rapidly in the past three years. 
 The dangerous tendencies that were apparent when 
 the foregoing pages were written have developed 
 with accelerated speed. Americans have experienced 
 the novel and painful sensation of rinding their re- 
 pi:,)lic regarded abroad as the awful example instead 
 of as the model of nations. Boss rule has intrenched 
 itself in the government of states and cities. The 
 Legislature of New York, under the absolute control 
 of one man, has passed measures of the most momen- 
 tous importance without debate and in sovereign dis- 
 regard of the protests of the great communities 
 whose interests have been sacrificed. Chicago has 
 seen herself robbed of her streets for fifty years to 
 come by a corrupt Legislature and City Council, and 
 all her two million people have been powerless to pre- 
 vent the outrage. San Francisco has suffered her 
 annual betrayal to her water, gas and street-railroad 
 monopolies. 
 
 In national affairs we have had three more years of 
 imbecile trifling with the currency question, and we 
 have witnessed another complete tariff transforma- 
 tion, with its accompanying scandals. The Senate 
 has displayed its power for evil more conspicuously 
 than ever before. A treasury unable to make both 
 
 (201) 
 
202 SUGGESTIONS ON GOVERNMENT. 
 
 ends meet has been further depleted of millions to en- 
 rich the Sugar Trust. Under both Cleveland and 
 McKinley Congress and the President have worked 
 at cross purposes, and neither the executive nor the 
 legislative branch of the government has been able to 
 carry out a consistent policy. 
 
 The people of Greater New York are looking for- 
 ward with dread to their fate under the cumbrous 
 charter fastened upon them by the boss who owns the 
 State Legislature. The elaborate political machin- 
 ery, so ingeniously devised to make its management 
 impossible to any but professional hands, shuts out the 
 mass of the voters from any effective and continuous 
 control of the work of administration, and makes it 
 certain that the intervals of reform will be only rare 
 and brief exceptions to the rule of bad government. 
 The paper checks of constitutions are giving way 
 everywhere before the scientific advances of the 
 trained and skillfully led forces of corruption. 
 " Slowly but surely," says Mr. Joseph B. Bishop, in 
 the Century, " the boss extends his system until he 
 gets possession of all the functions of the govern- 
 ment. He gets control of the executive and the leg- 
 islature first, and later of the judiciary, and then his 
 deadly clutch upon the popular sovereignty is com- 
 plete. We have had instances in more than one State, 
 during the past year, of the fatal advance upon this 
 final stronghold. ... If the bench shall really fall 
 into the hands of the blackmailing boss, popular gov- 
 ernment will cease to exist in the States over which 
 he rules." 
 
1894-1897- 203 
 
 And Mr. E. L. Godkin, writing in the Atlantic of 
 the breakdown of representative government, has 
 this to say of the condition of the legislative power in 
 the chief State of the Union: 
 
 " If I said, for instance, that the legislature at Al- 
 bany is a school of vice, a fountain of political de- 
 bauchery, and that few of the younger men come 
 back from it without having learned to mock at po- 
 litical purity and public spirit, I should seem to be 
 using unduly strong language, and yet I could fill 
 nearly a volume with illustrations in support of it." 
 
 The causes that have brought about the present 
 practical failure of republican government in America 
 are so numerous and complex that it would need work 
 on half a dozen different lines economic, political, 
 social, moral, religious and educational to deal with 
 them all. Before we can expect a perfect govern- 
 ment we must have a profound regeneration of in- 
 dividual character and of social standards, and these 
 are impossible under a vicious economic system a 
 system which sets continually before the eyes of the 
 public official the corrupting spectacle of knavery 
 successful and honored in private business. But 
 while political machinery cannot take the place of 
 personal character, nor undo the evil wrought by 
 social and economic maladjustments, it undoubtedly 
 has tremendous power, and there is no reason why 
 that power should not be exerted upward instead 
 of downward. And the need for such betterments 
 as are within reach has become too urgent to be 
 trifled with longer. In many states and cities the 
 
204 SUGGESTIONS ON GOVERNMENT. 
 
 republican form of government guaranteed by the 
 constitution has already been destroyed. If we have 
 an autocratic ruler it is a mere matter of detail that 
 we call him a boss, instead of a king, or a sultan, or a 
 czar. 
 
 When the preceding chapters were written I en- 
 deavored to show that the governmental machinery 
 there proposed would enable the people to suppress 
 the evils that had then become manifest. In the 
 three years that have elapsed since that time these 
 evils have grown more threatening, but everything 
 that has happened has tended to confirm the correct- 
 ness of this belief. Take, for instance, the most flag- 
 rant instance of the sacrifice of the rights of a com- 
 munity by its unfaithful representatives the passage 
 by the Illinois Legislature of the laws under which 
 the streets of Chicago have been given away to com- 
 binations of street railroad, gas and electric light 
 companies. Under the plan outlined these matters 
 would have been of purely local concern. The State 
 Legislature would have had nothing to do with them. 
 They would have been brought up, in the first in- 
 stance, in a council of about four hundred members, 
 each of whom would have been subject to recall by 
 his constituents. Before the ordinances could have 
 passed the council every member who favored them 
 would have been retired and replaced by another 
 pledged to oppose them. But even if it had been 
 possible to drive them through the council their pro- 
 moters would still have been as far as ever from suc- 
 cess. Their opponents could have demanded the 
 
1894-1897. 205 
 
 referendum, and unless a majority of all the voters in 
 the city desired to make a present of their property 
 to the corporations the scheme would have disap- 
 peared from view at that point. There would have 
 been no need for the din of remonstrance with which 
 the people and the press of Chicago vainly attempted 
 to avert the threatened spoliation the mass meetings, 
 the wild harangues, the triple-leaded editorials, the 
 shrieking news " features," the delegations of visiting 
 statesmen at the State capital. A simple explana- 
 tion of the nature of the proposed measure would 
 have insured its defeat, either through the mandate 
 of the constituencies to their representatives in the 
 council or through the referendum. 
 
 If the government of Greater New York had 
 been organized on these lines a charter of a dozen 
 pages, simple, easily understood by everybody, and 
 complete in itself, would have sufficed to regulate its 
 operations, instead of a volume of six hundred pages, 
 with several thousand additional pages of statutes 
 incorporated in it by reference. There would have 
 been none of the strain of anxiety that has prevailed 
 through the whole of the past year over the question 
 whether the first Mayor of the consolidated city would 
 be a reformer or a spoilsman, and consequently whether 
 the new metropolis would have a fair start in life or 
 would be dragged through the mire of corruption for 
 four years to come. There would have been no oc- 
 casion for conferences or deals between good citizens 
 and political bosses. Each group of three or four 
 contiguous precincts would simply have elected the 
 
206 SUGGESTIONS ON GOVERNMENT. 
 
 councilman whom the majority of its voters pre- 
 ferred, for such time as his work should prove satis- 
 factory, and without any nominating machinery or 
 any enforced co-operation of hundreds of thousand* 
 of electors in a single act, and the election of a suit- 
 able Mayor would have followed as a matter of 
 course. 
 
 If the curious reader will turn to Chapter VII of 
 this book, written during the Parkhurst reform upris- 
 ing of three years ago, he will find this remark about 
 the city government of New York: 
 
 " New York is governed by corporations of poli- 
 ticians organized to exploit the various sources of 
 revenue legitimately and illegitimately controlled by 
 the persons who hold the municipal offices. The cor- 
 poration at present in possession is known as Tam- 
 many Hall, but it is a mistake to suppose that the 
 defeat or even the total destruction of Tammany 
 would imply any permanent change in the methods 
 of municipal administration. It is estimated that the 
 city government of New York is equivalent to a cap- 
 ital of eight hundred million dollars, the income of 
 which may be enjoyed by whatever combination of 
 politicians succeeds in capturing it. It is doing vio- 
 lence to all the principles of human nature to imagine 
 that this booty will be left to the disposal of high- 
 minded political amateurs after the art of acquiring 
 it lias been so thoroughly taught by Tammany and 
 its predecessors. Reform is spasmodic, but greed is 
 permanent. Greed works all the time ; reform 
 works when it has no previous engagements. If 
 
1894-1897- 207 
 
 Tammany were destroyed, a new combination, just as 
 powerful and just as hungry, would be in control 
 within four years." 
 
 Political prophets cannot be held to an astronomi- 
 cal accuracy in the matter of dates, but in view of the 
 fact that the time allowed by this prediction has a 
 year yet to run, and taking into account the compli- 
 cations introduced by the creation of Greater New 
 York, it may be asked whether the rise of the Platt 
 machine does not fairly bear out the forecast. 
 
 In national affairs we have had a series of impres- 
 sive object-lessons in the disadvantages of the present 
 methods of government. Last year the currency and 
 the tariff questions, together with several minor is- 
 sues, were presented to the people together. Some 
 men voted for the successful party because they be- 
 lieved in the gold standard, others because, although 
 they were bimetallists, they were opposed to the inde- 
 pendent free coinage of silver; others because, al- 
 though advocates of free silver, they thought pro- 
 tection more important, others because, although 
 they would have liked both free trade and free silver, 
 they were afraid of " free riot " and " packing the 
 Supreme- Court;" others because they wanted liberal 
 pensions, and still others because they had always 
 voted the Republican ticket, and never would vote 
 any other, regardless of platforms or politics. No- 
 body knows what verdict the country rendered at 
 the polls. The idea was wide-ly prevalent at the time 
 that it had given a mandate for the reform of the cur- 
 rency on the gold basis, but the new President and 
 
208 SUGGESTIONS ON GOVERNMENT. 
 
 Congress evidently did not share this belief, for they 
 shelved the currency question while they proceeded 
 to enact a tariff law on the strictest protective lines. 
 It is certain that Mr. McKinley received the votes of 
 hundreds of thousands perhaps a million of free 
 traders, but on the other hand hundreds of thousands 
 of protectionists voted for Mr. Bryan. All we know 
 about the popular desires is that the number of citi- 
 zens who were superlatively anxious for the gll 
 standard, or international bimetallism, or a protective 
 tariff, or liberal pensions, or civil service reform, or a 
 vigorous foreign policy, or conservatism in dealing 
 with social questions, or who particularly objected to 
 an income tax, or dreaded interference with the Su- 
 preme Court, or who trained with the Republican 
 party from force of habit, exceeded by 651,016 out of 
 13,875,653 the number of those who considered free 
 silver, or a tariff for revenue, or free trade, or econ- 
 omy in government, or social reform, or an income 
 tax. or the abolition of government by injunction, 
 or the maintenance of Democratic or Populist 
 ciations, of sufficient importance to outweigh all 
 other issues. The result of this nebulosity of the 
 popular desires has been that Congress has acted 
 without any sense of responsibility to the people. It 
 has enacted such a tariff as nobody proposed during 
 the campaign; it has trifled with the currency ques- 
 tion, and it has given a group of predatory Senators 
 a free hand to repeat the forays in the interest of the 
 trusts which were carried on so successfully in 1894. 
 If the government had been organized on the princi- 
 
1894-1897. 209 
 
 pal of continuous responsibility no such campaign as 
 that of last year, with its dangerous class cleavage 
 and its hazard of all the interests of the nation on a 
 single cast of the dice, would have been possible. In 
 each Congressional district the man would have been 
 elected who seemed to his constituents personally 
 best fitted for the general work of legislation. In 
 due course the silver question would have been de- 
 bated in Congress on its merits, without regard to 
 its effect on the elections, and a free coinage bill 
 would have been either passed or defeated. In either 
 case the matter would have been carried before the 
 people, and a direct vote would have been obtained 
 on that single issue, uncomplicated by any personal 
 considerations or by any other policies. The same 
 course would have been pursued with regard to the 
 tariff and other matters of current interest. Mean- 
 while it is not likely that either Mr. McKinley or Mr. 
 Bryan would have been heard of as a Presidential 
 candidate. Each of these leaders won his promin- 
 ence as the representative of a principle one stand- 
 ing for protection, the other for free silver. With the 
 ultimate decision on matters of legislation relegated 
 to the people, acting directly on measures instead of 
 indirectly through the choice of men, the " standard- 
 bearer " would disappear, and a President would be 
 chosen simply on the ground of his probable effic- 
 iency as an administrator. 
 
 There is a general agreement among reformers 
 that the weakest point of our present methods of gov- 
 ernment is the system of nominations. It is here 
 
210 SUGGESTIONS ON GOVERNMENT. 
 
 that the boss finds the fulcrum that enables him to 
 move the political earth. The plan proposed would 
 abolish at a stroke the existing maze of nominating 
 machinery in whose management the ordinary citizen 
 who is unable to give his whole time to the work is at 
 such a hopeless disadvantage as compared with the 
 professional manipulator. There would be no formal 
 nominations until the day of election, and then every- 
 body would stand on an equality with everybody else. 
 There would be no machinery in whose management 
 the most expert boss would have any advantage over 
 the amateur reformer. 
 
 But while a complete change in our present sys- 
 tem would be most desirable it is not to be expected 
 4 hat it can be brought about at once, or in any short 
 time. Meanwhile the need for protection against 
 our most pressing clangers is urgent. There is not a 
 year, nor a month, nor a day to spare in checking the 
 corruption that is eating out the heart of the republic. 
 If there is any measure that promises substantial re- 
 sults, and for which the public mind is ripe, it should 
 be adopted without waiting for the slow process of a 
 general reorganization. Such a measure is the S\\ i>s 
 referendum. Its merits are pretty generally under- 
 stood by this time; its practical workings are familiar 
 to the American people in the shape of constitutional, 
 license and bond elections, and its extension to all 
 other important subjects would be merely a matter of 
 detail. Former opponents of the most conservative 
 type, such as Mr. Godkin, have come to admit its 
 necessity. While it would not cure all the existing 
 
1894-1897- 211 
 
 defects of our government, especially on the side of 
 administration, it would dry up the most prolific 
 sources of corruption. It would make it no longer 
 worth while for rich corporations and other appli- 
 cants for legislative favors to maintain pecuniary re- 
 lations with bosses. Legislation would cease to have 
 a money value. And when the taint of bribery dis- 
 appeared from our government, all other reforms 
 would become easy. 
 
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