Englishmen have, it is true, always remained faithful to their dominant political idea—the idea of freedom, and the English political and economic system is precisely the example of the ultimate disadvantage of basing national cohesion upon the application of such a limited principle. This principle, as we have seen in the preceding chapter, always operates for the benefit of a minority, whose whole object, after they have once won certain peculiar advantages, is to secure their perpetuation. The wealthy middle class, which at one time was the backbone of the Liberal party, has for the most part gone over to the Conservatives, because its interest has become as much opposed to political and economic egalitarianism as is that of the aristocracy: and the mass of the English people, whose liberation can never be accomplished under the existing regime of political and economic privilege, looks with complacency and awe upon the good time enjoyed by their betters. Popular bondage is the price of national consistency. A century of industrial expansion and over half a century of free trade has left the English people miserably poor and contentedly hopeless; and in the future the people cannot depend upon any increase even of the small share of the benefits of industrial expansion, which they have hitherto obtained, because the national expansion is itself proceeding at a much slower rate. The dole, which is now being accorded in the shape of old-age pensions, may fairly be compared to the free transportation to their homes with which the Bank of Monte Carlo assuages the feelings of its destitute victims. The national organization and policy is so arranged that the majority must lose. The result will be inevitably a diminution of the ability of the United Kingdom to hold its own in competition with its economic and political rivals; and in all probability this pressure from the outside will eventually force the English nation to reconsider the basis of its political and economic organization and policy.

IV

DEMOCRACY AND NATIONALITY IN FRANCE

The recent history and the present position of France illustrate another phase of the interdependence of the national and the democratic principles. The vitality of English national life has been impaired by its identification with an inadequate and aristocratic political principle. In France the effective vitality of the democracy has been very much lowered by certain flaws in the integrity of French national life. France is strong where England is weak and is weak where England is strong; and this divergence of development is by no means accidental. Just because they were the first countries to become effectively nationalized, their action and reaction have been constant and have served at once to develop and distinguish their national temperaments. The English invasions accelerated the growth of the French royal power and weakened domestic resistance to its ambitions. The English revolutions of the seventeenth century made the Bourbons more than ever determined to consolidate the royal despotism and to stamp out Protestantism. The excesses of the French royal despotism brought as a consequence the excesses of the Revolutionary democracy. The Reign of Terror in its turn made Englishmen more than ever suspicious of the application of rational political ideas to the fabric of English society. So the ball was tossed back and forth—the national temperament of each people being at once profoundly modified by this action and reaction and for the same cause profoundly distinguished one from the other. The association has been more beneficial to France than to England, because the French, both before and after the Revolution, really tried to learn something from English political experience, whereas the English have never been able to discover anything in the political experience of their neighbors, except an awful example of the danger of democratic ideas and political and social rationalism.

The ideas of the French democracy were in the beginning revolutionary, disorderly, and subversive of national consistency and good faith. No doubt the French democracy had a much better excuse for identifying democracy with a system of abstract rights and an indiscriminate individualism than had the American democracy. The shadow of the Old Regime hung over the country; and it seemed as if the newly won civil and political rights could be secured only by erecting them into absolute conditions of just political association and by surrounding them with every possible guarantee. Moreover, the natural course of the French democratic development was perverted by foreign interference and a constant condition of warfare; and if the French nation had been allowed to seek its own political salvation without interference, as was this English nation, the French democracy might have been saved many an error and excess. But whatever excuses may be found for the disorders of the French democracy, the temporary effect of the democratic idea upon the national fabric was, undoubtedly, a rending of the roots of their national stability and good feeling. The successive revolutionary explosions, which have constituted so much of French history since 1789, have made France the victim of what sometimes seem to be mutually exclusive conceptions of French national well-being. The democratic radicals are "intransigeant." The party of tradition and authority is "ultramontane." The majority of moderate and sensible people are usually in control; but their control is unstable. The shadow of the Terror and the Commune hangs over every serious crisis in French politics. The radicals jump to the belief that the interests and rights of the people have been betrayed and that the traitors should be exterminated. Good Frenchmen suffer during those crises from an obsession of suspicion and fear. Their mutual loyalty, their sense of fair play, and their natural kindliness are all submerged under a tyranny of desperate apprehension. The social bond is unloosed, and the prudent bourgeois thinks only of the preservation of person and property.

This aspect of the French democracy can, however, easily be over-emphasized and usually is over-emphasized by foreigners. It is undoubtedly a living element in the composition of the contemporary France; but it was less powerful at the time of the Commune than at the time of the Terror, and is less powerful to-day than it was in 1871. French political history in the nineteenth century is not to be regarded as a succession of meaningless revolutions, born of a spirit of reckless and factious insubordination, but as the route whereby a people, inexperienced in self-government, have been gradually traveling towards the kind of self-government best fitted to their needs. It is entirely possible that the existing Republic, modified perhaps for the purpose of obtaining a more independent and a more vigorous executive authority, may in the course of time give France the needed political and social stability. That form of government which was adopted at the time, because it divided Frenchmen the least, may become the form of government which unites Frenchmen by the strongest ties. Bismarck's misunderstanding of the French national character and political needs was well betrayed when he favored a Republic rather than a Legitimist monarchy in France, because a French Republic would, in his opinion, necessarily keep France a weak and divided neighbor. The Republic has kept France divided, but it has been less divided than it would have been under any monarchical government. It has successfully weathered a number of very grave domestic crises; and its perpetuity will probably depend primarily upon its ability to secure and advance by practical means the international standing of France. The Republic has been obliged to meet a foreign peril more prolonged and more dangerous than that which has befallen any French government since 1600. From the time of Richelieu until 1870, France was stronger than any of her continental neighbors. Unless they were united against her she had little to fear from them; and her comparative strength tempted her to be aggressive, careless, and experimental in her foreign policy. That policy was vacillating, purposeless, and frequently wasteful of the national resources. Eventually, it compromised the international position of France. After 1871, for the first time in almost three hundred years, the very safety of France in a time of peace became actively and gravely imperiled. The third Republic reaped the fruit of all the former trifling with the national interest of France and that of its neighbors; and the resulting danger was and is so ominous and so irretrievable that it has made and will make for internal stability. If the Republic can provide for French national defense and can keep for France the position in Europe to which she is entitled, the Republic will probably endure. And in that case it will certainly deserve to endure, because it will have faced and overcome the most exacting possible national peril.

Even the most loyal friend of France can, however, hardly claim that the French democracy is even yet thoroughly nationalized. It has done something to obtain national cohesion at home, and to advance the national interest abroad; but evidences of the traditional dissociation between French democracy and French national efficiency and consistency are still plainly visible. Both the domestic and the foreign policies of the Republic have of late years been weakened by the persistence of a factious and anti-national spirit among radical French democrats.

The most dangerous symptom of this anti-national democracy is that an apparently increasing number of educated Frenchmen are rebelling against the burdens imposed upon the Republic by its perilous international position. They are tending to seek security and relief, not by strengthening the national bond and by loyalty to the fabric of their national life, but by personal disloyalty and national dissolution. The most extreme of democratic socialists do not hesitate to advocate armed rebellion against military service in the interest of international peace. They would fight their fellow-countrymen in order to promote a union with foreigners. How far views of this kind have come to prevail, an outsider cannot very well judge; but they are said to be popular among the school teachers, and to have impaired the discipline of the army itself. Authoritative French journals claim that France cannot afford to run the risk of incurring the ill-will of Germany, even in a good cause, because the country is no longer sure of its military efficiency. There is no present danger of this anti-nationalist democracy capturing control of the French government, as did the revolutionary democracy at an earlier date; but its existence is a source of weakness to a nation whose perilous international situation requires the most absolute patriotic devotion on the part of her sons.

Unfortunately, it is also true that the official domestic policy of the Republic is not informed by a genuinely national spirit. Just as the English national interest demands the temporary loosening of traditional bonds for the sake of securing national cohesion at a smaller sacrifice of popular vitality, so, on the contrary, the French national interest demands more of the English spirit of compromise for the sake of national consistency. The wounds dealt to the integrity of French national life by the domestic conflicts of four generations require binding and healing. The Third Republic has on the whole been more national in its domestic policy than were any of the preceding French governments for over two hundred years; but it has still fallen far short of its duty in that respect. The healing of one wound has always been followed by the opening of another. Irreconcilable differences of opinion still subsist; and they are rarely bridged or dissolved by any fundamental loyalty of patriotic feeling. The French have as yet been unable to find in their democracy any conscious ideal of mutual loyalty which provides a sufficient substitute for a merely instinctive national tradition. They have not yet come to realize that the success of their whole democratic experiment depends upon their ability to reach a good understanding with their fellow-countrymen, and, that just in so far as their democracy fails to be nationally constructive, it is ignoring the most essential condition of its own vitality and perpetuity.

The French democracy is confronted by an economic, as well as a political, problem of peculiar difficulty. The effects of the Revolution were no less important upon the distribution of wealth in France than upon the distribution of political power. The people came into the ownership of the land; and in the course of time the area of this distribution has been increased rather than diminished. Furthermore, the laws under which property in France is inherited have promoted a similarly wide distribution of personal estate. France is a rich country; and its riches are much more evenly divided than is the case in Great Britain, Germany, or the United States. There are fewer large fortunes, and fewer cases of poverty. The average Frenchman is a small, but extremely thrifty proprietor, who abhors speculation and is always managing to add something to his accumulations; and the French economic system is adapted to this peculiar distribution of wealth. The scarcity in France of iron and coal has checked the tendency to industrial organization on a huge scale. The strength of the French industrial system does not consist in the large and efficient use of machinery, but in its multitude of skilled craftsmen and the excellence of their handiwork. In a system of this kind, labor naturally receives a large percentage of the gross product, and a larger proportion of wage-earners reach an independent economic position. At first sight it looks as if France was something like a genuine economic democracy, and ought to escape the evils which threaten other countries from an economic organization, in which concentrated capital plays a more important part.

But the situation is not without another and less favorable aspect. France, in becoming a country of small and extremely thrifty property owners, has also become a country of partial economic parasites with very little personal initiative and energy. Individual freedom has been sacrificed to economic and social equality; and this economic and social equality has not made for national cohesion. The bourgeois, the mechanic, and the farmer, in so far as they have accumulated property, are exhibiting an extremely calculating individualism, of which the most dangerous symptom is the decline in the birth-rate. Frenchmen are becoming more than ever disinclined to take the risks and assume the expense of having more than one or two children. The recent outbreak of anti-militarism is probably merely another illustration of the increasing desire of the French bourgeois for personal security, and the opportunity for personal enjoyment. To a foreigner it looks as if the grave political and social risks, which the French nation has taken since 1789, had gradually cultivated in individual Frenchmen an excessive personal prudence, which adds to the store of national wealth, but which no more conduces to economic, social, and political efficiency than would the incarceration of a fine army in a fortress conduce to military success. A nation or an individual who wishes to accomplish great things must be ready, in Nietsche's phrase, "to lived angerously"—to take those risks, without which no really great achievement is possible; and if Frenchmen persist in erecting the virtue of thrift and the demand for safety into the predominant national characteristic, they are merely beginning a process of national corruption and dissolution.

That any such result is at all imminent, I do not for a moment believe. The time will come when the danger of the present drift will be understood, and will create its sufficient remedy; and all good friends of democracy and human advancement should hope and believe that France will retain indefinitely her national vitality. If she should drift into an insignificant position in relation to her neighbors, a void would be created which it would be impossible to fill and which would react deleteriously upon the whole European system. But such a result is only to be avoided by the general recognition among Frenchmen that the means which they are adopting to render their personal position more secure is rendering their national situation more precarious. The fate of the French democracy is irrevocably tied up with the fate of French national life, and the best way for a Frenchman to show himself a good democrat is to make those sacrifices and to take those risks necessary for the prestige and welfare of his country.

V

THE RELATION OF GERMAN NATIONALITY TO DEMOCRACY

The German Empire presents still another phase of the relation between democracy and nationality, and one which helps considerably towards an understanding of the varied possibilities of that relationship. The German national organization and policy was wrought in a manner entirely different from that of either France or England. In the two latter countries political freedom was conquered only as the result of successive revolutions; and the ruling classes were obliged to recognize the source of these political reformations by renouncing all or a large part of their inherited responsibilities. In Germany, on the other hand, or rather in Prussia as the maker of modern Germany, the various changes in the national organization and policy, which have resulted in the founding of a united nation, originated either with the crown or with the royal counselors. The Prussian monarchy has, consequently, passed through the revolutionary period without abandoning its political leadership of the Prussian state. It has created a national representative body; but it has not followed the English example and allowed such a body to tie its hands; and it has remained, consequently, the most completely responsible and representative monarchy in Europe.

Up to the present time this responsibility and power have on the whole been deserved by the manner in which they have been exercised. German nationality as an efficient political and economic force has been wrought by skillful and patriotic management out of materials afforded by military and political opportunities and latent national ties and traditions. During the eighteenth century the Prussian monarchy came to understand that the road to effective political power in Germany was by way of a military efficiency, disproportionate to the resources and population of the Kingdom. In this way it was able to take advantage of almost every important crisis to increase its dominion and its prestige. Neither was Prussian national efficiency built up merely by a well-devised and practicable policy of military aggression. The Prussian monarchy had the good sense to accept the advice of domestic reformers during its period of adversity, and so contributed to the economic liberation and the educational training of its subjects. Thus the modern German nation has been at bottom the work of admirable leadership on the part of officially responsible leaders; and among those leaders the man who planned most effectively and accomplished the greatest results was Otto von Bismarck.

* * * * *

It requires a very special study of European history after 1848 to understand how bold, how original, how comprehensive, and how adequate for their purpose Bismarck's ideas and policy gradually became; and it requires a very special study of Bismarck's own biography to understand that his personal career, with all its transformations, exhibits an equally remarkable integrity. The Bismarck of from 1848 to 1851 is usually described as a country squire, possessed by obscurantist mediaeval ideas wholly incompatible with his own subsequent policy. But while there are many superficial contradictions between the country squire of 1848 and the Prussian Minister and German Chancellor, the really peculiar quality of Bismarck's intelligence was revealed in his ability to develop a constructive German national policy out of the prejudices and ideas of a Prussian "junker." Bismarck, in 1848, was primarily an ardent Prussian patriot who believed that the monarchy was divinely authorized to govern the Prussian people, and that any diminution of this responsibility was false in principle and would be baleful in its results. These ideas led him, in 1848, to oppose the constitution, granted by Frederick William IV and to advocate the repression of all revolutionary upheavals. He never essentially departed from these principles; but his experience gradually taught him that they were capable of a different and more edifying application. The point of view from which his policy, his achievements, and his career can best be understood is that of a patriotic Prussian who was exclusively, intelligently, and unscrupulously devoted to the welfare (as he conceived it) of his country and his king. As a loyal Prussian he wished to increase Prussian influence among the other German states, because that was the only way to improve her standing and greatness as a European Power; and he soon realized that Austria constituted the great obstacle to any such increase of Prussian influence. He and he only drew the one sufficient inference from this fact. Inasmuch as Prussia's future greatness and efficiency depended absolutely on the increase of her influence in Germany, and inasmuch as Austria barred her path, Prussia must be prepared to fight Austria, and must make every possible provision, both diplomatic and military, to bring such a war to a successful issue. Such a purpose meant, of course, the abandonment of the policy which Prussia had pursued for a whole generation. The one interest which Bismarck wanted the Prussian government to promote was the Prussian interest, no matter whether that interest meant opposition to the democracy or cooeperation therewith; and the important point in the realization of this exclusive policy is that he soon found himself in need of the help of the German democratic movement. His resolute and candid nationalism in the end forced him to enter into an alliance with the very democracy which he had begun by detesting.

It must be admitted, also, that he had in the beginning reason to distrust the Prussian and the German democracy. The German radicals had sought to compass the unification of Germany by passing resolutions and making speeches; but such methods, which are indispensable accessories to the good government of an established national community, were utterly incompetent to remove the obstacles to German unity. These obstacles consisted in the particularism of the German princes, the opposition of Austria, and looming in the background the possible opposition of France; and Bismarck alone thoroughly understood that such obstacles could be removed by war and war only. But in order to wage war successfully, a country must be well-armed; and in the attempt to arm Prussia so that she would be equal to asserting her interests in Germany, Bismarck and the king had to face the stubborn opposition of the Prussian representative assembly. Bismarck did not flinch from fighting the Prussian assembly in the national interest any more than he flinched under different circumstances from calling the German democracy to his aid. When by this policy, at once bold and cautious, of Prussian aggrandizement, he had succeeded in bringing about war with Austria, he fearlessly announced a plan of partial unification, based upon the supremacy of Prussia and a national parliament elected by universal suffrage; and after the defeat of Austria, he successfully carried this plan into effect. It so happened that the special interest of Prussia coincided with the German national interest. It was Prussia's effective military power which defeated Austria and forced the princes to abate their particularist pretensions. It was Prussia's comparatively larger population which made Bismarck insist that the German nation should be an efficient popular union rather than a mere federation of states. And it was Bismarck's experience with the anti-nationalism "liberalism" of the Prussian assembly, elected as it was by a very restricted suffrage, which convinced him that the national interest could be as well trusted to the good sense and the patriotism of the whole people as to the special interests of the "bourgeoisie." Thus little by little the fertile seed of Bismarck's Prussian patriotism grew into a German semi-democratic nationalism, and it achieved this transformation without any essential sacrifice of its own integrity. He had been working in Prussia's interest throughout, but he saw clearly just where the Prussian interest blended with the German national interest, and just what means, whether by way of military force or popular approval, were necessary for the success of his patriotic policy.

When the Prussian Minister-President became the Imperial Chancellor, he pursued in the larger field a similar purpose by different means. The German national Empire had been founded by means of the forcible coercion of its domestic and foreign opponents. It remained now to organize and develop the new national state; and the government, under Bismark's lead, made itself responsible for the task of organization and development, just as it had made itself responsible for the task of unification. According to the theories of democratic individualistic "liberalism," such an effort could only result in failure, because from the liberal point of view the one way to develop a modern industrial nation was simply to allow the individual every possible liberty. But Bismarck's whole scheme of national industrial organization looked in a very different direction. He believed that the nation itself, as represented by its official leaders, should actively assist in preparing an adequate national domestic policy, and in organizing the machinery for its efficient execution. He saw clearly that the logic and the purpose of the national type of political organization was entirely different from that of a so-called free democracy, as explained in the philosophy of the German liberals of 1848, the Manchester school in England, or our own Jeffersonian Democrats; and he successfully transformed his theory of responsible administrative activity into a comprehensive national policy. The army was, if anything, increased in strength, so that it might remain fully adequate either for national defense or as an engine of German international purposes. A beginning was made toward the creation of a navy. A moderate but explicit protectionist policy was adopted, aimed not at the special development either of rural or manufacturing industries, but at the all-round development of Germany as an independent national economic unit. In Prussia itself the railways were bought by the government, so that they should be managed, not in the interest of the shareholders, but in that of the national economic system. The government encouraged the spread of bettor farming methods, which have resulted in the gradual increase in the yield per acre of every important agricultural staple. The educational system of the country was made of direct assistance to industry, because it turned out skilled scientific experts, who used their knowledge to promote industrial efficiency. In every direction German activity was organized and was placed under skilled professional leadership, while at the same time each of these special lines of work was subordinated to its particular place in a comprehensive scheme of national economy. This "paternalism" has, moreover, accomplished its purpose. German industrial expansion surpasses in some respects that of the United States, and has left every European nation far behind. Germany alone among the modern European nations is, in spite of the temporary embarrassment of Imperial finance, carrying the cost of modern military preparation easily, and looks forward confidently to greater successes in the future. She is at the present time a very striking example of what can be accomplished for the popular welfare by a fearless acceptance on the part of the official leaders of economic as well as political responsibility, and by the efficient and intelligent use of all available means to that end.

Inevitably, however, Germany is suffering somewhat from the excess of her excellent qualities. Her leaders were not betrayed by the success of their foreign and domestic policies to attempt the immediate accomplishment of purposes, incommensurate with the national power and resources; but they were tempted to become somewhat overbearing in their attitude toward their domestic and foreign opponents. No doubt a position which was conquered by aggressive leadership must be maintained by aggressive leadership; and no doubt, consequently, the German Imperial Power could not well avoid the appearance and sometimes the substance of being domineering. But the consequence of the Bismarckian tradition of bullying and browbeating one's opponents has been that of intensifying the opposition to the national policy and of compromising its success. France has been able to escape from the isolation in which she was long kept by Bismarck after the war, and has gradually built up a series of understandings with other Powers, more or less inimical to Germany. The latter's standing in Europe is not as high as it was ten years ago, in spite of the increased relative efficiency of her army, her navy, and her economic system. Moreover, an equally serious and dangerous opposition has been created at home. The government has not succeeded in retaining the loyal support of a large fraction of the German people. A party which is composed for the most part of workingmen, and which has been increasing steadily in the number of its adherents, is utterly opposed to the present policy and organization of the Imperial government; and those Social Democrats have for the most part been treated by the authorities with repressive laws and abusive epithets. Thus a schism is being created in the German national system which threatens to become a source of serious weakness to the national efficiency and strength.

That the existence of some such domestic opposition is to a certain extent unavoidable must be admitted. A radical incompatibility exists between the national policy of the Imperial and Prussian governments and the Social Democratic programme; and the Imperial authorities could not conciliate the Social Democrats without abandoning the peculiar organization and policy which have been largely so responsible for the extraordinary increase in the national well-being. On the other hand, it must also be remembered that the Prussian royal power has maintained its nationally representative character and its responsible leadership quite as much by its ability to meet legitimate popular grievances and needs as by its successful foreign policy. The test of German domestic statesmanship hereafter will consist in its ability to win the support of the industrial democracy, created by the industrial advance of the country, without impairing the traditional and the existing practice of expert and responsible leadership. The task is one of extreme difficulty, but it is far from being wholly impossible, because the Social Democratic party in Germany is every year becoming less revolutionary and more national in its outlook. But at present little attempt is being made at conciliation; and the attitude of the ruling classes is such that in the near future none is likely to be made. In this respect they are false to the logic of the origin of German political unity. The union was accomplished with the assistance of the democracy and on a foundation of universal suffrage. As Germany has become more of a nation, the democracy has acquired more substantial power; but its increase in numbers and weight has not been accompanied by any increase of official recognition. The political organization of Germany is consequently losing touch with those who represent one essential aspect of the national growth. It behooves the ruling classes to tread warily, or they may have to face a domestic opposition more dangerous than any probable foreign opposition.

The situation is complicated by the dubious international standing of the German Empire. She is partly surrounded by actual and possible enemies, against whom she can make headway only by means of continuous vigilance and efficient leadership; while at the same time her own national ambitions still conflict in some measure with the interests of her neighbors. Her official foreign policy since 1872 has undoubtedly been determined by the desire to maintain the peace of Europe under effective guarantees, because she needed time to consolidate her position and reap the advantages of her increasing industrial efficiency; but both German and European statesmen are none the less very conscious of the fact that the German Empire is the European Power which has most to gain in Europe from a successful war. Some Frenchmen still cherish plans of revenge for 1870; but candid French opinion is beginning to admit that the constantly increasing resources of Germany in men and money make any deliberate policy of that kind almost suicidal. France would lose much more by a defeat than she could gain from a victory, and the fruits of victory could not be permanently held. Italy, also, has no unsatisfied ambition which a war could gratify, except the addition of a few thousand Austrian-Italians to her population. Russia still looks longingly toward Constantinople; but until she has done something to solve her domestic problem and reorganize her finances, she needs peace rather than war. But the past successes of Germany and her new and increasing expansive power tempt her to cherish ambitions which constitute the chief menace to the international stability of Europe. She would have much to lose, but she would also have something to gain from the possible disintegration of Austria-Hungary. She has possibly still more to gain from the incorporation of Holland within the Empire. Her increasing commerce has possessed her with the idea of eventually disputing the supremacy of the sea with Great Britain. And she unquestionably expects to profit in Asia Minor from the possible break-up of the Ottoman Empire. How seriously such ambitions are entertained, it is difficult to say; and it is wholly improbable that more than a small part of this enormous programme of national aggrandizement will ever be realized. But when Germany has the chance of gaining and holding such advantages as these from a successful war, it is no wonder that she remains the chief possible disturber of the European peace. In her case certainly the fruits of victory look more seductive than the penalties of defeat look dangerous; and the resolute opposition to the partial disarmament, which she has always offered at the Hague Conference, is the best evidence of the unsatisfied nature of her ambitions.

Germany's standing in the European system is, then, very far from being as well-defined as are those of the older nations, like France and Great Britain. The gradual growth of a better understanding between France, Great Britain, and Russia is largely due to an instinctive coalition of those powers who would be most injured by an increase of the German influence and dominion; and the sense that Europe is becoming united against them makes German statesmen more than ever on their guard and more than ever impatient of an embarrassing domestic opposition. Thus Germany's aggressive foreign policy has so far tended to increase the distance between her responsible leaders and the popular party; and there are only two ways in which this schism can be healed. If German foreign policy should continue to be as brilliantly successful as it was in the days of Bismarck, the authorities will have no difficulty in retaining the support of a sufficient majority of the German people—just as the victory over Austria brought King William and Bismarck forgiveness from their parliamentary opponents. On the other hand, any severe setback to Germany in the realization of its aggressive plans would strengthen the domestic opposition and might lead to a severe internal crisis. It all depends upon whether German national policy has or has not overstepped the limits of practical and permanent achievement.

VI

MILITARISM AND NATIONALITY

The foregoing considerations in respect to the existing international situation of Germany bring me to another and final aspect of the relation in Europe between nationality and democracy. One of the most difficult and (be it admitted) one of the most dubious problems raised by any attempt to establish a constructive relationship between those two principles hangs on the fact that hitherto national development has not apparently made for international peace. The nations of Europe are to all appearances as belligerent as were the former European dynastic states. Europe has become a vast camp, and its governments are spending probably a larger proportion of the resources of their countries for military and naval purposes than did those of the eighteenth century. How can these warlike preparations, in which all the European nations share, and the warlike spirit which they have occasionally displayed, be reconciled with the existence of any constructive relationship between the national and the democratic ideas?

The question can best be answered by briefly reviewing the claims already advanced on behalf of the national principle. I have asserted from the start that the national principle was wholly different in origin and somewhat different in meaning from the principle of democracy. What has been claimed for nationality is, not that it can be identified with democracy, but that as a political principle it remained unsatisfied without an infusion of democracy. But the extent to which this infusion can go and the forms which it takes are determined by a logic and a necessity very different from that of an absolute democratic theory. National politics have from the start aimed primarily at efficiency—that is, at the successful use of the force resident in the state to accomplish the purposes desired by the Sovereign authority. Among the group of states inhabited by Christian peoples it has gradually been discovered that the efficient use of force is contingent in a number of respects upon its responsible use; and that its responsible use means a limited policy of external aggrandizement and a partial distribution of political power and responsibilities. A national polity, however, always remains an organization based upon force. In internal affairs it depends at bottom for its success not merely upon public opinion, but, if necessary, upon the strong arm. It is a matter of government and coercion as well as a matter of influence and persuasion. So in its external relations its standing and success have depended, and still depend, upon the efficient use of force, just in so far as force is demanded by its own situation and the attitudes of its neighbors and rivals. The democrats who disparage efficient national organization are at bottom merely seeking to exorcise the power of physical force in human affairs by the use of pious incantations and heavenly words. That they will never do. The Christian warrior must accompany the evangelist; and Christians are not by any means angels. It is none the less true that the modern nations control the expenditure of more force in a more responsible manner than have any preceding political organizations; and it is none the less true that a further development of the national principle will mean in the end the attachment of still stricter responsibilities to the use of force both in the internal and external policies of modern nations.

War may be and has been a useful and justifiable engine of national policy. It is justifiable, moreover, not merely in such a case as our Civil War, in which a people fought for their own national integrity. It was, I believe, justifiable, in the case of the two wars which preceded the formation of the modern German Empire. These wars may, indeed, be considered as decisive instances. Prussia did not drift into them, as we drifted into the Civil War. They were deliberately provoked by Bismarck at a favorable moment, because they were necessary to the unification of the German people under Prussian leadership; and I do not hesitate to say that he can be justified in the assumption of this enormous responsibility. The German national organization means increased security, happiness, and opportunity of development for the whole German people; and inasmuch as the selfish interests of Austria and France blocked the path, Bismarck had his sufficient warrant for a deliberately planned attack. No doubt such an attack and its results injured France and the French people just as it has benefited Germany; but France had to suffer that injury as a penalty for the part she had as a matter of policy played in German affairs. For centuries a united France had helped to maintain for her own purposes a divided Germany; and when Germany herself became united, it was inevitable, as Bismarck foresaw in 1848, that French opposition must be forcibly removed, and some of the fruits of French aggression be reclaimed. That the restitution demanded went further than was necessary, I fully believe; but the partial abuse of victory does not diminish the legitimacy of the German aggression. A war waged for an excellent purpose contributes more to human amelioration than a merely artificial peace,—such as that established by the Holy Alliance. The unification of Germany and Italy has not only helped to liberate the energies of both the German and the Italian people, but it has made the political divisions of Europe conform much more nearly to the lines within which the people of Europe can loyally and fruitfully associate one with another. In fact, the whole national movement, if it has increased the preparations for war, has diminished in number of probable causes thereof; and it is only by diminishing the number of causes whereby a nation has more to gain from victory than it has to lose by defeat that war among the civilized powers can be gradually extinguished.

At the present time it is, as we have seen, the international situation and the national ambitions of Russia and Germany which constitute the chief threat to European peace. Germany's existing position in Europe depends upon its alliance with Austria-Hungary. The Habsburg Empire is an incoherent and unstable state which is held together only by dynastic ties and external pressure. The German, the Austrian, and the Hungarian interests all demand the perpetuation of the Habsburg dominion; but it is doubtful whether in the long run its large Slavic population will not combine with its blood neighbors to break the bond. But whether the German, Austrian, and Hungarian interest does or does not prevail, the fundamental national interests, which are compromised by the precarious stability of Austria-Hungary, are alone sufficient to make disarmament impossible. Disarmament means the preservation of Europe in its existing condition; and such a policy, enforced by means of international guarantees, would be almost as inimical to the foundation of a permanent and satisfactory international system now as it was in 1820. The fact has to be recognized that the ultimate object of a peaceable and stable European international situation cannot in all probability be reached without many additional wars; and the essential point is that these wars, when they come, should, like the wars between Austria or France and Prussia, or like our Civil War, be fought to accomplish a desirable purpose and should be decisive in result.

Modern conflicts between efficiently organized nations tend to obtain just this character. They are fought for a defensible purpose, and they accomplish a definite result. The penalties of defeat are so disastrous that warfare is no longer wantonly incurred; and it will not be provoked at all by nations, such as Italy or France, who have less to gain from victory than they have to lose from defeat. Moreover, the cost of existing armaments is so crushing that an ever increasing motive exists in favor of their ultimate reduction. This motive will not operate as long as the leading Powers continue to have unsatisfied ambitions which look practicable; but eventually it will necessarily have its effect. Each war, as it occurs, even if it does not finally settle some conflicting claims, will most assuredly help to teach the warring nations just how far they can go, and will help, consequently, to restrict its subsequent policy within practicable and probably inoffensive limits. It is by no means an accident that England and France, the two oldest European nations, are the two whose foreign policies are best defined and, so far as Europe is concerned, least offensive. For centuries these Powers fought and fought, because one of them had aggressive designs which apparently or really affected the welfare of the other; but the result of this prolonged rivalry has been a constantly clearer understanding of their respective national interests. Clear-headed and moderate statesmen like Talleyrand recognized immediately after the Revolution that the substantial interests of a liberalized France in Europe were closely akin to those of Great Britain, and again and again in the nineteenth century this prophecy was justified. Again and again the two Powers were brought together by their interests only to be again divided by a tradition of antagonism and misunderstanding. At present, however, they are probably on better terms than ever before in the history of their relations; and this result is due to the definite and necessarily unaggressive character of their European interests. They have finally learned the limits of their possible achievement and could transgress them only by some act of folly.

In the course of another fifty years the limits of possible aggression by Germany and Russia in Europe will probably be very much better defined than they are to-day. These two Powers will seek at the favorable moment to accomplish certain aggressive purposes which they secretly or openly entertain, and they will succeed or fail. Each success or failure will probably be decisive in certain respects, and will remove one or more existing conflicts of interest or ambiguities of position. Whether this progressive specification of the practicable foreign policies of the several Powers will soon or will ever go so far as to make some general international understanding possible, is a question which no man can answer; but as long as the national principle retains its vitality, there is no other way of reaching a permanent and fruitful international settlement. That any one nation, or any small group of nations, can impose its dominion upon Europe is contrary to every lesson of European history. Such a purpose would be immeasurably beyond the power even of 90,000,000 Germans or 150,000,000 Russians, or even beyond the power of 90,000,000 Germans allied with 150,000,000 Russians. Europe is capable of combining more effectually than ever before to resist any possible revival of imperialism; and the time will come when Europe, threatened by the aggression of any one domineering Power, can call other continents to her assistance. The limits to the possible expansion of any one nation are established by certain fundamental and venerable political conditions. The penalties of persistent transgression would be not merely a sentence of piracy similar to that passed on Napoleon I, but a constantly diminishing national vitality on the part of the aggressor. As long as the national principle endures, political power cannot be exercised irresponsibly without becoming inefficient and sterile.

Inimical as the national principle is to the carrying out either of a visionary or a predatory foreign policy in Europe, it does not imply any similar hostility to a certain measure of colonial expansion. In this, as in many other important respects, the constructive national democrat must necessarily differ from the old school of democratic "liberals." A nationalized democracy is not based on abstract individual rights, no matter whether the individual lives in Colorado, Paris, or Calcutta. Its consistency is chiefly a matter of actual historical association in the midst of a general Christian community of nations. A people that lack the power of basing their political association on an accumulated national tradition and purpose is not capable either of nationality or democracy; and that is the condition of the majority of Asiatic and African peoples. A European nation can undertake the responsibility of governing these politically disorganized societies without any necessary danger to its own national life. Such a task need not be beyond its physical power, because disorganized peoples have a comparatively small power of resistance, and a few thousand resolute Europeans can hold in submission many million Asiatics. Neither does it conflict with the moral basis of a national political organization, because at least for a while the Asiatic population may well be benefited by more orderly and progressive government. Submission to such a government is necessary as a condition of subsequent political development. The majority of Asiatic and African communities can only got a fair start politically by some such preliminary process of tutelage; and the assumption by a European nation of such a responsibility in a desirable phase of national discipline and a frequent source of genuine national advance.

Neither does an aggressive colonial policy make for unnecessary or meaningless wars. It is true, of course, that colonial expansion increases the number of possible occasions for dispute among the expanding nations; but these disputes have the advantage of rarely turning on questions really vital to the future prosperity of a European nation. They are just the sort of international differences of interest which ought to be settled by arbitration or conciliation, because both of the disputants have so much more to lose by hostilities than they have to gain by military success. A dispute turning upon a piece of African territory would, if it waxed into war, involve the most awful and dangerous consequences in Europe. The danger of European wars, except for national purposes of prime importance, carries its consequence into Africa and Asia. France, for instance, was very much irritated by the continued English occupation of Egypt in spite of certain solemn promises of evacuation; and the expedition of Marchand, which ended in the Fashoda incident, indirectly questioned the validity of the British occupation of Egypt by making that occupation strategically insecure. In spite, however, of the deliberate manner in which France raised this question and of the highly irritated condition of French public opinion, she could not, when the choice had to be made, afford the consequences of a Franco-English war. In the end she was obliged to seek compensation elsewhere in Africa and abandon her occupation of Fashoda. This incident is typical; and it points directly to the conclusion that wars will very rarely occur among European nations over disputes as to colonies, unless the political situation in Europe is one which itself makes war desirable or inevitable. A Bismarck could handle a Fashoda incident so as to provoke hostilities, but in that case Fashoda, like the Hohenzollern candidacy in Spain, would be a pretext, not a cause. The one contemporary instance in which a difference of colonial interests has caused a great war is the recent conflict between Russia and Japan; and in this instance the issues raised by the dispute were essentially different from the issues raised by a dispute over a colonial question between two European nations. The conflict of interests turned upon matter essential to the future prosperity of Japan, while at the same time the war did not necessarily involve dangerous European complications.

The truth is that colonial expansion by modern national states is to be regarded, not as a cause of war, but as a safety-valve against war. It affords an arena in which the restless and adventurous members of a national body can have their fling without dangerous consequences, while at the same time it satisfies the desire of a people for some evidence of and opportunity for national expansion. The nations which, one after another, have recognized the limits of their expansion in Europe have been those which have adopted a more or less explicit policy of colonial acquisition. Spain was, indeed, a great colonial power at a time when her policy in Europe continued to be aggressive; but her European aggressions soon undermined her national vitality, and her decadence in Europe brought her colonial expansion to a standstill. Portugal and Holland were too small to cherish visions of European aggrandizement, and they naturally sought an outlet in Asia and Africa for their energies. After Great Britain had passed through her revolutionary period, she made rapid advances as a colonial power, because she realized that her insular situation rendered a merely defensive European policy obligatory. France made a failure of her American and Asiatic colonies as long as she cherished schemes of European aggrandizement. Her period of colonial expansion, Algeria apart, did not come until after the Franco-Prussian War and the death of her ambition for a Rhine frontier. Bismarck was opposed to colonial development because he believed that Germany should husband her strength for the preservation and the improvement of her standing in Europe; but Germany's power of expansion demanded some outlet during a period of European rest. Throughout the reign of the present Emperor she has been picking up colonies wherever she could in Asia and Africa; and she cherishes certain plans for the extension of German influence in Asia Minor. It is characteristic of the ambiguous international position of Germany that she alone among the European Powers (except the peculiar case of Russia) is expectant of an increase of power both in Europe and other continents.

In the long run Germany will, like France, discover that under existing conditions an aggressive colonial and aggressive European policy are incompatible. The more important her colonies become and the larger her oceanic commerce, the more Germany lays herself open to injury from a strong maritime power, and the more hostages she is giving for good behavior in Europe. Unless a nation controls the sea, colonies are from a military point of view a source of weakness. The colonizing nation is in the position of a merchant who increases his business by means of a considerable increase of his debts. His use of the borrowed capital may be profitable, but none the less he makes his standing at the time of an emergency much more precarious. In the same way colonies add to the responsibilities of a nation and scatter its military resources; and a nation placed in such a situation is much less likely to break the peace.

The economic and political development of Asia and Africa by the European Powers is in its infancy; and no certain predictions can be made as to its final effects upon the political relations among civilized nations. Many important questions in respect thereto remain ambiguous. What, for instance, are the limits of a practicable policy of colonial expansion? In view of her peculiar economic condition and her threatened decrease in population have those limits been transgressed by France? Have they been transgressed by Great Britain? Considering the enormous increase in British responsibilities imposed by the maritime expansion of Germany, will not Great Britain be obliged to adopt a policy of concentration rather than expansion? Is not her partial retirement from American waters the first step in such a policy? Is not the Japanese alliance a dubious device for the partial shifting of burdens too heavy to bear? How long can Great Britain afford to maintain her existing control of the sea? Is there any way of ending such a control save either by the absolute exhaustion of Great Britain or by the establishment of a stable international system under adequate guarantees? Will the economic development of Asia lead to the awakening of other Asiatic states like Japan, and the re-arrangement of international relations for the purpose of giving them their appropriate places? A multitude of such questions are raised by the transformation which is taking place from a European international system into a political system composed chiefly of European nations, but embracing the whole world; and these questions will prove to be sufficiently difficult of solution. But in spite of the certainty that colonial expansion will in the end merely transfer to a larger area the conflicts of idea and interest whose effects have hitherto chiefly been confined to Europe—in spite of this certainty the process of colonial expansion is a wholly legitimate aspect of national development, and is not necessarily inimical to the advance of democracy. It will not make immediately for a permanent international settlement; but it is accomplishing a work without which a permanent international settlement is impossible; and it indubitably places every colonizing nation in a situation which makes the risk of hostilities dangerous compared to the possible advantages of military success.

The chief object of this long digression, has, I hope, now been achieved. My purpose has been to exhibit the European nations as a group of historic individuals with purposes, opportunities, and limitations analogous to those of actual individuals. An individual has no meaning apart from the society in which his individuality has been formed. A national state is capable of development only in relation to the society of more or less nationalized states in the midst of which its history has been unfolded. The growing and maturing individual is he who comes to take a more definite and serviceable position in his surrounding society,—he who performs excellently a special work adapted to his abilities. The maturing nation is in the same way the nation which is capable of limiting itself to the performance of a practicable and useful national work,—a work which in some specific respect accelerates the march of Christian civilization. There is no way in which a higher type of national life can be obtained without a corresponding individual improvement on the part of its constituent members. There is similarly no way in which a permanently satisfactory system of international relations can be secured, save by the increasing historical experience and effective self-control of related nations. Any country which declares that it is too good (or too democratic) to associate with other nations and share the responsibilities and opportunities resulting from such association is comparable to the individual who declares himself to be too saintly for association with his fellow-countrymen. Whatever a man or a nation gains by isolation, he or it necessarily loses in the discipline of experience with its possible fruits of wisdom and self-control. Association is a condition of individuality. International relations are a condition of nationality. A universal nation is as much a contradiction in terms as a universal individual. A nation seeking to destroy other nations is analogous to a man who seeks to destroy the society in which he was born. Little by little European history has been teaching this lesson; and in the course of time the correlation of national development with the improvement and definition of international relations will probably be embodied in some set of international institutions.

In the meantime the existing rivalries and enmities among European states must not be under-estimated either in their significance or their strength. In a way those rivalries have become more intense than ever before; and it is only too apparent that the many-headed rulers of modern nations are as capable of cherishing personal and national dislikes as were the sovereign kings of other centuries. These rivalries and enmities will not be dissolved by kind words and noble sentiments. The federation of Europe, like the unification of Germany, will never be brought about by congresses and amicable resolutions. It can be effected only by the same old means of blood and iron. The nations will never agree upon a permanent settlement until they have more to gain from peace than from military victory. But such a time will be postponed all the longer unless the nations, like France, Italy, England and the United States, which are at present sincerely desirous of peace, keep as well armed as their more belligerent neighbors. When the tug comes, the issue will depend upon the effective force which such nations, when loyally combined, can exert. It would be fatal, consequently, for the pacific Powers to seek to establish peace by a partial diminution of their military efficiency. Such an action would merely encourage the belligerent Powers to push their aggressive plans to the limit. The former must, on the contrary, keep as well armed as their resources and policy demand. Nationality is impaired and the national principle is violated just as soon as a nation neglects any sort of efficiency which is required either by its international position or by its national purposes.



CHAPTER IX

I

THE AMERICAN DEMOCRACY AND ITS NATIONAL PRINCIPLE

The foregoing review of the relation which has come to subsist in Europe between nationality and democracy should help us to understand the peculiar bond which unites the American democratic and national principles. The net result of that review was encouraging but not decisive. As a consequence of their development as nations, the European peoples have been unable to get along without a certain infusion of democracy; but it was for the most part essential to their national interest that such an infusion should be strictly limited. In Europe the two ideals have never been allowed a frank and unconstrained relation one to the other other. They have been unable to live apart; but their marriage has usually been one of convenience, which was very far from implying complete mutual dependence and confidence. No doubt the collective interests of the German or British people suffer because such a lack of dependence and confidence exists; but their collective interests would suffer more from a sudden or violent attempt to destroy the barriers. The nature and the history of the different democratic and national movements in the several European countries at once tie them together and keep them apart.

The peoples of Europe can only escape gradually from the large infusion of arbitrary and irrational material in their national composition. Monarchical and aristocratic traditions and a certain measure of political and social privilege have remained an essential part of their national lives; and no less essential was an element of defiance in their attitude toward their European neighbors. Hence, when the principle of national Sovereignty was proclaimed as a substitute for the principal of royal Sovereignty, that principle really did not mean the sudden bestowal upon the people of unlimited Sovereign power. "The true people," said Bismarck, in 1847, then a country squire, "is an invisible multitude of spirits. It is the living nation—the nation organized for its historical mission—the nation of yesterday and of to-morrow." A nation, that is, is a people in so far as they are united by traditions and purposes; and national Sovereignty implies an attachment to national history and traditions which permits only the very gradual alteration of these traditions in the direction of increasing democracy. The mistake which France made at the time of the French Revolution was precisely that of interpreting the phrase "souvrenete nationale" as equivalent to immediate, complete, and (in respect to the past) irresponsible popular sovereignty.

The European nations are, consequently, not in a position to make their national ideals frankly and loyally democratic. Their national integrity depends upon fidelity to traditional ideas and forms quite as much as it does upon the gradual modification of those ideas and forms in a democratic direction. The orderly unfolding of their national lives calls for a series of compromises which carry the fundamental democratic implication of the national principle as far as it can under the circumstances be safely carried; and in no other way does a people exhibit its political common sense so clearly as in its ability to be contemporary and progressive without breaking away from its historical anchorage. A comparatively definite national mission and purpose clearly emerge at some particular phase of the indefinite process of internal and external readjustment; but such a mission and such purposes necessarily possess a limited significance and a special character. Restricted as they are by the facts of national history, they lack the ultimate moral significance of the democratic ideal, which permits the transformation of patriotic fidelity into devotion to the highest and most comprehensive interests of humanity and civilization.

That an analogous condition exists in our own country, it would be vain to deny. The American people possessed a collective character even before they possessed a national organization; and both before and after the foundation of a national government, these common traditions were by no means wholly democratic. Furthermore, as we have frequently had occasion to observe, the American democracy in its traditional form has more often than not been anti-national in instinct and idea. Our own country has, consequently, a problem to solve, similar in certain respects to that of the European nations. Its national cohesion is a matter of historical association, and the facts of its historical association have resulted in a partial division and a misunderstanding between its two fundamental principles—the principles of nationality and democracy.

In the case of the United States there is, however, to be observed an essential difference. A nation, and particularly a European nation, cannot afford to become too complete a democracy all at once, because it would thereby be uprooting traditions upon which its national cohesion depends. But there is no reason why a democracy cannot trust its interests absolutely to the care of the national interest, and there is in particular every reason why the American democracy should become in sentiment and conviction frankly, unscrupulously, and loyally nationalist. This, of course, is a heresy from the point of view of the American democratic tradition; but it is much less of a heresy from the point of view of American political practice, and, whether heretical or not, it indicates the road whereby alone the American people can obtain political salvation.

The American democracy can trust its interest to the national interest, because American national cohesion is dependent, not only upon certain forms of historical association, but upon fidelity to a democratic principle. A nation is a very complex political, social, and economic product—so complex that political thinkers in emphasizing one aspect of it are apt to forget other and equally essential aspects. Its habits and traditions of historical association constitute an indispensable bond; but they do not constitute the only bond. A specific national character is more than a group of traditions and institutions. It tends to be a formative idea, which defines the situation of a country in reference to its neighbors, and which is constantly seeking a better articulation and understanding among the various parts of its domestic life. The English national idea is chiefly a matter of freedom, but the principle of freedom is associated with a certain in measure of responsibility. The German national idea is more difficult of precise description, but it turns upon the principle of efficient and expert official leadership toward what is as yet a hazy goal of national greatness. The French national idea is democratic, but its democracy is rendered difficult by French national insecurity, and its value is limited by its equalitarian bias. The French, like the American, democracy needs above all to be thoroughly nationalized; and a condition of such a result is the loyal adoption of democracy as the national idea. Both French and American national cohesion depend upon the fidelity of the national organization to the democratic idea, and the gradual but intentional transformation of the substance of the national life in obedience to a democratic interest.

Let us seek for this complicated formula a specific application. How can it be translated into terms of contemporary American conditions? Well, in the first place, Americans are tied together by certain political, social, and economic habits, institutions, and traditions. From the political point of view these forms of association are at once constitutional, Federal, and democratic. They are accustomed to some measure of political centralization, to a larger measure of local governmental responsibility, to a still larger measure of individual economic freedom. This group of political institutions and habits has been gradually pieced together under the influence of varying political ideas and conditions. It contains many contradictory ingredients, and not a few that are positively dangerous to the public health. Such as it is, however, the American people are attached to this national tradition; and no part of it could be suddenly or violently transformed or mutilated without wounding large and important classes among the American people, both in their interests and feelings. They have been accustomed to associate under certain conditions and on certain terms; and to alter in any important way those conditions and terms of association without fair notice, full discussion, a demonstrable need and a sufficient consent of public opinion, would be to drive a wedge into the substance of American national cohesion. The American nation, no matter how much (or how little) it may be devoted to democratic political and social ideas, cannot uproot any essential element in its national tradition without severe penalties—as the American people discovered when they decided to cut negro slavery out of their national composition.

On the other hand, their national health and consistency were in the long run very much benefited by the surgical operation of the Civil War; and it was benefited because the War eradicated the most flagrant existing contradiction among the various parts of the American national tradition. This instance sufficiently showed, consequently, that although nationality has its traditional basis, it is far from being merely a conservative principle. At any one time the current of national public opinion embodies a temporary accommodation among the different traditional ideas, interests, conditions, and institutions. This balance of varying and perhaps conflicting elements is constantly being destroyed by new conditions,—such, for instance, as the gradual increase before the Civil War of the North as compared to the South in wealth, population, and industrial efficiency. The effect of this destruction of the traditional balance was to bring out the contradiction between the institution of negro slavery and the American democratic purpose—thereby necessitating an active conflict, and the triumph of one of these principles over the other. The unionist democracy conquered, and as the result of that conquest a new balance was reached between the various ingredients of American national life. During the past generation, the increased efficiency of organization in business and politics, the enormous growth of an irresponsible individual money-power, the much more definite division of the American people into possibly antagonistic classes, and the pressing practical need for expert, responsible, and authoritative leadership,—these new conditions and demands have been by way of upsetting once more the traditional national balance and of driving new wedges into American national cohesion. New contradictions have been developed between various aspects of the American national composition; and if the American people wish to escape the necessity of regaining their health by means of another surgical operation, they must consider carefully how much of a reorganization of traditional institutions, policy, and ideas are necessary for the achievement of a new and more stable national balance.

In the case of our own country, however, a balance is not to be struck merely by the process of compromise in the interest of harmony. Our forbears tried that method in dealing with the slavery problem from 1820 to 1850, and we all know with what results. American national cohesion is a matter of national integrity; and national integrity is a matter of loyalty to the requirements of a democratic ideal. For better or worse the American people have proclaimed themselves to be a democracy, and they have proclaimed that democracy means popular economic, social, and moral emancipation. The only way to regain their national balance is to remove those obstacles which the economic development of the country has placed in the path of a better democratic fulfillment. The economic and social changes of the past generation have brought out a serious and a glaring contradiction between the demands of a constructive democratic ideal and the machinery of methods and institutions, which have been considered sufficient for its realization. This is the fundamental discrepancy which must be at least partially eradicated before American national integrity can be triumphantly re-affirmed. The cohesion, which is a condition of effective nationality, is endangered by such a contradiction, and as long as it exists the different elements composing American society will be pulling apart rather than together. The national principle becomes a principle of reform and reconstruction, precisely because national consistency is constantly demanding the solution of contradictory economic and political tendencies, brought out by alterations in the conditions of economic and political efficiency. Its function is not only to preserve a balance among these diverse tendencies, but to make that balance more than ever expressive of a consistent and constructive democratic ideal. Any disloyalty to democracy on the part of American national policy would in the end prove fatal to American national unity.

The American democracy can, consequently, safely trust its genuine interests to the keeping of those who represent the national interest. It both can do so, and it must do so. Only by faith in an efficient national organization and by an exclusive and aggressive devotion to the national welfare, can the American democratic ideal be made good. If the American local commonwealths had not been wrought by the Federalists into the form of a nation, they would never have continued to be democracies; and the people collectively have become more of a democracy in proportion as they have become more of a nation. Their democracy is to be realized by means of an intensification of their national life, just as the ultimate moral purpose of an individual is to be realized by the affirmation and intensification of its own better individuality. Consequently the organization of the American democracy into a nation is not to be regarded in the way that so many Americans have regarded it,—as a necessary but hazardous surrender of certain liberties in order that other liberties might be better preserved,—as a mere compromise between the democratic ideal and the necessary conditions of political cohesion and efficiency. Its nationalized political organization constitutes the proper structure and veritable life of the American democracy. No doubt the existing organization is far from being a wholly adequate expression of the demands of the democratic ideal, but it falls equally short of being an adequate expression of the demands of the national ideal. The less confidence the American people have in a national organization, the less they are willing to surrender themselves to the national spirit, the worse democrats they will be. The most stubborn impediments which block the American national advance issue from the imperfections in our democracy. The American people are not prepared for a higher form of democracy, because they are not prepared for a more coherent and intense national life. When they are prepared to be consistent, constructive, and aspiring democrats, their preparation will necessarily take the form of becoming consistent, constructive, and aspiring nationalists.

The difficulty raised by European political and economic development hangs chiefly on a necessary loyalty to a national tradition and organization which blocks the advance of democracy. Americans cannot entirely escape this difficulty; but in our country by far the greater obstacle to social amelioration is constituted by a democratic theory and tradition, which blocks the process of national development. We Americans are confronted by two divergent theories of democracy. According to one of these theories, the interest of American democracy can be advanced only by an increasing nationalization of the American people in ideas, in institutions, and in spirit. According to the other of these theories, the most effective way of injuring the interest of democracy is by an increase in national authority and a spread of the national leaven. Thus Americans, unlike Englishmen, have to choose, not between a specific and efficient national tradition and a vague and perilous democratic ideal—they have to choose between two democratic ideals, and they have to make this choice chiefly on logical and moral grounds. An Englishman or a German, no matter how clear his intelligence or fervid his patriotism, cannot find any immediately and entirely satisfactory method of reconciling the national traditions and forms of organization with the demands of an uncompromising democracy. An American, on the other hand, has it quite within his power to accept a conception of democracy which provides for the substantial integrity of his country, not only as a nation with an exclusively democratic mission, but as a democracy with an essentially national career.

II

NATIONALITY AND CENTRALIZATION

The Federal political organization has always tended to confuse to the American mind the relation between democracy and nationality. The nation as a legal body was, of course, created by the Constitution, which granted to the central government certain specific powers and responsibilities, and which almost to the same extent diminished the powers and the responsibilities of the separate states. Consequently, to the great majority of Americans, the process of increasing nationalization has a tendency to mean merely an increase in the functions of the central government. For the same reason the affirmation of a constructive relation between the national and the democratic principles is likely to be interpreted merely as an attempt on the grounds of an abstract theory to limit state government and to disparage states rights. Such an interpretation, however, would be essentially erroneous. It would be based upon the very idea against which I have been continually protesting—the idea that the American nation, instead of embodying a living formative political principle, is merely the political system created by the Federal Constitution; and it would end in the absurd conclusion that the only way in which the Promise of American democracy can be fulfilled would be by the abolition of American local political institutions.

The nationalizing of American political, economic, and social life means something more than Federal centralization and something very different therefrom. To nationalize a people has never meant merely to centralize their government. Little by little a thoroughly national political organization has come to mean in Europe an organization which combined effective authority with certain responsibilities to the people; but the national interest has been just as likely to demand de-centralization as it has to demand centralization. The Prussia of Frederick the Great, for instance, was over-centralized; and the restoration of the national vitality, at which the Prussian government aimed after the disasters of 1806, necessarily took the form of reinvigorating the local members of the national body. In this and many similar instances the national interest and welfare was the end, and a greater or smaller amount of centralized government merely the necessary machinery. The process of centralization is not, like the process of nationalization, an essentially formative and enlightening political transformation. When a people are being nationalized, their political, economic, and social organization or policy is being cooerdinated with their actual needs and their moral and political ideals. Governmental centralization is to be regarded as one of the many means which may or may not be taken in order to effect this purpose. Like every other special aspect of the national organization, it must be justified by its fruits. There is no presumption in its favor. Neither is there any general presumption against it. Whether a given function should or should not be exercised by the central government in a Federal system is from the point of view of political logic a matter of expediency—with the burden of proof resting on those who propose to alter any existing Constitutional arrangement.

It may be affirmed, consequently, without paradox, that among those branches of the American national organization which are greatly in need of nationalizing is the central government. Almost every member of the American political body has been at one time or another or in one way or another perverted to the service of special interests. The state governments and the municipal administrations have sinned more in this respect than the central government; but the central government itself has been a grave sinner. The Federal authorities are responsible for the prevailing policy in respect to military pensions, which is one of the most flagrant crimes ever perpetrated against the national interest. The Federal authorities, again, are responsible for the existing tariff schedules, which benefit a group of special interests at the expense of the national welfare. The Federal authorities, finally, are responsible for the Sherman Anti-Trust Law, whose existence on the statute books is a fatal bar to the treatment of the problem of corporate aggrandizement from the standpoint of genuinely national policy. Those instances might be multiplied, but they suffice to show that the ideal of a constructive relation between the American national and democratic principles does not imply that any particular piece of legislation or policy is national because it is Federal. The Federal no less than the state governments has been the victim of special interests; and when a group of state or city officials effectively assert the public interest against the private interests, either of the machine or of the local corporations, they are noting just as palpably, if not just as comprehensively, for the national welfare, as if their work benefited the whole American people. The process of nationalization in its application to American political organization means that political power shall be distributed among the central, state, and municipal officials in such a manner that it can be efficiently and responsibly exerted in the interest of those affected by its action.

Be it added, however, in the same breath, that under existing conditions and simply as a matter of expediency, the national advance of the American democracy does demand an increasing amount of centralized action and responsibility. In what respect and for what purposes an increased Federal power and responsibility is desirable will be considered in a subsequent chapter. In this connection it is sufficient to insist that a more scrupulous attention to existing Federal responsibilities, and the increase of their number and scope, is the natural consequence of the increasing concentration of American industrial, political, and social life. American government demands more rather than less centralization merely and precisely because of the growing centralization of American activity. The state governments, either individually or by any practicable methods of cooeperation, are not competent to deal effectively in the national interest and spirit with the grave problems created by the aggrandizement of corporate and individual wealth and the increasing classification of the American people. They have, no doubt, an essential part to play in the attempted solution of these problems; and there are certain aspects of the whole situation which the American nation, because of its Federal organization, can deal with much more effectually than can a rigidly centralized democracy like France. But the amount of responsibility in respect to fundamental national problems, which, in law almost as much as in practice, is left to the states, exceeds the responsibility which the state governments are capable of efficiently redeeming. They are attempting (or neglecting) a task which they cannot be expected to perform with any efficiency.

The fact that the states fail properly to perform certain essential functions such as maintaining order or administering justice, is no sufficient reason for depriving them thereof. Functions which should be bestowed upon the central government are not those which the states happen to perform badly. They are those which the states, even with the best will in the world, cannot be expected to perform satisfactorily; and among these functions the regulation of commerce, the organization of labor, and the increasing control over property in the public interest are assuredly to be included. The best friends of local government in this country are those who seek to have its activity confined with the limits of possible efficiency, because only in case its activity is so confined can the states continue to remain an essential part of a really efficient and well-cooerdinated national organization.

Proposals to increase the powers of the central government are, however, rarely treated on their merits. They are opposed by the majority of American politicians and newspapers as an unqualified evil. Any attempt to prove that the existing distribution of responsibility is necessarily fruitful of economic and political abuses, and that an increase of centralized power offers the only chance of eradicating these abuses is treated as irrelevant. It is not a question of the expediency of a specific proposal, because from the traditional point of view any change in the direction of increased centralization would be a violation of American democracy. Centralization is merely a necessary evil which has been carried as far as it should, and which cannot be carried any further without undermining the foundations of the American system. Thus the familiar theory of many excellent American democrats is rather that of a contradictory than a constructive relation between the democratic and the national ideals. The process of nationalization is perverted by them into a matter merely of centralization, but the question of the fundamental relation between nationality and democracy is raised by their attitude, because the reasons they advance against increasingly centralized authority would, if they should continue to prevail, definitely and absolutely forbid a gradually improving cooerdination between American political organization and American national economic needs or moral and intellectual ideals. The conception of democracy out of which the supposed contradiction between the democratic and national ideals issues is the great enemy of the American national advance, and is for that reason the great enemy of the real interests of democracy.

To be sure, any increase in centralized power and responsibility, expedient or inexpedient, is injurious to certain aspects of traditional American democracy. But the fault in that case lies with the democratic tradition; and the erroneous and misleading tradition must yield before the march of a constructive national democracy. The national advance will always be impeded by these misleading and erroneous ideas, and, what is more, it always should be impeded by them, because at bottom ideas of this kind are merely an expression of the fact that the average American individual is morally and intellectually inadequate to a serious and consistent conception of his responsibilities as a democrat. An American national democracy must always prove its right to a further advance, not only by the development of a policy and method adequate for the particular occasion, but by its ability to overcome the inevitable opposition of selfish interests and erroneous ideas. The logic of its position makes it the aggressor, just as the logic of its opponents' position ties them to a negative and protesting or merely insubordinate part. If the latter should prevail, their victory would become tantamount to national dissolution, either by putrefaction, by revolution, or by both.