334. =The Organization of Government.=--The political organization depends upon the functions that the state has to perform, as the structure of any group corresponds to its functions. The modern national machinery is a complicated system, and is becoming more so as const.i.tutional conventions define more in detail the powers and forms of government, and as legislatures enter the field of social reform, but the simplest attempt at regulation involves several steps, and so naturally there are several departments of government. The first step is the election of those who are to make the laws. Practically all modern states recognize the principle that the people are at least to have a share in government; this is managed by the popular election of their representatives in the various departments of government. The second step is lawmaking by the representative legislature, congress, or parliament, usually after previous deliberation and recommendation by a committee; in some states the people have the right by referendum to ratify or reject the legislation, and even to initiate such legislation as they desire. The third step is the arrangement for carrying out the law that has been pa.s.sed. This is managed by the executive department of the government. The fourth step is the actual administration of law and government by officials who are sometimes elected and sometimes appointed, and who const.i.tute the administrative department of the political organization. A fifth step is the pa.s.sing upon law and the relation of an individual or group to it by judicial officers attached to a system of courts. These departments of the state, with whatever auxiliary machinery has been organized to a.s.sist in their working, make up the political organization of the typical modern state.

335. =The Electoral System.=--There is great variety in the degree of self-government enjoyed by the people. In the most advanced nations the electoral privileges are widely distributed, in the backward nations it is only recently that the people have had any voice in national affairs. Usually suffrage is reserved for those who have reached adult manhood, but an increasing number of States of the American Union and several foreign nations have admitted women to equal privileges. Lack of property or education in many countries is a bar to electoral privilege. Pauperism and crime and sometimes religious heterodoxy disfranchise. The variety and number of officials to be elected varies greatly. The head of the nation in the states of the Old World generally holds his position by hereditary right, and he has large appointive power directly or indirectly. In some states the judiciary is appointed rather than elected on the ground that it should be above the influence of party politics. The chief power of the people is in choosing their representatives to make the laws. Most of these representatives are chosen for short terms and must answer to the people for their political conduct; by these means the people are actually self-governing, though the execution of the law may be in the hands of officers whom they have not chosen. Democratic government is nevertheless subject to all the forces that affect large bodies exerted through party organizations, demagogues, and a party press, but even opponents of democracy are willing to admit that the people are learning political lessons by experience.

336. =The Legislative System.=--Legislation by representatives of all cla.s.ses of the people is a new political phenomenon tried out most thoroughly among the large nations by Great Britain, France, and the United States. Even now there is much distrust of the ability of the ordinary man in politics, and considerably more of the ordinary woman.

But there have been so many extraordinary individuals who have risen to political eminence from the common crowd, that the legislative privilege can no longer be confined to an aristocracy. The old aristocratic element is represented to-day by a senate, or upper house, composed of men who are prominent by reason of birth, wealth, or position, but the upper house is of minor importance. The real legislative power rests with the lower chamber, which directly represents the middle and lower cla.s.ses, professional, business, and industrial. The action of lawmaking bodies is usually limited in scope by the provisions of a written const.i.tution, and is modified by the public opinion of const.i.tuents. Important among the necessary legislation is the regulation of the economic and social relations of individuals and corporations, provision for an adequate revenue by means of a system of taxation, appropriation for the maintenance of departments of government and necessary public works, and the determination of an international policy. In the United States an elaborate system of checks and balances gives the executive a provisional veto on legislation, but gives large advisory powers to Congress. In Great Britain the executive is the chief of the dominant party in Parliament, and if he loses the confidence of the legislative body he loses his position as prime minister unless sustained in a national election.

In all legislative bodies there are inevitable differences of opinion and conflicts of interests resulting in party divisions and such opposite groups as conservatives and radicals. The formulation and pursuance of a national policy is, therefore, not an easy task, and the conflict of interests often necessitates compromise, so that a history of legislation over a series of years shows that national progress is generally accomplished by liberalism wresting a modic.u.m of power from conservatism, then giving way for a little to a period of reaction, and then pushing forward a step further as public opinion becomes more intelligent or more courageous.

337. =The Executive Department.=--Legislative bodies occasionally take vacations; the executive is always on duty in person or through his subordinates. Popularly considered, the executive department of government consists of the president, the king, or the prime minister; actually it includes an advisory council or cabinet, which is responsible to its chief, but shares with him the task of the management of national affairs. The executive department of the government stands in relation to the people of the nation as the business manager of a corporation stands in relation to the stockholders. He must see that the will of the people, as expressed by their representatives, is carried into effect; he must appoint the necessary administrative officials for efficient service; he must keep his finger upon the pulse of the nation, and use his influence to hold the legislature to its duty; he must approve or veto laws which are sent to him to sign; above all, he must represent his nation in all its foreign relations, appoint the personnel of the diplomatic force, negotiate treaties, and help to form the international law of the world. It is the business of the executive to maintain the honor and dignity of the nation before the world, and to carry out the law of his own nation if it requires the whole military force available.

338. =Administrative Organization.=--The executive department includes the advisers of the head, who const.i.tute the cabinet. In Europe the cabinet is responsible to the sovereign or the parliament, and the members usually act unitedly. In the United States they are appointed by the President, and are individually responsible to him alone. In their capacity as a cabinet they help to formulate national policy, and their influence in legislation and in moulding public opinion is considerable, but their chief function is in administering the departments of which they have charge. It is the custom for the heads of the chief departments of government to const.i.tute the cabinet, but their number differs in different states, and t.i.tles vary, also. In general, the department of state or foreign affairs ranks first in importance, and its secretary is in charge of all correspondence with the diplomatic representatives of the nation located in the world's capitals; the department of the treasury or the exchequer is usually next in importance; others are the departments of the army and navy, of colonial possessions, of manufacturing and commerce, mining, or agriculture, of public utilities, of education or religion, and for judicial business. Each of these has its subordinate bureaus and an army of civil-service officials, some of whom owe their appointment to personal influence, others to real ability. The civil officials with which the public is most familiar are postal employees, officers of the federal courts, and revenue officials. Such persons usually hold office while their party is in power or during good behavior. Long tenure of office tends to conservative measures and the spirit of bureaucracy, while a system by which civil office is regarded as party spoil tends to corruption and inefficiency. The business of administration is becoming increasingly important in the modern state.

339. =The Judicial System.=--There is always danger that law may be misinterpreted or prove unconst.i.tutional. It is the function of the judicial department of government to make decisions, interpreting and applying the law of the nation in particular cases brought before the courts. The law of the nation is superior to all local or sectional law; so is the national judiciary supreme in its authority and national in its jurisdiction. The judicial system of the United States includes a series of courts from the lowest district courts, which are located throughout the country, to the Supreme Court in Washington, which deals with the most momentous questions of national law. In the United States the judicial system is complicated by a system of lesser courts, State and local, independent of federal control, attached to which is a body of police, numerous judges, juries, and lawyers; the higher courts also have their justices and practising lawyers, but there is less haste and confusion and greater dignity and ability displayed. There has been much criticism in recent years of antiquated forms of procedure, c.u.mbrous precedent, and unfair use of technicalities for the defeat of justice, but however imperfect judicial practice may be, the system is well intrenched and is not likely to be changed materially.

340. =The Relation of National to District Governments.=--In some nations there are survivals of older political divisions which once possessed sovereignty, but which have sacrificed most, if not all, of it for the larger good. This is the case in such federal states as the German Empire, Switzerland, and the United States. Each State in the American nation retains its own departments of government, and so has its governor and heads of departments, its two-chambered legislature, and its State judiciary. State law and State courts are more familiar to the people than most of the national legislation. In the German Empire each state has its own prince, and in many respects is self-governing, but has been more and more sinking its own individuality in the empire. In the British Empire there is still another relation. England, Wales, Scotland, and Ireland were once independent of each other, but military and dynastic events united them. For local legislation and administration they tend to separate, and already Ireland has obtained home rule. Beyond seas a colonial empire has arisen, and certain great dominions are united by little more than ties of blood and loyalty to the mother country. Canada, Australia, and South Africa have gained a larger measure of sovereignty. India is held as an imperial possession, but even there experiments of self-government are being tried. The whole tendency of government, both here and abroad, seems to be to leave matters of local concern largely to the local community and matters that belong to a section or subordinate state to that district, and to centralize all matters of national or interstate concern in the hands of a small body of men at the national capital. In every case national or imperial authority is the court of last resort.

READING REFERENCES

BLISS: _New Encyclopedia of Social Reform_, art. "Anarchism."

DEALEY: _Development of the State_, pages 127-234.

WILSON: _The State_, pages 555-571.

BLUNTSCHLI: _Theory of the State_, pages 61-73.

_Const.i.tution of the United States._

BRYCE: _The American Commonwealth_ (abridged edition), pages 22-242, 287-305.

CHAPTER XLIII

PROBLEMS OF THE NATION

341. =Government as the Advance Agent of Prosperity.=--It is common philosophy that society owes every man a living, and it seems to be a common belief that the government owes every man a job. There are, of course, only a few government positions, and these are rushed after by a swarm of office-seekers, but campaign orators have talked so much about a full dinner pail and the government as the advance agent of prosperity, that there seems to be a popular notion that the government, as if by a magician's wand, could cure unemployment, allay panics, dispel hard times, and increase a man's earning power at will.

A little familiarity with economic law ought to modify this notion, but it is difficult to eradicate it. Society cannot, through any one inst.i.tution, bring itself to perfection; many elements enter into the making of prosperity. It depends on individual ability and training for industry, on an understanding of the laws of health and keeping the body and brain in a state of efficiency, on peaceful relations between groups, on the successful balancing of supply and demand, and of wages and the cost of living, on personal integrity and group co-operation. All that the government can do is to instruct and stimulate. This it has been doing and will continue to do with growing effectiveness, but it has to feel its way and learn by experience, as do individuals.

342. =How It Has Met Its Responsibility.=--This problem of prosperity which is both economic and social, is the concern of all the people of the nation, and any attempt to solve it in the interest of one section or a single group cannot bring success. That is one reason for many of the social weaknesses everywhere visible. Government has legislated in the interests of a group of manufacturers, or the courts have favored the rich, or trusts have been attacked at the demands of a reforming party, or labor has been immune from the application of a law against conspiracy when corporations were hard hit. These weaknesses, which are characteristic of American democracy, find their parallels in all countries where modern industrial and social conditions obtain. But government has lent its energies to the upbuilding of a sound social structure. It has recognized the need of education for the youth of the land at a minimum cost, and the States of the American Union have made liberal grants for both academic and special training to their State universities, agricultural colleges, and normal schools. It encourages the country people to enrich their life and to increase their earnings for their own sake and for the prosperity of the people who are dependent upon them. It stimulates improved processes in manufacturing and mining, and protects business against foreign compet.i.tion by a tariff wall; it tries to prevent recurring seasons of financial panics by a stable currency and the extension of credits. It provides the machinery for settling labor difficulties by conciliation and arbitration, and tries to mediate between gigantic combinations of trade and transportation and the public. It has pensioned liberally its old soldiers. It has attempted to find a method of taxation that would not bear heavily on its citizens, but that at the same time would provide a sufficient revenue to meet the enormous expense of catering to the multifarious interests of a population of a hundred million people.

343. =The Problem of Democracy.=--The problem of prosperity is complicated by the problem of democracy. If by a satisfactory method a body of wise men could be selected to study carefully each specific problem involved, could experiment over a term of years in the execution of plans worked out free from fear of being thrown out at any time as the result of elective action by an impatient people, prosperity might move on more rapid feet. In a country where power is in the hands of a few a specific programme can be worked out without much friction and rapid industrial and social progress can be made, as has been the case during the last fifty years in Germany; but where the ma.s.ses of the people must be consulted and projects depend for success upon their sustained approval, progress is much more spasmodic and uncertain. Everything depends on an intelligent electorate, controlled by reason rather than emotion and patient enough to await the outcome of a policy that has been inaugurated.

This raises the question as to the education of the electorate or the establishment of an educational qualification, as in some States. Is there any way by which the ma.s.s of the working people, who have only an elementary education, and never see even the outside of a State university, can be made intelligent and self-restrained? They will not read public doc.u.ments, whether reports of expert commissions or speeches in Congress. Shall they be compelled to read what the government thinks is for their good, or be deprived of the suffrage as a penalty? They get their political opinions from sensational journals. Shall these publications be placed under a ban and the nation subsidize its own press? These are questions to be considered by the educational departments of State and nation, with a view to a more intelligent citizenship. Democracy cannot be said to be a failure, but it is still a problem. Government will not be any better than the majority of the citizens want it to be; hence its standards can be raised only as the mental and moral standards of the electorate are elevated. Education, a conscious share in the responsibility of legislation, and sure justice in all controverted cases, whether of individuals or cla.s.ses, are necessary elements in winning even a measure of success.

344. =The Race Problem.=--The difficulties of American democracy are enormously enhanced by the race problem. If common problems are to be solved, there must be common interests. The population needs to be h.o.m.ogeneous, to be seeking the same ends, to be conscious of the same ideals. Not all the races of the world are thus h.o.m.ogeneous; it would be difficult to think of Englishmen, Russians, Chinese, South Americans, and Africans all working with united purpose, inspired by the same ideals, yet that is precisely what is expected in America under the tutelage and leadership of two great political parties, not always scrupulous about the methods used to obtain success at the polls. It is rather astonishing that Americans should expect their democracy to work any better than it does when they remember the conditions under which it works. To hand a man a ballot before he feels himself a part of the nation to which he has come, before he is stirred to something more than selfish achievement, before he is conscious of the real meaning of citizenship, is to court disaster, yet in being generous with the ballot the people of America are arming thousands of ignorant, irresponsible immigrants with weapons against themselves.

The race problem of America is not at all simple. It is more than a problem of immigration. The problem of the European immigrant is one part of it. There is also the problem of the relation of the American people to the yellow races at our back door, and the problem of the negro, who is here through no fault of his own, but who, because he is here, must be brought into friendly and helpful relation with the rest of the nation.

345. =The Problem of the European Immigrant.=--The problem of the European immigrant is one of a.s.similation. It is difficult because the alien comes in such large numbers, brings with him a different race heritage, and settles usually among his own people, where American influence reaches him only at second hand. Environment may be expected to change him gradually, the education of his children will modify the coming generation, but it will be a slow task to make him over into an American in ideals and modes of thinking, as well as in industrial efficiency, and in the process the native American is likely to suffer loss in the contact, with a net lowering of standards in the life of the American people. To see the danger is not to despair of escaping it. To understand the danger is the first step in providing a safeguard, and to this end exact knowledge of the situation should be a part of the teaching of the schools. To seek a solution of the problem is the second step. The main agency is education, but this does not mean entirely education in the schools. Education through social contact is the princ.i.p.al means of a.s.similating the adult; for this purpose it is desirable that some means be found for the better distribution of the immigrant, and as immigration is a national problem, it is proper for the national government to attack that particular phase of it. Then it belongs to voluntary agencies, like settlements, churches, and philanthropic and educational societies to give instruction in the essentials of language, civics, industrial training, and character building. For the children the school provides such education, but voluntary agencies may well supplement its secular training with more definite and thorough instruction in morals and religion. It cannot be expected that the immigrant problem will settle itself; at least, a purposeful policy wisely and persistently carried out will accomplish far better and quicker results. Nor is it an insoluble problem; it is not even necessary that we should severely check immigration. But there is need of intelligent and co-operative action to distribute, educate, and find a suitable place for the immigrant, that he may make good, and to devise a restrictive policy that will effectually debar the most undesirable, and will hold back the vast stream of recent years until those already here have been taken care of.

346. =The Problem of the Asiatic Immigrant.=--The problem of the Asiatic immigrant is quite different. It is a problem of race conflict rather than of race a.s.similation. The student of human society cannot minimize the importance of race heredity. In the case of the European it holds a subordinate place, because the difference between his heritage and that of the American is comparatively slight. But the Asiatic belongs to a different race, and the century-long training of an entirely different environment makes it improbable that the Asiatic and the American can ever a.s.similate. Each can learn from the other and co-operate to mutual advantage, but race amalgamation, or even a fusion of customs of thought and social ideals is altogether unlikely.

It is therefore not to the advantage of either American or Asiatic that much Asiatic immigration into the United States should take place. To agree to this is not to be hostile to or scornful of the yellow man. The higher cla.s.ses are fully as intelligent and capable of as much energy and achievement as the American, but the vast ma.s.s of those who would come here if immigration were unrestricted are undesirable, because of their low industrial and moral standards, their tenacity of old habits, and with all the rest because of their immense numbers, that would overrun all the western part of the United States. When the Chinese Exclusion Act pa.s.sed Congress in 1882, the Chinese alone were coming at the rate of nearly forty thousand a year, and that number might have been increased tenfold by this time, to say nothing of j.a.panese and Hindoos. While, therefore, the United States must treat Asiatics with consideration and live up to its treaty obligations, it seems the wise policy to refuse to admit the Asiatic ma.s.ses to American residence.

A part of the Asiatic problem, however, is the political relation of the United States and the Asiatic Powers, especially in the Pacific.

This is less intimately vital, but is important in view of the rapidly growing tendency of both China and j.a.pan to expand in trade and political ambitions. This is a problem of political rather than social science, but since the welfare of both races is concerned, and of other peoples of the Pacific Islands, it needs the intelligent consideration of all students. It is desirable to understand one another, to treat one another fairly and generously, and to find means, if possible, of co-operation rather than conflict, where the interests of one impinge upon another. All mediating influences, like Christian missions, are to be welcomed as helping to extend mutual understanding and to soften race prejudices and animosities.

347. =The Negro Problem.=--Not a few persons look upon the negro problem as the most serious social question in America. Whatever its relative merits, as compared with other problems, it is sufficiently serious to call for careful study and an attempt at solution. The negro race in America numbers approximately ten millions, twice as many as at the close of the Civil War. The negro was thrust upon America by the cupidity of the foreign slave-trader, and perpetuated by the difficulty of getting along without him. His presence has been in some ways beneficial to himself and to the whites among whom he settled, but it has been impossible for two races so diverse to live on a plane of equality, and the burden of education upon the South has been so heavy and the race qualities of the negro so discouraging, that progress in the solution of the negro problem has been slow.

The problem of the colored race is not one of a.s.similation or of conflict. In spite of an admixture of blood that affects possibly a third of the American negroes, there never will be race fusion.

a.s.similation of culture was partly accomplished in slave days, and it will go on. There is no serious conflict between white and colored, when once the question of a.s.similation is understood. The problem is one of race adjustment. Fifty years have been insufficient to perfect the relations between the two races, but since they must live together, it is desirable that they should come to understand and sympathize with each other, and as far as possible co-operate for mutual advancement. The problem is a national one, because the man of color is not confined to the South, and even more because the South alone is unable to deal adequately with the situation. The negro greatly needs efficient social education. He tends to be dirty, lazy, and improvident, as is to be expected, when left to himself. Like all countrymen--a large proportion live in the country--he is backward in ways of thinking and methods of working. He is primitive in his pa.s.sions and much given to emotion. He shows the traits of a people not far removed from savagery. It is remarkable that his white master was able to civilize him as much as he did, and it is not strange that there has been many a relapse under conditions of unprepared freedom, but it is only the more reason why negro character should be raised higher on the foundation already laid.

The task is not very different from that which is presented by the slum population of the cities of the North. The children need to be taught how to live, and then given a chance to practise the instruction in a decent environment. They need manual and industrial training fitted to their industrial environment, and every opportunity to employ their knowledge in earning a living. They need n.o.ble ideals, and these they can get only by the sympathetic, wise teaching of their superiors, whether white or black. They and their friends need patience in the upward struggle, for it will not be easy to socialize and civilize ten million persons in a decade or a century. Such inst.i.tutions as Hampton and Tuskegee are working on a correct basis in emphasizing industrial training; these schools very properly are supplemented by the right kind of elementary schools, on the one hand, and by cultural inst.i.tutions of high grade on the other, for the negro is a human being, and his nature must be cultivated on all sides, as much as if he were white.

348. =The Race Problem a Part of One Great Social Problem.=--The race problem as a whole is not peculiar to America, but is intensified here by the large mixture of all races that is taking place. It is inevitable, as the world's population shifts in meeting the social forces of the present age. It is complicated by race inequalities and race ambitions. It is fundamentally a problem of adjustment between races that possess a considerable measure of civilization and those that are not far removed from barbarism. It is discouraging at times, because the supposedly cultured peoples revert under stress of war or compet.i.tion or self-indulgence to the crudities of primitive barbarism, but it is a soluble problem, nevertheless. The privileged peoples need a solemn sense of the responsibility of the "white man's burden," which is not to cultivate the weaker man for the sake of economic exploitation, but to improve him for the weaker man's own sake, and for the sake of the world's civilization. The policy of any nation like the United States must be affected, of course, by its own interests, but the European, the Asiatic, the negro, and every race or people with which the American comes in contact ought to be regarded as a member of a world society in which the interlocking of relationships is so complete that the injury of one is the injury of all, and that which is done to aid the least will react to the benefit of him who already has more.

READING REFERENCES

DEALEY: _Development of the State_, pages 300-314.

USHER: _Rise of the American People_, pages 392-404.

MECKLIN: _Democracy and Race Friction_, pages 77-122.

COMMONS: _Races and Immigrants in America_, pages 17-21, 198-238.

COOLIDGE: _Chinese Immigration_, pages 423-458, 486-496.

GULICK: _The American j.a.panese Problem_, pages 3-27, 90-196, 281-307.

CHAPTER XLIV

INTERNATIONALISM

349. =The New World Life.=--The social life that started in the family has broadened until it has circled the globe. It is possible now to speak in terms of world life. The interests of society have reached out from country to country, and from zone to zone, just as a child's interests as he grows to manhood expand from the home to the community and from the community to the nation.

The idea of the social solidarity of all peoples is still new. Ever since the original divergence of population from its home nest, when groups became strange and hostile to one another because of mountain and forest barriers, changing languages, and occasionally clashing interests, the tendency of the peoples was to grow apart. But for a century past the tendency has been changing from divergence to convergence, from ignorance and distrust of one another to understanding, sympathy, and good-will, from independence and ruthlessness to interdependence and co-operation. Numerous agencies have brought this about--some physical like steam and electricity, some economic like commerce and finance, some social like travel and the interchange of ideas through the press, some moral and religious like missions and international organizations for peace. The history of a hundred years has made it plain that nations cannot live in isolation any more than individuals can, and that the tendency toward social solidarity must be the permanent tendency if society is to exist and prosper, even though civilization and peace may be temporarily set back for a generation by war.

350. =The Principle of Adaptation vs. Conflict.=--This New World life is not unnatural, though it has been slow in coming. A human being is influenced by his physical needs and desires, his cultivated habits, his acc.u.mulated interests, the customs of the people to whom he belongs, and the conditions of the environment in which he finds himself. While a savage his needs, desires, and interests are few, his habits are fixed, his relations are simple and local; but when he begins to take on civilization his needs multiply, his habits change, and his relations extend more widely. The more enlightened he becomes the greater the number of his interests and the more points of contact with other people. So with every human group. The process of social development for a time may intensify conflict, but there comes a time when it is made clear to the dullest mind that conflict must give way to mutual adaptation. No one group, not even a supernation, can have everything for itself, and for the sake of the world's comfort and peace it will be a decided social gain when that principle receives universal recognition. World federations and peace propaganda cannot be effective until that principle is accepted as a working basis for world life.