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 Const.i.tution, 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 Const.i.tution; 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 inst.i.tutions.

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 coordinated 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 Const.i.tutional 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 munic.i.p.al 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 a.s.sert 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 munic.i.p.al 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 cooperation, 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 cla.s.sification 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 a.s.suredly 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-coordinated 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 att.i.tude, because the reasons they advance against increasingly centralized authority would, if they should continue to prevail, definitely and absolutely forbid a gradually improving coordination 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.

Under the influence of certain practical demands, an increase has already taken place in the activity of the Federal government. The increase has not gone as far as governmental efficiency demands, but it has gone far enough to provoke outbursts of protest and anguish from the "old-fashioned Democrats." They profess to see the approaching extinction of the American democracy in what they call the drift towards centralization. Such calamitous predictions are natural, but they are none the less absurd. The drift of American politics--its instinctive and unguided movement--is almost wholly along the habitual road; and any effective increase of Federal centralization can be imposed only by most strenuous efforts, by one of the biggest sticks which has ever been flourished in American politics. The advance made in this direction is small compared to the actual needs of an efficient national organization, and considering the ma.s.s of interest and prejudice which it must continue to overcome, it can hardly continue to progress at more than a snail's pace. The great obstacle to American national fulfillment must always be the danger that the American people will merely succ.u.mb to the demands of their local and private interests and will permit their political craft to drift into a compromising situation--from which the penalties of rescue may be almost as distressing as the penalties of submission.

The tradition of an individualist and provincial democracy, which is the mainstay of an anti-national policy, does not include ideals which have to be realized by aggressive action. Their ideals are the ones embodied in our existing system, and their continued vitality demands merely a policy of inaction enveloped in a cloud of sacred phrases. The advocates and the beneficiaries of the prevailing ideas and conditions are little by little being forced into the inevitable att.i.tude of the traditional Bourbon--the att.i.tude of maintaining customary or legal rights merely because they are customary or legal, and predicting the most awful consequences from any attempt to impair them. Men, or a.s.sociations of men, who possess legal or customary rights inimical to the public welfare, always defend those rights as the essential part of a political system, which, if it is overthrown, will prove destructive to public prosperity and security. On no other ground can they find a plausible public excuse for their opposition. The French royal authority and aristocratic privileges were defended on these grounds in 1780, and as the event proved, with some show of reason. In the same way the partial legislative control of nationalized corporations now exercised by the state government, is defended, not on the ground that it has been well exercised, not even plausibly on the ground that it can be well exercised. It is defended almost exclusively on the ground that any increase in the authority of the Federal government is dangerous to the American people. But the Federal government belongs to the American people even more completely than do the state governments, because a general current of public opinion can act much more effectively on the single Federal authority than it can upon the many separate state authorities. Popular interests have nothing to fear from a measure of Federal centralization, which bestows on the Federal government powers necessary to the fulfillment of its legitimate responsibilities; and the American people cannot in the long run be deceived by pleas which bear the evidence of such a selfish origin and have such dubious historical a.s.sociations. The rights and the powers both of states and individuals must be competent to serve their purposes efficiently in an economical and coherent national organization, or else they must be superseded. A prejudice against centralization is as pernicious, provided centralization is necessary, as a prejudice in its favor. All rights under the law are functions in a democratic political organism and must be justified by their actual or presumable functional adequacy.

The ideal of a constructive relation between American nationality and American democracy is in truth equivalent to a new Declaration of Independence. It affirms that the American people are free to organize their political, economic, and social life in the service of a comprehensive, a lofty, and far-reaching democratic purpose. At the present time there is a strong, almost a dominant tendency to regard the existing Const.i.tution with superst.i.tious awe, and to shrink with horror from modifying it even in the smallest detail; and it is this superst.i.tious fear of changing the most trivial parts of the fundamental legal fabric which brings to pa.s.s the great bondage of the American spirit. If such an abject worship of legal precedent for its own sake should continue, the American idea will have to be fitted to the rigid and narrow lines of a few legal formulas; and the ruler of the American spirit, like the ruler of the Jewish spirit of old, will become the lawyer. But it will not continue, in case Americans can be brought to understand and believe that the American national political organization should be constructively related to their democratic purpose. Such an ideal reveals at once the real opportunity and the real responsibility of the American democracy. It declares that the democracy has a machinery in a nationalized organization, and a practical guide in the national interest, which are adequate to the realization of the democratic ideal; and it declares also that in the long run just in so far as Americans timidly or superst.i.tiously refuse to accept their national opportunity and responsibility, they will not deserve the names either of freemen or of loyal democrats. There comes a time in the history of every nation, when its independence of spirit vanishes, unless it emanc.i.p.ates itself in some measure from its traditional illusions; and that time is fast approaching for the American people.

They must either seize the chance of a better future, or else become a nation which is satisfied in spirit merely to repeat indefinitely the monotonous measures of its own past.

III

THE PEOPLE AND THE NATION

At the beginning of this discussion popular Sovereignty was declared to be the essential condition of democracy; and a general account of the nature of a constructive democratic ideal can best be brought to a close by a definition of the meaning of the phrase, popular Sovereignty, consistent with a nationalist interpretation of democracy. The people are Sovereign; but who and what are the people? and how can a many-headed Sovereignty be made to work? Are we to answer, like Bismarck, that the "true people is an invisible mult.i.tude of spirits--the nation of yesterday and of to-morrow"? Such an answer seems scarcely fair to living people of to-day. On the other hand, can we reply that the Sovereign people is const.i.tuted by any chance majority which happens to obtain control of the government, and that the decisions and actions of the majority are inevitably and unexceptionally democratic? Such an a.s.sertion of the doctrine of popular Sovereignty would bestow absolute Sovereign authority on merely a part of the people. Majority rule, under certain prescribed conditions, is a necessary const.i.tuent of any practicable democratic organization; but the actions or decisions of a majority need not have any binding moral and national authority. Majority rule is merely one means to an extremely difficult, remote and complicated end; and it is a piece of machinery which is peculiarly liable to get out of order. Its arbitrary and dangerous tendencies can, as a matter of fact, be checked in many effectual and legitimate ways, of which the most effectual is the cherishing of a tradition, partly expressed in some body of fundamental law, that the true people are, as Bismarck declared, in some measure an invisible mult.i.tude of spirits--the nation of yesterday and to-morrow, organized for its national historical mission.

The phrase popular Sovereignty is, consequently, for us Americans equivalent to the phrase "national Sovereignty." The people are not Sovereign as individuals. They are not Sovereign in reason and morals even when united into a majority. They become Sovereign only in so far as they succeed in reaching and expressing a collective purpose. But there is no royal and unimpeachable road to the attainment of such a collective will; and the best means a democratic people can take in order to a.s.sert its Sovereign authority with full moral effect is to seek fullness and consistency of national life. They are Sovereign in so far as they are united in spirit and in purpose; and they are united in so far as they are loyal one to another, to their joint past, and to the Promise of their future. The Promise of their future may sometimes demand the partial renunciation of their past and the partial sacrifice of certain present interests; but the inevitable friction of all such sacrifices can be mitigated by mutual loyalty and good faith. Sacrifices of tradition and interest can only be demanded in case they contribute to the national purpose--to the gradual creation of a higher type of individual and a.s.sociated life. Hence it is that an effective increase in national coherence looks in the direction of the democratic consummation--of the morally and intellectually authoritative expression of the Sovereign popular will. Both the forging and the functioning of such a will are constructively related to the gradual achievement of the work of individual and social amelioration.

Undesirable and inadequate forms of democracy always seek to dispense in one way or another with this tedious process of achieving a morally authoritative Sovereign will. We Americans have identified democracy with certain existing political and civil rights, and we have, consequently, tended to believe that the democratic consummation was merely a matter of exercising and preserving those rights. The grossest form of this error was perpetrated when Stephen A. Douglas confused authoritative popular Sovereignty with the majority vote of a few hundred "squatters" in a frontier state, and a.s.serted that on democratic principles such expressions of the popular will should be accepted as final. But an a.n.a.logous mistake lurks in all static forms of democracy.

The bestowal and the exercise of political and civil rights are merely a method of organization, which if used in proper subordination to the ultimate democratic purpose, may achieve in action something of the authority of a popular Sovereign will. But to cleave to the details of such an organization as the very essence of democracy is utterly to pervert the principle of national democratic Sovereignty. From this point of view, the Bourbon who wishes the existing system with its mal-adaptations and contradictions preserved in all its lack of integrity, commits an error a.n.a.logous to that of the radical, who wishes by virtue of a majority vote immediately to destroy some essential part of the fabric. Both of them conceive that the whole moral and national authority of the democratic principle can be invoked in favor of inst.i.tutions already in existence or of purposes capable of immediate achievement.

On the other hand, there are democrats who would seek a consummate democracy without the use of any political machinery. The idea that a higher type of a.s.sociated life can be immediately realized by a supreme act of faith must always be tempting to men who unite social aspirations with deep religious faith. It is a more worthy and profound conception of democracy than the conventional American one of a system of legally const.i.tuted and equally exercised rights, fatally resulting in material prosperity. Before any great stride can be made towards a condition of better democracy, the constructive democratic movement must obtain more effective support both from scientific discipline and religious faith.

Nevertheless, the triumph of Tolstoyan democracy at the present moment would be more pernicious in its results than the triumph of Jeffersonian Democracy. Tolstoy has merely given a fresh and exalted version of the old doctrine of non-resistance, which, as it was proclaimed by Jesus, referred in the most literal way to another world. In this world faith cannot dispense with power and organization. The sudden and immediate conversion of unregenerate men from a condition of violence, selfishness, and sin into a condition of beat.i.tude and brotherly love can obtain even comparative permanence only by virtue of exclusiveness.

The religious experience of our race has sufficiently testified to the permanence of the law. One man can be evangelized for a lifetime. A group of men can be evangelized for many years. Mult.i.tudes of men can be evangelized only for a few hours. No faith can achieve comparatively stable social conquests without being established by habit, defined by thought, and consolidated by organization. Usually the faith itself subsequently sickens of the bad air it breathes in its own house.

Indeed, it is certain to lose initiative and vigor, unless it can appeal intermittently to some correlative source of enthusiasm and devotion.

But with the help of efficient organization it may possibly survive, whereas in the absence of such a worldly body, it must in a worldly sense inevitably perish. Democracy as a living movement in the direction of human brotherhood has required, like other faiths, an efficient organization and a root in ordinary human nature; and it obtains such an organization by virtue of the process of national development--on condition, of course, that the nation is free to become a genuine and thorough-going democracy.

A democracy organized into a nation, and imbued with the national spirit, will seek by means of experimentation and discipline to reach the object which Tolstoy would reach by an immediate and a miraculous act of faith. The exigencies of such schooling frequently demand severe coercive measures, but what schooling does not? A nation cannot merely discharge its unregenerate citizens; and the best men in a nation or in any political society cannot evade the responsibility which the fact of human unregeneracy places upon the whole group. After men had reached a certain stage of civilization, they frequently began to fear that the rough conditions of political a.s.sociation excluded the highest and most fruitful forms of social life; and they sought various ways of improving the quality of the a.s.sociation by narrowing its basis. They tried to found small communities of saints who were connected exclusively by moral and religious bonds, and who in this way freed themselves from the hazards, the distraction, and the violence inseparable from political a.s.sociation. Such communities have made at different times great successes; but their success has not been permanent. The political aspect of a.s.sociated life is not to be evaded. In proportion as political organization gained in prosperity, efficiency, and dignity, special religious a.s.sociations lost their independence and power. Even the most powerful religious a.s.sociation in the world, the Catholic Church, has been fighting a losing battle with political authority, and it is likely in the course of time to occupy in relation to the political powers a position a.n.a.logous to that of the Greek or the English church. The ultimate power to command must rest with that authority which, if necessary, can force people to obey; and any plan of a.s.sociation which seeks to ignore the part which physical force plays in life is necessarily incomplete. Just as formerly the irresponsible and meaningless use of political power created the need of special religious a.s.sociations, independent of the state, so now the responsible, the purposeful, and the efficient use of physical force, characteristic of modern nations, has in its turn made such independence less necessary, and tends to attach a different function to the church. A basis of a.s.sociation narrower than the whole complex of human powers and interests will not serve. National organization provides such a basis.

The perversity of human nature may cause its ultimate failure; but it will not fail because it omits any essential const.i.tuent in the composition of a permanent and fruitful human a.s.sociation. So far as it fulfills its responsibilities, it guarantees protection against predatory powers at home and abroad. It provides in appropriate measure for individual freedom, for physical, moral, and intellectual discipline, and for social consistency. It has prizes to offer as well as coercion to exercise; and with its foundations planted firmly in the past, its windows and portals look out towards a better future. The tendency of its normal action is continually, if very slowly, to diminish the distance between the ideal of human brotherhood, and the political, economic, and social conditions, under which at any one time men manage to live together.

That is the truth to which the patriotic Americans should firmly cleave.

The modern nation, particularly in so far as it is constructively democratic, const.i.tutes the best machinery as yet developed for raising the level of human a.s.sociation. It really teaches men how they must feel, what they must think, and what they must do, in order that they may live together amicably and profitably. The value of this school for its present purposes is increased by its very imperfections, because its imperfections issue inevitably from the imperfections of human nature.

Men being as unregenerate as they are, all worthy human endeavor involves consequences of battle and risk. The heroes of the struggle must maintain their achievements and at times even promote their objects by compulsion. The policeman and the soldier will continue for an indefinite period to be guardians of the national schools, and the nations have no reason to be ashamed of this fact. It is merely symbolic of the very comprehensiveness of their responsibilities--that they have to deal with the problem of human inadequacy and unregeneracy in all its forms,--that they cannot evade this problem by allowing only the good boys to attend school--that they cannot even mitigate it by drawing too sharp a distinction between the good boys and the bad. Such indiscriminate attendance in these national schools, if it is to be edifying, involves one practical consequence of dominant importance.

Everybody within the school-house--masters, teachers, pupils and janitors, old pupils and young, good pupils and bad, must feel one to another an indestructible loyalty. Such loyalty is merely the subjective aspect of their inevitable mutual a.s.sociation; it is merely the recognition that as a worldly body they must all live or die and conquer or fail together. The existence of an invincible loyalty is a condition of the perpetuity of the school. The man who believes himself wise is always tempted to ignore or undervalue the foolish brethren. The man who believes himself good is always tempted actively to dislike the perverse brethren. The man who insists at any cost upon having his own way is always twisting the brethren into his friends or his enemies. But the teaching of the national school constantly tends to diminish these causes of disloyalty. Its tendency is to convert traditional patriotism into a patient devotion to the national ideal, and into a patient loyalty towards one's fellow-countrymen as the visible and inevitable substance through which that ideal is to be expressed.

In the foregoing characteristic of a democratic nation, we reach the decisive difference between a nation which is seeking to be wholly democratic and a nation which is content to be semi-democratic. In the semi-democratic nation devotion to the national ideal does not to the same extent sanctify the citizen's relation in feeling and in idea to his fellow-countrymen. The loyalty demanded by the national ideal of such a country may imply a partly disloyal and suspicious att.i.tude towards large numbers of political a.s.sociates. The popular and the national interests must necessarily in some measure diverge. In a nationalized democracy or a democratic nation the corresponding dilemma is mitigated. The popular interest can only be efficiently expressed in a national policy and organization. The national interest is merely a more coherent and ameliorating expression of the popular interest. Its consistency, so far as it is consistent, is the reflection of a more humanized condition of human nature. It increases with the increasing power of its citizens to deal fairly and to feel loyally towards their fellow-countrymen; and it cannot increase except through the overthrow of the obstacles to fair dealing and loyal feeling.

The responsibility and loyalty which the citizens of a democratic nation must feel one towards another is comprehensive and unmitigable; but the actual behavior which at any one time the national welfare demands must, of course, be specially and carefully discriminated. National policies and acts will be welcome to some citizens and obnoxious to others, according to their special interests and opinions; and the citizens whose interests and ideas are prejudiced thereby have every right and should be permitted every opportunity to protest in the most vigorous and persistent manner. The nation may, however, on its part demand that these protests, in order to be heeded and respected, must conform to certain conditions. They must not be carried to the point of refusing obedience to the law. When private interests are injured by the national policy, the protestants must be able to show either that such injuries are unnecessary, or else they involve harm to an essential public interest. All such protest must find an ultimate sanction in a group of constructive democratic ideas. Finally, the protest must never be made the excuse for personal injustice or national disloyalty. Even if the national policy should betray indifference to the fundamental interests of a democratic nation, as did that of the United States from 1820 to 1860, the obligation of patient good faith on the part of the protestants is not diminished. Their protests may be as vivacious and as persistent as the error demands. The supporters of the erroneous policy may be made the object of most drastic criticism and the uncompromising exposure. No effort should be spared to secure the adoption of a more genuinely national policy. But beyond all this there remains a still deeper responsibility--that of dealing towards one's fellow-countrymen in good faith, so that differences of interest, of conviction, and of moral purpose can be made the agency of a better understanding and a firmer loyalty.

If a national policy offends the integrity of the national idea, as for a while that of the American nation did, its mistake is sure to involve certain disastrous consequences; and those consequences const.i.tute, usually, the vehicle of necessary national discipline. The national school is, of course, the national life. So far as the school is properly conducted, the methods of instruction are, if you please, pedagogic; but if the masters are blind or negligent, or if the scholars are unruly, there remains as a resource the more painful and costly methods of nature's instruction. A serious error will be followed by its inevitable penalty, proportioned to the blindness and the perversity in which it originated; and thereafter the prosperity of the country's future will hang partly on the ability of the national intelligence to trace the penalty to its cause and to fix the responsibility. No matter how loyal the different members of a national body may be one to another, their mutual good faith will bleed to death, unless some among them have the intelligence to trace their national ills to their appropriate causes, and the candid courage to advocate the necessary remedial measures. At some point in the process, disinterested patriotism and good faith must be reenforced by intellectual insight. A people are saved many costly perversions, in case the official school-masters are wise, and the pupils neither truant nor insubordinate; but if the lessons are foolishly phrased, or the pupils refuse to learn, the school will never regain its proper disciplinary value until new teachers have arisen, who understand both the error and its consequences, and who can exercise an effective authority over their pupils.

The mutual loyalty and responsibility, consequently, embodied and inculcated in a national school, depends for its efficient expression upon the amount of insight and intelligence which it involves. The process of national education means, not only a discipline of the popular will, but training in ability to draw inferences from the national experience, so that the national consciousness will gradually acquire an edifying state of mind towards its present and its future problems. Those problems are always closely allied to the problems which have been more or less completely solved during the national history; and the body of practical lessons which can be inferred from that history is the best possible preparation for present and future emergencies. Such history requires close and exact reading. The national experience is always strangely mixed. Even the successes of our own past, such as the Federal organization, contain much dubious matter, demanding the most scrupulous disentanglement. Even the worst enemies of our national integrity, such as the Southern planters, offer in some respects an edifying political example to a disinterested democracy.

Nations do not have to make serious mistakes in order to learn valuable lessons. Every national action, no matter how trivial, which is scrutinized with candor, may contribute to the stock of national intellectual discipline--the result of which should be to form a constantly more coherent whole out of the several elements in the national composition--out of the social and economic conditions, the stock of national opinions, and the essential national ideal. And it is this essential national ideal which makes it undesirable for the national consciousness to dwell too much on the past or to depend too much upon the lessons of experience alone. The great experience given to a democratic nation must be just an incorrigible but patient attempt to realize its democratic ideal--an attempt which must mold history as well as hang upon its lessons. The function of the patriotic political intelligence in relation to the fulfillment of the national Promise must be to devise means for its redemption--means which have their relations to the past, their suitability to the occasion, and their contribution towards a step in advance. The work in both critical, experienced, and purposeful. Mistakes will be made, and their effects either corrected or turned to good account. Successes will be achieved, and their effects must be coolly appraised and carefully discriminated. The task will never be entirely achieved, but the tedious and laborious advance will for every generation be a triumphant affirmation of the nationalized democratic ideal as the one really adequate political and social principle.

CHAPTER X

I

A NATIONAL FOREIGN POLICY

The logic of a national democratic ideal and the responsibilities of a national career in the world involve a number of very definite consequences in respect to American foreign policy. They involve, in fact, a conception of the place of a democratic nation in relation to the other civilized nations, different from that which has. .h.i.therto prevailed in this country. Because of their geographical situation and their democratic inst.i.tutions, Americans have claimed and still claim a large degree of national aloofness and independence; but such a claim could have been better defended several generations ago than it can to-day. Unquestionably the geographical situation of the United States must always have a decisive effect upon the nature of its policy in foreign affairs; and undoubtedly no course of action in respect to other nations can be national without serving the interests of democracy. But precisely because an American foreign policy must be candidly and vigorously national, it will gradually bring with it an increasingly complicated group of international ties and duties. The American nation, just in so far as it believes in its nationality and is ready to become more of a nation, must a.s.sume a more definite and a more responsible place in the international system. It will have an increasingly important and an increasingly specific part to play in the political affairs of the world; and, in spite of "old-fashioned democratic"

scruples and prejudices, the will to play that part for all it is worth will const.i.tute a beneficial and a necessary stimulus to the better realization of the Promise of our domestic life.

A genuinely national policy must, of course, be based upon a correct understanding of the national interest in relation to those of its neighbors and a.s.sociates. That American policy did obtain such a foundation during the early years of American history is to be traced to the sound political judgment of Washington and Hamilton. Jefferson and the Republicans did their best for a while to persuade the American democracy to follow the dangerous course of the French democracy, and to base its international policy not upon the firm ground of national interest, but on the treacherous sands of international democratic propagandism. After a period of hesitation, the American people, with their usual good sense in the face of a practical emergency, rallied to the principles subsequently contained in Washington's Farewell Address; and the Jeffersonian Republicans, when they came into control of the Federal government, took over this conception of American national policy together with the rest of the Federalist outfit. But like the rest of the Federalist organization and ideas, the national foreign policy was emasculated by the expression it received at the hands of the Republicans. The conduct of American foreign affairs during the first fifteen years of the century are an ill.u.s.tration of the ills which may befall a democracy during a critical international period, when its foreign policy is managed by a party of anti-national patriots.

After 1815 the foreign policy of the United States was determined by a strict adherence to the principles enunciated in Washington's Farewell Address. The adherence was more in the letter than in the spirit, and the ordinary popular interpretation, which prevails until the present day, cannot be granted undivided approval; but so far as its immediate problems were concerned, American foreign policy did not, on the whole, go astray. The United States kept resolutely clear of European entanglements, and did not partic.i.p.ate in international councils, except when the rights of neutrals were under discussion; and this persistent neutrality was precisely the course which was needed in order to confirm the international position of the country as well as to leave the road clear for its own national development. But certain consequences were at an early date deduced from a neutral policy which require more careful examination. During the presidency of Monroe the systematic isolation of the United States in respect to Europe was developed, so far as the two Americas were concerned, into a more positive doctrine. It was proclaimed that abstention on the part of the United States from European affairs should be accompanied by a corresponding abstention by the European Powers from aggressive action in the two Americas. What our government proposed to do was to divide sharply the democratic political system of the Americas from the monarchical and aristocratic political system of Europe. The European system, based as it was upon royalist legitimacy and privileges, and denying as it did popular political rights, was declared to be inimical in spirit and in effect to the American democratic state.

The Monroe Doctrine has been accepted in this form ever since as an indisputable corollary of the Farewell Address. The American people and politicians cherish it as a priceless political heirloom. It is considered to be the equivalent of the Declaration of Independence in the field of foreign affairs; and it arouses an a.n.a.logous volume and fury of conviction. Neither is this conviction merely the property of Fourth-of-July Americans. Our gravest publicists usually contribute to the Doctrine a no less emphatic adherence; and not very many years ago one of the most enlightened of American statesmen a.s.serted that American foreign policy as a whole could be sufficiently summed up in the phrase, "The Monroe Doctrine and the Golden Rule." Does the Monroe Doctrine, as stated above, deserve such uncompromising adherence? Is it an adequate expression of the national interest of the American democracy in the field of foreign affairs?

At the time the Monroe Doctrine was originally proclaimed, it did unquestionably express a valid national interest of the American democracy. It was the American retort to the policy of the Holy Alliance which sought to erect the counter-revolutionary principles into an international system, and which suppressed, so far as possible, all nationalist or democratic agitation. The Spanish-American colonies had been winning their independence from Spain; and there was a fear, not entirely ill-founded, that the Alliance would apply its anti-democratic international policy to the case of Spain's revolted colonies. Obviously the United States, both as a democracy and as a democracy which had won its independence by means of a revolutionary war, could not admit the right of any combination of European states to suppress national and democratic uprisings on the American continents. Our government would have been wholly justified in resisting such interference with all its available military force. But in what sense and upon what grounds was the United States justified in going farther than this, and in a.s.serting that under no circ.u.mstances should there be any increase of European political influence upon the American continents? What is the propriety and justice of such a declaration of continental isolation? What are its implications? And what, if any, are its dangers?

In seeking an answer to these questions we must return to the source of American foreign policy in the Farewell Address. That address contains the germ of a prudent and wise American national policy; but Hamilton, in preparing its phrasing, was guided chiefly by a consideration of the immediate needs and dangers of his country. The Jeffersonian Republicans in their enthusiasm for the French Revolution proposed for a while to bring about a permanent alliance between France and the United States, the object whereof should be the propagation of the democratic political faith. Both Washington and Hamilton saw clearly that such behavior would entangle the United States in all the vicissitudes and turmoil which might attend the development of European democracy; and their favorite policy of neutrality and isolation implied both that the national interest of the United States was not concerned in merely European complications, and that the American people, unlike those of France, did not propose to make their political principles an excuse for international aggression. The Monroe Doctrine, as proclaimed in 1825, rounded out this negative policy with a more positive a.s.sertion of principles. It declared that the neutrality of the American democracy, so far as Europe was concerned, must be balanced by the non-intervention of European legitimacy and aristocracy in the affairs of the American continents. Now this extension of American foreign policy was, as we have seen, justified, in so far as it was a protest against any possible interference on the part of the Holy Alliance in American politics. It was, moreover, justified in so far as it sought to identify the attainment of a desirable democratic purpose with American international policy. Of course Hamilton, when he tried to found the international policy of his country upon the national interest, wholly failed to identify that interest with any positive democratic purpose; but in this, as in other respects, Hamilton was not a thorough-going democrat.

While he was right in seeking to prevent the American people from allying themselves with the aggressive French democracy, he was wrong in failing to foresee that the national interest of the United States was identified with the general security and prosperity of liberal political inst.i.tutions--that the United States must by every practical means encourage the spread of democratic methods and ideas. As much in foreign as in domestic affairs must the American people seek to unite national efficiency with democratic idealism. The Monroe Doctrine, consequently, is not to be condemned, as it has been condemned, merely because it went far beyond the limited foreign policy of Hamilton. The real question in regard to the Doctrine is whether it seeks in a practicable way--in a way consistent with the national interest and inevitable international responsibilities--the realization of the democratic idea. Do the rigid advocates of that Doctrine fall into an error a.n.a.logous to the error against which Washington and Hamilton were protesting? Do they not tend, indirectly, and within a limited compa.s.s, to convert the American democratic idea into a dangerously aggressive principle?

The foregoing question must, I believe, be answered partly in the affirmative. The Monroe Doctrine, as usually stated, does give a dangerously militant tendency to the foreign policy of the United States; and unless its expression is modified, it may prevent the United States from occupying a position towards the nations of Europe and America in conformity with its national interest and its national principle. It should be added, however, that this unwholesomely aggressive quality is only a tendency, which will not become active except under certain possible conditions, and which can gradually be rendered less dangerous by the systematic development of the Doctrine as a positive principle of political action in the Western hemisphere.

The Monroe Doctrine has, of course, no status in the accepted system of International Law. Its international standing is due almost entirely to its express proclamation as an essential part of the foreign policy of the United States, and it depends for its weight upon the ability of this country to compel its recognition by the use of latent or actual military force. Great Britain has, perhaps, tacitly accepted it, but no other European country has done so, and a number of them have expressly stated that it entails consequences against which they might sometime be obliged strenuously and forcibly to protest. No forcible protest has as yet been made, because no European country has had anything to gain from such a protest, comparable to the inevitable cost of a war with the United States.

The dangerously aggressive tendency of the Monroe Doctrine is not due to the fact that it derives its standing from the effective military power of the United States. The recognition which any proclamation of a specific principle of foreign policy receives will depend, in case it conflicts with the actual or possible interests of other nations, upon the military and naval power with which it can be maintained. The question as to whether a particular doctrine is unwholesomely aggressive depends, consequently, not upon the mere fact that it may provoke a war, but upon the doubt that, if it provokes a war, such a war can be righteously fought. Does the Doctrine as usually stated, possibly or probably commit the United States to an unrighteous war--a war in which the United States would be opposing a legitimate interest on the part of one or a group of European nations? Does an American foreign policy of the "Monroe Doctrine and the Golden Rule" proclaim two parallel springs of national action in foreign affairs which may prove to be incompatible?

There is a danger that such may be the case. The Monroe Doctrine in its most popular form proclaims a rigid policy of continental isolation--of America for the Americans and of Europe for the Europeans. European nations may retain existing possessions in the Americas, but such possessions must not be increased. So far, so good. A European nation, which sought defiantly to increase its American possessions, in spite of the express declaration of the United States that such action would mean war, would deserve the war thereby incurred. But there are many ways of increasing the political influence of European Powers in the Americas without actual territorial appropriation. The emigration from several European states and from j.a.pan to South America is already considerable, and is likely to increase rather than diminish. European commercial interests in South America are greater than ours, and in the future will become greater still. The South Americans have already borrowed large quant.i.ties of European capital, and will need more. The industrial and agricultural development of the South American states is constantly tying them more closely to Europe than it is to the United States. It looks, consequently, as if irresistible economic conditions were making in favor of an increase of effective European influence in South America. The growth of that influence is part of the world-movement in the direction of the better utilization of the economic resources of mankind. South America cannot develop without the benefits of European capital, additional European labor, European products, and European experience and training; and in the course of another few generations the result will be a European investment in South America, which may in a number of different ways involve political complications. We have already had a foretaste of those consequences in the steps which the European Powers took a few years ago to collect debts due to Europeans by Venezuela.

The increasing industrial, social, and financial bonds might not have any serious political consequences, provided the several South American states were possessed of stable governments, orderly political traditions, and a political standing under definite treaties similar to that of the smaller European states. But such is not the case. The alien investment in South America may involve all sorts of political complications which would give European or Asiatic Powers a justifiable right under the law of nations to interfere. Up to the present time, as we have seen, such interference has promised to be too costly; but the time may well come when the advantages of interference will more than counterbalance the dangers of a forcible protest. Moreover, in case such a protest were made, it might not come from any single European Power. A general European interest would be involved. The United States might well find her policy of America for the Americans result in an attempt on the part of a European coalition to bring about a really effectual isolation. We might find ourselves involved in a war against a substantially united Europe. Such a danger seems sufficiently remote at present; but in the long run a policy which carries isolation too far is bound to provoke justifiable attempts to break it down. If Europe and the Americas are as much divided in political interest as the Monroe Doctrine seems to a.s.sert, the time will inevitably arrive when the two divergent political systems must meet and fight; and plenty of occasions for such a conflict will arise, as soon as the policy of isolation begins to conflict with the establishment of that political relation between Europe and South America demanded by fundamental economic and social interests. Thus under certain remote but entirely possible conditions, the Doctrine as now proclaimed and practiced might justify Europe in seeking to break it down by reasons at least as valid as those of our own country in proclaiming it.

But if the Monroe Doctrine could only be maintained by a war of this kind, or a succession of wars, it would defeat the very purpose which it is supposed to accomplish. It would embroil the United States and the two American continents in continual trouble with Europe; and it would either have to be abandoned or else would carry with it incessant and enormous expenditures for military and naval purposes. The United States would have to become a predominantly military power, armed to the teeth, to resist or forestall European attack; and our country would have to accept these consequences, for the express purpose of keeping the Americas unsullied by the complications of European politics. Obviously there is a contradiction in such a situation. The United States could fight with some show of reason a single European Power, like France in 1865, which undertook a policy of American territorial aggrandizement; but if it were obliged to fight a considerable portion of Europe for the same purpose, it would mean that our country was opposing a general, and presumably a legitimate, European interest. In that event America would become a part of the European political system with a vengeance--a part which in its endeavor to escape from the vicissitudes of European politics had brought upon itself a condition of permanent military preparation and excitement. Consequently, in case the "Monroe Doctrine and the Golden Rule" are to remain the foundation of American foreign policy, mere prudence demands a systematic attempt to prevent the Doctrine from arousing just and effective European opposition.

No one can believe more firmly than myself that the foreign policy of a democratic nation should seek by all practicable and inoffensive means the affirmation of democracy; but the challenge which the Monroe Doctrine in its popular form issues to Europe is neither an inoffensive nor a practicable means of affirmation. It is based usually upon the notion of an essential incompatibility between American and European political inst.i.tutions; and the a.s.sertion of such an incompatibility at the present time can only be the result of a stupid or willful American democratic Bourbonism. Such an incompatibility did exist when the Holy Alliance dominated Europe. It does not exist to-day, except in one particular. The exception is important, as we shall see presently; but it does not concern the domestic inst.i.tutions of the European and the American states. The emanc.i.p.ated and nationalized European states of to-day, so far from being essentially antagonistic to the American democratic nation, are constantly tending towards a condition which invites closer and more fruitful a.s.sociation with the United States; and any national doctrine which proclaims a rooted antagonism lies almost at right angles athwart the road of American democratic national achievement. Throughout the whole of the nineteenth century the European nations have been working towards democracy by means of a completer national organization; while this country has been working towards national cohesion by the mere logic and force of its democratic ideal.

Thus the distance between America and Europe is being diminished; and Americans in their individual behavior bear the most abundant and generous testimony to the benefits which American democracy can derive from a.s.sociation with the European nations. It is only in relation to the Monroe Doctrine that we still make much of the essential incompatibility between European and American inst.i.tutions, and by so doing we distort and misinterpret the valid meaning of a national democratic foreign policy. The existing domestic inst.i.tutions of the European nations are for the most part irrelevant to such a policy.

The one way in which the foreign policy of the United States can make for democracy is by strengthening and encouraging those political forces which make for international peace. The one respect in which the political system, represented by the United States, is still antagonistic to the European political system is that the European nation, whatever its ultimate tendency, is actually organized for aggressive war, that the cherished purposes of some of its states cannot be realized without war, and that the forces which hope to benefit by war are stronger than the forces which hope to benefit by peace. That is the indubitable reason why the United States must remain aloof from the European system and must avoid scrupulously any entanglements in the complicated web of European international affairs. The policy of isolation is in this respect as wise to-day as it was in the time of its enunciation by Washington and Hamilton; and n.o.body seriously proposes to depart from it. On the other hand, the basis for this policy is wholly independent of the domestic inst.i.tutions of the European nations. It derives from the fact that at any time those nations may go to war about questions in which the United States has no vital interest. The geographical situation of the United States emanc.i.p.ates her from these conflicts, and enables her to stand for the ultimate democratic interest in international peace.