The interest of individual liberty in relation to the organization of democracy demands simply that the individual officeholder should possess an amount of power and independence adequate to the efficient performance of his work. The work of a justice of the Supreme Court demands a power that is absolute for its own special work, and it demands technically complete independence. An executive should, as a rule, serve for a longer term, and hold a position of greater independence than a legislator, because his work of enforcing the laws and attending to the business details of government demands continuity, complete responsibility within its own sphere, and the necessity occasionally of braving adverse currents of public opinion. The term of service and the technical independence of a legislator might well be more restricted than that of an executive; but even a legislator should be granted as much power and independence as he may need for the official performance of his public duty. The American democracy has shown its enmity to individual political liberty, not because it has required its political favorites constantly to seek reelection, but because it has since 1800 tended to refuse to its favorites during their official term as much power and independence as is needed for administrative, legislative, and judicial efficiency. It has been jealous of the power it delegated, and has tried to take away with one hand what it gave with the other.

Taking American political traditions, ideals, inst.i.tutions, and practices as a whole, there is no reason to believe that the American democracy cannot and will not combine sufficient opportunities for individual political distinction with an effective ultimate popular political responsibility. The manner in which the combination has been made hitherto is far from flawless, and the American democracy has much to learn before it reaches an organization adequate to its own proper purposes. It must learn, above all, that the state, and the individuals who are temporarily responsible for the action of the state, must be granted all the power necessary to redeem that responsibility.

Individual opportunity and social welfare both depend upon the learning of this lesson; and while it is still very far from being learned, the obstacles in the way are not of a disheartening nature.

With the economic liberty of the individual the case is different. The Federalists refrained from protecting individual political rights by incorporating in the Const.i.tution any limitation of the suffrage; but they sought to protect the property rights of the individual by the most absolute const.i.tutional guarantees. Moreover, American practice has allowed the individual a far larger measure of economic liberty than is required by the Const.i.tution; and this liberty was granted in the expectation that it would benefit, not the individual as such, but the great ma.s.s of the American people. It has undoubtedly benefited the great ma.s.s of the American people; but it has been of far more benefit to a comparatively few individuals. Americans are just beginning to learn that the great freedom which the individual property-owner has enjoyed is having the inevitable result of all unrestrained exercise of freedom. It has tended to create a powerful but limited cla.s.s whose chief object it is to hold and to increase the power which they have gained; and this unexpected result has presented the American democracy with the most difficult and radical of its problems. Is it to the interest of the American people as a democracy to permit the increase or the perpetuation of the power gained by this aristocracy of money?

A candid consideration of the foregoing question will, I believe, result in a negative answer. A democracy has as much interest in regulating for its own benefit the distribution of economic power as it has the distribution of political power, and the consequences of ignoring this interest would be as fatal in one case as in the other. In both instances regulation in the democratic interest is as far as possible from meaning the annihilation of individual liberty; but in both instances individual liberty should be subjected to conditions which will continue to keep it efficient and generally serviceable. Individual economic power is not any more dangerous than individual political power--provided it is not held too absolutely and for too long a time.

But in both cases the interest of the community as a whole should be dominant; and the interest of the whole community demands a considerable concentration of economic power and responsibility, but only for the ultimate purpose of its more efficient exercise and the better distribution of its fruits.

That certain existing American fortunes have in their making been of the utmost benefit to the whole economic organism is to my mind unquestionably the fact. Men like Mr. J. Pierpont Morgan, Mr. Andrew Carnegie, Mr. James J. Hill, and Mr. Edward Harriman have in the course of their business careers contributed enormously to American economic efficiency. They have been overpaid for their services, but that is irrelevant to the question immediately under consideration. It is sufficient that their economic power has been just as much earned by substantial service as was the political power of a man like Andrew Jackson; and if our country is to continue its prosperous economic career, it must retain an economic organization which will offer to men of this stamp the opportunity and the inducement to earn distinction.

The rule which has already been applied to the case of political power applies, also, to economic power. Individuals should enjoy as much freedom from restraint, as much opportunity, and as much responsibility as is necessary for the efficient performance of their work. Opinions will differ as to the extent of this desirable independence and its a.s.sociated responsibility. The American millionaire and his supporters claim, of course, that any diminution of opportunity and independence would be fatal. To dispute this inference, however, does not involve the abandonment of the rule itself. A democratic economic system, even more than a democratic political system, must delegate a large share of responsibility and power to the individual, but under conditions, if possible, which will really make for individual efficiency and distinction.

The grievance which a democrat may feel towards the existing economic system is that it makes only partially for genuine individual economic efficiency and distinction. The political power enjoyed by an individual American rarely endures long enough to survive its own utility. But economic power can in some measure at least be detached from its creator. Let it be admitted that the man who acc.u.mulates $50,000,000 in part earns it, but how about the man who inherits it? The inheritor of such a fortune, like the inheritor of a ducal t.i.tle, has an opportunity thrust upon him. He succeeds to a colossal economic privilege which he has not earned and for which he may be wholly incompetent. He rarely inherits with the money the individual ability possessed by its maker, but he does inherit a "money power" wholly independent of his own qualifications or deserts. By virtue of that power alone he is in a position in some measure to exploit his fellow-countrymen. Even though a man of very inferior intellectual and moral caliber, he is able vastly to increase his fortune through the information and opportunity which that fortune bestows upon him, and without making any individual contribution to the economic organization of the country. His power brings with it no personal dignity or efficiency; and for the whole material and meaning of his life he becomes as much dependent upon his millions as a n.o.bleman upon his t.i.tle. The money which was a source of distinction to its creator becomes in the course of time a source of individual demoralization to its inheritor. His life is organized for the purpose of spending a larger income than any private individual can really need; and his intellectual point of view is bounded by his narrow experience and his cla.s.s interests.

No doubt the inst.i.tution of private property, necessitating, as it does, the transmission to one person of the possessions and earnings of another, always involves the inheritance of unearned power and opportunity. But the point is that in the case of very large fortunes the inherited power goes far beyond any legitimate individual needs, and in the course of time can hardly fail to corrupt its possessors. The creator of a large fortune may well be its master; but its inheritor will, except in the case of exceptionally able individuals, become its victim, and most a.s.suredly the evil social effects are as bad as the evil individual effects. The political bond which a democracy seeks to create depends for its higher value upon an effective social bond. Gross inequalities in wealth, wholly divorced from economic efficiency on the part of the rich, as effectively loosen the social bond as do gross inequalities of political and social standing. A wholesome social condition in a democracy does not imply uniformity of wealth any more than it implies uniformity of ability and purpose, but it does imply the a.s.sociation of great individual economic distinction with responsibility and efficiency. It does imply that economic leaders, no less than political ones, should have conditions imposed upon them which will force them to recognize the responsibilities attached to so much power.

Mutual a.s.sociation and confidence between the leaders and followers is as much a part of democratic economic organization as it is of democratic political organization; and in the long run the inheritance of vast fortunes destroys any such relation. They breed cla.s.s envy on one side, and cla.s.s contempt on the other; and the community is either divided irremediably by differences of interest and outlook, or united, if at all, by sn.o.bbish servility.

If the integrity of a democracy is injured by the perpetuation of unearned economic distinctions, it is also injured by extreme poverty, whether deserved or not. A democracy which attempted to equalize wealth would incur the same disastrous fate as a democracy which attempted to equalize political power; but a democracy can no more be indifferent to the distribution of wealth than it can to the distribution of the suffrage. In a wholesome democracy every male adult should partic.i.p.ate in the ultimate political responsibility, partly because of the political danger of refusing partic.i.p.ation to the people, and partly because of the advantages to be derived from the political union of the whole people. So a wholesome democracy should seek to guarantee to every male adult a certain minimum of economic power and responsibility. No doubt it is much easier to confer the suffrage on the people than it is to make poverty a negligible social factor; but the difficulty of the task does not make it the less necessary. It stands to reason that in the long run the people who possess the political power will want a substantial share of the economic fruits. A prudent democracy should antic.i.p.ate this demand. Not only does any considerable amount of grinding poverty const.i.tute a grave social danger in a democratic state, but so, in general, does a widespread condition of partial economic privation. The individuals const.i.tuting a democracy lack the first essential of individual freedom when they cannot escape from a condition of economic dependence.

The American democracy has confidently believed in the fatal prosperity enjoyed by the people under the American system. In the confidence of that belief it has promised to Americans a substantial satisfaction of their economic needs; and it has made that promise an essential part of the American national idea. The promise has been measurably fulfilled hitherto, because the prodigious natural resources of a new continent were thrown open to anybody with the energy to appropriate them. But those natural resources have now in large measure pa.s.sed into the possession of individuals, and American statesmen can no longer count upon them to satisfy the popular hunger for economic independence. An ever larger proportion of the total population of the country is taking to industrial occupations, and an industrial system brings with it much more definite social and economic cla.s.ses, and a diminution of the earlier social h.o.m.ogeneity. The contemporary wage-earner is no longer satisfied with the economic results of being merely an American citizen.

His union is usually of more obvious use to him than the state, and he is tending to make his allegiance to his union paramount to his allegiance to the state. This is only one of many ill.u.s.trations that the traditional American system has broken down. The American state can regain the loyal adhesion of the economically less independent cla.s.s only by positive service. What the wage-earner needs, and what it is to the interest of a democratic state he should obtain, is a constantly higher standard of living. The state can help him to conquer a higher standard of living without doing any necessary injury to his employers and with a positive benefit to general economic and social efficiency.

If it is to earn the loyalty of the wage-earners, it must recognize the legitimacy of his demand, and make the satisfaction of it an essential part of its public policy.

The American state is dedicated to such a duty, not only by its democratic purpose, but by its national tradition. So far as the former is concerned, it is absurd and fatal to ask a popular majority to respect the rights of a minority, when those rights are interpreted so as seriously to hamper, if not to forbid, the majority from obtaining the essential condition of individual freedom and development--viz. the highest possible standard of living. But this absurdity becomes really critical and dangerous, in view of the fact that the American people, particularly those of alien birth and descent, have been explicitly promised economic freedom and prosperity. The promise was made on the strength of what was believed to be an inexhaustible store of natural opportunities; and it will have to be kept even when those natural resources are no longer to be had for the asking. It is entirely possible, of course, that the promise can never be kept,--that its redemption will prove to be beyond the patience, the power, and the wisdom of the American people and their leaders; but if it is not kept, the American commonwealth will no longer continue to be a democracy.

IV

THE BRIDGE BETWEEN DEMOCRACY AND NATIONALITY

We are now prepared, I hope, to venture upon a more fruitful definition of democracy. The popular definitions err in describing it in terms of its machinery or of some partial political or economic object. Democracy does not mean merely government by the people, or majority rule, or universal suffrage. All of these political forms or devices are a part of its necessary organization; but the chief advantage such methods of organization have is their tendency to promote some salutary and formative purpose. The really formative purpose is not exclusively a matter of individual liberty, although it must give individual liberty abundant scope. Neither is it a matter of equal rights alone, although it must always cherish the social bond which that principle represents.

The salutary and formative democratic purpose consists in using the democratic organization for the joint benefit of individual distinction and social improvement.

To define the really democratic organization as one which makes expressly and intentionally for individual distinction and social improvement is nothing more than a translation of the statement that such an organization should make expressly and intentionally for the welfare of the whole people. The whole people will always consist of individuals, const.i.tuting small cla.s.ses, who demand special opportunities, and the ma.s.s of the population who demand for their improvement more generalized opportunities. At any particular time or in any particular case, the improvement of the smaller cla.s.ses may conflict with that of the larger cla.s.s, but the conflict becomes permanent and irreconcilable only when it is intensified by the lack of a really binding and edifying public policy, and by the consequent stimulation of cla.s.s and factional prejudices and purposes. A policy, intelligently informed by the desire to maintain a joint process of individual and social amelioration, should be able to keep a democracy sound and whole both in sentiment and in idea. Such a democracy would not be dedicated either to liberty or to equality in their abstract expressions, but to liberty and equality, in so far as they made for human brotherhood. As M. f.a.guet says in the introduction to his "Politiques et Moralistes du Dix-Neuvieme Siecle," from which I have already quoted: "Liberte et egalite sont donc contradictoires et exclusives l'une et l'autre; mais la Fraternite les concilierait. La Fraternite non seulement concilierait la Liberte et l'egalite, mais elle les ferait generatrices l'une et l'autre." The two subordinate principles, that is, one representing the individual and the other the social interest, can by their subordination to the principle of human brotherhood, be made in the long run mutually helpful.

The foregoing definition of the democratic purpose is the only one which can ent.i.tle democracy to an essential superiority to other forms of political organization. Democrats have always tended to claim some such superiority for their methods and purposes, but in case democracy is to be considered merely as a piece of political machinery, or a partial political idea, the claim has no validity. Its superiority must be based upon the fact that democracy is the best possible translation into political and social terms of an authoritative and comprehensive moral idea; and provided a democratic state honestly seeks to make its organization and policy contribute to a better quality of individuality and a higher level of a.s.sociated life, it can within certain limits claim the allegiance of mankind on rational moral grounds.

The proposed definition may seem to be both vague and commonplace; but it none the less brings with it practical consequences of paramount importance. The subordination of the machinery of democracy to its purpose and the comprehension within that purpose of the higher interests both of the individual and society, is not only exclusive of many partial and erroneous ideas, but demands both a reconstructive programme and an efficient organization. A government by the people, which seeks an organization and a policy beneficial to the individual and to society, is confronted by a task as responsible and difficult as you please; but it is a specific task which demands the adoption of certain specific and positive means. Moreover it is a task which the American democracy has never sought consciously to achieve. American democrats have always hoped for individual and social amelioration as the result of the operation of their democratic system; but if any such result was to follow, its achievement was to be a happy accident. The organization and policy of a democracy should leave the individual and society to seek their own amelioration. The democratic state should never discriminate in favor of anything or anybody. It should only discriminate against all sorts of privilege. Under the proposed definition, on the other hand, popular government is to make itself expressly and permanently responsible for the amelioration of the individual and society; and a necessary consequence of this responsibility is an adequate organization and a reconstructive policy.

The majority of good Americans will doubtless consider that the reconstructive policy, already indicated, is flagrantly socialistic both in its methods and its objects; and if any critic likes to fasten the stigma of socialism upon the foregoing conception of democracy, I am not concerned with dodging the odium of the word. The proposed definition of democracy is socialistic, if it is socialistic to consider democracy inseparable from a candid, patient, and courageous attempt to advance the social problem towards a satisfactory solution. It is also socialistic in case socialism cannot be divorced from the use, wherever necessary, of the political organization in all its forms to realize the proposed democratic purpose. On the other hand, there are some doctrines frequently a.s.sociated with socialism, to which the proposed conception of democracy is wholly inimical; and it should be characterized not so much socialistic, as unscrupulously and loyally nationalistic.

A democracy dedicated to individual and social betterment is necessarily individualist as well as socialist. It has little interest in the mere multiplication of average individuals, except in so far as such multiplication is necessary to economic and political efficiency; but it has the deepest interest in the development of a higher quality of individual self-expression. There are two indispensable economic conditions of qualitative individual self-expression. One is the preservation of the inst.i.tution of private property in some form, and the other is the radical transformation of its existing nature and influence. A democracy certainly cannot fulfill its mission without the eventual a.s.sumption by the state of many functions now performed by individuals, and without becoming expressly responsible for an improved distribution of wealth; but if any attempt is made to accomplish these results by violent means, it will most a.s.suredly prove to be a failure.

An improvement in the distribution of wealth or in economic efficiency which cannot be accomplished by purchase on the part of the state or by a legitimate use of the power of taxation, must be left to the action of time, a.s.sisted, of course, by such arrangements as are immediately practical. But the amount of actual good to the individual and society which can be effected _at any one time_ by an alteration in the distribution of wealth is extremely small; and the same statement is true of any proposed state action in the interest of the democratic purpose. Consequently, while responsible state action is an essential condition of any steady approach to the democratic consummation, such action will be wholly vain unless accompanied by a larger measure of spontaneous individual amelioration. In fact, one of the strongest arguments on behalf of a higher and larger conception of state responsibilities in a democracy is that the candid, courageous, patient, and intelligent attempt to redeem those responsibilities provides one of the highest types of individuality--viz. the public-spirited man with a personal opportunity and a task which should be enormously stimulating and edifying.

The great weakness of the most popular form of socialism consists, however, in its mixture of a revolutionary purpose with an international scope. It seeks the abolition of national distinctions by revolutionary revolts of the wage-earner against the capitalist; and in so far as it proposes to undermine the principle of national cohesion and to subst.i.tute for it an international organization of a single cla.s.s, it is headed absolutely in the wrong direction. Revolutions may at times be necessary and on the whole helpful, but not in case there is any other practicable method of removing grave obstacles to human amelioration; and in any event their tendency is socially disintegrating. The destruction or the weakening of nationalities for the ostensible benefit of an international socialism would in truth gravely imperil the bond upon which actual human a.s.sociation is based. The peoples who have inherited any share in Christian civilization are effectively united chiefly by national habits, traditions, and purposes; and perhaps the most effective way of bringing about an irretrievable division of purpose among them would be the adoption by the cla.s.s of wage-earners of the programme of international socialism. It is not too much to say that no permanent good can, under existing conditions, come to the individual and society except through the preservation and the development of the existing system of nationalized states.

Radical and enthusiastic democrats have usually failed to attach sufficient importance to the ties whereby civilized men are at the present time actually united. Inasmuch as national traditions are usually a.s.sociated with all sorts of political, economic, and social privileges and abuses, they have sought to identify the higher social relation with the destruction of the national tradition and the subst.i.tution of an ideal bond. In so doing they are committing a disastrous error; and democracy will never become really constructive until this error is recognized and democracy abandons its former alliance with revolution. The higher human relation must be brought about chiefly by the improvement and the intensification of existing human relations. The only possible foundation for a better social structure is the existing order, of which the contemporary system of nationalized states forms the foundation.

Loyalty to the existing system of nationalized states does not necessarily mean loyalty to an existing government merely because it exists. There have been, and still are, governments whose ruin is a necessary condition of popular liberation; and revolution doubtless still has a subordinate part to play in the process of human amelioration. The loyalty which a citizen owes to a government is dependent upon the extent to which the government is representative of national traditions and is organized in the interest of valid national purposes. National traditions and purposes always contain a large infusion of dubious ingredients; but loyalty to them does not necessarily mean the uncritical and unprotesting acceptance of the national limitations and abuses. Nationality is a political and social ideal as well as the great contemporary political fact. Loyalty to the national interest implies devotion to a progressive principle. It demands, to be sure, that the progressive principle be realized without any violation of fundamental national ties. It demands that any national action taken for the benefit of the progressive principle be approved by the official national organization. But it also serves as a ferment quite as much as a bond. It bids the loyal national servants to fashion their fellow-countrymen into more of a nation; and the attempt to perform this bidding const.i.tutes a very powerful and wholesome source of political development. It const.i.tutes, indeed, a source of political development which is of decisive importance for a satisfactory theory of political and social progress, because a people which becomes more of a nation has a tendency to become for that very reason more of a democracy.

The a.s.sertion that a people which becomes more of a nation becomes for that very reason more of a democracy, is, I am aware, a hazardous a.s.sertion, which can be justified, if at all, only at a considerable expense. As a matter of fact, the two following chapters will be devoted chiefly to this labor of justification. In the first of these chapters I shall give a partly historical and partly critical account of the national principle in its relation to democracy; and in the second I shall apply the results, so achieved, to the American national principle in its relation to the American democratic idea. But before starting this complicated task, a few words must be premised as to the reasons which make the attempt well worth the trouble.

If a people, in becoming more of a nation, become for that very reason more of a democracy, the realization of the democratic purpose is not rendered any easier, but democracy is provided with a simplified, a consistent, and a practicable programme. An alliance is established thereby between the two dominant political and social forces in modern life. The suspicion with which aggressive advocates of the national principle have sometimes regarded democracy would be shown to have only a conditional justification; and the suspicion with which many ardent democrats have regarded aggressive nationalism would be similarly disarmed. A democrat, so far as the statement is true, could trust the fate of his cause in each particular state to the friends of national progress. Democracy would not need for its consummation the ruin of the traditional political fabrics; but so far as those political bodies were informed by genuinely national ideas and aspirations, it could await confidently the process of national development. In fact, the first duty of a good democrat would be that of rendering to his country loyal patriotic service. Democrats would abandon the task of making over the world to suit their own purposes, until they had come to a better understanding with their own countrymen. One's democracy, that is, would begin at home and it would for the most part stay at home; and the cause of national well-being would derive invaluable a.s.sistance from the loyal cooperation of good democrats.

A great many obvious objections will, of course, be immediately raised against any such explanation of the relation between democracy and nationality; and I am well aware that these objections demand the most serious consideration. A generation or two ago the European democrat was often by way of being an ardent nationalist; and a constructive relation between the two principles was accepted by many European political reformers. The events of the last fifty years have, however, done much to sever the alliance, and to make European patriots suspicious of democracy, and European democrats suspicious of patriotism. To what extent these suspicions are justified, I shall discuss in the next chapter; but that discussion will be undertaken almost exclusively for obtaining, if possible, some light upon our domestic situation. The formula of a constructive relation between the national and democratic principles has certain importance for European peoples, and particularly for Frenchmen: but, if true, it is of a far superior importance to Americans. It supplies a constructive form for the progressive solution of their political and social problems; and while it imposes on them responsibilities which they have sought to evade, it also offers compensations, the advantage of which they have scarcely expected.

Americans have always been both patriotic and democratic, just as they have always been friendly both to liberty and equality, but in neither case have they brought the two ideas or aspirations into mutually helpful relations. As democrats they have often regarded nationalism with distrust, and have consequently deprived their patriotism of any sufficient substance and organization. As nationalists they have frequently regarded essential aspects of democracy with a wholly unnecessary and embarra.s.sing suspicion. They have been after a fashion Hamiltonian, and Jeffersonian after more of a fashion; but they have never recovered from the initial disagreement between Hamilton and Jefferson. If there is any truth in the idea of a constructive relation between democracy and nationality this disagreement must be healed. They must accept both principles loyally and unreservedly; and by such acceptance their "n.o.ble national theory" will obtain a wholly unaccustomed energy and integrity. The alliance between the two principles will not leave either of them intact; but it will necessarily do more harm to the Jeffersonian group of political ideas than it will to the Hamiltonian. The latter's nationalism can be adapted to democracy without an essential injury to itself, but the former's democracy cannot be nationalized without being transformed. The manner of its transformation has already been discussed in detail. It must cease to be a democracy of indiscriminate individualism; and become one of selected individuals who are obliged constantly to justify their selection; and its members must be united not by a sense of joint irresponsibility, but by a sense of joint responsibility for the success of their political and social ideal. They must become, that is, a democracy devoted to the welfare of the whole people by means of a conscious labor of individual and social improvement; and that is precisely the sort of democracy which demands for its realization the aid of the Hamiltonian nationalistic organization and principle.

CHAPTER VIII

I

NATIONALITY AND DEMOCRACY; NATIONAL ORIGINS

Whatever the contemporary or the logical relation between nationality and democracy as ideas and as political forces, they were in their origin wholly independent one of the other. The Greek city states supplied the first examples of democracy; but their democracy brought with it no specifically national characteristics. In fact, the political condition and ideal implied by the word nation did not exist in the ancient world. The actual historical process, which culminated in the formation of the modern national state, began some time in the Middle Ages--a period in which democracy was almost an incredible form of political a.s.sociation. Some of the mediaeval communes were not without traces of democracy; but modern nations do not derive from those turbulent little states. They derive from the larger political divisions into which Europe drifted during the Dark Ages; and they have grown with the gradually prospering attempt to bestow on the government of these European countries the qualities of efficiency and responsibility.

A complete justification of the foregoing statements would require a critical account of the political development of Western Europe since 400 B.C.; but within the necessary limits of the present discussion, we shall have to be satisfied with the barest summary of the way in which the modern national states originated, and of the relation to democracy which has gradually resulted from their own proper development. A great deal of misunderstanding exists as to the fundamental nature of a national as compared to a city or to an imperial state, because the meaning of the national idea has been obscured by the controversies which its militant a.s.sertion has involved. It has been identified both with a revolutionary and a racial political principle, whereas its revolutionary or racial a.s.sociations are essentially occasional and accidental. The modern national state is at bottom the most intelligent and successful attempt which has yet been made to create a comparatively stable, efficient, and responsible type of political a.s.sociation.

The primary objects sought in political a.s.sociation are internal order, security from foreign attack, the authoritative and just adjustment of domestic differences and grievances, and a certain opportunity for individual development; and these several objects are really reducible to two, because internal order cannot be preserved among a vigorous people, in case no sufficient opportunity is provided for individual development or for the adjustment of differences and grievances. In order that a state may be relatively secure from foreign attack, it must possess a certain considerable area, population, and military efficiency. The fundamental weakness of the commune or city state has always been its inability to protect itself from the aggressions of larger or more warlike neighbors, and its correlative inability to settle its own domestic differences without foreign interference. On the other hand, when a state became sufficiently large and well organized to feel safe against alien aggression, it inevitably became the aggressor itself; and it inevitably carried the conquest of its neighbors just as far as it was able. But domestic security, which is reached by constant foreign aggression, results inevitably in a huge unwieldy form of imperial political organization which is obliged by the logic of its situation to seek universal dominion. The Romans made the great attempt to establish a dominion of this kind; and while their Empire could not endure, because their military organization destroyed in the end the very foundation of internal order, they bequeathed to civilization a political ideal and a legal code of inestimable subsequent value.

As long as men were obliged to choose between a communal or an imperial type of political organization,--which was equivalent merely to a choice between anarchy and despotism,--the problem of combining internal order with external security seemed insoluble. They needed a form of a.s.sociation strong enough to defend their frontiers, but not sufficiently strong to attack their neighbors with any chance of continued success; and such a state could not exist unless its unity and integrity had some moral basis, and unless the aggressions of exceptionally efficient states were checked by some effective inter-state organization. The coexistence of such states demanded in its turn the general acceptance of certain common moral ties and standards among a group of neighboring peoples; and such a tie was furnished by the religious bond with which Catholic Christianity united the peoples of Western Europe--a bond whereby the disorder and anarchy of the early Middle Ages was converted into a vehicle of political and social education. The members of the Christian body had much to fear from their fellow-Christians, but they also had much to gain. They shared many interesting and vital subjects of consultation; and even when they fought, as they usually did, they were likely to fight to some purpose.

But beyond their quarrels Catholic Christians comprised one universe of discourse. They were somehow responsible one to another; and their mutual ties and responsibilities were most clearly demonstrated whenever a peculiarly unscrupulous and insistent attempt was made to violate them. As new and comparatively strong states began to emerge from the confusion of the early Middle Ages, it was soon found that under the new conditions states which were vigorous enough to establish internal peace and to protect their frontiers were not vigorous enough to conquer their neighbors. Political efficiency was brought to a much better realization of its necessary limits and responsibilities, because of the moral and intellectual education which the adoption of Christianity had imposed upon the Western peoples.

One of the earliest examples of political efficiency in mediaeval Europe was the England of Edward I, which had begun to exhibit certain characteristics of a national state. Order was more than usually well preserved. It was sheltered by the Channel from foreign attack. The interest both of the n.o.bles and of the people had been considered in its political organization. A fair balance was maintained among the leading members of the political body, so that the English kings could invade France with united national armies which easily defeated the incoherent rabble of knights and serfs whereby they were opposed. Nevertheless, when the English, after the manner of other efficient states, tried to conquer France, they were wholly unable to extinguish French resistance, as the similar resistance of conquered peoples had so frequently been extinguished in cla.s.sic times. The French people rallied to a king who united them in their resistance to foreign domination; and the ultimate effect of the prolonged English aggression was merely the increasing national efficiency and the improving political organization of the French people.

The English could not extinguish the resistance of the French people, because their aggression aroused in Frenchmen latent power of effective a.s.sociation. Notwithstanding the prevalence of a factious minority, and the lack of any habit or tradition of national a.s.sociation, the power of united action for a common purpose was stimulated by the threat of alien domination; and this latent power was unquestionably the result in some measure of the discipline of Christian ideas to which the French, in common with the other European peoples, had been subjected. That discipline had, as has already been observed, increased men's capacity for fruitful a.s.sociation one with another. It had stimulated a social relationship much superior to the prevailing political relationship. It had enabled them to believe in an idea and to fight devotedly on its behalf. It is no accident, consequently, that the national resistance took on a religious character, and in Jeanne d'Arc gave birth to one of the most fragrant figures in human history. Thus the French national resistance, and the national bond thereby created, was one political expression of the power of cooperation developed in the people of Europe by the acceptance of a common religious bond. On the other hand, the use which the English had made of their precocious national organization weakened its foundations. The aggressive exercise of military force abroad for an object which it was incompetent to achieve disturbed the domestic balance of power on which the national organization of the English people rested. English political efficiency was dependent partly upon its responsible exercise; and it could not survive the disregard of domestic responsibilities entailed by the expense in men and money of futile external aggression.

The history of Europe as it emerged from the Middle Ages affords a continuous ill.u.s.tration of the truth that the increasing political efficiency of the several states was proportioned to the exercise of their powers in a responsible manner. The national development of the several states was complicated in the beginning by the religious wars; but those peoples suffered least from the wars of religion who did not in the end allow them to interfere with their primary political responsibilities. Spain, for instance, whose centuries of fighting with the Moors had enormously developed her military efficiency, used this military power solely for the purpose of pursuing political and religious objects antagonistic or irrelevant to the responsibilities of the Spanish kings towards their own subjects. The Spanish monarchy proclaimed as its dominant political object the maintenance by force of the Catholic faith throughout Europe; and for three generations it wasted the superb military strength and the economic resources of the Spanish people in an attempt to crush out Protestantism in Holland and England and to reinforce militant Catholicism in France. Upon Germany, divided into a number of petty states, partly Protestant, and partly Catholic, but with the Imperial power exerted on behalf of a Catholic and anti-national interest, the religious wars laid a heavy hand. Her lack of political cohesion made her the prey of neighboring countries whose population was numerically smaller, but which were better organized; and the end of the Thirty Years' War left her both despoiled and exhausted, because her political organization was wholly incapable of realizing a national policy or of meeting the national needs. Great Britain during all this period was occupied with her domestic problems and interfered comparatively little in continental affairs; and the result of this discreet and sensible effort to adapt her national organization to her peculiar domestic needs was in the eighteenth century an extraordinary increase of national efficiency. France also emerged from the religious wars headed by a dynasty which really represented national aspirations, and which was alive in some respects to its responsibilities toward the French people. The Bourbon monarchy consolidated the French national organization, encouraged French intellectual and religious life, and at times sought in an intelligent manner to improve the economic conditions of the country. For the first time in the history of continental Europe something resembling a genuinely national state was developed. Differences of religious opinion had been subordinated to the political and social interests of the French people. The crown, with the aid of a succession of able ministers, suppressed a factious n.o.bility at home, and gradually made France the dominant European Power. A condition of the attainment of both of these objects was the loyal support of the French people, and the alliance with the monarchy, as the embodiment of French national life, of Frenchmen of ability and purpose.

The French monarchy, however, after it had become the dominant power in Europe, followed the bad example of previous states, and aroused the fear of its neighbors by a policy of excessive aggression. In this instance French domineering did not stimulate the national development of any one neighbor, because it was not concentrated upon any one or two peoples. But it did threaten the common interests of a number of European states; and it awakened an unprecedented faculty of inter-state a.s.sociation for the protection of these interests. The doctrine of the Balance of Power waxed as the result of this experience into a living principle in European politics; and it imposed an effective check upon the aggression of any single state. France was unable to retain the preponderant position which she had earned during the early years of the reign of Louis XIV; and this mistake of the Bourbon monarchy was the cause of its eventual downfall. The finances of the country were wrecked by its military efforts and failures, the industrial development of the people checked, and their loyalty to the Bourbons undermined. A gulf was gradually created between the French nation and its official organization and policy.

England, on the other hand, was successfully pursuing the opposite work of national improvement and consolidation. She was developing a system of government which, while preserving the crown as the symbol of social order, combined aristocratic leadership with some measure of national representation. For the first time in centuries the different members of her political body again began to function harmoniously; and she used the increasing power of aggression thereby secured with unprecedented discretion and good sense. She had learned that her military power could not be used with any effect across the Channel, and that under existing conditions her national interests in relation to the other European Powers were more negative than positive. Her expansive energy was concentrated on the task of building up a colonial empire in Asia and America; and in this task her comparative freedom from continental entanglements enabled her completely to vanquish France. Her success in creating a colonial empire antic.i.p.ated with extraordinary precision the course during the nineteenth century of European national development.

In contemplating the political situation of Europe towards the end of the eighteenth century the student of the origin of the power and principle of nationality will be impressed by its two divergent aspects.

The governments of the several European states had become tolerably efficient for those purposes in relation to which, during the sixteenth century and before, efficiency had been most necessary. They could keep order. Their citizens were protected to some extent in the enjoyment of their legal rights. The several governments were closely a.s.sociated chiefly for the purpose of preventing excessive aggression on the part of any one state and of preserving the Balance of Power. Unfortunately, however, these governments had acquired during the turbulent era an unlimited authority which was indispensable to the fundamental task of maintaining order, but which, after order had been secured, was sufficient to encourage abuse. Their power was in theory absolute. It was an imitation of Roman Imperialism, and made no allowance for those limitations, both in its domestic and foreign expressions, which existed as a consequence of national growth and the international system. Their authority at all times was keyed up to the pitch of a great emergency.

It was supposed to be the immediate expression of the common weal. The common weal was identified with the security of society and the state.

The security of the state dictated the supreme law. The very authority, consequently, which was created to preserve order and the Balance of Power gradually became an effective cause of internal and external disorder. It became a source not of security, but of individual and social insecurity, because a properly organized machinery for exercising such a power and redeeming such a vast responsibility had not as yet been wrought.

The rulers of the continental states in the eighteenth century explained and excused every important action they took by what was called "La Raison d'etat"--that is, by reasons connected with the public safety which justified absolute authority and extreme measures. But as a matter of fact this absolute authority, instead of being confined in its exercise to matters in which the public safety was really concerned, was wasted and compromised chiefly for the benefit of a trivial domestic policy and a merely dynastic foreign policy. At home the exercise of absolute authority was not limited to matters and occasions which really raised questions of public safety. In their foreign policies the majority of the states had little idea of the necessary and desirable limits of their own aggressive power. Those limits were imposed from without; and when several states could combine in support of an act of international piracy, as in the case of the part.i.tion of Poland, Europe could not be said to have any effective system of public law. The part.i.tion of Poland, which France could and should have prevented, was at once a convincing exposure of the miserable international position to which France had been reduced by the Bourbons, and the best possible testimony to the final moral bankruptcy of the political system of the eighteenth century.

II

THE IMPLICATIONS OF NATIONAL DEVELOPMENT