Proportional Representation Applied To Party Government Part 3

What is the significance of these events in the light of our previous examination of English history? Simply this: That the French, in pa.s.sing at once from absolutism and feudalism to complete self-government, were trying to jump to the Second stage of representation without pa.s.sing through the first stage. Mirabeau was right; the republic was foredoomed to failure because the people had learned neither the power of nor the necessity for organization.

In many respects the French Revolution parallels the English Revolution.

In each case the King was beheaded; in each case the anarchy of a disorganized representative body was succeeded by a military despotism; and in each case the monarchy was restored.

It was after the restoration that the English system of party government was developed. Why did this system not now take root in France? Partly because France was not blessed with a king like William of Orange, and partly because the new _systeme de bascule_, the balance system, in which the king allows each faction in turn to hold the reins of power, was discovered. So, instead of the gradual growth of const.i.tutional liberty which took place in England, the tendency in France was back to absolutism. In 1830 Charles X., finding that he could not manage the Chamber of Deputies, issued the ordinances of St. Cloud, suspending the liberty of the press and dissolving the Legislature. Paris immediately broke out into insurrection, and the King was forced to abdicate. The crown was offered to Louis Philippe, and a second attempt at const.i.tutional monarchy was made. But France was too divided by her unfortunate legacy of faction to maintain a continuous policy. The Legitimists, the Republicans, and the Bonapartists were all awaiting their opportunity. In 1848 the second revolution broke out in Paris; the king fled to England, and a republic was again tried. But the imperialist idea revived when Louis Napoleon was elected President. In 1851 he carried out his famous _coup d'etat,_ and again the Const.i.tution was swept away. In the following year he was accepted as Emperor by an almost unanimous vote. Thus France again elected to be ruled by an irresponsible head. The Third Empire ended with the capture of Napoleon III. at Sedan in 1870, and since then France has carried on her third experiment in republicanism. But still the fatal defect of disorganization r.e.t.a.r.ds her progress; the Legislature is still split up into contending factions, and in consequence it has been found impossible to maintain a strong executive. Occasionally the factions sink their differences for a time when their patriotism is appealed to, as they have agreed to do during the currency of the present Exhibition, but it is abundantly evident that France can never be well governed till the people are able to organize two coherent parties. There is ground for hope that the monarchical and imperialist ideas are declining, and that the people are settling down to the conviction that there is nothing left but the republic. What makes recovery difficult is that the national character has been affected by the continual strife in the direction of excitability and desire for change.

Those who wish to understand the forces which brought about the different changes and revolutions, traced by one who has grasped their meaning, should read the account in the first volume of Mr. Bradford's "Lesson of Popular Government." His conclusion only need be quoted here:--

As has been said, that which const.i.tutes the strength of the English. Government, that which has made up its history for the last two hundred years, is the growth and continuity of two solid and coherent parties. Occasionally they have wavered when available leaders and issues were wanting, but as soon as a strong man came forward to take the reins the ranks closed up and the work of mutual compet.i.tion again went on. On the other hand, the curse and the cause of failure of representative government on the Continent of Europe is the formation within the legislature of unstable and dissolving groups. In France the Extreme Eight, the Eight, the Eight Centre, the Left Centre, the Left, and the Extreme Left are names of differing factions which unite only for temporary purposes and to accomplish a victory over some other unit, but which are fatal to stable and firm government. The same is true of Italy, Spain, and Austria, and if not of Germany it is because military despotism holds all alike in subjection.

Mr. Bodley has come to the same conclusion in his work on "France." He writes:--

There is no restraining power in the French parliamentary system to arrest a member on his easy descent, and he knows that if he escapes penal condemnation he will enjoy relative impunity. Many deputies are men of high integrity; but virtue in a large a.s.sembly is of small force without organization, and, moreover, a group of legislators leagued together as a vigilance committee would have neither consistency nor durability, which the discipline of party can alone effect. Corruption of this kind, which has undermined the republic, could not co-exist with party government. A party whose ministers or supporters had incurred as much suspicion as fell on the politicians acquitted in the Panama affair would under it be swept out of existence for a period. When the first denunciations appeared, the leaders of the party, to avert that fate, would have said to their implicated colleagues--"In spite of your abilities and of the manifest exaggeration of these charges we must part company, for though you may have been culpable only of indiscretion, we cannot afford to be identified with doubtful transactions;" and the Opposition, eager not to lose its vantage, would scan with equal keenness the acts of its own members. With party government the electorate would not have appeared to condone those scandals. But as it was, when a deputy involved in them went down before his const.i.tuents, whose local interest he had well served, with no opponent more formidable than the nominee of some decayed or immature group, they gave their votes to the old member, whose influence with the prefecture in the past had benefited the district, rather than to the new comer, whose denunciations had no authority; whereas, had each electoral district been the scene of a contest between organized parties, the same spectacle would not have been presented." (Vol. ii., pp. 302, 303.)

Mr. Bodley has, in this last sentence, touched the heart of the problem. If the salvation of France depends on making each electoral district the scene of a contest between two organized parties, is not electoral machinery destined to play an important part in the solution?

+The United States.+--The third great experiment in representative democracy which the nineteenth century has furnished is that which is being conducted in the United States. The contrast with France is remarkable. Just as France is the supreme example of want of organization, so America is the most conspicuous instance of perfect organization into two great national parties which the world has seen.

Yet both experiments were started by a revolution, and practically at the same time. The difference lay in the fact that the Americans inherited the capacity for self-government from their British ancestors, and had already practised it in colonial times, while the French only inherited innumerable causes of dissension.

But organization is not the only characteristic feature of American politics. Strange to say, it is accompanied by a suppression of individuality just as complete. It is organization without responsible leaders.h.i.+p. For, in the first place, the politicians look on themselves not as leaders but as followers of the people; and in the second place, there are no leaders in Congress, corresponding to the cabinet ministers of British countries.

Now, the view which we wish to emphasize here is that the present position of American politics is the natural result of the principles embodied in the Const.i.tution adopted in 1789, when the Union was formed.

The complete organization and the want of leaders.h.i.+p are directly to be traced to the labours of George Was.h.i.+ngton and his a.s.sociates. A brief glance at the Const.i.tution and the early history of its working will make this clear.

The thirteen States which revolted from England worked fairly well together under the "Articles of Confederation and Perpetual Union" as long as the war lasted, but as soon as peace was proclaimed it was, as Was.h.i.+ngton said, no better than anarchy. The famous Convention of 1787 was therefore held, and the Const.i.tution was drawn up. One guiding principle of its framers was to divide power so as to place checks on the will of the people, and on outbursts of popular pa.s.sion, which were then greatly dreaded. One means of attaining this object was the attempted separation of the legislative and executive functions. We say attempted advisedly, for time has but shown that the two are inseparable. But the framers of the Const.i.tution divided the legislative function between the two Houses, and vested the executive function almost entirely, as they thought, in the President. Montesquieu, in his "_Esprit des Lois_" had laid down that the great merit of the English Const.i.tution was the separation of these functions, and the Americans accepted this view. But, in truth, the English cabinet system had not then been fully developed. The King was still, not only in appearance, but to some extent also in fact, the head of the executive, and there was nothing to indicate that ministers were so soon to become the real leaders.

The effect of this provision was a struggle between the two branches for supremacy, and the legislatures have won. The President has been degraded to a mere agent, and the legislatures have absorbed the greater part of executive functions, even to the control of finance. Now, the framers of the Const.i.tution were apprehensive that the President might become a mere party agent, and they tried to strengthen his position by two devices. First, they gave him the power to veto statutes unless overruled by a two-thirds majority of Congress; and, secondly, they provided for his election by an electoral college, or by a double system of election. This second provision was designed to ensure the election of a President for personal instead of for party reasons; but it has proved a complete failure. Almost from the first the electoral delegates have had to pledge themselves to support the party nominee. The veto, therefore, has also become practically useless. Thus it has come about that Congress is a body entirely without leaders.

A second defect in the Const.i.tution was that it said nothing about the right of any State to withdraw from the Union. After nearly 70 years this omission was responsible for the Civil War. The legal basis for secession was then abandoned, but combinations of States have since been regarded with the greatest apprehension. This conviction that the Union must be maintained at any price has had very important consequences on the party system. The danger of allowing combinations of States to dominate party lines was demonstrated; and the division of each State by the same national parties was recognized as essential to safety.

In the meantime, as we have seen, Congress had practically got control of the executive functions, which were supposed to be exercised by the President, including the nominations to office. Thus every member of the party in a majority had a share of the plunder, and "the spoils to the victors" became the basis of party organization. The system soon underwent such a remarkable development that nearly 200,000 public offices were at the disposal of the victors at each election. The party organizations immediately became omnipotent. The secret of their power lay in the control of nominations. Each party would nominate one candidate only, and the electors voted neither for men nor measures, but blindly for party. As Mr. Bryce declares:--"The cla.s.s of professional politicians was therefore the first crop which the spoils system--the system of using public office as private prize of war--bore. Bosses were the second crop."

The development which these party organizations have now reached is extraordinary. Practically we may say that there are only two parties--Republicans and Democrats--and they dominate not only Federal and State politics but also city government. Each party has its list of registered electors, and each holds a primary election before the real election, to decide the party candidate. But these primary elections are a mere matter of form. Only a small fraction of the electors attend them, and only those who have always supported the party are allowed to vote. The nominations are therefore really controlled, by fraud if necessary, by the "ring" of party managers. Generally there is one man who can pull the most strings, and he becomes the "boss." All power is centred in the hands of this irresponsible despot. The men who are elected owe their positions to him, and are responsible to him, not to the public.

Remember that these "machine" organizations have absolute sway in every electorate, from one end of the United States to the other. It may be wondered why the people tolerate them, but they are powerless. Sometimes an independent movement is attempted, but it very rarely succeeds, and even when it does the two "machines" combine against it and agree to divide the spoils. Mr. Bryce writes:--

The disgust is less than a European expects, for it is mingled with amus.e.m.e.nt. The "boss" is a sort of joke, albeit an expensive joke. "After all," people say, "it is our own fault. If we all went to the primaries, or if we all voted an independent ticket, we could make an end of the 'boss.'" There is a sort of fatalism in their view of democracy. (Vol ii., p. 241.)

What is the meaning of all this wonderful party machinery? It is this: that organization without responsible leaders.h.i.+p can only be founded on corruption. In other words, _the spoils system is the price which the United States pay for maintaining the Union under the present Const.i.tution_. The fault lies ultimately, therefore, in the Const.i.tution, which tends to repress responsible leaders.h.i.+p.

Now, the ma.s.s of public opinion in America, as Mr. Bryce continually points out, is sound, and attempts have not been wanting to put an end to the system of rotation in public offices. A sustained agitation for civil service reform was entered upon, and the system of compet.i.tive examination was applied to a large number of offices. Now at last, the reformers thought, American politics would be purified. But, no! The corruption, simply took a new and more alarming turn. Direct money contributions took the place of the spoils. It became the practice to levy blackmail on corporations either to be let alone, or for the purpose of fleecing the public. The monopolies granted to protected industries are the source of a large share of these "campaign funds."

The Legislatures are crowded by professional lobbyists, and it is, in consequence, impossible to obtain justice against the corporations.

Surely no stronger proof can be needed that corruption is and must remain the basis of organization so long as there is no responsible leaders.h.i.+p.

It would be a mistake, however, to suppose that the Americans are not alive to the failure of their representative inst.i.tutions. Since Mr.

Bryce's great work on "The American Commonwealth" was published two books by American authors have appeared which are very outspoken in condemnation. These are "The Unforeseen Tendencies of Democracy," by Mr.

E.L. G.o.dkin; and "The Lesson of Popular Government," by Mr. Gamaliel Bradford. The keynote of the first of these two books is to abolish corruption by destroying the power of the "machine" and the "boss," and of the second to introduce responsible leaders.h.i.+p. Mr. G.o.dkin traces the disappearance of distinguished men from public life to the control of all entrance to it by the "machine." The reform of primary elections, he holds, is then the first necessity, since "independent voting" has ceased to be a remedy. But he fails to find a solution. The conclusion he comes to is as follows:--

Is the situation then hopeless? Are we tied up inexorably simply to a choice of evils? I think not. It seems to me that the nomination of candidates is another of the problems of democracy which are never seriously attacked without prolonged perception and discussion of their importance. One of these was the formation of the federal government; another was the abolition of slavery; another was the reform of the civil service. Every one of them looked hopeless in the beginning; but the solution came in each case, through the popular determination to find some better way.

(Pp. 92, 93.)

But the evil goes far deeper than Mr. G.o.dkin appears to think. To abolish corruption is to take away the present basis of organization without subst.i.tuting any other. If irresponsible leaders.h.i.+p is to be abandoned, responsible leaders.h.i.+p must be introduced. Mr. Bradford's plan, therefore, promises more, for if responsible leaders.h.i.+p could be introduced into Congress corruption would then be abolished also.

Mr. Bradford's whole book may be said to be a study of the relations of the executive to the legislature, and the conclusions at which he arrives are a complete vindication of cabinet government. But he finds one fault, and that is the instability of ministries, which he confesses has not been apparent so far in the British House of Commons. He holds, however, that it will become more apparent with the rising tide of democracy. It is rather amusing to find that the greatest obstacle which has to be overcome in proposing a responsible executive is the veneration in which the Const.i.tution is still held and the dislike to copying anything from England. His plan is, therefore, an adaptation of the cabinet to the conditions imposed by the Const.i.tution. He holds that the ministers appointed by the President should sit in Congress and have control of the initiation of legislation. It is to be feared that this would hardly realize the idea of responsible leaders.h.i.+p. Mr. Bradford establishes a chain of responsibility by the fact that the ministers are responsible to the President and the President is responsible to the people; but that is a very different thing to the continual responsibility of the cabinet to a majority of the legislature. It is probable that the President's ministers would have to encounter the opposition of a majority in one or both Houses, and it is difficult to see how a deadlock could be avoided. Mr. Bradford contemplates that the people would settle any issues which arise between the two branches at the end of the Presidential term of four years; but it is just as likely that there would then be a new President in any case. We are driven to the conclusion, therefore, that responsible leaders.h.i.+p is incompatible with the American system of divided powers and fixed terms of office.

Mr. Bryce comments on the proposal as follows:--

It is hard to say, when one begins to make alterations in an old house, how far one will be led on in rebuilding, and I doubt whether this change in the present American system, possibly in itself desirable, might not be found to involve a reconstruction large enough to put a new face upon several parts of that system.

(Vol. i, pp. 290, 291.)

This is very true, but is not a new building required? Is not the old house built on a rotten foundation? Mr. Bradford has certainly overlooked the effect of his proposal on party organization for one thing. If the power over legislation, and especially over expenditure of public money, is to be taken away from the irresponsible committees of Congress, the basis of party organization would cease to be corruption, and both representatives and parties would have to take on an entirely new character. As to the present character of representatives, Mr. Bryce advances a number of reasons why the best men do not go in for politics, such as the want of a social and commercial capital, the residential qualification, the comparative dullness of politics, the attractiveness of other careers, &c, but Mr. Bradford declares that the one explanation which goes further than all these is the absorption of all the powers of the government by the legislature, and the consequent suppression of individuality. He writes:--

The voters are urged to send to Congress men of character, ability, and public spirit. They might as well be asked to select men of that quality to follow the profession of burglars, a comparison which is not intended to convey any disrespect to the number of honest and respectable men who constantly are sent to Congress.

Chosen as burglars, they would fail just the same in the business.... It is the organization of Congress which offers every facility to those who wish to buy and those who wish to be bought.

Again, as to the present character of parties, Mr. Bradford declares:--

The names of the two great parties, Republicans and Democrats, have in themselves and at the present time no meaning at all.

Simply because the basis of organization is corruption, and not questions of public policy. For the same reason recent elections have been fought on popular "crazes," such as the silver question. But Mr.

Bradford says:--

New parties cannot be formed on constantly changing issues, since to have any strength they must have a certain degree of permanence.

The only two nations which have succeeded in forming great national parties are Great Britain and the United States. In other European countries the splitting into groups has almost made representative government impossible.

What Mr. Bradford has failed to appreciate is that the absolutely rigid division into two camps which prevails in America is founded on corruption, and will disappear when corruption is abolished. In the United States such a thing as a Congressman deserting one party for the other is practically unknown. In Great Britain, on the contrary, party lines do continually change as new issues arise; and when they are founded on questions of public policy it must be so. What gives them permanence is that certain principles underlie most questions, and men who have the same political principles are likely to think the same on any single question; and further that a member would rather follow his party and sacrifice his opinion on a single question than sacrifice most of his principles.

Therefore, even if the Americans do succeed in purifying their politics, they will be faced with the same difficulty as exists elsewhere--namely, such improved organization as will secure the return of representatives on questions of general public policy only. The present system of single-membered electorates will not suffice. The only remedy lies in enlarged electorates with electoral machinery which will organize public opinion into two definite lines of policy, and will, by allowing individual candidature merge the primary election into the actual election.

All this involves a radical alteration, both in the Const.i.tution and in the methods of election. But the United States have the great advantage over France that it does not involve also a serious change in the national character. It is not unlikely that some such reform must be brought about before long.

The present position cannot last. The Republican party has so long identified itself with Capital in all its forms, with the protected monopolists, the trusts and the corporations, that the ma.s.s of Labour threatens to support the Democrats; and as the latter party maintains the doctrines of direct government and the infallibility of the majority, the result will be such a financial crisis and such an industrial revolution that the Americans will have at last to admit that their government needs total reconstruction.

+Australia.+--On the first day of the nineteenth century the Union of the Parliaments of Great Britain and Ireland was accomplished; on the first day of the twentieth century Britain's daughters in the southern seas will inaugurate, under her aegis, a new experiment in democracy--the Australian Commonwealth. The time is opportune, then, for a review of the tendencies of Australian politics, and for a comparison with the other great democracies. Thus only can we attempt to cast the horoscope of the new nation.

Australia starts with many advantages over France and America. The science of government is better understood now than when they started; the folly of placing too many checks on the people is recognized; and the British system of responsible leaders.h.i.+p by a cabinet in the legislature is fully developed. All these features are embodied in the Const.i.tution, and it only remains for the people to prove their fitness to work it.

Applying the same tests as we have used in the case of the great democracies to the present position of Australian politics, what is the result? First, as regards organization, where do we stand? It must be confessed that we are far behind Great Britain and America, though certainly we are not in the same sad plight as France. Still there is the fact that we are cla.s.sed among the failures. Take the evidence of Mr. E.L. G.o.dkin in "Unforeseen Tendencies of Democracy:"--

In his Journals during a visit to Turin in 1850, Senior records a conversation with Cesare Balbo, a member of the Chamber in the first Piedmontese Parliament, in which Balbo said, after an exciting financial debate:--"We have not yet acquired parliamentary discipline. Most of the members are more anxious about their own crotchets or their own consistency than about the country. The ministry has a large nominal majority, but every member of it is ready to put them in a minority for any whim of his own." This was probably true of every legislative body on the Continent, and it continues true to this day in Italy, Greece, France, Austria, Germany, and the new Australian democracies. (Pp. 102, 103.)

He adduces in support of the statement the fact that the three colonies of New South Wales, South Australia, and Victoria have had respectively twenty-eight, forty-two, and twenty-six ministries in forty years. Is the prospect any brighter for the new Commonwealth? It is to be feared not, if the present tendencies towards disintegration are allowed to grow. For in the last decade a change has come over Australian politics which portends the gravest danger. We refer to the direct cla.s.s representation which, under the name of Labour parties, has spread all over the colonies. These so-called Labour "parties" are neither more nor less than cla.s.s factions. Their policy is everywhere the same--viz., the use of the "balance system," which has proved so disastrous to France.

The worst effect is that they prevent the main parties from working out definite policies on public questions, and cause them also to degenerate into factions. In Victoria we have actually had the ludicrous spectacle of the Opposition saving the Government time after time when deserted by its own followers. In New South Wales the individual member is sunk in the party; he must vote as the majority decides. Mr. Reid's term of office was ended by one such caucus. In Queensland, where the party is strongest, it has now practically become one of the main parties, and the whole colony is divided on cla.s.s lines. Already an Intercolonial Labour Conference has been held, and a pledge drawn up which must be signed by all candidates for the party support at Federal elections. The danger of these tactics is not rightly apprehended in Australia. In reality they mark the first step towards social disruption. We may cite the authority of Mr. James Bryce on this point. After pointing out in "The American Commonwealth" that since the Civil War combinations of States have always acted through the national parties, he writes:--

This is an important security against disruption. And a similar security against the risk of civil strife or revolution is to be found in the fact that the parties are not based on or sensibly affected by differences either of wealth or of social position.

Their cleavage is not horizontal, according to social strata, but vertical. This would be less true if it were stated either of the Northern States separately, or of the Southern States separately: it is true of the Union taken as a whole. It might cease to be true if the new Labour party were to grow till it absorbed or superseded either of the existing parties. The same feature has characterized English politics as compared with those of most European countries, and has been a main cause of the stability of the English government and of the good feeling between different cla.s.ses in the community. (Vol. ii., p. 38.)

How is it that the public conscience is not alive to the enormity of this anti-social crime? Mainly, we think, because the true principles of representation are not properly understood. It is almost universally a.s.sumed that there is no real distinction between direct and representative government. Minorities are tacitly allowed to have as much right to representation as the minority, and the confusion of terms is pa.s.sed over. The working cla.s.ses are told by self-seeking demagogues that they are in a majority; that the majority is ent.i.tled to rule; and that they have only to organize to come into their heritage. These sycophants, who, as Aristotle of old pointed out, bear the greatest resemblance to the court favourite of the tyrant, ask the people to believe the silly paradox that the united wisdom of the whole people is greater than that of the wisest part. The truth is that no people is fit to exercise equal political rights which is not sensible enough to choose the wisest part to carry on the government, providing only they have control over their selection, and can hold them responsible. Are the working cla.s.ses in Australia going to demonstrate that they are unfit for the exercise of political rights? Are they going to justify the prognostications of the opponents of popular government? That is the real question at issue. Unless public opinion be aroused to the iniquity of cla.s.s delegation, the further degradation of Australian politics is inevitable. Let it not be thought that we are decrying the organization of the working cla.s.ses for political purposes. On the contrary, we hold that the organization of every cla.s.s and every interest is necessary in order that it shall exert its just share of influence. But the only way in which every cla.s.s can get its just share is by acting through the two main parties. A cla.s.s which holds aloof can exert for a short time an undue share of influence, as a faction holding the balance of power, but only at the expense of paralyzing the government.