that his country, too, furnishes us with bitter commentaries on this truth; and we are not exempt from the dangers common to mortals. Yet as was indicated just now, the patria of us moderns ought to consist in a wide land covered by a nation, and not in a city or a little colony. Mankind have outgrown the ancient city-state. Countries are the orchards and the broad acres where modern civilization gathers her grain and nutritious fruits. The narrow garden-beds of antiquity suffice for our widened humanity no more than the short existence of ancient states. Moderns stand in need of nations and of national longevity, for their literatures and law, their industry, liberty and patriotism; we want countries to work and write and glow for, to live and to die for. The sphere of humanity has steadily widened, and nations alone can now-a-days acquire the membership of that great commonwealth of our race which extends over Europe and America. Has it ever been sufficiently impressed on our minds how slender the threads are that unite us in a mere political system of states, if we are not tied together by the far stronger cords of those feelings which arise from the consciousness of having a country to cling to and to pray for, and unimpeded land and water roads to move on?

Should we, then, not avail ourselves of so well proved a cultural means of fostering and promoting a generous nationality, as a comprehensive university is known to be? Shall we never have this noble pledge of our nationality? All Athens, the choicest city-state of antiquity, may well be said to have been one great university, where masters daily met with masters; and shall we not have even one for our whole empire, which does not extend from bay to bay like little Attica, but from sea to sea, and is destined one day to link ancient Europe to still older Asia, and thus to help completing the zone of civilization around the globe? All that has been said of countries and nations and a national university would retain its full force even if the threatened cleaving of this broad land should come upon us. But let me not enter on that topic of lowering political reality, however near to every citizen's heart, when I am bidden by you to discourse on political philosophy, and it is meet for me not to leave the sphere of inaugural generalities.

to pray first of all "for their noble high mightinesses, the estates of Holland and West Friesland, as the true sovereign, and only sovereign power after God, in this province; next, for the estates of the other provinces, their allies, and for all the deputies in the assembly of the States General, and of the Council of State."

"Separatismus," as German historians have called the tendency of the German princes to make themselves as independent of the empire as possible, until their treason against the country reached "sovereignty," has made the political history of Germany resemble the river Rhine, whose glorious water runs out in a number of shallow and muddy streamlets, having lost its imperial identity long before reaching the broad ocean.

CHAPTER XVI.

REPRESENTATIVE GOVERNMENT CONTINUED. BASIS OF PROPERTY. DIRECT AMD INDIRECT ELECTIONS.

28. THE prominent points of a national representative government, considered as a guarantee of liberty, consist in the representative principle, that is, the basis of representation and the right of voting for the representative, in the election laws, in the fact that those who have the right to vote do vote, (hence the importance, and, I believe, the necessity of registration laws,) and in the organization of the representative legislature, with its own protection and liberties.

All that we can say regarding the requirements of Anglican liberty with reference to the principle of representation, is that it be a broad or popular one. Universal suffrage cannot be said to be an Anglican principle, whatever the American view, of which we shall treat by and by, may be. The application of the principle of a wide popular representation, however, or an extensive right of voting, has constantly though slowly expanded in England, and continues to be expanding.1

The English, not allowing universal suffrage or indeed a representation based upon numbers alone, require some limit beyond which the right of voting shall not go. This limit is, as a general rule, which has however its exceptions, indicated either by property or by a certain annual expense which usually designates the amount of income over which man may dispose, namely, house-rent. Hence it is often said that property is the basis of representation in England. This is not correct. Property, or the enjoyment of a certain revenue

1 For the historic development of the English representative government it will hardly be necessary to refer the reader to Hallam's History of the English Constitution.

either from acquired property or from an industrial occupation, gives the right of voting, but it is not the basis of repre

sentation.

When it is maintained in modern times that property ought to be the basis of representation, or it is asserted that the English constitution is founded on property, an inappropriate term is used, which carries along with it erroneous associations, in almost all discussions on this subject. When we say that population is the basis of representation, we mean indeed that one representative is chosen for a distinct number of represented citizens, and that therefore a large population should have more representatives than a small one; but when it is said that property is or ought to be the basis of representation, we mean in almost all cases nothing more than that a certain amount of property or revenue is required to entitle a man to vote. The Roman constitution ascribed to Servius Tullius was really founded upon property, because the six classes of citizens actually took a share in the government of the state in proportion to the property they held. Thus likewise there is a partial representation of property prescribed by the constitution of South Carolina, for the composition of the state senate, inasmuch as the small but wealthy divisions. of the lower part of the state elect a number of senators disproportionately large compared to the number of senators sent from the upper districts of the state, which are very populous and possessed of proportionately less property. This was at least the case when the constitution was adopted.'

What is really meant when it is said that a constitution ought to be founded on property, is this: that a minimum amount of property ought to be adopted as the last line beyond which no suffrage ought to be granted, but not that a capital of a million or the possession of a thousand acres of land ought to be entitled to a greater share in government than the possession of a few thousand dollars. It is meant

1 Those votes which are given in England, according to rate-paying, in local matters, are indeed votes founded on property and industrial pur

that we seek for a criterion which will enable us to distinguish those who have a fair stake in the welfare of the state from those who have not. But here occurs at once the question: Is this criterion in our age any longer safe, just, and natural, which it may be supposed to have been in former ages? Are there not thousands of men without property who have quite as great a stake in the public welfare as those who may possess a house or enjoy a certain amount of revenue? This criterion becomes an actual absurdity when by property landed property only is understood. It was indeed in the middle ages almost the exclusive property of lasting and extensive value; but nothing has since changed its character more than property itself. This whole question is one of vastest extent, and emphatically belongs to the science of politics and real statesmanship. In regard to the subject immediately in hand, we have only to repeat that an extensive basis of representation is doubtless a characteristic element of Anglican liberty.

29. As important as the basis of representation-indeed, in many cases more important-is the question whether there shall be direct elections by the people, or whether there shall be double elections; that is to say, elections of electors by the constituents, which electors elect the representative. It may be safely asserted that the Anglican people are distinctly in favor of simple elections. Elections by electing middle men deprive the representation of its directness in responsibility and temper; the first electors lose their interest, because they do not know what their action may end in; no distinct candidates can be before the constituents, and be canvassed by them, and, inasmuch as the number of electors is a small one, intrigue is made easy.

The fact that a double or mediate election foils in a great degree the very object of a representative government, is so well known by the enemies of liberty, that despotic governments, unable to hold their absolute power any longer, have frequently struggled hard to establish universal suffrage with double election. An intention to deceive, or a want of acquaintance with the operation of the principle must explain

the measure. I believe that neither American nor Englishman would think the franchise worth having were double elections introduced, and so decidedly is the simple election ingrained in the Anglican character, that in the only notable case in which a mediate election is prescribed in America, namely, the election of the President of the United States, the whole has naturally and of itself become a direct election. The constitution is obeyed, and electors are elected, but it is well known for which candidate the elector is going to vote, before the people elect him. There is but one case of old date in which an elector, elected to vote for a certain candidate for the presidency, voted for another, and his political character was gone for life; while in the month of November, 1856, the legislature of South Carolina, the only legislature in the United States which has retained for itself the election of presidential electors, actually "instructed" the electors to vote for Mr. Buchanan, and in the state of Pennsylvania committees belonging to different parties or sections of parties agreed upon certain "Union Electoral Tickets" for the election of electors, to satisfy the claims of the different voters. These instances, and many more might be given, show how the principle of a double election has been wholly abandoned in the election for the president, although the form still exists.

Civil liberty demands a fair representative system; the latter requires that the representatives really represent the people, which is by no means necessarily obtained by simple universal suffrage. Indeed it is one of the highest problems of political philosophy on the one hand and of genuine statesmanship on the other, to establish, combine, and, as circumstances may require, to change the basis of representation. In England we find that a large number of persons lately urged an additional "representation of education." Essential representation requires a fair representation of the minority,"

1 According to the present constitution of Prussia (1859) there is universal suffrage for the election of a certain number of electors, and in addition a graduated property qualification for the election of other electors, who with the former elect representatives.

2 See Political Ethics on Opposition and Representatives.