The text is taken from my copy of the fourth edition, 1842. This version of Political Justice, originally published in 1793, is based on the corrected third edition, published in 1798.
OF LEGISLATIVE AND EXECUTIVE POWER
GENERAL FEATURES OF DEMOCRACY
Definition. - Supposed evils of this form of
government - ascendancy of the ignorant - of
the crafty - inconstancy - rash confidence -
groundless suspicion. - Merits and defects of
democracy compared. - Its moral tendency. -
Tendency of truth. - Representation.
DEMOCRACY is a system of government according to which every member of society is considered as a man, and nothing more. So far as positive regulation is concerned, if indeed that can, with any propriety, be termed regulation, which is the mere recognition of the simplest of all moral principles, every man is regarded as equal. Talents and wealth, wherever they exist, will not fail to obtain a certain degree of influence, without requiring positive institution to second their operation.
But there are certain disadvantages that may seem the necessary result of democratical equality. In political society, it is reasonable to suppose that the wise will be outnumbered by the unwise; and it will be inferred 'that the welfare of the whole will therefore be at the mercy of ignorance and folly'. It is true that the ignorant will generally be sufficiently willing to listen to the judicious, 'but their very ignorance will incapacitate them from discerning the merit of their guides. The turbulent and crafty demagogue will often possess greater advantages for inveigling their judgement than the man who, with purer intentions, may possess a less brilliant talent. Add to this that the demagogue has a never failing resource, in the ruling imperfection of human nature, that of preferring the specious present to the substantial future. This is what is usually termed playing upon the passions of mankind. Politics have hitherto presented an enigma that all the wit of man has been insufficient to solve. Is it to be supposed that the uninstructed multitude should always be able to resist the artful sophistry, and captivating eloquence, that may be employed to perplex the subject with still further obscurity? Will it not often happen that the schemes proposed by the ambitious disturber will possess a meretricious, attraction which the severe and sober project of the discerning statesman shall be unable to compensate?
'One of the most fruitful sources of human happiness is to be found in the steady and uniform operation of certain fixed principles. But it is the characteristic of a democracy to be wavering and inconstant. The speculator only, who has deeply meditated his principles, is inflexible in his adherence to them. The mass of mankind, as they have never arranged their reflections into system, are at the mercy of every momentary impulse, and liable to change with every wind. But this inconstancy is directly the reverse of political justice.
'Nor is this all. Democracy is a monstrous and unwieldy vessel, launched upon the sea of human passions, without ballast. Liberty, in this unlimited form, is in danger to be lost almost as soon as it is obtained. The ambitious man finds nothing, in this scheme of human affairs, to set bounds to his desires. He has only to dazzle and deceive the multitude, in order to rise to absolute power.
'A further ill consequence flows out of this circumstance. The multitude, conscious of their weakness in this respect, will, in proportion to their love of liberty and equality, be perpetually suspicious and uneasy. Has any man displayed uncommon virtues, or rendered eminent services to his country? He will presently be charged with secretly aiming at the tyranny. Various circumstances will come in aid of this accusation; the general love of novelty, envy of superior merit, and the incapacity of the multitude to understand the motives and character of those who excel them. Like the Athenian, they will be tired of hearing Aristides constantly called the just. Thus will merit be too frequently the victim of ignorance and envy. Thus will all that is liberal and refined, whatever the human mind in its highest state of improvement is able to conceive, be often overpowered by the turbulence of unbridled passion, and the rude dictates of savage folly.'
If this picture must be inevitably realized wherever democratical principles are established, the state of human nature would be peculiarly unfortunate. No form of government can be devised which does not partake of monarchy, aristocracy or democracy. We have taken a copious survey of the two former, and it would seem impossible that greater or more inveterate mischiefs can be inflicted on mankind than those which are inflicted by them. No portrait of injustice, degradation and vice can be exhibited that can surpass the fair and inevitable inferences from the principle upon which they are built. If then democracy can, by any arguments, be brought down to a level with such monstrous institutions as these, in which there is neither integrity nor reason, our prospects of the future happiness of mankind will indeed be deplorable.
But this is impossible. Supposing that we should even be obliged to take democracy with all the disadvantages that were ever annexed to it, and that no remedy could be discovered for any of its defects, it would still be preferable to the exclusive system of other forms. Let us take Athens, with all its turbulence and instability; with the popular and temperate usurpations of Pisistratus and Pericles; with its monstrous ostracism, by which, with undisguised injustice, they were accustomed periodically to banish some eminent citizen, without the imputation of a crime; with the imprisonment of Miltiades, the exile of Aristides, and the murder of Phocion: - with all these errors on its head, it is incontrovertible that Athens exhibited a more illustrious and enviable spectacle than all the monarchies and aristocracies that ever existed. Who would reject their gallant love of virtue and independence because it was accompanied with irregularities? Who would pass an unreserved condemnation upon their penetrating mind, their quick discernment, and their ardent feeling because they were subject occasionally to be intemperate and impetuous? Shall we compare a people of such incredible achievements, such exquisite refinement, gay without insensibility, and splendid without intemperance, in the midst of whom grew up the greatest poets, the noblest artists, the most finished orators, and the most disinterested philosophers, the world ever saw - shall we compare this chosen seat of patriotism, independence and generous virtue with the torpid and selfish realms of monarchy and aristocracy? All is not happiness that looks tranquillity. Better were a portion of turbulence and fluctuation than that unwholesome calm in which all the best faculties of the human mind are turned to putrescence and poison.
In the estimate that is usually made of democracy, one of the sources of our erroneous judgement lies in our taking mankind such as monarchy and aristocracy have made them, and thence judging how fit they are to manage for themselves. Monarchy and aristocracy would be no evils if their tendency were not to undermine the virtues and the understandings of their subjects. The thing most necessary is to remove all those restraints which prevent the human mind from attaining its genuine strength. Implicit faith, blind submission to authority, timid fear, a distrust of our powers, an inattention to our own importance and the good purposes we are able to effect, these are the chief obstacles to human improvement. Democracy restores to man a consciousness of his value, teaches him, by the removal of authority and oppression, to listen only to the suggestions of reason, gives him confidence to treat all other men with frankness and simplicity, and induces him to regard them no longer as enemies against whom to be upon his guard, but as brethren whom it becomes him to assist. The citizen of a democratical state, when he looks upon the oppression and injustice that prevail in the countries around him, cannot but entertain an inexpressible esteem for the advantages he enjoys, and the most unalterable determination to preserve them. The influence of democracy upon the sentiments of its members is altogether of the negative sort, but its consequences are inestimable. Nothing can be more unreasonable than to argue from men as we now find them to men as they may hereafter be made. Strict and accurate reasoning, instead of suffering us to be surprised that Athens did so much, would at first induce us to wonder that she retained so many imperfections.
The road to the improvement of mankind is in the utmost degree simple, to speak and act the truth. If the Athenians had had more of this, it is impossible they should have been so flagrantly erroneous. To express ourselves to all men with honesty and unreserve, and to administer justice without partiality, are principles which, when once thoroughly adopted, are in the highest degree prolific. They enlighten the understanding, give decision to the judgement, and strip misrepresentation of its speciousness. In Athens, men suffered themselves to be dazzled by splendour and show. If the error in their constitution which led to this defect can be discovered, if a form of political society can be devised in which men shall be accustomed to judge simply and soberly, and be habitually exercised to the manliness of truth, democracy will, in that society, cease from the turbulence, instability, fickleness and violence that have too often characterized it. Nothing can be more worthy to be depended on than the omnipotence of truth, or, in other words, than the connection between the judgement and the outward behaviour.1 The contest between truth and falsehood is of itself too unequal for the former to stand in need of support from any political ally. The more it is discovered, especially that part of it which relates to man in society, the more simple and self-evident will it appear; and it will be found impossible any otherwise to account for its having been so long concealed than from the pernicious influence of positive institution.
There is another obvious consideration that has frequently been alleged to account for the imperfection of ancient democracies, which is worthy of our attention, though it be not so important as the argument which has just been stated. The ancients were unaccustomed to the idea of deputed or representative assemblies; and it is reasonable to suppose that affairs might often be transacted with the utmost order, in such assemblies, which might be productive of much tumult and confusion if submitted to the personal discussion of the citizens at large.2 By this happy expedient, we secure many of the pretended benefits of aristocracy, as well as the real benefits of democracy. The discussion of national affairs is brought before persons of superior education and wisdom: we may conceive them, not only the appointed medium of the sentiments of their constituents, but authorized, upon certain occasions, to act on their part, in the same manner as an unlearned parent delegates his authority over his child to a preceptor of greater accomplishments than himself. This idea, within proper limits, might probably be entitled to approbation, provided the elector had the wisdom not to recede from the exercise of his own understanding in political concerns, exerted his censorial power over his representative, and were accustomed, if the representative were unable, after the fullest explanation, to bring him over to his opinion, to transfer his deputation to another.
The true value of the system of representation seems to be as follows. Large promiscuous assemblies, such as the assemblies of the people in Athens and Rome, Must perhaps always be somewhat tumultuous, and liable to many of the vices of democracy enumerated in the commencement of this chapter. A representative assembly, deputed on the part of the multitude, will escape many of their defects. But representative government is necessarily imperfect. It is, as was formerly observed,3 a point to be regretted, in the abstract notion of civil society, that a majority should overbear a minority, and that the minority, after having opposed and remonstrated, should be obliged practically to submit to that which was the subject of their remonstrance. But this evil, inseparable from political government, is aggravated by representation, which removes the power of making regulations one step further from the people whose lot it is to obey them. Representation therefore, though a remedy, or rather a palliative, for certain evils, is not a remedy so excellent or complete as should authorize us to rest in it as the highest improvement of which the social order is capable.4
Such are the general features of democratical government: but this is a subject of too much importance to be dismissed without the fullest examination of everything that may enable us to decide upon its merits. We will proceed to consider the further objections that have been alleged against it.
1 Book I, Chap. V.
2 The general grounds of this institution have been stated, Book 111, Chap. IV. The exceptions which limit its value will be seen in the twenty-third chapter of the present book.
3 Book III, Chap. II.
4 See this subject pursued in Chap. XXIII, XXIV.