Right here, however, we pass over from the abstract to the concrete, from plain and easy reasoning on principles to practical contact with human nature. Power and authority in exercise must be in the hands of individuals. When wielded by boards and committees we find that they are divided and dispersed, and especially we find that, when divided, they escape responsibility. Thence arises irresponsible power, the worst abomination known to the modern constitutional or jural state. The most important practical questions are, therefore: Who shall be endowed with the authority of the state? How shall he be designated? How shall the authority be conferred? How shall the organs of authority be held to responsibility?
In constitutional monarchies these questions are answered by reducing the monarch to an emblem of stability, unity, and permanence, and surrounding him with ministers appointed by him, but under conditions which make them organs of the public will and which hold them to continual responsibility for all the acts of the state. The end is accomplished by indirect means which, nevertheless, secure the result with satisfactory certainty. In republics the organs of authority are designated by the express selection of the people; the people directly signify whom they choose to have as their organs or agents; they express their confidence distinctly either by word of mouth or by other convenient process; they show their will as to the policy of the state by choosing between advocates of different policies submitted to their selection. They do this either by the spoken word or the lifted hand, or by the ballot; they decide by majority vote or by such other combination as they may themselves think wisest; they confer authority for such time as they may determine; and they
