who ought to be critics and judges — or rather, perhaps, jurors — and they are engaged beforehand as advocates to support or attack the majority or the opposition in its course.
Officious Managers. The need of organization and the value of organization rise as the constituencies become more and more heterogeneous and contain more and more uneducated classes. They reach a maximum where the population consists of two classes or, worse still, of two races, of very unequal culture. Where organization is called for the organizer will not long be wanting. He comes with his inventions, the primary, the caucus, the convention, and the party committee — machinery which does not belong to the town-democracy or to any other form of government but which is the peculiar product of the representative democracy and is essential to the operation of that system.
The combination of the organizer with the civil officer comes next in order of development. We are gravely told that the government cannot be carried on unless there are men to arrange the machinery, do the drudgery, and work up the interest; that the civil offices ought to be given to men who are capable of doing this work, and that their services ought to be secured in that way. It must be conceded that such a class is essential to the working of a representative democracy, but if we are to go on in this way it would be wise and economical to recognize such functionaries as a part of the political system, to have them regularly appointed and regularly paid, on the principle that every open and recognized activity tends to come under proper restraints while every subterfuge tends to abuse. If, however, any one means to say that the excitement and agitation of last year, which we now recognize as largely the work of the
