organizers of opinion who understood the mystery well enough to create majorities on election day. But these organizers have been regarded by political science as low fellows or as "problems," not as possessors of the most effective knowledge there was on how to create and operate public opinion. The tendency of the people who have voiced the ideas of democracy, even when they have not managed its action, the tendency of students, orators, editors, has been to look upon Public Opinion as men in other societies looked upon the uncanny forces to which they ascribed the last word in the direction of events.
For in almost every political theory there is an inscrutable element which in the heyday of that theory goes unexamined. Behind the appearances there is a Fate, there are Guardian Spirits, or Mandates to a Chosen People, a Divine Monarchy, a Vice-Regent of Heaven, or a Class of the Better Born. The more obvious angels, demons, and kings are gone out of democratic thinking, but the need for believing that there are reserve powers of guidance persists. It persisted for those thinkers of the Eighteenth Century who designed the matrix of democracy. They had a pale god, but warm hearts, and in the doctrine of popular sovereignty they found the answer to their need of an infallible origin for the new social order. There was the mystery, and only enemies of the people touched it with profane and curious hands.
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They did not remove the veil because they were practical politicians in a bitter and uncertain struggle.
