THE GUIDANCE OF PUBLIC OPINION.
The fact that there is a widespread belief that the ruling power in public affairs, as well as in social life, is public opinion, makes it desirable that the nature of public opinion itself—how it is constituted, who forms it, the way in which its influence is manifested, the ways in which it may be guided—be carefully studied. Perhaps in no other country in the world is so much emphasis laid upon public opinion as in the United States—not even in Switzerland. There, though in many of the cantons the people themselves directly make their own laws in popular meeting, or by general vote, they still are guided in great part by the executive or by the legislative assembly, that drafts bills and presents them to the people for their approval. It is the assumption there that the body which drafts the laws, as the servant of the people, is acting in the people's interests, and the people are strongly inclined to accept its advice. Ordinarily the same men serve year after year in the legislature; and the executive officers frequently remain the same almost throughout a generation. These men largely guide, and the people follow. It is expected that minority parties will be represented on executive boards, and the defeat of a minister's plans is no reason for his resignation, as in England and France.
In the United States, on the other hand, it has not been customary for the people to trust their representatives and officials so completely; and the officials on their part increase this distrust by encouraging the people to believe in their own wisdom. It is practically always assumed here in a public discussion that whenever the people express themselves on any question they are right. The people cannot make a mistake.
Another theory of like import, but perhaps more nearly true, is that whenever the people have clearly expressed their opinion on any subject, their decision for the time being must be right so
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