122. III. Government by Council.
This is the determination, by living authority, of the national conduct to be observed under existing circumstances; and the modification or enlargement, abrogation or enforcement, of the code of national law according to present needs or purposes. This government is necessarily always by council, for though the authority of it may be vested in one person, that person cannot form any opinion on a matter of public interest but by (voluntarily or involuntarily) submitting himself to the influence of others.
This government is always twofold—visible and invisible.
The visible government is that which nominally carries on the national business; determines its foreign relations, raises taxes, levies soldiers, orders war or peace, and otherwise becomes the arbiter of the national fortune. The invisible government is that exercised by all energetic and intelligent men, each in his sphere, regulating the inner will and secret ways of the people, essentially forming its character, and preparing its fate.
Visible governments are the toys of some nations, the diseases of others, the harness of some, the burdens of more the necessity of all. Sometimes their career is quite distinct from that of the people, and to write it, as the national history, is as if one should number the accidents which befall a man's weapons and wardrobe, and call the list his biography. Nevertheless, a truly noble and wise nation necessarily has a noble and wise visible government, for its wisdom issues in that conclusively.
123. Visible governments are, in their agencies, capable of three pure forms, and of no more than three.
They are either monarchies, where the authority is vested in one person; oligarchies, when it is vested in a minority; or democracies, when vested in a majority.
But these three forms are not only, in practice, variously limited and combined, but capable of infinite difference in character and use, receiving specific names according to their variations; which names, being nowise agreed upon, nor consistently used, either in thought or writing, no man can at present tell, in speaking of any kind of government, whether he is understood; nor, in hearing, whether he understands. Thus we usually call a just government by one person a monarchy, and an unjust or cruel one, a tyranny: this might be reasonable if it had reference to the divinity of true government; but to limit the term "oligarchy" to government by a few rich people, and to call government by a few wise or noble people "aristocracy," is evidently absurd, unless it were proved that rich people never could be wise, or noble people rich; and farther absurd, because there are other distinctions in character, as well as riches or wisdom (greater purity of race, or strength of purpose, for instance), which may give the power of government to the few. So that if we had to give names to every group or kind of minority, we should have verbiage enough. But there is only one right name—"oligarchy."
124. So also the terms "republic" and "democracy"[63] are confused, especially in modern use; and both of them are liable to every sort of misconception. A republic means, properly, a polity in which the state, with its all, is at every man's service, and every man, with his all, at the state's service—(people are apt to lose sight of the last condition), but its government may nevertheless be oligarchic (consular, or decemviral, for instance), or monarchic (dictatorial). But a democracy means a state in which the government rests directly with the majority of the citizens. And both these conditions have been judged only by such accidents and aspects of them as each of us has had experience of; and sometimes both have been confused with anarchy, as it is the fashion at present to talk of the "failure of republican institutions in America," when there has never yet been in America any such thing as an institution, but only defiance of institution; neither any such thing as a res-publica, but only a multitudinous res-privata; every man for himself. It is not republicanism which fails now in America; it is your model science of political economy, brought to its perfect practice. There you may see competition, and the "law of demand and supply" (especially in paper), in beautiful and unhindered operation.[64] Lust of wealth, and trust in it; vulgar faith in magnitude and multitude, instead of nobleness; besides that faith natural to backwoodsmen—"lucum ligna,"[65]—perpetual self-contemplation, issuing in passionate vanity; total ignorance of the finer and higher arts, and of all that they teach and bestow; and the discontent of energetic minds unoccupied, frantic with hope of uncomprehended change, and progress they know not whither;[66]—these are the things that have "failed" in America; and yet not altogether failed—it is not collapse, but collision; the greatest railroad accident on record, with fire caught from the furnace, and Catiline's quenching "non aquâ, sed ruinâ."[67] But I see not, in any of our talk of them, justice enough done to their erratic strength of purpose, nor any estimate taken of the strength of endurance of domestic sorrow, in what their women and children suppose a righteous cause. And out of that endurance and suffering, its own fruit will be born with time; [not abolition of slavery, however. See § 130.] and Carlyle's prophecy of them (June, 1850), as it has now come true in the first clause, will, in the last:—
"America, too, will find that caucuses, divisionalists, stump-oratory, and speeches to Buncombe will not carry men to the immortal gods; that the Washington Congress, and constitutional battle of Kilkenny cats is there, as here, naught for such objects; quite incompetent for such; and, in fine, that said sublime constitutional arrangement will require to be (with terrible throes, and travail such as few expect yet) remodelled, abridged, extended, suppressed, torn asunder, put together again—not without heroic labour and effort, quite other than that of the stump-orator and the revival preacher, one day."