nciple of representation. Without this {161}
principle it would be impossible for societies large enough to afford
men protection, to admit all men to a share in their positive benefits
and to a voice in their councils. Representative government is a
method of political procedure through which authority is made
answerable in the long run to all interests within its jurisdiction.
The more recent tendencies in democratic communities to modify the
representative system indicate the direction in which the pressure of
interests is still urging society forward. It is no longer a question
merely of the extension of the suffrage, but of directness and
publicity. The procedure of government being recognized as of vital
importance to all citizens, it must be straightforward and
businesslike, with its books constantly open to inspection. The
present distrust in elected representatives is not a sign of reaction,
but of the evolution of the democratic intelligence. Where the
machinery of representation becomes wasteful and clumsy, it ceases to
serve the community. But this may mean either direct legislation, that
is, a direct participation in public affairs by the people at large, or
the intrusting of these affairs to a few conspicuously responsible
agents selected for their businesslike competence and owing their
tenure of office to the consent of their constituency. These methods
are entirely consistent with one another; and they owe their {162}
adoption entirely to their better execution of the intent of democracy.
Both presuppose that political authority is empowered by all the
interests of the community to serve them, and that these interests
shall in the end decide whether or not that service is adequately
performed.

4. Fourthly, the modern state lays a constantly greater stress on
questions of internal policy, thus emphasizing its basal function of
conserving and fostering the interests directly committed to its
charge. It is less occupied with war, and more occupied with
education, sanitation, the conservation of national resources, and the
regulation of commerce and industry.

5. Fifthly, the sequel to this is the growing recognition of the folly
and wastefulness of war. War is becoming a last resort, a hard
necessity, rather than an opportunity of national glory. The growth of
the idea of international peace, and the improvement and extension of
the method of arbitration, are evidence of a yielding to the w