country. These are but a few of the subjects
concerning which the citizen must think, but they are typical and they
may represent the rest.

In the last analysis, it is these judgments on political matters which
govern a modern democracy, whatever the laws on the statute books may
be, and whatever machinery of government may be established.

Not long since, I visited one of our States where the laws forbid any
one to make or sell, as a beverage, any intoxicating liquors, within the
State. At the leading hotel, in the large city where I stopped, beer and
whiskey signs were displayed outside the entrance; and at an open bar,
in the center of the hotel, four bartenders were dispensing all kinds of
drinks, while at the tables of the hotel restaurant, liquors were openly
bought and drunk. There are many indictments standing against this
hotel, but in two test cases juries have refused to convict the
proprietors. I am told it is the same in all of the principal hotels in
the larger cities of this State. In this same State, the laws forbid the
manufacture or sale of cigarettes, but they are openly displayed and
sold in nearly all cigar stores. In the same State, whites and blacks
live under the same laws, but blacks seldom vote; they do not use the
parks, attend white people's meetings nor ride with the whites in public
conveyances. And yet the city was quiet and orderly and I felt as safe
in person and property as though the laws on the statute books, instead
of the judgments in the public mind, were being obeyed. Since this form
of public opinion is so powerful, it is well that it should be
intelligent.

Granted, then, that the candidate for citizen honors is prepared to pass
judgment on such matters as we have indicated, he must next be prepared
to devise and control means to carry these judgments into effect. Here
he approaches the problems of statescraft. He must have in his mind a
general scheme of government, with a sense of legislative, judicial and
executive functions. He must realize the value of a constitution, as a
point of departure; and have a theory as to safe ways of modifying it.
He must have fairly clear notions of legislation, and of the kinds of
laws that are desirable and effective. He should know how far
representative legislative bodies can be trusted to express the will of
the people; and he should have studied the working of the initiative and
the referendum. It is also desirable that he should know