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258 of diverse occupations break up the old simplicity and uniformity; the requirements increase so rapidly that public affairs become far more important; universal acquaintance no longer exists amongst all townsmen; supervision is not close or continuous and responsibility declines. As soon therefore as the town meeting reaches a certain size it becomes an arena for chicanery and faction. Busy citizens cannot attend so as to make the meeting full, and the opportunity for "packing" a meeting is offered; the town is therefore the prey of any energetic faction with a well defined purpose which it is determined to accomplish. Private and special interests find an arena of conflict in the town meeting and in their conflicts with each other the conception of public interest is lost. The notion that the people desire only to have the public good provided for is a delightful political dogma which it would be pleasant to believe but which is contradicted by the observation of town democracies. The people do not positively want what is for the public good; they want, in a positive and active sense, what is for their interest. The vague and benevolent preference for the public good which men feel when their own interests are not involved does not rise high enough to produce self-sacrifice, work, and conflict.

Hence the public interest needs guarantees in constitutions, institutions, popular prejudices, and in the character of public men whose reputation and professional success lie in the defence of the public interest. The town democracy is weak in all these things and is therefore at the mercy of private interests; it is open to the instability which comes from impulse and passion and short-sighted motives. In the best case it has to limit itself by arbitrary rules which, if they prevent