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260 added that town democracies always develop a fondness for technicalities and a great zest for tactics in the conduct of public or political conflicts.

These are the faults and imperfections of town-democracies when communities outgrow them. They have been declining here for thirty or forty years, and have been supplanted by incorporated cities or absorbed in a higher organization of the state. Where they still remain, in conjunction with city organizations, they are purely mischievous.

The first step in advance, therefore, consists in the adoption of representative government, not in its fullness as a separate political organization but as a makeshift to avoid the difficulties which come from physical size. This is the representative democracy. The representative of a democracy, however, is only a delegate; a representative is properly a man selected because he represents, and is endowed with independence and responsibility. The delegate of a democracy is an agent to perform a specific duty, for the democracy does not part with its sovereignty to the delegates nor leave them to use its sovereignty for it. It binds them by pledges and it claims to control them by instructions. The delegates are agents of local and other interests who are sent into an arena where interests are lost or won, to fight for particular ones. They do not, therefore, form a great council of the nation, but a body of struggling and scrambling attorneys. The public interest is a vague and indefinable notion which finds little expression amongst them and has little chance of prevailing, except so far as the local and private interests may neutralize each other. A man who went not long ago to a state capital to try to get something done, came back very much