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 602 of the fact that the form of government which had its origin in the town meeting and was well suited to the needs of a small community based on primary relations is not suitable to the government of the changing and heterogeneous populations of cities of three or four millions.

Much, of course, depends upon the character and size of the population. Where it is of American stock, and the number of voting citizens is not too great for thorough and calm discussion, no better school of politics can be imagined, nor any method of managing affairs more certain to prevent jobbery and waste, to stimulate vigilance and breed contentment. When, however, the town meeting has grown to exceed seven or eight hundred persons, and, still more, when any considerable section are strangers, such as Irish or French Canadians, who have latterly poured into New England, the institution works less perfectly because the multitude is too large for debate, factions are likely to spring up, and the immigrants, untrained in self-government, become the prey of wire pullers or petty demagogues.

For one thing, the problems of city government have become, with the growth and organization of city life, so complicated that it is no longer desirable to leave them to the control of men whose only qualification for handling them consists in the fact that they have succeeded in gaining office through the ordinary machinery of ward politics.

Another circumstance which has made the selection of city officials by popular vote impractical, under the conditions of city life, is the fact that, except in special cases, the voter knows little or nothing about the officials he is voting for; knows little or nothing about the functions of the office to which that official is to be elected; and, besides all the rest, is too busy elsewhere to inform himself about conditions and needs of the city as a whole.

At a recent election in Chicago, for example, voters were called upon to select candidates from a ballot containing 250 names, most of them unknown to the voters. Under these circumstances the citizen who wishes to vote intelligently relies on some more or less interested organization or some more or less interested adviser to tell him how to vote.

To meet this emergency, created primarily by conditions imposed by city life, two types of organization have come into