government, that such a result can
happen, and the distinction is so little recognized that a brief
recapitulation may be permitted.

The fundamental error is in conceiving representation as merely a means
of registering the popular will; many even go so far as to regard it as
an imperfect means of ensuring that each single question will be decided
according to the will of the majority. All such conceptions really
amount to direct government, and where they are given effect to, whether
by the referendum or sectional delegation, society is not organized for
consistent progress. Indeed, if the lessons of history can be trusted,
such a state of society is bound to be wrecked from within by
anti-social influences; political power becomes the object of factious
strife, and the rule of the majority degenerates into the tyranny of the
majority.

We have endeavoured to show that the true conception of representative
government involves a recognition of the principles of organization and
leadership, and that representation is in consequence a means not only
of registering the popular will, but also of organizing and guiding it.
In both cases, therefore, the popular will is the ultimate motive force,
but in the one case the desires of the people clash, while in the other
they are directed into channels conducive to the general welfare. We
have regarded it as an essential condition of representative government
that the popular will be expressed only as to the direction of progress,
that is to say on general policy and not on single questions, and that
complete control of progress be then left to the representative body. In
no other way can the people be saved from their anti-social tendencies,
and induced to express their opinion as to what is best for all. We have
seen how the electoral machinery is adapted to organize this expression
of the popular will into two alternative directions of progress; how
this is effected by the fact of two parties competing for the support of
the people on policies expressing these lines of progress; and how the
parliamentary machinery allows the stronger of these two parties for the
time being complete control of administration and of the direction of
progress. The effect of this organization is that the popular will is
reduced to effective action in one direction at a time--a result which
is not possible with direct government.

Nor is the principle of responsible leadership which is involved