titution became the law of the land. Governmental
activities were carried out and laws were enacted in conformity with
constitutional provisions. In practice the citizens of the freest
republic were face to face with one of the oldest political dilemmas
confronting mankind: the question of leadership and followership.

In almost any social situation, from trivial to grave and critical, some
one woman or man volunteers advice and often initiates action. If no one
approves, the initiative falls flat. If there is a chorus of approval,
the crowd follows the lead of its spokesman. If some approve while
others disapprove or remain silent, a show of hands is in order. If
there are real differences in the group, some taking one side, some
another side with no chance of common action, the group may divide into
several factions, some remaining in the assemblage, others departing,
with their spokesmen leading the way.

In such confrontations there are many determining factors, the
experience and wisdom of the leadership; the urgency of the subject
under discussion; the depth of the separation between opposing factions;
the experience of the citizenry and their willingness to compromise on
divisive issues; the willingness of the factionalists to abide by a
majority decision.

Experienced leadership, which has enjoyed a period of public approval
long enough to build up not only a group of devoted followers, but a
group of place-men and office-holders who owe their positions to the
leader, can assemble a bureaucratic or political machine, adopt measures
and take the steps necessary to keep its chosen leader in a life job,
with the possibility of naming a successor.

Republics have adopted various measures to prevent the establishment of
a self-perpetuating dynasty, by limiting public office-holding to a
stated number of years; by providing that the office holder may not
succeed himself. Political leaders may avoid such provisions by staying
in the background, having their closest associates elected to office,
and when their term is ended, secure the selection of other associates
upon whose personal fidelity they can rely.

All such measures require that the leader keep the favor of a
considerable number of his constituents. To avoid this often difficult
or disagreeable task the leader and his close associates may persuade
their constituency to by-pass both constitution and parliament, enlist
the support of the military, seize po