Embed Size (px)
Citation preview
/fhe Avalon Project: The Federalist Papers No. 10 http://avalon.law.ya1e.edu/1 8th_century/fed 10.asi
arch Avaion‘t’—’- Y ik L u School
LILLILN GoLDM.N LAV LIBRARY THE AvLoN PROJECT DouunL7ir ut.Lt 1Iror tn1Thp1niacviii rizcn,nv a! .S’aI (ldeitii
“ ‘
A\alon HomeDocumeil I Medieval 1& Ceniury 1& Century 1i Century l& Century 1911 C’ tury .,O Centuiy 1 CriiuryColl io s 40029 e °° 70 19 1400 14e 3 o S 1599 .v 15 e.c 10 ‘°a
The Federalist Papers: No. 10
/O ã/ •7Previous Document Contents Next Document
The Same Subject ContinuedThe Union as a Safeguard Against Domestic Faction and Insurrection
From the New York Packet. Friday, November 23, 1787.MADISON
To the People of the State of New York:
AMONG the numerous advantages promised by a weliconstructed Union, none deserves to be more accurately developed than its tendency to breakand control the violence of faction. The friend of popular governments never finds himself so much alarmed for their character and fate, as when hecontemplates their propensity to this dangerous vice. He will not fail, therefore, to set a due value on any plan which, without violating the principles to whichhe is attached, provides a proper cure for it. The instability, injustice, and confusion introduced into the public councils, have, in truth, been the mortaldiseases under which popular governments have everywhere perished; as they continue to be the favorite and fruitful topics from which the adversaries toliberty derive their most specious declamations. The valuable improvements made by the American constitutions on the popular models, both ancient andmodern, cannot certainly be too much admired; but it would be an unwarrantable partiality, to contend that they have as effectually obviated the danger onthis side, as was wished and expected. Complaints are everywhere heard from our most considerate and virtuous citizens, equally the friends of public andprivate faith, and of public and personal liberty, that our governments are too unstable, that the public good is disregarded in the conflicts of rival parties,and that measures are too often decided, not according to the rules of justice and the rights of the minor party, but by the superior force of an interested andoverbearing majority. However anxiously we may wish that these complaints had no foundation, the evidence, of known facts will not permit us to deny thatthey are in some degree true. It will be found, indeed, on a candid review of our situation, that some of the distresses under which we labor have beenerroneously charged on the operation of our governments; but it will be found, at the same time, that other causes will not alone account for many of ourheaviest misfortunes; and, particularly, for that prevailing and increasing distrust of public engagements, and alarm for private rights, which are echoed fromone end of the continent to the other. These must be chiefly, if not wholly, effects of the unsteadiness and injustice with which a factious spirit has taintedour public administrations.
By a faction, I understand a number of citizens, whether amounting to a majority or a minority of the whole, who are united and actuated by somecommon impulse of passion, or of interest, adversed to the rights of other citizens, or to the permanent and aggregate interests of the community.
There are two methods of curing the mischiefs of faction: the one, by removing its causes; the other, by controlling its effects.
There are again two methods of removing the causes of faction: the one, by destroying the liberty which is essential to its existence: the other, by givingto every citizen the same opinions, the same passions, and the same interests.
It could never be more truly said than of the first remedy, that it was worse than the disease. Liberty is to faction what air is to fire, an aliment withoutwhich it instantly expires. But it could not be less folly to abolish liberty, which is essential to political life, because it nourishes faction, than it would be towish the annihilation of air, which is essential to animal life, because it imparts to fire its destructive agency.
The second expedient is as impracticable as the first would be unwise. As long as the reason of man continues fallible, and he is at liberty to exercise it,different opinions will be formed. As long as the connection subsists between his reason and his self-love, his opinions and his passions will have areciprocal influence on each other; and the former will be objects to which the latter will attach themselves. The diversity in the faculties of men, from whichthe rights of property originate, is not less an insuperable obstacle to a uniformity of interests. The protection of these faculties is the first object ofgovernment. From the protection of different and unequal faculties of acquiring property, the possession of different degrees and kinds of propertyimmediately results; and from the influence of these on the sentiments and views of the respective proprietors, ensues a division of the society into differentinterests and parties.
The latent causes of faction are thus sown in the nature of man; and we see them everywhere brought into different degrees of activity, according to thedifferent circumstances of civil society. A zeal for different opinions concerning religion, concerning government, and many other points, as well ofSpeculation as of practice; an attachment to different leaders ambitiously contending for pre-emirience and power; or to persons of other descriptions whosefortunes have been interesting to the human passions, have, in turn, divided mankind into parties, inflamed them with mutual animosity, and rendered themmuch more disposed to vex and oppress each other than to co-operate for their common good. So strong is this propensity of mankind to fall into mutualanimosities, that where no substantial occasion presents itself, the most frivolous and fanciful distinctions have been sufficient to kindle their unffiendlypassions and excite their most violent conflicts. But the most common and durable source of factions has been the various and unequal distribution ofproperty. Those who hold and those who are without property have ever formed distinct interests in society. Those who are creditors, and those who aredebtors, fall under a like discrimination. A landed interest, a manufacturing interest, a mercantile interest, a moneyed interest, with many lesser interests,grow up of necessity in civilized nations, and divide them into different classes, actuated by different sentiments and views. The regulation of these variousand interfering interests forms the principal task of modern legislation, and involves the spirit of party and faction in the necessary and ordinary operations ofthe government.
No man is allowed to be a judge in his own cause, because his interest would certainly bias his judgment, and, not improbably, corrupt his integrity. With
of 310/22/2008 2:56 PM
The Avalon Project: The Federalist Papers No. 10 http://avalon.law.ya1e.edu/l 8th century/fed l0.asj
equal, nay with greater reason, a body of men are unfit to be both judges and parties at the same time; yet what are many of the most important acts oflegislation, but so many judicial determinations, not indeed concerning the rights of single persons, but concerning the rights of large bodies of citizens? Andwhat are the different classes of legislators but advocates and parties to the causes which they determine? Is a law proposed concerning private debts? It isa question to which the creditors are parties on one side and the debtors on the other. Justice ought to hold the balance between them. Yet the parties are,and must be, themselves the judges; and the most numerous party, or, in other words, the most powerful faction must be expected to prevail. Shalldomestic manufactures be encouraged, and in what degree, by restrictions on foreign manufactures? are questions which would be differently decided bythe landed and the manufacturing classes, and probably by neither with a sole regard to justice and the public good. The apportionment of taxes on thevarious descriptions of property is an act which seems to require the most exact impartiality; yet there is, perhaps, no legislative act in which greateropportunity arid temptation are given to a predominant party to trample on the rules of justice. Every shilling with which they overburden the inferior number,is a shilling saved to their own pockets.
It is in vain to say that enlightened statesmen will be able to adjust these clashing interests, and render them all subservient to the public good.Enlightened statesmen will not always be at the helm. Nor, in many cases, can such an adjustment be made at all without taking into view indirect andremote considerations, which will rarely prevail over the immediate interest which one party may find in disregarding the rights of another or the good of thewhole.
The inference to which we are brought is, that the CAUSES of faction cannot be removed, and that relief is only to be sought in the means of controllingits EFFECTS.
If a faction consists of less than a majority, relief is supplied by the republican principle, which enables the majority to defeat its sinister views by regularvote. It may clog the administration, it may convulse the society; but it will be unable to execute and mask its violence under the forms of the C cttis ution.When a majority is included in a faction, the form of popular government, on the other hand, enables it to sacrifice to its ruling passion or interest both thepublic good and the rights of other citizens. To secure the public good and private rights against the danger of such a faction, and at the same time topreserve the spirit and the form of popular government, is then the great Object to which our inquiries are directed. Let me add that it is the greatdesideratum by which this form of government can be rescued from the opprobrium under which it has so long labored, and be recommended to the esteemand adoption of mankind.
By what means is this object attainable? Evidently by one of two only. Either the existence of the same passion or interest in a majority at the same timemust be prevented, or the majority, having such coexistent passion or interest, must be rendered, by their number and local situation, unable to concert andcarry into effect schemes of oppression. If the impulse and the opportunity be suffered to coincide, we well know that neither moral nor religious motives canbe relied on as an adequate control. They are not found to be such on the injustice and violence of individuals, and lose their efficacy in proportion to thenumber combined together, that is, in proportion as their efficacy becomes needful.
From this view of the subject it may be concluded that a pure democracy, by which I mean a society consisting of a small number of citizens, whoassemble and administer the government in person, can admit of no cure for the mischiefs of faction. A common passion or interest will, in almost everycase, be felt by a majority of the whole; a communication and concert result from the form of government itself; and there is nothing to check theinducements to sacrifice the weaker party or an obnoxious individual. Hence it is that such democracies have ever been spectacles of turbulence andcontention; have ever been found incompatible with personal security or the rights of property; and have in general been as short in their lives as they havebeen violent in their deaths. Theoretic politicians, who have patronized this species of government, have erroneously supposed that by reducing mankind toa perfect equality in their political rights, they would, at the same time, be perfectly equalized and assimilated in their possessions, their opinions, and theirpassions.
A republic, by which I mean a government in which the scheme of representation takes place, opens a different prospect, and promises the cure forwhich we are seeking. Let us examine the points in which it varies from pure democracy, and we shall comprehend both the nature of the cure and theefficacy which it must derive from the Union.
The two great points of difference between a democracy and a republic are: first, the delegation of the government, in the latter, to a small number ofcitizens elected by the rest; secondly, the greater number of citizens, and greater sphere of country, over which the latter may be extended.
The effect of the first difference is, on the one hand, to refine and enlarge the public views, by passing them through the medium of a chosen body ofcitizens, whose wisdom may best discern the true interest of their country, and whose patriotism and love of justice will be least likely to sacrifice it totemporary or partial considerations. Under such a regulation, it may well happen that the public voice, pronounced by the representatives of the people, willbe more consonant to the public good than if pronounced by the people themselves, convened for the purpose. On the other hand, the effect may beinverted. Men of factious tempers, of local prejudices, or of sinister designs, may, by intrigue, by corruption, or by other means, first obtain the suifrages,and then betray the interests, of the people. The question resulting is, whether small or extensive republics are more favorable to the election of properguardians of the public weal; and it is clearly decided in favor of the latter by two obvious considerations:
In the first place, it is to be remarked that, however small the republic may be, the representatives must be raised to a certain number, in order to guardagainst the cabals of a few; and that, however large it may be, they must be limited to a certain number, in order to guard against the confusion of amultitude. Hence, the number of representatives in the two cases not being in proportion to that of the two constituents, and being proportionally greater inthe small republic, it follows that, if the proportion of fit characters be not less in the large than in the small republic, the former will present a greater option,and consequently a greater probability of a fit choice.
In the next place, as each representative will be chosen by a greater number of citizens in the large than in the small republic, it will be more difficult forunworthy candidates to practice with success the vicious arts by which elections are too often carried; and the suifrages of the people being more free, willbe more likely to centre in men who possess the most attractive merit and the most diffusive and established characters.
It must be confessed that in this, as in most other cases, there is a mean, on both sides of which inconveniences will be found to lie. By enlarging toomuch the number of electors, you render the representatives too little acquainted with all their local circumstances and lesser interests; as by reducing it toomuch, you render him unduly attached to these, and too little fit to comprehend and pursue great and national objects. The federal Constitution forms ahappy combination in this respect; the great and aggregate interests being referred to the national, the local and particular to the State legislatures.
The other point of difference is, the greater number of citizens and extent of territory which may be brought within the compass of republican than ofdemocratic government; and it is this circumstance principally which renders factious combinations less to be dreaded in the former than in the latter. Thesmaller the society, the fewer probably will be the distinct parties and interests composing it; the fewer the distinct parties and interests, the more frequentlywill a majority be found of the same party; and the smaller the number of individuals composing a majority, and the smaller the compass within which theyare placed, the more easily will they concert and execute their plans of oppression. Extend the sphere, and you take in a greater variety of parties andinterests; you make it less probable that a majority of the whole will have a common motive to invade the
The Avalon Project: The Federalist Papers No. W http://avalon.law.yale.edull8thcentury/fedlO.asj
Hence, it clearly appears, that the same advantage which a republic has over a democracy, in controlling the effects of faction, is enjoyed by a largeover a small republic--is enjoyed by the Union over the States composing it Does the advantage consist in the substitution of representatives whoseenlightened views and virtuous sentiments render them superior to local prejudices and schemes of injustice? It will not be denied that the representation ofthe Union will be most likely to possess these requisite endowments. Does it consist in the greater security afforded by a greater variety of parties, againstthe event of any one party being able to outnumber and oppress the rest? In an equal degree does the increased variety of parties comprised within theUnion, increase this security. Does it, in fine, consist in the greater obstacles opposed to the concert and accomplishment of the secret wishes of an unjustand interested majority? Here, again, the extent of the Union gives it the most palpable advantage.
The influence of factious leaders may kindle a flame within their particular States, but will be unable to spread a general conflagration through the otherStates. A religious sect may degenerate into a political faction in a part of the Confederacy; but the variety of sects dispersed over the entire face of it mustsecure the national councils against any danger from that source. A rage for paper money, for an abolition of debts, for an equal division of property, or forany other improper or wicked project, will be less apt to pervade the whole body of the Union than a particular member of it; in the same proportion as sucha malady is more likely to taint a particular county or district, than an entire State.
In the extent and proper structure of the Union, therefore, we behold a republican remedy for the diseases most incident to republican government. Andaccording to the degree of pleasure and pride we feel in being republicans, ought to be our zeal in cherishing the spirit and supporting the character ofFederalists.
PU B LIUS.
Previous Document Contents Next Document
Avalon HomeDocurierrt i. M’d vat l5 Century .th Century 1711 Cent ry 18 Century l9’ Cerrturv th Century 21 CenturyColecions 4000bce 39 400 1399 1400 1499 1500 1599 1500 15911 1700 1i99 1800 1899 1900 1999 2000
© 2008 Lillian Goldman Law Library Avalon Contact Us Yale Law University Yale Law Search Morris Search Orbis127 WaIl Street, New Haven, CT 06511. Statement of Library Library SchoolPurpose
of 310/22/2008 2:56 PM
NU
MB
ER
51
51
MA
DIS
ON
CH
EC
KS
AN
DB
AL
AN
CE
S
To
the
Peo
ple
ofth
eS
tate
ofN
ewY
ork:
To
WH
AT
expe
dien
t,th
en,
shal
lw
efi
nall
yre
sort
,fo
rm
ainta
inin
gin
prac
tice
the
nece
ssar
ypar
titi
on
ofpo
wer
amon
gth
ese
vera
lde
part
men
ts,
asla
iddo
wn
inth
eC
onst
ituti
on?
The
only
answ
erth
atca
nbe
give
nis
,th
atas
all
thes
eex
teri
or
prov
isio
nsar
efo
und
tobe
inad
equat
e,th
ede
fect
must
besu
ppli
ed,
byso
con
triv
ing
the
inte
rior
stru
ctu
reof
the
gover
nm
ent
asth
atits
seve
ral
const
ituen
tpa
rts
may
,by
thei
rm
utu
alre
lati
ons,
beth
em
eans
ofke
epin
gea
choth
erin
thei
rpro
per
plac
es.
Wit
hout
pre
sum
ing
tou
nd
erta
ke
afu
lldev
elopm
ent
ofth
isim
po
rtan
tid
ea,
Iw
ill
haza
rda
few
gene
ral
obse
rvat
ions
,w
hich
may
perh
aps
plac
eit
ina
clea
rer
ligh
t,an
den
able
usto
form
am
ore
corr
ect
jud
gm
ent
ofth
epr
inci
ples
and
stru
ctu
reof
the
gover
nm
ent
pla
nned
byth
eco
nven
tion
.In
ord
erto
lay
adu
efo
un
dat
ion
for
that
sepa
rate
and
dist
inct
exer
cise
ofth
edi
ffer
ent
pow
ers
ofgo
vern
men
t,w
hich
toa
cert
ain
exte
nt
isad
mit
ted
onal
lha
nds
tobe
esse
ntia
lto
the
pres
erva
tion
ofli
bert
y,it
isev
iden
tth
atea
chd
epar
tmen
tsh
ould
have
aw
ill
ofit
sow
n;an
dco
nseq
uent
lysh
ould
beso
const
itute
dth
atth
e
mem
bers
ofea
chsh
ould
have
asli
ttle
agen
cyas
poss
ible
inth
e
appoin
tmen
tof
the
mem
bers
ofth
eot
hers
.W
ere
this
pri
nci
ple
rigo
rous
lyad
here
dto
,it
wou
ldre
quir
eth
atal
lth
eap
poin
tmen
tsfo
rth
esu
prem
eex
ecut
ive,
legi
slat
ive,
and
judic
iary
mag
istr
acie
s
shou
ldbe
draw
nfr
omth
esa
me
fou
nta
inof
auth
ori
ty,
the
peop
le,
thro
ugh
chan
nels
havi
ngno
com
munic
atio
nw
hate
ver
wit
hon
e
anoth
er.
Per
haps
such
apl
anof
const
ruct
ing
the
seve
ral
dep
art
men
tsw
ould
bele
ssdi
ffic
ult
inpr
acti
ceth
anit
may
inco
nte
mpla
tion
appe
ar.
Som
edi
ffic
ulti
es,
how
ever
,an
dso
me
addit
ional
expe
nse
wou
ldat
ten
dth
eex
ecut
ion
ofit
.S
ome
devi
atio
ns,
ther
e
fore
,fr
omth
ep
rinci
ple
mus
tbe
adm
itte
d.
Inth
eco
nst
ituti
on
ofth
eju
dic
iary
dep
artm
ent
inpar
ticu
lar,
itm
ight
bein
exp
edie
nt
toin
sist
rigo
rous
lyon
the
pri
nci
ple
:fi
rst,
beca
use
pec
uli
arquali
fica
tion
sbei
ng
esse
ntia
lin
the
mem
bers
,th
epri
mar
yco
nsi
der
a
tion
ought
tobe
.to
sele
ctth
atm
ode
ofch
oice
whi
chbe
stse
cure
s
thes
equ
alif
icat
ions
;se
cond
ly,
beca
use
the
per
man
ent
ten
ure
by
355
I—
TH
EF
ED
ER
AL
IST
NU
MB
ER
51w
hich
the
app
oin
tmen
tsar
ehel
din
that
dep
artm
ent,
mus
tso
onde
stro
yal
lse
nse
ofde
pend
ence
onth
eau
thori
tyco
nfe
rrin
gth
em.
Itis
equa
lly
evid
ent,
that
the
mem
bers
ofea
chd
epar
tmen
tsh
ould
beas
litt
led
epen
den
tas
poss
ible
onth
ose
ofth
eot
hers
,fo
rth
eem
olu
men
tsan
nex
edto
thei
rof
fice
s.W
ere
the
exec
utiv
em
agis
trat
e,or
the
judg
es,
not
indep
end
ent
ofth
ele
gisl
atur
ein
this
par
ticu
lar,
thei
rin
dep
end
ence
inev
ery
oth
erw
ould
bem
erel
ynom
inal
.B
utth
egr
eat
secu
rity
agai
nst
ag
radual
con
cen
trat
ion
ofth
ese
vera
lpo
wer
sin
the
sam
ed
epar
tmen
t,co
nsis
tsin
givi
ngto
thos
ew
hoad
min
iste
rea
chdep
artm
ent
the
nece
ssar
yco
nst
ituti
onal
mea
nsan
dpe
rson
alm
otiv
esto
resi
sten
croa
chm
ents
ofth
eot
hers
.T
he
prov
isio
nfo
rde
fenc
em
ust
inth
is,
asin
all
oth
erca
ses,
bem
ade
com
men
sura
teto
the
dang
erof
atta
ck.
Am
bit
ion
mus
tbe
mad
eto
cou
nte
ract
ambit
ion.
Th
ein
tere
stof
the
man
mus
tbe
conn
ecte
dw
ith
the
const
ituti
onal
righ
tsof
the
plac
e.It
may
bea
refl
ecti
onon
hu
man
nat
ure
,th
atsu
chde
vice
ssh
ould
ben
eces
sary
toco
ntro
lth
eab
uses
ofgo
vern
men
t.B
utw
hat
isgover
nm
ent
itse
lf,
but
the
grea
test
ofal
lre
flec
tion
son
hum
anna
ture
?If
men
wer
ean
gels
,no
gover
nm
ent
wou
ldbe
nece
ssar
y.If
ange
lsw
ere
togo
vern
men
,nei
ther
exte
rnal
nor
inte
rnal
cont
rols
ong
ov
ern
men
tw
ould
bene
cess
ary.
Infr
amin
ga
gover
nm
ent
whi
chis
tobe
adm
inis
tere
dby
men
over
men
,th
egr
eat
diff
icul
tyli
es
/in
this
:yo
um
ust
firs
ten
able
the
gover
nm
ent
toco
ntr
ol
the
“-‘
\/go
vern
ed;
and
inth
en
ext
plac
eob
lige
itto
contr
ol
itse
lf,
Ade
pend
ence
onth
epe
ople
is,
nodo
ubt,
the
pri
mar
yco
ntr
ol
onth
ego
vern
men
t;but
expe
rien
ceha
sta
ught
man
kin
dth
ene
cess
ity
ofau
xil
iary
prec
auti
ons.
This
poli
cyof
supp
lyin
g,by
oppo
site
and
riva
lin
tere
sts,
the
defe
ctof
bet
ter
mot
ives
,m
ight
betr
aced
thro
ug
hth
ew
hole
sys
tem
ofhum
anaf
fair
s,pr
ivat
eas
wel
las
publ
ic.
We
see
itpar
ticu
larl
ydi
spla
yed
inal
lth
esu
bo
rdin
ate
dis
trib
uti
on
sof
pow
er,
whe
reth
eco
nst
ant
aim
isto
divi
dean
dar
rang
eth
ese
vera
lof
fice
sin
such
am
ann
eras
that
each
may
hea
chec
kon
the
oth
er—
that
the
priv
ate
inte
rest
ofev
ery
indiv
idual
may
bea
senti
nel
over
the
pu
bli
cri
ghts
.T
hes
ein
vent
ions
ofpru
den
ceca
nn
ot
bele
ssre
qu
isit
ein
the
dis
trib
uti
on
ofth
esu
prem
epo
wer
sof
the
Sta
te.
But
itis
not
poss
ible
togi
veto
each
dep
artm
ent
aneq
ual
pow
erof
self
-def
ence
.In
rep
ub
lica
ngo
vern
men
t,th
ele
gisl
ativ
eau
thori
tyne
cess
aril
ypre
dom
inat
es.
The
rem
edy
for
this
in-
conv
enie
ncy
isto
divi
deth
ele
gisl
atur
ein
todif
fere
nt
bran
ches
;an
dto
render
them
,by
dif
fere
nt
mod
esof
elec
tion
and
dif
fere
nt
pri
nci
ple
sof
acti
on,
asli
ttle
connec
ted
wit
hea
choth
eras
the
nat
ure
ofth
eir
com
mon
func
tion
san
dth
eir
com
mon
depe
nden
ceon
the
soci
ety
wil
lad
mit
.It
may
even
bene
cess
ary
toguar
dag
ains
tda
nger
ous
encr
oach
men
tsby
stil
lfu
rther
prec
auti
ons.
As
the
wei
ght
ofth
ele
gisl
ativ
eau
thori
tyre
quir
esth
atit
should
beth
usdi
vide
d,th
ew
eakn
ess
ofth
eex
ecut
ive
may
requir
e,on
the
oth
erha
nd,
that
itsh
ould
befo
rtif
ied.
An
abso
lute
nega
tive
onth
ele
gisl
atur
eap
pear
s,at
firs
tvi
ew,
tobe
the
nat
ura
lde
fenc
ew
ith
whi
chth
eex
ecut
ive
mag
istr
ate
should
bear
med
.B
ut
per
hap
sit
wou
ldbe
nei
ther
alto
get
her
sale
nor
alon
esu
ffic
ient
.O
nord
inar
yoc
casi
ons
itm
ight
not
beex
erte
dw
ith
the
requis
ite
firm
ness
,an
don
extr
aord
inar
yoc
casi
ons
itm
ight
bepe
rfid
ious
lyab
used
.M
aynot
this
defe
ctof
anab
solu
tene
gati
vebe
suppli
edby
som
equ
alif
ied
connec
tion
betw
een
this
wea
ker
dep
artm
ent
and
the
wea
ker
bra
nch
ofth
est
ronger
dep
artm
ent,
byw
hich
the
latt
erm
aybe
led
tosu
pp
ort
the
con
stit
uti
on
alri
ghts
ofth
efo
rmer
,w
ith
ou
tbei
ng
too
muc
hde
tach
edfr
omth
eri
ghts
ofits
own
dep
artm
ent?
Ifth
epri
nci
ple
son
whi
chth
ese
obse
rvat
ions
are
founded
beju
st,
asI
pers
uade
mys
elf
they
are,
and
they
beap
pli
edas
acr
iter
ion
toth
ese
vera
lS
tate
const
ituti
ons,
and
toth
efe
dera
lC
onst
ituti
on,
itw
ill
befo
und
that
ifth
ela
tter
does
not
perf
ectl
yco
rres
pond
wit
hth
em,
the
form
erar
ein
fini
tely
less
able
tobe
arsu
cha
test
.T
her
ear
e,m
oreo
ver,
two
cons
ider
atio
nsp
arti
cula
rly
ap
plic
able
toth
efe
dera
lsy
stem
ofA
ner
ica,
whi
chpl
ace
that
syst
emin
ave
ryin
tere
stin
gpoin
tof
view
.F
irst
.In
asi
ngle
republi
c,al
lth
epo
wer
surr
end
ered
byth
epe
ople
issu
bm
itte
dto
the
adm
inis
trat
ion
ofa
sing
lego
vern
men
t;an
dth
eusu
rpat
ions
are
gu
ard
edag
ains
tby
adi
visi
onof
the
gover
nm
ent
into
dis
tinct
and
sepa
rate
dep
artm
ents
.In
the
com
po
un
dre
pu
bli
cof
Am
eric
a,th
epo
wer
surr
end
ered
byth
epe
ople
isfi
rst
divi
ded
betw
een
two
dis
tinct
gove
rnm
ents
,an
dth
enth
eport
ion
allo
tted
toea
chsu
bdiv
ided
amon
gdis
tinct
and
sepa
rate
depa
rtm
ents
.H
ence
adouble
secu
rity
aris
esto
the
righ
tsof
the
peop
le.
The
diff
eren
tgo
vern
men
tsw
ill
contr
ol
each
othe
r,at
the
sam
eti
me
that
each
wil
lbe
contr
oll
edby
itse
lf.
Sec
ond.
Itis
ofgr
eat
import
ance
ina
republi
cno
ton
lyto
guar
dth
eso
ciet
yag
ains
tth
eop
pres
sion
ofit
sru
lers
,but
toguar
d
356
357
TH
EF
ED
ER
AL
IST
NU
MB
ER
52
one
par
tof
the
soci
ety
agai
nst
the
inju
stic
eof
the
oth
erpa
rt.
Dif
fere
ntin
tere
sts
nece
ssar
ily
exis
tin
dif
fere
nt
clas
ses
ofci
tize
ns.
Ifa
maj
ori
tybe
unit
edby
aco
mm
onin
tere
st,
the
righ
tsof
the
min
ori
tyw
ill
bein
secu
re.
Ther
ear
ebut
two
met
hods
ofp
rov
idin
gag
ains
tth
isev
il:
the
one
bycr
eati
ng
aw
ill
inth
eco
mm
unit
yin
dep
end
ent
ofth
em
ajori
ty—
that
is,
ofth
eso
ciet
yit
self
;th
eot
her,
byco
mp
reh
end
ing
inth
eso
ciet
yso
man
yse
para
tedes
crip
tion
sof
citi
zens
asw
ill
render
anunju
stco
mb
inat
ion
ofa
ma
jori
tyof
the
who
leve
ryim
pro
bab
le,
ifnot
impr
acti
cabl
e.T
he
firs
tm
ethod
prev
ails
inal
lgo
vern
men
tspo
sses
sing
anh
ered
itar
yor
self
-app
oint
edau
tho
rity
.T
his
,at
best
,is
but
apre
cari
ous
secu
rity
;be
caus
ea
pow
erin
dep
enden
tof
the
soci
ety
may
asw
ell
espo
use
the
unju
stvi
ews
ofth
em
ajor
,as
the
rig
htf
ul
inte
rest
sof
the
min
or
part
y,an
dm
aypo
ssib
lybe
turn
edag
ains
tboth
part
ies.
Th
ese
cond
met
ho
dw
ill
beex
empl
ifie
din
the
fede
ral
rep
ub
lic
ofth
eU
nit
edS
tate
s.W
hil
stal
lau
thori
tyin
itw
ill
bede
rive
dfr
oman
ddep
enden
ton
the
soci
ety,
the
soci
ety
itse
lfw
ill
beb
roken
into
som
any
part
s,in
tere
sts
and
clas
ses
ofci
tize
ns,
that
the
righ
tsof
indiv
idual
s,or
ofth
em
inori
ty,
wil
lbe
inli
ttle
dang
erfr
omin
tere
sted
com
bin
atio
ns
ofth
em
ajor
ity.
Ina
free
gover
nm
ent
the
secu
rity
for
civi
lri
ghts
must
beth
esa
me
asth
atfo
rre
ligi
ous
righ
ts.
Itco
nsis
tsin
the
one
case
irsth
em
ult
ipli
city
ofin
tere
sts,
and
inth
eoth
erin
the
mult
ipli
city
ofse
cts.
Th
ede
gree
ofse
curi
tyin
both
case
sw
ill
dep
end
onth
enum
ber
ofin
tere
sts
and
sect
s;an
dth
ism
aybe
pre
sum
edto
dep
end
onth
eex
tent
ofco
untr
yan
dnum
ber
ofpe
ople
com
pre
hen
ded
under
the
sam
ego
vern
men
t.T
his
view
ofth
esu
bjec
tm
ust
par
ticu
larl
yre
com
men
da
pro
per
fede
ral
syst
emto
all
the
sinc
ere
and
con
side
rate
frie
nds
ofre
publi
can
gove
rnm
ent,
sinc
eit
show
sth
atin
exac
tpro
port
ion
asth
ete
rrit
ory
ofth
eU
nio
nm
aybe
form
edin
tom
ore
circ
umsc
ribe
dC
onfe
dera
cies
,or
Sta
tes,
oppr
essi
veco
mb
inat
ion
sof
am
ajori
tyw
ill
befa
cili
tate
d;
the
best
secu
rity
,under
the
republi
can
form
s,fo
rth
eri
ghts
ofev
ery
clas
sof
citi
zens
,1w
ill
bedi
min
ishe
d;,
and
cons
eque
ntly
the.
stab
ilit
yan
din
de
pend
ence
ofso
me
mem
ber
ofth
egover
nm
ent,
the
only
oth
erse
curi
ty,
mus
tbe
pro
po
rtio
nal
lyin
crea
sed
.Ju
stic
eis
the
end
ofgo
vern
men
t.It
isth
een
dof
civi
lso
ciet
y.It
ever
has
been
and
ever
wil
lbe
pu
rsu
edu
nti
lit
beobta
ined
,or
un
til
liber
tybe
lost
inth
ep
urs
uit
.In
aso
ciet
yunder
the
form
sof
whi
chth
est
ron
ger
fact
ion
can
read
ily
unit
ean
dop
pres
sth
ew
eake
r,an
arch
ym
ayas
tru
lybe
said
tore
ign
asin
ast
ate
ofn
atu
re,
whe
re
the
wea
ker
indiv
idual
isnot
secu
red
agai
nst
the
viol
ence
ofth
est
rong
er;
and
as,
inth
ela
tter
stat
e,ev
enth
est
ronger
indiv
idual
sar
epro
mpte
d,
byth
eunce
rtai
nty
ofth
eir
condit
ion,
tosu
bm
itto
agover
nm
ent
whi
chm
aypro
tect
the
wea
kas
wel
las
them
selv
es;
so,
inth
efo
rmer
stat
e,w
ill
the
mor
epo
wer
ful
fact
ions
orpa
rtie
sbe
grad
uall
yin
duce
d,by
ali
kem
otiv
e,to
wis
hfo
ra
gover
nm
ent
whi
chw
ill
pro
tect
all
part
ies,
the
wea
ker
asw
ell
asth
em
ore
pow
erfu
l.It
can
beli
ttle
do
ub
ted
that
ifth
eS
tate
ofR
hode
Isla
ndw
asse
par
ated
from
the
Con
fede
racy
and
left
toit
self
,th
ein
secu
rity
ofri
ghts
un
der
the
po
pu
lar
form
ofgover
nm
ent
wit
hin
such
nar
row
lim
its
would
bedi
spla
yed
bysu
chre
iter
ated
oppr
essi
ons
offa
ctio
usm
ajori
ties
that
som
epo
wer
alto
get
her
ind
epen
den
tof
the
peop
lew
ould
soon
beca
lled
for
byth
evo
ice
ofth
eve
ryfa
ctio
nsw
hose
mis
rule
had
prov
edth
ene
cess
ity
ofit
.In
the
exte
nded
rep
ub
lic
ofth
eU
nit
edS
tate
s,an
dam
ong
the
grea
tva
riet
yof
inte
rest
s,pa
rtie
s,an
dse
cts
whi
chit
embr
aces
,a
coal
itio
nof
am
ajori
tyof
the
who
leso
ciet
yco
uld
seld
omta
kepl
ace
onan
yoth
erpri
nci
ple
sth
anth
ose
ofju
stic
ean
dth
ege
nera
lgo
od;
whi
lst
ther
ebei
ng
thus
less
dang
erto
am
inor
from
the
wil
lof
am
ajor
part
y,th
ere
must
bele
sspre
text,
also
,to
prov
ide
for
the
secu
rity
ofth
efo
rmer
,by
intr
od
uci
ng
into
the
gover
nm
ent
aw
ill
not
dep
enden
ton
the
latt
er,
or,
inoth
erw
ords
,a
wil
lin
dep
end
ent
ofth
eso
ciet
yit
self
.It
isno
less
cert
ain
than
itis
import
ant,
no
twit
hst
and
ing
the
contr
ary
opin
ions
whi
chha
vebe
enen
tert
ained
,th
atth
ela
rger
the
soci
ety,
pro
vid
edit
lie
wit
hin
apr
acti
cal
sphe
re,
the
mor
edu
lyca
pabl
eit
wil
lbe
ofse
lf-g
over
nmen
t.A
ndhap
pil
yfo
rth
ere
pu
bli
can
caus
e,th
epr
acti
cabl
esp
here
may
beca
rrie
dto
ave
rygr
eat
exte
nt,
bya
•ju
dic
ious
mod
ific
atio
nan
dm
ixtu
reof
the
feder
alpri
nci
ple
.
VI
Ptr
nL
ius
52
MA
DIS
ON
TH
EH
OU
SE
OF
RE
PR
ES
EN
TA
TIV
ES
To
the
Peo
ple
ofth
eS
tate
ofN
ewY
ork:
FR
OM
the
mor
ege
nera
lin
quir
ies
purs
ued
inth
efo
ur
last
pape
rs,
Ipass
on
toa
mo
rep
art
icu
lar
exam
inati
on
of
the
sev
era
lpart
s
35
8359
TH
EF
ED
ER
AL
IST
NU
MB
ER
70
det
erm
ine
wh
eth
erth
atm
agis
trat
ew
ould
inth
eag
greg
ate,
poss
ess
mor
eor
less
pow
erth
anth
eG
over
nor
ofN
ewY
ork.
And
itap
pear
s
yet
mor
eun
equi
voca
lly,
that
ther
eis
nopre
tence
for
the
para
llel
whi
chha
sbe
enat
tem
pte
dbe
twee
nhi
man
dth
eki
ngof
Gre
at
Bri
tain
.B
utto
render
the
cont
rast
inth
isre
spec
tst
ill
mor
est
rik
ing,
itm
aybe
ofus
eto
thro
wth
ep
rinci
pal
circ
umst
ance
sof
dis
sim
ilit
ude
into
acl
oser
grou
p.
The
Pre
sid
ent
ofth
eU
nit
edS
tate
sw
ould
bean
offi
cer
elec
ted
byth
epe
ople
for
fou
rye
ars;
the
king
ofG
reat
Bri
tain
isa
per
pet
ual
and
her
edit
ary
prin
ce.
Th
eon
ew
ould
beam
enab
leto
pers
onal
pu
nis
hm
ent
and
disg
race
;th
epe
rson
ofth
eo
ther
is
sacr
edan
din
viol
able
.T
he
one
would
have
aqu
alif
ied
nega
tive
upon
the
acts
ofth
ele
gisl
ativ
ebo
dy;
the
oth
erha
san
abso
lute
nega
tive
.T
he
one
would
have
ari
ght
toco
mm
and
the
mil
itar
y
and
nava
lfo
rces
ofth
en
atio
n;
the
othe
r,in
add
itio
nto
this
righ
t,
poss
esse
sth
atof
decl
arin
gw
ar,
and
ofra
isin
gan
dre
gula
ting
flee
ts
and
arm
ies
byhi
sow
nau
tho
rity
.T
he
one
wou
ldha
vea
con
curr
ent
pow
erw
ith
ab
ran
chof
the
legi
slat
ure
inth
efo
rmat
ion
oftr
eati
es;
the
oth
eris
the
sole
poss
esso
rof
the
pow
erof
mak
ing
trea
ties
.T
he
one
would
have
ali
keco
ncu
rren
tau
tho
rity
inap
poin
ting
offi
ces:
the
oth
eris
the
sole
auth
or
ofal
lap
poin
tmen
ts.
Th
eon
eca
n
conf
erno
priv
ileg
esw
hate
ver:
the
oth
erca
nm
ake
deni
zens
of
alie
ns,
no
ble
men
ofco
mm
oner
s:ca
ner
ect
corp
ora
tions
wit
hal
l
the
righ
tsin
ciden
tto
corp
orat
ebo
dies
.T
he
one
can
pres
crib
eno
rule
sco
nce
rnin
gth
eco
mm
erce
orcu
rren
cyof
the
nat
ion
;th
e
oth
eris
inse
vera
lre
spec
tsth
ear
bit
erof
com
mer
ce,
and
inth
is
capa
city
can
esta
blis
hm
arke
tsan
dfa
irs,
can
regula
tew
eigh
tsan
d
mea
sure
s,ca
nla
yem
barg
oes
for
ali
mit
edti
me,
can
coin
mon
ey,
can
auth
oriz
eor
pro
hib
itth
eci
rcu
lati
on
offo
reig
nco
in.
The
one
has
nopa
rtic
leof
spir
itual
juri
sdic
tio
n;
the
oth
eris
the
supr
eme
head
and
gove
rnor
ofth
en
atio
nal
chur
ch!
What
answ
er
shal
lw
egi
veto
thos
ew
how
ould
pers
uade
usth
atth
ings
sounli
ke
rese
mbl
eea
chot
her?
Th
esa
me
that
ou
ght
tobe
give
nto
thos
ew
ho
tell
usth
ata
gove
rnm
ent,
the
who
lepo
wer
ofw
hich
wou
ldbe
in
the
hand
sof
the
elec
tive
and
peri
odic
alse
rvan
tsof
the
peop
le,
is
anar
isto
crac
y,a.
monar
chy,
and
ade
spot
ism
.P
UE
LJU
S
To
the
Peo
ple
ofth
eS
tate
ofN
ewY
ork:
TH
ER
EjS
anid
ea,
whi
chis
not
wit
ho
ut
its
advo
cate
s,th
ata
vig
orou
sE
xecu
tive
isin
cons
iste
ntw
ith
the
geni
usof
republi
can
gove
rnm
ent.
The
enli
ghte
ned
wel
l-w
ishe
rsto
this
spec
ies
ofg
ov
ern
men
tm
ust
atle
ast
hope
that
the
supposi
tion
isdes
titu
teof
foundat
ion;
sinc
eth
eyca
nne
ver
adm
itits
truth
,w
ithout
atth
e
sam
eti
me
adm
itti
ng
the
condem
nat
ion
ofth
eir
own
prin
cipl
es.
Ene
rgy
inth
eE
xecu
tive
isa
lead
ing
char
acte
rin
the
defi
niti
on
ofgo
odgo
vern
men
t.It
ises
sent
ial
toth
epro
tect
ion
ofth
eco
mm
unit
yag
ains
tfo
reig
-nat
tack
s:it
isn
ot
less
esse
ntia
lto
the
stea
dy
adm
inis
trat
ion
ofth
ela
ws;
toth
epro
tect
ion
ofpro
per
tyag
ains
t
thos
eir
reg
ula
ran
dhig
h-h
anded
coin
bin
atio
ns
whi
chso
met
imes
inte
rru
pt
the
ord
inar
yco
urse
ofju
stic
e;to
the
secu
rity
ofli
ber
ty
agai
nst
the
ente
rpri
ses
and
assa
ults
ofam
bit
ion,
offa
ctio
n,an
dof
anar
chy.
Eve
rym
anth
ele
ast
conv
ersa
ntin
Rom
anst
ory,
know
s
how
ofte
nth
atre
pu
bli
cw
asob
lige
dto
take
refu
gein
the
abso
lute
pow
erof
asi
ngle
man
,u
nd
erth
efo
rmid
able
titl
eof
Dic
tato
r,as
wel
lag
ains
tth
ein
trig
ues
ofam
bit
ious
indiv
idual
sw
hoas
pire
d
toth
ety
rann
y,an
dth
ese
dit
ins
ofw
hole
clas
ses
ofth
eco
mm
un
ity
who
seco
nduct
thre
aten
edth
eex
iste
nce
ofal
lgo
vern
men
t,
asag
ains
tth
ein
vasi
ons
ofex
tern
alen
emie
sw
hom
enac
edth
e
conq
uest
and
des
truct
ion
ofR
ome.
Ther
eca
nbe
none
ed,
how
ever
,to
mult
iply
argu
men
tsor
exam
ples
onth
ishe
ad.
Afe
eble
Exe
cuti
veim
plie
sa
feeb
leex
ecu
tion
ofth
ego
vern
men
t.A
feeb
leex
ecuti
on
isbut
anoth
erph
rase
for
abad
exec
utio
n;an
da
gover
nm
ent
ill
exec
uted
,w
hate
ver
itm
aybe
inth
eory
,m
ust
be,
inpr
acti
ce,
abad
gove
rnm
ent.
Tak
ing
itfo
rgra
nte
d,
ther
efore
,th
atal
lm
enof
sens
ew
ill
agre
ein
the
nece
ssit
yof
anen
erget
icE
xecu
tive
,it
wil
lon
lyre
mai
nto
inquir
e,w
hat
are
the
ingre
die
nts
whi
chco
nst
itute
this
ener
gy?
How
far
can
they
beco
mbin
edw
ith
thos
eoth
erin
gred
ient
s
whi
chco
nst
itute
safe
tyin
the
rep
ub
lica
nse
nse?
And
how
far
does
this
com
bin
atio
nch
arac
teri
zeth
epl
anw
hich
has
been
rep
ort
ed
byth
eco
nven
tion
?T
he
ingre
die
nts
whi
chco
nst
itu
teen
ergy
inth
eE
xecu
tive
are,
45
i
70
HA
MIL
TO
N
AD
VA
NT
AG
ES
OF
AS
ING
LE
EX
EC
UT
IVE
450
t.
.—
.-,.—
I...........,.....
...
.-.................
—.
TH
EF
ED
ER
AL
IST
NU
MB
ER
70un
ity;
dura
tio
n;
anad
equ
ate
prov
isio
nfo
rits
support
;co
mpet
ent
pow
ers.
Th
ein
gre
die
nts
whi
chco
nst
itu
tesa
fety
inth
ere
publi
can
sens
ear
e,a
due
depe
nden
ceon
the
peop
le;
adu
ere
spon
sibi
lity
.T
ho
sepo
liti
cian
san
dst
ates
men
who
have
been
the
mos
tce
lebra
ted
for
the
soun
dnes
sof
thei
rpri
nci
ple
san
dfo
rth
eju
stic
eof
thei
rvi
ews,
have
decl
ared
infa
vor
ofa
sing
leE
xecu
tive
and
an
um
ero
us
legi
slat
ure.
Th
eyha
ve,
wit
hgr
eat
pro
pri
ety,
cons
ider
eden
ergy
asth
em
ost
nece
ssar
yqual
ific
atio
nof
the
form
er,
and
have
regar
ded
this
asm
ost
appli
cable
topo
wer
ina
sing
leha
nd;
whi
leth
eyha
ve,
wit
heq
ual
pro
pri
ety
,co
nsid
ered
the
latt
eras
best
adap
ted
todel
iber
atio
nan
dw
isdo
m,
and
best
calc
ulat
edto
con
cili
ate
the
conf
iden
ceof
the
peop
lean
dto
secu
reth
eir
priv
ileg
esan
din
tere
sts.
Th
atu
nit
yis
cond
uciv
eto
ener
gyw
ill
not
bedi
sput
ed.
Dec
isi
on,
acti
vity
,se
crec
y,an
dde
spat
chw
ill
gene
rall
ych
arac
teri
zeth
epr
ocee
ding
sof
one
man
ina
muc
hm
ore
emin
ent
degr
eeth
anth
epr
ocee
ding
sof
any
gre
ater
nu
mb
er;
and
inp
rop
ort
ion
asth
enum
ber
isin
crea
sed,
thes
eq
ual
itie
sw
ili
bedi
min
ishe
d.T
his
un
ity
may
bede
stro
yed
intw
ow
ays:
eith
erby
vest
ing
the
pow
erin
two
orm
ore
mag
istr
ates
ofeq
ual
dign
ity
and
au
thor
ity;
orby
vest
ing
itos
tens
ibly
inon
em
an,
subj
ect,
inw
hole
orin
part
,to
the
contr
ol
and
cooper
atio
nof
othe
rs,
inth
eca
paci
tyof
coun
sell
ors
tohi
m.
Of
the
firs
t,th
etw
oC
onsu
lsof
Rom
em
ayse
rve
asan
exam
ple;
ofth
ela
st,
we
shal
lfi
ndex
ampl
esin
the
const
ituti
ons
ofse
vera
lof
the
Sta
tes.
New
Yor
kan
dN
ewJe
rsey
,if
Ire
coll
ect
rig
ht,
are
the
only
Sta
tes
whi
chha
vein
trust
edth
eex
ecut
ive
auth
ori
tyw
holl
yto
sing
lem
en.*
Bot
hth
ese
met
hods
ofde
stro
ying
the
un
ity
ofth
eE
xecu
tive
have
thei
rpa
rtis
ans;
bu
tth
evo
tari
esof
anex
ecut
ive
coun
cil
are
the
mos
tnu
mer
ous.
Th
eyar
eb
oth
liab
le,
ifno
tto
equa
l,to
sim
ilar
obje
ctio
ns,
and
may
inm
ost
ligh
tsbe
exam
ined
inco
nju
nct
ion.
Th
eex
peri
ence
of.o
ther
nati
ons
wil
laf
ford
litt
lein
stru
ctio
non
this
head
.A
sfa
r,ho
wev
er,
asit
teac
hes
any
thin
g,it
teac
hes
usn
ot
tobe
enam
ou
red
ofplu
rali
tyin
the
Exe
cuti
ve.
We
have
seen
that
the
Achans,
onan
exp
erim
ent
oftw
oP
rtors
,w
ere
induce
dto
abol
ish
one.
Th
eR
om
anhi
stor
yre
cord
sm
any
inst
ance
sof
mis
chie
fsto
the
republi
cfr
omth
edi
ssen
sion
sbet
wee
nth
e
*N
ewY
ork
has
noco
unci
lex
cept
for
the
sing
lep
urp
ose
ofap
poin
ting
toof
fice
s;N
ewJe
rsey
has
aco
unci
lw
hom
the
gover
nor
may
cons
ult.
But
Ith
ink,
from
the
term
sof
the
con
stit
uti
on
,th
eir
reso
luti
ons
dono
tbin
dhi
m.
—P
unuus
Con
suls
,an
dbe
twee
nth
em
ilit
ary
Tri
bunes
,w
how
ere
atti
mes
subst
itute
dfo
rth
eC
onsu
ls.
But
itgi
ves
usno
spec
imen
sof
any
pec
uli
arad
vant
ages
deri
ved
toth
est
ate
from
the
circ
umst
ance
ofth
ep
lura
lity
ofth
ose
mag
istr
ates
.T
hat
the
diss
ensi
ons
betw
een
them
wer
enot
mor
efr
equ
ent
orm
ore
fata
l,is
mat
ter
ofas
tonis
hm
ent,
unti
lw
ead
vert
toth
esi
ngul
arposi
tion
inw
hich
the
republi
cw
asal
mos
tco
nti
nual
lypl
aced
,an
dto
the
pru
den
tpo
licy
po
inte
dout
byth
eci
rcum
stan
ces
ofth
est
ate,
and
purs
ued
byth
eC
onsu
ls,
ofm
akin
ga
divi
sion
ofth
egover
nm
ent
betw
een
them
.T
he
patr
icia
nsen
gage
din
ap
erp
etu
alst
rugg
lew
ith
the
pleb
eian
sfo
rth
epre
serv
atio
nof
thei
ran
cien
tau
thori
ties
and
dign
itie
s;th
eC
onsu
ls,
who
wer
ege
nera
lly
chos
eno
ut
ofth
efo
rmei
-bo
dy,
wer
eco
mm
only
un
ited
byth
epe
rson
alin
tere
stth
eyhad
inth
ede
fenc
eof
the
priv
ileg
esof
thei
ror
der.
Inad
dit
ion
toth
ism
otiv
eof
unio
n,
afte
rth
ear
ms
ofth
ere
pu
bli
cha
dco
nsid
erab
lyex
pan
ded
the
boun
dsof
its
empi
re,
itbe
cam
ean
esta
blis
hed
cust
omw
ith
the
Con
suls
todi
vide
the
adm
inis
trat
ion
betw
een
them
selv
esby
lot
—
one
ofth
emre
mai
nin
gat
Rom
eto
gove
rnth
eci
tyan
dits
envi
rons
,th
eoth
erta
king
com
man
din
the
mor
edis
tant
prov
ince
s.T
his
exped
ient
mus
t,no
doubt,
have
had
grea
tin
flue
nce
inpre
ven
ting
thos
eco
llis
ions
and
riva
lshi
psw
hich
mig
ht
othe
rwis
eha
veem
bro
iled
the
peac
eof
the
republi
c.B
ut
qu
itti
ng
the
dim
ligh
tof
hist
oric
alre
sear
ch,
atta
chin
gou
rsel
ves
pure
lyto
the
dict
ates
ofre
ason
and
good
sens
e,w
esh
all
disc
over
muc
hgre
ater
caus
eto
reje
ctth
anto
appr
ove
the
idea
ofp
lura
lity
inth
eE
xecu
tive
,under
any
mod
ific
atio
nw
hate
ver.
Wher
ever
two
orm
ore
pers
ons
are
enga
ged
inan
yco
mm
onen
terp
rise
orp
urs
uit
,th
ere
isal
way
sda
nger
ofdi
ffer
ence
ofop
inio
n.If
itbe
apubli
ctr
ust
orof
fice
,in
whi
chth
eyar
ecl
othe
dw
ith
equal
dign
ity
and
auth
ori
ty,
ther
eis
pec
uli
arda
nger
ofpe
rson
alem
ula
tion
and
even
anim
osit
y.F
rom
eith
er,
and
espe
cial
lyfr
omal
lth
ese
caus
es,
the
mos
tbit
ter
diss
ensi
ons
are
apt
tosp
ring
.W
hen
ever
thes
ehap
pen
,th
eyle
ssen
the
resp
ecta
bili
ty,
wea
ken
the
auth
ori
ty,
and
dist
ract
the
plan
san
doper
atio
ns
ofth
ose
who
mth
eydi
vide
.If
they
should
un
fort
un
atel
yas
sail
the
supr
eme
exec
uti
vem
agis
trac
yof
aco
untr
y,co
nsis
ting
ofa
plu
rali
tyof
pers
ons,
they
mig
ht
impe
deor
frust
rate
the
mos
tim
port
ant
mea
sure
sof
the
gove
rnm
ent,
inth
em
ost
crit
ical
emer
genc
ies
ofth
est
ate.
And
wha
tis
stil
lw
orse
,th
eym
ight
spli
tth
eco
mm
unit
yin
toth
em
ost
viol
ent
and
irre
conci
lable
fact
ions
,ad
her
ing
diff
eren
tly
toth
edi
ffer
ent
indiv
idual
sw
hoco
mpo
sed
the
mag
istr
acy.
452
453
TH
EF
ED
ER
AL
IST
NU
MB
ER
70
Men
ofte
nop
pose
ath
ing,
mer
ely
beca
use
they
have
had
no
agen
cyin
pla
nnin
git
,or
beca
use
itm
ayha
vebe
enpla
nned
by
thos
ew
hom
they
disl
ike.
But
ifth
eyha
vebe
enco
nsul
ted,
and
have
hap
pen
edto
disa
ppro
ve,
opposi
tion
then
beco
mes
,in
thei
r
esti
mat
ion,
anin
dis
pen
sable
duty
ofse
lf-l
ove.
They
seem
toth
ink
them
selv
esbound
inhonor,
and
byal
lth
em
otiv
esof
pers
onal
infa
llib
ilit
y,
tode
feat
the
succ
ess
ofw
hat
has
bee
nre
solv
edupon
contr
ary
toth
eir
sent
imen
ts.
Men
ofupri
ght,
ben
evole
nt
tem
pers
have
too
man
yopport
unit
ies
ofre
mar
kin
g,
wit
hhorr
or,
tow
hat
desp
erat
ele
ngth
sth
isdi
spos
itio
nis
som
etim
esca
rrie
d,
and
how
ofte
nth
egr
eat
inte
rest
sof
soci
ety
are
sacr
ific
edto
the
vani
ty,
to
the
conc
eit,
and
toth
eob
stin
acy
ofin
div
idual
s,w
hoha
vecr
edit
enou
ghto
mak
eth
eir
pass
ions
and
thei
rca
pric
esin
tere
stin
gto
man
kin
d.
Per
hap
sth
eques
tion
now
befo
reth
epubli
cm
ay,
in
itsco
nseq
uenc
es,
affo
rdm
elan
chol
ypr
oofs
ofth
eef
fect
sof
this
desp
icab
lefr
ailt
y,or
rath
erde
test
able
vice
,in
the
hum
anch
ar
acte
r. Upon
the
pri
nci
ple
sof
afr
eegover
nm
ent,
inco
nven
ienc
es
from
the
sour
ceju
stm
enti
oned
must
nece
ssar
ily
besu
bm
itte
dto
inth
efo
rmat
ion
ofth
ele
gisl
atur
e;but
itis
unne
cess
ary,
and
ther
efore
unw
ise,
toin
troduce
them
into
the
const
ituti
on
ofth
e
Exe
cuti
ve.
Itis
here
too
that
they
may
bem
ost
pern
icio
us.
Inth
e
legi
slat
ure,
pro
mpti
tude
ofde
cisi
onis
oft
ener
anev
ilth
ana
bene
fit.
The
diff
eren
ces
ofopin
ion,
and
the
jarr
ings
ofpa
rtie
sin
that
dep
artm
ent
ofth
egover
nm
ent,
though
they
may
som
etim
es
obst
ruct
salu
tary
plan
s,ye
tof
ten
pro
mote
del
iber
atio
nan
dcir
cum
spec
tion
,an
dse
rve
toch
eck
exce
sses
inth
em
ajori
ty.
When
a
reso
luti
on
too
ison
ceta
ken,
the
opposi
tion
must
beat
anen
d.
That
reso
luti
on
isa
law
,an
dre
sist
ance
toit
punis
hab
le.
But
no
favo
rabl
eci
rcum
stan
ces
pal
liat
eor
aton
efo
rth
edi
sadv
anta
ges
ofdi
ssen
sion
inth
eex
ecut
ive
dep
artm
ent.
Her
e,th
eyar
epure
and
unm
ixed
.T
her
eis
nopoin
tat
whi
chth
eyce
ase
toop
erat
e.T
hey
serv
eto
emba
rras
san
dw
eake
nth
eex
ecuti
on
ofth
epla
nor
mea
s
ure
tow
hich
they
rela
te,
from
the
firs
tst
epto
the
fina
lco
nclu
sion
ofit
.T
hey
cons
tant
lyco
unte
ract
thos
equal
itie
sin
the
Exe
cuti
ve
whi
char
eth
em
ost
nece
ssar
yin
gre
die
nts
inits
com
posi
tion
,—
vigo
ran
dex
ped
itio
n,
and
this
wit
hout
any
counte
rbal
anci
ng
good
.
Inth
eco
nduct
ofw
ar,
inw
hich
the
ener
gyof
the
Exe
cuti
veis
the
bulw
ark
ofth
enat
ional
secu
rity
,ev
ery
thin
gw
ould
beto
be
appre
hen
ded
from
its
plu
rali
ty.
Itm
ust
beco
nfes
sed
that
thes
eob
serv
atio
nsap
ply
wit
hpri
n.
cipa
lw
eigh
tto
the
firs
tca
sesu
ppos
ed—
that
is,
toa
plu
rali
tyof
mag
istr
ates
ofeq
ual
dign
ity
and
auth
ori
ty,
asc
hem
e,th
ead
voca
tes
for
whi
char
enot
like
lyto
form
anum
erous
sect
;but
they
appl
y,th
ough
not
wit
heq
ual,
yet
wit
hco
nsi
der
able
wei
ght
toth
epro
ject
ofa
coun
cil,
who
seco
ncu
rren
ceis
mad
eco
nst
ituti
onal
lyne
cess
ary
toth
eop
erat
ions
ofth
eos
tens
ible
Exe
cuti
ve.
An
artf
ul
caba
lin
that
coun
cil
wou
ldbe
able
todi
stra
ctan
dto
ener
vate
the
who
lesy
stem
ofad
min
istr
atio
n.
Ifno
such
caba
lsh
ould
exis
t,th
em
ere
dive
rsit
yof
view
san
dop
inio
nsw
ould
alon
ebe
suff
icie
ntto
tinct
ure
the
exer
cise
ofth
eex
ecut
ive
auth
ori
tyw
ith
asp
irit
ofhab
itual
feeb
lene
ssan
ddi
lato
rine
ss.
But
one
ofth
ew
eigh
ties
tob
ject
ions
toa
plu
rali
tyin
the
Exe
cuti
ve,
and
whi
chli
esas
muc
hag
ains
tth
ela
stas
the
firs
tpl
an,
is,
that
itte
nds
toco
ncea
lfa
ults
and
dest
roy
resp
onsi
bili
ty.
Res
pons
ibil
ity
isof
two
kind
s—
toce
nsur
ean
dto
punis
hm
ent.
The
firs
tis
the
mor
eim
port
ant
ofth
etw
o,es
peci
ally
inan
elec
tive
offi
ce.
Man
,in
publi
ctr
ust,
wil
lm
uch
oft
ener
act
insu
cha
man
ner
asto
render
him
unw
ort
hy
ofbei
ng
any
long
ertr
ust
ed,
than
insu
cha
man
ner
asto
mak
ehim
obno
xiou
sto
lega
lpunis
hm
ent.
But
the
mult
ipli
cati
on
ofth
eE
xecu
tive
adds
toth
edi
ffic
ulty
ofde
tect
ion
inei
ther
case
.It
oft
enbe
com
esim
poss
ible
,am
idst
mutu
alac
cusa
tion
s,to
det
erm
ine
onw
hom
the
blam
eor
the
punis
hm
ent
ofa
pern
icio
usm
easu
re,
or
seri
esof
per
nic
ious
mea
sur
es,
ought
real
lyto
fall
.It
issh
ifte
dfr
omon
eto
anoth
erw
ith
som
uch
dext
erit
y,an
dunder
such
pla
usi
ble
appe
aran
ces,
that
the
publi
copin
ion
isle
ftin
susp
ense
about
the
real
auth
or.
The
cir
cum
stan
ces
whi
chm
ayha
vele
dto
any
nat
ional
mis
carr
iage
orm
isfo
rtune
are
som
etim
esso
com
pli
cate
dth
at,
whe
reth
ere
are
anum
ber
ofac
tors
who
may
have
had
dif
fere
nt
degr
ees
and
kind
sof
agen
cy,
though
we
may
clea
rly
see
upon
the
who
leth
atth
ere
has
been
mis
man
agem
ent,
yet
itm
aybe
impra
ctic
able
topr
o-fl
ounc
eto
who
seac
coun
tth
eev
ilw
hich
may
have
been
incu
rred
istr
uly
char
geab
le.
“Iw
asover
rule
dby
my
coun
cil.
The
counci
lw
ere
sodiv
ided
inth
eir
opin
ions
that
itw
asim
poss
ible
toobta
inan
ybet
ter
reso
luti
onon
the
poin
t.”
Thes
ean
dsi
mil
arpre
texts
are
cons
tant
lyat
hand
,w
het
her
true
orfa
lse.
And
who
isth
ere
that
wil
lei
ther
take
the
trouble
orin
cur
the
odiu
mof
ast
rict
scru
tiny
into
the
secr
etsp
ring
sof
the
tran
sact
ion?
Sho
uld
ther
ebe
found
aci
tize
nze
alou
sen
ough
tounder
take
the
unpro
mis
ing
task
,if
ther
ehap
pen
tobe
coll
usio
nbe
twee
nth
epa
rtie
sco
ncer
ned,
how
easy
itis
tocl
othe
454
455
TH
EF
ED
ER
AL
IST
NU
MB
ER
70
the
circ
umst
ance
sw
ith
som
uch
ambi
guit
y,as
tore
nder
itu
n
cert
ain
wha
tw
asth
epr
ecis
eco
nd
uct
ofan
yof
thos
epa
rtie
s?
Inth
esi
ngle
inst
ance
inw
hich
the
gove
rnor
ofth
isS
tate
is
coup
led
wit
ha
coun
cil
—th
atis
,in
the
appoin
tmen
tto
offi
ces,
we
have
seen
the
mis
chie
fsof
itin
the
view
now
under
consi
der
a
tion
.S
cand
alou
sap
po
intm
ents
toim
po
rtan
tof
fice
sha
vebe
en
mad
e.S
ome
case
s,in
deed
,ha
vebe
enso
flag
rant
that
AL
LP
AR
TIE
S
have
agre
edin
the
imp
rop
riet
yof
the
thin
g.W
hen
inq
uir
yha
s
been
mad
e,th
ebl
ame
has
been
laid
byth
ego
vern
oron
the
mem
bers
ofth
eco
unci
l,w
ho,
onth
eir
part
,ha
vech
arge
dit
upon
his
no
min
atio
n;
whi
leth
epe
ople
rem
ain
alto
get
her
ata
loss
to
det
erm
ine,
byw
hose
infl
uenc
eth
eir
inte
rest
sha
vebe
enco
mm
itte
d
toha
nds
sou
nq
ual
ifie
dan
dso
man
ifes
tly
impro
per
.In
tend
erne
ss
toin
div
idual
s,I
forb
ear
tode
scen
dto
par
ticu
lars
.It
isev
iden
tfr
omth
ese
cons
ider
atio
ns,
that
the
plu
rali
tyof
the
Exe
cuti
vete
nds
tode
priv
eth
epe
ople
ofth
etw
ogr
eate
st
secu
riti
esth
eyca
nha
vefo
rth
efa
ithfu
lex
erci
seof
any
dele
gate
d
pow
er,
firs
t,th
ere
stra
ints
ofp
ub
lic
opin
ion,
whi
chlo
seth
eir
effi
cacy
; as
wel
lon
acco
unt
ofth
edi
visi
onof
the
cens
ure
atte
ndan
t
onbad
mea
sure
sam
ong
an
um
ber
,as
onac
coun
tof
the
un
cer
tain
tyon
who
mit
ou
gh
tto
fall
;an
d,se
cond
ly,
the
op
po
rtu
nit
y
ofdi
scov
erin
gw
ith
faci
lity
and
clea
rnes
sth
em
isco
nduc
tof
the
pers
ons
they
trus
t,in
ord
erei
ther
toth
eir
rem
oval
from
offi
ce,
orto
thei
rac
tual
punis
hm
ent
inca
ses
whi
chad
mit
ofit
.In
Eng
land
,th
ek
ing
isa
per
pet
ual
mag
istr
ate;
and
itis
am
axim
whi
chha
so
bta
ined
for
the
sake
ofth
epubli
cpe
ace,
that
heis
un
acco
un
tab
lefo
rhi
sad
min
istr
atio
n,
and
his
pers
onsa
cred
.N
oth
ing
,th
eref
ore,
can
bew
iser
inth
atki
ngdo
m,
than
toan
nex
toth
eki
nga
con
stit
uti
on
alco
unci
l,w
hom
aybe
resp
onsi
ble
toth
en
atio
nfo
rth
ead
vice
they
give
.W
ithout
this
,th
ere
wou
ldbe
nore
spon
sibil
ity
wha
teve
rin
the
exec
utiv
edep
artm
ent
—an
idea
inad
mis
sibl
ein
afr
eego
vern
men
t.B
utev
enth
ere
the
king
is
no
tb
ou
nd
byth
ere
solu
tion
sof
his
coun
cil,
though
they
are
answ
erab
lefo
rth
ead
vice
they
give
.H
eis
the
abso
lute
mas
ter
ofhi
sow
nco
nd
uct
inth
eex
erci
seof
his
offi
ce,
and
may
obse
rve
ordi
sreg
ard
the
coun
sel
give
nto
him
athi
sso
ledi
scre
tion
.B
ut
ina
rep
ub
lic,
whe
reev
ery
mag
istr
ate
ought
tobe
per
sona
lly
resp
onsi
ble
for
his
beha
vior
inof
fice
,th
ere
ason
whi
chin
the
Bri
tish
Const
ituti
on
dict
ates
the
pro
pri
ety
ofa
coun
cil,
not
only
ceas
esto
appl
y,b
ut
turn
sag
ains
tth
ein
stit
uti
on
.In
the
mon
arch
yof
Gre
atB
rita
in,
itfu
rnis
hes
asu
bst
itu
tefo
rth
epr
o-
456
hib
ited
resp
onsi
bili
tyof
the
chie
fm
agis
trat
e,w
hich
serv
esin
som
ede
gree
asa
host
age
toth
enat
ional
just
ice
for
his
good
beha
vior
.In
the
Am
eric
anre
publi
c,it
wou
ldse
rve
tode
stro
y,or
wou
ldgr
eatl
ydi
min
ish,
the
inte
nd
edan
dne
cess
ary
resp
onsi
bili
tyof
the
Chi
efM
agis
trat
ehi
mse
lf.
The
idea
ofa
coun
cil
toth
eE
xecu
tive
,w
hich
has
soge
nera
lly
ob
tain
edin
the
Sta
teco
nst
ituti
ons,
has
been
deri
ved
from
that
max
imof
republi
can
jeal
ousy
whi
chco
nsid
ers
pow
eras
safe
rin
the
hand
sof
anum
ber
ofm
enth
anof
asi
ngle
man
.If
the
max
imsh
ould
bead
mit
ted
tobe
appli
cable
toth
eca
se,
Ish
ould
cont
end
that
the
adva
ntag
eon
that
side
wou
ldnot
counte
rbal
ance
the
num
erous
disa
dvan
tage
son
the
oppo
site
side
.B
utI
dono
tth
ink
the
rule
atal
lap
plic
able
toth
eex
ecut
ive
pow
er.
Icl
earl
yco
ncur
inopin
ion,
inth
ispar
ticu
lar,
wit
ha
wri
ter
who
mth
ece
lebr
ated
Jun
ius
pron
ounc
esto
be“d
eep,
soli
d,an
din
geni
ous,
”th
at“t
heex
ecut
ive
pow
eris
mor
eea
sily
conf
ined
whe
nit
SO
NE
”;*
that
itis
far
mor
esa
feth
ere
should
bea
sing
leob
ject
for
the
jeal
ousy
and
wat
chfu
lnes
sof
the
peop
le;
and,
ina
wor
d,th
atal
lm
ult
ipli
cati
onof
the
Exe
cuti
veis
rath
erda
nger
ous
than
frie
ndly
toli
bert
y.A
litt
leco
nsi
der
atio
nw
ill
sati
sfy
us,
that
the
spec
ies
ofse
curi
tyso
ught
for
inth
em
ult
ipli
cati
on
ofth
eE
xecu
tive
,is
un
atta
inab
le.
Num
ber
sm
ust
beso
grea
tas
tore
nd
erco
mbin
atio
ndi
ffic
ult,
orth
eyar
era
ther
aso
urce
ofda
nger
than
ofse
curi
ty.
The
un
ited
cred
itan
din
flue
nce
ofse
vera
lin
div
idual
sm
ust
bem
ore
form
idab
leto
libe
rty,
than
the
cred
itan
din
flue
nce
ofei
ther
ofth
emse
para
tely
.W
hen
pow
er,
ther
efor
e,is
plac
edin
the
hand
sof
sosm
all
anum
ber
ofm
en,
asto
adm
itof
thei
rin
tere
sts
and
view
sbei
ng
easi
lyco
mbin
edin
aco
mm
onen
terp
rise
,by
anar
tfu
lle
ader
,it
beco
mes
mor
eli
able
toab
use,
and
mor
edan
ger
ous
whe
nab
used
,th
anif
itbe
lodg
edin
the
hand
sof
one
man
;w
ho,
from
the
very
circ
um
stan
ceof
his
bei
ng
alone,
wil
lbe
more
nar
row
lyw
atch
edan
dm
ore
read
ily
susp
ecte
d,
and
who
can
no
tunit
eso
gre
ata
mas
sof
infl
uen
ceas
when
heis
asso
ciat
edw
ith
othe
rs.
The
Dec
emvjr
sof
Rom
e,w
hose
nam
eden
ote
sth
eir
nu
mb
er,t
wer
em
ore
tobe
dre
aded
inth
eir
usu
rpat
ion
than
any
ON
Eof
them
would
have
bee
n.
No
per
son
would
thin
kof
pro
posi
ng
anE
xec
uti
ve
mu
chm
ore
num
erous
than
that
body
;fr
om
six
toa
doze
nha
vebee
nsu
gges
ted
for
the
nu
mb
erof
the
counci
l.T
he
extr
eme
ofth
ese
num
ber
s,is
not
too
gre
atfo
ran
easy
com
bin
atio
n;
and
fro
msu
cha
com
bin
atio
nA
mer
ica
would
have
*D
eL
olm
e,—
PU
BL
IUS
tT
en.
—P
ucjs
457
TH
EF
ED
ER
AL
IST
NU
MB
ER
71m
ore
tofe
ar,
than
from
the
ambit
ion
ofan
ysi
ngle
indiv
idual
.A
coun
cil
toa
mag
istr
ate,
who
ishi
mse
lfre
spon
sibl
efo
rw
hat
hedo
es,
are
gene
rall
ynoth
ing
bet
ter
than
acl
ogu
po
nhi
sgo
odin
ten
tio
ns,
are
ofte
nth
ein
stru
men
tsan
dac
com
plic
esof
his
bad,
and
are
alm
ost
alw
ays
acl
oak
tohi
sfa
ults
.I
forb
ear
todw
ell
upon
the
subj
ect
ofex
pens
e;th
ough
itbe
evid
ent
that
ifth
eco
unci
lsh
ould
benum
erous
enou
ghto
answ
erth
ep
rinci
pal
end
aim
edat
byth
ein
stit
uti
on,
the
sala
ries
ofth
em
embe
rs,
who
must
bedr
awn
from
thei
rho
mes
tore
side
atth
ese
atof
gover
nm
ent,
would
form
anit
emin
the
cata
logu
eof
pu
bli
cex
pen
dit
ure
sto
ose
riou
sto
bein
curr
edfo
ran
obje
ctof
equi
voca
luti
lity
.I
wil
lon
lyad
dth
at,
pri
or
toth
eap
pear
ance
ofth
eC
onst
itu
tio
n,
Ira
rely
met
wit
han
inte
llig
ent
man
from
any
ofth
eS
tate
s,w
hod
idnot
adm
it,
asth
ere
sult
ofex
peri
ence
,th
atth
eU
NIT
Yof
the
exec
utiv
eof
this
Sta
tew
ason
eof
the
best
ofth
ed
isti
ng
uis
hin
gfe
atur
esof
ou
rco
nst
itu
tio
n.
PU
BL
IUS
71
HA
MIL
TO
N
TH
EPR
ESID
ENTI
AL
TER
MO
FO
FFIC
E
To
the
Peo
ple
ofth
eS
tate
ofN
ewY
ork:
DU
RA
TIO
Nin
offi
ceha
sbe
enm
enti
on
edas
the
seco
ndre
qu
isit
eto
the
ener
gyof
the
Exe
cuti
veau
tho
rity
.T
his
has
rela
tion
totw
oob
ject
s:to
the
pers
onal
firm
ness
ofth
eex
ecut
ive
mag
istr
ate,
inth
eem
plo
ym
ent
ofhi
sco
nst
ituti
onal
pow
ers;
and
toth
est
abil
ity
ofth
esy
stem
ofad
min
istr
atio
nw
hich
may
have
bee
nad
op
ted
under
his
ausp
ices
.W
ith
regar
dto
the
firs
t,it
mus
tbe
evid
ent,
that
the
long
erth
edura
tion
Inof
fice
,th
egre
ater
wil
lbe
the
pro
bab
ilit
y,
ofobta
inin
gso
imp
ort
ant
anad
vant
age.
Itis
age
nera
lp
rinci
ple
ofh
um
annat
ure
,th
ata
man
wil
lbe
inte
rest
edin
what
ever
hepo
sses
ses,
inpro
port
ion
toth
efi
rmne
ssor
pre
cari
ousn
ess
ofth
ete
nure
byw
hich
heho
lds
it;
wil
lbe
less
atta
ched
tow
hat
heho
lds
bya
mom
enta
ryor
unce
rtai
nti
tle,
than
tow
hat
heen
joys
bya
dura
ble
orce
rtai
nti
tle;
and,
ofco
urse
,w
ill
bew
illi
ngto
risk
mor
efo
rth
esa
keof
the
one,
than
for
the
sake
ofth
eot
her.
This
rem
ark
isn
ot
less
appl
icab
leto
ap
oli
tica
lpri
vil
ege,
orho
nor,
ortr
ust,
than
toan
yar
ticl
eof
ord
inar
ypro
per
ty.
458
The
infe
renc
efr
omit
is,
that
am
anac
ting
inth
eca
paci
tyof
chie
fm
agis
trat
e,u
nd
era
cons
ciou
snes
sth
atin
ave
rysh
ort
tim
ehe
mus
tla
ydo
wn
his
offi
ce,
wil
lbe
apt
tofe
elhi
mse
lfto
oli
ttle
inte
rest
edin
itto
haza
rdan
ym
ater
ial
cens
ure
orpe
rple
xity
,fr
omth
ein
dep
end
ent
exer
tion
ofhi
spo
wer
s,or
from
enco
unte
ring
the
ill-
hum
ors,
how
ever
tran
sien
t,w
hich
may
hap
pen
topr
evai
l,ei
ther
ina
cons
ider
able
par
tof
the
soci
ety
itse
lf,
orev
enin
ap
red
om
inan
tfa
ctio
nin
the
legi
slat
ive
body
.If
the
case
shou
ldon
lybe
,th
athe
mig
htla
yit
dow
n,un
less
con
tin
ued
bya
new
choi
ce,
and
ifhe
shou
ldbe
desi
rous
ofbe
ing
conti
nued
,hi
sw
ishe
s,co
nspi
ring
wit
hhi
sfe
ars,
wou
ldte
nd
stil
lm
ore
pow
erfu
lly
toco
rru
pt
his
inte
gri
ty,
orde
base
his
fort
itu
de.
Inei
Lhe
rca
se,
feeb
lene
ssan
dir
reso
luti
on
must
beth
ech
arac
teri
stic
sof
the
stat
ion.
Ther
ear
eso
me
who
wou
ldbe
incl
ined
tore
gard
the
serv
ile
plia
ncy
ofth
eE
xecu
tive
toa
pre
vai
ling
curr
ent,
eith
erin
the
com
munit
yor
inth
ele
gisl
atur
e,as
itsbe
stre
com
men
dat
ion.
But
such
men
ente
rtai
nve
rycr
ude
noti
ons,
asw
ell
ofth
epu
rpos
esfo
rw
hich
gover
nm
ent
was
inst
itu
ted
,as
ofth
etr
ue
mea
nsby
whi
chth
epub
lic
happ
ines
sm
aybe
pro
mote
d.
The
rep
ub
lica
np
rin
cip
lede
man
dsth
atth
edel
iber
ate
sens
eof
the
com
munit
ysh
ould
gove
rnth
eco
nduct
ofth
ose
tow
hom
they
intr
ust
the
man
agem
ent
ofth
eir
affa
irs;
but
itdo
esnot
req
uir
ean
un
qu
ali
fled
com
plai
sanc
eto
ever
ysu
dden
bree
zeof
pass
ion,
orto
ever
ytr
ansi
ent
impu
lse
whi
chth
epe
ople
may
rece
ive
from
the
arts
ofm
en,
who
flat
ter
thei
rpr
ejud
ices
tobe
tray
thei
rin
tere
sts.
Itis
aju
stob
serv
atio
n,th
atth
epe
ople
com
mon
lyin
ten
dth
eP
UB
LIC
GOOD
.T
his
ofte
nap
plie
sto
thei
rve
ryer
rors
.B
ut
thei
rgo
odse
nse
wou
ldde
spis
eth
ead
ula
tor
who
shou
ldp
rete
nd
that
they
alw
ays
reas
onri
gh
tab
out
the
mea
nsof
pro
moti
ng
it.
Th
eykn
owfr
omex
peri
ence
that
they
som
etim
eser
r:an
dth
ew
onde
ris
that
they
sose
ldom
err
asth
eydo
,be
set,
asth
eyco
nti
nual
lyar
e,by
the
wil
esof
para
site
san
dsy
coph
ants
,by
the
snar
esof
the
ambi
tiou
s,th
eav
aric
ious
,th
ede
sper
ate,
byth
ear
tifi
ces
ofm
enw
hopo
sses
sth
eir
conf
iden
cem
ore
than
they
dese
rve
it,
and
thos
ew
hose
ekto
poss
ess
rath
erth
anto
dese
rve
it.
When
occa
sion
spr
esen
tth
emse
lves
,in
whi
chth
ein
tere
sts
ofth
epe
ople
are
atva
rian
cew
ith
thei
rin
clin
atio
ns,
itis
the
duty
ofth
epe
rson
sw
hom
they
have
appoin
ted
tobe
the
guar
dian
sof
thos
ein
tere
sts,
tow
ithst
and
the
tem
pora
ryde
lusi
on,
inord
erto
give
them
tim
ean
do
pp
ort
un
ity
for
mor
eco
olan
dse
date
refl
ecti
on.
Inst
ance
sm
ight
beci
ted
in
459
—•—
—
