The American Commonwealth. Viscount James Bryce

states, framed when they shook off the supremacy of the British Crown, all fixed one year, except the ultrademocratic Connecticut and Rhode Island, where under the colonial charters a legislature met every six months, and South Carolina, which had fixed two years. So essential to republicanism was this principle deemed, that the maxim “where annual elections end tyranny begins” had passed into a proverb; and the authors of the Federalist were obliged to argue that the limited authority of Congress, watched by the executive on one side, and the state legislatures on the other, would prevent so long a period as two years from proving dangerous to liberty, while it was needed in order to enable the members to master the laws and understand the conditions of different parts of the Union. At present the two years’ term is justified on the ground that it furnishes a proper check on the president by interposing an election in the middle of his term. One is also told that these frequent elections are necessary to keep up popular interest in current politics, nor do some fail to hint that the temptations to jobbing would overcome the virtue of members who had a longer term before them. Where American opinion is unanimous, it would be presumptuous for a stranger to dissent. Yet the remark may be permitted that the dangers originally feared have proved chimerical. There is no country whose representatives are more dependent on popular opinion, more ready to trim their sails to the least breath of it. The public acts, the votes, and speeches of a member from Oregon or Texas can be more closely watched by his constituents than those of a Virginian member could be watched in 1789.¹¹ And as the frequency of elections involves inexperienced members, the efficiency of Congress suffers.

      V. The numbers of the two American houses seem small to a European when compared on the one hand with the population of the country, on the other with the practice of European states. The Senate has 96 members against the British House of Lords with over 600, and the French Senate with 300. The House has 443 against the British House of Commons with 670, and the French and Italian chambers with 584 and 508 respectively.

      The Americans, however, doubt whether both their houses have not already become too large. They began with 26 in the Senate, 65 in the House, numbers then censured as too small, but which worked well, and gave less encouragement to idle talk and vain display than the crowded halls of today. The inclination of wise men is to try to diminish further increase when the number of 400 has been reached, for they perceive that the House already suffers from disorganization, and fear that a much larger one would prove unmanageable.¹²

      

      VI. American congressmen are more assiduous in their attendance than the members of most European legislatures. The great majority not only remain steadily at Washington through the session, but are usually to be found in the Capitol, often in their chamber itself, while a sitting lasts. There is therefore comparatively little trouble in making the quorum of one-half,¹³ except when the minority endeavours to prevent its being made, whereas in England the House of Lords, whose quorum is three, has seldom thirty peers present, and the House of Commons often finds a difficulty, especially during the dinner hour, in securing its modest quorum of forty.¹⁴ This requirement of a high quorum, which is prescribed in the Constitution, has doubtless helped to secure a good attendance. Other causes are the distance from Washington of the residences of most members, so that it is not worth while to take the journey home for a short sojourn, and the fact that very few attempt to carry on any regular business or profession while the session lasts. Those who are lawyers, or merchants, or manufacturers, leave their work to partners; but many are politicians and nothing else. In Washington, a city without commerce or manufactures, political or semi-political intrigue is the only gainful occupation possible; for the Supreme Court practice is conducted almost entirely by lawyers coming from a distance. The more democratic a county is, so much the more regular is the attendance, so much closer the attention to the requests of constituents which a member is expected to render.¹⁵ Apart from that painful duty of finding places for constituents which consumes so much of a congressman’s time, his duties are not heavier than those of a member of the English Parliament who desires to keep abreast of current questions. The sittings are neither so long nor so late as those of the House of Commons; the questions that come up not so multifarious, the blue books to be read less numerous, the correspondence (except about places) not more trublesome. The position of senator is more onerous than that of a member of the House, not only because his whole state, and not merely a district, has a direct claim upon him, but also because, as one of a small body, he incurs a larger individual responsibility, and sits upon two or more committees instead of on one only.

      VII. The want of opportunities for distinction in Congress is one of the causes which make a political career unattractive to most Americans.¹⁶ It takes a new member at least a session to learn the procedure of the House. Full dress debates are rare, newspaper reports of speeches delivered are curt and little read. The most serious work is done in committees; it is not known to the world, and much of it results in nothing, because many bills which a committee has considered are perhaps never even voted on by the House. A place on a good House committee is to be obtained by favour, and a high-spirited man might find it hard to secure it. Ability, tact, and industry make their way in the long run in Congress, as they do everywhere else. But in Congress there is, for most men, no long run. Only very strong local influence, or some remarkable party service rendered, will enable a member to keep his seat through two or three successive Congresses. Nowhere therefore does the zeal of a young politician sooner wax cold than in the House of Representatives. Unfruitful toil, the toil of turning a crank which does nothing but register its own turnings, or of writing contributions which an editor steadily rejects, is of all things the most disheartening. It is more disheartening than the nonrequital of merit; for that at least spares the self-respect of the sufferer. Now toil for the public is usually unfruitful in the House of Representatives, indeed in all houses. But toil for the pecuniary interests of one’s constituents and friends is fruitful, for it obliges people, it wins the reputation of energy and smartness, it has the promise not only of a renomination, but of that possible seat in the Senate which is the highest ambition of the congressman. Power, fame, perhaps even riches, sit upon that pinnacle. But the thin spun life is usually slit before the fair guerdon has been found. Few young men of high gifts and fine tastes look forward to entering public life, for the probable disappointments and vexations of a life in Congress so far outweigh its attractions that nothing but exceptional ambition or a strong sense of public duty suffices to draw such men into it. Law, education, literature, the higher walks of commerce, finance, or railway work, offer a better prospect of enjoyment or distinction.

      Inside Washington, the representative is dwarfed by the senator and the federal judges. Outside Washington he enjoys no great social consideration,¹⁷ especially in the Northern states, for in the South his position retains some of its old credit. His opinion is not quoted with respect. He seems to move about under a prima facie suspicion of being a jobber, and to feel that the burden of proof lies on him to show that the current jests on this topic do not apply to him. Rich men therefore do not seek, as in England, to enter the legislature in order that they may enter society. They will get no entree which they could not have secured otherwise. Nor is there any opportunity for the exercise of those social influences which tell upon members, and still more upon members’ wives and daughters, in European legislatures. It may of course be worth while to “capture” a particular senator, and for that purpose to begin by capturing his wife. But the salon plays no sensible part in American public life.

      The country does not go to Congress to look for its presidential candidates as England looks to Parliament for its prime ministers. The opportunities by which a man can win distinction there are few. He does not make himself familiar to the eye and ear of the world. Congress, in short, is not a focus of political life as are the legislatures of France, Italy, and England. Though it has become more powerful against the several states than it was formerly, though it has extended its arms in every direction, and sometimes encroached upon the executive, it has not become more interesting to the people, nor strengthened its hold on their respect and affection.

      VIII. Neither in the Senate nor in the House are there any recognized leaders. There is no ministry, no ex-ministry leading an opposition, no chieftains at the head of definite groups who follow their lead, as the Irish Nationalist members in the British Parliament follow Mr. Parnell, and a large section of the Left in the French and German chambers followed M.