Those who devised this plan of government for use in the United States no doubt thought that the citadel of popular government as thus guarded was absolutely impregnable. How could the power of government fall into the hands of the few when it had been so carefully split up among so many who could not possibly work together in harmony? How could the power of government be retained in the face of popular disapproval when those who exercised it were subject to such frequent elections? Nevertheless, the impossible has again happened. The impregnable citadel has been taken. The manner of its assault and capture is even now one of the unexpected and, to many who appreciate only in a general way what has occurred, one of the incomprehensible events of history. FOOTNOTES: [1] Compare Godkin, _Essays on Problems of Modern Democracy_, pp. 305-6. CHAPTER II UNPOPULAR GOVERNMENT--HOW ESTABLISHED IN THE UNITED STATES IN SPITE OF THE PRECAUTIONS TO PREVENT IT Section 1 Introductory In brief outline this is what has occurred: As the population of the country has grown and communities and states have passed more and more beyond the frontier stage of development, the decentralization of governmental power has constantly increased and the elective principle has been more and more extensively applied. As a consequence the burden placed upon the electorate has become more and more onerous. The voter has been called upon to vote more often and for an increasing number of officers. He must theoretically examine into the qualifications of a large number of candidates at frequent intervals. This has placed upon intelligent voting an enormous educational qualification. The task of the voter to obtain sufficient information about candidates long ago passed beyond what even the very intelligent citizen could fulfil and still maintain his place in competitive industry. The result is that the voter, though extremely intelligent in general, comes to the polls in utter ignorance of candidates and their qualifications for office. Nevertheless, he insists, in spite of his political ignorance, upon voting for someone. He takes his voting seriously and endeavors to make a show of voting intelligently. This attitude necessarily requires him to secure advice from someone as to whom to vote for. At once there is created the opportunity for the adviser to the voter. He first appears naturally as a local leader whom the electorate trusts. Soon, however, there arises the man who makes advising the politically ignorant voter his profession. Then this professional adviser becomes more of a director to the politically ignorant voter. This process goes on in every electoral district where the voter is politically ignorant enough to need some advice. It is not long before there is developed a hierarchy of professional advisers and directors to the politically ignorant voter. Sometimes there are competing hierarchies of such advisers and directors.