WITH its heritage of Jacksonianism it was natural for the agrarian movement to attempt to carry further the exploration of the democratic principle, seeking to complete the program that had been left unfulfilled by the Fathers. There were few as yet who questioned the finality of democracy as a political system or its adequacy to all social needs. The growing evils of American life were traced unhesitatingly to an imperfect democratic control of the forces of exploitation. If the plutocracy were making gains at the expense of the plain people it was due to defective governmental machinery, and the immediate problem was the readjustment of that machinery. There must be an extension of democratic control over the economics of society. The great principle of laissez faire, that had proved so useful in the earlier struggle against aristocratic paternalisms, was become a shield and buckler for the plutocracy that was rising from the freedoms of a let-alone policy. To curb the ambitions of that plutocracy and preserve the democratic bequest for the common benefit of all, was therefore the immediate problem of the times.
To this end two things remained to be achieved: to wrest possession of the government from the hands of the plutocracy that was befouling it, and to use it for democratic rather than plutocratic ends. The difficulties in the way were many. Entrenched behind the checks and balances of a complex constitution the plutocracy could not easily be dislodged from power; even if it were driven out of the legislative and executive branches of government it would find aid and succor in the judiciary, where a masterful corporation law was interpreted by a bench tender toward all property rights, and jealous of its sovereign prerogative of reviewing all legislative enactments. A surprising change had come over the attitude of the governing class towards democracy. Having gained control of the machinery of government the plutocracy found no cause to quarrel with a situation wholly to its liking. It had mastered the gentle art of guiding the majority will, and secure --- as it believed --- in its control of the political state, it counted on an indefinite continuation of the policy of preemption and exploitation. From such a group, whether in Wall Street or at Washington, no new theories of government were to be expected. Business men wanted to be let alone. They clung to the anarchism of the Enlightenment and were stout in defense of the principle of individual initiative. So late as 1916 a group of confirmed individualists reissued Spencer's Man Versus the State, with an introduction by Elihu Root, to combat the rising spirit of governmental control. They regarded the American system of government as adequate and final, and wanted no subversive changes. The Constitution had been completed by the post-war enactments that fixed the status of the negro, and for a generation thereafter --- except for the silent changes wrought by the judiciary --- it remained static. East of the Allegheny Mountains popular interest in political theory had come to an end. A group of academic thinkers like John W. Burgess and Woodrow Wilson, an occasional intellectual like Brooks Adams, isolated radicals like Johann Most and small Marxian groups in Chicago and New York, and leaders of the new proletarian movement like Terence V. Powderly, were still acutely concerned about political theory; but these men and their theories counted for little in the stodgy mass of capitalistic America. The political phase had passed over into the economic; politics was wholly divorced from reality.
But throughout the Middle Border and on to the Pacific Coast the spirit of political democracy was alive and vigorous. There the older frontier Jacksonianism still lingered. For upwards of a half a century creative political thinking in America was largely western agrarian, and from this source came those democratic ideas that were to provide the staple of a later liberalism. The conscious objective of this great movement was to complete the work begun by Jacksonianism, and create a political machinery that should enable the democracy to withstand the shock of the Industrial Revolution. Many thinkers contributed to the work --- U'Ren of Oregon, Jerry Simpson of Kansas, Tom Watson of Georgia, "Coin" Harvey of Arkansas, General Weaver of Iowa, Ignatius Donnelly of Minnesota, Henry D. Lloyd of Chicago, to name a handful out of the mass-homespun realists who have been forgotten by a later generation, but whose labors were given to the necessary work of refashioning the political machinery of America, and whose program provided the materials for the later Progressive party. They were commoners, men of the people, unversed in the dogmas of the schools, idealists who drew their inspiration from the Declaration of Independence; they spoke for an older America that feared the rising plutocracy, and they were casting about for ways and means to cut its claws. From their labors came the Greenback Movement, the Farmers' Alliance, Populism; and from them came in turn the Progressive Movement that reaped what they had sown.
It is, perhaps, not extreme to interpret the political history of America since 1790 as largely a struggle between the spirit of the Declaration of Independence and the spirit of the Constitution, the one primarily concerned with the rights of man, the other more practically concerned with the rights of property. The humanitarian idealism of the Declaration has always echoed as a battle-cry in the hearts of those who dream of an America dedicated to democratic ends. It cannot be long ignored or repudiated, for sooner or later it returns to plague the councils of practical politics. It is constantly breaking out in fresh revolt. When the major parties have grown callous and indifferent to the wishes of the common people, it has reformulated its principles in third-party platforms. Without its freshening influence our political history would have been much more sordid and materialistic. With the exception of such sporadic outbursts as Antimasonry and Knownothingism, the third-party movements of the nineteenth century were democratic movements, inspired by a sense of social justice, founded on the Declaration of Independence, and promulgated to recall the American people to their heritage of idealism. The Locofoco party, the Freesoil party, the early Republican party, the Greenback party, the Populist party, the Progressive party, however they differed in immediate programs, have had a common objective, namely, to set man above property as the great object of governmental concern, and preserve in America the democratic principle of equal opportunity.
Despite the fact that they failed in their immediate objectives they served the larger purpose of reminding the major parties that America professes to be a democratic country, and that party platforms must be brought to square with that fact. Thus interpreted the history of party struggle since 1790 falls into three broad phases: the Jeffersonian movement that established the ideal of political democracy; the Jacksonian movement that established equalitarianism crudely in practice; and the successive thirdparty movements that attempted, in successive reactions, to regain such ground as had been lost, to extend the field, and to perfect the machinery of democratic government. Since the rise of the slavery controversy the major parties, allied with masterful economic groups, have persistently ignored the Declaration of Independence, and repudiated in practice the spirit of democracy. To prevent if possible so grave a treason to our traditional ideals, to assert the rights of the common man against the encroachments of a class, has been therefore the common mission of the thirdparty movements. The significance of their somewhat scanty success is something the thoughtful American may interpret as he will.
Since Civil War days, discontent has been endemic in the Middle Border, and it has broken out in three great political upheavals: the Greenback movement of the seventies; the Populist movement of the eighties and nineties; and the Non-Partisan League movement of the second decade of the present century. Issuing from a profound resentment at the exploitation from which the farmer suffered, they mark a persistent drift away from the old Jacksonian individualism and an advance toward a socialized conception of the political state. Disciplined by hard times the farmers were learning a lesson from capitalistic Whiggery: if the political state had proved serviceable to business why should it not prove serviceable to agriculture? Why should not a democratic state consider the producers as well as the middleman? Why should it not provide a national currency, a national system of transportation, a democratic banking system, a standard system of grain-grading, public elevators, crop insurance, and the like? Why should the farmer be squeezed at every turn by private companies who did badly what the state could do well? By 1917, in short, the Middle Border had got far from the simple individualism of earlier days and was well advanced toward state socialism; and it was only the ruthless opposition of the business interests, that had no wish to see their private preserves thus rudely invaded, that put a stop to the movement.Back of all these agrarian programs was the greater problem of the popular control of the political state. How could the undisciplined majority hold in check the disciplined minority? How could poverty meet wealth on an equal footing? The control of politics had fallen into the hands of the machine, and the machine served property interests. Legislatures were bought and sold like corner lots; senatorships went to the highest bidder; judges were more responsive to the wishes of bankers than to those of farmers. To break the power of the machine there must be an extension of democratic control, and to that end new machinery must be provided. Hence the vast agrarian concern with political machinery. From the agrarian agitation --- supplemented by proletarian and middleclass recruits --- has come the Australian ballot, the Initiative and the Referendum, the Recall, the Direct Primary, and popular election of Senators. The only important agrarian principle that has not been adopted is the principle of proportional representation. If agrarianism lost its great battle over the currency, it won the battle over the income tax. Nullified by a scandalous court decision after it had been long accepted, the income tax was finally established by the tedious method of constitutional amendment --- an outcome that owed much to the Middle Border. In casting up the accounts of American democracy, the largest sums must be credited to the Middle Border, as in earlier years they were credited to the Jacksonian frontier. Whether the new machinery is useful or merely cumbersome, there is much disagreement, but it is agrarian in origin and it came from an honest attempt to democratize American politics.*
*The Contents here calls for a third section on the "Populistic Program" (see p. xxxiv for details) and a fourth on "William Jennings Bryan." --- Publisher.