The Federalist Papers
the sufficiency of a moderate number of representatives, does not in any
respect contradict what was urged on another occasion with regard to the
extensive information which the representatives ought to possess, and
the time that might be necessary for acquiring it. This information,
so far as it may relate to local objects, is rendered necessary and
difficult, not by a difference of laws and local circumstances within a
single State, but of those among different States. Taking each State by
itself, its laws are the same, and its interests but little diversified.
A few men, therefore, will possess all the knowledge requisite for a
proper representation of them. Were the interests and affairs of each
individual State perfectly simple and uniform, a knowledge of them in
one part would involve a knowledge of them in every other, and the whole
State might be competently represented by a single member taken from any
part of it. On a comparison of the different States together, we find
a great dissimilarity in their laws, and in many other circumstances
connected with the objects of federal legislation, with all of which the
federal representatives ought to have some acquaintance. Whilst a few
representatives, therefore, from each State, may bring with them a
due knowledge of their own State, every representative will have much
information to acquire concerning all the other States. The changes
of time, as was formerly remarked, on the comparative situation of the
different States, will have an assimilating effect. The effect of time
on the internal affairs of the States, taken singly, will be just the
contrary. At present some of the States are little more than a society
of husbandmen. Few of them have made much progress in those branches of
industry which give a variety and complexity to the affairs of a nation.
These, however, will in all of them be the fruits of a more advanced
population, and will require, on the part of each State, a fuller
representation. The foresight of the convention has accordingly taken
care that the progress of population may be accompanied with a proper
increase of the representative branch of the government.
The experience of Great Britain, which presents to mankind so many
political lessons, both of the monitory and exemplary kind, and
which has been frequently consulted in the course of these inquiries,
corroborates the result of the reflections which we have just made. The
number of inhabitants in the two kingdoms of England and Scotland cannot
be stated at less than eight millions. The representatives of these
eight millions in the House of Commons amount to five hundred and
fifty-eight. Of this number, one ninth are elected by three hundred and
sixty-four persons, and one half, by five thousand seven hundred and
twenty-three persons.(1) It cannot be supposed that the half thus
elected, and who do not even reside among the people at large, can add
any thing either to the security of the people against the government,
or to the knowledge of their circumstances and interests in the
legislative councils. On the contrary, it is notorious, that they are
more frequently the representatives and instruments of the executive
magistrate, than the guardians and advocates of the popular rights. They
might therefore, with great propriety, be considered as something more
than a mere deduction from the real representatives of the nation. We
will, however, consider them in this light alone, and will not extend
the deduction to a considerable number of others, who do not reside
among their constitutents, are very faintly connected with them, and
have very little particular knowledge of their affairs. With all these
concessions, two hundred and seventy-nine persons only will be the
depository of the safety, interest, and happiness of eight millions that
is to say, there will be one representative only to maintain the rights
and explain the situation of TWENTY-EIGHT THOUSAND SIX HUNDRED AND
SEVENTY constitutents, in an assembly exposed to the whole force of
executive influence, and extending its authority to every object of
legislation within a nation whose affairs are in the highest degree
diversified and complicated. Yet it is very certain, not only that
a valuable portion of freedom has been preserved under all these
circumstances, but that the defects in the British code are chargeable,
in a very small proportion, on the ignorance of the legislature
concerning the circumstances of the people. Allowing to this case the
weight which is due to it, and comparing it with that of the House
of Representatives as above explained it seems to give the fullest
assurance, that a representative for every THIRTY THOUSAND INHABITANTS
will render the latter both a safe and competent guardian of the
interests which will be confided to it.
PUBLIUS
1. Burgh's "Political Disquisitions."
E1. Two versions of this paragraph appear in different editions.
FEDERALIST No. 57
The Alleged Tendency of the New Plan to Elevate the Few at the Expense
of the Many Considered in Connection with Representation.
From the New York Packet. Tuesday, February 19, 1788.
MADISON
To the People of the State of New York:
THE THIRD charge against the House of Representatives is, that it will
be taken from that class of citizens which will have least sympathy
with the mass of the people, and be most likely to aim at an ambitious
sacrifice of the many to the aggrandizement of the few.
Of all the objections which have been framed against the federal
Constitution, this is perhaps the most extraordinary. Whilst the
objection itself is levelled against a pretended oligarchy, the
principle of it strikes at the very root of republican government.
The aim of every political constitution is, or ought to be, first to
obtain for rulers men who possess most wisdom to discern, and most
virtue to pursue, the common good of the society; and in the next place,
to take the most effectual precautions for keeping them virtuous whilst
they continue to hold their public trust. The elective mode of obtaining
rulers is the characteristic policy of republican government. The means
relied on in this form of government for preventing their degeneracy are
numerous and various. The most effectual one, is such a limitation of
the term of appointments as will maintain a proper responsibility to the
people.
Let me now ask what circumstance there is in the constitution of the
House of Representatives that violates the principles of republican
government, or favors the elevation of the few on the ruins of the many?
Let me ask whether every circumstance is not, on the contrary, strictly
conformable to these principles, and scrupulously impartial to the
rights and pretensions of every class and description of citizens?
Who are to be the electors of the federal representatives? Not the rich,
more than the poor; not the learned, more than the ignorant; not the
haughty heirs of distinguished names, more than the humble sons of
obscurity and unpropitious fortune. The electors are to be the great
body of the people of the United States. They are to be the same who
exercise the right in every State of electing the corresponding branch
of the legislature of the State.
Who are to be the objects of popular choice? Every citizen whose merit
may recommend him to the esteem and confidence of his country. No
qualification of wealth, of birth, of religious faith, or of civil
profession is permitted to fetter the judgement or disappoint the
inclination of the people.
If we consider the situation of the men on whom the free suffrages of
their fellow-citizens may confer the representative trust, we shall find
it involving every security which can be devised or desired for their
fidelity to their constituents.
In the first place, as they will have been distinguished by the
preference of their fellow-citizens, we are to presume that in general
they will be somewhat distinguished also by those qualities which
entitle them to it, and which promise a sincere and scrupulous regard to
the nature of their engagements.
In the second place, they will enter into the public service under
circumstances which cannot fail to produce a temporary affection at
least to their constituents. There is in every breast a sensibility to
marks of honor, of favor, of esteem, and of confidence, which, apart
from all considerations of interest, is some pledge for grateful and
benevolent returns. Ingratitude is a common topic of declamation against
human nature; and it must be confessed that instances of it are but
too frequent and flagrant, both in public and in private life. But the
universal and extreme indignation which it inspires is itself a proof of
the energy and prevalence of the contrary sentiment.
In the third place, those ties which bind the representative to his
constituents are strengthened by motives of a more selfish nature. His
pride and vanity attach him to a form of government which favors his
pretensions and gives him a share in its honors and distinctions.
Whatever hopes or projects might be entertained by a few aspiring
characters, it must generally happen that a great proportion of the men
deriving their advancement from their influence with the people,
would have more to hope from a preservation of the favor, than from
innovations in the government subversive of the authority of the people.
All these securities, however, would be found very insufficient without
the restraint of frequent elections. Hence, in the fourth place, the
House of Representatives is so constituted as to support in the members
an habitual recollection of their dependence on the people. Before the
sentiments impressed on their minds by the mode of their elevation
can be effaced by the exercise of power, they will be compelled to
anticipate the moment when their power is to cease, when their exercise
of it is to be reviewed, and when they must descend to the level from
which they were raised; there forever to remain unless a faithful
discharge of their trust shall have established their title to a renewal
of it.
I will add, as a fifth circumstance in the situation of the House of
Representatives, restraining them from oppressive measures, that they
can make no law which will not have its full operation on themselves
and their friends, as well as on the great mass of the society. This has
always been deemed one of the strongest bonds by which human policy can
connect the rulers and the people together. It creates between them
that communion of interests and sympathy of sentiments, of which few
governments have furnished examples; but without which every government
degenerates into tyranny. If it be asked, what is to restrain the
House of Representatives from making legal discriminations in favor of
themselves and a particular class of the society? I answer: the genius
of the whole system; the nature of just and constitutional laws; and
above all, the vigilant and manly spirit which actuates the people of
America--a spirit which nourishes freedom, and in return is nourished by
it.
If this spirit shall ever be so far debased as to tolerate a law not
obligatory on the legislature, as well as on the people, the people will
be prepared to tolerate any thing but liberty.
Such will be the relation between the House of Representatives and their
constituents. Duty, gratitude, interest, ambition itself, are the chords
by which they will be bound to fidelity and sympathy with the great
mass of the people. It is possible that these may all be insufficient
to control the caprice and wickedness of man. But are they not all that
government will admit, and that human prudence can devise? Are they not
the genuine and the characteristic means by which republican government