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A History of American Political Theories A History of American Political Theories A History of American Political Theories Charles Edward Merriam With a new introduction by Sidney A. Pearson, Jr. IJ Routledge Taylor&.Francis Group LONDON AND NEW YORK Originally published in © 1903 by The Macmillian Company, New York Reprinted in ©1969 by Augustus M. Kelley, Publishers, New York Published 2008 by Transaction Publishers Published 2017 by Routledge 2 Park Square, Milton Park, Abingdon, Oxon OX14 4RN 711 Third Avenue, New York, NY 10017, USA Routledge is an imprint of the Taylor & Francis Group, an informa business New material this edition copyright © 2008 by Taylor & Francis. All rights reserved. No part of this book may be reprinted or reproduced or utilised in any form or by any electronic, mechanical, or other means, now known or hereafter invented, including photocopying and recording, or in any information storage or retrieval system, without permission in writing from the publishers. Notice: Product or corporate names may be trademarks or registered trademarks, and are used only for identification and explanation without intent to infringe. Library of Congress Catalog Number: 2007045620 Library of Congress Cataloging-in-Publication Data Merriam, Charles Edward, 1874-1953. A history of American political theories / Charles Merriam ; with a new introduction by Sidney A. Pearson. p. cm. Originally published: New York : Macmillan Co., 1903. Includes bibliographical references and index. ISBN 978-1-4128-0714-2 1. Political science—United States—History. 2. United States—Politics and government. I. Title. JA84.U5M6 2008 320.0973—dc22 2007045620 ISBN 13: 978-1-4128-0714-2 (pbk) PROFESSOR WILLIAM ARCHIBALD DUNNING MY TEACHER AND GUIDE IN THE STUDY OF POLITICAL THEORIES THIS VOLUME IS GRATEFULLY DEDICATED CONTENTS INTRODUCTION TO THE TRANSACTION EDITION xiii PREFACE lxi CHAPTER I THE POLITICAL THEORY OF THE COLONIAL PERIOD FAGB 1. Introductory considerations i 2. Basis of the Puritan System 2 3. Theocratic elements in Puritanism ... 5 4. The theory of the relation between church and state 7 5. Democratic elements in Puritanism . 15 6. Puritan idea of liberty and equality ... 23 7. Conclusion as to the Puritans .... 26 8. Political ideas of the Quakers .... 27 9. The rise of democratic sentiment in the colonies . 32 10. Summary 36 CHAPTER II THE POLITICAL THEORY OF THE REVOLUTIONARY PERIOD 1. Introduction — Sources of information — Historical considerations — Constitutional theory . 38 2. Fundamental principles of the Revolution — Natural rights — The social contract — Popular sover- eignty— The right of revolution — The purpose of government 46 3. Typical Loyalist theory 63 4. Constructive theory of the Patriots: Monarchy and aristocracy — Doctrine of dele- gated powers and its application ... 69 (1) Weak government; (2) Separation of powers; (3) Short term of office . 77 viii CONTENTS FACT Theory and practice as to suffrage ... 84 Qualifications for office 85 Church and state 86 5. Source of Patriot ideas 88 6. Conclusions 94 CHAPTER III THE REACTIONARY MOVEMENT 1. Historical considerations 96 2. The Constitutional Convention and the Constitution 99 3. The theory of the Federalist: General considerations 100 Democracy and territorial area .... 103 Forms of government 106 The division of governmental powers . .107 The legislature — The executive — The judi- ciary 109 Guaranties of liberty 116 Conclusions 119 4. The theory of John Adams: Distrust of democracy 125 Theory of aristocracy 130 Balance of powers . 137 5. Summary 141 CHAPTER IV THE JEFFERSONIAN DEMOCRACY 1. Characteristics of the radical movement. 143 2. Jefferson and natural rights . 147 3. Means of perpetuating the social contract: (1) Revolution • 149 (2) Periodical revision of constitutions . 150 CONTENTS ix FAGB 4. Attitude toward monarchy 153 5. Attitude toward aristocracy 154 6. Analysis of Jeffersonian democracy . 157 7. Comparison between Adams and Jefferson . 161 8. Sources of Jefferson's theory 167 9. Conclusions 171 10. Summary of the epoch 173 CHAPTER V THE JACKSONIAN DEMOCRACY 1. Introductory considerations 176 2. The development of the executive power . .178 In the national government . .178 In the states 183 3. The spoils system and rotation in office . .184 4. Abolition of property qualifications for office-holding and suffrage 188 5. Religious liberty 193 6. Democratization of the judiciary .... 197 7. Summary of political changes .... 199 8. Reactionary tendencies in political theory . 200 CHAPTER VI THE POLITICAL THEORY OF THE SLAVERY CONTROVERSY Introduction 203 The Anti-slavery Theory 1. The theory of the radical abolitionists . 206 2. The philosophic argument 217 3. Lincoln's argument 221 4. Conclusion 226 X CONTENTS TJu Pro-slavery Argument PAGE 1. Introduction 227 2. Theory of inequality 229 3. Theory of natural rights 231 4. Concept of liberty 234 5. Relation between superior and inferior races . 236 6. Slavery and democracy 240 7. Conclusions 246 General conclusions on the slavery controversy . 248 CHAPTER VII POLITICAL THEORY IN RELATION TO THE NATURE OF THE UNION Introduction 252 1. The compromise theory 253 At the time of the adoption of the Constitution . 257 Down to 1830 258 Madison's theory of the genesis of the Union . 259 2. The state-sovereignty theory 265 Tucker's contract theory 266 Calhoun's theory of nullification .... 268 The theory of secession 278 3. The Nationalist theory 284 Webster's theory 284 The later Nationalists 290 Burgess's theory 299 4. Summary of the arguments 302 CHAPTER VIII RECENT TENDENCIES 1. General characteristics of recent theory . 305 2. Attitude toward the contract theory . 307 CONTENTS xi VAGB 3. Natural rights • 309 4. Civil liberty 311 5. Functions of the state . 315 6. The separation of governmental powers . 322 7. Distinction between state and government . -325 8. Modern democracy 327 9. Sociological contributions 329 10. Conclusions 331 CHAPTER IX CONCLUSION 334 INTRODUCTION TO THE TRANSACTION EDITION CHARLES MERRIAM AND THE PROGRESSIVE UNDERSTANDING OF PROGRESSIVISM: THE FOUNDATIONS OF MODERN LIBERAL DEMOCRATIC THEORY* The work of Charles Merriam occupies an ambiguous place in the study of American democracy. He is scarcely read today among ordinary readers and among scholars he is probably more often cited than seriously read. This ambiguous status is unfortunate for a number of reasons. The most obvious should begin with the observation that he was the doyen of American political science between the two world wars when many of the most formative char- acteristics of academic social sciences were taking shape: characteristics that were to dominate for the remainder of the century. This was the period when "science" and "progress" became virtually synonymous in the social sciences. As much as any single scholar during this period, Merriam set the standard for how American democracy should be studied within the academy. It was also during this period, and very much under the influence of scholars such as Merriam, when the liberal-progressive critique of the founders, the critique that included Woodrow Wilson, xiii xiv AMERICAN POLITICAL THEORIES Charles Beard, and others, became the orthodoxy of a new political science; a science of politics that saw itself as more "scientific" than that of the original founders. The heart of that critique, insofar as it turned on methodological questions of how to study American government, was in turn very much the work of Charles Merriam. Any account therefore that seeks to understand why that period was so pivotal in the interpretation of American democracy must necessarily include a study of Charles Merriam and his influence. Merriam is both interesting and important as an author because of his pivotal role in helping to make progressivism the mainstream basis of American political science. But perhaps the more important, and overlooked, element in his thought that merits rereading his work lies elsewhere. It is that he represents the first comprehensive effort by a scholar in the liberal-progressive tradition to survey the entirety of American political thought and to locate specifically where and how the liberal-progressive sci- ence of politics fits into the American tradition writ large. He gave to the liberal-progressive tradition one of its first complete narrative accounts of itself. It was an account, it needs to be noted, and that represented a purely academic account of politics, with all of the strengths and weaknesses implied in such an approach, as opposed to the practical politics of the founders. This aspect of Merriam's thought has been largely overlooked even by scholars who have taken a particular interest in his work. His specific politi- cal philosophy and his criticism of the founding principles of the American regime have largely been obscured by his advocacy of "scientific" political science and his gen- eral reputation as one of the founders of the behavioral TRANSACTION INTRODUCTION xv persuasion in the social sciences. But this distinction be- tween what is sometimes referred to as "normative" and "scientific" political theory is arbitrary and artificial; it is rooted in specifically academic categories that are seldom reproduced in the world of practical politics. It needs to be remembered that for Merriam theory was the center of how he understood political science, and nowhere in his work is this factor better or more thoroughly explored than in his early studies of the development of American political thought since the founders.1 Insofar as the behavioral persuasion
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