Causes Which Lead To Centralization of Government Or Not

Democracy In America, Alexis de Tocqueville, 1831

Volume 2, Section 4, Chapter 4, Of Certain Peculiar And Accidental Causes Which Either Lead A People To Complete The Centralization Of Government Or Divert Them From It

IF all democratic nations are instinctively led to the centralization of government, they tend to this result in an unequal manner. This depends on the particular circumstances which may promote or prevent the natural consequences of that state of society circumstances which are exceedingly numerous, but of which I shall mention only a few. .

Among men who have lived free long before they became equal, the tendencies derived from free institutions combat, to a certain extent, the propensities superinduced by the principle of equality; and although the central power may increase its privileges among such a people, the private members of such a community will never entirely forfeit their independence. But when equality of conditions grows up among a people who have never known or have long ceased to know what freedom is (and such is the case on the continent of Europe), as the former habits of the nation are suddenly combined, by some sort of natural attraction, with the new habits and principles engendered by the state of society, all powers seem spontaneously to rush to the center. These powers accumulate there with astonishing rapidity, and the state instantly attains the utmost limits of its strength, while private persons allow themselves to sink as suddenly to the lowest degree of weakness.

The English who emigrated three hundred years ago to found a democratic commonwealth on the shores of the New World had all learned to take a part in public affairs in their mother country; they were conversant with trial by jury; they were accustomed to liberty of speech and of the press, to personal freedom, to the notion of rights and the practice of asserting them. They carried with them to America these free institutions and manly customs, and these institutions preserved them against the encroachments of the state. Thus among the Americans it is freedom that is old; equality is of comparatively modern date. The reverse is occurring in Europe, where equality, introduced by absolute power and under the rule of kings, was already infused into the habits of nations long before freedom had entered into their thoughts.

I have said that, among democratic nations the notion of government naturally presents itself to the mind under the form of a sole and central power, and that the notion of intermediate powers is not familiar to them. This is peculiarly applicable to the democratic nations which have witnessed the triumph of the principle of equality by means of a violent revolution. As the classes that managed local affairs have been suddenly swept away by the storm, and as the confused mass that remains has as yet neither the organization nor the habits which fit it to assume the administration of these affairs, the state alone seems capable of taking upon itself all the details of government, and centralization becomes, as it were, the unavoidable state of the country.

Napoleon deserves neither praise nor censure for having centered in his own hands almost all the administrative power of France; for after the abrupt disappearance of the nobility and the higher rank of the middle classes, these powers devolved on him of course: it would have been almost as difficult for him to reject as to assume them. But a similar necessity has never been felt by the Americans, who, having passed through no revolution, and having governed themselves from the first, never had to call upon the state to act for a time as their guardian. Thus the progress of centralization among a democratic people depends not only on the progress of equality, but on the manner in which this equality has been established.

At the commencement of a great democratic revolution, when hostilities have but just broken out between the different classes of society, the people endeavor to centralize the public administration in the hands of the government, in order to wrest the management of local affairs from the aristocracy. Towards the close of such a revolution, on the contrary, it is usually the conquered aristocracy that endeavors to make over the management of all affairs to the state, because such an aristocracy dreads the tyranny of a people that has become its equal and not infrequently its master.

Thus it is not always the same class of the community that strives to increase the prerogative of the government; but as long as the democratic revolution lasts, there is always one class in the nation, powerful in numbers or in wealth, which is induced, by peculiar passions or interests, to centralize the public administration, independently of that hatred of being governed by one’s neighbor which is a general and permanent feeling among democratic nations. It may be remarked that at the present day the lower orders in England are striving with all their might to destroy local independence and to transfer the administratiion from all the points of th circumference to the center; whereas the higher classes are endeavoring to retain this administration within its ancient boundaries. I venture to predict that a time will come when the very reverse will happen.

These observations explain why the supreme power is always stronger, and private individuals weaker, among a democratic people that has passed through a long and arduous struggle to reach a state of equality than among a democratic community in which the citizens have been equal from the first. The example of the Americans completely demonstrates the fact. The inhabitants of the United States were never divided by any privileges; they have never known the mutual relation of master and inferior; and as they neither dread nor hate each other, they have never known the necessity of calling in the supreme power to manage their affairs. The lot of the Americans is singular: they have derived from the aristocracy of England the notion of private rights and the taste for local freedom; and they have been able to retain both because they have had no aristocracy to combat.

If education enables men at all times to defend their independence, this is most especially true in democratic times. When all men are alike, it is easy to found a sole and all-powerful government by the aid of mere instinct. But men require much intelligence, knowledge, and art to organize and to maintain secondary powers under similar circumstances and to create, amid the independence and individual weakness of the citizens, such free associations as may be able to struggle against tyranny without destroying public order.

Hence the concentration of power and the subjection of individuals will increase among democratic nations, not only in the same proportion as their equality, but in the same proportion as their ignorance. It is true that in ages of imperfect civilization the government is frequently as wanting in the knowledge required to impose a despotism upon the people as the people are wanting in the knowledge required to shake it off; but the effect is not the same on both sides. However rude a democratic people may be, the central power that rules them is never completely devoid of cultivation, because it readily draws to its own uses what little cultivation is to be found in the country, and, if necessary, may seek assistance elsewhere. Hence among a nation which is ignorant as well as democratic an amazing difference cannot fail speedily to arise between the intellectual capacity of the ruler and that of each of his subjects. This completes the easy concentration of all power in his hands: the administrative function of the state is perpetually extended because the state alone is competent to administer the affairs of the country.

Aristocratic nations, however unenlightened they may be, never afford the same spectacle, because in them instruction is nearly equally diffused between the monarch and the leading members of the community. The Pasha who now rules in Egypt found the population of that country composed of men exceedingly ignorant and equal, and he has borrowed the science and ability of Europe to govern that people. As the personal attainments of the sovereign are thus combined with the ignorance and democratic weakness of his subjects, the utmost centralization has been established without impediment, and the Pasha has made the country his factory, and the inhabitants his workmen. I think that extreme centralization of government ultimately enervates society and thus, after a length of time, weakens the government itself; but I do not deny that a centralized social power may be able to execute great undertakings with facility in a given time and on a particular point. This is more especially true of war, in which success depends much more on the means of transferring all the resources of a nation to one single point than on the extent of those resources. Hence it is chiefly in war that nations desire, and frequently need, to increase the powers of the central government. All men of military genius are fond of centralization, which increases their strength; and all men of centralizing genius are fond of war, which compels nations to combine all their powers in the hands of the government. Thus the democratic tendency that leads men unceasingly to multiply the privileges of the state and to circumscribe the rights of private persons is much more rapid and constant among those democratic nations that are exposed by their position to great and frequent wars than among all others.

I have shown how the dread of disturbance and the love of well-being insensibly lead democratic nations to increase the functions of central government as the only power which appears to be intrinsically sufficiently strong, enlightened, and secure to protect them from anarchy. I would now add that all the particular circumstances which tend to make the state of a democratic community agitated and precarious enhance this general propensity and lead private persons more and more to sacrifice their rights to their tranquillity.

A people is therefore never so disposed to increase the functions of central government as at the close of a long and bloody revolution, which, after having wrested property from the hands of its former possessors, has shaken all belief and filled the nation with fierce hatreds, conflicting interests, and contending factions. The love of public tranquillity becomes at such times an indiscriminate passion, and the members of the community are apt to conceive a most inordinate devotion to order.

I have already examined several of the incidents that may concur to promote the centralization of power, but the principal cause still remains to be noticed. The foremost of the incidental causes which may draw the management of all affairs into the hands of the ruler in democratic countries is the origin of that ruler himself and his own propensities. Men who live in the ages of equality are naturally fond of central power and are willing to extend its privileges; but if it happens that this same power faithfully represents their own interests and exactly copies their own inclinations, the confidence they place in it knows no bounds, and they think that whatever they bestow upon it is bestowed upon themselves.

The attraction of administrative powers to the center will always be less easy and less rapid under the reign of kings who are still in some way connected with the old aristocratic order than under new princes, the children of their own achievements, whose birth, prejudices, propensities, and habits appear to bind them indissolubly to the cause of equality. I do not mean that princes of aristocratic origin who live in democratic ages do not attempt to centralize; I believe they apply themselves as diligently as any others to that object. For them the sole advantages of equality lie in that direction; but their opportunities are less great, because the community, instead of volunteering compliance with their desires, frequently obey them with reluctance. In democratic communities the rule is that centralization must increase in proportion as the sovereign is less aristocratic.

When an ancient race of kings stands at the head of an aristocracy, as the natural prejudices of the sovereign perfectly accord with the natural prejudices of the nobility, the vices inherent in aristocratic communities have a free course and meet with no corrective. The reverse is the case when the scion of a feudal stock is placed at the head of a democrratic people. The sovereign I constantly led, by his education, his habits, and his associations, to adopt sentiments suggested by the inequality of conditions, and the people tend as constantly, by their social condition, to those manners which are engendered by equality. At such times it often happens that the citizens seek to control the central power far less as a tyrannical than as an aristocratic power, and that they persist in the firm defense of their independence, not only because they would remain free, but especially because they are determined to remain equal.

A revolution that overthrows an ancient regal family in order to place new men at the head of a democratic people may temporarily weaken the central power; but however anarchical such a revolution may appear at first, we need not hesitate to predict that its final and certain consequence will be to extend and to secure the prerogatives of that power.

The foremost or indeed the sole condition required in order to succeed in centralizing the supreme power in a democratic community is to love equality, or to get men to believe you love it. Thus the science of despotism, which was once so complex, is simplified, and reduced, as it were, to a single principle.

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The original copyright for Alexis de Tocqueville’s, “Democracy In America,” Translated by Henry Reeve, 1899, is held in the Public Domain because its copyright has expired. Formatting of this digital copy of Democracy In America Copyright © 2011 Steve Farrell and The Moral Liberal. Non-commercial, educational use of individual chapters is encouraged with a live link back to the original copy at The Moral Liberal and a courtesy note to the editors.