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AMERICAN experience has been frequently cited, in the course of the controversy now raging in England over the Irish question, both by way of warning and of example. For instance, I have found in the Times as well as in other journals-the Spectator, I think, among the number-very contemptuous dismissals of the plan of offering Ireland a government like that of an American State, on the ground that the Americans are loyal to the central authority, while in Ireland there is a strong feeling of hostility to it, which would probably increase under Home Rule. The Queen's writ, it has been remarked, cannot be said to run in large parts of Ireland, while in every part of the United States the Federal writ is implicitly obeyed, and the ministers of Federal authority find ready aid and sympathy from the people. If I remember rightly, the Duke of Argyll has been very emphatic in pointing out the difference between giving local self-government to a community in which the tendencies of popular feeling are centrifugal,' and giving it to one in which these tendencies are 'centripetal.' The inference to be drawn was, of course, that as long as Ireland disliked the Imperial government the concession of Home Rule would be unsafe, and would only become safe when the Irish people showed somewhat the same sort of affection for the English connection which the people of the State of New York now feel for the Constitution of the United States.

Among the multitude of those who have taken part in the controversy on one side or the other, no one has, so far as I have observed, pointed out that the state of feeling in America toward the central VOL. XIX.-No. 112.

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government with which the state of feeling in Ireland towards the British Government is now compared, did not exist when the American Constitution was set up; that the political tendencies in America at that time were centrifugal not centripetal, and that the extraordinary love and admiration with which Americans now regard the Federal government are the result of eighty years' experience of its working. The first Confederation was as much as the people could bear in the way of surrendering local powers when the War of Independence came to an end. It was its hopeless failure to provide peace and security which led to the framing of the present Constitution. But even with this experience still fresh, the adoption of the Constitution was no easy matter. I shall not burden the pages of this Review with historical citations showing the very great difficulty which the framers of the Constitution had in inducing the various States to adopt it, or the magnitude and variety of the fears and suspicions with which many of the most influential men in all parts of the country regarded it. Anyone who wishes to know how numerous and diversified these fears and suspicions were, cannot do better than read the series of papers known as The Federalist,' written mainly by Hamilton and Madison, to commend the new plan to the various States. It was adopted almost as a matter of necessity, that is, as the only way out of the Slough of Despond in which the Confederation had plunged the union of the States; but the objections to it which were felt at the beginning were only removed by actual trial. Hamilton's two colleagues, as delegates from New York, Yates and Lansing, withdrew in disgust from the Convention, as soon as the Constitution was outlined, and did not return. The notion that the Constitution was produced by the craving of the American people for something of that sort to love and revere, and that it was not bestowed on them until they had given ample assurance that they would lavish affection on it, has no foundation whatever in fact. The devotion of Americans to the Union is, indeed, as clear a case of cause and effect as is to be found in political history. They have learned to like the Constitution because the country has prospered under it, and because it has given them all the benefits of national life without interference with local liberties. If they had not set up a central government until the centrifugal sentiment had disappeared from the States, and the feeling of loyalty for a central authority had fully shown itself, they would assuredly never have set it up at all.

Moreover, it has to be borne in mind that the adoption of the Constitution did not involve the surrender of any local franchises, by which the people of the various States set great store. The States preserved fully four-fifths of their autonomy, or in fact nearly all of it which closely concerned the daily lives of individuals. Set aside the post-office, and a citizen of this State, not engaged in foreign

trade, might, down to the outbreak of the Civil War, have passed a long and busy life without once coming in contact with a United States official, and without being made aware in any of his doings, by any restriction or regulation, that he was living under any government but that of his own State. If he went abroad he had to apply for a United States passport. If he quarrelled with a foreigner, or with the citizen of another State, he might be sued in the Federal Court. If he imported foreign goods he had to pay duties to the collector of a Federal Custom-house. If he invented something, or wrote a book, he had to apply to the Department of the Interior for a patent or a copyright. But how few there were in the first seventy years of American history who had any of these experiences! No one supposes, or has ever supposed, that had the Federalists demanded any very large sacrifice of local franchises, or attempted to set up even a close approach to a centralised Government, the adoption of the Constitution would have been possible. If, for instance, such a transfer of both administration and legislation to the central authority as took place in Ireland after the Union had been proposed, it would have been rejected with derision. You will get no American to argue with you on this point. If you ask him whether he thinks it likely that a highly centralised government could have been created in 1879-such a one, for example, as Ireland has been under since 1800 or whether if created it would by this time have won the affection of the people, or filled them with centripetal tendencies, he will answer you with a smile.

The truth is that nowhere, any more than in Ireland, do people love their government from a sense of duty or because they crave an object of political affection, or even because it exalts them in the eyes of foreigners. They love it because they are happy or prosperous under it; because it supplies security in the form best suited to their tastes and habits, or in some manner ministers to their self-love. Loyalty to the king as the Lord's anointed, without any sense either of favours received or expected, has played a great part in European politics, I admit; but, for reasons which I will not here take up space in stating, a political arrangement, whether it be an elected monarch or a constitution, cannot be made, in our day, to reign in men's hearts except as the result of benefits so palpable that common people, as well as political philosophers, can see them and count them.

Many of the opponents of Home Rule too, point to the vigour with which the United States Government put down the attempt made by the South to break up the Union as an example of the American love of 'imperial unity,' and of the spirit in which England should now meet the Irish demands for local autonomy. This again is rather surprising, because you will find no one in America who will maintain for one moment that troops could have been raised in 1860 to undertake the conquest of the South for the purpose of setting up,

a centralised administration, or in other words, for the purpose of wiping out State lines, or diminishing State authority. No man or party proposed anything of this kind at the outbreak of the war, or would have dared to propose it. The object for which the North rose in arms, and which Lincoln had in view when he called for troops, was the restoration of the Union just as it was when South Carolina seceded, barring the extension of slavery into the territories. During the first year of the war, certainly, the revolted States might at any time have had peace on the status quo basis, that is, without the smallest diminution of their rights and immunities under the Constitution. It was only when it became evident that the war would have to be fought out to a finish, as the pugilists say that is, that it would have to end in a complete conquest of the Southern territory -that the question, what would become of the States as a political organisation after the struggle was over, began to be debated at all. What did become of them? How did Americans deal with Home Rule, after it had been used to set on foot against the central authority what the newspapers used to delight in calling the greatest rebellion the world ever saw'? The answer to these questions is, it seems to me, a contribution of some value to the discussion of the Irish problem in its present stage, if American precedence can throw any light whatever on it.

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There was a Joint Committee of both houses of Congress appointed in 1866 to consider the condition of the South with reference to the safety or expediency of admitting the States lately in rebellion to their old relations to the Union, including representation in Congress. It contained, besides such fanatical enemies of the South as Thaddeus Stevens, such very conservative men as Mr. Fessenden, Mr. Grimes, Mr. Morrill, and Mr. Conkling. Here is the account they gave of the condition of Southern feeling one year after Lee's surrender :—

Examining the evidence taken by your committee still further, in connection with facts too notorious to be disputed, it appears that the southern press, with few exceptions, and those mostly of newspapers recently established by northern men, abounds with weekly and daily abuse of the institutions and people of the loyal states; defends the men who led, and the principles which incited, the rebellion; denounces and reviles Southern men who adhered to the Union; and strives constantly and unscrupulously, by every means in its power, to keep alive the fire of hate and discord between the sections; calling upon the President to violate his oath of office, overturn the government by force of arms, and drive the representatives of the people from their seats in Congress. The national banner is openly insulted, and the national airs scoffed at, not only by an ignorant populace, but at public meetings, and once, among other notable instances, at a dinner given in honour of a notorious rebel who had violated his oath and abandoned his flag. The same individual is elected to an important office in the leading city of his State, although an unpardoned rebel, and so offensive that the President refuses to allow him to enter upon his official duties. In another State the leading general of the rebel armies is openly nominated for Governor by the Speaker of the House of Delegates, and the nomination is hailed by the people with shouts of satisfaction, and openly endorsed by the press. ...

The evidence of an intense hostility to the Federal Union, and an equally intense love of the late Confederacy, nurtured by the war is decisive. While it appears that nearly all are willing to submit, at least for the time being, to the Federal authority, it is equally clear that the ruling motive is a desire to obtain the advantages which will be derived from a representation in Congress. Officers of the Union army on duty, and Northern men who go south to engage in business, are generally detested and proscribed. Southern men who adhered to the Union are bitterly hated and relentlessly persecuted. In some localities prosecutions have been instituted in state courts against Union officers for acts done in the line of official duty, and similar prosecutions are threatened elsewhere as soon as the United States troops are removed. All such demonstrations show a state of feeling against which it is unmistakably necessary to guard.

The testimony is conclusive that after the collapse of the Confederacy the feeling of the people of the rebellious States was that of abject submission. Having appealed to the tribunal of arms, they had no hope except that by the magnanimity of their conquerors, their lives, and possibly their property, might be preserved. Unfortunately the general issue of pardons to persons who had been prominent in the rebellion, and the feeling of kindliness and conciliation manifested by the Executive, and very generally indicated through the northern press, had the effect to render whole communities forgetful of the crime they had committed, defiant towards the Federal Government, and regardless of their duties as citizens. The conciliatory measures of the Government do not seem to have been met even half-way. The bitterness and defiance exhibited towards the United States under such circumstances is without a parallel in the history of the world. In return for our leniency we receive only an insulting denial of our authority. In return for our kind desire for the resumption of fraternal relations we receive only an insolent assumption of rights and privileges long since forfeited. The crime we have punished is paraded as a virtue, and the principles of republican government which we have vindicated at so terrible a cost are denounced as unjust and oppressive.

If we add to this evidence the fact that, although peace has been declared by the President, he has not, to this day, deemed it safe to restore the writ of habeas corpus, to relieve the insurrectionary States of martial law, nor to withdraw the troops from many localities, and that the commanding general deems an increase of the army indispensable to the preservation of order and the protection of loyal and well-disposed people in the South, the proof of a condition of feeling hostile to the Union and dangerous to the Government throughout the insurrectionary States would seem to be overwhelming.

This Committee recommended a series of coercive measures, the first of which was the adoption of the fourteenth amendment to the Constitution, which disqualified for all office either under the United States, or under any State, any person who having in any capacity taken an oath of allegiance to the United States afterwards engaged in rebellion or gave aid and comfort to the rebels. This denied the jus honoris to all the leading men at the South who had survived the In addition to it, an Act was passed in March 1867 which put all the rebel States under military rule until a constitution should have been framed by a Convention elected by all males over twentyone, except such as would be excluded from office by the above-named constitutional amendment if it were adopted, which at that time it had not been. Another Act was passed three weeks later prescribing, for voters in the States lately in rebellion, what was known. as the ironclad oath,' which excluded from the franchise not only

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