42 THE AMERICAN JOURNAL OF SOCIOLOGY
Public opinion is that opinion which, in spite of the difference in indi- viduals and of the very different conditions or situations in which they are placed, is so unanimously expressed, and not merely repeated by one man after another, that it may be taken as an utterance of universal truth and reason, and even as the will of God himself.
The volonte generale which formed the basis of Rousseau's system was pubHc opinion in this sense. This is entirely too narrow a significance to give the term if it is to be of much prac- tical value to us. Unanimous opinions in matters of government and politics are too few to constitute the basis of any really ser- viceable political system.
Another usage, which errs quite as far in the other direction, is that which makes public opinion stand for the sum-total of all opinions on any subject, or indeed on all subjects. Public opinion here means little else than the mass of human thought. We have often heard such expressions as that public opinion is becom- ing more rational, or that public opinion now interests itself in far more matters than it used to. It is in this sense that public opinion is erected into a sort of deity, which no one can locate because it is everywhere, or characterize because it contains both affirmative and negative elements in nearly every quality. It is a potent cabalistic expression to conjure with, but entirely too indefinite and all-embracing to be of any scientific worth.
Then again public opinion is taken to represent the opinion of the educated classes upon any subject. This will in no wise answer our purpose. The educated classes may contribute a larger proportionate share to most public opinions than the unedu- cated classes, but they dare not assume a monopoly. The opinion of the majority of political economists in America is doubtless adverse to a protective tariff, but these learned gentlemen must not be presumed to express the ruling opinion in America upon the fiscal question. There are, indeed, many publics composed of uneducated men, as there are others entirely composed of educated ones. This fallacy perhaps arises from the fact that uneducated men are compelled more often than educated ones to accept their opinions upon authority; or perhaps more likely to found their sentiments upon prejudice. But, as we have, we hope, clearly indicated, their opinions and sentiments are none the less
