PUBLIC OPINION
WALTER J. SHEPARD University of Wisconsin
There are few terms used more frequently or with more assur- ance than Public Opinion. It is constantly upon our tongues to explain the most ordinary social and political occurrences. Every newspaper employs it on an average several times in each issue; every politician and statesman refers to it in nearly every speech. Were it to be lost from our daily vocabulary it would be quite impossible to make ourselves understood in any discussion or conversation about political matters. And yet, I venture to say, few terms are so incapable of exact definition or, indeed, carry with them so indefinite and misty a significance, even to those who employ it most frequently. Ask the ordinary man of the street who has just used these words of conjuring potency what they mean and he will be completely at a loss to answer you. Interrogate the scholars who have studied social and political phenomena most carefully and you will receive replies of extremely divergent character. Government by Public Opinion is also a phrase in common use. Few will deny that public opinion does govern to a great extent in the United States and is at least a powerful governing force in all other civilized countries. But how this intangible, inexplicable force operates upon the machinery of governments ; how it makes itself felt by rulers, and what are the sanctions which compel obedience to its mandates are problems little understood and subjects of much disagreement. Like electricity, it is known to be a force of great potency; its effects are perceived on every hand; it is, indeed, utilized and employed by experts, but an adequate explanation of the force itself or of its modes of application is as yet wanting. I shall not attempt in this article a complete solution of the prob- lems connected with a study of public opinion. It shall suffice to present some of the most patent facts which such a study reveals.
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