ruled by an undisputed, absolute will, but by means to be furnished by the voluntary action of the people: — armies to be formed by voluntary enlistment; large sums of money to be raised by the people, through their representatives, voluntarily taxing themselves; trusts of extraordinary power to be voluntarily granted; and war measures, not seldom restricting the rights and liberties to which the citizen was accustomed, to be voluntarily accepted and submitted to by the people, or at least a large majority of them; — and that this would have to be kept up not merely during a short period of enthusiastic excitement, but possibly through weary years of alternating success and disaster, hope and despondency. He knew that in order to steer this government by public opinion successfully through all the confusion created by the prejudices and doubts and differences of sentiment distracting the popular mind, and so to propitiate, inspire, mould, organize, unite, and guide the pop-
