that particular interests will seek to sway government to their cause, as lobbying costs may be lower than would be the case if the issue in point were one about which several different levels of government voiced concern. Furthermore, it is possible that the more levels a hidden interest group has to lobby, the smaller is the chance of its activities' remaining hidden.
29» F . A . B l a n d , What t h e F e d e r a l S ys tem Means t o You ( 1 s t e d . , The C o n s t i t u t i o n a l League o f A u s t r a l i a , M el b o u r n e , 1949) p9* 30. R o b e r t A. D a h l , _A P r e f a c e t o D e m o c r a t i c T h e o r y ( 1 s t e d . , U n i v e r s i t y o f Chicago P r e s s , C h i c a g o , 1956) p83. 31. B l a n d , " F e d e r a l i s m i n A u s t r a l i a " , p1 61 . 32 . I b i d , p1 61 . 33* F . A . B l a n d , " U n i f i c a t i o n o r S e l f - G o v e r n m e n t ? " , The A u s t r a l a s i a n J o u r n a l o f P s y c h o l o g y and P h i l o s o p h y , v o l . 6 , n o . 2, June 1928, pp 111 -11 9 a t pp 11 2 - 1 1 3 -
3 4 . B l a n d , "Does T o t a l i t a r i a n i s m Menace A u s t r a l i a n Democr acy?", p 6 9 . 35 . F . A . B l a n d , T o t a l i t a r i a n i s m ; A u s t r a l i a ' s P e r i l ( 1 s t e d . , New S o u t h Wales C o n s t i t u t i o n a l L e a g u e , Sydney, 1948) p12. 36 . B l a n d , " F e d e r a l i s m i n A u s t r a l i a " , p157. 37 . I b i d . , p 1 58. 38 . I b i d . , p 1 57. 39» B l a n d , " U n i f i c a t i o n o r S e l f - G o v e r n m e n t ? " , p 1 11. 40. I b i d . , p 1 12. 41 . B l a n d , T o t a l i t a r i a n i s m : A u s t r a l i a 1s P e r i l . 42 . B l a n d , " F e d e r a l i s m i n A u s t r a l i a " , p 1 56.
43. See R o b e r t A. Dahl, Dilemmas c f P l u r a l i s t Democracy: Autonomy v e r s u s C o n t r o l ( 1 s t e d . , Y al e U n i v e r s i t y P r e s s , New H av en , 1 9 8 2 ) , p 9 1 • See a l s o King, o p . c i t . , pp54-55«
44. B l a n d , " F e d e r a l i s m i n A u s t r a l i a " , p 156.
45. I b i d . , p 156.
46. F . A . B l a n d ( e d . ) , Government i n A u s t r a l i a (2nd e d . , New South Wales Government P r i n t e r , S ydney, 1 9 4 4 ) p . x x i x .
47. F . A . B l a n d , P l a n n i n g t h e Modern S t a t e ( 1 s t e d . , Angus and R o b e r t s o n , Sydney, 1934) p p1 9 3 - 1 9 4 .
48. B l a n d , What t h e F e d e r a l S ys tem Means t o You , p6.
49« F . A . B l a n d , "A Note on R e g i o n a l i s m " , P u b l i c A d m i n i s t r a t i o n ( S y d n e y ) , v o l . 5 , n o . 4, December 1944, pp176-182 a t p180. 50. B la n d , P l a n n i n g t h e Modern S t a t e , 1 s t e d . , p 195- 51. B la n d , " U n i f i c a t i o n o r S e l f - G o v e r n m e n t ? " , p 112. 52. I b i d . , p p 115-11 6. 53. I b i d . , p11 5- 54. B l a n d , " F e d e r a l i s m i n A u s t r a l i a " , p158
CHAPTER FIVE z DEMOCRACY AND ITS INSTITUTIONS
I n a way i t i s m i s l e a d i n g to s p e a k o f B l a n d ' s " d e m o c r a t i c t h e o r y " , f o r a marked s h i f t i n h i s n o t i o n o f what c o n s t i t u t e d a demo cr ac y i s a p p a r e n t bet wee n h i s e a r l y and l a t e r w r i t i n g s . As e me rg es s h o r t l y , he came i n h i s l a t e r w r i t i n g s t o a v i e w o f d e m o c r a c y much more l i m i t e d and c o n s t r a i n e d t h a n t h a t which he a d o p t e d in h i s e a r l i e r and more e x u b e r a n t p u b l i c a t i o n s . F i r s t , h o w ev er , i t i s n e c e s s a r y b o t h t o n o t e t h e p r o b l e m s to which Bland saw d e m o c r a t i c o r g a n i s a t i o n a s a s o l u t i o n , and to t r a c e t h e c o n n e c t i o n s be t we e n h i s d e m o c r a t i c t h o u g h t and h i s i d e a s a b o u t f r e e d o m .
As was m e n t i o n e d i n C h a p t e r s Three and F o u r , Bland saw d e m o cr ac y a s r e l a t e d to fr eedom i n q u i t e s p e c i f i c ways, and r e g a r d e d d e m o cr a cy a s a p e c u l i a r l y e f f e c t i v e i n s t r u m e n t w i t h w hi ch b o t h t o d e f e n d t h e n e g a t i v e f r e ed om s o f t h e i n d i v i d u a l , and to e n c o u r a g e a c i v i c a l l y a c t i v e c i t i z e n r y . " F r e e d o m " , he a r g u e d i n 1935, " i n e v i t a b l y l e a d s to d emo cr acy a s t h e s y s t e m which e n s h r i n e s t h e p r i n c i p l e o f i n d i v i d u a l r e s p o n s i b i l i t y , and i s t h e b e s t g u a r a n t e e t h a t law and g o v e r n m e n t w i l l , i n t h e l o n g r u n , r e s t upon t h e c o n s e n t o f t h e g o v e r n e d . " ( 1 ) I n 1940, he p ut p a r t i c u l a r e m p h as is upon t h e f i r s t o f t h e s e f u n c t i o n s : " E a r l i e r I s a i d t h a t we b e l i e v e d t h a t Democracy was w o r t h f i g h t i n g f o r , b u t t h a t i t mi g ht n o t s u r v i v e i f i t were i n e f f i c i e n t . I do n o t want, h o w e v e r , t o g i v e you t h e i m p r e s s i o n t h a t I b e l i e v e t h a t t h e p r i m a r y p u r p o s e o f de mo cr ac y i s to f a s h i o n an e f f i c i e n t g o v e r n m e n t . I t s p r i m a r y p u r p o s e i s to e n a b l e t h e p e o p l e to become s e l f g o v e r n i n g and to make r e a l i n p u b l i c and p r i v a t e l i f e s u c h t h i n g s a s j u s t i c e , f r e e d o m , good f a i t h ,
t r u t h , and t he r i g h t o f e v e r y i n d i v i d u a l , weak o r s t r o n g to h i s own p l a c e i n t h e s u n . " ( 2 )
However, he d i d n o t n e g l e c t t h e s econd o f t h e s e a i m s . "The f u n c t i o n o f d e m o c r a t i c p r o c e d u r e " , he w r o t e i n 1944, " i s to f o r c e t h o s e who hav e power to a c t a c c o r d i n g to t h e w i s h e s o f t h e p e o p l e , o r g i v e up t h e i r p o w e r . " ( 3 ) He t o o k t h e view t h a t " t h e b a s i c i d e a i n democr acy i s n o t e q u a l i t y b u t l i b e r t y . E q u a l i t y i s i m p o r t a n t , b u t i t i s n o t t h e f u n d a m e n t a l pr oblem i n d em o c r a cy . Democracy i s an a t t e m p t t o r e c o n c i l e f reedom w i t h a u t h o r i t y . That h a s a l wa ys been t h e p r o bl e m, and demo cr acy h a s been t h e o n l y method which h a s made a ny s u c c e s s o f t h e p r o b l e m . " ( 4 ) T h i s i n s i g h t p r o v i d e d an i m p o r t a n t b a s i s f o r B l a n d ' s s u p p o r t f o r d em o c r a cy , and f or es h ad ow ed t h e i n s t r u m e n t a l v a l u i n g o f de moc ra cy w hi ch i s a n o t a b l e f e a t u r e o f h i s w r i t i n g s on t h e s u b j ec t . T h i s i n s t r u m e n t a l i s m i s p e r h a p s t h e most s t r i k i n g a s p e c t o f B l a n d ' s d e m o c r a t i c t h i n k i n g . Democracy, he a r g u e d , i s " n e t m e r e l y a m a t t e r o f form o f p o l i t i c a l i n s t i t u t i o n s , i t i s e s s e n t i a l l y a m a t t e r o f POLITICAL METHOD." ( 5 ) T h i s he a r g u e d i n 1935, e i g h t y e a r s b e f o r e S c h u m p e t e r , i n h i s C a p i t a l i s m , S o c i a l i s m and Democr acy, put t h e view t h a t "Democracy i s a p o l i t i c a l m e t h o d , t h a t i s to s a y , a c e r t a i n t y p e o f i n s t i t u t i o n a l a r r a n g e m e n t f o r a r r i v i n g a t p o l i t i c a l - l e g i s l a t i v e and a d m i n i s t r a t i v e - d e c i s i o n s and hen ce i n c a p a b l e o f b e i n g an end i n i t s e l f , i r r e s p e c t i v e o f what d e c i s i o n s i t w i l l p r o d u c e u n d e r g i v e n h i s t o r i c a l c i r c u m s t a n c e s . " ( 6 ) T h i s i n s t r u m e n t a l i s m s u g g e s t s