Mini-Federalist #19 – The Same Subject Continued: The Insufficiency of the Present Confederation to Preserve the Union

This is a continuation of a series of posts that are intended to be shorter, more understandable versions of the Federalist Papers. This post deals with Federalist #19, the original text of which can be read here: http://thomas.loc.gov/home/histdox/fed_19.html

Originally published December 8, 1787 by “Publius” – who was in this case, James Madison (possibly with some help from Alexander Hamilton).

The ancient governments I described in the last article aren’t the only examples that would be useful to us. There are other similar ones existing today that are worth a look. For starters, Germany.

What is now Germany has been occupied by many different peoples in the past. Under Charlemagne, France controlled Germany – until Charlemagne’s heirs broke up his empire. When that happened, Germany became a free-standing state because the local feudal overlords gradually took more and more power. The Empire of France was powerless to stop it. Small wars broke out between the local rivals for land and power, until an Austrian emperor rose.

With this style of feudalism being much like a confederacy already, it isn’t surprising that the current Germanic empire is federal in nature. There is a legislature (called a diet) which is representative of the “states”, and holds much of the power. The executive (an emperor) holds a veto on the acts of the diet. There is also a dual judiciary in the form of the Imperial Chamber and the Aulic Council.

The emperor has a lot of power. He is the only person who can propose measures to the legislature, and can veto what they come up with. He picks the ambassadors, grants titles of nobility, appoints replacement legislators in the event of a vacancy, creates universities, collects and spends taxes, and is ultimately responsible for the overall public safety. In his capacity as emperor, he doesn’t get any land or money, but he is still extremely powerful.

You’re probably thinking that there is so much power in the federal government of Germany, that it must be an exception to the rule. But this isn’t the case. The core principle here is that the empire is made up of sovereign states, and the federal government affects only those states. This means (like we discussed before) that the government can’t effectively control the states, can’t protect against foreign threats, and deals with constant internal squabbling.

Throughout it’s history, Germany has had wars between the emperor and the leaders of the states, and between the leaders of the states and the states themselves. There has been disregard for the rule of law, and the weak have been preyed-upon. Foreigners have frequently invaded. Requests for soldiers and funding have been ignored (with many failed and bloody attempts to enforce those requests). In general, the government has been inept, confused, and utterly terrible.

There was a time when the emperor was at war against half of his own country. He barely escaped an attempted capture, and on a few occasions was personally beaten by one of his own princes. There have also been too many wars between the German states themselves to count. After one such war (in which Sweden joined with many of those states against the emperor) a peace that was negotiated by foreigners was enshrined in Germany’s constitution!

The empire can’t even defend against foreign threats. There is so much infighting among the member states that they can’t join together before they are already invaded and winter has come.

Because of all this, they find it essential to have a small army at the ready at all times, but it is not well maintained and its soldiers are only paid every now and then.

Since this obviously wasn’t working out well, they decided to try splitting the empire into 9 or 10 districts. The rulers of these districts were to ensure that the laws were executed (even by military means), but this only illustrated the real problem: these smaller governments were just echoes of the original one. They either ended up not getting the job done, or doing it in the bloodiest way imaginable. In some cases, these districts are entirely composed of the troublemaker states (which was the problem they were supposed to solve).

It’s easy to judge the effectiveness of this system. A Catholic leader in Donawerth tried to hold a procession and a riot broke out. Martial law was declared, and the Duke of Bavaria tried to enforce it. Arriving with 10,000 soldiers, his true intentions became clear – he wanted to take the territory for himself (disarming the citizenry in the process).

So why hasn’t their government totally failed after this long? The states’ individual weakness – that’s why. Some are weak within the empire, and even the strongest of the states are weak when compared to their foreign neighbors. The emperor also has a reputation to uphold, and wields a lot of power by keeping these separate domains held together (however strained that hold is). This makes for a weak union, but as time goes on and people become more set in their ways, it becomes harder to change. Even if they were to make the empire stronger with a better-designed government, what makes you think the foreign powers surrounding the empire would allow that to happen? They will do whatever they can to keep the individual states warring amongst themselves, and thus weak as a whole.

If you’re looking for more examples of central governments controlling only member states (and not individual citizens) you might think of Poland. Their government is constantly having problems. It can neither govern nor defend itself, and is always at the mercy of the much stronger countries around it (who recently took by force over 1/3 of it’s land and population).

Some people think that the Swiss government is a stable confederacy, but the loose union of the cantons there doesn’t really qualify as one. There is no common treasury, army, monetary system, court system – nothing.

The only things binding them are geography, their own weakness compared to their neighbors, their shared peaceful culture, an inter-dependence upon their lands, the need for help with defeating internal rebellions, and the need to resolve conflict among themselves. They form ad-hoc courts from among the other cantons when needed, and choose a chief judge, or umpire if there is a split vote. This didn’t work out so well when the Duke of Savoy decided to make himself the mediator, and used military force to do it.

All of this evidence proves my point. Anytime the states within this “confederacy” had serious differences come up, the system broke down. There have been multiple wars over religion among the Swiss, and they now have two separate cantons (Catholic and Protestant), with totally separate legislatures. Their federal legislature is now almost totally powerless.

Of course, that wasn’t the only problem to come out of the big Catholic / Protestant split: the two sides are now allied with different foreign powers.