Mini-Federalist #18 – 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 #18, the original text of which can be read here: http://thomas.loc.gov/home/histdox/fed_18.html

Originally published December 7, 1787 by “Publius” – who was in this case, James Madison (possibly with some help from Alexander Hamilton).

Of all the ancient confederacies that we know about, the old Greek “council of neighbors” seems to be the most like our current American system.

Each city-state kept its own government, and all had an equal voice in federal matters. The central government took care of whatever it thought was in the common interest of the members: declaring and running wars, acting as a court of last resort, putting down rebellions, and bringing other city-states into the fold. They ran a state-controlled religion (including courts associated with the temples). The central government was sworn to protect the city-states, and to punish both rebels and heathens.

This certainly seems like enough power, doesn’t it? But this amounts to more power than we gave our government in the Articles of Confederation. That ancient government controlled the religion of the people, and was supposed to use force against the member city-states when they got out-of-line.

Of course, it didn’t work out that way. These powers ended up being executed by officers appointed by the city-states themselves, so they were never really used to their full extent. The more powerful city-states weren’t kept in-line, and merely converted the federal government into one that served their interests. Athens’ domination of ancient Greece illustrates this pretty well.

More often than not, the officers of the more powerful city-states strong-armed those of the weaker city-states into going along with whatever the stronger states wanted. The more powerful side, not necessarily the right side, won out.

Even when fighting wars with Persia and Macedonia, the city-states didn’t work together, and instead many even worked with the enemy! When not at war, the states squabbled with each other constantly.

For example, after the war against Xerxes, the Lacedaemonians tried to kick out all the traitor city-states, but the Athenians blocked the attempt because it would leave them at a power disparity within the central government. This one example shows how inefficient and unjust this union was. Even though the smaller states were supposed to have an equal say, they ended up being co-opted by the larger, more powerful states in practice.

If the ancient Greeks had really been thinking about it, they would have used the peaceful periods to make their government work better. Instead, the larger city-states (like Athens and Sparta) became power-hungry and ended up inflicting more damage than Xerxes had managed to. All that mistrust and anger culminated in the Peloponnesian war, destroying the government in the process.

Weak governments always end up suffering from internal conflict when they aren’t at war. This civil unrest naturally invites foreigners to try to disrupt things. Philip of Macedon gained control of Greece by pitting the city-states against each other over minor conflicts, and allying himself with the weaker side. It then wasn’t difficult for him to bribe his way into a leading position in the federal government.

Had their government been better-constructed and more unified, the Greeks may have avoided this sequence of events, and later been a more effective check against the power of the Romans.

The Achaean league also serves as a good example for us.

This was a much tighter and well-designed union. Even though they had similar problems, they didn’t really deserve them.

Each city-state maintained its own sovereignty, elected its own leaders, and was equally-represented at the federal level. Their central government exclusively handled declarations of war, diplomatic relations (including all treaties), and the election of a central executive called a praetor. He handled all military matters, and ran the government when the full senate wasn’t in session. Originally, they used 2 praetors, but found having only 1 to be better.

The city-states had a common set of weights and measures, used the same money, and had identical laws. We aren’t sure how much influence the federal government had in this area, but we know that when new members came on, they immediately started using the laws of the pre-existing city-states. This is the major difference between their system and that of the Athenians and Spartans.

It’s a shame that we don’t have better records of how the Achaean government actually operated. If we had more information on the inner workings of their system, it would enlighten all our discussions about how federal governments ought to work.

What we do know though, is that there was much more peace and justice, and far less squabbling in the Achaean league than in the other Greek governments where the city-states retained all the powers. As the Abbe Mably observed, there were fewer problems in the Achaean republic BECAUSE IT WAS THERE TEMPERED BY THE GENERAL AUTHORITY AND LAWS OF THE CONFEDERACY.

Of course, it was not a totally perfect set up. You can see that by the way the government ended up dissolving.

Originally, the Achaeans weren’t a big player in Greece, but once the Amphictyonic confederacy fell to the Macedonians, it wasn’t long before that foreign influence tried to break them up, too. Some were actually invaded, others were eroded from within through political corruption. The desire for liberty was awakened by these events, and eventually came close to uniting all of Greece under the Achaean system. The Athenians and Spartans, worried about maintaining their own power, put a stop to this though. While the Achaeans were trying to form an alliance with the Egyptians and Syrians, the Spartans attacked and spoiled the plan.

So the Achaeans were in a bad spot: they either needed to give in to the Spartans, or try to ally with the Macedonians. They choose Macedonia (who was only too happy to “help”). They sent an army to defeat the Spartans and eventually occupy the Achaean republic. The Achaeans tried to remove the Macedonian occupiers by allying with the other Greek states, but this wasn’t enough – they needed foreign help again, and this time they turned to the Romans who came in and did the same thing that the Macedonians had just done. The Romans fostered animosity between the Greek city-states, and convinced each that they should be totally sovereign. This led to the total destruction of the last great hope for a free Greece.

I’ve explained all of this seemingly unimportant history because it serves as a lesson – not just about the makeup of these ancient governments, but that it is much more likely for a federal system to fail because of dissent among its members, than by a tyrannical leader in charge of it.