The control of foreign relations by modern democracies creates a new and pressing demand for popular education in international affairs. When the difficult art of regulating the conduct of nations toward each other, in such a way as to preserve rights and avoid offense and promote peaceful intercourse, was left to the foreign offices of the world the public in each country could judge policies by results, and, in the various ways by which public opinion expresses itself, could reward or punish the success or failure of government. To perform that particular function it was not very important that the public should be familiar with the affairs out of which success or failure came. That condition, however, is passing away. In the democratic countries generally, the great body of citizens are refusing to wait until negotiations are over or policies are acted upon or even determined. They demand to know what is going on and to have an opportunity to express their opinions at all stages of diplomatic proceedings. This tendency is due partly to a desire to escape from certain well recognized evils in diplomacy as it has been practiced. It is due in part doubtless to the natural disposition of democracies to revert to the conditions which existed before the invention of representative government and thus to avoid the temporary inequalities involved in delegations of power to official representatives however selected.
The new condition has undoubtedly been accelerated by the great war and its lessons. We have learned that war is essentially a popular business. All the people in the countries concerned are enlisted in carrying it on. It cannot be carried on without their general participation. And whoever wins the war all the people of all the countries involved suffer grievous consequences. There is a general conviction that there has been something wrong about the conduct of diplomacy under which peoples have so often found themselves embarked in war without intending it and without wishing for it and