To give a sensible answer to the question "How democratic is America?" I find it necessary to make three clarifying preliminary statements. First, I want to define "democracy," not conclusively, but operationally, so we can know what we are arguing about, or at least what I am talking about. Second, I want to state what my criteria are for measuring the "how" in the question. And third, I think it necessary to issue a warning about how a certain source of bias (although not the only source) is likely to distort our judgments.

Our definition is crucial. This becomes clear if we note how relatively easy is the answer to our question when we define democracy as a set of formal institutions and let it go at that. If we describe as "democratic" a country that has a representative system of government, with universal suffrage, a bill of rights, and party competition for office, it becomes easy to answer the question "how" with the enthusiastic reply, "Very!" . . .

I propose a set of criteria for the description "democratic" which goes beyond formal political institutions, to the quality of life in the society (economic, social, psychological), beyond majority rule to a concern for minorities, and beyond national boundaries to a global view of what is meant by "the people," in that rough, but essentially correct view of democracy as "government of, by, and for the people."

Let me list these criteria quickly, because I will go on to discuss them in some detail later:

1. To what extent can various people in the society participate in those decisions which affect their lives: decisions in the political process and decisions in the economic structure?
2. As a corollary of the above: do people have equal access to the information which they need to make important decisions?
3. Are the members of the society equally protected on matters of life and death -- in the most literal sense of that phrase?
4. Is there equality before the law: police, courts, the judicial process -- as well as equality with the law-enforcing institutions, so as to safeguard equally everyone's person, and his freedom from interference by others and by the government?
5. Is there equality in the distribution of available resources: those economic goods necessary for health, life, recreation, leisure, growth?
6. Is there equal access to education, to knowledge and training, so as to enable persons in the society to live their lives as fully as possible, to enlarge their range of possibilities?
7. Is there freedom of expression on all matters, and equally for all, to communicate with other members of the society?
8. Is there freedom for individuality in private life, in sexual relations, family relations, the right of privacy?
9. To minimize regulation: do education and the culture in general foster a spirit of cooperation and amity to sustain the above conditions?
10. As a final safety feature: is there opportunity to protest, to disobey the laws, when the foregoing objectives are being lost -- as a way of restoring them? . . .

Two historical facts support my enlarged definition of democracy. One is that the industrialized Western societies have outgrown the original notions which accompanied their early development: that constitutional and procedural tests sufficed for the "democracy" that overthrew the old order; that democracy was quite adequately fulfilled by the Bill of Rights in England at the time of the Glorious Revolution, the Constitution of the United States, and the Declaration of the Rights of Man in France. It came to be acknowledged that the rhetoric of these revolutions was not matched by their real achievements. In other words, the limitations of that "democracy" led to the reformist and radical movements that grew up in the West in the middle and late nineteenth century. The other historical note is that the new revolutions in our century, in Africa, Asia, Latin America, while rejecting either in whole or in part the earlier revolutions, profess a similar democratic aim, but with an even broader rhetoric. . . .

My second preliminary point is on standards. By this I mean that we can judge in several ways the fulfillment of these ten criteria I have listed. We can measure the present against the past, so that if we find that in 1988 we are doing better in these matters than we were doing in 1860 or 1910, the society will get a good grade for its "democracy." I would adjure such an approach because it supports complacency. With such a standard, Russians jn 1910 could point with pride to how much progress they had made toward parliamentary democracy; as Russians in 1988 can point to their post-Stalin progress away from the gulag; as Americans could point in 1939 to how far they had come toward solving the problem of economic equality; as Americans in the South could point in 1950 to the progress of the southern Negro. Indeed, the American government gives military aid to brutal regimes in Latin America on the ground that a decrease in the murders by semiofficial death squads is a sign of progress.

Or, we could measure our democracy against other places in the world. Given the high incidence of tyranny in the world, polarization of wealth, and lack of freedom of expression, the United States, even with very serious defects, could declare itself successful. Again, the result is to let us all off easily; some of our most enthusiastic self-congratulation is based on such a standard.

On the other hand, we could measure our democracy against an ideal (even if admittedly unachievable) standard. I would argue for such an approach, because, in what may seem to some a paradox, the ideal standard is the pragmatic one; it affects what we do. To grade a student on the basis of an improvement over past performance is justifiable if the intention is to encourage someone discouraged about his ability. But if he is rather pompous about his superiority in relation to other students (and I suggest this is frequently true of Americans evaluating American "democracy"), and if in addition he is a medical student about to graduate into a world ridden with disease, it would be best to judge him by an ideal standard. That might spur him to an improvement fast enough to save lives. . . .

My third preliminary point is a caution based on the obvious fact that we make our appraisals through the prism of our own status in society. This is particularly important in assessing democracy, because if "democracy" refers to the condition of masses of people, and if we as the assessors belong to a number of elites, we will tend (and I am not declaring an inevitability, just warning of a tendency) to see the present situation in America more benignly than it deserves. To be more specific, if democracy requires a keen awareness of the condition of black people, of poor people, of young people, of that majority of the world who are not American -- and we are white, prosperous, beyond draft age, and American -- then we have a number of pressures tending to dull our sense of inequity. We are, if not doomed to err, likely to err on the side of complacency -- and we should try to take this into account in making our judgments.

I. PARTICIPATION IN DECISIONS

We need to recognize, first, that whatever decisions are made politically are made by representatives of one sort or another: state legislators, congressmen senators, and other elected officials, governors and presidents; also by those appointed by elected officials, like Supreme Court justices. These are important decisions, affecting our lives, liberties, and ability to pursue happiness. Congress and the president decide on the tax structure, which affects the distribution of resources. They decide how to spend the monies received; whether or not we go to war; who serves in the armed forces; what behavior is considered a crime; which crimes are prosecuted and which are not. They decide what limitations there should be on our travel, or on our right to speak freely. They decide on the availability of education and health services.

If representation by its very nature is undemocratic, as I would argue, this is an important fact for our evaluation. Representative government is closer to democracy than monarchy, and for this reason it has been hailed as one of the great political advances of modern times; yet, it is only a step in the direction of democracy, at its best. It has certain inherent flaws -- pointed out by Rousseau in the eighteenth century, Victor Considerant in the nineteenth century, Robert Michels in the beginning of the twentieth century, Hannah Arendt in our own time. No representative can adequately represent another's needs; the representative tends to become a member of a special elite; he has privileges which weaken his sense of concern at others' grievances; the passions of the troubled lose force (as Madison noted in The Federalist 10) as they are filtered through the representative system; the elected official develops an expertise which tends toward its own perpetuation. Leaders develop what Michels called "a mutual insurance contract" against the rest of society. . . .

If only radicals pointed to the inadequacy of the political processes in the United States, we might be suspicious. But established political scientists of a moderate bent talk quite bluntly of the limitations of the voting system in the United States. Robert Dahl, in A Preface to Democratic Theory, drawing on the voting studies of American political scientists, concludes that "political activity, at least in the United States, is positively associated to a significant extent with such variables as income, socio-economic status, and education." He says:

By their propensity for political passivity the poor and uneducated disfranchise themselves. . . . Since they also have less access than the wealthy to the organi-■ zational, financial, and propaganda resources that weigh so heavily in campaign, elections, legislative, and executive decisions, anything like equal control over government policy is triply barred to the members of Madison's unpropertied masses. They are barred by their relative greater inactivity, by their relatively

Zinn: How Democratic Is America? 221

limited access to resources, and by Madison's nicely contrived system of constitutional checks.¹

Dahl thinks that our society is essentially democratic, but this is because he expects very little. (His book was written in the 1950s, when lack of commotion in the society might well have persuaded him that no one else expected much more than he did.) Even if democracy were to be superficially defined as "majority rule," the United States would not fulfill that, according to Dahl, who says that "on matters of specific policy, the majority rarely rules."² After noting that "the election is the critical technique for insuring that governmental leaders will be relatively responsive to nonleaders," he goes on to say that "it is important to notice how little a national election tells us about the preferences of majorities. Strictly speaking, all an election reveals is the first preferences of some citizens among the candidates standing for office."³ About 45 percent of the potential voters in national elections, and about 60 percent of the voters in local elections do not vote, and this cannot be attributed, Dahl says, simply to indifference. And if, as Dahl points out, "in no large nation state can elections tell us much about the preferences of majorities and minorities," this is "even more true of the interelection period." . . .

Dahl goes on to assert that the election process and interelection activity "are crucial processes for insuring that political leaders will be somewhat responsive to the preferences of some ordinary citizens."⁴ I submit (the emphasized words are mine) that if an admirer of democracy in America can say no more than this, democracy is not doing very well.

Dahl tells us the election process is one of "two fundamental methods of social control which, operating together, make governmental leaders so responsive to nonleaders that the distinction between democracy and dictatorship still makes sense." Since his description of the election process leaves that dubious, let's look at his second requirement for distinguishing democracy: "The other method of social control is continuous political competition among individuals, parties, or both." What it comes down to is "not minority rule but minorities rule."⁵

If it turns out that this -- like the election process -- also has little democratic content, we will not be left with very much difference -- by Dahl's own admission -- between "dictatorship" and the "democracy" practiced in the United States. Indeed, there is much evidence on this: the lack of democracy within the major political parties, the vastly disproportionate influence of wealthy groups over poorer ones (what consumers' group in 1983 could match the $1 million spent by the Natural Gas Supply Association to lobby, in fifteen key congressional districts, for full control of natural gas prices?);⁶ the unrepresentative nature of the major lobbies (the wealthy doctors speaking for all through the AMA, the wealthy farmers speaking for the poorer ones through the American Farm Bureau Federation, the most affluent trade unions speaking for all workers). All of this, and more, supports the idea of a "decline of American pluralism" that Henry Kariel has written about. What Dahl's democracy comes down to is "the steady appeasement of relatively small groups."⁷ If these relatively small groups turn out to be the aircraft industry far more than the aged, the space industry far more than the poor, the Pentagon far more than the college youth -- what is left of democracy?

Sometimes the elitism of decision-making is defended (by Dahl and by others) on the ground that the elite is enacting decisions passively supported by the mass, whose tolerance is proof of an underlying consensus in society. But Murray Levin's studies in The Alienated Voter indicate how much nonparticipation in elections is a result of hopelessness rather than approval. And Robert Wiebe, a historian at Northwestern University, talks of "consensus" becoming a "new stereotype." He approaches the question historically.

Industrialization arrived so peacefully not because all Americans secretly shared the same values or implicitly willed its success but because its millions of bitter enemies lacked the mentality and the means to organize an effective counterattack.⁸

Presidental nominations and elections are more democratic than monarchical rule or the procedures of totalitarian states, but they are far from some reasonable expectation of democracy. The two major parties have a monopoly of presidential power, taking turns in the White House. The candidates of minority parties don't have a chance. They do not have access to the financial backing of the major parties, and there is not the semblance of equal attention in the mass media; it is only the two major candidates who have free access to prime time on national television.

More important, both parties almost always agree on the fundamentals of domestic and foreign policy, despite the election-year rhetoric which attempts to find important differences. Both parties arranged for United States intervention in Vietnam in the 1950s and 1960s, and both, when public opinion changed, promised to get out (note the Humphrey-Nixon contest of 1968). In 1984, Democratic candidate Walter Mondale agreed with Republican candidate Ronald Reagan that the United States (which had ten thousand thermonuclear warheads) needed to continue increasing its arms budgets, although he asked for a smaller increase than the Republicans. Such a position left jvlondale unable to promise representatives of the black community (where unemployment was over 20 percent) that he would spend even a few billion dollars for ajobs program. Meanwhile, Democrats and Republicans in Congress were agreeing on a $297 billion arms bill for the 1985 fiscal year.⁹

With all the inadequacies of the representative system, it does not even operate in the field of foreign policy. In exactly those decisions which are the most vital -- matters of war and peace, life and death -- power rests in the hands of the president and a small group of advisers. We don't notice this when wars seem to have a large degree of justification (as World war II); we begin to notice it when we find ourselves in the midst of a particularly pointless war.

I have been talking so far about democracy in the political process. But there is another serious weakness that I will only mention here, although it is of enormous importance: the powerlessness of the American to participate in economic decision-making, which affects his life at every moment. As a consumer, that is, as the person whom the economy is presumably intended to serve, he has virtually nothing to say about what is produced for him. The corporations make what is profitable; the advertising industry persuades him to buy what the corporations produce. He becomes the passive victim of the misallocation of resources, the production of dangerous commodities, the spoiling of his air, water, forests, beaches, cities.

2. ACCESS TO INFORMATION

Adequate information for the electorate is a precondition for any kind of action (whether electoral or demonstrative) to affect national policy. As for the voting process, Berelson, Lazarsfeld, and McPhee tell us (in their book, Voting) after extensive empirical research: "One persistent conclusion is that the public is not particularly well informed about the specific issues of the day." . . .

Furthermore, . . . there are certain issues which never even reach the public because they are decided behind the scenes. . . .

Consider the information available to voters on two major kinds of issues. One of them is the tax structure, so bewilderingly complex that the corporation, with its corps of accountants and financial experts, can prime itself for lobbying activities, while the average voter, hardly able to comprehend his own income tax, stands by helplessly as the president, the Office of Management and Budget, and the Congress decide the tax laws. The dominant influences are those of big business, which has the resources both to understand and to act.

Then there is foreign policy. The government leads the citizenry to believe it has special expertise which, if it could only be revealed, would support its position against critics. At the same time, it hides the very information which would reveal its position to be indefensible. The mendacity of the government on the Bay of Pigs operation, the secret operations of the CIA in Iran, Indonesia, Guatemala, and other places, the withholding of vital information about the Tonkin Gulf events are only a few examples of the way the average person becomes a victim of government deception.

When the United States invaded the tiny island of Grenada in the fall of 1983, no reporters were allowed to observe the invasion, and the American public had little opportunity to get independent verification of the reasons given by the government for the invasion. As a result, President Reagan could glibly tell the nation what even one of his own supporters, journalist George Will, admitted was a lie: that he was invading Grenada to protect the lives of American medical students on the island. He could also claim that documents found on the island indicated plans for a Cuban-Soviet takeover of Grenada; the documents showed no such thing.¹⁰

Furthermore, the distribution of information to the public is a function of power and wealth. The government itself can color the citizens'understanding of events by its control of news at the source: the presidential press conference, the "leak to the press," the White Papers, the teams of "truth experts" going around the country at the taxpayers' expense. As for private media, the large networks and mass-circulation magazines have the greatest access to the public mind. There is no "equal time" for critics of public policy. . . .

3. EQUAL PROTECTION

Let us go now from the procedural to the substantive, indeed to the most substantive of questions: the right of all the people to life itself. Here we find democracy in America tragically inadequate. The draft, which has been a part of American law since 1940 (when it passed by one vote) decides, in wartime, who lives and who dies. Not only Locke, one of the leading theorists of the democratic tradition, declared the ultimate right of any person to safeguard his own life when threatened by the government; Hobbes, often looked on as the foe of democratic thought, agreed. The draft violates this principle, because it compels young people to sacrifice their lives for any cause which the leaders of government deem just; further, it discriminates against the poor, the uneducated, the young.

It is in connection with this most basic of rights -- life itself, the first and most important of those substantive ends which democratic participation is designed to safeguard -- that I would assert the need for a global view of democracy. One can at least conceive of a democratic decision for martial sacrifice by those ready to make the sacrifice; a "democratic" war is thus a theoretical possibility. But that presumption of democracy becomes obviously false at the first shot because then others are affected who did not decide. . . . Nations making decisions to slaughter their own sons are at least theoretically subject to internal check. The victims on the other side fall without any such chance. For the United States today, this failure of democracy is total; we have the capacity to destroy the world without giving it a chance to murmur a dissent; we did, in fact, destroy a part of southest Asia on the basis of a unilateral decision made in Washington. There is no more pernicious manifestation of the lack of democracy in America than this single fact.

4. EQUALITY BEFORE THE LAW

Is there equality before the law? At every stage of the judicial process -- facing the policeman, appearing in court, being freed on bond, being sentenced by the judge -- the poor person is treated worse than the rich, the black treated worse than the white, the politically or personally odd character is treated worse than the orthodox. The details are given in the 1963 report of the Attorney General's Committee on Poverty and the Administration of Federal Criminal Justice. There a defendant's poverty is shown to affect his preliminary hearing, his right to bail, the quality of his counsel. The evidence is plentiful in the daily newspapers, which inform us that a Negro boy fleeing the scene of a two-dollar theft may be shot and killed by a pursuing policeman, while a wealthy man who goes to South America after a million-dollar swindle, even if apprehended, need never fear a scratch. The wealthy price-fixer for General Motors, who costs consumers millions, will get ninety days in jail; the burglar of a liquor store will get five years. A Negro youth, or a bearded white youth poorly dressed, has much more chance of being clubbed by a policeman on the street than a well-dressed white man, given the fact that both respond with equal tartness to a question. . . .

Aside from inequality among citizens, there is inequality between the citizen and his government, when they face one another in a court of law. Take the matter of counsel: the well-trained government prosecutor faces the indigent's court-appointed counsel. Four of my students did a study of the City Court of Boston several years ago. They sat in the court for weeks, taking notes, and found that the average time spent by court-appointed counsel with his client, before arguing the case at the bench, was seven minutes.

5. DISTRIBUTION OF RESOURCES

Democracy is devoid of meaning if it does not include equal access to the available resources of the society. In India, democracy might still mean poverty in the United States, with a Gross National Product of $3 trillion a year' democracy should mean that every American, working a short work-week' has adequate food, clothing, shelter, health care, education for himself and his family -- in short, the material resources necessary to enjoy life and freedom. Even if only 20 percent of the American population is desperately poor ... in a country so rich, that is an inexcusable breach of the democratic principle. Even if there is a large, prosperous middle class, there is something grossly unfair in the wealthiest fifth of the population getting 40 percent of the nation's income, and the poorest fifth getting 5 percent (a ratio virtually unchanged from 1947 to 1980). . . .¹¹

Whether you are rich or poor determines the most fundamental facts about your life: whether you are cold in the winter while trying to sleep, whether you suffocate in the summer; whether you live among vermin or rats; whether the smells around you all day are sweet or foul; whether you have adequate medical care; whether you have good teeth; whether you can send your children to college; whether you can go on vacation or have to take an extra job at night; whether you can afford a divorce, or an abortion, or a wife, or another child. . . .

6. ACCESS TO EDUCATION

In a highly industrialized society, education is a crucial determinant of wealth, political power, social status, leisure, and the ability to work in one's chosen field. Educational resources in our society are not equitably distributed. Among high-school graduates of the some IQ levels, a far higher percentage of the well-to-do go on to college than the poor.12 A mediocre student with money can always go to college. A mediocre student without money may not be able to go, even to a state college, because he may have to work to support his family. Furthermore, the educational resources in the schools -- equipment, teachers, etc. -- are far superior in the wealthy suburbs than in the poor sections of the city, whether white or black.

7. FREEDOM OF EXPRESSION

Like money, freedom of expression is available to all in America, but in widely varying quantities. The First Amendment formally guarantees freedom of speech, press, assembly, and petition to all -- but certain realities of wealth, power, and status stand in the way of the equal distribution of these rights. Anyone can stand on a street corner and talk to ten or a hundred people. But someone with the resources to buy loudspeaker equipment, go through the necessary red tape, and post a bond with the city may hold a meeting downtown and reach a thousand or five thousand people. A person or a corporation with $100,000 can buy time on television and reach 10 million people. A rich person simply has much more freedom of speech than a poor person. The government has much more freedom of expression than a private individual, because the president can command the airwaves when he wishes, and reach 60 million people in one night.

Freedom of the press also is guaranteed to all. But the student selling an underground newspaper on the street with a nude woman on the cover may be arrested by a policeman, while the airport newsstand selling Playboy and ten magazines like it will remain safe. Anyone with $10,000 can put out a newspaper to reach a few thousand people. Anyone with $10 million can buy a few newspapers that will reach a few million people. Anyone who is penniless had better have a loud voice; and then he might be arrested for disturbing the peace.

8. FREEDOM FOR INDIVIDUALITY

The right to live one's life, in privacy and freedom, in whatever way one wants, so long as others are not harmed, should be a sacred principle in a democracy. But there are hundreds of laws, varying from state to state, and sometimes joined by federal laws, which regulate the personal lives of people in this country: their marriages, their divorces, their sexual relations. Furthermore, both laws and court decisions protect policemen and the FBI in their use of secret devices which listen in on private conversations, or peer in on private conduct.

9. THE SPIRIT OF COOPERATION

The maintenance of those substantive elements of democracy which I have just sketched, if dependent on a pervasive network of coercion, would cancel out much of the benefit of that democracy. Democracy needs rather to be sustained by a spirit in society, the tone and the values of the culture. I am speaking of something as elusive as a mood, alongside something as hard as law, both of which would have to substitute cooperation tinged with friendly competition for the fierce combat of our business culture. I am speaking of the underlying drive that keeps people going in the society. So long as that drive is for money and power, with no ceiling on either, so long as ruthlessness is built into the rules of the game, democracy does not have a chance. If there is one crucial cause in the failure of American democracy -- not the only one, of course, but a fundamental one -- it is the drive for corporate profit and the overwhelming influence of money in every aspect of our daily lives That is the uncontrolled libido of our society from which the rape of democratic values necessarily follows.

The manifestations are diverse and endless: the Kefauver hearings on the drug industry in 1961 disclosed that the drive for profit in that industry has led to incredible overpricing of drugs for consumers (700 percent markup, for instance, for tablets to arthritic patients) as well as bodily harm resulting from "the fact that they market so many of their failures."

It was disclosed in 1979 that Johns-Manville, the nation's largest asbestos manufacturer, had deliberately withheld from its workers X-ray results which showed they were developing cancer.¹³ The careless disposition of toxic wastes throughout the country and the repeated accidents at nuclear plants were testimony to the concern for corporate profit over human life.

If these were isolated cases, reported and then eliminated, they could be dismissed as unfortunate blemishes on an otherwise healthy social body. But the major allocations of resources in our society are made on the basis of money profit rather than social use. . . .

Recent news items buttress what I have said. The oil that polluted California's beautiful beaches in the 1960s . . . was produced by a system in which the oil companies' hunger for profit has far more weight than the ordinary person's need to swim in clean water. This is not to be attributed to Republicanism overriding the concern for the little fellow of the Democratic Party. Profit is master whichever party is in power; it was the liberal Secretary of the Interior Stewart Udall who allowed the dangerous drilling to go on. ...

In 1984, the suit of several thousand veterans against the Dow Chemical Company, claiming that they and their families had suffered terrible illnesses as a result of exposure in Vietnam to the poisonous chemical Agent Orange, was settled. The Dow corporation avoided the disclosures of thousands of documents in open court by agreeing to pay $180 million to the veterans. One thing seemed clear: the company had known that the defoliant used in Vietnam might be dangerous, but it held back the news, and blamed the government for ordering use of the chemical. The government itself, apparently wanting to shift blame to the corporation, declared publicly that Dow Chemical had been motivated in its actions by greed for profit.

10. OPPORTUNITY TO PROTEST

The first two elements in my list for democracy -- decision-making and information to help make them -- are procedural. The next six are substantive, dealing with the consequences of such procedures on life, liberty, and the pursuit of happiness. My ninth point, the one I have just discussed, shows how the money motive of our society corrupts both procedures and their consequences by its existence and suggests we need a different motive as a fundamental requisite of a democratic society. The point I am about to discuss is an ultimate requisite for democracy, a safety feature if nothing else -- neither procedures nor consequences nor motivation -- works. It is the right of citizens to break through the impasse of a legal and cultural structure, which sustains inequality, greed, and murder, to initiate processes for change. I am speaking of civil disobedience, which is an essential safeguard even in a successful society, and which is an absolute necessity in a society which is not going well.

If the institutional structure itself bars any change but the most picayune and grievances are serious, it is silly to insist that change must be mediated through the processes of that legal structure. In such a situation, dramatic expressions of protest and challenge are necessary to help change ways of thinking, to build up political power for drastic change. A society that calls itself democratic (whether accurately or not) must, as its ultimate safeguard, allow such acts of disobedience. If the government prohibits them (as we must expect from a government committed to the existent) then the members of a society concerned with democracy must not only defend such acts, but encourage them. Somewhere near the root of democratic thought is the theory of popular sovereignty, declaring that government and laws are instruments for certain ends, and are not to be deified with absolute obedience; they must constantly be checked by the citizenry, and challenged, opposed, even overthrown, if they become threats to fundamental rights.

Any abstract assessment of when disobedience is justified is pointless. Proper conclusions depend on empirical evidence about how bad things are at the moment, and how adequate are the institutional mechanisms for correcting them. . . .

One of these is the matter of race. The intolerable position of the black person, in both North and South, has traditionally been handled with a low muttered apologies and tokens of reform. Then the civil disobedience of militants in the South forced our attention on the most dramatic (southern) manifestations of racism in America. The massive black urban uprisings of 1967 and 1968 showed that nothing less than civil disobedience (for riots and uprisings go beyond that) could make the nation see that the race problem is an American -- not a southern -- problem and that it needs bold, revolutionary action.

As for poverty: it seems clear that the normal mechanisms of congressional pretense and presidential rhetoric are not going to change things very much. Acts of civil disobedience by the poor will be required, at the least, to make middle-class America take notice, to bring national decisions that begin to reallocate wealth.

The war in Vietnam showed that we could not depend on the normal processes of "law and order," of the election process, of letters to The Times, to stop a series of especially brutal acts against the Vietnamese and against our own sons. It took a nationwide storm of protest, including thousands of acts of civil disobedience (14,000 people were arrested in one day in 1971 in Washington, D.C.) to help bring the war to an end. The role of draft resistance in affecting Lyndon Johnson's 1968 decision not to escalate the war further is told in the Defense Department secret documents of that period. In the 1980s civil disobedience continues, with religious pacifists and others risking prison in order to protest the arms race and the plans for nuclear" war.

The great danger for American democracy is not from the protesters. That democracy is too poorly realized for us to consider critics -- even rebels -- as the chief problem. Its fulfillment requires us all, living in an ossified system which sustains too much killing and too much selfishness, to join the protest.

NOTES

1. Robert A. Dahl, A Preface to Democratic Theory (Chicago: University of Chicago Press, 1963), p.81.

2. Ibid., p. 124.

3. Ibid., p. 125.

4. Ibid., p. 131.

5. Ibid, pp. 131-32.

6. Thomas B. Edsall, The New Politics of Inequality (New York: Norton, 1984), p. 112.

7. Dahl, A Preface to Democratic Theory, p. 146.

8. Robert Wiebe, "The Confinements of Consensus," TriQuarterly (1966). Copyright by TriQuarterly 1966. All rights reserved.

9. New York Times. September 25, 1984.

10. The New York Times, reported November 5, 1983: "There is nothing in the documents, however, that specifically indicates that Cuba and the Soviet Union were on the verge of taking over Grenada, as Administration officials have suggested."

11. Edsall, The New Politics of Inequality, p. 221.

12. See the Carnegie Council on Children study, Small Futures, by Richard deLore (1979).

13. Los Angeles Times. May 3, 1979.