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8 WOMAN AND DEMOCRACY. it is not necessary that he should; for most questions, so far as the voter is concerned, demand only a small amount of fairness and honesty upon his part to do all that he can do. He must insist upon public honesty and good character and as much intelligence as possible in public men, and for the rest, except in the most obvious matters, he has to leave the decisions to the legislators themselves. And even among the legislators very few are entitled to any opinion on most of the questions they decide. The work has to be distributed among committees, which are supposed to contain some experts on the matter in question, and there is where the decisions are really made. The experts instruct the committee.