The reason why men enter into society, is the preservation of their property; and the end why they chuse and authorize a legislative, is, that there may be laws made, and rules set, as guards and fences to the properties of all the members of the society, to limit the power, and moderate the dominion, of every part and member of the society: for since it can never be supposed to be the will of the society, that the legislative should have a power to destroy that which every one designs to secure, by entering into society, and for which the people submitted themselves to legislators of their own making; whenever the legislators endeavour to take away, and destroy the property of the people, or to reduce them to slavery under arbitrary power, they put themselves into a state of war with the people, who are thereupon absolved from any farther obedience, and are left to the common refuge, which God hath provided for all men, against force and violence. Whensoever therefore the legislative shall transgress this fundamental rule of society; and either by ambition, fear, folly or corruption, endeavour to grasp themselves, or put into the hands of any other, an absolute power over the lives, liberties, and estates of the people; by this breach of trust they forfeitthe power the people had put into their hands for quite contrary ends, and it devolves to the people, who have a right to resume their original liberty, and, by the establishment of a new legislative, (such as they shall think fit) provide for their own safety and security, which is the end for which they are in society. What I have said here, concerning the legislative in general, holds true also concerning the supreme executor, who having a double trust put in him, both to have a part in the legislative, and the supreme execution of the law, acts against both, when he goes about to set up his own arbitrary will as the law of the society. He acts also contrary to his trust, when he either employs the force, treasure, and offices of the society, to corrupt the representatives, and gain them to his purposes; or openly pre-engages the electors, and prescribes to their choice, such, whom he has, by sollicitations, threats, promises, or otherwise, won to his designs; and employs them to bring in such, who have promised before-hand what to vote, and what to enact. Thus to regulate candidates and electors, and new-model the ways of election, what is it but to cut up the government by the roots, and poison the very fountain of public security? for the people having reserved to themselves the choice of their representatives, as the fence to their properties, could do it for no other end, but that they might always be freely chosen, and so chosen, freely act, and advise, as the necessity of the common-wealth, and the public good should, upon examination, and mature debate, be judged to require. This, those who give their votes before they hear the debate, and have weighed the reasons on all sides, are not capable of doing. To prepare such an assembly as this, and endeavour to set up the declared abettors of his own will, for the true representatives of the people, and the law-makers of the society, is certainly as great a breach of trust, and as perfect a declaration of a design to subvert the government, as is possible to be met with. To which, if one shall add rewards and punishments visibly employed to the same end, and all the arts of perverted law made use of, to take off and destroy all that stand in the way of such a design, and will not comply and consent to betray the liberties of their country, it will be past doubt what is doing. What power they ought to have in the society, who thus employ it contrary to the trust went along with it in its first institution, is easy to determine; and one cannot but see, that he, who has once attempted any such thing as this, cannot any longer be trusted.--John Locke Second Treatise, §. 222 [emphasis in original.]
A natural way to read Locke's political philosophy is to see him as advocating an account of authority in terms of accountability. When leaders violate the citizens' trust, they forfeit their authority. This forfeiture has, what I'll call an 'objective' and 'subjective' element. The subjective element concerns the populace's view(s) to what degree they have, in fact, consented, explicitly or tacitly, to a particular policy or end. The objective element concerns the function, even intelligibility, of authority such that some decisions (e.g., ones that "take away, and destroy the property of the people, or to reduce them to slavery under arbitrary power,") are, as it were de jure, self-undermining of any authority (even if people or some sub-set of the people de facto acquiesces in them for various reasons). Obviously a lot of interesting issues arise from the possible discrepancy between these objective and subjective elements and from dissension among the people. But let's grant that this is a stable position.
Now, in a very interesting article on "Locke and Trust," Thomas Simpson calls attention to the paragraph quoted above. In particular, he notes the significance of the "double trust" a phrase I had -- despite the allusion to a famous passage in Macbeth -- never noted before. Now, Locke clearly implies there are is "also" a third kind of trust, namely that, within a division of powers, the executive allows the legislative representatives of the people to do their job independently from the executive's untoward influence (violence, bribes, and promises of jobs for the representatives, ["the force, treasure, and offices of the society"] etc. The ability to exercise such untoward influence is (to recall Stasevage's important point) the difference between a parliament that can exercise oversight (Holland), and so preserve freedoms, and one that ends up facilitating absolutist government (Spain).
Now, in calling for the significance of this third kind of trust. Locke is not casting aspersion on legislative horse-trading, where the government promises financial goodies to a representative's district in return for votes, etc. But obviously the dividing line between horse-trading and violations of trust can be a fine one. This is so, even when 'corruption' is defined/understood strictly in terms of the financial gain(s) of the particular representative.
To see why, note that the 'trust' of the legislative member is akin to what we would call a 'trusteeship.' I want to distinguish such trusteeship-trust from the two standard forms of trust (what follows is indebted to Simpson, but I am not doing justice to his subtlety): first, one can understand trust as a (defeasible) moral relationship such that violations of trust generate anger/resentment. Second, one can understand trust as a pragmatic relationship to help solve coordination or signaling problems such that violations of trust lead to surprise (expectations are violated) or (risk adjusted) loss. The two understandings are compatible, of course, but, to simplify, the former is beloved by philosophers and the latter by economists. Perhaps, the philosophers like trust for its moral benefits/relationships it engenders, and the economists for its epistemic (or economic) benefits, but this may be a simplification too far.
The significance of the idea of a representative is introduced by Locke, in the context of articulating a possible objection by somebody sympathetic to Filmer, that Adam can be thought of as (what we might call) a representative agent ("Adam, but in him, as their representative," First Treatise, §. 45). But it is not explored in the First Treatise, and not mentioned at the start of the Second. But he (re-)introduces the idea in §88 of the Second, where he explains the origin of the legislative power in terms of its function as supplying the representative judgment of a citizen.* That is to say, the legislative has a delegated authority to judge, as it were, the way the citizen would have judged in light of similar circumstances. Obviously, even in relatively narrow cases, this raises very tricky issues the nature of such delegation and judgment. In fact, later, Locke adds features to, and thereby widens, the legislative's tasks: they also supply the delegated consent for the raising of taxes (§140), any "standing laws" (§192), and, in the passage quoted at the top of this post,"the necessity of the common-wealth, and the public good." (In my view Locke's "public good" goes well beyond what Locke's contemporary libertarian admirers tend to have in mind.)
So, in my view, a Lockean representative is often called upon, even required, to articulate judgments (after "mature debate") about matters that go beyond the obvious or known even knowable interests of his/her constituents, but fall squarely within the (contestable) common good of society. Her role, then, is to act as a trustee for her constituents and to exercise good judgment. Locke makes the analogy with a trustee explicit not far after the passage I have just quoted: "The people shall be judge; for who shall be judge whether his trustee or deputy acts well, and according to the trust reposed in him, but he who deputes him, and must, by having deputed him, have still a power to discard him, when he fails in his trust?" (§240) If the exercise of this judgment is not self-undermining (in the de jure way noted above) it's authoritative. This is so, even if citizens vote out the representative in the next election.+
For the trustee model of trust to work it requires, in addition to good judgment, good faith on the part of the legislator. The problem is that ordinary horse-trading distorts both. (Incentives matter, after all.) Obviously, sometimes horse-trading actually benefits the representative's particular constituents along one dimension (the one in which he is acting as representative of their economic interests), but by hurting the common good it damages them along another (the one in which he is acting as their trustee for the common good).** So, horse-trading may well be a source of corruption of judgment (even if the representative never enriches himself).
Now, to wrap up, violations of a trustee's delegated trust can be moral, epistemic, and signaling violations. But the way to understand them is in terms of violations of responsibility, in particular, a duty of care. When one is entitled to care, and does not receive it, one is liable to feel unprotected.
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