Since the last decade has witnessed an unparalleled outlay of energy in discussing public opinion, and in inventing devices intended to add precision to the discussion, it is not untimely to take stock of our present position in the matter. If this paper can be said to support a single thesis, it is that the problem of measurement can be considered most profitably in relation to a set of nuclear concepts about public opinion. To measure is to render more precise; measuring efforts which undertake to render faulty concepts more precise are foreordained to be more precisely faulty. I shall begin by passing certain general conceptions in review, and we shall see whether the upshot warrants us in believing that we shall thereby achieve a sounder view of the measurement problem.

Political changes come to pass by unreflecting innovation, by private planning and adjustment, and by acts which involve the attention of many people at some stage of their elaboration. Much of the etiquette of public administration has come into being without anyone taking thought of it. Much has been devised by a single person, who quietly transmitted his innovation to a limited circle, and ensured its permanence. But some of the features of political life have a more extended history. Men have argued, and even bled, for national independence, for the extension of the franchise, for the devolution of authority, for the qualified independence of the judiciary.