The substitution of conflicts is the most devastating kind of political strategy. Alliances are formed and re-formed; fortresses, positions, alignments and combinations are destroyed or abandoned in a tremendous shuffle of forces redeployed to defend new positions or to take new strong points. In politics the most catastrophic force in the world is the power of irrelevance which transmutes one conflict into another and turns all existing alignments inside out.

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Democracy has no place for the kind of justice implied in an eye for an eye and a tooth for a tooth. Democracy is a system for the resolution of conflict, not for vengeance. Simple black-white notions of right and wrong do not fit into democratic politics. Political controversies result from the fact that the issues are complex, and men may properly have differences of opinion about them. The most terrible of all over-simplifications is the notion that politics is a contest between good people and bad people. Democracy is based on a profound insight into human nature, the realization that all men are sinful, all are imperfect, all are prejudiced, and none knows the whole truth. That is why we need liberty and why we have an obligation to hear all men. Liberty gives us a chance to learn from other people, to become aware of our own limitations, and to correct our bias. Even when we disagree with other people we like to think that they speak from good motives, and while we realize that all men are limited, we do not let ourselves imagine that any man is bad. Democracy is a political system for people who are not sure that they are right.

If we are able, therefore, to distinguish between public and private interests and between organized and unorganized groups we have marked out the major boundaries of the subject; we have given the subject shape and scope. We are now in a position to attempt to define the area we want to explore. Having cut the pie into four pieces, we can now appropriate the piece we want and leave the rest to someone else. For a multitude of reasons the most likely field of study is that of the organized, special-interest groups. The advantage of concentrating on organized groups is that they are known, identifiable and recognizable.

What is government? From the outside it looks like a security system based on the marriage of land and people, From the inside, it looks like and attempts to create a community. A government is like an oyster, hard on the outside and soft on the inside, and the outside and inside are utterly dependent on each other.

Most of the organizational problems of the parties are unique. The party system is by a wide margin the largest mobilization of people in the country. The parties lack many of the qualities of smaller organizations, but they have one overwhelming asset of their own. They are the only organizations that can win elections.

Political conflict is not like an intercollegiate debate in which the opponents agree in advance on a definition of the issues. As a matter of fact, the definition of the alternatives is the supreme instrument of power; the antagonists can rarely agree on what the issues are because power is involved in the definition.