the questions of fact must be settled before we can go on with the
argument of policy. Before this country can intelligently make up its
mind about the protective tariff, and whether a certain rate of duty
should be imposed on a given article, a very complex body of facts
dealing with the cost of production both here and abroad must be
settled, and this can be done only by men highly trained in the
principles of business and political economy. Before one could vote
intelligently on the introduction of a commission form of government
into the town he lives in he must know the facts about the places in
which it has already been tried. It is not too much to say that there is
no disputed question of policy into which there does not enter the
necessity of looking up and settling pertinent facts.

On the other hand, there are some cases of questions of fact in which
our practical interests deeply affect the view which we take of the
facts. In all the discussions of the last few years about federal
supervision and control of the railroads it has been hard to get at the
facts because of the conflicting statements about them by equally honest
and well-informed men. Where there is an honest difference of interest,
as in every case of a bargain, the opposite sides cannot see the facts
in the same way: what is critically significant to the railroad manager
seems of no great consequence to the shipper; and the railroad manager
does not see the fixed laws of trade which make it impossible for the
shipper to pay higher freight rates and add them to the price of his
goods. It is not in human nature to see the whole cogency of facts that
make for the other side. In all arguments, therefore, it must be
remembered that we are; constantly swinging backward and forward from
matters of fact to matters of policy. In practice no hard-and-fast line
separates the various classes and types; in the arguments of real life
we mingle them naturally and unconsciously.