"The severest test of democratic institutions is experienced when the attempt is made to establish a policy which shall guard the interests of the future at the expense of the demands and needs of the present. Democracy produces attitudes and characteristics of the people which are inimical to stable economic arrangements looking to the future, such as are implied in a forest policy. The vast country with an unevenly distributed and heterogeneous population presents the greatest variety of natural, as well as of economic conditions; the immediate interests of one section naturally do not coincide with those of other sections; particularistic and individualistic tendencies of the true democrat are antagonistic to anything which smacks of "paternalism," the attitude under which alone a persistent, farsighted policy can thrive. Frequent change of administration, or at least the threat of such change, impedes consistent execution of plans; fickle public opinion may subvert at any time well laid plans which take time in maturing; the true democratic doctrine of restricting State activity to police functions, and the doctrine of non-interference with private rights, as well as the idea of State rights in opposition to federal power and authority—all these characteristics of a democratic government are impediments to a concerted action and stable policy."