day, state what were the grievances and ideas—or were thought to be the grievances and ideas-of the working classes. It was the single, unbending franchise introduced in 1832 that has caused this difficulty, as it has others.

Until such a change is made the House of Commons will be defective, just as the House of Lords was defective. It will not look right. As long as the Lords do not come to their own House, we may prove on paper that it is a good revising chamber, but it will be difficult to make the literary argument felt. Just so, as long as a great class, congregated in political localities, and known to have political thoughts and wishes, is without notorious and palpable advocates in Parliament, we may prove on paper that our representation is adequate, but the world will not believe it. There is a saying of the eighteenth century, that in politics "gross appearances are great realities." It is in vain to demonstrate that the working classes have no grievances; that the middle classes have done all that is possible for them, and so on with a crowd of arguments which I need not repeat, for the newspapers keep them in type, and we can say them by heart. But so long as the "gross appearance" is that there are no evident, incessant representatives to speak the wants of artizans, the "great reality" will be a diffused dissatisfaction. Thirty years ago it was vain to prove that Gatton and Old Sarum were valuable seats, and sent good members. Everybody said, "Why, there are no people there." Just so everybody must say now, "Our representative system must be imperfect, for an immense class has no members to speak for it." The only answer to the cry against con

power

stituencies without inhabitants was to transfer their to constituencies with inhabitants. Just so, the way to stop the complaint that artizans have no members is to give them members,-to create a body of representatives, chosen by artizans, believing, as Mr. Carlyle would say, “that artizanism is the one thing needful.”

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No. VI.

ON CHANGES OF MINISTRY.

THERE is one error as to the English Constitution which crops-up periodically. Circumstances which often, though irregularly, occur naturally suggest that error, and as surely as they happen it revives. The relation of Parliament, and especially of the House of Commons, to the Executive Government is the specific peculiarity of our constitution, and an event which frequently happens much puzzles some people as to it.

That event is a change of ministry. All our administrators go out together. The whole executive government changes--at least, all the heads of it change in a body, and at every such change some speculators are sure to exclaim that such a habit is foolish. They say, 'No doubt Mr. Gladstone and Lord Russell may have been wrong about Reform; no doubt Mr. Gladstone may have been cross in the House of Commons; but why should either or both of these events change all the heads of all our practical departments? What could be more absurd than what happened in 1858? Lord Palmerston was for once in his life over-buoyant; he gave rude answers to stupid inquiries; he brought into the Cabinet a nobleman

concerned in an ugly trial about a woman; he, or his Foreign Secretary, did not answer a French despatch by a despatch, but told our ambassador to reply orally. And because of these trifles, or at any rate, these isolated unadministrative mistakes, all our administration had fresh heads. The Poor Law Board had a new chief, the Home Department a new chief, the Public Works a new chief. Surely this was absurd." Now, is this objection good or bad? Speaking generally, is it wise so to change all our rulers?

The practice produces three great evils. First, it brings in on a sudden new persons and untried persons to preside over our policy. A little while ago Lord Cranborne* had no more idea that he would now be Indian Secretary than that he would be a bill broker. He had never given any attention to Indian affairs; he can get them up, because he is an able educated man who can get up anything. But they are not "part and parcel" of his mind; not his subjects of familiar reflection, nor things of which he thinks by predilection, of which he cannot help thinking. But because Lord Russell and Mr. Gladstone did not please the House of Commons about Reform, there he is. A perfectly inexperienced man, so far as Indian affairs go, rules all our Indian empire. And if all our heads of offices change together, so very frequently it must be. If twenty offices are vacant at once, there are almost never twenty tried, competent, clever men ready to take them. The difficulty of making up a government is very much

*Now Lord Salisbury, who, when this was written was Indian Secretary. -Note to second edition.

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like the difficulty of putting together a Chinese puzzle: the spaces do not suit what you have to put into them. And the difficulty of matching a ministry is more than that of fitting a puzzle, because the ministers to be put in can object, though the bits of a puzzle cannot. One objector can throw out the combination. In 1847 Lord Grey would not join Lord John Russell's projected government if Lord Palmerston was to be Foreign Secretary; Lord Palmerston would be Foreign Secretary, and so the government was not formed. The cases in which a single refusal prevents a government are rare, and there must be many concurrent circumstances to make it effectual. But the cases in which refusals impair or spoil a government are very common. It almost never happens that the ministry-maker can put into his offices exactly whom he would like; a number of placemen are always too proud, too eager, or too obstinate to go just where they should.

Again, this system not only makes new ministers ignorant, but keeps present ministers indifferent. A man cannot feel the same interest that he might in his work if he knows that by events over which he has no control, -by errors in which he had no share,—by metamorphoses of opinion which belong to a different sequence of phenomena, he may have to leave that work in the middle, and may very likely never return to it. The new man put into a fresh office ought to have the best motive to learn his task thoroughly, but, in fact, in England, he has not at all the best motive. The last wave of party and politics brought him there, the next may take him away. Young and eager men take, even at this disadvantage, a