The Government of England Part 18

[Sidenote: Lay Chief with Expert Subordinate an English Usage.]

Leslie Stephen, I think, remarks somewhere that the characteristic feature of the English system of government is a justice of the peace who is a gentleman, with a clerk who knows the law; and certainly the relations.h.i.+p between the t.i.tular holder of a public post, enjoying the honours, and a.s.suming the responsibility, of office, and a subordinate, who, without attracting attention, supplies the technical knowledge and largely directs the conduct of his chief, extends throughout the English government from the Treasury Bench to the borough council. Perhaps, indeed, it is not altogether fanciful to attribute the ease with which the principle has become established in the national government to the fact that the members of Parliament, and the ministers as well, have been drawn in the past mainly from the same cla.s.s as the justices of the peace, and have brought with them to a larger sphere the traditions of the local magistrate.

[Sidenote: Influence of Permanent Officials in the Colonial Office.]

The extent of the control exerted in the national administration by the permanent officials is forcibly ill.u.s.trated by the history of the Colonial Office. My colleague, Professor Edward Channing, has pointed out to me that the records of the American colonies reveal how largely the Committee for Trade and Plantations was in the hands of Blathwayt, its secretary. In spite of all the violent political upheavals of the time that functionary retained his post without interruption from the latter part of the reign of Charles II. until some years after the revolution of 1688; and if a colony wanted anything done by the home government it was he that must be persuaded, sometimes by inducements of a pecuniary nature.

The power, but happily not the corruption, of the permanent officials in the Colonial Office can be traced still more clearly at a much later time. In 1839 Lord Durham, in his famous "Report on the Affairs of British North America," complains that owing to the repeated changes in the political chiefs of the Colonial Office, the real management of the colonies fell into the hands of "the permanent but utterly irresponsible members of the office"; and he quotes from a report made in the preceding year by a select committee of the a.s.sembly of Upper Canada, to show that this was felt by the colonists themselves as a grievance.[177:1] The group of English colonial reformers, with whom Lord Durham was a.s.sociated, held the same opinion. Gibbon Wakefield tells us, in his "View of the Art of Colonization" that "The great bulk, accordingly, of the labours of the office are performed, as the greater portion of its legislative and executive authority is necessarily wielded, by the permanent under-secretary and the superior clerks."[177:2] Wakefield and his school disapproved of the colonial policy of the day, and disliked cordially the permanent officials and their methods. "Our colonial system of government,"

Wakefield adds, "is the bureaucratic, spoiled by being grafted on to free inst.i.tutions."[178:1] He had a special aversion for Sir James Stephen--long the legal adviser, and afterwards permanent under-secretary, to the Colonial Office--whom he regarded as the archetype, if not the founder, of the cla.s.s of officials that had become the real arbiters of the destinies of the colonial empire.[178:2]

[Sidenote: Mr. Mothercountry.]

Wakefield quotes from Charles Buller's "Responsible Government for Colonies" (a work published in 1840, but at that time already out of print), an extract ent.i.tled "Mr. Mothercountry, of the Colonial Office."[178:3] Parliament, Buller declares, takes no interest in the colonies, and exercises no efficient control over the administration and legislation affecting them; and hence the supremacy of England really resides in the Colonial Office. But the Secretary of State holds a s.h.i.+fting position. Perplexed by the vast variety of questions presented to him, he is obliged at the outset to rely on one or other of the permanent officials, and the official who thus directs the action of the British government Buller calls "Mr. Mothercountry." He is familiar with every detail of his business, and handles with unfaltering hand the piles of papers at which his superiors quail. He knows the policy which previous actions render necessary; but he never appears to dictate. A new Secretary of State intends to be independent, but something turns up that obliges him to consult Mr. Mothercountry. He is pleased with the ready and un.o.btrusive advice which takes a great deal of trouble off his hands. If things go well, his confidence in Mr. Mothercountry rises. If badly, that official alone can get him out of the colonial or parliamentary sc.r.a.pe; and the more independent he is the more sc.r.a.pes he falls into. Buller goes on to point out the faults of Mr. Mothercountry; his love of routine, his tendency to follow precedent, his dislike of innovation, and his dread of being criticised.

[Sidenote: Memoirs of Colonial Officials.]

Any one, with even a slight knowledge of government offices in England, will recognise that the portrait of Mr. Mothercountry and his influence is hardly overdrawn, in cases where the political chief either holds his place for a short time, or is not a man of commanding ability. The impression of the critics of colonial administration is, indeed, strikingly reenforced in this respect by memoirs of the permanent officials themselves; although some allowance must, no doubt, be made for a natural overestimate of their own importance.[179:1] Sir Henry Taylor confided to the world in his autobiography a number of remarks that throw light on the internal working of the Colonial Office in the second quarter of the century. While never its permanent under-secretary, he was for a great many years a highly influential person there, as may be seen from the fact that early in his career he drew up, on his own judgment, a despatch recalling a governor, which the secretary signed.[179:2] Taylor tells us that Lords G.o.derich and Howick, who became the political chiefs of the Colonial Office in 1831, were "not more in pupilage than it is necessary and natural that men should be who are new to their work."[179:3] He says that when Lord Stanley was appointed Secretary of State, in 1833, he asked no advice from his subordinates, and a measure he prepared was blown into the air by the House of Commons; whereupon he had recourse to Mr. Stephen,[179:4] "who for so many years might better have been called the Colonial Department itself than the 'Counsel to the Colonial Department.'"[179:5] A little later he repeats this last statement, saying that while Lord Glenelg was Secretary "Stephen virtually ruled the Colonial Empire."[179:6] Taylor's own influence was shown when complaints were made of his administration of the West Indies. The House of Commons appointed a committee of inquiry, and the report of that committee, with the exception of the last few sentences, was entirely drawn up by Taylor himself.[180:1]

Sir Frederick Rogers (afterwards Lord Blachford), who was permanent under-secretary from 1860 to 1871, has left in his letters suggestive comments upon most of his political chiefs. The Duke of Newcastle, he says, is "very ready to accept your conclusions, very clear in his own directions, and extremely careful (which I respect very highly) never to throw back on a subordinate any shadow of responsibility for advice that he has once accepted."[180:2] "Cardwell," he remarks, "is happily absent, though not so much as I could wish";[180:3] and, finally, he writes that he likes Lord Granville, who "is very pleasant and friendly, and I think will not meddle beyond what is required to keep us clear of political slips."[180:4] Some people outside of the office evidently thought that the secretaries of state had not meddled overmuch, for George Higginbottom, afterwards Chief Justice of Victoria, once remarked in the a.s.sembly, "It might be said with perfect truth that the million and a half of Englishmen who inhabit these colonies, and who during the last fifteen years have believed they possessed self-government, have been really governed during the whole of that time by a person named Rogers";[180:5] and in the same vein Rees, in his "Life and Times of Sir George Grey," refers to Sir Robert Herbert (permanent under-secretary from 1871 to 1892) as the man who "controls the destinies of the Colonial Office."[180:6]

[Sidenote: Influence of Permanent Officials in Other Departments.]

With the growing interest in the empire, there has come a change; but until a very recent period the fact that British statesmen knew little of the subject, and did not care much more, no doubt made the power of the permanent officials peculiarly great in the Colonial Office.

Their influence, however, upon the policy of the government in the other departments, if less absolute, has nevertheless been very large.

This impression one obtains both from published doc.u.ments, and from private conversations, although the former alone can be cited as evidence. As far back as 1845 we find the Lord Lieutenant speaking of the permanent under-secretary as "the main-spring of your government in Ireland."[181:1] But more important than scattered statements of this kind is the information derived from the testimony taken by parliamentary committees of inquiry. One cannot read, for example, the evidence collected in 1900 by the Committee on Munic.i.p.al Trading[181:2]

without being convinced that not only the efficiency, but also in large measure the current policy, of the Board of Trade depended upon the permanent official at its head, and this is true of every branch of the administration.[181:3] Sir Lyon Playfair gave the reason for it when he said: "The secretary being a very busy man is very apt to take the advice of the clerk who has been looking over all the details and the correspondence before it comes to him."[182:1] A superior, indeed, lacking the time to become thoroughly familiar with the facts, must be to a great extent in the hands of a trusted subordinate who has them all at his fingers' ends. It is the common case of the layman and his confidential expert; and it must be observed in this connection that with exacting parliamentary and other duties, the cabinet ministers cannot devote all their time to the work of their departments.

[Sidenote: Theoretical Relation of Political and Permanent Heads.]

The theoretical relation between the political chief and his permanent subordinate is a simple one. The political chief furnishes the lay element in the concern. His function is to bring the administration into harmony with the general sense of the community and especially of Parliament. He must keep it in accord with the views of the majority in the House of Commons, and conversely he must defend it when criticised, and protect it against injury by any ill-considered action of the House.

He is also a critic charged with the duty of rooting out old abuses, correcting the tendency to red tape and routine, and preventing the department from going to sleep or falling into ruts; and, being at the head, it is for him, after weighing the opinion of the experts, to decide upon the general policy to be pursued. The permanent officials, on the other hand, are to give their advice upon the questions that arise, so as to enable the chief to reach a wise conclusion and keep him from falling into mistakes. When he has made his decision they are to carry it out; and they must keep the department running by doing the routine work. In short the chief lays down the general policy, while his subordinates give him the benefit of their advice, and attend to the details. It is easy enough to state a principle of this kind, but in practice it is very hard to draw the line. The work of a public department consists of a vast ma.s.s of administrative detail, the importance of which is not self-evident until some strain is brought to bear upon it; and all the acts done, however trifling in themselves, form precedents, which acc.u.mulate silently until they become as immovable as the rocks of the geologic strata. To know how far the opinion of an expert must be followed, and how far it may be overruled; to know what is really general policy, and what is mere detail; to know these things is the most valuable art in life. The capacity of an administrator on a large scale depends upon what he attends to himself, and what he commits to others. But the political chief of a department is so situated that it is difficult for him to determine what questions he will reserve for himself and what he will leave to his subordinates.

To understand why that is the case it is necessary to know something of the procedure in the government offices.

[Sidenote: Procedure in the Public Departments.]

The method of doing business in a public office is of necessity more elaborate than in a private concern. There is more responsibility for the work done; more subjection to public criticism in small matters; and a stronger obligation to treat every one alike, which means a more strict adherence to precedent. All this entails a complicated machinery that is less needed in private business, where a man can say that if he makes a mistake the loss falls upon himself and is no other person's affair. In a public office, therefore, more writing is done, more things are preserved and recorded, than in a private business, and there are more steps in a single transaction.[183:1] Now although the procedure in the English departments varies somewhat in detail, the general practice is much the same throughout the public service.

When a minister wishes to prepare a measure for Parliament, or to make any change in administrative policy, he consults the permanent under-secretary and any other officials especially familiar with the subject; if, indeed, the matter has not been suggested to him by them.

He weighs their advice, and states his conclusion to the permanent under-secretary, who in turn gives his directions to the proper subordinates for carrying it into effect. In such a case the procedure is obvious; but by far the greater part of the action in the central offices begins at the other end, and comes from the contact of the government with the public, or from questions that arise in the course of administration. When anything of this kind occurs, whether it be in the form of a despatch, a pet.i.tion, a complaint, a request for instructions, or a communication of any sort, it is sent by the official charged with the opening of correspondence to the princ.i.p.al, or senior, clerk within whose province it falls. The senior clerk intrusts it to one of the junior first-cla.s.s clerks in his division. He examines the paper, and unless it is of such a purely routine character that he feels authorised to dispose of it, he affixes to it a minute or memorandum, which gives a history of the matter, the precedents in similar cases, and any other information that may a.s.sist his superiors in reaching a decision, commonly adding a suggestion of the course to be pursued. The paper then goes back to the senior clerk, who inspects it, and if the question is of small consequence approves the minute or directs a different disposition, subscribing his initials. If the affair is more weighty, he adds his own comments in the form of a second minute, and transmits the paper to the permanent under-secretary.[184:1] That officer, as the permanent head of the department, gives the final directions,[184:2] and returns the paper, unless the matter is of great importance, or involves a new question of policy, or is likely to give rise to discussion in Parliament, when he submits it to his political chief with a further minute of his own.[184:3]

[Sidenote: Each Official a Reader for his Superior.]

Each permanent official thus performs a double service for his immediate superior. He collects all the material that bears upon a question, presenting it in such a form that a decision can be readily and quickly made; and he acts to a certain extent as a reader, examining a ma.s.s of papers that the superior would be quite unable to go through, and making up his own mind how far they contain anything that requires his chief's attention.[185:1] This system runs throughout the department, from the junior first-cla.s.s clerks to the parliamentary head, each official deciding what he will submit to his superior; in the same way that the minister himself determines what matters he will settle on his own authority, and what he had better lay before the cabinet. No doubt a subordinate in undertaking to decide a question occasionally makes a mistake for which the minister must a.s.sume the responsibility; but that is not a serious danger. The besetting sin of bureaucracy is the tendency to refer too much to a higher authority, which cannot become familiar with the facts of each case, and finds its only refuge in clinging to hard and fast rules. It is fortunate, therefore, that the growth in the machinery of central administration in England has been accompanied by greater deconcentration within the departments.[185:2] The process has not been without effect on the position of the permanent under-secretary. By relieving him of detail it has made him more free to devote his attention to general policy; and, in fact, a departmental committee reported a few years ago that he ought "to divest himself of all but the most important matters in which the application of a new principle is involved." No question, the report continued, ought to reach him until it has been threshed out by the responsible head of a division, and is ripe for decision. "The permanent secretary should be able to devote himself to such work as conferring with and advising his Parliamentary chiefs, framing or elaborating proposals for new legislation or administrative reform, considering all questions in Parliament, receiving members of Parliament, or representatives of the Public on questions of difficulty, and generally controlling and directing the conduct of the Department."[186:1]

[Sidenote: Differences between the Departments.]

The point to which deconcentration is carried is not the same in all branches of the public service. Mr. Gladstone declared that the Chancellor of the Exchequer could not take as active a part as other ministers in the current business of his department;[186:2] while in the Foreign Office, on the other hand, it has been the tradition that the Secretary of State ought to see almost everything. No doubt this is in part due to the very nature of diplomatic relations, but there can also be no doubt that in the past it has been carried much too far. When Mr.

Hammond was under-secretary for foreign affairs he insisted on making the first minute on all papers in the office.[186:3] A change has been made in this respect, and the practice brought more into accord with that which prevails in other departments;[186:4] but the Foreign Secretary is still expected to give his personal attention to a greater ma.s.s of detail than other ministers.[186:5]

[Sidenote: Effect of the Procedure on the Power of Officials.]

Now any subordinate who determines what questions he may decide himself, and what he will refer to his superiors, and who prepares the materials for a final judgment in the cases that he does refer, is certain to exert a great deal of influence. The permanent under-secretary, holding his position, as he does, for an indefinite period, devoting his whole time to the work, and becoming thoroughly familiar with the affairs of his department, can, no doubt, regulate the cla.s.s of questions that shall be referred to him, and can acquire complete control over the administration. But the minister, who is usually unfamiliar with the department to which he is a.s.signed, who remains at its head a comparatively short time, and whose attention is largely engrossed by the more exciting scenes enacted in the cabinet, in Parliament, and on the platform, must, unless gifted with extraordinary executive capacity, be to a considerable extent in the hands of his permanent subordinates.

[Sidenote: Need of Mutual Confidence between Political and Permanent Heads.]

The smooth working of a system of this kind evidently depends upon the existence of mutual respect and confidence between the minister and the permanent under-secretary. If the minister, knowing that the under-secretary does not share his own political views, fails to treat him with perfect frankness, or if, after one party has been long in power, the permanent officials have little sympathy with a new ministry from the other party, and do not give it their active and cordial help, then mistakes are certain to be made, the efficiency of the service suffers, and the plans of the government are likely to miscarry. The permanent under-secretary ought to feel, and in fact does feel, a temporary allegiance to his chief, although of a different political party. He gives his advice frankly until the chief has reached a decision, and then he carries that out loyally. Confidential communications--and they are numberless--he treats as sacred even from the next parliamentary chief. If one minister prepares a measure which never sees the light, the permanent under-secretary might refuse to show the doc.u.ments to the succeeding minister, and the latter would recognise the propriety of such a course. The minister on his part seeks the advice of the under-secretary on all questions that arise, making allowance for bias due to preconceived political or personal conviction. This does not mean that if a government comes into power pledged to a definite policy, such as Home Rule or a preferential tariff, the under-secretary would be consulted about the general principle. In a case of that kind the policy has been settled in Parliament or by a general election, and the advice of the permanent officials would be limited to the details of the measure proposed.

The system has, of course, its limits. There are cases where the known opinions of the under-secretary would make it almost impossible for him to conduct a certain policy effectively. When the Conservatives, for example, came into office in 1895 with a policy of coercion for Ireland, they found as permanent Irish under-secretary Sir Robert Hamilton, who was known to be a strong Home Ruler, and believing that it would be very difficult for them to govern the country through his agency, they promoted him out of the way; such cases must sometimes occur, but they are extremely rare. It is, indeed, astonis.h.i.+ng how far the system can be carried; to what an extent an under-secretary can act as the loyal adviser and administrator for chiefs of totally different political opinions.

[Sidenote: Actual Relation Depends on Personality.]

The actual relations between the minister and the permanent under-secretary depend in any particular case very much upon the personality of the men. Peel and Gladstone, for example, maintained a close supervision and control over the departments under their charge, while John Bright felt that his real field of usefulness was in the House of Commons, and left the affairs of the Board of Trade almost altogether in the hands of the permanent officials. The system naturally works at its best when minister and under-secretary are both strong, good-tempered men, when each is active, but recognises clearly the province of the other. The saying has become almost proverbial that the most valuable minister is one who knows nothing about his department when appointed, and like most paradoxes it contains a distorted truth. A good minister must be a good administrator, but he must look to results, and not suppose that he knows as much about the technical side of the work as his permanent subordinate. For, as Bagehot quotes Sir George Cornwall Lewis, "It is not the business of a Cabinet Minister to work his department. His business is to see that it is properly worked."[189:1] If he attempts to go beyond his province, to be dogmatic and to interfere in details, he will cause friction and probably come to grief.

[Sidenote: Methods of Controlling a Minister.]

The permanent officials have, indeed, several means of controlling a minister who ventures to disregard them. They have been heard to say that a fool, if given rope enough, will hang himself. If he does not care for their advice they need not tender it, and then he is sure to make mistakes for which he alone will be held responsible. If, on the other hand, he tries, with the best intentions, to go too much into detail, nothing is easier than the trick, familiar, probably, to every bureaucracy, of overwhelming him with detail. He wishes to decide questions himself. The papers bearing upon them are brought to him in ever-increasing piles, until he finds himself hopelessly unable to cope with the ma.s.s of doc.u.ments, and virtually surrenders at discretion. Then there are the means of control arising from the audit of accounts and from questions in Parliament. The permanent under-secretary points out to his chief that an expenditure he proposes is likely to be disallowed by the auditor, or that an action he suggests may very well give rise to an embarra.s.sing question in the House of Commons, and to these things a minister is highly sensitive. Questions afford, indeed, a means of mutual control, for the permanent officials are usually far more afraid of the House of Commons than the minister is himself, and tend to be reticent in preparing answers.

The Treasury Bench is not so omniscient as it appears when answering questions in the House. After notice of a question has been given, the materials for a reply are prepared, and often the answer itself is drawn up, by some permanent official in the department. Sometimes the minister merely reads the answer as it has been placed in his hands, but more commonly while keeping the substance, he puts it into words of his own that he thinks better suited to the temper of the House. The labour of working up the answers to innumerable questions on every conceivable subject, and of every degree of importance and triviality, is in the aggregate very great, and places a heavy burden upon the permanent officials during the session of Parliament. But no satisfactory method of limiting the privilege has yet been devised, and although abused, it has the effect of keeping the administration up to the mark. The system affords an opportunity for constant public criticism, and while it gives the permanent officials some control over the minister, it is, on the other hand, a most effective means of preventing the growth of a bureaucratic spirit.

[Sidenote: Evils where a Minister is Inactive.]

If the permanent officials can restrain a minister from interfering overmuch, there is no similar means of preventing him from neglecting his duties. Yet in that case the service suffers. It is apt to become numbed and bureaucratic. Permanent officials tend to follow precedent, and, indeed, the force of precedent furnishes the basis of their power, but the tendency to be too rigid in their rules is the curse of all their tribe. They shrink from innovation, rarely making a new precedent themselves. This is particularly true in the lesser offices, giving rise, at times, to complaint; and the political chief has to insist upon the need of making exceptions in hard cases, without allowing the hard cases themselves to make bad law. The surest remedy for an excess of routine is a parliamentary head who is interested in the department, and with him a permanent under-secretary of large calibre and wide experience in affairs.

[Sidenote: Influence of Permanent Officials not Increasing.]

Speaking in 1884 about the Reform Bill then pending, Sir Stafford Northcote predicted that an extension of the franchise would increase the power of the permanent officials;[191:1] and many people think that the prophecy has been fulfilled. But this would seem to be one of the cases where an impression is due not so much to a real change of conditions, as to the fact that a state of things already existing has become recognised. The power of the civil service has undoubtedly grown very much within the last hundred years; owing partly to the fact that the ministers, instead of being primarily administrators, have become legislators, engrossed by the work of Parliament and by general politics; partly to the much shorter periods for which they hold office.

During the one hundred and two years from 1721 to 1823 there were nineteen chancellors of the exchequer; of whom five held office for more than ten years apiece, the aggregate length of their services being seventy-eight years. In the eighty-two years from 1823 to 1905, twenty-three men held the office, one of them for thirteen years, another for nine, and no one else for more than about six years. The effect of such a shortening of the minister's tenure of office upon the position of his permanent subordinates is self-evident. But the present conditions of political life have now existed with little change for a generation; and, in the opinion of men well qualified to form a judgment, the power of the permanent officials, while varying from time to time with the personnel of the ministry, has not of late years shown any general tendency to increase.

[Sidenote: Self-Effacement of the Civil Servants.]

Although the civil servant enjoys a great deal of the substance of power, yet he purports to act only under the directions of his political chief. Sir Stafford Northcote was admonished early in his career by Mr.

Gladstone "that references from the Opposition Bench to opinions of the permanent officers of Government, in contradiction to the opinion of the Minister who is responsible in the matter at issue, were contrary to rule and to convenience."[192:1] If this were not so the principle of ministerial responsibility could hardly be maintained. The minister is alone responsible for everything done in his department, and he receives all the credit and all the blame. The civil servant never talks in public about the policy of his department,[192:2] never claims anything done there as his own work; and, on the other hand, the minister ought not to attribute blunders or misconduct to a subordinate unless prepared at the same time to announce his discharge. This rule is not, indeed, always observed in the military services, for within a few years the House of Lords has heard the late Secretary of State for War and the Commander-in-Chief charge each other with the responsibility for the lack of preparation in South Africa;[192:3] and in 1901 the First Lord of the Admiralty in the House of Lords laid the blame for the capsizing of the royal yacht at her launching upon the naval constructor, while praising, at the same time, his skill in designing battles.h.i.+ps.[192:4]

In the civil services the principle has been, as a rule, very strictly followed; although here, also, in the case of Sir Antony MacDonnell, the under-secretary to the Lord Lieutenant of Ireland, an exception occurred which caused no small stir at the time.[192:5] Nor is the responsibility of the minister merely formal and conventional, for the mistakes of the officials in his department go into the great balance of good and evil report, whereby the reputation of the cabinet is made, and its fate at the next election is determined. In short, the permanent official, like the King, can do no wrong. Both are s.h.i.+elded by the responsibility of the minister, and in fact it may happen that a policy adopted, let us say by the Foreign Office, which is popularly attributed to the personal wishes of the King, is in reality the work of some permanent subordinate.

Fifty years ago the public was not aware of the power of the civil servants, and Parliament, regarding them as clerks, paid little attention to them. But now that their importance has come to be understood there is, in the opinion of some of their own members, a danger that they will be made too prominent, that the screen which protects them from the public gaze will be partly drawn aside, and that they will thereby lose their complete irresponsibility, and with it their permanence and their non-political character. Whether such a danger will prove serious is at present only a matter for conjecture.

[Sidenote: Honours Conferred upon Civil Servants.]

While the permanent official can win no credit for particular acts, a life of exceptional service does not pa.s.s unrecognised. Sir Robert Peel, who appreciated their importance, lamented that honours were not conferred upon them more freely.[194:1] Such a complaint could hardly be made to-day, for a number of them are knighted every year, and occasionally a permanent under-secretary, on retiring from office, is even raised to the peerage. In spite of self-effacement, therefore, the career of a permanent official is honourable and attractive. If he is debarred from the excitement and the glory of the political arena, he is spared its hazards, its vexations, and its disappointments. He wields great power, takes a real part in shaping the destinies of the nation, and if capable and fortunate he may end his days in the subdued l.u.s.tre of the House of Lords.

FOOTNOTES:

[174:1] _Cf._ Gneist, "Self-Government in England," 3 Auf., 196-97.

[174:2] Blackstone, Bk. I., 351.