The Government of England Part 54

Even in the counties the voters were so much under the personal lead of the landowners that party machinery would have been superfluous. A few of the large boroughs had, indeed, an extended franchise and a wide electorate. Most notable among them was Westminster, and here a real political organisation for the election of members to Parliament existed for some years before the great reform. It was, however, conducted in the interest neither of the Whigs, nor of the Tories, but of Radical Reformers, who were truly independent of both parties.[466:2]

[Sidenote: Their Origin.]

With the extension of the franchise a change began in the political status of the voters. In many const.i.tuencies it was no longer enough to secure the support of a few influential persons; and the winning of a seat by either party depended upon getting as many of its adherents as possible upon the voting lists. The watchword of the new era was given by Sir Robert Peel in his celebrated advice to the electors of Tamworth in 1841, "Register, register, register!" It was the more important for the parties to take the matter in hand, because disputes about the complex electoral qualifications, instead of being settled on the initiative of the state, were left to be fought out before the revising barrister by the voters themselves, who were apt to be very negligent unless some one made a systematic effort to set them in motion. It was not less necessary for the parties to keep the matter constantly in hand, because, the duration of Parliament being uncertain, it could not be put off until shortly before the election. The lists must be kept always full in view of a possible dissolution. Often the work was done on behalf of the sitting member or the prospective candidate by his agent on the spot, without any formal organisation. But this was not always true, and, in fact, the Reform Bill was no sooner enacted than local registration societies began to be formed, which for some years increased rapidly in number among both Liberals and Conservatives.[467:1]

[Sidenote: Their Early Objects.]

The primary object of the registration societies was to get the names of their partisans on to the lists, and keep those of their opponents off; and they are said to have done it with more zeal than fairness, often with unjust results, for any claim or objection, though really ill-founded, was likely to be allowed by the revising barrister if unopposed.[468:1] From registration a natural step led to canva.s.sing at election time; that is, seeking the voters in their own homes; persuading the doubtful; when possible, converting the unbelieving; and, above all, making sure that the faithful came to the polls. This had always been done by the candidates in popular const.i.tuencies; and now the registration societies furnished a nucleus for the purpose, with a ma.s.s of information about the persons to be canva.s.sed, already acquired in making up the voting lists. The nomination of candidates did not necessarily form any part of their functions. The old theory prevailed, of which traces may be found all through English life, that the candidate offered himself for election, or was recommended by some influential friend. The idea that he ought to be designated by the voters of his party had not arisen; nor did the local societies, which were merely self-const.i.tuted bodies, claim any right to speak for those voters. No doubt they often selected and recommended candidates; but they did so as a group of individuals whose opinions carried weight, not as a council representing the party.

The time was coming, however, when another extension of the franchise, and the growth of democratic ideas, would bring a demand for the organisation of the societies on a representative basis. The change began almost immediately after the pa.s.sage of the Reform Act of 1867; and the occasion--it cannot properly be called the cause--of the movement is curious. When discussion in England was busy with Hare's plan for proportional representation, which John Stuart Mill hailed as the salvation of society, serious voices were heard to object to the scheme on the ground that it would lead to the growth of party organisations, and would place the voter in the grip of a political machine.[469:1] It is, therefore, interesting to note that the first outcry in England against actual party machinery was directed at an organisation which sprang from the minute grain of minority representation in the Act of 1867.

[Sidenote: The Birmingham Caucus.]

[Sidenote: Its Object.]

By the Reform Act of 1867 the great towns of Liverpool, Manchester, Birmingham and Leeds were given three members of Parliament apiece; but in order to provide some representation for the minority, the Lords inserted, and the Commons accepted, a clause that no elector in those towns should vote for more than two candidates.[469:2] Much foresight was not required to perceive that if one of those towns elected two Liberals and a Conservative, two of her members would neutralise each other on a party division, and her weight would be only one vote; while a much smaller town that chose two members of the same party in the ordinary way would count for two in a division. Such a result seemed to the Radicals of Birmingham a violation of the democratic principle, and they were determined to prevent it if possible. They had on their side more than three fifths of the voters, or more than half as many again as their opponents, and this was enough to carry all three seats if their votes were evenly distributed between three candidates. But to give to three candidates the same number of votes when each elector could vote for only two of them was not an easy thing to do, and failure might mean the loss of two seats. Very careful planning was required for success, very strict discipline among the voters, and hence a keen interest in the result among the ma.s.s of the people and perfect confidence in the party managers.

[Sidenote: Its Formation.]

To provide the machinery needed, Mr. William Harris, the Secretary of the Birmingham Liberal a.s.sociation, a self-const.i.tuted election committee of the familiar type, proposed to transform that body into a representative party organisation; which was forthwith done in October, 1867. The new rules provided that every Liberal subscribing a s.h.i.+lling should be a member of the a.s.sociation, and that an annual meeting of the members should choose the officers and twenty members to serve upon an executive committee. This committee, which had charge of the general business of the a.s.sociation, was to consist of the four officers and twenty members already mentioned, of twenty more to be chosen by the Midland branch of the National Reform League when formed, and of three members chosen by a ward committee to be elected by the members of the a.s.sociation in each ward. According to a common English custom the committee had power to add to its members four more persons chosen, or, as the expression goes, coopted, by itself. There was also a larger body, consisting of the whole executive committee and of not more than twenty-four members elected by each of the ward committees. It was officially called the general committee, but was commonly known from the approximate number of its members as "The Four Hundred." It was to have control of the policy of the a.s.sociation, and to nominate the three Liberal candidates for Parliament in the borough.[470:1]

The number of Liberal voters in each of the several wards was then carefully ascertained; and those in one ward were directed to vote for A and B; those of another for A and C; those of a third for B and C; and so on, in such a way that the total votes cast for each of the three candidates should be as nearly as possible the same. Protests were, of course, made against voting by dictation. It offended the sense of personal independence; but the great ma.s.s of Liberals voted as they were told, and all three of the candidates were elected.

[Sidenote: Its Early Victories.]

The a.s.sociation had accomplished a great feat. Three Liberals had been sent to Parliament from Birmingham in spite of the minority representation clause. But a chance for another victory of the same kind did not come again until the dissolution six years later; and at first the managers were less fortunate in the elections to the school board.

The Education Act of 1870 provided for c.u.mulative voting at the election of these bodies; that is, the elector might cast all the votes to which he was ent.i.tled for one candidate, or distribute them in any way he pleased. The system made it possible for very small minorities to elect one or more candidates, and the Liberal a.s.sociation, in trying to elude its effects, as they had done in the case of the parliamentary election, attempted too much and carried only a minority of the board. For a time the organisation languished; but it was soon recalled to a more vigorous life than ever.

[Sidenote: Its Revival in 1873.]

In 1873 the a.s.sociation was revived for the purpose of getting control of the munic.i.p.al government of the town, and introducing a more progressive policy in its administration. Two names are especially a.s.sociated with the new departure, that of Mr. Schnadhorst, the secretary of the a.s.sociation, who had a genius for organising, and that of Mr. Chamberlain, who was the leading spirit of the movement, and became the mayor of the borough in the following autumn. These men proceeded to reconstruct the a.s.sociation on a slightly different, and apparently even more democratic, plan. Taking the wards as the sole basis of the fabric, an annual meeting was held in each ward, at which any Liberals residing there might take part. They were ent.i.tled to do so whether voters or not, and without regard to any subscription, provided they signified their adherence to the objects and organisation of the a.s.sociation, a statement which was understood to imply a willingness to accept the decisions of the majority. The meeting elected a committee, a chairman and a secretary for the ward; three persons to serve with those two officers upon the executive committee of the central a.s.sociation; and a number of persons, fixed in 1877 at thirty, to serve on the general committee. The central executive committee contained, in addition to the five members so elected in each ward, the four officers of the a.s.sociation, and thirty members coopted by itself.

It chose seven of its own members, who with the four officers formed a management sub-committee of eleven. The general committee of the a.s.sociation was composed, as before, of the whole executive committee, together with the thirty representatives from each ward; and, as there were sixteen wards, it numbered by 1877 five hundred and ninety-four members; and was known as the "Six Hundred" of Birmingham. It had power to determine the policy of the a.s.sociation, and to nominate the candidates for Parliament and the school board. The members of the town council, on the other hand, being elected by wards, were nominated by the ward committees; but the whole a.s.sociation was bound to support them.

[Sidenote: Its Efficiency.]

Such was the new organisation of the Liberal a.s.sociation.[472:1] Its efficiency as an engine for controlling elections is proved by the fact that during the four years from 1873 to 1876, inclusive, it carried all three seats in Parliament in spite of the provision for minority representation, a majority of the school board at each election in spite of the provision for c.u.mulative voting, and all but two of the sixty-eight members elected to the town council during that period.[472:2] The a.s.sociation was, indeed, well constructed for the purpose.

As in the case of every political organisation based upon primary meetings, an attempt to wrest the control from those who held it was a difficult undertaking. To be successful more than half the wards must be captured at one time, and that in the face of vigilant men, who knew all the ropes, who had the management sub-committee in their hands, and who by means of cooptation could convert a narrow majority into a larger one, and thus perpetuate their own power. On the other hand, a revolt against the nominations actually made was well-nigh precluded by the agreement virtually entered into on joining the a.s.sociation, to abide by the decision of the majority. It has been said that for a dozen years the men who conducted the organisation sent travelling companions to one ward meeting after another to insure the election of their supporters to the various committees.[473:1] Whether this be true or not, it is certain that the power of the managers was never overturned. Their rule has, indeed, been prolonged over such a period that it must be attributed both to the excellence of the mechanism and to their own popularity. Throughout the many vicissitudes of his long career, from his early years of advanced radicalism, through his breach with Mr.

Gladstone over the Home Rule Bill, his subsequent junction with the Conservatives, and finally his advocacy of a wholly new policy about preferential tariffs, Mr. Chamberlain has never failed to carry every one of the parliamentary seats in Birmingham for his own adherents. Such a result shows a power which nothing but a strong personal hold upon the people, and a hold coupled with a highly efficient organisation, could have secured.

[Sidenote: Criticisms of the System.]

The system adopted by the Liberals in Birmingham was copied in other places, and soon became the subject of vehement discussion, the arguments for and against it being the same that are commonly used in the case of every party organisation. Its adversaries declared that it threw absolute power into the hands of men with time to devote to working the machinery; that it set up a tyranny which crushed out individuality, extinguished free discussion of opinions, destroyed independence in public life, caused a loss of variety and fertility in Liberalism, and brought party politics into munic.i.p.al affairs where they ought not to be.

[Sidenote: Its Defence.]

To these criticisms the advocates of the system replied that the a.s.sociation was conducted by the men with the most public spirit, because they were willing to devote time and thought to the work; that it could not create a tyranny, because the ward meetings were open to all Liberals, who could at any time overthrow the management if they chose; that, in regard to independence, every Liberal had a right to speak freely at the ward meetings, to persuade his fellows to adopt his views if he could, and that this is the only right he ought to enjoy, because "a minority has no right to thwart a majority in determining the course of Liberal policy." They insisted that the a.s.sociation was simply "a method by which those who believe in human progress . . . can take counsel together; come to an agreement as to their nearest duty; and give their decisions practical effect in the legislation of their town and country." They claimed that such men "are bound to select representatives who will support the definite measures they believe to be immediately necessary for the peace and prosperity of the land."[474:1] In short the Radicals of Birmingham looked upon themselves as reformers with a mission to fulfil, and felt the impatience--perhaps one may say intolerance--which men in that position always feel for the hesitating, the wavering, and the independent members of their own party. To the Radicals the a.s.sociation appeared as an effective instrument for putting their ideals into practice, and seemed wholly good; while others, who had not the same faith in the end to be attained, felt keenly the evils which the organisation actually involved, and still more the abuses to which it might give rise in the future.

[Sidenote: The Caucus and Town Politics.]

In regard to the charge of bringing politics into munic.i.p.al affairs the Radicals boldly justified their course, insisting that they stood for a definite progressive policy in local, as well as in national, affairs.[475:1] Under the lead of Mr. Chamberlain, who was elected mayor of Birmingham in the autumn of 1873--the same year in which the a.s.sociation was revived--the town council entered upon a period of great activity. It improved the ordinary public services, such as paving and sanitation; reorganised the health department; and inaugurated an efficient system of sewerage with a large filtration farm, which was, at least, a great improvement on what had gone before. It undertook also a number of public works of a cla.s.s now called "munic.i.p.al trading." The first of these was the supply of gas, both for lighting the streets and for private use. There were at the time two gas companies in Birmingham, and Mr. Chamberlain persuaded the council that the town could make a profit by buying their property, and conducting the business itself. A bargain was struck with the companies, and the purchase was made. It was no sooner done than a proposal was made to apply the same principle to water, which was also in the hands of a private company. In this case, however, the object was not profit, but an improvement of the supply with a view to better health, for a large part of the population still depended upon wells, many of them, of course, in a dangerous condition.

Again a bargain was made with the company, and the water pa.s.sed in turn under public control.

Finally an ambitious plan was adopted for improving the appearance of the town. Parliament has enacted a long series of statutes intended to secure better houses for the working cla.s.ses. One of them, the Artisans and Labourers Dwellings Improvement Act of 1875,[475:2] empowered any town, if authorised by a provisional order of the Local Government Board confirmed by Parliament, to expropriate at its fair market value an unhealthy area, that is, a district where the crowding together or bad condition of the houses, and the want of light and air, were such as to be dangerous to health. The town was to prepare a scheme for laying out new streets and otherwise improving the area, and was authorised to sell or let any part of the land on condition that the purchasers should carry the scheme into effect. Now Birmingham, like many of the English manufacturing places, had grown up in a squalid way, a network of narrow streets, devoid of s.p.a.ce or dignity; and in the centre was a great slum with a high death-rate. This last, a region of more than ninety acres in extent, was taken under the Act; a broad thoroughfare, named, in recognition of its public origin, "Corporation Street," was laid out, and the land bordering upon it let on long ground leases for commercial buildings. The original intention had been to erect new houses for the people whose dwellings had been destroyed; but this part of the plan was in the main abandoned, on the ground that houses enough were provided by private enterprise.

The management by a town of its gas and water supply, the purchase and lease of large tracts of land, are steps in the direction of what is known to-day as munic.i.p.al socialism; and they provoked a difference of opinion that still exists, both upon the wisdom of the policy in general, and upon the extent to which it can be profitably carried. The problem will be discussed hereafter, but we must note here that the Radicals of Birmingham believed it to be a political issue, which justified the use of party organisation as much as the issues that arose in Parliament. They felt in the same way about the administration of the new school law. In their eyes all these things formed part of a great Radical policy of which they were the protagonists.

[Sidenote: The Spread of a.s.sociations on the Birmingham Model.]

The Birmingham Radicals had faith, not only in their political aims, but also in the means they had devised for carrying them out. They did no little missionary work in other towns, urging the Liberals to introduce local representative a.s.sociations on a democratic basis after the Birmingham pattern. In spite of opposition the idea was received with such favour that by the end of 1878 about one hundred bodies of this kind existed in different places.[477:1] The movement was reenforced by the foundation, in 1877, of the National Liberal Federation, whose history will form the subject of a later chapter. This body admitted to members.h.i.+p only a.s.sociations of a democratic character, and its influence was strongly felt. The Birmingham leaders, who controlled the Federation, naturally desired to increase its power by extending the number of affiliated bodies as much as possible; while the local a.s.sociations found an advantage in joining it as soon as it became a factor in Liberal politics. Moreover, after the split in the party over the Home Rule Bill, in 1886, when the Federation took the side of Mr.

Gladstone's followers against Mr. Chamberlain, the former became interested in making the organisation as widely representative and popular as possible. These various motives gave successive impulses, with the result that by 1886 the Federation comprised two hundred and fifty-five local a.s.sociations, and by 1888 seven hundred and sixteen.[477:2] The rules of the Federation, under the t.i.tle of the "Objects" for which it exists, still open with the words "To a.s.sist in the organisation throughout the country of Liberal a.s.sociations based on popular representation," and the rules are preceded by a statement which says, _All a.s.sociations, thus const.i.tuted, are eligible for affiliation_. Although the statement goes on to declare that "No interference with the local independence of the Federated a.s.sociations is involved. Each a.s.sociation arranges the details of its own organisation, and administers its own affairs." Still it has always been a.s.sumed that the local bodies were to be popular in character. In fact the old self-appointed committees were hardly compatible with the democratic spirit brought in by the Reform Act of 1867, and in the boroughs they soon gave way to representative bodies with a popular organisation.

The process was much less rapid in the country const.i.tuencies,[478:1]

for not until 1884 was the franchise in these enlarged as it had been in the boroughs in 1867, and when that had been done the traditional authority of the squire and the parson presented an obstacle that yielded slowly. Even now Conservative candidates are returned unopposed more frequently in the counties than in the boroughs, especially in the rural counties of the south. Often it was found impossible to establish a Liberal a.s.sociation in each parish, and a local correspondent was, and in some cases still is, a necessary subst.i.tute. But the growth of democratic ideas, the practice of popular election, the change in economic conditions caused by the decay of agricultural prosperity and the desire to live in cities, with the consequent scarcity of rural labour, have, by reducing the patriarchal influence of the landlord over his people, paved the way for representative political organisations. At the present day a.s.sociations democratic in form exist in almost every parliamentary const.i.tuency, whether borough or county, where the number of Liberal voters is not so small, or the chance of success at elections is not so desperate, that the district is what is sometimes officially called derelict.

[Sidenote: Existing Organisation of Local Liberal a.s.sociations.]

The const.i.tutions of the local Liberal a.s.sociations are not precisely uniform, nor, apart from the general principle that they ought to be based upon popular representation, is any pressure exerted to make them alike. The Liberals in each place are at liberty to organise themselves as they please; and in this connection it may be observed that all political societies are treated as purely voluntary, that is, the state makes no attempt to regulate them by law. The provisions in regard to primaries and the nomination of candidates by party conventions, which have become universal in the United States, are entirely foreign to English ideas, and would be regarded with astonishment and aversion.

[Sidenote: The Draft Rules.]

[Sidenote: Rural Districts.]

But while the Federation does not strive to enforce uniform regulations, it issues a pamphlet of "Notes and Hints for the Guidance of Liberals,"

covering organisations both in rural villages and in towns, and containing drafts of rules, which may be taken as typical. The pamphlet suggests that in rural districts there should be normally, in each parish or polling district, a self-appointed committee with power to add to its own members. The term "committee" is used because the members, being few, can do most of the work directly, instead of delegating it to a smaller body. In reality the committee is the whole a.s.sociation for the parish, and although the draft rules do not expressly so provide, the intention is clear that it shall include all known Liberals there, whether voters or not. It must meet at least six times in the year; and elects a chairman, treasurer, honorary secretary, and any sub-committees that may be needed. It appoints, also, in proportion to population, delegates to the Liberal a.s.sociation for the parliamentary division, which selects the candidate of the party for the House of Commons.

[Sidenote: Small Towns.]

For small towns without wards the model organisation is similar, except that the primary body is called an a.s.sociation, and meets only once a year, unless convened at other times on the request of twelve members; current business being transacted by an executive committee composed of the officers, and of a certain number of other members chosen at the annual meeting. Above the a.s.sociations for the parish or polling district, and the small town, comes an a.s.sociation for the parliamentary division of the county in which they are situated. This is often, though not always, purely a representative body, without any ma.s.s meeting of members. It has a council, composed mainly of delegates chosen from the parishes, towns, or other primary districts, roughly in proportion to population; and an executive committee, sometimes elected entirely by the council, sometimes containing delegates from the districts. Finally it has its officers who are members of both these bodies.

[Sidenote: Large Towns.]

For large towns, that are divided into wards, the draft rules follow more closely the Birmingham plan. They provide in each ward for a committee or a.s.sociation designed to include every man who is disposed to help the Liberal cause. This body elects its officers, the other members of its executive committee, and delegates to the general committee for the town according to population. The a.s.sociation for the whole town meets annually to choose its officers, some members of the general committee, and, in case the town is not a parliamentary borough, delegates to the a.s.sociation for the division of the county. The a.s.sociation for the town is managed, as is usually the case in all organisations of this kind, by three distinct authorities. First, the officers, who attend to current administration. Second, the executive committee, which consists of these officers, of the three officers of each ward, and of members chosen by the general committee. Third, the general committee itself, which determines the policy to be pursued, and is composed of members elected in part by the ward committees and in part by the annual meeting of the whole a.s.sociation for the town. In parliamentary boroughs the general committee--often known as the Council, and sometimes as the Liberal Two Hundred, or whatever the nearest hundred may be--nominates the party candidate for the House of Commons, on the recommendation of the executive committee, and subject to final adoption at a meeting of the a.s.sociation. But in fact the executive committee, in all Liberal a.s.sociations for parliamentary const.i.tuencies, either selects the candidate, and asks for a formal approval by the council, or lays before that body two or three names to choose from. In any case the meeting of the whole a.s.sociation is merely a grand ratification gathering held for applause, not for consultation.

The effect is like that of the ancient proclamation, "this is your king an' it please you."

[Sidenote: Variations in Different Places.]

The draft rules prepared by the Federation are merely typical, and although in their general outlines they give a very fair idea of the organisation of local a.s.sociations throughout the country, there are endless variations in detail and in nomenclature. If, indeed, the const.i.tutions of a number of these bodies are examined at random, no two of them will probably be found exactly alike. It may be observed that the draft rules make no provision for cooptation, an arrangement that appears nevertheless in the rules of many local a.s.sociations. Nor do they require the payment of any subscription as a condition for members.h.i.+p; but this again is not infrequently done, the sum required running from a nominal amount up as high as five s.h.i.+llings. Sometimes the payment is a condition for any partic.i.p.ation in the organisation; sometimes it is not needed for voting in the ward or district meetings, but confers a right to vote in the general meetings of the a.s.sociation, or to be elected to the committees by cooptation. Occasionally Liberal members of the town council and school board have _ex officio_ seats on the council of the a.s.sociation; or local Liberal clubs, although not strictly democratic, are given a representation upon it. But owing to the fact, which will be explained hereafter, that the compet.i.tion for nomination to Parliament is not very keen, and hence there is rarely a close canva.s.s of the members of the committees, all these differences in detail are of little practical importance. The essential point is that in almost every English parliamentary const.i.tuency, whether county or borough, where the chance of carrying the election is fair, there is to-day an a.s.sociation of a representative and nominally, at least, of a democratic character. It contains habitually the three organs, of officers, executive committee, and council; while in the great towns that have several seats there is a still larger organisation comprising all the parliamentary divisions.

[Sidenote: The Paid Agents.]

It is an old custom for parliamentary candidates to employ paid agents, usually solicitors by profession, to take charge of the election, and with the growth of popular organisations the business has a.s.sumed in most places a more systematic form. The a.s.sociation for each parliamentary division, and sometimes for a smaller district, has a paid as well as an honorary secretary. His duties are many, for he is the maid-of-all-work of the organisation, and is known by the comprehensive t.i.tle of Liberal Agent for that division. He acts as clerk for the a.s.sociation, organises committees for wards or polling districts, supervises subordinate agents, arranges public meetings, gives advice and a.s.sistance wherever needed, canva.s.ses the voters, attends to their registration, and conducts the hearings before the Revising Barrister.

He is also usually appointed by the candidate his statutory election agent; and, if so, he takes general charge of the whole campaign, having under him a band of clerks, sub-agents, and messengers, and a small army of volunteer canva.s.sers. He is an important factor in politics; for upon his skill as an organiser, and his tact and good sense in conducting the fight, the result of the election may often depend.

These agents have been said to be the only professional politicians in England; and in one sense that is true, for they are the only cla.s.s of men who make a living out of party politics; but the expression is inappropriate, because they are not politicians at all in the sense in which the term is used in other countries. They have nothing to do with the direction of politics; they merely help to elect a candidate in whose selection they have no voice; and although their advice may have weight, their duty is solely to carry out the instructions of others.

Like all other permanent officials in England, their actual influence depends upon circ.u.mstances. If a chairman is capable and active, the power of the agent will not be so great as in the more common case where the chairman leans very much upon him. The agents, in short, are more nearly akin to the permanent official than to the politician. In fact they have no political aspirations for themselves, for they are not of the cla.s.s from which members of Parliament are taken.

Their salaries, which vary much, run all the way from forty pounds to four hundred pounds, with about one hundred and fifty pounds as the average, the scale of pay having risen somewhat of late years. They must be thoroughly familiar with the law of registration and election, and are commonly recruited from solicitors with a small practice, or from accountants; although many of them--perhaps nearly one half--finding that their work as agents fills their whole time, have given up all other business. The occupation tends, indeed, to become a profession by itself; one to which a man devotes his life after he has once entered it. The Liberal agents have a national a.s.sociation of their own, containing some two hundred and fifty members, and a few years ago, in order to maintain a higher standard, a smaller society was formed, which issues certificates of qualification. The a.s.sociation meets every year at the time of the meeting of the National Liberal Federation, and such of the agents attend as can afford to go, or can get their employers to pay their expenses. They meet usually about one hundred and fifty strong, and are given a breakfast at which they are addressed by the chief whip, and by the leader of the party in Parliament or some other prominent member; for their importance is now thoroughly appreciated.

Thus there has arisen in English political life a cla.s.s of men whose counterpart exists in no other country. They occupy in the party a position not unlike that of the non-commissioned officers in the army.