The ordinary attendance in the House of Commons could be best described by a member or a regular official. An outsider can represent it only by the current reports. My purpose does not require great accuracy; it is enough, that only a very small fraction of the body makes up the average audience. If an official were posted to record the fluctuating numbers at intervals of five minutes, the attendance might be recorded and presented in a curve like the fluctuations of the barometer; but this would be misleading as to the proportion of effective listeners--those that sat out entire debates, or at all events the leading speeches of the debates, or whose intelligence was mainly fed from the speaking in each instance. The number of this cla.s.s is next to impossible to get at; but it will be allowed on all hands to be very small.

Perhaps, in such an inquiry, most can be made of indirect evidences. If members are to be qualified for an intelligent decision in chief part by listening to the speeches, why is not the House made large enough to accommodate them all at once? It would appear strange, on the spoken-debate theory of enlightenment, that more than one-third should be permanently excluded by want of s.p.a.ce. One might naturally suppose that, in this fact, there was a breach of privilege of the most portentous kind. That it is so rarely alluded to as a grievance, even although amounting to the exclusion of a large number of the members from some of the grandest displays of eloquence and the most exciting State communications, is a proof that attendance in the House is not looked upon as a high privilege, or as the _sine qua non_ of political schooling.

[EVIDENCE OF THE INUTILITY OF THE MERE SPEAKING.]

If it were necessary to listen to the debates in order to know how to vote, the messages of the whips would take a different form. The members on each side would be warned of the time of commencement of each debate, that they might hear the comprehensive statement of the opener, and remain at least through the chief speech in reply. They might not attend all through the inferior and desultory speaking, but they would be ready to pop in when an able debater was on his legs, and they would hear the leaders wind up at the close. Such, however, is not the theory acted on by the whips. They are satisfied if they can procure attendance at the division, and look upon the many hours spent in the debate as an insignificant accessory, which could be disregarded at pleasure. It would take the genius of a satirist to treat the whipping-up machinery as it might well deserve to be treated. We are here concerned with a graver view of it--namely, to inquire whether the inst.i.tution of oral debate may not be transformed and contracted in dimensions, to the great relief of our legislative machinery.

Of course, no one is ignorant of the fact that the great body of members of Parliament refrain altogether from weighing individually the opposing arguments in the several questions, and trust implicitly to their leaders.

This, however, is merely another nail in the coffin of the debating system. The theory of independent and intelligent consideration, by each member, of every measure that comes up, is the one most favourable to the present plan, while, even on that theory, its efficiency breaks down under a critical handling.

It is time now to turn to what will have come into the mind of every reader of the last few paragraphs--the reporting of the speeches. Here, I admit, there is a real and indispensable service to legislation. My contention is, that in it we possess what is alone valuable; and, if we could secure this, in its present efficiency, with only a very small minimum of oral delivery, we should be as well off as we are now. The apparent self-contradiction of the proposal to report speeches without speaking, is not hard to resolve.

To come at once, then, to the mode of arriving at the printed debates, I shall proceed by a succession of steps, each one efficient in itself, without necessitating a farther. The first and easiest device, and one that would be felt of advantage in all bodies whatsoever, would be for the mover of a resolution to give in, along with the terms of his resolution, his reasons--in fact, what he intends as his speech, to be printed and distributed to each member previous to the meeting. Two important ends are at once gained--the time of a speech is saved, and the members are in possession beforehand of the precise arguments to be used. The debate is in this way advanced an important step without any speaking; opponents can prepare for, instead of having to improvise their reply, and every one is at the outset a good way towards a final judgment.

[DEBATES INTRODUCED BY PRINTED STATEMENTS.]

As this single device could be adopted alone, I will try and meet the objections to it, if I am only fortunate enough to light on any. My experience of public bodies suggests but very few; and I think the strongest is the reluctance to take the requisite trouble. Most men think beforehand what they are to say in introducing a resolution to a public body, but do not consider it necessary to write down their speech at full. Then, again, there is a peculiar satisfaction in holding the attention of a meeting for a certain time, great in proportion to the success of the effort. But, on the other hand, many persons do write their speeches, and many are not so much at ease in speaking but that they would dispense with it willingly. The conclusive answer on the whole is--the greater good of the commonwealth. Such objections as these are not of a kind to weigh down the manifest advantages, at all events, in the case of corporations full of business and pressed for time.

I believe that a debate so introduced would be shortened by more than the time gained by cutting off the speech of the mover. The greater preparation of everyone's mind at the commencement would make people satisfied with a less amount of speaking, and what there was would be more to the purpose.

We can best understand the effects of such an innovation by referring to the familiar experience of having to decide on the Report of Committee, which has been previously circulated among the members. This is usually the most summary act of a deliberative body; partly owing, no doubt, to the fact that the concurrence of a certain proportion is already gained; while the _pros_ and _cons_ have been sifted by a regular conference and debate. Yet we all feel that we are in a much better position by having had before us in print, for some time previous, the materials necessary to a conclusion. At a later stage, I will consider the modes of raising the quality and status of the introductory speech to something of the nature of a Committee's Report.[19]

The second step is to impose upon the mover of every amendment the same obligation to hand in his speech, in writing, along with the terms of the amendment. Many public bodies do not require notice of amendments.

It would be in all cases a great improvement to insist upon such notice, and of course a still greater improvement to require the reasons to be given in also, that they might be circulated as above. The debate is now two steps in advance without a moment's loss of time to the const.i.tuted meeting; while what remains is likely to be much more rapidly gone through.

The movers of resolutions and of amendments should, as a matter of course, have the right of reply; a portion of the oral system that would, I presume, survive all the advances towards printing direct.

There remains, however, one farther move, in itself as defensible, and as much fraught with advantage as the two others. The resolution and the amendments being in the hands of the members of a body, together with the speeches in support of each, any member might be at liberty to send in, also for circulation in print, whatever remarks would const.i.tute his speech in the debate, thereby making a still greater saving of the time of the body. This would, no doubt, be felt as the greatest innovation of all, being tantamount to the extinction of oral debate; there being then nothing left but the replies of the movers. We need not, however, go the length of compulsion; while a certain number would choose to print at once, the others could still, if they chose, abide by the old plan of oral address. One can easily surmise that these last would need to justify their choice by conspicuous merit; an a.s.sembly, having in print so many speeches already, would not be in a mood to listen to others of indifferent quality.

[THE MAGIC OF ORATORY NOT DONE AWAY WITH.]

Such a wholesale transfer of living speech to the silent perusal of the printed page, if seriously proposed in any a.s.sembly, would lead to a vehement defence of the power of spoken oratory. We should be told of the miraculous sway of the human voice, of the way that Whitfield entranced Hume and emptied Franklin's purse; while, most certainly, neither of these two would ever have perused one of his printed sermons.

And, if the reply were that Whitfield was not a legislator, we should be met by the speeches of Wilberforce and Canning and Brougham upon slavery, where the thrill of the living voice accelerated the conviction of the audience. In speaking of the Homeric a.s.sembly, Mr. Gladstone remarks, in answer to Grote's argument to prove it a political nullity, that the speakers were repeatedly cheered, and that the cheering of an audience contributes to the decision.

Now, I am not insensible to the power of speech, nor to the mult.i.tudinous waves of human feeling aroused in the encounters of oratory before a large a.s.sembly. Apart from this excitement, it would often be difficult to get people to go through the drudgery of public meetings. Any plan that would abolish entirely the dramatic element of legislation would have small chance of being adopted. It is only when the painful side of debate comes into predominance, that we willingly forego some of its pleasures: the intolerable weariness, the close air, the late nights, must be counted along with the occasional thrills of delirious excitement. But as far as regards our great legislative bodies, it will be easy to show that there would still exist, in other forms, an ample scope for living oratory to make up for the deadness that would fall upon the chief a.s.sembly.

A friend of mine once went to Roebuck to ask his attention to some point coming up in the House of Commons, and offered him a paper to read.

Roebuck said, "I will not read, but I will hear". This well ill.u.s.trates one of the favourable aspects of speech. People with time on their hands prefer being instructed by the living voice; the exertion is less, and the enlivening tones of a speaker impart an extraneous interest, to which we have to add the sympathy of the surrounding mult.i.tude. The early stages of instruction must be conducted _viva voce_; it is a late acquirement to be able to extract information from a printed page. Yet circ.u.mstances arise when the advantage of the printed page predominates.

The more frequent experience in approaching public men is to be told, that they will not listen but will read. An hour's address can be read in ten minutes: it is not impossible, therefore, to master a Parliamentary debate in one-tenth of the time occupied in the delivery.

A pa.s.sing remark is enough to point out the revolution that would take place in Parliamentary reporting, and in the diffusion of political instruction through the press, by the system of printing the speeches direct. The full importance of this result will be more apparent in a little. There has been much talk of late about the desirability of a more perfect system of reporting, with a view to the preservation of the debates. Yet it may be very much doubted, whether the House of Commons would ever incur the expense of making up for the defects of newspaper reporting, by providing short-hand writers to take down every word, with a view to printing in full.

[SECONDING EXTENDED TO A PLURALITY OF BACKERS.]

[PROPORTIONING OF BACKERS.]

Before completing the survey of possible improvements in deliberative procedure, I propose to extend the employment of another device already in use, but scarcely more than a form; I mean the requiring of a seconder before a proposal can be debated. The signification of this must be, that in order to obtain the judgment of an a.s.sembly on any proposal, the mover must have the concurrence of one other member; a most reasonable condition surely. What I would urge farther in the same direction is that, instead of demanding one person in addition to the mover, as necessary in all cases, there should be a varying number according to the number of the a.s.sembly. In a copartnery of three or four, to demand a seconder to a motion would be absurd; in a body of six or eight it is scarcely admissible. I have known bodies of ten and twelve, where motions could be discussed without a seconder; but even with these, there would be a manifest propriety in compelling a member to convince at least one other person privately before putting the body to the trouble of a discussion. If, however, we should begin the practice of seconding with ten, is one seconder enough for twenty, fifty, a hundred, or six hundred? Ought there not to be a scale of steady increase in the numbers whose opinions have been gained beforehand? Let us say three or four for an a.s.sembly of five-and-twenty, six for fifty, ten or fifteen for a hundred, forty for six hundred. It is permissible, no doubt, to bring before a public body resolutions that there is no immediate chance of carrying; what is termed "ventilating"

an opinion is a recognized usage, and is not to be prohibited. But when business multiplies, and time is precious, a certain check should be put upon the ventilating of views that have as yet not got beyond one or two individuals; the process of conversion by out-of-door agency should have made some progress in order to justify an appeal to the body in the regular course of business. That the House of Commons should ever be occupied by a debate, where the movers could not command more than four or five votes, is apparently out of all reason. The power of the individual is unduly exalted at the expense of the collective body.

There are plenty of other opportunities of gaining adherents to any proposal that has something to be said for it; and these should be plied up to the point of securing a certain minimum of concurrence, before the ear of the House can be commanded. With a body of six hundred and fifty, the number of previously obtained adherents would not be extravagantly high, if it were fixed at forty. Yet considering that the current business, in large a.s.semblies, is carried on by perhaps one-third or one-fourth of the whole, and that the quorum in the House of Commons is such as to make it possible for twenty-one votes to carry a decision of the House, there would be an inconsistency in requiring more than twenty names to back every bill and every resolution and amendment that churned to be discussed. Now I can hardly imagine restriction upon the liberty of individual members more defensible than this. If it were impossible to find any other access to the minds of individual members than by speeches in the House, or if all other modes of conversion to new views were difficult and inefficient in comparison, then we should say that the time of the House must be taxed for the ventilating process. Nothing of the kind, however, can be maintained. Moreover, although the House may be obliged to listen to a speech for a proposal that has merely half a dozen of known supporters, yet, whenever this is understood to be the case, scarcely any one will be at the trouble of counter-arguing it, and the question really makes no way; the mover is looked upon as a bore, and the House is impatient for the extinguisher of a division. The securing of twenty names would cost nothing to the Government, or to any of the parties or sections that make up the House: an individual standing alone should be made to work privately, until he has secured his backing of nineteen more names, and the exercise would be most wholesome as a preparation for convincing a majority of the House.

If I might be allowed to a.s.sume such an extension of the device of seconding motions, I could make a much stronger case for the beneficial consequences of the operation of printing speeches without delivery.

The House would never be moved by an individual standing alone; every proposal would be from the first a collective judgment, and the reasons given in along with it, although composed by one, would be revised and considered by the supporters collectively. Members would put forth their strength in one weighty statement to start with; no pains would be spared to make the argument of the nominal mover exhaustive and forcible. So with the amendment; there would be more put into the chief statement, and less left to the succeeding speakers, than at present.

And, although the mover of the resolution and the mover of the amendment would each have a reply, little would be left to detain the House, unless when some great interests were at stake.

Of course the preparation of the case in favour of each measure would be entrusted to the best hands; in Government business, it would be to some official in the department, or some one engaged by the chief in shaping the measure itself. The statement so prepared would have the value of a carefully drawn-up report, and nothing short of this should ever be submitted to Parliament in the procuring of new enactments. In like manner, the opponents and critics could employ any one they pleased to a.s.sist them in their compositions, A member's speech need not be in any sense his own; if he borrows, or uses another hand, it is likely to be some one wiser than himself, and the public gets the benefit of the difference.

[OBJECTIONS TO DIRECT PRINTING OF SPEECHES.]

I may now go back for a little upon the details of the scheme of direct printing, with the view of pressing some of its advantages a little farther, as well as of considering objections. I must remark more particularly upon the permission, accorded to the members generally, to send in their speeches to be circulated with the proceedings. This I regard as not the least essential step in an effective reform of the debating system. It is the only possible plan of giving free scope to individuals, without wasting the time of the a.s.sembly. There need be no limit to the printing of speeches; the number may be unnecessarily great, and the length sometimes excessive, but the abuse may be left to the corrective of neglect. The only material disadvantage attending the plan of sending in speeches in writing, without delivery, is that the speakers would have before them only the statements-in-chief of the movers of motion and amendment. They could not comment upon one another, as in the oral debate. Not but this might not: be practicable, by keeping the question open for a certain length of time, and circulating every morning the speeches given in the day previously; but the c.u.mbrousness of such an operation would not have enough to recommend it.

The chief speakers might be expected to present a sufficiently broad point for criticism; while the greater number are well content, if allowed to give their own views and arguments without reference to those of others. And not to mention that, in Parliament, all questions of principle may be debated several times over, it is rare that any measure comes up without such an amount of previous discussion out of doors as fully to bring out the points for attack and defence. Moreover, the oral debate, as usually conducted, contains little of the reality of effective rejoinder by each successive speaker to the one preceding.

The combined plan of printing speeches, and of requiring twenty backers to every proposal, while tolerable perhaps in the introduction of bills, and in resolutions of great moment, will seem to stand self-condemned in pa.s.sing the bills through Committee, clause by clause. That every amendment, however trivial, should have to go through such a roundabout course, may well appear ridiculous in the extreme. To this I would say, in the first place, that the exposing of every clause of every measure of importance to the criticism of a large a.s.sembly, has long been regarded as the weak point of the Parliamentary system. It is thirty years since I heard the remark that a Code would never get through the House of Commons; so many people thinking themselves qualified to cavil at its details. In Mill's "Representative Government," there is a suggestion to the effect, that Parliament should be a.s.sisted in pa.s.sing great measures by consultative commissions, who would have the preparation of the details; and that the House should not make alterations in the clauses, but recommit the whole with some expression of disapproval that would guide the commission in recasting the measure.

[DIFFICULTIES OF PRINTING IN COMMITTEES.]

It must be self-evident that only a small body can work advantageously in adjusting the details of a measure, including the verbal expressions.

If this work is set before an a.s.sembly of two hundred, it is only by the reticence of one hundred and ninety that progress can be made.

Amendments to the clauses of a bill may come under two heads: those of principle, where the force of parties expends itself; and those of wording or expression, for clearing away ambiguities or misconstruction.

For the one cla.s.s, all the machinery that I have described is fully applicable. To mature and present an amendment of principle, there should be a concurrence of the same number as is needed to move or oppose a second reading; there should be the same giving in of reasons, and the same unrestricted speech (in print) of individual members, culminating in replies by the movers. If this had to be done on all occasions, there would be much greater concentration of force upon special points, and the work of Committee would get on faster. As to the second cla.s.s of amendments, I do not think that these are suitable for an open discussion. They should rather be given as suggestions privately to the promoter of the measure. But, be the matter small or great, I contend that nothing should bring about a vote in the House of Commons that has not already acquired a proper minimum of support.

I am very far from presuming to remodel the entire procedure of the House of Commons. What I have said applies only to the one branch, not the least important, of the pa.s.sing of bills. There are other departments that might, or might not, be subjected to the printing system, coupled with the twentyfold backing; for example, the very large subject of Supply, on which there is a vast expenditure of debating. The demand for twenty names to every amendment would extinguish a very considerable amount of these discussions.

There is a department of the business of the House that has lately a.s.sumed alarming proportions--the putting of questions to Ministers upon every conceivable topic. I would here apply, without hesitation, the printing direct and the plural backing, and sweep away the practice entirely from the public proceedings of the House. No single member unsupported should have the power of trotting out a Minister at will. I do not say that so large a number of backers should be required in this case, but I would humbly suggest that the concurrence of ten members should be required even to put a public question. The leader of the Opposition, in himself a host, would not be enc.u.mbered with such a formality, but everyone else would have to procure ten signatures to an interrogative: the question would be sent in, and answered; while question and answer would simply appear in the printed proceedings of the House, and not occupy a single moment of the legislative time. This is a provision that would stand to be argued on its own merits, everything else remaining as it is. The loss would be purely in the dramatic interest attaching to the deliberations.

[ALTERNATIVE SCOPE FOR ORATORY.]

The all but total extinction of oral debate by the revolutionary sweep of two simple devices, would be far from destroying the power of speech in other ways. The influence exerted by conversation on the small scale, and by oratory on the great, would still be exercised. While the conferences in private society, and the addresses at public meetings, would continue, and perhaps be increased in importance, there would be a much greater activity of sectional discussion, than at present; in fact, the sectional deliberations, preparatory to motions in the House, would become an organized inst.i.tution. A certain number of rooms would be set aside for the use of the different sections; and the meetings would rise into public importance, and have their record in the public press. The speaking that now protracts the sittings of the House would be transferred to these; even the highest oratory would not disdain to shine where the reward of publicity would still be reaped. As no man would be allowed to engage the attention of the House without a following, it would be in the sections, in addition to private society and the press, that new opinions would have to be ventilated, and the first converts gained.

Among the innovations that are justified by the principle of avoiding at all points hurried decisions, there is nothing that would appear more defensible than to give an interval between the close of a debate and the taking of the vote. I apprehend that the chief and only reason why this has never been thought of is, that most bodies have to finish a ma.s.s of current business at one sitting. In a.s.semblies that meet day after day, the votes on all concluded debates could be postponed till next day; giving a deliberate interval in private that might improve, and could not: deteriorate, the chances of a good decision. Let us imagine that, in the House of Commons, for example, the first hour at each meeting should be occupied with the divisions growing out of the previous day's debates. The consequences would be enormous, but would any of them be bad? The hollowness of the oral debate as a means of persuasion would doubtless receive a blasting exposure; many would come up to vote, few would remain to listen to speeches. The greater number of those that cared to know what was said, would rest satisfied with the reports in the morning papers.

We need to take account of the fact that even greater moderation in the length of speeches would not entirely overcome the real difficulty--the quant.i.ty of business thrown upon our legislative bodies. Doubtless, if there were less talk upon burning questions there would be more attention given to un.o.btrusive matters at present neglected. The mere quant.i.ty of work is too great for an a.s.sembly to do well. If this amount cannot be lessened--and I do not see how it can be--there are still the six competing vehicles at old Temple Bar. The single legislative rail is crowded, and the only device equal to the occasion is to remove some of the traffic to other rails. Let a large part of the speaking be got rid of, or else be transferred to some different arena.

[EVERY BODY ENt.i.tLED TO CONTROL SPEECH-MAKING.]

I regard as una.s.sailable Lord Sherbrooke's position that every deliberative body must possess the entire control of its own procedure, even to the point of saying how much speaking it will allow on each topic. The rough-and-ready method of coughing down a superfluous speaker is perfectly const.i.tutional, because absolutely necessary. If a more refined method of curtailing debates could be devised, without bringing in other evils, it should be welcomed. The forcible shutting of anyone's mouth will always tend to irritate, and it is impossible by any plan to prevent a minority from clogging the wheels of business. The freedom of print seems to me one good safety-valve for incontinent speech-makers; it allows them an equal privilege with their fellows, and yet does not waste legislative time.

I remember hearing, some time ago, that our Chancellor of the Exchequer was induced, on the suggestion of the _Times_, to put into print and circulate to the House beforehand the figures and tables connected with his financial statement. I could not help remarking, why might the Chancellor not circulate, in the same fashion, the whole statement, down to the point of the declaration of the new taxes? It would save the House at least an hour and a half, while not a third of that time would be required to read the printed statement. I believe the first thing that would occur to anyone hearing this suggestion would be--"so the Chancellor might, but the same reason would apply to the movers of bills, and to all other business as well ".

Our English Parliamentary system having been matured by centuries of experience, has become a model for other countries just entering upon representative government. But the imitation, if too literal, will not be found to work. Our system supposes a large gentry, staying half the year in London for pure pleasure, to which we may add the rich men of business resident there. A sufficient number of these cla.s.ses can at any time be got to make up the House of Commons; and, the majority being composed of such, the ways of the House are regulated accordingly. Daily constant attendance, when necessary, and readiness to respond to the whip at short notice, are a.s.sumed as costing nothing. But in other countries, the case is not the same. In the Italian Chamber I found professors of the University of Turin, who still kept up their cla.s.s-work, and made journeys to Rome at intervals of a week or two, on the emergence of important business. Even the payment of members is not enough to bring people away from their homes, and break up their avocations, for several months every year. The forms of procedure, as familiar to us, do not fit under such circ.u.mstances. The system of printed speeches, with division days at two or three weeks' interval, might be found serviceable. But, at all events, the entire arrangements of public deliberation need to be revised on much broader grounds than we have been accustomed to; and it is in this view, more than with any hope of bringing about immediate changes, that I have ventured to propound the foregoing suggestions.