efficient because it is not composed of warm partisans. The way to lead
is to affect a studied and illogical moderation.

Nor are the leaders themselves eager to carry party conclusions too far.
When an opposition comes into power, ministers have a difficulty in
making good their promises. They are in contact with the facts which
immediately acquire an inconvenient reality. But constituencies are
immoderate and partisan. The schemes both of extreme democrats and of
philosophers for changing the system of representation would prevent
parliamentary government from working at all. Under a system of equal
electoral districts and one-man vote, a parliament could not consist of
moderate men. Mr. Hare's scheme would make party bands and fetters
tighter than ever.

A free government is that which the people subject to it voluntarily
choose. If it goes by public opinion, the best opinion which the nation
will accept, it is a good government of its kind. Tried by this rule,
the House of Commons does its appointing business well. Of the
substantial part of its legislative task, the same may be said. Subject
to certain exceptions, the mind and policy of parliament possess the
common sort of moderation essential to parliamentary government. The
exceptions are two. First, it leans too much to the opinions of the
landed interest. Also, it gives too little weight to the growing
districts of the country, and too much to the stationary. But parliament
is not equally successful in elevating public opinion, or in giving
expression to grievances.


_IV.--Changes of Ministry_