Parliament, accordingly, is not expected, nor even permitted, to
originate directly either taxation or expenditure. All it is asked for
is its consent, and the sole power it possesses is that of refusal.
The principles which are involved and recognised in this
constitutional doctrine, if followed as far as they will go, are a
guide to the limitation and definition of the general functions of
representative assemblies. In the first place, it is admitted in all
countries in which the representative system is practically
understood, that numerous representative bodies ought not to
administer. The maxim is grounded not only on the most essential
principles of good government, but on those of the successful
conduct of business of any description. No body of men, unless
organised and under command, is fit for action, in the proper sense.
Even a select board, composed of few members, and these specially
conversant with the business to be done, is always an inferior
instrument to some one individual who could be found among them, and
would be improved in character if that one person were made the chief,
and all the others reduced to subordinates. What can be done better by
a body than by any individual is deliberation. When it is necessary or
important to secure hearing and consideration to many conflicting
opinions, a deliberative body is indispensable.
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