Note 4 — Chapter I

Though this is substantially true as a contrast to the position of the ministry in the 16th century, it would be a great mistake to disregard the influence of the forms under which the constitution works. (I.) Even now the control of the Commons is not so great as it seems. The ministers are not mere delegates, for Parliament controls rather than directs; it has no right to tell the Queen’s ministers what to do, though it can veto their proposals, and censure them for their acts when done; the initiative remains with the cabinet. (II.) The influence of the crown is more than it seems. (i.) It has a voice in discussing despatches which settle foreign policy. (ii.) Though it cannot exclude from office a man who has made himself indispensable to the nation, it has, no doubt, a negative voice in the selection of the less conspicuous members of the cabinet, and thus exercises a real, though imperceptible, influence on the attitude of rising politicians.

The form is always of vast importance in constitutional questions. The popular influence, which seems to be the substantial power, is the wind that fills the sails and gives the motion; but the exact direction of the motion must still depend in a large measure on the helmsman. The shipwreck of the 17th century came from an attempt to sail in the teeth of the wind. A skilful helmsman may do much by gaining and losing tacks, but the Stuarts were not skilful.