legislation, they lead without concert or responsibility, and lead nobody in particular, that is, no compact and organized party force which can be made accountable for its policy, has also a further significance with regard to the opportunities and capacities of the constituencies. The doubt and confusion of thought which must necessarily exist in the minds of the vast majority of voters as to the best way of exerting their will in influencing the action of an assembly whose organization is so complex, whose acts are apparently so haphazard, and in which responsibility is spread so thin, throws constituencies into the hands of local politicians who are more visible and tangible than are the leaders of Congress, and generates, the while, a profound distrust of Congress as a body whose actions cannot be reckoned beforehand by any standard of promises made at elections or any programmes announced by conventions. Constituencies can watch and understand a few banded leaders who display plain purposes and act upon them with promptness; but they cannot watch or understand forty odd Standing Committees, each of which goes its own way in doing what it can without any special regard to the pledges of either of the parties from which its membership is drawn. In short, we lack in our political life the conditions most essential for the formation of an active and effec-
