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tee incubation and would almost certainly be assured of opportunity of considering the public business。 Discrimination in legislative privilege among members of the House would then be abolished； for every member would belong to the committee on appropriations。 It is universally true in constitutional governments that power over appropriations involves power over legislation； and the only possibility of a square deal is to open that power to the entire membership of the assembly； which is the regular practice in Switzerland and in all English commonwealths。 The House could not have been ignorant of the existence of this alternative； for the whole subject had been luminously discussed in the Senate Report of February 4；1881。 It was； therein； clearly pointed out that such an arrangement would prevent paralysis or inaction in Congress。 With the Administration proposing its measures directly to Congress； discussion of them and decisions upon them could not be avoided。
But such a public forum could not be established without sweeping away many intrenchments of factional interest and private opportunity； and this was not at all the purpose of the committee on rules。 It took its character and direction from an old feud between Morrison and Randall。 Morrison； as chairman of the Ways and Means Committee in 1876； had reported a tariff reform measure which was defeated by Randall's influence。 Then Randall； who had succeeded to the Speakership； transferred Morrison from the chairmanship of the Ways and Means Committee to the chairmanship of the committee on public lands。 But Morrison was a man who would not submit to defeat。 He was a veteran of the Civil War； and had been severely wounded in leading his regiment at Fort Donelson。 After the war； he figured in Illinois politics and served as Speaker of the State Legislature。 He entered Congress in 1873 and devoted himself to the study of the tariff with such intelligence and thoroughness that his speeches are still an indispensable part of the history of tariff legislation。 His habitual manner was so mild and unassuming that it gave little indication of the force of his personality； which was full of energy and perseverance。
Randall was more imperious in his mien。 He was a party leader of established renown which he had gained in the struggles over force bills at the close of the reconstruction period。 His position on the tariff was that of a Pennsylvania protectionist； and upon the tariff reform issue in 1883； he was defeated for the Speakership。 At that time； John G。 Carlisle of Kentucky was raised to that post； while Morrison again became chairman of the Ways and Means Committee。 But Randall； now appointed chairman of the Appropriations Committee； had so great an influence that he was able to turn about forty Democratic votes against the tariff bill reported by the Ways and Means Committee； thus enabling the Republicans to kill the bill by striking out the enacting clause。
Only this practical aim； then； was in view in the reports presented by the committee on rules。 The principal feature of the majority report was a proposal to curtail the jurisdiction of the Appropriations Committee by transferring to other committees five of the eleven regular appropriation bills。 What； from the constitutional point of view； would appear to be the main questionthe recovery by the House of its freedom of actionwas hardly noticed in the report or in the debates which followed。 Heretofore； the rules had allotted certain periods to general business； now； the majority report somewhat enlarged these periods and stipulated that no committee should bring more than one proposal before the House until all other committees had had their turn。 This provision might have been somewhat more effective had it been accompanied by a revision of the list of committees such as was proposed by William M。 Springer。 He pointed out that there were a number of committees 〃that have no business to transact or business so trifling and unimportant as to make it unnecessary to have standing committees upon such subjects〃； he proposed to abolish twenty…one of these committees and to create four new ones to take their place； he showed that 〃if we allow these twenty useless committees to be again put on our list； to be called regularly in the morning hour。。。 forty…two days will be consumed in calling these committees〃； and； finally； he pointed out that the change would effect a saving since it would 〃do away with sixteen committee clerkships。〃
This saving was； in fact； fatal to the success of Springer's proposal； since it meant the extinction of so many sinecures bestowed through congressional favor。 In the end； Springer reduced his proposed change to the creation of one general committee on public expenditures to take the place of eight committees on departmental expenditures。 It was notorious that such committees did nothing and could do nothing； and their futility； save as dispensers of patronage； had been demonstrated in a startling manner by the effect of the Acts of July 12； 1870； and June 20； 1874； requiring all unused appropriations to be paid into the Treasury。 The amounts thus turned into the Treasury aggregated 174；000；000 and in a single bureau there was an unexpended balance of 36；000；000； which had accumulated for a quarter of a century because Congress had not been advised that no appropriation was needed。 Mr。 Springer remarked that； during the ten years in which he had been a member of Congress； he had observed with regard to these committees 〃that in nearly all cases； after their appointment； organization； and the election of a clerk； the committee practically ceased to exist； and nothing further is done。〃 William R。 Morrison at once came to the rescue of the endangered sinecures and argued that even although these committees had been inactive in the past they 〃constituted the eyes； the ears； and the hands of the House。〃 In consequence； after a short debate Mr。 Springer's motion was rejected without a division。
The arrangements subsequently made to provide time and opportunity for general legislation； turned out in practice to be quite futile and indeed they were never more than a mere formal pretense。 It was quite obvious； therefore； that the new rules tended only to make the situation worse than before。 Thomas Ryan of Kansas told the plain truth when he said： 〃You do not propose to remedy any of those things of which you complain by any of the rules you have brought forward。 You propose to clothe eight committees with the same power； with the same temptation and capacity to abuse it。 You multiply eightfold the very evils of which you complain。〃 James H。 Blount of Georgia sought to mitigate the evils of the situation by giving a number of other committees the same privilege as the appropriation committees； but this proposal at once raised a storm； for appropriation committees had leave to report at any time； and to extend the privilege would prevent expeditious handling of appropriation bills。 Mr。 Blount's motion was； therefore； voted down without a division。
While in the debate； the pretense of facilitating routine business was ordinarily kept up； occasional intimations of actual ulterior purpose lea