establish no valid title. The one half of it should, as belonging to history, go over to our historical professors. The other half should, as belonging to conventions which illustrate the growth of law, be transferred either to my friend the Corpus
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Professor of Jurisprudence, because it is his vocation to deal with the oddities or the outlying portions of legal science, or to my friend the Chichele Professor of International Law, because he being a teacher of law which is not law, and being accustomed to expound those rules of public ethics which are miscalled international law, will find himself at home in expounding political ethics which, on the hypothesis under consideration, are miscalled constitutional law.
Before, however, admitting the truth of the supposition that “constitutional law” is in no sense law at all, it will be well to examine a little further into the precise meaning which we attach to the term constitutional law, and then consider how far it is a fit subject for legal exposition.
It consists of two different kinds of rules.
Constitutional law, as the term is used in England, appears to include all rules which directly or indirectly affect the distribution or the exercise of the sovereign power in the state.12 Hence it includes (among other things) all rules which define the members of the sovereign power, all rules which regulate the relation of such members to each other, or which determine the mode in which the sovereign power, or the members thereof, exercise their authority. Its rules prescribe the order of succession to the throne, regulate the prerogatives of the chief magistrate, determine the form of the legislature and its mode of election. These rules also deal with Ministers, with their responsibility, with their spheres of action, define the territory over which the sovereignty of the state extends and settle who are to be deemed subjects or citizens. Observe the use of the word “rules,” not “laws.” This employment of terms is intentional. Its object is to call attention to the fact that the rules which make up constitutional law, as the term is used in England, include two sets of principles or maxims of a totally distinct character.
(i.) Rules which are true laws—law of the constitution.
The one set of rules are in the strictest sense “laws,” since they are rules which (whether written or unwritten, whether enacted by statute
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or derived from the mass of custom, tradition, or judge-made maxims known as the Common Law) are enforced by the Courts; these rules constitute “constitutional law” in the proper sense of that term, and may for the sake of distinction be called collectively “the law of the constitution.”
(ii.) Rules which are not laws—conventions of the constitution.
The other set of rules consist of conventions, understandings, habits, or practices which, though they may regulate the conduct of the several members of the sovereign power, of the Ministry, or of other officials, are not in reality laws at all since they are not enforced by the Courts. This portion of constitutional law may, for the sake of distinction, be termed the “conventions of the constitution,” or constitutional morality.
To put the same thing in a somewhat different shape, “constitutional law,” as the expression is used in England, both by the public and by authoritative writers, consists of two elements. The one element, here called the “law of the constitution,” is a body of undoubted law; the other element, here called the “conventions of the constitution,” consists of maxims or practices which, though they regulate the ordinary conduct of the Crown, of Ministers, and of other persons under the constitution, are not in strictness laws at all. The contrast between the law of the constitution and the conventions of the constitution may be most easily seen from examples.
Examples of rules belonging to law of constitution.
To the law of the constitution belong the following rules:
“The King can do no wrong.” This maxim, as now interpreted by the Courts, means, in the first place, that by no proceeding known to the law can the King be made personally responsible for any act done by him; if (to give an absurd example) the King were himself to shoot the Premier through the head, no court in England could take cognisance of the act. The maxim means, in the second place, that no one can plead the orders of the Crown or indeed of any superior officer in defence of any act not otherwise justifiable by law; this principle in both its applications is (be it noted) a law and a law of the constitution, but it is not a written law. “There is no power in the Crown to dispense with the obligation to obey a law;” this negation or abolition of the dispensing power now depends upon the Bill of Rights; it is a law of the Constitution and a written law. “Some person is legally responsible for every act done by the Crown.” This responsibility of
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Ministers appears in foreign countries as a formal part of the constitution; in England it results from the combined action of several legal principles, namely, first, the maxim that the King can do no wrong; secondly, the refusal of the Courts to recognise any act as done by the Crown, which is not done in a particular form, a form in general involving the affixing of a particular seal by a Minister, or the counter-signature or something equivalent to the counter-signature of a Minister; thirdly, the principle that the Minister who affixes a particular seal, or countersigns his signature, is responsible for the act which he, so to speak, endorses;13 this again is part of the constitution and a law, but it is not a written law. So again the right to personal liberty, the right of public meeting, and many other rights, are part of the law of the constitution, though most of these rights are consequences of the more general law or principle that no man can be punished except for direct breaches of law (i.e. crimes) proved in the way provided by law (i.e. before the Courts of the realm).
To the conventions of the constitution belong the following maxims:
Examples of rules which belong to conventions of the constitution.
“The King must assent to, or (as it is inaccurately expressed) cannot ‘veto’14 any bill passed by the two Houses of Parliament”; “the House of Lords does not originate any money bill”; “when the House of Lords acts as a Court of Appeal, no peer who is not a law lord takes part in the decisions of the House”; “Ministers resign office when they have ceased to command the confidence of the House of Commons”; “a bill must be read a certain number of times before passing through the House of Commons.” These maxims are distinguished from each other by many differences;15 under a new or written constitution
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some of them probably would and some of them would not take the form of actual laws. Under the English constitution they have one point in common: they are none of them “laws” in the true sense of that word, for if any or all of them were broken, no court would take notice of their violation.
It is to be regretted that these maxims must be called “conventional,” for the word suggests a notion of insignificance or unreality. This, however, is the last idea which any teacher would wish to convey to his hearers. Of constitutional conventions or practices some are as important as any laws, though some may be trivial, as may also be the case with a genuine law. My object, however, is to contrast, not shams with realities, but the legal element with the conventional element of so-called “constitutional law.”
Distinction between laws and conventions not the same as difference between written and unwritten law.
This distinction differs essentially, it should be noted, from the distinction between “written law” (or statute law) and “unwritten law” (or common law). There are laws
