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 is guided by a special leader in the person of the chairman of the Standing Committee, charged with the superintendence of measures of the particular class to which that topic belongs. It is this multiplicity of leaders, this many-headed leadership, which makes the organization of the House too complex to afford uninformed people and unskilled observers any easy clue to its methods of rule. For the chairmen of the Standing Committees do not constitute a cooperative body like a ministry. They do not consult and concur in the adoption of homogeneous and mutually helpful measures; there is no thought of acting in concert. Each Committee goes its own way at its own pace. It is impossible to discover any unity or method in the disconnected and therefore unsystematic, confused, and desultory action of the House, or any common purpose in the measures which its Committees from time to time recommend.

And it is not only to the unanalytic thought of the common observer who looks at the House from the outside that its doings seem helter-skelter, and without comprehensible rule; it is not at once easy to understand them when they are scrutinized in their daily headway through open session by one who is inside the House. The newly-elected member, entering its doors for the first time, and with no more knowledge