reside,
the minister who did preside discharged many functions of the king.
The power of governing the country was practically transferred. It
was shared, not between the minister and the king, but between the
head of the ministry and the head of the opposition. For Party
implies the existence of a party which is out as well as a party that
is in. There is a potential ministry ready for office whenever the
majority is shifted. As Walpole remained twenty-one years in office,
he ignored this part of the constitutional system. He never became a
leader of opposition, and when he resigned, no such thing had been
provided. "All the talents" were opposed to him, but they were not an
organised opposition. They were discontented and offended Whigs,
assailing ministers on no ground of principle. This form of
opposition was instituted by Pulteney, when he quarrelled with
Walpole. Pulteney founded the Craftsman, in which there was much good
political writing. For Bolingbroke had returned to England, and as he
was not allowed to resume his seat in the Lords, he could make his
power felt only through his pen. As he was thoroughly cured of his
Jacobite sympathies, the doctrine he proclaimed was a Toryism stripped
of the reactionary element. He proposed to make the State dominate
over all the interests--land, Church, trade, and the like. That this
might be done, and the government by a class for a class abolished, he
appealed to the crown. The elevation of the State over the dominant
classes had been the part of intelligent Monarchy in every age. And
it is the spell by which Bolingbroke transformed Toryism and
introduced the party called the King's Friends, which became a power
in the middle of the century, and was put an end to by Mr. Pitt,
after losing America, and setting up an English rival to England.
After the final fall of the Stuarts in 1746, this was the moving force
of Toryism, and the illiberal spirit was seriously curbed. Macaulay
goes so far as to say that the Tories became more liberal than the
Whigs. But it was an academic and Platonic liberality that did not
strengthen the constitution.

The Whigs, having added the unwritten clauses, exclusive government by
party, cabinet instead of council, and premier instead of king, did
nothing to discover defects to be reformed and principles to be
developed. They became Conservatives, satisfied with defending the
new dynasty and the institutions that accompanied