James Mill, who thought him
worth 'nursing.' Place found him at first 'dull and selfish,' but
'nursed him' so well that by 1836 he had become the 'man of
men,'--Wallas's _Francis Place_, p. 181, 182.

[68] Torrens's _Life of Graham_, i. 250-72, where his great speech of
14th May 1830 is given.

[69] 2 and 3 William IV. cap. 111 (passed 15 August 1832).

[70] 4 and 5 William IV. cap. 15.

[71] _The Platform, its Origin and Progress_, by Henry Jephson (1892),
gives a very interesting historical account of the process.

[72] 57 George III. cap. 19, and 60 George III. cap. 6.

[73] See Jephson's _Platform_, pp. 167-70.

[74] See Jephson's _Platform_, i. 348, 455, 517.

[75] See _Ibid._ ii. 129-40 for some interesting passages as to this.

[76] _Official Correspondence_ (1887), 308.

[77] Greville's _George IV. and William IV._, iii. 155, 167-69, 171.

[78] Bentham's _Works_, x. 571.

[79] Romilly's _Memoirs_, ii. 67, 222.

CHAPTER III

POLITICAL THEORY

I. MILL ON GOVERNMENT

I now turn to the general political theory of which Mill was the
authoritative exponent. The _Encyclopaedia_ article upon 'Government'
(1820) gives the pith of their doctrine. It was, as Professor Bain[80]
thinks, an 'impelling and a guiding force' in the movement which
culminated in the Reform Bill. The younger Utilitarians regarded it,
says J. S. Mill, as 'a masterpiece of political wisdom';[81] while
Macaulay[82] taunts them for holding it to be 'perfect and
unanswerable.' This famous article is a terse and energetic summary of
the doctrine implied in Bentham's _Works_, but there obscured under
elaboration of minute details. It is rather singular, indeed, that so
vigorous a manifesto of Utilitarian dogma should have been accepted by
Macvey Napier--a sound Whig--for a publication which professed
scientific impartiality. It has, however, in the highest degree, the
merits of clearness and condensation desirable in a popular
exposition. The reticence appropriate to the place excuses the
omission of certain implicit conclusions. Mill has to give a complete
theory of politics in thirty-two 8vo pages. He has scanty room for
qualifying statement or historical illustration. He speaks as from the
chair of a professor laying down the elementary principles of a
demonstrated science.[83]

Mill starts from the sacred principle. The end of government, as the
end of all conduct, must be the increase of human happiness. The
province o