Sir Leslie Stephen (1832-1904) was an English author and critic, the father of two famous daughters, Virginia Woolf and Vanessa Bell. Stephen was born at Kensington Gore in London, the brother of James Fitzjames Stephen and grandson of James Stephen. His family belonged to the Clapham Sect, a Christian group. At his father's house he saw a good deal of the Macaulays, James Spedding, Sir Henry Taylor and Nassau Senior. After studying at Eton College and Trinity Hall, Cambridge, where he graduated B. A. (20th wrangler) in 1854 and M. A. in 1857.

Bentham's position is in one respect unique. There have been many greater thinkers; but there has been hardly any one whose abstract theory has become in the same degree the platform of an active political party. To accept the philosophy was to be also pledged to practical applications of Utilitarianism. What, then, was the revelation made to the Benthamites, and to what did it owe its influence? The central doctrine is expressed in Bentham's famous formula: the test of right and wrong is the 'greatest happiness of the greatest number.' There was nothing new in this assertion. It only expresses the fact that Bentham accepted one of the two alternatives which have commended themselves to conflicting schools ever since ethical speculation was erected into a separate department of thought. Moreover, the side which Bentham took was, we may say, the winning side. The ordinary morality of the time was Utilitarian in substance. Hutcheson had invented the sacred phrase: and Hume had based his moral system upon 'utility.'(1*) Bentham had learned much from Helvétius the French freethinker, and had been anticipated by Paley the English divine. The writings in which Bentham deals explicitly with the general principles of Ethics would hardly entitle him to a higher position than that of a disciple of Hume without Hume's subtlety; or of Paley without Paley's singular gift of exposition. Why, then, did Bentham's message come upon his disciples with the force and freshness of a new revelation? Our answer must be in general terms that Bentham founded not a doctrine but a method: and that the doctrine which came to him simply as a general principle was in his hands a potent instrument applied with most fruitful results to questions of immediate practical interest.

Beyond the general principle of utility, therefore, we have to consider the organon, constructed by him to give effect to a general principle too vague to be applied in detail. The fullest account of this is contained in the Introduction to the Principles of Morals and Legislation. This work unfortunately is a fragment, but it gives his doctrine vigorously and decisively, without losing itself in the minute details which become wearisome in his later writings. Bentham intended it as an introduction to a penal code; and his investigation sent him back to more general problems. He found it necessary to settle the relations of the penal code to the whole body of law; and to settle these he had to consider the principles which underlie legislation in general. He had thus, he says, to 'create a new science,' and then to elaborate one department of the science. The 'introduction' would contain prolegomena not only for the penal code but for the other departments of inquiry which he intended to exhaust.(2*) He had to lay down primary truths which should be to this science what the axioms are to mathematical sciences.(3*) These truths therefore belong to the sphere of conduct in general, and include his ethical theory.

'Nature has placed mankind' (that is his opening phrase) 'under the governance of two sovereign masters, pain and pleasure. It is for them alone to point out what we ought to do, as well as to determine what we shall do.' there is the unassailable basis. It had been laid down as unequivocally by Locke,(4*) and had been embodied in the brilliant couplets of Pope's Essay on Man.(5*) At the head of the curious table of universal knowledge, given in the Chrestomathia, we have Eudaemonics as an all-comprehensive name of which every art is a branch.(6*) Eudaemonics, as an art, corresponds to the science 'ontology.' It covers the whole sphere of human thought. It means knowledge in general as related to conduct. Its first principle, again, requires no more proof than the primary axioms of arithmetic or geometry. Once understood, it is by the same act of the mind seen to be true. Some people, indeed, do not see it. Bentham rather ignores than answers some of their arguments. But his mode of treating opponents indicates his own position. 'Happiness,' it is often said, is too vague a word to be the keystone of an ethical system; it varies from man to man: or it is 'subjective,' and therefore gives no absolute or independent ground for morality. A morality of 'eudaemonism' must be an 'empirical' morality, and we can never extort from it that 'categorical imperative,' without which we have instead of a true morality a simple system of 'expediency.' From Bentham's point of view the criticism must be retorted. He regards 'happiness' as precisely the least equivocal of words; and 'happiness' itself as therefore affording the one safe clue to all the intricate problems of human conduct. The authors of the Federalist, for example, had said that justice was the 'end of government.' 'Why not happiness?' asks Bentham. 'What happiness is every man knows, because what pleasure is, every man knows, and what pain is, every man knows. But what justice is -- this is what on every occasion is the subject-matter of dispute.'(7*) that phrase gives his view in a nutshell. Justice is the means, not the end. That is just which produces a maximum of happiness. Omit all reference to Happiness, and Justice becomes a meaningless word prescribing equality, but not telling us equality of what. Happiness, on the other hand, has a substantial and independent meaning from which the meaning of justice can be deduced. It has therefore a logical priority: and to attempt to ignore this is the way to all the labyrinths of hopeless confusion by which legislation has been made a chaos. Bentham's position is indicated by his early conflict with Blackstone, not a very powerful representative of the opposite principle. Blackstone, in fact, had tried to base his defence of that eminently empirical product, the British Constitution, upon some show of a philosophical groundwork. He had used the vague conception of a 'social contract,' frequently invoked for the same purpose at the revolution of 1688, and to eke out his arguments applied the ancient commonplaces about monarchy, aristocracy, and democracy. He thus tried to invest the constitution with the sanctity derived from this mysterious 'contract,' while appealing also to tradition or the incarnate 'wisdom of our ancestors,' as shown by their judicious mixture of the three forms. Bentham had an easy task, though he performed it with remarkable vigour, in exposing the weakness of this heterogeneous aggregate. Look closely, and this fictitious contract can impose no new obligation: for the obligation itself rests upon Utility. Why not appeal to Utility at once? I am bound to obey, not because my great-grandfather may be regarded as having made a bargain, which he did not really make, with the great-grandfather of George III; but simply because rebellion does more harm than good. The forms of government are abstractions, not names of realities, and their 'mixture' is a pure figment. King, Lords, and Commons are not really incarnations of power, wisdom, and goodness. Their combination forms a system the merits of which must in the last resort be judged by its working. 'It is the principle of utility, accurately apprehended and steadily applied, that affords the only clew to guide a man through these streights.'(8*) So much in fact Bentham might learn from Hume; and to defend upon any other ground the congeries of traditional arrangements which passed for the British Constitution was obviously absurd. lt was in this warfare against the shifting and ambiguous doctrines of Blackstone that Bentham first showed the superiority of his own method: for, as between the two, Bentham's position is at least the most coherent and intelligible.

Blackstone, however, represents little more than a bit of rhetoric embodying fragments of inconsistent theories. The Morals and Legislation opens by briefly and contemptuously setting aside more philosophical opponents of Utilitarianism. The 'ascetic' principle, for example, is the formal contradiction of the principle of Utility, for it professedly declares pleasure to be evil. Could it be consistently carried out it would turn earth into hell. But in fact it is at bottom an illegitimate corollary from the very principle which it ostensibly denies. It professes to condemn pleasure in general; it really means that certain pleasures can only be bought at an excessive cost of pain. Other theories are contrivances for avoiding the appeal 'to any external standard'; and in substance, therefore, they make the opinion of the individual theorist an ultimate and sufficient reason. Adam Smith by his doctrine of 'sympathy' makes the sentiment of approval itself the ultimate standard. My feeling echoes yours, and reciprocally; each cannot derive authority from the other. Another man (Hutcheson) invents a thing made on purpose to tell him what is right and what is wrong and calls it a 'moral sense.' Beattie substitutes 'common' for 'moral' sense, and his doctrine is attractive because every man supposes himself to possess common-sense. Others, like Price, appeal to the Understanding, or, like Clarke, to the 'Fitness of things,' or they invent such phrases as 'Law of Nature,' or 'Right Reason' or 'Natural Justice,' or what you please. Each really means that whatever he says is infallibly true and self-evident. Wollaston discovers that the only wrong thing is telling a lie; or that when you kill your father, it is a way of saying that he is not your father, and the same method is applicable to any conduct which he happens to dislike. The 'fairest and openest of them all' is the man who says, 'I am of the number of the Elect'; God tells the Elect what is right: therefore if you want to know what is right, you have only to come to me.(9*) Bentham is writing here in his pithiest style. His criticism is of course of the rough and ready order; but I think that in a fashion he manages to hit the nail pretty well on the head.

His main point, at any rate, is clear. He argues briefly that the alternative systems are illusory because they refer to no 'external standard.' His opponents, not he, really make morality arbitrary. This, whatever the ultimate truth, is in fact the essential core of all the Utilitarian doctrine descended from or related to Benthamism. Benthamism aims at converting morality into a science. Science, according to him, must rest upon facts. It must apply to real things, and to things which have definite relations and a common measure. Now, if anything be real, pains and pleasures are real. The expectation of pain or pleasure determines conduct; and, if so, it must be the sole determinant of conduct. The attempt to conceal or evade this truth is the fatal source of all equivocation and confusion. Try the experiment. Introduce a 'moral sense.' What is its relation to the desire for happiness? If the dictates of the moral sense be treated as ultimate, an absolutely arbitrary element is introduced; and we have One of the 'innate ideas' exploded by Locke, a belief summarily intruded into the system without definite relations to any other beliefs: a dogmatic assertion which refuses to be tested or to be correlated with other dogmas; a reduction therefore of the whole system to chaos. It is at best an instinctive belief which requires to be justified and corrected by reference to some other criterion. Or resolve morality into 'reason,' that is, into some purely logical truth, and it then remains in the air -- a mere nonentity until experience has supplied some material upon which it can work. Deny the principle of utility, in short, as he says in a vigorous passage,(10*) and you are involved in a hopeless circle. Sooner or later you appeal to an arbitrary and despotic principle and find that you have substituted words for thoughts.

The only escape from this circle is the frank admission that happiness is, in fact, the sole aim of man. There are, of course, different kinds of happiness as there are different kinds of physical forces. But the motives to action are, like the physical forces, commensurable. Two courses of conduct can always be compared in respect of the happiness produced, as two motions of a body can be compared in respect of the energy expended. If, then, we take the moral judgment to be simply a judgment of amounts of happiness, the whole theory can be systematised, and its various theorems ranged under a single axiom or consistent set of axioms. Pain and pleasure give the real value of actions; they are the currency with a definite standard into which every general rule may be translated. There is always a common measure applicable in every formula for the estimation of conduct. If you admit your Moral Sense, you profess to settle values by some standard which has no definite relation to the standard which in fact governs the normal transactions. But any such double standard, in which the two measures are absolutely incommensurable, leads straight to chaos. Or, if again you appeal to reason in the abstract, you are attempting to settle an account by pure arithmetic without reference to the units upon which your operation is performed. Two pounds and two pounds will make four pounds whatever a pound may be; but till I know what it is, the result is nugatory. Somewhere I must come upon a basis of fact, if my whole construction is to stand.

This is the fundamental position implied in Bentham's doctrine. The moral judgment is simply one case of the judgment of happiness. Bentham is so much convinced of this that to him there appeared to be in reality no other theory. What passed for theories were mere combinations of words. Having said this, we know where to lay the foundations of the new science. It deals with a vast complicity of facts: it requires 'investigations as severe as mathematical ones, but beyond all comparison more intricate and extensive.'(11*) Still it deals with facts, and with facts which have a common measure, and can, therefore, be presented as a coherent system. To present this system, or so much of it as is required for purposes of legislation, is therefore his next task. The partial execution is the chief substance of the Introduction. Right and wrong conduct, we may now take for granted, mean simply those classes of conduct which are conducive to or opposed to happiness; or, in the sacred formula, to act rightly means to promote the greatest happiness of the greatest number. The legislator, like every one else, acts rightly in so far is he is guided by the principle (to use one of the phrases joined by Bentham) of 'maximising' happiness. He seeks to affect conduct; and conduct can be affected only by annexing pains or pleasures to given classes of actions. Hence we have a vitally important part of his doctrine -- the theory of 'sanctions.' Pains and pleasures as annexed to action are called 'sanctions.' There are 'physical or natural,' 'political,' 'moral or popular,' and 'religious' sanctions. The 'physical' sanctions are such pleasures and pains as follow a given course of conduct independently of the interference of any other human or supernatural being; the 'political' those which are annexed by the action of the legislator. The 'moral or popular' those which are annexed by other individuals not acting in a corporate capacity; and the 'religious' those which are annexed by a 'superior invisible being,' or, as he says elsewhere,(12*) 'such as are capable of being expected at the lands of an invisible Ruler of the Universe.' the three last sanctions, he remarks, 'operate through the first.' The 'magistrate' or 'men at large' can only operate, and God is supposed only to operate, 'through the powers of nature,' that is, by applying some of the pains and pleasures which may also be natural sanctions. A man is burnt: if by his own imprudence, that is a 'physical' sanction; if by the magistrate, it is a 'political' sanction; if by some neglect of his neighbours, due to their dislike of his 'moral character,' a 'moral' sanction; if by the immediate act of God or by distraction caused by dread of God's displeasure, it is a 'religious' sanction. Of these, as Bentham characteristically observes(13*) in later writing the political is much stronger than the 'moral' or 'religious.' Many men fear the loss of character or the 'wrath of Heaven,' but all men fear the scourge and the gallows.(14*) He admits, however, that the religious sanction and the additional sanction of 'benevolence' have the advantage of not requiring that the offender should be found out.(15*) But in any case, the 'natural' and religious sanctions are beyond the legislator's power. His problem, therefore, is simply this: what sanctions ought he to annex to conduct, or remembering that 'ought' means simply 'conducive to happiness,' what political sanctions will increase happiness?

To answer this fully will be to give a complete system of legislation; but in order to answer it we require a whole logical and psychological apparatus. Bentham shows this apparatus at work, but does not expound its origin in any separate treatise. Enough information, however, is given as to his method in the curious collection of the fragments connected with the Chrestomathia. A logical method upon which he constantly insisted is that of 'bipartition,'(16*) called also the 'dichotomous' or 'bifurcate' method, and exemplified by the stalled 'Porphyrian Tree.' The principle is, of course, simple. Take any genus: divide it into two classes, one of which has and the other has not a certain mark. The two classes must be mutually exclusive and together exhaustive. Repeat the operation upon each of the classes and continue the process as long as desired.(17*) At every step you thus have a complete enumeration of all the species, varieties, and so on, each of which excludes all the others. No mere logic, indeed, can secure the accuracy and still less the utility of the procedure. The differences may be in themselves ambiguous or irrelevant. If I classify plants as 'trees' and 'not trees,' the logical form is satisfied: but I have still to ask whether 'tree' conveys a determinate meaning, and whether the distinction corresponds to a difference of any importance. A perfect classification, however, could always be stated in this form. Each species, that is, can be marked by the presence or absence of a given difference, whether we are dealing with classes of plants or actions: and Bentham aims at that consummation though he admits that centuries may be required for the construction of an accurate classification in ethical speculations.(18*) He exaggerates the efficiency of his method, and overlooks the tendency of tacit assumptions to smuggle themselves into what affects to be a mere enumeration of classes. But in any case, no one could labour more industriously to get every object of his thought arranged and labelled and put into the right pigeon-hole of his mental museum. To codify(19*) is to classify, and Bentham might be defined as a codifying animal.

Things thus present themselves to Bentham's mind as already prepared to fit into pigeon-holes. This is a characteristic point, and it appears in what we must call his metaphysical system. 'Metaphysics,' indeed, according to him, is simply 'a sprig,' and that a small one, of the 'branch termed Logic.'(20*) It is merely the explanation of certain general terms such as 'existence,' 'necessity,' and so forth.(21*) Under this would apparently fall the explanation of 'reality' which leads to a doctrine upon which he often insists, and which is most implicitly given in the fragment called Ontology. He there distinguishes 'real' from 'fictitious entities,' a distinction which, as he tells us,(22*) he first learned from d'Alembert's phrase Êtres fictifs, and which he applies in his Morals and Legislation. 'Real entities,' according to him,(23*) are 'individual perceptions,' 'impressions,' and 'ideas.' In this, of course, he is following Hume, though he applies the Johnsonian argument to Berkeley's immaterialism.(24*) A 'fictitious entity' is a name which does not 'raise up in the mind any correspondent images.'(25*) Such names owe their existence to the necessities of language. Without employing such fictions, however, 'the language of man could not have risen above the language of brutes';(26*) and he emphatically distinguishes them from 'unreal' or 'fabulous entities.' A 'fictitious entity' is not a 'nonentity.'(27*) He includes among such entities all Aristotle's 'predicaments' except the first: 'substance.'(28*) Quantity, quality, relation, time, place are all 'physical fictitious entities.' This is apparently equivalent to saying that the only 'physical entities' are concrete things -- sticks, stones, bodies, and so forth -- the 'reality' of which he takes for granted in the ordinary common-sense meaning. It is also perfectly true that things are really related, have quantity and quality, and are in time and space. But we cannot really conceive the quality or relation apart from the concrete things so qualified and related. We are forced by language to use substantives which in their nature have only the sense of adjectives. He does not suppose that a body is not really square or round; but he thinks it a fiction to speak of squareness or roundness or space in general as something existing apart from matter and, in some sense, alongside of matter.

This doctrine, which brings us within sight of metaphysical problems beyond our immediate purpose, becomes important to his moral speculation. His special example of a 'fictitious entity' in politics is 'obligation.'(29*) Obligations, rights, and similar words are 'fictitious entities.' Obligation in particular implies a metaphor. The statement that a man is 'obliged' to perform an act means simply that he will suffer pain if he does not perform it. The use of the word obligation, as a noun substantive, introduces the 'fictitious entity' which represents nothing really separable from the pain or pleasure. Here, therefore, we have the ground of the doctrine already noticed. 'Pains and pleasures' are real.(30*) 'Their existence,' he says,(31*) 'is matter of universal and constant experience.' But other various names referring to these: emotion, inclination, vice, virtue, etc., are only 'psychological entities.' 'Take away pleasures and pains, not only happiness but justice and duty and obligation and virtue -- all of which have been so elaborately held up to view as independent of them -- are so many empty sounds.'(32*) The ultimate facts, then, are pains and pleasures. They are the substantives of which these other words are properly the adjectives. A pain or a pleasure may exist by itself, that is without being virtuous or vicious: but virtue and vice can only exist in so far as pain and pleasure exists.

This analysis of 'obligation' is a characteristic doctrine of the Utilitarian school. We are under an 'obligation' so far as we are affected by a 'sanction.' It appeared to Bentham so obvious as to need no demonstration, only an exposition of the emptiness of any verbal contradiction. Such metaphysical basis as he needed is simply the attempt to express the corresponding conception of reality which, in his opinion, only requires to be expressed to carry conviction.

II. SPRINGS OF ACTION

Our path is now clear. Pains and pleasures give us what mathematicians call the 'independent variable.' Our units are (in Bentham's phrase) 'lots' of pain or pleasure. We have to interpret all the facts in terms of pain or pleasure, and we shall have the materials for what has since been called a 'felicific calculus.' To construct this with a view to legislation is his immediate purpose. The theory will fall into two parts: the 'pathological,' or an account of all the pains and pleasures which are the primary data; and the 'dynamical,' or an account of the various modes of conduct determined by expectations of pain and pleasure. This gives the theory of 'springs of action,' considered in themselves, and of 'motives,' that is, of the springs as influencing conduct.(33*) The 'pathology' contains, in the first place, a discussion of the measure of pain and pleasure in general; secondly, a discussion of the various species of pain and pleasure; and thirdly, a discussion of the varying sensibilities of different individuals to pain and pleasure.(34*) Thus under the first head, we are told that the value of a pleasure, considered by itself, depends upon its intensity, duration, certainty, and propinquity; and, considered with regard to modes of obtaining it, upon its fecundity (or tendency to produce other pains and pleasures) and its purity (or freedom from admixture of other pains and pleasures). The pain or pleasure is thus regarded as an entity which is capable of being in some sense weighed and measured.(35*) The next step is to classify pains and pleasures, which though commensurable as psychological forces, have obviously very different qualities. Bentham gives the result of his classification without the analysis upon which it depends. He assures us that he has obtained an 'exhaustive' list of 'simple pleasures.' It must be confessed that the list does not commend itself either as exhaustive or as composed of 'simple pleasures.' He does not explain the principle of his analysis because he says, it was of 'too metaphysical a cast,'(36*) but he thought it so important that he published it, edited with considerable modifications by James Mill, in 1817, as a Table of the Springs of Action.(37*)

J. S. Mill remarks that this table should be studied by any one who would understand Bentham's philosophy. Such a study would suggest some unfavourable conclusions. Bentham seems to have made out his table without the slightest reference to any previous psychologist. It is simply constructed to meet the requirements of his legislative theories. As psychology it would be clearly absurd, especially if taken as giving the elementary or 'simple' feelings. No one can suppose, for example, that the pleasures of 'wealth' or 'power' are 'simple' pleasures. The classes therefore are not really distinct, and they are as far from being exhaustive. All that can be said for the list is that it gives a sufficiently long enumeration to call attention from his own point of view to most of the ordinary pleasures and pains; and contains. as much psychology as he could really turn to account for his purpose.

The omissions with which his greatest disciple charges him are certainly significant. We find, says Mill, no reference to 'Conscience,' 'Principle,' 'Moral Rectitude,' or 'Moral Duty' among the 'springs of action,' unless among the synonyms of a 'love of reputation,' or in so far as 'Conscience' and 'Principle' are sometimes synonymous with the 'religious' motive or the motive of 'sympathy.' So the sense of 'honour,' the love of beauty, and of order, of power (except in the narrow sense of power over our fellows) and of action in general are all omitted. We may conjecture what reply Bentham would have made to this criticism. The omission of the love of beauty and aesthetic pleasures may surprise us when we remember that Bentham loved music, if he cared nothing for poetry. But he apparently regarded these as 'complex pleasures,'(38*) and therefore not admissible into his table, if it be understood as an analysis into the simple pleasures alone. The pleasures of action are deliberately omitted, for Bentham pointedly gives the 'pains' of labour as a class without corresponding pleasure; and this, though indicative, I think, of a very serious error, is characteristic rather of his method of analysis than of his real estimate of pleasure. Nobody could have found more pleasure than Bentham in intellectual labour, but he separated the pleasure from the labour. He therefore thought 'labour,' as such, a pure evil, and classified the pleasure as a pleasure of 'curiosity.' But the main criticism is more remarkable. Mill certainly held himself to be a sound Utilitarian; and yet he seems to be condemning Bentham for consistent Utilitarianism. Bentham, by admitting the 'conscience' into his simple springs of action, would have fallen into the very circle from which he was struggling to emerge. If, in fact, the pleasures of conscience are simple pleasures, we have the objectionable 'moral sense' intruded as an ultimate factor of human nature. To get rid of that 'fictitious entity' is precisely Bentham's aim. The moral judgment is to be precisely equivalent to the judgment: 'this or that kind of conduct increases or diminishes the sum of human pains or pleasures.' Once allow that among the pains and pleasures themselves is an ultimate conscience -- a faculty not constructed out of independent pains and pleasures -- and the system becomes a vicious circle. Conscience on any really Utilitarian scheme must be a derivative, not an ultimate, faculty. If, as Mill seems to say, the omission is a blunder, Bentham's Utilitarianism at least must be an erroneous system.

We have now our list both of pains and pleasures and of the general modes of variation by which their value is to be measured. We must also allow for the varying sensibilities of different persons. Bentham accordingly gives a list of thirty-two 'circumstances influencing sensibility.'(39*) Human beings differ in constitution, character, education, sex, race, and so forth, and in their degrees of sensibility to all the various classes of pains and pleasures; the consideration of these varieties is of the highest utility for the purposes of the judge and the legislator.(40*) The 'sanctions' will operate differently in different cases. A blow will have different effects upon the sick and upon the healthy; the same fine imposed upon the rich and the poor will cause very different pains; and a law which is beneficent in Europe may be a scourge in America.

We have thus our 'pathology' or theory of the passive sensibilities of man. We know what are the 'springs of action,' how they vary in general, and how they vary from one man to another. We can therefore pass to the dynamics.(41*) We have described the machinery in rest, and can now consider it in motion. We proceed as before by first considering action in general: which leads to consideration of the 'intention' and the 'motive' implied by any conscious action: and hence of the relation of these to the 'springs of action' as already described. The discussion is minute and elaborate; and Bentham improves as he comes nearer to the actual problems of legislation and further from the ostensible bases of psychology. The analysis of conduct, and of the sanctions by which conduct is modified, involves a view of morals and of the relations between the spheres of morality and legislation which is of critical importance for the whole Utilitarian creed. 'Moral laws' and a 'Positive law' both affect human action. How do they differ? Bentham's treatment of the problem shows, I think, a clearer appreciation of some difficulties than might be inferred from his later utterances. In any case, it brings into clear relief a moral doctrine which deeply affected his successors.

III. THE SANCTIONS

Let us first take his definitions of the fundamental conceptions. All action of reasonable beings implies the expectation of consequences. The agent's 'intention' is defined by the consequences actually contemplated. The cause of action is the hope of the consequent pleasures or the dread of the consequent pains. This anticipated pleasure or pain constitutes the 'internal motive' (a phrase used by Bentham to exclude the 'external motive' or event which causes the anticipation).(42*) The motive, or 'internal motive,' is the anticipation of pain to be avoided or pleasure to be gained. Actions are good or bad simply and solely as they are on the whole 'productive of a balance of pleasure or pain.' The problem of the legislator is how to regulate actions so as to incline the balance to the right side. His weapons are 'sanctions' which modify 'motives.' What motives, then, should be strengthened or checked? Here we must be guided by a principle which is, in fact, the logical result of the doctrines already laid down. We are bound to apply our 'felicific calculus' with absolute impartiality. We must therefore assign equal value to all motives. 'No motives,' he says,(43*) are 'constantly good or constantly bad.' Pleasure is itself a good; pain itself an evil: nay, they are 'the only good and the only evil.' This is true of every sort of pain and pleasure, even of the pains and pleasures of illwill. The pleasures of 'malevolence' are placed in his 'table' by the side of pleasures of 'benevolence.' Hence it 'follows immediately and incontestably, that there is no such thing as any sort of motive that is in itself a bad one.' The doctrine is no doubt a logical deduction from Bentham's assumptions, and he proceeds to illustrate its meaning. A 'motive' corresponds to one of his 'springs of action.' He shows how every one of the motives included in his table may lead either to good or to bad consequences. The desire of wealth may lead me to kill a man's enemy or to plough his field for him; the fear of God may prompt to fanaticism or to charity; illwill may lead to malicious conduct or may take the form of proper 'resentment,' as, for example, when I secure the punishment of my father's murderer. Though one act, he says, is approved and the other condemned, they spring from the same motive, namely, illwill.(44*) He admits, however, that some motives are more likely than others to lead to 'useful' conduct; and thus arranges them in a certain 'order of pre-eminence.'(45*) It is obvious that 'goodwill,' 'love of reputation,' and the 'desire of amity' are more likely than others to promote general happiness. 'The dictates of utility,' as he observes, are simply the 'dictates of the most extensive and enlightened (that is, well advised) benevolence.' It would, therefore, seem more appropriate to call the 'motive' good; though no one doubts that when directed by an erroneous judgment it may incidentally be mischievous.

The doctrine that morality depends upon 'consequences' and not upon 'motives' became a characteristic Utilitarian dogma, and I shall have to return to the question. Meanwhile, it was both a natural and, I think, in some senses, a correct view, when strictly confined to the province of legislation. For reasons too obvious to expand, the legislator must often be indifferent to the question of motives. He cannot know with certainty what are a man's motives. He must enforce the law whatever may be the motives for breaking it; and punish rebellion, for example, even if he attributes it to misguided philanthropy. He can, in any case, punish only such crimes as are found out; and must define crimes by palpable 'external' marks. He must punish by such coarse means as the gallows and the gaol: for his threats must appeal to the good and the bad alike. He depends, therefore, upon 'external' sanctions, sanctions, that is, which work mainly upon the fears of physical pain; and even if his punishments affect the wicked alone, they clearly cannot reach the wicked as wicked, nor in proportion to their wickedness. That is quite enough to show why in positive law motives are noticed indirectly or not at all. It shows also that the analogy between the positive and the moral law is treacherous. The exclusion of motive justifiable in law may take all meaning out of morality. The Utilitarians, as we shall see, were too much disposed to overlook the difference, and attempt to apply purely legal doctrine in the totally uncongenial sphere of ethical speculation. To accept the legal classification of actions by their external characteristics is, in fact, to beg the question in advance Any outward criterion must group together actions springing from different 'motives' and therefore, as other moralists would say, ethically different.

There is, however, another meaning in this doctrine which is more to the purpose here. Bentham was aiming at a principle which, true or false, is implied in all ethical systems based upon experience instead of pure logic or a priori 'intuitions.' Such systems must accept human nature as a fact, and as the basis of a scientific theory. They do not aim at creating angels but at developing the existing constitution of mankind. So far as an action springs from one of the primitive or essential instincts of mankind, it simply proves the agent to be human, not to be vicious or virtuous, and therefore is no ground for any moral judgment. If Bentham's analysis could be accepted, this would be true of his 'springs of action.' The natural appetites have not in themselves a moral quality: they are simply necessary and original data in the problem. The perplexity is introduced by Bentham's assumption that conduct can be analysed so that the 'motive' is a separate entity which can be regarded as the sole cause of a corresponding action. That involves an irrelevant abstraction. There is no such thing as a single 'motive.' One of his cases is a mother who lets her child die for love of 'ease.' We do not condemn her because she loves ease, which is a motive common to all men and therefore unmoral, not immoral. But neither do we condemn her merely for the bad consequences of a particular action. We condemn her because she loves ease better than she loves her child: that is, because her whole character is 'unnatural' or ill-balanced, not on account of a particular element taken by itself. Morality is concerned with concrete human beings, and not with 'motives' running about by themselves. Bentham's meaning, if we make the necessary correction, would thus be expressed by saying that we don't blame a man because he has the 'natural' passions, but because they are somehow wrongly proportioned or the man himself wrongly constituted. Passions which may make a man vicious may also be essential to the highest virtue. That is quite true; but the passion is not a separate agent, only one constituent of the character.

Bentham admits this in his own fashion. If 'motives' cannot be properly called good or bad, is there, he asks, nothing good or bad in the man who on a given occasion obeys a certain motive? 'Yes, certainly,' he replies, 'his disposition.'(46*) The disposition, he adds, is a 'fictitious entity, and designed for the convenience of discourse in order to express what there is supposed to be permanent in a man's frame of mind.' By 'fictitious,' as we have seen, he means not 'unreal' but simply not tangible, weighable, or measurable-like sticks and stones, or like pains and pleasures. 'Fictitious' as they may be, therefore, the fiction enables us to express real truths, and to state facts which are of the highest importance to the moralist and the legislator. Bentham discusses some cases of casuistry in order to show the relation between the tendency of an action and the intention and motives of the agent. Ravaillac murders a good king; Ravaillac's son enables his father to escape punishment, or conveys poison to his father to enable him to avoid torture by suicide.(47*) What is the inference as to the son's disposition in either case? The solution (as he substantially and, I think, rightly suggests) will have to be reached by considering whether the facts indicate that the son's disposition was mischievous or otherwise; whether it indicates political disloyalty or filial affection, and so forth, and in what proportions. The most interesting case perhaps is that of religious persecution, where the religious motive is taken to be good, and the action to which it leads is yet admitted to be mischievous. The problem is often puzzling, but we are virtually making an inference as to the goodness or badness of the 'disposition' implied by the given action under all the supposed circumstances. This gives what Bentham calls the 'meritoriousness'(48*) of the disposition. The 'intention' is caused by the 'motive.' The 'disposition' is the 'sum of the intentions'; that is to say, it expresses the agent's sensibility to various classes of motives; and the merit therefore will be in proportion to the total goodness or badness of the disposition thus indicated. The question of merit leads to interesting moral problems. Bentham, however, observes that he is not here speaking from the point of view of the moralist but of the legislator. Still, as a legislator he has to consider what is the 'depravity' of disposition indicated by different kinds of conduct. This consideration is of great importance. The 'disposition' includes sensibility to what he calls 'tutelary motives' motives, that is, which deter a man from such conduct as generally produces mischievous consequences. No motive can be invariably, though some, especially the motive of goodwill, and in a minor degree those of 'amity' and a 'love of reputation,' are generally, on the right side. The legislator has to reinforce these 'tutelary motives' by 'artificial tutelary motives,' and mainly by appealing to the 'love of ease,' that is, by making mischievous conduct more difficult, and to 'self-preservation,' that is, by making it more dangerous.(49*) He has therefore to measure the force by which these motives will be opposed; or, in other words, the 'strength of the temptation.' Now the more depraved a man's disposition, the weaker the temptation which will seduce him to crime. Consequently if an act shows depravity, it will require a stronger counter-motive or a more severe punishment, as the disposition indicated is more mischievous. An act, for example, which implies deliberation proves a greater insensibility to these social motives which, as Bentham remarks,(50*) determine the 'general tenor of a man's life,' however depraved he may be. The legislator is guided solely by 'utility,' or aims at maximising happiness without reference to its quality. Still, so far as action implies disposition, he has to cOnsider the depravity as a source of mischief. The legislator who looks solely at the moral quality implied is wrong; and, if guided solely by his sympathies, has no measure for the amount of punishment to be inflicted. These considerations will enable us to see what is the proper measure of resentment.(51*)

The doctrine of the neutrality or 'unmorality' of motive is thus sufficiently clear. Bentham's whole aim is to urge that the criterion of morality is given by the consequences of actions. To say the conduct is good or bad is to say in other words that it produces a balance of pleasure or pain. To make the criterion independent, or escape the vicious circle, we must admit the pleasures and pains to be in themselves neutral; to have, that is, the same value, if equally strong, whatever their source. In our final balance-sheet we must set down pains of illwill and of goodwill, of sense and of intellect with absolute impartiality, and compare them simply in respect of intensity. We must not admit a 'conscience' or 'moral sense' which would be autocratic; nor, indeed, allow moral to have any meaning as applied to the separate passions. But it is quite consistent with this to admit that some motives, goodwill in particular, generally tend to bring out the desirable result, that is, a balance of pleasure for the greatest number. The pains and pleasures are the ultimate facts, and the 'disposition' is a 'fictitious entity' or a name for the sum of sensibilities. It represents the fact that some men are more inclined than others to increase the total of good or bad.

IV. CRIMINAL LAW

We have now, after a long analysis, reached the point at which the principles can be applied to penal law. The legislator has to discourage certain classes of conduct by annexing 'tutelary motives.' The classes to be suppressed are of course those which diminish happiness. Pursuing the same method, and applying results already reached, we must in the first place consider how the 'mischief of an act' is to be measured.(52*) Acts are mischievous as their 'consequences' are mischievous; and the consequences may be 'primary' or 'secondary.' Robbery causes pain to the loser of the money. That is a primary evil. It alarms the holders of money; it suggests the facility of robbery to others; and it weakens the 'tutelary motive' of respect for property. These are secondary evils. The 'secondary' evil may be at times the most important. The non-payment of a tax may do no appreciable harm in a particular case. But its secondary effects in injuring the whole political fabric may be disastrous and fruitful beyond calculation. Bentham proceeds to show carefully how the 'intentions' and 'motives' of the evil-doer are of the greatest importance, especially in determining these secondary consequences, and must therefore be taken into account by the legislator. A homicide may cause the same primary evil, whether accidental or malignant; but accidental homicide may cause no alarm, whereas the intentional and malignant homicide may cause any quantity of alarm and shock to the general sense of security. In this way, therefore, the legislator has again indirectly to take into account the moral quality which is itself dependent upon utility.

I must, however, pass lightly over a very clear and interesting discussion to reach a further point of primary importance to the Utilitarian theory, as to the distinction between the moral and legal spheres.(53*) Bentham has now 'made an analysis of evil.' He has, that is, classified the mischiefs produced by conduct, measured simply by their effect upon pleasures or pains, independently of any consideration as to virtue and vice. The next problem is: what conduct should be criminal? -- a subject which is virtually discussed in two chapters (xv and xix) 'on cases unmeet for punishment' and on 'the limits between Private Ethics and the act of legislation.' We must, of course, follow the one clue to the labyrinth. We must count all the 'lots' of pain and pleasure indifferently. It is clear, on the one hand, that the pains suffered by criminals are far less than the pains which would be suffered were no such sanctions applied. On the other hand, all punishment is an evil, because punishment means pain, and it is therefore only to be inflicted when it excludes greater pain. It must, therefore, not be inflicted when it is 'groundless,' 'inefficacious,' 'unprofitable,' or 'needless.' 'Needless' includes all the cases in which the end may be attained 'as effectually at a cheaper rate.'(54*) This applies to all 'dissemination of pernicious principles'; for in this case reason and not force is the appropriate remedy. The sword inflicts more pain, and is less efficient than the pen. The argument raises the wider question, What are the true limits of legislative interference? Bentham, in his last chapter, endeavours to answer this problem. 'Private ethics,' he says, and 'legislation' aim at the same end, namely, happiness, and the 'acts with which they are conversant are in great measure the same.' Why, then, should they have different spheres? Simply because the acts 'are not perfectly and throughout the same.'(55*) How, then, are we to draw the line? By following the invariable clue of 'utility.' We simply have to apply an analysis to determine the cases in which punishment does more harm than good. He insists especially upon the cases in which punishment is 'unprofitable'; upon such offences as drunkenness and sexual immorality, where the law could only be enforced by a mischievous or impossible system of minute supervision, and such offences as ingratitude or rudeness, where the definition is so vague that the judge could not safely be entrusted with the power to punish.'(56*) He endeavours to give a rather more precise distinction by sub-dividing 'ethics in general' into three classes. Duty may be to oneself, that is 'prudence'; or to one's neighbour negatively, that is 'probity'; or to one's neighbour positively, that is 'benevolence.'(57*) Duties of the first class must be left chiefly to the individual, because he is the best judge of his own interest. Duties of the third class again are generally too vague to be enforced by the legislator, though a man ought perhaps to be punished for failing to help as well as for actually injuring. The second department of ethics, that of 'probity,' is the main field for legislative activity.(58*) As a general principle, 'private ethics' teach a man how to pursue his own happiness, and the art of legislation how to pursue the greatest happiness of the community. It must be noticed, for the point is one of importance, that Bentham's purely empirical method draws no definite line. It implies that no definite line can be drawn. It does not suggest that any kind of conduct whatever is outside the proper province of legislator except in so far as the legislative machinery may happen to be inadequate or inappropriate.

Our analysis has now been carried so far that we can proceed to consider the principles by which we should be guided in punishing. What are the desirable properties of a 'lot of punishment'? This occupies two interesting chapters. Chapter xvi, 'on the proportion between punishments and offences,' gives twelve rules. The punishment, he urges, must outweigh the profit of the offence; it must be such as to make a man prefer a less offence to a greater-simple theft, for example, to violent robbery; it must be such that the punishment must be adaptable to the varying sensibility of the offender; it must be greater in 'value' as it falls short of certainty; and, when the offence indicates a habit, it must outweigh not only the profit of the particular offence, but of the undetected offences. In chapter xvii Bentham considers the properties which fit a punishment to fulfil these conditions. Eleven properties are given. The punishment must be (1) 'variable,' that is, capable of adjustment to particular cases; and (2) equable, or inflicting equal pain by equal sentences. Thus the 'proportion' between punishment and crimes of a given class can be secured. In order that the punishments of different classes of crime may be proportional, the punishments should (3) be commensurable. To make punishments efficacious they should be (4) 'characteristical' or impressive to the imagination; and that they may not be excessive they should be (5) exemplary or likely to impress others, and (6) frugal. To secure minor ends they should be (7) reformatory; (8) disabling, i. e. from future offences; and (9) compensatory to the sufferer. Finally, to avoid collateral disadvantages they should be (10) popular, and (11) remittable. A twelfth property, simplicity, was added in Dumont's redaction. Dumont calls attention here to the value of Bentham's method.(59*) Montesquieu and Beccaria had spoken in general terms of the desirable qualities of punishment. They had spoken of 'proportionality,' for example, but without that precise or definite meaning which appears in Bentham's Calculus. In fact, Bentham's statement, compared to the vaguer utterances of his predecessors, but still more when compared to the haphazard brutalities and inconsistencies of English criminal law, gives the best impression of the value of his method.

Bentham's next step is an elaborate classification of offences, worked out by a further application of his bifurcatory method.(60*) This would form the groundwork of the projected code. I cannot, however, speak of this classification, or of many interesting remarks contained in the Principles of Penal Law, where some further details are considered. An analysis scarcely does justice to Bentham, for it has to omit his illustrations and his flashes of real vivacity. The mere dry logical framework is not appetising. I have gone so far in order to illustrate the characteristic of Bentham's teaching. It was not the bare appeal to utility, but the attempt to follow the clue of utility systematically and unflinchingly into every part of the subject. This one doctrine gives the touchstone by which every proposed measure is to be tested; and which will give to his system not such unity as arises from the development of an abstract logical principle, but such as is introduced into the physical sciences when we are able to range all the indefinitely complex phenomena which arise under some simple law of force. If Bentham's aim could have been achieved, 'utility' would have been in legislative theories what gravitation is in astronomical theories. All human conduct being ruled by pain and pleasure, we could compare all motives and actions, and trace out the consequences of any given law. I shall have hereafter to consider how this conception worked in different minds and was applied to different problems: what were the tenable results to which it led, and what were the errors caused by the implied overnight of some essential considerations.

Certain weaknesses are almost too obvious to be specified. He claimed to be constructing a science, comparable to the physical sciences. The attempt was obviously chimerical if we are to take it seriously. The makeshift doctrine which he substitutes for psychology would be a sufficient proof of the incapacity for his task. He had probably not read such writers as Hartley or Condillac, who might have suggested some ostensibly systematic theory. If he had little psychology he had not even a conception of 'sociology.' The 'felicific calculus' is enough to show the inadequacy of his method. The purpose is to enable us to calculate the effects of a proposed law. You propose to send robbers to the gallows or the gaol. You must, says Bentham, reckon up all the evils prevented: the suffering to the robbed, and to those who expect to be robbed, on the one hand; and, on the other, the evils caused, the suffering to the robber, and to the tax-payer who keeps the constable; then strike your balance and make your law if the evils prevented exceed the evils caused. Some such calculation is demanded by plain common sense. It points to the line of inquiry desirable. But can it be adequate? To estimate the utility of a law we must take into account all its 'effects.' What are the 'effects' of a law against robbery? They are all that is implied in the security of property. They correspond to the difference between England in the eighteenth century and England in the time of Hengist and Horsa; between a country where the supremacy of law is established, and a country still under the rule of the strong hand. Bentham's method may be applicable at a given moment, when the social structure is already consolidated and uniform. It would represent the practical arguments for establishing the police-force demanded by Colquhoun, and show the disadvantages of the old constables and watchmen. Bentham, that is, gives an admirable method for settling details of administrative and legislative machinery, and dealing with particular cases when once the main principles of law and order are established. Those principles, too, may depend upon 'utility.' but utility must be taken in a wider sense when we have to deal with the fundamental questions. We must consider the 'utility' of the whole organisation, not the fitness of separate details. Finally, if Bentham is weak in psychology and in sociology, he is clearly not satisfactory in ethics. Morality is, according to him, on the same plane with law. The difference is not in the sphere to which they apply, or in the end to which they are directed; but solely in the 'sanction.' The legislator uses threats of physical suffering; the moralist threats of 'popular' disapproval. Either 'sanction' may be most applicable to a given case; but the question is merely between different means to the same end under varying conditions. This implies the 'external' character of Bentham's morality, and explains his insistence upon the neutrality of motives. He takes the average man to be a compound of certain instincts, and merely seeks to regulate their action by supplying 'artificial tutelary motives.' The 'man' is given; the play of his instincts, separately neutral, makes his conduct more or less favourable to general happiness; and the moralist and the legislator have both to correct his deviations by supplying appropriate 'sanctions.' Bentham, therefore, is inclined to ignore the intrinsic character of morality, or the dependence of a man's morality upon the essential structure of his nature. He thinks of the superficial play of forces, not of their intimate constitution. The man is not to be changed in either case; only his circumstances. Such defects no doubt diminish the value of Bentham's work. Yet, after all, in his own sphere they are trifles. He did very well without philosophy. However imperfect his system might be considered as a science or an ultimate explanation of society and human nature, it was very much to the point as an expression of downright common-sense. Dumont's eulogy seems to be fully deserved, when we contrast Bentham's theory of punishment with the theories (if they deserve the name) of contemporary legislators. His method involved a thoroughgoing examination of the whole body of laws, and a resolution to apply a searching test to every law. If that test was not so unequivocal or ultimate as he fancied, it yet implied the constant application of such considerations as must always carry weight, and, perhaps, be always the dominant considerations, with the actual legislator or jurist. What is the use of you? is a question which may fairly be put to every institution and to every law; and it concerns legislators to find some answer, even though the meaning of the word 'use' is not so clear as we could wish.

V. ENGLISH LAW

The practical value of Bentham's method is perhaps best illustrated by his Rationale of Evidence. The composition of the papers ultimately put together by J. S. Mill had occupied Bentham from 1802 to 1812. The changed style is significant. Nobody could write more pointedly, or with happier illustrations, than Bentham in his earlier years. He afterwards came to think that a didactic treatise should sacrifice every other virtue to fulness and precision. To make a sentence precise, every qualifying clause must be somehow forced into the original formula. Still more characteristic is his application of what he calls the 'substantive-preferring principle.'(61*) He would rather say, 'I give extension to an object,' than 'I extend an object.' Where a substantive is employed, the idea is 'stationed upon a rock'; if only a verb, the idea is 'like a leaf floating on a stream.' A verb, he said,(62*) 'slips through your fingers like an eel.' The principle corresponds to his 'metaphysics.' The universe of thought is made up of a number of separate 'entities' corresponding to nouns-substantive, and when these bundles are distinctly isolated by appropriate nouns, the process of arranging and codifying according to the simple relations indicated by the copula is greatly facilitated. The ideal language would resemble algebra, in which symbols, each representing a given numerical value, are connected by the smallest possible number of symbols of operation, +, -, =, and so forth. To set two such statements side by side, or to modify them by inserting different constants, is then a comparatively easy process, capable of being regulated by simple general rules. Bentham's style becomes tiresome, and was often improperly called obscure. It requires attention, but the meaning is never doubtful -- and to the end we have frequent flashes of the old vivacity.

The Rationale of Evidence, as Mill remarks,(63*) is 'one of the richest in matter of all Bentham's productions.' It contains, too, many passages in Bentham's earlier style, judiciously preserved by his young editor; indeed, so many that I am tempted even to call the book amusing. In spite of the wearisome effort to say everything, and to force language into the mould presented by his theory, Bentham attracts us by his obvious sincerity. The arguments may be unsatisfactory, but they are genuine arguments. They represent cOnviction; they are given because they have convinced; and no reader can deny that they really tend to convince. We may complain that there are too many words, and that the sentences are cumbrous; but the substance is always to the point. The main purpose may be very briefly indicated. Bentham begins by general considerations upon evidence, in which he and his youthful editor indicate their general adherence to the doctrines of Hume.(64*) This leads to an application of the methods expounded in the 'Introduction,' in order to show how the various motives or 'springs of action' and the 'sanctions' based upon them may affect the trustworthiness of evidence. Any motive whatever may incidentally cause 'mendacity.' The second book, therefore, considers what securities may be taken for 'securing trustworthiness.' We have, for example, a discussion of the value of oaths (he thinks them valueless), of the advantages and disadvantages of reducing evidence to writing, of interrogating witnesses, and of the publicity or privacy of evidence. Book III deals with the 'extraction of evidence.' We have to compare the relative advantages of oral and written evidence, the rules for cross-examining witnesses and for taking evidence as to their character. Book IV deals with 'pre-appointed evidence,' the cases, that is, in which events are recorded at the time of occurrenCe with a view to their subsequent use as evidence. We have under this head to consider the formalities which should be required in regard to contracts and wills; and the mode of recording judicial and other official decisions and registering births, deaths, and marriages. In Books V and VI we consider two kinds of evidence which is in one way or other of inferior cogency, namely, 'circumstantial evidence,' in which the evidence if accepted still leaves room for a process of more or less doubtful inference; and 'makeshift evidence,' such evidence as must sometimes be accepted for want of the best, of which the most conspicuous instance is 'hearsay evidence.' Book VII deals with the 'authentication' of evidence. Book viii is a consideration of the 'technical' system, that namely which was accepted by English lawyers; and finally Book IX deals with a special point, namely, the exclusion of evidence. Bentham announces at starting(65*) that he shall establish 'one theorem' and consider two problems. The problems are: 'what securities can be taken for the truth of evidence?' and 'what rules can be given for estimating the value of evidence?' The 'theorem' is that no evidence should be excluded with the professed intention of obtaining a right decision; though some must be excluded to avoid expense, vexation, and delay. This, therefore, as his most distinct moral, is fully treated in the last book.

Had Bentham confined himself to a pithy statement of his leading doctrines, and confirmed them by a few typical cases, he would have been more effective in a literary sense. His passion for 'codification,' for tabulating and arranging facts in all their complexity, and for applying his doctrine at full length to every case that he can imagine, makes him terribly prolix. On the other hand, this process no doubt strengthened his own conviction and the conviction of his disciples as to the value of his process. Follow this clue of utility throughout the whole labyrinth, see what a clear answer it offers at every point, and you cannot doubt that you are in possession of the true compass for such a navigation. Indeed, it seems to be indisputable that Bentham's arguments are the really relevant and important arguments. How can we decide any of the points which come up for discussion? Should a witness be cross examined? Should his evidence be recorded? Should a wife be allowed to give evidence against her husband? or the defendant to give evidence about his own case? These and innumerable other points can only be decided by reference to what Bentham understood by 'utility.' This or that arrangement is 'useful' because it enables us to get quickly and easily at the evidence, to take effective securities for its truthfulness, to estimate its relevance and importance, to leave the decision to the most qualified persons, and so forth. These points, again, can only be decided by a careful appeal to experience, and by endeavouring to understand the ordinary play of 'motives' and 'sanctions.' What generally makes a man lie, and how is lying to be made unpleasant? By rigorously fixing our minds at every point on such issues, we find that many questions admit of very plain answers, and are surprised to discover what a mass of obscurity has been dispelled. It is, however, true that although the value of the method can hardly be denied unless we deny the value of all experience and common sense, we may dispute the degree in which it confirms the general principle. Every step seems to Bentham to reflect additional light upon his primary axiom. Yet it is possible to hold that witnesses should be encouraged to speak the truth, and that experience may help us to discover the best means to that end without, therefore, admitting the unique validity of the 'greatest happiness' principle. That principle, so far as true, may be itself a deduction from some higher principle; and no philosopher of any school would deny that 'utility' should be in some way consulted by the legislator.

The book illustrates the next critical point in Bentham's system -- the transition from law to politics. He was writing the book at the period when the failure of the Panopticon was calling his attention to the wickedness of George III and Lord Eldon, and when the English demand for parliamentary reform was reviving and supplying him with a sympathetic audience. Now, in examining the theory of evidence upon the plan described, Bentham found himself at every stage in conflict with the existing system, or rather the existing chaos of unintelligible rules. English lawyers, he discovered, had worked out a system of rules for excluding evidence. Sometimes the cause was pure indolence. 'This man, were I to hear him,' says the English judge, 'would come out with a parcel of lies. It would be a plague to hear him: I have heard enough already; shut the door in his face.'(66*) But, as Bentham shows with elaborate detail, a reason for suspecting evidence is not a reason for excluding it. A convicted perjurer gives evidence, and has a pecuniary interest in the result. That is excellent ground for caution; but the fact that the man makes a certain statement may still be a help to the ascertainment of truth. Why should that help be rejected? Bentham scarcely admits of any exception to the general rule of taking any evidence you can get -- one exception being the rather curious one of confession to a Catholic priest; secrecy in such cases is on the whole, he thinks, useful. He exposes the confusion implied in an exclusion of evidence because it is not fully trustworthy, which is equivalent to working in the dark because a partial light may deceive. But this is only a part of a whole system of arbitrary, inconsistent, and technical rules worked out by the ingenuity of lawyers. Besides the direct injury they gave endless opportunity for skilful manoeuvring to exclude or admit evidence by adopting different forms of procedure. Rules had been made by judges as they were wanted and precedents established of contradictory tendency and uncertain application. Bentham contrasts the simplicity of the rules deducible from 'utility' with the amazing complexity of the traditional code of technical rules. Under the 'natural' system, that of utility, you have to deal with a quarrel between your servants or children. You send at once for the disputants, confront them, take any relevant evidence, and make up your mind as to the rights of the dispute. In certain cases this 'natural' procedure has been retained, as, for example, in courts martial, where rapid decision was necessary. Had the technical system prevailed, the country would have been ruined in six weeks.(67*) But the exposure of the technical system requires an elaborate display of intricate methods involving at every step vexation, delay, and injustice. Bentham reckons up nineteen separate devices employed by the courts. He describes the elaborate processes which had to be gone through before a hearing could be obtained; the distance of courts from the litigants; the bandying of cases from court to court; the chicaneries about giving notice; the frequent nullification of all that had been done on account of some technical flaw; the unintelligible jargon of Latin and Law-French which veiled the proceedings from the public; the elaborate mysteries of 'special pleading'; the conflict of jurisdictions, and the manufacture of new 'pleas' and new technical rules; the 'entanglement of jurisdictions,' and especially the distinction between law and equity, which had made confusion doubly confounded. English law had become a mere jungle of unintelligible distinctions, contradictions, and cumbrous methods through which no man could find his way without the guidance of the initiated, and in which a long purse and unscrupulous trickery gave the advantage over the poor to the rich, and to the knave over the honest man. One fruitful source of all these evils was the 'judge-made' law, which Bentham henceforth never ceased to denounce. His ideal was a distinct code which, when change was required, should be changed by an avowed and intelligible process. The chaos which had grown up was the natural result of the gradual development of a traditional body of law, in which new cases were met under cover of applying precedents from previous decisions, with the help of reference to the vague body of unwritten or 'common law,' and of legal fictions permitting some non-natural interpretation of the old formulae. It is the judges, he had already said in 1792,(68*) 'that make the common law.' Do you know how they make it? Just as a man makes laws for his dog. When your dog does anything you want to break him of, you wait till he does it and then beat him. This is the way you make laws for your dog, and this is the Way the judges make laws for you and me.' The 'tyranny of judge-made law, is 'the most all-comprehensive, most grinding, and most crying of all grievances,'(69*) and is scarcely less bad than 'priest-made religion.'(70*) Legal fictions, according to him, are simply lies. The permission to use them is a 'mendacity licence.' In 'Rome-bred law... fiction' is a 'wart which here and there disfigures the face of justice. In English law fiction is a syphilis which runs into every vein and carries into every part of the system the principle of rottenness.'(71*) The evils denounced by Bentham were monstrous.

The completeness of the exposure was his great merit; and his reputation has suffered, as we are told on competent authority, by the very efficiency of his attack. The worst evils are so much things of the past, that we forget the extent of the evil and the merits of its assailant. Bentham's diagnosis of the evil explains his later attitude. He attributes all the abuses to consciously corrupt motives even where a sufficient explanation can be found in the human stupidity and honest incapacity to look outside of traditional ways of thought. He admits, indeed, the personal purity of English judges. No English judge had ever received a bribe within living memory.(72*) But this, he urges, is only because the judges find it more profitable as well as safer to carry out a radically corrupt system. A synonym for 'technical' is 'fee-gathering.' Lawyers of all classes had a common interest in multiplying suits and complicating procedure: and thus a tacit partnership had grown up which he describes as 'judge and Co.' He gives statistics showing that in the year 1797 five hundred and forty-three out of five hundred and fifty 'writs of error' were 'shams,' or simply vexatious contrivances for delay, and brought a profit to the Chief justice of over £1400.(73*) Lord Eldon was always before him as the typical representative of obstruction and obscurantism. In his Indications respecting Lord Eldon (1825) he goes into details which it must have required some courage to publish. Under Eldon, he says, 'equity has become an instrument of fraud and extortion.'(74*) He details the proceedings by which Eldon obtained the sanction of parliament for a system of fee-taking, which he had admitted to be illegal, and which had been denounced by an eminent solicitor as leading to gross corruption. Bentham intimates that the Masters in Chancery were 'swindlers,'(75*) and that Eldon was knowingly the protector and sharer of their profits. Romilly, who had called the Court of Chancery 'a disgrace to a civilised nation,' had said that Eldon was the cause of many of the abuses, and could have reformed most of the others. Erskine had declared that if there was a hell, the Court of Chancery was hell.(76*) Eldon, as Bentham himself thought, was worse than Jeffreys. Eldon's victims had died a lingering death, and the persecutor had made money out of their sufferings. Jeffreys was openly brutal; while Eldon covered his tyranny under the 'most accomplished indifference.'(77*)

Yet Eldon was but the head of a band. judges, barristers, and solicitors were alike. The most hopeless of reforms would be to raise a 'thorough-paced English lawyer' to the moral level of an average man.(78*) To attack legal abuses was to attack a class combined under its chiefs, capable of hoodwinking parliament and suppressing open criticism. The slave-traders whom Wilberforce attacked were comparatively a powerless excrescence. The legal profession was in the closest relations to the monarchy, the aristocracy, and the whole privileged and wealthy class. They were welded into a solid 'ring.' The king, and his ministers who distributed places and pensions; the borough-mongers who sold votes for power; the clergy who looked for bishoprics; the monied men who aspired to rank and power, were all parts of a league. It was easy enough to talk of law reform. Romilly had proposed and even carried a 'reformatiuncle' or two;(79*) but to achieve a serious success required not victory in a skirmish or two, not the exposure of some abuse too palpable to be openly defended even by an Eldon, but a prolonged war against an organised army fortified and entrenched in the very heart of the country.

VI. RADICALISM

Thus Bentham, as his eyes were opened, became a Radical. The political purpose became dominant, although we always see that the legal abuses are uppermost in his mind; and that what he really seeks is a fulcrum for the machinery which is to overthrow Lord Eldon. Some of the pamphlets deal directly with the special instruments of corruption. The Elements of the Art of Packing shows how the crown managed to have a permanent body of special 'jurors' at its disposal. The 'grand and paramount use'(80*) of this system was to crush the liberty of the press. The obscure law of libel, worked by judges in the interest of the government, enabled them to punish any rash Radical for 'hurting the feelings' of the ruling classes, and to evade responsibility by help of a 'covertly pensioned' and servile jury. The pamphlet, though tiresomely minute and long-winded, contained too much pointed truth to be published at the time. The Official Aptitude minimised contains a series of attacks upon the system of patronage and pensions by which the machinery of government was practically worked. In the Catechism of reformers, written in 1809, Bentham began the direct application of his theories to the constitution; and the final and most elaborate exposition of these forms the Constitutional Code, which was the main work of his later years. This book excited the warmest admiration of Bentham's disciples.(81*) J. S. Mill speaks of its 'extraordinary power... of at once seizing comprehensive principles and scheming out minute details,' and of its 'surpassing intellectual vigour.' Nor, indeed, will any one be disposed to deny that it is a singular proof of intellectual activity, when we remember that it was begun when the author was over seventy, and that he was still working at eighty-four.(82*) In this book Bentham's peculiarities of style reach their highest development, and it cannot be recommended as light reading. Had Bentham been a mystical philosopher, he would, we may conjecture, have achieved a masterpiece of unintelligibility which all his followers would have extolled as containing the very essence of his teaching. His method condemned him to be always intelligible, however crabbed and elaborate. Perhaps, however, the point which strikes one most is the amazing simple-mindedness of the whole proceeding. Bentham's light-hearted indifference to the distinction between paper constitutions and operative rules of conduct becomes almost pathetic.

Bentham was clearly the victim of a common delusion. If a system will work, the minutest details can be exhibited. Therefore, it is inferred, an exhibition of minute detail proves that it will work. Unfortunately, the philosophers of Laputa would have had no more difficulty in filling up details than the legislators of England or the United States. When Bentham had settled in his 'Radical Reform Bill'(83*) that the 'voting-box' was to be a double cube of cast-iron, with a slit in the lid, into which cards two inches by one, white on one side and black on the other, could be inserted, he must have felt that he had got very near to actual application: he can picture the whole operation and nobody can say that the scheme is impracticable for want of working plans of the machinery. There will, doubtless, be no difficulty in settling the shape of the boxes, when we have once agreed to have the ballot. But a discussion of such remote details of Utopia is of incomparably less real interest than the discussion in the Rationale of Evidence of points, which, however minute, were occurring every day, and which were really in urgent need of the light of common-sense.

Bentham's general principles may be very simply stated. They are, in fact, such as were suggested by his view of legal grievances. Why, when he had demonstrated that certain measures would contribute to the 'greatest happiness of the greatest number,' were they not at once adopted? Because the rulers did not desire the greatest happiness of the greatest number. This, in Bentham's language, is to say that they were governed by a 'sinister interest.' Their interest was that of their class, not that of the nation; they aimed at the greatest happiness of some, not at the greatest happiness of all. A generalisation of this remark gives us the first axioms of all government. There are two primary principles: the 'self-preference' principle, in virtue of which every man always desires his own greatest happiness; and the 'greatest happiness' principle, in virtue of which 'the right and proper end' of government is the 'greatest happiness of the greatest number.' (84*) The 'actual end' of every government, again, is the greatest happiness of the governors. Hence the whole problem is to produce a coincidence of the two ends, by securing an identity of interest between governors and governed. To secure that we have only to identify the two classes or to put the government in the hands of all.(85*) In a monarchy, the ruler aims at the interest of one himself; in a 'limited monarchy' the aim is at the happiness of the king and the small privileged class; in a democracy, the end is the right one the greatest happiness of the greatest number. This is a short cut to all constitutional questions. Probably it has occurred in substance to most youthful members of debating societies. Bentham's confidence in his logic lifts him above any appeal to experience; and he occasionally reminds us of the proof given in Martin Chuzzlewit that the queen must live in the Tower of London. The 'monarch,' as he observes,(86*) 'is naturally the very worst -- the most maleficent member of the whole community.' Wherever an aristocracy differs from the democracy, their judgment will be erroneous.(87*) The people will naturally choose 'morally apt agents,' and men who wish to be chosen will desire truly to become 'morally apt,' for they can only recommend themselves by showing their desire to serve the general interest.(88*) 'All experience testifies to this theory,' though the evidence is 'too bulky' to be given. Other proofs, however, may at once be rendered superfluous by appealing to 'the uninterrupted and most notorious experience of the United States.'(89*) To that happy country he often appeals indeed(90*) as a model government. In it, there is no corruption, no useless expenditure, none of the evils illustrated by our 'matchless constitution.'

The constitution deduced from these principles has at least the merit of simplicity. We are to have universal suffrage, annual parliaments, and vote by ballot. He inclines to give a vote to women.(91*) There is to be no king, no house of peers, no established church. Members of parliament are not to be re-eligible, till after an interval. Elaborate rules provide for their regular attendance and exclusive devotion to their masters' business. They are to be simply 'deputies,' not 'representatives.' They elect a prime minister who holds office for four years. Officials are to be appointed by a complex plan of competitive examination; and they are to be invited to send in tenders for doing the work at diminished salary. When once in office, every care is taken for their continual inspection by the public and the verification of their accounts. They are never for an instant to forget that they are servants, not the masters, of the public.

Bentham, of course, is especially minute and careful in regard to the judicial organisation a subject upon which he wrote much, and much to the purpose. The functions and fees of advocates are to be narrowly restricted, and advocates to be provided gratuitously for the poor. They are not to become judges: to make a barrister a judge is as sensible as it would be to select a procuress for mistress of a girls' school.(92*) Judges should be everywhere accessible: always on duty, too busy to have time for corruption, and always under public supervision. One characteristic device is his quasi-jury. The English system of requiring unanimity was equivalent to enforcing perjury by torture. Its utility as a means of resisting tyranny would disappear when tyranny had become impossible. But public opinion might be usefully represented by a 'quasi-jury' of three or five, who should not pronounce a verdict, but watch the judge, interrogate, if necessary, and in case of need demand a rehearing. Judges, of course, were no longer to make law, but to propose amendments in the 'Pannomion' or universal code, when new cases arose.

His leading principle may be described in one word as 'responsibility,' or expressed in his leading rule, 'Minimise Confidence.'(93*) 'All government is in itself one vast evil.'(94*) It consists in applying evil to exclude worse evil. Even 'to reward is to punish,'(95*) when reward is given by government. The less government, then, the better; but as governors are a necessary evil, they must be limited by every possible device to the sole legitimate aim, and watched at every turn by the all-seeing eye of public opinion. Every one must admit that this is an application of a sound principle, and that one condition of good government is the diffusion of universal responsibility. It must be admitted, too, that Bentham's theory represents a vigorous embodiment and unflinching application of doctrines which since his time have spread and gained more general authority. Mill says that granting one assumption, the Constitutional Code is 'admirable.'(96*) That assumption is that it is for the good of mankind to be under the absolute authority of a majority. In other words, it would justify what Mill calls the 'despotism of public opinion.' To protest against that despotism was one of the main purposes of Mill's political writings. How was it that the disciple came to be in such direct opposition to his master? That question cannot be answered till we have considered Mill's own position. But I have now followed Bentham far enough to consider the more general characteristics of his doctrine.

I have tried, in the first place, to show what was the course of Bentham's own development; how his observation of certain legal abuses led him to attempt the foundation of a science of jurisprudence; how the difficulty of obtaining a hearing for his arguments led him to discover the power of 'Judge and Co.'; how he found out that behind 'Judge and Co.' were George III and the base Sidmouth, and the whole band of obstructors entrenched within the 'matchless constitution'; and how thus his attack upon the abuses of the penal law led him to attack the whole political framework of the country. I have also tried to show how Bentham's development coincided with that of the English reformers generally. They too began with attacking specific abuses. They were for 'reform, not revolution.' The constitution satisfied them in the main: they boasted of the palladia of their liberties, 'trial by jury' and the 'Habeas Corpus' Act, and held Frenchmen to be frog-eating slaves in danger of lettres de cachet and the Bastille. English public opinion in spite of many trammels had a potent influence. Their first impulse, therefore, was simply to get rid of the trammels -- the abuses which had grown up from want of a thorough application of the ancient principles in their original purity. The English Whig, even of the more radical persuasion, was profoundly convinced that the foundations were sound, however unsatisfactory might be the superstructure. Thus, both Bentham and the reformers generally started -- not from abstract principles, but from the assault upon particular abuses. This is the characteristic of the whole English movement, and gives the meaning of their claim to be 'practical.' The Utilitarians were the reformers on the old lines; and their philosophy meant simply a desire to systematise the ordinary common-sense arguments. The philosophy congenial to this vein is the philosophy which appeals to experience. Locke had exploded 'innate ideas.' They denounced 'intuitions,' or beliefs which might override experience as 'innate ideas' in a new dress; and the attempt to carry out this view systematically became the distinctive mark of the whole school. Bentham accepted, though he did little to elaborate, this doctrine. That task remained for his disciples. But the tendency is shown by his view of a rival version of Radicalism.

Bentham, as we have seen, regarded the American Declaration of independence as so much 'jargon.' He was entirely opposed to the theory of the 'rights of man,' and therefore to the 'ideas of 1789.' From that theory the revolutionary party professed to deduce their demands for universal suffrage, the levelling of all privileges, and the absolute supremacy of the people. Yet Bentham, repudiating the premises, came to accept the conclusion. His Constitutional Code scarcely differs from the ideal of the Jacobins', except in pushing the logic further. The machinery by which he proposed to secure that the so-called rulers should become really the servants of the people was more thoroughgoing and minutely worked out than that of any democratic constitution that has ever been adopted. How was it that two antagonist theories led to identical results; and that the 'rights of man,' absurd in philosophy, represented the ideal state of things in practice?

The general answer may be that political theories are not really based upon philosophy. The actual method is to take your politics for granted on the one side and your philosophy for granted on the other, and then to prove their necessary connection. But it is, at any rate, important to see what was the nature of the philosophical assumptions implicitly taken for granted by Bentham.

The 'rights of man' doctrine confounds a primary logical canOn with a statement of fact. Every political theory must be based upon facts as well as upon logic. Any reasonable theory about politics must no doubt give a reason for inequality and a reason, too, for equality. The maxim that all men were, or ought to be, 'equal' asserts correctly that there must not be arbitrary differences. Every inequality should have its justification in a reasonable system. But when this undeniable logical canon is taken to prove that men actually are equal, there is an obvious begging of the question. In point of fact, the theorists immediately proceeded to disfranchise half the race on account of sex, and a third of the remainder on account of infancy. They could only amend the argument by saying that all men were equal in so far as they possessed certain attributes. But those attributes could only be determined by experience, or, as Bentham would have put it, by an appeal to 'utility.' It is illogical, said the anti-slavery advocate, to treat men differently On account of the colour of their skins. No doubt it is illogical if, in fact, the difference of colour does not imply a difference of the powers which fit a man for the enjoyment of certain rights. We may at least grant that the burden of proof should be upon those who would disfranchise all red-haired men. But this is because experience shows that the difference of colour does not mark a relevant difference. We cannot say, a priori, whether the difference between a negro and a white man may not be so great as to imply incapacity for enjoyment of equal rights. The black skin might -- for anything a mere logician can say -- indicate the mind of a chimpanzee. The case against slavery does not rest on the bare fact that negroes and whites both belong to the class 'man,' but on the fact that the negro has powers and sensibilities which fit him to hold property, to form marriages, to learn his letters, and so forth. But that fact is undeniably to be proved, not from the bare logic, but from observation of the particular case.

Bentham saw with perfect clearness that sound political theory requires a basis of solid fact. The main purpose of his whole system was to carry out that doctrine thoroughly. His view is given vigorously in the 'Anarchical Fallacies' -- a minute examination of the French Declaration of Rights in 1791. His argument is of merciless length, and occasionally so minute as to sound like quibbling. The pith, however, is clear enough. 'All men are born and remain free and equal in respect of rights' are the first words of the Declaration. Nobody is 'born free,' retorts Bentham. Everybody is born, and long remains, a helpless child. All men born free! Absurd and miserable nonsense! Why, you are complaining in the same breath that nearly everybody is a slave.(97*) To meet this objection, the words might be amended by substituting 'ought to be' for 'is.' This, however, on Bentham's showing, at once introduces the conception of utility, and therefore leads to empirical considerations. The proposition, when laid down as a logical necessity, claims to be absolute. Therefore it implies that all authority is bad; the authority, for example, of parent over child, or of husband over wife; and moreover, that all laws to the contrary are ipso facto void. That is why it is 'anarchical.' It supposes a 'natural right,' not only as suggesting reasons for proposed alterations of the legal right, but as actually annihilating the right and therefore destroying all government. 'Natural rights,' says Bentham,(98*) is simple nonsense; natural and imprescriptible rights 'rhetorical nonsense -- nonsense upon stilts.' For 'natural right' substitute utility, and you have, of course, a reasonable principle, because an appeal to experience. But lay down 'liberty' as an absolute right and you annihilate law, for every law supposes coercion. One man gets liberty simply by restricting the liberty of others.(99*) What Bentham substantially says, therefore, is that on this version absolute rights of individuals could mean nothing but anarchy; or that no law can be defended except by a reference to facts, and therefore to 'utility.'

One answer might be that the demand is not for absolute liberty, but for as much liberty as is compatible with equal liberty for all. The fourth article of the Declaration says: 'Liberty consists in being able to do that which is not hurtful to another, and therefore the exercise of the natural rights of each man has no other bounds than those which ensure to the other members of the society the enjoyment of the same rights.' This formula corresponds to a theory held by Mr Herbert Spencer; and, as he observes,(100*) held on different grounds by Kant. Bentham's view, indicated by his criticism of this article in the 'Anarchical Fallacies,' is therefore worth a moment's notice. The formula does not demand the absolute freedom which would condemn all coercion and all government; but it still seems to suggest that liberty, not utility, is the ultimate end. Bentham's formula, therefore, diverges. All government, he holds, is an evil, because coercion implies pain. We must therefore minimise, though we cannot annihilate, government; but we must keep to utility as the sole test. Government should, of course, give to the individual all such rights as are 'useful'; but it does not follow, without a reference to utility, that men should not be restrained even in 'self-regarding' conduct. Some men, women, and children require to be protected against the consequences of their own 'weakness, ignorance, or imprudence.'(101*) Bentham adheres, that is, to the strictly empirical ground. The absolute doctrine requires to be qualified by a reference to actual circumstances: and, among those circumstances, as Bentham intimates, we must include the capacity of the persons concerned to govern themselves. Carried out as an absolute principle, it would imply the independence of infants; and must therefore require some reference to 'utility.'

Bentham, then, objects to the Jacobin theory as too absolute and too 'individualist.' The doctrine begs the question; it takes for granted what can only be proved by experience; and therefore lays down as absolute theories which are only true under certain conditions or with reference to the special circumstances to which they are applied. That is inconsistent with Bentham's thoroughgoing empiricism. But he had antagonists to meet upon the other side: and, in meeting them, he was led to a doctrine which has been generally condemned for the very same faults -- as absolute and individualist. We have only to ask in what sense Bentham appealed to 'experience' to see how he actually reached his conclusions. The adherents of the old tradition appealed to experience in their own way. The English people, they said, is the freest, richest, happiest in the world; it has grown up under the British Constitution: therefore the British Constitution is the best in the world, as Burke tells you, and the British common law, as Blackstone tells you, is the 'perfection of wisdom.' Bentham's reply was virtually that although he, like Burke, appealed to experience, he appealed to experience scientifically organised, whereas Burke appealed to mere blind tradition. Bentham is to be the founder of a new science, founded like chemistry on experiment, and his methods are to be as superior to those of Burke as those of modern chemists to those of the alchemists who also invoked experience. The true plan was not to throw experience aside because it was alleged by the ignorant and the prejudiced, but to interrogate experience systematically, and so to become the Bacon or the Newton of legislation, instead of wandering off into the a priori constructions of a Descartes or a Leibniz.

Bentham thus professes to use an 'inductive' instead of the deductive method of the Jacobins; but reaches the same practical conclusions from the other end. The process is instructive. He objected to the existing inequalities, not as inequalities simply, but as mischievous inequalities. He, as well as the Jacobins, would admit that inequality required justification; and he agreed with them that, in this case, there was no justification. The existing privileges did not promote the 'greatest happiness of the greatest number.' The attack upon the 'Anarchical Fallacies' must be taken with the Book of Fallacies, and the Book of Fallacies is a sustained and vigorous, though a curiously cumbrous, assault upon the Conservative arguments. Its pith may be found in Sydney Smith's Noodle's Oration; but it is itself well worth reading by any one who can recognise really admirable dialectical power, and forgive a little crabbedness of style in consideration of genuine intellectual vigour. I only notice Bentham's assault upon the 'wisdom of our ancestors.' After pointing out how much better we are entitled to judge now that we have got rid of so many superstitions, and have learned to read and write, he replies to the question, 'Would you have us speak and act as if we never had any ancestors?' 'By no means,' he replies; 'though their opinions were of little value, their practice is worth attending to; but chiefly because it shows the bad consequences of their opinions.' 'From foolish opinion comes foolish conduct; from foolish conduct the severest disaster; and from the severest disaster the most useful warning. It is from the folly, not from the wisdom, of our ancestors that we have so much to learn.'(102*) Bentham has become an 'ancestor,' and may teach us by his errors. Pointed and vigorous as is his exposure of many of the sophistries by which Conservatives defended gross abuses and twisted the existence of any institution into an argument for its value, we get some measure from this of Bentham's view of history. In attacking an abuse, he says, we have a right to inquire into the utility of any and every arrangement. The purpose of a court of justice is to decide litigation; it has to ascertain facts and apply rules: does it then ascertain facts by the methods most conducive to the discovery of truth? Are the rules needlessly complex, ambiguous, calculated to give a chance to knaves, or to the longest purse? If so, undoubtedly they are mischievous. Bentham had done inestimable service in stripping away all the disguises and technical phrases which had evaded the plain issue, and therefore made of the laws an unintelligible labyrinth. He proceeded to treat in the same way of government generally. Does it work efficiently for its professed ends? Is it worked in the interests of the nation, or of a special class, whose interests conflict with those of the nation? He treated, that is, of government as a man of business might investigate a commercial undertaking. If he found that clerks were lazy, ignorant, making money for themselves, or bullying and cheating the customers, he would condemn the management. Bentham found the 'matchless constitution' precisely in this state. He condemned political institutions worked for the benefit of a class, and leading, especially in legal matters, to endless abuses and chicanery. The abuses everywhere imply 'inequality' in some sense; for they arise from monopoly. The man who holds a sinecure, or enjoys a privilege, uses it for his own private interest. The 'matter of corruption,' as Bentham called it, was provided by the privilege and the sinecure. The Jacobin might denounce privileges simply as privileges, and Bentham denounce them because they were used by the privileged class for corrupt purposes. So far, Bentham and the Jacobins were quite at one. It mattered little to the result which argument they preferred to use, and without doubt they had a very strong case, and did in fact express a demand for justice and for a redress of palpable evils. The difference seems to be that in one case the appeal is made in the name of justice and equality; in the other case, in the name of benevolence and utility.

The important point here, however, is to understand Bentham's implicit assumptions. J. S. Mill, in criticising his master, points out very forcibly the defects arising from Bentham's attitude to history. He simply continued, as Mill thinks, the hostility with which the critical or destructive school of the eighteenth century regarded their ancestors. To the revolutionary party history was a record of crimes and follies and of little else. The question will meet us again; and here it is enough to ask what is the reason of his tacit implication of Bentham's position. Bentham. s whole aim, as I have tried to show, was to be described as the construction of a science of legislation. The science, again, was to be purely empirical. It was to rest throughout upon the observation of facts. That aim -- an admirable aim -- runs through his whole work and that of his successors. I have noticed, indeed, how easily Bentham took for granted that his makeshift classification of common motives amounted to a scientific psychology. A similar assumption that a rough sketch of a science is the same thing as its definite constitution is characteristic of the Utilitarians in general. A scientific spirit is most desirable; but the Utilitarians took a very short cut to scientific certainty. Though appealing to experience, they reach formula as absolute as any 'intuitionist' could desire. What is the logical process implied? To constitute an empirical science is to show that the difference between different phenomena is due simply to 'circumstances.' The explanation of the facts becomes sufficient when the 'law' can be stated, as that of a unit of constant properties placed in varying positions. This corresponds to the procedure in the physical sciences, where the Ultimate aim is to represent all laws as corresponding to the changes of position of uniform atoms. In social and political changes the goal is the same. J. S. Mill states in the end of his Autobiography (103*) that one main purpose of his writing was to show that 'differences between individuals, races, or sexes' are due to 'differences in circumstances.' In fact, this is an aim so characteristic from the beginning of the whole school, that it may be put down almost as a primary postulate. It was not, indeed, definitely formulated; but to 'explain' a social theorem was taken to be the same thing as to show how differences of character or conduct could be explained by 'circumstance' -- meaning by 'circumstance' something not given in the agent himself. We have, however, no more right as good empiricists to assert than to deny that all difference comes from 'circumstance.' If we take 'man' as a constant quantity in our speculations, it requires at least a great many precautions before we can assume that our abstract entity corresponds to a real concrete unit. Otherwise we have a short cut to a doctrine of 'equality.' The theory of 'the rights of man' lays down the formula, and assumes that the facts will correspond. The Utilitarian assumes the equality of fact, and of course brings out an equally absolute formula. 'Equality,' in some sense, is introduced by a side wind, though not explicitly laid down as an axiom.(104*) This underlying tendency may partly explain the coincidence of results -- though it would require a good many qualifications in detail; but here I need only take Bentham's more or less unconscious application.

Bentham's tacit assumption, in fact, is that there is an average 'man.' Different specimens of the race, indeed, may vary widely according to age, sex, and so forth; but, for purposes of legislation, he may serve as a unit. We can assume that he has on the average certain qualities from which his actions in the mass can be determined with sufficient accuracy, and we are tempted to assume that they are mainly the qualities obvious to an inhabitant of Queen's Square Place about the year 1800. Mill defends Bentham against the charge that he assumed his codes to be good for all men everywhere. To that, says Mill,(105*) the essay upon the 'Influence of Time and Place in Matters of Legislation' is a complete answer. Yet Mill (016*) admits in the same breath that Bentham omitted all reference to 'national character.' In fact, as we have seen, Bentham was ready to legislate for Hindoostan as well as for his own parish; and to make codes not only for England, Spain, and Russia, but for Morocco. The Essay mentioned really explains the point. Bentham not only admitted but asserted as energetically as became an empiricist, that we must allow for 'circumstances'; and circumstances include not only climate and so forth, but the varying beliefs and customs of the people under consideration. The real assumption is that all such circumstances are superficial, and can be controlled and altered indefinitely by the 'legislator.' The Moor, the Hindoo, and the Englishman are all radically identical; and the differences which must be taken into account for the moment can be removed by judicious means. Without pausing to illustrate this from the Essay, I may remark that for many purposes such an assumption is justifiable and guides ordinary common sense. If we ask what would be the best constitution for a commercial company, or the best platform for a political party, we can form a fair guess by arguing from the average of Bentham and his contemporaries -- especially if we are shrewd attorneys or political wirepullers. Only we are not therefore in a position to talk about the 'science of human nature' or to deal with problems of 'sociology.' This, however, gives Bentham's 'individualism' in a sense of the phrase already explained. He starts from the 'ready-made man,' and deduces all institutions or legal arrangements from his properties. I have tried to show how naturally this view fell in with the ordinary political conceptions of the time. It shows, again, why Bentham disregards history. When we have such a science, empirical or a priori, history is at most of secondary importance. We can deduce all our maxims of conduct from the man himself as he is before us. History only shows how terribly he blundered in the pre-scientific period. The blunders may give us a hint here and there. Man was essentially the same in the first and the eighteenth century, and the differences are due to the clumsy devices which he made by rule of thumb. We do not want to refer to them now, except as illustrations of errors. We may remark how difficult it was to count before the present notation was invented; but when it has once been invented, we may learn to use it without troubling our heads about our ancestors' clumsy contrivances for doing without it. This leads to the real shortcoming. There is a point at which the historical view becomes important -- the point, namely, where it is essential to remember that man is not a ready-made article, but the product of a long and still continuing 'evolution.' Bentham's attack (in the Fragment) upon the 'social contract' is significant. He was, no doubt, perfectly right in saying that an imaginary contract could add no force to the ultimate grounds for the social union. Nobody would now accept the fiction in that stage. And yet the 'social contract' may be taken to recognise a fact; namely, that the underlying instincts upon which society alternately rests correspond to an order of reasons from those which determine more superficial relations. Society is undoubtedly useful, and its utility may be regarded as its ground. But the utility of society means much more than the utility of a railway company or a club, which postulates as existing a whole series of already established institutions. To Bentham an 'utility' appeared to be a kind of permanent and ultimate entity which is the same at all periods -- it corresponds to a psychological currency of constant value. To show, therefore, that the social contract recognises 'utility' is to show that the whole organism is constructed just as any particular part is constructed. Man comes first and 'society' afterwards. I have already noticed how this applies to his statements about the utility of a law; how his argument assumes an already constituted society, and seems to overlook the difference between the organic law upon which all order essentially depends, and some particular modification or corollary which may be superinduced. We now have to notice the political version of the same method. The 'law,' according to Bentham, is a rule enforced by a 'sanction.' The imposer of the rule in the phrase which Hobbes had made famous is the 'sovereign.' Hobbes was a favourite author, indeed, of the later Utilitarians, though Bentham does not appear to have studied him. The relation is one of natural affinity. When in the Constitutional Code Bentham transfers the 'sovereignty' from the king to the 'people,'

(107*) he shows the exact difference between his doctrine and that of the Leviathan. Both thinkers are absolutists in principle, though Hobbes gives to a monarch the power which Bentham gives to a democracy. The attributes remain though their subject is altered. The 'sovereign,' in fact, is the keystone of the whole Utilitarian system. He represents the ultimate source of all authority, and supplies the motive for all obedience. As Hobbes put it, he is a kind of mortal God.

Mill's criticism of Bentham suggests the consequences. There are, he says,(108*) three great questions: What government is for the good of the people? How are they to be induced to obey it? How is it to be made responsible? The third question, he says, is the only one seriously considered. by Bentham; and Bentham's answer, we have seen, leads to that 'tyranny of the majority' which was Mill's great stumbling-block. Why, then, does Bentham omit the other questions? or rather, how would he answer them? for he certainly assumes an answer. People, in the first place, are 'induced to obey' by the sanctions. They don't rob that they may not go to prison. That is a sufficient answer at a given moment. It assumes, indeed, that the law will be obeyed. The policeman, the gaoler, and the judge will do what the sovereign -- whether despot or legislature -- orders them to do. The jurist may naturally take this for granted. He does not go 'behind the law.' That is the law which the sovereign has declared to be the law. In that sense, the sovereign is omnipotent. He can, as a fact, threaten evildoers with the gallows; and the jurist simply takes the fact for granted, and assumes that the coercion is an ultimate fact. No doubt it is ultimate for the individual subject. The immediate restraint is the policeman, and we need not ask upon what does the policeman depend. If, however, we persist in asking, we come to the historical problems which Bentham simply omits. The law itself, in fact, ultimately rests upon 'custom,' -- upon the whole system of instincts, beliefs, and passions which induce people to obey government, and are, so to speak, the substance out of which loyalty and respect for the law is framed. These, again, are the product of an indefinitely long elaboration, which Bentham takes for granted. He assumes as perfectly natural and obvious that a number of men should meet, as the Americans or frenchmen met, and create a constitution. That the possibility of such a proceeding involves centuries of previous training does not occur to him. It is assumed that the constitution can be made out of hand, and this assumption is of the highest importance, not only historically but for immediate practice. Mill assumes too easily that Bentham has secured responsibility. Bentham assumes that an institution will work as it is intended to work -- perhaps the commonest error of constitution-mongers. If the people use the instruments which he provides, they have a legal method for enforcing obedience. To infer that they will do so is to infer that all the organic instincts will operate precisely as he intends; that each individual, for example, will form an independent opinion upon legislative questions, vote for men who will apply his opinions, and see that his representatives perform his bidding honestly. That they should do so is essential to his scheme; but that they will do so is what he takes for granted. He assumes, that is, that there is no need for inquiring into the social instincts which lie beneath all political action. You can make your machine and assume the moving force. That is the natural result of considering political and legislative problems without taking into account the whole character of the human materials employed in the construction. Bentham's sovereign is thus absolute. He rules by coercion, as a foreign power may rule by the sword in a conquered province. Thus, force is the essence of government, and it is needless to go further. To secure the right application of the force, we have simply to distribute it among the subjects. Government still means coercion, and ultimately nothing else; but then, as the subjects are simply moved by their own interests, that is, by utility, they will apply the power to secure those interests. Therefore, all that is wanted is this distribution, and Mill's first problem, What government is for the good of the people? is summarily answered. The question, how obedience is to be secured, is evaded by confining the answer to the 'sanctions,' and taking for granted that the process of distributing power is perfectly simple, or that a new order can be introduced as easily as parliament can pass an act for establishing a new police in London. The 'social contract' is abolished; but it is taken for granted that the whole power of the sovereign can be distributed, and rules made for its application by the common sense of the various persons interested. Finally, the one bond outside of the individual is the sovereign. He represents all that holds society together; his 'sanctions,' as I have said, are taken to be on the same plane with the 'moral sanctions' -- not dependent upon them, but other modes of applying similar motives. As the sovereign, again, is in a sense omnipotent, and yet can be manufactured, so to speak, by voluntary arrangements among the individual members of society, there is no limit to the influence which he may exercise. I note, indeed, that I am speaking rather of the tendencies of the theory than of definitely formulated conclusions. Most of the Utilitarians were exceedingly shrewd, practical people, whose regard for hard facts imposed limits upon their speculations. They should have been the last people to believe too implicitly in the magical efficacy of political contrivances, for they were fully aware that many men are knaves and most men fools. They probably put little faith in Bentham's Utopia, except as a remote ideal, and an ideal of unimaginative minds. The Utopia was constructed on 'individualist' principles, because common-sense naturally approves individualism. The whole social and political order is clearly the sum of the individuals, who combine to form an aggregate; and theories about social bonds take one to the mystical and sentimental. The absolute tendency is common to Bentham and the Jacobins. Whether the individual be taken as a unit of constant properties, or as the subject of absolute rights, we reach equally absolute conclusions. When all the social and political regulations are regarded as indefinitely modifiable, the ultimate laws come to depend upon the absolute framework of unalterable fact. This, again, is often the right point of view for immediate questions in which we may take for granted that the average individual is in fact constant; and, as I have said in regard to Bentham's legislative process, leads to very relevant and important, though not ultimate, questions. But there are certain other results which require to be noticed. 'Individualism,' like other words that have become watchwords of controversy, has various shades of meaning, and requires a little more definition.

VII. INDIVIDUALISM

'Individualism' in the first place is generally mentioned in a different connection. The 'ready-made' man of whom I have spoken becomes the 'economic man.' Bentham himself contributed little to economic theory. His most important writing was the Defence of Usury, and in this, as we have seen, he was simply adding a corollary to the Wealth of Nations. The Wealth of Nations itself represented the spirit of business; the revolt of men who were building up a vast industrial system against the fetters imposed by traditional legislation and by rulers who regarded industry in general, as Telford is said to have regarded rivers. Rivers were meant to supply canals, and trade to supply tax-gatherers. With this revolt, of course, Bentham was in full sympathy, but here I shall only speak of one doctrine of great interest, which occurs both in his political treatises and his few economical remarks. Bentham objected, as we have seen, to the abstract theory of equality. Yet it was to the mode of deduction rather than to the doctrine itself which he objected. He gave, in fact, his own defence; and it is one worth notice.(109*) The principle of equality is derivative, not ultimate. Equality is good because equality increases the sum of happiness. Thus, as he says,(110*) if two men have £1000, and you transfer £500 from one to the other, you increase the recipient's wealth by one-third, and diminish the loser's wealth by one-half. You therefore add less pleasure than you subtract. The principle is given less mathematically(111*) by the more significant argument that 'felicity' depends not simply on the 'matter of felicity' or the stimulus, but also on the sensibility to felicity which is necessarily limited. Therefore by adding wealth -- taking, for example, from a thousand labourers to give to one king -- you are supersaturating a sensibility already glutted by taking away from others a great amount of real happiness. With this argument, which has of late years become conspicuous in economics, he connects another of primary importance. The first condition of happiness, he says, is not 'equality' but 'security.' Now you can only equalise at the expense of security. If I am to have my property taken away whenever it is greater than my neighbour's, I can have no security.(112*) Hence, if the two principles conflict, equality should give way. Security is the primary, which must override the secondary, aim. Must the two principles, then, always conflict? No; but 'time is the only mediator.'(113*) The law may help to accumulate inequalities; but in a prosperous state there is a 'continual progress towards equality.' The law has to stand aside; not to maintain monopolies; not to restrain trade; not to permit entails; and then property will diffuse itself by a natural process, already exemplified in the growth of Europe. The 'pyramids' heaped up in feudal times have been lowered, and their 'débris spread abroad' among the industrious. Here again we see how Bentham virtually diverges from the a priori school. Their absolute tendencies would introduce 'equality' by force; he would leave it to the spontaneous progress of security. Hence Bentham is in the main an adherent of what he calls (114*) the 'laissez-nous faire' principle. He advocates it most explicitly in the so-called Manual of Political Economy -- a short essay first printed in 1798.(115*) The tract, however, such as it is, is less upon political economy proper than upon economic legislation; and its chief conclusion is that almost all legislation is improper. His main principle is 'Be quiet' (the equivalent of the French phrase, which surely should have been excluded from so English a theory). Security and freedom are all that industry requires; and industry should say to government only what Diogenes said to Alexander, 'Stand out of my sunshine.'(116*)

Once more, however, Bentham will not lay down the 'let alone' principle absolutely. His adherence to the empirical method is too decided. The doctrine 'be quiet,' though generally true, rests upon utility, and may, therefore, always be qualified by proving that in a particular case the balance of utility is the other way. In fact, some of Bentham's favourite projects would be condemned by an absolute adherent of the doctrine. The Panopticon, for example, though a 'mill to grind rogues honest' could be applied to others than rogues, and Bentham hoped to make his machinery equally effective in the case of pauperism. A system of national education is also included in his ideal constitution. It is, in fact, important to remember that the 'individualism' of Benthamism does not necessarily coincide with an absolute restriction of government interference. The general tendency was in that direction; and in purely economical questions, scarcely any exception was admitted to the rule. Men are the best judges, it was said, of their own interest; and the interference of rulers in a commercial transaction is the interference of people inferior in knowledge of the facts, and whose interests are 'sinister' or inconsistent with those of the persons really concerned. Utility, therefore, will, as a rule, forbid the action of government: but, as utility is always the ultimate principle, and there may be cases in which it does not coincide with the 'let alone' principle, we must always admit the possibility that in special cases government can interfere usefully, and, in that case, approve the interference.

Hence we have the ethical application of these theories. The individualist position naturally tends to take the form of egoism. The moral sentiments, whatever they may be, are clearly an intrinsic part of the organic social instincts. They are intimately involved in the whole process of social evolution. But this view corresponds precisely to the conditions which Bentham overlooks. The individual is already there. The moral and the legal sanctions are 'external'; something imposed by the action of others; corresponding to 'coercion,' whether by physical force or the dread of public opinion; and, in any case, an accretion or addition, not a profound modification of his whole nature. The Utilitarian 'man' therefore inclines to consider other people as merely parts of the necessary machinery. Their feelings are relevant only as influencing their outward conduct. If a man gives me a certain 'lot' of pain or pleasure, it does not matter what may be his motives. The 'motive' for all conduct corresponds in all cases to the pain or pleasure accruing to the agent. It is true that his happiness will be more or less affected by his relations to others. But as conduct is ruled by a calculation of the balance of pains or pleasures dependent upon any course of action, it simplifies matters materially, if each man regards his neighbour's feelings simply as instrumental, not intrinsically interesting. And thus the coincidence between that conduct which maximises my happiness and that conduct which maximises happiness in general, must be regarded as more or less accidental or liable in special cases to disappear. If I am made happier by action which makes others miserable, the rule of utility will lead to my preference of myself.

Here we have the question whether the Utilitarian system be essentially a selfish system. Bentham, with his vague psychology, does not lay down the doctrine absolutely. After giving this list of self-regarding 'springs of action,' he proceeds to add the pleasures and pains of 'sympathy' and 'antipathy' which, he says, are not self-regarding. Moreover, as we have seen, he has some difficulty in denying that 'benevolence' is a necessarily moral motive: it is only capable of prompting to bad conduct in so far as it is insufficiently enlightened; and it is clear that a moralist who makes the 'greatest happiness of the greatest number' his universal test, has some reason for admitting as an elementary pleasure the desire for the greatest happiness. This comes out curiously in the Constitutional Code. He there lays down the 'self-preference principle' -- the principle, namely, that 'every human being' is determined in every action by his judgment of what will produce the greatest happiness to himself, 'whatsoever be the effect... in relation to the happiness of other similar beings, any or all of them taken together.'(117*) Afterwards, however, he observes that it is 'the constant and arduous task or every moralist' and of every legislator who deserves the name to 'increase the influence of sympathy at the expense of that of self-regard and of sympathy for the greater number at the expense of sympathy for the lesser number.'(118*) He tries to reconcile these views by the remark 'that even sympathy has its root in self-regard,' and he argues, as Mr Herbert Spencer has done more fully, that if Adam cared only for Eve and Eve only for Adam -- neither caring at all for himself or herself -- both would perish in less than a year. Self-regard, that is, is essential, and sympathy supposes its existence. Hence Bentham puts himself through a catechism.(119*) What is the 'best' government? That which causes the greatest happiness of the given community. What community? 'Any community, which is as much as to say, every community.' But why do you desire this happiness? Because the establishment of that happiness would contribute to my greatest happiness. And how do you prove that you desire this result? By my labours to obtain it, replies Bentham. This oddly omits the more obvious question, how can you be sure that your happiness will be promoted by the greatest happiness of all? What if the two criteria differ? I desire the general happiness, he might have replied, because my benevolence is an original or elementary instinct which can override my self-love; or I desire it, he would perhaps have said, because I know as a fact that the happiness of others will incidentally contribute to my own. The first answer would fall in with some of his statements; but the second is, as I think must be admitted, more in harmony with his system. Perhaps, indeed, the most characteristic thing is Bentham's failure to discuss explicitly the question whether human action is or is not necessarily 'selfish.' He tells us in regard to the 'springs of action' that all human action is always 'interested,' but explains that the word properly includes actions in which the motive is not 'self-regarding.'(120*) It merely means, in fact, that all conduct has motives. The statement which I have quoted about the 'self-preference' principle may only mean a doctrine which is perfectly compatible with a belief in 'altruism' -- the doctrine, namely, that as a fact most people are chiefly interested by their own affairs. The legislator, he tells us, should try to increase sympathy, but the less he takes sympathy for the 'basis of his arrangements' -- that is, the less call he makes upon purely unselfish motives -- the greater will be his success.(121*) This is a shrewd and, I should say, a very sound remark, but it implies -- not that all motives are selfish in the last analysis, but -- that the legislation should not assume too exalted a level of ordinary morality. The utterances in the very unsatisfactory Deontology are of little value, and seem to imply a moral sentiment corresponding to a petty form of commonplace prudence.(122*)

Leaving this point, however, the problem necessarily presented itself to Bentham in a form in which selfishness is the predominating force, and any recognition of independent benevolence rather an incumbrance than a help. If we take the 'self-preference principle' absolutely, the question becomes how a multitude of individuals, each separately pursuing his own happiness, can so arrange matters that their joint action may secure the happiness of all. Clearly a man, however selfish, has an interest generally in putting down theft and murder. He is already provided with a number of interests to which security, at least, and therefore a regular administration of justice, is essential. His shop could not be carried on without the police; and he may agree to pay the expenses, even if others reap the benefit in greater proportion. A theory of legislation, therefore, which supposes ready formed all the instincts which make a decent commercial society possible can do without much reference to sympathy or altruism. Bentham's man is not the colourless unit of a priori writing, nor the noble savage of Rousseau, but the respectable citizen with a policeman round the corner. Such a man may well hold that honesty is the best policy; he has enough sympathy to be kind to his old mother, and help a friend in distress; but the need of romantic and elevated conduct rarely occurs to him; and the heroic, if he meets it, appears to him as an exception, not far removed from the silly. He does not reflect -- especially if he cares nothing for history -- how even the society in which he is a contented unit has been built up, and how much loyalty and heroism has been needed for the work; nor even, to do him justice, what unsuspected capacities may lurk in his own commonplace character. The really characteristic point is, however, that Bentham does not clearly face the problem. He is content to take for granted as an ultimate fact that the self-interest principle in the long run coincides with the greatest 'happiness' principle, and leaves the problem to his successors. There we shall meet it again.

Finally, Bentham's view of religion requires a word. The short reply, however, would be sufficient, that he did not believe in any theology, and was in the main indifferent to the whole question till it encountered him in political matters. His first interest apparently was roused by the educational questions which I have noticed, and the proposal to teach the catechism Bentham, remembering the early bullying at Oxford, examines the catechism; and argues in his usual style that to enforce it is to compel children to tell lies. But this leads him to assail the church generally; and he regards the church simply as a part of the huge corrupt machinery which elsewhere had created Judge and Co. He states many facts about non-residence and bloated bishoprics which had a very serious importance; and he then asks how the work might be done more cheaply. As a clergyman's only duty is to read weekly services and preach sermons, he suggests (whether seriously may be doubted) that this might be done as well by teaching a parish boy to read properly, and provide him with the prayer-book and the homilies.(123*) A great deal of expense would be saved. This, again, seems to have led him to attack St. Paul, whom he took to be responsible for dogmatic theology, and therefore for the catechism; and he cross-examines the apostle, and confronts his various accounts of the conversion with a keenness worthy of a professional lawyer. In one of the MSS. at University College the same method is applied to the gospels. Bentham was clearly not capable of anticipating Renan. From these studies he was led to the far more interesting book, published under the name of Philip Beauchamp. Bentham supplied the argument in part; but to me it seems clear that it owes so much to the editor, Grote, that it may more fitly be discussed hereafter.

The limitations and defects of Bentham's doctrine have been made abundantly evident by later criticism. They were due partly to his personal character, and partly to the intellectual and special atmosphere in which he was brought up. But it is more important to recognise the immense real value of his doctrine. Briefly, I should say, that there is hardy an argument in Bentham's voluminous writings which is not to the purpose so far as it goes. Given his point of view, he is invariably cogent and relevant. And, moreover, that is a point of view which has to be taken. No ethical or political doctrine can, as I hold, be satisfactory which does not find a place for Bentham, though he was far, indeed, from giving a complete theory of his subject. And the main reason of this is that which I have already indicated. Bentham's whole life was spent in the attempt to create a science of legislation. Even where he is most tiresome, there is a certain interest in his unflagging working out of every argument, and its application to all conceivable cases. It is all genuine reasoning; and throughout it is dominated by a respect for good solid facts. His hatred of 'vague generalities'(124*) means that he will be content with no formula which cannot be interpreted in terms of definite facts. The resolution to insist upon this should really be characteristic of every writer upon similar subjects, and no one ever surpassed Bentham in attention to it. Classify and reclassify, to make sure that at every point your classes correspond to realities. In the effort to carry out these principles, Bentham at least brought innumerable questions to a sound test, and exploded many pestilent fallacies. If he did not succeed further, if whole spheres of thought remained outside of his vision, it was because in his day there was not only no science of 'sociology' or psychology -- there are no such sciences now -- but no adequate perception of the vast variety of investigation which would be necessary to lay a basis for them. But the effort to frame a science is itself valuable, indeed of surpassing value, so far as it is combined with a genuine respect for facts. It is common enough to attempt to create a science by inventing technical terminology. Bentham tried the far wider and far more fruitful method of a minute investigation of particular facts. His work, therefore, will stand, however different some of the results may appear when fitted into a different framework. And, therefore, however crudely and imperfectly, Bentham did, as I believe, help to turn speculation into a true and profitable channel. Of that, more will appear hereafter; but, if any one doubts Bentham's services, I will only suggest to him to compare Bentham with any of his British contemporaries, and to ask where he can find anything at all comparable to his resolute attempt to bring light and order into a chaotic infusion of compromise and prejudice.

NOTES:

1. See note under Bentham's Life, (note 20, previous chapter).

2. Preface to Morals and Legislation.

3. Works, i, ('Morals and Legislation'), ii, n.

4. Essay, bk, ii, ch. xxi, section 39 - section 44. The will, says Locke, is determined by the 'uneasiness of desire'. What moves desire? Happiness, and that alone. Happiness is pleasure, and misery pain. What produces pleasure we call good; and what produces paine we call evil. Locke, however, was not a consistent Utiliarian.

5. Epistle, iv, opening lines.

6. Works, viii, 82.

7. Works ('Constitutional Code'), ix, 123.

8. Works, ('Fragment'), i, 287.

9. Works, ('Morals and Legislation'), i, 6-10. Mill quotes this passage in his essay on Bentham in the first volume of his Dissertations. This essay, excellent in itself, must be specially noticed as an exposition by an authoritarian disciple.

10. Works ('Morals and Legislation'), i, 13.

11. Works ('Morals and Legislation') i, v.

12. Works ('Evidence'), vi, 261.

13. Works ('Evidence'), vii. 116.

14. Ibid., ('Morals and Legislation') i, 14, etc; Ibid., vi, 260. In Ibid. ('Evidence') vii, 116 'humanity, and in 'Logical Arrangement', Ibid. ii, 290, 'sympathy' appears as a fifth sanction. Another modification is suggested in Ibid., i, 14n.

15. Ibid., ('Morals and Legislation') i, 67.

16. Works ('Morals and Legislation') i, 96n.

17. See especially Ibid., viii, 104, etc.; 253, etc.; 289, etc.

18. Ibid, viii, 106.

19. 'Codify' was one of Betham's successful neologisms.

20. Works ('Logic'), viii, 220.

21. Here Bentham coincides with Horne Tooke, to whose 'discoveries' he refers in the Chrestomathia (Works, viii, 120, 185, 188).

22. Works, iii, 286, viii, 119.

23. Ibid., ('Ontology') viii, 196n.

24. Ibid., viii, 197n.

25. Ibid., viii, 263.

26. Works ('Ontology'), viii, 119.

27. Ibid., viii, 198.

28. Ibid., viii, 199.

29. Ibid., viii, 206, 247.

30. Helvétius adds to this that the only real pains and pleasures are the physical, but Bentham does not follow him here. See Helvétius OEuvres (1781), ii, 121, etc.

31. Works, i, 211 ('Springs of Action').

32. Ibid., i 206.

33. Works, i, 205; and Dumont's Traités (1820), i, xxv, xxvi. The word 'springs of action' perhaps come from the marginal note to the above-mentioned passage of Locke (bk. ii, chap. xxvi, section 41, 42).

34. Morals and Legislation, chaps. iv, v, vi.

35. See 'Codification Proposal' (Works, iv, 540), where Bentham takes money as representing pleasure, and shows how the present value may be calculated like that of a sum put out to interest. The same assumption is often made by Political Economists in regard to 'utilities'.

36. Works ('Morals and Legislation'),i, 17n.

37. It is not worth while to consider this at length; but I give the following conjectural account of the list as it appears in the Morals and Legislation above. In classifying pain or pleasure, Bentham is, I think, following the clue suggested by his 'sanctions'. He is realy classifying according to their causes or the way in which they are 'annexed'. Thus pleasure may or may not be dependent upon other persons, or if upon other persons, may be indirectly or directly caused by their pleasures or pains. Pleasures not caused by persons correspond to the 'physical sanction', and are those (1) of the 'senses', (2) of wealth, i. e., caused by the possession of things, and (3) of 'skill', i. e., caused by our ability to use things. Pleasures caused by persons indirectly correspond first to the 'popular or moral sanction,' and are pleasures (4) of 'amity', caused by the goodwill of individuals, and (5) of a 'good name', caused by the goodwill of people in general; secondly, to 'political sanction,' namely (6) pleasures of 'power'; and thirdly, to the 'religious sanction,' or (7) pleasures of 'piety'. All these are 'self-regarding pleasures.' The pleasures caused directly by the pleasures of others are those (8) of 'benevolence', and (9) of malevolence. We then have what is really a cross division of classes of 'deriviative' pleasures; these being due to (10) memory, (11) imagination, (12) expectation, (13) association. To each class of pleasures corresponds a class of pains, except that there are no pains corresponding to the pleasures of wealth or power. We have, however, a general class of pains of 'privation', which might include pairs of poverty or weakness: and to these are opposed (14) pleasures of 'relief', i. e., of the privation of pains. In the Table, as separately published, Bentham modified this by dividing pleasures of 'curiosity' for pleasures of 'skill', by suppressing pleasures of relief and pains of privation; and by adding, as a class of 'pains' without corresponding pleasures, pains (1) of labour, (2) of 'death, and bodily pains in general.' These changes seem to have been introduced in the course of writing his Introduction, where they are partly assumed. Another class is added to include all classes of 'self-regarding pleasures or pains.' He is trying to give a list of all 'synomyms' for various pains and pleasures, and has therefore to admit classes corresponding to general names which include other classes.

38. Works, i, 210, where he speaks of pleasures of the 'ball-rooms', the 'theatre',and the 'fine arts' as derivable from the 'simple and elementary' pleasures.

39. Works, ('Morals and Legislation'), i, 22 etc.

40. Ibid., i, 33.

41. Morals and Legislation, ch. vii, to xi.

42. Works, ('Morals and Legislation'), i, 46.

43. Ibid., 48.

44. Works, ('Morals and Legislation'), i, 56.

45. Ibid., 56.

46. Works, ('Morals and Legislation'), i, 60.

47. Ibid., i, 62.

48. Ibid., i, 65.

49. These are the two classes of 'springs of action' omitted in the Table.

50. Works, ('Morals and Legislation'), i, 68.

51. Here Bentham lays down the rule that punishment should rise with the strength of the temptation, a theory which leads to some curious casuistical problems. He does not fully discuss, and I cannot here consider, them. I will only note that it may conceivably be necessary to increase the severity of punishment, instead of removing the temptation or strengthening the preventive action. If so, the law becomes immoral in the sense of punishing more severly as the crime has more moral excuse. This was often true of the old criminal law, which punished offences cruelly because it had no effective system of police. Bentham would of course have agreed that the principle in this case was a bad one.

52. Morals and Legislation, ch. xii.

53. Morals and Legislation, ch. xiv (a chapter inserted from Dumont's Traités).

54. Works, ('Morals and Legislation'), i, p. 86.

55. Ibid., i, 144.

56. Ibid., i, 145.

57. Works, ('Morals and Legislation'), i, 143.

58. Ibid., i, 147-48.

59. Works, ('Morals and Legislation'), i, 406n.

60. Works, ('Morals and Legislation'), i, 96n.

61. Works, iii. 267.

62. Ibid., x, 569.

63. Autobiography, p. 116.

64. The subject is again treated in Book v on 'Circumstantial Evidence.'

65. Works, vi, 204.

66. Works, vii, 391.

67. Works, vii, 321-25. Court-martials are hardly a happy example now.

68. 'Truth v. Ashhurst' (1792), Works, v, 235.

69. Works ('Codification Petition'), v, 442.

70. Ibid., vi, 11.

71. Ibid., v, 92.

72. Works, vii, 204, 331; ix, 143.

73. Ibid., vii, 214.

74. Ibid., v, 349.

75. Ibid., v, 364.

76. Works, v, 371.

77. Ibid., v, 375.

78. Ibid., vii, 188.

79. Ibid., v, 370.

80. Works, v, 97, etc.

81. See preface to Constitutional Code in vol. ix.

82. Bentham's nephew, George, who died when approaching his eighty-fourth birthday, devoted the last twenty-five years of his life with equal assiduity to his Genera Plantarum. See a curious anecdote of his persistence in the Dictionary of National Biography.

83. Works, iii, 573.

84. Works, ix, 5, 8.

85. The theory, as Mill reminds us, had been very pointed anticipated by Helvétius. Bentham's practical experience, however, had forced it upon his attention.

86. Works, ix, 141. The general principle, however, is confirmed by the case of George III.

87. Ibid., ix, 45.

88. Ibid., ix, 98.

89. Works, ix, 98.

90. e. g. Ibid. ix, 38, 50, 63, 99, etc.

91. Ibid. ('Plan of Parliamentary Reform') iii, 463.

92. Works, ix, 594.

93. Ibid., ix, 62.

94. Ibid., ix, 24.

95. Ibid., ix, 48.

96. Dissertations, i, 377.

97. Works, ii, 497.

98. Ibid., ii, 501.

99. Ibid., ii, 503.

100. Justice, p. 264; so Price, in his Observations on Liberty, lays it down that government is never to entrench upon private liberty, 'except so far as private liberty entrenches on the liberty of others.'

101. Works, ii, 506.

102. Works, ii, 401.

103. Autobiography, p. 274.

104. Hobbes, in the Leviathan (chap. xiii), has in the same way to argue for the de facto equality of men.

105. Dissertations, i, 375.

106. I remark by anticipation that this expression implies a reference to Mill's Ethology, of which I shall have to speak.

107. Works, ix, 96, 113.

108. Dissertations, i, 376.

109. Works, 'Civil Code' (from Dumont) i, 302, 305; Ibid. ('Principles of Constitutional Code') ii, 271; Ibid. ('Constitutional Code') ix, 15-18.

110. Works, i, 306n.

111. Ibid., ix, 15.

112. Ibid. ('Principles of Penal Code') i, 311.

113. Ibid., i, 312.

114. Works, x, 440.

115. Ibid., iii, 33, etc.

116. Ibid., iii, 35.

117. Works, ix, 5.

118. Ibid., ix, 192.

119. Ibid., ix, 7.

120. Works, i, 212.

121. Ibid., ix, 192.

122. See, e. g., i, 83, where sympathy seems to be taken as an ultimate pleasure, and ii, 133, where he says 'dream not that men will move their little finger to serve you unless their advantage in so doing be obvious to them.' See also the apologue of 'Walter Wise', who becomes Lord Mayor, and 'Timothy Thoughtless' who ends at Botany Bay (i, 118), giving the lowest kind of prudential morality. The manuscript of the Deontology, now in University College, London, seems to prove that Bentham was substantially the author, though the Mills seem to have suspected Bowring of adulterating the true doctrine. He appears to have been an honest if not very intelligent editor; though the rewriting, necessary in all Bentham's works, was damaging in this case; and he is probably responsible for some rhetorical amplification, especially in the later part.

123. Church of Englandism (Catechism examined), p. 207.

124. See this phrase expounded in Works ('Book of Fallacies'), ii, 440, etc.

NOTE ON BENTHAM'S WRITINGS

The following account of Bentham's writings may be of some use. The arrangement is intended to show what were the topics which attracted his attention at successive periods.

The Collected Works, edited by Bowring, appeared from 1838 to 1843 in eleven volumes, the last two containing the life and an elaborate index. The first nine volumes consist partly of the works already published; partly of works published for the first time from Bentham's MSS.; and partly of versions of Dumont's redactions of Bentham. Dumont's publications were (1) Traités de Legislation civile et pénale (1802; second edition, revised, 1820): [vol. i, contains Principes généraux de Legislation and Principes du Code civil; vol. ii, Principes du Code pénal; and vol. iii, Mémoire sur le Panoptique, De la Promulgation des Lais, De l'Influence du Temps et des Lieux, and Vue générale d'un Corps complet des Lois]; (2) Tactiques des Assemblées déliberantes et Traité des Sophismes politiques, 1816; (4) Traité des Preuves judiciares,

1823; and (5) De l'Organisation judicaire et de la Codification, 1823.

In the following I give reference to the place of each work in Bowring's edition.

Bentham's first book was the Fragment on Government, 1776 (i. 221-295). An interesting 'historical preface', intended for a second edition (i. 240-259), was first printed in

1828. The Fragment, edited by Mr F. C. Montague, was republished in 1891.

The Introduction to the Principles of Morals and Legislation was published in 1789, in one vol. 4to. (i. 1-154). It had been printed in 1780. A second edition, in two vols, 8vo, appeared in 1823. It was intended as an introduction to the plan of a penal code. Bentham says in his preface that his scheme would be completed by a series of works applying his principles to (1) civil law; (2) penal law; (3) procedure; (4) reward; (5) constitutional law; (6) political tactics; (7) international law; (8) finance; and (9) political economy, and by a tenth treatise giving a plan fo a body of law 'considered in respect of its form,' that is, upon 'nomography.' He wrote more or less in the course of his life upon all these topics. Dumont's Traités of 1802 were based partly upon the Introduction and partly upon Bentham's MSS. corresponding to unfinished parts of this general scheme.

The two first section of this scheme are represented in the Works by Principles of the Civil Code (i, 297-364) and Principles of Penal Law (i, 365-580). The Principles of the Civil Code is translated from Dumont's Traités, where it follows a condensed statement of 'general principles' taken from the opening chapters of the Introduction. An appendix 'on the levelling system' is added in the Works from Bentham's MSS. The Principles of Penal Law consists of three parts: the first and third (on 'political remedies for the evil of offences' and on 'indirect means of preventing crimes') are translated from parts 2 and 4 of Dumont's Principes du Code pénal (parts 1 and 3 of Dumont being adaptations from the Introduction to Morals and Legislation). The second part of the Penal Law, or The Rationale of Punishment is from Dumont's Théorie des Peines et des Récompenses. Dumont took it from a MS. written by Bentham in 1775. (See Bentham's Works, i, 388). An appendix on 'Death Punishment', addressed by Bentham to the French people in 1830, is added to Part II in the Works (i. 525-532). No. 4 of Bentham's general scheme corresponds to the Rationale of Reward, founded upon two MSS., one in French and one in English, used by Dumont in the Théorie des Peines et des Récompensees. The English version in the Works, chiefly translated from Dumont and compared with the original manuscript, was first published in 1825 (ii, 189-266). Richard Smith 'of the Stamps and Taxes' was the editor of this and of an edition of the Rationale of Punishment in 1831, and of various minor treatises. (Bentham's Works, x, 548n.)

The Table of the Springs of Action (i, 195-220), written at an early period, was printed in 1815, and published, with modifications, in 817. The Vue générale included in the Traités of 1802 was intended by Bentham as a sketch for his own guidance, and is translated as View of a Complete Code of Laws in the Works (iii, 154-210). The two essays in the 1802 Traités on 'the promulgation of laws' and the 'influence of time and place in matters of legislation' are translated in Works (i. 157-194). A fragment on International law -- a phrase invented by Bentham -- written between 1786 and 1789, first appeared in the Works (ii, 535-571), with Junctiana proposal -- a plan for a canal between the Atlantic and the Pacific -- written in 1822, as an appendix.

Besides the above, all written before 1789, in pursuance of his schem, Bentham had published in 1778 his View of the Hard Labour Bill (iv, 1-36); andin 1787 his Defence of Usury (iii, 1-19). A third edition of the last (with the 'protest against law taxes') was published in 1816.

During the following period (1789-1802) Bentham wrote various books, more or less suggested by the French revolution. The Essay on Political Tactics (ii, 299-373),

(corresponding to No. 6 of the scheme), was sent to Morellet in 1789, but first published by Dumont in 1816. With it Dumont also published the substance of the Anarchical Fallacies (ii, 489-534), written about 1791. A Drought of a Code for the Organization of the Judicial Establishment of France, dated March 1790, is reprinted in Works, iv,

285-406. Truth v. Ashhurst, written in 1792 (v, 231-237), was first published in 1823. A Manual of Political Economy, written by 1793( see Works, iii, 73n.), corresponds to No. 9 of his scheme. A chapter appeared in the Bibliothèque Britannique in 1798. It was partly used in Dumont's Théorie des Récompenses, and first published in English in Works (iii, 31-84). Emancipate your Colonies (iv, 407-481) was privately printed in 1793, and first published for sale in 1830. A Protest against Law Taxes, printed in 1793, was published in 1795 together with Supply without Burthen, or Escheat vice Taxation, written in 1794. To them is appended a short paper called Tax without Monopoly (ii,

573-600). A Plan for saving all Trouble and Expense in the Transfer of Stock, written and partly printed in 1800, was first published in Works (iii, 105-153).

During this period Bentham was also occupied with the Panopticon, and some writings refer to it. The Panopticon, or the Inspection House (iv, 37-172), written in 1787, was published in 1791. The Panopticon versus New South Wales (iv, 173-248) appeared in 1802; and A Plea for the Constitution (on transportation to New South Wales) (iv,

249-284) in 1803. Closely connected with these are Poor-Laws and Pauper Managment (viii, 358-461), reprinted from Arthur Young's Annals of September 1797 and following months; and Observations on the Poor Bill (viii, 440-459), written in February 1797, privately printed in 1838, and first published in the Works.

About 1802 Bentham returned to jurisprudence. James Mill prepared from the papers then written an Introductory View on the Rationale of Evidence, finished and partly printed in 1812 (see Works, x, 468n, and Bain's James Mill, 105, 120). Dumont's Traité des Preuves judiciares (1823) was a redaction of the original papers, and an English translation of this appeared in 1825. The parts referring to English Law were omitted. The Rationale of Evidence (5 vols, 8vo, 1827), edited by J. S. Mill, represented a different and fuller redaction of the same papers. It is reprinted in vols. vi, and vii, of the Works with the Introductory View (now first published) prefixed. To the same period belongs Scotch Reform, with a Summary View of a Plan for a Judicatory, 1808 (second edition 1811, v, 1-60).

After 1808 Bentham's attention was especially drawn to political questions. His Catechism of Parliamentary Reform (iii, 433-557), written in 1809, was first published with a long 'introduction' in the Pamphlet for January 1817. Bentham's Radical Reform Bill, with explanations (iii, 558-597) followed in December 1819. Radicalism not dangerous

(iii, 598-622), written at the same time, first appeared in the Works (iii, 398-622). Elements of the Art of Packing as applied to Special Juries, especially in Cases of Libel Law

(v, 61-186), written in 1809, was published in 1821. Swear not at all (v, 188-229) (referring chiefly to Oxford tests), written in 1813, was pbulished in 1817. The King against Edmonds and the King against Wolsely (v, 239-261) were published in 1820. Official Aptitude minimised; Official Expense limited (v, 263-286), is a series of papers, first collected in 1831. It contains a Defence of Economy against Burke, and a Defence of Economy against George Rose, both written in 1810, and published in the Pamphleteer in 1817, with Observations on a speech by Peel in 1825, and Indication respecting Lord Eldon. The two last appeared in 1825. Connected with these political writings is the Book of Fallacies (ii, 375-488), edited by Bingham in 1824, from the 'most unfinished of all Bentham's writings.' Allusions seem to show that the original MSS. were written from 1810 to 1819. It was partly published by Dumont with the Tactique, etc.

Bentham, during this period (1808-1820), was also led into various outlying questions. The Pannomial Fragments, Nomography, and Appendix on Logical Arrangement employed by Jeremy Bentham (iii, 211-295) were first published in the Works from MSS. written from 1813 to 1831. With the Chrestomathia (viii, 1-192), first published in
1816, are connected fragments upon 'Ontology', 'Language', and 'Universal Grammar' (viii, 193-358), first published in Works from fragments of MSS. of 1813 and later. George Bentham's Outline of a New System of Logic was partly founded upon his uncle's papers. Bentham at the Ford Abbey time (1814-1818) was also writing his Church of Englandism and its Catechism examined, 1818. The Analysis of the Influence of Natural Religion upon the Temporal Happiness of Mankind, by Philip Beauchamp, edited by George Grote, appeared in 1822; and Not Paul but Jesus, by Gamaliel Smith in 1823. Francis Place helped in preparing this at Ford Abbey in 1817 (Mr Wallas' Life of Place, p. 83). Mother Church of England relieved by Bleeding (1823) and the Book of Church Reform (131) are extracted from Church of Englandism, Bowring did not admit these works to his collection.

In his later years (1820-1832) Bentham began to be specially occupied wit codification. Papers upon Codification and Public Instruction (iv, 451-534) consist chiefly of letters, written from 1811 to 1815, offering himself for employment in codification in America and Russia, and first published in 1817. In 1821 appeared Three Tracts relating to Spanish and Portuguese Affairs, with a Continual Eye to English ones; and in 1822 Three Letters to Count Torens on the proposed Penal Code (in Spain) (viii, 460-554). A short tract on Liberty of the Press was addressed to the Spanish people in 1821 (ii, 275-299). Codification Proposals (iv, 535-594) appeared in 1823, offering to prepare an 'all-comprehensive code of law' for 'any nation professing liberal opinions.' Securities against Misrule addressed to a Mahommedan State, and prepared with a special Reference to Tripoli, written in 1822-23, was first published in the Works (viii, 551-600). A tract on the Leading Principles of a Constitutional Code (ii, 267-274) appeared in the Pamphleteer in 1823. The first volume of the Constitutional Code, printed in 1827, was published with the first chapter of the second volume in 1830. The whole book, edited by R. Doane from papers written between 1818 and 1832, was published in 1841, and forms volume ix of the Works. Doane also edited Principles of Judicial Procedure (ii,

1-188) from papers written chiefly from 1820 to 1827, though part had been written in 1802. Several thousand pages upon the subject -- the third part of the original scheme -- were left by Bentham at his death.

During his last years Bentham also wrote a Commentary on Mr Humphrey's Real Property Code, published in the Westminster Review for October 1826 (v, 387-416); Justice and Codification Petitions (v, 437-548), printed in 1829; Jeremy Bentham to his Fellow-Citizens in France on Houses of Peers and Senates (iv, 419-450), dated 15th October
1820; Equity Dispatch Court Proposals (iii, 297-432), first published in Works and written from 1829 to 1821; Outline of a Plan of a General Register of Real Property

(v, 417-435), published in the Report of the Real Property Commission in 1832; and Lord Brougham Displayed (v, 549-612), 1832.

The Deontology or Science of Morality was published by Bowring in two vols, 8vo in 1834, but omitted from the Works, as the original edition was not exhausted. The MS. preserved at University College, London, shows that a substantial beginning had been made in 1814; most of the remainder about 1820. The second volume, made, as Bowring says, from a nubmer of scraps, is probably more 'Bowringised' than the first.

Dumont's Traités were translated into Spanish in 1821, and the Works in 1841-43. There are also Russian and Italian translations. In 1830 a translation from Dumont, edited by F. E. Beneke, as Grundsätze der Civil- und Criminal-Gesetzgebung, etc., was published at Berlin. Beneke observes that Bentham had hitherto received little attention in Germany, though well known in other countries. He reports a saying attributed to Mme de Staël that the age was that of Bentham, not of Byron or Buonaparte. The neglect of Bentham in Germany was due, as Beneke says, to the prevalence of the Kantian philosophy. Bentham, however, had been favourable noticed in the Hermes for 1822, and his merits since acknowledged by Mittermaier and Warnkönig in the Zeitschrift für Rechtwissenschaft. Beneke (1898-1854) was opposed to the Hegelian tendencies of his time, and much influence by Herbart. See Ueberweg's History of Philosophy (English translation, 1874, ii, 281, etc.) and the account of Bentham in Robert von Mohl's Staatswissenshcaften, etc. (1833), iii, 595-635.

A great mass of Bentham MSS. belongs to University College, London. They are contained in 148 boxes, which were examined and catalogued by Mr T. Whittaker in 1892. A few of these contain correspondence, part of which was printed by Bowring. Others are the manuscripts of published works. Some are upon the same subjects as the published works, and other refer to topics not included in his publications. Besides the Deontology manuscripts and a fragment upon 'Political Deontology', there is a discussion of the means of suppressing duels, an argument against the legal punishment of certain offences against decency, and a criticism of the gospel narrative similar to Not Paul, etc. I have not thought it necessary to examine these fragments after reading Mr Whittaker's report. Bentham's principles are sufficiently stated in his published works; and the papers which have been reposing in the cellars of University College can have had no influence upon the world. There is another large collection of MSS. in the British Museum from the papers of Bentham and his brother, Sir Samuel. Ten folio volumes contain correspondence, much of it referring only to Sir Samuel. A long correspondence upon the acquisition of the 'Panopticon' land is included. Another volume contains many of Bentham's school and college exercises. There are also the manuscripts of the Nomography, Logical Arrangements, etc. This collection was used by Bowring and by Lady Bentham in the life of her husband.