140 THE BRITISH APPROACH TO POLITICS

of legislation in accordance with the principle of division of
labour.

If at any future time a Government wished to adopt this, or
any other solution of the Second Chamber problem, an Act of
Parliament would have to be carried through both Houses.
If the Lords proved reluctant, two methods of overcoming their
opposition would be available. The first is the threat or actual
practice of "swamping". This has the advantage of speed, but.
the drawback that it may appear high-handed. The consent of
the King would be necessary, and, if he were reluctant, the Govern-
ment would face a double constitutional crisis which it could
only survive if it had overwhelming support from the country.
The second is to use the Parliament Act and carry the proposed
reform after two years* delay. This would be less likely to provoke
crisis, but would hamper the Government during the two years;
for the Lords would probably retaliate by being as obstructive
as possible. Any other reforms the Government proposed would
have to wait; the electorate would certainly be indignant, though
it is uncertain whether their indignation would be turned on the
Lords or on the Government which, for the time, could do
nothing for them.

CONCLUSION.

This, then, is the net effect of the House of Lords on the
British Constitution.1 It slows down the process of legislation;
it gives the landed aristocracy and the wealthy, influence
out of proportion to their numbers; it occasionally produced
discussions and amendments in which the special talents ,of
experienced men have good effect. A Government which has
only a small majority in the Commons and lacks solid support
in the country cannot hope to challenge the Lords with success.
For all this, the Lords are not an invincible barrier to democracy.
If the people are determined on a policy and give their vote

1 The work of the House of Lords as a law court, being entirely distinct
from its work as part of the Legislature, is reserved for consideration
in Ch. XV.