and why we consider it deserving of the clamour which it not long since excited. In doing so we reject the solution frequently hinted at "that it was carried to excess, and so became an impediment." Our opinion is, that the more you extend Routine, the more efficient you are likely to make the department which receives it. We must look deeper for a reason why that which was ordained unto life we have found to be unto death. We believe that Routine has been made odious by ignorance, imbecility, and corruption. No able statesman, general, or admiral, ever waged war with Routine. They understand both the use and the abuse of it. They can distinguish between the means and the end, and will not suffer the former to take the place of the latter. The great Duke and glorious Nelson were friends of Routine. Their achievements could not have been without it. That old Spanish Infantry with which the Marshal could "have gone anywhere and done anything"that fleet wherein England expected, and not vainly, that every man would do his duty-were the perfection of Routine; and their commanders knew it. It is only when incapable, infirm, or dishonest men are put in situations of responsibility that it appears disadvantageously. One who cannot do, must find excuse for his inactivity. He dares not say, "I am incompetent," but he can find old orders and regulations, never meant for such cases, which conveniently forbid him to move or to see, or to decide when he is indisposed or unable to do these things. Routine might have saved the Danish fleet at Copenhagen, or ruined the French army on the plateau of Rivoli; it might have justified the loitering in Hamoaze of the Pallas while a French frigate flaunted at the Mewstone, or have prevented the passage of the Douro. But Nelson and Napoleon, Cochrane and Wellington, were superior to Routine.* It was their servant, not their master. The authority of the general commanding in the field is absolute and indisputable. He is supreme, not only in matters of disciple, manœuvring, and operations of offence and defence, but likewise in finance, stores, rations, clothing, and every local arrangement. No doubt he must give account of his proceedings in these respects, but a great and able man will not shrink from responsibility. He cannot, of course, bear the blame of withholding supplies at home, or of indifference there to the wants of his force. But everything on the spot is absolutely under the control of the commander-in-chief; and if all is not used to the best advantage, he, and not routine, is to be blamed. We used to hear of stoves being remorselessly retained in store while soldiers starved with cold and hunger; of hay-bales floating in Balaklava harbour, while emaciated horses were abandoned by their owners; and of a multitude of similar enormities. Surely such disorders might have been rectified without an Act of Parliament or a national fermentation! Certain are we that under the Duke of Wellington in the Peninsula, they would not have endured two days. If the commander cannot, in cases of great emergency, where there is no time for reference to himself and his immediate subordinates, delegate to colonels of regiments the power of drawing from store what is necessary for their soldiers, especially their sick, he may at least appoint as many officers as are required to execute that service, attaching them to regiments, or even to troops and companies. Nullum numen abest si sit prudentia. But where a feeble will arises out of a conscious inability to oversee and to act, everything connected with the service must appear to disadvantage. Probably our military grievances, which were attributed to Routine, may be reduced, or nearly so, to one great defect-the advanced age of the superior officers. It is fair to suppose that if this were corrected, many others, which have been singly assailed, and their remedies attempted, would at once disappear. Take for * But for the illustrious names in the text we had not forborne to mention the royal palace of Lilliput, which must have become a cinder had not the soul of Lemuel Gulliver risen above Routine! instance the alleged incompetency of the Staff. It is pretty clear how this is caused. Elderly generals have sons and nephews arrived at manhood, for whom they desire wellpaid appointments. They think more of placing those relatives in situations which are likely to supply plausible excuses for their promotion, than they do of surrounding themselves with an able and efficient staff. Instead, therefore, of seeking through the army for the most accomplished and energetic aids, they appoint those in whom they feel an interest, whether the officers so selected are qualified or not. The opportunity is too tempting to be missed. The general himself may not last long, and this is perhaps his only chance of putting his beloved kinsmen in the way of promotion. True, one is wild and thoughtless, almost a child; another, though older, understands dogs and horses, and very little else. He would deliver an order of ten words in exceptionable English-never has used a pencil save to book his bets and, in knowledge of the art of war, would probably bow to Mr. Widdicombe. Nevertheless it would be unnatural were they to be set aside on these grounds. They will do as well, no doubt, as others similarly situated. The general has learned in his long service to take care of Number One, if he has learned little besides: he has but small private fortune to leave them, and must, if he can and while he can, push their fortune in the service; therefore, bon gré mal gré, the youths are laced up, and placed in the responsible positions of staff-officers-positions which ought to be filled by the élite of the army.* Now, this is not so likely to occur if generals, instead of being old, are middle-aged men. In the first place, they being younger, are less likely to have grown-up sons and nephews; and, in the second place, if they have these, they have probably a soldier's ambition swelling high in their breasts, which will induce them not only to dare great things, but to avail themselves of all accessories that may What assist in the achievement. matters it to a man who hopes to transmit a coronet to his eldest son, and an honoured name to all who follow him, whether or not his hopeful's pay be at the present moment increased by ten shillings a-day, or whether a partial despatch gain the lad a brevet-majority? Away with such miserable considerations. "There is goodly work toward " which shall make his name and race illustrious; he sees in the distance the great reward, and can wait awhile for it. Meantime let the youths jog along as they can; better days are in store; but, that the hope be made as sure as possible, let the aid be sought of all those best qualified to secure its fulfilment. This is the rational view of the case. A Wellington or a Napoleon would not barter "the mighty space of his large honours" for paltry or present considerations. Again, let the leaders be men in the prime of life, and not only will they be likely to select a creditable staff, but they will scarcely tolerate senility or incapacity in any subordinate situation. The tu quoque once silenced, they would speedily use the power belonging to their office to remove all who should be unable to execute fairly the duties required of them. Commanders able and determined to do, must very soon be followed by a host of their own character. They communicate life to the whole machine. Secure but these at the head, and we feel certain the effect would be as remarkable and as encouraging as when, in the tale, after a series of contradictions and crosses, the fire began to burn the stick, the stick began to beat the dog, the dog began to do his devoir, and in short, a Routine of the most satisfactory nature was established. It is needless to enlarge upon the increased probability of checking peculation, skulking, or imposture, by a commander not yet past his work. Ca va sans dire. In fact, we firmly believe that, but for one deeply rooted evil, of which we shall shortly *Let it be remembered that we are commenting on a practice-not attacking individuals. All honour to our brave staff-officers who did their work, and they were many. But the system does not tend to the selection of such. say more, the appointment of able bodied and intelligent commanders would put an end to the misdirection of which the country has so justly complained, and restore Routine to its proper place and estimation. Now comes the question, "How are younger commanders to be obtained?" to spend our youth and manhood in inferior and unprofitable grades, let us, now that we are eligible, enjoy the well-paid appointments. Give us commands-give us governments." And commands and governments they receive. But is it possible that a practice, which was found to be so fatal in war, can be other than an It is a known fact that, after pass- evil in time of peace? Are age and ing the age of sixty-five, men in helplessness ever desirable in a comgeneral are not capable of enduring mander or a governor? An attempt much strain on either mind or body. is just now made to mitigate the exIt is equally well known that some tent of the evil by pushing forward men presume to live fifteen, twenty, officers who have distinguished themor even thirty years after they have selves in war. But only a few thus taken leave of their vigour. exceptional individuals are in this Soldiers and sailors in this predica- way obtained. The old men still ment must either continue to be em- remain somewhere on the active list ployed, notwithstanding their grow--colonels if not generals. Moreing disqualifications, or they must over, the principle of promoting be, for the rest of their days, a burden generally by selection can never on the country. It will be seen, by obtain. It is open to immense abuse, reference to army statistics, that for and, with such rulers as we have, is many years past the age of sixty-five, certain to be abused; independently which we set down as the most ad- of which consideration, long and vanced which is compatible with the faithful service must in some way be due performance of military duties, rewarded—if not out of the profesis that at which many officers have sion, then by advancement in it. As attained their ranks as Major-Generals, it is not desirable to use old officers, and that few officers of sixty-five still less is it possible to cast them have attained great seniority in that off as useless burdens. No; the rank. Many of them will never country would find its account in again be employed; but when we do addressing them on this wise: “My need a general, it is from among good and true old servants, I am these withered elders that he must proud to confess that you have for be selected. At an age when men of many a long year devoted to me your other professions are seeking an hon- minds and your bodies; that in all ourable retirement, he is to encase climes, and in all ranks of the service, his shrunk shanks in war-boots, and you have cheerfully faced danger pipe through palsied throat the ghost and difficulty, and liberally shed your of his ancient battle-cry. blood. Far be it from me to deny or forget a tittle of what I owe you. You have given me all, and I am not Arma diu Senior desueta trementibus ævo, Circumdat nequicquam humeris, et inutile ungrateful. But let us be reasonable. ferrum Cingitur So, at his country's call, he drags his crazed limbs to encounter toil and danger, and essays, with numbed brain and chilled arteries, a task which will tax the vigour of the hardiest! But suppose we remain at peace. Then numbers of the old generals are clamorous for employment. "Do not," they say, "reproach us with our age. We would have attained our rank younger if you had permitted us. But after compelling us I cannot, in justice to you, in justice to myself, or to the present generation, give you colonies to torment for the amusement of your declining years. Though sport to you it would be death to them. Neither can I suffer you to disorganise, in your latter age, that army which, in your prime, you contributed to make illustrious. Yet, let not this refusal destroy the feeling that has ever existed between us. If I cannot give exactly what you ask, I have other things to bestow more befitting your wants. I will no longer tax your strength or intellects, already well worn in my service; but I will give you a provision for your declining years worthy of you and worthy of me-a fit offering from the richest country in the world to her tried and devoted servants." In such an address is contained, in our humble opinion, an expression of the true policy of Great Britain. Hitherto she has endeavoured to derive from that strength which is but labour and sorrow, an equivalent for the allowance which she feels bound to make to her veterans. She has unquestionably paid a thousand per cent. on every sum attempted to be so economised. The old men can no longer be profitable servants. You must make a merit of that which you cannot prevent. Pay them well for doing nothing, and pay others for doing well that which has hitherto been done so badly, that it had better have been left undone. Make retirement after the age of sixty-five compulsory, but make the pensions so generous that the necessity shall be no grievance. Depend on it, no old man desires work for work's sake. It is the inability to keep himself and his family decently on his present retiring income, and that alone, which drives him to solicit employment. He had rather take his rest, if you will give him the means of doing so. But he cannot endure to sink below the rank to which he has been accustomed to retire to a station where he will be separated from all that he has become habituated to in active life. You give, to an unemployed general officer, £450 a-year; to a clerk who retires from the War Office you give £1500 a-year-i. e., to the man who has passed his life between his desk at Whitehall and his house in the suburbs, who never was required to endure a privation or incur a wetting on your account, you give the large and liberal allowance; but to the broken soldier, worn with war and climate, whose wounds should ope their dumb mouths and plead for him, you can only afford the miserable pittance! It is essential to the well-working of the plan which we propose, that the retirement be without exception. Let there be no evidence received save the parish register. You can afford to give up any man of sixtyfive, however strong for his years. The highest as well as the lower grades, including field-marshals, commanders-in-chief, and what not, should cease from all manner of active service on attaining that age. Let them by all means retain their rank and the honour due to it; give them increased rank, if you please; but suffer none to evade the rule. Once allow an exception, and you initiate a state of things in which only the poor and unfriended will be made subject to the regulation. In writing the above remarks, we have not been unmindful of the great argument with which it will be endeavoured to crush our project. We are aware that the announcement of it will incense to madness the broken phalanx of the economists, and well nigh cause their departed leader to burst his cerements. We are prepared to hear from even moderate and clear-sighted men a remonstrance on the score of expense. We anticipate the objection that, "wealthy as we are, we cannot afford, after paying for our immense amount of active requirements, to keep up constantly a well-paid list of men who no longer yield a return for their salaries." It has been already said, in reply to this argument, that the advantage of having the different services performed by capable men would compensate for the outlay, great as it is, and possibly effect a pecuniary saving equal to a large portion of the new expense. We know not what we now pay for senile blundering and indecision! But, independently of the above argument, we would remind our countrymen, that a few months ago, when there was a prevalent desire to abolish promotion by, purchase, they entertained, without faltering, the proposal to indemnify the holders of purchased commissions at an expense of two millions sterling. We heartily wish this were universally true; but our experience rather inclines us to believe that aged officials cling to their accustomed occupations as their only refuge from total extinction. Now, we say that it becomes more apparent every day that the abolition of promotion by purchase is hardly desirable, and would not effect the improvement once expected from it. That scheme will probably fall to the ground. But expend the same amount in clearing the army of its worn-out members, you will then certainly have a force whose officers shall not be too old for their respective ranks. The difficulty arising from the course of nature will be met in the only effective and liberal manner; and, having disposed of this, it will be your own fault if you allow controllable evils to impair the efficiency of Her Majesty's forces. Let us now say a few words on Routine, as responsible for the shortcomings of the Civil departments of the State. Here, as in the case of the military force, we are persuaded that the system was less in fault than the public servants who were at the head of those departments. Faults of system there undoubtedly were, and many obsolete forms; but we contend that the state of war was not a condition of the country well chosen for making a revolution in the different offices. Slow as they were before, the sudden change tended to paralyse them still more. That an increased stagnation did not result is attributable to the alterations having been contemporaneous with a decided expression of impatience on the part of the public. Ministers found it expedient to arouse themselves. They began to work; they exerted their authority and made others work. But the same means would have produced the same result without just then disturbing the old system. The improvement was only temporary. The waxing indignation of the country acted on the great officials like brandy on a sinking patient. It wrought them to a momentary effort; but when the stimulus was withdrawn, the bad spirit, backed by seven others, entered in, and the last state is worse than the first. We have nothing to say against making alterations in the public departments, now that the occasion is suitable. The reform is well as far as it goes; but it is beginning at the wrong end. When the head is sore, and the heart is sick, it is in vain that we would impart health through the extremities. In proof of what we have advanced, let any man, at the present time, observe the manner of doing things and the time it takes to do them. Routine, or, as the officials call it, the course of office, does by no means account for the quantity of twaddle and the unconscionable delay. We admit-nay, we insist, that communications and documents affecting different departments of the Government must be made known to each and every department concerned; but at the most five or six days should suffice for this. What are we to say when we find papers, and simple ones, two and three months on their travels through as many offices? What we said when speaking of military renovation we repeat here: reform the heads, and leave them to deal with the members. But in the case of the army, age was the difficulty to be disposed of. In the civil departments are encountered evils of a far more formidable stamp-evils which money can never cure. Delay in transacting business may be regarded as a symptom only of a corroding and alarming disease. The affairs of the nation increase every day in magnitude, and they are conducted by men of whom it is no slander to say that they allot their time, energy, and devotion in the following order:-1st, To the acquisition and abuse of patronage for themselves and their relations; 2d, To extending their political connection; 3d, To the advancement of their party; and 4th (if a few moments remain after caring for the foregoing), To the despatch of the business of the country. If there is in all Britain a dullard who yet requires proof of what we have asserted, we cite the whole national press for the last three years as evidence thereof. Let the Times, with its myriad correspondents, suspicious, discontented, desperate, furious, lead the way into court. Not a village exists from Land's End to John o' Groat's which has not furnished its quota of testimony. If a verdict consented to by the whole nation can establish the charges against Ministers, then are they guilty. We |