Representation paved the way for the modern development of responsible self-government. But it is important to recognize that the two are not the same thing. Responsible self-government, in its modern form, is a separate and more complex English invention in the art of government. A community may be decked out with a complete apparatus of representative institutions and yet remain little better than an autocracy. Modern Germany is a case in point. The parliamentary suffrage for the German Reichstag is more representative than that for the British House of Commons. The German workman is better represented in his Parliament than the British workman is in ours. But the German workman has far less power to make his will effective in matters of policy than the British, because the German constitution does not embody the principle of responsible self-government. Sovereignty still rests with the Kaiser as it rested in the thirteenth century with Edward I. The Imperial Chancellor is not responsible to the Reichstag but to the Kaiser, by whom he is appointed and whose personal servant he remains. The Reichstag can discuss the actions of the Chancellor: it can advise him, or protest to him, or even pass votes of censure against him; but it cannot make its will effective. We can observe the working of similar representative institutions in different parts of the British Commonwealth. The provinces of India and many British Colonies have variously composed representative assemblies, but in all cases without the power to control their executives. The self-governing Dominions, on the other hand, do enjoy responsible self-government, but in an incomplete form, because the most vital of all issues of policy are outside their control. On questions of foreign policy, and the issues of war and peace, the Parliaments of the Dominions, and the citizens they represent, are, constitutionally speaking, as helpless as the most ignorant native in the humblest dependency. Representative institutions in themselves thus no more ensure real self-government than the setting up of a works committee of employees in a factory would ensure that the workmen ran the factory. The distinction between representation and effective responsibility is so simple that it seems a platitude to mention it. Yet it is constantly ignored, both in this country by those who speak of Colonial self-government as though the Dominions really enjoyed the same self-government as the people of these islands, and by the parties in Germany whose programme it is, not to make Germany a truly constitutional country, but to assimilate the retrograde Prussian franchise to the broader representation of the Reichstag.