[Footnote 203: Government of England, I., 385. On private bill legislation see Lowell, I., Chap. 20; Anson, Law and Custom of the Constitution, I, 291-300; May, Treatise on the Law, Privileges, Proceedings, and Usage of Parliament, Chaps. 24-29; Courtney, Working Constitution of the United Kingdom, Chap. 18; MacDonaugh, The Book of Parliament, 398-420. The standard treatise upon the subject is F. Clifford, History of Private Bill Legislation, 2 vols. (London, 1885-1887). A recent book of value is F. H. Spencer, Municipal Origins; an Account of English Private Bill Legislation relating to Local Government, 1740-1835, with a Chapter on Private Bill Procedure (London, 1911).] VII. THE CONDUCT OF BUSINESS IN THE TWO HOUSES "How can I learn the rules of the Commons?" was a question once put by an Irish member to Mr. Parnell. "By breaking them," was the philosophic reply. Representing, as it does, an accumulation through centuries of deliberately adopted regulations, interwoven and overlaid with unwritten custom, the code of procedure by which the conduct of business in the House of Commons is governed is indeed intricate (p. 139) and forbidding. Lord Palmerston admitted that he never fully mastered it, and Gladstone was not infrequently an inadvertent offender against the "rules of the House." Prior to the nineteenth century the rules were devised, as is pointed out by Anson, with two objects in view: to protect the House from hasty and ill-considered action pressed forward by the king's ministers, and to secure fair play between the parties in the chamber and a hearing for all. It was not until 1811 that business of the Government was permitted to obtain recognized precedence on certain days; but the history of the procedure of the Commons since that date is a record of (1) the general reduction of the time during which private members may indulge in the discussion of subjects or measures lying outside the Government's legislative programme, (2) increasing limitation of the opportunity for raising general questions at the various stages of Government business, and (3) the cutting down of the time allowed for discussing at all the projects to which the Government asks the chambers' assent.[204] [Footnote 204: Anson, Law and Custom of the Constitution, I., 253.]