four years
elapsed without at least one change of ministry. Since 1900 changes
have been somewhat less frequent. The Waldeck-Rousseau ministry of
1899-1902--the longest-lived since 1875--endured virtually three
years; the Combes ministry of 1902-1905 lasted more than two years and
a half; and the Clemenceau ministry of 1906-1909 fell but little short
of two years and nine months. None the less, a total of nine
ministries within the space of thirteen years means an average of but
one year and a half to the ministry. It is but fair to say that the
ordinary "crisis" is not likely to involve a complete ministerial
change. Defeated in the Chamber, or unable to make progress, the
ministry as a body resigns; but, as a rule, many of the members are
immediately reappointed, with perhaps a change of portfolios. A certain
continuity arises also from the fact that the subordinate (p. 314)
officials in the various departments enjoy a reasonable fixity of
tenure. Nevertheless the most obvious feature of parliamentary
government as it exists to-day in France, and in other continental
countries, is its instability. Only where, as in England, there are
two great parties, each possessing solidarity and sufficient strength,
if returned to power, to support a homogeneous and sympathetic
ministry, can the more desirable results of the parliamentary system
be realized in full. There is as yet no evidence that such parties are
in France in process of development.[471]

[Footnote 471: A French scholar writes: "Power
cannot pass alternately, as in England and the
United States, from the party on one side over to
the party in opposition. This alternation, this
game of see-saw between two opposing parties, which
certain theorists have declared to be the
indispensable condition of every parliamentary
regime, does not exist, and has never existed, in
France. The reason why is simple. If the party of
the Right, hostile to the Republic, should come
into power, the temptation would be too strong for
them to maintain themselves there by establishing
an autocratic government, which would put an end to
the parliamentary regime, as in 1851. The electors
are conscio