rowing necessities will sooner or later compel the attention
both of theoretical and of practical politicians. The chief of these
last, is the distinction between the function of making laws, for which
a numerous popular assembly is radically unfit, and that of getting good
laws made, which is its proper duty and cannot be satisfactorily
fulfilled by any other authority: and the consequent need of a
Legislative Commission, as a permanent part of the constitution of a
free country; consisting of a small number of highly trained political
minds, on whom, when Parliament has determined that a law shall be made,
the task of making it should be devolved: Parliament retaining the power
of passing or rejecting the bill when drawn up, but not of altering it
otherwise than by sending proposed amendments to be dealt with by the
Commission. The question here raised respecting the most important of
all public functions, that of legislation, is a particular case of the
great problem of modern political organization, stated, I believe, for
the first time in its full extent by Bentham, though in my opinion not
always satisfactorily resolved by him; the combination of complete
popular control over public affairs, with the greatest attainable
perfection of skilled agency.

The other treatise written at this time is the one which was published
some years[7] later under the title of _The Subjection of Women._ It was
written [at my daughter's suggestion] that there might, in any event, be
in existence a written exposition of my opinions on that great question,
as full and conclusive as I could make it. The intention was to keep
this among other unpublished papers, improving it from time to time if I
was able, and to publish it at the time when it should seem likely to be
most useful. As ultimately published [it was enriched with some
important ideas of my daughter's, and passages of her writing. But] in
what was of my own composition, all that is most striking and profound
belongs to my wife; coming from the fund of thought which had been made
common to us both, by our innumerable conversations and discussions on a
topic which filled so large a place in our minds.

Soon after this time I took from their repository a portion of the
unpublished papers which I had written during the last years of our
married life, and shaped them, with some additional matter, into the
little work entitled _Utilitarianism_; which was first published, in
three