These irregular and generally informal communications between the Appropriations Committees and the heads of the departments, taking the form sometimes of pleas privately addressed by the Secretaries to individual members of the Committees, and again of careful letters which find their way into the reports laid before Congress, stand in our system in the place of the annual financial statements which are in British practice made by the ministers to parliament, under circumstances which constitute very full and satisfactory public explanations and the freest replies to all pertinent questions invariable features of the supervision of the finances by the Commons. Our ministers make their statements to both Houses indirectly and piecemeal, through the medium of the Committees. They are mere witnesses, and are in no definite way responsible for the annual appropriations. Their secure four-year tenure of office is not at all affected by the treatment the estimates receive at the hands of Congress. To see our cabinet officers resign because appropriations had been refused for the full amount asked for in the Secretary of the Treasury's "Letter" would be as novel in our eyes as would be, in the view of our English cousins, the sight of a Ministry of the Crown remaining in office under similar circumstances. Indeed, were our cabinets to stake their positions upon the fortunes of the estimates submitted to Congress, we should probably suffer the tiresome inconvenience of yearly resignations; for even when the heads of the departments tax all their energies and bring into requisition all their arts of persuasion to secure ample grants from the Committees, the House Committee cuts down the sums as usual, the Senate Committee adds to them as before, and the Conference Committee strikes a deficient compromise balance according to time-honored custom.
There is in the House another appropriations committee besides the Committee on Appropriations. This is the Committee on Rivers and Harbors, created in December, 1883, by the Forty-eighth Congress, as a sharer in the too great prerogatives till then enjoyed by the Committee on Commerce. The Committee on Rivers and Harbors represents, of course, the lately-acquired permanency of the policy of internal improvements. Until 1870 that policy had had a very precarious existence. Strenuously denied all tolerance by the severely constitutional Presidents of the earlier days, it could not venture to declare itself openly in separate appropriations which offered an easy prey to the watchful veto, but skulked in the unobtrusive guise of items of the general grants, safe under the cover of respectable neighbor items. The veto has never been allowed to seek out single features in the acts submitted to the executive eye, and even such men as Madison and Monroe, stiff and peremptory as they were in the assertion of their conscientious opinions, and in the performance of what they conceived to be their constitutional duty, and much as they disapproved of stretching the Constitution to such uses as national aid to local and inland improvements, were fain to let an occasional gift of money for such purposes pass unforbidden rather than throw out the general appropriation bill to which it was tacked. Still, Congress did not make very frequent or very flagrant use of this trick, and schemes of internal improvement came altogether to a stand-still when faced by President Jackson's imperious disfavor. It was for many years the settled practice of Congress to grant the States upon the sea-board leave to lay duties at their ports for the improvement of the harbors, and itself to undertake the expense of no public works save those upon territory actually owned by the United States. But in later years the relaxation of presidential opposition and the admission of new States lying altogether away from the sea, and, therefore, quite unwilling to pay the tariffs which were building up the harbors of their eastern neighbors without any recompensing advantage to themselves who had no harbors, revived the plans which the vetoes of former times had rebuffed, and appropriations from the national coffers began freely to be made for the opening of the great water highways and the perfecting of the sea-gates of commerce. The inland States were silenced, because satisfied by a share in the benefits of national aid, which, being no longer indirect, was not confined to the sanctioning of state tariffs which none but the sea-board commonwealths could benefit by, but which consumers everywhere had to pay.
The greatest increase in appropriations of this class took place just after 1870. Since that date they have occupied a very prominent place in legislation, running from some twelve millions in the session of 1873-4 up and down through various figures to eighteen millions seven hundred thousand in the session of 1882-3, constituting during that decade the chief business of the Committee on Commerce, and finally having a special Standing Committee erected for their superintendence. They have thus culminated with the culmination of the protective tariff, and the so-called "American system" of protective tariffs and internal improvements has thus at last attained to its perfect work. The same prerogatives are accorded this new appropriations committee which have been secured to the greater Committee which deals with the estimates. Its reports may be made at any time when a member is not speaking, and stand in all respects upon the same footing as the bills proposing the annual grants. It is a special spending committee, with its own key to the Treasury.
But the Appropriation Committees of the two Houses, though, strictly speaking, the only committees of supply, have their work increased and supplemented by the numerous Committees which devote time and energy to creating demands upon the Treasury. There is a pension list in the estimates for whose payment the Committee on Appropriations has to provide every year; but the Committee on Pensions is constantly manufacturing new claims upon the public revenues.30 There must be money forthcoming to build the new ships called for by the report of the Committee on Naval Affairs, and to meet the charges for the army equipment and reforms recommended by the Committee on Military Affairs. There are innumerable fingers in the budget pie.
It is principally in connection with appropriations that what has come to be known in our political slang as "log-rolling" takes place. Of course the chief scene of this sport is the private room of the Committee on Rivers and Harbors, and the season of its highest excitement, the hours spent in the passage of the River and Harbor Bill. "Log-rolling" is an exchange of favors. Representative A. is very anxious to secure a grant for the clearing of a small water-course in his district, and representative B. is equally solicitous about his plans for bringing money into the hands of the contractors of his own constituency, whilst representative C. comes from a sea-port town whose modest harbor is neglected because of the treacherous bar across its mouth, and representative D. has been blamed for not bestirring himself more in the interest of schemes of improvement afoot amongst the enterprising citizens of his native place; so it is perfectly feasible for these gentlemen to put their heads together and confirm a mutual understanding; that each will vote in Committee of the Whole for the grants desired by the others, in consideration of the promise that they will cry "aye" when his item comes on to be considered. It is not out of the question to gain the favoring ear of the reporting Committee, and a great deal of tinkering can be done with the bill after it has come into the hands of the House. Lobbying and log-rolling go hand in hand.
So much for estimates and appropriations. All questions of revenue are in their first stages in the hands of the House Committee of Ways and Means, and in their last, in charge of the Senate Committee on Finance. The name of the House Committee is evidently borrowed from the language of the British Parliament; the English Committee of Ways and Means is, however, the Commons