Article 1, Section 7, Clause 1
James Wilson, Legislative Department, Lectures on Law1791Works 1:423--25
In England, all grants of aids by parliament begin in the house of commons. Of that house, this is an ancient, and, now, an indisputable privilege. With regard to it, the commons are so jealous, that, over money bills, they will not suffer the other house to exert any powers, except simply those of concurrence or rejection. From the lords, no alteration or amendment will be received on this delicate subject. The constitutions of the United States and Pennsylvania have, on this head, adopted the parliamentary law of England in part; but they have not adopted it altogether. They have directed, that money bills shall originate in the house of representatives; but they have directed also, that the senate may propose amendments in these, as well as in other bills. It will be proper to investigate the reasons of each part of the direction. This will best be done by tracing the matter historically, and attending to the difference between the institution of the house of lords in England, and that of the senates of the United States and Pennsylvania.
During a considerable time after the establishment of the house of commons as a separate branch of the legislature, it appears, that the members of that house were, with regard to taxes and assessments, governed altogether by the instructions, which they received from their constituents. Each county and borough seems to have directed its representatives, concerning the amount of the rates to which they might give their assent. By adding together the sums contained in those particular directions, it was easy to ascertain, in the house of commons, the sum total, which the commonalty of the kingdom were willing to grant. To the extent of this sum, the commons conceived themselves empowered and directed to go; but no farther.
According to this mode of proceeding, the imposition of taxes produced no interchange of communication between the two houses of parliament. To introduce a money bill, or an amendment to a money bill, into the house of lords--to deliberate upon the bill or amendment in that house--after agreeing to it there, to submit it to the deliberation of the house of commons--all this would have been perfectly nugatory. Let us suppose, that the bill or amendment had undergone the most full and careful examination in the house of lords, who, acting only for themselves, could examine it under every aspect, unfettered by exteriour direction and control: let us suppose it then transmitted to the house of commons, for their concurrence: what could the house of commons do? They could not deliberate upon the bill or the amendment: they could only compare it with their instructions: if they found it consistent with them, they could give, if inconsistent, they must refuse, their consent. The only course, therefore, in which this business could be transacted, was, that the commons should begin by mentioning the sum, which they were empowered to grant, and that what they proposed should be sent to the house of lords, who, upon all the circumstances, might deliberate and judge for themselves.
In this manner, and for these reasons, the house of commons became possessed of this important privilege, which is now justly regarded by them, as one of the strongest pillars of their freedom and power. Once possessed of this privilege, they were far from relinquishing it, when the first reasons for its possession had ceased. Other reasons, stronger than the first, succeeded to them. In the flux of time and things, the revenue and influence of the crown became so great, and the property of the peerage, considered with relation to the general property of the kingdom, became comparatively so small, that it was judged unwise to permit that body to model, or even to alter, the general system of taxation. This is the aspect, under which this subject was viewed in the lecture, to which I have alluded; and I will not repeat now what was observed then.
From this short historical deduction, it appears, that the provision, which we now consider, is far from being so important here, as it is in England. In the United States and in Pennsylvania, both houses of the legislature draw their authority, either immediately, or, at least, not remotely, from the same common fountain. In England, one of the houses acts entirely in its private and separate right.
But though this regulation is by no means so necessary here, as it is in England; yet it may have its use, so far as it has been adopted into our constitutions. Our houses of representatives are much more numerous than our senates: the members of the former are chosen much more frequently, than are the members of the latter. For these reasons, an information more local and minute may be expected in the houses of representatives, than can be expected in the senates. This minute and local information will be of service, in suggesting and in collecting materials for the laws of revenue. After those materials are collected and prepared, the wisdom and the patriotism of both houses will be employed in forming them into a proper system.
The Works of James Wilson. Edited by Robert Green McCloskey. 2 vols. Cambridge: Belknap Press of Harvard University Press, 1967.
© 1987 by The University of Chicago