Chapter Xxvi (p. 489)

THE GOVERNMENT AND PARTIES OF HUNGARY

I. THE CONSTITUTION

*540. Antiquity.*--By reason of both its antiquity and its adaptability to varying conditions, the constitution of the kingdom of Hungary deserves to be considered one of the most remarkable instruments of its kind. Like the fundamental law of England, it is embodied in a maze of ancient statutes and customs, and it is the distinctive creation of a people possessed of a rare genius for politics and government. On the documentary side its history is to be traced at least to the Golden Bull of Andrew II., promulgated in 1222; though that instrument, like the contemporary Great Charter in England, comprised only a confirmation of national liberties that were already old. Under Hapsburg domination, from the early sixteenth century onwards, the fundamental political system and the long established laws of the Hungarian kingdom were repeatedly guaranteed. Much of the time they were, in practice, disregarded; but the nationalistic vigor of the Hungarian people invested them with unlimited power of survival, and even during the reactionary second quarter of the nineteenth century they were but held in suspense.

*541. Texts: the "March Laws."*--In large part, the constitution to-day in operation took final form in a series of measures enacted by the Hungarian parliament during the uprising of 1848. Thirty-one laws, in all, were at that time passed, revising the organization of the legislative chambers, widening the suffrage, creating a responsible cabinet, abolishing feudal survivals, and modernizing, in general, the institutions of the kingdom. The broad lines which remained were those marked out in the ancient constitutional order; the new measures merely supplemented, revised, and imparted definite form to pre-existing laws, customs, and jealously guarded rights. Not all of these inherited constitutional elements, however, were included in the new statutes; and to this day it is true that in Hungary, as in (p. 490) Great Britain, a considerable portion of the constitution has never been put into written form. The fate of the measures of 1848 was for a time adverse. The Austrian recovery in 1849 remanded Hungary to the status of a subject province, and it was not until 1867, after seven years of arduous experimentation, that the constitution of 1848 was permitted again to come into operation. The Ausgleich involved as one of its fundamentals a guarantee for all time of the laws, constitution, legal independence, freedom, and territorial integrity of Hungary and its subordinate countries. And throughout all of the unsettlement and conflict which the past half-century has brought in the Austro-Hungarian world the constitution of kingdom and empire alike has stood firm against every shock. The documents in which, chiefly, the written constitution is contained are: (1) Law III. of 1848 concerning the Formation of a Responsible Hungarian Ministry; (2) Law IV. of 1848 concerning Annual Sessions of the Diet; (3) Law XXXIII. of 1874 concerning the Modification and Amendment of Law V. of 1848, and of the Transylvanian Law II. of 1848; and (4) Law VII. of 1885 altering the organization of the Table of Magnates.

II. THE CROWN AND THE MINISTRY (p. 491)

*542. The Working Executive.*--The constitutional arrangements respecting the executive branch of the Hungarian government are set forth principally in Law III. of 1848 "concerning the Formation of a Responsible Hungarian Ministry." The king attains his position ipso jure, by reason of being Emperor of Austria, without the necessity of any distinct act of public law. Within six months of his accession at Vienna he is crowned monarch of Hungary at Budapest, in a special ceremony in which is used the crown sent by Pope Sylvester II. upwards of a thousand years ago to King Stephen. The new sovereign is required to proffer Parliament an "inaugural certificate," as well as to take a coronation oath, to the effect that he will maintain the fundamental laws and liberties of the country; and both of these instruments are incorporated among the officially published documents of the realm. The entire proceeding partakes largely of the character of a contractual arrangement between nation and sovereign.

As in Austria, the powers of the crown are exercised very largely through the ministry. And, by reason of the peculiar safeguards in the Hungarian laws against royal despotism, as well as the all but uninterrupted absence of the king from the dominion, the ministry at Budapest not only constitutes the Hungarian executive in every real sense, but it operates on a much more purely parliamentary basis than does its counterpart at Vienna. "His Majesty," says the law of 1848, "shall exercise the executive power in conformity with law, through the independent Hungarian ministry, and no ordinance, order, decision, or appointment shall have force unless it is countersigned by one of the ministers residing at Budapest." Every measure of the crown must be countersigned by a minister; and every minister is immediately and actually responsible to Parliament for all of his official acts.

*543. Composition and Status of the Ministry.*--The ministry consists of a president of the council, or premier, and the heads of nine departments, as follows: Finance, National Defense, Interior, Education and Public Worship, Justice, Industry and Commerce, Agriculture, the Ministry for Croatia and Slavonia, and the Ministry near the King's Person. The last-mentioned portfolio exists by virtue of the constitutional requirement that "one of the ministers shall always be in attendance upon the person of His Majesty, and shall take part in all affairs which are common to Hungary and the hereditary provinces, and in such affairs he shall, under his responsibility, represent Hungary." All ministers are appointed by the king, (p. 492) on nomination of the premier. All have seats in Parliament and must be heard in either chamber when they desire to speak. They are bound, indeed, to attend the sessions of either house when requested, to submit official papers for examination, and to give "proper explanations" respecting governmental policies. They may be impeached by vote of a majority of the lower chamber, in which event the trial is held before a tribunal of twelve judges chosen by secret ballot by the upper house from among its own members. Inasmuch, however, as the lower house has acquired the power by a simple vote of want of confidence to compel a cabinet to resign, the right of impeachment possesses in practice small value. The ministry is required to submit once a year to the lower house for its examination and approval a statement of the income and needs of the country, together with an account of the income administered by it during the past twelve months.

III. PARLIAMENT--THE ELECTORAL SYSTEM

*544. The Table of Magnates.*--The Hungarian parliament consists of two houses, whose official designations are Foerendihaz--Table, or Chamber, of Magnates--and Kepviseloehaz, or Chamber of Deputies. The upper house is essentially a perpetuation of the ancient Table of Magnates which, in the sixteenth century, began to sit separately as an aristocratic body made up of the great dignitaries of the kingdom, the Catholic episcopate (also, after 1792, that of the Orthodox Greek Church), the "supreme courts," and the adult sons of titled families. The reforms of 1848 left the Chamber untouched, though its composition was modified slightly in 1885. At the session of 1910-1911 it contained 16 archdukes of the royal family (eighteen years of age or over); 15 state dignitaries; 2 presidents of the High Courts of Appeal; 42 archbishops and bishops of the Roman Catholic and Greek Orthodox churches; 13 representatives of the Lutheran, Calvinist, and Unitarian faiths; 236 members of the hereditary aristocracy (i.e., those of the whole number of the nobility who pay a land tax to the amount of at least 6,000 crowns annually); 3 members elected by the provincial diet of Croatia; and 60 life peers, appointed by the crown or chosen by the Chamber of Magnates itself--a total of 387. The membership is therefore exceedingly complex, resting on the (p. 493) various principles of hereditary right, ex-officio qualification, royal nomination, and election. In practice the upper house is distinctly subordinate to the lower, to which alone the ministers are responsible. Any member may acquire, by due process of election, a seat in the lower chamber, and the privilege is one of which the more ambitious peers are not reluctant to avail themselves. Upon election to the lower house a peer's right to sit in the upper chamber is, of course, suspended; but when the term of service in the popular branch has expired, the prior right is revived automatically.

*545. The Chamber of Deputies: the Franchise.*--By law of 1848, amended in 1874, it is stipulated that the Chamber of Deputies, historically descended from the ancient Table of Nuncios, shall consist of 453 members, "who shall enjoy equal voting power, and who shall be elected in accordance with an apportionment made on the basis of population, territory, and economic conditions." Of the total number of members, 413 are representatives of Hungary proper and 40 are delegates of the subordinate kingdom of Croatia, Slavonia, and Dalmatia. This kingdom possesses its own organs of government, including a unicameral diet which exercises independent legislative power in all internal affairs. Its forty deputies take part in the proceedings at Budapest only when subjects are under consideration which are of common concern to all of the countries of St. Stephen's crown, such as questions pertaining to finance, war, communications, and relations with Austria.

The election of deputies is governed by an elaborate statute of November 10, 1874, by which were perpetuated the fundamentals of the electoral law of 1848. In respect to procedure, the system was further amended by a measure of 1899. Qualifications for the exercise of the suffrage are based on age, property, taxation, profession, official position, and ancestral privileges. Nominally liberal, they are, in actual operation, notoriously illiberal. The prescribed age for an elector is twenty years, indeed, as compared with twenty-four in Austria; but the qualifications based upon property-holding are so exacting that they more than offset the liberality therein involved. These qualifications--too complicated to be enumerated here--vary according as they arise from capital, industry, occupation, or property-holding. With slight restrictions, the right to vote is possessed without regard to property or income, by members of the Hungarian Academy of Sciences, professors, notaries public, (p. 494) engineers, surgeons, druggists, graduates of agricultural schools, foresters, clergymen, chaplains, and teachers. On the other hand, state officials, soldiers in active service, customs employees, and the police have no vote; servants, apprenticed workingmen, and agricultural laborers are carefully excluded; and there are the usual disqualifications for crime, bankruptcy, guardianship, and deprivation by judicial process. In an aggregate population of approximately 20,000,000 to-day there are not more than 1,100,000 electors.

*546. The Magyar Domination.*--The explanation of this state of affairs is to be sought in the ethnographical composition of Hungary's population. Like Austria, Hungary contains a melange of races and nationalities. The original Hungarians are the Magyars, and by the Magyar element attempt has been made always to preserve as against the affiliated German and Slavic peoples an absolute superiority of social, economic, and political power. The Magyars occupy almost exclusively the more desirable portion of the country, i.e., the great central plain intersected by the Danube and the Theiss, where they preponderate decidedly in as many as nineteen counties. Clustered around them, and in more or less immediate touch with kindred peoples beyond the borders, are the Germans and the Slavs--the Slovaks in the mountains of the north, the Ruthenes on the slopes of the Carpathians, the Serbs on the southeast, and the Croats on the southwest. When the census of 1900 was taken the total population of Hungary (including Croatia-Slavonia) was 19,254,559. Of this number 8,742,301 were Magyars; 8,029,316 were Slavs; 2,135,181 were Germans; and 397,761 were of various minor racial groups. To put it differently, the Magyars numbered 8,742,301; the non-Magyars, 10,512,258. The fundamental fault of the Hungarian electorate is that it has been shaped, and is deliberately maintained, in the interest of a race which comprises numerically but 45.4 per cent of the country's population. So skillfully, indeed, have electoral qualifications and electoral proceedings been devised in the Magyar interest that the non-Magyar majority has but meager representation, and still less influence, at Budapest. Even in Hungary proper the electorate in 1906 comprised but 24.4 per cent of the male population over twenty years of age; and, despite the disqualifications that have been mentioned one-fourth of the men who vote are officials or employees of the state.

*547. The Demand for Electoral Reform: the Franchise Reform Bill (p. 495) of 1908.*--In recent years, especially since the Austrian electoral reform of 1906-1907, there has been in Hungary an increasingly insistent demand that the Magyar parliamentary hegemony be overthrown, or at least that there be assured to the non-Magyar peoples something like a proportionate share of political influence. As early as 1905 the recurrence of legislative deadlocks at Budapest influenced Francis Joseph to ally himself with the democratic elements of the kingdom and to declare for manhood suffrage; and in the legislative programme of the Fejervary government, made public October 28, 1905, the place of principal importance was assigned to this reform. Fearing the swamping of the popular chamber by the Slavs and Germans, the Magyars steadily opposed all change, and for the time being the mere threat on the part of the Government was sufficient to restore tolerable, if not normal, parliamentary conditions. The Wekerle coalition cabinet of 1900 announced electoral reform as one of its projected tasks, but as time elapsed it became apparent that no positive action was likely to be taken. During 1907 and 1908 riotous demonstrations on the part of the disappointed populace were frequent, and at last, November 11, 1908, Count Andrassy, Minister of the Interior, introduced in the Chamber the long-awaited Franchise Reform Bill.

The measure fell far short of public expectation. It was drawn, as Count Andrassy himself admitted, in such a manner as not "to compromise the Magyar character of the Hungarian state." After a fashion, it conceded manhood suffrage. But, to the end that the Magyar hegemony might be preserved, it imposed upon the exercise of the franchise such a number of restrictions and assigned to plural voting such an aggregate of weight that its concessions were regarded by those who were expected to be benefited by it as practically valueless. The essentials of the measure were: (1) citizens unable to read and write Hungarian should be excluded from voting directly, though they might choose one elector for every ten of their number, and each elector so chosen should be entitled to one vote; (2) every male citizen able to read and write Hungarian should be invested, upon completing his twenty-fourth year and fulfilling a residence requirement of twelve months, with one vote; (3) electors who had passed four standards of a secondary school, or who paid yearly a direct tax amounting to at least twenty crowns ($4.16), or who fulfilled various other conditions, should be entitled to two votes; and (4) electors who had completed the course of secondary instruction, or who paid a direct tax of 100 crowns (approximately $21), should (p. 496) be possessed of three votes. As before, voting was to be oral and public. In the preamble of the measure the cynical observation was offered that "the secret ballot protects electors in dependent positions only in so far as they break their promises under the veil of secrecy." It was announced that the passage of the bill would be followed by the presentation of a scheme for the redistribution of seats.

*548. Rejection of the Bill.*--According to calculations of the Neue Freie Presse, the effect of the measure would have been to increase the aggregate body of electors from 1,100,000 to 2,600,000, and the number of votes to something like 4,000,000. The number of persons entitled to three votes was estimated at 200,000; to two votes, at 860,000; to one vote, at 1,530,000; to no vote, at 1,270,000. An aggregate of 1,060,000 persons in the first two classes would cast 2,320,000 votes; an aggregate of 2,800,000 in the last two would cast 1,530,000 votes. The number of persons participating in parliamentary elections would be more than doubled, but political power would remain where it was already lodged. The measure would have operated, indeed, to strengthen the Magyar position, and while the Germans would have profited somewhat by it, the Slavs would have lost largely such power as they at present possess. Based as the scheme was upon a curious elaboration of the educational qualification, it was recognized instantly, both in the kingdom and outside, as an instrument of deliberate Magyar domination. Among the Slavic populations the prevalence of illiteracy is such that the number of persons who could attain the possession of even one direct vote would be insignificant. By the Socialists, and by the radical and Slavic elements generally, the scheme was denounced as a sheer caricature of the universal, equal, and direct suffrage for which demand had been made.

Upon the introduction of the bill parliamentary discord broke out afresh, and through 1909 there was a deadlock which effectually prevented the enactment of even the necessary measures of finance. In January, 1910, the sovereign at last succeeded in securing a new ministry, presided over by Count Hedervary, and in the programme of this Government the introduction of manhood suffrage was accorded a place of principal importance. June 26, 1910, the Speech from the Throne, at the opening of the newly elected parliament, announced that a franchise bill would be submitted "on the basis of universal suffrage and in complete maintenance of the unitary national character of the Hungarian state." Various circumstances co-operated, however, to impose delay and, despite the sovereign's reiterated interest in the reform, no action as yet has been taken. The Hungarian franchise remains the most illiberal and the most antiquated in Europe. The (p. 497) racial situation seems utterly to preclude the possibility of a reform that will be in all respects satisfactory; indeed, it seems almost to preclude the possibility of reform at all. Yet, that the pressure will be continued until eventually there shall be an overhauling of the present inadequate system can hardly be doubted.

*549. Electoral Procedure.*--Elections are conducted in each town or comitat (county) by a central electoral committee of at least twelve members, chosen by the municipal council of the town or by the general council of the comitat. The list of voters in each district is drawn up by a sub-committee of this body. When an election is to be held, the Minister of the Interior fixes, thirty days in advance, a period of ten days during which the polling must be completed. As in Great Britain, the elections do not take place simultaneously, and a candidate defeated in one constituency may stand, and possibly be successful, in another. All polling within a particular town or comitat, however, is concluded within one day. Candidates may be nominated by any ten electors of the district, and candidacies may be declared until within thirty minutes of the hour (eight o'clock A. M.) for the polling to begin.

Voting is everywhere public and oral. Each elector, after giving his name and establishing his identity, simply proclaims in a loud voice the name of the candidate for whom he desires to have his vote recorded. If no candidate obtains an absolute majority, the central committee fixes a date (at least fourteen days distant) for a second polling, on which occasion the contest lies between the two candidates who at the first balloting polled the largest number of votes. Prior to a law of 1899 defining jurisdiction in electoral matters, Hungarian elections were tempestuous, and not infrequently scandalous. Beginning with the elections of 1901, however, electoral manners have shown considerable improvement; though ideal conditions can hardly be realized until oral voting shall have been replaced by the secret ballot. Any elector who has attained the age of twenty-four, (p. 498) is a registered voter, and can speak Magyar (the official language of Hungarian parliamentary proceedings) is eligible as a candidate. Deputies receive a stipend of 4,800 crowns a year, with an allowance of 1,600 crowns for house rent.

*550. Parliamentary Organization and Procedure.*--The national parliament assembles in regular session once a year at Budapest. Following a general election, the Chamber of Deputies meets, under the presidency of its oldest member, after a lapse of time (not exceeding thirty days) fixed by the royal letters of convocation. The Chamber of Magnates being convoked by the crown at the same date, all members repair to the royal palace to hear the Speech from the Throne, which is delivered by the king in person or by an especially appointed royal commissioner. The lower chamber then passes upon the validity of the election of its members, though by law of 1899 the actual exercise of this jurisdiction is committed in large part to the Royal High Court. The president and vice-president of the Chamber of Magnates are appointed by the king from the members of that house; the secretaries are elected by the house from its own members, by secret ballot. The lower house elects, from its members, all of its officials--a president, two vice-presidents, and a number of secretaries. The presidents of the two houses are chosen for the entire period of the parliament; all other officials are chosen annually at the beginning of a session.

Each house is authorized, at its first annual session after an election, to adopt an order of business and to make the necessary regulations for the maintenance of peace and propriety in its deliberations. The president, with the aid of sergeants-at-arms, is charged with the strict enforcement of all such rules. Sittings of the two houses are required to be public, but spectators who disturb the proceedings may be excluded. The maximum life of a parliament was raised, in 1886, from three years to five. It is within the power of the king, however, not only to extend or to adjourn the annual session, but to dissolve the lower chamber before the expiration of the five-year period. In the event of a dissolution, orders are required to be given for a national election, and these orders must be so timed that the new parliament may be assembled within, at the most, three months after the dissolution. And there is the further requirement that, in the event of a dissolution before the budget shall have (p. 499) been voted for the ensuing year, the convocation of the new parliament shall be provided for within such a period as will permit the estimates for the succeeding year to be considered before the close of the current year.

*551. The Powers of Parliament: the Parliamentary System.*--In the Hungarian constitutional system Parliament is in a very real sense supreme. The king can exercise his prerogatives only through ministers who are responsible to the lower chamber, and all arrangements pertaining to the welfare of the state fall within the competence of the legislative branch. Within Parliament it is the Chamber of Deputies that preponderates. Aside from the king and ministry, it alone enjoys the power of initiating legislation; and the opposition with which the Chamber of Magnates may be disposed to meet its measures invariably melts away after a show of opinion has been made. By a simple majority vote in the lower chamber a minister may be impeached for bribery, negligence, or any act detrimental to the independence of the country, the constitution, individual liberty, or property rights. Trial is held before a tribunal composed of men chosen by secret ballot by the Chamber of Magnates from its own members. For the purpose thirty-six members in all are required to be elected. Of the number, twelve may be rejected by the impeachment commission of the lower house, and twelve others by the minister or ministers under impeachment. Those remaining, at least twelve in number, try the case. Procedure is required to be public and the penalty to be "fixed in proportion to the offense."

The statement which has sometimes been made that the parliamentary system operates to-day in the kingdom of Hungary in a fuller measure than in any other continental country requires qualification. Nominally, it is true, an unfavorable vote in the Deputies upon a Government measure or action involves the retirement of a minister, or of the entire cabinet, unless the crown is willing to dissolve the Chamber and appeal to the country; and no Government project of consequence can be carried through without parliamentary approval. Practical conditions within the kingdom, however, have never been favorable for the operation of parliamentarism in a normal manner. In the first place, the parliament itself is in no wise representative of the nation as a whole. In the second place, the proceedings of the body are not infrequently so stormy in character that for months at a time the essential principles of parliamentarism are hopelessly subverted. Finally, and most fundamental of all, at no period in the kingdom's history have there been two great parties, contending on (p. 500) fairly equal terms for the mastery of the state, each in a position to assume direction of the government upon the defeat or momentary discomfiture of the other. From 1867 to 1875, as will appear, there was but one party (that led by Deak) which accepted the Compromise, and hence could be intrusted with office; and from 1875 to the present day there has been but one great party, the Liberal, broken at times into groups and beset by more or less influential conservative elements, but always sufficiently compact and powerful to be able to retain control of the government. Under these conditions it has worked out in practice that ministries have retired repeatedly by reason of decline of popularity, internal friction, or request of the sovereign, and but rarely in consequence of an adverse vote in Parliament.

IV. POLITICAL PARTIES

*552. The Question of the Ausgleich.*--Throughout half a century the party history of Hungary has centered about two preponderating problems, first, the maintenance of the Compromise with Austria and, second, the preservation of the political ascendancy of the Magyars. Of these the first has been the more fundamental, because the ascendancy of the Magyars was, and is, an accomplished fact and upon the perpetuation of that ascendancy there can be, among the ruling Magyars themselves, no essential division. The issue upon which those elements of the population which are vested with political power (and which, consequently, compose the political parties in the true sense) have been always most prone to divide, is that of the perpetuation and character of the Ausgleich. To put it broadly, there have been regularly two schools of opinion in respect to this subject. There have been the men, on the one hand, who accept the arrangements of 1867 and maintain that by virtue of them Hungary, far from having surrendered any of her essential interests, has acquired an influence and prestige which otherwise she could not have enjoyed. And there have been those, on the other hand, who see in the Ausgleich nothing save an abandonment of national dignity and who, therefore, would have the arrangement thoroughly remodelled, or even abrogated outright. Under various names, and working by different methods, the parties of the kingdom have assumed almost invariably one or the other of these attitudes.

*553. Formation of the Liberal Party.*--As has been pointed out, the Compromise was carried through the Hungarian parliament in 1867 by the party of Deak. Opposed to it was the Left, who favored the maintenance of no union whatsoever with Austria save through the crown. The (p. 501) first ministry formed under the new arrangement, presided over by Count Andrassy, was composed of members of the Deak party, and at the national elections of 1869 this party obtained a substantial, though hard-won, majority. In 1871 Andrassy resigned to become the successor of Count Beust in the joint ministry of foreign affairs at Vienna, and two years later Deak himself, now an aged man, withdrew from active political life. There followed in Hungary an epoch of political unsettlement during the course of which ministries changed frequently, finances fell into disorder, and legislation was scant and haphazard. The Deak party disintegrated and, but for the fact that the Left gradually abandoned its determination to overthrow the Ausgleich, the outcome might well have been a constitutional crisis, if not war. As it was, when, in February, 1875, the leader of the Left, Kalman Tisza, publicly acknowledged his party's conversion to the Austrian affiliation, the fragments of the Deak party amalgamated readily with the Left to form the great Liberal party by which the destinies of Hungary have been guided almost uninterruptedly to the present day. Except for the followers of Kossuth, essentially irreconcilable, the Magyars were now united in the support of some sort of union with Austria, and most of them were content for the present to abide by the arrangement of 1867. Before the close of 1875 Tisza was established at the head of a Liberal cabinet, and from that time until his fall, in March, 1890, he was continuously the real ruler of Hungary.

*554. The Liberal Ascendancy: Tisza, Szapary, Wekerle, and Banffy.*--The primary policy of Tisza was to convert the polyglot Hungarian kingdom into a centralized and homogeneous Magyar state, and to this end he did not hesitate to employ the most relentless and sometimes unscrupulous means. Nominally a Liberal, he trampled the principles of liberalism systematically under foot. To the disordered country, however, his strong rule brought no small measure of benefit, especially in respect to economic conditions. He supported faithfully the Compromise of 1867; but when, in 1877, the commercial treaty between the two halves of the monarchy expired he contrived to procure increased advantages for Hungary, and among them the conversion of the Austrian National Bank into a joint institution of the two states. Opposition to the Tisza regime arose from two sources principally, i.e., the Kossuth party of Independence, which clung still to the principles of 1848, and the National party, led by the brilliant orator Count Albert Apponyi, distinguishable from the Independence group, on the one hand, by its provisional acquiescence in the Ausgleich and (p. 502) from the Liberals, on the other, by its still more enthusiastic advocacy of Magyarization. At Vienna, Tisza was regarded as indispensable; but growing discontent in Hungary undermined his position and March 13, 1890, he retired from office.

With the fall of Tisza there was inaugurated a period of short ministries whose history it would be unprofitable to attempt to recount in detail. The Liberal party continued in control, for there had appeared no rival group of sufficient strength to drive it from power. But the rise of a series of issues involving the relations of church and state injected into the political situation a number of new elements and occasioned frequent readjustments within the ministerial group. The ministry of Count Szapary, which succeeded that of Tisza was followed, November 21, 1892, by that of Dr. Sandor Wekerle, and it, in turn, after a number of the religious bills had been passed, was succeeded, January 11, 1895, by a cabinet presided over by Baron Banffy. At the elections of 1896 the Liberals were overwhelmingly triumphant, acquiring in the lower chamber a majority of two to one. The Nationalist contingent was reduced from 57 to 35.

*555. The Era of Parliamentary Obstructionism.*--The period covered by the Banffy ministry (January, 1895, to February, 1899) was one of the stormiest in Hungarian parliamentary history. At the close of 1897 the decennial economic agreement with Austria came automatically to an end, and despite its best efforts the Government was unable to procure from Parliament an approval of a renewal of the arrangement. Through two years successively the existing agreement was extended provisionally for twelve months at a time. It was only during the ministry of Szell, who took office in February, 1899, that a renewal was voted, covering the period to 1907. In Hungary there is no constitutional provision equivalent to Section 14 of the constitution of Austria, but during 1897-1899 the utter breakdown of legislation at Budapest drove Premier Banffy to a policy of government by decree very similar to that which was at the same time being employed at Vienna. The Government had all of the while a substantial majority, but the obstructionist tactics of the Independence group, the Apponyi Nationalists, and the Clericals were of such a nature that normal legislation was impossible. Under the regime of Szell (February, 1899, to May, 1903), who was a survivor of the old Deak group, constitutionalism was rehabilitated and the Liberals who had been alienated by Banffy's autocratic measures were won back to the Government's support. Nationalist obstruction likewise diminished, for the primary object of Apponyi's followers had been to drive Banffy from power.

The brief ministry of Count Khuen-Hedervary (May 1 to September (p. 503) 29, 1903) was followed by a ministry presided over by Count Istvan [Stephen] Tisza, son of Kalman Tisza, premier from 1875 to 1890. The principal task of the younger Tisza's ministry was to effect an arrangement whereby the Hungarian army, while remaining essentially Hungarian, should not be impaired in efficiency as a part of the dual monarchy's military establishment. During parliamentary consideration of this subject obstruction to the Government's proposals acquired again such force that, under the accustomed rules of procedure, no action could be taken. November 18, 1904, the opposition shouted down a Modification of the Standing Orders bill, designed to frustrate obstruction, and would permit no debate upon it; whereupon, the president of the Chamber declared the bill carried and adjourned the house until December 13, and subsequently until January 5, 1905. The opposition commanded now 190 votes in a total of 451. When the date for the reassembling arrived members of the obstructionist groups broke into the parliament house and by demolishing the furniture rendered a session for the time impossible. In disgust Tisza appealed to the country, only to be signally defeated. The Government carried but 152 seats. The Kossuth party of Independence alone carried 163; the Liberal dissenters under Andrassy got 23; the Clerical People's party, 23; the Banffy group, 11; and the non-Magyar nationalities, 8. Tisza sought to retire, but not until June 17, 1905, would the sovereign accept his resignation.

*556. The Government's Partial Triumph.*--Incensed by the prolonged, and in many respects indefensible, character of the parliamentary deadlock, Francis Joseph resolved to establish in office an essentially extra-constitutional ministry which should somehow contrive to override the opposition, and likewise to set on foot a movement looking toward the revolutionizing of Hungarian parliamentary conditions by the introduction of manhood suffrage. Under the ministry of Baron Fejervary, constituted June 21, 1905, there was inaugurated a period of frankly arbitrary government. Parliament was prorogued repeatedly, and by censorship of the press, the dragooning of towns, and the dismissal of officers the Magyar population was made to feel unmistakably the weight of the royal displeasure. For awhile there was dogged resistance, but in time the threat of electoral reform took the heart out of the opposition. Outwardly a show of resistance was maintained, but after the early months of 1906 the Government may be said once more to have had the situation well in hand. Two events of the year mentioned imparted emphasis to the profound change of political conditions which the period of conflict had produced. The first was the establishment, under the premiership of the Liberal (p. 504) leader Dr. Wekerle, of a coalition cabinet embracing a veritable galaxy of Hungarian statesmen, including Francis Kossuth, Count Andrassy, and Count Apponyi. The second was the all but complete annihilation, at the national elections which ensued, of the old Liberal party, and the substitution for it, in the role of political preponderance, of the Kossuth party of Independence. The number of seats carried by this rapidly developing party was 250, or more than one-half of the entire number in the Chamber.

*557. The Parliamentary Conflict Renewed.*--The Wekerle cabinet entered office pledged to electoral reform, although in the subject it in reality cherished but meager interest. In 1908, as has been related, it was impelled by popular pressure to submit a new electoral scheme; but that scheme was conceived wholly in the Magyar interest and did not touch the real problem. It very properly failed of adoption. Meanwhile the ministry fell into hopeless disagreement upon the question of whether Hungary should consent to the renewal of the charter of the Austro-Hungarian Bank (to expire December 31, 1910) or should hold out for the establishment of a separate Hungarian Bank, and, April 27, 1909, Premier Wekerle tendered his resignation. At the solicitation of the sovereign he consented to retain office until a new ministry could be constituted, which, in point of fact, proved to be until January 17, 1910. Added to the problem of the Bank was an even more vexatious one, that, namely, of the Magyarization of the Hungarian regiments. The extremer demands in the matter of Magyarization emanated, of course, from the Independence party, though upon the issue the party itself became divided into two factions, the extremists being led by Justh and the more moderate element by Kossuth. The coalition was disrupted utterly; the Wekerle ministry dragged on simply because through many months no other could be brought together to take its place. The year 1909 passed without even the vote of a budget.

January 17, 1910, Count Hedervary succeeded in forming a cabinet, and there ensued a lull in the political struggle. At the elections of June, the Government--representing virtually the revived Liberal party--carried 246 seats, while the two wings of the Independence party secured together only 85. The Clericals were reduced to 13 and the non-Magyars to 7. Under the leadership of Istvan Tisza there was organized, at the beginning of 1910, a so-called "National Party of Work," which by the emphasis which it laid upon its purpose of practical achievement commended itself to large elements of the nation. By the Hedervary government it was announced that the (p. 505) franchise would be reformed in such a manner as to maintain, without the employment of the plural vote, the historical character of the Magyar state; but the bitterness of Magyar feeling upon the subject continued to preclude all possibility of action. The embarrassments continually suffered by the Hedervary ministry reached their culmination in the winter of 1911-1912, at which time the relations between Austria and Hungary became so strained that Emperor Francis Joseph threatened to abdicate unless pending difficulties should be adjusted. The question of most immediate seriousness pertained to the adoption of new regulations for the military establishment, but the electoral issue loomed large in the background. The retirement of the Hedervary cabinet, March 7, 1912, and the accession of a ministry presided over by Dr. de Lukacs affected the situation but slightly. The new premier made it clear that he would labor for electoral reform, and issue was joined with him squarely upon this part of his programme by the aristocracy, the gentry, the Chamber of Magnates, and all the adherents of Andrassy, Apponyi, and Kossuth, with the deliberately conceived purpose of frightening the Government, and especially the Emperor-King, into an abandonment of all plans to tamper with existing electoral arrangements. During the earlier months of the ministry efforts of the premier to effect a working agreement with the forces of opposition were but indifferently successful.

V. THE JUDICIARY AND LOCAL GOVERNMENT

*558. Law and Justice.*--The law of Hungary, like that of England, is the product of long-continued growth. It consists fundamentally of the common law of the mediaeval period (first codified by the jurist Verboeczy in the sixteenth century), amplified and modernized in more recent times, especially since the reforms of 1867, so that what originally was little more than a body of feudal customs has been transformed into a comprehensive national code. Hungarian criminal law, codified in 1878, is recognized to be the equal of anything of the kind that the world possesses. Since 1896 there has been in progress a codification of the civil law, and the task is announced to be approaching completion. There are numerous special codes, pertaining to commerce, bankruptcy, and industry, whose promulgation from time to time has marked epochs in the economic development of the nation.

The lower Hungarian tribunals, or courts of first instance, comprise 458 county courts, with single judges, and 76 district courts, (p. 506) with two or more judges each. Both exercise jurisdiction in civil and criminal cases; but the jurisdiction of the county courts in civil cases extends only to suits involving not more than 1,200 crowns, while in criminal cases these tribunals are not competent to impose punishment exceeding a single year's imprisonment. The district courts serve as courts of appeal from the county courts. Of superior courts there are fourteen--twelve "royal tables," or courts of appeal, a Supreme Court of Justice at Agram, and a Royal Supreme Court at Budapest. The twelve contain, in all, 200 judges; the Royal Supreme Court contains 92. All judges are appointed by the king. Once appointed, they are independent and irremovable. Only Hungarian citizens may be appointed, and every appointee must have attained the age of twenty-six, must be of good moral character, must be familiar with the language of the court in which he is to serve, and must have passed the requisite legal examinations. Salaries vary from 3,840 to 10,000 crowns. Supreme administrative control of the judicial system is vested in the Minister of Justice. The sphere of his authority is regulated minutely by parliamentary statute. In the main, he supervises the judges, attends to the legal aspects of international relations, prepares bills, and oversees the execution of sentences.

*559. Local Government: the County.*--The principal unit of local government in Hungary is the county. The original Hungarian county instituted by St. Stephen about the year 1000, was simply a district, closely resembling the English county or the French department, at the head of which the king placed an officer to represent the crown in military and administrative affairs. Local self-government had its beginning in the opposition of the minor nobility to this centralizing agency, and in periods of royal weakness the nobles usurped a certain amount of control, first in justice, later in legislation, and finally in the election of local officials, which in time was extended legal recognition. At all points the county became substantially autonomous. Indeed, by 1848 Hungary was really a confederation of fifty-two counties, each not far removed from an aristocratic republic, rather than a centralized state. For a time after 1867 there was a tendency toward a revival of the centralization of earlier days. In 1876 laws were enacted which vested the administration of the county in a committee composed in part of members elected within the county, but also in part of officials designated by the crown; and a statute of 1891 went still further in the direction of bureaucratic centralization. More recently, however, the county has undergone a slight measure of democratization.

Exclusive of Croatia-Slavonia, there are in Hungary to-day 63 (p. 507) rural counties and 36 urban counties or towns with municipal rights. In Croatia-Slavonia the numbers are 8 and 4 respectively. The urban counties are in reality municipalities and are essentially separate from the rural counties in which they are situated. The governmental system of the county comprises a council of twenty, composed half of members chosen by the electors for six years and half of persons who pay the highest taxes, together with an especially appointed committee which serves as the local executive. At the head of the assembly is the foeispan, or lord lieutenant, appointed by the crown. Legally, the counties may withhold taxes and refuse to furnish troops, but there is no popular representation in the true sense in the county governments. The franchise is confined to the very restricted parliamentary electorate. The subject races and the working classes are unrepresented and the real possessors of power are the Magyar landowners.

*560. Croatia, Slavonia, and Dalmatia.*--To the kingdom of Hungary proper are attached certain partes adnexae which enjoy a large measure of political autonomy. Dalmatia, united to Hungary at the beginning of the twelfth century, belongs de jure to Hungary and de facto to Austria; Croatia and Slavonia belong both de jure and de facto to Hungary. Croatia and Slavonia, as Hungarian dominions, have always possessed a peculiar status. They are inalienable portions of the kingdom, and in all that pertains to war, trade, and finance they are on precisely the same footing as any other part of the state. In other matters, however, i.e., in religion, education, justice, and home affairs generally, they enjoy a wide range of independent control. The administration of common affairs is vested in the Hungarian ministry, which must always contain a minister with the special function of supervision of Croatian interests. In the parliament at Budapest Croatia-Slavonia is represented by 40 members (sent from its own diet) in the Chamber of Deputies and three members in the Chamber of Magnates. These arrangements exist in virtue originally of an agreement concluded between the Magyars and the Croats in 1868, and they are closely analogous to the relationships established by the Compromise of the previous year between Hungary and Austria. The compact of 1868 was renewed upon several occasions prior to 1898, (p. 508) since which time it has been intermittently under process of revision. Among the Croats there has long been insistent demand for its fundamental modification. The charge, in general, is that as at present administered the arrangement operates all but exclusively to the benefit of the Hungarians. The Wekerle coalition ministry of 1906 promised a redress of grievances, but none was forthcoming, and in more recent years, especially 1907-1908, riots and other anti-Magyar demonstrations have been not uncommon in the territories.

The local Croatian-Slavonian diet is a unicameral body consisting of 90 deputies elected by districts, and of dignitaries (ecclesiastics, prefects of counties, princes, counts, and barons) to the number of not more than half of the quota of elected members. The executive consists of the three departments of Interior and Finance, Culture and Education, and Justice. At the head of each is a chief, and over them all presides an official known as the Banus. The Banus is appointed by the crown on the nomination of the premier. He is ex-officio a member of the Chamber of Magnates, and it is his function to supervise all matters of administration in the provinces, under the general direction of the Croatian minister, who constitutes the vital tie between the central government at Budapest and the dependent territories. Local government is administered in eight rural and four urban counties.