970 THE FEDERATIONS AND THE UNION [PART TV 
but there must be a session of each Council every year, so 
that there shall never be more than twelve months between 
the end of one session and the beginning of the next session. 
The Council shall elect its own chairman, and make rules 
of procedure, which can, however, be disallowed by the 
Governor-General in Council. The members shall receive 
allowances now fixed by the Governor-General in Council at 
£120 a year, and shall be entitled to free speech. The Council 
shall last for three years, and shall not be dissolved save by 
sfflux of time. 
The Council is therefore in no sense a Parliament, Its 
members are indeed elected as if for a Parliament, and will 
be paid and given freedom of speech, but they cannot make 
rules which are not subject to disallowance by the Governor- 
General in Council, and their allowances are fixed by the 
same authority, Moreover, the Executive Government is 
not dependent on their favour : once elected, it remains in 
office. At the same time the Executive cannot control the 
Council ; it may thwart all their wishes for legislation, but 
it cannot be dissolved. Its real analogue is a municipal 
council, not a Parliament ; and like a municipal council, its 
legislative power is far from being extensive, though it is 
important as dealing with matters of everyday life.! 
We have seen that the Union Parliament is to have full 
legislative power to make laws for the peace, order, and 
good government of South Africa. But there is also set 
up a subsidiary legislative machinery which is to deal with 
provincial matters.2 The subjects referred to the Provincial 
Councils are strictly limited in number and extent ; they 
comprise (1) direct taxation within the province in order 
bo raise a revenue for provincial purposes ; (2) the borrowing 
of money on the sole credit of the provinces with the consent 
' The Australian states by their practically sole possession of the right 
bo legislate in social matters (e. g. land tenure, industrial matters, &e.) 
preserve for the present their importance against the Federation, Factories 
and land come home more to the average citizen than defence, while 
customs—the other great branch of federal activity—is not a constant 
mbject of legislation, 
' 88. 85-91. Cf. The Government of South Africa, i. 257-66 : ii. 152-7