2 March 1808

on L d Eldon's Bill

Letter V

'.6. Instructions

The matter of instructions /considered as addressed to subordinate legislators/ will however be apt to occupy a wider field than the matter of reasons considered as addressed to the people at large in the character of subjects: it will contain the matter of reasons: it will comprehend other matters besides.

Of Instructions, proper to be delivered for the guidance of subordinate legislators, the matter presents itself to my conception as divisible into three principle parcels: a division which seems applicable enough /capable /susceptible/ of application/ whatsoever part of the field of legislation may be intended to be subjected to their authority: and which, at any rate will be found to have its application here.

1. Instructions indicative of ends: viz of ends, whether spoken of as fit or not fit to be pursued, or not fit to be pursued

/Consideration being had that ends are/ Ends being susceptible of the distinction into superordinate and subordinate - General and particular /special/ Thus far the field of names and the field of instructions will coincide thus far the field of reasons will be included in the more extensive field - the field of instructions.

Whatsoever considerations would in the character of reasons operate in his own mind, had the arrangements been to be penned in detail by his own hand, it will of course naturally be the wish of the legislator in chief to see operating in that same character on the mind of those his subordinates: and that accordingly the portion of expected good the expected attainment of which would in case of the laws being to be penned by his own hand operate with him /on his mind/ as a reason in favour of the law, should in the character of end[?] be looked to by them, and the attainment or production of it aimed at by their proposed laws.