As against these aristocratic, bureaucratic and military organs of
government, the popular will can be expressed only through the House of
Representatives. The position of the House is very weak, especially in
comparison with the normal legislature of a full-fledged democracy.
For Ito saw fit to curb the powers of the Diet’s lower house by
a series of drastic restrictions. Large fixed, or non-votable,
expenditures limit its control over the public purse. If appropriations
are not voted, the Cabinet has the right to enforce the preceding
year’s budget. Most bills are introduced not by Diet members but by the
Cabinet, which also possesses an absolute veto. Moreover, the Cabinet
can issue Imperial ordinances which, with few qualifications, have
the force of law. It can dissolve the lower house, and thus force an
election--an expensive proceeding for the deputies. And for several
decades only part of the people could vote. Not until 1925 was full
manhood suffrage (age 25) adopted. During elections the Home Ministry
has often intimidated the voters. And popular rights are further curbed
by a controlled press, a strong centralized police force, a large
degree of central domination of local government, and the possibility
that one may be arrested and held indefinitely without trial (because
Japan has no _habeas corpus_ law).
The development of a Cabinet with independent power, responsible
to the lower house of the Diet, would seem impossible under these
circumstances. Entrenched positions were held by the aristocrats,
the bureaucrats and the militarists. For if they did not control the
Cabinet, always a necessary citadel of power, they could be sure of
bringing about its downfall. A responsible Cabinet did emerge in the
post-war years. But, as we shall see, this period was short-lived.
After 1930, largely through the pressure of the militarists, the
pendulum swung back.