 The earlier experiments initiated by Alfred Deakin had not really been successful, and it was clear that their organization and principles would need careful revision.Swinburne had studied Victorian irrigation and realised the huge cost of storing the winter and spring rains for use summer; he believed that water charges should take the form of a rate payable, not only by those who used the water, but by all whose land was benefitted by irrigation.In November 1903 Irvine's health was so seriously affected by over-work that he was compelled to resign the premiership, and Thomas Bent who succeeded him gave Swinburne the portfolio of minister of water-supply (1904–08).