This part of the Endowment Fund was, in short, a grant to the Department to be applied to what may be described as rural development in the widest sense of the term. As to the methods, little or no restriction was imposed upon the scope of its powers; and in the expenditure of the money it was to be as free from Treasury control as the Congested Districts Board itself.
On the other hand, the Congested Districts Board was not only free from Treasury control, it was free from any control whatever. It was an unpaid Board, and it could spend its money where it pleased and how it pleased, and there was n.o.body to say it nay. True, its members were appointed by Government, and the Chief Secretary was _ex-officio_ a member of the Board; but he had no greater authority given to him than any of his colleagues, and in case of any difference of opinion the decision was that of the majority of the Board. No single member of the Board could be held responsible for any of its acts; and accordingly, although the vote for the Board came annually before Parliament, of real Parliamentary responsibility there was none.
Such an arrangement was not without its disadvantages even as regards the Congested Districts Board itself: its adoption in the case of the Authority to be created under the Agriculture and Industries Bill would have been open to yet greater objection.
A further point was this. The Congested Districts Board was an unpaid body. An unpaid body consisting of busy men cannot be in perpetual session. The Congested Districts Board, as a matter of fact, met only once a month; and in the intervals of its meeting there was no one with full authority to act on its behalf.
The problem, then, in connection with the expenditure of the Endowment Fund was to provide for its administration by an efficient and promptly-acting executive, responsible to Parliament on the one hand, and on the other hand brought by the very nature of its administrative machinery into the closest possible touch with the new local Authorities, as well as with the voluntary organisations which were now springing up all over the country.
In order to satisfy these requirements, the Bill provided that the control of the Endowment Fund should be vested not in a Board attached to the new Department, but in the Department itself; that is to say, in a Minister appointed by the Government of the day. The Chief Secretary was to be the t.i.tular head of the Department, but it was not intended that he should intervene in its ordinary administrative business. The real working head was to be the Vice-President, a new Minister with direct responsibility to Parliament. So far as related to certain powers and duties transferred from existing departments of the Irish Government, and similar to the powers and duties of the English Board of Agriculture, the new Minister was to have complete executive authority.
But as regards the administration of the Endowment Fund, a different arrangement was proposed--an arrangement without precedent, so far as I know, in any previous legislation in this country.
In order to bring the Department into close touch with local bodies, the Bill attached to it a "Council of Agriculture" and an "Agricultural Board." One-third of the members of each of these bodies were to be nominated by the Department, and the intention was that in making these nominations due regard should be had to the representation of voluntary organisations. The remaining two-thirds were to be elected in the case of the "Council of Agriculture" by the newly created County Councils, in the case of the "Agricultural Board" by the "Council of Agriculture,"
divided for this purpose into four "Provincial Committees." In addition to the functions of an electoral college thus entrusted to its four provincial committees, the business of the "Council of Agriculture" as a whole was to meet together, at least once a year, for the discussion of questions of general interest in connection with the provisions of the Act; but its powers were only advisory. The "Board," on the other hand, was more than an advisory body; for it was given a veto on any expenditure of money out of the Agricultural Endowment Fund. The application of the Endowment Fund was thus made dependent on the _concurrence_ of the "Agricultural Board" and of the minister in charge of the Department--an entirely novel plan which, although it might clearly result in a deadlock as regards any particular application of money from the fund, has nevertheless, I believe, worked extremely well, and answered the purpose for which it was devised of reconciling ministerial and executive responsibility with a reasonable power of control given to local bodies.
Finally, with a view to stimulating local effort and the spirit of self-help, a provision was inserted in the Bill to which I attached the greatest importance. Power was given to the Council of any county or of any urban district, or to two or more public bodies jointly, to appoint committees composed partly of members of the local bodies and partly of co-opted persons, for the purpose of carrying out such of the Department"s schemes as were of local rather than of general interest.
But in such cases, it was laid down that
"the Department shall not, in the absence of any special considerations, apply or approve of the application of money ... to schemes in respect of which aid is not given out of money provided by local authorities, or from other local sources."
To meet this requirement, the local authorities were given the power of raising a limited rate for the purposes of the Act.
That the Act of 1899 has in the main answered the expectations formed of it by those who were responsible for its introduction there can, I think, be no doubt. The Act itself, as well as the methods of administration adopted in carrying out its provisions, have been the subject of a full inquiry by a Departmental Committee which reported in 1907. Their report must be regarded as on the whole eminently favourable. In one point only has any important change been recommended.
The Committee suggest that the post of Vice-President of the Department should not be held by a Minister with a seat in Parliament, nor yet by a regular civil servant, but should be an office _sui generis_ tenable for five years with power of reappointment. No effect has so far been given to this proposal by legislation.
THE UNIONIST ATt.i.tUDE.
In this brief sketch of the measures pa.s.sed by Unionist Governments since 1886 with the object of promoting the material prosperity of Ireland, many points of interest have been necessarily omitted; but what has been said will suffice to show how baseless is the a.s.sertion, so frequently urged as an argument for Home Rule, that the Imperial Parliament is incapable of legislating successfully for Irish wants.[72]
Nothing could be more futile than to represent Irish problems, and especially the problems of Irish rural life, as so unique that only a Parliament sitting in Dublin can hope to solve them satisfactorily. As a matter of fact, the rural question in Ireland is, in most of its essential features, very similar to the rural question in other countries, of which Denmark is perhaps the best example; and the methods which have been successful there are already proving successful here. Single ownership of the land by the cultivator; State aid, encouraging and supplemementing co-operation and self-help; co-operation and self-help providing suitable opportunities for the fruitful application of State aid--these are the principles by which Unionist legislation for Ireland has been guided, and they are the principles which any wise legislation must follow, whether it emanate from an Irish or from the Imperial Parliament. Indeed, if there is anything "unique"
in the Irish case, it is the deep division of sentiment inherited from the unhappy history of the country and reinforced by those differences of race and creed to which I have already alluded as making two Irelands out of one. But the remedy for this is not to cut Ireland adrift and leave the two sections to fight it out alone, but rather to maintain the existing const.i.tution as the best guarantee that the balance will be held even between them.
Sir Horace Plunkett has well summed up the real needs of rural Ireland in the formula "better farming, better business, better living." He has himself done more than any other single man to bring the desired improvement about. I am not ashamed to acknowledge myself his disciple, and in the measures for which I was responsible during my time in Ireland, I ever kept the practical objects for which he has striven steadily in view. In a speech which I made shortly after taking office I used the phrase "killing Home Rule with kindness." This phrase has been repeatedly quoted since, as if it had been a formal declaration on the part of the incoming Irish Government that to "kill Home Rule" was the Alpha and the Omega of their policy. What I really said was that we intended to promote measures having for their object an increase in the material prosperity of the country; that if we could thereby kill Home Rule with kindness, so much the better; but that the policy stood on its own merits, irrespective of any ulterior consequences.
In my view that is the only true att.i.tude for a Unionist Government to take up. But in our efforts to improve material conditions and to remove grievances, how small is the encouragement or help that we have received from leaders of the Nationalist Party! "Their aim," said Goldwin Smith long ago, "has always been to create a Nationalist feeling, which would end in political separation, not the redress of particular wrongs and grievances, or the introduction of practical improvements." I should imagine that there has seldom, if ever, been an important political party which has exhibited so little constructive ability as the Irish Parliamentarians. Their own legislative proposals during the last thirty years have been a negligible quant.i.ty; and I think I am justified in saying that there is not one of the great measures pa.s.sed by Unionist Governments since 1886 which has not been either opposed by the accredited leaders of the Party, or, at best, received with carping and futile, rather than helpful, criticism. I must personally acknowledge--and I do so gladly--that I received useful a.s.sistance and valuable criticism from the Messrs. Healy in conducting the Local Government Bill through the House of Commons; and credit must also be given to Mr. John Redmond for the part he took in aiding to bring together the Recess Committee. But the Messrs. Healy have always acted independently; and Mr. John Redmond was, at the time referred to, leader of only a small minority of the Irish Nationalists. The feeling of the majority, and certainly of the leaders of the majority, was reflected, as we have seen, in the refusal of Mr. Justin McCarthy to have anything to do with the movement.
Mr. Dillon in particular has shown a disposition to regard minor political grievances, and even poverty and discontent, as so much fuel wherewith to stoke the lagging engine of Home Rule. Remedial measures short of Home Rule seem to take in his eyes the character of attempts to deprive the Irish Party of so many valuable a.s.sets. Nor is this spirit of tacit or open hostility confined to acts of the legislature. Of all the social and economic movements in Ireland during recent years, the spread of agricultural co-operation has been without doubt among the greatest and the most beneficial. It has never found a friend in Mr.
Dillon. In the movement itself and in the Irish Agricultural Organisation Society, founded expressly to promote it, he can only see a cunning device of the enemy to undermine Nationalism. In this matter Mr.
Dillon"s att.i.tude is also the official att.i.tude of the Irish Party. Thus Mr. Redmond (now reconciled with Mr. Dillon and become leader of the main body of Nationalists), in a letter to Mr. Patrick Ford, dated October 4, 1904, does not scruple to say of Sir Horace Plunkett"s truly patriotic work:--
"I myself, indeed, at one time entertained some belief in the good intentions of Sir Horace Plunkett and his friends, but recent events have entirely undeceived me; and Sir Horace Plunkett"s recent book, full as it is of undisguised contempt for the Irish race, makes it plain to me that the real object of the movement in question is to undermine the National Party and divert the minds of our people from Home Rule, which is the only thing that can ever lead to a real revival of Irish industries."
Those who have read Sir H. Plunkett"s "Ireland in the New Century" will hardly know which most to wonder at in these words, the extraordinary misdescription of the whole spirit of his book, or the total failure to realise the absolute necessity to Irish farming of a movement which not only has its counterpart all over the Continent of Europe, but has since inspired similar action in the United States, in India, and quite recently in Great Britain as well.
NATIONALIST HOSTILITY.
Nationalist hostility to the I.A.O.S. has not been confined to words.
When the Agriculture and Technical Instruction Bill was pa.s.sing through the House of Commons, Mr. Dillon endeavoured to secure an undertaking from me that public moneys should not be employed to subsidise the work of the Society. I naturally refused to give any such undertaking.[73] I had followed the efforts of the Society very closely; I was deeply impressed with the value of the results which it had accomplished; but its field of activity was limited by the narrowness of its resources. In my opinion, a subsidy to the Society from the Endowment Fund of the Department would be a useful and proper application of public money. At the same time I pointed out that if the Agricultural Board, which in the main represented the popularly-elected local authorities, thought differently, they had a power of veto and could use it in this case.
Sir Horace Plunkett held the position of Vice-President of the Department of Agriculture and Technical Instruction from 1899 to 1907, and during his tenure of office, as I had always expected and intended, there was close co-operation between the Department and the I.A.O.S.
During that period a sum amounting in all to less than 30,000 was paid by the Department to the I.A.O.S., of which more than half was for technical instruction, while the balance represented contributions to the work of co-operative organisation.[74]
When Sir H. Plunkett was replaced by Mr. T. W. Russell, the pressure of the Irish Parliamentary Party immediately began to make itself felt. The new vice-president informed the Council of Agriculture that he had made up his mind to withdraw the subsidy, but he undertook to continue a diminishing grant for three years, 3000 for the first year, 2000 for the second, and 1000 for the third. The I.A.O.S. were not seriously opposed to the gradual withdrawal of the subsidy, the loss of which they hoped to be able to cover in course of time by increased voluntary subscriptions.
The opposition of the Nationalist Party was, however, not yet exhausted. In the _Freeman"s Journal _of January 21, 1908, there appeared a letter from Mr. John Redmond enclosing a copy of a letter from Mr. T. W. Rolleston to a correspondent at St. Louis. Mr. Rolleston accompanied his letter with a copy of a speech by Sir Horace Plunkett.
In his letter he remarked plainly upon the antagonism displayed by the Irish Nationalists to the co-operative movement. Although Sir Horace Plunkett declared that he had nothing whatever to do with the letter, the Irish Parliamentarians professed to find in it abundant proof of an intention to destroy Nationalism. "That correspondence," said Mr. T. W.
Russell,"[75] compelled me to take action. Mr. John Redmond made it imperative upon me by his letter--I mean a public letter to the Press--and as so much was involved, I took the precaution of convening a special meeting of the Agricultural Board." The Board decided that the subsidy should be withdrawn at the end of the year 1908.
The last act in this drama of hostility to Sir Horace Plunkett and all his works is still in the course of being played. Under the provisions of the Development Fund Act of 1909, the Development Commissioners were empowered to make advances for the organisation of co-operation, either "to a Government Department or through a Government Department to a voluntary a.s.sociation not trading for profit." During the Report stage of the Development Fund Bill, Mr. Dillon tried to get a ruling from the Solicitor-General that the I.A.O.S. would be excluded from receiving grants from the fund, thus repeating the manoeuvre which he had already unsuccessfully attempted in connection with the Agriculture and Technical Instruction (Ireland) Bill of 1899.
In accordance with this provision, the three Agricultural Organisation Societies for England, Scotland, and Ireland, each applied for a grant in aid. The applications were referred in due course for report to the Government Departments concerned--that is to say, to the Board of Agriculture and Fisheries for the English and Scottish applications, and to the Department of Agriculture and Technical Instruction for that from the I.A.O.S. The Board of Agriculture and Fisheries reported favourably, and the British and Scottish Organisation Societies are to have their grant. But the I.A.O.S. had to reckon with Mr. T. W. Russell, behind whom stood Mr. Dillon and the politicians. The report of the Irish Department on the Irish application was adverse, but the Commissioners do not appear to have found the reasons given convincing. Much delay ensued, but, ten months after the application was sent in, the matter was submitted to the Council of Agriculture.
The machinery of the United Irish League was brought into action to influence the votes of this body. Mr. Russell delivered an impa.s.sioned harangue, and eventually the Council was induced to endorse his action by a majority of 47 to 33.
Any grant in aid of agricultural co-operation is to be administered, if Mr. Russell has his way, not by the society which has already been instrumental in establishing nearly a thousand co-operative a.s.sociations in Ireland, and has served as a model on which the corresponding English and Scottish Organisation Societies, now in the enjoyment of a State subsidy, have been founded, but by the Department, which has. .h.i.therto had no experience whatever of such work. Moreover, the co-operation promoted by the Department is to be "non-compet.i.tive," by which I suppose is meant, that it is not to affect any existing trading interest. It is safe to say that agricultural co-operation, which has _no_ effect upon any trading interest, will have very little effect upon the farmers" interests either. So far as I know, the Development Commissioners have not decided what course to take in this strange situation. It may be that Ireland will lose the grant altogether; but in any case I can well believe that they must hesitate to reverse the policy already approved for England and Scotland, and in the face of all experience commit the work of organising agricultural co-operation to a State Department rather than to a voluntary a.s.sociation possessing such a record as the I.A.O.S. has placed to its credit.
If now we ask what are the grounds of the hostility of the Nationalist Party to the most hopeful Irish movement of recent years, the answer appears to be twofold. The first is economic, or purports to be economic: the second is frankly political.
1. Co-operation, it is urged, injures the middleman and the small trader.
To encourage farmers to do well and economically for themselves what is now done indifferently and expensively for them by the middleman, must of course act injuriously on some existing interests. This is not disputed. But the change is absolutely necessary for the regeneration of rural Ireland, and this objection cannot be allowed to stand in the way.
Looked at in its broader and more enduring aspects, co-operation is bound to stimulate and improve general trade by increasing the spending power of the farmers. The Chambers of Commerce of Dublin and Belfast have not been slow to perceive this, and have warmly endorsed the Society"s application for a grant from the Development Commissioners.
2. The political objection to the movement, so far as it takes the definite form of charging the I.A.O.S. with being a propagandist body aiming under the mask of economic reform at the covert spread of Unionist opinions, will not stand a moment"s examination. There is not a particle of evidence in support of such a charge, and the presumption against it is overwhelming. To mix political propagandism with organisation would be the certain ruin of the movement. The Committee of the I.A.O.S. consists of men of all shades of political faith. These men could never have joined hands except on the basis that politics should be rigidly excluded from the work of the Society. The members of the co-operative societies founded by the I.A.O.S. number nearly 100,000.
Probably at least three-fourths of these are Nationalists.
In order, however, that all doubt on the subject might be finally removed, the I.A.O.S. issued a circular to all its societies, in which the following question was directly put:--
"Has the I.A.O.S., as a body, or the Committee acting for it, done, in your opinion, any act in the interest of any political party, or any act calculated to offend the political principles of any section of your members?"
The answers received have been published and form very interesting reading. Not a single society, of the many hundreds that have replied from all parts of Ireland, has been found to a.s.sert that politics have ever been mentioned by the agents of the parent a.s.sociation.
The hostility of the politicians to the co-operative movement rests, it is safe to surmise, upon some other foundation than these flimsy charges against the I.A.O.S.
In itself the movement is vital to the prosperity of rural Ireland. The disfavour shown to it arises from apprehensions respecting its _indirect_ bearing upon the great issue between Unionism and Nationalism. Home Rulers who oppose the co-operative movement find themselves in this dilemma: either they hold that nothing in the way of material improvement could affect the demand for Home Rule, or else they are really afraid lest "better farming, better business, and better living," should weaken the attractions of their own political nostrum.
In the former case, they are left without a shadow of justification for their att.i.tude towards the I.A.O.S.; in the latter, they tacitly admit that the interests of the farming cla.s.ses must suffer in order that the cause of Home Rule may be promoted.
Unionists are in no such difficulty. Our policy is clear and consistent.
Improvement in the social and economic condition of the people must be our first object. It is an end to be pursued for its own sake, whatever the indirect consequences may be. But the indirect consequences need cause us no anxiety. Increased material prosperity, and the contentment which inevitably accompanies it, whatever their other effects may be, are not likely to strengthen the demand for const.i.tutional changes.
Successful resistance to Home Rule at the present crisis may well mean the saving of the Union for good and all.
FOOTNOTES:
[Footnote 70: Originally published in the _Irish Homestead_, and quoted in Sir Horace Plunkett"s "Ireland in the New Century," p. 190.]
[Footnote 71: "Ireland in the New Century," p. 220.]