But in those days economic seed fell upon stony political ground.
The position was rendered still more difficult by the action of Colonel Saunderson, the leader of the Irish Unionist party, who wrote to the newspapers declaring that he would not sit on a Committee with Mr. John Redmond. On the other hand, Mr. Redmond, speaking then for the "Independent" party, consisting of less than a dozen members, but containing some men who agreed with Mr. Field"s admission in the House of Commons that "man cannot live on politics alone," joined the Committee and acted throughout in a manner which was broad, statesmanlike, conciliatory, and as generous as it was courageous. His letter of acceptance ran as follows:--
DEAR MR. PLUNKETT,
I received your letter, in which you ask me to co-operate with you in bringing together a small Committee of Members of Parliament to discuss certain measures to be proposed next Session for the benefit of Ireland. While I cannot take as sanguine a view as you do of the benefits likely to flow from such a proceeding, I am unwilling to take the responsibility of declining to aid in any effort to promote useful legislation for Ireland.
I will, under the circ.u.mstances, co-operate with you in bringing such a Committee as you suggest together. Very truly yours,
J.E. REDMOND.
October 21st, 1895.
Before these decisions were officially announced the idea had "caught on." Public bodies throughout the country endorsed the scheme. The parliamentarians, who formed the nucleus of the Committee, came together and invited prominent men from all quarters to join them. A committee which, though informal and self-appointed, might fairly claim to be representative in every material respect, was thus const.i.tuted on the lines laid down.
Truly, it was a strange council over which I had the honour to preside.
All shades of politics were there--Lords Mayo and Monteagle, Mr. Dane and Sir Thomas Lea (Tories and Liberal Unionist Peers and Members of Parliament) sitting down beside Mr. John Redmond and his parliamentary followers. It was found possible, in framing proposals fraught with moral, social, and educational results, to secure the cordial agreement of the late Rev. Dr. Kane, Grand Master of the Belfast Orangemen, and of the eminent Jesuit educationist, Father Thomas Finlay, of the Royal University. The O"Conor Don, the able Chairman of the Financial Relations Commission, and Mr. John Ross, M.P., now one of His Majesty"s Judges, both Unionists, were balanced by the Lord Mayor of Dublin, and Mr. T.C. Harrington, M.P., who now occupies that post, both Nationalists. The late Sir John Arnott fitly represented the commercial enterprise of the South, while such men as Mr. Thomas Sinclair, universally regarded as one of the wisest of Irish public men, Sir William Ewart, head of the leading linen concern in the North, Sir Daniel Dixon, now Lord Mayor of Belfast, Sir James Musgrave, Chairman of the Belfast Harbour Board, and Mr. Thomas Andrews, a well-known flax-spinner and Chairman of the Belfast and County Down Railway, would be universally accepted as the highest authorities upon the needs of the business community which has made Ulster famous in the industrial world.
Mr. T.P. Gill, besides undertaking investigation of the utmost value into State aid to agriculture in France and Denmark, acted as Hon.
Secretary to the Committee, of which he was a member.
The story of our deliberations and ultimate conclusions cannot be set forth here except in the barest outline. We inst.i.tuted an inquiry into the means by which the Government could best promote the development of our agricultural and industrial resources, and despatched commissioners to countries of Europe whose conditions and progress might afford some lessons for Ireland. Most of this work was done for us by the late eminent statistician, Mr. Michael Mulhall. Our funds did not admit of an inquiry in the United States or the Colonies. However, we obtained invaluable information as to the methods by which countries which were our chief rivals in agricultural and industrial production have been enabled to compete successfully with our producers even in our own markets. Our commissioners were instructed in each case to collect the facts necessary to enable us to differentiate between the parts played respectively by State aid and the efforts of the people themselves in producing these results. With this information before us, after long and earnest deliberation we came to a unanimous agreement upon the main facts of the situation with which we had to deal, and upon the recommendations for remedial legislation which we should make to the Government.
The substance of our recommendations was that a Department of Government should be specially created, with a minister directly responsible to Parliament at its head. The central body was to be a.s.sisted by a Consultative Council representative of the interests concerned. The Department was to be adequately endowed from the Imperial Treasury, and was to administer State aid to agriculture and industries in Ireland upon principles which were fully described. The proposal to amalgamate agriculture and industries under one Department was adopted largely on account of the opinion expressed by M. Tisserand, late Director-General of Agriculture in France, one of the highest authorities in Europe upon the administration of State aid to agriculture.[43] The creation of a new minister directly responsible to Parliament was considered a necessary provision. Ireland is governed by a number of Boards, all, with the exception of the Board of Works (which is really a branch of the Treasury), responsible to the Chief Secretary--practically a whole cabinet under one hat--who is supposed to be responsible for them to Parliament and to the Lord Lieutenant. The bearers of this burden are generally men of great ability. But no Chief Secretary could possibly take under his wing yet another department with the entirely new and important functions now to be discharged. What these functions were to be need not here be described, as the Department thus "agitated" for has now been three years at work and will form the subject of the next two chapters.
On August 1st, 1896, less than a year from the issue of the invitation to the political leaders, the Report was forwarded to the Chief Secretary to the Lord Lieutenant for Ireland, with a covering letter, setting out the considerations upon which the Committee relied for the justification of its course of action. Attention was drawn to the terms of the original proposal, its exceptional nature and essential informality, the political conditions which appeared to make it opportune, the spirit in which it was responded to by those who were invited to join, and the degree of public approval which had been accorded to our action. We were able to claim for the Committee that it was thoroughly representative of those agricultural and industrial interests, North and South, with which the Report was concerned.
There were two special features in the brief history of this unique coming together of Irishmen which will strike any man familiar with the conditions of Irish public life. The first was the way in which the business element, consisting of men already deeply engaged in their various callings--and, indeed, selected for that very reason--devoted time and labour to the service of their country. Still more significant was the fact that the political element on the Committee should have come to an absolutely unanimous agreement upon a policy which, though not intended to influence the trend of politics, was yet bound to have far-reaching consequences upon the political thought of the country, and upon the positions of parties and leaders. It was thought only fair to the Nationalist members of the Committee that every precaution should be taken to prevent their being placed in a false position. "To avoid any possible misconception," the covering letter ran, "as to the att.i.tude of those members of the Committee who are not supporters of the present Government, it is right here to state that, while under existing political conditions they agreed in recommending a certain course to the Government, they wish it to be understood that their political principles remain unaltered, and that, were it immediately possible, they would prefer that the suggested reforms should be preceded by the const.i.tutional changes of which they are the well-known advocates."
It is interesting to note that the Committee claimed favourable consideration for their proposals on the ground that they sought to act as "a channel of communication between the Irish Government and Irish public opinion." Little interest, they pointed out, had been hitherto aroused in those economic problems for which the Report suggested some solution. They expressed the hope that their action would do something to remedy this defect, especially in view of the importance which foreign Governments had found it necessary to attach to public opinion in working out their various systems of State aid to agriculture and industries. At the same time the Committee emphasised, in the covering letter, their reliance on individual and combined effort rather than on State aid. They were able to point out that, in asking for the latter, they had throughout attached the utmost importance to its being granted in such a manner as to evoke and supplement, and in no way be a subst.i.tute for self-help. If they appeared to give undue prominence to the capabilities of State initiation, it was to be remembered that they were dealing with economic conditions which had been artificially produced, and which, therefore, might require exceptional treatment of a temporary nature to bring about a permanent remedy.
I fear those most intimately connected with the above occurrences will regard this chapter as a very inadequate description of events so unprecedented and so full of hope for the future. My purpose is, however, to limit myself, in dealing with the past, to such details as are necessary to enable the reader to understand the present facts of Irish life, and to build upon them his own conclusions as to the most hopeful line of future development. I shall, therefore, pa.s.s rapidly in review the events which led to the fruition of the labours of the Recess Committee.
Public opinion in favour of the new proposals grew rapidly. Before the end of the year (1896) a deputation, representing all the leading agricultural and industrial interests of the country, waited upon the Irish Government, in order to press upon them the urgent need for the new department. The Lord Lieutenant, after describing the gathering as "one of the most notable deputations which had ever come to lay its case before the Irish Government," and noting the "remarkable growth of public opinion" in favour of the policy they were advocating, expressed his heartfelt sympathy with the case which had been presented, and his earnest desire--which was well known--to proceed with legislation for the agricultural and industrial development of the country at the earliest moment. The demand made upon the Government was, argumentatively, already irresistible. But economic agitation of this kind takes time to acquire dynamic force. Mr. Gerald Balfour introduced a Bill the following year, but it had to be withdrawn to leave the way clear for the other great Irish measure which revolutionised local government. The unconventional agitation went on upon the original lines, appealing to that latent public opinion which we were striving to develop. In 1899 another Bill was introduced, and, owing to its masterly handling by the Chief Secretary in the House of Commons, ably seconded by the strong support given by Lord Cadogan, who was in the Cabinet, it became law.
I cannot conclude this chapter without a word upon the extraordinary misunderstanding of Mr. Gerald Balfour"s policy to which the obscuring atmosphere surrounding all Irish questions gave rise. In one respect that policy was a new departure of the utmost importance. He proved himself ready to take a measure from Ireland and carry it through, instead of insisting upon a purely English scheme which he could call his own. These pre-digested foods had already done much to destroy our political digestion, and it was time we were given something to grow, to cook, and to a.s.similate for ourselves. It will be seen, too, in the next chapter, that he had realised the potentiality for good of the new forces in Irish life to which he gave play in his two great linked Acts--one of them popularising local government, and the other creating a new Department which was to bring the government and the people together in an attempt to develop the resources of the country. Yet his eminently sane and far-seeing policy was regarded in many quarters as a sacrifice of Unionist interests in Ireland. Its real effect was to endow Unionism with a positive as well as a negative policy. But all reformers know that the further ahead they look, the longer they have to wait for their justification. Meanwhile, we may leave out of consideration the division of honour or of blame for what has been done. The only matter of historic interest is to arrive at a correct measure of the progress made.
The new movement had thus completed the first and second stages of its mission. The idea of self-help had become a growing reality, and upon this foundation an edifice of State aid had been erected. When a Nationalist member met a Tory member of the Recess Committee he laughed over the success with which they had wheedled a measure of industrial Home Rule out of a Unionist Government. None the less they cordially agreed that the people would rise to their economic responsibility. The promoters of the movement had faith that this new departure in English government would be more than justified by the English test, and that in the new sphere of administration the government would be accorded, without prejudice, of course, to the ultimate views either of Unionists or Home Rulers, not only the consent, but the whole-hearted co-operation of the governed.
FOOTNOTES:
[43] The memorandum which he kindly contributed to the Recess Committee was copied into the Annual Report of the United States Department of Agriculture for 1896.
CHAPTER IX.
A NEW DEPARTURE IN IRISH ADMINISTRATION.
To the average English Member of Parliament, the pa.s.sing of an Act "for establishing a Department of Agriculture and other Industries and Technical Instruction in Ireland and for other purposes connected therewith," probably signified little more than the removal of another Irish grievance, which might not be imaginary, by the concession to Ireland of an equivalent to the Board of Agriculture in England. In reality the difference between the two inst.i.tutions is as wide as the difference between the two islands. The chief interest of the new Department consists in the free play which it gives to the pent-up forces of a re-awakening life. A new inst.i.tution is at best but a new opportunity, but the Department starts with the unique advantage that, unlike most Irish inst.i.tutions, it is one which we Irishmen planned ourselves and for which we have worked. For this reason the opportunity is one to which we may hope to rise.
Before I can convey any clear impression of the part which the Department is, I believe, destined to play on the stage of Irish public life, it will be necessary for me to give a somewhat detailed description of its functions and const.i.tution. The subject is perhaps dull and technical; but readers cannot understand the Ireland of to-day unless they have in their minds not only an accurate conception of the new moral forces in Irish life and of the movements to which these forces have given rise, but also a knowledge of the administrative machinery and methods by which the people and the Government are now, for the first time since the Union, working together towards the building up of the Ireland of to-morrow.
The Department consists of the President (who is the Chief Secretary for the time being) and the Vice-President. The staff is composed of a Secretary, two a.s.sistant Secretaries (one in respect of Agriculture and one in respect of Technical Instruction), as well as certain heads of Branches and a number of inspectors, instructors, officers and servants.
The Recess Committee, it will be remembered, had laid stress upon the importance of having at the head of the Department a new Minister who should be directly responsible to Parliament; and, accordingly, it was arranged that the Vice-President should be its direct Ministerial head.
The Act provided that the Department should be a.s.sisted in its work by a Council of Agriculture and two Boards, and also by a Consultative Committee to advise upon educational questions. But before discussing the const.i.tution of these bodies, it is necessary to explain the nature of the task a.s.signed to the new Department which began work in April, 1900. It was created to fulfil two main purposes. In the first place, it was to consolidate in one authority certain inter-related functions of government in connection with the business concerns of the people which, until the creation of the Department, were scattered over some half-dozen Boards, and to place these functions under the direct control and responsibility of the new Minister. The second purpose was to provide means by which the Government and the people might work together in developing the resources of the country so far as State intervention could be legitimately applied to this end.
To accomplish the first object, two distinct Government departments, the Veterinary Department of the Privy Council and the Office of the Inspectors of Irish Fisheries, were merged in the new Department. The importance to the economic life of the country of having the laws for safeguarding our flocks and herds from disease, our crops from insect pests, our farmers from fraud in the supply of fertilisers and feeding stuffs and in the adulteration of foods (which compete with their products), administered by a Department generally concerned for the farming industry need not be laboured. Similarly, it was well that the laws for the protection of both sea and inland fisheries should be administered by the authority whose function it was to develop these industries. There was also transferred from South Kensington the administration of the Science and Arts grants and the grant in aid of technical instruction, together with the control of several national inst.i.tutions, the most important being the Royal College of Science and the Metropolitan School of Art; for they, in a sense, would stand at the head of much of the new work which would be required for the contemplated agricultural and industrial developments. The Albert Inst.i.tute at Glasnevin and the Munster Inst.i.tute in Cork, both inst.i.tutions for teaching practical agriculture, were, as a matter of course, handed over from the Board of National Education.
The desirability of bringing order and simplicity into these branches of administration, where co-related action was not provided for before, was obvious. A few years ago, to take a somewhat extreme case, when a virulent attack of potato disease broke out which demanded prompt and active Governmental intervention, the task of instructing farmers how to spray their potatoes was shared by no fewer than six official or semi-official bodies. The consolidation of administration effected by the Act, in addition to being a real step towards efficiency and economy, relieved the Chief Secretary of an immense amount of detailed work to which he could not possibly give adequate personal attention, and made it possible for him to devote a greater share of his time to the larger problems of general Irish legislation and finance.
The newly created powers of the Department, which were added to and co-ordinated with the various pre-existing functions of the several departments whose consolidation I have mentioned above, fairly fulfilled the recommendation of the Recess Committee that the Department should have "a wide reference and a free hand." These powers include the aiding, improving, and developing of agriculture in all its branches; horticulture, forestry, home and cottage industries; sea and inland fisheries; the aiding and facilitating of the transit of produce; and the organisation of a system of education in science and art, and in technology as applied to these various subjects. The provision of technical instruction suitable to the needs of the few manufacturing centres in Ireland was included, but need not be dealt with in any detail in these pages, since, as I have said before, the questions connected therewith are more or less common to all such centres and have no specially Irish significance.
For all the administrative functions transferred to the new Department moneys are, as before, annually voted by Parliament. Towards the fulfilment of the second purpose mentioned above--the development of the resources of the country upon the principles of the Recess Committee--an annual income of 166,000, which was derived in about equal parts from Irish and imperial sources, and is called the Department"s Endowment, together with a capital sum of about 200,000, were provided.
It will be seen that a very wide sphere of usefulness was thus opened out for the new Department in two distinct ways. The consolidation, under one authority, of many scattered but co-related functions was clearly a move in the right direction. Upon this part of its recommendations the Recess Committee had no difficulty in coming to a quick decision. But the real importance of their Report lay in the direction of the new work which was to be a.s.signed to the Department.
Under the new order of things, if the Department, acting with as well as for the people, succeeds in doing well what legitimately may and ought to be done by the Government towards the development of the resources of the country, and, at the same time, as far as possible confines its interference to helping the Irish people to help themselves, a wholly new spirit will be imported into the industrial life of the nation.
The very nature of the work which the Department was called into existence to accomplish made it absolutely essential that it should keep in touch with the cla.s.ses whom its work would most immediately affect, and without whose active co-operation no lasting good could be achieved.
The machinery for this purpose was provided by the establishment of a Council of Agriculture and two Boards, one of the latter being concerned with agriculture, rural industries, and inland fisheries, the other with technical instruction. These representative bodies, whose const.i.tution is interesting as a new departure in administration, were adapted from similar continental councils which have been found by experience, in those foreign countries which are Ireland"s economic rivals, to be the most valuable of all means whereby the administration keeps in touch with the agricultural and industrial cla.s.ses, and becomes truly responsive to their needs and wishes.
The Council of Agriculture consists of two members appointed by each County Council (Cork being regarded as two counties and returning four members), making in all sixty-eight persons. The Department also appoint one half this number of persons, observing in their nomination the same provincial proportions as obtained in the appointments by the popular bodies. This adds thirty-four members, and makes in all one hundred and two Councillors, in addition to the President and Vice-President of the Department, who are _ex-officio_ members. Thus, if all the members attended a Council meeting, the Vice-President would find himself presiding over a body as truly representative of the interests concerned as could be brought together, consisting, by a strange coincidence, of exactly the same number as the Irish representatives in Parliament.
The Council, which is appointed for a term of three years, the first term dating from the 1st April, 1900, has a two-fold function. It is, in the first place, a deliberative a.s.sembly which must be convened by the Department at least once a year. The domain over which its deliberations may travel is certainly not restricted, as the Act defines its function as that of "discussing matters of public interest in connection with any of the purposes of this Act." The view Mr. Gerald Balfour took was that nothing but the new spirit he laboured to evoke would make his machine work. Although he gave the Vice-President statutory powers to make rules for the proper ordering of the Council debates, I have been well content to rely upon the usual privileges of a chairman. I have estimated beforehand the time required for the discussion of matters of inquiry: the speakers have condensed their speeches accordingly, the business has been expeditiously transacted, and in the mere exchange of ideas invaluable a.s.sistance has been given to the Department.
The second function of the Council is exercised only at its first meeting, and consequently but once in three years. At this first triennial meeting it becomes an Electoral College. It divides itself into four Provincial Committees, each of which elects two members to represent its province on the Agricultural Board and one member to represent it on the Board of Technical Instruction. The Agricultural Board, which controls a sum of over 100,000 a year, consists of twelve members, and as eight out of the twelve are elected by the four Provincial Committees--the remaining four being appointed by the Department, one from each province--it will be seen that the Council of Agriculture exercises an influence upon the administration commensurate with its own representative character. The Board of Technical Instruction, consisting of twenty-one members, together with the President and Vice-President of the Department, has a less simple const.i.tution, owing to the fact that it is concerned with the more complex life of the urban districts of the country. As I have said, the Council of Agriculture elects only four members--one for each province.
The Department appoints four others; each of the County Boroughs of Dublin and Belfast appoints three members; the remaining four County Boroughs appoint one member each; a joint Committee of the Councils of the large urban districts surrounding Dublin appoint one member; one member is appointed by the Commissioners of National Education, and one member by the Intermediate Board of Education.
The two Boards have to advise upon all matters submitted to them by the Department in connection, in the one case, with agriculture and other rural industries and inland fisheries, and, in the other case, in connection with Technical Instruction. The advisory powers of the Boards are very real, for the expenditure of all moneys out of the Endowment funds is subject to their concurrence. Hence, while they have not specific administrative powers and apparently have only the right of veto, it is obvious that, if they wished, they might largely force their own views upon the Department by refusing to sanction the expenditure of money upon any of the Department"s proposals, until these were so modified as practically to be their own proposals. It is, therefore, clear that the machinery can only work harmoniously and efficiently so long as it is moved by a right spirit. Above all it is necessary that the central administrative body should gain such a measure of popular confidence as to enable it, without loss of influence, to resist proposals for expenditure upon schemes which might ensure great popularity at the moment, but would do permanent harm to the industrial character we are all trying to build up. I need not fear contradiction at the hands of a single member of either Board when I say that up to the present perfect harmony has reigned throughout. The utmost consideration has been shown by the Boards for the difficulties which the Department have to overcome; and I think I may add that due regard has been paid by the administrative authority to the representative character and the legitimate wishes of the bodies which advise and largely control it.
The other statutory body attached to the Department has a significance and potential importance in strange contrast to the humble place it occupies in the statute book. The Agriculture and Technical Instruction (Ireland) Act, 1899, has, like many other Acts, a part ent.i.tled "Miscellaneous," in which the draughtsman"s skill has attended to multifarious practical details, and made provision for all manner of contingencies, many of which the layman might never have thought of or foreseen. Travelling expenses for Council, Boards, and Committees, casual vacancies thereon, a short t.i.tle for the Act, and a seal for the Department, definitions, which show how little we know of our own language, and a host of kindred matters are included. In this miscellany appears the following little clause:--
For the purpose of co-ordinating educational administration there shall be established a Consultative Committee consisting of the following members:--
(a.) The Vice-President of the Department, who shall be chairman thereof;
(b.) One person to be appointed by the Commissioners of National Education;
(c.) One person to be appointed by the Intermediate Education Board;
(d.) One person to be appointed by the Agricultural Board; and
(e.) One person to be appointed by the Board of Technical Instruction.
Now the real value of this clause, and in this I think it shows a consumate statesmanship, lies not in what it says, but in what it suggests. The Committee, it will be observed, has an immensely important function, but no power beyond such authority as its representative character may afford. Any attempt to deal with a large educational problem by a clause in a measure of this kind would have alarmed the whole force of unco-ordinated pedagogy, and perhaps have wrecked the Bill. The clause as it stands is in harmony with the whole spirit of the new movement and of the legislation provided for its advancement. The Committee may be very useful in suggesting improvements in educational administration which will prevent unnecessary overlapping and lead to co-operation between the systems concerned. Indeed it has already made suggestions of far-reaching importance, which have been acted upon by the educational authorities represented upon it. As I have said in an earlier chapter when discussing Irish education from the practical point of view, I have great faith in the efficacy of the economic factor in educational controversy, and this Committee is certainly in a position to watch and p.r.o.nounce on any defects in our educational system which the new efforts to deal practically with our industrial and commercial problems may disclose.
There remains to be explained only one feature of the new administrative machinery, and it is a very important one. The Recess Committee had recommended the adaptation to Ireland of a type of central inst.i.tution which it had found in successful operation on the Continent wherever it had pursued its investigations. So far as schemes applicable to the whole country were concerned, the central Department, a.s.suming that it gained the confidence of the Council and Boards, might easily justify its existence. But the greater part of its work, the Recess Committee saw, would relate to special localities, and could not succeed without the cordial co-operation of the people immediately concerned. This fact brought Mr. Gerald Balfour face to face with a problem which the Recess Committee could not solve in its day, because, when it sat, there still existed the old grand jury system, though its early abolition had been promised. It was extremely fortunate that to the same minister fell the task of framing both the Act of 1898, which revolutionised local government, and the Act of 1899, now under review. The success with which these two Acts were linked together by the provisions of the latter forms an interesting lesson in constructive statesmanship. Time will, I believe, thoroughly discredit the hostile criticism which withheld its due mead of praise from the most fruitful policy which any administration had up to that time ever devised for the better government of Ireland.