South African agriculture, as the shrewdest observers have long foreseen, could never be improved until there arose a political reason for its improvement. The reason for the experiment has arrived, and its basis is in existence. In the inheritance of Crown lands which remains from the mismanaged estate of the late Government, and in the long lists of ex-irregulars and others who sought land, there was the raw material of settlement. It is no case for flamboyant prophecies.
The certain difficulties are as great as the probable advantages. But to shrink from those difficulties is to have towns where British ideas of government, can be realised and outside vast rural districts, suspicious, unfriendly, potentially dangerous; to neglect a golden opportunity of increasing the British element in South Africa; and to turn the back upon farming, which must always be the most permanent a.s.set of any nation. The determinant fact in the case is that the alternative is so black that all risks must be faced rather than accept it. With such considerations in mind, the Government put forth a scheme of settlement, with the examination of which the remainder of this chapter is concerned. It is not my business to write the history of the Crown Colony administration, and therefore no time need be given to the many difficulties which faced the scheme, the mistakes made, and the hopeful results attained in certain cases. It is the problem itself which demands attention, and the adequacy or inadequacy of the policy which has been framed to meet it. Land settlement is from its very nature a slow business, with tardy fruits: twenty years hence we may be in a position to judge by results. But in the meantime it is possible, when the data are known, to ascertain whether a policy is on _a priori_ grounds adapted to meet them.
[24] A Fencing Act, a Stock-Route Act, and a Brands Act on the most progressive lines have been prepared for the Transvaal. An excellent Fencing Act, badly administered, has always existed in the Orange River Colony, and a Brands Act, inferior to the Transvaal measure, has been pa.s.sed in that colony. But it is the effective administration of the Acts which is of importance.
[25] Parliamentary Paper C.D. 1163.
[26] My friend, Colonel Owen Thomas, had some samples of Transvaal soil a.n.a.lysed, and the report was very discouraging. To set against this, a sample of Springbok Flats soil was p.r.o.nounced by a distinguished English expert, to whom it was sent, to be one of the richest specimens of virgin soil he had seen.
[27] Bryce, Impressions of South Africa, 3rd edition, p. 451.
II.
The Crown lands of the Transvaal, as I have said, amount to upwards of 29 million acres, the Crown lands of the Orange River Colony to under 1-1/2 million. So far as the latter colony is concerned, land settlement is rather in the nature of estate management. The lands are too small for any serious political purpose, nor would the most extended settlement make much impression upon the solid Dutch rural community. But in the Transvaal the Crown in several districts is by far the largest landowner, and in others it holds the key of the position. Take a Transvaal map coloured according to ownership, and red is easily the master colour. A solid block of it occupies the north-east corner; large islands of it appear in the western and eastern borders; and the centre is plentifully dotted. Save in the little known north-east those lands are generally pasture, and in too many cases dry and arid bush-veld. In the Standerton district, and in parts of Rustenburg, Potchefstroom, and Bloemhof, there are tracts of good irrigated or irrigable lands; while in Barberton, Lydenburg, Zoutpansberg, and Marico there are considerable districts well watered and well suited for tropical and sub-tropical products. Taken as a whole, however, only a small portion of the Crown holding is suitable for early settlement--say 2-1/2 million acres within the next three years. But there is a wide hinterland for development, and in settlement, as in empire, a hinterland is a moral necessity. There must be an open country to which the sons of farmers, in whom the love of the life is born, can trek as pioneers, otherwise there is a futile division into smaller holdings, or a more futile exodus to the towns.
Besides, there should be room for the townsman--the miner, the artisan, the trader--to feel that there is somewhere an open country where he can invest his savings if he has a mind for a simpler life. As railways spread out into new districts, land will become agricultural which is now pasture; and, as the pastoral industry develops and herds are formed and diseases are mastered, the ranchman will occupy large tracts of what is now the unused hunting-veld.
The Government scheme aims at making a beginning with this settlement--a beginning only, for no government has ever been able to reconstruct alone, and the bulk of the work must be done by private enterprise. If 2000 farmers from England and the colonies can be settled in the rural parts before the day of stress arrives, then the work has been fairly started. A nucleus will have been formed to which the years will add, an element which will both leaven the slow and suspicious rustic society and provide a make-weight against the parochialism of the great towns. A country party is wanted which can look beyond the dorp and the mine-head, and view South African interests broadly and soberly. Such a party must be common to both town and country, but it cannot be built up wholly from either. It must, in the first instance, be a British party; but if this British party is to become a South African party, it must stand for interests common to both races and to all cla.s.ses. The formation of this leavening element cannot be left to time and chance, but must be aided by conscious effort. The land is largely unproved, and full of dangers to crops and stock. The new-comer must therefore be treated gently, and helped over the many stiles which confront him. He will usually be a man of small means, and his limited capital must be put to the best use, and eked out with judicious Government advances. He should have few payments to make during his early years, when payments will necessarily come out of capital. Above all, the acquirement of the full freehold in his land on reasonable terms, and within a reasonable time, should be kept constantly before him as an encouragement to thrift and industry, for the sense of freehold, as the voortrekkers used to say, "turns sand into gold." Much of the Crown lands will never be suitable for any but the largest stockholders. These it is easy to deal with as a mere matter of estate-management; but the political purport of the scheme is concerned with intensive settlement, with the small holder and the mixed farmer of moderate means, who can provide a solid colony of mutually supporting and progressive Englishmen.
The Transvaal "Settlers" Ordinance" of 1902 is based upon the ma.s.s of legislation which embodies the settlement schemes of the Australasian colonies. The usual method in such experiments has been to begin in desperate fear of the settler, tying him up with cast-iron rules, and ruining him in a very few years. Then the pendulum swings back, and settlement is made easy and profitable, the old safeguards are abolished, and the land becomes full of rich squatters and companies, who fatten on State munificence through the numerous dummy settlers in their pay. Finally, after long years a compromise is effected, and that shy creature, the _bona-fide_ settler, is sought for far and near. By this time it is probable that the thing has got a bad name, and men whose fathers and grandfathers lost money under former schemes, are chary of trusting themselves again to the tender mercies of a land-owning State. This, or something like it, has been the experience of the Australasian colonies. Either land was given out indiscriminately and a valuable State a.s.set cheaply parted with, or the conditions of tenure were such as to ruin the small holder and put everything in the hands of a few rich syndicates. The land laws of Australia and New Zealand form, therefore, a most valuable precedent.
We have their experiments before our eyes, and can learn from their often disastrous experience.
Settlement in New South Wales, to take one instance, was begun partly as a Treasury expedient and partly as an election cry. Under the Act of 1867 a settler was allowed to peg off, as on a mining area, a claim not exceeding 320 acres, without any attempt at a previous valuation and survey. The result was a wild rush, where n.o.body benefited except the blackmailer, who seized the strategic points of the country, such as water-holes, and had to be bought out at a fancy price. It does not surprise one to learn that of settlers under this scheme not one in twenty remains to-day. By subsequent Acts the maximum acreage was increased; but in any case it was an arbitrary figure, and it was not till 1895 that it was left within the widest limits to the discretion of the Minister of Lands. Areas proved too small, since no provision could be made for the increase of stock and the necessary fall in prices which attended settlement. In valuation the extraordinary plan was adopted of giving a uniform capital value of 1 per acre to all land. The country being unproved, values were absolutely unknown, nor was any provision made for revaluation. The result was that the settler struggled along till he was ruined and his holding forfeited, when the holding lapsed to the State, which, being unable to find a new tenant, was compelled to let it remain vacant, having accomplished nothing but the needless ruin of the first man. The "Settlers" Ordinance" has endeavoured to avoid laying down any rules which experience has not tried and tested. The determination of the size of any holding is left to the land officials, without defining any area limits. A holding which proves too small may be increased on appeal, and the boundaries are at all times made capable of adjustment. Holdings are first surveyed and valued, then gazetted for application, and finally publicly allotted, after full inquiry into the case of each applicant, by a Central Board. The division and valuation of farms, in the absence of reliable data, is a work of great nicety and difficulty. The country contains within its limits many districts which differ widely in soil, vegetation, and climate. It is therefore impossible, in deciding on the size of holdings, to follow any arbitrary rule; and to restrict survey to a maximum and minimum acreage would be fatal.
The only method is to ascertain from local evidence the carrying and producing capacity of similar land, and so frame the boundaries of a farm as to provide on such figures a reasonably good living for the cla.s.s of settler for whom it is intended. The danger of putting too high a price on land is not less great. If the current market price is taken it will in most instances be overvalued, and in any case it is a method without any justification in reason. The best solution is probably the plan at present in use. Schedules have been prepared for the different types of holding, in which the profits are calculated, using as a guide the present price of stock and imported produce at the coast to ensure against the inevitable fall in prices. Taking such estimated profits as a basis, the valuation is so fixed as to give the settler, after all living expenses, annual payments to Government, probable loss of stock, and depreciation of plant have been written off, a clear profit of 12 per cent on his original capital. From this figure some further deductions may fall to be made for such disadvantages as unhealthiness of climate and excessive distance from the conveniences of civilised life. In the absence of more scientific data this seems to form as fair a basis in valuation as any man can expect.
But if early Australasian legislation erred in rigour, it also erred in laxity. The settler was often the nominee of a syndicate or a large run-holder, and before the 1895 Act a cla.s.s of professional selectors existed. This system of _latifundia_ brought its own punishment. The run-holder ruined the small selector. To pay the instalments on his many selections he had recourse to the banks, which speedily ruined him and took over his holdings. The banks in their turn ruined themselves, chiefly through being obliged to pay instalments on land valued at 1 per acre, of which the actual value for stock was less than 5s. Again, the settler was compelled to improve the land at the rate of so many shillings per acre within a given time. This led to cheap fict.i.tious improvements by which the letter of the law was satisfied and the spirit evaded. The "Settlers" Ordinance" has certain stringent provisions to prevent such frustration of the true aims of settlement. Subletting or transfer of any sort, except with Government consent, is strictly forbidden till the tenant has acquired the freehold. Residence for at least eight months in the year, unless a special dispensation is granted, is required during the same period.
The settler is compelled to build a satisfactory house and to fence his holding within a given time. He is compelled to occupy it solely for his own benefit, to cultivate according to the rules of good husbandry (whatever that may mean), and the decision of the local Land Commissioner is the test by which he is judged. He is encouraged to improve by the potent fact that the Government will advance pound for pound against his improvements. But there are certain elastic provisions to temper the rigour of such restrictions. The Commissioner of Lands is given a very wide dispensing power with regard to most conditions. Partnerships are allowed; settlers may reside together in a village community; and the residence conditions may be temporarily fulfilled by a wife or child, to allow a settler in hard times to make money by his labour elsewhere. Special relief is provided during periods of disease or drought by the cessation or diminution of the annual payments, and by advances in excess of the ordinary limits.
The Ordinance has been framed on experimental lines, leaving much to the discretion of local officials (subject to an appeal to the Central Board and thence to the High Court), and hesitating to dogmatise on details which are still unproved. But in spite of much which is empirical, one or two root principles are maintained. One is that a fair chance must be given to all to acquire the freehold, without which magic possibility the best men will not come forward. Another, and perhaps the most important of all, is that the payments to Government shall be so arranged as to be scarcely felt during the early years when they are paid out of capital, and to rise to any considerable sum only when the holding is producing a revenue. The two chief forms of tenure are leasehold and purchase by instalments over a period of thirty years. The common form of lease is for five years, with a possible extension for another two, and the rental may be at any rate (not exceeding 5 per cent) which the Commissioner of Lands thinks suitable. This method will enable back-country to be taken up, to start with, at a nominal rent; and it will also allow a settler on an unimproved stock-farm to devote the bulk of his capital to the necessary stocking and improvements. At the end of the lease, or without any preliminary lease, the settler can begin to purchase his holding on the instalments system. By a payment of 5, 15s. per cent per annum on the gazetted valuation, princ.i.p.al and interest (which is calculated at 4 per cent) will be wiped off in thirty years. But a settler is permitted any time after ten years from the date of his first occupation to pay up the balance and acquire the full freehold.
In the case of preliminary leaseholders who take up a purchase licence, the licence, so far as the ten years" period is concerned, is made retrospective so as to date from the first day of the lease.
Such is a rough outline of the Government proposals. They aim only at making a beginning, and it is to the large private owner and the land company that we must look for the completion of the work. South African agriculture can never be a Golconda like the Canadian wheat-lands of the West. But it is of inestimable value to the country in providing a background to the immense temporary mining development--a permanent a.s.set, which will remain to South Africa"s credit when the gold-mines of the Rand are curiosities of history. In itself it is a sound investment, offering no glittering fortunes but a steady and reasonable livelihood. No people can afford to develop solely on industrial lines and remain a nation in the full sense of the word, for in every commonwealth there is need of the rural forces of persistence to counteract the urban forces of change. All settlement is necessarily a leap in the dark, but, so far as a proposal can be judged before it is put into practice, the present scheme offers good chances of success. There seems little doubt that it will receive full justice. The war spread the knowledge of the country to every cranny of the Empire. English and Scottish farmers"
sons, Australian bushmen, Indian planters, farmers from New Zealand and Ontario, having fought for three years on the veld, have fallen in love with it and are willing to make it their home. No more splendid chances for settlement have ever offered; for when the wastrels have been eliminated there remain many thousands of good men, from whom a st.u.r.dy country stock could be created. There can be no indiscriminate gifts of land as in some colonies. The land is too valuable, the political purpose too delicate and urgent, the need of nice discrimination in selection and careful fostering thereafter too imperative, to allow farms to be shaken up in a lucky-bag and distributed to the first comers. The best men must be attracted, and a.s.sisted with advice and loans to the measure of success which is possible. It is the soundest form of political speculation, if done with sober and clear-sighted purpose. The young men from home and the colonies, to whom South Africa is a memory that can never die, turn naturally towards it in search of a freer life and a larger prospect.
On the model farms which are being established in each district the proverbial "younger sons of younger sons" will be given a chance of learning the requirements of the land, and so starting work on their own account with intelligence and economy. Some day--and may we all live to see it!--there will be little white homesteads among trees, and country villages and moorland farms; cattle and sheep on a thousand hills where now only the wild birds cry; wayside inns where the thirsty traveller can find refreshment; and country shows where John Smith and Johannes s.m.u.ts will compete amicably for the King"s premiums. And if any one thinks this an unfounded hope, let him turn to some such book as Ogilby"s "Itinerarium Angliae," where he will find that in the closing years of the seventeenth century the arable and pastoral land in England scarcely amounted to half the area of the kingdom, and the most fruitful orchards of Gloucestershire and Warwick were mere heath and swamp, and, as it seemed to an acute observer, doomed to remain so.
Settlement, indeed, is but one, though the most important, of the land problems. An enlightened agricultural department, working in conjunction with local societies, can do much to unite the two races by conferring benefits which are common to both. The introduction of pedigree stock to grade up the existing herds is a necessity which any Boer farmer will admit. So, too, are stringent regulations for the prevention of disease, experiments in new crops, field trials of new machinery, and a provision for some form of agricultural training.
Central creameries and tobacco-factories would work wonders in increasing the prosperity of certain districts. Something of that tireless vigilance and alert intelligence which has made the Agricultural Bureau of the United States famous, a spirit which brings into agriculture the procedure and the exact calculation of a great business house, is necessary to meet the not insuperable difficulties which now deter the timid, and to give farming a chance of development commensurate with its political importance. It is only another case in which a South African question stands on a razor-edge, a narrow line separating ample success from a melancholy failure.
CHAPTER XIV.
THE SUBJECT RACES.
No question is more fraught with difficulties for the home philosopher than this, but there is none on which practical men have made up their mind with such bitter completeness. The root of the trouble is that England and South Africa talk, and will continue to talk, in different languages on the matter. The Englishman, using the speech of conventional politics, seems to the colonist to talk academic nonsense; while the South African, speaking the rough and ready words of the practical man, appears as the champion of brutality and coercion. The difficulties are so real that one cannot but regret that they are complicated by verbal misunderstandings. There is no real divergence of views on the native question: the distinction is rather between a seriously held opinion and a slipshod prejudice. "Exeter Hall" is less the name of a party than of an att.i.tude, as common among the robust colonists as ever it was among the mild pietists of Clapham. It consists in a disinclination to look simply on facts, to reason soberly, and to speak accurately,--a tendency to lap a question in turgid emotion. The man who consigns all native races to perdition in round terms, and declares that the only solution of the difficulty is to clear out the Kaffir, is as truly a votary of Exeter Hall as the gentle old lady to whom the aborigine is a model of primeval innocence, whose only joy is the singing of missionary hymns.
Out of the confusion of interests and issues two main problems emerge which may form useful guides in our inquiry. One is economic. What part are the native races to play in the labour-supply and the production of South Africa? what is to be their tenure of land? what is to be their economic destiny in face of the compet.i.tion of modern life and the industrial development of the country? The second is the moral question, of which the political is one aspect. A coloured race living side by side with a white people furnishes one of the gravest of moral cruces. The existence of a subject race on whatever terms is apt to lead to the deterioration in moral and mental vigour of its masters. Perpetual tutelage tends to this result; full social and civic rights, on the other hand, lead to political anomalies and, too often, to the lowest forms of political chicanery. A doctrinaire idealism is fraught with dire social evils; but an obstinate maintenance of the "practical man"s" _status quo_ is apt to bring about that very degeneration which justifies the doctrinaire. How to reconcile freedom of development for the native by means of spontaneous labour, education, and social rights with the degree of compulsion necessary to bring them into line with social and industrial needs, or, to put it shortly, how to keep the white man from deterioration without spoiling the Kaffir,--this is the kernel of the most insistent of South African problems.
The native races south of the Zambesi present a curious problem to the student of primitive societies. All, or nearly all, of kindred race, they are not autochthonous, and the date of their arrival in the country can in most cases be fixed within the last five centuries.
Five centuries do not give a long t.i.tle to a country, as savage t.i.tles go, but even this period must be cut down in most cases, since the wars of the great Zulu kings scattered the other races about as from a pepper-box, with the result that few tribes save the Zulus, some of the Cape Colony Kaffirs, the Swazis, and small peoples like the Barolongs, can claim an occupation t.i.tle of more than a hundred years.
This state of affairs, so rare in our dealings with savage peoples, has, politically, both merits and defects. The absence of the autochthonous hold of the soil and of long-settled immovable traditions of tribal life makes the native more malleable under the forces of civilisation. It is easier to break up the tribes and to acclimatise the Kaffir to new localities and new conditions. But this lack of a strong, settled, racial life makes it fatally easy for him to fall a victim to the vices of civilisation, and to come upon our hands as a derelict creature without faith or stamina, having lost his old taboos, and being as yet unable to understand the laws of the white man. This process of disintegration has been going on for a century, and the result is a clearly marked division. We have the tribal natives, who are still more or less strictly under the rule of a chief, and subject to tribal laws sanctioned and enforced by the Governments. The native population of the Transkeian territories in Cape Colony, such as the Pondos, the Amaxosas, and the Tembus; Bechua.n.a.land, with the people of Khama, Bathoen, Sebele, and Linchwe; Basutoland; Zululand; the northern and eastern parts of the Transvaal under such chiefs as Magata, "Mpefu, and Siwasa; Swaziland; and the Matabele and Mashona tribes of the vast districts of Northern and Southern Rhodesia are the main instances of this first cla.s.s. The aim of the different Governments has always been to keep the tribal organisation intact, and, after eliminating certain tribal laws and customs which are inconsistent with the ideas of white men, to give their sanction to the remainder. Basutoland is a Crown colony; the Transkeian territories are a native reserve; Bechua.n.a.land is a native protectorate; in Rhodesia a number of native chiefs control large tracts of land under the Chartered Company"s administration. Elsewhere the tribes live in Government reserves, or in certain cases in locations situated on private land. Between Pretoria and the Limpopo there are dozens of small chieftains and chieftainesses, with tribes varying in numbers from a hundred to several thousands. The second cla.s.s, the detribalised natives, are to be found scattered over the whole country, notably in the western province of Cape Colony, and in the vicinity of all South African towns. They live as a rule in locations under munic.i.p.al or Government supervision. In many cases such locations are far larger than those of a small chief; but their distinguishing feature is that they are governed solely by the law of the country or by munic.i.p.al regulations framed for the purpose, and owe no allegiance to any chief or tribal system.
It is obvious that for purposes of policy this distinction cannot maintain its importance. The rule of the chief is being rapidly undermined by natural causes, and no taking thought can bolster it up for ever. Education, too, and the closer settlement of the country by white men, are rapidly breaking down tribal customs and beliefs, which, as a rule, have more vitality than the isolated sentiment of allegiance. For us the real distinction is between the natives who can be kept in large reserves or locations, whether tribal or otherwise, and the floating native population, which is every day growing in numbers. Sooner or later we must face the problem of the overcrowding of all reserves, and the consequent efflux of homeless and masterless men. The needs of progress, too, are daily tending to change the tribal native into the isolated native attached to some industry or other. Politically the question is, How far and on what lines the large reserves and locations can be best maintained, and what provision can be made for incorporating the overflow, which exists now and will soon exist in far greater numbers, on sane and rational lines in the body politic?
Such being the main requirements of the problem, it remains to consider the forms in which they present themselves to the ordinary man. For the working aspect of a question is generally very different from the form it takes in an academic a.n.a.lysis. The translation into the terms of everyday life is conditioned by many accidental causes, so that to one section of the community the labour problem is the sole one, to another the educational, to a third the social. It is important to realise that all are part of one question, and that no single one can be truly solved unless the whole is dealt with. This incompleteness of view, more than any other cause, has complicated the native question, and produced spurious antagonisms, and policies which are apparently rival, but in reality are complementary.
The first is the grave difficulty which must always attend the existence of a subject race. Slavery is the extreme form of the situation, and in it we see the evils and dangers on a colossal scale.
A subject population, to whom legal rights are denied, tends in the long-run to degrade the value of human life, and to depreciate the moral currency,--a result so deadly for true progress that the consensus of civilised races has utterly condemned it. The denial of social and political rights is almost equally dangerous, since, apart from the risks of perpetual tutelage in a progressive community, there follows necessarily a depreciation of those political truths upon which all free societies are based. Many honest men have clearly perceived this; but after the fashion of headstrong honesty, they have confused the issues by an inaccurate use of words. Legal rights must be granted, and since the law is the child of the fundamental principles of human justice, legal equality should follow. Social and political rights also must be given; but why social and political equality? The most embittered employer of native labour does not deny that the black man should share certain social privileges, and be made to feel his place in the political organism, but he rightly denies that rights mean equality of rights; while his doctrinaire opponent, arguing from exactly the same premises, claims a foolish equality on a misunderstanding of words. The essence of social and political equality must be a standard of education and moral and intellectual equipment, which can be roughly attributed to all members of the community concerned. But in this case there can be no such common standard. Between the most ignorant white man and the black man there is fixed for the present an impa.s.sable gulf, not of colour but of mind. The native is often quick of understanding, industrious, curiously logical, but he lives and moves in a mental world incredibly distant from ours. The medium of his thought, so to speak, is so unique that the results are out of all relation to ourselves.
Mentally he is as crude and nave as a child, with a child"s curiosity and ingenuity, and a child"s practical inconsequence. Morally he has none of the traditions of self-discipline and order, which are implicit, though often in a degraded form, in white people. In a word, he cannot be depended upon as an individual save under fairly vigilant restraint; and in the ma.s.s he forms an unknown quant.i.ty, compared with which a Paris mob is a Quaker meeting. With all his merits, this instability of character and intellectual childishness make him politically far more impossible than even the lowest cla.s.s of Europeans. High property or educational qualifications for the franchise, or any other of the expedients of Europe, are logically out of place, though they were raised to the possession of a fortune and a university degree; for the mind is still there, unaltered, though it may be superficially ornamented. Give the native the full franchise, argues one cla.s.s of observer, and he will in time show himself worthy of it, for in itself it is an education. On a strictly logical view it would be as reasonable to put a child on a steam-engine as driver, trusting that the responsibility of his position would be in itself an education and would teach him the necessary art.
Social and political equality will seem to most men familiar with the subject a chimera, but social and political rights the native must have, and in most cases has already obtained. But unless such rights are carefully adjusted the absolute cleavage remains. We have two races, physically different, socially incapable of amalgamation: if we make the gulf final, there is no possibility of a united state; if we bridge it carelessly, the possibility is still more distant. We may scruple to grant rights, such as the political franchise, which are based in the last resort on a common moral and intellectual standard; but we can grant rights which are substantive and educative and capable of judicious extension. The Glen Grey Act, as we shall see, made a valuable experiment in securing to the native the social status which attends individual tenure of land. Some form of representation might be devised, by which a chief might have a voice on a district council, or a representative elected by an industrial location a.s.sist in local government. Such measures, joined with a rational system of education, will leave the door open for the extension of rights till such time as the native has finally shown whether he is worthy of equality or condemned by nature to rank for ever as a subject race.
There are men, able men with the courage of their opinions, who see no hope in the matter, and who would segregate the natives in a separate territory under British protection. The chief objection to this policy is that it is impossible. The native is in our midst, and we must face the facts. We have a chance to solve a burning question which no other nation has had, since, as in the United States, the matter has either been complicated by initial slavery, or, as also in the States, a thoughtless plunge has been made into European doctrines of liberty, equality, and fraternity. If we patiently and skilfully bring to bear upon the black man the solvent and formative influences of civilisation, one of two things must happen. Either the native will prove himself worthy of an equal share in the body politic; or, the experiment having been honestly tried, he will sink back to his old place and gradually go the way of the Red Indian and the Hottentot. For it is inevitable that civilisation, if wisely applied, must either raise him or choke him,--raise him to the rank of equal citizenship, or, by its hostility to his ineradicable qualities, prove a burden too heavy to support.
The second is the ever-recurring problem of labour. In an earlier chapter the economic aspect of the question has been discussed; for the present we have to face that aspect which is connected with a native policy. The Kaffir is fundamentally an agriculturist, and when his lands are well situated he reaps enough for his simple existence with a minimum of labour. If he is rich enough to have several wives, they do the necessary picking and hoeing, and their lord and master sits in the shade of his hut and eats the bread of idleness. This was well enough in the old hunting and fighting days, when the male folk lived a strenuous life in the pursuit of game and the slaughter of their neighbours. But with civilisation close to their gates, the old system means a degraded somnolent life for the man, and the continuance of a real, though not necessarily unpleasant, form of slavery for the woman.
And this in a country which is crying aloud for labour and development!
To be sure, the foregoing is not a complete picture of all Kaffir life, but it is true of the larger reserves and the wealthier kraals. To most men it is an offence that the native, who is saved by British power from insecurity of life and limb, should be allowed to remain, by the happy accident of nature, an idler dependent only on the kindness of mother earth, multiplying his kind at an alarming rate, and untouched by the industrial struggle where his sinews are so sorely needed. The Kaffir owes his existence to the white man; in return he should be compelled to labour for hire and take his proper place in a world which has no room for his vegetating habits. He holds his land by our favour, he is protected from extinction by our arms, he enjoys the benefits of our laws; and he must pay for it all, not only in taxes but by a particular tax, a certain quant.i.ty of labour. This mode of argument sounds so serenely reasonable that one is apt to miss the very dangerous political doctrine which underlies it. Stated shortly, it runs thus. Compulsory labour without payment is to be reprobated like all forms of _corvee_, but if we pay what we regard as a fair price and make the compulsion indirect, then we get rid of such an objection.
This doctrine involves two principles which seem to me to be subversive of all social order, and in particular of that civilisation which they profess to support. The Kaffir would be placed outside the play of economic forces. His wages would be arbitrarily established on an artificial basis, unalterable save at the will of his white masters. In the second place, compulsion by high taxation is not indirect compulsion, but one of the most direct forms of coercion known to history. To constrain a man indirectly is to use unseen forces and half-understood conditions which, being unrealised, do not impair his consciousness of liberty; but this is not the method which is proposed.
A white man, it is argued, suffers want if he does not work. Well and good,--so does the Kaffir; but the work which he does, unless he is rich enough to have it vicariously performed, is different in kind from the work which others want him to do, and hence the trouble arises. To force a man, black or white, to enter on labour for which he is disinclined, is to rank him with beasts of burden, and prevent him, as an industrial creature, from ever attaining the conscious freedom which labour bestows. The old truth, so often misapplied, that a man who does not work shall not eat, is a statement of economic conditions to which those who quote it in this connection would seek to do violence.
But such truisms do not exhaust the question. It is not the Kaffir who chiefly matters, for in his present stage of development he might be as well off one way as another; it is the white man"s interests which must decide. If the whole of Kaffirdom were sunk in a state of feminine slavery and male indolence, violence might be done to political axioms with some show of reason; but the Kaffir is emerging from his savagery and has shown in more ways than one a capacity for industrial development. But, taking the Kaffir on the lowest plane, what is to be the effect on the white population of South Africa if forced labour is to stereotype for ever a lower race, to which the free selection of labour, the first requisite of progress, is denied?
"The safety of the commonwealth," wrote John Mackenzie, "absolutely demands that no hatches be battened down over the heads of any part of the community." At the back of all the many excellent cases which have been made out for compulsory labour by high taxation, there lie the immediate needs of the great gold industry--needs which it is now clear can never be met in South Africa alone by any native legislation. An instant industrial demand is apt to blind many good men for the moment to those wider truths, which on other occasions they are ready enough to a.s.sent to. The case has been further prejudiced for most people by the bad arguments used on the native side, and the intolerable cant with which obvious truths have been sicklied over. We need not concern ourselves with the so-called degradation of Kaffir manhood implied in compulsory labour, for such self-conscious manhood does not exist; but we are very deeply concerned with the degradation of white manhood, which will inevitably follow any of the facile solutions which are cried in the market-place. If by violent methods economic laws are checked in their play, a subject race in a low state of civilisation is checked on the only side on which development can be reasonably looked for. The harder and lower forms of toil will fall into Kaffir hands for good; the white population will become an aristocracy based on a kind of slave labour; and with the abolition of an honest hierarchy of work, degeneration will set in with terrible swiftness. It is a pleasing dream this, of a community of cultivated white men above the needs of squalid or menial toil, but on such a dream no free nation was ever built. The old tribal system is crumbling, and in a hundred years or less we shall see the Kaffirs abroad in the land, closely knit to all industries and touching social and political life at countless points.
If they are a portion, however small, of the civic organism, there is hope for the future; but if they are a thing apart, denied the commonest of all rights, and remaining in their present crude and stagnant condition, they will be a menace, political and moral, which no one can contemplate with equanimity. There are, indeed, only two entirely logical policies towards the native. Either remove him, bag and baggage, to some Central African reserve and leave him to fight his wars and live as he lived before the days of Tchaka, or bring him into close and organic relation with those forces of a high civilisation which must inevitably mend or end him.
There is a third chief aspect in which the native problem presents itself to the ordinary man. The Kaffir, south of the Zambesi, already outnumbers the white man by fully five to one, and he increases with at least twice the rapidity. Most native reserves and locations are overcrowded, the Kaffir is being driven on to private land as an unauthorised squatter, and the floating population in and around the towns is daily increasing. What is to be the end of this fecundity?
Living on little, subject apparently to none of the natural or prudential checks on over-population, there seems a real danger of black ultimately swamping white by mere gross quant.i.ty. In any case there will soon be a grave economic crisis, for, unless prompt measures are adopted, a large loose vagabondage will grow up all over the land. It is to be noted that this danger is the converse of the two problems we have already discussed. They referred to the stereotyping of the Kaffir races as a settled agricultural people out of line with industrial progress; this concerns the inevitable break-up of the old agricultural condition by mere excess of population and the difficulty of dealing with the overflow. This complementary character which the problems a.s.sume is one of the most hopeful features of the case. Natural forces are bringing the Kaffir to our hands. The _debacle_ of his old life is turning him upon the world to be formed and constrained at our pleasure. The field is clear for experiment, and it behoves us to make up our minds clearly on the forms which the experiment must take.
To recapitulate the results of the preceding pages. The central problem is how to bring the native races under the play of civilising forces, so that they may either approve themselves as capable of incorporation in the body politic, or show themselves eternally incapable, in which case history would lead us to believe that they will gradually disappear. To effect this vital experiment, no rigid economic or social barrier should be placed between them and the white inhabitants. Since the old tribal organisation is breaking up, the ground is being rapidly prepared for the trial. It is our business, therefore, to consider how best the system of tribes and reserves can be maintained, so long as there is in it the stuff of life, and what new elements can be introduced which will make its fall more safe and gradual; and, in the second place, to devise ways and means for dealing with the rapidly increasing loose native population, for replacing the former tribal traditions with some rudiments of civilised law, and for leaving an open door for such development as may be within their capacity. It will be convenient to look at ways and means under three heads. There is, first, the general question of taxation, which is common to all. There is, secondly, the problem of the larger reserves, and the maintenance, so far as is desirable, of the old rural life, with the kindred questions of land tenure, of local government, of surplus population, and of labour. And, finally, there is the problem of the cla.s.s which in the last resort is destined to be most numerous, the wholly non-tribal and unattached natives, whose mode of life must be created afresh and controlled by Government. This is the most difficult problem, since such natives are peculiarly exposed to the solvents of white civilisation, and everything depends upon the method in which the solvents are used.
The native is, for the most part, under special taxes. In certain parts of Cape Colony and Natal the fiscal system is in practice the same for black and white, but for the purposes of this inquiry the native who has adopted the white man"s life may be disregarded. In Cape Colony the hut tax is 10s. per annum, whether the hut is situated on private or Crown lands, and on locations within munic.i.p.alities a similar munic.i.p.al tax is paid. In Natal the hut tax is 14s., in Basutoland 1, in Rhodesia 10s., and in the Transvaal and Orange River Colony 10s. under the old _regime_. In Natal, the Orange River Colony, the Transvaal, and Rhodesia, there was also a native pa.s.s law, under which certain sums were charged on travelling pa.s.ses, varying from 6d.
in the Orange River Colony to 2s. per month in the mining areas of the Transvaal. It is unnecessary to go into the numerous details of native taxation, which within narrow limits are constantly varied, but it is worth while to look at two instances which may be taken as the extreme types of such taxation, the Transvaal under the former Government and the districts of Cape Colony subject to the Glen Grey Act. In the Transvaal the natives for the most part are tribal, and the system of taxation was based on tribal considerations; but the bulk of the revenue under the Pa.s.s Law came from the large fluctuating population of natives at work on the mines. Under the old Government the ordinary native paid 10s. as hut tax, 2 as capitation fee, with sundry other charges for pa.s.ses, &c., which brought the whole amount which might be levied up to fully 4. The tax was loosely collected, but on the whole the taxation per head was reasonably high. One of the first acts of the new administration was to consolidate all native taxes in one general poll tax of 2, with a further charge of 2 per wife for natives who had more than one. The pa.s.s fee was also charged upon the employer in districts where it fell to be levied. The net result, therefore, is that for a native, who is the husband of not more than one wife, the sum payable yearly is about 3, made up of the poll tax and the registration fee. A native may have to pay more than the old Government exacted, but if he pleases he can pay less. In the districts under the Glen Grey Act individual ownership of land is encouraged, and the native who has attained to such tenure is practically in the position of a white citizen--that is, he pays no hut tax or poll tax, and his contributions to revenue consist in the payment of such rates as his district council or the Transkeian General Council may levy. For the native who holds no land either on quit-rent or freehold t.i.tle, there is a labour tax of 10s. per annum, which he can avoid by showing that he has been at work outside the district for a period of three months during the previous year, and from which he can gain complete exemption by showing that at some time he has worked for a total period of three years. Such a tax is not a compulsory labour tax, but should rather be regarded as a modification of the hut tax, which can be remitted as a bonus on outside labour.
The contrast between the two forms of taxation is obvious, the one being a special and peculiar type, the other a modification of the general fiscal system of the colony. It is to the latter type that all systems of native taxation must tend to approximate. There are certain obvious objections to the hut tax, of which the chief is that it leads to overcrowding and bad sanitation, and prevents young men from building huts of their own; and perhaps it would be well if, following the new Transvaal precedent, all native taxes were consolidated into one comprehensive poll tax. But, speaking generally, natives are not heavily taxed[28] having regard to their wage-earning capacity, though hitherto the Customs have been unduly hard upon their simple commodities. In the Transvaal, for example, there is little doubt that the native population could bear for revenue purposes in most years a poll tax of 3 per head. This might be reduced in case of natives in industrial employment, in consideration of the fact that such natives contribute otherwise to revenue through the Pa.s.s Law. It is one of the ironies of this South African problem that increased and reasonable taxation for revenue purposes will continue to be identified in many minds with compulsory labour through high taxation.
The two things are as wide apart as the poles. The native, in return for protection and good government, is required to pay a certain sum per annum calculated solely on fiscal needs and his earning capacity.
That is the only basis of native taxation; but when the sum has been fixed, it may be expedient as a matter of policy to reduce the tax in the case of natives working under an employer, partly because such natives contribute to the Exchequer in another way, and partly as a bonus to encourage outside labour. But the general form of taxation might well be altered, slowly and cautiously, as the time ripened. The hut tax might be gradually trans.m.u.ted into a form of rent which, as in the Glen Grey districts, could be lowered as a bonus on outside labour, and the extension of local government might provide for the rating of locations and reserves on some system common to all districts. Taxation may have an educative force, and to ask from the native a contribution for something of which the purpose is apparent and the justification obvious, is to bestow on him a kind of freedom.
It is the first step to taxation with representation to provide that taxation should be accompanied by understanding.
The second question is that of existing reserves and the possibility and method of their maintenance. In the case of many the problem is still simple. Basutoland, the chief tribes of the Bechua.n.a.land Protectorate and Southern Rhodesia, Swaziland, Zululand, the races of the north and north-eastern Transvaal, and a considerable part of the Transkeian territories, will find for many years protected tribal government suitable to their needs. Tribal customs and laws, in so far as they are not _contra bonos mores_, are recognised by the protecting Governments, and given effect to by any white courts which may have jurisdiction in the district. The old modes of land tenure, the succession to the chieftainship, the tribal religion, if any exists, should be given the sanction of the sovereign Power till such time as they crumble from their own baselessness. The disintegrating forces are many and potent. Taxation will compel the acquisition of wealth other than in kind, and will therefore strengthen existing trade, and, if gradually modified in character till it approach a rating system, will replace the tribe by the district as a local unit. The growth of population will compel a certain overflow, which must either be accommodated on new land under special conditions, or must go to swell the general industrial community. Education, the greatest of all disintegrators, is loosening slowly the old ties, and is increasing the wants of the native by enlarging his mental horizon.
Outside labour, whether undertaken from love of novelty or from sheer economic pressure, leaves its indelible mark on the labourer. The Kaffir who has worked for two years in Kimberley or Johannesburg may seem to have returned completely to his old stagnant life, but there is a new element at work in him and his kindred, a new curiosity, a weakening of his regard for his traditional system. Agriculture itself, which has. .h.i.therto been the mainstay of his conservatism, is rapidly becoming a force of revolution. Formerly no self-respecting native would engage in cultivation, leaving such tasks to his women; but a native who would not touch pick or hoe is ready enough to work a plough, if he is so fortunate as to possess one. The growth of wealth and a spirit of enterprise among the tribes leads to improved tillage, and once the native is content to labour himself in the fields, his old scheme of society is already crumbling.
But, in addition to natural solvents, there is one which we might well apply in our own interest against the time when the tribal system shall have finally disappeared. Any form of political franchise, however safeguarded, is in my opinion illogical and dangerous. It is inequitable to create barriers which are themselves artificial, but it is both inequitable and impolitic to disregard natural barriers when the basis of our politics is a presumed natural equality. But it may be possible to admit the Kaffir to a share in self-government without giving any adherence to the doctrine involved in a grant of a national franchise. Local government is still in its infancy all over South Africa, but the common type is some form of urban or district council.