Lord Milner's Work in South Africa Part 32

[Sidenote: Economic importance of Rand.]

"The mineral wealth of the Transvaal is extra-ordinarily great, but it is exhaustible, some say within a s.p.a.ce of fifty years, others within a s.p.a.ce of one hundred years. It would be a disaster indeed for the country if none of this wealth were devoted to the development of its agriculture. Agricultural development is slow, but it is permanent, and knows of no exhaustion. If the companies working the gold, coal, and diamond mines were by decree compelled to devote a percentage of their gains to the execution of irrigation works on lines laid down by the Government, they would a.s.sist in the permanent development of the country and would be investing in works which, though slow to give a remuneration, would, at any rate, be absolutely permanent.

It would thus happen, that when the mineral wealth of the country had disappeared, its agricultural wealth would have been put on such a solid basis that the country would not have to fall from the height of prosperity to the depth of poverty."

These were conclusions of so fundamental a nature that no statesman could afford to overlook them; and, in point of fact, Lord Milner kept them steadily in sight from first to last in all that he did for the administrative and economic reconstruction of the new colonies.

Another effort of the civil administration which was carried on successfully during the war was the teaching of the Boer children in the refugee camps. The narrative of the circ.u.mstances in which the camp schools were first organised, of the manner in which teachers came forward from all parts of the empire to offer their services, and of the complete success which attended their efforts, was told three years later by Mr. E. B. Sargant, the Education Adviser to the Administration. The report in which the story appears not only affords a record unique in the annals of educational effort, but adds a pleasing and significant page to what is otherwise a gloomy chapter of the war.[305] Mr. Sargant was invited by Lord Milner to organise the work of educational reconstruction in the new colonies in the autumn of 1900. He was then travelling in Canada, in the course of a journey through the empire undertaken for the purpose of investigating the methods and conditions of education in the several British colonies; and he reached Capetown on November 6th, 1900. At that time the headquarters of the new Transvaal Administration had not been established in Pretoria; but in the Orange River Colony certain schools along the railway line and elsewhere had been opened under the military Government. From observations made in December in the two new colonies, Mr. Sargant had begun to fear that the work of educational reorganisation would have to be indefinitely postponed, when a visit to the Boer prisoners' camp at Seapoint, Capetown, gave him the idea from which the whole system of the camp schools was subsequently evolved. Here he found that a school for boys and young men had been provided by the prisoners themselves, but that it was dest.i.tute of books and of almost all the necessary appliances. Mr. Sargant's appeal on behalf of this school met with a ready response from the Cape Government. What could be done here, he thought, could be done elsewhere. The nearest refugee camp to Capetown was at Norval's Pont, on the borders of the Orange River Colony; and it was here that Mr.

Sargant determined to make his first experiment.

[Footnote 305: This Report was issued (June 14th, 1904) from the Education Adviser's Office, Johannesburg, on "The Development of Education in the Transvaal and Orange River Colony." It is one of the many contributions of permanent value to political and economic science that mark the second period of Lord Milner's Administration in South Africa.

_E.g._, in Appendix x.x.x. of this Report, the various solutions of the much-vexed question of religious instruction in State Schools, severally adopted by the self-governing colonies of the empire, are excellently presented in tabular form.]

[Sidenote: Origin of the camp schools.]

"Having provided myself," Mr. Sargant says, "with several boxes of school books, I left Capetown on the last day of January and took up my quarters in the camp already named. The Military Commandant threw himself heartily into the experiment, although at that time the provision of food and shelter for each new influx of refugees was a matter of great difficulty. Fortunately Norval's Pont, being nearer the base of supplies than the other camps, had a few marquees to spare. In two of these I opened the first camp school, remaining for a fortnight as its headmaster.

The rest of the teachers were found in the camp itself. It was apparent from the first that the school would be a success. The children flocked to it, and the mothers who brought them were well content with the arrangement that the religious instruction should be given in Dutch and other lessons in English. Here, as in several other camps which were visited later, I found that a school, taught through the medium of Dutch, had already been opened by some of the more serious-minded of the people. In this case, an offer was made to me by the Commandant to suppress this school and to send the children to my marquees. This I refused, and in less than two months I had the gratification of knowing that teachers and children had come voluntarily to the Government school, and that the tents in which they had been taught formed one of a row of six which were needed to accommodate the rapidly increasing number of scholars."[306]

[Footnote 306: Report on "The Development of Education in the Transvaal and Orange River Colony."]

[Sidenote: Over-sea teachers.]

After this initial success Mr. Sargant made arrangements, first from Bloemfontein, and afterwards from Pretoria, for the establishment of such schools in all the refugee camps; and by the end of May, 1901, there were 4,000 children in the camp schools, as against 3,500 in the town schools of the two colonies. In the following month it became evident that the local supply of teachers would be insufficient to meet the demands of the rapidly increasing schools; and Lord Milner devoted much of his time during his leave of absence to making arrangements for the introduction of a number of well-trained teachers from England, and subsequently from the over-sea colonies. Before these welcome reinforcements could arrive, however, the number of children in the camp schools, apart from the Government schools in the towns, had risen to 17,500, and the supply of South African teachers was exhausted. "In many cases," says Mr. Sargant, "the services of young men and women who had pa.s.sed the sixth, fifth, and even fourth standard were utilised temporarily." With the new year, 1902, drafts of carefully chosen and well-qualified teachers from England began to arrive. Both the Board of Education for England and Wales and the Scotch Education Department took up the work of selection and appointment, and the co-operation of the Canadian, Australian, and New Zealand Governments was obtained.[307] From this time forward the system of the camp schools was steadily extended; and on May 31st, 1902, the date of the Vereeniging surrender, when the attendance reached its highest point, more than 17,000 Boer children were being thus educated in the Transvaal camps, and more than 12,000 in those of the Orange River Colony.[308]

[Footnote 307: These imported teachers worked harmoniously with the South African teachers, whether of British or Dutch extraction; they filled the gap left by the Hollander teachers, who had returned to Europe after the outbreak of the war, and formed a valuable element in the permanent staff of the Education Departments of the new colonies. In 1903 there were 475 of these over-sea teachers at work in the two colonies, as against some 800 teachers appointed in South Africa.]

[Footnote 308: Some idea of the significance of these figures may be gathered from the fact that the highest number of children on the rolls of the Government schools of the Orange Free State was 8,157 (in the year 1898). That is to say, the British Administration in the Orange River Colony was educating one-third more Boer children in the camp schools alone than the Free State Government had educated in time of peace. Cd. 903.]

[Sidenote: Administrative progress, 1901.]

Apart from this unique and significant effort, the reports furnished by the various departmental heads to Lord Milner in December afford striking and sufficient evidence of the progress of the civil administration in both the new colonies during the year 1901. In the Orange River Colony the sphere of operations of the departments existing at the time when Sir H. Gould-Adams was appointed Deputy-administrator (March, 1901), had been increased, and new departments were being organised. A statement issued by the financial adviser on August 29th showed that for the period March 13th, 1900 (the occupation of Bloemfontein) to June 30th, 1901, the "real"

revenue and expenditure of the colony were respectively 301,800 8_s._ and 217,974 18_s._; an excess of revenue over expenditure of 83,825 10_s._ And during the half-year July 1st-December 31st the revenue collected was about one-third in excess of the actual civil expenditure.[309] The progress in education was remarkable. At the end of February, 1902, there were 13,384 children on the roll of the Government schools, camp and town,[310] or nearly 5,000 more than the greatest number at school at any one time under the Republic, and the reorganisation of both higher and technical instruction had been taken in hand. A system of local self-government had been commenced by the establishment of Boards of Health at Bloemfontein and in all districts in the protected area, while in the capital itself the Town Council was again at work. The Agricultural Department formed on July 1st, 1901, had taken over a large number of sheep and cattle from the military authorities, and a commencement of tree-planting under an experienced forester had been made. The Land Board was created in October, with two branches concerned respectively with Settlement and Repatriation. The Settlement branch was occupied especially in procuring land suitable for agricultural purposes, and its efforts were so successful that by the end of April, 1902, 150 British settlers had been placed on farms. The Repatriation branch was engaged in collecting information as to the whereabouts of the absentee Boer landowners and their families, and the condition of their lands and houses; in investigating the possibility of importing fresh stock, and in collecting vehicles, implements, seed-corn, and the other necessaries which would be required to enable the Boer population, when repatriated, to resume their normal pursuits. Also temporary courts, pending the re-opening of the ordinary civil courts, had been established.

[Footnote 309: Cd. 1,163, p. 145. The accounts were complicated by expenditure for, and refunds from, the military authorities.]

[Footnote 310: This is in the Orange River Colony alone. For the number of children in the _camp_ schools of both colonies, as apart from the _town_ schools, see above.]

In the Transvaal the work was on a larger scale. Five departments, those of the Secretary to the Administration (afterwards Colonial Secretary), the Legal Adviser (afterwards Attorney-General), the Controller of the Treasury (afterwards Treasurer), the Mining Commissioner and of the Commissioner for Native Affairs, were already organised. The progress achieved by the heads of these departments in the Transvaal, and by Sir H. Gould-Adams and Mr. Wilson in the Orange River Colony, formed collectively a record the merit of which was acknowledged by "an expression of the high appreciation of His Majesty's Government of the services which they had rendered in circ.u.mstances of exceptional difficulty."[311]

[Footnote 311: Cd. 1,163.]

It is difficult to present an account of the work already done in the Transvaal in a form at once brief and representative. The report of Mr. Fiddes, the Secretary to the Administration,[312] recorded the progress made in education, public works, and district administration.

Since July twenty-four new schools, of which seven were camp schools, eight fee-paying schools, and nine free town schools, had been opened, and 169 teachers were employed in the town schools, and 173 in the camp schools, opened by the Administration. The public buildings, including the hospitals and asylums at Johannesburg and Pretoria, the post offices and the seventeen prisons administered by the department, were being maintained and, where necessary, restored. In Johannesburg, as we have seen, a Town Council had been established, but Pretoria was still administered by a Military Governor, who controlled a temporary Town Board and the police. The Administration, however, was empowered by proclamation No. 28 of 1901 to appoint Boards of Health in places where no munic.i.p.ality existed, and it was expected that Pretoria would be endowed, before long, with the same munic.i.p.al privileges as Johannesburg.

[Footnote 312: Dated December 12th, 1901.]

[Sidenote: Legislative reforms.]

The volume of work handled in the Legal Adviser's office formed a remarkable testimony to the energy and capacity of Sir Richard Solomon. Resident magistrates' courts had been established in twelve districts; temporary courts were being held in Pretoria and Johannesburg; the offices of the Registrar of Deeds and of the Orphan Master, and the Patent Office, were reorganised; and an ordinance creating a Supreme Court, consisting of a Chief Justice and five Puisne Judges, was drafted ready to be brought into operation so soon as circ.u.mstances permitted. The chaotic Statute Book of the late Republic had been overhauled. A large number of laws, some obsolete, some impliedly repealed, but still appearing on the Statute Book, and others unsuited to the new _regime_, had been repealed by proclamation; and at the same time many ordinances dealing with matters of fundamental importance had been prepared for submission to the future Legislative Council at the first opportunity.

The report of Mr. Duncan, the Controller of the Treasury, showed that the revenue actually being collected, mainly from the customs, the Post Office, mining and trading licences, and native pa.s.ses, would provide for the ordinary expenditure of the civil administration. And, in point of fact, when the accounts were made up at the end of the first financial year of the new colonies (July 1st, 1901-June 30th, 1902) it was found that the Orange River Colony had a balance in hand of 231,000, while in the Transvaal the expenditure on civil administration[313] had been covered by the revenue, which had a.s.sumed already the respectable figure of 1,393,000.

The Departments of Mines and Native Affairs had been reorganised, and the work done by Mr. Wybergh and Sir G.o.dfrey Lagden respectively in these departments, in co-operation with Sir Richard Solomon, had produced the administrative reforms immediately required to regulate the employment of native labourers in the mines. By proclamations amending or repealing existing laws and making fresh provisions where necessary the native had been protected against oppression and robbery at the hands of unscrupulous labour-agents, and the liquor traffic, the chief cause of his insubordination and incapacity, had been effectively repressed. Considerations of public security made the maintenance of the "pa.s.s" system necessary, but modifications were introduced into the working of the system sufficient to protect the educated native from unnecessary humiliation and the native labourer from excessive punishment. In addition to this departmental work two commissions had been appointed by Lord Milner to investigate two matters of direct and immediate concern to the gold industry. The first of these, over which Sir Richard Solomon presided, was engaged in reviewing the existing gold laws, with a view to the introduction of new legislation embodying such modifications as the best local experience and the financial interests of the colony might require.

The second was employed in formulating measures necessary to provide both the mines and the community of the Rand with a water-supply that would be at once permanent and economic.

[Footnote 313: Excluding expenditure on the South African Constabulary and relief and re-settlement, and certain other charges. Cd. 1,163.]

[Sidenote: The Johannesburg police.]

There remain certain special features of the administrative reconstruction accomplished in 1901 that merit attention, as showing the degree in which Lord Milner kept in view the fundamental necessities of the situation revealed by the Land Settlement and Irrigation Reports to which reference has been made above. As part of the work of the Law Department, the Johannesburg Munic.i.p.al Police had been organised and placed under the control of Mr. Showers, the late head of the Calcutta Police.

"This fine body," Lord Milner wrote, "consists mainly of picked men from the Army Reserve, including many old soldiers of the Guards, and others who have fought in the war. The men are dressed like London policemen, but carry rifles. This odd-looking equipment is characteristic of the double nature of their duties.

On the one hand they do the work of ordinary town police, and exhibit in that characteristic the same efficiency and civility as their London prototypes. On the other hand, they have played an important part in a.s.sisting the military and the Rand Rifles in the defence of the long line, fifty miles in extent of towns and mining villages which const.i.tute the Rand district. Latterly, since the enemy have been quite driven out of this part of the country, the military portion of their duties is diminis.h.i.+ng in importance, though the danger of small raids on outlying portions of the Rand by parties coming from a distance is not yet wholly removed. On the other hand, with the return of the civil population, their work as police proper is greatly on the increase. In their struggle with the illicit liquor dealers, one of the most difficult of their duties, they have so far met with a great measure of success."[314]

[Footnote 314: Cd. 903.]

[Sidenote: South African constabulary.]

Just as here, in the case of the Johannesburg police, so in the formation of the South African Constabulary and in the reorganisation of the railways, Lord Milner had determined that no opportunity of adding to the permanent British population of the two colonies should be lost. The South African Constabulary was formed in October, 1900, by General Baden-Powell, mainly on the lines of the Canadian North-West police, for the protection of the settled population in the new colonies. Since July, 1901, however, when it had been called out for military service, this force, at the time some 9,000 strong, had been employed as part of the army under the direction of the Commander-in-Chief, although its organisation, finance, and internal discipline were dealt with by the High Commissioner. The men recruited for the Constabulary were of British birth, and every endeavour was made in the selection of recruits to secure persons who were adapted by pursuits and character to become permanent and useful colonists. It is interesting to note that a body of 500 burgher police, consisting of former burghers of the Orange Free State, and placed under the colonel commanding the Orange Colony division, had been a.s.sociated with the Constabulary during the time that they were thus serving with the troops. Nor is it necessary to point out that the military experience, the knowledge of the country, and acquaintance with the life of the veld which the Constabulary gained at this period, largely contributed to the efficiency which they displayed afterwards in the discharge of their regular duties.

But of all the reconstructive work accomplished in this year of continuous and hara.s.sing warfare, the reorganisation of the railways was perhaps the most essential and the most successful in its immediate results. Although the railways of the two new colonies remained entirely under the control of the military authorities, their future importance to the civil administration was so great that, as Lord Milner wrote,[315] "questions affecting their organisation and development naturally claimed his constant attention." And this all the more, since Sir Percy Girouard, the Director of Military Railways, had been chosen by the Home Government to undertake the management of the joint railway system of the two colonies so soon as it was handed over to the civil authorities. The work accomplished included the repair of the damage inflicted by the enemy, the increase and improvement of the rolling-stock, the reorganisation of the staff of European employees, and the construction of new lines required for the industrial development of the country. Apart from 102 engines and 984 trucks, the Boers had destroyed many pumping-stations and station buildings, 385 spans of bridges and culverts, and 25 miles of line.

These injuries to the "plant" of the railways were repaired "in an absolutely permanent manner," and orders had been placed in August for 60 engines and 1,200 trucks over and above those required to replace the rolling-stock destroyed by the enemy.[316] As the staff employed in the time of the Republics had been "actively engaged on the side of the enemy, and were animated by an exceedingly anti-British spirit,"[317] they had to be almost entirely replaced.

[Footnote 315: December 14th, 1901. Cd. 903.]

[Footnote 316: The new rolling-stock was paid for out of the grant-in-aid voted in August, 1901. The first of the new lines constructed was that from Bloemfontein to Basutoland, opening up the rich agricultural land known as the "conquered territory" on the Basuto border in the Orange River Colony, where many of the new British settlers had been established.]

[Footnote 317: The completeness with which the Netherlands Railway Company had identified itself with the Government of the South African Republic is well expressed in the reply of Mr. Van Kretchmar, the General Manager of the N.Z.A.S.M., to a question put to him by the Transvaal Concessions Commissioners: "We considered that the interests of the Republic were our interests" (Q. 612). Many of these railway employees were, of course, imported Hollanders.]

[Sidenote: Reorganisation of railways.]

"But," Lord Milner continues, "the many difficulties incidental to the organisation of a large new staff, unaccustomed to work with one another, are being successfully overcome, and business is carried on with a smoothness which gives no indication of the internal revolution so recently effected. The new railway staff comprises some 4,000 men of British race, including 1,500 Reservists or Irregulars who had fought in the war, and who, with other newcomers, form a permanent addition to the British population of South Africa."

Thanks to the blockhouse system, supplemented where necessary by armoured trains, the mail trains from the ports to Johannesburg were running almost as rapidly and as safely as in time of peace. But the demands of the military traffic were so enormous that opportunities for ordinary traffic were still rigorously restricted.

"Military requirements in food supplies, remounts and munitions of war," Lord Milner wrote, "represented 29,000 tons weekly from the ports; while the movements of men and horses to and fro over the [then] huge theatre of war were as constant as they were sudden."

None the less the civil traffic was increasing. While in August only 684 refugees had returned, in November the number had risen to 2,623; and while in August the tonnage of civil supplies forwarded to Bloemfontein and the Transvaal was 4,612, in November it was 8,522.

This result, moreover, had been obtained with the old rolling-stock, and a much more rapid progress was antic.i.p.ated in the future, since the additional rolling-stock had already begun to arrive. And in antic.i.p.ation of this increased rate of progress, the Commander-in-Chief had

"now seen his way to allow the mines to start 400 fresh stamps per month, as against an average of under 100 in previous months, and had also consented to the grant of 1,600 permits a month (representing about 4,000 persons) for return to the Transvaal."

In addition to the repair and reorganisation of the lines running to the coast, the Transvaal collieries had been re-opened and the coal traffic had been resumed. Not only had progress been made in stocking the mines with coal, timber, and machinery, preparatory to the full resumption of working activity, but the large unemployed native population found in Johannesburg at the time of Lord Milner's arrival had been utilised for the construction of a new and much-needed coal line, which ran for thirteen miles along the Rand.

"This short line," Lord Milner wrote, "would have no less than thirty to forty miles of sidings leading from it to every important mine, and securing direct delivery of about 1,000,000 tons of coal per annum, as well as of a large tonnage of general stores."

[Sidenote: Development by railways.]

And then follows a statement of the part to be played by railway construction in the policy of material development, which was pursued with such determination by Lord Milner after the restoration of peace.