Against Home Rule (1912) Part 20

[Footnote 88: It is worth noting that in 1893 the Liberal Government rejected amendments moved by Mr. Whiteley to prevent existing laws for the protection of workers in factories, workshops, and mines, being repealed by the proposed Irish Legislature, and by Sir J. Gorst to reserve laws affecting the hours and conditions of labour to the United Kingdom Parliament.]

XVII

PRIVATE BILL LEGISLATION

BY THE RIGHT HON. WALTER LONG, M.P.

The argument so often and so plausibly presented in favour of Home Rule, which urges that the Imperial Parliament is overburdened with local affairs, contains an element of truth. It would, however, be more in accordance with the facts to put the case the other way round: for localities are much more seriously inconvenienced in certain respects by the necessity of referring local business to the Imperial Parliament, than the Imperial Parliament is inconvenienced by the transaction of such business, which, if we are to believe the Chancellor of the Exchequer, it neglects (vide _Nash's Magazine_, February, 1912). At the same time, to affirm that, in order to remedy what is no more than a defect in administration, it is necessary to overturn the British Const.i.tution, and to build on its ruins four semi-independent Legislatures and one supreme Parliament, is merely to exemplify the cynical imposture of partisan misrepresentation: what Mr. Balfour described as "the dream of political idiots."

There is no impartial person who does not clearly recognise that to const.i.tute a separate Parliament for Ireland (to say nothing of England, Wales, and Scotland) must necessarily result, not in the more efficient despatch of legislative and administrative business, but in perpetual friction, clogging the mechanism alike of the subordinate and the predominate body. Ireland enjoyed--or endured--an independent Parliament during eighteen years, from 1782 to 1800; and, in the result, the greatest statesmen both in Ireland and in England were forced to acknowledge that the system had in practice failed utterly; and that there remained no alternative but the Union. To that view of the situation the great majority of the Irish people, irrespective of race or creed, were converted within a year before the pa.s.sing of the Act, an event which was hailed with rejoicing. The experience of 112 years, fraught as they have been with occasional calamity and burdened with many blunders, has not produced a single valid objection to the principle of the Union, unless the survival among a diminis.h.i.+ng section of the population of the old, bad tradition of hatred towards England, and its deliberate exploitation by pledge-bound politicians, is to be regarded as a reason for sacrificing the welfare and the prosperity of both countries.

The framers of the Act of Union did not, and indeed could not, provide for every contingency. It is therefore the business of those who are determined to maintain the Union, to adjust its machinery to modern requirements. An omission of capital import was the failure to provide for the efficient promotion of private Bills. The matter was, indeed, actually considered by the authors of the Act of Union. The Duke of Portland wrote to Lord Cornwallis, Lord Lieutenant of Ireland, under date December 24, 1798, as follows:--

"One of the greatest difficulties, however, which has been supposed to attend the project of union between the two kingdoms, is that of the expense and trouble which will be occasioned by the attendance of witnesses in trials of contested elections, or in matters of private business requiring Parliamentary interposition.

It would, therefore, be very desirable to devise a plan (which does not appear impossible) for empowering the Speaker of either House of the United Parliament to issue his warrant to the Chairman of the Quarter Sessions in Ireland, or to such other person as may be thought more proper for the purpose, requiring him to appoint a time and a place within the County for his being attended by the agents of the respective parties, and reducing to writing in their presence the testimony (for the consents or dissents, as the case may be) of such persons as, by the said agents, may be summoned to attend, being resident within the County (if not there resident a similar proceeding should take place in the County where they reside), and such testimony so taken and reduced into writing may, by such Chairman or by the Sheriff of the County, be certified to the Speaker of either House, as the case may be. It seems difficult to provide a detailed Article of the Union for the various regulations which such a proceeding may require, but the principle might perhaps be stated there, and the provisions left to be settled by the United Parliament."

According to Lord Ashbourne's "Life of Pitt," the Prime Minister himself framed a scheme for const.i.tuting a Court of Appeal in Ireland, with power to examine evidence and certify all preliminaries and other matters respecting private Bills. Why the provision was not included in the Act of Union is not clear. The fact of its omission, however, proves that the necessity of resorting to the Imperial Parliament for the transaction of private business was not an objection that hindered the pa.s.sage of the Act of Union, although to-day the same omission is absurdly used as an argument in favour of the repeal of that measure. At the same time, it is true that the requirements have immensely increased in proportion as the resources of the country have been developed since 1800. The introduction of railways, telegraphs, telephones and electric appliances, together with the grant of compulsory powers to munic.i.p.alities, has involved the promotion of numerous private Bills at vast expense to Ireland. Mr. A. W. Samuels, K.C., who contributed a paper on the subject to the Statistical and Social Inquiry Society of Ireland in November, 1899, quoted some instances of the cost of private Bill legislation in Ireland:--

"The ratepayers of Dublin, of Rathmines, of Pembroke, of Clontarf, and other suburbs of the city, long will feel the burden added to their rates by the London litigation of the Session that has pa.s.sed. The Dublin Boundaries Extension Bill of 1899 has cost the city, as I am informed on reliable authority, between 12,000 and 13,000. There were twenty-four separate sets of opponents. The cost to Rathmines of its opposition approaches, I am informed, 8,000. To meet it about one s.h.i.+lling in the pound must be added to the taxation of that towns.h.i.+p. The costs of Pembroke cannot be far short of the same sum. If we add those of the oppositions of Kilmainham, Drumcondra, Clontarf, and of the County of Dublin, and of private persons and public bodies, the total expense to the inhabitants and ratepayers of the city and its suburbs will not fall short of 45,000.

"Mr. Pope, Q.C., stated before the Committee which considered the Irish Railways Amalgamation Scheme of last Session, that the Bill at hearing was costing 5 per minute. A high authority conversant with the proceedings in this case has informed me that this was an under-estimate rather than an over-estimate, having regard to the fact that there were twenty-seven separate oppositions. The Bill occupied twenty-seven working days of four hours each, and its cost to the shareholders of the promoting Company were calculated to amount to about 400 per day. What the loss was to the shareholders of other Companies, and to the ratepayers represented by public bodies, it would be impossible to say. The Bill probably cost at least 50,000. There was a Belfast Corporation Bill. There was an Armagh and Keady Railway Bill. There were several other Irish Bills before the Houses, exhausting thousands more of Irish capital, and diverting it from the material development of the country. So abnormal was the waste of Irish money on the Railway Bill that it excited general attention even in England, and became the subject of comment in Parliament. Mr. J. H. Lewis, the member for Flint Burghs, speaking on the 24th July, 1899, on the third reading of the Scotch Private Legislation Procedure Bill, said, 'I am sure everybody must have regarded with great dissatisfaction the enormous expenditure to which certain Irish Railway Companies were put during the last few weeks within the walls of the House.

Surely a better system can be devised than that which drags over from different parts of the United Kingdom a host of witnesses, who could be examined on the spot. I am sure all honourable members deeply regret this great waste of public money.'"

These disabilities have been the subject of frequent representations.

Resolutions advocating reform have been repeatedly pa.s.sed by the Irish Chambers of Commerce, by the Incorporated Law Society, and by local bodies. Leaders of the Unionist party have constantly urged the necessity of a provision for expediting and cheapening Private Bill procedure. In 1896 a deputation from the Dublin Chamber of Commerce laid the matter before Mr. Gerald Balfour, who was then Chief Secretary for Ireland. He expressed a hope that the Government would introduce a reform. In the Queen's speech of February, 1897, it was announced that Bills for amending the procedure with respect to Private Bills coming from Scotland and Ireland had been prepared. The opportunity for laying these measures before Parliament did not arise.

But in 1899 a Bill amending the procedure of Scottish Private Bill Legislation was pa.s.sed into law. The measure forms the precedent for future legislation. In the year 1900, Mr. Atkinson (now Lord Atkinson), speaking for the Government, said that the Government were--

"most favourable to the introduction and pa.s.sing of a Bill dealing with private Bill legislation for Ireland. He thought the real and substantial difficulty was the creation of the tribunal which was to sit locally and to inquire into these matters. The Irish Government thought it wise to wait until they should see what would be the effect of the operation of the Scotch Act."

Subsequent experience has proved that the Private Legislation Procedure (Scotland) Act of 1899 may well be taken for the model of a similar measure designed to apply to Ireland. The Scottish Act subst.i.tuted for procedure by means of a Private Bill, procedure in the first instance by means of a Provisional Order. Instead of applying to Parliament by a pet.i.tion for leave to bring in a Private Bill, any public authority or persons desirous of obtaining parliamentary powers now proceed by presenting a pet.i.tion to the Secretary for Scotland,

"praying him to issue a Provisional Order in accordance with the terms of a draft Order submitted to him, or with such modifications as shall be necessary."

Before the Secretary for Scotland proceeds with the Provisional Order, the draft Order is considered by the Chairman of Committee of the House of Lords, and the Chairman of Ways and Means in the House of Commons; and they report to the Secretary for Scotland whether or not the matters proposed to be dealt with by the draft Order, or any of them, should be dealt with by Provisional Order or by Private Bill. Should the Chairmen report that these matters, or any of them, should be dealt with by a Private Bill, the Secretary for Scotland, without further inquiry, refuses to issue the Provisional Order so far as it is objected to by the Chairmen; but the advertis.e.m.e.nts and notices already given by the promoters of the scheme are regarded as fulfilling (subject to Standing Orders) the necessary conditions to be observed prior to the introduction of a Private Bill. Should the Chairmen report that the Provisional Order, or a part of it, may proceed, the procedure is as follows. If there is no opposition, the Secretary for Scotland may at once issue the Provisional Order, which is then embodied in a Confirmation Bill for the a.s.sent of Parliament. If there is opposition, or in any case where he thinks inquiry necessary, the Secretary for Scotland directs an inquiry, and the Order is then considered by the tribunal described below; and if pa.s.sed by that tribunal, with or without modifications, it is brought up in a Confirmation Bill for the a.s.sent of Parliament.

It follows that in the case of unopposed schemes brought in under the Act, there is a great saving of time and expense as compared with the former system.

With regard to schemes which are opposed, the judicial functions of a Parliamentary Committee dealing with Private Bills were transferred by the Act of 1899 to a special tribunal, composed of two Panels, a Parliamentary Panel and an Extra-Parliamentary Panel, whose members shall have no local or personal interest in the questions at issue. From these is formed a Commission of four members.

Mr. A. W. Samuels, K.C., thus describes the const.i.tution of the Commission:--

"In the first instance it is provided that the members shall be taken--two from the Lords and two from the Commons. In the event of that being found impossible, three may be taken from one House and one from the other. In the next resort all may be from the same House. Finally--if members cannot be procured to serve--the extra Parliamentary Panel can be called upon, and the Commission manned from it.

"The next great reform introduced by the measure is, that the inquiry is to be held at such place, in Scotland, as may be convenient. The inquiry is to be localised as far as possible. It is to be held in public. The Commissioners are to settle questions of _locus standi_--they can decide upon the preamble before discussing clauses--and persons having a _locus standi_ can appear before them in person or by counsel or agent.

"When they have heard the evidence the Commissioners are to report to the Secretary of Scotland, and they can recommend that the Provisional Order should be issued as prayed for, or with such modifications as they may make. If there is no opposition to the Provisional Order as finally settled by the Commissioners, it is embodied in a Confirmation Bill by the Secretary of Scotland and pa.s.sed through Parliament.

"If there is opposition a pet.i.tion must be presented to Parliament against the Order, and then, on the second reading of the Confirmation Bill, a member can move that the Bill be referred to a Joint Committee of both Houses of Parliament, and if the motion is carried in the House a Joint Committee of Lords and Commons shall sit, at the peril of costs to the opponents, to hear and take evidence and decide upon the measure in the same way as in the case of a Private Bill." (Private Bill Procedure, pp. 9 and 10.)

In 1904, the Select Committee appointed to consider the provisions of a similar measure to be applied to Wales, reported that in practice the Scottish Act had proved a success, which they attributed largely to the supervision of the Provisional Orders conducted by the Scottish Office.

There would seem, then, every reason to believe that a measure framed upon the lines of the Scottish Act, to apply to Ireland, would be equally successful.

The remarkable increase in the prosperity of Ireland, which has occurred during the last twenty years, demonstrates the necessity for providing every means of encouraging the further development of the country.

All the available statistics amply confirm and corroborate the evidence of this prosperity, which is known to every man with the smallest direct acquaintance of Ireland in recent years. The figures of savings, bank deposits, external trade, all alike show the exceptional advances in prosperity now enjoyed by Ireland.

The progress of Ireland under the Union thus indicated, was inaugurated by Mr. Balfour, the best Chief Secretary Ireland ever had; to this day his name is always mentioned with respect and grat.i.tude by the people of Ireland, especially by the residents in the South and West, where his policy produced splendid and lasting results. Insufficient credit has been given to the work of agricultural and commercial development steadily pursued by Mr. Gerald Balfour; the results upon which we rejoice to-day are mainly due to the policy adopted by Mr. Balfour and his brother. This policy, coupled with the rest.i.tution of sales under the Land Act of 1903, is the one which Unionists intend resolutely to pursue.

The figures on the next page show that the increase of population in some important centres in the south and west is very small, and that in other centres there is a decrease. Ireland being mainly an agricultural country, the population tends to decrease owing to emigration, although of late years, owing to the rise in prosperity, the tendency is rather to remain stationary. At the same time, the increase of the population in the provincial towns is not commensurate with the increase of material wealth in the country.

With regard, for instance, to the increase in the number of tourists visiting Ireland, both private persons and local bodies desire to extend existing inducements and to improve the means of transit and to raise the standard of accommodation. It is clear that, under a reformed method of procedure in respect of Private Bill Legislation, enterprise would be freed from the restrictions which at present hinder its free exercise, and a substantial and a steadily increasing benefit would accrue to Ireland.

INCREASE AND DECREASE OF POPULATION OF CITIES AND TOWNS IN IRELAND HAVING IN 1901 A POPULATION EXCEEDING 10,000.

(_Census of Ireland_ 1911.)

Cities, towns, etc. Percentage of increase since 1901.

Rathmines and Rathgar 171 Portadown 162 Pembroke 134 Belfast 104 Belfast[A] 101 Dublin 64 Lisburn 62 Ballymena 45 Lurgan 30 Sligo 27 Dublin[A] 26 Wexford 26 Waterford 25 Cork[A] 23 Londonderry[A] 23 Limerick[A] 12 Clonmel 11 Cork 07 Limerick 07 Dundalk 04 Newry[A] 52 Newry 36 Drogheda 26 Galway[A] 20 Galway 13 Kilkenny[A] 10 Kingstown 09 Kilkenny 09 Waterford[A] 04

Those marked [A] are Parliamentary Boroughs.

XVIII

IRISH POOR LAW REFORM

By JOHN E. HEALY (Editor of the _Irish Times_)

An article on Irish Poor Law Reform written within the limits a.s.signed to me can only be constructive in the broadest sense. It is a serious and tangled problem: the existing system has developed in a haphazard fas.h.i.+on; there is about it hardly anything that is logical, much that is anomalous, some things that are tragic. The present conditions of the Irish Poor Law system are set forth in the reports of various Royal and Viceregal Commissions. The most important are those of the Viceregal Commission on Poor Law Reform in Ireland (1906), the Departmental Commission on Vagrancy, the Royal Commission on the Care and Control of the Feeble-minded, and the Royal Commission on the Poor Laws (Majority Report). The study of all these reports is a rather distracting business. They establish between them an urgent need for reform; on the methods, and even principles, of reform there are wide differences of opinion. I propose to set out here, so far as may be possible, a summary of those reforms on which the various reports and Irish public opinion are nearly, or quite, unanimous. Such a summary may at least help to acquaint the rank and file of the Unionist Party with the primary conditions and necessities of a work which, for historical, moral, social and political reasons, must receive the Party's early and practical attention when it returns to power.

The Unionist Party, as representing the best elements in British Government, owes in this matter a great act of reparation to Ireland.

The present Poor Law system is based on the most fatal of all blunders--the deliberate disregard of educated opinion in Ireland. The story, a very remarkable and suggestive one, is told in the Viceregal Commission's report. The Royal Commission of 1836 came to the conclusion that the English workhouse system would be unsuitable for Ireland. The Irish Royal Commissioners, including the famous Archbishop Whately, made two sets of recommendations. One set involved a compulsory provision for the sick, aged, lunatic and infirm. The other proposed to attack poverty at the root by inst.i.tuting a large series of measures for the general development of Ireland. Looking back over nearly eighty years of Irish history, we must be both humbled and astonished by the almost inspired precision and statesmans.h.i.+p of these proposals. They included reclamation of waste land and the enforcement of drainage; an increased grant to the Board of Works; healthy houses for the labouring cla.s.ses; local instruction in agriculture; the enlargement of leasing powers with the object of encouraging land improvement, and the transfer of the fiscal powers of Grand Juries to County Boards. Here we have in embryo the Irish Labourers Acts from 1860 to 1906, the Department of Agriculture and Technical Instruction, the Irish Land Acts from 1860 to 1903, the Local Government Act of 1898--reforms which Ireland owes almost entirely to the statesmans.h.i.+p (though it seems a rather belated statesmans.h.i.+p) of Unionist Governments. These Irish recommendations were ignored by the Government of the day. It sent an English Poor Law Commissioner (Mr. Nicholls) to Ireland. He spent six weeks in the country. On his return he recommended the establishment of the English Poor Law system there, and it was accordingly established.

The first Poor Law Act for Ireland was pa.s.sed on July 31, 1838. Between that year and 1851 one hundred and sixty-three Poor Law Unions were created. The number is at present one hundred and fifty-nine, and they are administered by elected and co-opted Poor Law Guardians to the number of more than eight thousand. In every Union there is a workhouse, and in that workhouse all the various cla.s.ses of dest.i.tute and poor persons are maintained. They include sick, aged and infirm, legitimate and illegitimate children, insane of all cla.s.ses, sane epileptics, mothers of illegitimate children, able-bodied male paupers, and the importunate army of tramps. The mean number of such inmates in all the workhouses on any day is about 40,000, of whom about one-third are sick, one-third aged and infirm, one-seventh children, one-twentieth mothers of illegitimate children, and one-twelfth insane and epileptic. This awful confusion of infirmity and vice, this Purgatory perpetuating itself to the exclusion of all hope of Paradise, presents the vital problem of Irish Poor Law Reform.

A radical solution must be found for it. On that point the reports of all the Commissions are unanimous. They differ, where they do differ, only as regards means to the end.

The supreme reform which must be undertaken by any Government that seeks to remove this great blot on Irish administration is the abolition of the present workhouse system on some basis which, while effective, will make no addition to the rates. The two chief reports (those of the Viceregal Commission and the Royal Commission on the Poor Laws) are in agreement, not merely as to this necessity, but as to the guiding principles of reform. They recommend cla.s.sification, by inst.i.tutions, of all the present inmates of the workhouses--the sick in hospitals, the aged and infirm in almshouses, the mentally defective in asylums.

Appalling evidence was given before the Viceregal Commission and the Royal Commission on the Care and Control of the Feeble-minded with regard to the present a.s.sociation of lunatics, epileptics, and imbeciles with sane women and children in the workhouse wards. The latter Commission recommended the creation of a strong central authority for the general protection and supervision of mentally defective persons.