To the average English Member of Parliament, the passing of an Act for establishing a Department of Agriculture and other Industries and Technical Instruction in Ireland and for other purposes connected therewith, probably signified little more than the removal of another Irish grievance, which might not be imaginary, by the concession to Ireland of an equivalent to the Board of Agriculture in England. In reality the difference between the two institutions is as wide as the difference between the two islands. The chief interest of the new Department consists in the free play which it gives to the pent-up forces of a re-awakening life. A new institution is at best but a new opportunity, but the Department starts with the unique advantage that, unlike most Irish institutions, it is one which we Irishmen planned ourselves and for which we have worked. For this reason the opportunity is one to which we may hope to rise.
Before I can convey any clear impression of the part which the Department is, I believe, destined to play on the stage of Irish public life, it will be necessary for me to give a somewhat detailed description of its functions and constitution. The subject is perhaps dull
To accomplish the first object, two distinct Government departments, the Veterinary Department of the Privy Council and the Office of the Inspectors of Irish Fisheries, were merged in the new Department. The importance to the economic life of the country of having the laws for safeguarding our flocks and herds from disease, our crops from insect pests, our farmers from fraud in the supply of fertilisers and feeding stuffs and in the adulteration of foods (which compete with their products), administered by a Department generally concerned for the farming industry need not be laboured. Similarly, it was well that the laws for the protection of both sea and inland fisheries should be administered by the authority whose function it was to develop these industries. There was also transferred from South Kensington the administration of the Science and Arts grants and the grant in aid of technical instruction, together with the control of several national institutions,
The desirability of bringing order and simplicity into these branches of administration, where co-related action was not provided for before, was obvious. A few years ago, to take a somewhat extreme case, when a virulent attack of potato disease broke out which demanded prompt and active Governmental intervention, the task of instructing farmers how to spray their potatoes was shared by no fewer than six official or semiofficial bodies. The consolidation of administration effected by the Act, in addition to being a real step towards efficiency and economy, relieved the Chief Secretary of an immense amount of detailed work to which he could not possibly give adequate personal attention, and made it possible for him to devote a greater share of his time to the larger problems of general Irish legislation and finance.
The newly created powers of the Department, which were added to and co-ordinated with the various preexisting functions of the several departments whose consolidation I have mentioned above, fairly fulfilled the
For all the administrative functions transferred to the new Department moneys are, as before, annually voted by Parliament. Towards the fulfilment of the second purpose mentioned abovethe development of the resources of the country upon the principles of the Recess Committeean annual income of£166,000, which was derived in about equal parts from Irish and imperial sources, and is called the Department's Endowment, together with a capital sum of about £200,000, were provided.
It will be seen that a very wide sphere of usefulness was thus opened out for the new Department in two distinct ways. The consolidation, under one authority, of many scattered but co-related functions was clearly
The very nature of the work which the Department was called into existence to accomplish made it absolutely essential that it should keep in touch with the classes whom its work would most immediately affect, and without whose active co-operation no lasting good could be achieved. The machinery for this purpose was provided by the establishment of a Council of Agriculture and two Boards, one of the latter being concerned with agriculture, rural industries, and inland fisheries, the other with technical instruction. These representative bodies, whose constitution is interesting as a new departure in administration, were adapted from similar continental councils which have been found by experience, in those foreign countries which are Ireland's economic rivals, to be the most valuable of all means whereby the administration keeps in touch with the
The Council of Agriculture consists of two members appointed by each County Council (Cork being regarded as two counties and returning four members), making in all sixty-eight persons. The Department also appoint one half this number of persons, observing in their nomination the same provincial proportions as obtained in the appointments by the popular bodies. This adds thirty-four members, and makes in all one hundred and two Councillors, in addition to the President and VicePresident of the Department, who are ex-officio members. Thus, if all the members attended a Council meeting, the Vice-President would find himself presiding over a body as truly representative of the interests concerned as could be brought together, consisting, by a strange coincidence, of exactly the same number as the Irish representatives in Parliament.
The Council, which is appointed for a term of three years, the first term dating from the 1st April, 1900, has a two-fold function. It is, in the first place, a deliberative assembly which must be convened by the Department at least once a year. The domain over which its deliberations may travel is certainly not restricted, as the Act defines its function as that of discussing matters of public interest in connection with any of the purposes of this Act. The view Mr. Gerald Balfour took was that nothing but the new spirit he laboured to evoke would make his machine work. Although he
The second function of the Council is exercised only its first meeting, and consequently but once in three years. At this first triennial meeting it becomes an Electoral College. It divides itself into four Provincial Committees, each of which elects two members to represent its province on the Agricultural Board and one member to represent it on the Board of Technical Instruction. The Agricultural Board, which controls a sum of over £100,000 a year, consists of twelve members, and as eight out of the twelve are elected by the four Provincial Committeesthe remaining four being appointed by the Department, one from each provinceit will be seen that the Council of Agriculture exercises an influence upon the administration commensurate with its own representative character. The Board of Technical Instruction, consisting of twenty-one members, together with the President and Vice-President of the Department, has a less simple constitution, owing to the fact that it is concerned with the more complex life of the urban districts of the country. As I have said, the
The two Boards have to advise upon all matters submitted to them by the Department in connection, in the one case, with agriculture and other rural industries and inland fisheries, and, in the other case, in connection with Technical Instruction. The advisory powers of the Boards are very real, for the expenditure of all moneys out of the Endowment funds is subject to their concurrence. Hence, while they have not specific administrative powers and apparently have only the right of veto, it is obvious that, if they wished, they might largely force their own views upon the Department by refusing to sanction the expenditure of money upon any of the Department's proposals, until these were so modified as practically to be their own proposals. It is, therefore, clear that the machinery can only work harmoniously and efficiently so long as it is moved by a right spirit. Above all it is necessary that the central administrative body should gain such a measure of popular confidence as to enable it, without loss of influence, to resist proposals
The other statutory body attached to the Department has a significance and potential importance in strange contrast to the humble place it occupies in the statute book. The Agriculture and Technical Instruction (Ireland) Act, 1899, has, like many other Acts, a part entitled Miscellaneous, in which the draughtsman's skill has attended to multifarious practical details, and made provision for all manner of contingencies, many of which the layman might never have thought of or foreseen. Travelling expenses for Council, Boards and Committees, casual vacancies thereon, a short title for the Act, and a seal for the Department, definitions, which show how little we know of our own language, and a host of kindred matters are included. In this miscellany appears the following little clause: For the purpose of co-ordinating educational administration
Now the real value of this clause, and in this I think it shows a consumate statesmanship, lies not in what it says, but in what it suggests. The Committee, it will be observed, has an immensely important function, but no power beyond such authority as its representative character may afford. Any attempt to deal with a large educational problem by a clause in a measure of this kind would have alarmed the whole force of unco-ordinated pedagogy, and perhaps have wrecked the Bill. The clause as it stands is in harmony with the whole spirit of the new movement and of the legislation provided for its advancement. The Committee may be very useful in suggesting improvements in educational administration which will prevent unnecessary overlapping and lead to co-operation between the systems concerned. Indeed it has already made suggestions of far-reaching importance, which have been acted upon by the educational authorities represented upon it. As I have said in an earlier
There remains to be explained only one feature of the new administrative machinery, and it is a very important one. The Recess Committee had recommended the adaptation to Ireland of a type of central institution which it had found in successful operation on the Continent wherever it had pursued its investigations. So far as schemes applicable to the whole country were concerned, the central Department, assuming that it gained the confidence of the Council and Boards, might easily justify its existence. But the greater part of its work, the Recess Committee saw, would relate to special localities, and could not succeed without the cordial co-operation of the people immediately concerned. This fact brought Mr. Gerald Balfour face to face with a problem which the Recess Committee could not solve in its day, because, when it sat, there still existed the old grand jury system, though its early abolition had been promised. It was extremely fortunate that to the same minister fell the task of framing both the Act of 1898, which revolutionised local government, and the Act of 1899, now under review. The success with which these two Acts were linked together by the provisions of the latter forms an
The local authorities created by the Act of 1898 provided the machinery for enabling the representatives of the people to decide themselves, to a large extent, upon the nature of the particular measures to be adopted in each locality and to carry out the schemes when formulated. The Act creating the new Department empowered the council of any county or of any urban district, or any two or more public bodies jointly, to appoint committees, composed partly of members of the local bodies and partly of co-opted persons, for the purpose of carrying out such of the Department's schemes as are of local, and not of general importance. True to the underlying principle of the new movementthe principle of self-reliance and local effortthe Act lays it down that the Department shall not, in the absence of any special considerations, apply or approve of the application of money . . . to schemes in respect of which aid is not given out of money provided by local authorities or from other local sources. To meet this requirement the local authorities are given the power of raising a limited rate for the purposes of the Act. By these two simple provisions for local administration and local combination, the people of each district were made voluntarily contributory both in effort and in money, towards the new practical
and refers mainly to the transaction of the fiscal business of the new local authorities. From a different point of observation I shall presently bear witness to a display of administrative capacity on the part of the many statutory committees, appointed by County, Borough, and District Councils to co-operate with the Department, which is most creditable to the thought and feeling of the people.[Footnote: See Report of the Local Government Board, 1901 2.]
It would be quite unfair to a large body of farmers in
Both for the sake of efficiency in its educational work, and of economy in administration, the Department would be obliged to lay stress on the value of organisation.
But there are other reasons for its doing so: industrial, moral, and social. In an able critique upon Bodley's France Madame Darmesteter, writing in the Contemporary Review, July, 1898, points out that even so well informed an observer of French life as the author of that remarkable book failed to appreciate the steadying influence exercised upon the French body politic by the network of voluntary associations, the syndicats agricoles, which are the analogues and, to some extent, the prototypes, in France of our agricultural societies in Ireland. The late Mr. Hanbury, during his too brief career as President of the Board of Agriculture, frequently dwelt upon the importance of organising similar associations in England as a necessary step in the development of the new agricultural policy which he foreshadowed. His successor, Lord Onslow, has fully endorsed his views, and in his speeches is to be found the same appreciation of the exemplary self-reliance of the Irish farmers. I have already referred to the keen interest which both agricultural reformers and English and Welsh County Councils have been taking in the unexpectedly progressive efforts of the Irish farmers to reorganise their industry and place themselves in a position to take advantage of State assistance. I believe that our farmers are going to the[Footnote: See Annual General Report of the Department 1900-1901, pp. 25 27.]
And it is not only for its foundation upon self-reliance that the latest development of Irish Government will have a living interest for economists and students of political philosophy. They will see in the facts under review a rapid and altogether healthy evolution of the Irish policy so honourably associated with the name of Mr. Arthur Balfour. His Chief Secretaryship, when all its storm and stress have been forgotten, will be remembered for the opening up of the desolate, poverty-stricken western seaboard by light railways, and for the creation of the Congested Districts Board. The latter institution has gained so wide and, as I think, well merited popularity, that many thought its extension to other parts of Ireland would have been a simpler and safer method of procedure than that actually recommended by the Recess Committee, and adopted by Mr. Gerald Balfour. The Land Act of 1891 applied a treatment to the problem of the congested districtsa problem of economic depression and industrial backwardness, differing rather in degree than in kind from the economic problem of the greater part of rural Irelandas simple as it was new. A large capital sum of Irish moneys was handed over to an unpaid commission consisting of Irishmen who were
I agree with those who hold that Mr. Arthur Balfour's plan was the best that could be adopted at the moment. But events have marched rapidly since 1891, and wholly new possibilities in the sphere of Irish economic legislation and administration have been revealed. A new Irish mind has now to be taken into account, and to be made part of any ameliorative Irish policy. Hence it was not only possible, but desirable, to administer State help more democratically in 1899 than in 1891. The policy of the Congested Districts Board was a notable advance upon the inaction of the State in the pre-famine times, and upon the system of doles and somewhat objectless relief works of the latter half of the nineteenth century; but the policy of the new departure now under review was no less notable a departure from the paternalism of the Congested Districts Board. When that body was called into existence it was thought necessary to rely on persons nominated by the Government. When the Department was created eight years later it was found possible, owing to the broadening of the basis of local
The two departments are in constant consultation as to the co-ordination of their work, so as to avoid conflict of administrative system and sociological principle in adjoining districts; and much has already been done in this direction. My own experience has not only made me a firm believer in the principle of self-help, but I carry my belief to the extreme length of holding that the poorer a community is the more essential is it to throw it as much as possible on its own resources, in order to develop self-reliance. I recognise, however, the undesirability of too sudden changes of system in these matters. Meanwhile, I may add in this connection that the Wyndham Land Act enormously increases the importance of the Congested Districts Board in regard to its main functionthat of dealing directly with congestion, by the purchase and resettlement of estates, the migration of families, and the enlargement of holdings.
[Footnote: Cf. ante, pp. 46-49.]
I have now said enough about the aims and objects, the constitution and powers, and the relations with other Governmental institutions, of the new Department, to enable the reader to form a fairly accurate estimate of its general character, scope and purpose. From what it is I shall pass in the next chapter to what it does, and there I must describe its everyday work in some detail. But I wish I could also give the reader an adequate
When in Upper Merrion-street, Dublin, opposite to the Land Commission, big brass plates appeared upon the doors of a row of houses announcing that there was domiciled the Department of Agriculture and Technical Instruction, the average man in the street might have been expected to murmur, Another Castle Board, and pass on. It was not long, however, before our visiting list became somewhat embarrassing. We have since got down, as I have said, to a more humdrum, though no less interesting, official life inside the Department. But let the reader imagine himself to have been concealed behind a screen in my office on a day when some event, like the Dublin Horse Show, brought crowds in from the country to the Irish capital. Such an experience would certainly have given him a new understanding of some then neglected men and things. While I was opening the morning's letters and dealing with Files marked urgent, he would see nothing to distinguish my day's work from that of other ministers, who act as a link between the permanent officials of a spending Department and the Government of the day. But presently a stream of callers would set in, and he would begin to realise that the minister is, in this case, a human link of another kinda link between the people and the Government. A courteous and discreet Private Secretary, having attended to those who have come to the wrong department, and to those who are satisfied with an interview with him or with the officer who would have to attend to their particular business,
First comes a visitor, who turns out to be a man with an idea, just home from an unpronounceable address in Scandinavia. He has come to tell me that we have in Ireland a perfect gold mine, if we only knew itin extent never was there such a gold fieldno illusory pocketsgood payable stuff in sight for centuries to comeand so on for five precious minutes, which seem like half a day, during which I have realised that he is an inventor, and that it is no good asking him to come to the point. But I keep my eye riveted on his leather bag which is filled to bursting point, and manifest an intelligent interest and burning curiosity. The suggestion works, and out of the bag come black bars and balls, samples of fabrics ranging from sack-cloth to fine linen, buttons, combs, papers for packing and for polite correspondence, bottles of queer black fluid, and a host of other miscellaneous wares. I realise that the particular solution of the Irish Question which is about to be un
The next visitor, who brings with him a son and a daughter, is himself the product of an Irish bog in the wildest of the wilds. His Parish Priest had sent him to me. A little awkwardness, which is soon dispelled, and the point is reached. This fine specimen of the bone and sinew has had a hard struggle to bring up his long family; but, with a capable wife, who makes the most of the res angusta domiof the pig, the poultry, and even of the butter from the little black cows on the mountainhe has risen to the extent of his opportunities. The children are all doing something. Lace and crochet come out of the cabin, the yarn from the wool of the mountainy sheep, carded and spun at home, is feeding the latest type of hosiery knitting machine and the hereditary handloom. The story of this man's life which was written to me by the priest cannot
And now enters a sporting friend of mine, a practical angler, who comes with a very familiar tale of woe. The state of the salmon fisheries is deplorable: if the Department does not fulfil its obvious duties there will not be a salmon in Ireland outside a museum in ten years more. He has lived for forty-five years on the banks of a salmon river, and he knows that I don't fish. But this much the conversation reveals: his own knowledge of the subject is confined to the piece of river he happens to own, the gossip he hears at his club, and the ideas of the particular poacher he employs as his gillie. His suggested remedy is the abolition of all netting. But I have
At the end of this interview a messenger brings a telegram for himself from a stockowner in a remote district.
My pigs, runs one of the most business-like[Footnote: No fiction about this, nor about the following letter to the Secretary: The Scratatory, Vitny Dept. Honord Sir, I want to let ye know the terible state we're in now. Al the pigs about here is dyin in showers. Send down a Vit at oncet.
]
So far it has been an interesting morning bright with the activities out of which the future is to be made. The element of hope has predominated, but now comes a visitor who wishes to see me upon the one part of my duties and responsibilities which is distasteful to methe exercise of patronage. He has been unloaded upon me by an influential person, upon whom he has more legitimate claims than upon the Department. He has prepared the way for a favourable reception by getting his friends to write to my friends, many of whom have already fulfilled a promise to interview me in his behalf. His mother and two maiden aunts have written letters which have drawn from my poor Private Secretary, who has to read them all, the dry quotation, there's such
One more typea Nationalist Member of Parliament! He does not often darken the door of a Government officethey all have the same structural defect, no front stairshe never has asked and never thought he would ask anything from the Government. But he is interested in some poor fishermen of County Clare who pursue their calling under cruel disadvantages for want of the protection from the Atlantic rollers which a small breakwater would afford. It is true that they were the worst constituents he hadwent against him in The Split,but if I saw how they lived, and so on. I knew all about the case. A breakwater to be of any use would cost a very large sum, and the local authority, though sympathetic, did not see their way to contribute their proportion, and without a local contribution, I explained, the Department could not, consistently with its principles, unless in most exceptionalHere he breaks in: Oh! that red tape. You're as bad as the restexceptional, indeed! Why, everything is exceptional in my constituency. I am a bit that way myself. But, seriously, the condition of these poor people would move even a Government official. Besides, you remember the night I made thirteen speeches on the Naval Estimatesthe Government wanted a little matter of twenty millionsand you met me in the Lobby and told me you wished to go to bed,
Well, I would go into the matter again very carefullyfor I thought we might help these fishermen in some other wayand write to him. He leaves me; and, while outside the door he travels over the main points with my Private Secretary, the lights and shades in the picture which this strange personality has left on my mind throw me back behind the practical things of to-day. In Parliament facing the Sassanach, in Ireland facing their police, he has for yearsthe best years of his lifedisplayed the same love of fighting for fighting's sake. In the riots he has provoked, and they are not a few, he is ever regardless of his own skin, and would be truly miserable if he indicted any serious bodily harm on a human beingeven a landlord. It is impossible not to like this very human anachronism, who, within the limitations imposed by the convenience of a citizenship to which he unwillingly belongs, does battle For Faith, and Fame, and Honour, and the ruined hearths of Clare.
The reader may take all this as fiction. I am sure no one will annoy me by trying on any of the caps I have