Rebuilding Britain Part 5

It is essential if the workers are to make it their aim to increase production and to use every effort with that object, that they should know that of a certainty, and at once, they will get a benefit from what is done. At present it is commonly the case that in order to obtain an adequate wage the worker works overtime, and presses to have overtime work, because the rate of pay for overtime is higher, and that during the normal hours of work he does less. Cases have actually been known in which the worst cla.s.s of workmen play during the greater part of the week, and then have gone, during the War at all events, to work for the week-end, including Sunday, at a very high rate of wages at some other place. In the short time of working at abnormal rates they have gained as high wages as the steady and efficient workman who keeps steadily at work through the normal hours. As long as such conditions exist we shall not have the shorter hours which are necessary for healthy and happy life, and we shall have the friction and irritation which arise from too long hours of work. A higher rate of wages during shorter hours of work, when the work is done with vigour and efficiency, and the certainty that the wage will be increased if results are favourable, are necessary conditions for industrial welfare and industrial peace. The wage system should be so designed as to make it clear that the wage is a share in the industry's earnings which is to advance as these earnings advance. A "regulated slide of wages rising with the prosperity of the industry as a whole" would help to secure this without friction. Methods of industrial remuneration giving an a.s.surance of thus sharing the benefit of increased or more economical production are required. A valuable work on such methods, which are already very various, was published by the late Mr. David Schloss many years ago. New methods will, no doubt, be found. The problem, however, is one for judicial treatment by those who have devoted special study to it.

The methods already tried include the more general adoption of piece-wage, progressive wage arranged in various ways giving a fixed rate for the hours worked plus an additional sum proportionate to the excess of output over a fixed standard, collective piece-work, contract work, co-operative work, sub-contract, profit-sharing in various forms including special bonus, product-sharing, and industrial co-operation.

Each method should be considered on its merits, in the light of the experience already gained, and having regard to its applicability to each cla.s.s of industry. The aim and the principles which must guide endeavours to achieve it are clearly stated by Mr. Schloss:

"But while a reduction of hours of labour, say to eight hours in the day, may readily be admitted to be on grounds both economic or social highly desirable, yet it is no less desirable that during those eight hours every working man in the country shall use his best available tools and machinery, and, performing as much labour as he can perform without exerting himself to an extent prejudicial to his health or inconsistent with his reasonable comfort, produce an output as large as possible. In the interest of the people as a whole it is expedient that the remuneration of the labour of the industrial cla.s.ses shall be increased, and since this remuneration is paid out of the national income, it is a matter of great importance not only that the working cla.s.ses shall succeed in obtaining for themselves a far ampler share in the national income than they at present receive, but also that the productive powers of the working cla.s.ses shall be exercised in a manner calculated to secure that this income shall be of the largest possible dimensions."

FOOTNOTES:

[Footnote 6: This chapter is intended to refer to what may be regarded as normal conditions. In some cases the recent rise in wages has been excessive. The present position is chaotic, and the ill-advised manner in which the 12-1/2 per cent. advance was made has added to labour troubles and will cause great difficulty in the future.]

_D.--RELIGIOUS PEACE_

CHAPTER XIII

CO-OPERATION

_Children of men! the Unseen Power, whose eye_ _For ever doth accompany mankind,_ _Hath looked on no religion scornfully_ _That man did ever find._ --MATTHEW ARNOLD.

This is not the place to discuss the merits or demerits of any theological views or of any system of Church government, but the question of the influence of religion on the life of the State and the way in which and conditions under which it can be rightly exercised cannot be overlooked. There is no doubt whatever that religious influence might be a most potent and useful factor in Reconstruction, using the word in the broadest sense. There are some branches of work in which no other known influence can effect what is required. Leaving aside for the moment the fact that there are needs of humanity which religion alone can satisfy, and looking only to social improvement, the power of religion has been proved again and again, especially in dealing with the cases that seem most difficult and almost hopeless. In India, for example, there are certain debased tribes which are habitually criminal, and have, in fact, by tradition devoted themselves to the commission of crime. The only agency which has been able to effect a reclamation and improvement of these tribes is the Salvation Army, which, by general consent, even of those who have no sympathy with its particular religious views, has achieved wonderful results. There is no doubt, too, that some of the worst parts of certain seaports in our own country have been vastly improved by the same agency. This has been done by a definite appeal made on religious grounds, and those who have made it have been inspired by religious motives. It required, however, a body which had peculiar methods of its own to do it. The basis of the action, also, of such organisations as the Church Army and the Young Men's and Young Women's Christian a.s.sociations is definitely religious, and the vigorous and successful way in which their work has been carried on by such a.s.sociations is due mainly to the influence of religion. It would be well for our present purpose to treat the question from a position, whether real or a.s.sumed, of absolute detachment from any particular religious belief, and from any special religious community. Looked at even from such a detached position, it appears that the first condition required to enable religious influence to be effectively exercised is to secure religious peace. It is impossible to deny that there has been a kind of jealousy and hostility between those who hold different opinions about theological and ecclesiastical questions which injures the work of all. Anyone, for example, who was in the habit of meeting educated Indians at the time of the Kikuyu controversy could not have helped noticing the harm done to the cause of the Christian religion by that controversy. There were Indians, whose att.i.tude to Christianity before might almost have been called wistful admiration, seeing the brighter hope and fuller life it opened to all cla.s.ses, and the universal brotherhood of men which it proclaimed, who then spoke in an altered tone, and their feeling seemed to be tinged with a half-concealed and almost contemptuous pity. How much beneficial action might be taken by religious bodies acting in co-operation! There is a deep truth in a remark once made by the late Bishop of Manchester, Dr. Moorhouse, when speaking of possible co-operation on a certain matter between people belonging to different religious communities: "It would be so easy did we only recognise how large is the area covered by things on which we agree, how important they are, compared with those on which we differ."

Some have felt so keenly the injury done by religious differences that schemes have been put forward for corporate union of a number of different Churches. Such union may or may not be possible, but, even if it is, is it best to bring about such a union by any compromise under which one side gives up part of what it regards as useful and important in exchange for a similar concession on the other? May not a kind of confederation between different bodies for certain purposes, each maintaining its separate existence, be better than formal incorporation?

May there not be a unity of spirit and bond of peace between those whose views differ, without either party giving up the iota to which he may attach importance? Forms devoutly prized and helpful to one man may be repellent and a hindrance to others.

There is much to be learnt from a saying quoted by Sir Edwin Pears in writing of certain Mahommedan sects: "The paths leading to G.o.d are as numerous as the breaths of His creatures; hence they consider religious toleration as a duty." Toleration does not mean simply abstinence from the thumbscrew and the rack or even the repeal of the Conventicle or the Five Mile Act, but appreciation of the religious opinions and practices of others, and due respect for them. Without formal union there may not only be peace and goodwill between bodies which keep up their separate organisations, they might also act together heartily and effectively both in philanthropic work and in combating certain evils for which the influence of religion is the most effective cure. It is a good sign of the times that a joint volume has already been published on Religion and Reconstruction, containing essays by a number of those whose views no doubt differ widely, but who find no difficulty in uniting in a common undertaking. The book contains essays by Bishop Welldon, Dr. Orchard, Monsignor Poock, and others representing different communions, and they appear to have had no difficulty at all in a joint enterprise of this kind.

Is there any sufficient reason why the leaders of religious thought belonging to other denominations should not be invited sometimes to speak in the pulpits of the National Church? They would not use the occasion for attacking Episcopacy. Conversely it might be a wholesome thing if a Bishop or other well-known Episcopalian clergyman occasionally spoke to the great congregations in such familiar London meeting-places as the Newington Tabernacle or the City Temple. They might be trusted not to choose Apostolic Succession as their subject.

Joint religious services have already been held, and the practice might be extended. The Bishop of London has been seen in Hyde Park on the platform with representative men from the Wesleyans, Independents (it is pleasanter to use the old name rather than "Congregationalist," which may be correct, but is hideous), and Presbyterians, with a band from the Salvation Army in attendance. Such things do good, and are the best reply to the orators by the Reformers' Tree, whose most effective weapon is to sneer--not unnaturally--at the enmity amongst Christians. A "church" parade for the Volunteers has in a village been held in the Baptist chapel, and many who had never entered a Nonconformist place of worship before, felt how real "unity of spirit" did exist.

Another fruitful opportunity for joint work is in the realm of study and of theological education. This object would be promoted by the establishment in our Universities of theological faculties where a part--it may be a large part but not the whole--of the training of those who intend to enter the ministry or for other reasons to devote themselves to theological study may be carried on. Such a faculty has been inst.i.tuted with marked success in Manchester. No test is imposed except tests of knowledge, but the faculty has been said to be the most harmonious in the University. Whatever body he belongs to, whatever Church he wishes to serve, the student could not fail to gain profit from studying the language of the New Testament under a scholar like the late Professor Moulton, and would never find anything that--to use the words of the founder of the University--"could be reasonably offensive to the conscience of any student." Already the effect of such a faculty in advancing theological study and still more in uniting members of different communions in the pursuit of truth has been most marked.

There is one point, however, in considering the influence of religion on Reconstruction which must be borne in mind. Untold harm has been done in the past by the intrusion of the lawgiver or the judge into the domain of religion, and, on the other hand, by the intrusion of the minister of religion into the domain of the legislator or the magistrate. It is essential that in dealing with any question of legislation or political action the clergy and ministers of all denominations, if they take part at all, should speak as citizens, and not professionally. They, in virtue of their office, ought not to be, and they have the highest authority for not claiming to be, judges or lawgivers. They have not, and ought not to claim, any authority to decide on the lawfulness of paying tribute to Caesar; any such claim must be strenuously resisted.

The use of religious sanctions as weapons of political warfare is not wholly obsolete. We hear of it from across St. George's Channel--it should be condemned like poison gas on the battlefield. And, lastly, it must never be forgotten that there are certain things with regard to which attempted suppression by law is certain to result in evil and disaster. With regard to these things the influence of religion, on the other hand, may be all-effective if it is kept absolutely distinct from any question of legislation or of legal penalties. The spheres of religion and the criminal law must never be confused. Shakespeare, "the mirror of human nature" for all time, once blended bitter irony with infinite pathos. "Measure for Measure" has its warning for every age.

It would be well to study the ugliest as well as the most beautiful parts of that drama, and see what it really means, and what is its lesson.

Exercised within its proper sphere the influence of religion may still be as potent a force now as in the past. It may inspire the right frame of mind in dealing with every question, may encourage hope, sustain faith, and diffuse charity.

Reiterated until wearisome we hear the question asked, "What is wrong with the Church?" sometimes from outside with a tone almost of contempt, with little, or no care, for remedy if anything be wrong; sometimes from within with a note of anxiety, uncertain whether it is safe to confess openly the fact that anything can so be wrong. To the question coming from within the Church, a voice might answer from the outer galilee, "Is not what is wrong with the Church--like what is wrong with most of us--thinking, perhaps talking, too much of itself, considering what figure it makes in the world, rather than in self-forgetful devotion giving itself to the work set before it, to delivering some message in which it intensely believes as necessary for mankind?" It has been likened to a bride; is not the bride too self-conscious, thinking whether her garb is not fine enough or too fine, her possessions too small or too large, her influence too weak or opposition to it too strong? How much discussion is devoted to the question, what phrases must be repeated, what forms adopted, to pa.s.s the janitor who guards her doors! As has been truly said, the really useful reform for all of us would be that each should do his appointed work at least ten per cent.

better than he has done it before. The work to be done should be the special work a.s.signed to each and for which each is best fitted. We long for peace, but in settling the const.i.tution of a League of Nations it will be the jurist not the churchman who will help us. In aiming at political or industrial peace the practical good sense of the statesman, the employer, and the workman will best point out what is wanted; the Church, as such, is better out of the way in framing legislation. But suppose even that we establish securely international and political, industrial and social peace, is that peace all we need?

Shall we not still in youth be restless, anxious about the future of our own lives and the lives of those nearest to us, unsettled by ambitions for what we may not attain, disappointed at the little progress we make; restless all through life, disturbed by thoughts of what we desire but cannot have; restless, most of all, in age, knowing that attainment is no longer possible, and, if we have attained anything, feeling how little it is worth? Who will take for his proper sphere to show the way to a peace which may pa.s.s the understanding of those who, in disappointment and loss and vain endeavour, which will go on even if the dreams of national and social progress and improvement are realised, and alike in failure or success, will need that peace more and more as long as the life of man lasts? Sometimes we see among those round us calm faces the living "index of a mind" at peace, which make us feel that there are those working in our midst in whom that peace exists. Let her tell the way to that and the answer would be, "There is nothing wrong with the Church; she is fulfilling her mission; ever, as of old, will glad welcome greet the footsteps of him that bringeth good tidings, that publisheth peace." [7]

FOOTNOTES:

[Footnote 7: The word "Church" is used in the sense which each reader chooses to attach to it. Definition in such matters leads to dissension.]

Part III

RETRENCHMENT

CHAPTER XIV

STATE EXPENDITURE AND INCOME

_Political economy, as a branch of the science of a statesman or legislator, proposes two distinct objects, first, to provide plentiful revenue or subsistence for the people or, more properly, to enable them to provide such a revenue or subsistence for themselves, and, secondly, to supply the slate or commonwealth with a revenue sufficient for the public services._--ADAM SMITH.

Taking first the second of the two objects mentioned by Adam Smith, it will be convenient under the heading of "Retrenchment" to treat not only the question of economy in the expenditure of the State, but also the other side of the account, and consider what general lines of action should be adopted to make revenue balance expenditure, in the first place by reducing expenditure, and, in the second, by increasing revenue, in view of the fact that the absolutely necessary expenditure will be enormously enhanced to meet the interest on the National Debt.

a.s.suming that the War were to end in the spring of 1919, the debt will probably amount to about seven thousand millions after allowing for loans due from the Allies and Dominions so far as they are likely to be then recoverable. Taking interest at 5 per cent. with a sinking fund of only half per cent., it is estimated that the permanent annual charge in respect of the Debt will then be about 380 millions. No doubt part of the Debt bears interest at a lower rate than 5 per cent., but a portion has been borrowed at a higher. This is on the a.s.sumption that the War will end within this financial year. Even if the War does end within the financial year, much of the expenditure occasioned by it must go on during the period of demobilisation, and during part of that period the Debt will probably go on growing, as it can hardly be expected that sufficient revenue can be raised by taxation to meet this continued expenditure directly due to the War. There will also be for many years to come a very heavy expenditure on pensions, and, whatever other savings may be effected, the duty of providing pensions for injured and disabled sailors and soldiers is paramount, and the provision must be made generously.

It seems highly probable, therefore, that the annual Debt service will ultimately amount to nearly 400 millions, and may be much more if the War goes on over 1919. It is a gigantic burden to bear. Mr. Bonar Law has stated in the House of Commons that a loan of one thousand millions represents the labour of ten million men for a whole year, so we may take it that the annual charge for the National Debt will require the whole labour of four million men to meet it, and that this charge will be continuous for many years. The normal expenditure after the War, apart from Debt service, has been reckoned to be 270 millions. It will certainly be more unless rigid economy is practised and all the new schemes which are being proposed involving expenditure of money are carefully scrutinised to see whether the expenditure is such as the country ought to undertake in view of its financial obligations. As the Debt service will be practically constant and irreducible unless revenue largely exceeds the total annual expenditure, which is very improbable, it is clear that a strong effort must be made to reduce this expenditure and also, so far as possible, to increase the State revenue. Unless this is done there will be a deficit even after the War, and the Debt will have to be increased to meet it. There is no question of greater urgency, and it must be resolutely faced. We shall probably find a disposition, both in the Government and in Parliament, to shirk it. The influence of the extension of the electorate will, in all likelihood, be against rather than in favour of economy. There is a common a.s.sumption that people can get the State to pay for things instead of paying for them themselves; that there is no need to practise personal economy or to save because the State will provide. Wage-earners who began by practising some self-denial in order to save have said, "What is the use of troubling? The man who saves is really no better off than the man who spends all his earnings, as the State will provide what is required to meet the needs of the latter."

What, then, can be done to reduce expenditure? It is impossible to do more than indicate in outline the machinery by which this expenditure is or might be controlled. During the War, for various reasons, the regular and ordinary checks on extravagance and waste have almost ceased to operate. The situation seems to have been getting worse until the appointment of a Special Committee of the House of Commons on National Expenditure in July, 1917. The Committee consisted of men with business knowledge, and its reports have furnished valuable suggestions. On such a subject anybody who has not direct access to doc.u.ments and definite personal knowledge of the work and expenditure of various departments, and also some personal experience in State finance, may well hesitate to express an opinion, and will prefer to quote the views of those who have fuller information and better means of judging. There has been much waste; what has gone on has even been described as a "wild orgy of extravagance." The phrase has been used not only by irresponsible critics, but by business men whose words carry weight. Let us call two witnesses out of many available.

Mr. H. Samuel, in speaking of the work of the Select Committee, as late as June 19, 1918, said, in the House of Commons, "that the Committee had formed the opinion that in some cases the staffs of Government departments had been swollen beyond all estimation; that they were frequently ill-organised; that there was much waste of labour and consequently of money in their establishments; that the Treasury had not risen to the occasion during the War, and the Committee had regretfully come to the conclusion that the War Office had been adopting a deliberately obstructive att.i.tude." Mr. Runciman on the same occasion stated that "lax expenditure and loose control over distribution of public money went far beyond the immediate departments concerned. It went down into every factory, and the general effect was a scale of national extravagance from which we should recover after the War only with the greatest difficulty."

We shall not recover at all except by immediate, determined and, above all, methodical action. Small economies, as Mr. Gladstone long ago pointed out, are not to be despised. It is no doubt right to put up notices in Government offices not to put coal on the fire after three o'clock, but these savings will not go far when half a million can be thrown away on the bogs and rocks round Loch Doon with no useful result of any kind, and yet n.o.body seems to be made responsible for this waste, nor can anyone say why it was allowed. We hear again and again of improvident contracts and extravagant purchases, and also of absurd cost incurred in supervising minute details. Why cannot clear general authority to act on the spot in certain matters be given to some responsible person, instead of inst.i.tuting a system of checks which often cause great delay as well as expense? A water pipe at a camp wants some slight repair, costing less than half a sovereign. No one there has authority to give an order, a well-paid official must be sent a day's journey to inspect, and incurs expenses far exceeding the cost of the work to be done. Why is good agricultural land taken for a site when there is plenty of land near which is waste or of little value? Why does a well-known firm which has a telephone and a post-bag think it worth while to pay 15,000 for an introduction to a Government Department? Why have we heard again and again of prices paid for goods greatly in excess of the price for which they could be obtained from well-established firms in the trade? Such instances could be multiplied, but enough has come to light publicly, and been proved, to show how essential it is to have some authority to deal with such matters and stop the leakage which becomes a torrent. Apparently there has been an improvement lately in many respects, but we are yet a long way from perfection.

There will be an immense dead weight of influence against economy owing to the fact that so many persons are interested in keeping up and increasing expenditure. As was said in the debate above referred to, "It looks as if London were becoming a huge bureaucratic town where everyone will be working in some Government department or other." One might say everyone of all ages, remembering a remark made by someone entering a building near Whitehall, and seeing the crowd of girls and boys in the corridor, "I thought I was coming to a Government office, but it seems to be a creche."

For efficiency as well as for economy a thorough revision of the executive departments of the Government is necessary. There is no doubt that the present system has grown up at haphazard. It would be difficult for anyone to form a clear idea of the duties a.s.signed to or powers conferred on the various departments, to say who in each department has authority to do certain acts, or is responsible for seeing that they are done properly.

To get the best account of the executive departments in England as they existed before the War we must go to America. Professor A.L. Lowell's book may be taken as the standard work on that subject. The chapters on the Executive Departments, the Treasury, and the Civil Service give a clear and interesting account of the administrative arrangements of the British Government. He shows how new departments have grown up from time to time to meet some new want as it arose, but their powers are often ill defined. Various Boards were created, but in some cases it became an established practice that the Board should not meet, or a Committee of Council was set up and the work carried on under the supposed direction of "my Lords." It was a mere fiction. There has been no clear and consistent scheme for distributing the work of Government between the various departments on any intelligible principles.

All are spending money, some of them enormous sums. Staffs are growing inordinately, much of the work is duplicated, much consists in communications with other departments which would be unnecessary if the work of each were better defined.

It should be clear in each department who has authority to decide any particular question, to incur expenditure, to enter into binding agreements. The executive government of the country is in a chaotic state, relieved to some extent by the good sense and good feeling of the members of the great army of officials who carry it on. No one can deny that the Civil Service is not only pure, but, taken as a whole, its members individually are both able and industrious. It is better organisation that is required. Some of the new Ministries ought to be sc.r.a.pped directly the War is over, and the business of others continued only so far as necessary for winding up. But these new departments will die hard.

Since the War new departments have grown up like mushrooms, sometimes without any clear statement of their functions or powers being made, and there has not been time to settle them at leisure by a course of practice. The result is overlapping, friction which would be intolerable but for the good-natured forbearance which English people have for a state of confusion, waste of time and money in sending minutes, and in correspondence between different departments, and often delays which have had most unfortunate results. Does anyone know exactly what are the respective functions and powers of the Ministry of Reconstruction, the Ministry of Labour, the Board of Trade, the Ministry of Pensions, the Ministry of National Service, the Board of Works, the Ministry of Food Control, the Board of Agriculture and Fisheries, the War Trade Department, the Home Office, the Local Government Board, the Committee on Food Production, the Restriction of Enemy Supply Committee, the Priorities Committees, the Ministry of Munitions, etc., etc. The list might easily be extended.

A thorough revision of the executive departments is necessary if government is to be both efficient and economical. There is plenty of good material in the Civil Service, and it will always be easy to obtain more. It is the system or want of system that is wrong.

The next question is to provide or restore a more effective general control over expenditure and impose checks on the growing expenditure which has been so marked in recent years, even before the War.

The ordinary machinery for dealing with and controlling expenditure is or should be fourfold.