Social Transformations of the Victorian Age Part 3

Thenceforward in all corporate boroughs, the Town Council was chosen by resident inhabitants rated to the relief of the poor. Since 1835 the power of the magistrates in boroughs is exercised by the borough bench with an appeal to Quarter Sessions, that is, to the County. The measure did not a little towards re-establishing the popular privileges which had existed before the Tudor encroachments. London was not included in the Act. With that exception, all English towns on the Queen's accession had for two years been in the enjoyment of self-rule. Cobden is one of the many opponents of caste exclusiveness who have testified to the purity and efficiency of the unpaid magistracy in their functions of County administrators. These persons were of course never responsible to any const.i.tuent body. They satisfied the property qualification by the possession of 300 in land, or by the receipt of an income of 100 a year.

Notwithstanding the thoroughness of the work done by them on the Quarter Sessions committees for regulating extra-judicial business, they represented no interest except that of the party enjoying political power, the supreme embodiment of which was the Lord Lieutenant of the County.

Meanwhile, there had been great changes in the composition of the residents at, or in the neighbourhood of the chief provincial towns of England. The close of the Crimean War reinforced the cla.s.s now mentioned by the addition of educated, but not generally wealthy, men, who desired peacefully to spend the residue of their days in districts with which family ties made them familiar or which conveniences of sport or education rendered attractive. The absorbing powers of the capital have progressively increased during recent decades. Opulence and fashion have swollen the great public schools of the country to unmanageable dimensions. Still, to a large percentage of English parents in the upper middle cla.s.s, Eton and Harrow are not the only two possible schools of the realm; life may be lived as pleasantly, and more economically, in provincial centres like Bedford, Ipswich, Bath, or Cheltenham as within the metropolitan radius. Schools, not less than hotels, have become matters of joint stock enterprise, and of federal proprietorship. The excellent places of teaching which abound in such towns as those just mentioned are pre-eminently a product of the Victorian era. Thus it has come to pa.s.s that, at innumerable spots throughout provincial England, during recent years there have settled families, not pretending to historic antiquity or distinction, but still agreeably supplementing the social resources of the County district. Many, perhaps most of these newcomers have served the Queen in peace or war, abroad as well as at home, and are thus likely to have acquired administrative experience of different sorts. These are just the people qualified to relieve their older neighbours, the local squirarchy, in their administrative work. If the machinery for establishing County Councils had been created in the era of the Corporation Reform Act, or during the first half of the present reign, it would have been premature, would at least comparatively have failed, instead of proving, as it has done, a signal success. How this inst.i.tution works will best be judged by contrasting certain phases of County town life to-day and in the pre-County Council epoch. To visit such a town on a day when the magistrates were sitting at Quarter Sessions was like making an excursion into feudalism. One used to alight at the stable yard of the chief hotel to find no room for one's horse. The County's steeds had possession of the best stalls. They could not of course be displaced by, or consort with, the quadrupeds of less considerable riders. Inside the building, the same tale was retold and on every storey ill.u.s.trated afresh. The apartment normally the coffee room was consecrated to the exclusive use of a select party of County justices who were still at luncheon. The drawing room on the first floor was in the occupation of the women kind of their relatives who were just about to refresh themselves after shopping with a cup of tea. The member of the general public who entered the chief shops of the place on the day devoted to County customers found himself and his patronage at a discount. The tradesman, in civil terms, profoundly regretted his inability to attend to the chance comer until he had satisfied the needs of the County justices'

ladies who were expecting every moment to be called for by their lords from the Sessions House.

Socially, not less than geographically, the County continues to exist. The wives and daughters of the country gentlemen who are County J.Ps. set the fashion in their neighbourhood and are still regarded as moulded out of a clay slightly superior to that of which their neighbours consist. But as an object of fetish worship the County has in most districts disappeared.

The chief linen draper in the town, as he watches the County ladies, in their dilatory fashion, toy with one fabric after another, can scarcely suppress a look of impatience on his well disciplined face. He happens to be, not less than the father and husband of these ladies, himself a member of the new County parliament. He is exercised by a fear lest the special committee of the body on which he is serving should have decided the question of certain alterations in the approach to the local capital in which he is interested, before he has had time to get to the place of meeting. Unconsciously, perhaps, his manner towards the lady relatives of his council-colleague, the squire and magistrate, has lost something of its old deference. Still, the foundations of the social system remain the same. The fusion between cla.s.ses of which the County Council is the expression rather than the cause has not brought us appreciably nearer the revolution and the Red Republic than had been done by the earlier parliamentary reforms. Here, as in the case of the District bodies, the law of the survival of the fittest is unrepealed, amid the administrative changes of the hour. County magistrates who are specially qualified for County administration are elected to the new Councils in numbers sufficient to leaven these bodies. The service that they performed on the committees of the old Sessions is still discharged by them on the Boards that are of more recent growth. The venue of their exertions is changed.

The opportunity of their labour remains the same. Probably the a.s.sociation of County gentry with country town traders widens the view of the squires, acts as an incentive to greater energy, and is actually productive of better work. Certainly, since this machinery has been in operation the intellectual resources of the chief centres of population within the jurisdiction of the County Council have been improved. New art and science museums have come into existence. The people's parks, which were already known in country towns, are better kept. New reading rooms and libraries have opened their doors.

During the rather more than half a century that elapsed between the Corporations Act of 1835, and the Local Government Act of 1888, the chief reforms effected were in the province of sanitary administration, were mainly due to the efforts of individuals, such as Mr Stansfeld in 1872, and were generally incorporated in the Public Health Act of 1875. These sanitary measures contained the principle on which the area of the United Kingdom was finally redistributed. For the purposes of County Councils, England is mapped out into sixty-one administrative counties. Each of the electoral divisions of which the County consists has a Councillor of its own. The electors are practically almost identical with the parliamentary const.i.tuencies. In the case of munic.i.p.alities inside the County area, the Local Government Board decides the share of representation to which it is ent.i.tled, and allots to it on the Council one or more members, as the case may be. In addition to the councillors created by purely popular election, a certain number of aldermen, not to exceed one-fourth of the whole body are chosen by co-optation among the Councillors themselves. The term of Council office is three years. The chairman, however, who is not forbidden to receive a salary, holds his place only for one year. Like the District chairman, the County president too, without satisfying any pecuniary qualification, becomes, by virtue of his office, a County magistrate.[29]

Like the Council electors, the chairman and the six co-opted aldermen are subject only to the condition of having the County vote. As in parliamentary elections so in County elections, the polling is by ballot.

The incidental expenses, however, which are strictly regulated by the number of the const.i.tuency, are defrayed, not by the candidate or his friends as in parliamentary compet.i.tions, but out of a County fund. The prerogatives of magistrates in whatever appertains to the licensing of public houses, and exercised in Quarter and Special Sessions, are untouched by the new bodies. With that exception, the functions of Quarter Sessions are superseded practically by the Councils. As a consequence, the sessional attendances of the magistrates have largely fallen off; though there still exist many opportunities for joint action between the new Councils and the old Sessions. For instance, the County police is controlled by a committee whose members are selected from the old magistrates and the new Councillors. Again, when the object is to acquire fresh land for popular use; to open or endow local museums or libraries, to establish emigration funds to the Colonies or elsewhere, united action between the two bodies is usual, but not compulsory.

It has been seen already that the Local Government Board at Whitehall looks for the endors.e.m.e.nt by the County Council of the Parish Council's proposal to acquire land for allotments and, with that purpose, to obtain loans from the State purse. Similarly, the borrowing powers for less local objects of the Councils are definitely limited. The consent of the Imperial authority is needed to enable the Council to borrow for permanent works or to issue County stock. The Council's annual Budget is closely criticized not only in debate by the Councillors themselves, but by the Local Government Board. The property rated to the County Rate which is the security for all loans is inspected periodically by Imperial officers. The accounts are examined by Imperial auditors. Meanwhile, it may be conjectured justly that the considerable remnant of country gentlemen of the old school, that is, the nominated magistrates, who have seats on the new Councils, secure a salutary continuity of administration and expenditure between the new regime and that which preceded it. There is, of course, far more of local variety and of adaptability to the needs of special neighbourhoods in the composition of the Councils than it was ever possible there should be in the _personnel_ of the Quarter Session administrators. This fact would alone make it unsafe, as may be seen by one or two instances, to generalize about these bodies. If in the Midlands, in the Metropolitan shires, and in the South Western counties, power remains to a great extent in the hands of the old order, and only the tenant farmers on a large scale have influence on the Councils, the experience of the northern mining districts and of Wales is very different. Throughout the Princ.i.p.ality, as well as on the Gloucester and Monmouth frontier, the small farmers, who are Nonconformists to a man, find themselves, for the first time in their lives, a decisive power in their neighbourhood. The same is the case in Durham. Here the colliers, also for the most part Nonconformists, containing among them many of the finest, most upright, and manly specimens of the English race, practically dominate the Council of the Northern shire.[30]

CHAPTER IX

COUNTY COUNCILS AND CLa.s.s FUSION

Reasons why London was not included in the Corporation Reform Act of 1835. Popular character of its munic.i.p.al government contrasts with Royal encroachments of various periods. Various schemes and commissions of City reform since the Queen's accession. 1853 Commission alone produced practical result in the establishment in 1855 of Metropolitan Board of Works. Relations between this Board and the City. In 1888 Board of Works superseded by London County Council.

Exact relations between London County Council and the City Corporation. National and Imperial uses of Lord Mayor ill.u.s.trated.

Possible changes of the future. Cla.s.s fusion ill.u.s.trated by t.i.tled Mayors and other provincial usages.

The London County Council, which has little in common with the bodies already examined except the name, has been reserved to a chapter dealing chiefly, like the present, with the polity of the capital. For the exclusion of London from the Corporation Act of 1835, sufficient reasons, whether of principle or procedure, may be a.s.signed. To the former category belongs the fact that the City Corporation, even during the encroachments of the Tudors and the Stuarts, had, unlike other towns, maintained its original liberties. It was, amid all its vicissitudes, not, as were the corporations described above, a self chosen, but a popularly elected, body. Secondly, the Corporation Commissioners did not think that a period within three years of Lord Grey's Reform Act, before the ground swell of the excitement, caused by that measure, had subsided, was suitable for deciding complex and far-reaching issues like those presented by the civic system grouped round Guildhall. At the same time the Commissioners expressly recorded their opinion that the magnitude of the problem ought not indefinitely to postpone an attempt at its solution and that the difference between the administrative problems of the provinces and the capital was one chiefly of degree. In their separate report of 1837 the Commissioners confined their observations on munic.i.p.al London to cautious negatives. The suggestion of creating a congeries of Metropolitan munic.i.p.alities had even then been made, as it has often been renewed since. This proposal was officially condemned on the ground that it would only remove an anomaly by provoking an abuse. At the same time, certain functions of local administration were specified which, within the Metropolitan area would be performed most efficiently and economically under the control of a single authority. In 1853 a special Commission enquiring into the affairs of the City Corporation, among various, but not very definite proposals, hinted that the seven parliamentary boroughs, of which London then consisted, might supply the machinery for a heptarchy of munic.i.p.alities administratively a.s.sociated in a central Board of Works.

That body was to be composed of persons chosen by the different boroughs of the capital. No active steps were taken towards the heptarchical subdivision of the capital. But in 1855 the Metropolis Local Management Act was introduced by Sir Benjamin Hall. The result was the Metropolitan Board of Works, which remained an active power until it was superseded by or incorporated in the London County Council of 1888. All the then existing parishes and vestries of London sent members elected by the vestries to this central body. The Board of Works supplied the long desiderated unity of administration. If during its thirty-three years of rule it made many enemies, it also effected great improvements. In 1884 the Administration of Mr Gladstone produced a fresh measure of London reform. The chief feature of this was the absorption by the City of the powers of the Metropolitan Board, and the redistribution of parochial functions concentrated upon the City Corporation but now to be divided among new local bodies. This proposal proved equally unacceptable to the City which was already overburdened, and to the parochial bodies which were soon to be superseded. It had, however, advanced the question a perceptible degree; had renewed popular interest in London reform, and helped to create the public opinion which, four years later, in 1888, enabled the Cabinet of the day to include London in the Bill for establishing County Councils throughout the kingdom.

In the provinces, as has been seen, the County Councils practically have taken over the civil and administrative duties of magistrates formerly exercised at Quarter Sessions, but have in no way touched the judicial functions of these gentlemen as representatives of the Queen's justice.

In the same way, the London County Council has left absolutely unimpaired the judicial power of the Lord Mayor and Aldermen organized in their various courts to execute and administer the civil and criminal law according to the historic traditions of the capital. The Common Council of London City has, therefore, to-day the powers which belong to an ordinary borough council. Outside the City limits, the London County Council with respect to drainage, sanitary arrangements generally, new streets and local improvements of all kinds, in courteous, rather than compulsory, concert with the City discharges the functions of the former Board of Works, or of a County Council in the provinces.

That this friendly a.s.sociation between the two Metropolitan bodies, the old and the new, should be practicable is what a knowledge of the past would lead one to expect. In civic affairs London has always been an encouragement and example to provincial townships. The magnitude of its area, the preoccupation of its inhabitants with the complex interests and exhausting activities of their daily life render London, as Cobden and others have always discovered, an impracticable headquarters for political agitation. But long before our great provincial centres had been possessed with that intense feeling of corporate life which is now the boast of Manchester or Liverpool, Birmingham, Sheffield, or Leeds, the traders who did their business under the shadow of Guildhall were united by a citizenship scarcely less stimulating and constraining than that of the little Republics of old Greece. One, and each of them, they took a patriotic pride in the material perfection to which the conveniences or comforts of their existence had been brought. Thus, as Lancashire has seen with exultation the reflection of its collective life in the great cities on the Irwell, or the Mersey, the entire Kingdom and Empire have always recognized the symbol of their unity as well as of their greatness in the prosperity or in the inst.i.tutions of London City. Nor does anything more impress the mind of our foreign neighbours or our Colonial fellow-citizens than the response to appeals for help in the day of distress which issue from the Mansion House as from the heart of the English race. It is thus no exaggeration to say that the past records and contemporary services of London have proved of some moral use in promoting the success of the very latest munic.i.p.al reforms. That a final stage in the evolution of London government has yet been reached no one believes, least of all the men who completed the preliminaries for the formation of the London County Council. The Commissioners of 1886-7 have themselves pointed out the anomaly of applying to London, even though it be called a County, that form of administration which is primarily intended for provincial shires necessarily identified not with commerce and trade, but with rural pursuits and interests. The City Corporation and the London County Council will both be relieved when the existing period of transition with its occasional friction and confusion is terminated. The relations between the two bodies must necessarily be mutually those of armed vigilance rather than of cordial alliance. What is known as the Unification Commission was, it must be remembered, appointed at the instance of the London County Council. The chief points of the proposal thus made was as earlier paragraphs have shown practically to merge the City in some new munic.i.p.al body to the East of Temple Bar. As matters are, while the Lord Mayor and Aldermen are not County Councillors of London, the City of London has four representatives on the Council. These, however, are not the nominees of the Corporation, but are chosen by the ordinary civic const.i.tuency, the ratepayers. As a matter of fact, though by a coincidence, of the four present representatives on the Council of the City, one is an Alderman, and another a common Councilman. But they were not chosen in these capacities. As little therefore as the vestries or as the local boards is the Corporation directly represented in the London County Council, which was created by the Act of 1888. When, in addition to its hospitable and charitable functions, the services rendered by the City to the cause of national education are remembered; when it is considered that nearly all the great Guilds help by exhibitions to support poor students at the Universities, and that they also make regular and liberal contributions to the Science and Art department at South Kensington as well as to the Finsbury Inst.i.tute for the technical training of mechanics and artizans, the extreme unwisdom of any scheme of London reform which shall, by wounding the pride, discourage the generosity of the historic interests now mentioned, becomes self-evident.

However cordial at the different points where they are brought into contact the relations may be between the old Corporation and the new Council, it is seemingly agreed on all sides that the true method for administering that vast and not yet finally circ.u.mscribed area inhabited by what De Quincey once called 'the nation of London,' has still to be devised. The suggestions for future reform are innumerable in quant.i.ty and Protean in character. Whether the existing areas of separate control inside or outside the City gates should be maintained; whether they could be replaced conveniently by five or ten, by six or fourteen, separate munic.i.p.alities; these are the problems that, as in the past, so in the future, seem likely long to divide the minds of Metropolitan reformers.

The City Corporation has already divested itself, _e.g._ in its relations with the Commissioners of Sewers, of certain functions which normally belong to a town council. Hence, it has been suggested that this process might be continued till the Lord Mayor and Aldermen practically merged themselves in the existing County Council of the capital. In that event, the administrative jurisdiction of the County Council, instead of stopping abruptly at Temple Bar, as it now does, would stretch from the Strand to the Guildhall. From thence it would radiate throughout the region generally spoken of as the City. There does not seem much likelihood of the fulfilment of this contingency. Such a scheme could not work well unless it were embraced with practical unanimity by those whom it immediately concerned. The Lord Mayor of London, and the authorities gathered round him, naturally regard with jealousy even the apparent infringement of their historic prerogatives and immemorial dignities. Nor in the interests, not of the City alone, but of the nation at large is it desirable that anything should be done which might actually impair the prestige, or even sentimentally wound the vanity of the exceedingly useful, and uniformly patriotic and generous men who are installed by annual succession in the Mansion House. The lofty attributes with which the French press and stage have invested the Lord Mayor are not entirely caricature. They indicate corresponding realities. The Lord Mayor has always been and remains to-day far more than the local head of a great munic.i.p.ality. In all parts of the Three Kingdoms, he, with his colleagues, controls territorial estates equal in extent, and far more than equal in revenue to a Continental Duchy. The Guildhall, with its library and museum; the Mansion House; schools and inst.i.tutions like the City of London School, Ward's City of London School for Girls, the Guildhall School of Music; these are only a few of the foundations that are naturally presided over by the Lord Mayor. They all exist, not so much for the glory of the City, as for the service of the community. Possibly it might be useful to cla.s.sify the complicated functions of the Sovereign of the City. It would then be seen how far the principle of devolution could be applied to his various attributes in their daily exercise. There are those who have imagined that within the empire of the Lord Mayor of the future there might be created subordinate munic.i.p.alities which would act as local committees under his central control.

Few better proofs of the general intelligence and efficiency of the County Councils could be given than the wisdom with which they have discharged an educational duty of the first importance imposed upon them by a new parliamentary statute. The Customs and Excise Act of 1890 placed certain funds for the development of technical instruction at the disposal of the Councils. That duty in the opinion of the critics at Whitehall was performed so efficiently as to suggest the formation of committees from the Councils to ascertain local needs of technical training as well as practically to control, in the place of School Boards, the elementary education of the Kingdom. The Measure wherein that proposal was embodied, the Education Bill of 1896, has been withdrawn. The tribute to the capacity of the Councils remains. The educational functions with which it was suggested to charge these bodies, will without doubt, some day be performed by them.

The wholesome fusion of cla.s.ses promoted in the country villages and towns by recent local government reforms has been already noticed. The same tendency has been pleasantly ill.u.s.trated at other points in the social scale. The legislation of 1888 neither diminished the prestige nor trenched upon the province of the Imperial Parliament. The only point at which it can be said to have touched that body was the process connected with the acquirement of land for public purposes by Parish Councils. Here, it will be remembered; if the order, decided on by a majority of the Parish Councillors, is ratified by the County Council; if, after that, it pa.s.ses the ordeal of the Local Government Board; then the Whitehall department issues its sanction for the purchase of the land in question.

That order has forthwith the validity of an Act of Parliament, without having gone through the different stages incidental to legislation at Westminster.

Meanwhile, hereditary legislators have to a considerable extent practically interested themselves in, and placed their experience at the disposal of, the County Councils; just as, with regard to Parish Councils, the clergy and gentry have been seen a.s.sisting at the deliberations of their tenants or their flock. The first chairman of the County Council of London, Lord Rosebery, only abdicated that office to become Prime Minister. Among his successors were the former permanent head of the Board of Trade, Lord Farrer, the Vice-President, Sir J. Hutton and Sir Arthur Arnold. The same process of social amalgamation has been witnessed in the provinces not less signally than in the capital. The premier peer of England, the Duke of Norfolk, has been Mayor of Sheffield. Lord Derby has filled the same office at Liverpool. Lord Windsor, in succession to Lord Bute, has been Mayor of Cardiff. Lord Beauchamp has presided over the Corporation of Worcester. Lord Hothfield, one of the largest landowners in Westmorland, has been Mayor of Appleby. Lord Lonsdale has been Mayor of Whitehaven, Lord Zetland has held the same position at Richmond. Lords Dudley, Ripon, Warwick, and Crewe, have presided each of them over the Corporations of the towns from which respectively they derive their t.i.tles. If this be a reversion to an earlier usage of the aristocracy in England, the precedent had been almost forgotten before the practice was revived. The a.n.a.logy that to most persons will more readily have suggested itself is rather that of the cities of mediaeval Italy; when the commercial community of Genoa was presided over by a lineal descendant of the Doges; when a Doria was at the head of the munic.i.p.ality of Rome; when Milan and the Lombard capitals, which first instructed England in arts of luxury and in modes of splendour, were controlled by Magistrates whose pedigrees might have stretched back beyond the Empire to the cla.s.sical Republic. If the civic a.s.sociation of the t.i.tular n.o.bility with the new democracy of England were not popular it could not exist; and t.i.tled Mayors would cease to be returned by popular const.i.tuencies. If on the other hand the munic.i.p.al compliments failed to bring with them to their recipients an opportunity of usefulness as well as a sense of honour, they would not be accepted. The plain historical truth is that the patrician landowners of England have recognized the opportunity of removing the remnant of traditional estrangement between themselves and the ma.s.ses of their countrymen of which so much was heard during the years immediately following the new Poor Law of half a century since. Of that sentiment, little known except by hearsay to the present generation, the most vivid, and not the least trustworthy record is still to be found in a fiction already mentioned in these pages, Mr Disraeli's _Sibyl_. Nothing but reciprocal good can come of these relations between the cla.s.ses and the ma.s.ses, to apply to them the distinguishing terms used by Mr Gladstone.

An apprenticeship to the routine work of munic.i.p.al affairs in view of the changed subject matter of the questions of the day is more likely to prove practically serviceable for those born into the condition of hereditary statesmen than a course of diplomatic lounging in the Courts and Chanceries of the world, or even than the grand tour which now extends from Calcutta in one direction to Chicago in another. The cla.s.s fusion that is so signally the social product of the present reign has culminated in the conditions which, in the fulness of time, legislation has rather recognized than produced. Long before provincial self government was established upon the lines indicated by the Acts of 1888 and 1894, the spirit which in 1867 prompted Edward Denison to take up his dwelling in Whitechapel had been exemplified by philanthropists of both s.e.xes in London and elsewhere. The sister of Mr Chamberlain is one of several ladies at Birmingham who systematically co-operated for purposes of house to house visiting in the poorest quarters of the town that they might practically instruct the wives and daughters of working men in the arts of domestic management, and in the possibility of keeping the humblest homes happy, healthy, comfortable and clean. Similar organizations have done a like work in Manchester, Liverpool, Sheffield, Leeds, and no doubt in all our great centres of population.[31]

CHAPTER X

THE SOCIAL FUSING AND ORGANIZING OF THE TWO NATIONS OF 'SIBYL'

Exterior of a University settlement in the East End. The scene in the street. Various functions of the University settlers within. General supervision of health arrangements; putting the law in motion to that end. Conciliation between masters and men. The higher culture for East End pupils. Coaching a Bethnal Green four. Earlier efforts in this direction. S.W. slum boys in Belgravian drawing rooms. The young lady and the ubiquitous jockey. The settlements and clubs of to-day at the East End of London foreshadowed by earlier organizations in the provinces by the agencies of the Christian socialists; the working man's colleges, etc. The inside life of settlements and clubs to-day.

Schools of character to all concerned. General a.n.a.logy between West End and East End clubs. Some details of the good work done for, and by, both s.e.xes, young and old. A City missioner's testimony. Then and now in the East End. A. Toynbee; T. H. Green and this movement. Rules suggested by personal experience for the conduct of this intercourse between different cla.s.ses.

In a street broad and clean, as many of those at the extreme East End of London are, but still in the heart of an unmistakably poor, often a squalid quarter, is a house which, resembling its fellows in architecture, presents even as to its exterior the appearance of being inhabited by persons of a better sort. On the pavement outside groups of men, women and boys are waiting for admission. The door is opened presently, not by a servant of either s.e.x, but by a person, evidently a gentleman, in the prime of early and athletic manhood. The men and women are introduced into a room on the ground floor. Their host hears perhaps of a fever having broken out not a hundred yards off; of a home distrained upon for unpaid rent by an impatient landlord, or gutted of its furniture by the broker's man, of a local inspector's failure to order the demolition of dwellings unfit for human habitation, of a strike imminent near the Docks, and likely in its results to leave tens of households without clothing or food. If this be the tale poured into the ears of the young Oxford or Cambridge graduate, he at once hurries off to see whether his personal influence, strengthened as it is by some years of varied local experience, cannot move the landlord to give his tenants one more chance; or whether the tact, that is not likely to grow rusty from lack of practice, cannot promote a compromise between masters and men; or whether the knowledge of munic.i.p.al law, acquired by many months of careful reading, with the help of local ill.u.s.trations, cannot be so brought to bear upon the parochial officer as to induce him duly to execute the letter of the Sanitary Statute.

If none of these things have to be done the lads may be called into the chamber which serves the resident for the purpose of study and pupil-room.

It is, in fact, just such another den as very likely may have been occupied by our graduate a couple of years ago when he was an Eton master and saw his private pupils at his quarters in Keate's Lane. It by no means follows that the subject of his conversation with these East End lads is primarily scholastic or strictly educational. The University resident at the East End has brought with him the taste for athletics of all kinds which he acquired on the Isis or the Cam. He devotes as much time to teaching his East End pupils cricket or oarsmanship as to awakening and satisfying their interest in learning or letters. He and his party are therefore very likely to be seen taking the omnibus or rail if the afternoon be fine, to Putney or Hammersmith, where the spectators on the bank will soon be cheering a Bethnal Green four practising starts with a Leander or a University crew.

The building of whose interior a glance has been given is probably the hired house in which two or three members of the Academic or Public School settlement live. It may be one of the many clubs for adults, for boys or girls, which to-day are scarcely less common in the purlieus of Poplar than are clubs of a different sort in St James's or Pall Mall. These inst.i.tutions are among the chief instruments of civilization on which the new settlers rely. No one now doubts the service to the manners and the morals of the upper cla.s.ses rendered by the joint-stock caravanserais of the West End. Three bottle men, as readers of Thackeray may see for themselves, lasted throughout the epoch of coffee houses. They very generally disappeared with the replacement of coffee houses by clubs, and with the early adjournment from the dinner table to the smoking room. A club-man in his cups was found to be a nuisance. A new public opinion was created against an old vice. Protracted potations rapidly became, as Hamlet desired, more honoured in the breach than in the observance, till a toper in St James's became as rare as a bishop in a billiard room. An a.n.a.logous reform in the East End as in the West has been worked by a like agency. The fittings and the environments of the inst.i.tution differ in the two regions. Their moral influence is identical in both. In this matter, too, as in so many other modes of social improvement, the Metropolis followed the lead of the provinces. East End clubs, in contradistinction to boozing-dens, existed indeed long before University settlements were known, or before Edward Denison's first visit to Whitechapel was paid; but not before at Lancaster in 1860, the Working Men's Mutual Improvement and Recreation Society had flourished for some little time. In like manner, the University settlements now spoken of, had been preceded by the organized efforts of the Rev. F. D. Maurice, Thomas Hughes, and other representatives of what was then called Christian socialism, to establish by the college for working men in Great Ormond Street a living connection between University influence and industrial well being. Even working men's colleges had existed in the country before F. D. Maurice made his London experiment. Sheffield witnessed the first of these during the early fifties. Oxford and Cambridge towns were not long behind. Thus the promoters of academic settlements were not without the benefit of the experience of their earlier predecessors as well as of the public spirited a.s.sociation of their contemporaries. The Working Men's Club and Inst.i.tute Union had been founded in 1862 by Lord Brougham and Lord Lyttelton. Much of the machinery, as well as a nucleus, for the endeavours of the settlers of a latter day was ready to their hands before they began their work. But the idea of the combination of gymnasium with club, and of the subordination of the roughest kind of physical exercise to the ends of social culture had not been ill.u.s.trated on any extensive scale before inst.i.tutions like the Repton or the Oxford House clubs were controlled by men who took this way of doing honour to the name of their University or their school.

Before this, ladies living in Belgravia, revering the memory and example of Maurice, were in the habit of inviting to their drawing rooms from the alleys and by-ways in which the fashionable district abounds poor boys who could not be tempted, even with the bait of magic lanterns, to the night school. The work was found to be rather too exacting. The chivalry of street boyhood did not, as might have been foreseen, prevent the urchins from gratifying their sense of fun at her expense in the drawing room of the amateur teacher. The joke of giving, as their names, those of the famous jockeys of the hour, Fordham, Archer, Cannon, as the case may be, proved too good to be resisted. Gravity, once disturbed, could not be restored. The pupils could do nothing but laugh at each other's fun. Their would-be instructress had to acquiesce in their removal when the servant came to clear away the tea things. A public feeling in favour of order and even cleanliness has long since been generated in the boys' clubs controlled by the University settlers. First the prejudice against collars as an article of attire goes out; then a feeling in favour of washed hands sets in. In the recreation rooms upstairs boxing gloves are provided as a safety valve for the escape of the superfluous humours of Arab animalism.

Then by slow degrees comes the hour when bagatelle boards may be introduced without danger of their being used for the breaking of heads, or of the bagatelle cues being employed for the perforation of the lath-and-plaster walls instead of for the propulsion of the ivory b.a.l.l.s.

The parents are provided with the same sort of accommodation as their children. The adult clubs are chiefly of two kinds. In some, the first purpose is political. In that case the society becomes an agency for the propagation of Radical ideas, and probably an outwork of Trades-Unionism.

But from many of these foundations politics, which are generally synonymous with advanced Liberalism, are excluded. In the majority, if not in all, of the non-political clubs, intoxicating drinks, though under conditions they were sanctioned by the early founders, are by common agreement, prohibited also. The popularity of these clubs with the wives of their habitues is a sufficient proof of the sobering tendency of the new resorts. In all cases, the women gain scarcely less advantage from them than the men. Each club is an organization for social entertainments and hospitalities to which members are free to bring all their women-kind.

The dominant idea of the University settlement to which these clubs are subsidiary, is to give the poorest and most densely populated working cla.s.s districts the benefit of a resident gentry such as, in the clergyman or the squire, is generally commanded in rural parishes. The local separation between employer and employed; the fact that the workers do not, as they used to do, dwell to-day within sight of their masters, but are segregated into colonies of their own in another quarter of the capital, and have no access to persons better informed than themselves in the troubles and perplexities, big or small, of everyday existence, first prompted those who realized the perils of this situation, to make, as far as might be, common lot with their less fortunate fellow creatures. In New York, where these societies seem to have been known longer than in England, the phrase employed is Neighbourhood Guild. To obtain the local knowledge which can alone enable the most wise or charitable to give effective help, habitual residence under conditions and in neighbourhoods identical with the cla.s.s to be benefited is absolutely necessary. The University settler becomes in fact a sort of Delphic Oracle, consulted on all embarra.s.sing contingencies by the entire neighbourhood. To vary the simile, the enquiries made of him are not less various than the questions which the editor of a popular print undertakes to answer in his Correspondence column. The doubts and complications arising out of the law of landlord and tenant, especially out of that enigmatic being, the compound householder who so long obstructed the path of Household Franchise, require a practical knowledge of often abstruse legal points and sometimes compel resort to a professional solicitor. The precise steps necessary to put in motion the Statute for the removal of hopelessly insanitary dwellings are not likely to be within the knowledge of the dwellers by the Docks. These are only a few of the knots which for the instruction of those he has chosen for neighbours, the University settler must be prepared to untie. And this is only one of the duties which he actually performs. He not only takes part in the munic.i.p.al government of his neighbourhood; he helps others to take part in it, too. Already he has himself sat on School Boards and trained grown-up pupils to fill his place.

Nor is it always necessary to speak in the masculine gender. University settlements are no more limited to a single s.e.x than the tripos work of the Cambridge Senate House, or of the Extension lecture rooms, which enjoy the patronage of the Oxford schools. Nor is it the Universities only that are represented by these feminine settlements. The Cheltenham Ladies'

College, one of the earliest, if not the first, of that kind of public schools for English girls, has already made a sensible difference in hundreds of lives in the extreme East of the town. Among the special works of which the Cheltonians have set an example is that of enabling poor mothers to procure for their children at seasons of need not merely the conventional 'day in the country,' but a sojourn of weeks, or even months, in a healthy cottage home on the seash.o.r.e of Suss.e.x or on the fragrant uplands of Kent. The machinery for accomplishing this has now been brought to a very high point of efficiency and indeed perfection. The Cheltenham ladies and their colleagues, a.s.sociated under the respective matrons of the inst.i.tutions, have a long list of simple honest folk within a few hours' journey of London who can be trusted to look after their little charges during their stay beneath their roof, and to send back to their homes the small boys and girls visibly better than when the children were first received by their hosts. Sometimes the Guilds of the different s.e.xes may combine their efforts for hospitalities and entertainments, a magic lantern and lecture, it may be, or during the winter season a Christmas tree followed by supper and a dance, or to speak more correctly a general, though not uncontrolled, romp.

Most, if not all, of these East End clubs, which the University settlers aim at teaching their members to run for themselves, rather than indefinitely to leave their management to outside friends, are federated to a central a.s.sociation, that the late Lord Lyttelton took a prominent part in organizing. This was the body which, as has been already said, decided that stronger drinks than water should not absolutely be forbidden; but that central supervision should be exercised closely over all the establishments, and that prompt action should be taken when any breach of order, corporate or individual, was reported. The average standard of order maintained has improved, and is still improving.

Generally and individually the club members have realized that their material interest lies in checking the first beginnings of misconduct, and in dealing with the offenders not only as guilty individually of a breach of order, but as violating the first principles of collective fellowship.

Such a conviction indicates the progress made towards the creation of a healthy opinion upon social matters with those who, a few years ago, would have been p.r.o.nounced by experts to be invulnerably proof against any sentiment of the sort. East End boys are no doubt mischievous, and even destructive creatures. So, for that matter, are all boys. If their brethren of the upper cla.s.s do not break out in the same way as the urchin East Enders, that is because the march of refinement through the West End has trodden out the old race of small boys and girls, and has replaced them by little men and women whose only childhood will be reached in their dotage. The very interesting experiences recorded in the volume ent.i.tled: _The Universities and the Social Problem_[32] do indeed include some rather alarming freaks of the East End waggishness. But to the small boy in rags the process of whose reclamation from Bethnal Green barbarism to Christian civilization had only begun a few weeks since, the trick of pouring a paraffin can over a sleeping foe, and then applying a match, did not seem more of an atrocity than to a West End boy of the same age might have appeared the joke, borrowed from the pantomime stage, of placing the baby on the floor by the door for the entering nurse to tumble over, or of putting a red hot poker too close to be pleasant or even safe to the nose of an unpopular housemaid. Men like Dr Barnardo or General Booth, who both know something of Whitechapel waifs and strays, have not thought that poor children in the East End inherit an exceptional amount of original sin. Nor have they, nor others, discovered that ragged boys, nurtured on fried fish and unspeakable pudding are incapable of being disciplined into habits of obedience, truthfulness, and humanity, even though their ideas of permissible humour be not bounded by the conventional limits of gentleness and good taste. The administrators of the People's Palace, for some time after the fancy of Sir Walter Besant was translated into fact, were not always sanguine as to the feasibility of civilizing their young patrons, even through the agency of pictures or swimming baths, thick slices of bread and b.u.t.ter, buns, and fried haddock purchasable not much above, if not something below, cost price. To-day, though the social deportment in the pleasure grounds of Bethnal Green may lack the superficial polish, and the innate breeding, of the crowds at the Westminster Aquarium or the South Kensington Museum, a considerable advance is recorded on the part of the Harrys and the Harriets of Poplar and Whitechapel towards the carriage and conduct of the cynosures of less outlandish suburbs on Bank Holiday. There is no body of men who know unfashionable London better, or who deserve more honour for the service which they render to it than the members of the London City Mission. The work of these missioners, though undenominational, is religious rather than aesthetic. But they are shrewd observers of the social aspects of the neighbourhoods they visit. Their opinion of the practical results of the agencies that have here been described may be summed up in the words of a missioner to the present writer: 'It marks an epoch in East End civilization of which ten years ago Christian charity would itself have despaired.'

The functions exercised by the controlling authority of the Working Men's Club and Inst.i.tute Union are educational as well as disciplinary. There is no reason now why any one of the affiliated societies, however impecunious it may be or however impoverished the district wherein it may exist, should be without as good a library as one of Mr Mudie's subscribers, or should not know almost as much about the history and antiquities of the British capital as the late Dean Stanley himself. The controllers of the union often make liberal advances in money for the purchase of books by the local clubs. Should these funds not be forthcoming, book boxes with wisely chosen contents circulate among the members of a Home Readers'

Union. The volumes thus distributed are real literature. The subjects to which they relate are methodically mastered by the readers who themselves have selected them, and have not acted on the initiative of the more highly educated residents, Peripatetic encyclopaedias like Mr Augustus Hare or Mr Percy Fitz-Gerald are ever ready to 'take walks' with them.

Omniscient divines, such as Dean Bradley or Dean Farrar personally conduct them through their cathedrals into the heart of English history. Nor are the literary studies chosen merely because they are likely to help the student in his everyday work, and therefore improve his earnings. The biographies of the statesmen and soldiers of old Greece, the dramatic vicissitudes of the Republics of mediaeval Italy, even the philosophy as well as the language of Dante or of Macchiavelli are taken up by men after a day's manual work with an energy that would shame an undergraduate returning from a wine party to read for his Schools. This, too, seems to be the experience of American settlements as well, of Hull House, Chicago, or of Andover House, Boston. In their capacity of schools of citizenship, as well as of education, the American settlements have felt the immediate benefit of the Oxford influence and example, incarnated not only in Arnold Toynbee, but in the late T. H. Green, professor of mental and moral philosophy, whose pupil Toynbee was; while Green in his turn had been the disciple of Benjamin Jowett. Good citizenship was the ideal ever present to the late Master of Balliol in his dealings with his pupils, just as it had been present centuries earlier to Socrates in his discourses to Plato, or in his conversations with Alcibiades. Green probably made the most valuable of recent contributions to the speculative thought and science of his University, of his country, or of his generation. He was, also, a prominent and active member of the Oxford Town Council, and of other local bodies. By their lessons in the theory and practice of citizenship, taught more publicly than it fell to the lot of their master to teach, the Oxford settlers at the East End have improved upon Green's example, with much of his zeal, and not a little of his success. More than twenty years ago the East End neighbourhoods now mentioned were first visited by the present writer, to inform himself for those portions of an earlier work, relating to that part of unfashionable London.[33] Thanks mainly to the influence and teaching of the Rev. S. A., since Canon, Barnett, great improvements in the domestic economy and material fittings of the humblest households had begun, even then to be visible. The later experiences and their social results, which have now been described, have made it possible for the writer to contrast the East End of the later eighties with that of the later nineties. The scale and the precise modes of manifestation are of course widely different, but if due allowance be made for the social disparity of Mayfair and Mile End, it is no exaggeration to say that the increased attention to the prettinesses of life shown in the boudoirs and drawing rooms of fashionable London is reflected in the parlours of those purlieus now spoken of. These though their civilization be still incomplete, have to a great extent under the agencies that have here been examined, ceased to be manifestly poverty-stricken or repulsively hideous.

The discipline of character that the settlements provide for the settlers is at least as salutary as the consequences they involve for the district, whether it be in the East End, in Camberwell, or in Notting Hill, that the settlement is made. The social education for the West End club-man of his joint stock palace in Pall Mall is trivial in comparison with the training that will be administered to him by a few visits to the East End club, of which he may be made free, or of which perhaps he may himself have been a founder. The a.s.sistance of those in such a position as the University settlers is appreciated cordially by the working club-men. 'We always need, to begin with, the help of some of you gentlemen of the Oxford Settlement. Afterwards if you look in upon us from time to time, we can keep things going pretty well for ourselves.' Such is the common remark of the settler's friends. Of its practical truth there seems little doubt.

The University settler and his friends in his own station are not, however, on this account to suppose that within these clubs their society is courted as a favour or regarded as a compliment. On the contrary, the atmosphere and sentiment of the place are uncompromisingly democratic. If the West Ender, by his talk or manner contributes anything of pleasure or profit to the social pool, then he is welcomed just as he would be on the same terms in the coteries of Pall Mall, or at the dining tables of Hyde Park. If, on the other hand, there be, perhaps unconsciously to himself a suspicion of condescension in his bearing, or a too visible effort after edification in his talk, then as peremptorily as he could be among his own equals at the West End, he will be voted a bore, and shunned as a prig at the East End. The roughest specimens of Whitechapel or Ratcliffe require, not less, but rather more tact for their management, than other people need. If that be forthcoming, the youths, whose element is destruction, whose ambition is to be a professional pugilist or a champion strong man, but who seldom desert one to whom their loyalty has been given, and who are the raw material with which British officers win victories on the field against the heaviest odds, are perfectly manageable. The most aggressively republican of Arabs becomes the most gentle and gracious of fellow citizens. But if either of them detect signs of patronage among their politer visitors, their backs are at once up; metaphorically their bristles stand on end like hairs upon the fretful porcupine. Familiarity they neither expect nor wish. They would even resent it. Their view of the courtesies and proprieties of friendly intercourse do not in effect differ from those held by their superiors. They are abundantly content if these ideas are practically recognized. It is with those who are removed by a single degree in the social scale above these rough diamonds, but who consider themselves altogether their superiors, that the difficulty begins. No cla.s.s of servants are so troublesome as the footman tribe. No section of the body politic proves more vexatious than the intermediate order between the lower and the very lowest division of the middle cla.s.s.

The genuine working man in the working man's club causes none of those embarra.s.sments which one encounters upon a level rather higher than that of the outcasts of Camberwell or Notting Hill, the waifs and strays of Whitechapel or Sh.o.r.editch. If the problem of a.s.sociation is practically to be solved to the satisfaction of all those concerned, there is one golden rule always to be followed. Postulating a common amount of tact and sense on the part of the University settler, or one who essays that position, let him begin by being natural, let him shun as the presage of failure any conscious effort to place his lowlier fellow creature at his ease. Above all, let him never offer his hand to shake. He himself may think the manual overture will gratify the person to whom it is made by showing that the maker 'has no false pride.' A greater mistake there could not be, as a well-born academic socialist found out when, to demonstrate his faith in the equality of all men, he shook hands with his brother's footman on receiving his shaving water. These strained amenities are an effort to him who volunteers them, and an infliction to him who receives them, a failure and a mistake, in fact, all round. The secret of Edward Denison's and of Arnold Toynbee's influence for good with their inferiors was that they not only knew these truths, but always acted on them. Hence, by their own work, and by the generation of workers whom they raised up to follow them and at whose methods we have now glanced, so much was done to span the gulf separating 'the two nations' of the English people.

CHAPTER XI

FROM AN UNTAUGHT GENERATION TO FREE SCHOOLS

State irresponsibility for national education on, and after, the Queen's accession. Summary of early movements towards educating the people. Lancaster and Bell as pioneers of educational systems. Samuel Whitbread's faint foreshadowing of W. E. Forster's Education Act.

Brougham as educational pioneer. First State grant to Church and Nonconformist schools. Increased in 1839. Education Department completed on the principle of State aid to all schools, Protestant or Roman, satisfying State examiners. Mr Lowe at the Education Office and the grant stationary. National education the law of the land by the Forster Act of 1870. Free education under Lord Salisbury 1891.

Elementary education now organized. External change in the English landscape. Secondary education waits. Details of progress recently made towards this.

Those processes of organization which seem in all departments of national activity the special features of English life during the last half of this century have nowhere been more visible than in the educational arrangements for the long neglected ma.s.s of the English people. Slowly, with occasional relapses, yet upon the whole with sure and steady progressiveness, there is being prepared, there now seems within measurable distance of completion, the ladder that will enable any English boy and many English girls to accomplish the ascent from the gutter to the highest teaching of the University, and so to gain a position from which merit and industry, favoured by fortune, will command the highest career open to either s.e.x. All this has been accomplished within little more than half a century. Till 1833, the educational responsibilities of the State practically were ignored. In that year there was made for teaching purposes a grant of 20,000. The sum with annual increments was thenceforth dispensed annually by the Treasury to the National Society in Broad Sanctuary, as representing the Church of England, and for the Nonconformists to the British and Foreign School Society. Till a twelvemonth after the pa.s.sing of the first Reform Act, the most active of organizations for teaching the people had been the Church of England and the great Dissenting bodies as in the case of the School Society just named. The Roman Church on both sides of St. George's Channel never neglected its educational duties. The Sunday School system, to which, on the eve of the Queen's accession, thousands of working men and women owed practically all the teaching they had received, were started towards the close of the eighteenth century by a Gloucester printer, Robert Raikes. In the last year of William IV. there had died a Nonconformist, a member of the Society of Friends, Joseph Lancaster. To him and to the English clergyman a.s.sociated with him, Andrew Bell, founder also of the Bell Cla.s.sical Scholarship at Cambridge, were due the first beginnings of a scheme of instruction for the whole English people.