Australasian Democracy Part 1

Australasian Democracy.

by Henry de R. Walker.

PREFACE

The following pages have been written from the point of view of the year 1896, the greater part of which I spent in Australia. During the earlier months of the present year I was in New Zealand, but I was unable to continue my survey of general Australasian affairs.

A result of the limitation that I was compelled to impose upon myself will be observed in the apparent antiquity of the chapter dealing with Australian Federation; but this is not so great as might have been antic.i.p.ated, the new Federal Convention having drafted a Bill which is based, to a large extent, upon that of 1891. For purposes of comparison I have, with the kind permission of the London agents of the Melbourne _Argus_, included an article in which that newspaper has summarised the provisions of the new Federal Const.i.tution Bill.

I have also included a brief account of a visit to the Coolgardie goldfields which, though alien in purpose from the remaining chapters, may not be without interest as a record of personal impressions {viii} of a Province which has but recently felt the effects of a budding prosperity.

It has been suggested to me that I should attempt to discuss Australasian problems with reference to their applicability to Great Britain; but I have preferred to leave this task, of which the importance cannot be overstated, to persons of greater experience, and to confine myself to a record of Australasian action and to a comparison of the points of similarity or the reverse between the several Provinces. It will be seen, however, that, in some cases, as when dealing, for instance, with the results of payment of members and with the powers and privileges of Australasian Upper Houses, I have noted differences of conditions which must render deductions by a.n.a.logy a matter of extreme difficulty.

The terms "Liberal" and "Conservative" are used to denote, respectively, the more and the less advanced parties in Australasian politics, and must not be taken to imply differences in opinion similar to those prevailing in Great Britain.

In conclusion, I would only say that my studies would have been impossible in the absence of kindly communicativeness on the part of politicians of all shades of opinion; and, on the social side, that I retain warm feelings of grat.i.tude towards the committees of clubs and numerous acquaintances who extended to me the cordial hospitality of kins.h.i.+p.

H. DE R. WALKER.

23, CORK STREET, W., _July 25, 1897_.

I

_LIBERALISM AND LABOUR IN SOUTH AUSTRALIA_

Contrast between Western Australia and the Eastern Provinces--The Const.i.tution of South Australia--The alliance between Liberalism and Labour--Joint action in the face of financial depression: Village Settlements, Progressive Taxation, the direct encouragement of production--The advocacy of an Elective Executive--The State and Religious Instruction.

The traveller who visited Western Australia in 1896 saw a country which was enjoying, owing to its goldfields, a phenomenally rapid development, with all its attendant advantages of a large increase in population, an expanding revenue, and abundance of employment. As he pa.s.sed to the Eastern Provinces he found himself in the midst of communities which had been shaken to their foundations by the fall in the value of their staple products and the collapse of many banking inst.i.tutions, and were putting forth strenuous efforts to restore the equilibrium between revenue and expenditure and to make a fresh start upon the path of prosperity. These efforts, varying in detail in different Provinces, have included the imposition {2} of additional taxation, provision for the unemployed, and, in some cases, direct encouragement of production. The policy pursued by South Australia is of particular interest as her Const.i.tution gives the freest play to democratic influences.

The House of a.s.sembly is elected on the basis of adult suffrage; the Upper House or Legislative Council by adults possessing a property qualification consisting of a freehold of the clear annual value of 50, a registered leasehold of 20, with three years to run or the right of purchase, or the occupation of a dwelling-house of the clear annual value of 25. No property qualification is required in candidates for election to either House, and the Members of both Houses are paid at the rate of 200 per annum. Adults, upon reaching the age of twenty-one in the case of the a.s.sembly or possessing the requisite qualification in the case of the Council, can claim to be placed upon the electoral roll and are ent.i.tled to vote upon the expiration of six months after registration; upon removal to another const.i.tuency, the vote can immediately be transferred. Plural voting is forbidden under heavy penalties, and all the elections, except that for the Northern Territory, take place upon the same day.

These conditions have enabled the democratic element to obtain a preponderating voice in both Houses, by a majority of one in the Council and by a considerable majority in the a.s.sembly. During {3} the last three years the Government has been in the hands of the Liberals under the Hon. C. C. Kingston, who has included in his cabinet two former Premiers in the persons of the Treasurer, the Hon. F. W. Holder, and the Minister of Education and Agriculture, the Hon. Dr. c.o.c.kburn.

The Ministerialists have had the support of the Labour Party, which has been very successful with its candidates and now holds the balance of power. It was formed towards the close of the year 1890, after the failure of the maritime strike, in response to the feeling of the Trades Unions and other labour organisations that their objects would be obtained most easily by securing the direct representation of labour in Parliament. They were influenced also by the rejection by the a.s.sembly of Dr. c.o.c.kburn's proposals for progressive taxation in spite of promises made by a majority of the members before their election. A political programme was, accordingly, drawn up, which is the accepted creed of the Labour representatives, who number six in the Council of twenty-four and twelve in the a.s.sembly of fifty-four members. It has successively been modified, as measures previously advocated have been pa.s.sed into law, and contains the following princ.i.p.al items: The cessation of the alienation of Crown Lands by the subst.i.tution of some system of leasing; the remission of the duties on articles not grown or produced in the Colony, any resulting deficiency in the revenue to be made up by increasing the tax on {4} land values; redistribution of seats on the basis of population; the encouragement of local industries by the extension of the State Export Department, so that producers may be able to obtain the full benefit of foreign markets; and Federation on a democratic basis. The Labour Party are opposed most strongly to the admission of coloured races and to a.s.sisted immigration, on the ground that the former would lower the status of the Australian workman, and the latter cause the supply of labour to exceed the demand and bring misery and dest.i.tution upon the poor. The relations of the Labour and Liberal members, which have been most cordial, are based upon mutual interdependence. The Liberals rely upon the support of the Labour members; the latter are not strong enough to take office, nor, I understand, do they wish to do so, and must support the Liberals in order to be able to mould the legislation to the shape that they desire. A prominent member of the Labour Party has thus summarised the position: "The hardest work in connection with some of the measures has been done by Liberals who, though not members of the Party, are generally found working in connection with that body. But it must be conceded that most of the planks which have been carried owe their early success to the fact of their adoption on the programme of the United Labour Party, and the persistent advocacy and solid votes of its members." The policy of the Party has created a great {5} amount of bitterness in the country, their successful advocacy of progressive taxation on incomes and land values and of other democratic measures having led them to be charged with being inimical to capital as such; but the Speaker of the a.s.sembly, who is a Conservative, has stated in a recent speech that, "in speaking of the Labour Party, he wishes to do so with the greatest respect. They are a power in the House, and no Government could have retained office in the last Parliament without their support. The Labour representatives were picked men, clever in debate, unremitting in attention to their duties, and a credit to the districts they represented." The leader of the Party is Mr. J. A.

McPherson, a native of Aberdeen, who migrated to Adelaide in 1882 and engaged in the printing trade. He identified himself with Trades Union affairs, was elected unanimously in 1890 to be Secretary of the Trades and Labour Council, and still holds that position. He entered the a.s.sembly at a bye-election in 1892, and is regarded as one of the ablest and most energetic members of the Labour Party. Mr. McPherson has a popular supporter in Mr. E. L. Batchelor, the colleague of the Premier in the representation of West Adelaide, who has risen from subordinate employment on the Government railways to be, at the age of thirty, President of the Railway a.s.sociation and Secretary of the Party. Mr. Batchelor is a man of broad views and a keen student, and has brought {6} forward a Bill for the inst.i.tution of the initiative and referendum, which he considers to be suited to the small population of South Australia. The Party are fortunate in their leading men and show no signs of cleavage, their only serious difference of opinion having been in regard to the qualifications of Labour candidates. As long as solidarity can be maintained and the present leaders remain in the ascendant, no fear need be felt that they will subordinate the interests of the community to those of their own cla.s.s, though they would be the first to admit that their main object is to protect the working man and to improve his position.

The princ.i.p.al measures of the present Administration, such as the Taxation Acts and the establishment of the Village Settlements and of the Produce Export Department, may be said to be the joint product of the Liberal and Labour Parties, and may be regarded as an example of the policy pursued by a pure democracy in the face of financial depression, dislocation of trade, and widespread scarcity of employment.

The object of the Act of 1893 which authorised the formation of Village Settlements was to prevent men of small means, who found difficulty in obtaining employment, from leaving the country by affording them the opportunity of settling upon the land and working it co-operatively with the a.s.sistance of advances from the State. Its main provisions were, that any twenty or more persons {7} might form an a.s.sociation for the purpose of taking up a grant of land not exceeding 160 acres per head; that the work should be done under the direction of trustees appointed by members of the a.s.sociation from among their number, who should manage the affairs of the village upon principles of co-operation and equitable division; and that the Commissioner of Crown Lands might advance to any such a.s.sociation out of funds provided by Parliament, an amount not exceeding the sum of 50 for each villager and not exceeding one-half the cost of the improvements upon the land.

The advances were to be repaid in ten equal annual instalments, with interest computed at 5 per cent. per annum on the moneys for the time being remaining unpaid; but the first of such instalments was not to be payable until after the expiration of three years from the date of the advance. The formation of settlements on a purely communistic basis was rendered possible by Section 78 of the Act, which states that "the rules" (of an a.s.sociation) "may require payment to a common fund or otherwise as may be determined of all or any part of the earnings of the villagers whether earned within the village or elsewhere." Twelve a.s.sociations were formed, mostly on the banks of the Murray, between the months of February and August, 1894, but not, with a single exception, on the lines intended by the Government. The extreme scarcity of employment and great poverty at Adelaide and in the neighbourhood in the early part of that year led them to form {8} the remainder of persons who were almost entirely dest.i.tute. They were necessarily a.s.sisted at the start, but did not afterwards receive advances until the Government Inspector had certified that they were justified by the improvements made upon the land. The action of the Government was illegal throughout, as the Act stated expressly that the advances should be made out of funds provided by Parliament, and no funds had been voted for the purpose, but it may be condoned on the ground of the extreme urgency of the crisis. At the expiration of a year the limit had been reached in most cases, and further advances were indispensable to prevent the immediate collapse of the majority of the settlements. The Commissioner of Crown Lands, accordingly, introduced a Bill in which he asked for authority to increase the advances, under the same conditions, to 100 per head, and for further powers of control over the settlements. The Bill, which was hotly opposed, was not pa.s.sed till a Select Committee had been appointed to inquire on the spot into the conditions and financial prospects of the settlements and had reported in its favour.

The report, which was dated November 14, 1895, and the evidence upon which it was based, gave a complete picture of the disadvantages under which the settlers laboured and of the drawbacks of the system of distribution. The land selected for the villages was such, it was pointed out, that it could not be cultivated except under irrigation.

This had {9} necessitated the erection of a costly pumping plant, which the settlers had difficulty in purchasing, as they could offer no security for payment. When the plant was finally obtained, it was found, in some cases, to be unsuitable; in others it could not be properly worked in the absence of a capable engineer. The settlers, brought together at haphazard by dest.i.tution and not by their knowledge of agricultural pursuits, had wasted much time and labour through ignorance, incapacity, and insufficiency of proper tools. They had lacked a strong controlling hand to direct their operations, and had disobeyed the trustees whom they had themselves appointed; and as the trustees had little power discipline had been nonexistent, and quarrels, at several settlements, of continual occurrence. Order had been restored with difficulty, as the only punishment was expulsion, upon a decision of the trustees ratified by a vote of the villagers, and many villagers had voted against expulsion from the fear that they in their turn might be subjected to a similar penalty. The arrangements for the distribution of rations also had caused considerable dissatisfaction and led to disagreement between single and married men, as the former felt that the latter received a share of the stores out of proportion to the work they had done. The general system was, that rations were issued on a sliding scale, according as a man was single or had a large or small family, and was to that extent purely communistic.

{10}

The difficulties encountered by the settlers had been such as would have discouraged most men, but, in spite of them, the total number had only fallen in eighteen months from 598 to 440, and the majority of witnesses expressed themselves satisfied with their lot. They admitted the necessity of further advances, but pleaded that they had a heavy burden to bear in the cost of machinery, and that their labour, especially in the planting of fruit trees, could not yield an immediate return. The financial position was thus summarised:--The Government had advanced 26,000, the unpaid accounts amounted to about 11,000, and the improvements were valued by the Commissioner of Crown Lands at 41,000.

During 1896 the further advances had been expended, but the settlements had not become self-supporting, and the increased burden of debt and uncertainty as to the future had caused many of the settlers to become disheartened and others to leave in despair. On the other hand, the appointment of an expert to exercise the additional powers conferred upon the Commissioner and to give advice to the settlers, had led to the diminution of quarrels and disagreements among them and to a better direction of their work. In view of these facts the Government decided to close four of the settlements which had been formed upon land unsuitable to the purpose, owing to the poorness of the soil or the absence of facilities for profitable irrigation. It has been {11} estimated that the remainder have sufficient irrigable land to maintain a population of about three hundred families, and that they require an average of about 25 per settler to make them self-supporting. A few enthusiasts alone believe that any portion of the princ.i.p.al of the loans will ever be repaid; but the Government will have no cause to complain if they receive regular interest on the money. Some difficulty is likely to arise in the disposal of the produce. There is a considerable market for vegetables on the river, but it will soon be overtaken by the supply. The settlers will probably devote most of their land to fruit growing and dairying, and will be able to take advantage of the Export Department.

The settlers should have a better chance of success in the future, as loafers are gradually being weeded out, and the process is to be continued until the settlers shall have been reduced to such as have shown an honest desire to make homes for themselves and their families upon the land. This course has been rendered possible by the large exodus of working men to Western Australia, which has reduced the pressure upon the local labour market. The Government desire to approximate all the settlements to the level of Murtho, which alone was formed of persons who had considerable means of their own. The settlers, about twenty in number, put an average of 60 each into the venture and left good situations out of enthusiasm for the principles of co-operation. They are intelligent, well-educated {12} men and women who are bound to put forward every effort to be successful, as otherwise they will be in a worse position than at the start. They work all the land upon the method of joint cultivation on the ground that, as different forms of produce are grown, it is of importance to be able to concentrate the greater portion of the labour at any point where it may be required, and, under the influence of communistic ideas, give to all an equal share of the results of their united efforts. This system would have seemed, from the const.i.tution of human nature, to be doomed to failure; but an amount of work has been done in planting and clearing which testifies to continuous and sustained labour, disagreements have been rare, and the settlers, in conversation with me, expressed themselves as contented with their lot and confident of eventual success. They do not regard themselves as recipients of charity, as they have received advances on the same conditions as holders of Working Men's blocks; on the contrary, they regard themselves as pioneers of a new movement, and desire, not only to make homes for themselves and their families, but to prove that land can be worked successfully on a co-operative, almost a communistic, basis. If the Murtho settlers succeed, they will do so by the continued exercise of mutual forbearance and from the impulse of a common enthusiasm.

The Government appear to have made several {13} grave mistakes of omission and commission in the formation of the settlements. They should have caused a survey of the Murray lands to be made before the selection of the sites, and they should have realised that men, united only by their dest.i.tution, required control and direction, and, as the majority were ignorant of agricultural pursuits, constant superintendence of their work. The system of joint cultivation also was entirely unsuited to the cla.s.s of men who formed the bulk of the settlers. It is true that the Act authorised neither preliminary surveys nor the appointment of superintendents, and stated expressly that the a.s.sociations were to be co-operative; but if the urgency of the crisis may be taken to have justified the Government in making advances without the sanction of Parliament, it would also have justified such further illegalities as would have benefited the settlers and safeguarded the interests of the tax-payers.

A certain amount of co-operation was inevitable if the settlements were to be formed upon land which could only be cultivated under irrigation, in the erection of the pumping plant and the use of water. It would also be advisable in the purchase of seeds, trees and vines, the disposal of produce and the common owners.h.i.+p of horses and implements of husbandry. But the land might have been cut up into blocks, in order to enable each settler to obtain the full benefit of his exertions {14} subject to payment for the services rendered to him by the a.s.sociation.

The Government are to be congratulated, however faulty their methods may have been, upon their attempt to enable the unemployed to make homes for themselves upon the land, a great improvement upon the policy of their predecessors, who wasted thousands of pounds upon unnecessary relief works. They have undoubtedly raised the moral tone of the settlers, who make a good impression upon the visitor through their intelligence and sobriety and the happy appearance of their children, and one cannot but regret that, owing to the absence of direction, much of their labour has been absolutely valueless. The cynic will say that the men have every reason to be contented as they are living entirely upon advances and can rid themselves of all responsibility for the loans by leaving the settlements; but he forgets that they have qualified for these advances by hard work and that they never see a s.h.i.+lling that they can call their own.

The whole question must be looked at from the point of view of the Australian, who would be horrified at our system, under which indigence is a.s.sumed to be the result of idleness and improvidence and relief is offered under the most degrading conditions, and expects his Government to do something to relieve the misery caused by scarcity of employment.

In South Australia, where adult suffrage and payment of the members of both {15} Houses have made the working cla.s.ses masters of the situation, they can compel the Ministry to pay attention to their wishes. A step in the right direction, was taken when Village Settlements were subst.i.tuted for temporary relief works; but any future scheme, while affording to men the opportunity of regaining a position of independence, should compel them to prove their worthiness by their own individual exertions.

The wide application by the Australasian Provinces of the principle of State action renders them especially liable to violent fluctuations of prosperity and adversity. As young countries they have borrowed largely for purposes of development, and have constructed expensive public works which have greatly increased the demand for labour.

During the recent years of depression the Government have been obliged to discontinue their operations, and have offered less employment at a time when the labour market was already overstocked owing to the contraction of private enterprise. Similarly in the case of revenue: the receipts from the railways, which are almost universally owned by the State, vary proportionately with the returns from taxation, which depend in their turn largely upon the condition of trade. They have fallen in South Australia from 1,229,598 in 1891-2 to 967,656 in 1894-5, with the result that when the community has been least able, owing to the diminished returns from other resources of revenue, to bear additional {16} taxation, further taxes have necessarily been imposed to meet the interest upon the loans out of the proceeds of which the railways have been constructed. The Kingston Government, which took office in 1893, had to face a deficit of 200,000, and immediately set to work to restore order in the finances. This they attempted to do by retrenchment, reducing the expenditure by 100,000 per annum, and by the imposition of fresh taxation. Succession Duties, a tax on the unimproved value of land and an income tax had already been imposed, a distinction being made in the latter case, between incomes derived from property and incomes resulting from personal exertion; but the present Government were the first to introduce the progressive principle into the taxes on incomes and land values. This legislation has encountered, as might be expected, the strongest opposition from the richer members of the community, who protest that a feeling of insecurity is produced and capital driven out of the country, but it may be noted that South Australia in 1895 raised money at 3 per cent. upon exceptionally favourable terms. The Government were compelled to obtain further funds, and showed their desire to equalise the incidence of the additional taxes by lowering, in spite of the opposition of the Labour Party, the exemption from income tax from 200 to 125 and by increasing the duty on beer, spirits, and other articles of ordinary consumption. Income tax is {17} at present at the rate of 4-d. in the pound up to 800, and of 6d. in the pound above 800 of taxable amount resulting from personal exertions, and at the rate of 9d. and 1s. in the pound, respectively, on incomes from property. Incomes between 125 and 425 enjoy exemption on 125 of the amount. Taxpayers are required, under penalty of prosecution for perjury for a false declaration, to furnish annually a statement of all forms of income that they have enjoyed during the past year, except in respect of any share or interest in a registered company; in this case the tax, at the rate of a s.h.i.+lling in the pound, is deducted by an officer of the company before payment of the dividends to shareholders.

The higher rate is not paid on either form of income unless it, separately, exceeds 800. The tax on the unimproved value of land is d. in the pound up to, and 1d. above, the capital value of 5,000, and is increased by 20 per cent. in the case of absentee owners. A general a.s.sessment of all the lands in the Colony is made triennially, each person's property in each district or towns.h.i.+p being treated separately. The a.s.sessments are then sorted alphabetically, in order to discover the total holding of each individual which is the basis upon which the higher or lower rate of taxation is imposed. Little objection is taken to the manner in which the value of the land is a.s.sessed; in the majority of cases the owner and the official of the Government are able to agree as {18} to a fair valuation, and, should they fail to do so, an appeal against the valuation may be made to the Taxation Department, and, if an arrangement be not arrived at, to a Court of Law. The a.s.sessment of 1894 led to a large number of appeals, as the a.s.sessors had not realised the enormous fall in value of agricultural and pastoral land, but all, with a single exception, were met to the satisfaction of the appellant by concessions voluntarily made by the Department. Their attention is turned mainly to urban land, because it is subject to the greatest increase in unimproved value and returns the larger portion of the receipts derived from this source. An incidental advantage of the tax lies in the fact that land held by speculators for a rise in value contributes to the revenue equally with that on which buildings have been erected. The tax is recognised by most people as equitable in principle, but its progressive character has brought upon the Ministry the bitterest animosity of the landed cla.s.s, who maintain that it has caused land to be given up and to become unsaleable, not so much because the present burden is intolerable but because it is merely the thin end of the wedge. They point to the programme of the Labour Party in which it is stated that the duty should be taken off certain articles of ordinary consumption, the deficiency (which, according to an official estimate, would be 310,000 a year) to be made up by increasing the tax on land values, and argue that as the Labour Party hold the {19} Government under their thumb, they will be able to enforce compliance with their wishes. It is difficult for a stranger to judge to what extent possessors of capital have actually been deterred from investing it in land, especially as several important factors have led concurrently to a depreciation in its value, such as the fall in the prices of wheat and wool, the failure of banks which were interested, directly or indirectly, in large tracts of country, and bad legislation, pa.s.sed some ten years ago, under which the runs were cut up into blocks too small for the successful prosecution of the pastoral industry. The Government can point to Pastoral Acts which are admitted to be steps in the right direction, and challenge their opponents to show in what way they could have raised the 20,000 yielded by the additional Land Tax with less burden to the community. The Absentee Tax lacks similar justification, as it only brings in 3,600 a year. It is defended by the Premier on the ground that the absentee, as regards his property, has the full protection of the administration of the laws, and should contribute to the expenditure necessary for the maintenance of the State; and that he does not do so to the extent of those who live in South Australia and contribute daily to the revenue by means of the Customs in all they eat and drink and practically all they put on. On the other hand it is contended that it is of supreme importance to attract capital to the Colony and that this principle is recognised {20} in the case of public loans and Treasury bonds, on which no income tax is charged, and should also be taken into consideration with reference to private investments in land. Succession Duty is levied upon a graduated scale, ranging from 1- per cent. for 500 to 10 per cent. for 200,000 and upwards in the case of a widow, widower, ancestor or descendant of the deceased, and from 1 per cent. for any amount under 200 to 10 per cent. for 20,000 and upwards where the property is inherited by a person in any degree of collateral consanguinity. If the heir is a stranger in blood he pays 10 per cent.

whatever be the value of the property. In order to promote the diffusion of wealth the rate of the tax is based upon the amount inherited, not upon the total value of the estate.

In the relief of the unemployed and the imposition of additional taxation, the Ministry, while choosing their methods, have dealt with problems which they were bound to face; but they have not confined themselves to the negative task of coping with existing difficulties.

They have realised that greater commercial activity would permanently benefit the revenue and add to the demand for labour, and that, in a country like South Australia, it could only be secured by a wider and more varied cultivation of the soil, and have, with the hearty support of the Labour Party, seized every opportunity to encourage production and develop the export trade. Farmers already had the advantage of an Agricultural Bureau at Adelaide, {21} with local branches, which periodically disseminated information, and of an Agricultural College to which they could send their sons, at a small annual charge, or gratuitously if they could obtain a scholars.h.i.+p; but they were hindered, when the fall in the value of cereals compelled them to turn their attention to subsidiary industries, by the absence of facilities for obtaining a market for subsidiary products. The limited demand in the Colony for b.u.t.ter, fruit, and wine offered insufficient inducement to farmers and small cultivators. Previous to 1893, the total export of b.u.t.ter did not exceed the value of 1,200, but in that year and in 1894 a bonus was offered by the Government, with the result that b.u.t.ter of the value of 110,000 has since been s.h.i.+pped. They also formed a Produce Export Department through which producers can s.h.i.+p their goods to London, entered into a contract with the Peninsular and Oriental and Orient Steams.h.i.+p Companies for cheap rates of carriage, and established in London a Wine and Produce Depot to receive the goods and sell them on the most favourable terms. A receiving depot has since been established at Port Adelaide and refrigerating machinery and chambers have been erected, which enable the Department to receive sheep and send them as frozen meat to England. b.u.t.ter, wine, frozen meat, and fruit have been sent to London through the Department, and in some cases prices have been realised which far surpa.s.sed those which could have been obtained in {22} the local market. The scheme is not yet self-supporting, as, though the charges cover the expenses, the salaries of the additional officials required in the Ministry, and an annual sum of some 3,500 for the maintenance of the Depot in London, fall upon the revenue of the country; but this expenditure is more than repaid by the impetus undoubtedly given to trade which would not otherwise have been afforded owing to the absence of private enterprise. The Ministry have undertaken a work in which individuals would have had little chance of success, and have enabled small consignors to s.h.i.+p their produce at wholesale rates. Their object also has been, in the words of the Minister of Agriculture (Dr. c.o.c.kburn), "to afford a guarantee of quality. All goods consigned to the Depot are examined previous to s.h.i.+pment. If found to be in good condition and properly packed, they are sent forward to the London manager with a certificate to that effect. By this system of inspection a barrier is erected against the export of inferior goods which have an injurious effect on the reputation of South Australian produce." This latter point is of great importance and applies equally as regards the injury that might be done by one Province to another, as the British consumer regards Australian produce generically, and does not distinguish between the output of different Provinces. Dr. c.o.c.kburn called a conference in 1896, which was attended by representatives from New South {23} Wales, Victoria, and Queensland, to consider how far joint action might be taken to secure uniformity of output. The presence of a representative from Victoria enhanced the practical character of the deliberations, as that Province has been the pioneer in the movement and conducts its operations on a very extensive scale. It was decided that the respective Parliaments should be invited to legislate in the direction of uniform inspection of frozen meat, dairy produce, wine and fruit, the adoption as far as possible of a federal brand which would be a guarantee of high quality and the joint exhibition of Australian produce at some leading agricultural show in England. The conference is regarded as a promising sign of the willingness of the Australian Provinces to act together in matters of common concern. The inst.i.tution of the Produce Export Department is favourably viewed by the press of South Australia and by the bulk of the community, but, while it is admitted that the initiative of the State has been successful, the hope is expressed that, when the trade has been firmly established, the scope of State action will be reduced and private enterprise be allowed to step in. Such an att.i.tude shows the prevalent distrust of State action; in order that it may not be perpetuated, the middleman is to be invited to absorb a portion of the profits which at present are gained by the producer.

The present Ministry have also legislated on the {24} subject of workmen's liens, to protect the wage-earner against an insolvent or dishonest employer; they have pa.s.sed a Conciliation Act, to facilitate the settlement of industrial disputes, and have established a State Bank to provide for advances to farmers and other producers and to local authorities. These measures were warmly supported by the Labour members, who tried, unsuccessfully, to enlarge the scope of the State Bank by making it a Bank of Issue.

At the General Election in 1896 the Liberals, who were again successful, advocated certain measures of social reform; continued economy of administration; the extension of the functions of the Export Department; Federation on a democratic basis, and the election of Ministries by Parliament, a proposal which has excited singularly little interest, in spite of the complete change that it would effect in the methods of government. The justification for it must be sought in the local conditions of the Province, which has never taken kindly to the system of government by party.

The tariff question, which has caused a clear line of division in New South Wales, has been settled decisively in favour of protection, and no distinct issue has taken its place at the recent elections. In Adelaide and the neighbourhood the contest may be said to have been fought in some sense between capital and labour, though among the supporters of the Ministry are many men of considerable means; {25} or between individualism and socialism, but that all are socialists to the extent of believing in State owners.h.i.+p of railways and State control of waterworks and water conservation, while the majority are favourably disposed to the Export Department, and the average man has no definite ideas on the subject, but views each proposed extension of State action according to his opinion of its possible effect upon himself. The success of the Liberals was remarkable, as the South Australians are a fickle people, and usually overthrow the party that is in power; but it is suggested that the female vote, which has been given for the first time, may have been recorded largely in favour of those who had pa.s.sed the Adult Suffrage Act. However that may be, the Kingston Government are by no means sure of an extension of three years, as the ties of party allegiance are slight except in the case of the Labour members, and the struggles in the a.s.sembly may resolve themselves, as in the past, into contests between individual aspirants for office. The tendency of the last Parliament was in the direction of a clearer line of cleavage, but this was due to the cleverness of the present Premier, who included in the Cabinet his two strongest opponents whose opposition had been the more bitter that it was not founded upon differences of political opinion. Until that time South Australia had had forty-one Ministries in thirty-seven years, a constant change of the responsible heads of public departments {26} which greatly impaired their efficiency and prevented continuity of administration. The absence of a stable majority in the a.s.sembly gave the opportunity, and ambition and love of power the impetus, to continual struggles for office which were wholly unallied with any baser motives, as Australian statesmen have obtained an honourable pre-eminence for their rect.i.tude of character.

The intentions of the Government in regard to the subst.i.tution of an elective executive, which have not yet been definitely formulated, may be gathered from a speech made by Dr. c.o.c.kburn, the princ.i.p.al advocate of the change, in which he proposed that Ministers, who would continue, as at present, to be Members of Parliament, should be elected by ballot by the a.s.sembly at the commencement of each session; that they should appoint one of their number to be their leader, but should be responsible individually to Parliament for their respective departments; and that their corporate responsibility should be limited to matters affecting the Province as a whole, such as finance or its relations with other countries. The Governor's prerogative of dissolution would remain unaffected, but as the House would be brought into closer touch with the people, dissolutions would be unnecessary and undesirable. Dr. c.o.c.kburn claimed that his proposal was in accordance with the natural evolution of Parliamentary Government, and contended that, the area of selection being enlarged, the {27} best men would be chosen as Ministers from the whole House and the best man for each office. Ministers would not be called upon to justify proceedings of their colleagues which in their hearts they condemned, and private members would be able to exercise greater independence, as they would not be called upon to sacrifice their convictions to maintain their friends in office, and, being allowed greater freedom on questions of legislation, would introduce many bills of an important character.

Intrigue, which was an essential of Party government, would become disreputable when resorted to for purposes of personal advancement.

The objection that certain members would not work together if chosen to form an administration was met by the fact that men sat in amity on the Treasury benches who previously had denounced one another to the utmost of their power. The distinctive feature of the proposal, therefore, is the indirect election of Ministers. The people elect the representatives, who, in turn, are to elect certain of their number to form the Executive. The first criticism that suggests itself is, that it is difficult to believe in the rapid elimination of party feeling, and that it is probable, granted the existence of intrigues among aspirants for office under the present system, that they would be increased tenfold when such persons sought to ingratiate themselves, not only with prospective Premiers, but with a majority of the members of the a.s.sembly. Again, {28} while it is impossible to foresee all the results of the change, it may be antic.i.p.ated that some obvious advantages would be counterbalanced by incoherence of policy and haphazard legislation, but that a cla.s.s of men might be induced to come forward as candidates who are deterred by their horror of continual party strife. Dr. c.o.c.kburn stated that no amendment would be required in the Const.i.tution Act, as, after the election of the Ministers, their names would be submitted in the ordinary way to the Governor. The present Ministry also favour the biennial retirement of half the members of the a.s.sembly, in order to secure continuity in its composition, and the inst.i.tution of the referendum.

These proposals are warmly supported by the Labour Party. They advocate elective Ministries on the ground that the people would obtain greater control over the Executive, that stability of government would be promoted, and that the legislative efficiency of Parliament would greatly be increased. They contrast the rapid dispatch of business by local governing bodies with the waste of time and obstruction which prevail in legislative a.s.semblies. The biennial retirement of half the members of the Lower House commends itself to them for the reason which causes it to be opposed by men of conservative tendencies, that it would do away with the form of minority representation which is rendered possible in two-member const.i.tuencies by the widespread habit of plumping. They have {29} been foremost in their advocacy of the referendum and the initiative, and one of their representatives, Mr.

Batchelor, has introduced a Bill which provides for the establishment of the referendum, and contains the striking clause that "If pet.i.tions, signed by not less than one-tenth of the electors ent.i.tled to vote for the election of members of the House of a.s.sembly ... shall be presented to Parliament praying that legislation shall be initiated on any subject, the Attorney-General shall prepare, or cause to be prepared, a Bill to give effect to such pet.i.tion; and such Bill shall be introduced into Parliament as a Government measure." Mr. Batchelor believes that legislation would be accelerated on subjects which fail to receive attention because Ministries fear that they might alienate the sympathies of some of their supporters.

The idea of the direct consultation of the people upon a particular subject was put into practical effect at the recent elections, when they were invited, in the form of an initiative, to say whether they desired alterations in the law in regard to education. Primary education in South Australia is free, secular and compulsory. No religious instruction is permitted in the State schools, but the Minister of Education has the power, on receiving a written request from the parents of not less than ten children who attend any school, to require the teacher to read the Bible to any pupils who are present for that purpose for half an hour before {30} half-past nine, the time at which the ordinary teaching commences. The direct reference to the people was the result of a Parliamentary resolution instigated by the advocates of denominational education, who contended that public opinion was veering round in their favour and believed that they would obtain a great accession of strength in the female vote which was to be exercised for the first time. It was couched in the form of the following questions, which were submitted to the electorate on a separate voting paper on the occasion of the general elections:--

1. Do you favour the continuance of the present system of education in the State schools?

2. Do you favour the introduction of religious instruction in the State schools during school hours?

3. Do you favour the payment of a Capitation Grant to denominational schools for secular results?

The wording of the first and second questions was calculated to act in favour of the opponents of secularism, as the first would probably be answered in the negative not only by those who support religious instruction but also by many who believe that, in the present state of the finances, education should not be free except to such as are unable to pay for it. It was not made clear whether it was intended to apply to the system as a whole or merely to its secular character. The {31} second question would bring together all who favour religious instruction, however much they may disagree among themselves as to the form in which it should be given. During the progress of the campaign the majority of the candidates declined to express their views upon the matter, but stated that they would be prepared to abide by the popular decision.