MOTION FOR LEAVE. FIRST READING. (Hansard, 18 July 1887)

§ THE PRESIDENT OF THE LOCAL GOVERNMENT BOARD (Mr. RITCHIE) (Tower Hamlets, St. George's)

The Bill which I am now about to ask the leave of the House to introduce dealing with allotments formed, as the House is aware, a portion of the programme of Her Majesty's Government at the com- 1303 mencement of the Session, and was included among those measures to which reference was made in Her Majesty's Gracious Speech from the Throne. A pledge was given at that time, of the intention of the Government on the subject, and that pledge has been repeated on more than one occasion by various Members of the Government. Although the circumstances of the Session have been such as have prevented the Government from dealing with the subject at an earlier period, they have never abandoned the hope that in the course of the present Session, they would be able to introduce the Bill, and that the House would pass it before the close of the Session. The question is recognized on all hands as one of very great importance, and requires to be dealt with as soon as the Government could possibly undertake it, and although the period of the Session is now very far advanced, we believe that the proposals which the Government are about to make will so recommend themselves to the House, and we believe the interest the House and the public feel in the question is so great that we have every reason to hope that the Bill I am about to ask the leave of the House to introduce will pass through the House with the assistance of all parties. It is unnecessary for me to enlarge on the benefit of allotments to the working classes. They are, rightly used, a valuable means of education, a means by which the working classes may elevate themselves into a position of manly independence by industry and sobriety, which will be greatly beneficial to themselves, their employers and the whole community, whose interests are very much wrapped up in the interests of its individual members. The Allotments Question has made great progress during the past few years. According to Returns presented to Parliament this year, there were in England and Wales in 1886, detached from cottages 131,207 allotments each under an eighth of an acre; 116,355, between one-eighth and a quarter of an acre; 103,915 between a quarter of an acre and one acre; and of allotments which hardly can be called such, of between one and four acres 35,036—in all 386,513. In addition to these, there were allotments attached to cottages exceeding one-eighth of an acre, to the number of 256,805. Therefore, the number of allotments 1304 attached to and detached from cottages in England and Wales are no less than 643,318. According to the same Return, the number of agricultural labourers in England and Wales in 1881, was about 800,000; so that it will be seen that even if we exclude allotments attached to cottages and only take those detached from cottages, nearly one-half of the whole number of agricultural labourers in England and Wales have been provided with allotments. Well, it will be thus seen that voluntary agreement has done much to meet the demand for allotments, and it is clear that there is no great indisposition on the part of landowners, where allotments are in general request, to supply the demand, and I am sure that no one, however he may desire the extension of the number, no one will deny that voluntary agreement is by far the best principle by which allotments may be provided, and has the best chance of success. [Murmurs.] I do not say that we are going to trust to purely voluntary agreement, but I do say that the voluntary system to meet the demand has the greatest element of success. Now, the object of the Bill, which the Government are about to introduce, is not in any way to do away with voluntary agreements, but to supplement them where necessity arises. It must be remembered that this is no question affecting exclusively agricultural labourers, dwellers on the outskirts of our large towns are, I think, fully as much interested in this measure as are the agricultural labourers, and I venture to think the benefits this Allotments' Bill will confer are as likely to be availed of by labourers in the one case as in the other. By the proposals of this Bill we propose to place allotments within the reach of labourers on the outskirts of towns, as well as of agricultural labourers; and if this can be done on sound principles, it will bring with it enormous benefit to those concerned. The object of the Bill is not to supplant, but to supplement voluntary agreement between the would-be allotment holder and the landowner; therefore the Local Authority we propose to authorize to act by this Bill must first satisfy itself that allotments cannot be obtained at a reasonable rent by voluntary agreement between owners of land suitable for allotments and the applicants. On being satisfied of this, it will be the 1305 duty of the authority by purchase or hire, to acquire any suitable land which may be available adequate to provide a sufficient number of allotments, and to let this land in allotments to persons resident in the district. This obligation is, however, subject to the condition that the land can be obtained at such a price or rent as may reasonably be expected to be recouped by the allotment rents. So far the arrangement is one of a voluntary character. First of all, the applicants can make their own arrangement with the landowner, then to meet the cases where it is not possible for applicants to arrive at an agreement for obtaining allotments, though the landowner may be quite willing to provide them, where in fact, some organization is necessary to produce them, we make it the duty of the Local Authority to treat with the landowner. And now the question arises what is the Local Authority to be? There have been suggested the Parish Authority, the County Authority, and the Sanitary Authority. I may say, at once, we do not propose to adopt the Parish Authority. We do not think the Parish organization is such as would justify us in entrusting it with this power and duty, but apart from that as hon. Members are well aware the number of extremely small parishes in England and Wales is very great, and therefore the authority in a large number of cases would be an authority over a very small area. Well, then there is the County Authority, but that authority, as at present constituted, is not an elective authority, and therefore do not think that it is, in a broad sense, representative of the ratepayers, and an authority we can recommend, the House to adopt for the performance of functions under this Bill. Besides, we think the area is too large. Then the authority we do propose is the Local Sanitary Authority. The Sanitary Authority, as members are aware, as in towns the Town Council, in local Government areas the Local Board, in rural districts the Guardians. Then arises the question, perhaps one of the most important in the Bill, what is to be done in cases where there is a demand for allotments which cannot be met by voluntary agreement between land owner and applicants, or between the Local Authority and the landowner? My own conviction is, that where you set up the machinery 1306 in the fullest manner we propose by the Bill, the cases will be rare in which the demand is not met in this way; for I really believe landowners will be glad to co-operate with applicants and with Local Authorities for the provision of these allotments; but one cannot deny that there may be unreasonable landowners as well as unreasonable Local Authorities. It is conceivable, that although, in 99 cases out of 100 the arrangements will be made by voluntary agreement, yet there will be cases in which it is impossible to obtain voluntarily that for which there is a demand. If that be so, unless there is some machinery provided to meet those cases, the exceptional grievance will be all the more intolerable; because in 99 cases out of 100 the demand is met by voluntary agreement between landowner and applicant. While, as I have said, we believe the safest principle, and that which bears on the face of it the greatest chance of success, is the voluntary principle, we are reluctantly compelled to admit that unless some remedy is provided against the action of the unreasonable landowner who prevents the carrying out of a public benefit, the Bill will be incomplete. How is this remedy to be provided? The Local Authority might be empowered to apply to the Local Government Board for a Provisional Order under the Public Health Act of 1875. But that is a proposal that does not commend itself to us. We are anxious, even in cases of this kind, that what is meant to be done should be done in a manner to cause the least amount of friction. To bring in a Government Department with its Inspectors and its inquiry would, we believe, load to much soreness and friction without which it is impossible to work. Government inspection and inquiry with reference to schemes of Local Authorities under the Public Health Act are not only desirable, but, in most cases, necessary. The sufficiency and necessity of the work to be undertaken, the cost, the period for which the money shall he borrowed, and many other such questions, are all matters which I think can be best inquired into by a central Department, both for the protection of present and future ratepayers; therefore, I do not wish it to be imagined that I am in favour of abandoning the powers which the Local Government Board possess. 1307 On the contrary, I should be most unwilling to part with such supervision in such matters. But the matter in question is, in my opinion, a totally different one from any of those to which I have alluded. Specific powers are to be given for a specific object to the Local Authority. Parliament imposes a special duty on the authority, and it is quite unnecessary for the Central Department to interfere. Therefore, I am not favourable to the proposal that the Local Government Board should intervene between the Local Authority and unwilling landowners. What other machinery is there available? The Local Authority might come to Parliament for a special Act in every individual case. Well, I do not think that would be a proposal acceptable to the House. It would be expensive, and would therefore, in my opinion, be unworkable. Local Authorities would never avail themselves of so expensive and cumbrous a machinery. Having told the House what the Government, do not propose to do, now let me see what we do propose. As the House is aware, the Government have taken the first step towards the reform of local government throughout England and Wales by the introduction of a Bill to appoint a Boundary Commission, and next year they hope, at the very earliest period of the Session, to propose a Bill to complete the work. I trust the House will this year enable them to begin. By this Bill there will be set up a Representative Authority in every county in England and Wales, and to this authority we propose to entrust the power to act in those cases when the allotments cannot be obtained by voluntary agreement with the applicant or with the Local Authority. Where the Local Authorities are not able, by hire or purchase, to acquire land sufficient for allotments, then they will petition the County Authority to make a Provisional Order, authorizing them to take the land otherwise than by agreement, the County Authority being, for this purpose, clothed with the powers now possessed by the Local Government Board under the Public Health Act. It will be the duty of the County Authority to inquire into the circumstances, and, being satisfied, they will make application to the Local Government Board to introduce a Bill into Parliament confirming the Provisional Order. Meantime, pending the setting 1308 up of the County Board, County Sessions will act. Certain rules are laid down in the Bill, providing that no park, garden, or pleasure ground attached to, or required for, the amenity or convenience of any dwelling house shall be taken, and that regard shall be had to the extent of the holdings in the neighbourhood, and the convenience of any other property of the owner. Ultimately, it will be seen, the whole question of acquiring allotments, voluntarily or otherwise, will be in the hands of Representative Bodies, which we believe will be the best means of satisfactorily dealing with the matter, an opinion in which I hope the House will concur. Provision is made in the Bill as to draining, fencing, dividing the land, making roads, and the apportioning of expenses. The Local Authorities are to make regulations for the letting and management in the allotments, and are to appoint a committee or committees, consisting partly of themselves and partly of ratepayers liable to contribute to the expenses under this Bill, or entirely of such ratepayers, and their powers and proceedings will be such as may be prescribed by the Local Authority. In this way we hope to secure the best men in the place for management and guidance, in an economical manner, of the allotments provided by the Local Authority. The rents are to be such as may be reasonably expected to ensure the authorities against loss. The rates, taxes, and tithe rent-charge are to be paid by the authority, and apportioned among the allotment holders. Provison is made for the letting of any allotment, which cannot be let in accordance with the main object of the Bill, and for the sale or letting of any land which may not be required; and the provisions of the Lands Clauses Consolidation Act in relation to the right of pre-emption of superfluous lands are to apply to the sale of any such by the Local Authority. No buildings are to be erected on the land. Compensation to outgoing tenants will be provided, we hope, by means of the Bill promoted by the hon. Baronet the Member for East Norfolk (Sir Edward Birkbeck), which I trust will, within a short time, pass the House. Only one other point remains upon which the House will feel interested, and that is the size of these allotments. It is manifestly necessary that regard should be paid by the Local Authority to the spe- 1309 cial circumstances of each particular case. I am sure the House will agree that no person ought to have an allotment larger than he is able to attend to, in addition to his ordinary means of livelihood. We do not propose, it is not intended that an allotment shall provide the means of livelihood, but that it should supplement other labour; and I am assured that if any other plan is sanctioned, it will fail. Of course, the amount of land an allotment holder can attend to will depend on circumstances—the proximity of the land to his house, the size of his family, and the nature of his occupation. Out of 386,000 existing allotments detached from cottages, some 240,000 are under a quarter of an acre, and, probably, the great bulk of allotments under this Bill will not exceed that size. But there are 140,000 allotments between a quarter of an acre and an acre; and we think it is undesirable to limit the Local Authority, where they may feel justified in going to the extent of the largest of these. We propose to put the limit of the allotments at one acre. At this late hour, I am unwilling to trouble the House with more details. I have gone through what I think are the principal points of the Bill, as to which the House will feel interest, and I trust the House will consider the Bill is drawn on such broad and safe lines as to command its approval. I am sure when hon. Members have the Bill in their hands, they will find my description amply borne out, and I trust the measure will commend itself to Parliament and the country.