Article contents
VII. The Impact of Financial Policy on English Party Politics before 1914
Published online by Cambridge University Press: 11 February 2009
Extract
Critical research into the motivation and content of Liberal social policies before 1914 has qualified much of the credit the party's accomplishments originally received. Yet such qualifications may go too far and in the struggle to do justice to all the facts, historical accuracy may suffer both from tendencies to look for dominant motifs or patterns, and from the temptation to emphasize the ‘real’ empirical nature of politics, so losing sight of all purposes and patterns – especially value-patterns. For example, the emphasis upon nineteenth century administrative development may certainly correct the previously overdrawn distinction between, firstly, individualism and the negative state, and secondly, collectivism and the positive state, but if such emphasis is carried too far it may appear that the social reforms passed after 1906 were no more than the logical continuation of a legislative trend already well-established. It may appear through the simple cataloguing of administrative growth, in conjunction with the attention focused on the rise of the Labour movement and the ensuing attempt to place both in a long-term historical perspective, that the Liberal party was largely the passive instrument of movements and ideas which passed around and about the party, rather than through and within it; and, this being so, that interpretations such as those of Laski, dating the emergence of ‘fundamental’ party divisions from post-1914, may be too easily accepted.
- Type
- Articles
- Information
- Copyright
- Copyright © Cambridge University Press 1972
References
1 E.g. the debate between Macdonagh, O., ‘The Nineteenth Century Revolution in Government’, Historical Journal, I, no. I, 1958,Google Scholar and Parris, H., ‘A Reappraisal Reappraised’, Historical Journal, III, no. 1, 1960.Google Scholar
2 Laski, H., Reflections on the Constitution, 1951, p. 19.Google Scholar ‘Irish Home Rule apart …, from 1832 to 1924, the two parties between which the power to govern was divided differed only in the emphasis they gave to one or another of a common body of principles’.
3 Haldane, R. B., ‘Social Problems: An Address to the 80 Club’, 30 May 1891. 80 Club Year Book (London 1892).Google Scholar
4 As recorded by Playfair, L. in The Speaker, 4 Jan. 1890.Google Scholar
5 Wallace, R., ‘The Psychology of Labour and Capital’, Fortnightly Review, 1 Nov. 1893.Google Scholar (A writer on social problems, and a supporter of the 8-hour day, Wallace was one of a small group of Radicals in the 1892 Parliament who took a ‘progressive’ view on labour and social matters.)
6 For the lasting influence of wage-fund theory, Marshall, A., ‘Theories and Facts About Wages ‘, Appendix D in Report and Proceedings of the Industrial Remuneration Conference (1885); S., & Webb, B., Industrial Democracy (2nd ed., London, 1902) p. 604;Google ScholarSmart, W., The Distribution of Income (London, 1899);Google Scholar and Taussig, F. W., Wages and Capital (London and New York, 1896).Google Scholar
7 Mill, J. S., Principles of Political Economy (W. J. Ashley's ed., London, 1909), pp. 804, 818.Google Scholar
8 Ibid. p. 821f.
9 Fortnightly Review, 1 July 1890.
10 Quarterly Review, vol. 166, no. 331 (1888).
11 Mallet, B., British Budgets 1887–1913 (London, 1913), p. viii.Google Scholar
12 Buxton, S. and Barnes, G. S., A Handbook to the Death Duties (London, 1890).Google Scholar
13 Cf. Gardiner, A. G., Life of Harcourt (London, 1922), II, 295–6,Google Scholar and Appendix. (To the Duke of Devonshire's claim that the new duties represented the loss of between five and ten years’ income on an estate such as Chatsworth, Harcourt replied that he could never accept that a particular class of the community should be exempt from taxation merely in order that they might be magnificent.)
11 Harcourt to S. Buxton, 18 Apr. 1893, Sydney Buxton papers, unsorted (in the possession of Mrs E. Clay, Newtimber Place, Hassocks, Sussex).
15 A. Milner to Harcourt, 30 Mar. 1894, Sir William Harcourt papers, Box 2 (in the possession of Lord Harcourt, Stanton Harcourt, Oxfordshire).
16 Parliamentary Debates, 4th ser., vol. 23, c. 485–90 (16 04. 1894).Google Scholar
17 Liberal Magazine, Feb. 1894.
18 Westminster Gazette, 17 Apr. 1894. In response to suggestions from his son, Harcourt had considered introducing a graduated income tax on incomes in excess of £5,000 (Sir W. Harcourt papers, Box 8, Memo, dated 1 Feb. 1894 by Sir W. Harcourt). However, Milner's opposition on the grounds of administrative difficulties and the inquisitorial nature of the assessment proved decisive. Harcourt did tell Milner: ‘I still adhere stoutly to the principle (of graduation) and hope we shall one day find the means to carry it out’ (ibid., Box 8, Harcourt to Milner, 10 Mar. 1894).
19 From a minute on the budget dated 26 Mar. 1894 with signed agreement by eight members of the Cabinet (Sir W. Harcourt papers, Box 8). Sir Edward Hamilton recorded in his diary that H. H. Fowler had secretly agreed with Rosebery, but had been afraid to speak out (Add. MSS 48,663, 4 Apr. 1894).
20 Copies of the exchange between Rosebery and Harcourt are in the Sir W. Harcourt papers, Box 8, dated 3 Apr. and 4 Apr. 1894. Also James, R. R., Rosebery (London, 1963), pp. 342–3.Google Scholar
21 Liberal Magazine, June 1895.
22 Hayek, F. A., The Constitution of Liberty (London, 1959), pp. 309–10.Google Scholar
23 Lecky, W., Democracy and Liberty (London, 1896), I, 347.Google Scholar
24 For the impact of theories of land reform upon the theory of taxation, a fuller account may be found in the author's article ‘The Land Campaign: Lloyd George as a Social Reformer’ in Taylor, A. F. P. (ed.), Lloyd-George: Twelve Essays (London, 1971).Google Scholar Also S., & Webb, B., A History of Trade Unionism (2nd ed., London, 1920), p. 376 for the impact of the popular theory of economic rent.Google Scholar
25 The complete form of the Hobsonian thesis did not appear until 1909 when The Industrial System was published, but the ideas of over-production, the surplus income enjoyed by factors in monopolistic situations, and his stress on the difference between the power to consume and the desire to consume, with ensuing implications for the redistribution of income, all appeared in The Economics of Distribution (New York, 1900)Google Scholar and The Social Problem (London, 1902).Google Scholar
26 See especially the writings of W. H. Mallock in this period and articles in the Quarterly Review and The Spectator after 1906.
27 This distinction begins to assume a political significance after 1885 when Chamberlain first popularized the ‘ransom’ doctrine.
28 Hobson, J. A., The Taxation of Unearned Income (1908), Transactions of the Political and Economic Circle of the National Liberal Club, vol. 3.Google Scholar (Hobson was careful to stress that the appropriation of ‘social income’ first involved a careful (empirical) identification of the unproductive surplus. He criticized both Socialists and extreme land reformers for their unscientific approach to the concept of the surplus.)
29 The Economist, 25 May 1895.
30 Quarterly Review, vol. 184, no. 367 (1896).Google Scholar
31 Cf. The Standard, 24 Mar. 1903.
32 Mr Ritchie's address to the City, 17 July 1903; copy in the Lloyd-George papers (Beaverbrook library), C/14/1/1; (Ritchie lowered the income tax by 4d to IId).
33 Mill, J. S., op. cit. p. 824.Google Scholar
34 Cf. Quarterly Review, vol. 167, no. 334 (1888) for opposition to technical education;Google Scholar Salisbury considered the grant of free education had, in fact, cost him the election of 1892, Cecil, G., Life of Salisbury (London, 1932), IV, 401–2.Google Scholar
35 Cf. The Times, 13 Dec. 1893: ‘ To undertake unnecessary and expensive works to provide precarious employment for the unemployed would tend to bring about the disorganization of Labour…'
36 Armitage-Smith, G., The Principles and Methods of Taxation (London, 1906), p. 13.Google Scholar
37 Hirst, F. W., National Credit and the Sinking fund (1905),Google Scholar see also ‘ The National Budget ‘, published by The Economist in 1907: ‘One pound will only give a pound's worth of employment, whether it is spent by a private individual or by a Government department, and therefore Government expenditure merely transfers employment from one set of persons (to another).'
This may be compared with Mill (op. cit. p. 873) writing 40 years earlier: ‘If the capital taken in loans is abstracted from funds either engaged in production or destined to be employed in it, their diversion from that purpose is equivalent to taking the amount from the wages of the labouring classes.'
38 A. Chamberlain's address to the City, 14 July 1905; copy in the Lloyd George papers, C/14/1/6; also Armitage-Smith, op. cit. p. 130.
39 One aspect of this process of debt reduction which caused confusion, especially to the Labour Party after 1906, was the distinction between the realized surplus of the past financial year, which by law went into the sinking fund to pay off interest on the debt, and the estimated surplus of the coming financial year. In 1907, Asquith had to point out that he had no choice in the allocation of a realized surplus, and it could not therefore be devoted to old age pensions. Equally, it was an orthodox maxim that a Chancellor should be chary of anticipating a trade surplus, because any shortfall in his budgeted revenue would leave him no option but to borrow in the capital market – which was to be avoided.
40 F. W. Hirst to Sir H. Campbell-Bannerman, 19 Dec. 1905, Campbell-Bannerman papers, Add. MSS 41,238.
41 Hirst, F. W., ‘National Credit and the Sinking Fund (London, 1905).Google Scholar A Gladstonian Liberal and free-trader who believed firmly in limited Government, Hirst's opinions after 1906, as expressed in The Economist, grew increasingly gloomy over the implications of Liberal financial ‘extravagance’.
42 A. Chamberlain, op. cit. (C/14/1/6).
43 E.g. Buxton, S., The War, Its Cost, Finance and Legacies (London, 1903);Google ScholarHarcourt, Sir W., ‘National Finance’, Liberal Magazine, May 1901.Google Scholar
44 Campbell-Bannerman papers, Add. MSS 41,242. Memorandum dated 6 May 1904, fos. 1–7.
45 Thompson, P., Socialists, Liberals and Labour: The Struggle for London 1885–1914 (London, 1967) p. 148 (i.e. including Liberals and Labour).Google Scholar
46 E.g. Robertson, J. M., The Future of Liberalism (London, 1895)Google Scholar and The Fallacy of Saving (Glasgow, 1894);Google ScholarMasterman, C. F. G. (ed.), Heart of the Empire (London, 1900);Google ScholarSamuel, H., Liberalism (London, 1903);Google ScholarMacnamara, T. J., ‘In Corpore Sano’, Contemporary Review, Feb., 1905.Google Scholar
47 Giffen, R., ‘The Prospects of Liberal Finance’, Nineteenth Century, May 1906.Google Scholar
48 Money, L. G. Chiozza, Rides and Poverty (London, 1905).Google ScholarMoney suggested replacing the existing system of abatements (technically, a ‘degressive’ system) which were in force for incomes between £160 and £700, by a fully graduated scale rising to a full rate of is on earned incomes over £1,000. Unearned incomes over, £100 should all pay at 15. This, he thought, would do justice to the situation, for in 1902–3, there were only some one million income tax payers of whom only 250,000 paid tax at the full rate (i.e. possessed incomes greater than £700 p.a.).
49 Villiers, B., ‘A Fiscal Policy For Labour’, Independent Review, Nov. 1906.Google Scholar
50 Hardie, K., ‘A Labour Budget’, Financial Review of Reviews, Apr. 1906;Google ScholarSnowden, P., The Socialist's Budget (1907).Google Scholar With his proceeds, Hardie intended to abolish the ‘breakfast-table duties’, to establish old age pensions for all over 65, the feeding of schoolchildren, and to provide for educational and unemployment reforms. By taxing the rich, and distributing an extra 5s per week to each of the estimated 4 million whose wages were below £1 per week, he hoped to increase total spending power by £50 million a year.
51 Report of the Departmental Committee on the Income Tax, Cd. 2575, Parl, papers (1905), vol. XLIV.Google Scholar
52 Report of the Select Committee on the Income Tax, 11. 1906, Parl, papers, vol. IX.Google Scholar
53 Sir E. Hamilton papers, Asquith to Hamilton, 20 Mar. 1907 (Add. MSS 48,612) and 18 Feb. 1906 (Add. MSS 48, 683).
54 Hirst, F. W.The National Budget (London, 1907).Google Scholar
55 Parliamentary Debates, 4th ser., vol. 172, c. 1186, 18 04. 1907Google Scholar
56 Cabinet papers (Public Record Office) Cab. 37/87, no. 22, 26 Feb. 1907.
57 Ibid. Cab. 37/87, no. 28, Mar. 1907 (circulated by Lewis Harcourt).
58 See especially the series of articles in The Tribune by George Sims in July 1906 entitled ‘ The Bitter Cry of the Middle Classes ‘, which gave rise to an extensive (and sympathetic) correspondence in this paper and to repercussions in many other journals; e.g. The Times, 7 Sept. 1907 on the Middle Class Defence Organization; St Loe Strachey, ‘The Perils of Socialism’, National Review, Aug. 1907; ‘The Burden of the Middle Classes’, Fortnightly Review, 1 Aug. 1906
59 Original emphasis.
60 Haldane to Asquith, 8 Aug. 1908, copy in the Asquith papers (Bodleian Library), vol. II.
61 E.g. 'The Cost of Government’ in the Quarterly Review, vol. 204, no. 406 (1906), which condemned ‘the exaggerated notions of the functions of Government’.Google Scholar
62 Parliamentary Debates, 4th ser., vol. 193, c. 665, 25 07 1908 (A. Chamberlain).Google Scholar
63 Bunbury, H. (ed.), Lloyd George's Ambulance Wagon (London, 1957), p. 71.Google Scholar
64 J. S. Sterling to R. Giffen, 5 Mar. 1908, Giffen papers (London School of Economics).
65 In The Economic Journal, vol. 18, 1908, p. 336.Google Scholar
66 Parliamentary Debates, 4th ser., vol. 193, c. 695, 25 06 1908 (Banbury);Google ScholarEconomic Journal, vol. 18, 1908, p. 313.Google Scholar Banbury was the high-priest of financial orthodoxy, and a consistent and bitter opponent of Liberal social reform.
67 See 'The Land Campaign’, in Taylor, A. J. P. (ed.), Lloyd George: Twelve Essays (1971).Google Scholar
68 Daily News, 1 May 1909.
69 Robertson, J. M., The Great Budget (1910).Google Scholar
70 The Times, 30 Apr. 1909.
71 Giffen, R., ‘The Budget’, Quarterly Review, vol. 211, no. 420 (1909).Google Scholar
72 H. Oppenheim to Giffen, 24 Oct. 1909, Giffen papers, vol. 2. See also The Case Against Radicalism, published by the Conservative Central Office (1909); Bull, Sir W., ‘The Finance of the New Liberalism’, Financial Review of Reviews, Apr. 1910.Google Scholar
73 Parliamentary Debates, 5th ser., vol. 4, c. 584, 29 04. 1909.Google Scholar For Liberal opposition to the proposal, T. B. Ashton, c. 566, W. H. Lever, c. 578.
74 Ibid. c. 549.
75 Economic Journal, vol. 19, 1909, p. 288.CrossRefGoogle Scholar
76 Memorial in the Asquith papers, vol. 12, 14 05 1909.Google Scholar It was also printed in The Economist, 15 May 1909.
77 The Times, 30 Apr. 1909.
78 From a memorandum in the Asquith papers, vol. 92, 3 08. 1909.Google Scholar
79 Parliamentary Debates, 5th ser., vol. 32, c. 1719 and 1727, 7 12. 1911.Google Scholar
80 Ibid. vol. 12, c. 1715–19, 2 Nov. 1909.
81 Ibid. c. 1760–4 (2 Nov. 1909).
82 Ibid. c. 1720–2.
83 Ibid. c. 1711.
84 Ibid. c. 1734–6.
85 Ibid. c. 2022–4 (4 Nov. 1909).
86 Hobson, J. A., The Crisis of Liberalism (London, 1909), Preface.Google Scholar
87 See the speech by Joynson-Hicks in the debate of 13 Dec. 1911 (Parliamentary Debates, 5th ser., vol. 32, c. 2409)Google Scholar: Consols had fallen from 87 in 1905 to 77 in 1911. In the same period the German premier security had fallen by less than six points, and the French by only three. C. T. Mills (Conservative), declared that banks and finance houses had lost ‘hundreds of thousands of pounds’ in writing down the value of their Government securities. See also the debate of 13 Aug. 1913, and for a Liberal reply which saw the capital outflow in terms of the ‘surplus ‘ existing within the economy, Hobson, J. A., ‘Do Foreign Investments Benefit the Working-Classes?’, Financial Review of Reviews, Mar. 1909.Google Scholar
88 The Times, 5 Feb. 1913 (the reduction in the fixed debt since 1906 was approximately £100 million).
89 Parliamentary Debates, 5th ser., vol. 62, c. 311, 4 05 1914.Google Scholar
90 For the reliance upon under-consumptionism by progressive speakers in Parliament, see Parliamentary Debates, 4th ser., vol. 158, c. 450 (H. Vivian), and vol. 183, c. 247 (Ramsay Macdonald).Google Scholar
91 E.g. Parliamentary Debates, 4th ser., vol. 169, c. 125 (Leif Jones).Google Scholar
92 See especially his Economic Interpretation of Investment (1911).
93 C. F. G. Masterman, a Liberal Progressive and later Minister, for example, declared himself willing to support proposals for the state organization of industry, ‘but in the name of all that was sane in socialism, they were not going to start national industries out of unemployed labour – labour which had been squeezed outside the ordinary demand': Parliamentary Debates, 4th ser., vol. 183, c. 259, 30 01. 1908 (author's emphasis).Google Scholar
94 Cf. Hobson, J. A., Work and Wealth (New York, 1914).Google Scholar
95 Jones, R., ‘Our Taxes As They Are And As They Ought To Be’, Fabian Pamphlet, no. 152 (1913).Google Scholar
96 Mallet, B., op. cit. p. 455.Google Scholar
97 Ibid. p. 459 (Giffen had previously held that ‘on the whole an equal amount of indirect taxation causes perhaps only the half or the third of the privation and suffering entailed by an equal amount of direct taxation').
98 Parliamentary Debates, 5th ser., vol. 63, c. 1593–4, 22 06 1914.Google Scholar
99 The last increase in the graduated scale on earned incomes (i.e. 2d), and the last Id increase on unearned incomes was accordingly dispensed with.
100 Cf. Money, L. Chiozza, ‘Our £200 million Budget’, Contemporary Review, Apr. 1914.Google Scholar
101 The Nation, 9 May 1914 ('The New Finance').
102 Haldane, R. B., The Inwardness of the Budget (1914).Google Scholar
103 Parliamentary Debates, 5th ser., vol. 12, c. 1736, 2 11. 1909.Google Scholar
101 Property: Its Rights and Duties, with an introduction by Bishop Gore (1914), Preface and Introduction.
- 16
- Cited by