in legislation is nearly always advocated, in the first instance, on the ground that it is entirely exceptional, strictly limited in its application, certain to do no practical harm, and intended to secure some practical benefit. Once admitted, it soon becomes a starting-point or logical premise, and is pushed into new fields and to new consequences.
There are very few forms of confiscation which an ingenious man may not justify by the Irish precedent. Irish landlordism is far from being an exceptional thing, and oppressive rents and harsh evictions will be found in greater abundance in the poorer quarters of London, Paris, or New York, than in Mayo and Connemara. The well-known American writer, Mr. George, compares Irish landlords to useless, ravenous, destructive beasts, but he acknowledges, a few pages later, that they are in no degree harder than any similar class; that they are less grasping towards their tenants than the farmers who rent of them are towards the labourers to whom they sublet; that it is pure ‘humbug’ to pretend that ‘Irish landlordism is something different from American landlordism;’ and that the position of an American tenant is, in fact, not better, but worse, than that of an Irish one. ‘In the United States the landlord has, in all its fulness, the unrestricted power of doing as he pleases with his own. Rack-renting is with us the common, almost the exclusive, form of renting. There is no long process to be gone through to secure an eviction, no serving notice upon the relieving officer of the district. The tenant whom the landlord wants to get rid of can be expelled with the minimum of cost and expense.’ Mr. George quotes with approval the statement of an American judge that there are few months in which at least 100 warrants of ejection are not issued against poor tenants in the more squalid quarters of New York.47
In countless instances, indeed, the rents of poor men's houses, the value of poor men's investments, and the burdensomeness of poor men's contracts, are affected by circumstances which they could neither foresee nor control. How often does some great quarter of houses for the poor grow up in the neighbourhood of a flourishing industry, but a change of fashion, a new invention, a migration of population or capital, destroys the industry: work ebbs away, prices and wages change, contracts which were once easy and natural become overwhelmingly oppressive, and with diminishing or disappearing profits, the interest of money borrowed to carry on the business ruins the worker. Ought the State under such circumstances to constitute itself a kind of Providence, to break contracts and regulate anew the conditions of industry? And if it begins to do this, without giving compensation for rights that it takes away, and under mere political pressure, at what point is it likely to stop?
Reflections of this kind must have occurred to every thinking man who observes the course of modern politics, and the alacrity and complaisance with which schemes of the most wholesale plunder are in many quarters received. One favourite form has consisted of attacks on the private ownership of land, and the popularity attained by the writings of Mr. George, who preaches on this subject the most extreme doctrine, is a striking sign of the times. Nothing, indeed, in history or in economics is more plain than that the strong stimulus of an exclusive personal interest can alone attract to land the labour and the capital that make it fully productive, and that the productiveness of the soil is one of the first conditions of the well-being of the whole community. The transition from the common ownership of land which existed when mankind were thinly scattered nomads and hunters, to a divided land cultivated and fertilised by individual industry, was one of the first and most valuable steps in the progress of civilisation. Nothing also in morals is more plain than that to abolish without compensation that private ownership which has existed unquestioned for countless generations, and on the faith of which tens of thousands of men in all ages and lands, and with the sanction and under the guarantee of the laws of all nations, have invested the fruits of their industry and their thrift, would be an act of simple, gross, naked, gigantic robbery. Were it not so, indeed, the words ‘honesty’ and ‘dishonesty’ would have no real meaning. Yet such a proposal has been warmly welcomed, such a measure has been eagerly advocated, by many who would be very indignant if they were described as the accomplices of thieves, and who would probably be perfectly incapable in their private capacities of an act of dishonesty. If, on the other hand, the State simply purchased honestly the land of the country, and placed itself in the position of the landlord, it is easy to show that the whole transaction could only end in a ruinous loss. The position of the occupying tenant would be unchanged, except that he would pay his rent, not to a private individual, but to the representative of the State. The purchase money could only be raised by a colossal loan, which would have to be paid for in the shape of interest. The returns from land are so small that, far from furnishing a surplus for the relief of taxation, they would, in most cases, be insufficient to pay the simple interest of this loan, even if it could be raised on ordinary terms. But every competent judge must know the utter impossibility of raising such a loan at the ordinary price, and without producing a financial convulsion probably more tremendous than any that the world has seen.48
Another doctrine which, in different forms, has spread widely through public opinion is that of Mill about ‘the unearned increment.’ Starting from the belief that the value of land has a natural tendency to increase through the progress of society, and without any exertion or sacrifice on the part of the owner, Mill proposed that this ‘unearned increment’ should be steadily intercepted and appropriated by the State in the form of taxation. It was true, Mill acknowledged, that men had long bought land, which brings a smaller return than almost any other form of investment, through a belief that their income would gradually increase, and with an implied assurance that they would only be taxed in proportion to other incomes. Mill, however, very honestly met this objection by maintaining that the confiscation of the increment should only take place from the present time and with due notice, and that the landlord should have the alternative of receiving from the State the present market value, which includes the present value of all future expectations.
In the long period of agricultural depression through which England and most other countries have passed the doctrine of ‘an unearned increment’ wears an aspect of irony. For many years the market value of agricultural land, instead of rising, has been steadily falling, and history clearly shows that the same phenomenon has taken place in many long periods and in many great countries. If the State takes from the owner by exceptional taxation the normal rise in the value of his land, it may very reasonably be expected by exceptional legislation to compensate him for its fall.
No statement can be more palpably untrue than that ‘unearned increment’ is a thing in any degree peculiar to land. The growth of population and the development of civilisation exercise exactly the same influence on the shares of a railway or a dockyard; on the wages of the labourer; on the fees of the professional man; on the masterpieces of art; on the value of innumerable articles of commerce. In countless cases property is increased, or industry and ability reap larger rewards in consequence of changes which do not lie within themselves, and to which they have contributed nothing, but which are wholly due to extraneous and surrounding circumstances. Ask any rich man which of his investments, without any sacrifice or exertion on his part, have doubled or trebled in value, and you will find that in the great majority of cases they have no connection with land. What reason is there, therefore, for selecting for exceptional and penal taxation the single form of property which usually produces the least return, and which is associated to the greatest degree with the discharge of duties that are eminently useful to the State? And this proposal is made in a country where so large an amount of money has been sunk in land by many generations of proprietors that the actual rent would represent, in very many instances, nothing more than the lowest interest on the outlay; in a country where the value of personal property enormously exceeds that of land, and has been, during the last century and a half, advancing with a vastly greater rapidity. According to Sir Robert Giffen, land in England constituted in 1690 about 60 percent. of the national wealth, and in 1800 about 40 percent. In the United Kingdom it constituted, in 1812, 44 percent.; in 1865, 30 percent.; in 1875, 24 percent.; in 1884, only 17 percent.49
The true explanation of such proposals is political. It is to be found in that almost rabid hatred of the landed interest, growing out of political antagonism, which has characterised large bodies of English Radicals, and which, in a time when the deep agricultural depression forms probably our most serious national evil and danger, makes the increased taxation of land one of the most popular of Radical cries.