Castle, had, in consultation with Lord Dunraven, drafted a scheme for transferring parts of Irish administration to a purely Irish authority, a situation rapidly defined itself in which Ulster broke away from the more liberal elements in Irish Unionism. The Ulster group demanded and obtained the resignation of Mr. George Wyndham; they demanded also the dismissal of the Under-Secretary. But Sir Antony MacDonnell was not of a resigning temper; he had not acted without authority, and he was defended zealously by the Irish members. The section of Liberal opinion which adhered rather to Lord Rosebery than to Sir Henry Campbell-Bannerman probably drew the conclusion that the Irish party were prepared at least to tolerate the policy of approaching Home Rule step by step; and beyond doubt they were impressed by the prestige of Sir Antony MacDonnell's record and personality. The son of a small Irish Catholic landlord, educated at the Galway College of the Queen's University, he had entered the Indian Civil Service and in it risen to the highest point of power. The recommendation that he should be brought home to assist in the Government of Ireland had come from Lord Lansdowne, then Governor-General of India, who knew that the famous administrator of the Punjab was a Catholic Irishman of Nationalist sympathies. He had been accepted by Mr. Wyndham, his official chief, "rather as a colleague than as a subordinate." Officially and publicly, the credit for the Land Act of 1903 went to the Chief Secretary, and Mr. Wyndham deserves much of it. But no one who knew the two men could have doubted that in the shaping of a measure involving so wide a range of detail, the leading part must have been taken by the Irish Civil Servant who in India had acquired most of his fame from a sweeping measure of land reform.
Proposals to alter the method and conduct of Irish administration before touching the parliamentary power to legislate and to tax came with extraordinary weight in coming from such a man; and the history of the previous Home Rule Bills was not encouraging to anyone, especially to those who had been members of Mr. Gladstone's two last administrations. From the time of the Parnell divorce case onwards, the Irish question had brought to Liberals nothing but embarrassment and embitterment. The enthusiasm for Home Rule which grew steadily from 1886 up to the severance between Gladstone and Parnell had vanished in the squalid controversies of the "split." Moreover, now, by the action of Mr. Chamberlain, a new dividing line had been brought into British politics. The cry of Protection seemed in the opinion of all Liberals to menace ruin to British prosperity; the banner of Free Trade offered a splendid rallying-point for a party which had known fifteen years of dissension and division. Prudent men thought it would be unsafe, unwise and unpatriotic to compromise this great national interest by retaining the old watch-word on which Gladstone had twice fought and twice been beaten.
It was clear, too, that a Home Rule Bill would provoke a direct conflict with the House of Lords and would raise that great struggle on not the most favourable issue. Statesmen like Sir Edward Grey and Mr. Asquith probably believed that a partial measure, an instalment of self-government, to which some influential sections of the Tory party would not be unfriendly, might have strong hopes of passing into law.
So it came to pass that in the election of 1906 the Liberal Party came into power with a majority of unexampled magnitude, but with a Government pledged, negatively, not to introduce a Home Rule Bill in that Parliament, but, positively, to attempt an Irish settlement by the policy of instalments.
In all this lay the seeds of trouble for the Irish leader. Liberals have never understood that Ireland will not take from them what it would take from the Tories. It will accept, as a palliative, from the party opposed to Home Rule what it will not accept from those who have admitted the justice of the national demand.
II
"For myself," said Redmond in his speech to the Irish Convention in May 1907, "I have always expressed in public and in private my opinion that no half-way house on this question is possible; but at the same time I am, or at any rate I try to be, a practical politician. In the lodgment this idea of instalments had got in the minds of English statesmen I recognized the fact—and after all in politics the first essential is to recognize facts—I recognized the fact that in this Parliament we were not going to get a pure Home Rule Bill offered, and I consented, and I was absolutely right in consenting, that whatever scheme short of that was put forward would be considered calmly on its merits."
This meant that during the whole of the year 1906 and a part of 1907 the proposal of the new Irish Bill was under discussion with the Irish leaders. The course of these deliberations was undoubtedly a disappointment. Mr. Bryce was replaced by Mr. Birrell as Chief Secretary, but the scheme still fell short of what Redmond had hoped to attain. Unfortunately, and it was a characteristic error, his sanguine temperament had led him to encourage in Ireland hopes as high as his own. The production of the Irish Council Bill and its reception in Ireland was the first real shock to his power.
Mr. Birrell in introducing the measure spoke with his eye on the Tories and the House of Lords. He represented it as only the most trifling concession; he emphasized not the powers which it conveyed but the limitations to them. Redmond in following him was in a difficult position. He stressed the point that to accept a scheme which by reason of its partial nature would break down in its working would be ruinous, because failure would be attributed to natural incapacity in the Irish people. Acceptance, therefore, he said, could not be unconditional and undoubtedly to his mind it was conditioned by his hope of securing certain important amendments, which he outlined. None the less, the tone of his speech was one of acceptance, and he concluded:
"I have never in all the long years that I have been in this House spoken under such a heavy sense of responsibility as I am speaking on this measure this afternoon. Ever since Mr. Gladstone's Bill of 1886 Ireland has been waiting for some scheme to settle the problem—waiting sometimes in hope, sometimes almost in despair; but the horrible thing is this, that all the time that Ireland has been so waiting there has been a gaping wound in her side, and her sons have had to stand by helpless while they saw her very life-blood flowing out. Who can say that is an exaggeration? Twenty years of resolute government by the party above the gangway have diminished the population of Ireland by a million. No man in any position of influence can take upon himself the awful responsibility of despising and putting upon one side any device that may arrest that hemorrhage, even although he believed, as I do, that far different remedies must be applied before Ireland can stand upon her feet in vigorous strength. We are determined, as far as we are concerned, that these other remedies shall be applied; but in the meantime we should shrink from the responsibility of rejecting anything which, after that full consideration which the Bill will receive, seems to our deliberate judgment calculated to relieve the sufferings of Ireland and hasten the day of her full national convalescence."
There is no doubt that the element in him which urged him to welcome anything that could set Irishmen working together on Irish problems made it almost impossible for him to throw aside this chance. It was clear to me also that by long months of work in secret deliberation the proposals originally set out had been greatly altered, so much so that in surveying the Bill he was conscious mainly of the improvements in it; and that in this process his mind had lost perception of how the measure was likely to affect Irish opinion—especially in view of his own hopeful prognostications. At all events, the reception of Mr. Birrell's speech, even by Redmond's own colleagues, marked a sudden change in the atmosphere. Some desired to vote at once against the measure; many were with difficulty brought into the lobby to support even the formal stage of first reading. In Ireland there was fierce denunciation. A Convention was called for May 21st. The crowd was so great that many of us could not make our way into the Mansion House; and Redmond opened the proceedings by moving the rejection of the Bill. In the interval since the debate he had been confronted with a definite refusal to concede the amendments for which he asked.
These were mainly two, of principle: for the objection taken to the finance of the Bill was a detail, though of the first importance. The Bill proposed to hand over the five great departments of Irish administration to the control of an Irish Council. The decisions of that Council were to be subject to the veto of the Lord-Lieutenant, as are the decisions of Parliament to the veto of the Crown. But the Bill proposed not merely to give to the Viceroy the power of vetoing proposed action but of instituting other action on his own initiative. Secondly, the Council was to exercise its control through Committees, each of which was to have a paid chairman, nominated by the Crown.