So far as plebiscites have been taken throughout the Dominion, they have been in every province in favour of prohibition. There are three provinces in which there has been no voting,--New Brunswick, British Columbia, and Quebec. The last named is admitted to be, on account of the large proportion of settlers of French descent in its borders, the province least friendly to the suppression of the traffic; but the other two are generally regarded as strongholds of temperance. The opinion of New Brunswick may be seen by the following resolution pa.s.sed by its Legislative a.s.sembly on the 7th April, 1893: "Whereas, in the opinion of this Legislative a.s.sembly, the enactment of a prohibitory liquor law would conduce to the general benefit of the people of the province, and meet with the approval of a majority of the electorate; and whereas legislative power in respect of the enactment of such law rests in the Parliament of Canada; therefore, resolved that this a.s.sembly hereby expresses its desire that the Parliament of Canada shall, with all convenient speed, enact a law prohibiting the importation, manufacture, and sale of intoxicating liquors as a beverage, into or from the Dominion of Canada."
Many demands have been made that the Dominion Parliament, under the powers it was declared to possess by the Privy Council decision of 1882, shall immediately enact a Dominion prohibitory law. This, however, it refuses to do; and Sir John Thompson, the Dominion Premier, recently stated he can do nothing this Session, owing to the tariff reductions; and he does not think it would be a proper course to announce a policy until after the report of the Royal Commission on the question has been presented.
CHAPTER II.
LOCAL CONTROL IN NEW ZEALAND.
In no British colony is the temperance sentiment stronger, or is there more likelihood of the agitation for prohibition being brought to a successful issue, than in New Zealand. Its statesmen have shown during the last few years great political venturesomeness; the parliamentary suffrage has been given to women; social, it may be said socialistic, legislation of a most p.r.o.nounced character has been encouraged, and the dreams of English Radicals have turned to blossom and fruit under the Southern Cross. The danger at present seems to be, not that the changes will be too slow, but that politicians, eager to antic.i.p.ate the public wishes, may adopt and carry advanced legislation for which the colony is not prepared.
This danger has been greatly increased since the pa.s.sing of female suffrage. Whatever merits women may have as politicians, moderation is not one of them; and in the last election they plainly showed that they intend to select for power the men of most outspoken views and extreme policy.
New Zealand is a country of to-day, and knows but little of the social difficulties that are taxing all the energies of politicians in lands with a longer history. The rougher and poorer emigrants have mostly chosen the other Australian colonies in preference to it, and it is peopled to-day by a picked body of prosperous Englishmen and Scotchmen. As regards the consumption of liquor, it takes almost the lowest place among those lands that fly the Union Jack. The average expenditure per head comes to only a little over three pounds a year, and the amount of proof spirits consumed per head in the same time is a little over two gallons, or only about half of the quant.i.ty drunk in England. The prohibitionist party is very strong in the colony, and is led by Sir Robert Stout, the Liberal ex-Premier. The prohibitionists do not attempt just now to secure a measure forbidding the sale of liquor throughout the colony, for they regard that as at present impracticable. Their demands for the time are local option of prohibition by a simple majority, and no compensation. This latter point they have secured; and the question of pecuniary compensation to dispossessed publicans is no longer within the range of practical politics in New Zealand. In 1892 a Licensed Victuallers" Compensation Bill was brought before the House of Representatives; but it aroused such general opposition that its proposers did not venture to ask for a division on it.
The tendency of legislation has been for some years steadily in the direction of giving increased direct power of control to the people. For some time the supervision of the drink trade was left in the hands of the various Provincial Councils, but in 1873 Sir William Fox, then Premier, carried a measure through Parliament which granted to two-thirds of the adult residents in any neighbourhood the right of preventing the issue of new licences there, on notifying their desire in that respect by signing a pet.i.tion. Eight years later, a new Act repealed this veto law, and provided a more complicated machinery for dealing with the question.
According to this, a Licensing Board was chosen annually by the electors in each district, and once in every three years the ratepayers voted on the question whether any licences should be issued in their neighbourhood.
If they decided in the negative, the Board had to abide by their decision; but should they wish for an increase, the matter was then brought before the Board, though this body was by no means obliged to grant new licences, even when the popular vote had given it power to do so.
In many ways this Act proved a practicable, workable measure. The Inland Revenue returns showed each year, from the pa.s.sing of the Act up to 1889, a steady diminution in the consumption of drink, amounting altogether in the seven years to twenty-five per cent.; and though this reduction has not been quite maintained during subsequent years, the trade is still considerably less than it formerly was. The Act stopped the increase of public-houses, though very few of the old hotels were deprived of their licences under it. Out of 1500 licensed houses in the colony, only twenty-five were closed under the Act during the first seven years. Since that time the advanced temperance party showed considerably more activity in this direction, and succeeded in obtaining a withdrawal of most of the licences in more than one district. But a doubtful legal point cropped up, as to how far Local Boards have the power to take away old licences, that prevented very much being done. In a certain licensing district the temperance party aroused itself and succeeded in electing a Board pledged to close the hotels. The Board kept its promise, and thereupon the liquor-sellers brought a case before the courts, on the grounds that the members of the Board had publicly pledged themselves as to their line of action before election, and therefore they were bia.s.sed and did not deal with the licences in a judicial manner. The court upheld the publicans and declared that the deprival of the licences was illegal. This decision, of course, practically took from the electors the greater part of their local control. Another point in which the system proved unsatisfactory was in the supervision of licensed houses. There seems to be a general opinion among moderate men that the Boards were not nearly strict enough in bringing offending licence-holders to book.
The Act of 1883 was not sufficiently drastic to satisfy the temperance party; and last year Mr. Seddon, the Liberal Premier, brought before the Legislature and carried a liquor law which he said would meet with the approval of all parties. The measure is called "An Act to give the people greater control over the granting and refusing of licences". The licensing authority is still left in the hands of locally elected bodies: though no member of any such body can be disqualified from sitting or acting because he has at any time expressed his views or given any pledge as to the liquor traffic. The whole of the colony is now divided into sixty districts, and each of these has its own Board, consisting of the resident magistrate, and eight other residents in the district. Any elector living in a district shall be qualified to become a candidate for election to the Board there, unless he is a paid colonial or local official, or is directly or indirectly pecuniarily interested in the liquor traffic. When, once in three years, the licensing committee is elected, each voter has submitted to him at the same time three alternatives: and he must scratch out two of these, thus voting for the one he leaves untouched, or his paper will be void. The three choices are:--
(1) I vote that the number of publicans" licences continue as at present.
(2) I vote that the number of publicans" licences be reduced.
(3) I vote that no publicans" licences be granted.
No vote for a committee-man will be counted unless the elector also chooses one of these things at the same time as he votes for the members of the committee.
On the result of the direct vote the committee must act. No election is valid unless at least one-half of the voters on the register take part in it. An absolute majority of the votes recorded in any district carries either of the first two propositions, for no alteration or for reduction; but the proposal for no licences at all can only be carried on a majority of three-fifths of those voting deciding in favour of it. If the votes for no licence are under three-fifths, they are added to those for reduction, and counted as part of such. Where the proposal for reduction is successful, the committee shall carry out such reduction as it may think fit, provided that it does not exceed one-quarter of the total number of public-houses. Such licences as have been endorsed for breaches of the law since the pa.s.sing of the Act are first to be taken away, and then those held in respect of premises which provide little or no accommodation for travellers beyond the bar.
The temperance party is seriously dissatisfied with this measure. "This Bill, I believe," said Sir Robert Stout in the House of Representatives, "is a Bill more in favour of the liquor traffic than if I had met the Licensed Victuallers" a.s.sociation, and asked them to come to some compromise. I believe the a.s.sociation would have given a more reasonable Bill to the temperance party than this measure. That is my opinion, and I believe I am speaking what is correct, from what I have heard." The chief objections of the local optionists are to the clauses that provide for a three-fifths majority for prohibition, and for a 50 per cent. poll before an election is valid; they also say that the licensing areas are too large, and that the Act practically gives the publicans three years"
licences. At the parliamentary elections that took place since the measure was pa.s.sed, the question of a bare majority sufficing to carry the proposal for no licences has been made a test one everywhere; and the teetotalers, aided by the women"s vote, have carried their point in so many places that there seems every prospect of the law being altered in this respect almost immediately.
The first licensing election under the new Act took place at the end of March, 1894. A fresh and somewhat disturbing factor was introduced in it by the voting power of the newly enfranchised women. The women were (as they had been in the parliamentary elections) by an overwhelming majority in favour of either no licences or reduction, usually the former.
Sometimes they allowed their zeal to slightly outrun the bounds of womanliness. Thus, at one meeting at Christchurch, called by the leading clergy for the consideration of the question, they took possession of the hall, voted down the proposals for reduction, and refused to listen to the speakers. The chairman would not allow them to put their amendment for no licence, so they would not let the meeting continue. They were as rowdy (if reports in various local papers can be trusted) as an excited meeting at a fiercely contested election in England. Finally they determined to there and then convert one of their leading opponents. "Pastor Birch,"
reports the _Christchurch Weekly Press_, "says that when he came out of a meeting the ladies were hatching a conspiracy against him. They intended, when he left the meeting, to surround him in the middle of the road. A compact ring of female enthusiasts was to be formed round him, and, when they had him fairly wedged in, they intended to kneel down and pray for him. The worthy pastor, it appears, declined this delicate attention, but was at a loss how to escape. Ultimately, I believe, he hit on the device of leaving the hall supported on one side by his lordship the bishop, and on the other by Father Bell. This saved him, the women found it impossible to surround Pastor Birch without including his companions, and so let him escape."
Full reports of the results have not yet reached England, but sufficient is known to make it certain that the temperance party has gained a great victory. Had it not been for the three-fifths clause, the greater part of the country would have gone under prohibition. At the time the last mail left New Zealand, the results were known in twenty-six out of the sixty licensing divisions; and the total votes there showed that 23,752 were for prohibition, 9467 for reduction, and 16,862 for no alteration. At Wellington, where the contest excited great interest, and was looked upon as a fair test for the whole colony, the results were: for prohibition 3397, for reduction 1283, for no alteration 3581. In only one place was the necessary majority obtained for no licences, and in another place the people have decided for no bottle licences. There were quite a number of districts where the prohibitionists were only a few dozen short of the required majority.
The results have amply borne out the objection to its being necessary for 50 per cent. of the electors to vote before the election is valid. In several places the publicans gave orders for their supporters to abstain from voting, and thus prevented public opinion being tested. At Auckland the temperance people made no attempt to prohibit or reduce, for they knew that it would be hopeless to think of securing a sufficient poll by themselves. The _New Zealand Herald_ (28th March, 1894) says: "We think it will be found, when the whole of the returns come to hand, that in more than half the districts the whole proceedings are void, because half the names on the roll did not vote. The law may be defeated because one party may, previous to the elections, place a crowd of names on the roll, either merely bogus names, or the names of persons whom they know will not take the trouble to go to the poll. And as the matter stands, the ballot is practically defeated in many instances. Where there are no candidates to be voted for those acting in the interest of the hotels know, when they see a man going to the polling booth, that he is going to vote either for reduction or prohibition, and they appeal to him: "You are surely not going to give a vote against us?""
From what seems to be a mistaken policy, the advanced temperance party refused to take any part in the choice of committee-men; consequently, while nearly every place has chosen reduction, the amount of reduction will now be decided by men elected largely by the liquor interest. It is hard to see what benefits the prohibitionists hope to obtain from this course, unless, as many aver, they want the public-houses made as disreputable as possible, so that the people will be more eager to get rid of them.
The opinion of various cla.s.ses in the colony as to the outcome of the election can, perhaps, be best seen by extracts from their own journals.
The _Lyttelton Times_ (anti-prohibitionist) says: "The first really genuine local option poll has shown the people to be determined upon further reducing the number of licensed houses. The polling, which was everywhere conducted with the most perfect decorum and good feeling, has served several useful purposes. It has demonstrated the strength, and weakness, of the prohibition party; it has elicited a very decided expression of public opinion that the existing number of licences is in excess of public requirements; it has shown that the people can be safely trusted with full executive and judicial powers in a manner affecting their interests; and it has, we hope, settled the vexed licensing question for three years to come."
The (Wellington) _New Zealand Times_ says: "The present interest centres in the large prohibition vote. The weight of that vote is a surprise and a warning. Few were prepared for it, but most people frankly confessed their inability to gauge the new power. Now that this power has declared itself, few will be prepared to deny that prohibition has come appreciably nearer than a year ago any one thought it would come in this generation.... The decided prohibitionist leaning of the body of electors is a warning that nothing but strict regulation, worthy of the name, will serve to stem the advancing tide."
On the other hand, the _Otago Witness_, although a strongly temperance paper, is inclined to explain away the prohibitionist vote. "Numbers of temperance people, properly so called, are working with prohibitionists,"
it says. "They say to themselves, "Whatever results may be obtained from this agitation of the prohibitionists, they are sure to fall so far short of their aim that by helping them we can accomplish our own".... We may yet find the bulk of the people advocating prohibition, not because it will prohibit, but because it will restrict."
The _Manawatu Daily Standard_ considers: "If the present state of the public mind be any criterion, the day would seem to be dawning when prohibition will come upon us; but the feelings of many would revolt against such a revolutionary procedure being entered upon at the present time".
The _Christchurch Press_ says: "The polling was nowhere so heavy as we were led to suppose by a great many enthusiasts it would be.... A great many abstentions may be accounted for by the fact that those whose desire was for a reduction felt pretty confident that with the votes of the no licence people it would be carried, and consequently they did not take the trouble to vote.... The great lesson which we learn from these elections as to the feeling of the public of New Zealand on this licensing question is that a vast majority are not prepared to go to the extreme length of closing all the houses, but that a great majority do desire that there shall be a reduction of something like 25 per cent.; and that those which remain must be made to understand that they retain their licences only on condition that their houses are well conducted in all respects--that is to say, that they only sell good liquor to sober people within legal hours."
CHAPTER III.
LICENSING IN AUSTRALIA.
A year or two ago Mr. David Christie Murray stirred up the wrath of the Australians by charging them, in effect, with being the most drunken people under the sun. This statement, like most other sweeping denunciations, requires to be taken with a considerable amount of reserve; but it certainly is true that our Antipodean cousins are, to judge from the evidence afforded by their revenue returns, afflicted with a chronic and incurable thirst. The average consumption of proof alcohol in several of the colonies is almost as great as in England.
The liquor laws of Australia are now in much the same condition as many are striving to make ours at home. Local option is in force over the greater part of the continent. Sunday closing is generally compulsory, and the licensed victualler is bound by many restrictions unknown to his brother here. As each colony is entirely independent of the others, their laws differ, and must be described separately. For the purposes of this volume it will be sufficient to deal with Victoria, New South Wales and Queensland, as the laws of the remaining Australian colonies present no particular features which call for comment.
_Victoria._--In Victoria, in spite of the fact that the control of the liquor traffic is almost wholly in the hands of the people themselves, the annual consumption of drink costs nearly 6 per head. This, however, is a mere trifle to what it once was, for during the gold rush in the fifties the cost was nearly 30 a head yearly for every man, woman, and child in the colony. It is misleading, however, to compare the expenditure in England and Victoria, and judge the amount consumed by it; for in the Antipodes things generally are much dearer, and money is cheaper than at home. The Victorians consume about 12 per cent. more spirits, between four and five times as much wine, and not much more than half the beer, per head of population, than we do.
From the time when Victoria separated from New South Wales down to 1876, a decidedly retrograde policy was adopted; licence fees were reduced, grocers" licences introduced, and beer shops legalised. But in the last-named year the liquor laws were amended by a measure giving limited local control over the traffic; and in 1882 a further Act was pa.s.sed by which the local powers were considerably increased. Under the present law one-fifth of the electorate in any district can pet.i.tion the Governor in Council to hold an election to settle the number of public-houses to be permitted there, and he is then obliged to cause a popular vote to be taken on the question. Each elector states on a ballot paper how many hotels he wishes to be licensed, and the number named by him must be the number then existing, the statutory number, or some number between. The statutory number has been fixed at one for every 250 inhabitants up to the first thousand, and one for every full 500 beyond. Where the number is greater than this it can be reduced by a poll to that limit; where it is less, it can be raised in a similar way up to it. But in no case can the number be reduced below or increased above the statutory limit.
In arriving at the decision of the electors, if a majority vote for any particular number then that number is carried. Where, however, the votes are so scattered that no particular number commands a majority over all the others the following plan is adopted. "Suppose a district with 48 hotels, and 12 as the statutory number. Suppose, further, that 600 votes be recorded, of which 250 are for 48, 200 for 12, 20 for 13, 20 for 14, 20 for 15, 20 for 16, and 21 for 17. The votes given for the higher numbers would be added to those given for 12 until they made a majority of votes recorded. In this case by the time the number 17 is reached, there would be a total of 301 votes, making a majority of the 600, and the determination would be that the hotels be reduced to 17."[7]
Where the electors decide in favour of a reduction, a licensing court sits and decides what houses are to be closed. The licensing inspector has to summon all the hotel-keepers before the court, and the court selects the houses which are worst conducted, or which provide least accommodation, as the ones to lose their licences. The houses which are thus closed are given a monetary compensation on account of the annual value of the premises being lowered: the exact amount of the compensation is fixed by two arbitrators, appointed one by the owner and another by the minister.
In case these cannot agree a county court judge or police magistrate is nominated by them as umpire. The whole of the compensation money is raised from the "trade" itself, by means of increased licensing fees and penalties for breaches of the liquor law. If these amounts are not sufficient, a special tax is imposed on liquor in order to meet the deficiency.
The amounts awarded as compensation have been, in the opinion of many, absurdly high. Thus at Ballarat East, where forty hotels were closed, the compensation awarded was, to owners, 26,126 0s. 9d.; to licensees, 13,855 18s. 4d. At Ballarat West, where twenty-six hotels were closed, the compensation came to, for owners, 12,280; for licensees, 8973. At Broadford the total cost of closing four places was 1220. The fact that compensation is paid makes many voters far less keen than they otherwise would be for reduction, even though the money so paid does not in any way cost them anything.
In many parts considerable use has been made of the powers of reduction.
Thus in fourteen local option polls that took place in twelve months the people decided either for reduction or against increase, according as the purpose for which the poll was taken. The Victorian licensing laws have certainly prevented any considerable increase of hotels, though they have had but little effect in reducing the drink traffic itself.
The following communication from Mr. John Vale, secretary of the Victorian Alliance, shows how temperance men regard the present law. "The local option law of the colony," he writes, "first came into force in 1886; some polls were then taken, but for the most part were rendered void by the condition that one-third of the electors must record their votes in order to const.i.tute a poll. The publican party adopted the policy of not voting, and letting it be known that all who were seen entering the polling booth would be marked men, to be injured in every possible way. Thus, the secrecy of the ballot was destroyed. Only the temperance stalwarts faced the ordeal, and we were generally just a few short of the required number.
In 1887 this condition was repealed, in so far as it related to the reduction of hotels. In the following year other polls were taken with success; but then, with brewery money, a process was begun known as "stonewalling" in the law courts. The publicans would appeal on some technical point. Being defeated on that they raised another point; and so on, until after a time they hit upon one which had something in it, or the Government got tired of the process. As a result most of the victories of 1888 were made of non-effect. We then secured a provision doing away with the power of appeal in connection with local option polls. Since then, victories have been secured in a number of important centres, and the condemned hotels have been or are now being closed. The Victorian Alliance, however, has come to the determination to promote no more polls under the present law. It is believed that polls for prohibition could be carried with no more effort than is required to win victories for reduction. The antagonism to compensation has grown with experience. And in certain cases the licensing courts have used the power which they possess to issue colonial wine licences for public-houses closed by the popular vote, and in respect of which compensation had been paid. Wine shops are generally the worst cla.s.s of drink shops; so that the last state of these houses has become worse than the first: for these, and other reasons, the above-mentioned resolution has been adopted.
"In future we shall concentrate our efforts on securing the direct veto without compensation. To this end we are about to secure the introduction of a Bill in Parliament. It will provide for a vote in each electoral district in conjunction with a general election, which takes place at least every three years, on the simple issue of prohibition. Each electoral district to decide the matter for itself. The prohibition would apply to the manufacture as well as the sale of intoxicants. A distinctive feature of the Bill is that it will provide for all women voting upon this question equally with all men. It, of course, provides for the repeal of compensation."
_Queensland._--Queensland has the most simple and thorough-going Local Option Act of any of the southern colonies. By this Act, which was carried in 1885, one-sixth of the electors in a place can cause a direct vote to be taken on one or all of three propositions: (1) that the sale of intoxicating liquors shall be prohibited; (2) that the number of licences shall be reduced to a certain number, not being less than two-thirds of the existing number; (3) that no new licences shall be granted. The Act requires a two-thirds majority to carry the first proposition, but the second and third are carried by a simple majority. In over eighty per cent. of the elections held for the purpose of voting new licences, the temperance party has won. Very few attempts have been made to secure prohibition, and none of them have been successful: in a few cases, however, the people have decided in favour of reduction. The experience of Queensland seems to point to the conclusion that in a community where prohibitionists are not very strong (as in England) a provision giving the people power of preventing the issuance of new licences will do more good than placing in their hands the option of prohibition which they will not use.
In Queensland children under fourteen may not be served with liquor even to take away, and persons under eighteen may not be served for consumption on the premises.
_New South Wales._--The present liquor law of New South Wales was carried by Sir Henry Parkes in 1881, and came into force at the beginning of 1882.
The power of granting licences is placed in the hands of stipendiary magistrates specially appointed by the Government, and several restrictions are placed around the trade. The people are given a limited local option as to whether they will have new licensed houses or not.
Polls take place on this question once every three years, at the same time as the munic.i.p.al elections. The popular veto only applies to small houses however, and hotels with over twenty rooms can be licensed whether the people wish it or not.