L4 
 
 difornial 
 
 ;ional 
 
 ility
 
 UNIVERSITY OF CALIfflRNM 
 RIVERSIDE
 
 v ; 
 
 THE EMPIRE 
 
 ITS VALUE AND ITS GROWTH 
 
 DELIVERED AT THE IMPERIAL INSTITUTE, NOV. 20, 1893 
 UNDER THE PRESIDENCY OF H.R.H. THE PRINCE OK WALKS 
 
 W. Ef H. LECKY 
 
 LONDON 
 LONGMANS, GREEN, AND CO. 
 
 AND NEW YORK : 13 EAST IC" 1 STREET 
 1893 
 
 All
 
 L-4
 
 THE EMPIEE 
 
 I HAVE been asked on the present occasion 
 to deliver a short address which might 
 serve as an introduction to the course of 
 lectures and conferences on the history 
 and resources of the different portions of 
 the Empire which are to take place in the 
 Imperial Institute. In attempting to dis- 
 charge this task my first reflection is one 
 which the very existence of the Institute 
 can hardly fail to suggest to anyone with 
 any knowledge of recent history. It is 
 the great revolution of opinion which has 
 
 A 2
 
 THE EMPIRE 
 
 taken place in England within the last few 
 years about the real value to her both of 
 her Colonies and of her Indian Empire. 
 Xot many years ago it was a popular 
 doctrine among a large and important class 
 of politicians that these vast dominions 
 were not merely useless but detrimental 
 to the Mother-country, and that it should 
 be the end of a wise policy to prepare 
 and facilitate their disruption. James Mill, 
 who held a high place among these poli- 
 ticians, wrote an article on Colonies for 
 the ' Encyclopaedia Britannica ' which clearly 
 expresses their view. Colonies, he con- 
 tended, are very little calculated to yield 
 any advantage whatever to the countries 
 that hold them, and their chief influence is 
 to produce and prolong bad government. 
 Why, then, he asks, do European nations
 
 AN INAUGURAL ADDRESS 
 
 maintain them ? The answer is very cha- 
 racteristic, both of the man and of his 
 school. Something, he charitably admits, 
 is due to mere ignorance, to mistaken 
 views of utility ; but the main cause is of 
 another kind. He quotes the saying of 
 Sancho Panza, who desired to possess an 
 island in order that he might sell its 
 inhabitants as slaves, and put the money 
 in his pocket ; and he maintains that the 
 chief cause of our colonial empire is the 
 selfish interest of the governing few who 
 valued colonies because they gave them 
 places and enabled them to multiply wars. 
 In more moderate and decorous language. 
 
 D O ' 
 
 an eminent writer, who is still living, 
 
 ' O' 
 
 wrote a book, the object of which was to 
 show how desirable it was that this empire 
 should be gradually but steadily reduced
 
 THE EMPIRE 
 
 to the sweet simplicity of two islands. 
 Similar views prevailed very generally in 
 the Manchester School. Cobden frequently 
 expressed them. The question of the 
 colonies, he maintained, was mainly a 
 question of pounds, shillings, and pence ; 
 he proved, as he imagined, by many 
 figures that they were a very bad bargain ; 
 and he expressed his confident hope that 
 one of the results of Free-trade would 
 be ' gradually and imperceptibly to loosen 
 the bands which unite our colonies to us.' 
 About our Indian Empire he entertained 
 much stronger opinions. He described it 
 as a calamity and a curse to the people of 
 England. He looked on it, in his own 
 words, ' with an eye of despair,' and 
 declared that it was destroying and de- 
 moralising the national character. It was
 
 AN INAUGURAL ADDRESS 
 
 the belief of his school of politicians that 
 all the nations of the world would speedily 
 follow the example of England and adopt 
 a policy of perfect Free -trade ; that when 
 all men were able to sell their industries 
 with equal facility in all countries, it 
 would become a matter of little consequence 
 to them under what flag they lived, and 
 that this complete commercial assimilation 
 would soon be followed by a general move- 
 ment for disarming, which would put an 
 end to all fear of future war. 
 
 Many politicians who certainly cannot 
 be classified with the Manchester School 
 held views tending in some degree in the 
 same direction. Even Sir Cornewall Lewis, 
 in his treatise on the ' Government of De- 
 pendencies,' which was published in 1841, 
 summed up the advantages and disad-
 
 THE EMPIRE 
 
 vantages of a great empire in a manner 
 that gives the impression that in his own 
 judgment the disadvantages on the whole 
 predominated. In the Autobiography of 
 that great writer and excellent public- 
 servant, Sir Henry Taylor, who for many 
 years exercised much influence in the 
 Colonial Office, we have a curious picture 
 of the opinions which were held on this 
 subject about thirty years ago, both by 
 Henry Taylor himself and by Sir 
 Frederick Rogers, who was at this time 
 permanent Under- Secretary of State for 
 the Colonies. They both agreed that all 
 our North American Colonies were a kind 
 of damnosa hereditas, and that it was in 
 a high degree desirable that they should 
 be amicably separated from Great Britain. 
 Sir Henry Taylor wrote his views on the
 
 AN INAUGURAL ADDRESS 
 
 subject with great frankness to the Duke 
 of Newcastle, who was then Secretary of 
 State. * When your Grace and the Prince 
 of Wales,' he said, ' were employing 
 yourselves so successfully in conciliating 
 the colonists, I thought that you were 
 drawing closer ties which might better 
 be slackened, if there were any chance of 
 their slipping away altogether. I think 
 that a policy which has regard to a not 
 very far off future should prepare facilities 
 and propensities for separation. ... In my 
 estimation the worst consequence of the 
 late dispute with the United States has 
 been that of involving this country and 
 its North American provinces in closer 
 relations and a common cause.' l 
 
 I do not believe that opinions of this 
 
 1 Autobiography, ii. pp. 234, 235.
 
 io THE EMPIRE 
 
 kind, though they were held by a large 
 and powerful section of English politicians, 
 ever penetrated very deeply into the 
 English nation. One of the causes of 
 Mr. Cobden's ' despair ' was his conviction 
 that the English people would never be 
 persuaded to surrender India except at the 
 close of a disastrous and exhausting war, 
 and in his day the policy of national 
 surrender was certainly not that of the 
 statesmen who led either party in Parlia- 
 ment. No one would attribute it to Mr. 
 Disraeli, in whose long political life the 
 note of Imperialism was perhaps that 
 which sounded with the clearest ring, 
 and it was quite as repugnant to Lord 
 Palmerston and Lord John Russell. In 
 an admirable speech which was delivered 
 in the beginning of 1850, Lord J. Russell
 
 AN INAUGURAL ADDRESS n 
 
 disclaimed all sympathy with it, and I 
 can well remember the indignation with 
 which in his latter days he was accustomed 
 to speak of the views on the subject which 
 were then frequently expressed. ' When 
 I was young,' he once said to me, ' it was 
 thought the mark of a wise statesman 
 that he had turned a small kingdom into 
 a great empire. In my old age it appears 
 to be thought the object of a statesman to 
 turn a great empire into a small kingdom.' 
 I do not think that anyone who has 
 watched the current of English opinion 
 will doubt that the views of the Man- 
 chester School on this subject have within 
 the last few years steadily lost ground, 
 and that a far warmer and, in my opinion, 
 nobler and more healthy feeling towards 
 India and the colonies has grown up. The
 
 THE EMPIRE 
 
 change may be attributed to many causes. 
 In the first place, what Carlyle called ' The 
 Calico Millennium ' has not arrived. The 
 nations have not adopted Free-trade, but 
 nearly all of them, including unfortunately 
 many of our own colonies, have raised 
 tariff walls against our trade. The Reign 
 of Peace has not come. National anti- 
 pathies and jealousies play about as great 
 a part in human affairs as they ever did, 
 and there are certainly not less than three 
 and a half millions, there are probably 
 nearly four millions, of men under arms in 
 what are called the peace establishments of 
 Europe. It is beginning to be clearly seen 
 that, with our vast, redundant, ever-grow- 
 ing population, with our enormous manu- 
 factures, and our utterly insufficient supply 
 of home-grown food, it is a matter of life
 
 AN INAUGURAL ADDRESS 13 
 
 and death to the nation, and especially to 
 its working classes, that there should be 
 secure and extending fields open to our 
 goods, and in the present condition of the 
 world we must mainly look for these fields 
 within our own empire. The gigantic 
 dimensions that Indian trade has assumed 
 within the last few years, and the ex- 
 traordinary commercial development of 
 some other parts of our empire, have 
 pointed the moral, and it has been made 
 still more apparent by the eagerness with 
 which other Powers, and especially Ger- 
 many, have flung themselves into the path 
 of colonisation. In an age, too, when all 
 the paths of professional and industrial 
 life in our country are crowded to excess, 
 the competitive system has combined with 
 our new acquisitions of territory to throw
 
 14 THE EMPIRE 
 
 open noble fields of employment, enterprise 
 and ambition to poor and struggling 
 talent, and India is proving a school of 
 inestimable value for maintaining some of 
 the best and most masculine qualities of 
 our race. It is the great seed-plot of our 
 military strength ; and the problems of 
 Indian administration are peculiarly fitted 
 to form men of a kind that is much needed 
 among us men of strong purpose and 
 firm will, and high ruling and organising 
 powers, men accustomed to deal with facts 
 rather than with words, and to estimate 
 measures by their intrinsic value, and not 
 merely by their party advantages, men 
 skilful in judging human character under 
 its many types and aspects and disguises. 
 
 If again we turn to our great self- 
 governing colonies, we have learnt to feel
 
 AN INAUGURAL ADDRESS 15 
 
 how valuable it is, in an age in which inter- 
 national jealousies are so rife, that there 
 should be vast and rapidly growing por- 
 tions of the globe that are not only at 
 peace with us, but at one with us ; how 
 unspeakably important it is to the future 
 of the world that the English race, through 
 the ages that are to come, should cling as 
 closely as possible together. As the dis- 
 tinguished statesman who now represents 
 the United States in England lately said, 
 with an admirable point, If it is not 
 always true that trade follows flag, it is at 
 least true that ' heart follows flag,' and the 
 feeling that our fellow- subjects in distant 
 parts of the empire bear to us is very 
 different from the feeling even of the most 
 friendly foreign nation. Our great colonies 
 have readily undertaken the responsibility
 
 16 THE EMPIRE 
 
 of providing for their own defence by land, 
 and even in some degree by sea. If the 
 protection of their coast in time of war 
 might become a great strain upon our 
 navy, this disadvantage is largely balanced 
 by the importance of distant maritime 
 possessions to every nation that desires to 
 maintain an efficient fleet ; by the immense 
 advantage to a great commercial Power 
 of secure harbours and coaling stations 
 scattered over the world. It is not 
 difficult to conceive circumstances in which 
 the destruction of some of our main in- 
 dustries, occurring, perhaps, in the midst 
 of a great war, might make it utterly 
 impossible for our present population to 
 live upon British soil, and when the 
 possession of vast territories under the 
 British flag, and in the hands of the
 
 AN INAUGURAL ADDRESS 17 
 
 British race, might become a matter of 
 transcendent importance. Think for a 
 moment of the colossal, and indeed ap- 
 palling, proportions which our great towns 
 are assuming ! Think of all the vice and 
 ignorance and disease, of all the sordid 
 abject misery, of all the lawless passions 
 that are festering within them ! And then 
 consider how precarious are many of the 
 conditions of our industrial prosperity, 
 how grave and how numerous are the 
 dangers that threaten it both from within 
 and from without. "Who can reflect 
 seriously on these things without feeling 
 that the day may come perhaps at no 
 distant date when the question of emigra- 
 tion may overshadow all others ? To 
 many of us, indeed, it seems one of the 
 greatest errors of modern English states- 
 
 B
 
 1 8 THE EMPIRE 
 
 manship that when the great exodus from 
 Ireland took place after the famine. Govern- 
 ment took no step to aid it, or to direct 
 it to quarters where it would have been 
 of real benefit to the empire. Many 
 good judges think that the advantages of 
 such interference in allaying bitter feelings, 
 softening a disastrous crisis, and perma- 
 nently strengthening the empire, might 
 have been well purchased even if they cost 
 half or two-thirds as much as England 
 has lost in the last four months by 
 one disastrous strike. In dealing with 
 this question of emigration in the 
 future, colonial assistance may be of 
 supreme importance. And those who 
 have understood the significance of that 
 memorable incident in our recent history 
 the despatch of Australian troops to
 
 AN INAUGURAL ADDRESS 19 
 
 fight our battles in the Soudan may per- 
 ceive that there is at least a possibility 
 of a still closer and more beneficent union 
 between England and her colonies a 
 union that would vastly increase the 
 strength of both, and by doing so become 
 a great guarantee of peace in the world. 
 
 It would be a calumny to suppose that 
 the change of feeling I have described was 
 solely due to a calculation of interests. 
 Patriotism cannot be reduced to a mere 
 question of money, and a nation which 
 has grown tired of the responsibilities of 
 empire and careless of the acquisitions of its 
 past and of its greatness in the future, 
 would indeed have entered into a period 
 of inevitable decadence. Happily we have 
 not yet come to this. I believe the over- 
 whelming majority of the people of these
 
 20 THE EMPIRE 
 
 islands are convinced that an England re- 
 duced to the limits which the Manchester 
 School would assign to it would be an 
 England shorn of the chief elements of its 
 dignity in the world, and that no greater 
 disgrace could befall them than to have sacri- 
 ficed through indifference, or negligence, or 
 faint -heartedness, an empire which has been 
 built up by so much genius and so much 
 heroism in the past. Railways and tele- 
 graphs and newspapers have brought us in- 
 to closer touch with our distant possessions, 
 have enabled us to realise more vividly both 
 their character and their greatness, and 
 have thus extended the horizon of our 
 sympathies and interests. The figures of 
 illustrious colonial statesmen are becoming 
 familiar to us Men formed in Indian 
 and colonial spheres are becoming more
 
 AN INAUGURAL ADDRESS 21 
 
 numerous and prominent in our own 
 public life. The presence in England of a 
 High Commissioner from Canada, and of 
 Agents- General from our other colonies, 
 constitutes a real though informal colonial 
 representation, and on more than one 
 recent occasion our foreign policy has been 
 swayed by colonial pressure. These young 
 democracies, with their vast undeveloped 
 resources, their unwearied energies, their 
 great social and industrial problems, are 
 beginning to loom largely in the imagina- 
 tions of Europe. They feel, we believe, a 
 just pride in being members of a great and 
 ancient empire, and heirs to the glories of its 
 past. We, in our turn, feel a no less just 
 pride in our union with those coming nations 
 which are still lit with the hues of sunrise 
 and rich in the promise of the future.
 
 22 THE EMPIRE 
 
 It has been suggested to me that I 
 should on the present occasion say some- 
 thing about the methods by which this 
 great empire was built up, but it is obvious 
 that in a short address like the present it is 
 only possible to touch on so large a subject 
 in the most cursory manner. Much is due 
 to our insular position and our command 
 of the sea, which gave Englishmen, in the 
 competition of nations, a peculiar power 
 both of conquering and holding distant 
 dependencies. Being precluded, perhaps 
 quite as much by their position as by their 
 desire, from throwing themselves, like most 
 continental nations, into a long course of 
 European aggression, they have largely 
 employed their redundant energies in ex- 
 ploring, conquering, civilising, and govern- 
 ing distant and half- savage lands. They
 
 AN INAUGURAL ADDRESS 23 
 
 have found, like all other nations, that an 
 empire planted amid the shifting sands of 
 half- civilised and anarchical races is com- 
 pelled for its own security, and as a mere 
 matter of police, to extend its borders. 
 The chapter of accidents' which has played 
 a larger part in most human affairs than 
 many very philosophical enquirers are 
 inclined to admit has counted for some- 
 thing. But, in addition to these things, 
 there are certain general characteristics 
 of English policy which have contributed 
 very largely to the success of the Empire. 
 
 It has been the habit of most nations to 
 regulate colonial governments in all their 
 details according to the best metropolitan 
 ideas, and to surround them with a network 
 of restrictions. England has in general 
 pursued a different course. Partly on sys-
 
 24 THE EMPIRE 
 
 tern, but partly also, I think, from neglect, 
 she has always allowed an unusual latitude 
 to local knowledge and to local wishes. 
 She has endeavoured to secure, wherever 
 her power extends, life and property, and 
 contract and personal freedom, and, in these 
 latter days, religious liberty ; but for the 
 rest she has meddled very little ; she has 
 allowed her settlements to develop much 
 as they please, and has given, in practice if 
 not in theory, the fullest powers to her go- 
 vernors. It is astonishing, in the history of 
 the British Empire, how large a part of its 
 greatness is due to the independent action of 
 individual adventurers, or groups of emi- 
 grants, or commercial companies, almost 
 wholly unassisted and uncontrolled by the 
 Government at home. An empire formed 
 by such methods is not likely to exhibit
 
 AN INAUGURAL ADDRESS 25 
 
 much symmetry and unity of plan, but it 
 is certain to be pervaded in an unusual 
 degree, in all its parts, by a spirit of enter- 
 prise and self-reliance ; it will probably be 
 peculiarly fertile in men not only of energy 
 but of resource, capable of dealing with 
 strange conditions and unforeseen exi- 
 gencies. England in the past periods of 6 
 her history has, on the whole, been sin- 
 gularly successful in adapting her dif- 
 ferent administrations to widely different 
 national circumstances and characters, and 
 governments of the most various types 
 have arisen under her rule. Nothing in 
 the history of the world is more wonder- 
 ful than that under the flag of these two 
 little islands there should have grown 
 up the greatest and most beneficent des- 
 potism in the world, comprising nearly
 
 26 THE EMPIRE 
 
 two hundred and thirty millions of in- 
 habitants under direct British rule, and 
 more than fifty millions under British pro- 
 tectorates ; while at the same time British 
 colonies and settlements that are scattered 
 throughout the globe number not less 
 than fifty- six distinct subordinate govern- 
 ments. 
 
 This system would have been less suc- 
 cessful if it had not been for two important 
 facts. The original stuff of which our 
 colonial empire was formed was singularly 
 good. Some of the most important of 
 our colonies were founded in the days 
 of religious war, and the early settlers 
 consisted largely of religious refugees a 
 class who are usually superior to the 
 average of men in intellectual and in- 
 dustrial qualities, and are nearly always
 
 AN INAUGURAL ADDRESS 27 
 
 greatly superior to them in strength of 
 conviction, and in those high moral 
 qualities which play so great a part in 
 the well-being of nations. Besides this, 
 in those distant days, the difficulties of 
 emigration were so great that they were 
 rarely voluntarily encountered except by 
 men of much more than average courage, 
 enterprise and resource. These early 
 adventurers were certainly often of no 
 saintly type, but they were largely endowed 
 with the robuster qualities that are most 
 needed for grappling with new circum- 
 stances and carving out the empires of the 
 future. 
 
 The second fact is the high standard of 
 patriotism and honour which we may, I 
 think, truly say has nearly always pre- 
 vailed among English public servants. It
 
 28 THE EMPIRE 
 
 is not an easy thing to secure honest and 
 faithful administration in remote countries, 
 far from the supervision and practical con- 
 trol of the central government. I think 
 we may boast with truth that England 
 has attained this end, not indeed perfectly, 
 but at least to a greater degree than most 
 other nations. The history of Indian and 
 colonial governors has never been written 
 as a whole, but it is well worthy of study. 
 In the appointment of these men party 
 has always counted for something, and 
 family has counted for something ; but they 
 have never been the only considerations, 
 and, on the whole, I believe it will be 
 found, if we consider the three elements 
 of character, capacity and experience, that 
 our Indian and colonial governors repre- 
 sent a higher level of ruling qualities than
 
 AN INAUGURAL ADDRESS 29 
 
 has been attained by any line of hereditary 
 sovereigns, or by any line of elected pre- 
 sidents. In the period of the foundation 
 of our Indian Empire much was done that 
 was violent and rapacious, but the best 
 modern research seems to show that the 
 picture which a few years ago was gener- 
 ally accepted had been greatly overcharged. 
 The history of Warren Hastings and his 
 companions has been recently studied with 
 great knowledge and ability, and with the 
 result that the more serious opinions on 
 the subject have been considerably modi- 
 fied. Much exaggeration undoubtedly grew 
 up in the last century, partly through 
 ignorance of Oriental affairs, and partly 
 also through the eloquence of Burke. 
 There is no figure in English political 
 history for which I at least entertain a
 
 30 THE EMPIRE 
 
 greater reverence than Edmund Burke. I 
 believe him to have been a man of trans- 
 parent honesty, as well as of transcendent 
 genius ; but his politics were too apt to 
 be steeped in passion, and he was often 
 carried away by the irresistible force of 
 his own imagination and feelings. Misre- 
 presentations were greatly consolidated by 
 the Indian History of James Mill, which 
 was for a long time the main, and indeed 
 almost the only, source from which English- 
 men obtained their knowledge of Indian 
 history. It was written, as might be ex- 
 pected, with the strongest bias of hostility 
 to the English in India, yet I suspect that 
 many superficial readers imagined that a 
 history which was so unquestionably dull 
 must be at least impartial and philoso- 
 phical. Unfortunately, Macaulay relied
 
 AN INAUGURAL ADDRESS 31 
 
 greatly on it, and, without having made 
 any serious independent studies on the 
 subject, he invested some of its misre- 
 presentations with all the splendour of 
 his eloquence. I believe all competent 
 authorities are now agreed that his essay 
 on Warren Hastings, though it is one of 
 the most brilliant of his writings, is also 
 one of the most seriously misleading. 
 
 I am not prepared to say that the 
 reaction of opinion produced by the new 
 school of Indian historians has not been 
 sometimes carried too far, but these writers 
 have certainly dispelled much exaggeration 
 and some positive falsehood. They have 
 shown that, although, under circumstances 
 of extreme difficulty and extraordinary 
 temptation, some very bad things were 
 done by Englishmen in India, these things
 
 32 THE EMPIRE 
 
 were neither as numerous nor as grave as 
 has been alleged. 
 
 On the whole, too, it may be truly said 
 that English colonial policy in its broad 
 lines has to a remarkable degree avoided 
 grave errors. The chief exception is to 
 be found in the series of mistakes which 
 produced the American Revolution, and 
 ended in the loss of our chief American 
 Colonies. Yet even in this instance it is, 
 I believe, coming to be perceived that there 
 is much more to be said for the English 
 case than the historians of the last genera- 
 tion were apt to imagine. In imposing 
 commercial restrictions on the colonies we 
 merely acted upon ideas that were then 
 almost universally received, and our com- 
 mercial code was on the whole less illiberal 
 than that of other nations. This has been
 
 AN INAUGURAL ADDRESS 33 
 
 clearly shown by more than one writer on 
 our side of the Atlantic, but the subject 
 has never been treated with more ex- 
 haustive knowledge and more perfect 
 impartiality than by an American writer 
 Mr. George Beer whose work on the 
 Commercial Policy of England has 
 recently been published by Columbia 
 College, in New York. No one will now 
 altogether defend Grenville's policy of tax- 
 ing America by the Imperial Parliament, 
 but it ought not to be forgotten that it 
 was expressly provided that every farthing 
 of this taxation was to be expended in 
 America, and devoted to colonial defence. 
 England had just terminated a great war, 
 which, by expelling the French from 
 Canada, had been of inestimable advantage 
 to her colonies, but which had left the 
 
 c
 
 34 THE EMPIRE 
 
 mother-country almost crushed by debt. 
 All that Grenville desired was, that the 
 American Colonies should provide a por- 
 tion of the cost of their own defence, as our 
 great colonies are doing at the present time, 
 and he only resorted to Imperial taxation 
 because he despaired of achieving this end 
 by any other means. The step which he 
 took was no doubt a false one. As is so often 
 the case in England, it was made worse by 
 party changes and by party recriminations, 
 and many later mistakes aggravated and 
 embittered the original dispute ; but I think 
 an impartial reader of this melancholy 
 chapter of English history will come to the 
 conclusion that these mistakes were by no 
 means all on one side. 
 
 It is a story which is certainly not 
 without its lesson to our own time. It
 
 AN INAUGURAL ADDRESS 35 
 
 is very improbable that any future states- 
 man will follow the example of George 
 Grenville, and endeavour by Act of Par- 
 liament to impose taxation on a self- 
 governing colony ; but it would be a grave 
 error to suppose that the danger of unwise 
 Parliamentary interference in Indian and 
 colonial affairs has diminished. Great 
 as are the advantages of telegraphs 
 and newspapers in the government of the 
 empire, they are not without their draw- 
 backs. Government by telegraph is a very 
 dangerous thing, and there is, I fear, an in- 
 creasing tendency to override local know- 
 ledge, and to apply English standards and 
 methods of government to wholly un- 
 English conditions. Ill-considered resolu- 
 tions of the House of Commons, often 
 passed in obedience to some popular fad,
 
 3 6 THE EMPIRE 
 
 and without any real intention of carrying 
 them into effect ; language used in Parlia- 
 ment which is often due to no deeper 
 motive than a desire to win the favour of 
 some class of voters in an English con- 
 stituency, may do as much as serious mis- 
 government to alienate great masses of 
 British subjects beyond the sea. All 
 really competent judges are agreed that 
 one of the first conditions of successful 
 government in India has been that Indian 
 questions have for the most part been 
 kept out of the range of English party 
 politics, and that Indian government han 
 been conducted on principles essenti- 
 ally different from democratic government 
 at home. 
 
 On the whole, however, it is impossible 
 to review the colonial history of England
 
 AN INAUGURAL ADDRESS 37 
 
 without being struck with the many 
 serious dangers that might easily have 
 shattered the empire, which were 
 averted by wise statesmanship and timely 
 concession. There was the question of 
 the criminal population which we once 
 transported to Australia. In the early 
 stage of the colony, when the population 
 was very sparse and the need for labour 
 very imperative, this was not regarded as 
 in any degree a grievance ; but the time 
 came when it became a grievance of the 
 gravest kind, and the Imperial power had 
 then the wisdom to abandon it. There 
 was the question of the different and 
 hostile religious bodies existing in different 
 portions of the empire, at a time when 
 the monopoly of political power by the 
 members of a single Established Church
 
 38 THE EMPIRE 
 
 was cherished as a religious duty by 
 politicians at home. Yet at this very time 
 the Imperial Government sanctioned in 
 Canada, and in some other parts of its 
 dominions, a system of dealing with dis- 
 senting Churches far more liberal than that 
 which it admitted in these islands, while 
 in India it abstained, with an extreme, 
 and sometimes even an exaggerated, 
 scrupulousness, from all measures that 
 could by any possibility offend the native 
 religious prejudices. There was the 
 question of Slavery though we were 
 freed from the most difficult part of this 
 problem by the secession of America. In 
 addition, however, to its moral aspects, it 
 affected most vitally the material prosperity 
 of some of our richest colonies ; it raised 
 the very dangerous constitutional question
 
 AN INAUGURAL ADDRESS 39 
 
 of the right of the Imperial Parliament 
 to interfere with the internal affairs of a 
 self-governing colony, and it brought the 
 Home Government into more serious colli- 
 sion with the local governments than any 
 question since the American Revolution. 
 Whatever may be thought of the wisdom 
 of the measures by which we abolished 
 slavery in our West Indian Colonies, no 
 one at least can deny the liberality of a 
 Parliament which voted from Imperial 
 resources twenty millions for the accom- 
 plishment of the work. There was the 
 conflict of race and creed which between 
 1830 and 1840 had brought Canada to 
 absolute rebellion, and threatened a com- 
 plete alienation of Canadian feeling from 
 the mother-country. This discontent was 
 allayed and dispelled by some of the most
 
 40 THE EMPIRE 
 
 successful legislation of the present cen- 
 tury, and in spite of a few discordant 
 notes, it may be truly said that there 
 are few greater contrasts in the present 
 reign than are presented between Canadian 
 feeling towards the mother-country when 
 Her Majesty ascended the throne and 
 Canadian feeling at the present hour. There 
 was also the great and dangerous task to 
 be accomplished of adapting the system of 
 colonial government to the different stages 
 of colonial development. There was a time 
 when the colonies were so weak that they 
 depended mainly on England for their pro- 
 tection ; but, unlike some of the great colon- 
 ising Powers of ancient and modern times, 
 England never drew a direct tribute from 
 her colonies, and, in spite of much unwise 
 and some unjust legislation, I believe there
 
 AN INAUGURAL ADDRESS 41 
 
 was never a time when they were not on 
 the whole benefitted by the connection. 
 Soon, however, the colonies grew to the 
 strength and maturity of nationhood, and 
 the mother- country speedily recognised 
 the fact, and allowed no unworthy or un- 
 generous fears to restrain her from granting 
 them the fullest powers, both of self-govern- 
 ment and of federation. It is true that she 
 still sends out a governor usually drawn 
 from the ranks of experienced and con- 
 siderable English public men to preside 
 over colonial affairs. It is true that she 
 retains a right of veto which is scarcely 
 ever exercised except to prevent some inter- 
 colonial or international dispute, some act 
 of violence, or some grave anomaly in the 
 legislation of the empire. It is true that 
 colonial cases may be carried, on appeal, to
 
 42 THE EMPIRE 
 
 an English tribunal, representing the very 
 highest judicial capacity of the mother- 
 country, and free from all possibility and 
 suspicion of partiality ; but I do not 
 believe that any of those light ties are un- 
 popular with any considerable section of 
 the colonists. On the other hand, though 
 it would be idle to suppose that our great 
 colonies depend largely upon the mother- 
 country, I believe that most colonists 
 recognise that there is something in the 
 weight and dignity attaching to fellow- 
 membership and fellow-citizenship in a 
 great empire something in the protection 
 of the greatest navy in the world some- 
 thing in the improved credit which con- 
 nection with a very rich centre undoubtedly 
 gives to colonial finance. 
 
 It is the custom of our friends and
 
 AN INAUGURAL ADDRESS 43 
 
 neighbours on the Continent to bestow 
 much scornful remark on the egotism of 
 English policy, which attends mainly to 
 the interests of the British Empire, and 
 is not ready to make war for an idea and 
 in support of the interests of others. I 
 think, if it were necessary, we might fairly 
 defend ourselves by showing that in the 
 past we have meddled with the affairs of 
 other nations quite as much as is reasonable. 
 For my own part, I confess that I distrust 
 greatly these explosions of military bene- 
 volence. They always begin by killing a 
 great many men. They usually end in ways 
 that are not those of a disinterested philan- 
 thropy. After all, an egotism that mainly 
 confines itself to the well-being of about a 
 fifth part of the globe cannot be said to be 
 of a very narrow type, and it is essentially
 
 44 THE EMPIRE 
 
 by her conduct to her own empire that the 
 part of England in promoting the happiness 
 of mankind must be ultimately judged. It 
 is indeed but too true that many of the 
 political causes which have played a great 
 part on platforms, in parties, and in Parlia- 
 ments are of such a nature that their full 
 attainment would not bring relief to one 
 suffering human heart, or staunch one tear 
 of pain, or add in any appreciable degree 
 to the real happiness of a single home. 
 But most assuredly imperial questions are 
 not of this order. Remember what India 
 had been for countless ages before the 
 establishment of British rule. Think of 
 its endless wars of race and creed, its 
 savage oppressions, its fierce anarchies, its 
 barbarous customs, and then consider what 
 it is to have established for so many years
 
 AN INAUGURAL ADDRESS 45 
 
 over the vast space from the Himalayas to 
 Cape Comorin a reign of perfect peace ; to 
 have conferred upon more than 250 millions 
 of the human race perfect religious freedom, 
 perfect security of life, liberty, and property ; 
 to have planted in the midst of these teem- 
 ing multitudes a strong central govern- 
 ment, enlightened by the best knowledge of 
 Western Europe, and steadily occupied in 
 preventing famine, alleviating disease, ex- 
 tirpating savage customs, multiplying the 
 agencies of civilisation and progress. This, 
 gentlemen, is the true meaning of that 
 system of government on which Mr. 
 Cobden looked with ' an eye of despair.' 
 What work of human policy I would 
 even say what form of human philanthropy 
 has ever contributed more largely to 
 reduce the great sum of human misery
 
 46 THE EMPIRE 
 
 and to add to the possibilities of human 
 happiness ? 
 
 And if we turn to the other side of our 
 empire, although it is quite true that our 
 great free colonies are fully capable of 
 shaping their destinies for themselves, may 
 we not truly say that these noble flowers 
 have sprung from British and from Irish 
 seeds ? May we not say that the laws, 
 the constitutions, the habits of thought 
 and character that have so largely made 
 them what they are, are mainly of English 
 origin ? May we not even add that it is 
 in no small part due to their place in the 
 British Empire that these vast sections of 
 the globe, with their diverse and sometimes 
 jarring interests, have remained at perfect 
 peace with us and with each other, and 
 have escaped the curse of an exaggerated
 
 AN INAUGURAL ADDRESS 47 
 
 militarism, which is fast eating like a canker 
 into the prosperity of the great nations of 
 Europe ? 
 
 What may be the future place of these 
 islands in the government of the world no 
 human being can foretell. Nations, as 
 history but too plainly shows, have their 
 periods of decay as well as their periods 
 of growth. The balance of power in the 
 world is constantly shifting. Maxims and 
 influences very different from those which 
 made England what she is are in the 
 ascendent, and the clouds upon the horizon 
 are neither few nor slight. But, whatever 
 fate may be in store for these islands, we 
 may at least confidently predict that no 
 revolution in human affairs can now destroy 
 the future ascendency of the English lan- 
 guage and of the Imperial race. What-
 
 48 THE EMPIRE 
 
 ever misfortunes, whatever humiliations, 
 the future may reserve to us, they cannot 
 deprive England of the glory of having 
 created this mighty empire. 
 
 Not Heaven itself upon the Past has power. 
 That which has been, has been and we have had our 
 hour. 
 
 PIUXTHD BV 
 
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