^m. ^^ v ~ A, ^ y-\ SI \Ck ANNtX 5 U22 144 INTO THE POLICY AND JUSTICE OF THE PROHIBITION OF THE USE OF GRAIN IN THE DISTILLERIES : INCLUDING OBSERVATIONS ON THE NATURE AND USES OF A VENT TO SUPERFLUOUS LAND-PRODUCE; AND A PARTICULAR APPLICATION OF THE GENERAL QUESTION TO THE PRESENT SITUATION OF THE COLONIAL INTERESTS. BY ARCHIBALD BELL, ESQ. ADVOCATE. EDINBURGH: Printed by George Ramsay and Company, AND SOLD BY ARCHIBALD CONSTABLE AND CO. EDINBURGH BRASH AND REID, GLASGOW; AND JOHN MURRAY, FLEET STREET, LONDON. 1808. StacK Annex CONTENTS. Introduction, p gcre j SECT. I. Of the Operation of Distilleries in a Country which supplies its own Consumption, or af- fords a surplus for Exportation, 11 I. Of their Operation in Years of Average Produce, ibid. II. Of their Operation in Years of Deficient Produce, 27 % ECT. II. Of the Operation of Distilleries in a Country which Imports a part of its supplies, 50 I. Of their Operation in Years of Average Importa- tion > ibid. II. Of their Operation in Years of Deficient Impor- tetion > 60 SECT. III. How far the present distresses of the Colonial Proprietors alone, afford a just ground for the suspension of the use of Grain in Distilleries, 71 I. How far the present distresses of the Colonists are entitled to any relief from the Public, .... ibid. II. How far the mode of relief at present suggested is a proper one, ... ADVERTISEMENT. To those who are familiar with the doctrines of political economy, the minuteness of illustration and detail, in the following remarks, may appeal- superfluous. But when we consider how important it is, -in a popular government like ours, that the public be possessed of just notions on schemes of national policy ; and, when we see such fundamen- tal and exploded errors advanced on a subject so in- teresting as the present, I am hopeful that they who least require a detailed explanation, will be the most sensible of its utility. It will also be found, that the principles which I have endeavoured to establish are of general ap- plication, and may enable us to judge, not merely of the present measure, but of all similar schemes of policy. They indeed involve the most extensive and fundamental doctrines in the science of political economy. I likewise hope that some of the facts and rea- sonings which I have advanced, may tend to dissipate VI those groundless alarms on the subject of scarcity, which some persons seem at present to feel ; a pas- sion which, of all others, is the most apt to bewil- der the public opinion, and to urge a headlong adoption of those measures which are the most like- ly to create or aggravate such a calamity. The present situation of our colonies I shall also touch upon, as connected with the more general questions which arise on the present subject : - though on this, as being less important in itself, and less within my opportunities of information, I shall be more brief. The -Report of the Committee of the House of Commons, relative to the distillation of sugar, and the very large and important mass of evidence con- tained in the Appendix, I have had the benefit of perusing. Any testimony of mine to the ability, patience, and candour with which that respectable body have conducted their researches, would be im- pertinent. I have taken the liberty of dissenting from their opinion ; but I have stated the grounds of my dissent, and, I hope, with that becoming de- ference and moderation which should always ac- company free inquiry. If any thing material in the evidence laid before the Committee should have escaped me, it will perhaps be excused, from the shortness of the time allowed for its perusal. A copy of the Report is subjoined in an Appendix. Vll Since these remarks were sent to the press, the subject came under the discussion of the House of Commons on Friday the 20th of May. It appear- ed, by what fell from Lord Binning, the Chairman of the Committee, on that occasion, that there was an intention of making some change on the sug- gestion in the Report, to suspend the 'distillation of grain for one year from the 1st July 1808, by pro- posing a restriction for some shorter period. No variation of that kind, however, can influence the grounds on which I maintain the following argu- ment INQUIRY INTO THE POLICY AND JUSTICE OF THE PROHIBITION OF THE USE OF GRAIN IN THE DISTILLERIES, &c. THE distress of our West India Colonies has for some time excited the public attention ; and as the persons chiefly interested in colonial produce, though a small, are not an unimpor- tant class of the community, endowed with the spirit, and possessing the weight and activity of an affluent corporation, it is by no means surprising that their complaints have been heard. They have laid them before the pub- lic in various shapes ; and, with the common propensity of human nature, in examining into the source of their distresses, they have found A every one to blame but themselves. They have accounted for the present stagnation of their commodity in their hands by every cause but the true one, their own imprudent specu- lation. That the present glut of sugar has arisen from an over cultivation of that produce, so as to overstock the market of the world ; and that our planters must sooner or later diminish their cultivation, now that more fertile soils are re- viving, and entering the competition ; seem to me truths, which can hardly be doubted by any whose opinion is not in some degree bias- sed by their interest. The thing is probable in theory ; and, were any confirmation of it want- ed, it would be derived from the inadequate causes assigned for their present difficulties by the colonists themselves. It may perhaps be doubted, whether persons so suffering, are en- titled to any relief from the public ; or, whether they ought not to be left to that correction which the immutable laws of nature have pro- vided for rash speculation. This is a question, however, on which I at present forbear to enter. My chief purpose is, to inquire how far, if any relief is to be granted, that which has been pro- posed, of confining the home distillation to sugar, be a proper one. I shall endeavour to 3 , shew, that it is improper in every view ; im- politic in regard to the public interest ; and unjust towards our home cultivators. When the subject of prohibiting distillation from grain was so much agitated a few years ago, the complexion of the question differed materially from what it is at present. It was then debated entirely on general grounds. The only interests considered were those of the public, and of the home grower ; the consumer and producer of our domestic supplies. The inter- ests of the colonists were not at all insisted on. Indeed the idea of distilling from sugar does not then seem to have been generally enter- tained. The question was argued as if the stoppage of the distillery would altogether sus- pend the formation of ardent spirit ; and hence two arguments were applied to it, on either side, which do not touch it in its present shape. The one was in favour of the distillery, on the score of its use to the revenue : the other against it, on the effects of the consumption of distilled spirit on the health, morals, and happi- ness, of the people. As an object of revenue, the distillery cer- tainly has its advantages, chiefly in the view of easy collection. In any other light, it seems less important, as the grain used there, if con- 4 sumed in the support of any other species of industry, would afford the same, or nearly the same revenue, levied on the produce of that industry, whatever it might be. The objection to distillation, on the score of its moral effects, has, I confess, always appear- ed to me by far the strongest counterpoise to the great benefits which it yields. When I consider the excessive indulgence in ardent spirits, which always attends their abundance ; the destruction which it occasions to the health, morals, economy, and industry, of the people ; the ruin of natural affection, and the general depravity and misery which it brings on the lower orders, and their families ; I am some- times staggered in my prepossession of leaving all industry free, and inclined to prohibit a manufacture of poison, as I would any other public nuisance. I have need to recollect the other great benefits arising from the practice ; the general encouragement which it gives to agriculture, and the resources which it yields in occasional scarcity, before I can reconcile myself to its public toleration. In considering- this objection, it is somewhat amusing to re- flect on the different impression of arguments on different minds. This, which I look upon as so weighty, and indeed the only one of the smallest weight against distilleries, has, I sup- pose, never been a feather in the balance in determining the legal provisions on the subject. The minds of statesmen and legislators are swayed by far other considerations. Indeed I fear I shall risk any little credit my other no- tions might gain, by dwelling on so simple an objection. But however this may be, the above objec- tion is no otherwise important to the present inquiry, than as a curious speculation ; for whether the measure now proposed be adopt- ed or not, the quantity of distilled spirit will probably not be diminished. The only question is, whether it shall be manufactured from grain or from sugar? I believe the spirit distilled from sugar is rather more noxious than that distilled from grain ; but this difference is probably not so material as much to affect the argument. Neither, on the other hand, does the question of revenue enter into consideration, for the quantity of manufactured spirit, and conse- quently the duties, will probably remain much the same. The interest of the Distillers seems likewise to be pretty much unconnected with the present question. For though it appears, by the evi- dence before the Committee, on the one hand, that corn is in general preferred for distillation; and, on the other, that the suspension might profit individuals who have speculated in the view of its taking place ; it would seem, that an arrangement of duties may make the matter pretty nearly indifferent to them as a body *. A new and important interest, however, has made its appearance on the present occasion, which was scarcely thought of formerly, that of our Colonial Proprietors. They have, some time ago, applied to Parliament for assistance in their present distresses ; have suggested the suspension of the corn distillery as one mode of relief; and have had sufficient influence with the Committee of the House of Commons, appointed to inquire into their case, to in- duce them to recommend it ; after having fail- ed in a like suggestion to a former Committee-^. * Sec the evidence of Mr T. Smith (of Brentford), and Mr T. Smith (of the house of Stein, Smith, & Co.), in the Appendix to the Report, particularly p. 34-81. Mr D. Montgomerie, p. 126-8. f " The result, therefore, of the inquiry of the Committee is, " that however strongly they may feel the distresses and the diffi- te culties under which the West Indian trade at present labours ; (f however anxious they may be to recommend the adoption of " any measure which may tend to aft'ord, even a temporary relief, " from a pressure so heavy and alarming, they do not think the " measure of permitting the use of sugar and molasses, for a time Like all bodies too who call for monopolies, they have not limited their argument, in sug- gesting the present measure, to their own ne- cessities. They have endeavoured to persuade their countrymen, that the public interest is as much concerned in the suspension of the corn dis- tillery as that of the colonists ; and, as is usual, they have persuaded many uninterested per- sons that this is the case. We have been told so even from very high authority, and are daily told so in a mass of crude speculation on this sub- ject, which now overflows the country. The Re- port of the Committee likewise, though, of course, it enlarges on the colonial difficulties, does, how- ever, urge certain grounds for the adoption of the present measure, on public views, connected with the present state of our foreign relations. This makes it necessary to consider the ques- tion on general principles, as well as with a particular view to the present distresses of the colonists. Nor are such general principles confined in their application to the question now agitated, but will enable us to judge of the same, or similar proposals, at all * c to be limited, in the breweries and distilleries, one that would *' give to the West Indian trade any relief adequate to its distresses, " consistent with the interests of other branches of the community , " or with the safety of the revenue." Rep. from the Distillery Committee, Feb. 1807. 8 times and seasons. It is useful to be set right in regard to first principles, even if we should occasionally depart from them. We shall thus be better able to estimate the grounds alleged for such departure, as well as to determine its nature and limits. The present inquiry, therefore, divides itself into two branches. The First involves the ques- tion, Are there any grounds, in the present cir- cumstances of this country, independent of the distresses of the colonists, to justify the sus- pension of distillation from grain ? The Second involves the question, Supposing there are no such grounds, is the interest of the sugar colo- nists a sufficient reason for such a measure ? The First or general inquiry further subdi- vides itelf into two branches. The present cir- cumstances of this country, unconnected with the interest of the colonists, may be considered, in the^r^ place more generally, as relative to a great nation producing its own supplies, and at amity with all the world. In the second place, under its present peculiar aspect, as im- porting a part of its supplies from foreign states ; while there is a chance of these supplies being interrupted, from the violence of war, in tin- present extraordinary combination against us. These two branches I shall consider in the two first sections, and I think they will exhaust all the views which have been taken of the sub- ject unconnected with the interest of the colo- nists. In the Second place, supposing it to be made out, that, on all and each of these general grounds, the proposed suspension of the distil- lery would be unadvisable, I shall next en- quire, Whether the present distresses of the co- lonists are a sufficient ground for granting them relief, by the suspension of the distillery of grain, either in the view of justice to the home cultivator, or policy towards the public ? This will form the subject of a third section. In all speculations regarding public measures, the great object of inquiry is the interest of the public. The interest of individuals, or classes of individuals, must be considered only as su- bordinate to this great interest. It is not to be inferred from this, that I maintain that injus- tice is to be committed towards smaller classes, when the interest of the public requires it ; be- cause I believe it to be a rule without one ex- ception, that it never can be for the public ad- vantage, to prefer one class before another in the free direction of their industry. In the fol- */ lowing observations, therefore, when I speak of the interest of the home grower, or of the colo- 10 rust, I always speak of it, not in exclusive relation to either of those classes of individuals, but as subordinate to the interest of the public. When I speak of any thing tending to the prosperity or discouragement of our farmers, I mean only in so far as the public interest is concerned in that prosperity or discouragement. When I speak of the propriety or impropriety of granting relief to the colonists, or of the mode of relief at pre- sent suggested, I speak of it, neither with fa- vour nor dislike towards them as a body, but only in as far as it is for the public interest that any relief, or that such relief) should be granted. It is further to be attended to, that the mea- sure now in agitation is not merely the free permission of importing sugar, or, what is the same thing, an equalization of the duties on sugar, and on corn, used in distilleries. It will be seen that, according to all the principles on which the following argument is maintained, I not only approve of such free importation as a temporary measure, but as a permanent system. What is proposed in the Report of the Com- mittee, and what I object to, is the monopoly of the distilleries granted to the colonist, and the forcible exclusion of the home grower from the competition. SECT. I. Of the Operation of Distilleries in a Country which supplies its own Consumption, or affords a Surplus beyond it. THE operation of distilleries on a country producing its own supplies, or affording a sur- plus, may be considered under two views : I. In years of average home produce ; and, II. In years of scarcity from deficient home pro- duce. I. To enlarge on the importance of a flou- rishing agriculture, to the strength and prospe- rity of a state, does not seem at present neces- sary ; for it is a truth which the most errone- ous systems of ceconomical policy never could entirely hide, and is one on which the public opinion seems now to be pretty well awaken- ed, although the general views on this subject are still far from being wholly just The land produce of a state, though not the only source of wealth (as some of its indiscreet favourers have maintained) is at least the most import- ant branch of it, the foundation of all the rest, and the measure of their extent and limits. In a large territory, the amount of subsistence which can be imported, must necessarily be 12 small * ; and as the population of a state is re- gulated by its means of subsistence, a large territory can only be populous in proportion to the means of subsistence which it raises within itself. It follows, that all other branches of in- dustry, \vhich are carried on by that popula- tion, must be regulated by the amount of the land produce. From these plain premises I do not infer (as some very able men have done) that agriculture should receive any peculiar encou- ragement from the law, beyond other branches of industry ; because I think such encourage- ment can do it no good. But I infer, that it should suffer no positive restraint or discourage- ment to the advantage of other branches of in- dustry ; because, though some limited branch of industry may profit by such preference, the in- dustry and prosperity of the country in general must suffer exactly in proportion as agriculture suffers. Mr Malthus (whose profound and original speculations have formed an aera in political science) has, however, shewn, that it is not merely the gross amount of land produce in a state, in proportion to the extent of territory, which is the cause of domestic prosperity, but the relative amount of that produce, in propor- tion to the numbers of the people. Thus, if * Smith's V.\Mlth of Nutioasj B. 4. c. 2. 13 two nations possess an equal extent of territory, and raise an equal produce, and one contain ten millions of inhabitants, the other twelve mil- lions ;' in the former, the food being divided in larger shares among the people than in the lat- ter, the former people will enjoy greater com- fort and happiness than the latter, in. common and average years. But although the gross amount of pro- duce, in proportion to territory, and its rela- tive amount, in proportion to population, be different things, and it be possible to conceive the gross produce, in proportion to territory, to be large, while the relative produce is small, and the people but moderately supplied (which I believe is the case in China) ; yet I imagine, in general, large gross produce and relative abun- dance uniformly go together, where no impolitic laws or usages encourage a superfluous popula- tion, or interrupt the commerce of grain. Wherever these are left free to the operation of nature, a large gross produce is uniformly attend- ed with a relative abundance among the people. In regard, again, to the public strength of a country, as opposed to other states, it is need- less to shew how much this depends on the amount of its land produce, in proportion to the land produce of other states. If two neigh- bouring nations are equal in extent of territory, 14 that which produces the largest supplies, will maintain the largest population, and a given proportion of that population will, of course, constitute a larger force than the same propor- tion of the other population. On the other hand, if two neighbouring nations are of une- qual size, the smaller may, by a superior agri- culture, support an equal population, and, of course, equal armies. In the particular cir- cumstances, therefore, of every state, its force must be measured by the extent of its supplies. If France be twice as large as Britain, or (what, in the existing state of any two countries, is the same thing) have twice as many acres in cul- ture, and yet Britain raise twice as much grain per acre, Britain will be as populous as France, and will be able to support equal armies. This is supposing the gross produce of both countries to be the same ; their respective numbers to be the same ; and the proportion of these numbers which they maintain in war, also the same. But, strictly speaking, the power of a nation to maintain armies does not depend so much on the amount of its population, compared with the population of other states, as on the amount of its supplies, compared with the supplies of other states. I have observed that, though po- pulation always bears a near relation to supply, yet it does not always bear exactly the same relation 15 V to it. In one nation the supplies may be more abundant in proportion to the numbers, or, what is the same thing, the people less numerous in proportion to the supplies than in another na- tion. Now, in such circumstances, the nation whose abundance is the greatest, though it use its whole supplies in peace by the various modes of consumption, may, in war, by a retrench- ment of its consumption, yield larger supplies than its poorer neighbour can do, to the main- tenance of an army, and of those arts necessary to the supply of an army, and, of course, sup- port a larger army. Its population, though in numbers only equal to that of its rival, yields in war a greater disposable proportion without diminishing the land produce, provided the consumption in the richer nation be diminish- ed in the same proportion. The richer nation can support an army of 120,000 men, equally well appointed and supplied, as the poorer can support an army of 100,000 men. Or, the richer nation can support an army of 100,000 men better appointed and supplied than the poorer nation can support the same num- ber. It appears, therefore, that the public strength of a state, as well as its domestic prosperity, is in proportion to the amount of its supplies. 16 The encouragement of a great land pro- duce, therefore, becomes the first of all ob- jects, towards both the domestic happiness and the public security of a state ; and while on this subject, it is pleasing to reflect, that the example of our own country is the best confirmation of the above doctrines. No long settled community, of equal extent, has, perhaps, ever yielded so large a produce as Great Britain ; has supported its population in such general abundance ; or possessed such prodigious resources for offence and security. The average land produce of Great Britain is as much superior to that of other nations, as her manufactures and commerce *. This she has attained, not from the perfect rectitude of her policy in regard to agriculture, but because the errors she has committed have been fewer than those committed by other nations ; and the consequences of them have been more com- pletely palliated. The first of these advantages she has derived from the influence of the pub- lic voice and interest over her public councils ; * Mr Ar. Young (the justness and importance of whose prac- tical observatrons in political economy shine through the uncer- tainty of his general principles) has remarked, that England has always been as much superior to France in agriculture as in other branches of industry. By his calculation, the produce of this country was to that of France when he travelled (1789-92) as 28 to 18. Sec note (A.) 17 the second from the freedom of individual exer- tion, overcoming the restraints of an injudicious policy. Such, then, being the importance of increas- ing the actual land produce of a country, it may be laid down as an axiom, that every po- sitive restriction, which limits the power of the farmer to augment the land produce, is imme- diately injurious to him, and consequentially injurious to the community. I say every posi- tive restriction, which gives the preference to some other branch of industry over his ; for, as far as respects a free competition, though that may sometimes diminish the farmer's profits in the mean time, it will be for the advantage of the community. It is only when the farmer asks some monopoly, that his interest and that of the public can ever be opposed. It is the interest of the farmer to have an abundant produce, but yet somewhat under the demand of the market. It is the interest of the public that the produce should be abun- dant, and the market pretty fully supplied. In other words, the farmer wishes for plenty, and tolerably high prices ; the public for plenty, and tolerably low prices. But while, on the one hand, it is not the interest of the farmer to have too high prices, which can only proceed 18 from very deficient produce; on the other hand, it is not the interest of the public to have too low prices, proceeding from over-abundance, which may discourage the farmer, and induce him to retrench his cultivation. Such retrench- ment naturally leads back to scarcity, and a change of this kind, from plenty to scarcity, is a much greater evil than if the produce had never exceeded the lowest point of the vibra- tion. Though it be the interest of the public, therefore, that grain should be cheap, it never can be its interest that grain should be so cheap as to injure the cultivator. Such an over- cheapness may sometimes arise in the course of nature, by the farmer's improvident over- trading, and, in such a case, should be left to remedy itself by natural means. It will, how- ever, scarcely ever amount to an evil, if things be left to their own course, and nothing ob- struct the natural efforts of competition to re- lieve itself. But whenever the cheapness is produced artificially, or by forcible means, it may be pronounced pernicious, as injurious to the public in the long-run, as immediately to the grower. Cheapness and deamess,- it is to be observed, are variable terms, importing the relation be- tween the demand and the actual supply. It is therefore impossible to fix them by any de- 19 finite standard, or determine when either is excessive. When matters are left free each will accurately adapt itself to .the actual a- mount of supplies. Corn will never be cheap but when it ought to be cheap, nor cheaper than it ought to be : It will never be dear unless when it ought to be dear, nor dearer than it ought to be. The cultivator's com- plaints of low prices on the one hand, or, as it is usually termed, the want of adequate returns to the grower, are just as unreasonable as the public complaints of high prices on the other. The return in the market, when matters are left free, must be the adequate and proper return, in proportion to the amount of produce. If this last be too large, the farmer has overtraded, by advancing cultivation too rapidly, and must di- minish it. This is the only sense in which I use the word 0yer-cheapness, when arising from na- tural causes, and the only remedy I would pro- pose, however low prices might fall. There are two modes in which the farmer's profits may be lowered, and abundance created by forced expedients, which, in a course of average seasons, have nearly the same effect ; namely, the stoppage of his market, and the increase of produce ; the one professing to at- tain its end by restraint, the other by encou- ragement. 20 In the annals of legislation, we are no stran- gers to various schemes of policy which have professed to lower the price of grain by forced limitations of the market. The famous mini- ster Colbert, wishing to encourage the manut- factures of France, bethought himself of in- creasing the plenty, and lowering the price of grain, by prohibiting its export. In this way, no doubt, there was suddenly thrown back on the home market the whole quantity usually exported, and the consequence must have been an immediate plenty and cheapness. But all the effect of this was very soon over ; for the farmers finding a glut of their commodity on their hands, and the prices so low as to yield them no adequate return, (an expression which in this case might be used with propriety), were forced to retrench their cultivation, and thus re- duce the produce to what it w r as formerly, exclu<* sive of the export. The object desired, therefore, was almost immediately defeated. But this is by no means stating the full amount of the evil. For the discouragement to agriculture, from the closing up an indefinite vent to its produce, will always diminish that produce, or prevent its gradual increase, in a proportion far beyond the actual amount consumed by that vent at the time of the restriction. The policy of M. Colbert, therefore, not merely defeated its own end ; not merely did not pro- 5 mote the cheapness, and advance the industry which he favoured ; bwt was probably greatly in- jurious to it He snatched at a hasty advan- tage by sacrificing the spring which was to prolong and augment it. The character of his policy (to use the illustration of Montesquieu on another subject) resembled the eagerness of the savage who, to get at the fruit, cuts down the tree, The analogy between the above policy and that of prohibiting distillation from corn, is obvious and complete. The distillery af- fords the farmer a steady, convenient, and profitable market for his produce, exactly in the same way as export. It is also indefi- nite in extent ; and if the vent which it fur- nishes be in general more limited than that of export, it is nearer, more sure, and not de- pendent, like the other, on the demand of other states, or our connection with them. Like the former, it encourages a considerably larger produce than it actually consumes * * This opinion is distinctly expressed by that very intelligent cultivator Mr Wakefield, in his evidence before, the Commit- tee, App. to Rep. p. 109-111. The operation of even a very limited vent in encouraging produce is described by Mr A. Young, in his evidence before the Committee. See note (B.) The quan- tity of grain used in the distilleries of the united kingdom, is stat- The Affect of a stoppage of this vent, like thai: of the other, is to throw the whole grain used there into the common market, which, whik it occasions a transitory cheapness, will lower the farmer's profits, and finally reduce his cul- tivation to the full amount of the grain usually distilled, and prohably much further. In short, the analogy, so remarkable in other instances, between produce and population ap- plies perfectly here. A free emigration in- creases the numbers of the people in the same manner as a free export, or other vent, in- creases produce. All attempts to force either, by direct encouragements, are unavailing. All at- tempts to stop their natural vents lead to the very decrease that is feared *. There are, however, certain reasoners who have denied that the home grower would sus- ed in the Report to amount to 781,000 qrs. 470,000 in Britain, and 311,000 in Ireland. * They who doubt of the effects of a free and regular emigra- tion in increasing numbers may, I think, be convinced by per- using Mr Alalthus's account of the irruption of the barbarous na- tions of the north of Europe. That author has completely solved the problem of their excessive numbers, which had puzzled so many of his predecessors. Dr Ferguson has compared the attempts to increase population to the assisting a water-fall with an oar. The fears of its decay from emigration resemble" the fears of the river running out, and leaving its channel dry. Sec this matter enlarged on, and practically applied, in Lord Selkirk's excellent treatise on the Highland Emigrations. 23 tain any loss from the stoppage of distillation, He would save as much, according to them, in the reduced wages of labour and poor rates, the easier maintenance of his family, &c. con- sequent on the cheapness, as he would lose by the fall of grain. If this be true, the price of grain is of no consequence to the farmer, and the fixation of a maximum, however low, would be to him a matter, of indifference. By the same reasoning we may satisfy the woollen manufacturer, that a fall in the price of cloth is nothing against his interest, as he might then clothe his workmen, servants, and family cheaper than before. It is painful, at this time of day, to be obliged to reply seriously to such folly. Were the argument intended to convince those only whom it professes to address (the farmer or manufacturer), it would be idle, indeed, to take notice of it. Their interest and experience tell them its ab- surdity too plainly to allow them to be deceiv- ed. Let others be convinced, from what is observed of their conduct (if unable to see it themselves), that a forced decrease in the price of any commodity is never compensated to the dealer by the lower wages of his workmen, or any other consequences of the fall. If the far- mers in this country consider the stoppage of the distillery as a matter of indifference to them, I have done with my objections. Such, then, will be the consequence of stop- ping distillation, or any other natural vent to home produce, in a course of average years* The effect of taking a\vay a vent to produce, in case of the occurrence of scarcity, I shall afterwards attend to. But the forced limitation of the market is riot the only device that has been fallen upon to increase abundance, and lower prices. Some persons expecting to attain the same end by encouragement, as in the former case was ex- pected by restraint, have proposed a bounty on the improvement of wastes, or breaking up grass lands. But it seems evident, that, in as far as this is forced beyond the natural demand of the market, the former cultivation will just suffer in proportion as the new cultivation increases; and the supplies will merely be raised in different places, white their aggregate amount will re- main the same. But, indeed, any encourage- ment of this kind must be so insignificant, that I rather think it will produce no effect at all. The effects of such a measure as to scarcity, and with the view of diminishing importation, I shall afterwards consider. But while the direct encouragement of home produce is unavailing, or injurious to the farm- 25 er, and, in neither view, will lead to any in- crease of supplies, all obstacles to its free pro- gress should be removed. This is indeed the whole length that the encouragement to im- proving wastes, or turning grass lands into til- lage, should or can go ; and, while thus free, the interest of the farmer and the public al- ways go together. The farmer, like the undertaker of every other branch of industry, must lay his account with the competition of every other person who pursues the same, or any other trade, in a lawful manner. If any other person pursue his trade in the way of breaking up waste lands, he does no more than he is entitled to, and has no preference over those who cultivate the more improved soils. The too rapid cultiva- tion of wastes is a thing impossible, if left wholly to private interest and industry, because the inducement to that practice is only in pro- portion to the high price, or scarcity of land produce ; and as the scarcity is relieved, or prices fall, the inducement to cultivate wastes must fall in proportion. The operation of im- proving wastes must therefore be gradual, and suited to the public demands. The. public de- mands, on the other hand, will adjust them- selves to this natural and permanent increase of produce, and the community will receive a 26 lasting benefit, while the class of cultivators will suffer no injury. An analogy has been drawn from the plan of increasing supplies by the above means, to that of increasing them by the suspension of the dis- tilleries ; and although there be a difference be- tween them in the view of scarcity, as shall af- terwards be shewn, yet in the continuance of average supplies, I think the analogy p. :iy I admitted. The interference in regurd to both is equally wrong; the farmer is injured by both ; and the public will ultimately be so too; only, as the power of the Legislature can ope- rate much more surely in suspending the dis- tillery than in forcing improvement, the inju- rious effects of the former will be more strongly felt. On the other hand, as the free competi- tion of the culture of wastes can do no harm, neither can the free admission of the colonial produce into the distilleries*. Another mode of increasing the home sup- plies, from which an analogy has been drawn to the suspension of the distilleries, is the im- portation of corn. This case just resembles the last. If importation w r ere promoted by a bounty, or other encouragement, while there was no call for it from scarcity, it would be equally wrong with the forced importation of * See Note (C.) sugars by the suspension of the distilleries. Did any of our colonists grow rice, and did we give it some exclusive encouragement in our mar- ket, the case would be just the same, at least in average seasons. Such encouragements, how- ever, never have been given to foreign grow- ers. They are never even allowed the fair com- petition of our market, (which I think both they and the colonial proprietors ought to be), but all that they send in common years is loaded with heavy duties. Were the colonists at pre- sent asking no more favour than the utmost that has been ever extended to the foreign growers of corn, during average years, I should be far from objecting to their demands. The discouragement of the British grower, therefore, from the improvement of wastes or importation, can never bear any resemblance to his discouragement from the stoppage of his market, while the one is free, the other com- pukive. II. I have thus, I think, sufficiently shewn the beneficial effect of distilleries, and other tents, in encouraging cultivation in common and average years ; and the injurious conse- quence of a forced suspension of them, both to the home grower and the public. I now pro- ceed to inquire into the nature of their opera- S3 tion in seasons of scarcity, and the consequence of their suspension in such an event. The scar- city to which I at present allude, is that which arises from deficient home produce, as I am now considering the question abstracted from the circumstance of importation. They who have given the attention which it deserves to the excellent work of Mr Malthus, must be aware of the uniform relation main- tained between the population of any country and its means of support ; of the constant ten- dency of the former to encroach upon the latter; and of the inadequacy of the utmost assignable produce in any country to maintain the people in plenty and happiness, unless the natural ten- dency to increase be repressed by some forcible check, either directly or indirectly, a certain length below the means of subsistence. Whenever the means of subsistence, how- ever, are, from any cause, unusually abundant, and the people enjoy great comparative ease and comfort, the disposition to early marriage will speedily augment their numbers, which will rise till they begin to press against the li- mits of subsistence. This will bring a gradual decrease in the comforts of the people, and a- gain reduce their numbers, till they fall below* the decreased means of support, and are then 29 prepared to oscillate as before. This natural oscillation is far from being a light evil, as the periodical sufferings of scarcity greatly overba- lance the additional comforts enjoyed in sea- sons of great abundance ; so that, upon the whole, it would be far better for a people to have a steady supply, though not larger than the lowest amount in the scale of vibration just stated. Yet the evil, though far from light, would be trifling compared with what it really amounts to, were the products of the soil expo- sed to no other casualty than such a gradual periodical vibration as the above, only influen- ced by the increase or decrease of population. Were the products of the soil, like the products of other manufactures, wholly dependent on the exertions of man, they might suit them- selves pretty accurately to the demand through- out every year, or series of years, and increase or diminish the supplies to a known and defi- nite amount. But in determining the amount of land produce, another power must co-ope- rate, over which man has no controul, namely, the influence of the seasons. This may occa* sion a sudden disproportion in the supplies, which can occur in no branch of industry whol- ly dependent on human exertion ; while, at the same time, a deficiency of supply in this can. much less be endured than in any other. It is 30 not, therefore, a sufficient security against fa- mine that a nation yields such a produce as to maintain all its people moderately in average years, if that produce really be all consumed as human food. It is necessary that a consider- able surplus be raised for consumption in some other way than as human food, which may ex- ist as a resource on a sudden deficiency, and may be thus turned from whatever other pur- pose it was destined for, to the use of man. To (','spose of this surplus in average years, the fol- lowing methods seem to be the chief: 1. Stor- ing up in granaries at the public expence, to be opened in times of scarcity. 2. Storing up by private individuals engaged in the com- merce of grain. 3. A degree of waste in con- sumption and preparation, as the food of man, and the maintenance of inferior animals for luxury, which may be denominated profuse consumption. 4. Export to foreign countries; and, 5. The distillery and brewery. In the two first of these ways, superfluous produce is disposed of by accumulation, in the three last by consumption. If the grain disposed of in any or all of these ways amount nearly to the utmost deficiency to be expected from an unfavourable season, the security against extreme want is as great as the nature of things will permit. They all serve 31 the double purpose of an indefinite vent and encouragement to increased production in com- mon years; and of a security against scarcity, both by repressing the over-increase of popula- tion in common years, and by yielding, in bad seasons, for the food of man, the supplies which were raised for their market. 1 . The first of these methods of disposing of surplus produce, the storing up in public gra- naries, is by far the worst of the whole ; and never need be resorted to in any country where impolitic restrictions do not impede the natural operation of the rest. When such a system of public storing is adopted, it can only be carried into effect by means of a tax on the people ; and we may be sure that the fund so raised will be expended under the direction of Govern- ment, with much less judgment and economy, and the grain purchased will be much worse preserved, and more improperly applied, than if the same end were pursued by individuals engaged in the commerce of grain, under the free protection of the law. Their own interest will direct such men when and how far to pur- chase and store up, and when and how far to sell, in the manner best for the interest of the community. Accordingly, in most of the ci- vilized nations of the world, the duty of storing up has been pretty much relinquished by go- 92 vernment, and left to individual dealers. In the despotic and barbarous nations of the East, however, where agriculture labours under so many oppressions, the practice is still adhered to from necessity. In China, where an un- wieldy government, and absurd prejudices a- mong the people, combine to fetter internal in- dustry, and forbid the export of corn, the prac- tice of storing up grain for the public is carried to a considerable length ; and, at the same time, we learn its inefficacy to relieve the fre- quent scarcities which occur in that country. We are told, that when a scarcity occurs, and the emperor's granaries are ordered to be open- ed, they are often found nearly empty, from the knavery of those having charge of them. Many difficulties are thrown in the way of transporting the grain, and the poor people are allowed to die in such numbers, as to reduce them within the limits of the subsistence which they can procure for themselves*. These evils, though, perhaps, aggravated from the bad go- vernment of China, are inherent in all such schemes of preserving a public supply. As al- ready said, such schemes can never be needed * See Barrow's Account of China, and Life of Lord Macart- ney. 33 where that matter is entirely committed to free individual exertion. 2. It has been the policy of all barbarous go- vernments to discourage large dealers in corn, from the idea that their accumulation of grain might produce artificial scarcity ; and this po- licy, with other prejudices of the same kind, has thrown the task, as already hinted, into much worse hands, that of the governments themselves. I need not mention the follies which have filled our statute-book on this sub- ject, nor the disgraceful prejudices which ap- peared upon it during the last scarcity ; even in those whose public station left no excuse for their ignorance. It is only, indeed, because our laws have yielded to the general feeling of public interest, and are not enforced, that we are not all made sensible of their mischief. Were corn-dealers generally to be prevented from pur- chasing, or forced to sell, at the will of the Le- gislature, or of judges, we should feel by expe- rience the miseries of deficient supply. The interest of the corn-dealer, where he is left free, necessarily, in all respects, coincides with that of the public. It leads him to accumulate when corn is cheap, and thus takes an useless surplus out of the market ; and to sell sparingly as scarcity increases, which diminishes consump- c 34 tion, and preserves the supplies from absolute failure before the ensuing crop. Any interfe- rence with this operation by the law must, as far as it goes, produce mischief to the public as well as to him *. 3. The vent of a luxurious home consump- tion in the food of man, and the inferior ani- mals, is probably in all countries the most im- portant resource in seasons of scarcity. It is both the greatest in extent, and has the singu- lar advantage of being less liable to interrup- tion than the rest from the interference of go- vernments. The degree of waste in the pre- paration of food by the richer orders of society ; the maintenance of a number of horses, and other animals, for luxury ; as well as the over abundant feeding of those which are necessary ; all occasion a vast consumption of corn, and of herbage, from land that may be turned to corn, which in common years disposes of a large sur- plus, beyond the necessary consumption of man ; in so far represses the population in those years ; and affords an important supply to be set free for the use of man in times of scarcity. Those well meaning persons who lament the waste of luxury, and the number of useless ani- * Sec Smith's Wealth of Nations, B. 4. c. 5. mals that consume the food of man in this coun- try, may hence see how ill-founded are their re- grets and apprehensions. . Were every useless horse sent out of the kingdom, the number of those useful diminished as far as possible, and were all fed in the most frugal manner, the plenty of the people would no doubt be in the mean time increased ; but the population quickly augmenting, (as well as produce dimi- nishing in various ways, from so absurd a mea- sure,) the people would soon arrive at the same point of relation to the means of support, and their comforts would remain unaltered. All the advantage would be an actual increase of numbers even in common years. But if a scar- city were to occur, the situation of the people would be much worse. There would be no produce raised be}^ond what was annually con sumed by man ; any retrenchment from the usual moderate supply would occasion the se- verest suffering ; and deficiency to any consi- derable amount would create absolute famine. Accordingly, it is in China, where the inferior animals are extremely few in proportion to man, that this dreadful calamity most fre- quently occurs. In Great Britain, where the number of the inferior animals in proportion to man is unusually large, scarcity has proba- blv been less felt than in any country on the globe*. It may be said, indeed, that the food wasted in luxurious preparation, or consumed by the lower Animals, i i common years, is a resource in time of scarcity, only on the supposition that the waste is then retrenched, and the consump- tion of the .lower animals diminished or sus- pended at such a season ; whereas, the rich, it may be said, will continue to pamper them- selves and their useless horses, though the peo- ple should starve. But to this it may be re- plied, that the interests s of the public are for- tunately not left to depend on the feelings of moral duty on such occasions, but are enforced * The consumption of the aggregate number of horses kept in Great Britain, has been calculated by a very competent judge, Dr Coventry, Professor of Agriculture in the University of Edin- burgh, in an estimate which he has favoured me with, at the pro. duce of sixteen millions of acres, which, at the rate of four quar- ters per acre, might yield sixty-four millions of quarters of grain. In thus explaining, however, the useof a number of horses, or other inferior animals, I would not be understood to approve of that waste of labour which we often see, especially in England, in the employment of unnecessary horses for carriage or agriculture. These, in regard to labour, are absolutely useless, yielding neither profit nor pleasure ; and though the keeping of them we see has some advantage, it is paying too dear for it. We might as well throw the grain they consume into the sea. Besides, if dismissed, they would probably not altogether disappear^ but be turned to more useful purposes. 37 by the infallible provisions of nature. The rise of prices, which must happen on a scarcity, will force the rich, in spite of themselves, to re- trench their superfluities; and it is in the ad- mitting of this retrenchment that the habitual existence of a superfluity is so useful. The de- licacies of the table must be retrenched, the maintenance of all inferior animals must be re- duced, and the number of those merely kept for luxury or convenience must be lessened, through all classes of the community, (except, perhaps, among a small number of the most affluent) by the natural pressure of scarcity and high prices, however ill disposed individuals may be to such retrenchments ; and the food raised to supply the luxurious consumption, will necessarily be turned to the use of man*. 4. The export to foreign countries, when * The above considerations (as already hinted) may relieve the fears of certain well meaning people, as to the political evils at least (contradistinguished from the moral evils) of excessive lux- ury. The greater the general luxurious consumption of a coun- try, the better is it secured against the risk, of scarcity ; nor can it go to a further extreme in this respect, than will be for its its own advantage. Neither can I help taking notice of the amusing inconsistency of certain reasoners, who in oe breath lament the luxury and cor- ruption of the times, and the next exclaim against the load of taxes. Now it is very apparent, that the more we are relieved of taxes, the more luxurious, and (as far as it depends on lux- nry) the mere corrupted we shall become. 38 the state of our produce admits of it, affords no doubt a very useful vent. In as far, therefore, as perfect freedom of export goes, this vent ought to be encouraged ; but, it is less to be relied on than those which exist within the country. For, in the first place, it depends for its continuance on the state of supplies in the foreign importing countries ; and should their agricultural pro- duce increase, so as to equal their demands, our market with them must gradually be clos- ed. The plan of persisting to force a market by a bounty on export, has been recommended by very able men * ; yet I cannot but think it a vain and frivolous attempt, useless, if our pro- duce be so abundant as naturally to yield a sur- plus for export, and ineffectual, if it be not. Secondly, not only is the vent of export subject to this gradual stoppage, by the natural rise in the prosperity of the foreign countries ; but if on a scarcity at home this exported surplus be retained for our own necessities, the import- ing nations whom we used to supply, on find- ing that we withdraw this supply occasionally for our own relief, will suffer so much that they will cease to depend on it, and use every exer- tion to increase their home growth, or seek for their supplies elsewhere. Thirdly, a year of * Malthns, Essay 011 Pop. B. 3. c. 710. 39 plenty may occur, as well as of scarcity. In a year of 'plenty, the foreign market may not ex- tend to admit of an enlarged export. It may even be interrupted by temporary causes. A glut then returns upon our own market, which discourages cultivation so as to reduce our pro- dace to our own supply. The vent of export, therefore, depends on variable causes, and has not that principle of continuance, nor that power of suiting itself to circumstances, which the modes of home consumption possess. While, therefore, for the above reasons, I think the vent o f export less to be depended on than the other vents which we command at home ; and that it is idle to attempt its en- couragement by a positive bounty; I still con- sider it to be a very useful resource, when the state of our home produce, .compared with that of other countries, naturally leads to it. It should be encouraged as far as perfect freedom of ex- port goes ; and while, on the one hand, I dis- approve of its extension by a bounty ; on the other hand, I think it should never be imped- ed, even in seasons of scarcity, but left to suit itself naturally to our home demand. The analogy between this and the other -forms of disposing of superfluous produce, is complete. The interest of the corn dealer in exporting, is precisely similar to his interest in accu- m mtilating. He never will export when high prices make it his interest, and the interest of the public, that he should accumulate. He re- gulates the one and the other in the way most beneficial to himself and the public, when left wholly free. It is as inexpedient to impede or controul him in regard to the one, as in re- gard to the other. 5. The distillery and brewery afford a vent to the home produce, which resembles all the former, and, as far as it goes, is attended with the very same good effects. In average years, it takes out of the market a certain quantity of corn beyond what is necessary for human sub- sistence, thus encouraging increased produce, and repressing population ; and when scarcity occurs, it yields this surplus to be turned to human food. As formerly hinted, too, this disposal of superfluous produce, like the three first mentioned, has an advantage over the vent of foreign export, as affording a market nearer, more certain, more under the eye of the farmer, and less dependent on our relations to other states, or their internal regulation and prosperity. While always ready to give up its consumption naturally when necessity requires, and to yield the produce raised for that consumption to the use of man, it is a market equally ready to revive on the recur- rence of plenty, to suit its consumption to the state of produce, and thus equalize the supplies throughout successive years. The operation of distilleries in this way is precisely analogous to that of the corn dealer and exporter, and the prejudices on the one subject exactly re- semble those on the other *. The result of the above observations seems to be, that the four latter modes of superfluous consumption (which have a strong analogy to each other) are all eminently useful in common years, as affording an encouragement to land produce, while they somewhat repress the con- sequent increase of population ; and, on the re- currence of scarcity, yield a sure and valuable resource. That while, on the one hand, it is absurd to encourage them for the interest of cultivation by positive bounties ; on the other hand, it is wrong to repress them for the public supply, even in the greatest necessity, because they then naturally suit themselves to the pub- lic wants in the best possible manner, when left alone. In applying the above general principles more particularly to the measure of suspend- ing the corn distillery, now in agitation, it is natural to inquire, First, Whether there does at present exist any necessity for throwing the * Sec Note (D.) 42 grain usually consumed there into the common market, from a scarcity of provisions? Secondly, If not, what will be the consequence of doing so prematurely, and before the necessity comes ? and, Thirdly, Even in the case of actual pres- sure from scarcity, should such a compulsive measure ever be resorted to ? First, As to the existing state of our home supplies, that there is at present any deficiency of these, the current rate of prices abundantly disproves. The wheat crop reaped last autumn in this country, it is generally allowed, was ra- ther an abundant crop ; and indeed this fact, as I take it, is proved in the best of all ways, by the rate of prices just alluded to. We are now nine months from the last harvest, and within three of the next, and the market price of wheat, which is our regulating standard, is as low, or rather lower, than it has been on an average of these several years past ; a mere trifle above what it was immediately after the the last harvest ; and very nearly stationary since the month of November. The price in the London market, on the 16th of the present month of May, was from 50 to 78 shillings the quarter. The price for the preceding month of April, was from 04 to 74 shillings ; that for Oc- tober last, from 54 to 68 ; that of May last, from 64 to 80 ; that of May 1806, from 70 to 43 84; that of Mav 1805, from 80 to 100. Yet if on none of those occasions was there any idea of stopping distillation, though the prices were often a good deal higher than at present. In short, the prices are at this moment lower than they have been, at an average, for some years past, and have not risen materially since last harvest. There is at present rather an abundance than a scarcity in the country *. It is no doubt true, that oats and barley are comparatively at high prices, but this is obvi- ously nothing to the purpose in the view of scarcity ; and is besides owing to temporary causes, which cannot be expected to influence another crop. In the view of scarcity, it is not the relative abundance or price of particular kinds of produce; still less of the smaller and less important; but the actual amount of N/ the whole consumable produce in the country, or the standard price of bread-corn, that is the * See a Statement of the Prices of Corn for some years past, Note (E.). The abundance of the last crop of wheat, the pre- sent moderate state of prices, the small import, and the sufficiency of this country to supply itself, are also stated by Mr Wakcfteld, App. to Rep. p. 110. Mr Claud Scott, p. 116-17. Mr Kent, p. 121. Mr Mackenzie, p. 122-3-4. By far the best proof, howevar, of the present comparative plenty, is the state of prices, for several years past, given in the Note. The prices are given for two months in each year, October, when the crop recently gathered may be supposed to have produced its full effect, and May, which corresponds \rith the present time. 44 only matter of importance. The abundance of the people depends on the quantity of hu- man subsistence ; and it is idle to talk of the people suffering from the want of oats and barley, when wheat is plenty. The distillers have, it is said, in some places, tried to intro- duce wheat into their manufacture, yet even this has not sensibly affected the price of that article. But further, the present relative scarcity and high prices of oats and barley, have arisen from temporary causes; partly from both being com- paratively an under crop last season, particu- larly in Scotland ; partly from the general failure of the pulse crop ; and partly from the sudden demand from the distilleries, which the prospect of the present measure has occasioned. None of these causes can be reckoned upon for another season *. That there is no call for stopping the dis- tillation from any present want of subsistence in the country, is therefore apparent. The people are at present eating bread as cheap as they have done for some years past, indeed ra- ther cheaper ; and no ground now exists for * Notwithstanding these causes, (as to which all the agricul- tural gentlemen agree), the price of barley, though certainly high, does not seem to be very extrayagant. See Statement of PriceSj Note (E.) : and Mr Mackenzie's Evidence, App. to Rep. p, 125. 45 such a measure, that has not existed for all that time. That there may be want in some particular^ districts at present, I will not deny. This may be a good reason for affording- them relief front the abundance of other districts, but is none for a general measure like stopping distillation, when the state of prices shews that there is a general plenty in the country. But, secondly, It is said, that although no scarcity now exists, the present or future crops may fail. It may then exist; and we must take precautions against that event. To this I reply, that the present or future crops have as good a chance of being abundant as deficient. This is a contingency which no man can foresee ; and there can be no reason for taking the precaution now, which will not always exist. This system of 'perpetual precaution* therefore, just amounts to a standing prohibi- tion of the distillery of grain. But in case the calamity of deficient pro. duce should at some future time actually befall us, what will be the effect of this premature precaution ? The grain raised for distillation being forced back on the grower, or dealer, and the general prices falling, he will cease to raise the same quantity by the whole a mount of wjiat was usually distilled, probably 46 by a good deal more. This quantity will there- fore disappear from the market. If it had been displaced by corn, even forcibly encoilraged from waste lands, or imported by a bounty, as formerly mentioned, the same, or nearly the same, quantity of subsistence would still have been within the country ; and that part of it consumed by the distillery, would still have remained to be set free for human use on the occurrence of scarcity. But, in the present case, the grain displaced, is replaced by sugar, a commodity which, in the utmost necessity, cannot be turned to human support. No re- source will therefore remain from the suspen- sion of distillation, when necessity shall call for that measure, if we now adopt it without any necessity. But, thirdly, it may be said, that it is no longer time to betake ourselves to this re- source, when the necessity has arrived, for then the corn will have been actually distil- led. To this I reply, that there will be abun- dant time to take the precaution ; and, indeed, the remedy will apply itself in the best way, without any such precaution. The grain rais- ed for distillation is not all distilled in one day or week; it is done gradually. As grain becomes scarce, and prices rise, it will be dis- tilled more slowly every day, because the dis- 47 tiller can less afford to purchase it, or, if he has purchased, he will cease to distil it, as spirits fall in price, from the people giving up the consumption of them*. This will happen the sooner, if the importation of sugar be at the same time free. The distiller will thus either leave his stores to the corn-dealer, or become the corn-dealer himself. The evil thus neces- sarily cures itself, without 1 any public interfe- rence. In the same manner, at such seasons the luxurious consumption of individuals will be retrenched ; superfluous horses will be un- derfed, or dismissed ; export will cease ; the corn-dealer will be enabled to accumulate, as far as his capital will permit ; and the more he accumulates, the greater is the public security, that the scarcity will not be increased to famine. No stoppage can be put to luxurious consump- tion, farther than what moral duty and inte- rest enforce. None should be put to export or * This idea is very justly expressed by Mr Ferguson, in his evidence before the Committee. " I cannot judge with regard to " the powers of merchants in importing grain ; but it has always " appeared to me, that one of the greatest and best founded secu- " rities against the effects of a famine, is to promote the flourish- *' ing of the distilleries, the consequence of which would be, u that when a famine really occurred, people woufd give up the *' use of spirits, which is not a necessary of life, and leave the " grain for food, which used in favourable years to be applied t " the production of spirits." App. to Rep. p. 158. distillation, otherwise a part of the produce is forced on the market, which there is no capital to store up, and retrenchment is preven'ed from taking place among the people so soon as it ought to do. Corn will never be exported, when a good price can be got at home : It will never be distilled, when it can he sold higher for food. No stop slwuld be put to the accu- mulation of the corn-dealer, whose storing up helps to enforce early retrenchment, and whose stores come forth as scarcity increases, and pre- vent that extreme of misery which a rash over- consumption would have occasioned. The same rule of perfect freedom equally applies to all these modes of consumption. The arrange- ments of nature need no assistance from the feeble and presumptuous efforts of man, whose interference only disturbs what it cannot amend. In the system of human improvement, that knowledge, I believe, is as important and as slowly acquired, which informs us what we can- not do, as that which informs us what we can. It may perhaps be prudent to prohibit ex- port and distillation, when these vents are nearly closing of their own accord, to pacify the ex- cusable prejudices of the people in times of severe scarcity. As to the corn-dealer, no in- terference with him should ever be attempt- ed. The people may be assured, that any immediate relief received in that way will sooner or later lead to aggravated misery *. It appears, on the whole, then, that the ope- ration of distilleries is to lead to an augmenta- tion of produce, beyond the amount which they consume ; and that they should never be sus- pended, except in extreme necessity, which does not at present exist, nor is likely to exist, (from deficient home produce,) in this country. The above doctrines seem to be just, with re- gard to a country which produces the full sup- ply of its inhabitants. But some persons con- ceive, that the circumstance of our importing a part of our subsistence from abroad, together with the present strange and gloomy aspect of our foreign relations, alters the application of the above principles, and justifies a departure from them now, which, at other times, might be wrong. This leads me to the second branch of my inquiry, in which I shall endeavour to shew, that our peculiar situation, as an import- ing country, makes no exception to the prin- ciples above laid down, but rather lends them additional weight. * There is not a more irrational sentiment than one which we often see entertained, of indignation at the profits of farmers and corn-dealers. There is no class of the community in \vhosehands *-he accumulation of capital tends so directly to the public good, D SECT. II. Of the Operation of Distilleries in a Country which imports a part of its Supplies. THE operation of distilleries, with respect to importation, may be considered under two views, analogous to those taken in the last sec- tion. I. In regard to average years of impor- tation, that is, where our supplies from abroad are liable to no interruption. II. In re- gard to years of interruption to our foreign supplies; which may proceed either from a bad season in the exporting country, or from war. I. It is not material to the present question, that I should ascertain very accurately the amount of our importation, in proportion to our demand, for some years back. It has never, I believe, been determined with great certain- ty ; and though my own suspicion is, that it is considerably smaller than has been supposed, I feel little concern in the inquiry, even in a general view, because I think it a matter of very trifling moment*. I am disposed to agree * The arerage amount of corn imported into this country, for fire years past, is stated in the Report at 770,000 quarters. See note (F.) But from this must be deducted our exports, to as- certain the balance of import. Our exports to the colonies art stated at note (G.) 51 with Dr Smith, that the imported supplies of a large territory never can bear any consider- able proportion to its consumption ; still less in a country like this, where the agriculture is su- perior to that of any on the globe. I believe the importation does not now amount, nor is ever likely to amount, nearly to the, supply which is carried off by the various modes of su- perfluous consumption in average years. I be- lieve, therefore, we may regard, without much apprehension, the utmost possible limits to which importation can extend. There have been very able heads, however, who have entertained different notions. Mr Malthus, in particular, augurs, from the pro- gressive increase of importation, the gradual decline of our own agriculture, and the final ruin of the country *. And this view, it is to be observed, is distinct from the advantages of an export, and the loss of subsisting by import, in case of a sudden deficiency of home produce : For this length I am not unwilling to go ; though I think the danger, even here, less than is com- monly apprehended. But the above author surely argues with an inconsistency very un- usual with him, when he in one page prognos- ticates tlie progressive decline of our agricul- * Essay on Pop. B. 3. c. 9, 10. 4to edit, 52 Hire, from the progressive increase of import to and the discouragement of our home grow- er is compensated by the equal discouragement of the foreign grower. This plan, therefore, proceeds on the grand principle of the mer- cantile system, the advancing ourselves, not by a just protection of our own industry, but by repressing that of others. But, like all the feeble and meddling devices of that policy, it will produce the mischief Without the good in- tended. The foreign grower will be injured, but the home grower will not be relieved in the same proportion. The free vent of distil- lation will not nearly be made up to him by all the rise of duties on the imported corn. He will raise less than he did ; less will be im- ported than before, from the additional duty ; the prices on both will rise, and the general supply of the country will be diminished. * In arranging tins scale our landed interest have too much in- ierfered, and have set an ill example, which is now turned against themscho. 59 But even supposing, what will not happen, that, by the rise of duty on importation, the whole corn set free from the distillery is forced on the common market, and displaces foreign produce to that extent, so that the home grow- er suffers nothing, and the general amount of subsistence raised in the country remains the same ; what happens in the case of a deficient season? There is no fund fit for human subsis- tence consumed in the distillery. The article used there is sugar, which cannot on any necessity be turned to such a purpose. In so far, therefore, as that fund goes, the public is deprived of the resource altogether. The way in which the British farmer will be enabled (if ever) to displace the foreign grow- er in the home market, and, perhaps, to turn the scale of exportation the other way, is not by giving him the vain encouragement of a boun- ty : still less by forcibly closing any of the vents to his produce, even if, to make amends, the fo- reign grower is also repressed at the expence of the public ; but by permitting him the free disposal of his produce, protecting him in the exercise of all his rights, removing obstructions in his way, avoiding all further interference in his concerns, and leaving him to the natural competition of the market. I think it is then pretty clearly made out, that the effect of distilleries, in average years of 60 importation, is to lead to a progressive increase of home produce, and consequently to a pro- gressive diminution of import ; and that their suspension tends directly the other way. But it is said, that although this may be the case when there is no probability of the sudden in- terruption of supplies, yet, in the present strange and melancholy aspect of public affairs, when we must expect the certain suspension of supplies from abroad, it is advisable to throw the grain usually consumed in distillation, into the com- mon market. This I shall now consider. II. The sudden failure of supplies from a T broad, may be occasioned either by a deficient season there, or by the shutting of their ports against us in war. With regard to both, I think it may be shewn in the first place, That there is no such probability of either taking place, at present, as to call for any changedn our policy ; and secondly, If they should take place, at a future time, that the best way of preventing their bad consequences is to continue, not to suspend, the distillation from grain, as a gene- ral system. And even if the deficiency should happen during next season, that the forcible sus- pension of the distillery is unnecessary. With regard to a bad season in the export- ing countries, it is an accident which we cannot lopk forward to with certainty, any more than, 61 to a bad season at home. The argument for- merly applied to the one equally applies to the other. If we are to abolish distillation at pre- sent, on such a contingency, we may abolish it always. If the contingency does not happen when expected, we have not only taken a need- less step, but have deprived ourselves of the re- source which would have relieved us when it did happen. When the pressure is felt it is time to apply the remedy; and even then, the less we interfere the better, as the remedy will apply itself. The chance of a failure of supplies from the shutting up of the ports of Europe and Ameri- ca, is one which, being chiefly in view at pre- sent, will require a somewhat fuller considera- tion ; although the very same principles apply to it as to the failure from a deficient season abroad or at home. When we look with such apprehension to the failure of foreign supplies, as many persons do at present, it is natural to inquire, in the first place, into the probability of that event happening, so as to give us any material dis- tress : and towards determining this point, the experience of the last nine months is peculiar- ly instructive. The whole ports of the Conti- nent, from which we usually received supplies of grain, have been under the controul of our enemies, as far as such controul can be carried, ever since the last harvest was reaped. As far as the strictest embargo could prevent it, there- fore, all supplies to this country have been stop- ped since that time. America, the only other country from which we receive supplies, has, more lately, adopted the same measure ; and, (although I still hope the returning reason of both countries will prevent a rupture so injuri- ous to both), the embargo there has been for some time enforced as strictly as the govern- ment could enforce it. Yet, what has been the consequence of all this ? The price of bread- corn, as formerly mentioned, is at this moment rather lower than the average of some years past ; has continued nearly stationary since last harvest ; and we are now within three month* of the next without any sensible rise. The inference which I draw from this is, ei- ther that our importation is so small in propor- tion to our home supplies as to be absolutely insignificant ; or, that the utmost power of go- vernments, stimulated by all the bitterness of human violence and folly, cannot obstruct those great provisions of nature, by which an over produce tends towards the place of demand, and thus equalizes supply, and relieves the mu- tual wants of mankind. Either of the above alternatives relieves us from any fear of mate* 63 rial deficiency from the interruption of foreign supplies*. As, in the last Section, therefore, I conclud- ed that it would be unreasonable to take the precaution of stopping the distilleries on the possibility of a scanty future produce ; so I may now conclude that it would be as unreasonable to take it on the possibility of a failure of im- ports ; from which, it appears, we have a great- er security than we can have in regard to the season. But in the second place, supposing that such deficiency of the usual importation should hap- pen to a considerable amount, is the imme- diate suspension of distilleries a likely way of guarding us against its effects ? The arguments formerly applied to cases of sudden deficiency from other causes are precisely applicable here. In as far as the chance of deficiency from abroad is increased by the present interruption, we have the more occasion for superfluous vents * See statement of imports, Note (F.)> and evidence of Mr Claude Scott, p. 116-17 ; Mr Kent, p. 121 ; and Mr Mackenzie, p. 122-3-4. From this statement it appears that, during the year 1 807, we hare received from foreign countries, notwithstanding the embargoes, pretty nearly the average supplies, which have reached us for some years past. From Holland 233;000 qrs. and even from France 27,000 qrs. It is probable we shall receivers much next year, notwithstanding the restrictions* If we should ftot, we can 4o very well without it. 64 to extend our produce at home. The failure of foreign supplies may not be felt the next year, but it may be felt the year after, or some future year. If it be felt the next year, we have gained little, for we might have resorted to the pre- sent measure when we saw the proof of the fai- lure in the rise of prices ; or rather, we might have permitted the rise of prices to produce the same effect naturally. But if the pressure be delayed till some after year, the resource will be lost, from our farmers having diminished their cultivation, distrusting a market so uncertain as the distillery becomes by such frequent inter- ference. Indeed, in a general review of this subject of our foreign supplies, I think we shall find it too' insignificant materially to influence any branch of our policy. When we consider the propor- tion which the average importation of late years, of 700,000 quarters of all sorts of grain, bears to our demands, we need have little apprehension of material suffering, were the whole of this supply withdrawn for the next year. It appears that, by the distilleries alone, 470,000 quarters of barley are used in Britain^ which is only cal- culated as one-sixteenth of the whole barley crop*. Of course the brewery must consume a vast deal * This, together with the 311,000 qrs. used in the Irish distil, lery, amounts to 781,000 qrs. which is 81,000 qrs. beyond the average importation of all sorts of grain. more. A little retrenchment of these two modes of consumption, on the natural rise of prices, would supply the whole deficiency. But when we look to the vast amount of corn consumed by superfluous horses, and the over-abundant feed- ing of other animals, we must be satisfied, that a very slight diminution in this quarter would, in an addition to the above, much more than over- balance the whole foreign supplies withheld from us. The deficiency, I should think, would scarcely be felt in the price of bread corn. It might, how- ever, be slightly felt for one season ; and this would stimulate the farmer to a production that would probably, in one season more, fully supply our home demand, and even turn the balance of ex- port in our favour. On the other hand, this premature and unnecessary interference will give a shock to the agricultural products, otherwise advancing, and, we may be sure, will expose us to an increased importation at some future time. But, indeed, I think there is little probabili- ty that we shall be exposed even to the above trial. I have no doubt, from what has appeared this year, that we shall receive our usual supply from foreign states next year, and every future year, as long as we want and can pay for it. The above is no doubt on the supposition that the crop now growing proves equal to the ave- E 60 rage of the last few years, which may yet not be the case. There is an equal chance, however, that it will prove abundant as that it will fail. Its failure is a contingency which we have no more reason to reckon upon now than at any other time. If that misfortune should come, we must endeavour to palliate it, by retrenchment of every kind, the best way we can (for, as Dr Smith ob- serves, a real scarcity cannot be remedied, it can only be palliated) ; and the rise of prices will at once indicate the evil, and enforce the remedy. The difference made by all the foreign supplies which we ever did, or ever can receive, on a se- rious deficiency, is very trifling, It is known how little proportion the utmost importation of 1800 and 1801 bore to our demands. It is up- on our domestic agriculture that we must mainly depend ; and to tamper with it by closing its na- tural vents, and deranging its system, when called for by no visible need, is to stop its pro- gre^sive increase, and lead to that real calamity which now only exists in the imagination. Upon the state of produce in Ireland I have said nothing, as I have not the means of ascer- taining accurately the prices there for some years back. It is, however, 1 believe, admitted, that no general scarcity exists there at present, such 67 as to justify the suspension of the distillery. And, indeed, Ireland in this, as in other in- terests, ought never to be considered separately from Great Britain. If a free commerce of grain between the two countries be established, a partial deficiency there will be relieved by the abundance elsewhere ; and should be no more a ground for legislative interference, than a partial deficiency in any district of this island. It appears, indeed, from the report, that the Committee is in doubt whether to recom- mend the prohibition of the distillery in Ire- land. Their doubts, however, are unconnect- ed with the view of scarcity, and merely pro- ceed on difficulties regarding the revenue. If the suspension be not extended to that country, a new host of restrictive expedients must be embodied, to prevent the passage of corn spirits from thence into this country, As to the importation of corn needed by our colonies, which, in case of a rupture with Ame- rica, must be supplied from elsewhei^, I have added a state of its amount for the years 1804, 1805, and 1806*. But in the first place, I think there is little fear of their being deprived .of this supply ; and secondly, it is stated by Mr * See Note (G.) Blackburn to be his opinion, that Jamaica at least might supply itself*. THE whole argument treated in the two fore- going Sections may then be summed up in the following manner. In a course of years of average supply, whe- ther entirely drawn from home produce, or partly imported, the effect of distillation, like that of every other natural and indefinite vent, is to lead to a progressive increase of home produce, followed, in the one case, by the ge- neral extension of population and comfort, in the other, by the progressive diminution of im- port in the first place, and ultimately by the same extension of population and comfort. If the subsisting by importation, then, be consi- dered as an evil, the distillery is still more in- dispensible in a country where that prevails, than in one which produces its own supplies ; because the home cultivation has the more need of encouragement, to enable it to contend with the importation, and at length displace it. But the benefit of the distillery, and other modes of superfluous consumption, though great in ordinary years, cannot be fully appreciated till the recurrence of scarcity ; whether proceed- * App. to Rep. p. 23. ing from deficient home produce deficient foreign produce the interruption of war or from all these taken together. At such a sea- son, the superfluous produce raised for the con- sumption of the distilleries, affords a fund of subsistence, which will be set free for human food by the natural rise of prices ; or, when the necessity becomes very high, may be set free by Legislative interference. This last, how- ever, should, in general, be delayed till the whole effect had been nearly produced in the natural way. To encroach forcibly on this spare fund at any season of moderate plenty, or easy prices, is to deprive the country of it when the necessity arrives, by the discourage- ment of cultivation, which will probably be to a much greater amount than in proportion to the produce which the vent itself consumed. There is at present no such deficiency, or like- lihood of deficiency, from any cause, as to in- duce us to risk such discouragement. I have thus endeavoured to shew, that on general and permanent principles, whether re- garding this country as producing its own sup- plies, or importing a part of them, and whether during moderate years, or in the case of scar- city, the vent of the distillery to our home pro- duce is a great public benefit ; and it never 70 can be for the public benefit that this vent should be forcibly interrupted. We are told, however, that admitting the justice of all the above general principles, the present departure from them is too trifling and temporary, to be considered as an important exception. Admitting that the interest of the public, and of the home grower, will be injured by the stoppage of the distilleries, as far as their consumption goes, this consumption, it is said, is comparatively trifling. The wants of the colonists are urgent, and require immediate relief. The distilleries will afford them such re- lief; while the want of their vent will be little felt by the farmer. Whatever might be the ef- fect of a permanent suspension, the present ex- pedient will be but temporary ; and even during its continuance; a power is proposed to be lodged with the King in Council, to open the distilleries again, in case the price of barley fall too low. This view then gives up the question on general grounds, and, admitting that the public and the British growers both surfer from the suspension of distilleries, only maintains, that they should voluntarily submit to this suffering, for the re- lief of the distressed colonists. This leads me to the third branch of the sub- j."<-r, which I proposed to consider. 71 SECT. HI. Hoiv far the present Distresses of the Colonial Pro- prietors alone, afford a just Ground for the pro- posed Suspension of the Distillery. THIS inquiry naturally divides itself into two branches : First, Whether the colonists should receive any relief? and, secondly, Whether the relief proposed by the suspension of the distil- lery of corn be a proper one ? I. In the outset of these remarks, I intimat- ed my opinion that the present distresses of our colonists had arisen from an over exten- sion of the cultivation of sugar, during the tem- porary unproductiveness of other islands; that now, on the revival of more fertile soils, there is a quantity produced beyond the present de- mand of the world, and that our colonists ne- ver can be effectually relieved, till they reduce their cultivation *. The first question, then, * Notwithstanding the respectable authority of the Report of the Committee of the House of Commons, 24th July 1807, to the contrary, I cannot help adhering to this opinion. The chief cause of the colonial distresses assigned there, is the import to the continent from the hostile islands, by neutral vessels. But this would never account for the difficulty, unless there were an over produce ; for, during former years of peace, when the in. 72 'that naturally occurs is, What right the colo- nists have to puhlic relief of any kind, more than every other unsuccessful speculator, who is ruined by his own imprudence, or by unfore- seen accidents ? Whether or not it would be for the general advantage that relief were at- tempted in all such cases, is, I think, a question of little doubt. It would not only be impossi- ble, but if possible would be wrong ; as it would be an endeavour to anticipate the great cor- rective which nature has provided for human improvidence, in the sufferings which fol- low it. Even in the case of misfortunes pro- duced by no imprudence, the same rule must hold ; for it cannot be otherwise. How far the growers of sugar can shew any grounds for making their case an exception from the ge- tercourse of the continent with its colonies must have been still more free and extensive, the present distresses were not com. plained of. It is further stated in the present Report, that the existing surplus of sugar from the old British colonies, of 1,312,419 cwts., is not equal to the continental demand of the last peace. But it is to be considered, that on a peace all the other islands would also find greater facility in sending their pro- duce to the continent, so that, probably, very little of the above surplus would find a vent there. The fact of the rapid increase of colonial produce, is indeed distinctly admitted by Mr Hibbert, a member of the present Committee, who was examined. App. p. 166-7. The immense import of slaves, of late years, is also stated by other witnesses. 73 neral rule, and extending that relief to them which cannot be extended to others, it is not my present business to inquire, even if I had the proper time and means of inquiry. Cases may occur, where, from motives of com- passion to the sufferers, it may be excusable to extend such relief; but I doubt exceeding- ly, whether, in an enlarged view, it ever can be for the public advantage to infringe the ge- neral rule. 1 doubt if the public ever will suffer so much from the ruin of a few imprudent indi- viduals, as it will from the cost of relieving them, and from the encouragement which such relief gives to further imprudence. As already said, however, I do not wish to push general principles too far. Justice may sometimes relax from her rigid equality : And I have not the means of deciding, whether the case of the colonists may not be such as to justify some deviation in their favour. If their difficulties have been in part occasioned by the public measures of the country, their claim is no doubt the stronger. At the same time, it is not to be forgotten, that the present distresses of the colonists will never be removed by any temporary expedient. If they depend on a general cause, (the over culture of their commodity), the only effectual remedy rests with themselves. If) by such forced enlargements of their market as this, they be encouraged to persevere in their pre- sent growth, the evil will receive hut a slight palliation ; and at the end of any given period of suspension of the distillery, the colonists will require the continuance of the same violent ex* pedient, as much as they do now, perhaps more. We are further told in the Report, of the ad- vantage derived from the colonies to the ship- ping and revenue. As to the shipping, it has probably partaken a little of the over-trade of its employers, and the allowing it again to find its own level, will do the country no seri- ous injury. As to the revenue paid on su- gars, it is equally plain, that if we force that commodity by encouragement, we tax our- selves to enable it to pay this revenue ; or, in other words, pay it ourselves in the most ex- pensive form. As already said, however, I am not now opposing the granting of assistance to the colonists as a general measure. II. But if such assistance is to be granted, it should surely be in a way the least unjust to- wards any particular class of the community, and the least injurious to the whole. The pro- jected mode of relief) by the suspension of dis- tilleries, is objectionable on both these grounds. 75 It is unjust towards the class of our home cul- tivators, and inexpedient in regard to the pub- lic interest. It is unjust towards our home cultivators, in laying that burden on them, which, if borne, should be borne by the whole community. It is a positive restriction on their industry, in fa- vour of the colonial industry. Nay, the injus- tice is not merely in laying the burden on the , limited class of cultivators, (though the whole will suffer), but in laying its immediate weight on a small number of that class, the growers of barley. This hardship is great at any time, inasmuch as it forces into a different mode of culture, those soils which are best fitted for that produce * ; and it is peculiarly aggravated in being imposed, without previous warning, at this season of the year, when the barley crop is already sown, or the land so prepared for it, as not to be conveniently turned to any other produce. But it is said, the whole amount of grain used in distillation is small, and the loss to the British farmer will be trifling. It is further * " I consider the cultivation of barley as almost necessary to the existence of Norfolk." Evid. of Mr Nathaniol Kent, A pp. p. 118. The impossibility of turning barley land so ^ell to any other culture, is also stated by Mr Cox and Mr Henuin^, p. 149, Mr Elmar, p, 153, and Mr Wakcfield, p. 109. said, that the measure is temporary, and will be attended with no serious inconvenience. With regard to this loss, I cannot correctly speak. The quantity of barley annually con- sumed in distillation in Britain is stated, in the Report, at 470,000 quarters, or about I -16th of the whole. The logs to the farmer, even from an immediate want of sale to the above amount, is not inconsiderable. But it is to be observed, that this argument cuts two ways. If the want of this vent be a trifling loss to him, it will be but a trifling advantage to the colonists ; and the smaller the burden is, the less difficult will it be for the public to relieve it in some other way. However small it is, it must bear much harder when laid on one limited class of the com- munity, than if equally imposed on all. I can see no reason why such a tax, if necessary, should be wholly borne by our home growers. Unequal taxes, even for the support of the state, are always to be regretted ; but they become somewhat more intolerable, when imposed for the relief of a small class of individuals, whose distresses are at least a presumption of their im- prudence. However, this is a point which the British cultivators best know themselves. If they consider the stoppige of the distilleries as no hardship, I am satisfied. If they feel no grievance, they will not complain. If) on the 77 other hand, as I rather suspect, it will be a very serious evil to the cultivators in general, and to the growers of barley in particular, they should, I think, take all legal means to oppose it *. I have endeavoured to shew, that in sup- porting their rights, and their interests, on the present occasion, they will promote the inte- rests of the public. But it is not the immediate loss that is the chief evil in the present measure. The future injury to agriculture, from the derangement of the system of cropping, and the want of a sure market, are far more important Security in his market, is the great stimulus to the farmer's exertion ; and if this be infringed, he must aban- don his culture, in the prospect of that market, altogether. The mischiefs of a fluctuating po- licy towards any branch of industry, are perhaps more than can be easily calculated. This is the great objection to the present suspension, as a temporary measure. It is not so much the loss which the farmer will surfer for this one year; as the general loss to cultivation, from his never being sure, when, or for what reason, the measure may be repeated. In this particular view, it is even worse than if the the stoppage were permanent ; for in that case * On this point, the testimony of all the agricultural gentlemen, examined before the Committee, is uniform. 78 the farmer would change his system of culture, and endeavour to push a steady market some other way *. Neither does the palliative of lodging a dis- cretionary power with the King in Council, to permit the distillation of grain, at all remedy this fundamental objection. It only introduces the principle of interference and fluctuation into that market still more completely than hefore. Indeed, a moment's rejection must convince us that this argument, of the measure heing hut temporary, is one which must apply always when the same thing is in agitation. No civi- lized nation, I suppose, ever enacted that the distilling of corn should always he illegal.^ Even France, who has been so justly censured for her weak policy, in regard to the corn trade, did not prohibit export at alt times. Her error only lay in resorting to that measure too light- ly and frequently, and in listening to the vain alarms of future want, upon every trifling rise of prices. It was from this fluctuating system, ra- ther than from permanent discouragement, that her agriculture suffered. But with all her folly, I doubt if she ever resorted to the prohibition of export, when not in force, as we are now called upon to suspend the distillery, at a time * " It is," says Mr Wakefield, " the bane of a farmer to be f { drneu out of his natural course." App. to Rep. p. 113, 79 of actual abundance, and without any certain prospect of future deficiency. I doubt if she ever did so for the mere convenience of her colonial proprietors, without w r ant being either felt or reasonably expected at home. Within the last forty years, it appears, that the distilling of corn has been suspended only twice before this time * : The suspensions, I am sorry to observe, are both lately. The re- lief obtained by the public, on those occasions, was probably trifling ; but the discouragement to agriculture, from the frequency of the mea- sure, may be both important and permanent. On those occasions, however, there was some apology for it, from the public necessities actu- ally felt, and the market of the distillery na- turally declining of itself. At present, there is no such excuse; and the evils of the fluctuating system are continued and augmented f . * From 10th July 1795 to 1st Feb. 1797, and from 8th Dec. 1800 to 1st Jan. 1802. App. to Rep. p. 205. + The following observations of Mr Young, when speaking of the vine culture in France, are equally just and important : " There are two reasons why vines are so often found in rich '< plains ; the first is, the export of wheat being either prohibited " or allowed with such irregularity, that the farmer i.s never sure " of a price ; but the export of wine and brandy has never been " stopped' for a moment. The effect of such a contrast in policj- *'" must have been considerable, and I sa^r its influence in every 80 On the whole, when I consider the importance of a flourishing agriculture to the prosperity, and even existence of a state the dependence of all other branches of industry upon it for their support or extension its influence on our social happiness, as well as our public strength the preference which our laws have so often given to less important branches of industry the many obstructions which naturally or artificially retard its progress -and, I may add, the general charac- ter of that class of men who are peculiarly con- nected with it- -when I consider these things, I am disposed to regard our agricultural industry with a sort of superstitious reverence ; to think it should not be lightly tampered with, to serve oc- casional views; and to consider any unnecessary encroachment on it as loosening one of the foun- dations of our strength, which cannot be even slightly displaced, without a shock to the stability of the whole. But if such superior estimation of agriculture be a prejudice in feeling, I carry it no such length ' 4 part of France, by the new vineyards already planted, or begun lt to be planted, on corn lands, while the people were starving for Annual Average Cwts. 157,217 314,730 Do. do to other Parts - - J - I 157,51 3 , Average annual Balance remaining for the Consumption of Britain ..... Add, quantity exported, as above, to Ireland - Annual Balance remaining for the annual consumption of the Empire ..... The above is exclusive of the small direct import into Ireland iror.i the West Indies. 1,579,337 314,730 1,264,307 157,217 1,422,024 99 THAT the average importation of Sugar into Grent Britain fo 1802 and 1803 (being 2 years of peace) was Cwts. Deduct, average -v .. - export to Ireland / - - \ 167,267 / >Annual average< >1,870,025 Do. do. to other \ / \ N parts - J - - *- 1,702,758-'' Annual average balance remaining for consumption o; Britain .... Add, average annual importation into ) Ireland (direct) for the same period $ Deduct, export from Ireland . - 1,6G6 Add, quantity exported to Ireland, as above 1 67 ,558 } ,267^ Average annual balance remaining for the consumption of the Empire THAT the average importation of Sugar into Great Britain, for 4 years, from 1804 to 1807, both inclusive, (being 4 years of war) was Deduct, average annual export to Ireland 1 74,1 6G ? Do. do. to other Parts 971,758 ) 1 > 145 ' y Annual average balance remaining for consumption of Britain Add, average annual importation into "] Ireland direct from the West Indies, for 3 years, from 1804 to 1806, both > 135,390 "} inclusive (the return for 1 807 not ( having been yet received) y Deduct export from Ireland 462 j Add, quantity exported to Ireland, as above - 174,166 Average annual balance remaining for the consumption of the Empire - THAT the quantity of Sugar imported into Great Britain, dur- ing the year ending 5th January 1 808, was, viz. From the old British West India > Islands - - - I 3,069,805 From the conquered Colonies, viz. 5 Trinidad, Demerara, St Lucia, > 581,881 Surinam, and Tobago - - j - Deduct, export to Ireland ... 233?>08 to other Part* Cwts- 3,741,486 1,870,025 1,871,46} 336,82.5 "| i i 2,208,286 1,473,488 1,145,924 2,327,564 309,094 pa/ii . 2,636,653 ,130,534 jj ,651,686 1,363,642 100 Balance remaining for the consumption of Britain Add, quantity exported to Ireland, as above - Balance remaining for the consumption of the Empire, ? exclusive of the direct import into Ireland - - 5 ABSTRACT OF THE ABOVE STATEMENT. Cuts. 2,288,044 233,108 2,521,152 Annual average Average finnunl Balance remain- Importation into' Total Im- Exporta- tion to ing for the Consumption of \ Great Britain. Ireland. portation. Foreign Parts. Great Britain and Ireland. Annual average for 5 years ") ending with 1785 - y 1,579,537 - - 1,579,537 157,513 1,422,024 cwts. Annual average for 2 years, ? 3,741,486 171,224 3,912,710 1,704,424 2,208,286 do. viz. 1802 & 1803 - - 5 Annual average for 4 years, ^> viz. 1804, rS05, 1806, > 3,473,488 135,390 3,608,878 972,220 2,636,658 do. & 1807 - - - J Imported from the old Bri- } tish Islands 3,069,805 (. Do. from conquered Colo- C 3,651,686 3,651,686 1,130,534 2,521,152 do. nies - - 561,881.) THE preceding Statement shews, that the quantity of Sugar annually consumed in Great Britain and Ireland, upon an average of 4 years, ending with 1807 inclusive, was - - 2,636,658 And that the average export from the United Empire, dur- ing the same period to foreign parts, was / 972,220 That the importation, for the year ending 5th January 1808, not including the quantity imported into Ireland direct, 3,651,686 1,130,534 2,521,15-' > MP Of which the quantity exported to foreign parts, was Leaving, for home consumption Should there be no export to the -Continent in the course of 18O8, a quantity equal to what was exported during 1807, as above stated, will be thrown upon the market for home consumption ; to which must be added, the quantity of sugar which may be expected from the Danish Islands ; and the consequence of such a glut must necessarily be, a very considerable .'.eduction in the price of sugar, unless an additional vent shall be found -t home to take off the surplus. 101 THE following calculation shews the increased consumption of sugar in {lie British empire within the last 22 years ; also, a comparative statement of the actual production of the British colonies with British^onsu'mption, and of the surplus production of the British colonies ; with the demand for sugar at the British market for the use of the continent, during the short interval of peace : Annual consumption of sugar in Great Britain and Ireland, upon an average of 5 years, ending with 1785 .... 1,422,024 Do - upon an average of 4 years, ending with 1807 - 2,636,658 Increased consumption 1,214,634 Average annual Import of 1804, 1805, 1806, & 1807, in- to the United Empire, was 3,608,878 Deduct, import from conquered colonies (supposing 1807 to be an average) - - - - 581,881 Average annual import from old British colonies 3,026,997 Average annual consumption in Great Britain and Ireland, for the above period .... 2,636,658 Annual surplus above consumption, from our own colonies 390,339 Average annual export during peace, 1802 & 1803 - 1,702,75S Average annual superfluity of old British colonies, as above 390,^39 Shewing the insufficiency of the present surplus produce of the old British colonies to meet a continental demand, ?qual to that of the last peace, to be - 1,312,419 With a view to apply a$ speedy a relief as possible to the case thus made out, your Committee proceeded to consider of the expediency of pro- hibiting the distilleries of the united kingdom, or any part thereof, from the use of grain, and confining them to that of sugar and molasses. This inquiry, involving in it the interests of the revenue, the distillers, and the .landholders of the country, your Committee have gone through a long and minute investigation, with a view to ascertain how far these interests might severally be affected by the proposed restriction. It appears from the evidence ot Mr Jackson, that the revenue received from the English distilleries amount to near L. 2,000,000 ; and is collected at the expence of one halfpenny in the pound. This revenue arises from a duty of Is. 4^d. per gallon of wash ; 100 gallons of wash are produced from about one quarter of corn ; and the allowed produce of spirit from that quantity of wash is 19 gallons, at one to 10 over hydrometer proof. The customs duty on the cwt. of sugar is 27s. ; two cwt. of sugar will pro- duce ICO gallons of wash, which will produce 22 gallons of spirit at 1 to 1O over hydrometer proof. The present duty on sugar wash is 2s. O^d. per gallon. If sugar were to be used without any alteration of the rate of duty, the Revenue would gain ; but the cost of the raw material would be greatly increased, and a 102 propbrtionable rise in the price of spirits to the consumer would be the con- sequence. It would be desirable therefore that some modification of the duty should take place. It appears from a calculation of Mr Jackson, that taking the price of barley at 43s. a quarter, and of malt at 80s. a quarter, 116 gallons of corn- wash (producing the same quantity of spirit as 2 cwt. of sugar) would, in materials and duty, cost the distiller 10s. 4^d. per gallon, of which 7s. lO^d. would be the duty to Government. Taking the price of sugar at 60s. per cwt. and reducing the duty on the wash to Is. 2id. per gallon, the cost to the distiller would be 10s. lOd. per gallon, of which the duty would be 7s. 10d., bringing the duty, under the proposed restriction, to within a fraction of what it now is. The malt duty being much more easily evaded than the customs duty on su- gar, which in fact is little, if at all eluded, it appears that that duty ought to re- main as it is, and that the reduction ought to take place in the duty on the vrash. There is, on account of the quicker dissolution of the material, a great- er facility of fraud in the case of sugar than of corn wash ; but on the whole, the chances of fraud would be diminished, the profit of it lessened, and the loss to the Revenue, even if it were practised, would not be so great. Under these limitations, your Committee are induced by the evidence ficfore them, to hope that the Excise regulations may be so arranged, with- out 'great or inconvenient alteration, as to prevent any material injury to the revenue from the proposed suspension. In Scotland, the system of collecting the duty is different and more com- plicated. In the Lowlands, there is an annual licence duty of L.I 62 per gallon on the contents of the still ; for which the distiller is permitted to make 2,025 gallons of spirit within the year, the licence expiring whenever that quantity appears to have been made. This duty amounts, on the gal- lon of spirit, to Is. 7d. 2-iOths. There is a wash-duty of 5d. which, com- puted at the rate of 16| gallons per cent, on the 100 gallons of wash, a- mounts to 2s. Gd. 3-10ths ; and there is a spirit duty of Is.; the total being 5s. Hd. per gallon. The lower per-centage on the wash is occasioned by the rapid mode of distillation which is imposed upon them by law, and which subjects them to a constant waste of material, which they consider as a species of indirect duty. Sugar, it appears, would be better adapted to their quick mode of distillation than corn, as in the wash from the former there is no such re- siduum as there is in the wash produced from the latter. There is, there- ' fore, no reason to suppose that the same per-centage of 22 gallons of spirits from 100 gallons of sugar wash might not be expected in Scotland as welt as in England. As it would be advisable, for the reasons stated by Mr Jackson, to retain the whole of the Customs duty on the sugar, it would only be necessary to make a certain reduction in the duty on the wash, or on the spirit. The present distinctions in favour of the Highland distiller (by which he is required to produce only 10 per cent, on the wash, and is charged with a duty amounting on the whole to 4s. 5d. per gallon of spirit, instead of ,5s. .1 arose from an alleged inferiority of the material from which he works. Under the proposed restriction (the material being the same as that used by other distillers) the same per-centage of 22 gallons would of course be re- quired. If it should be thought fit to charge the same amount of duty, it *T3uld only be necessary to apply the principle before recommended. The 103 process of working is slower than in the Lowlands, and, on account of the difficulty of obtaining fuel, it might be proper to leave that as it is now established. The trades for export from England to Scotland, and vice versa, and for home consumption, are separately carried on, and under separate regula- tions. If, therefore, it should be deemed expedient to confine the prohibi- tion to England, there could be no difficulty in subjecting the Scotch ex- port-trader to that prohibition, as he is to other regulations imposed on the English distillers. But the partial adoption of this measure in any part of this Island would afford so strong a temptation in the other to smuggle the corn spirit which they would be entitled to manufacture, into the part sub- ject to the prohibition, that much detriment would accrue to the revenue therefrom : and, indeed, there seems to be no good reason connected with x the revenue why this measure should not be extended to Scotland. Much illicit trade is undoubtedly carried on in the Highland district, and the pro- posed restriction would encourage it, to a certain degree, on account of the preference entertained for corn spirit ; but the frauds practised in evading the malt duty, by the licensed distillers, would be effectually stopped. The collection of the Irish revenue is ultimately regulated by the quanti- ty of th spirits, and is necessarily attended with more checks than in Eng- land. A duty of 4s. is charged on the gallon of spirit. The mode of work- ing the distilleries is, by a certain number of doublings or charges of the still, required within twenty-eight days. There are three stages in which the duty is checked, on the pot-ale or wash, at the rate of 1O gallons of spirits to 100 gallons of wash ; on the singlings, or low wines, at two-fifths of spirits ; and on the spirits according to the quantity ; no reference what- ever being had to the strength. Should it be thought fit to extend the prohibition to Ireland, a modifica- tion of the rate of duty would be required, on the principle before stated. If the number of doublings is to continue to regulate the duty, the amount of the charge ought to be calculated on the utmost possible number o workings, which has been the principle on which the laws for collecting the revenue have been made. The number of workings has been gradual- ly and progressively increased, and it is apprehended may admit of still further increase. The substitution of sugar for grain in Irish distillation would undoubted- ly so far prove beneficial to the revenue of that country, as it would pre- vent all fraud on the material to be used. The frauds on the malt duty, which are stated to be enormous, so far as concerns the distilleries would be prevented. It is stated however, that it would be impossible to restrict the Irish li- censed distillers to the use of sugar, their numbers being to those of the English distillers in the proportion of five to one : That it would be very- difficult to prevent them from using corn wsh, which (under pretence of obtaining yeast) they would procure of the strength requisite for their pur- poses from the> breweries, which are not subject to the Excise, excepting in as far as relates to the malt duty. This practice they are stated -to have followed when the distillation from corn was last prohibited. It is however, admitted, that if proper regulations could be devised, and the vigilance of the revenue officers could be relied on, the frauds might in a great measure be prevented. But there would, it appears, be considera- ble difficulty in framing such regulations, or in inducing the officers sud* 104 dciily to change that relaxed conduct, and in many cases corrupt beha- viour, to which they have been unfortunately too much addicted. This difficulty with regard to the ofliceri, would add to the facilities to fraud arising from the more rapid dissolution of sugar, which even of itself would render it far from easy to get an accurate account of the wash. The enormous account of the illegal distillation in Ireland (which is chiefly practised' in the North) is urged as a strong objection to the pro- posed measure. The very great preference entertained by the people for corn spirits ; the consequent hopes of sending them to other parts of the country, where there are fewer illicit stills ; and the desire which would be created in landholders to find a market for the corn, thus ex- cluded from the legal distilleries, would, it seems, operate to the great detriment of the revenue, by tempting an increase of private distillation, which would be entirely from corn ; and if so, whatever that increase should be, the revenue would receive additional injury to that amount, without causing any additional consumption of Sugar. This objection would, however, not ap^ly in case of a serious apprehension of scarcity, because the inhabitants would then be active in stopping the use of corn in the illicit distilleries. The detail of regulation which would be necessary to protect the inter- course of spirits from Ireland would be considerable, and your Committee pass by that subject, leaving it for the consideration of parliament. In case it should be thought inconvenient to extend the restriction gene- rally to Ireland, it were to be wished that the distillation for export from thence, might be confined to sugar. Under such a regulation, however, considerable inconvenience might arise from the probability that a great deaj of corn spirit Would be exported under the pretence of exporting su- gar spirit. This too would be an inconvenience superadded to the risk aris- ing from the illicit trade, as above stated. On the whole, if it should be deemed expedient to confine this measure to Great Britain, your Committee would "ecommend a suspension of all intercourse in spirits between the two islands, as the best security that could be afforded to the British revenue and manufacture, such suspension to continue while the corn distillers should be restricted in Great Bri- tain. With a view to afford security to the revenue, as well as to protect the interest of the present corn distillers, it would be an indis- pensable measure, to whatever part of the Empire the suspension of the use of grain in the distilleries should be applied, to confine the power of distilling from sugar, to the houses now engaged in the malt distil- leries. The Maidstohe distillery was established under a particular act of Par- liament, and works, for a particular object, with different materials from the ordinary distillers. That house cannot make a spirit from sugar similar to that now made from corn. Were this distillery allowed to go on work- ing from their present materials, the rest of the trade being subject to the suspension, the injury that would accrue both to the revenue and the other Distillers need scarcely be pointed out. This peculiar mode of distillation ought, therefore, to be suspended during the operation of the proposed measure. But your Committee recommend that for that period, the pro- prietors ought to be allowed to enter and work from sugar as ordinary dis- tillers. They were not allowed so to work during the last prohibition, and suffered accordingly. It is stated that they now pay L. 30,000 per annum 105 to Government, which would be lost, whilst an encouragement would be given to the smuggling of Hollands geneva, of which their spirit is the rival. Against this loss, however, must be set the probable legal impor- tation of Hollands gin, which pays a much higher duty, and the addition- al quantity of sugar spirit that would be manufactured and consumed. Your Committee are not prepared to give any decided opinion as to the propriety of permitting the use of molasses in distillation. That article being the produce of refined sugar, and a drawback being allowed on the exportation of that sugar equal to the whole duty, no abatement of duty could be afforded on the molasses wash, such as has been recommended in the case of sugar wash. It besides appears, that the material of sugar is equally advantageous to the manufacturer, and produces a spirit equally pure, and as good for all purposes. Brandy, which is now made from molasses, might, with equal profit, be made from sugar. It appears from the account of Mr Jackson, that, calculating from the quantity of spirits that pay duty, the distilled produce of 304,206 quarters of grain is consumed in England, a considerable portion of which spirit is manufactured in, and imported from Scotland and Ireland. By the same evidence, the quantity of grain distilled in Scotland, for their home consumption, amounts to 147,588 quarters. By the Excise return from that country (which is exclusive of the export to England, and inclusive of the import of English barley for the distilleries, which is considerable every year) it is stated at 169,367 quarters. Mr Jackson's calculation for Ireland is formed on an average of two years, ending in 1806, and is far below the quantity since consumed. Another evidence states the quantity of corn used in Irish distillation at 333,333 quarters; the quantity used 'in Scotland at 155,555 quarters ; and in England, including the importation from Scotland and Ireland, at 291,166 quarters^ making 780,05-1 quarters for the use of the distilleries of the united empire. It is difficult to get any very precise information on this head. But taking 780,000 as the whole quantity ; taking Mr Jack- son's account for England at about 300,000 ; the Scotch Excise account 169,OOO; the total for Great Britain, 469,000, would leave the remainder, or 311,000 quarters for the Consumption of Ireland. It appears, however, by an official return from Ireland, that the quantity of grain used for dis- tillation there is computed at 672,075 barrels, at 224 pounds per barrel; three-fourths of that grain are oats. In order to form their opinion on the manner in which the proposed re- striction would affect the cultivation of barley in this kingdom, your Com- mittee entered into a long and minute examination of various persons con- nected with the agriculture of the country ; some possessing local and practical knowledge, others well known as being capable of affording the most extensive general information. The opinion of these persons is, that barley is essential to the cultivation of the barley districts of England ; that on such soils no other crop could be advantageously substituted in its room ; that the distilleries are looked to as a source of considerable influence on the price of the article ; and that the proposed restriction would be injurious to the growers of barley, by diminishing the market of it. The effect of this would be, in their opinion, a reduction in the price ; on the supposition of an average crop, and that the same quantity continued to be sown ; or, if to avoid the ef- fects of depreciation in the market, a less quantity were to be cultivated, 10(3 the farmer* would be Injured, by being driven out of thrir usual course of cropping, and by the forced application of the land to ether produce less uited to the nature of the soil. Mr Arthur Young, Secretary to the Board of Agriculture, has stated the quantity of barley grown in England at about 4,800,000 quarters, and cal- culates the quantities used in the distilleries at 300,000, or 1-1 6th of that aipount. He believes, that to withdraw from the market even that small proportion, would have a great effect in lowering the price of the article. He conceives, however, that the depreciation, or the alarm of it, cannot have any effect on the quantity sown this year, but on that sown in the next year ; which effect " would depend entirely on the idea of the puli- ** lie relative to having a different motive this time twelve months, for " repeating the stoppages, from any which operates at present." He thinks that in the event of an abundant harvest, the restriction would prove peculiarly hard upon the farmer, and arrest him in every exertion of his industry. Another witness states, that the farmers conceive the distilleries to be z. source of greater influence on the market than they really are. He thinks the proposed suspension would operate as a greater discouragement than it ought, and that the farmer (acting under exaggerated reports) would not jow his usual quantity of barley. It is to be observed, however, that the effect of clamour or alarm is, from its nature, but temporary, and would assuredly die away if any equi- valent were found for the privation that caused it ; such an equivalent would be found in the increased demand which would arise from any failure in our usual importation of grain. Moreover, as the quantity sown this year will not be affected by the proposed restriction, and as there u no ground to suppose that a similar measure will take place next year, the very re-opening of the distilleries to the produce of his industry, cannot but do away any evil occasioned by the effect of a temporary alarm on the mind of the farmer. It appears that, in the districts peculiarly adapted to barley, that graia pays better than oats, and prepares the ground better for the wheat that usually concludes the course. It is also generally preferred to oats for the purpose of sowing with grass, and is considered as infinitely less exhiust- ing to the soil. It is stated in a part of the evidence, that in the barley districts the number of sheep maintained under the turnip husbandry is greater when barley forms a part of this course, than it could be if oats, or any other grain were substituted for it, as the turnips can be kept on the ground longer if followed by i crop of barley, than if followed by any other spring crop. Spring wheat is not deemed admissible into the course of cropping, and the experiments tried with it are stated to have totally failed. It is admitted by some, that supposing the price of oats to be s raised as to be put in competition with that of barley, such a rise, coupled with the greater quantity of the former produced on, an acre of land, might induce some farmers to have recourse to that crop ; though it seems gene- rally to be considered, that such a course would be inexpedient to be taken n land superiorly calculated for the growth of barley- There is a peculiar circumstance attendant on Norfolk, which, in the estimation of persons connected with that county, would make the propos- ed restriction hear harder on them than on the farmers in any other barley district, namely, the annual export of barley to Scotland} which ie trua- 107 deraWc, and which would thus be cut off. It also appears, that the cul- ture of barley is essential to the turnip husbandry, as there practised with so much success. It is however generally admitted, that there are many parts of England to which these objections do not apply ; and where the cultivation of oats, supposing the price to rise, might be substituted for that of barley without any loss to the farmer. With regard to the southern part of Scotland, and the districts in the north into which the improved husbandry has been introduced, it appears that spring wheat has been much and very advantageously cultivated there of late years ; and that the quantity of barley grown has proportionably diminished. It appears, moreover, that oats are not there deemed so ex- hausting a crop as they are in the south. It is thought, however, that any impediment to the growth of barley might be detrimental to the landholder* by lowering the price of grain. In the Highlands, and those parts of the North Lowlands into which the improved system has not been introduced, or which, from the nature of their soil or climate, are under peculiar disadvantages, the case is different.; very little two-rowed barley is grown there* but the four-rowed barley called bere. * In some parts of those districts, no wheat is grown, and the proportion of oats does not amount nearly to that of bere. It is stated, that any measure of discouragement to the culture of bere would be detrimental, *s it would be difficult to find a substitute for it ; a considerable portion of -it is said to be consumed in distillation, though what the proportionate amount of that is to the quantity grown could not be learned. It ought here to be again remarked, that illicit distillation prevails considerably in the Highlands, and North of Scotland, and that doubtless a great part of the bere is consumed in that way. It appears to your Committee, that considerable quantities of wheat, flour, and oats, have been annually imported into Great Britain for some years past, while the export of those articles has been very trifling. The annual import and export of barley is very small. This furnishes a suffi- cient proof that we have ef late year's depended, in some degree, upon our foreign connections for a supply of food for the inhabitants of this country; and your Committee are not informed of any circumstances attendant OB the late crop that can diminish the importance of that resource. Your Committee, taking into their most serious consideration the state of our foreign relations, and the consequent probability that our usual sup- ply of grain from foreign countries may fail us, are naturally led to suggest measures of precaution, which may eventually ward off so great an evil. It appears, that about 470,000 quarters of grain are annually consumed t>y the British distillers, and 672,075 barrels, or about 420,000 quarters in Ireland ; and that the annual importation of corn into Great Britain from foreign parts, exclusive of that from Ireland, has for five years past amount- ed to about 770,000 quarters. Under the pressure of an actual scarcity, there would be no hesitation in having recourse to a stoppage of the distil- leries. Your Committee therefore submit, that the restriction of that trade to the use of sugar for a limited time in Great Britain only, (if the measure should be deemed inadmissible as to Ireland,) would be a wise precaution under our present prospects. It would leave for the food of the people 470,000 quarters of grain, a quantity greater than the importation of oat? in the last year. 108 Aware, however, that should any change of circumstances open our communication with the rest of the world, this measure might be rendered unnecessary in the view just stated aware that, although in the event of a deficient crop this year, the distress would be greatly increased, if accom- panied by a deficiency in our usual foreign supplies ; yet, that in the event of a superabundant harvest, the proposed restriction might be found very hurtful to the agricultural interests of the kingdom aware that the return of peace might relieve the West India Planters from their present distress, and that probably some measures may be devised, which may alleviate that distress, before the period to which it is proposed to limit this suspen- sioa shall be concluded, your Committee recommend in the strongest man- ner, that any bill to be brought in, in consequence of this Report, should contain a clause, granting a power to the King in Council, upon a sufficient notice, to do away the supension, and allow the distillers to carry on their trade in the accustomed manner. When it is considered how very small a portion of the barley grown in this kingdom is consumed by the distillers, it is scarcely possible to think that the proposed measure itself can bear very hard upon the grower. It is calculated that 1,200,000 acres are used for that purpose, of which about 80,000, or one-sixteenth, are sufficient to grow the whole quantity from which the spirits consumed in England are produced. The quantity of barley and bere grown in Scotland does not, in all probability, bear a much less proportion to that consumed in a similar manner. There are doubtless many parts of the country in which the substitution of a different crop could be attended with no disadvantage, and might eventually be attended with profit. In the most cultivated parts of Scotland, in which a practical knowledge of agriculture exists in as great perfection as anywhere, such a substitution has been found actually to answer. It is to be remarked, that although it may be deemed disadvantageous to substitute any other graia in the room of barley, yet that the prices of grain mutually operate upon each other, and that a rise or fall in the price of any one kind must have a corresponding influence on the prices of the rest ; and that any alarm which might be created by this measure can only operate prospectively as to next year's crop, from an expectation that the same suspension will again be re- sorted to. Your Committee trust, that on a full consideration of the subject, all ap- prehension will be done away by the power proposed to be vested in the King in Council. They are sensible that they shall not have fulfilled the duties imposed on them by the House, unless they proceed to consider every possible mode of relief for the proprietors of West India estates ; and they trust that they shall be enabled to suggest measures so permanently benefi- cial to that body, as to render it unnecessary for them again to apply for the interference of Parliament, even should the present anomalous state of our foreign relations be protracted. Your Committee are persuaded, that the permanent adoption of this measure would be attended with great evils to the agriculture of the coun- tr ^ ; they feel it incumbent on them to state, that nothing in the evidence before them could induce a recommendation to that effect ; they conceive that its frequent repetition would be still more hurtful ; and nothing but the strong case so clearly made out by the West India interest, coupled with the loss of our trade with the countries from whence we derived a great proportion of our foreign supply, could prevail upon them to advise 109 .even this slight temporary interference (guarded as it is by the proposed li- mitations) with an established system of agriculture. The peculiar situation of Ireland, the great difficulty of collecting the revenue on spirits there, the great prevalence of illegal distillation, and the fear that this measure, together with the popular preference for corn whisky, might increase that trade to an unlimited amount, and interfere with any regulations that might be adopted for its suppression, prevent your Com- mittee from decidedly recommending the extension of this suspension to that country ; but they are by no means prepared to assert, that such re- gulations may not possibly be devised as to render its adoption there as practicable as in Great Britain. They are unwilling to express an opinion on this part of the question. Your Committee press upon the consideration of the House the severe loss that must be felt by the empire at large, and no part of it more than by the landed interest, if some efficient remedy should not save the West India Colonies from the disasters that await them. When it is recollected, that this country derives from them a net revenue on sugar of L. 3,000,000 annually, besides the duties on the other articles of their produce ; that they take off manufactures and produce of this country to the amount of L. 6,000,000 Sterling ; to which considerations must be added the shipping they employ, and the sailors bred in the trade ; and that were the restric- tion taken off that now impedes the export of corn to the Colonies, they would import from hence, to the great advantage of the British landholder and merchant, a considerable proportion of what they now do from foreign parts ; it- is hoped that the House will think your Committee warranted, under the peculiar circumstances of the times, in recommending the suspen- sion of the use of grain in the distilleries of Great Britain, and their restric- tion to the use of sugar for one year, from the first of July 1808, to the first of July 1809, accompanied by the aforesaid discretionary power to he rested in his Majesty. George Ramsay & Co. Printers. No. 3. STATEMENT of the Bounties as granted on Wheat, Barley, and Oats, by the 31st of George III., Cap. 30.* Trices under which the Bounties were given. s. 44 - . Amount of Bounties. - On Wheat when under per Quarter S. d. 5 On Barley when under per Quarter . . . 22 2 6 On Oats when under per Quarter .... 14 2 * The regulations, with regard to the Bounties on Exportation wer the same i n this Act as those in the Act of 1773, and areon.y here re. med, as the depreciation of money had advanced, and mint of course liave diminished the real value of these Bounties. 84 No. 4. TABLE expressing the value of the Prices under which a Bounty as granted on Wheat, Barjey, and Oats, by the 31st of George' the Hid., Cap. 30 ; and also the amount of the Bounties therein granted, in the money of the year 1688, allowing for the depreciation which took place in the value of money, betwixt the year 1688 and the year 1790. Value, in the money of 1688, of the price under which the liounty was given. Value of the Bounty in the money of the year 1638. jg. 5. d. On Wheat when under per Quarter 19 10** On Barley when under per Quarter 9 lit* On Oats when under per Quarter 6 3^* . s. d. 2 3 * 1 H* I0i* * In the Table of Proportions, the value of money in the year 1790, is stated to be to the value of money in the year 1688, as 496 to 22+, and these several sums are in the same proportion to the respective prices under which Bounties were given, and to the different Bounties, as set- tled by the 31st of George the Hid., Cap. 30. 85 No. 5. 36 Geo. III. Cap. 21. A.D. 1795. The following Bounties are granted : 20*. per Quarter on Wheat weighing 440lb. per Quarter. 16*. per Quarter 4.9415 per Quarter! 65. per Cwt. of Wheat flour imported into Great Britain, from any part of Europe, South of Cape Finisterre, or from any part of the Mediterranean, or Africa, before the 3th of September 1796, until the quantity of such Wheat and Flour taken together, shall amount to 400,000 Quarters, estimating 2^ Cwt of Flour, to one quarter of Wheat. 15s. per Quarter on Wheat weighing 440lb. per Quarter. 12s. per Quarter . AO/HI A24lb. per Quarter. 4s. Qd. per Cwt. on Wheat flour imported from any part of Europe, (not being part of His Majesty's dominions) before the 30th of September 1796, till the* quantity shall amount to 500,000 quarters. 20,. per Quarter on Wheat weighing 440lb. per Quarter. 16,. per Quarter 424lb per Quarter> 6,. per -Cwt. on Wheat flour imported from the Colonies in Amenca, or the United States, before the 30th of September 1796, till the quantity shall amount to 500,000 Quarters. 10s. per Quarter on Wheat weighing 440lb. per Quarter 8f. per Quarter 424 . lb per Quarter> 3*. per Cwt. on Wheat flour imported before the 30th of September 1796, exceeding those quantities. The Ports of Importation limited, and the Corn to be inspected. 39/A and 40th of Geo. III. Cap. 29. A.D. 1800. The following Bounties shall be paid - On every quarter of Wheat imported from any part of Europe, south of Cape Finisterre, or from any pL of In the table of proportions, the value of money in the year 1800 is stated to be, to the value of money in the year 1688, as 562 to 224; and these several sums are in the same proportion 19 the respective prices under which Bounties were given, and to the different Bounties as settled by the 41th of Geo. III. Cap. 109. No. 8. Comparisons of the prices of Wheat at different periods, for the purpose of shewing the diminution in the value of Wheat, occasioned by the Bounty granted in 1688 ; ex- tracted from a Pamphlet, printed betwixt the years 1745 and 1750; to display the damages farmers had sustained from the Bounty on Corn. &. S. (in The price of Wheat per Quarter upon a medium taken en 43 years from 1646, being the first year the account commences, to 1688, the year before the Bounty was allowed, appears to be at the rate of From the medium taken on 43 years from 1689, being the first year the Bounty took place, to the yenr 1731, the price of Wheat per Quarter appears to bfe... I 18 -i_^ : An annual loss to the farmer since the Bounty tookplace 12 8 From 1669 to 1688, being the last 20 years, before the Bounty was allowed, the price of Wheat per Quarter was, at a medium...... 2 6 From 1726 to 1745, being the last 20 years, on this account the price of Wheat, at a medium per Quarter was 1 l7 $ An annual loss to the farmer in price, since the Bounty took place 8 4 eg The medium on Wheat from 1649 to 1668, being 20 years, was per Quarter ................. ' g 12 8 k The medium from 1706 to 1725, being 20 years] was per Quarter ................................. 249 An annual loss to the Farmer in price, since the Bounty took place ..................... Jt< t< Q - j.. The medium on Wheat for 14 years from 1675 to 1688 was per Quarter ........................... 254* The medium on Wheat for 14 years from 1732 to 1745 was per Quarter .............................. x ]5 gl An annual loss to the Farmer in price, since the Bounty took place .................................... 099} '6 " ER%. ^clOS-ANCElfj:* ^OF-CAUFORto : _H I 5 g ~>\ I \ y 0AHViiaiH^ y