Part 9
Certain other important industries may be localized. Thus, the manufacture of china and pottery, although widespread, is primarily identified with Staffordshire, where an area comprising Stoke and a number of contiguous towns actually bears the name of the Potteries (q.v.). Derby has a similar fame, while the manufacture of glass, important in Leeds and elsewhere in the West Riding of Yorkshire, and in the London district, centres peculiarly upon a single town in South Lancashire--St Helens. Finally, the bootmakers of Northamptonshire (at Wellingborough, Rushden, &c.), and the straw-plaiters of Bedfordshire (at Luton and Dunstable), deserve mention among localized industrial communities.
_Occupations of the People._--The occupations of the people may be so considered as to afford a conception of the relative extent of the industries already noticed, and their importance in relation to other occupations. The figures to be given are those of the census of 1901, and embrace males and females of 10 years of age and upwards. The textile manufactures occupied a total of 994,668 persons, of which the cotton industry occupied 529,131. A high proportion of female labour is characteristic of each branch of this industry, the number of females employed being about half as many again as that of males (the proportion was 1.47 to 1 in 1901). The metal industries of every sort occupied 1,116,202; out of which those employed in engineering (including the building of all sorts of vehicles) numbered 741,346. Of the other broad classes of industry already indicated, the manufacture of boots and shoes occupied 229,257, and the pottery and glass manufactures 90,193. For the rest, the numbers of persons occupied in agriculture has been quoted as 1,192,167; and of those occupied in mining as 805,185. Among occupations not already detailed, those of the male population include transport of every sort (1,094,301), building and other works of construction (1,042,864), manufacture of articles of human consumption, lodging, &c. (774,291), commerce, banking, &c. (530,685), domestic service, &c. (304,195), professional occupations (311,618). The service of government in every branch occupied 171,687. Female workers were occupied to the number of 1,664,381 in domestic service generally. Tailoring and the textile clothing industries and trade generally occupied 602,881; teaching 172,873; nursing and other work in institutions 104,036; and the civil service, clerkships and similar occupations 82,635.
IX. TERRITORIAL DIVISIONS, &C.
For various administrative and other purposes England and Wales have been divided, at different times from the Saxon period onwards, into a series of divisions, whose boundaries have been adjusted as each purpose demanded, without much attempt to establish uniformity. Therefore, although the methods of local government are detailed below (Section X.), and other administrative arrangements are described under the various headings dealing with each subject, it is desirable to give here, for ease of reference and distinction, a schedule of the various areas into which England and Wales are divided. The areas here given, excepting the Poor Law Union, are those utilized in the Census Returns (see the General Report, 1901).
_England and Wales; Areas._
County (ancient or geographical).
Parliamentary / Division. Areas \ Borough.
/ Administrative County. | County Borough. \ (City, Administrative | Municipal Borough. > town) Areas < Urban District (other than borough). / | Rural District. | Civil Parish. \ Poor Law Union.
/ County Court Circuit. Judicial Areas < County Court District. \ Petty Sessional Division
Ecclesiastical / Province. Areas < Diocese. \ Parish
/ Division. Registration < County. Areas | District. \ Subdistrict.
The ancient counties were superseded for most practical purposes by the administrative counties created by the Local Government Act of 1888. The ancient division, however, besides being maintained in general speech and usage, forms the basis on which the system of distribution of parliamentary representation now in force was constructed. The Redistribution of Seats Act 1885 made a new division of the country into county and borough constituencies. All the English counties, with the exception of Rutland, are divided into two or more constituencies, each returning one member, the number of English county parliamentary areas being 234. In Wales eight smaller or less populous counties form each one parliamentary constituency, while the four larger are divided, the number of Welsh county parliamentary areas being 19. The number of county areas for parliamentary purposes in England and Wales is thus 253, and the total number of their representatives is the same. Outside the county constituencies are the parliamentary boroughs. Of these there are 135 in England, one of them, Monmouth district, being made up of three contributory boroughs, while many are divided into several constituencies, the number of borough parliamentary areas in England being 205, of which 61 are in the metropolis. Of the 205 borough constituencies, 184 return each one member, and 21 return each two members, so that the total number of English borough members is 226. Besides the county and borough members there are in England five university members, namely, two for Oxford, two for Cambridge and one for London. In Wales there are 10 borough parliamentary areas, all of which, except Merthyr Tydfil and Swansea town division, consist of groups of several contributory boroughs. Each Welsh borough constituency returns one member, except Merthyr Tydfil, which returns two, so that there are eleven Welsh borough members.
The administrative counties, created in 1888, number 62, each having a county council. They sometimes coincide in area with the ancient counties of the same name, but generally differ, in a greater or less degree, for the following reasons--(1) in some cases an ancient county comprises (approximately) two or more administrative counties, in the formation of which names of some ancient divisions were preserved, thus:--
_Ancient County._ _Administrative County._
Cambridgeshire / Cambridge. \ Isle of Ely.
Hampshire / Southampton. \ Isle of Wight.
/ Parts of Holland. Lincolnshire < Parts of Kesteven. \ Parts of Lindsey.
Northamptonshire / Northampton. \ Soke of Peterborough.
Suffolk / East Suffolk. \ West Suffolk.
Sussex / East Sussex. \ West Sussex.
/ East Riding. Yorkshire < North Riding. \ West Riding.
The Scilly Islands, which form part of the ancient county of Cornwall, without being ranked as an administrative county, are provided with a county council and have separate administration. (2) The administrative county of London has an area taken entirely from the counties of Middlesex, Kent and Surrey. (3) All boroughs which on June 1, 1888, had a population of not less than 50,000, boroughs which were already counties having a population of not less than 20,000, and a few others, were formed into separate administrative areas, with the name of county boroughs. Of these there were originally 61, but their number subsequently increased. (4) Provision was made by the act of 1888 for including entirely within one administrative county each of such urban districts as were situated in more than one ancient county.
The various urban and rural districts are described below (Section X.). The _Civil Parish_ is defined (Poor Law Amendment Act 1866) as "a place for which a separate poor-rate is or can be made," but the parish council has local administrative functions beyond the administration of the poor law. The civil parish has become more or less divorced in relationship from the _Ecclesiastical Parish_ (a division which probably served in early times for administrative purposes also), owing to successive independent alterations in the boundaries of both (see PARISH). _Poor-law unions_ are groups of parishes for the local administration of the Poor Laws. Within the unions the local poor-law authorities are the _Board of Guardians_. In rural districts the functions of these boards are, under the Local Government Act of 1894, performed by the district councils, and in other places their constitution is similar to that of the urban and district councils (see POOR LAW).
_Registration districts_ are generally, but not invariably, coextensive with unions of the same name. These districts are divided into sub-districts, within which the births and deaths are registered by registrars appointed for that purpose. _Registration counties_ are groups of registration districts, and their boundaries differ more or less from those both of the ancient and the administrative counties. In England and Wales there are eleven registration divisions, consisting of groups of registration counties (see REGISTRATION). (O. J. R. H.)
X. LOCAL GOVERNMENT
The Reform Act of 1832 was the real starting-point for the overhauling of English local government. For centuries before, from the reign of Edward III., under a number of statutes and commissions, the administrative work in the counties had been in the hands of the country gentlemen and the clergy, acting as justices of the peace, and sitting in petty sessions and quarter sessions. Each civil or "poor law" parish was governed by the vestry and the overseers of the poor, dating from the Poor Law of 1601; the vestry, which dealt with general affairs, being presided over by the rector, and having the churchwardens as its chief officials. In 1782 Gilbert's Act introduced the grouping of parishes for poor law purposes, and boards of guardians appointed by the justices of the peace. The municipal boroughs (246 in England and Wales in 1832) were governed by mayor, aldermen, councillors and a close body of burgesses or freemen, a narrow oligarchy. Reform began with the Poor Law Amendment Act of 1834, grouping the parishes into Unions, making the boards of guardians mainly elective, and creating a central poor law board in London. The Municipal Corporations Act followed in 1835, giving all ratepayers the local franchise. And as a result of the failure of the Public Health Board established in 1848, the royal commission of 1869-1871 led to the establishment in 1871 of the Local Government Board as a central supervising body. Meanwhile, the school boards resulting from the Education Act of 1870 brought local government also into the educational system; and the Public Health Act of 1875 put further duties on the local authorities. By 1888 a new state of chaos had grown up as the result of the multiplication of bodies, and the new Redistribution Act of 1885 paved the way for a further reorganization of local matters by the Local Government Act of 1888, followed by that of 1894. In London, which required separate treatment, a similar process had been going on. The Metropolis Management Act of 1855 established (outside the city) two classes of parishes--the first class with vestries of their own, the second class grouped under district boards elected by the component vestries; and the Metropolitan Board of Works (abolished in 1888), elected by the vestries and the district boards, was made the central authority.
In 1867 the Metropolitan Asylums Board took over its work from the metropolitan boards of guardians. See further CHARITY AND CHARITIES, PUBLIC HEALTH, EDUCATION, JUSTICE OF THE PEACE, VESTRY, &c.
The system of local government now existing in England (see also the article LOCAL GOVERNMENT) may be said to have been founded in 1888, when the Local Government Act of that year was passed. Since then the entire system of the government of districts and parishes has been reorganized with due regard to the preceding legislation. The largest area of local government is the county; next to that the sanitary district, urban or rural, including under this head municipal boroughs, all of which are urban districts. The parish is, speaking generally, the smallest area, though, as will hereafter be seen, part of a parish may be a separate area for certain purposes; and there may be united districts or parishes for certain purposes. It will be convenient to follow this order in the present article. But before doing so, it should be pointed out that all local bodies in England are to some extent subject to the control of central authorities, such as the privy council, the home office, the Board of Agriculture, the Board of Trade, the Board of Education or the Local Government Board.
The county and the county council.
_The Administrative County._--The administrative county includes all places within its area, with two important exceptions. The first of these consists of the county borough. The second is the quarter sessions borough, which forms part of the county for certain specified purposes only. But the county includes all other places, such as liberties and franchises, which before 1888 were exempt from contribution to county rate. For each administrative county a county council is elected. For purposes of election the entire county is divided into divisions corresponding to the wards of a municipal borough, and one councillor is elected for each electoral division.
County council elections.
The electors are the county electors, i.e. in a borough the persons enrolled as burgesses, and in the rest of the county the persons who are registered as county electors, i.e. those persons who possess in a county the same qualification as burgesses must have in a borough, and are registered.
The qualification of a burgess or county elector is substantially the occupation of rated property within the borough or county, residence during a qualifying period of twelve months within the borough or county, and payment of rates for the qualifying property. A person so qualified is entitled to be enrolled as a burgess, or registered as a county elector (as the case may be), unless he is alien, has during the qualifying period received union or parochial relief or other alms, or is disentitled under some act of parliament such as the Corrupt Practices Act, the Felony Act, &c. The lists of burgesses and county electors are prepared annually by the overseers of each parish in the borough or county, and are revised by the revising barrister at courts holden by him for the purpose in September or October of each year. When revised they are sent to the town clerk of the borough, or to the clerk of the peace of the county, as the case may be, by whom they are printed. The lists are conclusive of the right to vote at an election, although on election petition involving a scrutiny the vote of a person disqualified by law may be struck off, notwithstanding the inclusion of his name in a list of voters.
The qualification of a county councillor is similar to that required of a councillor in a municipal borough, with some modifications. A person may be qualified in any one of the following ways: viz. by being (1) enrolled as a county elector, and possessed of a property qualification consisting of the possession of real or personal property to the amount of £1000 in a county having four or more divisions, or of £500 in any other county, _or_ the being rated to the poor rate on an annual value of £30 in a county having four or more divisions, or of £15 in any other county; (2) enrolled in the non-resident list, and possessed of the same property qualification (the non-resident list contains the names of persons who are qualified for enrolment in all respects save residence in the county or within 7 m. thereof, and are actually resident beyond the 7 m. and within 15 m.); (3) entitled to elect to the office of county councillor (for this qualification no property qualification is required, but the office of a councillor elected on this qualification only becomes vacant if for six months he ceases to reside within the county); (4) a peer owning property in the county; (5) registered as a parliamentary voter in respect of the ownership of property in the county. Clerks in holy orders and ministers of religion are not disqualified as they are for being borough councillors, but in other respects the persons disqualified to be elected for a county are the same as those disqualified to be elected for a borough. Such disqualifications include the holding of any office or place of profit under the council other than the office of chairman, and the being concerned or interested in any contract or employment with, by or on behalf of the council. Women, other than married women, are eligible.
[Illustration: Map of ENGLAND & WALES--Section V.]
County councillors are elected for a term of three years, and at the end of that time they retire together. The ordinary day of election is the 8th March, or some day between the 1st and 8th March fixed by the council. Candidates are nominated in writing by a nomination paper signed by a proposer and seconder, and subscribed by eight other assenting county electors of the division; and in the event of there being more valid nominations than vacancies a poll has to be taken in the manner prescribed by the Ballot Act 1872. Corrupt and illegal practices at the election are forbidden by a statute passed in the year 1894, which imposes heavy penalties and disqualifications for the offences which it creates. These offences include not only treating, undue influence, bribery and personation, but certain others, of which the following are the chief. Payment on account of the conveyance of electors to or from the poll; payment for any committee room in excess of a prescribed number; the incurring of expenses in and about the election beyond a certain maximum; employing, for the conveyance of electors to or from the poll, hackney carriages or carriages kept for hire; payments for bands, flags, cockades, &c.; employing for payment persons at the election beyond the prescribed number; printing and publishing bills, placards or posters which do not disclose the name and address of the printer or publisher; using as committee rooms or for meetings any licensed premises, or any premises where food or drink is ordinarily sold for consumption on the premises, or any club premises where intoxicating liquor is supplied to members. In the event of an illegal practice, payment, employment or hiring, committed or done inadvertently, relief may be given by the High Court, or by an election court, if the validity of the election is questioned on petition; but unless such relief is given (and it will be observed that it cannot be given for a _corrupt_ as distinguished from an illegal practice), an infringement of the act may void the election altogether. The validity of the election may be questioned by election petition. Indeed, this is the only method when it is sought to set aside the election on any of the usual grounds, such as corrupt or illegal practices, or the disqualification of the candidate at the date of election. Election petitions against county councillors and members of other local bodies (borough councillors, urban and rural district councillors, members of school boards and boards of guardians) are classed together as municipal election petitions, and are heard in the same way, by a commissioner who must be a barrister of not less than fifteen years' standing. The petition is tried in open court at some place within the county, the expenses of the court being provided in the first instance by the Treasury, and repaid out of the county rates, except in so far as the court may order them to be paid by either of the parties. If a candidate is unseated a casual vacancy is created which has to be filled by a new election. A county councillor is required to accept office by making and subscribing a declaration in the prescribed form that he will duly and faithfully perform the duties of the office, and that he possesses the necessary qualification. The declaration may be made at any time within three months after notice of election. If the councillor does not make it within that time, he is liable to a fine the amount of which, if not determined by bye-law of the council, is £25 in the case of an alderman or councillor, and £50 in the case of the chairman. Exemption may, however, be claimed on the ground of age, physical or mental incapacity, previous service, or payment of the fine within five years, or on the ground that the claimant was nominated without his consent. If during his term of office a member of the council becomes bankrupt, or compounds with his creditors, or is (except in case of illness) continuously absent from the county, being chairman for more than two months, or being alderman or councillor for more than six months, his office becomes vacant by declaration of the council. In the case of disqualification by absence, the same fines are payable as upon non-acceptance of office, and the same liability arises on resignation. Acting without making the declaration, or without being qualified at the time of making the declaration, or after ceasing to be qualified, or after becoming disqualified, involves liability to a fine not exceeding £50, recoverable by action.
Chairman, &c.
The councillors who have been elected come into office on the 8th March in the year of election. The first quarterly meeting of the newly-elected council is held on the 16th or on such other day within ten days after the 8th as the county council may fix. The first business at that meeting is the election of the chairman, whose office corresponds to that of the mayor in a borough. He is elected for the ensuing year, and holds office until his successor has accepted office. The chairman must be a fit person, elected by the council from their own body or from persons qualified to be councillors. He may receive such remuneration as the council think reasonable. He is by virtue of his office a justice of the peace for the county. Having elected the chairman, the meeting proceeds to the election of aldermen, whose number is one-third of the number of councillors, except in London, where the number is one-sixth. An alderman must be a councillor or a person qualified to be a councillor. If a councillor is elected he vacates his office of councillor, and thus creates a casual vacancy in the council. In every third year one-half of the whole number of aldermen go out of office, and their places are filled by election, which is conducted by means of voting papers. It will be observed, therefore, that while a county councillor holds office for three years, a county alderman holds office for six. The council may also appoint a vice-chairman who holds office during the term of office of the chairman; in London the council have power to appoint a paid deputy chairman.
Officers.
It may be convenient at this point to refer to the officers of the county council. Of these, the chief are the clerk, the treasurer, and the surveyor. Before 1888 the clerk of the peace was appointed in a county by the _custos rotulorum_. He held office for life during good conduct, and had power to act by a sufficient deputy. Under the act of 1888 existing clerks of the peace became clerks of the councils of their counties, holding office by the same tenure as formerly, except in the county of London, where the offices were separated. Thereafter a new appointment to the offices of clerk of the peace and clerk of the county council was to be made by the standing joint-committee, at whose pleasure he is to hold office. The same committee appoint the deputy-clerk, and fix the salaries of both officers. The clerk of the peace was formerly paid by fees which were fixed by quarter sessions, but he is now generally, if not in every case, paid by salary, the fees received by him being paid into the county fund. The county council may also employ such other officers and servants as they may think necessary.
Business.