Early and mid-Victorian Britain
State and society
The implementation of the liberal, regulative state emerging after the Napoleonic Wars involved a number of new departures. The first of these concerned the new machinery of government, which, instead of relying on patronage and custom, involved an institutionalized bureaucracy. This was evident in the development of the factory inspectorate, established by the 1833 Factory Act, though the characteristic way in which the state institutionalized itself was by means of local bodies administering such areas as the fast-developing realm of “public health” and the Poor Law. In fact, towns and cities themselves became very important new locations for the expression of the power of the decentralized state. After the 1835 Municipal Corporations Act, local government, if developing unevenly, was a major part of the new machinery of government. There was a great flowering of civic administration and civic pride during the early and mid-Victorian period in Britain. This was particularly reflected in the architecture and infrastructure of British cities—one of the most notable legacies of the period. Magnificent town halls, libraries, concert halls, museums, and, not least, the great civil engineering projects of the time all inculcated the virtues of civic identity and therefore of instituting civic power.
Beyond the machinery of government, the Poor Law of 1834 represented the clearest example of the new ideological departures that characterized the liberal state. Its encouragement of self-supporting actors within the greater scheme of a natural order expressed the mixture of utilitarianism and evangelicalism that was characteristic of the new order. New areas of state action were also evident in education as well as in factory reform, and with these departures a new kind of bureaucratic expertise arose. Expert bureaucrats from outside of government, including the physician and medical reformer James Kay-Shuttleworth in education and the lawyer Edwin Chadwick in Poor Law and health reform, were brought in to advise the government. Figures such as these indicate the permeability of the Victorian state and its closeness to civil society, for they established their reputations and gained their expertise outside the attenuated structure of the state bureaucracy. From the 1850s onward, however, centralized bureaucracy accrued to itself increasing powers. The reforms of 1853–54 engineered by Charles Edward Trevelyan and Sir Stafford Northcote instituted, by means of public and competitive examination, a system based not on patronage but on merit. In fact, public examination was designed to create meritocracy of a very particular sort, one based on the classically educated Englishman of Oxford and Cambridge universities. For the first time in British history and the history of Oxbridge (the two universities viewed as an institution), though in both cases decidedly not the last time, the ideology of merit was employed to reproduce a particular kind of ruling elite. This elite was built upon the idea of public duty, inculcated by an Oxbridge education, but above all it was based upon the notion that the state and its bureaucracy could be neutral. This neutrality was to stem from the open, competitive examination itself but also from the idea of that the neutrality of the civil service could be guaranteed by the ethics of the Oxbridge-educated English gentleman.
Nonetheless, gentleman of an even higher social station than that of these new civil servants—that is, the aristocracy and gentry—were still very much a part of government, and, despite all these reforms, the role of patronage remained important. The mid-Victorian implementation of the liberal state by the government of William Gladstone therefore still had considerable work to do. Gladstone, Whig and later Liberal prime minister, was the major single influence on the 19th-century liberal state and arguably the most gifted British politician of his time. The liberal state’s attempt to rule through freedom and through the natural order was implemented not merely in social but also in economic terms: Gladstonian finance, particularly the taxation system, was aimed at encouraging the belief that all groups in society had a responsibility for sanctioning and financing government activity and that therefore they should have an incentive to keep it under control. Economic and social government came together dramatically in the case of the Irish Potato Famine in the late 1840s. The outcome of the famine, a disaster for Ireland involving the death or emigration of millions of people, has to be seen in the context of the long-term agenda of the liberal state, which included Ireland as a sort of laboratory for experimentation in this new kind of government (India was a similar kind of laboratory). The experimental methods in the Irish case involved an agenda including population control, the Poor Law relief system, and the consolidation of property through a variety of means, including emigration, the elimination of smallholdings, and the sale of large but bankrupt estates. The government measured the success of its relief policies in terms of this agenda rather than its effectiveness in addressing the immediate question of need. The goal of this agenda was the creation of a society of “rational” small-farm production on the model of the natural order of the free market, rather than the “irrational” production of a mass of small peasant proprietors.
However, subsequent implementation of the liberal state—for instance, that of Gladstone—should not be seen simply as guided by the amoral market. In the third quarter of the century, Gladstone’s version of the liberal state represented the apotheosis of the approach to government favoured by the reformer Sir Robert Peel (the Conservative prime minister from 1834 to 1835 and again from 1841 to 1846). This version of the liberal state took the form of an individualism ostensibly based not upon greed and self-interest but upon probity, self-control, and a sense of duty and Christian morality. In this regard, as indeed much more widely in British history, this version of individualism accorded with many of the beliefs of society in general—not least those held by the working classes—so that the attempt to rule through the moral characteristics of society proved in many respects to be an extraordinarily successful venture in government. Rather like the thinking behind the reformed civil service, the moral rule at the heart of Gladstonian economic reform was designed to establish the neutrality, and therefore the high moral ground, of government: if government were independent of a self-regulating economy, it would also be free from the influence of powerful economic interests. This view of liberal government in the period of Tory power instituted after 1874 changed little and went unchallenged until the late 19th century, even if Tory administrations had a somewhat more positive idea of the state.
The political situation
Whig reforms
Whig interest in parliamentary reform went back to the 18th century, and Grey himself provided a link between two separate periods of public agitation. Yet, in the country as a whole, there were at least three approaches to the reform question. Middle-class reformers were anxious to secure representation for commercial and industrial interests and for towns and cities such as Birmingham and Manchester that had no direct voice in Parliament. “Popular radicals,” of both middle-class and working-class origin, were concerned with asserting rights as well as with relieving distress. “Philosophic radicals,” the followers of the utilitarianism of philosopher Jeremy Bentham, were strong ideological protagonists of parliamentary reform but were deeply hostile to both the arguments and the tactics of the popular radicals, except when confident that they were in a position to deploy or control them. Agitation in the country kept the reform question on the boil between 1830 and 1832, while an aloof Grey faced unprecedented constitutional difficulties with both the king and Parliament.
The Reform Act of 1832 (see Reform Bill) was in no sense a democratic measure. It defined more clearly than ever before the distinction between those who were and those who were not sanctioned to wield power, and it did so entirely in terms of property ownership, entrenching the power of landed wealth as well as acknowledging new sources of power in the middle classes and the consequent claims upon the rights and virtues of their new political identity. The bill entailed a substantial redistribution of parliamentary constituencies and a change in the franchise. The total electorate was increased by 57 percent to 217,000, but artisans, labourers, and large sections of the lower middle classes still remained disenfranchised. No radical demands were met, even though the manner of passing the bill had demonstrated the force of organized opinion in the country, particularly in the large cities, which were also now given representation.
Returned with a huge majority in the general election of December 1832, the Whigs carried out a number of other important reforms. A statute in 1833 ended slavery in the British colonies; in that same year the East India Company lost its monopoly of the China trade and became a purely governing body with no commercial functions.
The new Poor Law of 1834 turned out to be an unpopular measure in many parts of the country, however, and led to violent outbreaks of disorder. Its basic principle—that “outdoor poor relief” (i.e., outside the workhouse) should cease and that conditions in workhouses should be “less eligible” (i.e., less inviting) than the worst conditions in the labour market outside—was as bitterly attacked by writers such as Thomas Carlyle as it was by the workingmen themselves.
All of these contentious issues multiplied after 1836, when a financial crisis ushered in a period of economic depression accompanied by a series of bad harvests. Social conflict, never far from the surface, became more open and dramatic. Grey’s successor, William Lamb, Viscount Melbourne, proved incapable of finding effective answers to any of the pressing financial, economic, and social questions of the day, but he did prove adept in his dealings with Queen Victoria, who ascended the throne in 1837.
Chartism and the Anti-Corn Law League
As the economic skies darkened after 1836 and prophets such as Carlyle anticipated cataclysmic upheaval, the two most disgruntled groups in society were the industrial workers and their employers. Each group developed new forms of organization, and each turned from local to national extra-parliamentary action. The two most important organizations were the Chartists and the Anti-Corn Law League. Chartism drew on a multiplicity of workers’ grievances, extending working-class consciousness as it grew. The Anti-Corn Law League, founded as a national organization in Manchester in 1839, was the spearhead of middle-class energies, and it enjoyed the advantage not only of lavish funds but also of a single-point program—the repeal of the restrictive Corn Laws.
Taking its name from the People’s Charter published in London in May 1838, Chartism aimed at parliamentary reform. The charter contained six points, all of them political and all with a radical pedigree: (1) annual parliaments, (2) universal male suffrage, (3) the ballot, (4) no property qualifications for members of Parliament, (5) payment of members of Parliament, and (6) equal electoral districts. These were old demands that would have been supported by 18th-century radicals. Localized Poor Law and factory reform agitations centring on such grievances were subsumed in Chartism because of its commitment to national political action. However, for a variety of reasons—not least that the politicians had been able again to convey the sense that the state was benign and neutral and not, as Chartists perceived it, repressive and sectional—the mass movement of Chartism ultimately failed.
By contrast, the Anti-Corn Law League, led by Richard Cobden and John Bright, met with success. It employed every device of propaganda, including the use of new media of communication, such as the Penny Post, which was introduced in 1840. The formula of the league was a simple one designed to secure working-class as well as middle-class support. Repeal of the Corn Laws, it was argued, would settle the two great issues that faced Britain in the “hungry forties”—securing the prosperity of industry and guaranteeing the livelihood of the poor. So enormous was religion’s influence on the league that when it identified the landlord as the only barrier to salvation, it meant religious as well economic salvation. Most Chartists were unconvinced by this logic, but, in a landed Parliament, Peel carried the measure against his own party.
Peel and the Peelite heritage
Peel was the presiding genius of a powerful administration, strictly supervising the business of each separate branch of government; nevertheless, a substantial section of the squirearchy rebelled, roused by the brilliant speeches of a young politician, Benjamin Disraeli, who in his writings had already approached the “condition of England question” in a totally different style than that of Peel. The results of repeal were important politically as well as economically. As a result of the split, party boundaries remained blurred until 1859, with the “Peelites” retaining a sense of identity even after Peel’s premature death following a riding accident in 1850. Some of them, particularly Gladstone, eventually became leaders of the late 19th-century Liberal Party, which emerged from the mid-century confusion. The protectionists, most of whom abandoned protection after 1852, formed the nucleus (around Edward Stanley, earl of Derby, and Disraeli) of the later Conservative Party, but they were unable to secure a majority in any election until 1874. The minority governments they formed in 1852, 1858, and 1866 lacked any secure sense of authority. The Whigs, themselves divided into factions, returned to office in 1847 and held it for most of the mid-century years, but they were often dependent on support from radical and Irish colleagues. There was no time between 1846 and 1866, however, when extra-parliamentary agitation assumed the dimensions it had between 1838 and 1846.
Matters of religion helped divide the limited mid-Victorian electorate, with the Nonconformists (Dissenters) encouraging, from their local bases, the development of liberalism and with the Anglican churchmen often—but by no means universally—supporting the Conservative Party. Nonelectors’ associations (representing the disenfranchised) tried with varying degrees of success to keep radical issues alive, but party divisions remained based on customary allegiance as much as on careful scrutiny of issues, and there was still considerable scope for bribery at election times. The civil service might be pure, but the electors often were not. The Corrupt Practices Act of 1854 provided a more exact definition of bribery than there had been before, but it was not until a further act of 1883 that election expenses were rigorously controlled. It was then that, quite emphatically, parliamentary representation became not a matter of communities but of individuals, a process taken a considerable step further in 1872 with institution of electoral secrecy by the Ballot Act.
The prestige of the individual members of Parliament was high, and the fragmentation of parties after 1846 allowed them considerable independence. Groups of members supporting particular economic interests, especially the railways, could often determine parliamentary strategies. Nevertheless, contemporaries feared such interests less than they feared what was often called the most dangerous of all interests, executive government. Powerful government and large-scale “organic” reform were considered dangerous, and even those radicals who supported organic reform, like Cobden and Bright, were suspicious of powerful government.
Palmerston
Lord Palmerston, who became prime minister for the first time in 1855, stood out as the dominant political personality of mid-Victorian Britain precisely because he was opposed to dramatic change and because he knew through long experience how to maneuver politics within the half-reformed constitution. In a period when it was difficult to collect parliamentary majorities, he often forced decisions, as in the general election of 1857, on the simple question “Are you for or against me?” He also was skillful in using the growing power of the press to reinforce his influence. At a time of party confusion, when the queen might well have played a key part in politics, Palmerston found the answer to royal opposition in popular prestige, carefully stage-managed. His chief preoccupation was with foreign affairs, and his approach was, on several occasions, diametrically opposed to that of the court.
There was no contradiction between his views on domestic and foreign policy. He preferred the British system of constitutional government, resting on secure social foundations, to Continental absolutism, but, like Canning, his predecessor as foreign secretary, Palmerston was anxious above all else to advance the interests of Britain as he saw them. The supremacy of British sea power, British economic ascendancy, and political divisions inside each of the main countries of Europe before and after the Revolutions of 1848 gave him his opportunity.
His interventions were not confined to Europe. In 1840–41 he had forced the Chinese ports open to foreign trade, and, by the Treaty of Nanjing (1842), he had acquired Hong Kong for Britain. In 1857 he went to war in China again and, when defeated in Parliament, appealed triumphantly to the country. He also intervened in Russia. The Crimean War (1853–56) was designed to curb what were interpreted as Russian designs on the Ottoman Empire and a Russian threat to British power in the eastern Mediterranean. The outcome greatly favoured the British and their main allies, the French and the Ottoman Empire. Although Palmerston’s government was defeated in 1858, he was back again as prime minister, for the last time, a year later.
During Palmerston’s remarkable ministry of 1859–65, which included Peel’s successor as prime minister, Lord John Russell, as foreign secretary and the Peelite Gladstone as chancellor of the Exchequer, it was impossible for Britain to dominate the international scene as effectively as in previous periods of Palmerstonian power. With efficient military power at his disposal, the Prussian prime minister, Otto von Bismarck, proved more than a match for Palmerston. The union of modern Italy, which Palmerston supported, the American Civil War, in which his sympathies were with the Confederacy, and the rise of Bismarck’s Germany, which he did not understand, were developments that reshaped the world in which he had been able to achieve so much by forceful opportunism. When Palmerston died, in October 1865, it was clear that in foreign relations as well as in home politics there would have to be what Gladstone described as “a new commencement.”
Gladstone and Disraeli
In the large urban constituencies the demand for a new and active liberalism had already been gaining ground, and at Westminster itself Gladstone was beginning to identify himself not only with the continued advance of free trade but also with the demand for parliamentary reform. In 1864 he forecast new directions in politics when he stated that the burden of proof concerning the case for reform rested not with the reformers but with their opponents. A year later he lost his seat representing the University of Oxford and was returned as member of Parliament for a populous Lancashire constituency. The timing was right, because, after the death of Palmerston, the question of parliamentary reform was reopened and the Second Reform Bill was passed in 1867.
The reform of 1867 almost doubled the electorate, adding 938,000 new names to the register and extending the franchise to many workingmen in the towns and cities. The county franchise was not substantially changed, but 45 new seats were created by taking one seat from existing borough constituencies with a population of fewer than 10,000. Disraeli hoped that, in return for his support in passing this measure, urban workers would vote for him. He believed rightly that many of them were Conservatives already by instinct and allegiance, but in 1868, in the first general election under the new system, it was Gladstone who was returned as prime minister.
In both parties, new forces were stirring at the local level, and energetic efforts were under way to organize the electorate and the political parties along new lines. Even though Gladstone resumed power, it became apparent that the popular vote was not Liberal by divine right. In several parts of England, particularly in the industrial north, there developed a strong popular Toryism, which in Lancashire, a great centre of the cotton industry, was based partly upon deference to industrial employers, partly upon dislike of Irish immigrants, partly upon popular Protestant associations with Englishness, and not least upon what to many was a surprisingly strong support for the principles of church and state.
With the development of central party machinery and local organization, the role of the crown was reduced during this period to that of merely ratifying the result of elections. Although the queen greatly preferred Disraeli to Gladstone, she could not keep Gladstone out. Her obvious partisanship made some of her acts look unconstitutional, but they would not have been deemed unconstitutional in any previous period of history. The public during this period was more interested in the political leaders than in the queen, who lived in retirement and was sharply criticized in sections of the press.
Gladstone’s first administration had several notable achievements: the disestablishment and partial disendowment of the Irish church, accomplished in 1869 in face of the opposition of the House of Lords; the Irish Land Act of 1870, providing some safeguards to Irish tenant farmers; William Edward Forster’s Education Act of the same year, the first national act dealing with primary education; the Trade-Union Act of 1871, legalizing unions and giving them the protection of the courts; and the Ballot Act of 1872, introducing secret voting. Moreover, the Universities of Oxford and Cambridge were opened to Nonconformists, or Dissenters (Protestants who did not conform to the practices of the Church of England), while between 1868 and 1873 the cumbrous military machine was renovated by Gladstone’s secretary for war, Edward Cardwell. The system of dual responsibility of commander in chief and secretary for war also was abolished, and the subordination of the former to the latter was asserted. In 1873 the Judicature Act, amended in 1876, simplified the tangle of legal institutions and procedures. Gladstone, throughout his life, preferred cheap and free government to expensive and socially committed government. He was anxious indeed in 1873 to abolish income tax, on which the public finances of the future were to depend.
Many of these reforms did not satisfy affected interests. The Irish Church Disestablishment Act failed to placate the Irish and alarmed many English churchmen, while the Education Act was passed only in the face of bitter opposition from Nonconformists, who objected that Forster’s system did not break the power of the church over primary education. Although the act was extended in 1880 when primary education was made compulsory and in 1891 when it became free, there were often noisy struggles between churchmen and Nonconformists on the new school boards set up locally under Forster’s act. If the Education Act alienated many Nonconformists, the Licensing Bills of 1871 and 1872 alienated their enemies, the brewers. In the general election of 1874, therefore, months after Disraeli had described the Liberal leaders in one of his many memorable phrases as a “range of exhausted volcanoes,” the brewers threw all their influence behind the Conservatives. “We have been borne down in a torrent of gin and beer,” Gladstone complained.
In his subsequent ministry, with the assistance of men like Richard Cross, the home secretary, Disraeli justified at last his reputation as a social reformer. By the Employers and Workmen Act of 1875, “masters” and “men” were put on an equal footing regarding breaches of contract, while by the Trade-Union Act of 1875, which went much further than the Liberal Act of 1871, trade unionists were allowed to engage in peaceful picketing and to do whatever would not be criminal if done by an individual. The Public Health Act of 1875 created a public health authority in every area; the Artizans’ and Labourers’ Dwellings Improvement Act of the same year enabled local authorities to embark upon schemes of slum clearance; a factory act of 1878 fixed a 56-hour workweek; while further legislation dealt with friendly societies (private societies for mutual-health and old-age insurance), the protection of seamen, land improvements carried out by tenants, and the adulteration of food. There was no similar burst of social legislation until after 1906.
If there were significant, though not fully acknowledged, differences between the records of the two governments on domestic issues, there were open, even strident differences on questions of foreign policy. Gladstone had never been a Palmerstonian. He was always anxious to avoid the resort to force, and he put his trust not in national prejudices but in an enlightened public opinion in Europe as well as in Britain. His object was justice rather than power. In practice, however, he often gave the impression of a man who vacillated and could not act firmly. Disraeli, on the other hand, was willing to take risks to enhance British prestige and to seek to profit from, rather than to moralize about, foreign dissensions. His first ventures in “imperialism”—a speech at the Crystal Palace in 1872, the purchase of the Suez Canal shares in 1875, and the proclamation of the queen as “Empress of India”—showed that he had abandoned the view, popular during the middle years of the century, that colonies were millstones around the mother country’s neck. But these moves did not involve him in any European entanglements, nor did the costly, if brilliantly led, campaigns of Maj. Gen. Frederick Roberts in Afghanistan (1878–80) and the annexation of the Transvaal in South Africa in 1877.
It was the Middle Eastern crisis of 1875–78 that produced the liveliest 19th-century debate on foreign policy issues. In May 1876 Disraeli rejected overtures made by Russia, Austria-Hungary, and Germany to deal jointly with the Ottoman Empire, which was faced with revolt in Serbia. His pro-Turkish sympathies irritated many Liberals, and, after Turkey had gone on to suppress with great violence a revolt in Bulgaria in 1876, the Liberal conscience was stirred, and mass meetings were held in many parts of the country. Gladstone, who had gone into retirement as Liberal leader in 1875, was slower to respond to the issue than many of his followers, but, once roused, he emerged from retirement, wrote an immensely influential pamphlet on the atrocities, and led a public campaign on the platform and in the press. For him the Turks were “inhuman and despotic,” and, whatever the national interests involved, Britain, in his view, should do nothing to support them. Disraeli’s calculations concerned strategic and imperial necessities rather than ideals of conduct, and his suspicions were justified when the Russians attacked Turkey in April 1877. Opinion swung back to his side, and in 1878 Disraeli sent a British fleet to the Dardanelles. London was seized by war fever—the term jingoism was coined to describe it—which intensified when news arrived that a peace agreement, the Treaty of San Stefano, had been signed whereby Turkey accepted maximum Russian demands. Reservists were mobilized in Britain, and Indian troops were sent to the Mediterranean. Disraeli’s foreign minister, who disapproved of such action, resigned, to be succeeded by Robert Gascoyne-Cecil, marquess of Salisbury, who was eventually to serve as prime minister in the last Conservative administrations of the 19th century. The immediate crisis passed, and, at the Congress of Berlin, an international conference held in June and July 1878, which Disraeli attended, the inroads into Turkish territory were reduced, Russia was kept well away from Constantinople, and Britain acquired Cyprus. Disraeli brought back “peace with honour.” But the swings of public opinion continued, and in 1879 Gladstone, starting at Midlothian in Scotland, fought a nationwide political campaign of unprecedented excitement and drama. In the general election of April 1880, the Liberals returned to power triumphantly, with a majority of 137 over the Conservatives. Disraeli, who had moved to the House of Lords in 1876, died in 1881.
Economy and society
Although the Industrial Revolution traditionally has dominated accounts of change over the course of this period, recent research has emphasized the uneven and complex nature of this change. Nevertheless, over the course of the 19th century, the rise of manufacturing industry was striking, with the decisive shift occurring in the first three decades of the century. In 1801, 22 percent of the active British workforce was employed in manufacturing, mining, and construction, while 36 percent was involved in agriculture; by 1851, manufacturing, mining, and construction had increased to 40 percent, while agriculture had dropped to 21 percent. By 1901, agriculture had fallen even farther, to only 9 percent.
Cotton textiles remained the dominant new industry, centred in Manchester, with the textile factory being thought of by one of its contemporary admirers, the Leeds manufacturer Edward Baines, as “the most striking example of the dominion obtained by human science over the powers of nature of which modern times can boast.” By 1851 there were some 1,800 cotton factories in Britain. From 1815 to 1851 raw cotton imports had increased unevenly from 101 million pounds to 757 million pounds, while exports of manufactured cotton piece goods increased from 253 million yards to 1.543 billion yards. Manchester was the centre of the cotton industry. During the same period, however, similar steam-driven technology accounted for the expansion of the woolen textiles industry, with Australia, which had provided no raw wool for Britain in 1815, supplying about 30 million pounds in 1851. Bradford and Leeds were the centres of the woolen textile industry. It was the textiles industry more than any other that illustrated Britain’s dependence on international trade, a trade that it commanded not only through the volume of its imports and of its manufacturing output but also through the strength of its banking and other financial institutions, as well as the extent of its shipping industry.
The second, capital goods, phase of industrialization, beginning in the mid-19th century, broadened the manufacturing base into areas such as shipping and engineering. In tandem with this advance was the growth of the service industry as the economy expanded over time. The advent of mass consumption in the second half of the 19th-century—resulting in the slow development of mass retailing by multiple stores—was one consequence of this. While the factory and mechanized production played important roles in the process of industrialization, this process has been usefully described as “combined and uneven development.” Undoubtedly, hand technology and muscle power continued to play a considerable role far beyond the mid-19th century, and, as older forms of production continued alongside new, they were incorporated in, and to some extent regenerated by, factory production. The artisan sector, the conduct of work in people’s homes, and subcontracting all remained central to many industries—for example, the hosiery industry in Nottingham.
Much production was in fact small-scale and characterized to varying degrees by employers’ dependence on the skills and authority of the worker; if in some areas—for example, the trades in London—capitalism made progress by degrading the status of craft workers, in other areas workers were able to hold their own and adapt to new situations by organizing through the trade unions that gave them leverage over employers. Even in mechanized industries, managerial hierarchies were weakly elaborated, and there was a considerable dependence on worker skill and authority as well as a limited penetration of technology. Also of great importance were domestic service and small shop keeping. The upshot was not a linear process of change in which the end result was de-skilled factory production and the homogenization of the condition of workers but rather a complex set of outcomes in which the relations of capital and labour represented a variegated division of power.
In fact the decentralized nature of industrial production paralleled the decentralized state, and workers’ understanding of the economy was in many ways similar to their view of the state—namely, one of guarded acceptance. As it did with all other sectors of British life, the state for the most part studiously stayed outside the field of industrial relations; nonetheless, developments in the economy and in labour relations had a decisive role in shaping British workers’ views of the state. Within labour itself, there were divisions between “honourable” (traditional, apprenticeship-based, well-paid) and “dishonourable” (low-status, corner-cutting) trades, between those with a trade and those without, between the skilled and the unskilled, between union and nonunion workers, and between men and women. The labour movement itself reflected these divisions, as the increasingly strong trade union movement of this period was in fact largely shaped to meet the interests and demands of the skilled male head of household.
People were concerned too about the rising population as well as the nature and pace of economic change. In the first census of 1801, the population of England and Wales was about 9 million and that of Scotland about 1.5 million. By 1851 the comparable figures were 18 million and 3 million. At its peak in the decade between 1811 and 1821, the growth rate for Britain as a whole was 17 percent. It took time to realize that Thomas Malthus’s eloquently expressed fears that population would outrun subsistence were exaggerated and that, as population grew, national production would also grow. Indeed, national income at constant prices increased nearly threefold between 1801 and 1851, substantially more than the increase in population.
The new technology reached its peak in the age of the railway and the steamship. Coal production, about 13 million tons in 1815, increased five times during the next 50 years, and by 1850 Britain was producing more than 2 million tons of pig iron, half the world’s output. Both coal and iron exports increased dramatically, with coal exports amounting to 3.3 million tons in 1851, as opposed to less than 250,000 tons at the end of the French revolutionary and Napoleonic wars. Coal mining was scattered in the coal-producing districts; there were few large towns, and miners lived a distinctive life, having their own patterns of work and leisure. Iron production was associated with larger plants and considerable urbanization. In South Wales, for example, one of the areas of industrial expansion, the Dowlais works employed 6,000 people and turned out 20,000 tons of pig iron each year during the 1840s. Birmingham, Britain’s second largest city, was the centre of a broad range of metallurgical industries that were organized mainly in small workshops that differed sharply in character from the huge textile mills of Lancashire and Yorkshire.
Industrialization preceded the coming of the railway, but the railroad did much to lower transport costs, to consume raw materials, to stimulate investment through an extended capital market, and to influence the location of industry. The railway age may be said to have begun in 1830, when the line from Manchester to Liverpool, the country’s most vigorously expanding port, was opened, and to have gone through its most hectic phases during the 1840s, when contemporaries talked of a “railway mania.” By 1851, 6,800 miles (11,000 km) of railway were open, some of which involved engineering feats of great complexity. There was as much argument among contemporaries about the impact of railways as there was about the impact of steam engines in factories, but there was general agreement about the fact that the coming of the railway marked a great divide in British social history. It was not until the 1870s and ’80s that steamship production came to its full realization, and by then British engineers and workers had been responsible for building railways in all parts of the world. By 1890 Britain had more registered shipping tonnage than the rest of the world put together.
Cultural change
The development of private life
It was in this period that private life achieved a new prominence in British society. The very term “Victorianism,” perhaps the only “ism” in history attached to the name of a sovereign, not only became synonymous with a cluster of restraining moral attributes—character, duty, will, earnestness, hard work, respectable comportment and behaviour, and thrift—but also came to be strongly associated with a new version of private life. Victoria herself symbolized much of these new patterns of life, particularly through her married life with her husband, Albert, and—much later in her reign—through the early emergence of the phenomenon of the “royal family.” That private, conjugal life was played out on the public stage of the monarchy was only one of the contradictions marking the new privacy.
However, privacy was more apparent for the better-off in society than for the poor. Restrictions on privacy among the latter were apparent in what were by modern standards large households, in which space was often shared with those outside the immediate, conjugal family of the head of household, including relatives, servants, and lodgers. Privacy was also restricted by the small size of dwellings; for example, in Scotland in 1861, 26 percent of the population lived in single-room dwellings, 39 percent in two-room dwellings, and 57 percent lived more than two to a room. It was not until the 20th century that this situation changed dramatically. Nonetheless, differences within Britain were important, and flat living in a Glasgow tenement was very different from residence in a self-contained house characteristic of large parts of the north of England. This British kind of residential pattern as a whole was itself very different from continental Europe, and despite other differences between the classes, there were similarities among the British in terms of the house as the cradle of modern privacy. The suggestive term “social privacy” has been coined to describe the experience of domestic space prior to the intervention of the municipality and the state in the provision of housing, which occurred with increasing effect after mid-century. The older cellular structure of housing, evident in the tangle of courts and alleys in the old city centres, often with cellar habitations as well, resulted in the distinction between public and private taking extremely ambiguous form. In the municipal housing that was increasingly widespread after mid-century, this gave way to a more open layout in which single elements were connected to each other.
Among housing reformers there was a dislike of dead ends, courts, and the old situation where habitations were turned in upon themselves in their own social privacy. In the new order, space became neutral and connective, and, in the new “bylaw housing,” streets were regular in layout and width, with side streets at right angles and back alleys in parallel lines. The streets outside were (and remain) surprisingly wide in contrast to the narrow alleys behind. Such streets allowed a maximum of free passage. The street outside was public and communal. The alley or lane behind was less socially neutral than the street, still rather secret. It was not a traffic thoroughfare for the public at large, being reserved for the immediate inhabitants, for the hanging of washing, and perhaps for the playing of football (soccer). In between these public and semipublic spheres and the house within was the space of the yard at the back, which in contradistinction to the street was private and individual (if less so, potentially, than the house itself). In this fashion, municipal authorities sought to inculcate privacy in the lower classes. However, conditions worked against domestic privacy for them, and it was in the homes of the better-off that privacy was most developed.
Within the dwellings of the more privileged, there was a trend towards the specialization of rooms, the separation of the public from the private sides of life, and the development of distinct spheres for women and children. A society based on achieved status, as British society was slowly becoming, was very concerned to regulate and legitimize social relationships of gender and status, and the spaces of the home served as a means of doing this. From about the 1820s a family pattern developed that was conditioned by spatial environments that resulted from the new significance of home and domesticity. The home was to be a retreat from the stress of the world and a haven of security. This change in perspective was associated with other developments, namely the retreat from the centre of cities to the suburbs—evident in Manchester, for example, as early as the 1820s—along with a concomitant switch in housing style from the 18th-century terrace (row houses) to the detached or semidetached villa. In the move from the terrace, what was once the common garden of the square gave way to a separate, private garden. The common and more public rooms of the house, which were once for use by all members of the family, were relocated on the ground floor, with the other stories of the house being limited to the use of family members in a distinct domestic sphere. In terms of the development of working-class domesticity, by mid-century there was a clear gender division of labour between men and women (though it was often contradicted in practice by economic necessity and local employment conditions), based on the assumption that a man was to be the main and preferably sole breadwinner and head of the household. This pattern of gender relationships had profound influence on working-class institutions, not only on the trade union movement but also on the club and association life that was so central to the leisure activity of the less well-off.
However, the Victorian middle-class family should not be confused with the small nuclear family of the 20th century. Families were large and intermarried so that the boundaries between the categories of relative, dependent, and friend were indistinct, recalling an older notion of family as the circle of dependents. The relationship between public and private was therefore similarly complicated. Because the domestic interior could be the site of all sorts of familial and extra-familial interactions and obligations, the nexus of private life might also be distinctly public. Of course, privacy was accelerated by means other than family and domestic arrangements. The spread of reading on one’s own and of letter writing, the latter of which increased massively with the development of the cheap Penny Post, were both conducive to privacy.
Moreover, privacy in life led to privacy in death, as what may be called social burial in the old churchyard gave way to the new privacy of the cemetery. An invention of this time (Kensal Green, the first specialist London cemetery, opened in 1831), the cemetery was a new sort of public space, which in theory welcomed all comers, though in practice it was open only to the better-off, at least at first. Communal, spatially particular parish rights of burial were replaced by absolute, abstract property rights, and the hugger-mugger of the old churchyard was replaced by the possibility of the individuation of the dead person, by means of the memorial and the deployment of the clearly demarcated burial site. One could really have eternal rest, instead of being dug up every few decades. The individual had his or her space in death as in life.
Religion
Victorian doubt about inherited biblical religion was as much an acknowledged theme of the period as was Victorian belief. Discoveries in geology and biology continued to challenge all accepted views of religious chronology handed down from the past. Perhaps the most profound challenge to religion came with Charles Darwin’s On the Origin of Species (1859). Yet the challenge was neither unprecedented nor unique. In 1860 Essays and Reviews was published; a lively appraisal of fundamental religious questions by a number of liberal-minded religious thinkers, it provoked the sharpest religious controversy of the century.
Behind such controversies there were many signs of a confident belief on all sides that inquiry itself, if freely and honestly pursued, would do nothing to dissolve shared ideals of conduct. Even writers who were “agnostic” talked of the “religion of humanity” or tried to be good “for good’s sake, not God’s.” Standards were felt to count in institutional as well as in private life.
Emphasis on conduct was, of course, related to religion. The British religious spectrum was of many colours. The Church of England was flanked on one side by Rome and on the other by religious dissent. Both were active forces to be reckoned with. The Roman Catholic Church was growing in importance not only in the Irish sections of the industrial cities but also among university students and teachers. Dissent had a grip on the whole culture of large sections of the middle classes, dismissed abruptly by Matthew Arnold as classes of “mutilated and incomplete men.” Sometimes the local battle between the Church of England and dissent was bitterly contested, with Nonconformists opposing church rates (taxes), challenging closed foundations, and preaching educational reform and total abstinence from intoxicating beverages. A whole network of local voluntary bodies, led either by Anglicans or Nonconformists, usually in rivalry, came into existence, representing a tribute to the energies of the age and to its fear of state intervention.
The Church of England itself was a divided family, with different groups contending for positions of influence. The High Church movement (which emphasized the “Catholic” side of Anglicanism) was given a distinctive character, first by the Oxford movement, or Tractarianism, which had grown up in the 1830s as a reaction against the new liberal theology, and then by the often provocative and always controversial ritualist agitation of the 1850s and ’60s. The fact that prominent members of the Church of England flirted with “Romanism” and even crossed the Rubicon often raised the popular Protestant cry of “church in danger.” Peel’s conversion to free trade in 1846 scarcely created any more excitement than John Henry Newman’s conversion to Roman Catholicism the previous year, while in 1850 Lord Russell, the prime minister, tried to capitalize politically on violent antipapal feelings stimulated by the pope’s decision to create Roman Catholic dioceses in England.
The Evangelicals, in many ways the most influential as well as the most distinctively English religious group, were suspicious both of ritual and of appeals to any authority other than the Bible. Their concern with individual conduct was a force for social conformity during the middle years of the century rather than for that depth of individual religious experience that the first advocates of “vital religion” had preached in the 18th century. Yet leaders such as Lord Ashley were prepared to probe some Evangelical social issues (e.g., housing) and to stir men’s consciences, and, even if their preoccupation was with saving souls, their missionary zeal influenced developments overseas as well as domestic legislation. There were other members of the church who urged the cause of Christian socialism. Their intellectual guide was the outstanding Anglican theologian Frederick Denison Maurice. The Evangelicals in particular were drawn into substantial missionary activity in the empire and other parts of the world, frequently clashing with settlers and administrators and sometimes with soldiers. They regarded it as their sacred duty to spread the gospel from, in the words of one of the period’s best-known missionary hymns, “Greenland’s icy mountains” to “India’s coral strand.”
Beyond the influence of both church and chapel, there were thousands of people in mid-Victorian England who were ignorant of, or indifferent toward, the message of Christianity, a fact demonstrated by England’s one religious census in 1851. Although movements such as the Salvation Army, founded by William Booth in 1865, attempted to rally the poor of the great cities, there were many signs of apathy or even hostility. There was also a small but active secularist agitation; particularly in London, forces making for what came to be described as “secularism” (more goods, more leisure, more travel) could undermine spiritual concerns. The great religious controversies of mid-Victorian England were not so much to be settled as to be shelved.
In Scotland, where the Church of Scotland had been fashioned by the people against the crown, there was a revival of Presbyterianism in the 1820s and ’30s. A complex and protracted controversy, centring on the right of congregations to exclude candidates for the ministry whom they thought unsuitable, ended in schism. In 1843, 474 ministers left the Church of Scotland and established the Free Church of Scotland. Within four years they had raised more than £1.25 million and built 654 churches. This was a remarkable effort, even in a great age of church and chapel building. It left Scotland with a religious pattern even more different from that of England than it had been in 1815. Yet many of the most influential voices in mid-Victorian Britain, including Carlyle and Samuel Smiles (Self-Help; 1859), were Scottish, and the conception of the gospel of work, in particular, owed much in content and tone, even if often indirectly, to Scottish Calvinism. In Wales there was a particularly vigorous upsurge of Nonconformity, and the Welsh chapel was to influence late 19th-century and 20th-century British politics.
Leisure
Leisure emerged as a distinct concept and activity, at least on a mass scale, only when the hours of labour diminished and became more regular. Before then, work and nonwork activities had been closely related to each other—for example, in the popular observance of the weekly “Saint Monday,” when furious bouts of working were followed by equally furious bouts of enjoyment on a day supposedly given over to work. In the 1850s, in textiles, the leading sector of the economy, there was a more regular working day and week, and a half-day of leisure, Saturday, also eventually emerged. Hours of labour began to approximate nine per day in the 1870s and eight per day after World War I. The Bank Holiday Act of 1871 further regularized leisure time. Yet, obviously, for the majority of people, work was the dominant activity.
For the privileged minority, however, leisure defined a good deal of their existence, the model of aristocratic “society” being redeployed in the early 19th century. Even in the 18th century the “middling sort” well-to-do of the towns, the urban gentry, had adopted the assembly room (where the elite had gathered to dance and socialize), the theatre, and the promenade as a means of regulating and enjoying urban life. This growth of a provincial urban culture had a serious side too, in the literary and philosophical societies of the late 18th century. In the first three decades of the new century this more serious aspect became increasingly apparent through the impact of the growth of Evangelical religion and of political events both at home and in Europe, so that there was a shift from the older sociability of propertied urban culture to a new emphasis on the deployment of leisure and culture as means of negotiating social and political difficulties, especially in the new and growing towns and cities.
The idea of “recreation” began to emerge; that is, that nonwork time should be a time of re-creating the body and mind for the chief purpose of work. The idea grew too that this recreation should be “rational.” The characteristic institutions of these new initiatives were the Mechanics Institutes for labourers and the Atheneaums for the sons—though not the daughters—of the more wealthy. Beyond these institutions there was the remarkable growth of those concerned with bringing culture to propertied urbanites, notably art galleries. However, it was not until mid-century that such initiatives began to develop rapidly, as in Manchester in the 1850s, where the Halle Orchestra was established on a professional basis and its concerts opened to anyone who could pay admission, unlike earlier, purely subscription-based music organizations. In the same decade, Owens College, the forerunner of the University of Manchester, was founded. The development of these institutions marked the emergence a more self-consciously public middle-class culture, one remodelled around a more open and inclusive notion of what public life involved.
In terms of popular culture, a more regularized and less demanding working day and week became part of a new kind of working year, so that old calendrical observances and rituals were lost. At the same time, a number were retained, being transformed to serve new purposes in the changed circumstances of increasing urbanization and industrialization. For instance, the old, established local “feast” and “wake” days of the industrial districts in the north of England were retained, serving many of the old communal functions yet also changing character and obtaining new functions in light of the spread of the railway and the advent of the modern vacation. Communal identities might now be formed by leaving the towns en masse, either for the railway excursion or on holiday, when large sections of the workers from particular towns took their leisure together at the new seaside resorts such as Blackpool. In urban Britain, restrictions upon space as well as upon time shaped the new culture, with old places of congregation, such as common lands on which fairs had been held, now being built over as towns grew. In the process, leisure often moved indoors, becoming more regular and more commercial in its organization. Commercial pressures in fact were most responsible for reshaping what had at least from the late 18th century been identified as popular culture, as opposed to forms of high culture. (Institutions such as the new urban concert halls of the mid-19th century were important in fostering a notion of the sublime and sacral nature of classical music, in contrast to the “low” music of the other sort of urban concert hall, namely the music hall.)
Commercialization of public culture was evident in the music hall from the 1850s, though more so in the late 19th century, with the construction of large purpose-built halls and the development of a nationwide chain of venues and a national “star” system. Before then, even if commercial, organizations were smaller-scale, less commercial, and more locally rooted. Commercial pressures were accompanied by political and moral pressures from above. The civic provision of culture was intended not only for the well-to-do but also for the mass of the population. For example, the public park, from its introduction in the 1840s, was an attempt to reproduce rational recreation among the lower classes through the design of the park as a place where civilized and rational behaviour and deportment could be encouraged. Of course, in practice, parks served other purposes, but their place in what was a widespread and marked reshaping of popular manners should not be underestimated. This reshaping owed a great deal to the beneficiaries of reform themselves, in that some of the most vocal supporters of the reform of the old order of “superstition and brutality” were radical workingmen whose conception of reason pitted them against the old culture. They were joined by Dissenter workingmen who were equally uncomfortable with traditional culture. Commercial and reform interests combined in the proliferation of reading matter for the “popular classes.” Indeed, the creation of a literate population was one of the most striking achievements of the century, but, while journals and books advocating self-improvement reached a surprisingly wide audience, this readership was not as wide as that of the sensational popular literature of the 1830s and ’40s. About this time a mass popular press also developed, though at this stage a Sunday press only, in the form of Lloyd’s News and Reynolds’s Weekly Newspaper. The explosion of the provincial press in the 1850s reached a somewhat different social constituency but was tremendously important in constituting the sense of identity of the towns that it served.