In moving the Second Reading of this Bill in the Dáil, I described it as a simple and straightforward measure. Its purpose, as is clear from sub-section (1) of Section 1, is to enable the moneys which are at present in or which should hereafter be paid into the Purchase Annuities Fund to be paid out to the Central Fund. It is desirable to take this course in order to relieve, first of all, the local authorities and, secondly, the Exchequer and taxpayers generally of the disabilities which the existing position, particularly as it arises from the operation of the Guarantee Fund, might otherwise impose on them. As the Seanad, no doubt, is aware, a Guarantee Fund has been a feature of all Land Purchase Acts since 1891. As originally constituted, and as it remains to-day, the fund was formed by the hypothecation to various Land Purchase Funds and Accounts of the several Exchequer grants made to local authorities in relief of local taxation, it being arranged that the disbursement of these should be made by the Exchequer through the Guarantee Fund.
Under this arrangement, the local taxation grants are, in the first instance, paid out of the Central Fund into the Guarantee Fund, which is then used to make good to two other funds such deficiencies as may arise therein by reason of the non-payment or non-collection of land annuities. One of these two funds is known as the Land Bond Fund and was established under the Land Act of 1923 for the receipt of the annuities and payment of interest and sinking fund on bonds created for the purpose of that and subsequent Land Acts. The other fund, known as the Purchase Annuities Fund, is the fund referred to in this Bill. Like the Land Bond Fund, the Purchase Annuities Fund was also created, as many members of the House may be aware, under the Act of 1923. It constitutes a Clearance Account for the purpose of receiving the land annuities payable under the earlier Acts of 1891, 1903 and 1909. It accordingly fulfils some of the functions originally assigned to the Land Purchase Account and the Irish Land Purchase Fund, the two funds referred to in Section 12 of the 1923 Act which this Bill proposes to amend. The amount of the Guarantee Fund set out in relation to the two principal funds to which I have referred—the Land Bond Fund and the Purchase Annuities Fund—was naturally related to the total amount of annuities collected under the several Land Purchase Acts. That subsequent alteration might be made in the amount that is collectable was not foreseen and, accordingly, when the Guarantee Fund was established, no provision was made to deal with the situation which began to arise in May and June of last year.
As the House will recollect, arising out of that situation, the Government granted moratoria in respect of all the land annuity arrears arising out of and prior to the May-June gale and the November-December gale of 1932 and promised a further moratorium in respect of the May-June gale of this year. It has further been decided to introduce legislation which will reduce by 50 per cent. all annuities and rents payable under all the existing Land Acts whether passed by the British Parliament or by the Oireachtas, and this measure will involve a permanent reduction of £2,100,000 in the annuities and rents collectable under all the existing Acts. So far, therefore, as the annuities payable under the pre-1923 legislation are concerned, the position has been created in which, instead of £2,968,785 being collectable in respect of the gales of last year, there was collected, owing to the moratoria to which I have referred, only £1,061,275, or approximately 35 per cent of the amount required to fill the Purchase Annuities Fund for the current year. There was thus left a considerable deficiency in that fund which was provided for in the following way: First of all, to some small extent, by an advance of £191,978 from the Central Fund and, secondly, to the extent of £1,424,022 by impounding local taxation grants. It is true that, to some extent, the effects of the latter operation on the finances of the local authorities were off-set by a special issue of £500,000 out of the Emergency Fund but, nevertheless, there was still left due to local authorities a sum of £924,000.
It may be well at this point to clear up certain misconceptions which seem to be cherished in certain quarters as to the real origin of the moneys now in the Purchase Annuities Fund. During the discussion in the Dáil on this Bill, it was freely alleged that the purpose of the Bill was to take moneys that had been collected from the farmers and to utilise them for purposes other than those for which they were originally collected. It is hard to understand how an opinion of this sort could be held by anyone who understood the operation of the Guarantee Fund and the Purchase Annuities Fund.
As I have already endeavoured to explain, the annuities are paid into the Purchase Annuities Fund as they are collected. If there is any shortage in that collection, that shortage is made good, not out of the pockets of the tenant purchaser as a class, but out of the grants which are made by the central authority to the local authorities in relief of local taxation. Accordingly, when during last year, the land annuities collected fell short by over £1,900,000 of the amount required to fill the Purchase Annuities Fund a large part of the deficiency had to be provided for, originally, at any rate, at the expense of the local authorities mitigated, as I have already indicated, to some extent, by the operation of the Emergency Fund, but even the quantum of local taxation grants available was insufficient to wipe out the whole shortage of the fund and a further £191,978 had to be advanced from the Central Fund. If, instead of regarding the £500,000 paid from the Emergency Fund to the local authorities as an advance from that fund to those authorities, we regard it as an advance from the Emergency Fund to the Guarantee Fund, made in order to allow an equivalent amount of local taxation grants in that fund to be released therefrom to the local authorities, we find that the Purchase Annuities Fund, as it at present stands, is made up as follows: By land purchase annuities collected, £1,061,275; by advance from the Emergency Fund, £500,000; by advance from the Central Fund, £191,978; by local taxation grants withheld, £924,022. It would be thus seen that approximately only one-third of the money in the Purchase Annuities Fund has been derived directly from the tenant purchasers. Accordingly, therefore, if no other considerations were to arise there is no equitable reason why these moneys should not be appropriated in the first instance for the general purposes of the Central Fund, but in particular to repay the advance to that Fund and the Emergency Fund and to put the Exchequer in the position to disburse to local authorities the grants which in normal circumstances would be due and payable to them.
Some point may be made in regard to the £1,061,275 collected as land purchase annuities. This amount was collected in respect of annuities payable under the pre-1923 Acts. The position of those who bought out under the Act of 1923 and subsequent Acts of the Oireachtas has also to be considered. These purchasers also have received the benefit of the moratoria and are to receive the proposed permanent reduction. At the present moment the total annual cost to the Exchequer of interest and sinking fund on the existing 1923 Land Bonds is approximately £1,100,000 which, it will be noted, is slightly more than the amount collected from the pre-1923 tenant purchasers. It is equitable that the cost to the Exchequer should be set off against the amount collected from the farmers which has found its way into the Purchase Annuities Fund.
To return now to the position of the Purchase Annuities Fund and the Guarantee Fund. So far I have dealt merely with the situation which has been created by the moratoria in respect of the annuities falling due during last year. If the Guarantee Fund arrangement be not suitably modified a similar position will arise out of the moratorium to be granted in respect of the May-June gale of 1933, and the further general reduction of all the purchase annuities and Land Commission rents by 50 per cent. Once more we shall have a deficiency in the Purchase Annuities Fund and the Land Bond Fund, and once more, if the local authorities are not to suffer in consequence, the Exchequer will have to make a special provision to meet the deficiency. This time, however, the position will possibly be somewhat more serious than last year, in so far as the total deficiency on the Purchase Annuities Fund and the Land Bond Fund is not likely to be much less than £2,000,000.
Taking stock of the situation we thus find ourselves in this position, that in respect of the Purchase Annuities Fund there is an actual deficiency of £1,616,000 which has had to be made good in the first instance out of the Guarantee Fund, and subsequently provided for by advances from the Central Fund and the Emergency Fund, and by the withheld grants from the local authorities. There is in addition a considerable deficiency on the Land Bond Fund, which has also to be met in the first instance out of the local taxation grants because the Land Bond Fund is secured in the same way as the Purchase Annuities Fund by the Guarantee Fund. I should like to emphasise the actual position, that, as the law stands at the present moment, local authorities are not entitled to get one penny piece of the £2,198,000 which was voted for them last year in the relief of local taxation. We are bound under existing legislation to impound that money in the Guarantee Fund and to transfer it, not to local authorities for whom it was originally intended, but to the Purchase Annuities Fund, for whom the Dáil at any rate voted it last year and intended it. That is the situation which falls now for final liquidation.
There are four ways in which the position which has arisen and which will arise, as I have described, can be dealt with. (1) We can allow the statutory position to remain as it is and impose additional taxation to provide the local taxation grants twice over, which I think would be unthinkable. Or (2) still allowing the statutory position to remain as it is, we can pay the local taxation grants out of the Guarantee Fund into the Purchase Annuities Fund and withhold them, or the equivalent of them, altogether from the local authorities, which I think, once again the House will agree, would be equally unthinkable. Or (3) we can borrow the money necessary to fill the Purchase Annuities Fund and the Land Bond Fund, but that course would involve additional and wholly unnecessary taxation on the people. I submit none of these courses would be justifiable in present circumstances. There remains only the last and the simplest method of dealing with the problem and that is the method proposed in this Bill, which is to pay the moneys in the Purchase Annuities Fund into the Exchequer to be used for the general purposes thereof.
Some attempt may be made as it was made elsewhere to oppose it on the ground of high policy. It was suggested that if we use these moneys that use will in some way intensify or prolong the dispute between ourselves and Great Britain. So far as that dispute is concerned the essential element in it is that the moneys have been withheld, as we believe justly withheld, and the fact that they have been placed to one account rather than in another, and utilised in one way rather than in another, has not influenced the development of the dispute one way or another. The placing of the moneys in the Suspense Account in the first instance was a gesture which indicated our readiness to submit to fair arbitration all the matters in dispute. It was a gesture which unfortunately met with no response, albeit it was for us a costly one. It has cost us already over £20,000. If we are to continue to hold the moneys in the Suspense Account it will cost us very much more during the coming twelve months.
The question I put to the House is: Can we afford to keep it there doing nothing, and earning nothing? We say the money is ours. We believe we have a right to use it. If we do not use it we shall have to find its equivalent, either by taxing the people or by borrowing, which, again, as I have said, means additional taxation. Should there, as we all hope there speedily will, be found a solution to our difficulties with Great Britain and should, as a result of that solution it be necessary for us to make payment to that country, it will be time enough for us then to go a-borrowing, and I have no doubt when we do go we shall find our credit good and shall have no difficulty in raising on reasonable terms whatever sum may be necessary. For these reasons, and because if it is not passed, local authorities will be inconvenienced, their finances gravely endangered, and additional burdens placed on the people, I would strongly urge the Seanad to expedite the passage of this Bill. I hope the House will see its way to allow it to pass through all stages so that it may become law before the close of the current financial year.