I move amendment No. 34:—
In pages 30 and 31 to delete Section 37 and substitute a new section as follows:—
(1) Save as provided by this Act no officer, soldier or horse shall be billeted on any citizen without his consent.
(2) All statutes and laws authorising, prohibiting or regulating the billeting of officers, soldiers or horses which are in force at the passing of this Act are hereby repealed.
(3) When the Defence Forces, or any unit, formation or part thereof are on active service the owner or occupier of premises shall, if ordered to do so by an officer on active service (who is hereby authorised to give such an order) provide:—
(a) lodging and food for officers and men;
(b) stabling and forage for horses of the Defence Forces;
(c) garage accommodation, fuel and oil for mechanically propelled vehicles of the Defence Forces;
(d) such other accommodation, materials or service as the said officer may order him to provide;
during the period specified in and in accordance with the terms of the said order.
(4) There shall be paid to every person who provides accommodation, food, forage, fuel, oil, materials orservice for the Defence Forces in compliance with an order duly given in pursuance of the provisions of this section such amounts as may be prescribed by regulations made, under this section, by the Minister with the concurrence of the Minister for Finance.
(5) Regulations made by the Minister with the concurrence of the Minister for Finance under this section and for the purpose mentioned in this section may, in addition to the matters specifically mentioned in this section, provide for any matter or thing ancillary thereto.
(6) If any person contravenes (by act or omission) an order given by an officer pursuant to the provisions of this section he shall be guilty of an offence and shall be liable on summary conviction to imprisonment for a period of 12 months or to a fine of £100 or at the discretion of the court to both such imprisonment and such fine.
(7) Every regulation under this section shall be laid before each House of the Oireachtas as soon as may be after it is made and if a resolution annulling such regulation is passed by either such House within the next subsequent 28 days on which such House has sat after such regulation is laid before it such regulation shall be annulled accordingly but without prejudice to anything previously done under such regulation.
This is rather a large-looking amendment though it is simpler than it looks. I propose in the amendment to delete Section 37 of the Act and to substitute a completely new section for it. It is of considerable importance for this reason. The Act, as before the House now, makes provision for the billeting of soldiers during a period of emergency on the occupiers of premises, and it further provides that occupiers of premises will provide stables for horses, forage for horses and garages for cars. There are other matters in the section to which I will draw attention later. The principal objection I have to the section as it stands is that it does not provide specifically that theowners or occupiers of houses will be bound by law made by us to afford these facilities under conditions that this House will lay down in legislation. The section which I propose to delete and which is in the Bill does nothing more than to empower the Minister to make such regulations.
Section 37 says:
"(1) (a) The Minister may, from time to time and at any time, make such regulations as he thinks fit—
(i) requiring the occupiers of premises to provide, during a period of emergency, lodging, attendance and food for members of the Defence Forces;
(ii) requiring the occupiers of premises and of livery stables to provide, during a period of emergency, stabling and forage for horses of the Defence Forces;
(iii) requiring the occupiers of premises and garages to provide, during a period of emergency, garaging for mechanically propelled vehicles of the Defence Forces;"
Obviously, that is a very considerable interference with the rights of the ordinary citizen. It is an invasion of the rights of the ordinary citizen and where it is proposed to make such an invasion it is my view—and I should contend very strongly for it—that the invasion should be validated by specific provisions in an Act passed by this House. Simply to say that the Minister will make regulations to do these things is in my view no safeguard for the public. In my view that is something that should be objected to in this House.
The section goes further and says that if any person contravenes, by act or omission, any regulation made under the section—that is any regulation made by the Minister—such person shall be guilty of an offence under the section and shall be liable on summary conviction to a fine not exceeding £20. It provides, of course, for payments for lodging and attendance under this section, which payments are again to be set out by regulations. Then it says that where regulations made by the Minister oblige members of the Garda Síochána to do anything in connectionwith such regulations, the regulations will be made with the concurrence of the Minister for Justice, which shows how serious these regulations can be, as they affect the individual citizen.
Then there is the safeguarding section on which the Minister I am sure will rely, and which sets out:—
"Every regulation made under this section shall be laid before each House of the Oireachtas as soon as may be after it is made and, if a resolution annulling such regulation is passed by either such House within the next subsequent 21 days on which such House has sat after such regulation is laid before it, such regulation shall be annulled accordingly but without prejudice to anything previously done under such regulation."
I know the Minister will contend that there is a safeguard there, that the regulations will be laid before the House and that the House may annul them if it so wishes. Of course, it is obvious that the House never annuls a regulation such as that. The annulment of a regulation such as that could conceivably lead to the fall of a Government, and it is very unlikely that the Party that is in power as Government will be put out of office simply because of a regulation which the Minister makes and lays on the table of the House. The function of the House in regard to such a regulation is to annul it, and if it does not proceed to annul it the regulation becomes a law which affects everybody in the country. I think it is a fundamental principle that every citizen ought to know the law—at least the law should be available in such a form that he can readily ascertain what it is. If we pass an Act here containing about 400 sections dealing with many things affecting soldiers, officers and citizens, I feel that it is only right that the provisions relating to billeting and the obligation of citizens in relation to billeting should be specifically set out in the Act, that it should be stated in the Act that there is an obligation on certain citizens to provide certainprescribed facilities, such as billeting, for the forces, and that if a citizen fails to do that, he becomes guilty of an offence. I think that is how it should be done, and the introduction of a section such as this by the Minister, just giving himself full powers to do anything he likes by regulation with the citizens of the country, is something that is objectionable in principle.
Billeting has been provided in this country since the Act of 1923. It is interesting to look at the Act of 1923. As I said before on other occasions, this Act was based on the old manual of military law and on the Acts that govern the military forces in Britain. The sections in that Act, although taken from very old British legislation, at least did specifically prescribe what the obligations of citizens were. There are quite a number of things in the Act, of course, with which one would not agree, but nevertheless the fundamental obligations of the citizen were specifically prescribed.
There are in the Act itself some very interesting regulations relating to billeting. Some of them are rather amusing, but the old British code endeavoured to give the protection to which I refer to the citizen. They did describe what had to be provided for the Defence Forces. They prescribed the meals that had to be provided for them. The soldiers had to get breakfast, a hot dinner and supper on each day. For breakfast they had to get 5 oz. of bread, a pint of tea with milk and sugar and 4 oz. of bacon. That applied to this country during the emergency. The hot dinner consisted of 12 oz. of meat, before dressing, 6 oz. of bread and 8 oz. potatoes and other vegetables. Supper consisted of 5 oz. of bread, a pint of tea with milk and sugar and 2 oz. of cheese. Then there was a provision that where an officer or soldier was not entitled to be furnished with a meal, the officer or soldier was to be provided with candles, vinegar and salt, allowed the use of a fire and the necessary utensils for dressing and eating his meal. They went into that elaborate detail in the old Acts relating to billeting, andthey did so because there was the conception that, if you were going to interfere with a citizen by law, you should prescribe how far you would interfere with these rights. In this section, as I say, the Minister suddenly takes to himself power to make such regulations as he likes relating to persons who are obliged to provide billets, transport or stabling. Rates of pay were to be provided for them, and a number of other matters in relation to it. I propose in this amendment the insertion of a new section which, to some extent, follows the old law, while simplifying it, and, I hope, modernising it. The new section starts off with the first proviso as in the old Act:—
"Save as provided by this Act no officer, soldier or horse shall be billeted on any citizen without his consent."
That is the correct approach to it. The second sub-section sets out:—
"All statutes and laws. ..."
There are quite a number of old statutes and laws still in existence apparently.
"... authorising, prohibiting or regulating the billeting of officers, soldiers or horses which are in force at the passing of this Act are hereby repealed."
Then there follows the positive section:—
"When the Defence Forces, or any unit, formation or part thereof are on active service the owner or occupier of premises shall, if ordered to do so by an officer on active service (who is hereby authorised to give such an order) provide:—
(a) lodging and food for officers and men;
(b) stabling and forage for horses of the Defence Forces;
(c) garage accommodation, fuel and oil for mechanically propelled vehicles of the Defence Forces;
(d) such other accommodation, materials or service as the said officer may order him to provide;
during the period specified in and inaccordance with the terms of the said order."
In other words, the first thing that is limited is billeting and the requisitioning in that way of materials and so on is limited to a period when the Defence Forces are on active service. In the old days when soldiers had to walk, there was possibly necessity for billeting and for some of the billeting laws we had at the time, but nowadays an army, and certainly an army in this country as we have understood it for 30 years, in peace time, carries on its back its own billets—the "bivvies", tents or whatever else they have. They either carry them or they are brought forward by transport, so that in ordinary circumstances there is no necessity for the provision of billeting.
Secondly, in time of emergency such as we understood an emergency and as we understand an emergency in the future, the portion of the Defence Forces we will have moving will be able, from its own equipment and its own resources, to provide for its own accommodation, and there are no circumstances I can visualise in which a substantially large force would be billeted in a rural area. As to whether, in case of an emergency, the responsible Army authorities would billet them in a town or city would be a matter for the competent military authority on the spot and I want to say nothing about it; but from our own recent experience of war close to our shores, we know that it is not in a village or town or city that large forces will be billeted, unless for the purpose of defence, in which case certain special provisions will be made. I can understand that, on active service, certain small units of the Army may have to be limited and I have made positive provision for that in the section I have read.
The subsequent sub-sections which I propose follow to some extent, or are in line with the law as it is at the moment or with the Minister's idea— that there shall be paid such sums as may be prescribed by regulations made by the Minister, with the concurrence of the Minister for Finance, in respect of such billeting; that anyone who contravenes the law shall be subject to aneven heavier penalty than the Minister proposes; and that every regulation which in fact relates to payment and ancillary matters will be laid before the Houses of the Oireachtas and may be annulled in the way provided by the Minister.
The substantial difference between what the Minister proposes and what I propose is that I propose to limit billeting to active service, to provide specifically in the Act that it is the law that a citizen will be bound to billet a soldier, officer or horse when the Defence Forces or part of the Defence Forces are on active service, and on active service alone; whereas the Minister proposes that every citizen can be obliged to billet the Defence Forces when the Defence Forces are mobilised in a period of emergency, and a period of emergency is capable of a very wide interpretation under the Act.
It is of considerable importance that in regard to laws which impose penalties on our citizens, we should make these positive laws here and should not allow them to be made by regulations prescribed by the Minister. I see no necessity for that at all and I see no necessity for quite a number of the provisions in relation to billeting, in view of modern advancement. For that reason, I ask the Minister to accept this amendment and to agree to the insertion of this new section.