310 MODEEN PKOBLEMS 



the development of the most healthy social conditions. It is 

 a matter of doubt whether such agglomerations of population are 

 or will remain necessary even if the total population of the country 

 was to increase. There are two considerations which are relevant 

 here. First it may be objected that in spite of the high average 

 density of population in this and other countries, it is still easy 

 to find large areas which are sparsely populated, and that their 

 existence shows that there can be as yet no question of over- 

 crowding beyond what is the socially desirable limit. But it must 

 be remembered that the great mass of the population scarcely 

 ever moves out of the densely populated areas, and that if they 

 attempted to get out into the country, if only for holidays as 

 with increased leisure and higher incomes they will soon attempt 

 to do there would soon be little left of the solitude which can 

 now be easily found. 



The other consideration that is very relevant in this connexion 

 is the average income per head. ' Before the war ', says Professor 

 Bowley, ' the home income would not have yielded more than 

 230 gross annually per family of five, or 170 net after all rates 

 and taxes were paid and an adequate sum invested in home 

 industries.' x No one can regard this position as satisfactory. 

 On all hands it is agreed that it must be increased even by those 

 who with justice insist upon the fact that any general improve- 

 ment must be accompanied by a decrease in the emphasis now 

 laid upon material comfort. Income can, of course, be increased 

 without increasing population, but probably it cannot be in- 

 creased so fast. 



3. There are at least two other points of view from which the 

 density desirable may be considered. England, for instance, is 

 in a peculiar position with regard to her food-supply, a fraction 

 only of which is produced in the country while the rest is im- 

 ported. Only by this method can England maintain her present 

 population. How far in the case of war, or in a lesser degree 

 in the case of social or economic disturbances elsewhere, such 

 a position is compatible with national safety is certainly a matter 

 for careful consideration. It seems scarcely likely that the 

 decision would ever be taken to limit population on this accout 

 alone in view of the economic sacrifices which it would entail. 



In addition to treating the question as it affects safety in the 



1 Bowley, Division of the Product of Industry, p. 49. 



