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((Use dmy dates|date=June 2014))
((Use British English|date=June 2014))
((refimprove|date=May 2015))
The '''Napier Commission''', officially the '''Royal Commission of Inquiry into the Condition of Crofters and Cottars in the Highlands and Islands''' was a [[royal commission]] and [[public inquiry]] into the condition of [[crofter]]s and [[cottar]]s in the [[Highlands and Islands area|Highlands and Islands]] of [[Scotland]].

The commission was appointed in 1883, with [[Francis Napier, 10th Lord Napier]], as its chairman, under [[William Ewart Gladstone|William Gladstone]]'s [[Liberal Party (UK)|Liberal]] [[government]] of the United Kingdom. The [[Royal Commission]] had five other members and published its report, the ''Report of Her Majesty's Commissioners of Inquiry Into the Condition of the Crofters and Cottars in the Highlands and Islands of Scotland'', in 1884. The other members were:
 
* [[Donald Cameron, 24th Lochiel|Sir Donald Cameron]] of Lochiel, [[Conservative Party (UK)|Conservative]] [[Member of Parliament|Member of Parliament (MP)]] for [[Inverness-shire (UK Parliament constituency)|Inverness-shire]]
* [[Sir Kenneth Mackenzie, 6th Baronet|Sir Kenneth Mackenzie]] of [[Gairloch]]
* [[Charles Fraser-Mackintosh]], MP for [[Inverness Burghs]]
* [[Alexander Nicolson]], [[Sheriff]] of [[Kirkcudbright]]
* Professor [[Donald MacKinnon (Celtic scholar)|Donald MacKinnon]], first occupant of the [[Chair of Celtic (Edinburgh)|Chair of Celtic]], the [[University of Edinburgh]].

==Historical context==
The Commission was a response to crofter and cottar agitation in the [[Scottish Highlands|Highlands]] of [[Scotland]]. The agitation was about excessively high [[Renting|rent]]s, lack of security of [[tenure]] and deprivation of [[de facto]] rights of access to land. It took the form of [[rent strike]]s (withholding rent payments) and what came to be known as land raids (crofter occupation of land which [[landlord]]s had given over to [[sheep]] farming and to hunting [[park]]s called [[deer]] forests). ''[[Crofters' War]]'' has been used since as a name for this agitation.

In the 1870s there had been sporadic short-lived agitations in [[Wester Ross]] and [[Isle of Lewis|Lewis]] (then both in the [[county of Ross]]). In the early 1880s agitation began in [[Isle of Skye|Skye]] (then in the [[county of Inverness]]) and there it became persistent and threatened to spread throughout the [[Hebrides]] and the Highlands. [[Police]] forces attempted to enforce what landlords believed to be their rights, but the police were severely overstretched, especially in Inverness-shire, where [[William Ivory (disambiguation)|William Ivory]] was [[Sheriff Principal]]. Agitation became therefore an issue needing the attention of central [[government]] and, eventually, Gladstone's government appointed the Napier Commission.

About three years after the Commission's appointment the [[Crofters' Holdings (Scotland) Act, 1886]] would be on the statute book. The Act was not based on the recommendations of the Commission, but the process by which the Commission collected evidence, and the Commission's report, did foster and inform the public, [[Parliament of the United Kingdom|Parliamentary]] and [[Cabinet (government)|Cabinet]] debate which led, eventually to the legislation. The legislation was based on principles accepted in the [[Landlord and Tenant (Ireland) Act 1870]] and [[Land Law (Ireland) Act 1881]], principles which Napier had implicitly rejected in 1884.

According to [[Scottish nationalist]], biographer, and historian [[John Lorne Campbell]], the Crofter's Holdings Act was nothing less than "the [[Magna Carta]] of the [[Highlands and Islands]], which conferred on the small tenants there something which the peasantry of [[Scandinavia]]n countries had known for generations, security of tenure and the right to the principle of compensation for their own improvements at the termination of tenancies. Nothing was suggested in the report, or contained in the Act, to restrict [[absentee landlord]]ism or limit the amount of land any one individual might own in Scotland, but for the moment a great advantage has been secured."<ref> Frederick G. Rea (1997), ''A School in South Uist: Reminiscences of a Hebridean Scoolmaster, 1890-1913'', edited and with an introduction by John Lorne Campbell, [[Birlinn Limited]]. Page ''xviii''.</ref>.

==The Commission==

Appointments to the Commission were made by the [[Home Secretary]], [[William Vernon Harcourt (politician)|Sir William Harcourt]]. In Napier himself the Commission had an [[amateur]] [[History|historian]] and [[Anthropology|anthropologist]]. In Nicolson and Mackinnon it had two members with good knowledge of [[Scottish Gaelic language|Gaelic]]. Cameron and MacKenzie were obviously landlords,<ref>It seems probable that all members of the Commission (not least Napier) were either landlords or heirs to landlords, within the Highlands or elsewhere.</ref> and Fraser-Mackintosh was an [[antiquarian]] who, as an MP, had made himself known as someone who was sympathetic to the crofters' cause. 

The terms ''crofter'', ''cottar'' and ''Highlands and Islands'' all lacked clear definition, and the Commission was left to use its own judgement as when, where and from whom to take evidence. Napier was reluctant to include [[Caithness]], which he regarded as '"not inhabited by the Celtic race".<ref>The rhetoric of the [[Highland Land League]] relied on a perception of the behaviour of landlords as an assault on a [[Gaels|Gaelic]] or [[Celt]]ic way of life, with clear parallels with events in Ireland. Caithness has no real history of Gaelic-speaking landlords or [[clan]] chieftains, but in the 1880s many croft tenants were still Gaelic-speaking, in the western parishes. (The 3rd volume of [[William Forbes Skene]]'s ''Celtic Scotland: A History of Ancient Alban'' had been published in 1880. [[Alexander Mackenzie (historian)|Alexander MacKenzie]]'s ''History of the Highland Clearances'' was published in 1883.)</ref> The Commission was aware however that the government wanted a fairly early report, rather than an exhaustive inquiry, in the hope that this itself would help to quell crofter agitation.

The Commission began its work in the Hebrides, where rent strikes and land raids were most prevalent. It took evidence from crofters, landlords and others, and it moved on to tour much of what is now regarded as the [[Highlands and Islands area]]. Evidence from crofters exhibited remarkably consistent rhetoric, and there were accusations of coaching from the [[Highland Land League]]. Equally there were accusations that any crofter daring to give evidence risked being singled out for reprisals from landlords.

==Napier's report==

The Commission was far from unanimous in its report. Many of the recommendations were those of Napier alone. For tenants whose holdings had rental values of more than [[Pound sterling|£]]6 a year he proposed security of tenure in 30-year ''improving leases''  and ''township organisation''. For tenants whose holdings fell below the £6-a-year threshold he recommended voluntary assisted [[emigration]]. ''Improving lease'' means a lease which includes a programme of improvement for the holding. ''Townships'' were conceived as re-establishing communal management of grazing land.

Publication of the report did bring some calm to the situation in the Highlands, but this was very short lived.

==References==
((reflist))

== Related Articles ==
[[Crofting]]

[[Crofters Holdings (Scotland) Act 1886]]

==External links==
*[https://www.uhi.ac.uk/en/research-enterprise/cultural/centre-for-history/research/the-napier-commission/ Napier Commission documents] at the Centre for History, University of the Highlands and Islands.

((Agriculture in the United Kingdom))

[[Category:Crofting]]
[[Category:History of human rights]]
[[Category:Public inquiries in Scotland]]
[[Category:British Royal Commissions]]
[[Category:1880s in the United Kingdom]]
[[Category:1884 in Scotland]]
[[Category:1883 establishments in Scotland]]

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