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Edited by
Anwar Shah
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Preface
v
Acknowledgements
This project took a long time from inception to fruition. The editor is
grateful to the authors for their patience and perseverance. Hopefully,
their patience will be rewarded by the potential impact of this book in
fostering the better design of public policies and programs globally to
advance the public interest.
vii
Contents
1 Introduction 1
Anwar Shah
ix
x Contents
Author Index401
Subject Index405
List of Figures
xi
xii List of Figures
xiii
xiv List of Tables
xv
Notes on Contributors
xvii
xviii NOTES ON CONTRIBUTORS
Introduction
Anwar Shah
A. Shah (*)
Governance Studies, Brookings Institution, Washington, DC, USA
analyzes the causal links between interventions and outcomes. So, instead
of passing a summative judgment on whether a program succeeded or
failed in achieving its objectives, the theory-based evaluation shows why it
succeeded or failed. Thus, it contributes to the development of more
effective programs in the future.
The authors argue that evaluation is different from other social research
in the sense that it derives its questions from policymakers, program spon-
sors, program managers, and stakeholders. So, the applicability of any spe-
cific evaluation method depends on the questions that the evaluator has
been asked to address. When the evaluation question is deciding upon
alternative interventions aimed at producing similar effects, cost-
effectiveness analysis might be more suitable. But it is not useful at all
when the problem is prioritizing among different programs addressing
different problems. A cost-benefit analysis will be more appropriate in that
case. Similarly, data envelopment analysis might not have the valuation
problems associated with the cost-benefit or cost-effectiveness analysis.
But its applicability is limited to comparing efficiencies of similar programs
only. For programs whose efficacies have already been established, multi-
ple objective evaluations might be enough for performance evaluations.
However, for pilot studies or for programs that have not been tested
before, a theory-based evaluation is much more desirable. But it is also
more time consuming and more expensive than any other evaluation
methods. So, the choice of the evaluation method would also depend
upon the availability of time and resources.
Chapter 3 by Robin Boadway summarizes the principles used to evalu-
ate projects (such as individual investment projects, general expenditure
programs, and the implementation of government policies) from an eco-
nomic point of view. Following the principles of welfare economics, the
objective of project evaluation is to measure the costs and benefits to indi-
viduals in society. The chapter begins with some theoretical perspectives
on cost-benefit analysis and then proceeds to discuss the difficulties of
implementing such an analysis and practical ways of dealing with these
problems. He describes project evaluation as “an art, though one with
scientific underpinnings.”
Broadly, the measurement of costs and benefits amounts to a measure-
ment of individuals’ “willingness to pay.” Two methods that have been
developed in the theoretical literature are “compensating variation” and
“equivalent variation,” depending on whether one wishes to use final or
initial prices (respectively) for goods affected by the project. In addition,
4 A. SHAH
one must consider that projects that have costs and benefits spread over
time must use a common set of prices to adjust for inflation and the time
value of money. Policymakers may also wish to add distributive weights—
in other words weighting more heavily improvements in the incomes of
the poorest. Once the discounted stream of costs and benefits is summed
(yielding the Net Present Value, or NPV), the decision rule for project
approval is simply determined by a (positive) sign of the NPV. Finally, the
risk and uncertainty of outcomes should also be included. Other, similar
techniques for project evaluation include the benefit-cost ratio and the
internal rate of return methods. However, these alternative measures have
some problems and may rank projects differently than the NPV criterion.
While the NPV method is in principle the same as is used by the private
sector to guide the choice of investment decisions, the implementation of
this procedure differs in some important ways when applied to the public
sector. This is because the public sector must take into consideration: the
marginal social values or shadow prices (rather than just market prices,
since markets may be distorted) of inputs including labor, capital, and
foreign exchange, and the impact of externalities such as pollution, gen-
eral equilibrium effects of the project, valuation of intangible benefits and
costs (such as time saved due to public transport), excess burden of public
financing (due to distortions of the tax system—the so-called marginal
cost of public funds, or MCF), the social discount rate, and social consid-
erations (such as equity or protection of special groups). Each of these
issues is considered in turn in this chapter.
Chapter 4 by Bev Dahlby probes more deeply into an evaluation tool
that received brief treatment in Chaps. 1 and 2—the Marginal Cost of
Public Funds (MCF), or the loss to consumers and producers caused by
raising an additional dollar of tax revenue. Taxes impose a cost on the
economy if they alter taxpayers’ consumption, production, and asset allo-
cation decisions, leading to a less-efficient allocation of resources. Raising
an additional dollar of tax revenue costs the private sector more than a
dollar if the allocation of resources in the economy becomes more dis-
torted. The marginal cost of public funds, MCF, is a measure of the cost
imposed on the private sector in raising an additional dollar of tax revenue.
Dahlby argues that the marginal cost of public funds should be used in
evaluating the opportunity cost of financing public sector expenditures. It
also provides a guide for tax reform by revealing which taxes impose the
greatest welfare losses in generating additional revenues. The MCF can
1 INTRODUCTION 5
also be used to measure the gains from tax reforms that shift the burden
from the high-cost tax bases to ones with lower costs.
In this chapter, Dahlby introduces the concept of the marginal cost of
public funds (MCF), examples of how the MCFs can be measured, and
examples of how they can be applied to guide tax reform and public
expenditure policies. In keeping with the theme of this volume, the
emphasis is on using the MCF as a tool for public policy analysis. Two
practical examples demonstrate the use of this evaluation tool in public
policy analysis and evaluation. The first is an assessment of the gains from
a tax reform that shifts some of the tax burdens from corporate to the
personal income tax base in Alberta, Canada. The second example illus-
trates how the MCF can be used to derive optimal matching rates for
intergovernmental infrastructure grants in a federation. In presenting
these applications, the author makes a convincing case of the critical
importance of the MCF as a tool for the evaluation of tax and expenditure
policies.
Theory-based evaluation traces the factors that contributed to a specific
outcome for the project. This a challenging task for project evaluation as
it requires establishing a causal chain based upon theoretical consider-
ations and analyzing data on various links in this causal chain. Ewa
Tomaszewska in Chap. 5 provides a guidebook for those interested in
conducting case studies in project evaluation determining the impact of
various projects in combating corruption. The author provides a concep-
tual framework and data requirements for such evaluation case studies for
privation programs, judicial and legal reforms, civil service reforms, trade
liberalization, tax administration reforms, and direct anticorruption activi-
ties (anti-corruption agencies), the Office of Ombudsman, transparency
rules and decentralization.
The impact of corruption on public service delivery performance and
poverty alleviation is widely recognized. A wide consensus has also recently
emerged that corruption is a symptom of failed governance and hence
curtailing corruption requires addressing the causes of misgovernance.
Nevertheless, the menu of potential actions to curtail corruption is very
large so a framework is needed that provides guidance on ordering poten-
tial actions. Prioritization of various actions depends on both the concep-
tual and empirical views of what works and what does not work in the
context of particular countries. Such a framework is also needed for evalu-
ating country anti-corruption programs and policies. Chapter 6 by Huther
and Shah proposes a framework for such evaluations. The chapter
6 A. SHAH
Reference
Williams, Alan, and Emilio Giardina. 1993. Efficiency in the Public Sector: The
Theory and Practice of Cost-Benefit Analysis. Brookfield: Edward Elgar.
CHAPTER 2
Introduction
Program evaluation has undergone major changes over the years at both a
conceptual and a functional level. It has transformed from a tool designed
mainly to assess the efficient allocation of resources to a full-grown disci-
pline concerned with the all-round development of a program. The mul-
titude of social and economic problems and the constraint on available
resources require prioritization among both problems and programs
directed at addressing those problems. As a result, assessment of the cost
efficiency of public interventions still occupies a prominent role in evalua-
tion research. However, a heightened awareness of the potentials and per-
ils of public problems both at the national and international arena and the
need for proactive measures have brought forth issues like efficacy and
accountability in the parlance of program evaluation. Consequently, evalu-
ation as a discipline has transgressed from providing answers to questions
like economic viability and efficiency to questions that are critical for effec-
tive planning, design, implementation, and success of a program. Today
evaluation can provide valuable assistance in defining a problem,
S. Deb (*)
Kolkata, India
A. Shah
Governance Studies, Brookings Institution, Washington, DC, USA
Cost-Benefit Analysis
Cost-benefit analysis is one of the earliest methods of program evaluation.
It analyzes the economic viability of programs by comparing their total
benefits with the total costs. When resources are limited and different
programs need to be pitted against one another for allocation of funds,
cost-benefit analysis can be used for prioritization of programs based on
their net worth.
2 A PRIMER ON PUBLIC SECTOR EVALUATIONS 13
could have been earned through alternative investment of the funds). For
public programs, the interest rate on government borrowing can be used
for discounting future benefits and costs. However, if public investment
displaces private investment, such an interest rate will not reflect the true
opportunity cost of capital. In that case, the appropriate discount rate
should be the social opportunity cost rate. The social opportunity cost rate
is the return on private sector investment that has been displaced by the
public project. Another alternative is to use the social time preference rate.
It represents society’s preference between current and future consump-
tion. Social time preference rate is the required additional future con-
sumption that is necessary to compensate for the loss of one unit of present
consumption. Unfortunately, there is no authoritative way of choosing a
discount rate. But the outcome of the cost-benefit analysis crucially
depends on the choice of the discount rate. A lower discount rate puts
relatively more emphasis on future costs and benefits whereas a higher
discount rate puts more emphasis on short-term benefits and costs.
Accordingly, as the discount rate increases, the net present value of a proj-
ect decreases. So, depending on the choice of the discount rate, the net
present value of a project can be positive or negative, thereby making or
breaking the project. A sensitivity analysis (i.e., repeating the same cost-
benefit analysis for different discount rates) is required for checking the
robustness of results. Alternatively, the internal rate of return (IRR) of a
project can be reported. IRR is the discount rate at which the net present
value of a program is zero. So, it gives the decision makers a measure of
risk associated with the project. However, IRR is not a criterion for pro-
gram selection.
Another important aspect of cost-benefit analysis is the estimation and
valuation of social benefits and costs. The analysis involves the estimation
of incremental benefits and incremental costs that can be assigned solely to
the project. So it is important to construct the counterfactual, i.e., what
would happen or would have happened without the project. Incremental
values can then be calculated by comparing the benefits and costs with and
without the project. In ex post analysis, the problem is constructing the
counterfactual. For ex ante analysis, the problem is not only constructing
the counterfactual but also forecasting the expected benefits and costs of
the project. So, there is a certain amount of uncertainty involved in the
estimation of benefits and costs. Once the benefits and costs have been
estimated, the next step is to assign monetary values by using prices that
would reflect their true opportunity costs. When markets are perfectly
2 A PRIMER ON PUBLIC SECTOR EVALUATIONS 15
Cost-Effectiveness Analysis
Cost-benefit analyses of many public programs are often viewed with skep-
ticism due to the inherent difficulty and subjectivity involved in monetary
valuation of outcomes for which market prices seldom exist. But such
valuations of program outcomes are redundant and can be avoided when
the decision problem is to choose among alternative programs to attain
similar goals. Cost-effectiveness analysis (CEA) can provide useful infor-
mation on cost efficiency of those alternatives. In programs where it is
difficult, if not impossible, to assign a monetary value to the program
objectives, like the benefits of saving a life or raising the educational
achievement levels of students, cost-effectiveness analysis can help the
decision makers in making judicious allocation of resources. As a result, it
has been used extensively for evaluations of health, educational, and envi-
ronmental programs.
The basic purpose of cost-effectiveness analysis is to identify programs
that can attain specific objectives at the lowest cost (Levin 1983). The
analysis involves identification of the alternatives, an estimation of their
costs, and an assessment of their effectiveness. Cost estimation takes into
account both the direct and indirect costs of the intervention. While direct
costs are the costs of inputs, like personnel, equipment, materials, utilities,
etc., indirect costs are the externalities or ‘spillover’ effects associated with
the intervention and should be included in the cost calculation. Many
programs use volunteers and other donated resources. The cost of these
resources would typically be omitted in normal cost accounting. But they
do represent a cost from the society’s perspective. So the appropriate
notion of cost to use is the opportunity cost, which would reflect the true
cost of a resource to the society. When markets are functioning efficiently,
market prices reflect the opportunity cost and, hence, should be used for
cost calculation. If market prices are not available, appropriate proxies
need to be used (Levin 1983).
The cost-effectiveness of a program is measured using either the cost-
effectiveness ratio or the incremental cost-effectiveness ratio (ICER).
Cost-effectiveness ratio is the ratio of the cost of a program to the effects
produced. For independent programs, programs that can be implemented
simultaneously, cost-effectiveness ratios for each of the alternatives are cal-
culated and ranked in ascending order. The project with the lowest cost-
effectiveness ratio is the most cost efficient and gets the highest priority.
For example, if the program objective is to increase the life expectancy of
2 A PRIMER ON PUBLIC SECTOR EVALUATIONS 17
compared with their respective reference efficient units or the virtual units
to determine their relative efficiency.
So for each organizational unit, the central problem in DEA is to iden-
tify the best-practicing unit or the best ‘virtual producer’ with which it is
to be compared. This can be formulated as a linear programming prob-
lem. The solution to the linear programming problem determines the
weights, and the relative technical efficiency is calculated as a ratio of the
weighted sum of outputs to the weighted sum of inputs. The DEA assigns
the weight in such a manner so that the maximum weight is placed on the
favorable variables and the minimum weight is placed on the variable
where the unit compares unfavorably. In other words, the weights are
chosen in a way that gives the evaluation unit the maximum relative effi-
ciency score.
Apart from identifying inefficient units, DEA can also identify the
sources and level of inefficiency for each of the inputs and outputs and can
assign targets so as to maximize output. So it can be used for identification
of improvement priorities.
One of the main advantages of DEA is the non-parametric nature of the
analysis. It doesn’t require the specification of any functional form. In
parametric approach like regression analysis, a pre-specified production
function relating inputs to outputs is estimated using the data. The esti-
mated regression equation applies to all the organizational units. DEA in
contrast optimizes on each organizational unit. So, in DEA the focus is on
each evaluation unit and how it compares to a reference unit rather than
the entire population average. DEA also avoids the usual valuation prob-
lems associated with cost-benefit and cost-effectiveness analysis. It can
handle multiple inputs and multiple outputs and it does not require the
inputs and outputs to have the same unit of measurement. DEA over-
comes another shortcoming of cost-benefit and cost-effectiveness analysis.
It can incorporate exogenous factors in evaluation (Banker and Morey
1986a). This is done by treating these variables either as inputs or outputs.
It can also handle categorical variables (Banker and Morey 1986b).
As an evaluation method, DEA can be used for identification of ineffi-
cient units, reallocation of resources for efficient utilization, and also for
setting targets for inefficient units to improve performance (Kittelsen and
Førsund 1992; Tulkens 1993). For multi-criteria evaluation, i.e., when
the observational units are evaluated based on multiple criteria, DEA can
also be used to aggregate these criteria to construct a single index of
performance.
2 A PRIMER ON PUBLIC SECTOR EVALUATIONS 21
However, the main problem with DEA is that it relies on the authentic-
ity of the data. It uses the extreme point method to estimate the efficiency
frontier. So, any error in the data can create significant problems. For
example, the presence of outliers in the sample can have a significant effect
on forming the frontier and can jeopardize the relative efficiency estima-
tions. Moreover, DEA estimates the relative efficiency, efficiency relative
to the best-practice units. But the best-practice units can themselves be
inefficient. Since the efficiency estimates are bounded within zero and
one, DEA cannot capture the differences among organizational units with
an efficiency score of one.
Diagnostic Evaluation
A program conceived at a political, community, or administrative level
contains in it a broad definition of the problem and a list of goals that are
equally broad in nature. However, the planning, implementation, and
evaluation of a program require much more precise and operational defini-
tions that are clear, measurable, economical, and adequate. One of the
main purposes of diagnostic evaluation is to identify and define the prob-
lem. A usable definition is important for understanding the prevalence and
the magnitude of the problem, identification of the target groups and
their specific needs, and the design of interventions to meet the require-
ments of the program targets. For example, in a poverty alleviation pro-
gram, the identification of people who are in need of assistance requires a
definition of poverty. Poverty can be defined either in terms of annual
household income or daily calorie intake. Once the thresholds on income
or calorie intakes are established, only then is it possible to identify the
target population. It is the group that falls below the threshold. So thresh-
olds or boundaries are rules determining the eligibility to participate in a
program. If the rules are too stringent, the target population might shrink
to the level of non-existence. If the rules are too lax, the target population
might be too large and too diverse to design any effective intervention
strategy, and the program might become prohibitively expensive. Target
definitions should also be feasible to apply based on observable and mea-
surable characteristics for which data are readily available (Rossi and
Freeman 1993).
It is also important to collect information on the magnitude of the
problem and the geographic distribution of the target population.
Understanding the magnitude of the problem is necessary because target
populations are hardly homogenous in terms of their degree of depriva-
tions. A family that goes without food for several days at a stretch and a
family that eats one meal a day might be both eligible in a poverty allevia-
tion program. But their needs are very different and accordingly they
might require very different types of assistance. Moreover, in programs
where funds are insufficient to cover the entire target population, such
characterization based on need helps to identify the groups who are the
worst affected. Information on geographical distribution is important for
feasibility of the program and the subsequent outcome evaluations. If the
target population is sparsely located across a geographic region, it might
be difficult and expensive to administer an effective program. And if the
target group becomes too small, it might be impossible to do any outcome
24 S. DEB AND A. SHAH
Process Evaluation
The main objective of process evaluation is to provide a systematic assess-
ment of program performance to facilitate progress towards achievement
of program objectives. The focus of traditional monitoring of programs is
concerned with the assessment of inputs, activities, and outputs. A process
evaluation, in contrast, is an evaluation strategy that tries to ensure that
the activities and outputs contribute to the achievement of program objec-
tives. So, a process evaluation is an integral part of a result-based monitor-
ing system. It provides crucial information on program coverage, quality,
and propriety of interventions and effectiveness of the interventions in
producing the desired effects. So it constitutes a feedback mechanism that
promotes informed decision making, better decision making, improved
performance, and greater accountability.
The success of a program depends on its ability to reach the appropriate
targets and the degree to which the targets actually participate in a pro-
gram. Program coverage measures the extent of actual target participation
in comparison to the desired level. Since the effectiveness and approval of
a program depends on its coverage, the objective of any program is to
maximize coverage given its budget constraint. Two related concepts in
this regard are under-coverage and over-coverage. Under-coverage of a
program can be measured as the ratio of the number served who are in
need of the program to total number in need. Over-coverage is the ratio
of the number served who are not in need of the program to the total
number served. The difference between these two ratios indicates a pro-
gram’s coverage efficiency. The higher a program’s coverage efficiency, the
more successful the program is in reaching its desired targets. So, coverage
26 S. DEB AND A. SHAH
Outcome Evaluation
Outcome evaluations study the effectiveness of programs in delivering the
program objectives, which can be both short term and long term. Since
process evaluation includes evaluations of program based on short-term
objectives (the interim markers of progress), outcome evaluations can be
used for both formative and summative evaluations.
The basic idea of an outcome evaluation is to study the net effect of an
intervention on participants or beneficiaries in terms of the outcome vari-
ables. The net effect refers to the changes in the outcome measures that
can be attributed solely to the intervention. In other words, it is the dif-
ference between the outcome measures after participation in the program
and the counterfactual, the outcome measures that would have been
observed had they not participated in the program. This is not the same as
differences in outcome measures before and after participation in the pro-
gram because there might be many other factors or events apart from the
program treatments which might directly or indirectly influence the out-
comes. The objective of an outcome evaluation is to establish causality
between the treatments offered and the outcomes produced by filtering
out the effects produced by all these external factors.
The prerequisite for any outcome assessment is to establish a set of
well-defined outcome measures and to recognize the factors apart from
the treatments that might influence these outcomes. The credibility of an
28 S. DEB AND A. SHAH
"I don't feel the cold," said Luke. "We certainly must make a difference
somehow. Discuss it with mother and see if she can't help. She knows we are
rather in low water."
"I don't see how we can give away so much as you do Luke," said Rachel.
"We really could not afford that £5 that you gave for the heating of the Church
for instance."
"I have always somehow managed to do my part in that way," he said. "I can't
bear not setting an example in giving."
"No, it's horrid," said Rachel. And yet she felt strongly, that if by giving away
money he was deprived of his much needed yearly holiday the work itself
would suffer.
After he had gone, the subject that had caused their talk and had brought to
light their poverty forced itself again upon her.
No holiday! All the summer in this tiny stuffy little house away from the flowers
and the breezy wind. How could she bear it herself, and still more how could
Luke go on working all day and the greater part of the evening in the terrible
heat, which was making her feel giddy and faint already.
She hurried into the drawing-room which was without sun and threw the
window open. Then she looked for her weekly bill books and sat down to
examine them. She saw they were higher than she supposed they ought to
be, but she did not see how she could economise with a man in the house. If it
were only herself and Polly they could do on less; but Luke, though he might
not notice that he was having less would soon reap the consequence and feel
limp.
Rachel leant her arms on the bureau and her chin on the palms of her hands
and gazed out Of the window. How could they manage to get away for a week
if no longer?
Rachel began to think over her belongings and wondered if she could not sell
some of her wedding presents. There was the pearl necklace that an uncle
who was dead had given her. It was of little use to her now, and in her present
mood she felt that a breath of sea air would compensate for the loss of any
number of pearls.
Yes, she would certainly sell her pearls. She wondered if the day would come
when she would be reduced to selling many of her possessions. It looked like
it. It was a terrible shame that livings should be so small that the very
necessities of life should have to be done without. Well anyhow she would sell
her pearls and not tell Luke till it was done. She would get a cousin of hers to
do the transaction for her. She knew she might be cheated and it would be no
good for Luke to try and sell them. He was no business man and would
without doubt be contented with half their value. No, she would write to her
cousin. They simply must go away somewhere this summer.
She wrote the letter to her cousin and got Polly to run round to the post with it.
Then she began to wonder if she ought not to do what Luke had suggested;
ask the advice of Mrs. Greville. But she was saved the trouble, for late in the
morning her mother-in-law came round to see her.
"Luke tells me you are rather worried about the expenses," she said, "and I
am wondering if I can help you. Shall I look through your books and see what
you could do without?" and as she saw Rachel flush she added, "It is not at all
surprising my dear. Of course you have never been used to economise. I
hope you don't me an interfering old woman," she added kindly, as she saw
signs of distress on Rachel's face.
"It's very good of you," said Rachel; but she bit her lip feeling humiliated in the
extreme.
Mrs. Greville was not long in discovering things which would have to be done
without. For instance, she explained to Rachel she could make quite nice
puddings without eggs. Considering the expense of eggs, 4d each, it was
ruinous to follow the cookery books which prescribed more than one in quite
simple puddings. A great deal of money had been thrown away on
unnecessary eggs and they mounted up at once. Then it was much better in
these days to have margarine rather than butter. She never used anything but
margarine herself, and really you would not know the difference.
Rachel sat by her side smiling. Not being a housekeeper all these economies
seemed so paltry to her, and yet she knew they were necessary. She had of
her own will married a poor clergyman, and must bear the consequences. And
Mrs. Greville was being very kind; and giving as little pain as possible. Her
feelings towards Rachel had somewhat changed since that Sunday on which
she had gathered the girls' choir together. It had struck her mother-in-law as a
sporting action on her part and had pleased her. And now, for the sake of her
son, she was very anxious not to hurt his wife's sensitive spirit more than
necessary, but she had no idea how galling the whole thing was to her pride.
And Rachel was bent on her not guessing it. So she sat by her side smiling,
and watching her mother-in-law making notes for her as to the things that
were really necessary to have and those which were mere luxuries.
"I fear you must give up all luxuries, I hope Luke told you how poor he is,
when he asked you to share his poverty with him?" she said laughing. Rachel
joined in the laugh.
"We had much more interesting things to talk about," she answered. "Luke's
mind does not run on such matters as eggs and margarine."
"That's true," said Mrs. Greville. "The fact is, that some of the poorest people
are the clergy. It ought not to be so. They should not have to worry about eggs
and margarine as you say, they have so much more important things to think
of and they should be spared that. Besides they are expected to help in every
bit of work that goes on in the parish. Unless they have property of their own
the worry of pounds, shillings, and pence, weighs them down. Happily, as you
say, Luke does not worry himself about those kind of things, but then he has a
wife and mother to worry for him. If he had not he would have less time and
strength to think of his people. I don't suppose many realise how the clergy
suffer from poverty, for they suffer in silence."
"Well I hope Luke won't ever be reduced to wearing a coat green from age, as
a poor man in our part of the world at home has to do. Not that I suppose
Luke would notice if his coat were all colours of the rainbow."
Mrs. Greville laughed, and said goodbye while at the door she turned back to
say:
"Remember, not so many eggs, and margarine instead of butter. You'll find
that makes a difference very soon."
CHAPTER XV.
RACHEL'S PEARLS.
Rachel took out her pearls from the jewel box and looked at them. They were
certainly very beautiful. She had not worn them since her wedding day; and
she did not see any chance of wearing them again.
In case the parting with them should grow a little hard she packed them up
quickly and went to the post to register them.
It seemed to her as if she was parting with another link of the old life. But after
all what did that matter! She had Luke; and it was true what Gwen had said,
that Luke compensated for the loss of all else. Besides which, she knew that
they both needed a change and rest, and certainly sea breezes were of more
value just then than pearls locked up in her jewel case could be. Nevertheless
it cost her something to part with their beauty. It was not so much their value
that she had thought of as their beauty; and more than once she had taken
them out simply to have the pleasure of seeing something very lovely. There
was so little beauty surrounding her that she revelled in the sight of her pearls.
RACHEL TOOK OUT HER PEARLS—AND LOOKED AT THEM.
It was some time before the cousin, to whom she had sent them, wrote and
told her that he believed they would fetch a very good price; and one morning
at breakfast she opened a letter that was lying on the table beside her, and a
cheque, much larger than she had hoped for, fell out.
Her exclamation of surprise and pleasure caused Luke to look up from the
paper he was reading.
"Something delightful," she answered. "We can now go for our holiday."
Money meant little to Luke, except that it enabled him to carry out plans on
which he had set his heart. And there was a plan of his that sprang at once
into his mind as he looked at the cheque. His face glowed.
"I did not know you had any, I have never seen them."
"I have never shown them to you as I know that that kind of thing is not in your
line, you don't care for jewels; but I wore them on my wedding day. I hope you
saw them then."
"No, I only saw you. But why didn't you tell me what you were doing?"
"Because I was afraid you would not let me part with them. Uncle Joe gave
them to me, and I was fond of him."
"I shouldn't have prevented you from parting with them. What is the good of
pearls?"
"The good! Why their beauty is their good. They are gifts from God just as
everything else is that is lovely, and of good report. Don't despise them.
Besides," she said, feeling a little sore, "Uncle Joe gave them to me, and I
loved him." Then she added, determined not to give way to any feeling of
disappointment, "and now we can think about our holiday. Where shall we
go?"
She was folding the cheque up and putting it again in the envelope of her
letter. But on noticing that Luke did not answer her question, she glanced up
and found him looking out of the window with a dreamy happy smile on his
face. He was evidently thinking of the holiday. Perhaps his thoughts had flown
to Southwold and the moon's silver pathway on the sea. The happiness
displayed in his expression of face made her feel that the small self-denial that
she had exercised was well worth while.
"I do believe," he said, still looking out of the window, "that at last my dream
will be fulfilled."
"What is your dream?" asked Rachel. She had been right. He was evidently
dreaming of Southwold.
"Why, to put electric light in St. Marks. Think how attractive and bright it would
make the place. I never thought I should be able to do it. How much do you
think it would cost?"
"You don't suppose, do you Luke, that I have sold my pearls to be able to do
for the Church what the people are far better able to afford to do than we are?
You seem to forget that we are really poor, much poorer than many of the
congregation. No, the first thing we must do," she said decidedly, "is to pay
our bills and to start afresh, and then to go for a holiday."
Rachel's tone of voice was so decided that he turned and looked at her in
surprise.
"No," she answered, "I don't think it is. To provide the luxury of electric light in
a place where the gas is quite good and sufficient, seems to me to be not so
much doing the Will of God as paying our debts, and going for a holiday,
which will give you strength to do His work better."
"Besides," she added in a lower voice and smiling, "you forget next January."
Luke looked mystified. Then noticing the expression of his wife's eyes, he
remembered.
"I forgot for the moment," he said. "You are quite right."
At the thought of January Rachel's face had lost all the surprise and
disappointment as she looked down again at the envelope containing the
cheque. Then she suddenly drew it out with a gay laugh and flourished it in his
face.
"Happily it's mine," she said, "and you can't get at it."
CHAPTER XVI.
THE CHURCH COUNCIL.
"I know you won't give way," said Rachel, as she helped her husband into his
coat.
"If you remain firm this time you will find it easier the next."
"I don't intend to give way," said Luke gravely. "It would be fatal."
"Yes, and you would never forgive yourself." Luke buttoned up his coat and
looked at his wife.
"We should hear the same excuse that that old woman gave for not attending
her Parish Church," he said smiling.
"That she had been too ill for the last half year to come to the services but she
was proud to say she had not missed a single Whist Drive."
"Oh you mustn't give way," repeated Rachel earnestly. Then she added, laying
a hand on his arm, "You know what I shall be doing."
"You will be doing the part of Moses," he said. "I am not sure that I should not
fail if it were not for that." Then he opened the door and was gone.
Rachel stood where he had left her looking absently at the door which he had
shut after him.
That the Church Councils were not always happy meetings she knew. Luke
said the right people were not on it. There were some really in earnest, but
these often seemed afraid of speaking. Those who spoke the most often and
the loudest were those who wanted to make their Church the most popular in
the town by way of parish dances, whist drives, etc. Luke, Rachel knew, had
always stood out against such methods of work, but people were growing
persistent, and the subject was to come up again this evening. His last words
had surprised her and made her anxious, for they showed her that his
resistance was growing weaker and that he felt himself in real danger of giving
way.
She knew what giving way would mean to him. It would lie on his heart like
lead. He would not look for blessing so expectantly and hopefully in his parish
if once his church began to cater for the amusement of his people instead of
putting its full strength into the spiritual work. By this time Rachel knew her
husband so well, that she felt sure that he would grow melancholy and
depressed, and his work would be robbed of zeal and happiness in
consequence.
It was not as if he had any doubts as to the wrongfulness of such methods for
Church work. He absolutely disapproved of them and had made his opinions
known. If he gave way or countenanced such proceedings, in the least,
people would cease to believe in him.
Well there was one thing she could do to help him to be strong; she would go
and do it. And while Luke was wrestling with his Church Council, Rachel was
wrestling in prayer.
When she heard it, it did not inspire her with hope. Luke came in quietly and
made his way slowly into the drawing-room where he knew he would find her.
"What good news," she said greatly relieved. "Why do you look so
melancholy?"
"Because though I have gained my point I have lost four of the most regular
members of the congregation. They walked out of the room."
"Oh well, that is not half so bad as if they had gained the victory," said Rachel
cheerfully. Then Luke looked lovingly down at his wife.
"I doubt if I should have taken such a strong attitude if it had not been for you.
I knew you were praying."
"The knowledge of that helped me enormously. The four who resigned have
been my most loyal supporters and I can tell you it was hard to stand out
against them. They have been so exceedingly kind to me ever since I have
had the church. It was this fact that made it so difficult. Besides I love peace."
"I can't tell you how thankful I am," said Rachel. And under his wife's influence
Luke regained something of his usual spirits. But Rachel had only heard
Luke's side of the question. The next day she was inundated with callers.
"I suppose you know," said Mrs. Moscombe, the wife of the owner of the
principal shop in the parish, "that the Vicar got his way by one vote only. I own
when I heard all the arguments in favour of opening the Hall for such
purposes I began to wonder if we ought not to do what the neighbouring
churches have done to attract the young people."
"I don't think that kind of thing attracts people to Church," said Rachel.
"But as my husband says," continued Mrs. Moscombe, "it saves the boys and
girls from going to worse places. Surely that is the work of the Church."
"It may save them for two or three days, possibly; but it really leads them to go
to unwise places of amusement in the long run, and I know my husband feels
very strongly that the Church loses its spiritual power if it goes in for catering
for amusements."
"But then, dear Mrs. Greville, your husband, forgive me for saying so, is rather
peculiar in his views. He scarcely moves with the times and isn't up to date as
they say."
Rachel flushed.
"The times are not so particularly good that one should wish to move with
them," she said. "I am very thankful that my husband does what he considers
right without swerving or moving with the times."
Rachel was glad to see the last of her visitor, but had hardly said goodbye
when the door opened to admit Mrs. Stone.
"Of course," she said as she took a seat, "your husband has told you all about
last night. I admired him immensely. He didn't give way an inch though the
majority were really against him."
"And he would not have had that if it had not been for me. I didn't agree with
him in the least! I must tell you, but I voted for his views as I always feel he is
such a good man that he probably knows what is for the good of his people
better than I do. If it had not been for my vote, he would himself have had to
give the casting vote."
"I am very disappointed that you don't agree with us," said Rachel.
"Well I do believe in people keeping up with the times, and girls and boys are
crazy now for dancing and cards. You can't get them if you don't give way.
Things have changed so much since our fathers' times."
Rachel was silent. She felt depressed. She quite expected people like Mrs.
Moscombe and others who had called to see her, and who did not profess to
be religious, to misunderstand Luke's action, but it was a blow to find that her
friend Mrs. Stone also disagreed with him.
"What has Luke been doing?" she exclaimed almost before she was in the
room. "I hear he has quite estranged the four best supporters of the Church."
She looked at Rachel as if she were to blame.
"It was about the amusement question," said Rachel. "He put down his foot at
the proposal to introduce them into the work of the parish."
"Well I call it remarkably silly of him. It is a matter of very little importance and
certainly not worth wrangling over. I am quite thankful I am not a member of
the Council. I could not have voted against my son, but I should have felt very
vexed at being a party to such a loss to the Church."
"You mean?"
"I mean losing his four best financial supporters, and those who give the most
to the Easter offerings. Who is he to look to now, I should like to know? And if
he only waited to consider the state of his own finances and the expense of
food, (eggs are still fourpence a piece), he would not have made such a fatal
mistake."
Rachel was silent, but she disagreed with every word her mother-in-law had
spoken. Then after a pause during which Mrs. Greville tied and untied her
bonnet strings in her agitation, she said:
"I don't suppose any consideration respecting finance would weigh with Luke
against doing what he thinks right."
"My dear, young men often make a fatal mistake in going their own way,
thinking that youth must know better than age. Think of those four gray haired
men who know more of the world than Luke, being set at nought like that. I
have never known Luke to make such a mistake. If he had only consulted me
before he had acted."
"But don't you see how noble it was of him to keep to what he felt right even
though he must have known what the result would be. I own am proud of him,
and should have been bitterly disappointed if he had given way. I am sure he
did the right thing."
Mrs. Greville looked at her son's wife and could not but admire the way she
stood up for her son's folly, (as she considered it). There was an expression
on her face that any mother-in-law would have been pleased to see on the
face of her son's wife. But for all that she felt it incumbent on her to give her a
snub.
"I daresay," she said, "that you admire him. So would most young girls who
only look for actions without weighing their cost. We all admire a man who is
not afraid to speak out. But when it comes to flouting those who have been
kind and considerate, and who never hesitate to give money for the work, it is
a different matter. Luke has done a bad thing for the parish by his action of
last night."
"People would never have believed in his convictions again if he had given
way," said Rachel.
"Well now, don't you go and encourage him in that kind of thing," said Mrs.
Greville. "I hope that you recognise the fact that Luke is not a paragon of
wisdom, neither can any one turn him from what he imagines his duty. But he
must remember that he now has a wife to support. He not only will stubbornly
stick to his point even when it means losing money for the work of the parish,
but will give away every penny he possesses without a thought of the
consequences. I daresay you have found that out."
"Luke is the most generously minded man that I have ever come across," said
Rachel.
And then Mrs. Greville gave her a kiss. She could not resist it; though she
knew that her action would startle her daughter-in-law.
"My dear," she said, "I do believe that you love that boy of mine as much as I
do."
Rachel was tempted to answer "a great deal more," but forbore, only returning
the kiss with warmth. She was getting almost fond of Mrs. Greville.
"But there are more virtues after all," was Rachel's answer, "and to return to
the subject of whist drives, it is perfectly true what Luke quoted to me from
some speech yesterday. 'The Church has so little power with the world
because the world has so much power over the Church.' Don't you agree?"
"Well perhaps it is so. But when a man's bread and butter is concerned and
when the Church funds are low, I own I feel it is not the time to be too
particular."
"I don't suppose you do; that is because Luke has imbued you with his ideas
of right and wrong."
"Luke has a very high ideal," said Rachel, "and I am trying to live up to it."
And Mrs. Greville went away thinking to herself, "I only hope that Luke
realises what a devoted wife he has. I don't believe he does."
CHAPTER XVII.
LUKE IS DISCOURAGED.
The four members who had left the Church Council when the vote went
against Whist Drives for Church purposes, did not leave the Church. They
valued their Vicar too much to do so suddenly; but they were thoroughly vexed
at the decision arrived at.
It had been a blow to Luke to find that he only had a majority of one. He had
hoped that his congregation had felt with him in the matter, and finding how
strong the stream was towards such means of increasing the popularity of the
Church, depressed him not a little.
Moreover, he felt bound, greatly against his will, to preach against such
methods and to give his reasons for so doing; and though some respected
him for his courage, there were others who resented it. To Rachel, the Sunday
on which he mentioned the matter was a most painful day; though she was
glad that Luke had spoken out on what was much on his mind.
"I am beginning to think," he said, on sitting down to dinner after the service,
"that my time in the parish is about over. It seems to me my influence for good
is not strong enough. It wants a stronger man than I am here."
"You are tired," said Rachel. "That's what is making you downhearted. Last
week was such a very heavy one for you. In a day or two you will see things
differently."
"What I should like, and in fact what I have always longed for," he said, "is a
Church in London. Though I doubt if such an honour will ever come my way. I
am not a big enough man to be trusted with a London parish."
"London!" cried Rachel. "Oh Luke, I should hate it of all things. Besides you
must be a man strong in body as well as in soul to work a London parish
satisfactorily. I should be very sorry to see you undertake such a work."
"I'm quite strong enough," said Luke. "The only things that try me are the petty
quarrels and vexations of such a parish as this. I heard this morning that Went
and Ethers have fallen out, and on a ridiculously small matter. I fancy
everything would be larger and more important in London. It is just the petty
matters that worry me."
"Human nature is the same everywhere. I expect you would find small souls in
a London parish just as you do here."
"Would you very much object to London?" asked Luke. "Not that there is the
slightest chance of me being offered a Church there. But it is the dream of my
life. Fancy working in the very hub of the Universe. I should revel in it."
"The work would be enormous, unless you had several curates. And you know
how difficult they are to find now-a-days."
"I shouldn't mind the work. The more the better, so long as it is not spoilt by
bickerings and quarrellings. Should you very much dislike it?"
"Intensely. I don't feel in my present mood, as if I could endure it." Then seeing
a look of disappointment on her husband's face, she added, "But where thou
goest I will go, you know that."
And his longing for London increased during the next few months. It was a
time of great disappointment for him. When he had first come to Trowsby, he
had had the warmest of welcomes, and the largest congregation in the place.
His preaching was arresting and people congratulated themselves on having
such a Vicar. He had come straight from France where he had been acting as
Chaplain, and had there shown great bravery under fire. Many came to hear
him just because of this. But when the rage for amusements began to show
itself, and it was found that the Vicar had no sympathy with it, and had no new
Gospel to preach, but preached the same Gospel as they had heard before
the war, untouched with modernism and the various other new religious
theories, the congregation that had increased out of curiosity gradually
dwindled, for they said, "He's not up to date." It was disheartening for Luke,
specially as he heard that a Church not very far off was crowded to
overflowing on account of all the social questions that were discussed during
the sermons, and well-known lecturers on the various religions came down
from London, Sunday after Sunday, to preach.
"Nevertheless," he said one day to his wife, "I shall continue to preach the
Gospel; and by-the-bye Rachel, I must somehow get three days of quiet at
least, for some of the men's Bible Class want to discuss those questions
which have been raised by the Modern Churchmen's Conference; and I must
prepare for the discussion. But I really don't see how I can manage it. I am
late as it is with the Parish Magazine."
Rachel was laying the table for dinner at the time and looked up quickly at her
husband.
"Pass that over to me," she said.
Rachel laughed.
"Certainly I could. I am a little more intelligent than you give me credit for.
Have all the people sent in their accounts?"
"No, that's just it. Sargent has never sent in his description of the Temperance
Meeting, nor has Mrs. Lent of the Scripture Union Meeting. They are so often
late. It means a good long walk as there is no time to send them cards to
remind them of their duty. The manuscript ought to go in early to-morrow
morning to the printer or the magazine will not be out in time. I should be
thankful to have at least two quiet uninterrupted days; but then there are sick
people to visit. I don't see how I can."
"You can quite well if you will only trust me," said Rachel, smoothing the table
cloth. "You have never tried me."
"What does it matter? I don't belong to your mother I belong to you. You must
take the responsibility of me," she added laughing.
And so it was settled and Luke had two whole days of quiet. He did not move
out of his study except for meals, and then he hurried over them and ate them
without speaking. Rachel, knowing what he was going through and in what
dead earnest he was, in his longing to rid his men of the terrible doubts that
had been sown in their hearts, kept silence. It might have been a quiet day
arranged by the Bishop!
Luke had given her a long list of people to visit, and had told her what
information was needed for the magazine, and Rachel set to work asking no
further questions. She dispensed money where she thought it was needed
(not always wisely alas!) and tended to the best of her knowledge the sick
people, singing to many of them; and though it was work just after her own
heart, being utterly unused to it having had no training whatever, it took a
great deal out of her, particularly as she was of a sympathetic nature. But she
felt it was well worth while when, after the two days were over, the strained
tired look on Luke's face had disappeared giving way to one full of peace and
happiness.
He had felt it his duty to face over again, all the arguments and difficulties that
his people might come across; and he realised that he was at war with the
Devil. The words of St. Paul often ran in his mind; "For we wrestle not against
flesh and blood, but against principalities, against powers, against the rulers of
darkness of this world, against spiritual wickedness in high places."
Not even Rachel was conscious of the spiritual warfare that was raging in her
husband's little study, nor how often he threw himself on his knees crying to
God for help in the conflict, nor had Rachel the faintest suspicion of the
victories that were gained within its walls.
She had often wished that her husband was not so preoccupied, and had
more thought for the small things of life which make all the difference to its
comfort. But though she felt that the things of which she complained in her
heart were so insignificant compared to the great matters about which Luke
was engaged, she had no idea that his preoccupation and absentness of mind
were often caused by the fact that he had either lost or won a spiritual battle.
He was thankful now that he had spent so much time in facing the doubts and
difficulties that he had met with in the course of his reading, so that the two
quiet days enabled him to prepare the subject in such a way as to make the
truth plain to his men.
On the night of the meeting Rachel found it rather hard to occupy her thoughts
with anything but the great strain which she knew Luke was passing through.
He was late home and to turn her mind from that which was making her
anxious she sat down to the piano and sang.
She was just finishing her song when she heard the front door open. She sat
still in her suspense, expecting Luke to come at once into the drawing-room.
But instead, she heard him going upstairs to his study, and walking heavily as
if he was tired.
For some moments she sat still where she was, then she followed him. But at
the study door she stopped.
Rachel closed the door and went downstairs again. Her heart was heavy, and
anxious. She knew that his habit was to pray out loud; but his prayer to-night
was mingled with groans and probably tears. What had happened? Rachel
moved restlessly about the room. Her impulse was to go to the piano, and
soothe her anxiety by playing. But she was afraid of disturbing Luke. Then she
took up her work and sat waiting.
It was late before she heard him coming down the stairs.
His face bore no trace of the anguish he had apparently been going through.
He came and sat down by Rachel's side without speaking.
"I have never had such a fight with evil as to-night. I feel sure that the Devil is
working with all his might to destroy any good that may have been done."
"What happened?"
"We have been discussing for nearly three hours the articles of our faith. The
men had primed themselves with all the arguments they could lay hold of
against them. The Divinity of our Lord, the Virgin Birth, the Resurrection; and
the very men who I had hoped were on the eve of making the great decision
have been thrown back."
"But there were surely some who were helped by your words?"
"Yes, thank God. There is a small band of faithful Christians as firm in their
faith as I am. They know the Christ; and believing Him to be God take His
Word as truth. But the greatest number have been shaken by these views that
have been scattered broadcast since the Modern Churchmen's Conference at
Cambridge, and there are some who are weak in the faith and just tottering,
as it were." Luke rose up and began to walk about the room.
"I feel," he said, "that a stronger man than I am is wanted for this place. It
seems to me to be the stronghold of Satan."
CHAPTER XVIII.
GAS STOVES VERSUS MOUNTAINS.
"Next year," said Rachel one day, as she and Luke were on their way to
Church, "next year we may not be able to afford a holiday. So I am resolved
that we shall have a good one this August. We will go to the Lakes."
Rachel wrote and secured rooms at Rydal and a month after the men's
meeting mentioned in the last chapter, they started off for the North.
What the sight of the beauty that now surrounded them was to Rachel can be
imagined. She told Luke that she had seen nothing that could be called
beautiful ever since coming to Trowsby, with the exception, she took pains to
add, of her primroses and hyacinths in the little garden of which she was
inordinately proud.
To sit by the Lake in the cool of the evening and watch the lights and shadows
on the mountains, was positive bliss to Rachel. She tried to make Luke revel
in it as much as she did, but alas, his thoughts were still engrossed with his
parish, not withstanding all Rachel's efforts to make him forget it.
"It will be so much better for the parish as well as for you if you will only put it
away from your mind," she said.