Now we have to deal here with that particular remedy for low wages or distress which consists in creating additional employment for the poor, and of which the street-orderly system is an example.
The increase of employment for the poor was the main object of the 43 Eliz., for which purpose, as we have seen, the overseers of the several parishes were empowered to raise a fund by assessments upon the property of the rich, for providing “a sufficient stock of flax, hemp, wool, and other ware or stuff, to set the poor on work.” But though economists, to this day, tell us that “while, on the one hand, industry is limited by capital, so, on the other, every increase of capital gives, or is capable of giving, additional employment to industry, and this without assignable limit,”[26] nevertheless the great difficulty of carrying out the provisions of the original poor-law has consisted in finding a market for the products of pauper labour, for the frequent gluts in our manufactures are sufficient to teach us that it is one thing to produce and another to dispose of the products; so that to create additional employment for the poor something besides capital is requisite: it is necessary either that they shall be engaged in producing that which they themselves immediately consume, or that for which the market admits of being extended.
The two plans proposed for the employment of the poor, it will be seen, consist (1) in the cultivation of waste lands; (2) in promoting public cleanliness, and so increasing the sanitary condition of the country. The first, it is evident, removes the objection of a market being needed for the products of the labour of the poor, since it proposes that their energies should be devoted to the production of the food which they themselves consume; while the second seeks to create additional employment in effecting that increased cleanliness which more enlightened physiological views have not only made more desirable, but taught us to be absolutely necessary to the health and enjoyment of the community.
The great impediment, however, to the profitable employment of the poor, has generally been the unproductive or unavailing character of pauper labour. This has been mainly owing to the fact that the able-bodied who are deprived of employment are necessarily the lowest grade of operatives; for, in the displacement of workmen, those are the first discarded whose labour is found to be the least efficient, either from a deficiency of skill, industry, or sobriety, so that pauper labour is necessarily of the least productive character.
Another great difficulty with the employment of the poor is, that the idle, or those to whom work is more than usually irksome, require a stronger inducement than ordinary to make them labour, and the remuneration for parish work being necessarily less than for any other, those who are pauperized through idleness (the most benevolent among us must allow there are such) are naturally less than ever disposed to labour when they become paupers. All pauper work, therefore, is generally unproductive or unavailing, because it is either inexpert or unwilling work. The labour of the in-door paupers, who receive only their food for their pains, is necessarily of the same compulsory character as slavery; while that of the out-door paupers, with the remuneration often cut down to the lowest subsisting point, is scarcely of a more willing or more availing kind.
Owing to this general unproductiveness, (as well as the difficulty of finding a field for the profitable employment of the unemployed poor,) the labour of paupers has been for a long time past directed mainly to the cleansing of the public thoroughfares. Still, from the degrading nature of the occupation, and the small remuneration for the toil, pauper labourers have been found to be such unwilling workers that many parishes have long since given over employing their poor even in this capacity, preferring to entrust the work to a contractor, with his paid self-supporting operatives, instead.
The founder of the Philanthropic Association appears to have been fully aware of the two great difficulties besetting the profitable employment of the poor, viz., (1) finding a field for the exercise of their labours where they might be “set on work” with benefit to the community, and without injury to the independent operatives already engaged in the same occupation; and (2) overcoming the unwillingness, and consequently the unavailingness, of pauper labour.
The first difficulty Mr. Cochrane has endeavoured to obviate by taking advantage of that growing desire for greater public cleanliness which has arisen from the increased knowledge of the principles governing the health of towns; and the second, by giving the men 12s. instead of 9s. or 7s. a week, or worse than all, 1s. 1½d. and a quartern loaf a day for three days in the week, and so not only augmenting the stimulus to work (for it should be remembered that wages are to the human machine what the fire is to the steam-engine), but preventing the undue depreciation of the labour of the independent workman. He who discovers the means of increasing the rewards of labour, is as great a friend to his race as he who strives to depreciate them is the public enemy; and I do not hesitate to confess, that I look upon Mr. Charles Cochrane as one of the illustrious few who, in these days of unremunerated toil, and their necessary concomitants—beggars and thieves, has come forward to help the labourers of this country from their daily-increasing degradation. His benevolence is of that enlightened order which seeks to extend rather than destroy the self-trust of the poor, not only by creating additional employment for them, but by rendering that employment less repulsive.
The means by which Mr. Cochrane has endeavoured to gain these ends constitutes the system called Street-Orderlyism, which therefore admits of being viewed in two distinct aspects—first, as a new mode of improving “the health of towns,” and, secondly, as an improved method of employing the poor.