The Early History of English Poor Relief

by of Girton College E. M. Leonard

Improvement in the organisation for the relief of the poor during the period from 1569 to 1597 is found in the local as well as in the central government. We will now look at the local side of the question. It is possible to obtain a fair idea of the kind of action adopted by the rulers of shire and borough by examining first the measures of London and Norwich in detail, and secondly some examples of the methods of other towns and counties.

1. The organisation of London with regard to the poor.

We have considered the action of the Privy Council with regard to questions affecting the poor in London, but we have not as yet looked at the measures themselves.

Some of these were designed to carry into effect the Act of 1572 which we have seen was the first law that gave statutory authority for compulsory assessment for the relief of the poor. In Sept. 1572 the Mayor issued a precept to the aldermen which commanded each in his ward to see that the constables and other "sad and discrete personnes[207]" made certain inquiries about the poor of every parish. They were to find out the names and surnames "of suche aged, decayed and impotent poore people" as "of necessitie be compelled to lyve by almes," and were to ascertain who had been born in the parish or had lived there three years before the beginning of the last Parliament.

The Lord Mayor in issuing this precept relied on the municipal and not on the parochial authorities. It was apparently unsuccessful, for later commands were sent to the aldermen on Sept. 5th ordering them to make these same inquiries through the churchwardens[208]. Three days later more detailed instructions were given to the same effect. The churchwardens and other responsible men in every parish were "to examyne which poore are to be releved in everye of the said parishes and to be provided for according to the last statute made for that purpose." The aldermen were to set down the names of the poor and how long they had dwelt in the City and how much each of them ought to receive "that they nede not begg." They were then to make an assessment of "everye Inhabitant that nowe payeth nothinge" to help his needy neighbours and, if there was any cause to increase the sum paid by any rich man, they were to note what increased amount they thought necessary[209]. Thus the old voluntary payments seem to become the basis of the first assessment under the new statute, while a few wealthy and stingy givers were coerced.

Unfortunately the fund thus raised was not sufficient and efforts were made to reduce the expenditure and to collect the whole of the amount assessed. The aldermen were to summon the governors of the hospitals and were to interview the poor people themselves as well as the churchwardens. They had then the unpleasant task of lowering the pensions already granted because "the colleccon all readie appoynted will not serve to advance suche ample pencons." They had also carefully to see that no one received anything who was not born in the parish or an inhabitant for the full time appointed by the statute[210]. By these means it was hoped that it would not be necessary to spend more than the sum raised by this semi-voluntary poor-rate. In March, 1573, the contributions for the next year became due while some of the contributions for the previous year were still in arrear; the Lord Mayor found it necessary to complain of the negligent execution of the statute for the poor "by reason whearof this Cittie before this tyme bearinge the name of a Lanterne to all other the Quene's maiestie's domynions in example of good order and due execucon of good Laws is accompted to some farre behynde other places in the due execucon of this statute to the greate greffe of well willers to the same[211]." Henceforward every part of the precept concerning the poor was to be "dulye and carefullie put in execucon."

By next year it was evident that even if the assessments were properly paid the funds would be insufficient. The Mayor therefore fell back on the old plan of collections in the churches after the Sunday sermons[212]. An ancient custom of the City was also utilised. The Companies in state attended by turns the sermons in Easter week at St Mary's Spittal. Special collections were then to be made for the poor and the money given to the Mayor that it might be distributed where there was most need "by the handes of good and godly citizens[213]."

In these precepts of 1572, 1573, and 1574 the City rulers employ voluntary methods and avoid compulsory poor-rates as far as possible. It is however evident that the voluntary subscriptions were inadequate. The municipal basis of the organisation is strongly marked; the sums collected under the assessments were to be paid to the governors of Christ's Hospital and the chief part of the money seems to have been expended by the City and not by the parochial officials[214].

The City rulers also attempted to deal with the poor all over London by an organisation founded upon a series of orders or articles for the poor. In 1576 a set of regulations was issued dealing with the duties of "the parish," of the "constables" and of "surveyors" with regard to vagrants. The parishioners were to choose a surveyor every Sunday who was to attend every night for a week and help the constable in the search for sturdy beggars. Every fortnight at least the constable, beadle and churchwardens were to visit the houses of all the poor people in their districts and were to order any of the new arrivals who were unable to support themselves without burdening the parish to be sent away[215]. These commands only concerned vagrants and new comers and are of far less importance than the regulations of 1579.