The Early History of English Poor Relief

by of Girton College E. M. Leonard

Thus we see that during this period all kinds of plans were tried. There was no attempt to enforce any theory that the required sum ought to be levied according to the value of lands occupied or according to the wealth of the payer. The authorities were sorely puzzled how to raise the money and adopted any plan that was likely to be successful.

4. The events of the years of scarcity 1594-1597.

We will now consider the events of the years of scarcity from 1594 to 1597, both so far as they concern the central Government and so far as they concern local officials. They are interesting both because of what the authorities did during these years and because of what they failed to do. The year from Sept. 1572 to Sept. 1573 was the last in which the average price of wheat was under 20/- a quarter. From 1594 onwards there was a succession of bad harvests owing to the excessive amount of rain. Wheat quadrupled in price, and barley and rye, which were the grains ordinarily used for the bread of the poor, rose nearly in the same proportion[274].

In 1594, the Privy Council ordered the reissue of the orders of 1587, and the justices were directed to meet together that they might devise means of putting them in execution[275]. In 1595 further efforts were made to enforce these instructions of the Government. The justices dwelling near London were called to the Star Chamber, and an oration was delivered to them by the Lord Keeper, which had been committed to him by the Queen herself without any direction from the Council[276]. He stated that the old custom of making an oration at the beginning of term had been discontinued heretofore, "but now, considering the presente scarsitye her Ma^tie of her own speciall care and regarde to her louinge subiectes hathe gyven in charge to us[277], to delyuer in this place her owne speciall direction for the redresse hereof." The justices were to overlook "the certificates in former times made accordinge to some former orders in that case provided" and were to punish the offences of "corne maisters and mongers" with great severity. They were to go to the markets and persuade the farmers to bring their corn, and if need be "to use there authoritie therein." They themselves, assisted by all those of the better sort, were "to make a somme of monie" and therewith to buy corn to be sold in every market without any profit. Moreover the justices were to repair to their country homes and maintain a hospitable house. The Lord Keeper also complained that there were too many justices, and Her Majesty "therefore like a good huswyfe looking unto all her houshold stuffe" had herself marked the names of some who were no longer to continue in the commission. Those that remained were to look to the execution of the statute of retainers, to the keeping of "waches for the punishing of rouges and idle persons," and "were to exercise Justice with a Herculean courage[278]." At the same time the Council sent orders to some particular justices. In 1595 they apparently sent to the justices of Devonshire and advocated selling corn underprice to the poor: the justices reply there was no need for such a step for the markets are well furnished and the price falling[279]. But as a bad harvest again followed the distress became worse. In 1597 the Lord-Lieutenant also wrote to the Devonshire magistrates commending the relief of the poor to their especial care, and this time the Court of Quarter Sessions immediately issue orders for their relief. The Constables were to "take a view" of all the poor and of all the wealthy people in the district and to report the result to the justices. One, two, three or more people were to have one or two meals given them every day by each householder. If the householder failed the justices might make an order for a payment, not exceeding eighteenpence a week "for every pole." In addition a special rate was to be imposed for setting the poor to work[280]. Moreover the Lord Chief Justice admonished the justices of Wiltshire in 1597 probably under instructions from the Council. The justices are ordered to see that the farmers "allowe one bushell in every quarter to be solde by the pecke and halffe-pecke to the poore at eightepence the bushell under the ordinarie price of the market[281]"; they are also to take care that the markets are well supplied with corn.

The Earl of Bath received letters concerning the high prices of corn at Barnstaple and "he with other justices came to town, viewed the market and set the price upon corn there, to wit wheat 9s., rye 6s., barley 5s., oats 2s., threatening the seller with duress if he sold for above that price[282]." Very little grain was to be had even at high prices, and a Mr Stanbury was deputed to go to London in order that he might help to purchase corn for the town. "God speed him well," writes Wyot, "that he may procure some corn for the inhabitants of this town in this time of scarcity, that there is but little cometh to the market and such snatching and catching for that little and such a cry that the like was never heard." Barnstaple was not, however, at the end of its troubles[283]; in 1597 wheat was sold at 15s. and 20s. the bushel, and many of the inhabitants must have starved.

The Archbishops of York and Canterbury issued letters to the bishops of their provinces with directions designed to mitigate the sufferings of the poor. The usual collections for their relief were to be carefully made and were to be increased. The wealthy were "to use a greater moderation than heretofore in their diet" and were not to lessen the number of their households. Not only was everyone to fast on Fridays, but they were to do without their suppers on Wednesdays also, "to the intent that that which is by forbearance of that meal and at other meals, by abstinency from all superfluous fare, fruitfully spared, may presently, especially by the wealthier sort, be charitably converted to the relief and comfort of the poor and needy." The ministers and churchwardens were to send monthly certificates of the observance of these orders with the names of any who were negligent[284]. We shall see that in Wakefield this Wednesday fast was observed and it is by no means improbable that these commands were actually enforced in other places.

The local authorities also endeavoured to remedy the evil. The proceedings of the Bristol Corporation illustrate the sudden rise in price and the great need there was for measures of relief. In 1594 the Mayor, Francis Knight, laid out money "to provide corn for the common sort of people," and by his means corn was brought from Danzig to Bristol. One of the aldermen also, a Mr Thomas Aldworth, spent £1200 in corn and brought a certain quantity into the market every day. Next year the scarcity continued, and in November a Mr Whitson was asked to buy corn for the Corporation. He did so and arranged that 3000 quarters of rye should arrive in May, 1596, and cost 28s. the quarter. But the Mayor alleged the corn was too dear and the Corporation would pay but half of Mr Whitson's charges to London and would only agree to buy half the rye. "But so it fell out, that when the said rye was arrived in Bristol, it was well worth 44s. a quarter and more. And then the said Mayor and Aldermen intreated to have the whole bargain and would pay Mr Whitson 50li. for his charges and running the adventure of the bargain, whereupon after some persuasion he (being of a good nature) consented." The corn was badly needed and within twenty days was sold at 6s. a bushel, though even that sum was under the market price. The Corporation gained £774 on the bargain and many pecks and half-pecks were given to the poor.

Still this corn lasted but twenty days, and during 1596 and 1597 corn was sold in Bristol at 7s., 8s., 12s., 16s., and according to one authority even 20s. a bushel. Under these circumstances the poor could not live, and it was decided by Mayor and Council that every alderman or any burgess, that had any property, should every day give one meal of meat to the poor people who were out of work. Some were to feed eight persons, and some only two, according to their ability. "Whereby," says the chronicler, "the poor of our city were all relieved and kept from starving or rising." The justices seem to have been vigilant in other directions also; they would allow no grain to be exported and ordered that very little malt should be made[285].

In London the difficulty was great: in 1594 Lord Howard sent up three ships laden with corn that the inhabitants might have bread, and in 1596 twenty ships carrying grain arrived from the Low Countries[286].

This grain may have been used for the whole country. An old chronicler of Shrewsbury relates that in 1596 "there was provision made by the bailiffs and aldermen of Shrewsburie with the commons for corne at London which cam from Dansicke, Denmark and those foren places to ease all England, and especially London. There was provided about 3,200 bushels for this town: it came by way of Brestow, and was sold to the commons after the rate of 8s. the bushell of rie, which was in the market at 12s. and better: and wheate at 14s. and 15s. Also there was prepared to be baked of the said rye 40 bushells weeakely by the towne bakers in peny bredd, two peny, three peny, and foure peny breed for the poore to have it who were not able to by any bigger portion. They were so unruly and gredie to have it, that the baylyffs, sixe men and other officers had mutche adoe to serve them. The God most mightie send plentie that his chosen flocke perrishe not, and dy for want as many in all contreis in England die and goe in great numbers myserably a begginge[287]."