The Early History of English Poor Relief

by of Girton College E. M. Leonard

But from 1629 to 1644 we have a different state of things. We know already that during this period the action of the Privy Council was continuous and constant, and it is in this period therefore that we shall be able to see how far it was effective. The justices' reports, to which we have already often referred are the main sources of our information.

We will endeavour to see how far the evidence of the early part of the period confirms the view we have already formed as to the administration of the law at the beginning of the time, and we will secondly try to estimate the evidence as to improvement during this period.

6. a. State of affairs in 1631.

The condition of affairs before 1631 is indicated by the preamble to the commission of Jan. 1631/2 and by some of the earlier reports of 1631. The reasons given for the appointment of the commission of 1631/2 are almost exactly the same as those given in the draft of 1619/20. The justices are said as before to be negligent so that the laws were almost obsolete in some parts of the country, and this alone shows that there had been little permanent improvement since 1620. The preamble also refers to an earlier time "vpon the present making of the said lawes," when they were duly executed and thus confirms the evidence as to the good execution of the laws after 1597[588].

The justices' reports of 1631 give us more detailed information of the same kind. One of these was sent from three of the hundreds of Hampshire, Fawley, Bountisborough and Mainsborough. The justices say that they sent an abstract of the act to the officials concerned and ordered constables, tithingmen, and overseers to bring presentments to them. But they "for the most parte" replied, "that they haue noe poore that wanted worke or releife, that they had noe rogues but suche as were punished." The justices thought this state of things too good to be true; they made further enquiries and found that the highways were out of repair, that no monthly meetings had been held by the overseers and that there were no stocks for setting the poor to work. They also heard that some of the poor were "in noe small want" but did not complain because of ignorance or fear. They hoped to effect improvement by exacting fines for negligence, by publishing the particulars of their monthly meetings, and by sending a series of definite questions to the overseers as to the names of the poor relieved or set to work and of the children over ten years of age who were not bound apprentice[589]. In this way they tried to obtain detailed statements so that there could be no evasion of the law. There is a later report from Fawley concerning corn and apprentices, and the part of the law relating to apprentices was certainly then carried out[590].

But there are other districts in which the justices do not tell us of negligent officials, but rather seem proud of their vigour and yet seem to imply that it was only recently the law had come into force. This is particularly the case in Radnorshire and Cheshire. In two divisions of Radnor the justices say they have appointed overseers, and have given particular directions as to the provision of stocks and return of the names of the poor relieved[591]. The reports suggest that the justices were now energetic, but that little had been done before; the mention of the appointment of overseers is unaccompanied by the word new or by any statement as to the rendering of the accounts of the old overseers, so that it is possible that these were the first overseers appointed in that district.

In two of the divisions of Cheshire the same state of things is implied more definitely. The justices say that they have ordered the collection of a stock for the setting the poor to work and for the relief of the impotent, but they find the people poor and averse to paying money for any purpose of the kind. They fear some time will elapse before these orders can be properly executed. At present these divisions have not got a House of Correction, and the justices wish to have one in the Castle in order that they may be able to subdue the people to subjection[592]. These reports seem to reveal a very primitive state of things, and recall the difficulties in the West Riding of Yorkshire in 1597, when poor relief seems to have been first enforced there, and the people greatly objected to the imposition of rates.

Other reports show that the Book of Orders strengthened the hands of reformers; thus in the town of Wells, charities had been negligently administered, but after the issue of the orders the Recorder was able to procure information formerly withheld, and hoped to effect farther improvement by obtaining a commission of charitable uses[593].

It is thus fairly clear that before 1631 the law had not been well administered. We will now examine the evidence as to the improvement between 1631 and 1640.