There are two considerations which may appropriately bring this chapter to a close. The first arises naturally from what has been said, namely, that in catastrophe it is only after division of function delegates to a special group the responsibility for relief work that public thought is directed to the resumption of normal society. The second is a practical deduction—that of social conservation. Every community should possess a permanent vigilance committee. There should be an emergency procedure on paper with duties outlined to which pledged men may be immediately drafted. Only in this way can social economy be preserved until the arrival of experienced disaster authorities from a distance.
[CHAPTER V]
Catastrophe and Social Economy
The contribution of social service—Its four-fold character—The principles of relief—Rehabilitation—Phases of application—Criticisms—A new principle—Social results—Summary for future guidance.
We have already seen that there are certain determining factors in catastrophe and its social results. There is not only the level of the general capability and culture of the community, its power to meet crises and to readjust itself, the scarcity or plenitude of its resources, but also the presence or absence of “men skilled in dealing with crises.”[108] In the past, disaster-stricken communities have had such men or have had them not. The disasters of the future—with the exception of those far remote from civilization—may depend on the presence of such leaders. They will come from near and far. The contribution of social service is the contribution of men skilled in dealing with crises. Relief thus becomes “an incident of progress and a social policy.” We are now to notice this further determining factor in catastrophe as it applied itself to Halifax.
During the first week at Halifax not only did each day bring its contribution of relief supplies in the way of food and clothing, but each day brought also men and women of skill and experience in social work to place freely their vision and ability at the service of the community.[109]
The Halifax disaster was one of the first of great extent which has occurred since the principles of relief have been authoritatively written. No other community has experienced their application so fully or so promptly. One of the workers publicly stated that “Halifax was further ahead in relief work in two weeks than Lynn had been in a month.” It was said that:
Never before in any extensive disaster were the essential principles of disaster relief so quickly established as at Halifax. In less than twelve hours from the time the American Unit from Boston arrived, the necessary features of a good working plan were accepted by the local committee.[110]
This was, it is true, sixty hours after the disaster, but nevertheless the advent of the social specialists brought to Halifax that something which was wanting when the citizens, astounded at the magnitude of their task, wondered just how and where to begin. When Mr. Ratshesky[111] of the Public Safety Committee of the State of Massachusetts, came into the room in the City Hall where a dozen or so were gathered in counsel, already overwrought with fatigue, it was the coming of a friend in need. It was soon clear that the new-comers had had unusual experience in dealing with other disasters. At once everyone took new heart. Only nine hours later, the Citizens' Relief Committee was ready, and a working plan adopted; and from it grew up a wonderful system worthy of study by all students of emergency relief. Thus social service broke into the midst of the great calamity not as a mere adjunct to what was already well devised, but as a central and deciding element, justifying its faith by its work, and its presence by its wisdom in grappling with an inexorable need.
Of course there had already been a commendable essay toward the solution of what had to be done. Applications for relief came pouring in two hours after the explosion, and industrious workers had already been dispensing to hundreds. On Friday morning volunteers were early at the City Hall, among them many of the public school teachers. A species of organization had already begun, but under congested and the least favorable conditions. A large number of investigators had gone forth, giving information and relief and bringing back reports of the missing, needy, helpless and injured. The Salvation Army had commenced a program of visits to follow up appeals. Clothing of all kinds was pouring into every station where the refugees were gathered together. The Canadian Red Cross was already active. But with the coming of the American Unit,[112] the transfer of the work to a new headquarters upon their advice, and the adoption of a complete plan of organization,[113] the systematic relief work may be said to have in reality begun.
There was a four-fold contribution made by those experienced in relief and disaster organization. The initial service was the establishment of a policy of centralization of authority and administration into one official relief organization. This policy comprised first the coördination of the relief work into one central relief committee, second the placing of the relief funds from all sources into the hands of one finance committee, third the granting of relief by one central management, all records being cleared through one registration bureau, fourth the giving of emergency relief in food, clothing and other things immediately without waiting for the perfection of the relief organization, and fifth, the appointing of a small managing committee to carry out and interpret the general policy determined upon by the executive committee.