If the first great service rendered was that of centralization, the second was that of effecting coöperation. The latter was only partially successful. There was at first an inevitable overlapping, especially in the matter of visiting, some families being visited and subjected to interview a dozen times. Failing to achieve complete coördination, the central committee endeavored to limit duplication so far as possible. An invitation extended to the Salvation Army about December eleventh, to place their visitors at the disposal of the general staff of visitors was declined and it was not until January first that this organization fully coördinated with the rehabilitation committee. It was about this time also that the Roman Catholic clergy agreed to coöperate in the registration plans. On December eighteenth the School Board gave official coöperation by assigning fifteen school teachers as volunteer visitors under the direction of the rehabilitation committee. Another obstacle to the complete systematization of the relief work was the most generous but independent distribution of clothing and supplies from the Eaton Center, and from the station established by a charitable Boston lady. The Protestant and Roman Catholic clergy, as well as the Salvation Army and other organizations received supplies in bulk and distributed to their constituents often with hasty or inadequate investigation.
There was also at times lack of coöperation among the official committees themselves. Friction and crises arose from time to time, which were only stopped short of scandal. They were the consequence either of assumption of authority upon the part of the under-committees, of ineffectiveness of leadership, or of unfamiliarity with the principles of relief. There were also other problems, some of which it may be useful to note. One of these was the problem of the wisest use of local leaders who knew and could interpret the local point of view and method of doing things. Another that of the absorption of volunteers, many of whom could not be expected to understand the nature of scientific relief service.
A third great contribution of social service was that of education in the principles of disaster relief. It was the problem of getting the idea of social conservation understood and established in a community which had not given the subject any thought, and which was quite unfamiliar with the ideals and purposes in view. This was the cause of much delaying of plans, overlapping in giving relief, and giving without substantial inquiry. It explained also the reason for the abundant criticism which arose. When criticism came there was, consequently, no well-informed body of public opinion to which to anchor the committee's work.
Educational effort on this subject may be said to have begun with a masterful presentation of the nature of rehabitation at the meeting of the managing committee six days after the disaster. Here was set forth and illustrated the kind of service required and the desirability of such work was at once recognized and inaugurated. Thus the idea of rehabilitation filtered through to the various departments. Trained leaders imparted it to the untrained volunteers. Church, school and club caught something of its spirit and one of the permanent social results of the disaster remains in the partial socialization of institutions. It was this original absence of socialization, this lack of understanding of the true nature of disaster psychology and of the accepted methods of relief that at first made the community so utterly dependent upon the visiting social workers. It may be safely concluded as a fundamental principle that the self-dependence of a community in adversity is furthered by the socialization of existing institutions.
The principles of disaster relief cover three stages, first, that of the emergency period; second, that of the period of transition; and third, that of rehabilitation. These principles in order of application may be thus briefly summarized:
1. The coördination of all the relief agencies arising, into one central relief service.
2. The directing of relief funds from all sources to one bonded finance committee.
3. The establishment of a temporary committee only, at first,—the more permanent organization to await the counsel of specialists in disaster relief, an early call having been sent for experienced workers.
4. The avoidance of, or the early abolition of mass treatment, e. g. bread lines, food depots, etc., as detrimental to a psychology of helpfulness and as calculated to delay a return to self-support.
5. The issuing of orders for supplies on local merchants to follow mass-provisioning.