Rehabilitation “takes into account the feelings as well as the material requirements of the bereaved families.” An additional phase for social workers is therefore mortuary service. Here is required an exceedingly delicate ministry for which few are qualified. It includes quiet coöperation in the painful process of identification, a sympathetic care for those who succumb to shock or grief, and helpful direction regarding the necessary steps to be taken, in interment. At Halifax this presented a remarkable opportunity for service, and an experienced Young Women's Christian Association worker from Toronto attended in such capacity.
There is still another secondary phase which must be referred to as not being without social and moral results,—that of relief of animals. For the sheltering of homeless animals, the dressing of wounds, and the humane dispatch of the badly injured, specially designated gifts had been received. This work received the attention of the Society for the Prevention of Cruelty.
It will be useful as reference data to present here the nature of the criticism to which careful supervision gave rise. It was of the most trenchant character, and it centered about the alleged over-emphasis which seemed to be placed on system[120] and detailed investigations inflicted upon persons of whom many were still suffering from deprivation and from shock, and who were unused to the cross-examination methods of expert social diagnosticians. Often the thoroughness of the records seemed to the sufferers to be the more emphasized part of the proceedings. When all classes of people found themselves in need, there were naturally many who deeply resented being treated so palpably as “cases.” But theirs was a choice which left but little regard for personal wishes or sensibilities. It is regrettable however to have to say that the cause of social service did not receive in the community the much larger repute which its magnificent work justified, chiefly because the innumerable “typewriters, card catalogues, involved indexes, and multifarious office equipment”[121] were not made less obtrusive. The merest touch of “cold professionalism” soon became fuel for the burning disapproval which spread through the city regarding the methods of relief.[122] Letters to the press gave vent to the indignation of the sufferers. One of the judges of the Supreme Court was as outspoken as anyone. In criticizing the food-distribution system he wrote very plainly of the “overdose of business efficiency and social service pedantry.” Why should needy families be required, he asked, to go through a personal visit and reëxamination at the office every week, before receiving a renewal order for food. Such things were not easily understood or explained. It became increasingly felt that such discriminating and tardy administration of provisions was not the will of the innumerable donors who so spontaneously forwarded the generous aid. It was not, so the criticism ran, for the committee to detain and delay the needy recipients for the mere sake of preventing duplication and for the sake of the niceties of case records. At a public meeting in Wards Five and Six, it was charged that “too much red tape had been insisted upon by those in charge of the relief and in consequence of this and other objectionable features of management, there had been many cases of hardship and much unnecessary suffering.”
As to the justice of this it has been already indicated that criticism was inevitable because there existed no well-grounded body of public opinion to which could be anchored the wisdom of sound and thorough social methods. The passing of time has reënforced the rightness of the course taken, and not a few former critics would now be ready to condemn the methods used as not having been radical enough. Still there was an element of justice in what was said, and social workers of the future when thrown into a similar situation should curtain their machinery a little closer, at least until the community can realize the principles which organization must conserve.
The principle on which rigid procedure is justified is based upon disaster psychology itself, and is the fruit of a long series of trials and errors. On the first few days after disaster the finer sensibilities of human nature appear. Men and women say “others have lost more, we will get on with a minimum of help.” About the fifth day when the poignancy of the horrors has passed and the dead are buried, these same people suddenly discover that there are thousands of dollars available. Then another aspect of human nature comes into evidence. Every device is utilized by each to out-distance the other in the scramble. There has not been a single disaster where this state of mind has not shown itself. The way to deal with it without complete records as yet has not been suggested. The only way a committee can protect itself against disgruntled criticism is to know what it is doing. This is the justification of rigid desk procedure. It is a way to detect and to defeat imposture; though it serves also many other purposes. It was not, however, all adverse criticism which developed at Halifax. There were many who were able to see the beneficent purpose behind the careful service, and as months passed on the value of this experienced administration came to be more generally realized. Indeed
so large a place did the Social Service workers eventually fill in the community that many reëstablished families begged for the continuance of the department's supervision even though its aid was no longer required. No greater testimony to the value of this rehabilitation work could be given.[123]
When on January twenty-first the Federal Relief Commission took charge of the entire system, it may be said that there was a change not only of hands, but of policy as well. The large amounts made available by the Imperial and Dominion governments and by public subscription made it possible to substitute for rehabilitation the principle of modified restitution. This change of policy the government adopted because of the conviction upon the part of the people that they were suffering from the vicissitudes of war, and that full restoration was in law and equity of national obligation. The step is of special social significance for Halifax is the first instance where on any large scale[124] the principle of restitution became the guide, rather than that of rehabilitation. This principle of indemnity
implies the reinstatement of the beneficiary as nearly as possible into the position from which he was hurled by the calamity which has befallen him. It implies that to the householder shall be given the use of a house, to the mechanic his tools, to the family its household furniture. For the community as a whole it means a speedy restoration of such economical and industrial activities as have been temporarily suspended, the rebuilding of bridges, the reopening of streets, the reëstablishment of banks, business houses, churches, schools. It requires that protection shall be given the defenseless, food and shelter to the homeless, suitable guardianship to the orphan and as nearly as possible normal social and industrial conditions to all.[125]
It must be made clear that while in no case was the Halifax policy denominated restitution, but rather “generous relief,” in actual practice a large proportion of claims were verified and paid on a percentage basis of the loss suffered, rather than that of ascertained need. The Commission was granted power to “pay in full all personal property and real estate claims duly established to an amount not exceeding five thousand dollars.” And while in case of the larger claims of churches, schools, business properties and manufacturing establishments, and the property of the more prosperous classes, there was a policy of just and adequate relief declared, the agitation continued and continues that “every dollar of loss shall be paid in full.”
Of such a policy in disaster relief Deacon writes: “It is not the policy of disaster relief to employ its funds in restoring losses and compensating for death or personal injury.” Commenting on this statement John F. Moors says: “It is interesting to note that at Halifax, the latest scene of serious disaster, such full compensation is intended.”[126]