7. The necessity of using trained searchers for the dead, who will note the precise spot where bodies are recovered, the centralization of all morgue service, the use of metal tags instead of paper, the sterilization and preservation of clothing and effects for purposes of identification, and in addition the development of a morgue social service with training and qualifications of a special character.
8. The complete organization of a social relief reserve with members beforehand definitely assigned to special tasks, with requisite printed supplies in readiness would render the most effective social economy in emergency. This reserve should be trained in the general organization of shelter, food and clothing, in the shaping of a policy of general rehabilitation, in medical social service, in children's work and in the use of volunteers.
To answer the requirements of what could be called in any sense a sociological treatment of the disaster, the foregoing chapter on the contribution of social service could with difficulty be omitted. Social service introduces a relatively new element of leadership and control upon which disaster sufferers of the future may rely and which assures to any community the presence of those who have special skill in dealing with crises. The “relation of the great man to the crisis is indeed one of the most important points in the problem of progress”[129] in catastrophe. The subject also assumes special importance in the development of the thesis itself. No accounting for social changes which may hereafter be enumerated can be accurately undertaken without full consideration of the major influences which were present. Thus by elimination we may be able to better gauge the strength of the factor of catastrophe itself. The place of government and other social factors, however, has yet to be discussed.[130]
[CHAPTER VI]
Catastrophe and Social Legislation
Governmental agencies in catastrophe—What seems to be expected of governments—What they actually do—Social legislation—A permanent contribution.
We have thus far been tracing certain of the major influences which are brought to bear upon a community when, after having been overtaken by catastrophe, it is settling back into its former habitistic channels,—channels which not even catastrophe can altogether efface. Some of these influences are intra-communal and self-generating, such as the reconstructive impulses already examined. Others are ultra-communal, such as those vigorous social forces which sweep in upon a disaster city with the suddenness of catastrophe itself.
There is a further influence which is of a community yet in a sense not of it alone, but of all communities—government—that institution of society which expresses its will by legislation, a will which may or may not be the will of the community concerned. And because legislative action is responsible action, and precedent-setting action, it is apt to be deliberative action. Perhaps this is especially true of the new and less familiar field of social legislation. While it may be that the latest group to function effectively at Halifax was government, social legislation when forthcoming contributed an important and deciding influence, and was in turn itself enriched by the calamity.
The boundaries of social legislation are still in the making and daily enclosing a wider and wider field. But not all governments are sympathetic with this process. There are two standards of legislation—the one conserves above all things the rights and privileges of the individual, the other considers first the community as a whole. The superiority of the new ideals of legislation rests here, that it is the general interest which is primarily consulted and becomes the norm, rather than the rights of the individual citizen. Progress in legislation includes its extension into all the affairs of life, retaining as much as may be the liberty of the individual while progressively establishing the interests of all.[131] Its evolution is traceable from the first poor laws, all down the long succeeding line of those dealing with education, health, labor and recreation. However much agreement or disagreement there may be and is as to the wisdom of this mutable sphere of ameliorative legislation, changing just as one ideal or the other happens to be in the ascendancy, there is at least no doubt as to the duty of the government to protect and safeguard its citizens.
The one duty of the state, that all citizens, except the philosophical anarchists, admit, is the obligation to safeguard the commonwealth by repelling invasion and keeping the domestic peace. To discharge this duty it is necessary to maintain a police force and a militia, and a naval establishment. Such dissent from this proposition as we hear now and then is negligible for practical purposes.[132]
In this duty all governments alike share, be they imperial, federal, provincial or municipal, according to their respective powers.