At the commencement of their proceedings, the assistant-commissioners found that vague and often very exaggerated notions prevailed with regard to the new law, and their approach was at first everywhere viewed with more or less of suspicion and alarm. By great patience and perseverance however in explaining the objects and intentions of the Act, and by the examples they were enabled to cite of the working of the amended law in England, they generally succeeded in removing these impressions, and in obtaining a willing co-operation; so that ere long, the requirements of the law, if not universally popular, were at least very generally acquiesced in. Perhaps this change may also have been in some degree owing to the magistrates and the clergy of each denomination having been furnished with copies of the Act, elucidated by copious explanatory notes, and likewise with copies of the Reports on which the Act was founded. The extensive correspondence which was continually going forward, and the frequent personal communications with the board in Dublin, contributed moreover to diffuse information as to the nature objects and working of the law, and not only helped to prepare the way for its introduction, but proved likewise the means of raising up zealous administrators for carrying it into execution.
1839.
First report of proceedings in Ireland.
Having thus generally stated the nature of the preliminary arrangements for bringing the law into operation, it is now proposed, as in the author’s ‘History of the English Poor Law,’ and as is also done in his ‘History of the Poor Law of Scotland,’ to take the Commissioners’ annual Reports as the groundwork of the narrative. Their first Report of proceedings is dated 1st May 1839.[[89]] It comprises only a short period, and will not require a lengthened notice; but it is of considerable interest, as showing the steps earliest taken in the introduction of the measure.
Election proceedings.
As the time approached for declaring Unions, and for constituting boards of guardians, it was necessary be prepared for conducting the elections. Arrangements were accordingly made, with the sanction of the Irish government, for the distribution and collection of the voting-papers by the constabulary; and as the commissioners were immediately responsible for the appointment of returning officers to conduct the elections, the assistant-commissioners were directed to seek for and recommend competent individuals for the purpose, that is, some one in each district about to be united who was well known, and possessed the confidence of the ratepayers; and the Report states that there is every reason to be satisfied with the manner in which the selections have been made.
To aid the returning officers in the performance of their novel duties, they were furnished with ample instructions on every point not provided for in the election order; and the assistant-commissioners were required to attend at all the early stages of the proceedings in every union, to afford such further assistance and counsel as might be necessary. Some few irregularities occurred, but not more than was to be expected under the circumstances. There were likewise a few instances of party or sectarian feeling, but in no case were improper individuals returned as guardians; and allowance being made for the want of previous training, the Irish boards will, it is said, “fairly bear a comparison with the boards in England,” and a hope is confidently expressed that the measure will not fail through the want of an efficient executive.
The workhouses.
Relief in the workhouse being the only mode of relief sanctioned by the Act, it was evident that until a workhouse is provided the law must be practically inoperative. Attention was therefore early directed to this object, for the due execution of which the commissioners were alone responsible; and much pains were taken to ascertain the kind of buildings that would be most suitable, having regard to the circumstances of the country and the habits of the people. After extensive inquiry, as well in England as in Ireland, and a careful consideration of the whole subject, it was determined to engage an architect experienced in the construction of English workhouses, and to employ him in conjunction with the assistant-commissioners, and with the aid of the best local information that could be obtained, in devising a series of plans for the Irish workhouses, of different sizes, together with descriptive specifications and estimates for each.[[90]] This was accordingly done, and the proceeding was fully justified by the result. The style of building adopted for the workhouses, was of the cheapest description compatible with durability; and effect was sought to be obtained through harmony of proportion and simplicity of arrangement, all mere decoration being studiously excluded. The unoccupied barracks were originally proposed to be converted into workhouses, and at first a few of the unions were arranged with a view to this object. But after repeated discussions with the Ordnance authorities, it became evident that very few if any of these buildings could be obtained, the whole appearing to be considered necessary for military purposes.[[91]]
Valuations and rating.
One of the first duties to which a board of guardians is required to attend, was the valuation of the property within the union for the purpose of its being rated to the relief of the poor. This under any circumstances is a matter of some difficulty, but in Ireland the difficulty was increased by the condition of the country, and the absence in many parts of any reliable data for framing such a valuation. To assist the guardians in the performance of their duties in this respect, they were furnished with very full instructions, pointing out in detail the principle on which the valuation and the rating were to be conducted, and all that was necessary to be attended to, in order to fulfil what the law required.