There is no general practice to this effect, however, for every union follows its own devices for making the life of the tramp hard or easy as the case may be, and in the absence of a uniform policy, few unions take the question of vagrant regulations seriously. The average Board of Guardians attacks all its problems on the line of least resistance, and the line of least resistance in dealing with the tramp is to follow the advice of the incomparable constable Dogberry, and get him out of sight as soon as possible, thanking God that it is rid of a knave.
The reports of Poor Law Inspectors have for years abounded with complaints of absence of uniformity in the treatment of vagrants and of the evil results of the existing state of anarchy. To quote several of recent date:—
"While many unions have adopted the Local Government Board's suggestions, others have ignored them. It is useless for one union to take steps for driving casuals away from their workhouses simply to plant them on others."[14]
"There is a want of uniformity as regards detention and the task of work in the various casual wards, and it is worthy of notice that at Loughborough, where the guardians, after a short trial of two nights' detention, decided to revert to a one night's detention only, the number of vagrants has increased from 10,751 in 1906 to 12,058 in 1907."[15]
"There is a great want of uniformity in the treatment of vagrants as regards accommodation, detention, diet and tasks of work, and guardians are naturally averse to taking any action involving expense pending legislation on the subject."[16]
"Some mitigation of the evils of vagrancy might be possible if guardians fully exercised the powers possessed by them. No uniform practice prevails. The system of a two nights' detention, with the imposition of an adequate task, is uncommon in this district. Some kind of task is prescribed in the majority of vagrant wards, but for the most part vagrants are released the following morning after admission. Here and there the regulations are enforced with beneficial results. Guardians are, perhaps, apathetic or disinclined to detain more often, because they are not enabled to deal effectively with this class owing to insufficient accommodation. A system of two nights' detention, combined with proper discretion and supervision on the part of the workhouse master, has generally been followed by a diminution in the number of vagrants, but an absence of any such similar practice in neighbouring unions largely defeats these good results. Vagrants simply avoid these wards, and pass on to those where the restrictions are less severe."[17]
As the Departmental Committee on Vagrancy say:—
"It is much easier for a workhouse master, or the superintendent of the casual ward, to allow vagrants to discharge themselves on the morning after admission without labour, than to detain them, and insist upon their doing the regulation task of work, and the discretion which is left to the officers with respect to the discharge of certain classes of vagrants results in a complete variety of practice."[18]
Again:—
"Where a union carries out the regulations as to detention and task of work there is always a reduction in the number of admissions to their casual wards, but the evidence before us shows that severity of discipline in one union may merely cause the vagrants to frequent other unions."[19]
In London, according to the evidence given before that Committee:—
"Some guardians do not detain, some give one task, some another, and some practically none at all.... Some Boards of Guardians say the casuals are working-men honestly looking for work, and there is no doubt they are, but they know where they are going to get it. When they leave, they know to what casual ward they are going, and whether they are going to break stones or pick oakum. The consequence is, that the London vagrants flock to Poplar, Thavies Inn, and the other wards where detention and work are not enforced, or where only a light task is given."[20]