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EARLY HISTORY OF ENGLISH POOR RELIEF
EARLY HISTORY OF ENGLISH POOR RELIEF
BY E. M. LEONARD, FORMER STUDENT OF GIRTON COLLEGE. CAMBRIDGE: AT THE UNIVERSITY PRESS. 1900 [ All Rights reserved. ] Cambridge : PRINTED BY J. AND C. F. CLAY, AT THE UNIVERSITY PRESS. TO THE REV. WILLIAM CUNNINGHAM, D.D., LL.D. FELLOW AND LECTURER IN TRINITY COLLEGE, CAMBRIDGE, IN ACKNOWLEDGMENT OF MANY KINDNESSES I DEDICATE THIS BOOK....
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PREFACE.
PREFACE.
The present account of the early history of English poor relief is chiefly derived from the municipal records of London and Norwich and from the reports of the justices of the peace which are included amongst the state papers. Information on the subject is also contained in the Privy Council Register, while some of the orders of both Privy Council and justices and a few of the overseers' accounts are to be found in the collections of the British Museum. A fairly effectual system of relieving the
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ERRATA AND CORRIGENDA.
ERRATA AND CORRIGENDA.
P. 50 , n. 106 . For Amysbury read Amesbury, for Boscum read Boscombe, for Alyngton read Allington and for Fiddelldene read Figheldean. P. 102 , n. 224 , p. 106 , n. 234 , p. 142 , n. 316 for Maiores Booke for the Poore read Maioris Bocke for the Pore. P. 118 , l. 18 . For Twiford read Twyford. P. 168 , l. 10 . For Arkesey read Arksey. P. 169 , n. 384 . For Dewisburie read Dewsbury, for Shelfe read Shelf, and for Northowrom read Northowram. P. 170 , n. 387 . For Thirske read Thirsk. P. 173 , l.
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CHAPTER I.
CHAPTER I.
THE BEGINNING OF THE SECULAR CONTROL OF POOR RELIEF. The English system of Poor Relief presents a striking contrast to the rest of our national institutions. In most departments of our social organisation, public control is less extensive in England than in the other countries of Western Europe. But, in regard to the relief of the poor, we have adopted an opposite policy. Since the reign of Charles I., Englishmen have made themselves responsible for the maintenance of those who are destitute. Al
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CHAPTER II.
CHAPTER II.
THE CAUSES OF THE REORGANISATION OF POOR RELIEF. The earlier years of the sixteenth century began a period of great changes in the position of the poorer classes, and these changes soon resulted in a series of attempts to reform and reorganise the whole system of poor relief. The desire to repress vagrants had already led state and town to make regulations concerning the relief of the poor, but whereas, before the sixteenth century, beggars were only an occasional nuisance, they now became a chr
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CHAPTER III.
CHAPTER III.
1514-1569. POOR RELIEF IN THE TOWNS. We have seen that the social changes of the beginning of the sixteenth century led to a great increase in the number of vagrants; and that men were then more ready to substitute secular for ecclesiastical control in matters concerning the poor. Town Council, Privy Council and Parliament all endeavour to organise and supervise new methods of charity; and, by the combined efforts of all three, a new system of poor relief was gradually created. The earlier effor
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CHAPTER IV.
CHAPTER IV.
THE PRIVY COUNCIL AND PARLIAMENT. 1514-1569. The Privy Council interfered comparatively little on behalf of the poor in this earliest period of the development of the English system of poor relief. However, in 1528 and on several other occasions the Government issued orders similar to those afterwards issued by the authority of the Privy Council. In 1528, however, these orders are said to come from Wolsey or the king, and it only incidentally appears that the Council had also a part in the matte
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CHAPTER V.
CHAPTER V.
REVIEW OF THE GENERAL CHARACTERISTICS OF PUBLIC POOR RELIEF, 1514-1569. Before 1569 no effectual system of poor relief had been established, but many experiments had been made. At the beginning of the century a serious problem was before the Government. The social changes of the time had resulted in the formation of crowds of vagrants, and the greater complexity of economic conditions made the position of the workfolk more unstable. Even in ordinary times, therefore, the vagabonds were a constan
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CHAPTER VI.
CHAPTER VI.
1569-1597. PARLIAMENT AND THE PRIVY COUNCIL. The action of municipal authorities in particular towns, which, before 1569, is the main feature in the development in the English system of poor relief, becomes of relatively less importance after that date. Matters concerning the poor attract increased notice in Parliament and the statutes become more definite and more effective until 1597. An enactment was then passed, the provisions of which, as re-enacted in 1601, have remained almost unaltered u
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CHAPTER VII.
CHAPTER VII.
1569-1597. LOCAL ORGANISATION OF POOR RELIEF AND THE EVENTS OF THE YEARS 1594-1597. Improvement in the organisation for the relief of the poor during the period from 1569 to 1597 is found in the local as well as in the central government. We will now look at the local side of the question. It is possible to obtain a fair idea of the kind of action adopted by the rulers of shire and borough by examining first the measures of London and Norwich in detail, and secondly some examples of the methods
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CHAPTER VIII.
CHAPTER VIII.
PARLIAMENT AND THE PRIVY COUNCIL. 1597-1644. The years between 1597 and 1644 are in many respects a unique period in the history of English poor relief. A great deal of evidence exists, which seems to indicate, that in many places during some of these years the whole of the Elizabethan poor law was put in execution: that is, work was provided for the unemployed as well as relief for the impotent. After the Civil War a part only of the system survived. There are thus grounds for believing that ne
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CHAPTER IX.
CHAPTER IX.
1597-1644. THE LOCAL MACHINERY FOR ADMINISTRATION. The increased activity of the Privy Council, which made the poor law of the seventeenth century more effective than that of the sixteenth, depended for its success upon the activity of the local officials, particularly of the justices of the peace and the municipal authorities. We will now therefore examine the work done (1) by the justices and town rulers, (2) by the judges [375] , and (3) by the overseers. We have seen, in the Elizabethan orga
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CHAPTER X.
CHAPTER X.
1597-1644. METHODS OF RELIEF. A. In Times of Emergency. The special emergencies in which the poor most often obtained relief in the seventeenth century were those arising from bad harvests, sickness, and fire. We will first examine the methods of supplying the poor with corn after bad harvests. We have already seen that in 1608, 1621-3, and 1629-31 the central government issued orders with this object, which closely resembled the commands which had been issued during the reign of Elizabeth. We h
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CHAPTER XI.
CHAPTER XI.
METHODS OF RELIEF, 1597-1644 ( continued ). B. Ordinary Relief. We have seen how the poor were relieved in times of special emergency; we will now examine the kind of help that was bestowed upon those classes of poor who in almost every community were more or less constantly in need of assistance. We will notice first the relief given to the impotent and aged poor; secondly, the measures adopted to provide for destitute children; and lastly, the methods used to find work for the unemployed or to
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CHAPTER XII.
CHAPTER XII.
1597-1644. THE ADMINISTRATION OF THE POOR LAW AS A WHOLE. We have already examined both the machinery which existed for the execution of the poor law and the different methods which were used for relieving the impotent, for training the young and for providing work for the unemployed. We have now to consider the administration as a whole; to find out when and where the machinery was put in motion and how far these methods were generally employed. The history of poor relief in the sixteenth centu
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CHAPTER XIII.
CHAPTER XIII.
POOR RELIEF IN FRANCE, SCOTLAND, AND ENGLAND DURING THE CIVIL WAR AND COMMONWEALTH. The histories of poor relief in England after the Civil War, and in France and in Scotland throughout the sixteenth and seventeenth centuries, both compare and contrast with the history of English poor relief in the period from 1529 to 1644. While in each of these cases like circumstances produced similar attempts to afford relief, in none did both an energetic Privy Council and a vigorous system of local officia
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CHAPTER XIV.
CHAPTER XIV.
CONCLUSIONS. We have now traced the history of the making and early administration of the English Poor Law. We have seen that the English system of poor relief like the English House of Commons was once only one of many like institutions common to the whole of Western Europe. Although in our century other nations have again regulated the help given to the poor by public authorities, in neither France, Scotland nor Germany has the public organisation for the relief of the destitute a continuous h
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APPENDIX I.
APPENDIX I.
Extracts from the Journals of the Common Council of London. These Journals begin with the entries for the year 1416 and are still continued. They are contained in large folio volumes and are written on paper in French, Latin and English. The entries made in the sixteenth and seventeenth centuries are generally in English. The resolutions of the Common Council and the chief letters, precepts and proclamations concerning the government of the City were copied within a few days of the time they wer
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APPENDIX II.
APPENDIX II.
Extract relating to the parish of St Peter's of Southgate, from the census of the poor taken at Norwich recorded in the "Maioris Bocke for the Pore [733] , made in the feaste of St John the Baptiste 1576" and continued down to 1580. Theis be the names [734] of the poore within the saide Citie as they ware vewed in the yere of our lord god 1570. In the tyme of M r John Alldereche maior. The Warde of Southe Consforthe. Names of the poore to be relieved weekelye. In St Peters of Southgate. Richard
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APPENDIX III.
APPENDIX III.
Extracts from the "Orders for the poor" drawn up in Norwich, 3rd May, 1571. These are entered in a smaller folio volume entitled "The Book for the poore. Mr John Aldriche maio r ." It concerns the organisation of the poor in Norwich between the years 1571 and 1580. Orders for the poor. "1. Fyrst that no parson or parsons olde or yonge shalbe suffred to go abrode after a generall warninge gyven, or be founde a beggynge in the stretes at the sermon or at anie mans dore or at anie place within the
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APPENDIX IV.
APPENDIX IV.
Report concerning scarcity from Norfolk, 1586 ( Dom. State Papers , Queen Eliz., Vol. 191, No. 12). The following is the Report returned to the Council by the justices of Norfolk on July 11, 1586, and also a part of one of seven certificates which they enclose. It is addressed on the back "To the right honourable our singuler good Lordes the Lordes of her Ma t's most honourable priuie councell," and is endorsed "11 July 1586 Justices of peace in Norff. Price of graine." "May yt please your honou
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APPENDIX V.
APPENDIX V.
Part of a draft of orders for remedying the scarcity of corn in 1586 (Lansdowne MSS. Brit. Mus., No. 48, f. 128). The following draft is found among the Burleigh papers. It is written on four folio sheets on both sides, for the most part in an official hand, but throughout it is corrected in Burleigh's own hand, and the last portion is written entirely by him. The orders here contained must have been substantially the same as those issued and printed by order of the Privy Council on Jan. 4, 1586
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APPENDIX VI.
APPENDIX VI.
Accounts of the Churchwardens and Overseers of the parish of Staplegrove, Co. Somerset, for the year 1599 (Brit. Mus. Add. MSS. 30,278). The accounts of the overseers of Staplegrove have been preserved for several years between 1599 and 1623 (1599, 1605, 1621, 1622, and 1623). The churchwardens' accounts also remain and begin as early as 1585 and in some of these also payments to the poor are noted [751] . This account is of course made under the provisions of the Act of 1597 (39 Eliz. c. 3) [75
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APPENDIX VII.
APPENDIX VII.
Orders made by the justices responsible for Aylesham and Reipham, Co. Norfolk, 23rd October, 1622 (Brit. Mus. Add. MSS., No. 12,496, f. 222). The following orders were enclosed with a letter of Dec. 7th, 1622, written by John Rycherds, one of the justices of Norfolk, to Sir Julius Caesar [753] . Sir Julius had sent this justice the letters of the Privy Council, regulating alehouses and the strength of beer, the 19th October, 1622, and had asked him to report as to the condition of the country wi
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APPENDIX VIII.
APPENDIX VIII.
Report of the justices from Lackford and the half hundred of Exning February 7th, 1622/3. Dom. State Papers James I. Vol. 142. 14. 1. The following is one of nine reports forwarded by the Sheriff of Suffolk to the Lords of the Privy Council on April 2nd, 1623. All nine returns together with many others were sent in reply to orders of the Privy Council issued in consequence of the distress in 1622-3 [755] . If we compare this reply with the draft of the orders corrected by Burleigh in 1586 (App.
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APPENDIX IX.
APPENDIX IX.
Extracts from the Privy Council Register. Copy of a letter sent to the Deputy Lieutenants and Justices of the Peace in the Counties of Suffolk and Essex concerning the employment of the poor. Privy Council Register [756] Chas. I. Vol. V. f. 263, 22nd May, 1629 [757] . Dated the 22nd. Signed "Whereas wee by special direccons of his Ma tie did lately commend unto yo r care the present state of those parts of y r county where the poore clothiers and their workmen at present destitute of worke might
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APPENDIX X.
APPENDIX X.
Extracts from the Privy Council Register (continued). Letter concerning the disturbances in Rutlandshire ( Privy Council Register , Vol. VI. f. 345. 15th Feb. 1630/1). This entry illustrates the connection between efforts to improve poor relief and the maintenance of order. A Lre to S r Edward Harrington, Sir Hen. Mackworth Bar t S r Guy Palmer K t and Basill Fielding Esq r or any twoe of them. Whereas we have beene made acquainted w th a lre written by John Wildbore a Minister in and aboute Tin
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APPENDIX XI.
APPENDIX XI.
Letter from Sir Thomas Barrington concerning the eight hundreds of Yorkshire ( Dom. State Papers , Chas. I. Vol. 177, No. 31. 21st Dec. 1630). The following letter is substantially like many other justices' reports relating to the corn measures of 1629-1631. This document, like a few others of the same kind, preceded the issue of the Book of Orders of Jan. 1630/1; and was sent in answer to previous orders of the Privy Council [758] . It is addressed on the back "To the right Hon le my most hon d
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A. Dom. State Papers, Chas. I. Vol. 188. 85.
A. Dom. State Papers, Chas. I. Vol. 188. 85.
Questions sent by the justices responsible for the division of Fawley, Hants. to the constables etc. of their district. This copy of the inquiries was sent by Sir Richard Tychborne, Sir Thomas Stukeley, Henry Clerke and William Rolfe, the justices responsible for Fawley, to the High Sheriff of the county, together with a report on the measures taken to improve poor relief in the division of Fawley. The justices state they have sent these inquiries to the "officers of everie parish," but have so
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B. Dom. State Papers, Chas. I. Vol. 189. 80 and Vol. 197. 69. Extracts from two reports from the hundred of Braughing, one sent to the High Sheriff in April and the other in Sept. 1631.
B. Dom. State Papers, Chas. I. Vol. 189. 80 and Vol. 197. 69. Extracts from two reports from the hundred of Braughing, one sent to the High Sheriff in April and the other in Sept. 1631.
These two reports contain abstracts of the returns sent in by the overseers at six monthly meetings held between Feb. 7th, 1630/1 and June 27th, 1631 [763] . The whole of the abstracts sent in on Feb. 7th are here printed, but of the others only those which indicate improvement in the administration of the poor law. The first document is written on parchment, the second on paper, both in a clerk's hand. Hertf. [764] "An Abstract of the Returne and presentments made by the Churchwardens, Constabl
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C. Dom. State Papers, Chas. I. Vol. 190. 10.
C. Dom. State Papers, Chas. I. Vol. 190. 10.
Part of the Report of Bridewell. This report of Bridewell seems to have been made in consequence of the inquiries of the commissioners on poor relief appointed in Jan. 1630/1. The estimated value of the labour of the inmates, the cost of their maintenance, the amount paid in salaries to the officials of the hospital all throw light on the rate of wages and on the cost of living at this time. London Bridewell. "To the right hon ble the lords of his Ma ties most ho ble privy Counsaile. We, the Pre
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D. Dom. State Papers, Chas. I., Vol. 191, No. 42. This report is endorsed "16 May, 1631. Certificate from the Maior of Guldeforde in Surr."
D. Dom. State Papers, Chas. I., Vol. 191, No. 42. This report is endorsed "16 May, 1631. Certificate from the Maior of Guldeforde in Surr."
"The certificate of John Champion gent Maior of the Towne of Guldeford, on the behalf of the Maior and Justices of peace of the saide Towne and Lib(er)ties made the Sixtenth day of May, in the seauenth yere of the Raigne of o r Sou(er)aigne Lord kinge Charles 1631. Accordinge to his Ma ties good Orders and direccons, and in performance of o r Duties I certifie That forthw th vppon receipt of the Booke of instruccons w ch was about the 5 t of Februarie last past, we, the saide Maio r and the Just
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E. Dom. State Papers, Chas. I., Vol. 216, No. 45. This document is endorsed "Cantebr(igia) July 1632, Certificate of ye justices for the hundreds of Chesterton, Papworth and North sto(we). Julii 16o 1632."[773]
E. Dom. State Papers, Chas. I., Vol. 216, No. 45. This document is endorsed "Cantebr(igia) July 1632, Certificate of ye justices for the hundreds of Chesterton, Papworth and North sto(we). Julii 16o 1632."[773]
"The c(er)tificate of S r John Cutts, S r Edward Hynde, S r Robert Hatton knights and Martin Peerce Esqr. Justices of the peace w th in the County of Cambridge aforesaid, and assigned to the devisions of the hundreds of Chesterton, Papworth and North Stowe, vnto the high Sheriffe of the said County, by vertue of certayne imprinted orders and direccons sent from his ma tie , and l(ett)res sent vnto vs by the right hono ble the lords of his ma ties most hono ble privy Councell beareinge date the l
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F. Dom. State Papers, Chas. I., Vol. 226, No. 78.
F. Dom. State Papers, Chas. I., Vol. 226, No. 78.
Part of the certificate of the justices of Middlesex for the Finsbury division. The original document contains the accounts of six parishes [775] but only the part relating to St Giles', Cripplegate, is here printed. The document is endorsed "Finsbury Division Midd. Certificate of forfeitures [776] levyed of vnlycensed alehousekeeps for defective measures, for the poore 1630, 1631 & 1632."...
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G. Dom. State Papers, Chas. I., Vol. 349, No. 86.
G. Dom. State Papers, Chas. I., Vol. 349, No. 86.
Part of the Certificate from the wappentake of Bassetlaw [778] 10th March 1636/7. The following document is endorsed "Nott. 10th March 1636," in another hand, while in the same hand as the rest of the document is written, "The Divisions of North Clay, South Clay and Hatfeild w th in the wapentake of Bersett Law in the County of Nottingha(m)." The part of the document here printed relates to the division of South Clay. "A Certificate of our proceedings at the Monethly meeteings held w th in the H
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H. Dom. State Papers, Chas. I., Vol. 395, No. 55.
H. Dom. State Papers, Chas. I., Vol. 395, No. 55.
Certificate concerning the Book of Orders from the hundreds of Loes, Wilford, Thredling and Plomesgate, 14 July 1638 [781] . "To the high Sheriffe of the County of Suff. The Certificate of the Justices of the peace whose names are herevnd(er)written for the hundreds of Loes, Willford, Thredlinge and Plomesgate w th in the lib(er)ty of S ct Etheldred made the xiiii th day of Julye: 1638, touchinge his Ma t's Booke of Orders as followeth: 1. First that wee doe contynue o r monethly meeteings w th
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APPENDIX XIII.
APPENDIX XIII.
The assessment for a rate made at Norwich in Jan. 1642/3 in order to relieve the poor and to raise a stock for setting them to work (Add. MSS. Brit. Mus. No. 22619, f. 11). The accounts for this rate are given in full for seven parishes of Norwich, and a summary is also made of the accounts received from all the parishes of the city. The whole sum together with contributions from a few private gentlemen amounted to £105. 5 s. The part of the account here printed relates to the parish of S. Bened
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APPENDIX XIV.
APPENDIX XIV.
Report of the Four Royal Hospitals, 1644 [782] ( King's pamphlets , 669, f. 10, No. 2). A true Report of the great Costs and Charges of the foure Hospitals, in the City of London, in the maintenance of their great number of poore, this present yeare, 1644, as followeth: The Names of all which are registred in the Bookes kept in Christs Hospitall, there to be seene from what Parishes, and by what meanes they have beene from time to time admitted. In respect of the troubles of the times, the meane
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APPENDIX XV.
APPENDIX XV.
Ordinance of the Lords for putting in execution the laws for the relief of the poor [783] ( King's pamphlets , Brit. Mus. 669, f. 9, No. 81). This sheet is prefixed by the royal arms. Die Veneris 5 March 1646. The Lords in Parliament Assembled taking into their consideration the multitude of Beggars, poore, and Vagabonds in and about the Cities of London , Westminster and in the other parts of this Kingdome; for prevention whereof, divers Acts of Parliament have been made, as well to punish such
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