The Early History of English Poor Relief. of Girton College E. M. Leonard
1. Efforts made by the Government to secure the employment of the clothmakers during the crisis in the cloth trade of 1527–8.
2. Regulations for the supply of the markets with corn, 1527–8.
3. Similar action in regard to corn in 1548 and 1563.
4. Letters of the Privy Council to particular local officials in connection with the relief of the poor.
5. Legislation concerning the relief of the poor during the reign of Henry VIII.
6. The two earlier statutes of Edward VI.
7. Legislation between 1551 and 1569.
8. Summary.
1. Efforts made by the Government to secure the employment of the clothworkers during the crisis in the cloth trade of 1527–8.
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 matter. Possibly the policy, thus initiated, was the creation of Wolsey or of the Duke of Norfolk, but it was precisely the same kind of policy as that afterwards carried out under the authority of the Privy Council during the reigns of Elizabeth, James, and Charles.
The latter part of the year 1527 and the spring of 1528 was a time of great discontent and disorder. At the beginning of the year 1528 England had allied herself with France against the Emperor, and thus the ordinary trade in cloth to the Flemish markets was interrupted, and the Staple was moved to Calais. The English cloth-making industry was already carried on for foreign markets on a fairly large scale. In certain districts the greater number of inhabitants were employed by clothiers, who sold the manufactured cloths to the merchants chiefly for Flemish markets. The declaration of war therefore prevented the usual sale of cloths; consequently when the manufacturers in accordance with the trade regulations then in force brought the cloths to Blackwell Hall, the merchants did not buy as usual and the clothiers ceased to find work for their men. The workers had few other resources and disturbances followed. The Duke of Norfolk was sent into Suffolk to restore order, and persuaded the clothiers to keep their men in employment. He called representative employers before him from every town and told them that the reports concerning the detention of English merchants in Flanders were untrue. "If I had not quenched that bruit," he writes to Wolsey, "I should have had two or three hundred women sueing to me to make the clothiers set their husbands and children to work[97]." The same course was followed in other districts; Lord Sandys writes to Wolsey that he has received letters from both Wolsey and the King, which order him to see that the workpeople are not dismissed. He says nothing of the kind shall occur in Hants., and he hopes that Berks. and Wilts. will be equally well managed[98]. In Kent Sir Henry Guildford obtained a promise that no men should be sent away before harvest[99]. Both Norfolk and Guildford state however that the clothiers cannot hold out much longer, and they ask Wolsey to remedy this by persuading the merchants to buy the unsold cloths in the clothiers' hands[100]. When the king's Council heard of the difficulty, we are told that the Cardinal sent for a great number of merchants, and thus addressed them. "Sirs, the King is informed that you use not yourselves like merchants, but like graziers and artificers; for when the clothiers do daily bring cloths to your market for your ease, to their great cost, and there be ready to sell them, you of your wilfulness will not buy them, as you have been accustomed to do. What manner of men be you?" said the Cardinal, "I tell you, that the King straitly commandeth you to buy their cloths, as before time you have been accustomed to do, upon pain of his high displeasure[101]." The Cardinal further threatened to throw open the cloth trade to foreigners if the English merchants refused to buy as usual.
This remedy might be a clumsy one but it was not ineffectual. The cloth trade, in this instance, was restored to its usual course by the conclusion of a truce between England and the Netherlands. The time during which the contraction of the market occurred was short, and the clothiers could and did lessen the evils of this temporary fluctuation in their trade by continuing to find work and purchase cloths, as in more prosperous times, even though it was to their private disadvantage. A course of this kind was dangerous if the trade was permanently affected, but possible and useful under the actual circumstances, and probably saved the country from serious disturbance. The incident illustrates the fact that the difficulty of the relief of the poor was increased by the growth of manufactures on a large scale, because employment was more unstable, and because all the members of a family and most of the inhabitants of a neighbourhood were often out of work at the same time. Under these circumstances the distress of the poor was immediately followed by riots[102], and the action of Wolsey and the Council was occasioned, not only by the sufferings of the poor, but also by danger to the public peace.
2. Regulations for the supply of the markets with corn, 1527–8.
The connection between the distress of the poor and public order is also evident in the corn measures of 1527–8. The harvest of 1527 failed, while in the same year the coinage was debased, so that the average price of wheat was nearly double that of preceding years[103]. Part of this rise was thought to be due to the unfair buying of some of the corn-dealers. A commission was issued setting forth that owing to forestalling, regrating and engrossing "more scarcity of corn is pretended to be within this our said realm than, God be thanked, there is in very truth[104]." The commissioners were therefore to punish all offenders in this respect, and were also to find out by inquiry how great the supply of corn really was and to see that it was brought to market when needed[105]. Some of the reports drawn up in accordance with these instructions are in existence, and give for particular places the price and quantity of different kinds of grain and the number of inhabitants in the district[106]. In Essex and Suffolk the commissioners also talked to the more wealthy people and urged them to buy a store of corn for the poor. It was only however in Colchester and Bergholt that they seemed at all willing to do so[107]. On the whole there were few efforts at direct relief of the poor; the object of the Council was to obtain information and to prevent any aggravation of the scarcity by unfair practices.
At the same time measures were undertaken to lessen the disorder from which the country was suffering. In December 1527 a great search was made for vagrants, and the commissioners report the punishment of valiant beggars[108]. Notwithstanding all this there was a serious disturbance in Kent. The people asked for the return of the loan raised two years before, because they were so sore impoverished by the great dearth of corn[109]. The harvest of 1528 however was fortunately fairly plentiful, and the country again became peaceful. These difficulties again illustrate the connection between poverty and disorder, and show that the Privy Council first came to interfere in these matters in order to maintain the peace.
3. Similar action with regard to corn in 1548 and 1563.
In 1549 and 1550 the price of provisions was again high, and the people were mutinous. A proclamation was therefore issued fixing the price of corn, butter, poultry, and other provisions. Letters were written to the justices and to the Lords-Lieutenant, and a commission was appointed to enforce its execution[110]. But the whole series of orders was disobeyed and the misery caused by this year of scarcity partially accounts for the rebellions, which ended in the fall of Somerset, and nearly upset the Government altogether. Other instructions were sent out in 1561[111]: the difficulty was a frequently recurring one. The years of high-priced corn were years of riot, and resulted in constantly increasing efforts of the Privy Council on behalf of the poor. We shall see that in future years of scarcity the same difficulties arise, and similar measures are taken. But, as more experience was gained, there was less attempt to regulate prices, and more to directly organise the relief of the poor, so that the efforts to improve the administration of the poor law were closely connected with the measures to provide corn for the poor in years of scarcity.
4. Letters of the Privy Council to particular local officials in connection with the relief of the poor.
These orders of 1528 and 1549 were general in