The Early History of English Poor Relief. of Girton College E. M. Leonard
not onlie full of pittie in respect of the people but of dangerous consequence to the state." Her Majesty, therefore, "tendring the one and careful of th' other" directs the justices to call the clothiers before them and "require and command such of them as have stockes and are of habillitie to employ the same as they have heretofore don so as by them the poore maie be set on worke[173]."
With regard to the scarcity of corn the Council also took further action. Burleigh carefully considered and amended a proclamation for dealing with the difficulty[174]. The three judges, Popham, Mildmay and Manwood, to whom the matter was referred for consideration, made a series of recommendations[175]." These were embodied in a set of orders, the draft of which is amended in Burleigh's own hand[176]. After being signed by the Council[177] these orders were issued early in 1587 to the justices throughout the country[178]. They probably formed the nucleus of the Scarcity Book of Orders of the earlier Stuarts which in turn was the forerunner of the Orders and Directions of January 1630/1.
These directions of 1587 commanded the appointment of juries who were to make an elaborate survey of the amount of corn possessed by everyone, and to state the number of people belonging to the different households. The justices were then to allow each owner to retain as much corn as was necessary for the food of his househood and for seed, but were to order the rest to be brought to market. They were moreover to use "all good meanes and perswasions … that the pore may be served of corne at convyent and charitable prices." They were also to see to the execution of the laws for the relief of the poor, "that the maymed or hurt soldiers and all other impotent persons be carefullye seene unto to be relieved," and "that the justices doe their best to have convenient stocke to be provided in everye division or other place accordinge to the statut for settinge the pore a worke[179]."
Many reports from the justices were sent to the Council in answer both to their letters and to the more elaborate set of orders of 1587. The justices divided themselves so that some were responsible for each division of the county[180]. They were present on market-days and saw if there were a sufficient supply of corn, and tried to persuade the owners to sell it at a moderate price[181]. They also took measures to check the dealers in corn or badgers. A difference of opinion seems to have existed as to the usefulness of these dealers. The Privy Council thought them mischievous, but the justices of Gloucester find them "honestlie demeaning themselves to be profytable members of this our Commonwelth[182]." The justices often, as in Norfolk[183], made detailed enquiries as to the amount of corn held by each farmer and the number of his household, and in accordance with the information thus acquired they ordered, as in Wootton, Oxfordshire, every corn holder to bring a proportionate quantity of his grain to market[184]. In Gloucestershire they went farther and also fixed the price at which it was to be sold[185].
The Privy Council certainly trusted much to the justices, and both farmers and markets were thoroughly regulated. One cannot wonder that sometimes the corn owners were disobedient[186], though on the whole the orders seem to have been loyally carried out. Even in our own time the poor of Italy and Spain have suffered much from an attempted "corner" in grain in spite of our rapid means of communication and worldwide source of supply. The circumstances of 1587 must have made organisation necessary, for the orders were successful, and when reissued in 1594 it was especially noted that in 1587 they had done "much good for the stay of ye dearthe and for ye relieving of ye poore[187]."
Already in 1586 additional measures were occasionally taken for the relief of the labourers and handicraftsmen. In Norfolk, "the poorer sorte are by persuasion sarved at meaner pryces[188]"; while in the county of Nottingham a philanthropic Duke of Rutland adopted the following expedient, afterwards employed by public authority. When it was known that there was likely to be a scarcity of grain, the Duke caused his corn to be sold in small quantities to the poor two shillings and eight pence under the market price. The justices tell us that by these means "the greedines of a number was frustrated, the poore releved, and the expectancy of excessive dearthe stayed[189]."
But, although the orders issued in 1587 especially command the provision as well of adequate support for the impotent as of work for the able-bodied, very few of the replies report any special action with reference to these matters. There are however one or two exceptions. Thus Arthur Hopton, a justice responsible for the hundred of Blithing, states that 500 poor in adjacent towns were relieved with "bred and other victuall," and that this should be continued for twenty-three weeks[190]. Certain justices of Hemlingford also give an especial charge to the collectors to see that all "the poore aged and impotent persons wtin everie township and hamlet be sufficientlie releeved as they ought to be," and to "adde a weekelie supplie to the same former reliefe," if the relief they had previously ordered were "too slender for them by reason of the dearth." The justices also especially charge the overseers[191] to see "that all the poore and idle persons in everie towneship and hamlet wch are able to labour and want worke be daylie set on worke … towards the getting of their living according also to the former orders made to that effect[192]." But generally the action taken by the justices both in 1586 and 1587 mainly concerns the supply of corn. Still the whole organisation was made chiefly in the interests of the poor, and both the reports and the orders themselves notice this fact[193].
In 1597, as well as in 1586, the Privy Council endeavoured to supply the poor with corn at reasonable rates, but it will be more convenient to consider that attempt with the rest of the events of those years of scarcity from 1594 to 1597[194].
As a rule in the reign of Elizabeth the object of these scarcity measures was not so much to sell to the poor under price, as to arrange by organisation that the supply of corn should be equally distributed over the whole year, and that consequently the price of corn should be more even for everybody. It was rather to prevent monopoly than to organise doles. It was undertaken chiefly in the interests of the poor because a lack in the supply of corn affected them most; it did not only mean hardship, it meant starvation. It was undertaken by the Privy Council partly with the desire of repressing disorder, because insurrections and scarcity usually occurred together, and it was the object of the Government to keep the people in their "obedience[195]." But already the changed feeling of Parliament is found also in the Privy Council: measures of organised relief were seen to be the most effectual method of repression, and the closer study of the subject resulted in greater care for the poor.
These general measures for the repression of vagrants and the supply of corn are not only important to our subject because they directly concern the relief of the poor; they are even more important on account of their indirect connection therewith. In the first place these measures brought the authorities both of the nation and of the country into contact with the poor, and they were thus led to devise more extensive measures for bettering the condition of their needy neighbours; it became more and more a habit with them to regard matters concerning the poor as a department of Government.
In the second place, by means of these measures dealing with corn and vagrants the organisation was prepared which was afterwards used for the administration of the relief of the poor. The letters of the Privy Council to the justices, the allotment of the justices to their different divisions, the supervision of the judges, and the reports to the Privy Council were all utilised by the system established under Charles I.
If this later system had been administered by a body of officials untrained in the same kind of work, and unused to these methods of administration, it would have had little chance of being well administered. Such degree of success as was attained must have been at least partially due to the fact that the measures for the punishment of vagabonds and for the provision of grain preceded the more detailed orders for the relief of the poor. The new orders were thus executed by county and municipal officials trained to similar duties and used to like methods of administration, and it was in this way that the Elizabethan measures of scarcity have an important influence on the growth of the English administration of the Poor Law.
8. The influence of the Privy Council upon the Corporation of London.
But sometimes the measures of the Privy Council were not general: pressure was placed only on particular local officials. We will first examine a few cases of this kind concerning