Chapter 9

In many cases, it is probable, the established laws of the country in which an institution for the Poor may be formed, and certain usages, the influence of which may perhaps be still more powerful than the laws, may render modifications necessary, which it is utterly impossible for me to foresee; still the great fundamental principles upon which every sensible plan for such an Establishment must be founded, appear to me to be certain and immutable; and when rightly understood, there can be no great difficulty in accommodating the plan to all those particular circumstances under which it may be carried into execution, without making any essential alteration.

CHAPTER. III.

General Direction of the Affairs of an Institution for the Poor attended with no great Trouble. Of the best Method of carrying on the current Business, and the great Use of printed Forms, or Blanks. Of the necessary qualifications of those who are placed at the Head of an Establishment for the Relief of the Poor. Great Importance of this Subject. Cruelty and Impolicy of putting the Poor into the Hands of Persons they cannot respect and love. The Persons pointed out who are more immediately called upon to come forward with Schemes for the Relief of the Poor, and to give their active Assistance in carrying them into Effect.

Whatever the number of districts into which a city is divided, may be, or the number of committees employed in the management of a public Establishment for the relief of the Poor, it is indispensably necessary that all individuals who are employed in the undertaking be persons of known integrity;--for courage is not more necessary in the character of a general, than unshaken integrity in the character of a governor of a public charity. I insist the more upon this point as the whole scheme is founded upon the voluntary assistance of individuals, and therefore to ensure its success the most unlimited confidence of the public must be reposed in those who are to carry it into execution; besides, I may add, that the manner in which the funds of the various public Establishments for the relief of the Poor already instituted have been commonly been administered in most countries, does not tend to render superfluous the precautions I propose for securing the confidence of the public.

The preceding observations respecting the importance of employing none but persons of known integrity at the head of an institution for the relief of the Poor, relates chiefly to the necessity of encouraging people in affluent circumstances, and the public at large, to unite in the support of such an Establishment.--There is also another reason, perhaps equally important, which renders it expedient to employ persons of the most respectable character in the details of an institution of public charity,--the good effects such a choice must have upon the minds and morals of the Poor.

Persons who are reduced to indigent circumstances, and become objects of public charity, come under the direction of those who are appointed to take care of them with minds weakened by adversity, and soured by disappointment; and finding themselves separated from the rest of mankind, and cut off from all hope of seeing better days, they naturally grow peevish, and discontented, suspicious of those set over them, and of one another; and the kindest treatment, and most careful attention to every circumstance that can render their situation supportable, are therefore required, to prevent their being very unhappy. And nothing surely can contribute more powerfully to soothe the minds of persons in such unfortunate and hopeless circumstances, than to find themselves under the care and protection of persons of gentle manners;--humane dispositions;--and known probity and integrity; such as even THEY,--with all their suspicions about them, may venture to love and respect,

Whoever has taken the pains to investigate the nature of the human mind, and examine attentively those circumstances upon which human happiness depends, must know how necessary it is to happiness, that the mind should have some object upon which to place its more tender affections--something to love,--to cherish, --to esteem,--to respect,--and to venerate; and these resources are never so necessary as in the hour of adversity and discouragement, where no ray of hope is left to cheer the prospect, and stimulate to fresh exertion.

The lot of the Poor, particularly of those who, from easy circumstances and a reputable station in society, are reduced by misfortunes, or oppression, to become a burthen on the Public, is truly deplorable, after all that can be done for them:-- and were we seriously to consider their situation, I am sure we should think that we could never do too much to alleviate their sufferings, and soothe the anguish of wounds which can never be healed.

For the common misfortunes of life, HOPE is a sovereign remedy. But what remedy can be applied to evils, which involve even the loss of hope itself? and what can those have to hope, who are separated and cut off from society, and for ever excluded from all share in the affairs of men? To them, honours;--distinctions; --praise;--and even property itself;--all those objects of laudable ambition which so powerfully excite the activity of man in civil society, and contribute so essentially to happiness, by filling the mind with pleasing prospects of future enjoyments, are but empty names; or rather, they are subjects of never-ceasing regret and discontent.

That gloom must indeed be dreadful, which overspreads the mind, when HOPE, that bright luminary of the soul, which enlightens and cheers it, and excites and calls forth into action all its best faculties, has disappeared!

There are many, it is true, who, from their indolence or extravagance, or other vicious habits, fall into poverty and distress, and become a burthen on the public, who are so vile and degenerate as not to feel the wretchedness of their situation. But these are miserable objects, which the truly benevolent will regard with an eye of peculiar compassion;--they must be very unhappy, for they are very vicious; and nothing should be omitted, that can tend to reclaim them;--but nothing will tend so powerfully to reform them, as kind usage from the hands of persons they must learn to love and to respect at the same time.

If I am too prolix upon this head, I am sorry for it. It is a strong conviction of the great importance of the subject, which carries me away, and makes me, perhaps, tiresome, where I would wish most to avoid it. The care of the Poor, however, I must consider as a matter of very serious importance. It appears to me to be one of the most sacred duties imposed upon men in a state of civil society;--one of those duties imposed immediately by the hand of God himself, and of which the neglect never goes unpunished.

What I have said respecting the necessary qualifications of those employed in taking care of the Poor, I hope will not deter well-disposed persons, who are willing to assist in so useful an undertaking, from coming forward with propositions for the institution of public Establishments for that purpose; or from offering themselves candidates for employments in the management of such Establishments. The qualifications pointed out, integrity, and a gentle and humane disposition,--honesty, and a good heart;-- are such as any one may boldly lay claim to, without fear of being taxed with vanity or ostentation.--And if individuals in private stations, on any occasion are called upon to lay aside their bashfulness and modest dissidence, and come forward into public view, it must surely be, when by their exertions they can essentially contribute to promote measures which are calculated to increase the happiness and prosperity of society.

It is a vulgar saying, that, what is everybody's business, is nobody's business; and it is very certain that many schemes, evidently intended for the public good, have been neglected, merely because nobody could be prevailed on to stand forward and be the first to adopt them. This doubtless has been the case in regard to many judicious and well arranged proposals for providing for the Poor; and will probably be so again. I shall endeavour, however, to show, that though in undertakings in which the general welfare of society is concerned, persons of all ranks and conditions are called upon to give them their support, yet, in the INTRODUCTION of such measures as are here recommended,-- a scheme of providing for the Poor,--there are many who, by their rank and peculiar situations, are clearly pointed out as the most proper to take up the business at its commencement, and bring it forward to maturity; as well as to take an active part in the direction and management of such an institution after it has been established: and it appears to me, that the nature and the end of the undertaking evidently point out the persons who are more particularly called upon to set an example on such an occasion.

If the care of the Poor be an object of great national importance, --if it be inseparably connected with the peace and tranquillity of society, and with the glory and prosperity of the state;-- if the advantages which individuals share in the public welfare are in proportion to the capital they have at stake in this great national fund--that is to say, in proportion to their rank, property, and connexions, or general influence;--as it is just that every one should contribute in proportion to the advantages he receives; it is evident who ought to be the first to come forward upon such an occasion.

But it is not merely on account of the superior interest they have in the public welfare, that persons of high rank and great property, and such as occupy places of importance in the government, are bound to support measures calculated to relieve the distresses of the Poor;--there is still another circumstance which renders it indispensably necessary that they should take an active part in such measures, and that is, the influence which their example must have upon others.

It is impossible to prevent the bulk of mankind from being swayed by the example of those to whom they are taught to look up as their superiors; it behoves, therefore, all who enjoy such high privileges, to employ all the influence which their rank and fortune give them, to promote the public good. And this may justly be considered as a duty of a peculiar kind;--a PERSONAL service attached to the station they hold in society, and which cannot be commuted.

But if the obligations which persons of rank and property are under, to support measures designed for the relief of the Poor, are so binding, how much more so must they be upon those who have taken upon themselves the sacred office of public teachers of virtue and morality;--the Ministers of a most holy religion;-- a religion whose first precepts inculcate charity and universal benevolence, and whose great object is, unquestionably, the peace, order, and happiness of society.

If there be any whose peculiar province it is to seek for objects in distress and want, and administer to them relief;--if there be any who are bound by the indispensable duties of their profession to encourage by every means in their power, and more especially by EXAMPLE, the general practice of charity; it is, doubtless, the Ministers of the gospel. And such is their influence in society, arising from the nature of their office, that their example is a matter of VERY SERIOUS IMPORTANCE.

Little persuasion, I should hope, would be necessary to induce the clergy, in any country, to give their cordial and active assistance in relieving the distresses of the Poor, and providing for their comfort and happiness, by introducing order and useful industry among them.

Another class of men, who from the station they hold in society, and their knowledge of the laws of the country, may be highly useful in carrying into effect such an undertaking, are the civil magistrates; and, however a committee for the government and direction of an Establishment for the Poor may in other respects be composed, I am clearly of opinion, that the Chief Magistrate of the town, or city, where such an Establishment is formed, ought always to be one of its members. The Clergyman of the place who is highest in rank or dignity ought, likewise, to be another; and if he be a Bishop, or Archbishop, his assistance is the more indispensable.

But as persons who hold offices of great trust and importance in the church, as well as under the civil government, may be so much engaged in the duties of their stations, as not to have sufficient leisure to attend to other matters; it may be necessary, when such distinguished persons lend their assistance in the management of an Establishment for the relief of the Poor, that each of them be permitted to bring with them a person of his own choice into the committee, to assist him in the business. The Bishop, for instance, may bring his chaplain;--the Magistrate, his clerk;--the Nobleman, or private gentleman, his son, or friend, etc. But in small towns, of two or three parishes, and particularly in country-towns and villages, which do not consist of more than one or two parishes, as the details in the management of the affairs of the Poor in such communities cannot be extensive, the members of the committee may manage the business without assistants. And indeed in all cases, even in great cities, when a general Establishment for the Poor is formed upon a good plan, the details of the executive and more laborious parts of the management of it will be so divided among the commissaries of the districts, that the members of the supreme committee will have little more to do than just hold the reins, and direct the movement of the machine. Care must however be taken to preserve the most perfect uniformity in the motions of all its parts, otherwise confusion must ensue; hence the necessity of directing the whole from one center.

As the inspection of the Poor;--the care of them when they are sick;--the distribution of the sums granted in alms for their support;--the furnishing them with clothes;--and the collection of the voluntary subscriptions of the inhabitants,--will be performed by the commissaries of the districts, and their assistants;--and as all the details relative to giving employment to the Poor, and feeding them, may be managed by particular subordinate committees, appointed for those purposes, the current business of the supreme committee will amount to little more than the exercise of a general superintendance.

This committee, it is true, must determine upon all demands from the Poor who apply for assistance; but as every such demand will be accompanied with the most particular account of the circumstances of the petitioner, and the nature and amount of assistance necessary to his relief, certified by the commissary of the district in which the petitioner resides,--and also by the parochial committee, where such are established,--the matter will be so prepared and digested, that the members of the supreme committee will have very little trouble to decide on the merits of the case, and the assistance to be granted.

This assistance will consist--in a certain sum to be given WEEKLY in alms to the petitioner, by the commissary of the district, out of the funds of the Institution;--in an allowance of bread only;--in a present of certain articles of clothing, which will be specified;--or, perhaps, merely in an order for being furnished with wood, clothing, or fuel, from the public kitchens or magazines of the Establishment, AT THE PRIME COST of those articles, AS AN ASSISTANCE to the petitioner, and to prevent the NECESSITY OF HIS BECOMING A BURTHEN ON THE PUBLIC.

The manner last mentioned of assisting the Poor,--that of furnishing them with the necessaries of life at lower prices than those at which they are sold in the public markets, is a matter of such importance, that I shall take occasion to treat of it more fully hereafter.

With respect to the petitions presented to the committee;-- whatever be the assistance demanded, the petition received ought to be accompanied by a duplicate; to the end that, the decision of the committee being entered upon the duplicate, as well as upon the original, and the duplicate sent back to the commissary of the district, the business may be finished with the least trouble possible; and even without the necessary of any more formal order relative to the matter being given by the committee.

I have already mentioned the great utility of PRINTED FORMS, for petitions, returns, etc. in carrying on the business of an Establishment for the Poor, and I would again most earnestly recommend the general use of them. Those who have not had experience in such matters, can have no idea how much they contribute to preserve order, and facilitate and expedite business. To the general introduction of them in the management of the affairs of the Institution for the Poor at Munich, I attribute, more than to any thing else, the perfect order which has continued to reign throughout every part of that extensive Establishment, from its first existence to the present moment.

In carrying on the business of that Establishment, printed forms or blanks are used, not only for petitions;--returns;--lists of the Poor;-- descriptions of the Poor;--lists of the inhabitants; --lists of subscribers to the support of the Poor;--orders upon the banker or treasurer of the Institution;--but also for the reports of the monthly collections made by the commissaries of districts;--the accounts sent in by the commissaries, of the extraordinary expences incurred in affording assistance to those who stand in need of immediate relief;--the banker's receipts; --and even the books in which are kept the accounts of the receipts and expenditures of the Establishment.

In regard to the proper forms for these blanks; as they must depend, in a great measure, upon local circumstances, no general directions can be given, other than, in all cases, the shortest forms that can be drawn up, consistent with perspicuity, are recommended; and that the subject-matter of each particular or single return, may be so disposed as to be easily transferred to such general tables, or general accounts, as the nature of the return and other circumstances may require. Care should likewise be taken to make them of such a form, SHAPE and dimension, that they may be regularly folded up, and docketed, in order to their being preserved among the public records of the Institution.

CHAPTER. IV.

Of the Necessity of effectual Measures for introducing a Spirit of Industry among the Poor in forming an Establishment for their Relief and Support. Of the Means which may be used for that Purpose; and for setting on foot a Scheme for forming an Establishment for feeding the Poor.

An object of the very first importance in forming an Establishment for the relief and support of the Poor, is to take effectual measures for introducing a spirit of industry among them; for it is most certain, that all sums of money, or other assistance, given to the Poor in alms, which do not tend to make them industrious, never can fail to have a contrary tendency, and to operate as an encouragement to idleness and immorality.

And as the merit of an action is to be determined by the good it produces, the charity of a nation ought not to be estimated by the millions which are paid in Poor's taxes, but by the pains which are taken to see that the sums raised are properly applied.

As the providing useful employment for the Poor, and rendering them industrious, is, and ever has been, a great DESIDERATUM in political economy, it may be proper to enlarge a little here, upon that interesting subject.

The great mistake committed in most of the attempts which have been made to introduce a spirit of industry, where habits of idleness have prevailed, has been the too frequent and improper use of coercive measures, by which the persons to be reclaimed have commonly been offended and thoroughly disgusted at the very out-set.--Force will not do it.--Address, not force, must be used on those occasions.

The children in the house of industry at Munich, who, being placed upon elevated seats round the halls where other children worked, were made to be idle spectators of that amusing scene, cried most bitterly when their request to be permitted to descend from their places, and mix in that busy crowd, was refused;--but they would, most probably, have cried still more, had they been taken abruptly from their play and FORCED to work.

"Men are but children of a larger growth;"-- and those who undertake to direct them, ought ever to bear in mind that important truth.

That impatience of control, and jealousy and obstinate perseverance in maintaining the rights of personal liberty and independence, which so strongly mark the human character in all the stages of life, must be managed with great caution and address, by those who are desirous of doing good;--or, indeed, of doing any thing effectually with mankind.

It has often been said, that the Poor are vicious and profligate, and that THEREFORE nothing but force will answer to make them obedient, and keep them in order;--but, I should say, that BECAUSE the Poor are vicious and profligate, it is so much the more necessary to avoid the appearance of force in the management of them, to prevent their becoming rebellious and incorrigible.

Those who are employed to take up and tame the wild horses belonging to the Elector Palatine, which are bred in the forest near Dusseldorf, never use force in reclaiming that noble animal, and making him docile and obedient. They begin with making a great circuit, in order to approach him; and rather decoy than force him into the situation in which they wish to bring him, and ever afterwards treat him with the greatest kindness; it having been found by experience, that ill-usage seldom fails to make him "a man-hater," untameable, and incorrigibly vicious.--It may, perhaps, be thought fanciful and trifling, but the fact really is, that an attention to the means used by these people to gain the confidence of those animals, and teach them to like their keepers, their stables, and their mangers, suggested to me many ideas which I afterwards put in execution with great success, in reclaiming those abandoned and ferocious animals in human shape, which I undertook to tame and render gentle and docile.

It is however necessary in every attempt to introduce a spirit of order and industry among the idle and profligate, not merely to avoid all harsh and offensive treatment, which, as has already been observed, could only serve to irritate them and render them still more vicious and obstinate, but it is also indispensably necessary to do every thing that can be devised to encourage and reward every symptom of reformation.

It will likewise be necessary sometimes to punish the obstinate; but recourse should never be had to punishments till GOOD USAGE has first been fairly tried and found to be ineffectual. The delinquent must be made to see that he has deserved the punishment, and when it is inflicted, care should be taken to make him feel it. But in order that the punishment may have the effects intended, and not serve to irritate the person punished, and excite personal hatred and revenge, instead of disposing the mind to serious reflection, it must be administered in the most solemn and most DISPASSIONATE manner; and it must be continued no longer than till the FIRST DAWN of reformation appears.

How much prudence and caution are necessary in dispensing rewards and punishments;--and yet--how little attention is in general paid to those important transactions!