However large a city may be, in which an Establishment for the Poor is to be formed, I am clearly of opinion, that there should be but ONE ESTABLISHMENT;--with ONE committee for the general management of all its affairs;--and ONE treasurer. This unity appears essentially necessary, not only because, when all the parts tend to one common centre, and act in union to the same end, under one direction, they are less liable to be impeded in their operations, or disordered by collision;--but also on account of THE VERY UNEQUAL DISTRIBUTION OF WEALTH, as well as of misery and poverty, in the different districts of the same town.

Some parishes in great cities have comparatively few Poor, while others, perhaps less opulent, are overburthened with them; and there seems to be no good reason why a house-keeper in any town should be called upon to pay more or less for the support of the Poor, because he happens to live on one side of a street or the other. Added to this, there are certain districts in most great towns where poverty and misery seem to have fixed their head-quarters, and where it would be IMPOSSIBLE for the inhabitants to support the expence of maintaining their Poor.

Where that is the case, as measures for preventing mendicity in every town must be general, in order to their being successful, the enterprise, FROM THAT CIRc.u.mSTANCE ALONE, would be rendered impracticable, were the a.s.sistance of the more opulent districts to be refused.

There is a district, for instance, belonging to Munich, (the Au,) a very large parish, which may be called the St. Giles's of that city, where the alms annually received are TWENTY TIMES as much as the whole district contributes to the funds of the public Inst.i.tution for the Poor.--The inhabitants of the other parishes, however, have never considered it a hardship to them, that the Poor of the Au should be admitted to share the public bounty, in common with the Poor of the other parishes.

Every town must be divided, according to its extent, into a greater or less number of districts, or subdivisions; and each of these must have a committee of inspection, or rather a commissary, with a.s.sistants, who must be entrusted with the superintendance and management of all affairs relative to the relief and support of the Poor within its limits.

In very large cities, as the details of a general Establishment for the Poor would be very numerous and extensive, it would probably facilitate the management of the affairs of the Establishment, if, beside the smallest subdivisions or districts, there could be formed other larger divisions, composed of a certain number of districts, and put under the direction of particular committees.

The most natural, and perhaps the most convenient method of dividing a large city or town, for the purpose of introducing a general Establishment for the Poor, would be, to form of the parishes the primary divisions; and to divide each parish into so many subdivisions, or districts, as that each district may consist of from 3000 to 4000 inhabitants. Though the immediate inspection and general superintendance of the affairs of each parish were to be left to its own particular committee, yet the supreme committee at the head of the general Inst.i.tution should not only exercise a controlling power over the parochial committees, but these last should not be empowered to levy money upon the parishioners, by setting on foot voluntary subscriptions, or otherwise; or to dispose of any sums belonging to the general Inst.i.tution, except in cases of urgent necessity;--nor should they be permitted to introduce any new arrangements with respect to the management of the Poor, without the approbation and consent of the supreme committee: the most perfect uniformity in the mode of treating the Poor, and transacting all public business relative to the Inst.i.tution, being indispensably necessary to secure success to the undertaking, and fix the Establishment upon a firm and durable foundation.

For the same reasons, all monies collected in the parishes should not be received and disposed of by their particular committees, but ought to be paid into the public treasury of the Inst.i.tution, and carried to the general account of receipts;--and, in like manner, the sums necessary for the support of the Poor in each parish should be furnished from the general treasury, on the orders of the supreme committee.

With regard to the applications of individuals in distress for a.s.sistance, all such applications ought to be made through the commissary of the district to the parochial committee;--and where the necessity is not urgent, and particularly where permanent a.s.sistance is required, the demand should be referred by the parochial committee to the supreme committee, for their decision.

In cases of urgent necessity, the parochial committees, and even the commissaries of districts, should be authorized to administer relief, ex officio, and without delay; for which purpose they should be furnished with certain sums in advance, to be afterwards accounted for by them.

That the supreme committee may be exactly informed of the real state of those in distress who apply for relief, every pet.i.tion, forwarded by a parochial committee, or by a commissary of a district, where there are no parochial committees, should be accompanied with an exact and detailed account of the circ.u.mstances of the pet.i.tioner, signed by the commissary of the district to which he belongs, together with the amount of the weekly sum, or other relief, which such commissary may deem necessary for the support of the pet.i.tioner.

To save the commissaries of districts the trouble of writing the descriptions of the Poor who apply for a.s.sistance, printed forms, similar to that which may been seen in the Appendix, No. V. may be furnished to them;--and other printed forms, of a like nature, may be introduced with great advantage in many other cafes in the management of the Poor.

With regard to the manner in which the supreme and parochial committees should be formed;-- however they may be composed, it will be indispensably requisite, for the preservation of order and harmony in all the different parts of the Establishment, that one member at least of each parochial committee be present, and have a seat, and voice, as a member of the supreme committee.

And, that all the members of each parochial committee may be equally well informed with regard to the general affairs of the Establishment, it may perhaps be proper that those members attended the meetings of the supreme committee in rotation.

For similar reasons it may be proper to invite the commissaries of districts to be present in rotation at the meetings of the committees of their respective parishes, where there are parochial committees established, or otherwise, at the meetings of the supreme committee[4].

It is, however, only in very large cities that I would recommend the forming parochial committees. In all towns where the inhabitants do not amount to more than 100,000 souls, I am clearly of opinion that it would be best merely to divide the town into districts, without regard to the limits of parishes; and to direct all the affairs of the inst.i.tution by one simple committee. This mode was adopted at Munich, and found to be easy in practice, and successful; and it is not without some degree of diffidence, I own, that I have ventured to propose a deviation from a plan, which has not yet been justified by experience.

But however a town may be divided into districts, it will be absolutely necessary that ALL the houses be regularly numbered, and an accurate list made out of all the persons who inhabit them. The propriety of this measure is too apparent to require any particular explanation. It is one of the very first steps that ought to be taken in carrying into execution any plan for forming an Establishment for the Poor; it being as necessary to know the names and places of abode of those, who, by voluntary subscription, or otherwise, a.s.sist in relieving the Poor, as to be acquainted with the dwellings of the objects themselves; and this measure is as indispensable necessary when an inst.i.tution for the Poor is formed in a small country-town or village, as when it is formed in the largest capital.

In many cases, it is probable, the established laws of the country in which an inst.i.tution 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 circ.u.mstances under which it may be carried into execution, without making any essential alteration.

CHAPTER. III.

General Direction of the Affairs of an Inst.i.tution 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 a.s.sistance 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 a.s.sistance 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 inst.i.tuted 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 inst.i.tution for the relief of the Poor, relates chiefly to the necessity of encouraging people in affluent circ.u.mstances, 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 inst.i.tution 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 circ.u.mstances, 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 circ.u.mstance 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 circ.u.mstances, 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 circ.u.mstances 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 circ.u.mstances 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 compa.s.sion;--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 G.o.d 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 a.s.sist in so useful an undertaking, from coming forward with propositions for the inst.i.tution 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 n.o.body's business; and it is very certain that many schemes, evidently intended for the public good, have been neglected, merely because n.o.body 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 inst.i.tution 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 circ.u.mstance 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 a.s.sistance in relieving the distresses of the Poor, and providing for their comfort and happiness, by introducing order and useful industry among them.

Another cla.s.s 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 a.s.sistance 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 a.s.sistance 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 a.s.sist him in the business.

The Bishop, for instance, may bring his chaplain;--the Magistrate, his clerk;--the n.o.bleman, 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 a.s.sistants. 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 a.s.sistants;--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 a.s.sistance; but as every such demand will be accompanied with the most particular account of the circ.u.mstances of the pet.i.tioner, and the nature and amount of a.s.sistance necessary to his relief, certified by the commissary of the district in which the pet.i.tioner 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 a.s.sistance to be granted.

This a.s.sistance will consist--in a certain sum to be given WEEKLY in alms to the pet.i.tioner, by the commissary of the district, out of the funds of the Inst.i.tution;--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 a.s.sISTANCE to the pet.i.tioner, and to prevent the NECESSITY OF HIS BECOMING A BURTHEN ON THE PUBLIC.

The manner last mentioned of a.s.sisting 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 pet.i.tions presented to the committee;-- whatever be the a.s.sistance demanded, the pet.i.tion 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 pet.i.tions, 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 Inst.i.tution 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 pet.i.tions;--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 Inst.i.tution;--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 a.s.sistance 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.