The main difference between

Poor Law relief and Charitable relief.

smith, Wandsworth, and Greenwich with Woolwich. Except at the two latter, which are open half the day, a magistrate is in attendance daily from 10 to 5. The City has an independent Police administration and magistracy. (9) The Metropolis is divided into the districts (generally coterminous with the parishes or unions) and sub-districts of the Registrar-General for statistical purposes, returns of health, deaths and births, etc. (10) The local government of the City is in the hands of a Court of Common Council consisting of 26 Aldermen, out of whom the Lord Mayor is annually elected,* and 206 Common Councillors. Both Aldermen and Common Councillors are elected by the Parliamentary voters in the City,† the former for life, the latter annually. The elections are by wards, of which there are 26. The duties which elsewhere devolve upon a Vestry or District Board are there entrusted to Commissioners of the Sewers, appointed by the Court of Common Council. It is almost inevitable that an almoner should be brought into contact with most of these bodies, or have to ascertain their duties on some points, in order to endeavour to remove evils and to assist cases which he will meet with in the course of his work.

X.-ON THE FUNCTIONS OF THE POOR LAW AND OF CHARITY.

It has been said above that charity, as there is a Poor Law in England, may safely restrict itself to eligible cases. It is hardly too much to say that no person should take part in at least public charitable work withou a general knowledge of the functions of the Poor Law.

The claim for Poor Law relief rests, it may be broadly stated, upon the destitution of the claimant. Merit has nothing to do with it. The vicious and virtuous are equally entitled to it: the provident man gets neither more nor less because he has been provident. The humane from motives of charity, and the prosperous from motives of self-protection, would not suffer the destitute to starve. A Poor Law was therefore established. But they would not tempt the self-supporting to destitution. Therefore it was established under just but hard restrictions. 'The fundamental principle,' to quote the often-quoted passage of the report of the

* The City Livery Companies have an indirect influence on the government of the City. There are 74 of these Companies. Their Liverymen' form the chief part of the Court of Common Hall of the City of London. This Court of Common Hall consists of the Lord Mayor, at least four Aldermen, and such of the Liverymen of the various City Companies as are of one year's standing, free of the City, and have paid their livery fees.' It nominates two Aldermen who have served as City Sheriffs, one of whom is chosen by the Lord Mayor and Aldermen as Lord Mayor. It elects also the City Sheriffs, Chamberlain, Bridge Masters, and Auditors.-See 'Greater London and its Government,' by George Whale, and Firth's Municipal London.'

The Liverymen, free by birth or servitude, and residing within twenty-five miles of the City, are among the Parliamentary voters in the City

the

Poor Law Commissioners, 1834-with respect to the legal relief of poor is, that the condition of the pauper ought to be on the whole less eligible than that of the independent labourer. The equity and expediency of this principle are equally obvious. Unless the condition of the pauper is on the whole less eligible than that of the independent labourer, the law destroys the strongest motives to good conduct, steady industry, providence, and frugality among the labouring classes, and induces persons, by idleness or imposture, to throw themselves upon the poor rates for support.' The independent labourer has to be protected only against destitution. The pauper has no just ground for complaint, if at the same time that his physical wants are amply provided for, his condition should be less eligible than that of the poorest class of those who contribute to his support.'* On the threshold of the question then we see the boundary lines of charity and the Poor Law. To charity it is not a matter of primary importance, whether a person is destitute or not. For it destitution is no test. It has more chance of helping effectually if a person is not destitute. It has to prevent destitution and indigence. It may have to supply actual necessaries, but to place the poor beyond the reach of need or to prevent the occurrence of need is its true vocation. It is unlimited in its scope, and gives as a free gift. To the Poor Law the question of destitution is all-important. It is the passport to relief. The Poor Law is tied and bound with restrictions, and is the administrator of a ratepayers' trust fund. The Poor Law is not intended to be remedial or to prevent by its direct action the growth of paupersgeneration after generation. It is a stern alleviative measure. The Poor Law helps only when it must; charity always when it wills. Charity like the Poor Law may destroy the strongest motives to good conduct, steady industry, providence, and frugality.' Tests guard the one; knowledge and inquiry ought to guard the other.

6

XI. THE ADMINISTRATION OF THE POOR LAWS: THE LOCAL
GOVERNMENT BOARD.

The administration of Poor Law relief rests with the Board of Guardians, the local authority in each union, subject to the direction and control of the Local Government Board, the central authority. The Board by elaborate 'orders' and numerous forms has

*Subject to modifications, to be subsequently mentioned, but which do not materially affect the general principle- The function of the Guardians is to relieve destitution actually existing, and not to expend the money of the ratepayers in preventing a person becoming destitute, that is to say, they can only expend the poor rates in supplying the destitute persons with actual necessaries, such as food, clothing, or lodging, or the means of obtaining food, clothing, or lodging temporarily, if the destitute person cannot be immediately received into the workhouse.'- The Poor Law Orders of the Poor Law Commissioners, the Poor Law Board, and the Local Government Board,' by W. Cunningham Glen, 1883, p. 63,

Evidence of the advan

settled with precision the duties of each officer to be employed by
the Guardians, how their establishments are to be managed, how
their accounts are to be kept, and generally how their relief is to be
given.*
Without the consent of the Local Government Board the
Guardians may neither appoint nor remove any officer. On the other
hand, the limitations to the powers of the Local Government Board
are these: it cannot interfere with the laws of settlement and re-
moval, (of which a few words further on); it cannot order relief in
a particular case; and it cannot compel attendance at a worship, or
education in a religious creed, objected to by the pauper.

The Local Government Board (Whitehall) is composed of a President (at present the Right Hon. C. T. Ritchie, M.P.), and as ex-officio members, the Lord President of the Privy Council, the principal Secretaries of State, the Lord Privy Seal and the Chancellor of the Exchequer. For the supervision of the local administration the Board has Inspectors and Auditors. The former are entitled to visit workhouses, attend and take part, without vote, in meetings of Boards of Guardians, and to hold inquiries and summon witnesses in regard to any question of Poor Law administration. The latter have full powers to 'examine, audit, allow or disallow of accounts and of items therein.' Any payment at variance with the rules or orders of the Local Government Board is disallowed, though the Board has discretionary power of remitting the disallowance surcharged. There is thus a very strict control.

In the metropolitan area there are three Inspectors and two Auditors, and there are 30 Parishes or Unions.

XII. THE BOARD OF GUARDIANS: ILLUSTRATIONS OF THE IMPORTANCE
OF CO-OPERATION WITH THE CHARITABLE.

The population and area of these Unions is stated in the local lists (printed in the Register), together with the qualification and number of members in each Union, the addresses of the District Schools, Workhouses, Casual wards, and other particulars.

If there is thorough co-operation between the Guardians and charitable persons on sound principles, many cases of distress which would otherwise have been improperly or insufficiently assisted, will be carefully attended to. Two plans of co-operation may and Charity. be mentioned. At Kensington members of the Charity Organisation

tage of cooperation between Poor Law

Committee see most of the applicants for out-relief, and at once interfere if they think their money or advice can prevent a man

* 6

As regards the relief of persons who are in receipt of charitable contributions, it may be observed that if the fact comes to the knowledge of the Guardians, in the case of an application to them for relief, they are bound to act upon it, and either wholly refuse relief, or to give such an amount only as, with the other assistance the applicant receives, will be sufficient to relieve his actual necessities.' Glen Poor Law Orders, p. 64 (1883).

from becoming a pauper.

Similarly, they and other charitable persons are constantly examining the more hopeful of the inmates of the workhouse, and are ready to do what they can to restore the paupers to independence. In order to investigate these cases more closely, members of the Charity Organisation Committee attend the meetings of the Guardians' House Committee, and a Sub-Committee of the Charity Organisation Committee meets at the workhouse. The following instances show how the system works :

A., a young woman, presented herself for admission to the workhouse, but the officer who saw her, struck by her appearance and manner, advised her, before taking any further step, to consult a lady, a member of this Committee, whose address he gave her. She did so, and, her story being at once inquired into, it appeared that she had been in highly respectable service; had left to nurse a sister in ill-health, on whom she spent all her savings; had come to London on her sister's death, hoping to find employment, but failed; and, finding herself getting into debt, had resolved, in desperation, to seek refuge in the workhouse. Assistance was immediately given her, the money necessary to get requisite clothing was advanced, and employment obtained for her. She is now in a superior situation, has repaid the money lent to her, and acknowledged with deep gratitude the help which saved her.

B., a girl of wandering habits, but apparently not of bad character, who had drifted into the workhouse, was sent to a training home and thence to service

At Kensington a Workhouse Girls' Aid Committee has been formed at the suggestion, and with the concurrence, of the Guardians. A member of the Committee takes down the case of each girl. Inquiries are made either by the Charity Organisation Society or by a lady familiar with their practice. If the Committee are satisfied that the girl wishes to lead a better life, a situation is looked out for her, and help granted according to her requirements for herself and for her child. Parents are sought out. Mother and child are visited periodically, and payments received on the children's behalf. At St. Pancras and elsewhere there are similar committees.

It will be seen how great an inducement to become members of Boards of Guardians those have who possess time and leisure and desire to undertake charitable work.

of owners: proxies.

XIII. THE ELECTION OF BOARDS OF GUARDIANS: ITS IMPORTANCE. Voters must be either owners or ratepayers. An 'owner shall The Voting be construed and include any person for the time being in the actual occupation of any property rateable to the relief of the poor, and not let to him at rackrent, or any person receiving the rackrent of any such property, either on his own account or as mortgagee or other encumbrancer in possession.' Rackrent is defined to mean 'any rent which shall not be less than two-thirds of the full im

*For further information see The Poor Law Election Manual. Fourth Edition. By W. G. Lumley, Esq. 1886. See also Glen's Poor Law Orders, p. 1 (1883), and Archbold's Poor Law: Fourteenth Edition, p. 62 (1885).

The Voting of Ratepayers.

Voting by wards.

proved net annual value of any property.' 'The term owner,' Mr.
Lumley writes, appears to signify any person who is entitled to
call the property his own.' An owner is not entitled to vote unless
before the 1st February previous to the election he has sent to the
clerk to the Guardians a statement containing a description of the
nature or interest he has in the property, and other details. In
the case of property belonging to a corporation, joint-stock, or other
company, their officer is entitled to vote as if he were the owner.
The owner's statement, so long as he retains his qualification, need
not be renewed. An owner, if he be non-resident, may vote by
proxy. For this purpose
he must send to the clerk to the Guardians
' a statement in writing of the name and address of the proxy, and
the description of the property in the parish as proxy for the owner
whereof he claimed to vote, and the original or an attested copy of
his writing appointing him such proxy.'* Any person may act as
proxy; and the authorisation to vote cannot remain in force for a
longer period than two years. The proxy cannot vote until fourteen
days after he has made his claim. No person can be proxy for
more than four owners except he be steward, bailiff, land agent, or
collector of rents for the owners for whom he may be appointed to
vote. The appointment of such a proxy holds good till it be
revoked. A register of owners is kept by the overseers.

No person shall be deemed a ratepayer or be entitled to vote unless he shall have been rated to the relief of the poor for the whole year immediately preceding his so voting . . . and shall have paid the parochial rates and assessments made and assessed upon him for the period of one whole year, as well as those due from him at the time of so voting, except such as shall have been made or become due within the six months immediately preceding.' † Residence or occupation is not required as part of the qualification. 'In ordinary cases only one person is rated, and he is the occupier.' The officer of any corporation, company, commissioners or public trustees whose name is entered in the rate-book under that of the corporation may vote on behalf of their rate.§

These details are worthy of consideration. In the richer districts, where suitable candidates with leisure at their disposal are forthcoming, owners and holders of large properties may not care to exercise their legitimate influence and inform themselves on this question of the election of Guardians. But in poor districts, they may be said to be hardly entitled to this right, unless they exercise it; so much in such places depends on the election of Guardians.

For purposes of election parishes may be divided into wards. The voter (be he owner or ratepayer) can then only vote in the ward in respect of property situated in that ward. The number

*Lumley, p. 9.

† 4 & 5 Will. IV., c. 76, s. 40.

Lumley, p. 30.

§ 30 & 31 Vict., c. 106, s. 10.