Chapter IV: Part 4

Though this scarcity of fuel, which had prevailed for ages in that part of Italy, had rendered it necessary to pay attention to the economy of fuel, and had occasioned some improvements to be made in the management of heat; yet I found, upon examining the kitchens of these two hospitals, and comparing the quantities of fuel consumed with the quantities of victuals cooked, that SEVERN-EIGHTHS of the fire-wood they were then consuming might be saved[15]. Having communicated the result of those enquiries to the directors of these two hospitals, and offered my service to alter the kitchens, and arrange them upon the principles of that in the house of industry at Munich, (which I described to them,) they accepted my offer, and the kitchens were rebuilt under my immediate direction; and have both succeeded, even beyond my most sanguine expectations. That of the hospital of la Pieta is the most complete kitchen I have ever built; and I would recommend it as a model, in preference to any I have ever seen. I shall give a more particular description of it, with plans and estimates, in my Essay on the Management of Heat.

During the time I was employed in building the new kitchen in the hospital of la Pieta, I had an opportunity of making myself acquainted with all the details of the clothing of the Poor belonging to that establishment; and I found that very great savings might be made in that article of expence. I made a proposal to the directors of that hospital, to furnish them with clothing for their Poor, ready made up, from the house of industry at Munich; and upon my return to Munich I sent them TWELVE complete suits of clothing of different sizes as a sample, and accompanied them with an estimate of the prices at which we could afford to deliver them at Verona.

The success of this little adventure has been very flattering, and has opened a very interesting channel for commerce, and for the encouragement of industry in Bavaria. This sample of clothing being approved, and, with all the expences of carriage added, being found to be near TWENTY PER CENT. cheaper than that formerly used, orders have been received from Italy by the house of industry at Munich, to a considerable amount, for clothing the Poor. In the beginning of September last, a few days before I left Munich to come to England, I had the pleasure to assist in packing up and sending off, over the Alps, by the Tyrol, SIX HUNDRED articles of clothing of different kinds for the Poor of Verona; and hope soon to see the Poor of Bavaria growing rich, by manufacturing clothing for the Poor of Italy.

END OF THE FIRST ESSAY.

Footnotes to Essay I.

[1] This paper, as it could afterwards be made use of for making cartridges, in fact cost nothing.

[2] A creutzer is 11/33 of an English penny.

[3] Particular local reasons, which it is not necessary here to explain, have hitherto prevented the establishment of military gardens in these two garrison towns.

[4] The whole amount of this burden was not more than 30,000 florins, or about 2721L. sterling a year.

[5] Mons. Dallarmi.

[6] The annual amount of these various receipts may be seen in the accounts published in the Appendix.

[7] Almost all the great law-givers, and founders of religions, from the remotest antiquity, seem to have been aware of the influence of cleanliness upon the moral character of man; and have strongly inculcated it. In many cases it has been interwoven with the most solemn rites of public and private worship, and is so still in many countries. The idea that the soul is defiled and depraved by every thing UNCLEAN, or which defies the body, has certainly prevailed in all ages; and has been particularly attended to by those great benefactors of mankind, who, by the introduction of PEACE and ORDER in society, have laboured successfully to promote the happiness of their fellow-creatures. Order and disorder--peace and war--health and sickness, cannot exist together; but COMFORT and CONTENTMENT, and the inseparable companions of HAPPINESS and VIRTUE, can only arise from order, peace, and health.

[8] Upon this occasion I must not forget to mention a curious circumstance, which contributed very much towards clearing the town effectually of beggars. It being found that some of the most hardened of these vagabonds were attempting to return to their old practices, and that they found means to escape the patroles, by keeping a sharp look-out, and avoiding them, to hold them more effectually in check, the patroles sent out upon this service were ordered to go without arms. In consequence of this arrangement, the beggars being no longer able to distinguish who were in search of them, and who were not, saw a patrole in every soldier they met with in the streets, (and of these there were great numbers, Munich being a garrison town,) and from thenceforward they were kept in awe.

[9] Upon a new division of the town, when the suburbs were included, the number of subdivisions (abtheilungs) were augmented to twenty three.

[10] This was written in the summer of the year 1795.

[11] As these children were not shut up and confined like prisoners in the house of industry, but all lodged in the town, with their parents or friends, they had many opportunities to recreate themselves, and take exercise in the open air; not only on holidays, of which there are a very large number indeed kept in Bavaria; but also on working-days, in coming and going to and from the house of industry. Had not this been the case, a reasonable time would certainly have been allowed them for play and recreation. The cadets belonging to the Military Academy at Munich are allowed no less than THREE HOURS a day for exercise and relaxation, viz ONE HOUR immediately after dinner, which is devoted to music, and TWO HOURS, later in the afternoon, for walking in the country, or playing in the open fields near the town.

[12] Since the publication of the first edition of the Essay, the Author has received an account of the total destruction of the Military Work-house at Manheim. It was set on fire, and burnt to the ground, during the last siege of that city by the Austrian troops.

[13] Above 18,000 pounds sterling.

[14] The committee, at the head of the establishment, has been enabled to make this purchase, by legacies made to the institution. These legacies have been numerous, and are increasing every day; which clearly shows, that the measures adopted with regard to the Poor have met with the approbation of the public.

[15] I found upon examining the famous kitchen of the great hospital at Florence, that the waste of fuel there is still greater.

CONTENTS of ESSAY II.

of the FUNDAMENTAL PRINCIPLES on which GENERAL ESTABLISHMENTS for the RELIEF of the POOR may be formed in all Countries.

CHAPTER. I. General View of the Subject. Deplorable State of those who are reduced to Poverty. No Body of Laws can be so framed as to provide effectually for their Wants. Only adequate Relief that can be afforded them must be derived from the voluntary Assistance of the Humane and Benevolent, How that Assistance is to be secured. Objections to the Expense of taking care of the Poor answered. Of the Means of introducing a Scheme for the Relief of the Poor.

CHAPTER. II. Of the Extent of an Establishment for the Poor. Of the Division of a Town or City into Districts. Of the Manner of carrying on the Business of a public Establishment for the Poor. Of the Necessity of numbering all the Houses in a Town where an Establishment for the Poor is formed.

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 of 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.

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.

CHAPTER. V. Of the Means which may be used by Individuals in affluent Circumstances for the Relief of the Poor in their Neighbourhood.

ESSAY II.

CHAPTER. I.

General View of the Subject. Deplorable State of those who are reduced to Poverty. No Body of Laws can be so framed as to provide efficaciously for their Wants. Only adequate Relief that can be afforded them must be derived from the voluntary Assistance of the Humane and Benevolent. How that Assistance is to be secured. Objections to the Expence of taking care of the Poor answered Of the Means of introducing a Scheme for the Relief of the Poor.

Though the fundamental principles upon which the Establishment for the Poor at Munich is founded, are such as I can venture to recommend; and notwithstanding the fullest information relative to every part of that Establishment may, I believe, be collected from the account of it which is given in the foregoing Essay; yet, as this information is so dispersed in different parts of the work, and so blended with a variety of other particulars, that the reader would find some difficulty in bringing the whole into one view, and arranging it systematically in a complete whole; I shall endeavour briefly to resume the subject, and give the result of all my enquiries relative to it, in a more concise, methodical, and useful form: and as from the experience, I have had in providing for the wants of the Poor, and reclaiming the indolent and vicious to habits of useful industry, I may venture to consider myself authorised to speak with some degree of confidence upon the subject; instead of merely recapitulating what has been said of the Establishment for the Poor at Munich, (which would be at best but a tiresome repetition,) I shall now allow myself a greater range in these investigations, and shall give my opinions without restraint which may come under consideration. And though the system I shall propose, is founded upon the successful experiments made at Munich, as may be seen by comparing it with the details of that Establishment; yet, as a difference in the local circumstances under which an operation is performed, must necessarily require certain modifications of the plan, I shall endeavour to take due notice of every modification which may appear to me to be necessary[1].

Before I enter upon those details, it may be proper to take a more extensive survey of the subject, and investigate the general and fundamental Principles on which an Establishment for the Relief of the Poor, in every country, ought to be founded. At the same time I shall consider the difficulties which are generally understood to be inseparable from such an undertaking, and endeavour to show that they are by no means insurmountable.

That degree of poverty which involves in it the inability to procure the necessaries of life without the charitable assistance of the Public, is, doubtless, the heaviest of all misfortunes; as it not only brings along with it the greatest physical evils, pain,--and disease, but is attended by the most mortifying humiliation, and hopeless despondency. It is, moreover, an incurable evil; and is rather irritated than alleviated by the remedies commonly applied to remove it. The only alleviation, of which it is capable, must be derived from the kind and soothing attentions of the truly benevolent. This is the only balm which can sooth the anguish of a wounded heart, or allay the agitations of a mind irritated by disappointment, and rendered ferocious by despair.

And hence it evidently appears that no body of laws, however wisely framed, can, in any country, effectually provide for the relief of the Poor, without the voluntary assistance of individuals; for though taxes may be levied by authority of the laws for the support of the Poor, yet, those kind attentions which are so necessary in the management of the Poor, as well to reclaim the vicious, as to comfort and encourage the despondent--those demonstrations of concern which are always so great a consolation to persons in distress--cannot be COMMANDED BY FORCE. On the contrary, every attempt to use FORCE in such cases, seldom fails to produce consequences directly contrary to those intended[2].

But if the only effectual relief for the distress of the Poor, and the sovereign remedy for the numerous evils to society which arise from the prevalence of mendicity, indolence, poverty, and misery, among the lower classes of society, must be derived from the charitable and voluntary exertions of individuals;-- as the assistance of the Public cannot be expected, unless the most unlimited confidence can be placed, not only in the wisdom of the measures proposed, but also, and MORE ESPECIALLY, in the UPRIGHTNESS, ZEAL, and PERFECT DISINTERESTEDNESS of the persons appointed to carry them into execution; it is evident that the first object to be attended to, in forming a plan of providing for the Poor, is to make such arrangements as will COMMAND THE CONFIDENCE OF THE PUBLIC, and fix it upon the most solid and durable foundation.

This can most certainly, and most effectually be done;
first by engaging persons of high rank and
the most respectable character to place themselves
at the head of the Establishment:
secondly, by joining, in the general administration of the
affairs of the Establishment, a certain number of persons chosen
from the middling class of society; reputable tradesmen, in easy
circumstances;--heads of families;--and others of known integrity
and of humane dispositions[3]:
thirdly, by engaging all those who are employed in the
administration of the affairs of the Poor, to serve without fee
or reward:
fourthly, by publishing, at stated periods, such particular and
authentic accounts of all receipts and expenditures, that no
doubt can possibly be entertained by the Public respecting the
proper application of the monies destined for the relief of the
Poor:
fifthly, by publishing an alphabetical list of all who receive
alms; in which list should be inserted, not only the name of
the person, his age; condition; and place of abode; but also
the amount of the weekly assistance granted to him; in order
that those who entertain any doubts respecting the manner in
which the Poor are provided for, may have the opportunity of
visiting them at their habitations, and making enquiry into
their real situations:
and lastly, the confidence of the Public, and the
continuance of their support, will most effectually be secured
by a prompt and successful execution of the plan adopted.

There is scarcely a greater plague that can infest society, than swarms of beggars; and the inconveniencies to individuals arising from them are so generally, and so severely felt, that relief from so great an evil cannot fail to produce a powerful and lasting effect upon the minds of the Public, and to engage all ranks to unite in the support of measures as conducive to the comfort of individuals, as they are essential to the national honor and reputation. And even in countries where the Poor do not make a practice of begging, the knowledge of their sufferings must be painful to every benevolent mind; and there is no person, I would hope, so callous to the feelings of humanity, as not to rejoice most sincerely when effectual relief is afforded.

The greatest difficulty attending the introduction of any measure founded upon the voluntary support of the Public, for maintaining the Poor, and putting an end to mendicity, is an opinion generally entertained, that a very heavy expence would be indispensably necessary to carry into execution such an undertaking. But this difficulty may be speedily removed by showing, (which may easily be done,) that the execution of a well-arranged plan for providing for the Poor, and giving useful employment to the idle and indolent, so far from being expensive, must, in the end, be attended with a very considerable saving, not only to the Public collectively, but also to individuals.

Those who now extort their subsistence by begging and stealing, are, in fact, already maintained by the Public. But this is not all; they are maintained in a manner the most expensive and troublesome, to themselves and the Public, that can be conceived; and this may be said of all the Poor in general.

A poor person, who lives in poverty and misery, and merely from hand to mouth, has not the power of availing himself of any of those economical arrangements, in procuring the necessaries of life, which other, in more affluent circumstances, may employ; and which may be employed with peculiar advantage in a public Establishment.--Added to this, the greater part of the Poor, as well those who make a profession of begging, as other who do not, might be usefully employed in various kinds of labour; and supposing them, one with another, to be capable of earning ONLY HALF as much as is necessary to their subsistence, this would reduce the present expence to the Public for their maintenance at least one half; and this half might be reduced still much lower, by a proper attention to order and economy in providing for their subsistence.

Were the inhabitants of a large town where mendicity is prevalent, to subscribe only half the sums annually, which are extorted from them by beggars, I am confident it would be quite sufficient, with a proper arrangement, for the comfortable support of the Poor of all denominations.

Not only those who were formerly common street-beggars, but all others, without exception, who receive alms, in the city of Munich and its suburbs, amounting at this time to more than 1800 persons, are supported almost entirely by voluntary subscriptions from the inhabitants; and I have been assured by numbers of the most opulent and respectable citizens, that the sums annually extorted from them formerly by beggars alone, exclusive of private charities, amounted to more than three times the sums now given by them to the support of the new institution. I insist the more upon this point, as I know that the great expence which has been supposed to be indispensably necessary to carry into execution any scheme for effectually providing for the Poor, and putting an end to mendicity, has deterred many well-disposed persons from engaging in so useful an enterprise. I have only to add my most earnest wishes, that what I have said and done, may remove every doubt, and re-animate the zeal of the Public, in a cause in which the dearest interests of humanity are so nearly concerned.

In almost every public undertaking, which is to be carried into effect by the united voluntary exertions of individuals, without the interference of government, there is a degree of awkwardness in bringing forward the business, which it is difficult to avoid, and which is frequently not a little embarrassing. This will doubtless be felt by those who engage in forming and executing schemes for providing for the Poor by private subscription; they should not, however, suffer themselves to be discouraged by a difficulty which may so easily be surmounted.

In the introduction of every scheme for forming an Establishment for the Poor, whether it be proposed to defray the expense by voluntary subscriptions, or by a tax levied for the purpose, it will be proper for the authors or promoters of the measure to address the Public upon the subject; to inform them of the nature of the measures proposed;-- of their tendency to promote the public welfare, and to point out the various ways in which individuals may give their assistance to render the scheme successful.

There are few cities in Europe, I believe, in which the state of the Poor would justify such an address as that which was published at Munich upon taking up the beggars in that town; but something of the kind; with such alterations as local circumstances may require, I am persuaded, would in most cases produce good effects. With regard to the assistance that might be be given by individuals to carry into effect a scheme for providing for the Poor, though measures for that purpose may, and ought to be so taken, that the Public would have little or no trouble in their execution, yet there are many things which individuals must be instructed cautiously to avoid; otherwise the enterprise will be extremely difficult, it not impracticable; and, above all things, they must be warned against giving alms to beggars.

Though nothing would be more unjust and tyrannical, than to prevent the generous and humane from contributing to the relief of the Poor and necessitous, yet, as giving alms to beggars tends so directly and so powerfully to encourage idleness and immorality, to discourage the industrious Poor, and perpetuate mendicity, with all its attendant evils, too much pains cannot be taken to guard the Public against a practice so fatal in its consequences to society.

All who are desirous of contributing to the relief of the Poor, should be invited to send their charitable donations to be distributed by those who, being at the head of a public Institution established for taking care of the Poor, must be supposed best acquainted with their wants. Or, if individuals should prefer distributing their own charities, they ought at least to take the trouble to enquire after fit objects; and to apply their donations in such a manner as not to counteract the measures of a public and useful Establishment.

But, before I enter farther into these details, it will be necessary to determine the proper extent and limits of an Establishment for the Poor; and show how a town or city ought to be divided in districts, in order to facilitate the purposes of such an institution.

CHAPTER. II. Of the Extent of an Establishment for the Poor. Of the Division of a Town or City into Districts. Of the Manner of carrying on the Business of a public Establishment for the Poor. Of the Necessity of numbering all the Houses in a Town where an Establishment for the Poor is formed.

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 CIRCUMSTANCE ALONE, would be rendered impracticable, were the assistance 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 Institution 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 assistants, 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 Institution 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 Institution, 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 Institution, 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 Institution, 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 assistance, 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 assistance 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 petition, 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 circumstances of the petitioner, 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 petitioner.

To save the commissaries of districts the trouble of writing the descriptions of the Poor who apply for assistance, 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 institution 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, assist in relieving the Poor, as to be acquainted with the dwellings of the objects themselves; and this measure is as indispensable necessary when an institution 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 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.