Hostname: page-component-6d856f89d9-jrqft Total loading time: 0 Render date: 2024-07-16T06:27:06.925Z Has data issue: false hasContentIssue false

Whigs and Paupers: The Reform of the English Poor Laws, 1830-1834

Published online by Cambridge University Press:  10 January 2014

Peter Dunkley*
Affiliation:
Georgetown University

Extract

In 1832, a royal commission was appointed to investigate the operation of the poor laws in England and Wales, and two years later legislation was adopted on the basis of the commission's recommendations. For most contemporaries the passage of this measure, the so-called New Poor Law, seemed to promise significant, perhaps even radical, change in the administration of poor relief. An ancient system of parochial government was to be supplanted in the localities by a series of larger poor law unions and boards of guardians, whose discretion was to be limited by responsibility to a national bureaucratic authority in London. No less dramatic was the relief policy that the new law envisioned. It was generally understood that the poor law commissioners appointed under the act were to direct their main efforts to the establishment of a system of workhouses, wherein relief could be accorded under conditions that rendered the pauper's lot “less eligible,” that is, less attractive, than that of the poorest independent laborer. Through such means, it was hoped, an end might be made to what was seen as a long-established and widespread practice of supplementing the inadequate wages of the laboring poor out of the poor rates.

While the tendency of recent work has been to question the practical effect of this legislation on the actual distribution of aid, the problem remains of explaining the motivations and intentions of the men who promoted a measure of such seemingly abundant and far-reaching implications.

Type
Research Article
Copyright
Copyright © North American Conference of British Studies 1981

Access options

Get access to the full version of this content by using one of the access options below. (Log in options will check for institutional or personal access. Content may require purchase if you do not have access.)

References

1 This has been argued most forcefully by William Lubenow. See The Politics of Government Growth (hereafter, Growth) (Newton Abbot, 1971), p. 56Google Scholar and passim.

2 This position is most closely associated with the work of Anthony Brundage. See The Making of the New Poor Law (hereafter, New Poor Law) (New Brunswick, 1978)Google Scholar, passim.

3 See, e.g., Report from the Select Committee on the Poor Laws, in Parliamentary Papers, 1817, VI, 4, 8Google Scholar.

4 Report from the Select Committee on Labourers' Wages, in P.P., 1824, VI, 5Google Scholar; Abstract of Returns Made to the Committee in 1824 Relative to Labourers' Wages, in P.P., 1825, XIXGoogle Scholar, passim; Report from the Select Committee on That Part of the Poor Laws Relating to the Employment or Relief of Abie-Bodied Persons from the Poor Rate, in P.P., 1828, IV, 5Google Scholar.

5 See, e.g., Report from the Select Committee on the Poor Laws, in P.P., 1817, VI, 12Google Scholar.

6 Ibid., pp. 4, 16, 18; Report of the Lords' Committee on the Poor Laws, in P.P. (Lords), 1817, LXXXIV, 8Google Scholar; Report from the Select Committee on Labourers' Wages, in P.P., 1824, VI, 35Google Scholar; Report from the Select Committee on That Part of the Poor Laws Relating to the Employment or Relief of Able-Bodied Persons from the Poor Rate, in P.P., 1828, IV, 7, 10Google Scholar.

7 See S. and Webb, B., English Poor Law History, Part II, II, The Last Hundred Years (hereafter, Hundred) (Hamden, Conn., 1963), p. 1038Google Scholar.

8 1 Hansard, XXXV: 524 (21 Feb. 1817)Google Scholar; see also XXXVII: 154.

9 University College, London, memo by Edwin Chadwick, n.d., Chadwick Papers, Box#25. See also 2 Hansard, XXIII: 533Google Scholar (18 Mar. 1830) and 3, I: 381-82 (11 Nov. 1830); PRO, memo or draft speech by Lord John Russell, c. Nov. 1837, Russell Papers, 30/22/2F, fols. 202-03.

10 Poynter, J.R., Society and Pauperism: English Ideas on Poor Relief, 1795-1834 (hereafter, Pauperism) (London, 1969), pp. 286–87Google Scholar.

11 Thompson, E.P., The Making of the English Working Class (hereafter, Making) (New York, 1963), pp. 6768Google Scholar.

12 See infra, pp. 137-39.

13 See the Duke of Wellington's comments in 2 Hansard, XXIII: 533 (18 Mar. 1830)Google Scholar.

14 London University Library, Senior, N.W., “Poor Law Amendment Bill Conferences,” n.d., MS 173, pp. 8391Google Scholar.

15 Ibid. Senior feared that hasty action against allowances “might produce a repetition of the fires and riots of 1830.”

16 Lord Melbourne to T. Sanctuary, 6 Jan. 1831, in Sanders, L.C. (ed.), Lord Melbourne's Papers (hereafter, Melbourne) (New York, 1971), p. 127Google Scholar; infra, pp. 128-31, 136-37.

17 University of Durham, Lord Holland to Lord Grey, 26 Nov. 1830, Grey Papers, Box 34/File 2; University College, London, Lord Holland to Lord Brougham, 31 Dec. 1830, Brougham Papers.

18 Royal Archives, Windsor, memo by N.W. Senior, 31 Jan. 1831, Melbourne Papers, Box 35/91.

19 Ibid.; Senior, N.W., Three Lectures on the Rate of Wages … and the Causes and Remedies of the Present Disturbances (hereafter, Lectures) (London, 1830), p. viGoogle Scholar; Levy, S.L., Nassau W. Senior, 1790-1864 (hereafter, Senior) (Newton Abbot, 1970), p. 81Google Scholar.

20 See Hobsbawn, E. J. and Rudé, G., Captain Swing (hereafter, Swing) (New York, 1968), p. 82Google Scholar.

21 See, e.g., N.W. Senior to Lord Brougham, 14 Sept. 1832 and 7 Jan. 1833, in , Levy, Senior, app. X and XI, pp. 254–62Google Scholar; London University Library, N.W. Senior to Lord Lansdowne, 2 Mar. 1834, in Senior, N. W., “Poor Law Amendment Bill Conferences,” n.d., MS 173, p. 17Google Scholar.

22 University College, London, Lord Holland to Lord Brougham, 31 Dec. 1830, Brougham Papers.

23 Ibid.; University of Durham, Lord Holland to Lord Grey, 26 Nov. 1830, and Lord Lansdowne to Lord Grey, 2 Jan. [1831], Grey Papers, Box 34/File 2, Box 38/File 10; University College, London, Lord Goderich to Lord Brougham, 28 Dec. 1830, Brougham Papers.

24 University College, London, Lord Lansdowne to Lord Brougham, 17 Dec. 1833, Brougham Papers.

25 See University of Durham, Lord Melbourne to Lord Grey, 21 Dec. 1831, Grey Papers, Box 41/File 2; Royal Archives, Windsor, Lord Lansdowne to Lord Melbourne, 3 Nov.?, Melbourne Papers, Box 8/86.

26 Hobsbawm, and Rudé, , Swing, p. 257Google Scholar; Thompson, , Making, p. 253Google Scholar; Neuman, M., “Speenhamland in Berkshire,” in Comparative Development in Social Welfare (hereafter, Welfare) ed. Martin, E.W. (London, 1972), p. 113Google Scholar.

27 Lord Melbourne to Duke of Wellington, 10 Nov. 1832, in Sanders, , Melbourne, p. 152Google Scholar.

28 Hobsbawm, and Rudé, , Swing, pp. 258, 262–63Google Scholar; Rudé, G., The Crowd in History, 1730-1848 (New York, 1964), p. 155Google Scholar.

29 University of Durham, draft dispatch by Lord Howick, Jan. 1831, Grey Papers, Colonial Papers, Emigration, No. 1, Box 144/File 1.

30 Royal Archives, Windsor, Lord Lansdowne to Lord Melbourne, 3 Nov.?, Melbourne Papers, Box 8/86.

31 University of Durham, Lord Lansdowne to Lord Grey, 2 Jan. [1831], Grey Papers, Box 38/File 10. My emphasis.

32 University College, London, memo by Edwin Chadwick, n.d., Chadwick Papers, Box #20.

33 University College, London, Lord Holland to Lord Brougham, 31 Dec. 1830, Brougham Papers.

34 See London University Library, Senior, N.W., “Poor Law Amendment Bill Conferences,” n.d., MS 173, pp. 200–02Google Scholar; Aspinall, A., Lord Brougham and the Whig Party (hereafter, Brougham) (Manchester, 1927), p. 242Google Scholar.

35 3 Hansard, IV: 264–65 (23 June 1831)Google Scholar.

36 University College, London, James Mill to Lord Brougham, 5 Feb. 1831, Brougham Papers.

37 3 Hansard, IV: 264–65 (23 June 1831)Google Scholar.

38 University College, London, Lord Goderich to Lord Brougham, 28 Dec. 1830, Brougham Papers.

39 H.J.M. Johnston, British Emigration Policy, 1815-1830 (Oxford, 1972), pp. 163–64Google Scholar.

40 3 Hansard, IV: 261–67 (23 June 1831)Google Scholar; Aspinall, A. (ed.), Three Early Nineteenth Century Diaries (London, 1952), p. 97Google Scholar.

41 3 Hansard, V:308 (25 July 1831)Google Scholar.

42 See, e.g., the statements of Lords Salisbury and Winchilsea. 3 Hansard, IV: 261–67 (23 June 1831)Google Scholar.

43 University College, London, Lord Brougham to Lord Grey, 16 Dec. 1831, Brougham Papers.

44 3 Hansard, IX: 130 (8 Dec. 1831)Google Scholar.

45 University of Durham, Lord Lansdowne to Lord Grey, 21 Nov. 1831, Grey Papers, Box 38/File 10.

46 Levy, , Senior, p. 81Google Scholar; Lubenow, , Growth, p. 32Google Scholar; Finer, S.E., The Life and Times of Sir Edwin Chadwick (hereafter, Chadwick) (London, 1952), p. 39Google Scholar; Anon., The History of the Times. “The Thunderer” in the Making, 1785-1841 (London, 1935), p. 293Google Scholar; Mackay, T., A History of the English Poor Law (London, 1899), in, pp. 2526Google Scholar. Most recently, Anthony Brundage has suggested that the government regarded the investigation as a mere prelude to introducing a preconceived measure along the lines already worked out by Brougham. Brundage, , New Poor Law, pp. 1618Google Scholar.

47 See, e.g., the Chadwick-LeMarchant correspondence in the Chadwick Papers.

48 Aspinall, , Brougham, p. 241Google Scholar.

49 University of Durham, Lord Grey to Lord Brougham, 8 July and 24 Aug. 1834, Grey Papers, Box 8/File 3; University College, London, Lord Brougham to Lord Grey, 22 Aug. 1834, Brougham Papers.

50 London University Library, Senior, N.W., “Poor Law Amendment Bill Conferences,” n.d., MS 173, pp. 200–02Google Scholar.

51 3 Hansard, IX: 1144 (2 Feb. 1832)Google Scholar and XV: 387 (8 Feb. 1833). It was later that he became a staunch supporter of the commissioners.

52 Ibid., IX: 1099 (1 Feb. 1832).

53 Ibid., XXIV: 310 (6 June 1834).

54 See, e.g., University of Durham, Lord Melbourne to Lord Grey, 15 Nov. 1833, Grey Papers, Box 41/File 3; Finer, , Chadwick, p. 111Google Scholar; Lewis, R. A., Edwin Chadwick and the Public Health Movement, 1832-1854 (hereafter, Public Health) (London, 1952), p. 20Google Scholar; Inglis, B., Poverty and the Industrial Revolution (hereafter, Poverty) (London, 1971), pp. 322, 333Google Scholar.

55 Brundage, , New Poor Law, pp. 2627Google Scholar.

56 University of Durham, Lord Holland to Lord Grey, 24 Nov. 1830, Grey Papers, Box 34/File 2. Original emphasis.

57 Report from His Majesty's Commissioners for Inquiring into the Administration and Practical Operation of the Poor Laws (hereafter, P.L.C. Report of 1834) (Classics, Pelican ed., 1974; first ed., London, 1834), pp. 393–94Google Scholar.

58 Ibid., pp. 393-94.

59 See Poynter, , Pauperism, pp. 21, 295–96Google Scholar; and review by Himmelfarb, G., Victorian Studies, XIV, 2 (1970), p. 204Google Scholar.

60 University College, London, memo by Edwin Chadwick, n.d., and idem., “Notes on Preparation for Legislation,” n.d., Chadwick Papers, Boxes #85 and #81; Finer, , Chadwick, pp. 4448Google Scholar.

61 P.L.C. Report of 1834, pp. 348-49; Finer, , Chadwick, pp. 2526Google Scholar.

62 P.L.C. Report of 1834, pp. 346, 374.

63 Lewis, , Public Health, p. 25Google Scholar.

64 See, e.g., London University Library, N.W. Senior to Lord Lansdowne, 2 March 1834 (copy), in Senior, N.W., “Poor Law Amendment Bill Conferences,” n.d., MS 173, pp. 69Google Scholar.

65 University College, London, memo by Edwin Chadwick, n.d., Chadwick Papers, Box #20.

66 University of Durham, Lord Lansdowne to Lord Grey, 11 Dec. 1833, Grey Papers, Box 38/File 10.

67 P.L.C. Report of 1834, p. 128.

68 See University College, London, Lord Lansdowne to Lord Brougham, 25 Sept. 1832, Brougham Papers.

69 London University Library, Senior, N.W., “Poor Law Amendment Bill Conferences,” n.d., MS 173, pp. 5253Google Scholar.

70 B.L., Sir James Graham to Sir Robert Peel, 1 Sept. 1842, Peel Papers, Add. MSS 40447, fols. 113-14; 3 Hansard, XXIV: 926, 1057Google Scholar, XXVIII: 99.

71 The views of Lords Ripon and Melbourne are unknown; neither appears to have played a prominent part in the deliberations. Althorp, Lansdowne, and Richmond were the most vocal and active participants.

72 See Brundage, , New Poor Law, p. 67Google Scholar.

73 Neuman, M.D., “A Suggestion Regarding the Origins of the Speenhamland Plan,” E.H.R., LXXXIV (1969), 317CrossRefGoogle Scholar; Chambers, J.D., Nottinghamshire in the Eighteenth Century (New York, 1966), p. 243Google Scholar; Oxley, G.W., Poor Relief in England and Wales (Newton Abbot, 1974), p. 112Google Scholar.

74 Thompson, , Making, p. 244Google Scholar.

75 Thompson, E.P., “The Moral Economy of the English Crowd in the Eighteenth Century,” Past and Present, 50 (1971), 136CrossRefGoogle Scholar.

76 3 Hansard, XXIV: 1055 ((1 July 1834)Google Scholar.

77 See Wrigley, E. A., Population and History (New York, 1971), p. 149Google Scholar.

78 Hobsbawm, and Rudé, , Swing, pp. 2393Google Scholar; Kemp, T., Industrialization in Nineteenth-Century Europe (London, 1971), p. 56Google Scholar.

79 Hobsbawm, and Rudé, , Swing, pp. 48, 50Google Scholar; Polanyi, K., The Great Transformation (New York, 1968), p. 77Google Scholar.

80 Blaug, M., “The Poor Law Report Reexamined,” Journal of Economic History, XXIV, 2 (1964), 229–45CrossRefGoogle Scholar.

81 University College, London, Lord Lansdowne to Lord Brougham, 25 Sept. 1832, Brougham Papers.

82 University College, London, Earl Spencer to Edwin Chadwick, 8 May 1841, Chadwick Papers. Althorp succeeded to the Spencer earldom in 1834.

83 Schochet, G.J., “Patriarchalism, Politics and Mass Attitudes in Stuart England,” Historical Journal, XII, 3 (1969), 417–18Google Scholar; Tawney, R.H., Religion and the Rise of Capitalism (New York, 1954), pp. 2728Google Scholar.

84 N.W. Senior to Lord Brougham, 14 Sept. 1832, in Levy, , Senior, app. X, p. 249Google Scholar. My emphasis.

85 Senior, , Lectures, p. viGoogle Scholar. My emphasis.

86 Finer, , Chadwick, pp. 8687Google Scholar; Barnett, D.C., “Allotments and the Problem of Rural Poverty, 1780-1840,” in Land, Labour and Population in the Industrial Revolution, eds. Jones, E.L. and Mingay, G.E. (New York, 1968), pp. 180–81Google Scholar.

87 Senior, , Lectures, p. viGoogle Scholar; Poor Law Commissioners to Lord Althorp, March 1833, Lord Althorp's Letter to the Poor Law Commissioners, in P.P. (Lords), 1833, CCCXXIV, 4Google Scholar; P.L.C. Report of 1834, p. 325.

88 See N.W. Senior to Lord Brougham, 14 Sept. 1832, in Levy, , Senior, app. X, p. 248Google Scholar; Bowley, M., Nassau Senior and Classical Economics (hereafter, Classical Economics) (London, 1937), pp. 253, 323Google Scholar.

89 As is argued in Brundage, A., “The Landed Interest and the New Poor Law: A Reappraisal of the Revolution in Government,” E.H.R., LXXXVIII, 342 (1972), 2728CrossRefGoogle Scholar.

90 Bowley, , Classical Economics, p. 253Google Scholar.

91 See Perkin, H., The Origins of Modern English Society, 1780-1880 (Toronto, 1972), pp. 224–25Google Scholar.

92 Moore, D.C., “Concession or Cure: the Sociological Premises of the First Reform Act,” Historical Journal, IX, 1 (1966), 56Google Scholar.

93 Plowman, D.E.G., Minchinton, W.E., and Stacey, M., “Local Social Status in England and Wales,” The Sociological Review, X, 2 (1962), 164Google Scholar.

94 Bell, C. and Newby, H., “The Sources of Variation in Agricultural Workers' Images of Society,” The Sociological Review, XXI, 2 (1973), 233–34Google Scholar; Shils, E., “Deference,” in Social Stratification, ed. Jackson, J.A. (Cambridge, 1968), p. 126Google Scholar.

95 Neuman, , “Berkshire,” in Welfare, p. 117Google Scholar.

96 Hay, D., “Property, Authority and the Criminal Law,” in Albion's Fatal Tree, eds. Hay, D., et al (New York, 1975), p. 62Google Scholar.

97 Webb, S. & Webb, B., English Poor Law History, Part I: The Old Poor Law (Hamden, Conn., 1963), p. 266Google Scholar.

98 Report from the Select Committee on That Part of the Poor Laws Relating to the Employment or Relief of Abie-Bodied Persons from the Poor Rate, in P.P., 1828, IV, 4Google Scholar.

99 See Dunkley, P., “The Landed Interest and the New Poor Law: A Critical Note,” E.H.R., LXXXVIII, 349 (1973), 837–38CrossRefGoogle Scholar; and idem, “Paternalism, the Magistracy and Poor Relief in England, 1795-1834,” International Review of Social History, XXIV, 3 (1979), 376-79.

100 Neuman, , “Berkshire,” in Welfare, p. 117Google Scholar.

101 See Huzel, J.P., “Malthus, the Poor Law, and Population in Early Nineteenth-Century England,” Econ. H.R., 2nd series, XXII, 3 (1969), 438Google Scholar. In this sense the relief system resembled the unreformed criminal law. Hay, , “Property,” in Albion's Fatal Tree, p. 40Google Scholar.

102 P.L.C. Report of 1834, pp. 393, 439-41; University College, London, memo by Edwin Chadwick, n.d., Chadwick Papers, Box #20; First Annual Report of the Poor Law Commissioners for England andWales, in P.P., 1835, XXXV, 1112Google Scholar; Blaug, M., “The Myth of the Old Poor Law and the Making of the New,” Journal of Economic History, XXIII, 2 (1963), 170Google Scholar.

103 P.L.C. Report of 1834, pp. 240-41.

104 Third Annual Report of the Poor Law Commissioners for England and Wales, in P.P., 1837, XXXI, 26Google Scholar.

105 Webb, , Hundred, p. 78Google Scholar.

106 P.L.C. Report of 1834, pp. 375-76.

107 Ibid., p. 392.

108 Ibid., pp. 387-88.

109 Ibid., p. 396.

110 Ibid., p. 123.

111 Ibid., p. 121.

112 Ibid., p. 182.

113 The expression is Thompson's, E.P., “The Grid of Inheritance: A Comment,” in Family and Inheritance (hereafter, Family) eds. Goody, J., et al (Cambridge, 1976), p. 339Google Scholar.

114 See P.L.C. Report of 1834, pp. 121-23, 149, 182.

115 Ibid., p. 408.

116 These observations pertain most directly to relations between the propertied and the poor. The related question of the reformers' attitudes toward the landed interest in the making of the New Poor Law will be examined more fully elsewhere.

117 Supra, pp. 128-29.

118 Lubenow, , Growth, p. 61Google Scholar.

119 3 Hansard, XXIII: 995 (14 May 1834)Google Scholar.

120 On this, as on some other previous points, I am indebted to the seminal observations on the eighteenth-century criminal law in Hay, , “Property,” in Albion's Fatal TreeGoogle Scholar.

121 Appleby, J.O., Economic Thought and Ideology in Seventeenth-Century England (hereafter, Economic Thought) (Princeton, 1978), pp. 242–79Google Scholar.

122 Bowley, , Classical Economics, p. 286Google Scholar; Inglis, , Poverty, p. 255Google Scholar; Levy, , Senior, p. 69Google Scholar; Finer, S.E., “The Transmission of Benthamite Ideas, 1820-50,” in Studies in the Growth of Nineteenth-Century Government ed. Sutherland, G. (Totowa, N.J., 1972)Google Scholar, passim.

123 Appleby, , Economic Thought, p. 132Google Scholar.

124 See Dunkley, , “Paternalism,” International Review of Social History, XXIV, 395Google Scholar.

125 Ibid., p.396.

126 The State and Early Industrial Capitalism: The Case of the Handloom Weavers,” Past and Present, 83 (1979), 94Google Scholar.

127 Lubenow, , Growth, pp. 26-27, 56Google Scholar.

128 Marshall, J.D., “The Nottinghamshire Reformers and Their Contribution to the New Poor Law,” Econ. H.R., 2nd series, XIII, 3 (1961), 382CrossRefGoogle Scholar.

129 See Thompson, E.P., Whigs and Hunters. The Origin of the Black Act (hereafter, Whigs) (New York, 1975), p. 263Google Scholar.

130 See Cowherd, R.G., Political Economists and the English Poor Law (Athens, Ohio, 1977), pp. 126Google Scholar.

131 See Roberts, D., Paternalism in Early Victorian England (hereafter, Paternalism) (New Brunswick, 1979), p. 221Google Scholar.

132 Appleby, , Economic Thought, p. ixGoogle Scholar.

133 Macfarlane, A., The Origins of English Individualism (Cambridge, 1979), p. 199Google Scholar.

134 The expression in Appleby's, Joyce, Economic Thought, p. 153Google Scholar.

135 Roberts, , Paternalism, p. 208Google Scholar.

136 See Thompson, , “Grid,” in Family, p. 359Google Scholar.

137 Whigs, p. 207.