It was Thy choice, whilst Thou on earth didst stay,
And hadst not whereupon Thy head to lay.412
“What, speak you of such things?” said Nicholas Ferrar on his deathbed to one who commended his charities. “It would have been but a suitable return for me to have given all I had, and not to have scattered a few crumbs of alms here and there.”413
It was inevitable that, in the anarchy of the Civil War, both private charity and public relief should fall on evil days. In London, charitable endowments seem to have suffered from more than ordinary malversation, and there were complaints that the income both of Bridewell and of the Hospitals was seriously reduced.414 In the country, the records of Quarter Sessions paint a picture of confusion, in which the machinery of presentment by constables to justices has broken down, and a long wail arises, that thieves are multiplied, the poor are neglected, and vagrants wander to and fro at their will.415 The administrative collapse of the Elizabethan Poor Law continued after the Restoration, and twenty-three years later Sir Matthew Hale complained that the sections in it relating to the provision of employment were a dead letter.416 Always unpopular with the local authorities, whom they involved in considerable trouble and expense, it is not surprising that, with the cessation of pressure by the Central Government, they should, except here and there, have been neglected. What is more significant, however, than the practical deficiencies in the administration of relief, was the rise of a new school of opinion, which regarded with repugnance the whole body of social theory of which both private charity and public relief had been the expression.
“The generall rule of all England,” wrote a pamphleteer in 1646, “is to whip and punish the wandring beggars … and so many justices execute one branch of that good Statute (which is the point of justice), but as for the point of charitie, they leave [it] undone, which is to provide houses and convenient places to set the poore to work.”417 The House of Commons appears to have been conscious that the complaint had some foundation; in 1649 it ordered that the county justices should be required to see that stocks of material were provided as the law required,418 and the question of preparing new legislation to ensure that persons in distress should be found employment was on several occasions referred to committees of the House.419 Nothing seems, however, to have come of these proposals, nor was the Elizabethan policy of “setting the poor on work” that which was most congenial to the temper of the time. Upon the admission that distress was the result, not of personal deficiencies, but of economic causes, with its corollary that its victims had a legal right to be maintained by society, the growing individualism of the age turned the same frigid scepticism as was later directed against the Speenhamland policy by the reformers of 1834. Like the friends of Job, it saw in misfortune, not the chastisement of love, but the punishment for sin. The result was that, while the penalties on the vagrant were redoubled, religious opinion laid less emphasis on the obligation of charity than upon the duty of work, and that the admonitions which had formerly been turned upon uncharitable covetousness were now directed against improvidence and idleness. The characteristic sentiment was that of Milton’s friend, Hartlib: “The law of God saith, ‘he that will not work, let him not eat.’ This would be a sore scourge and smart whip for idle persons if … none should be suffered to eat till they had wrought for it.”420
The new attitude found expression in the rare bursts of public activity provoked by the growth of pauperism between 1640 and 1660. The idea of dealing with it on sound business principles, by means of a corporation which would combine profit with philanthropy, was being sedulously preached by a small group of reformers.421 Parliament took it up, and in 1649 passed an Act for the relief and employment of the poor and the punishment of beggars, under which a company was to be established with power to apprehend vagrants, to offer them the choice between work and whipping, and to set to compulsory labor all other poor persons, including children without means of maintenance.422 Eight years later the prevalence of vagrancy produced an Act of such extreme severity as almost to recall the suggestion made a generation later by Fletcher of Saltoun, that vagrants should be sent to the galleys. It provided that, since offenders could rarely be taken in the act, any vagrant who failed to satisfy the justices that he had a good reason for being on the roads should be arrested and punished as a sturdy beggar, whether actually begging or not.423
The protest against indiscriminate almsgiving, as the parade of a spurious religion, which sacrificed character to a formal piety, was older than the Reformation, but it had been given a new emphasis by the reformers. Luther had denounced the demands of beggars as blackmail, and the Swiss reformers had stamped out the remnants of monastic charity, as a bribe ministered by Popery to dissoluteness and demoralization. “I conclude that all the large givings of the papists,” preached an English divine in the
