Workhouse
In Britain and Ireland, a workhouse was a total institution where those unable to support themselves financially were offered accommodation and employment. In Scotland, they were usually known as poorhouses. The earliest known use of the term workhouse is from 1631, in an account by the mayor of Abingdon reporting that "we have erected within our borough a workhouse to set poorer people to work".
The origins of the workhouse can be traced to the Statute of Cambridge 1388, which attempted to address the labour shortages following the Black Death in England by restricting the movement of labourers, and ultimately led to the state becoming responsible for the support of the poor. However, mass unemployment following the end of the Napoleonic Wars in 1815, the introduction of new technology to replace agricultural workers in particular, and a series of bad harvests, meant that by the early 1830s the established system of poor relief was proving to be unsustainable. The New Poor Law of 1834 attempted to reverse the economic trend by discouraging the provision of relief to anyone who refused to enter a workhouse. Some Poor Law authorities hoped to run workhouses at a profit by utilising the free labour of their inmates. Most were employed on tasks such as breaking stones, crushing bones to produce fertiliser, or picking oakum using a large metal nail known as a spike.
As the 19th century progressed, workhouses increasingly became refuges for the elderly, infirm, and sick rather than the able-bodied poor, and in 1929 legislation was passed to allow local authorities to take over workhouse infirmaries as municipal hospitals. Although workhouses were formally abolished by the same legislation in 1930, many continued under their new appellation of Public Assistance Institutions under the control of local authorities. It was not until the introduction of the National Assistance Act 1948 that the last vestiges of the Poor Law finally disappeared, and with them the workhouses.
Legal and social background
Medieval to Early Modern period
The Statute of Cambridge 1388 was an attempt to address the labour shortage caused by the Black Death, a devastating pandemic that killed about one-third of England's population. The new law fixed wages and restricted the movement of labourers, as it was anticipated that if they were allowed to leave their parishes for higher-paid work elsewhere then wages would inevitably rise. According to historian Derek Fraser, the fear of social disorder following the plague ultimately resulted in the state, and not a "personal Christian charity", becoming responsible for the support of the poor. The resulting laws against vagrancy were the origins of state-funded relief for the poor. From the 16th century onwards a distinction was legally enshrined between those who were willing to work but could not, and those who were able to work but would not: between "the genuinely unemployed and the idler". Supporting the destitute was a problem exacerbated by King Henry VIII's Dissolution of the Monasteries, which began in 1536. They had been a significant source of charitable relief, and provided a good deal of direct and indirect employment. The Poor Act 1575 went on to establish the principle that if the able-bodied poor needed support, they had to work for it.The Poor Relief Act 1601 made parishes legally responsible for the care of those within their boundaries who, through age or infirmity, were unable to work. The Act essentially classified the poor into one of three groups. It proposed that the able-bodied be offered work in a house of correction, where the "persistent idler" was to be punished. It also proposed the construction of housing for the impotent poor, the old and the infirm, although most assistance was granted through a form of poor relief known as outdoor relief – money, food, or other necessities given to those living in their own homes, funded by a local tax on the property of the wealthiest in the parish.
Georgian era
The workhouse system evolved in the 17th century, allowing parishes to reduce the cost to ratepayers of providing poor relief. The first authoritative figure for numbers of workhouses comes in the next century from The Abstract of Returns made by the Overseers of the Poor, which was drawn up following a government survey in 1776. It put the number of parish workhouses in England and Wales at more than 1800, with a total capacity of more than 90,000 places. This growth in the number of workhouses was prompted by the Workhouse Test Act 1723; by obliging anyone seeking poor relief to enter a workhouse and undertake a set amount of work, usually for no pay, the Act helped prevent irresponsible claims on a parish's poor rate.The growth was also bolstered by the Relief of the Poor Act 1782, proposed by Thomas Gilbert. Gilbert's Act was intended to allow parishes to share the cost of poor relief by joining together to form unions, known as Gilbert Unions, to build and maintain even larger workhouses to accommodate the elderly and infirm. The able-bodied poor were instead either given outdoor relief or found employment locally. Relatively few Gilbert Unions were set up, but the supplementing of inadequate wages under the Speenhamland system did become established towards the end of the 18th century. So keen were some Poor Law authorities to cut costs wherever possible that cases were reported of husbands being forced to sell their wives, to avoid them becoming a financial burden on the parish. In one such case in 1814 the wife and child of Henry Cook, who were living in Effingham workhouse, were sold at Croydon market for one shilling ; the parish paid for the cost of the journey and a "wedding dinner".
By the 1830s most parishes had at least one workhouse, but many were badly managed. In his 1797 work, The State of the Poor, Sir Frederick Eden, wrote:
Instead of a workhouse, some sparsely populated parishes placed homeless paupers into rented accommodation, and provided others with relief in their own homes. Those entering a workhouse might join anywhere from a handful to several hundred other inmates; for instance, between 1782 and 1794 Liverpool's workhouse accommodated 900–1200 indigent men, women and children. The larger workhouses such as the Gressenhall House of Industry generally served a number of communities, in Gressenhall's case 50 parishes. Writing in 1854, Poor Law commissioner George Nicholls viewed many of them as little more than factories:
1834 Act
By 1832 the amount spent on poor relief nationally had risen to £7 million a year, more than 10 shillings per head of population, up from £2 million in 1784. The large number of those seeking assistance was pushing the system to "the verge of collapse". The economic downturn following the end of the Napoleonic Wars in the early 19th century resulted in increasing numbers of unemployed. Coupled with developments in agriculture that meant less labour was needed on the land, along with three successive bad harvests beginning in 1828 and the Swing Riots of 1830, reform was inevitable.Many suspected that the system of poor relief was being widely abused. In 1832 the government established a Royal Commission to investigate and recommend how relief could best be given to the poor. The result was the establishment of a centralised Poor Law Commission in England and Wales under the Poor Law Amendment Act 1834, also known as the New Poor Law, which discouraged the allocation of outdoor relief to the able-bodied; "all cases were to be 'offered the house', and nothing else". Individual parishes were grouped into Poor Law Unions, each of which was to have a union workhouse. More than 500 of these were built during the next 50 years, two-thirds of them by 1840. In certain parts of the country there was a good deal of resistance to these new buildings, some of it violent, particularly in the industrial north. Many workers lost their jobs during the major economic depression of 1837, and there was a strong feeling that what the unemployed needed was not the workhouse but short-term relief to tide them over. By 1838, 573 Poor Law Unions had been formed in England and Wales, incorporating 13,427 parishes, but it was not until 1868 that unions were established across the entire country: the same year that the New Poor Law was applied to the Gilbert Unions.
Despite the intentions behind the 1834 Act, relief of the poor remained the responsibility of local taxpayers, and there was thus a powerful economic incentive to use loopholes such as sickness in the family to continue with outdoor relief; the weekly cost per person was about half that of providing workhouse accommodation. Outdoor relief was further restricted by the terms of the 1844 Outdoor Relief Prohibitory Order, which aimed to end it altogether for the able-bodied poor. In 1846, of 1.33 million paupers only 199,000 were maintained in workhouses, of whom 82,000 were considered to be able-bodied, leaving an estimated 375,000 of the able-bodied on outdoor relief. Excluding periods of extreme economic distress, it has been estimated that about 6.5% of the British population may have been accommodated in workhouses at any given time.
Early Victorian workhouses
The New Poor Law Commissioners were very critical of existing workhouses, and generally insisted that they be replaced. They complained in particular that "in by far the greater number of cases, it is a large almshouse, in which the young are trained in idleness, ignorance, and vice; the able-bodied maintained in sluggish sensual indolence; the aged and more respectable exposed to all the misery that is incident to dwelling in such a society".After 1835 many workhouses were constructed with the central buildings surrounded by work and exercise yards enclosed behind brick walls, so-called "pauper bastilles". The commission proposed that all new workhouses should allow for the segregation of paupers into at least four distinct groups, each to be housed separately: the aged and impotent, children, able-bodied males, and able-bodied females. A common layout resembled Jeremy Bentham's prison panopticon, a radial design with four three-storey buildings at its centre set within a rectangular courtyard, the perimeter of which was defined by a three-storey entrance block and single-storey outbuildings, all enclosed by a wall. That basic layout, one of two designed by the architect Sampson Kempthorne, allowed for four separate work and exercise yards, one for each class of inmate. Separating the inmates was intended to serve three purposes: to direct treatment to those who most needed it; to deter others from pauperism; and as a physical barrier against illness, physical and mental.
The commissioners argued that buildings based on Kempthorne's plans would be symbolic of the recent changes to the provision of poor relief; one assistant commissioner expressed the view that they would be something "the pauper would feel it was utterly impossible to contend against", and "give confidence to the Poor Law Guardians". Another assistant commissioner claimed the new design was intended as a "terror to the able-bodied population", but the architect George Gilbert Scott was critical of what he called "a set of ready-made designs of the meanest possible character". Some critics of the new Poor Law noted the similarities between Kempthorne's plans and model prisons, and doubted that they were merely coincidental - Richard Oastler went as far as referring to the institutions as 'prisons for the poor'. Augustus Pugin compared Kempthorne's octagonal plan with the "antient poor hoyse", in what Felix Driver calls a "romantic, conservative critique" of the "degeneration of English moral and aesthetic values".
By the 1840s some of the enthusiasm for Kempthorne's designs had waned. With limited space in built-up areas, and concerns over the ventilation of buildings, some unions moved away from panopticon designs. Between 1840 and 1870 about 150 workhouses with separate blocks designed for specific functions were built. Typically the entrance building contained offices, while the main workhouse building housed the various wards and workrooms, all linked by long corridors designed to improve ventilation and lighting. Where possible, each building was separated by an exercise yard, for the use of a specific category of pauper.