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ship, because in the earlier years high numbers were obtained, although there was
then no attempt at feeding vast crowds such as obtained later. The only conclusion
that could be drawn at that time was that economic conditions were the most
important factor.
The Metropolitan (Casual Paupers) Order, 1911, had for its object the transfer
of the twenty-eight casual wards of the metropolis to the Metropolitan Asylums
Board. The Local Government Board, in forwarding the Order, pointed out that
uniformity of administration was of the first importance, and suggested that experience
might show a way to differentiate the occasional from the habitual vagrant.
Following this change of administration, a scheme was evolved whereby the police in
two central divisions were supplied with tickets for distribution to homeless persons.
On presentation at an office on Waterloo pier these tickets entitled the possessor to a
bed in a casual ward or shelter. During the month of November, 1912, of the 2,966
tickets distributed by the police, 2,608 were presented by the recipients at the office.
Of the persons concerned, 595 were given tickets for charitable institutions, and 2.013
were given tickets for admission to casual wards. Actually 551, or nearly 93 per
cent, of the first mentioned tickets were used, and 996, or just over 49 per cent, of
the latter. These comparatively large figures were probably the result of curiosity, for
later the numbers diminished rapidly. The homeless poor night office has since been
transferred to 12, Northumberland Avenue, W.C.2, and is still in active operation.
From the time of the inauguration of this scheme until February, 1914, the
last enumeration before the war, the numbers continued to fall. On the last mentioned
date, the homeless numbered 540, the occupants of casual wards were about
one-third of the number accommodated at the time of the census in 1912, and the
common lodging house inmates were some 1,300 fewer than in the earlier year.
These results again were not entirely due to the operation of the scheme outlined
in the preceding paragraph, because, as this scheme was based on the provision of
shelter for all homeless persons either in the casual ward or common lodging house,
the natural corollary would be an increase in the number of inmates of those
institutions. Here again it could only be concluded that economic conditions were
the determining factor. Very slight variations in the prosperity of the community
have an immediate effect upon the casual worker, who lives from day to day, and
has no reserve upon which he can rely in case of need. Severity of weather,
trade depression in particular industries, strikes, even the transfer of contracts to
other more distant localities, all exercise their influence in preventing him from
obtaining work.
Since the war, the common lodging house population has remained fairly stationary
at a somewhat lower figure than 15,000, thus showing a considerable decrease upon
the average nightly accommodation of about 25,000 at the beginning of the century.
The Council's chief inspector reports that the major part of the 15,000 inmates
is now composed of permanent lodgers as contrasted with the much greater number
of casuals in the earlier years. Doubtless unemployment and sickness insurance
benefits have played a great part in this change. War pensions, widows pensions,
Rent Restriction Acts, and a more generous view of the people's needs in granting
out-relief in money and kind have all contributed their quota towards the elevation
of the standard of living. The real casual is now accommodated in the casual
ward, and having regard to the increased numbers in this class, it is probable that
they have never been regularly domiciled in London. The fact that there were
only 16 women among them tends to confirm this view.
The following tables compare the results obtained in the two years 1910 and
1930, and show details of the different groups of homeless persons, and their
distribution in localities.