This extract is from the Report of the Commissioners into the administration of poor relief. The Commission was set up prior to the passing of legislation to reform the Elizabethan Poor Law of 1601. Most of the findings of the Commission proved to be critical of the system that was currently in operation and the Report advocated a complete overhaul of the systems of poor relief. It is in this document that the principle of 'less eligibility' is set out.

The most pressing of the evils which we have described are those connected with the relief of the Able-bodied. They are the evils, therefore, for which we shall first propose remedies.

If we believed the evils stated in the previous part of the Report, or evils resembling, or even approaching them, to be necessarily incidental to the compulsory relief of the able-bodied, we should not hesitate in recommending its entire abolition. But we do not believe these evils to be its necessary consequences. We believe that, under strict regulations, adequately enforced, such relief may be afforded safely, and even, beneficially.

In all extensive communities, circumstances will occur in which an individual, by the failure of his means of subsistence, will be exposed to the danger of perishing. To refuse relief, and at the same time to punish mendacity when it cannot be proved that the offender could have obtained subsistence by labour, is repugnant to the common sentiments of mankind; it is repugnant to them to punish even depredation, apparently committed as the only resource against want.

In all extensive civilised communities, therefore, the occurrence of extreme necessity is prevented by alms-giving, by public institutions supported by endowments or voluntary contributions, or by a provision partly voluntary and partly compulsory, or by a provision entirely compulsory, which may exclude the pretext of mendicancy.

But in no part of Europe except England has it been thought fit that the provision, whether compulsory or voluntary, should be applied to more than the relief of indigence, the state of a person unable to labour, or unable to obtain, in return for his labour, the means of subsistence. It has never been deemed expedient that the provision should extend to the relief of poverty; that is the state of one, who, in order to obtain a mere subsistence, is forced to have recourse to labour.

From the evidence collected under this Commission, we are induced to believe that a compulsory provision for the relief of the indigent can be generally administered on a sound and well-defined principle; and that under the operation of the principle, the assurance that no one need perish from want may be rendered more complete than at present, and the mendicant and vagrant repressed by disarming them of their weapon - the plea of impending starvation.

It may be assumed, that in the administration of relief, the public is warranted in imposing such conditions on the individual relieved, as are conducive to the benefit either of the individual himself or of the country at large, at whose expense he is to be relieved.

The first and most essential of all conditions, a principle which we find universally admitted, even by those whose practice is at variance with it, is, that his situation on the whole shall not be made really or apparently as eligible as the situation of the independent labourer of the lowest class. Throughout the evidence it is shown, that in proportion as the condition of any pauper class is elevated above the condition of independent labourers, the condition of the independent class is depressed; their industry is impaired, their employment becomes unsteady, and its remuneration in wages is diminished. Such persons, therefore, are under the strongest inducements to quit the less eligible class of labourers, and enter the more eligible class of paupers. The converse is the effect when the pauper class is placed in its proper position, below the condition of the independent labourer. Every penny bestowed, that tends to render the position of the pauper more eligible than that of the independent labourer is a bounty on indolence and vice. We have found, that as the poor's-rates are at present administered, they operate as bounties of this description, to the amount of several millions annually.

The standard, therefore, to which reference must be made in fixing the condition of those who are to be maintained by the public, is the condition of those who are maintained by their own exertions. But the evidence shows how loosely and imperfectly the situation of the independent labourer has been inquired into, and how little is really known of it by those who award or distribute relief. It shows also that so little has their situation been made a standard for the supply of commodities, that the diet of the workhouse almost always exceeds that of the cottage, and the diet of the gaol is generally more profuse than even that of the workhouse. It shows also, that this standard has been so little referred to in the exaction of labour, that commonly the work required from the pauper is inferior to that performed by the labourers and servants of those who have prescribed it: so much, and so generally inferior as to create a prevalent notion among the agricultural paupers that they have a right to be exempted from the amount of work which is performed, and indeed sought for you the independent labourer.


Report from His Majesty's Commissioners for inquiring into the Administration and Practical Operation of the Poor Laws, 1834, pp. 227-28.

Last modified 22 August 2002