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Legislative Document No. 33.
IN SENATE,
MONDAY, FEBRUARY 13, 1888.
-------- - - - - - - - - - - - - --- - - - - --- - - --- - - - ---------
On motion of MR. KENDALL, the following report was ordered
printed, and referred to the Committee on Charitable Insti-
tutions, viz: - -
ExECUTIVE OFFICE, February 11, 1888.
Gentlemen of the Senate and House of Representatives :
In my communication addressed to you on the 30th December
last, I stated my purpose, as soon as investigations then pending
were completed, to supplement the brief allusions I then made
on the subject of the Lunatic Asylums of the State by a more
complete report on those institutions. º
I have the honor to transmit this report to the General
Assembly as made to me by the Special Auditor, who was
appointed under the authority of existing laws, for the purpose
of examining into their condition. -
The limited time allotted for the discharge of this duty of in-
vestigation, necessarily rendered the examination less complete
than was desirable, as it was deemed important to place before
you the information thus obtained at as early a day as practi-
cable. -
The very clear and intelligent report of the Special Auditor,
which I herewith transmit, renders it unnecessary for me to
enter into a detailed statement with reference to these institu-
tions. The report will show, however, the necessity of the
closest Supervision of the management of these great public
charities, with some directing authority to restrain them within
the limits of the laws intended for their guidance.
The investigations show that the Board of Commissioners in
all these Asylums have not hesitated, in many cases, to exceed
the limits of their authority as defined by law.
// /
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/14

2 SPECIAL REPORT ON THE [Doc. 33.
&
In some instances, new buildings have been erected without
authority, money has been borrowed by overdraft, and the
State has been made to pay interest thereon in violation of the
statute, and at one of the Asylums, large areas of land have
been purchased and other lands have been alienated, involving
the State in an indebtedness which can only be done properly
by the authority of the General Assembly.
Other abuses are also shown to exist. From the presentation
of the facts, I am forced to the conclusion that no effort seems
to be made to restrict the expenses to a sum less than the ex-
treme limit of the present appropriation, and that if the allow-
ances were largely in excess of what is now authorized by law,
ways would be discovered to expend it without materially in-
creasing the comfort of the patients.
I earnestly invite your attention to a careful consideration of
the report of the Special Auditor.
In this connection I may be permitted to call your attention
to a recommendation contained in my annual message.
The laws authorize the Executive to make a personal inspec-
tion of the books, accounts and management of these Asylums.
It is impossible for him, without neglecting equally impor-
tant duties, to devote to this object so large a portion of his
time as would be necessary to a thorough and constant Super-
vision of these institutions.
He is, therefore, invested with authority to appoint, from
time to time, a Special Auditor for this purpose.
Persons qualified to discharge this duty efficiently are gen-
erally employed in their own affairs, and can not, without
difficulty, be induced to take such temporary employment.
Besides, to be effective, supervision must be constant ; other-
wise it will be impossible to prevent new abuses, and to sup-
press those already found to exist. In addition to this, each
newly appointed Auditor must make a special study of the laws
and regulations governing these institutions before he can make
an intelligent examination of their administration. From these
considerations, it appeared to me that the office should be a
permanent one, and should be charged, not only with the in-
spection of the Lunatic Asylums, but also of the other charita-
ble institutions of the State, and should also execute such other
Doc. 33.] LUNATIC ASYLUMS OF KENTUCKY. 3
duties of inspection as might be required by the Executive. I
therefore recommend that the General Assembly create the
office of Inspector of Public Works and Institutions.
It will be evident to you that some additional legislation is
necessary to prevent existing abuses in these institutions.
To the extent of the duties and authority imposed on the
Executive by existing laws, an effort will be made to correct
these abuses; but legislative action is essential to enforce
economy in the administration.
Whether this end is to be attained by organizing some new
supervisory power with full authority of correction, or by con-
tinuing the present limited powers of supervision in the Execu-
tive, is for the General Assembly to decide. If sufficient
authority and assistance in the way of investigation be given,
I can safely recommend that the appropriations for the inmates
of these Asylums be reduced by not less than ten dollars per
caput, without lessening in any degree their comforts.
If the responsibility of this supervision be devolved upon the
Executive, it is but just that he be invested with adequate
authority, and accorded necessary assistance to enable him to
discharge the duty effectively; and if such authority and
assistance be withheld, he should be relieved of the responsi:
bility of a mere nominal supervision. 4
The subject is of such importance, involving, as it does, sö
large an expenditure of the public money, that I cannot too
earnestly invite you to give it your early consideration.
Respectfully,
S. B. BUCKNER.
FRANKFORT, February 10th, 1888. . . .
To His Eaccellency, S. B. BUCKNER, Governor of the Stafe of
Kentucky : $
SIR: On the 16th day of December, 1887, I had the honor to:
receive from you the following communication : " .
MR. R. A. MILLER, Frankfort :
DEAR SIR : You are hereby appointed a Special Auditor,
under the authority granted in the laws regulating the Lunatic
Asylums of this State, and you are instructed to proceed’at
4 SPECIAL REPORT ON THE [Doc. 33.
once to discharge the duties of that office as prescribed in sec-
tion 11, article 6, and chapter 73, of the General Statutes,
it being understood that you are also empowered, as the
appointee of the Executive, to make all the examinations, in-
vestigations, and inspections which the Governor himself is
authorized by law to make. You are directed to examine thor-
oughly into the accounts of these Asylums, the modes of pur-
chase, the character of the expenses, the condition and amount
of personal property ; as to the economy of purchases; as to
whether they are made in any case from parties who are forbid-
den by law to hold an interest in such purchases; as to the
economy of the uses to which purchases are applied ; as to the
sufficiency of bonds; as to the character, necessity and pro-
priety, as well as legality, of expenses for improvements made,
and under what authority and for what purposes; as to the
proper attendance of the Commissioners and other officers to
their duties, and as to their business qualifications ; as to any
expenditures of the public funds for private or illegitimate
purposes ; as to the residence of the officers in proper prox-
imity to their patients; as to the proper and economical conduct
of the farming operations; as to the application of the supplies
of the institution to any parties not authorized by law to receive
them ; as to the proper care of the animals and other public
property, and the restriction of their use to legitimate pur-
poses; and as to all matters which the Legislature designed
should be looked into by the Executive.
Respectfully, etc.,
S. B. BUCKNER.
At the same time I was informed by you that it was impor-
tant to have the investigations which I was directed to make,
completed as soon as practicable.
I proceeded at once to visit and examine, in the order named,
the Western, Central, and Eastern Lunatic Asylums, and I very
respectfully submit the following statement as my report of
such investigations as I could make in the short time allowed
for that purpose. For convenience, I shall mention the Asy-
lums in the order in which they were visited:
Doc. 33.] LUNATIC ASYLUMS OF KENTUCKY. t 5
THE WESTERN ASYLUM.
In the main, this institution has been fortunate in securing a
wise and conservative financial management. It is deservedly
celebrated for the enlightened policy which has enabled it gen-
erally to meet the demands against it out of the current receipts
of the institution. The Board of Commissioners is composed
of men of business experience and ability. They have an
admirable system of examination into the claims that are pre-
sented for payment. So far as I have been able to investigate,
the buying and the furnishing of necessary supplies are con-
ducted on sound business and economic principles. The build-
ing is warm and well furnished, the patients have good food,
and I believe that the patients have a better article of clothing
than is found in either of the other Asylums.
The cattle belonging to the institution are in good condition,
are well used and are well fed.
I have not had time to examine the accounts of the Treasurer
and Steward except in the most general way. In so far as I
have examined them, they are correct.
As to the modes of making purchases, I would state that the
Steward buys the coal, ‘meat and milk on competitive bids.
This institution is furnished with coal, during the current fiscal
asylum year, at 7 ºn cents per bushel, delivered ; with meat, at
54% cents per pound, and with milk at 15 cents per gallon. A
bond is taken from each contractor for the performance of the
contract. The groceries are purchased in Hopkinsville and
Louisville—principally in Hopkinsville. The furniture is pur-
chased mainly in Louisville, and the dry goods are bought gen-
erally in Hopkinsville.
I was informed that the greater parts of the supplies are
furnished at wholesale prices.
The employes receive good wages, and are comfortably
quartered in the Asylum.
There are three carpenters whose names are on the pay-roll.
It may be necessary to have them, but I can not understand
how that number can be constantly employed in keeping up the
Ordinary repairs. It was suggested to me that these carpenters
performed other services besides carpenters’ work.
If this be true, it is submitted that the matter resolves itself
*
6 SPECIAL REPORT ON THE [Doc. 33.
into the question of whether skilled labor need be employed to
do work that can be as well done by cheaper labor.
I herewith file as part of this report an inventory of the per-
sonal property, which is certified by the Steward to be correct.
I am glad to report that this property is in good condition.
The valuation of this property, fixed by the Steward, is
forty-two thousand and thirty-seven dollars and eighty-nine
cents. It is estimated that this valuation is twenty-five per
cent. less than the original cost.
I do not find that any purchases have been made from persons
who can not legally contract with the Asylum.
The Treasurer and the Commissioners had overlooked that
provision of law which requires a renewal of the Treasurer's
bond every two years, and I found that this limitation of two
years had run against the last bond executed. As soon as I
called attention to this fact, the Treasurer renewed his bond,
and it was immediately thereafter approved as required by law.
I also found that the bond of the Steward was not written
according to the provisions of the statute, in that, the liability
off his sureties was limited, or attempted to be limited, to four
thousand dollars, when the law contemplates a bond with an
open covenant for the faithful discharge of the duties of the
office. The Steward immediately executed another bond, con-
ditioned according to this conception of the statute, which, it
is believed, is the true one, and this bond was duly approved.
The monthly meetings of the Commissioners are regularly
held, and the business is promptly and carefully dispatched.
The Commissioners’ visiting register, which is kept at the
Asylum according to law, and in which it is made the duty of
each visiting Commissioner to write his name, together with the
date of each visit, and the result of his inspection, shows, that
during the year 1887, Commissioner Randolph visited the Asy-
lum on the following days, to wit: January 25th, February 9th,
April 20th, July 9th, September 14th, and October 5th ; Com-
missioner Feland on February 11th ; Commissioner Trice on
February 22d.; Commissioner Mills February 5, March 11th,
and September 22d.; Commissioner Meachamp on February 9th,
April 10th, April 21st, May 4th, August 15th, September 22d,
and October 5th ; Commissioner Thompson on March 2d, April
wº
I)oc. 33.] LUNATIC ASYLUMS OF KENTUCKY. 7
7th, and July 9th ; and these are the only entries on the register
during the year 1887. The entries show the names and dates,
but the result of the inspection is not certainly indicated.
I was informed by the Superintendent that this register con-
tains a very imperfect account of the number of visits, for the
reason that the Commissioners would sometimes neglect this
formal part of their duty when visiting the Asylum.
The Commissioners are required by the statute to hold their
regular monthly meetings in the Asylum building. There is a
suitable room provided there for that purpose.
Instead of doing this, they hold their meetings in a room in
the rear of the Planters' Bank, in the town of Hopkinsville, at
a distance of two miles from the Asylum. The room in which
they hold their meetings is furnished by them out of the funds
belonging to the Asylum. It is entered from the banking
rooms, and has no outside entrance. The Commissioners meet
once in every month in this room, and that is the extent of
their use of it. This room is also used by the officers of the
bank. The Commissioners pay to the bank, as the lessee of the
bank building, the sum of fifty dollars per annum as rent for
this room. The President of the Board of Commissioners, the
Treasurer of the Asylum and the Superintendent are stock-
holders, and, I believe, officers of the bank. The Commission-
ers have used this room for several years, and have paid rent
at the same rate during all that time. Before they began to use
this room, they occupied another room in the town of Hopkins-
ville, for which they paid rent at the rate of one hundred
dollars per annum. Indeed, they appear to have always ignored
that provision of the statute which requires them to hold their
meetings in the Asylum building. I am informed that this is
done in order to procure the presence of the Commissioners at
these meetings, and that it would be difficult to get them to go
to the Asylum to attend to the business of the institution.
This can not be said to be a sufficient reason. The law ought to
have enough force to procure the presence of the officers of the
State at their regular meetings. As a question of expediency, it
might be contended that it is best to disregard this statute, but
in every other view it is indefensibly wrong. I have found no
authority for the action of the Commissioners in taking the
8 SPECIAL REPORT ON THE [Doc. 33.
money belonging to the institution and intended for the main-
tenance of the patients, and using if in the payment of rent for
a room which they can not occupy without violating the law.
Under our statute the Commissioners have control of the
land and buildings, and, indeed, of all the property belonging
to the Asylum, and they are charged with the duty of keeping
this property in repair.
The Superintendent and Board of Commissioners have
thought it proper to build and furnish two cottages in the Asy-
lum grounds, detached from the main buidings, at a cost, when
furnished, of about six thousand dollars for each cottage.
I can not understand how it could have been absolutely
necessary to have these cottages.
That it is very convenient to have them is evident.
It might be reasonably believed that the extra cost of main-
taining these detached and separate establishments, in the
future, will be a more considerable item than the mere cost of
their construction. I have not found any law that authorizes
the Commissioners to build these cottages.
It is submitted that the most liberal, not to say enlarged,
construction of the statute which directs the Commissioners to
keep the buildings in repair, would not permit them to erect
other buildings to keep in repair.
The money necessary to build these cottages was taken, as I
am informed, from a fund which has accumulated from year to
year in this Asylum, and which represents the excess of re-
ceipts over disbursements. As to how long this fund has been
accumulating I am not able to report. Under our law no Luna-
tic Asylum can accumulate any money, and it is impossible, as
I see it, for any such fund to be legally created.
The statute provides that “the Auditor shall estimate any
unexpended balance reported by the Chairman of the Board of
Managers and the Superintendent of any one of these Asylums
as a part of its next quarterly allowance, and draw his warrant
only for a sum sufficient with said balance to make complete
the sum allowed by law for each quarter.” It is also made the
duty of these officers to report such balances. From this it
will be clearly seen that it was the intention of the Legislature
to have any unexpended and reported balance charged against
Doc. 33.] LUNATIC ASYLUMS OF KIENTUCKY. 9
the next ensuing quarterly allowance. I assume that these
balances were reported. If this be true, the fact that a fund
was accumulated out of the per capita allowance is more inter-
esting and remarkable than the resultant fact that a part of
this fund should be appropriated by the Commissioners to
the erection of buildings the necessity for which they alone
were to estimate and judge. The per capita allowance made
by the State is designed solely for the maintenance of the
patients, to be used for current expenses, repairs, etc., under
existing and well-known conditions, and it is given to the man-
agement upon the trust that it will be so applied.
It can not be competent for the Commissioners to divert this
trust. Any excess that may be on hand at any time is, by the
clear intendment of the law, as much within this trust as that
portion of the money received that is not merged into such
excess. The Legislature fixed one hundred and fifty dollars as
the approximate cost of keeping a pauper patient One year, but
in the event this proved too much, it is wisely provided that the
original character and purpose of the excess should be con-
served, and such excess made to do duty in making up the
necessary amount to defray the expenses of an immediately
ensuing period. The Legislature has evidently reserved the
right to decide what new buildings are necessary, and when they
are necessary, intending, it is to be presumed, to meet the
increased demands of the insane by special appropriations.
The Asylum is situated on a public road leading from Hop-
kinsville. About nine years ago the Asylum and the County
Court of Christian county constructed a turnpike from Hop-
kinsville to the Asylum gate. The institution paid three-fifths
of the cost and the County Court paid two-fifths.
The amount paid by the Asylum was two thousand two hun-
dred and fifty dollars. This road is very useful and almost
indispensable, but, I am forced to believe, that this expenditure
was unauthorized. The Commissioners have also caused to be
erected a Steward’s Office and a Receiver’s Office. New boilers
have been furnished at considerable cost, but I am informed
that the old ones were insufficient, and, at all events, this
expenditure can not be classed with the others.
While the prudent business management of this institution,
10 SPECIAL REPORT ON THE [Doc. 33.
in many particulars, by the Superintendent and Board of Com-
missioners can not be too highly commended, it is to be re-
gretted that they have slightly underestimated the limitations
which the Legislature has placed upon the power of such trus-
teeS.
It may well be doubted whether the State has been injured in
any way or in any degree by either of the acts thought to be
unauthorized, but they are dangerous precedents to establish.
Such extraordinary powers may be perfectly harmless, or even
beneficial, in the hands of the present Board and Superintend-
ent, but it would certainly be extremely hazardous to confide
them to a management less patriotic or less discreet.
It is said that the farm attached to this Asylum is profitable,
but it can not be so to any great extent. The greater part of the
land was originally sterile, and is still comparatively unpro-
ductive. The most careful and thorough cultivation would not
yield large results.
A visit at this time affords but scant opportunity to judge
either of the farm or the system of cultivating it. Improved
farming methods have been adopted, and the farm is cultivated
in a reasonably successful way.
Under the general law the Superintendents of the several
lunatic asylums are required to reside in the Asylum buildings.
This wholesome rule is based on reasons which are at once
obvious and sufficient. The presence of the Superintendent in
the Asylum building enforces discipline among the subordinate
officers, promotes habits of thrift, industry and economy among
the employes, and conduces in many ways to quiet and good
order among the patients. It requires very little discernment
to understand that these are important objects to attain in an
institution where there are such considerable and varied inter-
ests, where there are such large daily expenditures for general
supplies, and where so much depends on the industry and
honesty of employes.
On the 31st of March, 1886, however, the Legislature, by a
special enactment, authorized the Superintendent of this Asy-
lum to reside in the town of Hopkinsville. Acting under the
permission thus granted, the present Superintendent changed
the place of his residence from the Asylum to the town of Hop-
Doc. 33.j LUNATIC ASYLUMS OF KIENTUCKY. 11.
kinsville, where he has since resided. His perquisites in the
way of table supplies are still received from the Asylum.
He informs me that he visits the Asylum every day, and
remains there a sufficient time to attend to every duty.
While I have found no abuse resulting from this change of
residence, I can not perceive either the wisdom or the justice of
the policy that permits it.
The son of the Superintendent and his wife are officers in the
Asylum, and reside in the building, in the apartments formerly
occupied by the Superintendent and his family.
It might be very reasonably claimed that their presence in
large measure compensates for any loss sustained in the Super-
intendent’s change of residence.
THE CENTRAL ASYLUM.
This is the largest Lunatic Asylum in the State, and more
money has been appropriated to build and maintain it than has
been expended on any other like institution. The buildings
and grounds furnish indisputable evidence of the most liberal
expenditures, and it occurs to the inexperienced observer that
some of these expenditures must have been unwisely made.
The original design of the building was imperfect, according to
what I have heard of the more modern and enlightened views
on this subject, and apparently the subsequent growth of the
institution has not been illustrated by that orderly and sys-
tematic development which alone could have rendered it sus-
ceptible of easy and economical management.
It is but just to say that this is in no sense the fault of the
present Superintendent or Board of Commissioners. It is
simply an unfortunate fact, and it ought always to be con-
sidered in estimating the cost of maintaining it.
The Commissioners do not exercise that active and immediate
control over the affairs of the institution that is so vitally
necessary to its prosperity. They attend to their duties in a
perfunctory manner. They are men of excellent character
and good business qualifications, but the Asylum itself, and
the methods that obtain in its control, certainly indicate their
failure to properly appreciate a thorough and personal super-
12 SPECIAL REPORT ON THE [Doc. 33.
vision. The institution is rather expensively conducted. The
power here needs to be centralized.
At present there are too many independent sources of au-
thority. As the logical result of this condition, there is not
Sufficient system in the management of the business of the
Asylum.
I desire specially to call your attention to the following
facts: On the 15th day of May, 1880, the Commissioners pur-
chased from L. L. Dorsey, a tract of land in Jefferson county
containing one hundred and seventy and three-fourth acres
for a consideration of eleven thousand one hundred and forty-
eight dollars and seventy-five cents, which was paid in cash, .
and the further consideration of the conveyance by the Com-
missioners to Mr. Dorsey of twenty-five and one-half acres of
land which belonged to the State. The Commissioners accepted
from Mr. Dorsey and his wife a deed for this one hundred and
Seventy and three-fourth acres, which attempted to pass the
title to the Asylum. By the terms of this deed the grantors
had the right to remove all buildings from the land conveyed.
The deed from Mr. Dorsey and his wife was lodged by the
Commissioners for record in the Clerk’s office of the Jefferson
County Court, where it was duly recorded. A certified copy of
this deed is herewith filed. On the 19th day of October, 1881,
the President of the Board of Commissioners executed, ac-
knowledged and delivered to Mr. Dorsey, a paper purporting to
be a conveyance to him of the twenty-five and one-half acres.
He accepted this paper, and caused it to be recorded in the
Clerk’s Office aforesaid.
On the 13th day of April, 1886, the Commissioners purchased
from William M. Geiger a tract of land in Jefferson county,
containing one hundred acres, for a consideration of six thou-
sand dollars. Of this sum they paid two thousand dollars in
cash, and for the balance they executed and delivered two obli-
gations of the Asylum, signed by the President of the Board,
and secured by a lien on the land, for two thousand dollars
each, due in one and two years, and bearing interest from date.
They accepted from Mr. Geiger and his wife a deed for this
land to the Asylum, and caused it to be recorded in the Clerk’s
Doc. 33.] LUNATIC ASYLUMS OF KENTUCKY. 13
office. A duly attested copy of this deed is filed as part of this
report.
On the first day of February, 1887, the Commissioners pur-
chased from S. L. Gaar, one of the Commissioners, seven-tenths
of an acre of ground for a cash consideration of one hundred
and twenty-five dollars. The Commissioners accepted from Mr.
Gaar and his wife a deed for this land, which was also duly
recorded in said Clerk’s office.
On the 19th day of April, 1887, the Commissioners purchased
fro.n Wesley Whips a tract of land in Jefferson county, con-
taining 54% ºf acres, for a consideration of five thousand four
hundred and ninety-one dollars.
They paid four thousand nine hundred and ninety-one dollars
in cash, and the balance of the consideration was deferred.
They accepted a deed from Mr. Whips and his wife to the Asy-
lum, and it, like the others, was duly recorded in the Clerk’s
office. A certified copy of this conveyance is here with filed and
made part of this report. *
It will be seen that the Commissioners have assumed the right
to buy and sell land. If they can buy, they may sell.
If they can buy and use the credit of the State, and pledge
its faith to the payment of the debts which they contract, where
is the limit to this power? If they can sell twenty-five and one-
half acres and make a good title to the purchaser, they can sell
the whole Asylum. The law does not give them any such
rights. It is presumed that these Commissioners have acted in
good faith, and with the best intentions, but their actions
amount to positive usurpations of authority.
The statute provides that the Commissioners shall not con-
tract any debt for any purpose beyond the amount received
from the Treasury and from pay patients. The debts con-
tracted for this land were beyond the amounts so received.
It provides that no Commissioner or other officer shall sell
any thing to the Asylum, nor make any contract in which he is
directly or indirectly interested. They have not hesitated to
make a contract with one of their own number for the purchase
of a portion of his land. It does not confer upon them the
power to buy or sell land. They have repeatedly ignored this
14 SPECIAL REPORT ON THE [Doc. 33.
want of authority. It may be that questions of some gravity
will arisé concerning the title to these several tracts of land.
Assuming the land exchanged to be equal in value per acre to
the land purchased, the Commissioners paid for the Dorsey land
about seventy-five dollars per acre; for the Geiger land they
paid sixty dollars per acre; for the Whips land they paid one
hundred dollars per acre; and for the small portion of land
purchased from Commissioner Gaar they paid at the rate of
$178* per acre. I was informed that these prices are higher
than are usual in this part of Jefferson county; but it is en-
tirely possible that the value of land in this vicinity has materi.
ally increased since it has become known that the Asylum,
sustained by the inexhaustible credit of the State, has entered
the market as a purchaser.
The accounts of the several officers were correct as far as ‘I
had time to examine them, and the modes of purchase are much
the same as at the Western Asylum.
There were one hundred and twenty-seven officers and em-
ployes whose names were placed on the last December pay-roll,
and they drew from the State in salaries and wages the sum of
$2,957 fºr for their services during the month of December.
Besides a full complement of officers and attendants, there
are on this pay-roll a supervisor, a supervisor of the kitchen,
an outside supervisor, five cooks, Seven Scullions, three bakers,
seven dining-room servants, a laundress, a machine man, nine
washers and ironers, two chambermaids, a seamstress and two
assistants, two engineers, five firemen, a blacksmith, a steam-
fitter, three night watches, two carpenters, a gardener, a garden
hand, two dairy men, a butcher, two painters, a gate-keeper, a
florist, a teamster, two car drivers, an office boy, a plasterer,
a stone mason, a railroad agent, and four chaplains.
Several items of expense on this pay-roll could be eliminated
without injury to the Asylum.
One of the most novel and interesting things connected with .
this pay-roll is the item of twenty dollars paid to the railroad
agent at the Asylum depot. If there is any authority of law
for such use of the public funds, I have not found it. The
depot, a neat brick structure, is exclusively used by the rail-
road as a local station and shipping point. The Asylum fur-
Doc. 33.] LUNATIC ASYLUMs of KENTucky. ' 15
nished the brick for the building, and assisted largely in its
construction in the way of the labor of patients and employes.
The institution has no control over this depot, and, apparently,
has no connection with it except to make the monthly contribu-
tion of twenty dollars to the railroad agent to pay for Services
performed for the railroad. That no special favors in the way
of low rates are received, is indicated by the fact that the
Asylum paid to the railroad $1,371+ºr in cash for freight,
during the year 1887, besides large amounts paid in increased
prices for coal, etc., occasioned by extortionate rates that con-
tractors were forced to pay to the railroad. The railroad com-
pany is enabled successfully to extract this twenty dollars per
month by the pretext, that unless their demands are acceded to,
the trains will cease to stop at this depot. In addition to the
very considerable business done by this depot for the Asylum,
I was informed, that by reason of its locality and character, it
is used by outside local shippers more than any other station
on this part of the road, and this fact is submitted as being
pertinent to the qtlestion of whether the railroad is candid in
its threat to refuse to stop its trains at this point.
The other special features of this pay-roll are the car drivers,
the carpenters, the painters, the office boy, the florist, and the
supervisors; the number of cooks, dining room servants, wash-
ers and ironers, chambermaids, and firemen.
In a building heated throughout, at great cost, by steam, I
have not been able to see how five firemen could be constantly
employed.
There are several tenant houses inside the asylum grounds
which are occupied by employes. The Asylum receives no rent
in any form for these houses, and they are simply expensive
and unnecessary conveniences for such employes as have fami-
lies and are fortunate enough to secure them.
The outside Supervisor (an officer created by the Board, and
paid fifty dollars per month, and who seems to have control of
the farm and all outside affairs) called my attention to a new
tenant house that he had recently caused to be erected for the
use of an outside attendant.
Besides involving the unauthorized use of public funds, this
system of tenant-house building is, in my judgment, a vicious
16 SPECIAL REPORT ON THE [Doc. 33.
and hurtful policy. The houses will always be occupied, and
some of the occupants will inevitably be, in a certain sense,
quartered on the State. They are so many centers of expense,
and are a fungus growth on the institution.
The Superintendent and Board of Commissioners permit
young physicians, who desire to do so, for the training it
affords, to stay in the Asylum and practice their chosen pro-
fession among the patients, under the direction of the regularly
appointed physicians. They receive no wages, except in the
way of board and washing, which are furnished to them with-
Out COSt.
I investigated the question of whether the needs of the
patients require the services of these young men in addition to
the three physicians provided by law and paid by the State,
and I was informed that the regular physicians can ordinarily
give to the patients all necessary medical attention.
If this is not true, and more medical aid is required, it is
believed that the responsible position of physician in an insti-
tution like this should always be filled by" one who is ap-
pointed under the authority of law, and paid by the State, and
who, therefore, the more appreciates the duties which he is
expected to discharge.
I heard of three contracts that were made with parties who
are forbidden by law to make contracts with the institution.
One I have already mentioned. The other two were bills of
goods that were purchased from a Commissioner.
It is proper to say that I was informed that the Steward did
not make these purchases.
The law directs the Commissioners to hold regular meetings,
one in every month, for the transaction of the business of the
Asylum. No claim cah be paid until it has been examined and
approved in one of these regular meetings.
It will be at once seen that the prompt payment of demands
against the Asylum, and, consequently, the reasonableness of
prices for supplies, depend absolutely on the regularity with
which these meetings are held. These meetings have not
always been regularly held, nor have they been held always
in the Asylum building as required by law.
T)uring the year 1887, three of these meetings were held in
Louisville.
Doc. 33.] LUNATIC ASYLUMS OF KIENTUC KY. 17
The statute provides that the Commissioners “shall maintain
a vigilant inspection of the Asylums, for which purpose one of
them shall visit them every week, two in every month, a
majority in each quarter, and the whole Board once in every
six months, in the manner and at times prescribed by the by-
laws. The visiting Commissioners shall note in a book, kept
for that purpose, the date of each visit, the condition of the
house, patients, etc., with such remarks as may be deemed nec-
essary. Any Commissioner who can not or will not comply
with his duty as visitor for three months shall vacate his office,
and the President shall report the same to the Governor, who
shall fill the vacancy.” The Commissioners’ visiting register
shows that Commissioner Gaar and Commissioner Brown visited
the Asylum on the 5th day of July, 1887, and these are the
only entries on the register since October 25, 1884.
They have generally held their monthly meetings in the
building, but I do not suppose that these are visits of inspec-
tion in the meaning of the law.
A meeting of the Commissioners without a legal quorum was
held on the 3d day of August, 1887.
I herewith submit as part of this report an inventory of all
the personal property, which is certified by the Steward to be
COI’I’éCt.
The aggregate value of this property, according to his esti-
mates, is thirty-six thousand six hundred and thirty-seven dol-
lars and twenty-five cents.
The property is in good condition as far as I could examine it.
The Treasurer of this Asylum, like the Treasurer of the
Western, had failed to renew his bond as the law requires.
I was informed by this officer that he would at once execute a
new bond, but I am not advised as to whether this has been
done. *
The bond of the Steward contained the same inaccuracy that
was mentioned in connection with the bond of the Steward of
the Western Asylum. At my instance, this officer executed a
new bond, which was duly approved.
When I came to examine the books of the Treasurer, I found
that he had none. The accounts of the Treasurer are kept in
the books of the bank, in which he is the cashier,
•)
&
18 SPECIAL REPORT ON THE [Doc. 33.
The law provides that the Treasurer “shall keep true and
complete books of account of all his financial transactions, in-
cident to the management of the Asylum, specifying whence
received, and for what expended, and of all sums receivable
and payable.”
Instead of paying the officers and employes the amounts due
them at the end of each month, the Treasurer pays to the Stew-
ard the full amount of money due on the pay-roll. The
Steward then distributes the money among the officers and
employes.
The statute makes it the duty of the Treasurer to receive and
pay out all money belonging to the institution.
Some of the principal improvements have been made by
special appropriations, but others have been made without any
such special authority.
The depot has been built, a railroad constructed from the
depot to the Asylum, a plant of two hundred and fifty electric
lights, which cost four thousand five hundred dollars, has been
purchased and put in, the water supply has been increased,
adequate fire protection has been secured, and many other last-
ing and valuable improvements have been made.
I know of no instance in which the funds or the supplies have
been used for private purposes.
The horses, mules and herds are well fed and in good condi-
tion. The farm here is said to be profitable. It is rather vigor-
ously cultivated, affording proper and necessary exercise for
the patients, and it yields fair returns. *
The apartments of the officers are well appointed, and com-
fortably furnished.
The patients live very comfortably, are kindly treated by the
Superintendent and his family and the other officers, and seem
to receive every necessary attention. The two daughters of the
Superintendent, who have been appointed to fill the positions
of Matron and Assistant Matron, take quite a friendly interest
in the patients and in the affairs of the institution as well.
THE EASTERN ASYLUM.
At one time various local differences threatened disastrously
to affect the large and important interests of the State that were
T}oc. 33.] LUNATIC ASYLUMS OF KENTUCKY. 19
confided to the keeping of this institution. There are some
scattered and fugitive evidences of this unhappy condition that
survive it, but the present management has done much to
restore harmony and systematize the business of the asylum.
I examined the accounts of the several officers in the same
general way in which the accounts of the other asylums were
investigated, and found them to be correct.
The modes of purchase are quite similar to those adopted in
the other asylums. The supplies are purchased in Lexington,
and I heard of no purchases that were made from any of the
officers.
I found that the bond of the Treasurer had been executed on
the 31st day of May, 1884, and that the Commissioners had
neglected to require him to renew it as provided by law.
As soon as the attention of the Treasurer was directed to this
matter, he executed a new bond, which was duly and promptly
approved. The bond of the Steward had been properly exe-
cuted, and the sufficiency of his sureties was shown by an exam-
ination of their tax lists.
There were ninety-five persons whose names were on the last
December pay-roll, and for their services during that month
they were paid in salaries and wages two thousand four hun-
dred and thirty-five dollars and eighty-one cents.
Besides officers and attendants, there are on this pay-roll four
supervisors, two engineers, a farmer and gardener (who is paid
sixty-two dollars and one-half per month), a carpenter, a florist,
a dairyman, a butcher, a gas-maker, a coachman, a night watch,
a gate-keeper, a baker, a painter, a house girl, a Superintend-
ent's house girl, a State parlor girl, five laundry women, three
special ironers, a chief cook, a Superintendent’s cook, two cooks
for patients, an employes' cook, an assistant cook, a special diet
cook, a seamstress, a fireman, a “roustabout,” a porter, and a
servant for the Steward. b
The statute provides that the Superintendent and the Steward
shall receive stated salaries, shall have comfortably furnished
quarters at or near the Asylum, and they, together with the
family of the Superintendent, shall be entitled to take their
meals in the Asylum at the expense of the State. It further
provides that “no commutation however shall be allowed in
20 SPECIAL REPORT ON TEII. [Doc. 33.
lieu of said meals and quarters, nor shall said officers be enti-
tled to or receive, either directly or indirectly, any other further
perquisites or compensation for their services.”
It is not believed that the Commissioners are authorized to
use the funds of the institution in paying the wages of servants
for either of these officers. *
I file herewith an inventory of all the property, real and per-
Sonal, belonging to the Asylum.
The aggregate value of this property is fixed by the Steward
at five hundred and sixteen thousand and twenty-two dollars
and eighty-six cents, and he estimates the personal property to
be worth one hundred thousand nine hundred and forty-seven
dollars and eighty-six cents. *
The principal improvement latterly made in this Asylum is
the new building which was erected by a special appropriation.
As this work was done by a special commission, I have not sup-
posed that it is my province to report concerning it. I will be
permitted, however, to say that the building is not only unfin-
ished, but is apparently built of cheap and inferior materials.
Although considerable sums have been expended in its construc-
tion, it is just such a building as must always be a disappoint-
ment to the State. sº
It appears that the improvements made by the present man-
agement have consisted of ordinary and necessary repairs.
The Superintendent and Board of Commissioners have adopted
what I conceive to be the true theory with regard to the pur-
pose of the per capita allowance which I had the honor to
mention in a former part of this report.
The Commissioners’ visiting register shows that, during the
year 1887, Commissioner Clay visited the Asylum on the follow-
ing days, to-wit : February 3d, February 9th, March 9th, and
May 12th ; Commissioner Williams on February 23d, March
9th, September 28th, and December 20th ; Commissioner Pat-
terson on March 9th and December 20th ; Commissioner Fou-
shee on March 9th and December 12th ; Commissioner Todd on
March 9th, August 12th, August 19th, August 24th, and August
31st ; Commissioner Kimbrough on April 26, May 12th, August
3d and December 3d ; Commissioner Scott on May 12th ; and
Commissioner Gibbons on the 12th day of May ; and these are
the only visits of inspection which appear on the register.
Doc. 33.] LUNATIC ASYLUMS OF KENTUCKY. 21
The Commissioners are men of good business ability, but
they do not maintain that vigilant inspection over the Asylum
that the statute requires.
I have found no instance of the use of the funds or supplies
of the institution for private purposes.
The live stock of this Asylum are well cared for in every par-
ticular.
The farm here is more fertile than either of the other farms,
and is in a higher state of cultivation. It is prudently managed,
and is very productive. The Steward’s statements of the pro-
ducts of the farm and garden do not show their net profits, and
it is, therefore, difficult to ascertain the correct results of the
farming operation. The Steward has been relieved of some of
his duties by the appointment of an officer called the Farmer
and Gardener.
There are several tenant houses inside the Asylum grounds,
which are occupied by employes. These houses are as objec-
tionable here as at the Central, and for the same reasons.
The Commissioners have, paid considerable sums of money to
a bank in Lexington in the way of interest on overdrafts on
the Asylum's account.
The patients are well provided for in all essential particulars,
and the apartments of the officers are well furnished.
It may not be uninteresting to add a few comparative esti-
mateS.
During the last Asylum year, the daily average number of
patients in the Western Asylum was about five hundred and
eighty; in the Central the daily average number was seven
hundred and thirty-eight, and in the Eastern, six hundred and
thirty-five and thirty-four one hundredths.
According to the statement of the Steward, the expenses
of the Western Asylum for the year beginning November 1st,
1886, and ending November 1st 1887, amounted to the sum of
ninety-four thousand two hundred and eighty-two dollars and
ninety-five cents, which is equal to one hundred and sixty-two
dollars and fifty-five cents for each patient.
In addition to this, the products of the farm and garden
furnished the Asylum were valued at four thousand nine hun-
dred and twenty-six dollars and ninety-six cents.
22 SPECIAL REPORT ON THE [Doc. 33.
The expenditures of the Central Asylum for the same period
amounted to the sum of one hundred and thirty-five thousand
seven hundred and forty-four dollars and ninety-nine cents,
which is equal to one hundred and eighty-three dollars and
ninety-three cents for each patient.
I have not sufficient data to accurately state the value of the
products of the farm and garden for this period, but the value
of such products could not be an inconsiderable sum.
The total expenses of the Eastern Asylum for the same
period amounted to one hundred and six thousand three hun-
dred and twenty-five dollars and ninety-nine cents, which is
equal, to one hundred and sixty-seven dollars and thirty-five
cents for each patient.
The amount of expenses for this period should be increased
by the value of the products of the farm and garden furnished
the Asylum. This value can not be certainly stated. It must,
however, be greater than the value of the products of either of
the other farms.
The three pay-rolls for December, 1887, show that there were
twenty-one attendants in the Western Asylum, forty-seven in
the Central, and forty-four in the Eastern.
During the year 1887, the Western Asylum consumed seventy
thousand bushels of coal; the Central one hundred and thirteen
thousand three hundred and ten bushels, and the Eastern fifty-
two thousand bushels.
It will be observed that the estimated value of the personal
property in the Eastern Asylum exceeds the aggregate esti-
mated valueof the personal property in the other two Asylums.
In each of these Asylums, horses, vehicles and drivers are
kept for the use of the officers.
In one respect, there has been a complete departure in each
of these Asylums from the original theory of the duties of the
Medical Superintendent. Except in rare instances, this officer
no longer performs professional services for the patients. The
medical work is done almost exclusively by the assistant physi-
cians. The Superintendent is distinctively a man of affairs.
His efficiency is not measured by his professional skill, but he
is regarded as a good or a bad officer according to his business
qualifications and executive ability.
Doc. 33.] LUNATIC ASYLUMS OF KIENTUCKY. 23
It is a pleasure to say that I am indebted to the various offi-
cers in these asylums for many courtesies and for very many
valuable suggestions.
It is not pretended that my hurried investigations have been
thorough. It would not be possible to make a thorough inspec-
tion of one of these institutions in the whole time allowed me
for all. It is only hoped that this statement will be in some
degree responsive to your written instructions.
Respectfully,
R. A. MILLER.