364 C434r The person charging this material is re- sponsible for its return to the library from which It was withdrawn on or before the Latest Date stamped below. Theff, mufilotion, and underlining of books ore reosons for d,«,plinory oction ond may result In dismissal from The University. To renew coll Telephone Center, 333-8400 UNIVERSITY OF ILLINOIS LIBRARY AT URBANA-CHAMPAIGN WYli 31981 \\k:"-(''t^^P UN1> ILUN AT URB Report on the '^^'•"'«' Investigation of mm'^H Prison Labor and Management House of Correction City of Chicago Inquiry conducted at the request of the Committee on Finance, December 11, 1913 to March 24, 1914. Statutory Provisions, Organization, Management, Kecord System, Inmates and Prisoners, Contract labor, Extension of Industries, Present Industries — Conclusions and Recommendations. CIVIL SERVICE COMMISSION City of Chicago H. M. CAMPBELL, ELTON LOWER, JOHN J. FLYNN, Commissioners. EFFICIENCY DIVISION CIVIL SERVICE COMMISSION JAMES MILES J. L. JACOBS TABLE OF CONTENTS Page Resolution of City Council 4 Letter of Transmittal S Request for Investigation S Scope of Investigation 6 Statutory Provisions and City Ordinances 7 Organization of Institution g Management of Institution 13 Methods, Systems and Records 22 Population — Prisoners and Inmates 23 Housing, Sanitation, Medical Care and \V''elfare 25 John Worthy School for Boys 28 Contract Prison Labor 29 Extension of Municipal Industries — Farm Colony 32 Prison Labor and Industries 35 Contract Shops 37 Broom Shop 37 Leather Shop , 40 Purse Shop 43 Garment Shop 45 Municipally Conducted Industries 45 Printing Industry 45 Crushed Stone Industry 46 Shoe and Tailor Industry 50 Brick Industry 51 Laundry (Men's and Women's) 52 Women's Sewing Room 55 Miscellaneous Industries 56 Summary of Findings and Conclusions 59 Summary of Recommendations 60 TABLES Table I — Distribution of Male Inmates by Days 14 Table II — Distribution of Women Inmates by Days IS Table III — Summary of Receipts by Months in Various Industries 17 Table IV — Summary by Months of Receipts from Contract Shops 18 Table V — Receipts for Services Rendered and from Sales of Products to City Departments 20 Table VI — Receipts from Sales of Products to Other Than City Departments.... 21 EXHIBITS -Chart of Organization as of December, 1913 9 -Opinion of Corporation Counsel in re Contract for Prison Labor.. 64 -View Showing Method of Transporting Ice 11 -View Showing Method of Moving Freight Cars 11 -Interior View of Hospital 26 -View Showing Undeveloped Land 33 -Interior View of Broom Shop 38 -Interior View of Leather Shop 41 -Interior View of Purse Shop 43 -Interior View of Garment Shop 44 -View of House of Correction Stone Quarry 49 -Interior View of Kitchen 56 -Interior View of Carpenter Shop 58 -Interior View of Carpenter Shop 58 3 Exhib t I Exhib t II - Exhib t III - Exhib t IV Exhib t V Exhib t VI Exhib t VII Exhib t VIII Exhib t IX Exhib t X Exhib t Xf Exhib t XII Exhib t XIII Exhib t XIV RESOLUTION OF CITY COUNCIL After the receipt and consideration of this report by the Sub-committee on Prison Labor of the Committee on Finance, consisting of Lewis D. Sitts, Chairman; James A. Kearns, and John R. Emerson; and upon its recommendation, the Committee on Finance reported and recommended the passage of the following resolution to the City Council. This resolution was unanimously adopted by the City Council at its regular meeting held on Monday evening, March 30, 1914: WHEREAS, The contract system of employing prison labor is preju- dicial to the moral, mental, and industrial development and welfare of the prisoners and those dependent upon them, and is detrimental to the institution, and of free labor, and WHEREAS, The municipal system for the employment of convict labor is for the best interests of the prisoners and the institution, and there are a large number of industries in which the inmates could be made to work for the benefit of the city departments and the various other civil divisions, including the Park Boards, Cook County, the Board of Education, the Public Library and the Sanitary District of Chicago, therefore, be it RESOLVED, That the policy of the House of Correction be the complete abolition of the system of contract labor and that inmates who are not engaged in general maintenance work for the institution be assigned to industries for the production of supplies and commodities or be assigned on outside work, at agriculture, or other services for the use of the institution, the city and other civil divisions, and be it further RESOLVED, That the contracts with the Chicago Leather & Mercan- tile Co., the Chicago Broom Co., and the Inland Purse Co., be terminated and that the premises occupied by them be vacated on or before May 1, 1914, and that the inmates now assigned to this work be put on the work of manufacturing supplies and giving their services to the city depart- ments and other civil divisions, therefore, be it ORDERED, That the various department heads of the City use every means possible for the utilization of prison labor and the products manu- factured at the House of Correction in the operation of their manifold activities, and that every effort be directed to influence the proper authori- ties of Cook County, the Park Boards, the Board of Education, the Chi- cago Public Library, the Sanitary District of Chicago and other civil divisions to utilize, in so far as possible, such convict labor and products as they may need which could be manufactured advantageously at the institution, and, be it further ORDERED, That such other recommendations as are included in the report of the efficiency division of the Civil Service Commission shall be further considered by the Committee on Finance with a view to putting them into effect as far as practicable. (Signed) JNO. A. RICHERT, Chairman. L. D. SITTS, CHAS. TWIGG, W. F. LIPPS, FRANK J. WILSON, A. KRUMHOLZ, A. W. BEILFUSS, ELLIS GEIGER, GEORGE F. HARDING, JR., M. G. HOLDING, JAS. H. LAWLEY, JAMES A. KEARNS, Members, Committee on Finance. INVESTIGATION OF LABOR CONDITIONS AND MANAGEMENT HOUSE OF CORRECTION— CITY OF CHICAGO LETTER OF TRANSMITTAL March 30, 1914. HONORABLE JOHN A. RICHERT, CHAIRMAN. COMMITTEE ON FINANCE, CITY OF CHICAGO. Dear Sir: The Commission begs to transmit herewith a report of the efficiency division on the investigation into the use of prison labor and the distribution of the products of such labor at the House of Correction, and the organization, business management and accounts of the institution. This report is made in accordance with the request of the Committee on Finance of December 11, 1913, and supplements the preliminary report submitted by this Commission on this subject on December 12, 1913. Very truly yours, CIVIL SERVICE COMMISSION, CITY OF CHICAGO, (Signed") HARMON M. CAMPBELL, ELTON LOWER, JOHN J. FLYNN, Commissioners. REPORT OF EFFICIENCY DIVISION, CIVIL SERVICE COMMISSION March 24. 1914. CIVIL SERVICE COMMISSION, CITY OF CHICAGO. Gentlemen: — In accordance with the request of the Committee on Finance of the City Council and your order, the efficiency division respectfully submits herewith report on the investigation conducted into the use of prison labor and the manage- ment, conditions and systems of distributing the commodities prodticed at the penal institution of the City of Chicago known as the House of Correction. This report supplements the preliminary outline report submitted to the Committee on Finance on December 12, 1913. REQUEST FOR INVESTIGATION. At the meeting of the City Council on December 8, 1913, the following order was presented by Alderman Charles E. Merriam and was, on motion, duly passed: Ordered, That the Finance Committee be and it hereby is directed to investigate the use of convict labor at the House of Correction, with particular reference to rates of compensation, method of awarding con- tracts, and competition with free labor; and to recommend appropriate measures for the relief of the disgraceful conditions now prevailing. On December 11, 1913, the following communication was received, and referred by your Commission to the efficiency division for action: Honorable Civil Service Commission, City of Chicago. Gentlemen: — A resolution has been referred to the Finance Committee with reference to the situation existing at the House of Correction. I would like to ask you if you have any information in your efficiency divi- sion that would enlighten us upon the subject covering the contracts ex- isting at that institution. Yours truly, (Signed) JOHN A. RICHERT, Chairman, Committee on Finance. In answer thereto the following letter was on the same date addressed to the chairman of the Committee on Finance: Dear Sir: — The Commission begs to acknowledge receipt of yours of the 11th instant asking if the efficiency division has any information regard- ing contracts existing at the House of Correction. The Technical Board (Streets) and the efficiency division have consid- erable information on this subject. This will be collected and tabulated, and sent you in time for your meeting tomorrow. Yours very truly, (Signed) ELTON LOWER, Commissioner. In accordance with the above, the Efficiency Division presented a preliminary re- port on December 12, 1913, to the Committee on Finance, which included such infor- mation and data on hand on the utilization of the convict labor at the House of Cor- rection by the citj' departments and the terms of the present private contracts under which prison labor was engaged. The data included therein were collected in the course of the investigation of the activities in the bureau of streets. Department of Public ^^'orks, report on which was made to the City Council on October 13, 1913. During this study consideration was given to the matter of using the labor of in- mates at the House of Correction to supply the bureau of streets with a large number of supplies regularly required. The plan was outlined in conferences with the inspec- tors at the House of Correction and the Superintendent of the House of Correction on September 26. 1913, and November 13. 1913, when it was shown that the develop- ment of the public account system in furnishing supplies and services for the bureau of streets and other city departments could be carried on with a relatively small outlay of capital and with resultant increased efficiency and economy in the purchase of cer- tain city supplies, and in the care and maintenance of the inmates, -^t the latter con- ference, the Hon. L. E. McGann, Commissioner of Public Works, stated that the De- l)artment of Public Works stood ready to use all materials and supplies available for his department which could be produced at the House of Correction. In accordance therewith requests were made for sufficient appropriation in the 1914 budget to purchase such additional equipment and machinery as w-ould make possible the extension of the use of prison labor to the preferred municipal use market rather than to the general competitive free labor market. SCOPE OF INVESTIGATION. In order that the entire question of convict labor at the House of Correction be thoroughly studied, the Efficiency Division has taken up the work where it had left off in the Bureau of Streets investigation, and has undertaken a complete study of the conditions and systems under which convicts are employed both for the city and for private contractors, the efficacy of the present arrangement and the develop- ment of the mental, moral and industrial faculties of the prisoners and of the man- agement of the institution. Each industry of the institution has been studied, and figures have been prepared for the most important, showing the relative earning values of inmate labor under the existing organization, conditions and systems. The problems of organization and administration at the institution were considered only in so far as they threw light on the central problems above indicated. The procedure adhered to throughout this study has been as follows: (1) Ascertaining the general functions and activities of the institution, the administrative problems, conditions and methods, and comparing these with results obtained as to the various officers, the different classes of inmates and the different bureaus within the institution. (2) Ascertaining the efficiency and economy of administration and man- agement and determining the extent and relative virtues and defects of existing organization and methods. (3) Providing constructive recommendations and co-operating with the officials in obtaining more effective methods and organization, and se- curing more efficient and economical penal administration and man- agement. The investigation of the matters above referred to has been pursued under the following methods: (1) By analysis of statistics and general information and data appearing in publications of scientific and public institutions and given by experts on general administration and subjects relating thereto. (2) Through the medium of written inquiries directed to private and public officials. (3) By personal inquiry by the technical staff of investigators and ex- aminers. The investigation has been conducted under the direct charge of James Miles, examiner in charge of the efficiency division, and J. L. Jacobs, efficiency engineer in charge, and the detail was done by F. H. Cenfield, P. H. Myers, H. R. Van Gun- ten, and other assistants of the efficiency division. In the prosecution of the invest- igation and in the collection of information and data the efficiency division has been assisted by the superintendent of the House of Correction, by the board of inspect- ors, and by officials of the city and of penal institutions. As a result of this study conclusions and constructive recommendations have been drawn, which have to do primarily with the use of inmate labor, and touching incidentally other features of the management and operation of the House of Cor- rection which require attention. A summary of the conclusions and recommenda- tions appear at the end of this report. The matters which have been considered in this report are included under the following main chapters: d) Statutory provisions and city ordinances. (2) Organization of institution. (3) Management of institution. (4) Methods, systems and records. (5) Population — Prisoners and inmates. (6) Housing, sanitation, medical care and welfare. (7) John Worthy School for Boys. (8) Contract prison labor. (9) Extension of municipal industries — Farm colony. (10) Prison labor and industries: (a) Contract and piece price system. (b) Municipal use system. (11) Conclusions and recommendations. STATUTORY PROVISIONS AND CITY ORDINANCES. The House of Correction was established under "An Act to establish houses of correction, etc.," in force July 1, 1871, Illinois statutes annotated (Jones and Adding- 7 ton. 1913, Chapter 67, Paragraphs 610S-6137, volume 3, page 3313) to "be used for the confinement and punishment of criminals or persons sentenced or committed thereto under the provisions of this act, or any law of this state, or ordinance of any city or village, authorizing the confinement of convicted persons in any such house of cor- rection." Paragraphs 1494-1507 of Chapter XXXIX of the Chicago Code of 1911, provides that "the buildings and enclosures erected and now standing, or that may hereafter be erected on that part of the east one-half of the southwest one-quarter of section twenty-five, township thirty-nine north, range thirteen, east of the third principal meridian, lying north of the west branch of the south branch of the Chicago river, being between Twenty-sixth street and the west branch of the south branch of the Chicago river, situated and lying within the city of Chicago, are constituted and estab- lished a House of Correction" for the city of Chicago. The statutes and city ordinances further provide that the management and di- rection of the House of Correction shall be under the control and authority of a board of inspectors, consisting of three persons appointed by the Mayor, with the advice and consent of the City Council. The term of office of these inspectors is three years (one to be appointed each year) and the Mayor is ex-officio a member of such board. This board of inspectors is given power to adopt rules for the regulation and discipline of the said House of Correction and make by-laws in relation to the man- agement and government thereof, fix the compensation and duties of all employes and serve without fee or compensation. "No appropriation of money shall be made by the said board of inspectors for any purpose other than the ordinary and necessary expenses and repairs of said institution, except with the sanction of the legislative authority of said city." Said board shall meet once in every three months, and one of said board shall visit said House of Correction at least once in every month. The books of said House of Correction shall exhibit clearly the state of the prisoners, the number received and discharged, number employed as servants or in cultivating or improving the premises, the number employed in each branch of in- dustry carried on, and all receipts and expenditures. Quarterly statements must be made out and submitted to the comptroller and by him to the City Council. Annual reports must be submitted to the City Council and to the Governor of the state and by him to the legislature. A superintendent shall be appointed by the Mayor with the consent of the board of inspectors, to hold office four years. He shall have entire control and manage- ment of all its concerns, subject to law and to rules and regulations adopted for the government of the House of Correction. He shall carry out all written orders of inspectors. He shall reside at the House of Correction and devote all his time and attention to the same. The deputy superintendent shall exercise the powers of the superintendent during his absence so far as they relate to the discipline thereof and safe keeping of prisoners. The board of supervisors or commissioners of any county and board of trustees of any village or town in any county shall have authority to enter into an agree- ment with the City Council or any authorized agent in behalf of said city to receive and keep in said House of Correction, persons who may be, by any court or magis- trate, sentenced or committed thereto. Such agreements must be published. It shall be lawful for the inspectors of such House of Correction to establish, as one of its departments, a house of shelter for females. The expenses of maintaining such house of correction over and above the amounts received for labor of persons confined therein, and such sums as shall be received by virtue of any agreements with the county or other civil divisions, shall be paid for by the City Council, and raised, levied and collected as the ordinary expenses of such city. ORGANIZATION OF INSTITUTION. As above indicated, the organization of the House of Correction is under the general management and direction of the board of inspectors who, with the Mayor, 8 2 Ik' u u V o 1 - Is 1 4 -0 -§s t ■- t ^ 5 i I S^-s- to"** " " J — 1 4 ^^ h i 30 ^1 ^1> a ?,« U a r, n ^ s ^ ^ E ^\l 1 i r s 4^^ 8-S ^§ ^§2 n ^ 'S'" i; c, •?^ ^^ If ^ !■? |4 n ■ *0 "^ 1 ii 11 If -Si 1^ ^"^ s? 1? -*> «- ^i t;,^ J5'« «j 1 rtJ Si 1 1 'o^'.i x^ ti 1 1 (8- 1 it If 8 1 J^ 1 1 1 1 1^ ^n ¥!» *r.' 1 1 >t§ i^ V ^.^ ■rt- " It 1^ i 1 ^^. ^. ■^ ■0 appoint a superintendent for the House of Correction, to be in direct charge of the administration of the institution. The term of office of the superintendent of the House of Correction is fixed at four years, but provision is made for his removal by the board of inspectors at any time if, in their judgment, it seems advisable. A general plan of organization and the lines of authority and responsibility as fixed at present for carrying on the various activities at the institution, are shown on the chart attached hereto as Exhibit I, and consists: (1) Of those employes whose duties involve the safety and welfare of the inmates, and (2) Of those employes whose duties involve the supervision of the indus- tries at the institution; the primary functions being (1) Guarding and seeking to better the conditions and the reformation of prisoners. (2) Organizing and conducting the industries along business lines. The organization, as at present constituted, has a medical superintendent wlio is in charge of the hospitals and the general health of the inmates received at the in- stitution. He reports directly to the superintendent of the House of Correction. An assistant superintendent is in charge of all outside work, and as such he is responsible for the assignment of the men to the different industries. As indicated under the caption "Prison Labor and Industries," each industry at the House of Correction is conducted as an independent unit and without reference to other industries. This has resulted in lack of uniformity in methods and inefficiency of operation. Analysis of the commitment records indicates that prisoners with comparatively long-term sentences, and who are therefore more valuable for work, have been, in the majority of cases, assigned to the contract shops, thus leaving the short termers for work in the municipally conducted industries. Records of the assignment of pris- oners to the various industries are, in some instances, inaccurately kept. For ex- ample, during the winter months many men are employed on ice harvesting, but the records show that these men are assigned to the quarry. The numbers of men as- signed to the shoe shop and the tailor shop are incorrectly reported, the number work- ing in the shoe shop being shown on the records as -working in the tailor shop, and vice versa. The assignment of inmates to the various industries is done in a hurried, hap- hazard manner, in which apparently very little thought is given to the best interests of the inmates or of the institution. There is also a good deal of inefficient assign- ing of inmates on maintenance work as shown by Exhibits III and IV. Much of the area of the Institution is undeveloped, as shown by Exhibit VI. A principal clerk is in general charge of the work of the office, and is required to keep a personal record of the prisoners and the general accounts of the institu- tion. He is also charged with the keeping of the records of the laundry, quarry and brickyard industries. The records of the activities of the other industries are kept by a store-keeper, who is in charge of the general stores at the institution. The inaccuracy in the accounts and records of the office have been such as to compel the superintendent to keep a personal set of books for his own protection. This is a condition that should be remedied. During the course of the investigation it was also found that in a number of cases, men who for many years had been guards, had been transferred to supervis- ing and clerical work, and that, in general, assignments to positions had been made without considering the general fitness of the appointees for the kind of work which they were expected to do. It was learned that many of these cases were the remains of a former practice of assignment in effect before the provisions of the civil serv- ice law were applied to the House of Correction. Another evidence of the old system is a sort of "underground channel," through which information from outside sources reaches a certain coterie of employes in re- markably short periods of time. This coterie seems to stand together in favor of continuing conditions as they have been, and against reforms of any character. Un- der these circumstances the bad conditions of non-uniformity of methods and ineffi- ciency of operation are readily understood. All regular officers and employes at the institution are now recruited through the city Civil Service Commission, and the grades of positions and salaries of such officers and employes are governed by the rules and schedules prescribed by this Com- mission. This practice has been adhered to in the provision for the positions in the 10 EXHIBIT III. View showing^ the use of labor for handling- and transporting^ ice, House of Correction. EXHIBIT IV. View showinff inmates uiovinj^f freight cars at the House of Correction. annual appropriation ordinance, and employes, when assigned, are now required to perform the general duties in accordance with the character of the examination, which they were required to take to prove their fitness. Under this arrangement, the num- ber of employes who have been and are now assigned to positions having duties widely different from those for which they are particularlj' fitted, will be on the de- crease, with resulting increased efficiency, discipline and esprit de corps of the organization. As hereinbefore indicated, the primary functions of the House of Correction are, first, guarding and seeking to better the condition of prisoners, and second, or- ganizing and conducting industries. The first of these functions, outside of the mere guarding of the prisoners, may be further divided into two divisions: (a) pro- viding for their physical well-being; (b) looking after their mental, moral and indus- trial development. Under this functional grouping, and following out the plan of organization, there should be directly under the superintendent, two chief assistants, one the medical su- perintendent, directly charged with all those activities having to do with the health and physical well-being of the prisoners; the other a superintendent of industries or business manager, directly charged with all those activities which have to do with the industrial development of the prisoners and the general management of the insti- tution. General questions of mental and moral betterment of the prisoners should be left in the hands of the superintendent of the House of Correction. The activities which, according to this arrangement, fall under the direction and supervision of the medical superintendent would be the hospital and related medical work in the cell houses, the study of the physical and mental conditions of prisoners and the sanitary conditions throughout the entire institution, the kitchen and the bakery. The superintendent of industries should be in charge of all industries includ- ing, with the approval of the superintendent, the assigning of the division heads, and he should be responsible not only for the efficient operation of these industries, but also, of the extension of those industries which would be best adapted to the needs of the prisoners and of the institution, and of creating a market for their products. He should also be charged with the purchases of all supplies and materials of the en- tire institution, the conduct of the storeroom and office records and accounts. He should personally assign all prisoners to the work best suited for their own interests and the interests of the institution. To fulfill the possibilities of his position properly he should be an understudj' of the superintendent, co-operating in all the latter's plans for the conduct of the institution as a whole, and represent the superintendent in that official's absence. As hereinbefore indicated, the duties and work which are outlined for the su- perintendent of industries are now covered rather ineflfectively by the present assistant superintendent and the principal clerk, who receive salaries of $2,100 and $1,800 respec- tively. It is recommended that these two positions be abolished, and that the posi- tion of superintendent of industries or business manager be created in place thereof at a salary of at least $3,000. Under the dual authority conferred by the statutes on the board of inspectors and superintendent of the House of Correction, the responsibility for the operation and management of the various activities at the institution has not been, and cannot be definitely fixed. Investigation of the methods used in letting contracts and in appointing division heads and fixing responsibility for results in the various indus- tries shows that the present system is ineffective and expensive, and has been the cause of the lack of a defined and concerted plan of action toward a complete re-or- ganization along logical and scientific lines, the ultimate goal of which would be of maximum benefit to both inmates and the community. The essentials of effective and economical administration of any business are fixed, direct responsibility and equitable distribution of work to expert heads of di- visions. The arrangement as it exists at the House of Correction at present has made 12 it difficult for the superintendent and the division heads to carrj' on their various activities, and it has been just as difficult to place responsibility. The movement for the reformation of offenders and the protection of society has advanced to a scientific stage, and definite principles of action are now established and adhered to in the penal institutions of advanced municipalities, states and coun- ties of the Union. It is now a well recognized fact that efficient and effective ad- ministration of activities in penal work requires the services of persons who are trained and expert in social sciences. In order that the organization at the House of Correction may be enabled to carrj' on this work of reformation in a businesslike and effective manner, it is necessary that the control and care of the unfortunates be under the direct super- vision of one person who is an expert in penal work, and who has broad and com- prehensive ideas of business methods and administration. It is recommended that action be taken so that amendments be presented to the next legislature providing for a change in the statutes relative to the appointment of the board of inspectors and the superintendent of the House of Correction. The offices of the board of inspectors should be abolished and the statutes amended by striking out reference to the ap- pointment and authority of the board of inspectors, and placing the responsibility for the management and the direction of the House of Correction definitely on one offi- cial. This official should be appointed by the Mayor, with the advice and consent of the City Council, should have complete power to direct and manage all the activi- ties of the institution, and should appoint all necessary assistants according to their merits and qualifications. The provision for two division heads will relieve the superintendent of numerous matters of detail, thus giving him the necessary opportunity for the outlining and settlement of broad policies of administration. Due credit should be given to the present superintendent of the House of Correction for his earnestness and efficiency in the general control and direction of the penal work at the institution. The recommended change in the present condi- tion whereby the authority and responsibility will be more definitely fixed and the organization and methods improved, and the elimination of the contract shops and the extension of the municipal industries, should offer the superintendent unlimited possibilities for better and greater work in both the management of the institution and the welfare of the inmates. MANAGEMENT OF INSTITUTION. The investigation of the use of prison labor has clearly disclosed lack of business- like management in the operation and control of the prison industries. This is the greatest source of criticism and censure of the management at the institution, as neither the spirit nor the letter of the law has been observed, nor has the institution taken advantage of economical possibilities. The question of the most adaptable and desirable industries, both from the viewpoint of welfare of inmates, of those depend- ent upon them and of upkeep of the institution, does not seem to have been given the consideration which it deserves; the lack of advanced practice in industrial work at the institution can be traced directly to this. Opportunities for decreasing the loss on the cost of maintenance of inmates at the institution by increasing revenues from sale of products and services to the city and other civil divisions and the boarding of prisoners, have also been neglected, principally it appears, because all of the facts in connection with management and operation of the institution have not been known. As indicated under the caption "Population — Prisoners and Inmates," the House of Correction has on the average 1,722 inmates. At the time of this investigation, the number was nearly 2,300, which was the highest in the history of the institution. These consisted of 1,985 men, about 200 women and 110 boys. The able and healthy inmates are distributed among the thirty or more industries now conducted at the institution with little or no reference to their qualifications or welfare, or to the wel- fare of their dependents or of the institution. A detailed analysis has been made of 13 s > > '^ "1 -o t'J >!■ <^ Oi N. >J ») 0) ^ ■v Ol IV 10 1*1 X tV Ol "ft >t »>^ <<3 »1 10 u ^l 'i ■>» > "1 ^ <0 0, V >C ■o \ V 5; >* •^ K -0 >? ■c "3 K. 0, 0( s * 10 01 ^ l_ .< »■ ^ ^ r) 1 4t * ^ OJ -1 i CQ Q ^ "(l NJ ^4 •<> N tv >0 Q 10 Q sS Q >o no "0 -0 V, K Q ~s -s yi K ■<»■ Q ■^ N 03 ,■^10 '<) ^. < S t^ ^ f^ >0 V, «^ ^ «i ^ ^5 «Q Ol 0| Cl w «1 o N ^ Io K N Q Ifl ■0 N lOlWl ^ 1 1 ^ '^ (Q V, -^,1 Q ^ 0\ ~S N ^ 2} 10 10 ■S ■s >» 10 o vS 01 oi 10 10 K 10 u 0^ is CD z li ^ ^ ^ ^ ^ -S N <0 ^ 10 'S ^S 10 10 M 01 ts lO M (SI ■<♦ Q N IS N ■^l 0 ^^ >0 O ^ ^ N ^ "0 >0 -s ,c> ,^ > 10 ;S ^3 ^ C3 N 03!'0 M > 1 k 0. ■<» «! 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N Q l^ m N O 10 N Q o i Ks >0 ^ "0 ife 11 Q 10 I<1 ? >s5! 01 <<1 N «0 N "3 ¥i ^ ^ < "^ ^l ■ Q "4 N <3 ^ V) 10 N ^ k 1 0) I n9 5 N -« ■» ^ 10 <»3 ^ 1 -4 ft 1^ O K "1 N -a N Wl V) 10 tn t»3 or 01 ■>S "1 '0 N M !G * ifv N 13^ ^ "0 ■0 '^ 10 fg S >( s no r' -« -Slt^ <3 ■"* 03 0) > ^a «0 5^ X "0 ■<> 10, X •<* "Q "^ ^ X ■^ ■^ o n ^ 1 03 N 10 M 01 Io 5 01 N 5 K|NS "1 "1 > ^ _ ~ _ 5t; 1 ^ ^ oi ■fl ^ N ,■* s ^ ^ -s O v^lK^ IJ3 Q ■Ji ^ E -» § 10 ■SI -« O "0 ioIm <* Q 10 01 03 10 n;> tv ixa vS "^ ■^ Ol c^ is ^ fo t tv) ^ 1 ■0 N "^ N) ^ M N ■^ ^ .^ ' ~~ ~ 2 ■^ id * 01 ^ H'Cs oi'o ^ o Q ^ 10 Ol ^ V «3 o 113 f^ 10 N-'^^ ^ ^ ^S ."^ *0 IL P -S 'fl "» Nl Q N v3 ,■>» ») 10 vS 4\ 51 vS Q !s ~S N •» ^ 01 10 10 IQ >'N» (i 01 Io Ol 5 1 k C5 ■i 1^ ■^l \^^ «5 "0 >0 N 5 'O >0 o K M M . 0 0^ «0 "0 <0 01 to !m -S "1 « Io > M •v'-S K r» 0) to 5: ••s 0^ ■0 "0 IS M -s 5 !! »? ^ ki J >0 Nl o «! ") Ki N. ^ * K Cl 0) K) Pj Tl Q 10 >0 ^ ^ ^ Q ^ Q ""^ \ ■"i- '<3 N N H3 ^a ^ ^ N V N K Q >o vS ^S N sS N ■>♦ ■0 ^ o 03 N N. «1 ^ •-» <<3 ift S 1^ N ■^ vS >^ N^ "0 10 K "O V, ^ 10 ■A N Vl «) 01 ^^ N 01 X ^ 03 sS ~S 10 -S ^9 (Q 10 N ^ 10 N ^ rn '* ^ ^ 8 k w s Q sS ^ ^ 10 N •^ t^ 't ■0 Q 1) (^) ~ >^ V -S IQ M m 01 10 VI i i OK Cl *s 10 Oi i' 1 ^ ,>S t^ :CQiTO (0 1^ "^ HI ITl tvi ^ * 10 <0 N s ^ 01 03 01 ■a ;n ii3 ;s 01 Q ■< 1 © r ^ 10 to nS 10 OJ ^ i 5 > i I-' K ]5 o S ^S) "n N S^ K «Q N ") N K Q N s> 7 nS s «3 <0 "O 03 N ■>♦ Q N N K * 10 1 9> K^ IT) Ol ■» 10 ^ ■0 N ■>» »> io K N N ~s <0 N 01 Bl N 01 03 03 5 V ^ kl >» io «5|-.;^'io «^ N vo «i ^ >0 N ^ ■* IM N N 10 M tSi 01 N ^s In N'03 N ^ 1/1 ti "^ 1 i-^i 10 IM N Nl " 1 S i s ? 1 1 I 1 f: ^ 1 1 1 III. [ ■< ^ -^ g ^ 1 !1- •« S 5 t t it;^ » ~| X A < > I 1- r X 1 1 1 1 1 1 1 1 Is k V) 1 1 1 4 1 1 1 ■^ ^ 1 1 1 1 ^ 1 1 1 r 1 1 1 Ji 5 10 1- 1 E 1 ^ ^ 1 1 1 1 1! 1 1 1 s 1 1 1 "^ 1 IS 1 ij * the distribution of the male and female labor in the department industries and con- tract shops at the House of Correction during the year ending September 30, 1913, as shown in Tables I and II. Similar analyses have been made of the receipts and disbursements in the operation of the various industries and in the management of the institution. Tables III, IV, V and VI indicate the receipts by months from the contract shops, from the departmental industries and for other services rendered dur- ing the year ending September 30, 1913. The detail statements of the receipts and disbursements for each of the industries is included under the caption "Prison Labor and Industries." P/3TJe/BUTfON of ASSIGNMENT of yVOMEM FJd/SONEJSS by P/JYS IN THE \ Y/JeiOUS DEP/JRTriENTS af ^he H0U5Eof(:0^^£CTI0ti-aTyofCN/^/?6O FOJ^ Y£-/9/? ENPI/i6 5EFT 30, 1913. -TABLE I.- | \v MOMTH \2>\Z 1915 ^0 KINO OF MOWS- OCT NOV DEC JAM FEB riAie API? riAY JUHE juur AU6 SEPT, Loun^ IZ8Z ni0 /zoi" /3<^Z /44I /SZ4 /0Z7 /tSS /8S6 /7e& /ii,/ /izo /63S3 606 CellHo^it 333 263 154 380 4ei *So Sli, S45 SOZ £33 S(,o SI 7 S4oZ ITS Sewing Soom 199 *o4 347 4h9 t4z 784 834 922 384 /0Z2 //S4 /Z37 3/S3 301 ^e/r/n^ ^oom • OS B8 99 lot 92 103 100 /oo /Ob 113 /04 /I4 /24I 4.1 P/ninij ^oom 81 77 7S 7« 8Z 9(>, lOO lOO /OO /OS /o4 3b /034^ 36 Hoipita/ Z73 ZZ9 Z39 2iS Z/8 ZI3 Z84 33S 37S 330 238 3 7i: 34iS II, ^iip^i Saxie/xe ZZ /3 S 24 /S IZ Z7 /£ iS l9 zs /9£ OS tio^of's ^ei 113 3c 14 /3 ii> i4 /e 2Z IS zss 0.6 Cxe/yti/ 31 94 97 ii4 ilL, ,o} l47 ,bS /30, /27 /49 /zo /4S3 43 TOTAU 2703 Z4(^3 zssz 29 78 3Z<.7 iSZ5 4l3Z 4173 43z:. 43C8 44/8 4422 43233 /4!.C £/ner.~i;c '^ >> -aw "c Ot-.uOg (n-o ■*;; rt ^ v> ^ • O c C P '"' g O rt O, go O.T3 t) O, try ^ tn >> Ph Pi 2; W W Brick —$0.16 —$0,105 $0,065 54,079 $3,515.13 Crushed stone —0.41 —0.38 0.037 67,729 2,526.29 Men's laundry —0.173 *1.74 1.913 8,332 15.839.12 Shoe and tailor shop.. — 0.031 *0.295 0.326 33,027 10,766.80 Women's laundry ....—0.13 *0.395 0.525 18,389 9,654.23 Women's sewing room — 0.446 — 0.29 0.156 9,158 1,428.65 Total estimated loss to institution $43,830.22 Note: — Indicates loss; ^indicates profit. An estimate similar to the above has been made of the profits of private contract- ors, derived from the difference in the charge of the House of Correction for use of prison labor and the value of labor in the free competitive market, and also from the amounts which the companies would have been required to pay for space, heat, 16 1 z: o CY. £ 80^ 0^ UJQ- VOIJJ ILJ H ^^ ^^ ^^ ^^ 1 IJJ i 1^ ■» *) ■Jv > ■» Vt) l\j > 00 VO ffi •^ i5 M fv i5 -^ V 1 ■^ N. Js. V «3 § V i^- 1 ^ 1 ?! OJ 1 -J ? to ? ?^ i ■a r 1 a. 1 h ^ ^* ^ 'Q E fc ^ 4 -S 3 01 S- <3> '^t S & 3< K S ,^- K- k: >» § ^ ^ !2 N i^s ") k; W 10 IS », y> Oi frj 9, -0- vc >►• "T !5 SS '\J 1^ 5 1 5 ^ « ^ 1 i > 55 V in 'Vl i ' V 1 K: cy so « "-) ^ S ;^ Kl ^jR 5 IT" s-' ^ ;^1 s' s t? Jl 5 ^ ^ 5 i 5 1 ss s § § § ^ fc § ■o 5 1 fc ! fe fj 5 5 ^ ^ i >* 5 «3 5 5 ; > tvi "n 5 N. 5 ;$ ^ 5 a ft! si ■^ jy V ^1 ^ ? ^ v^ tv. > « ^ S R. Si :; ^ "^ Si § § 5 ^ ^ 5 1 ^ ■ S ? JO "1 i Oi 1 8 5 55 8 1 ^5 J* 1 j5 5 ■>»■ 5 '^ is § ? ^-iDM - ^ ». ; j7mo-3~[ fc S R J ;j> ^j IS 5 § « S 1 3 ^ g 3UO;g ^^ >Q 5 paqsnjo 5 5 aj 5 § 5 § ? ? ^ ^ ^ H 1 § 1 ''I > 03 5 ^1 1 § ^ S £ fc s !5 "1 5 ■5 5 5 Q 3-*'=M 5 ^. ;^ 1 ^ a K: 5 "3 2! "1 f5 ^ 5 2 ^ § ^ SJioqo s Si 5 >o >t ~-, § a 1 > n; ^ V ^ 000 gujoojg R ^ S "^ 00 ft I 5 5 iiOI|D3UJ03 S K! § /o 3cnOH g S3" ^ FIDd?>UlJ '^ "^ > 534000 3364.75 190750 4006.50 3301.00 1 §1 1^ 1 ^ ^ ^ 5 S H ■^ S R ^ N g 1 ^ § § ^ 5 '^ 1 A "^i 5; Q ^ . . . . — 1 — 1 — 1 — 1 1 ^1 ^1 ^ 1 1 it; 1 ^ ^ 1 1 > 1 ^1 1 light and power which, at the present time, are given to the contract shops without charge. This estimate is based on the work of the three important private contractors during the year ending September 30, 1913, and shows that leather and broom companies profited to the extent of approximately $32,500 in the difference of value between labor in the competitive open market and contract labor. In addition the House of Correction suffered further loss during the same period by reason of letting out labor under contract without charging for space, light, heat or power amounting to $12,486.94. This makes a total difference of approximately $45,000 a year, which TA3LE W. SUMMffl^Y BY MO/iTH5 of /eECEIPTS FEOM C0/f7^/?cr 5H0P5 H0U5Fo-f^0^E£CT/0N,ClTYo/(:H/(:P60 for rE/JR ENDING SEPT. 30,1913. MOnTH Cftic/160 Beoon CO. CHlH/lOO L£/fTHeiS a M£f?CflnTIU£ 00 PUI^SCO TOTf/U5 Meh@)SO^ Livery I1er/(S> zsf ncn^ 36^\ SroeefooM LiyeK-r Oct. /9IZ 798. 50 ZOOO - G80 4o 184 00 15 00 ZO.OO ^1717. so ffoY. ■ ao9.oo zooo 604 80 /67.63 75 00 zooo /56Z5 6/50 iS.OO zooo 9580 76S4. 55 TixraLS 3D7Z.50 Z40.00 774-1. G5 7935.83 780 00 Z40.00 I64Z55 Z7.77Z.57 the contract shops profit by reason of these contracts with the House of Correction. The details of these figures are as follows: Leather Shop. Average receipts per man day $ 0.23 Average cost of maintenance 0.46 Loss or gain per inmate per day — 0.23 Estimated annual loss to House of Correction $7,313.54 Estimated annual profit to company Broom Shop, Average receipts per man day Average cost per dozen brooms Average cost of maintenance Loss per inmate per day Gain per dozen brooms Estimated annual loss to House of Correction. .. .$1,467.40 Estimated annual profit to company 18 To City To Company .$ 0.38 0.46 *0.08 $ 0.50 0.: $23,484.00 $ 0.40 $9,120.00 Purse Shop. (No coniparisiiii possible.) Average receipts per man day $ 0.12 Average cost of maintenance 0.46 . Loss per inmate per day " — 0.34 Estimated annual loss to House of Correction $.3,706.00 Note: — Indicates loss; *indicates profit. The above amounts, if paid to the institution, would go far towards making up the present deficit in the cost of operating the institution. ■ The question of changing standards and prices so that they conform more nearly to those used in the open market should be given immediate consideration, and city departments or other civil divisions obtaining such services and commodities should hereafter be required to pay amounts more nearly approaching those prevailing in the free competitive market. City ordinances authorize the Board of Inspectors to make contracts with other civil divisions for care and custody of all prisoners for any term at a price of not less than 25 cents per day for each prisoner. Under this authority contracts have been made and are now in force with Cook County and surrounding villages for care and custody of their prisoners at the rate of 30 cents per day and with park boards in the city at the rate of 40 cents per day. For the year ending September 30, 1913, a total amount of $73,291.70 was charged to these divisions for the boarding of their prisoners. Analysis of the records show, however, that bills contracted by Cook County from 1906 to December, 1912, totaling approximately $270,000, remain unpaid. Records show amounts which remain tmpaid to be as follows: 1906 $ 466.80 1907 18,385.50 1908 9,583.20 1909 47,548.50 1910 63.394.20 1911 62,744.70 1912 (to October 1st) 54,257.70 1912 (October and November approximated) 12,032.00 Total $268,412.60 Investigation of the cause for failure of the county to pay these bills disclosed that members of the Board of Inspectors had no knowledge of this, while the super- intendent of the House of Correction and county officials stated that it was their understanding that the county claimed the above amounts had been ofifset by moneys which the city owed the county. Failure to collect these large sums of money largely increased the net cost of operation at the institution and unless somq remedy can be found for this condition, it will make it more difficult for the institution to become self-supporting. Before any further payments are made to the House of Correction by Cook County, the park boards, the federal government and the towns or villages, the matter of the charge for boarding their prisoners should be given careful con- sideration and an effort should be made to secure for this service a sum no less than the cost to the institution of maintaining inmates. Such an arrangement would help decrease the net cost of operation of the institution, and would permit possible dis- triliution of profits of labor to persons who are dependent upon prisoners or to pris- oners themselves when their terms at the institution are ended. HOUSE of COJ^PECTION RECEIPTS FOR SERV/CES J^EMDERED /^hD FROM S^LES of PRODUCTS TO C/TV OEPARTMENT3(HOa3Eqf CORRECT/O/^ fiOT /NCLUDEOJJbr r^AR SND/NG SEPT. 30. /9/3. PEP/jemffiTorBu/eE/io LMfiP^Y &J?/CH- (XUJMFPMH f^inv/iG niSCELL TOT/^L % 3uiydin^s ^18 0.2s ^/SO.ZS .37 O^ Council O/y C/er-Ar 4.7k 4.7& .01 O^y Physic/an Oy'/ Serrke Commission * .ss S9S.S0 S93.09 /.ZS 3oon^ 0/ £^(/£i3^/on 3.00 ^/4S~o6 /48.0C Boarv/ of £Uc/ton Comm. J* .51 Dep/- of£/ecfr/€p^ ^'sijr.ss ~_ zzi-so /OS.3i> 74/. 90 430.ZS - -- /OS.5!o .22 9h8.40 2.05 4Z07.bo 8.6/ h/a^bor & 3i/^>f^r LorY S(>88 9i,.88 .20 Pi/l>//C /./ipr-o^y ZSO Z.SO .OOS Local /rrypro^-^men/^ 4II./Z 4./I.IZ .db /Mayor's Of^'ce 10 00 /o.oo .OZ f^uniCip^/ Oou/'/'S 8Z7S./0 8Z7£./0 irsi Inspector 0/ 0//s 30. SO 80. so .n Pohce £>ep-Z 3S03 3Z / 00 ZI4.ZS iy Ma// aot .59 4.75 To^^/, Z7.84 834/8 1.78 ■^ Bngineertnq 70IZ 00 4-oSO . 347 00 73 93.50 iS.OI Tj CommfiS/oners Off. 840 00 38 75 ZOI.hO /oao.35 2. 27 \ /^aps & P/of^ /8.SO /6 50 .3> K. Cofr>pensa^on 4.50 4.SO oil \ 3o^. of ^^rfers Z&S7.00 34.ZS Z79/.25 S.8b Q 3^/- of Jfr^efs 3S8.S0 //b&l .70 3C/00 /Z4Z/Z0 zt.oz ^ 3vr of pya/er Z49.00 /3.50 4.4-7 OZ 709.5Z /.49 5pec/a/ Parses Comm. 73 00 /7 Z5 90.Z5 ./9 SfT^oke Ms^echon 93.SO 93 SO ,2/ Sfeom 3o//cr /nspec^fon 4ZS0 4Z 50 .09 5or. of S/z7/-/s/rcs 7.7S 7 75 .OZ £>tpZ. of Sofip/fes /O73.0S /073.05 2.20 DepZ of TracJr £/eva/Ton Dc^ of Transporfohon 17 50 /7.50 .04i Phnmipa/ TubSff/jf^arri/M Dept. of/rfet^/ftt * /r&w*/rw Z8.7S za.7s .on Sre Etam Zoo Z.oo .001. f/nonce Corn^i/fee /.SO /.SO .003 7b¥-a/s *80e6.4S * ;/.438oo * //.9I5.3S * /&//0.34 * Z48.84. f4780/.sa /00.00c Ptrc€ntaa3z,so '782410 20342^0 73Z3IJO 8(.S0 /^nfiricj VS 7.ZS t.ss 47.Z5 ,^o Wi 8705 1.0 Bnck^ lad.oo 3344J2 5OI.00 3I0.OO 373?0 ize.oo II9 7.0O Zi4.7£ ««,» I3SS.ZD Sa7Z,n /a^o Cn/ihec/ Sfx>ne. liSSO 370^$ IOIf,Z 177.00 ZIfiO e,s.so 71.75 6Z0,Z£ 4I4.S0 ZOIfOC zeoso Z3bZS Zi,d0,Si 318 Cemenf Ware. nfio /OflO 3.00 3.00 3Z^O 3Z.O0 /O.SO ZISO /Z3.S0 .75 Ta/hirf Grease. I2^S 'S2i K.SC ZSU 3<7Z 4Z^S U.4/ 3647 Zizi toil 3t.i0 343'4 .40 Barre/s & 3oxis HZ9 /OS! zasi TO z» Ib'O /3DS /B.2S I0.43 /B70 S33 ntz 157.1,3 ./3 ^ot^s, /ran, efc. IZe.33 .SB .eo /satt /S Emp^y Sacks 5lfi3 tOI.S0 ms U.40 3i.oo 900 ZQZS Z3.7S ZZ.75 /oaob &7.00 5Z34S .62 I.3t/ndry. h/ork. 1138 liS8 .02 F/orfZrs. Z.oo loo 300 00 Hauh'n* k^A r .:^^>; *^1 ^2^ EXHIBIT XI. View of the House of Correction quarry, showing crowding and congestion. The supervisor in charge of the quarry has under him two guards who are sta- tioned in the pit for the dual purpose of guarding prisoners and keeping them at work. The guards in turn have appointed a number of straw bosses among the pris- oners, on whom they depend in a large measure for results. If the quarry is to be operated efficiently it will be necessary that the men be better supervised and co-op- eration between the various subdivisions of the quarry's organization improved. 49 From the facts as stated and observations made on the operation of the quarry, the following conclusions have been drawn: 1. That the stone quarry has great possibilities of development. 2. That development has been hindered because of the following con- ditions: (a) The quarry has been made the dumping ground for all excess men in the institution. (b) Efficient operation has been hindered by reason of the un- satisfactory arrangement of power house, steam lines, and track lay- out. (c) The amount and efficiency of supervision has been inad- equate. (d) The House of Correction has not been able to make advan- tageous transportation arrangements. 3. That the capacity of the present hoist can be doubled at least by a simple re-arrangement of track lay-out at both upper and lower levels. 4. That by installation of additional screening, and storage facilities and improved operation of crushers, the capacity of the quarry can be increased greatly. 5. That further study should be given to installation of additional quarry machinery with a view to increasing production. A market is assured for the total output of the quarry as the Bureau of Streets uses annually 100,000 cubic yards of stone, and the Bureau of Engineering and other city departments stand ready to use as much of this product as the institution can produce. As the total output of the quarry during the period under consideration was only 35,122 cubic yards it is apparent that any increase in output will find a ready market in the city departments. Shoe and Tailor Industry. The shoe and tailor, shop manufactures shoes for all inmates, clothing for male inmates, bedding, and miscellaneous articles for kitchen and bakery. All repair work on shoes and clothing and the repairing and pressing of street clothes owned by inmates is also done here. The supervisor in charge of this shop is a practical tailor. A guard assigned to assist him is a practical shoemaker and instructs the in- mates in shoemaking. The equipment in these shops consists of foot-power sewing machines of various types required for the work. The average number of inmates employed in this shop during the past year was 108, and the average term of sentences was about nine months, being distributed as follows: 60 inmates 1 year or more 33 inmates 6 months to 1 year 30 inmates 2 months to 6 months Under the present arrangement a crude but careful record is kept of all materials received and used in the manufacture of clothing and shoes, and standard costs for all articles manufactured have been computed. Labor on new and repair work was found to be figured at the rate of SO cents per day, but credit of only 25 cents per man-day was allowed on the intra-department records during the period in ques- tion. This difference in the amount used in computing standards and of credit given, was due to a misunderstanding which, it is understood, will be rectified under revised cost standards. Analysis of expenditures in the shoe and tailor shops and the amounts credited, as given in the institution records, indicates that for the year ending September 30, 1913, the institution credited itself with a revenue of $25,456.61 and a total expendi- ture of $11,219.76. leaving a balance of $14,236.85. This shows the value of labor to be about 42 cents per day for 108 inmates who were engaged in this industry. A similar analysis has been made of work in this industry using the open market values of the products and services, and the comparative figures are shown in detail in the following: SO New Products — Shoes: Men's leather Men's canvas Men's miscellaneous .. Boys' leather Boys' baseball Women's canvas Clothing: Men's coats Men's pants Miscellaneous clothing Boys' coats Boys' pants Boys' miscellaneous Miscellaneous Articles RECEIPTS. Figures obtained from House of Correction Actual Total $ 9,740.84 Repairing and Pressing — Receiving room $14,820.97 John Worthy School. Barn (harness) . Comptroller Men's hospital . . Women's hospital Main kitchen .... Cell houses Miscellaneous . . . 681.13 92.55 20.60 21.80 3.42 17.30 11.22 46.78 Figures based i market value Estimated $ 1,748.25 880.00 89.75 295.50 17.00 160.00 $ 1,289.56 1,558.25 5,031.71 52.00 186.00 257.92 1,080.51 15,715.77 $25,456.61 $12,646,45 $22,231.45 1,021.70 138.82 30.90 32.70 5.13 25.95 16.83 70.17 $36,220.10 Materials Repairs and replacements Supervision — Supervisor (% time) Guard as assistant super- visor ('/} time) DISBURSEMENTS. $ 9,717.67 242.09 $ 920.00 340.00 1,260.00 $11,219.70 Labor value Average men employed per day Total men-days Average value of labor per man per day. Average cost of maintenance 108 33,027 $14,236.85 1.431 .462 $ 9.717.67 242.09 1.260.( 108 33,027 $11,219.76 $25,000.34 1.757 .462 Profit or loss per man per day Loss $0,031 Profit $0.29= The quality of products in this shop is better than can be purchased in the open market at a price equal to the cost of production, including labor figured at the price of average cost of maintenance. The use of prison labor in these industries was found to be generally beneficial to both inmates and the institution. Studies should be made of the efficiency of prison labor in tliis shop as com- pared with free labor, and new standards of production, should be computed so that the amounts of credit given for finished product may bear a favorable relation to market values. In addition the system of shop records should be thoroughly revised on the basis of the best practice obtaining in private shops. Brick Industry. From the point of receipts the brick industry is the largest now conducted at the institution. Records for the year ending September 30. 1913. show a production of 5,809,000 sewer and common brick, and receipts of approximately $25,000. SI The institution charges the city and private contractors at the rate of $4.00 per thousand (f. o. b. brick yard) for common brick and $4.25 per thousand (f. o. b. brick yard) for sewer brick. The delivery charge within a radius of four miles is $2.75 per thousand, which increases the cost to $6.75 per thousand for common brick and $7.00 per thousand for sewer brick. The present market price for the same brick is $7.00 per thousand for common brick and $8.00 per thousand for sewer brick. The following analysis of records of receipts and expenditures in the brick in- dustry for the year ending September 30, 1913, indicates a net labor value of about 30 cents per day per inmate. With the increase of price to that charged on the out- side, the average value of labor would be raised to at least 35^ cents per day per inmate. RECEIPTS. Figures obtained from House of Correction Actual Sales to: City $11,438.00 Private parties 13,154.75 House of Corn (estimated) 118.00 $24,710.75 Brick Manufactured. 5,809,000 at $4.75 per M DISBURSEMENTS. Material $ 3,026.19 Coal • ■ • • Repairs and replacements Supervision — • Supervisor $1,800.00 Brick machine operator 1,200.00 Stationary Engineer (.14 time) 300.00 Asst. Supervisor 760.50 1,076.20 321.07 4,060.50 8,483.96 Figures based on market value Estimated $3,026.19 1,076.20 321.07 1.800.00 1,200.00 300.00 760.50 $27,692.75 $16,226.79 8,483.96 $19,208.79 Labor value Average number of men employed 178 1/8 Total men days 54,079 54,079 .Average value of labor per man per day $0.30 $0,335 Average cost of maintenance ■.'.$0,462 $0,462 Loss per man per day $0,162 $0,107 A number of city departments are doing considerable construction and repair work for which they require large quantities of brick. Such brick should be bought from the institution as far as practicable, and at a rate which would have to be paid in the open market. Laundry (Men's and Women's). The laundry activities of the House of Correction have been expanded to take care of laundry service of several city departments in addition to that of the institu- tion. The men's laundry does all washing for male inmates and in addition assists the women's laundry in washing towels for all departments at the City Hall, as well as part of the laundry for police stations. The women's laundry cares for the remain- ing portion of laundry work for police stations, all laundry for the Department of Health, Municipal Lodging House, City Hall, "Parting of the Ways" home and for the matron's and superintendent's residences. Equipment of the men's laundry consists of two washing machines, two wringers,. a steam dryer, and five electric irons. The washing machines and one of the wring- ers are operated by a 20-horse power electric motor, and the other wringer is ope- rated by a 2-horse power direct connected steam engine. 52 Equipment in the women's laundry consists of wash tubs, twenty-two electric flat irons, an electric wringer, and an electric mangle, the latter two operated by a 2-horse power motor. Analysis of records of receipts and expenditures for service in the laundries indi- cates that prices charged the city departments by the House of Correction are unrea- sonably low, and for this reason receipts are not sufficient to cover the maintenance cost of inmates. The following table shows prices now charged and commercial prices in large quantities for doing such laundry work: Articles. J- B ^ O- C C 3 ^ ^ d Rough dry wash for inmates 7c per doz. 10c per doz. 20c per doz. Miscellaneous pieces washed and ironed for inmates 15c per doz. 20c per doz. 60c per doz. Washing and ironing towels 40c per 100 20c per 100 $1.00 per 100 (washing only) (ironing only) Washing and ironing for hospital, superintendent's residence and \ reserve officers 40c per doz. 90c to $1.20 per doz. Washing and ironing for Police and Health Departments-^ (a) Sheets 3c each 3c each (b) Pillow slips IJ^c each 2c each (c) Bed spreads and blankets 40c per 100 l()c each 5c to 25c each (washing only) Comparison of the above figures also shows that prices charged by the men's laundry are much lower than those charged by the women's laundry. For example, the men's laundry does washing for the Department of Police at a rate of 40 cents per hundred pieces, while the women's laundry charges 10 cents a piece for the wash- ing and ironing of this class of work. Laundry work done by women inmates for the "Parting of the Ways" home and the Municipal Lodging House is gratuitous. Laundry service given to the Municipal Lodging House should be paid for as required of other city departments. The following comparison of prices charged by the institution and in the open market for this class of service has been made to show the differences between the total actual and the estimated receipts, and the differences in the net value of labor: Men's Laundry. RECEIPTS. Figures obtained from House of Figures based on Correction market value Service^ Actual Estimated House of Correction $5,918.36 City departments 619.66 $6,538.02 House of Correction rough dry. 731.252 pieces at 20c per dozen $12,187.40 Washed and ironed 178,949 pieces at 5c each 8,947.45 City- City Hall (towels washed) 139,900 at 60c per 100 839.40 Police Department (blankets washed) 13,- 035 at Sc each 651.75 Health Department (towels washed) 2,984 at 60c per 100 17.90 $22,463.90 S3 UlSBURSEMENTS. Materials $1,541.94 $1,541.94 Electric Power (Estimated) 780.00 780.00 Repairs and Replacements 277.99 277.99 Supervision — Supervisor Siioe and Tailor Shop (Vs time) $ 460.00 460.00 Guard as Assistant Supervisor. 1,080.00 1,540.00 $4,139.93 1,080.00 $ 4,139.93 Labor Value $2,398.09 $18,323.97 Average men employed per day 27 27 Total men days 8.332 _ 8,332 Average value of labor per man per day $0,287 $2.20 Average cost of maintenance $0,462 $0,462 Profit or loss per man per day Loss $0,175 Profit $1,738 Women's Laundry. RECEIPTS. Figures obtained from House of Figures based on Correction market value Services — Actual Estimated Police Department $3,426.38 Health Department 3,759.57 City Hall '. 181.93 House of Correction 2,770.58 $10,138.46 Sheets, 62,083 at 3c each $ 1,862.49 Pillow slips, 18,914 at 2c each 379.28 r Towels (ironing only) 372,112 at 40c per 100 1,488.45 Spreads and Blankets, 15,404 at 5c each.. 770.20 Coats and Pants, 5,006 at 7y,c each 325.45 Rough Dry, 46,361 at 20c per dozen.... 772.60 Miscellaneous, 141,671 at 10c each 14,167.10 $19,765.57 DISBURSEMENTS. Materials $ 489.00 $ 489.00 Power (estimated) 1,219.92 1,219.92 Repairs and Replacements 285.00 285.00 Delivery (estimated) 499.20 499.20 Supervision, 2 matrons at $780 1,560.00 $4,053.12 1,560.00 $4,053.12 Labor Value $6,085.34 $15,712.45 Average women employed per day 60 60 Total women days 18,389 18,389 Average value of labor per woman per day $0.33 $0,855 Average cost of maintenance $0,462 $0,462 Profit or loss per woman per day Loss $0,132 Profit $0,393 The principal reason for differences in value of labor in the men's and women's laundries, shown above, is that the efficiency of men prisoners is greater than that of women prisoners and the amount of work turned out by the men's laundry is greater than that turned out by the women's laundry. During the year ending December 31, 1913, the men's laundry accomplished the following work at the prices indicated: Quantity Articles Washed and Ironed Charge Amount 731,252 Pieces washed 7c per doz. $4,265.59 178,949 Pieces washed and ironed 15c per doz. 2,236.80 139,900 Towels washed for City Hall 40c per 100 559.60 13,035 Pieces washed for Police Dept 40c per 100 52.00 2,984 Towels washed for Health Dept 40c per 100 12.00 1,066,120 Pieces $7,125.99 S4 The investigation in these two industries has disclosed: (a) That operation of the laundry industry has been comparatively efficient, and is necessary for economical administration of the House of Correction, as the large amount of washing necessary in an institution of this kind is done better and more cheaply than in an outside laundry; (b) That the work is clean and is not detrimental to the welfare of inmates engaged therein; (c) That prices charged for service performed by both laundries are lower than justifiable. In addition to laundry work now sent in to the House of Correction by the De- partments of Police, Health and Public Works, that of three other city departments which alone spend approximately $13,000 each year for this class of work, viz., the Board of Education, $12,765, Chicago Public Library, $374.55, and the Special Park Commission (estimated) $125, could well be handled. There is also a large amount of laundry work required by various park boards and Cook County institutions which could be done to the advantage of both the House of Correction and the other insti- tutions if it were taken care of by the inmates. Arrangements should be made whereby these city departments and civil divisions send as much of their laundry work as practicable to the institution. Prices charged for work done for city departments and other civil divisions, and credit given for work done for the House of Correction, should be raised to equal the amount which would be charged by outside laundries. Women's Sewing Room. An average of 30 women inmates per day are engaged in making clothing for women inmates, towels, sheets, and pillow slips for the entire institution, and repair- ing women's clothing and darning men's socks. The following figures indicate actual receipts and expenditures in this industry for the year ending .September 30, 1913, and the estimated amounts, if standards and values used in the open market had been applied. RECEIPTS. Figures obtained from House of Figures based on Correction market value Actual Estimated New Work $1,893.72 $3,029.94 Repair Work 469.31 $2,363.03 750.90 $3,780.84 mSUURSEMENTS. Material $1,450.44 $1,450.44 Supervision 780.00 $2,230.44 780.00 $2,2,30.44 Labor value $ 132.59 $1,550,40 Average women employed per day 30 30 Total women days 9,158 9,158 Average value of labor per woman per day $0,014 $0.17 Average cost of maintenance $0,462 $0,462 Loss per woman per day $0,448 $0,292 Note; Market value is estimated to be 60 per cent greater than House of Correction figures. It is undoubtedly to the advantage of the institution to operate the sewing room, but standards of production sliould be revised, so that proper credit may be given for commodities produced. SS MISCELLANEOUS INDUSTRIES. Aside from the above industries there are a number of miscellaneous industries which the institution carries on for upkeep of its own and other city departments. Kitchens. One main kitchen supplies food to the main institution, to the women's depart- ment, and to the John Worthy School for Boys. Subsidiary kitchens supply food for the hospital and a few employes, and also for residences of the matron and the super- intendent. Equipment in the main kitchen consists of steam-heated iron kettles and a potato steamer. The steamer is antiquated, is unsuited for present needs, and should be re- placed at once by larger and more modern equipment. Exhibit XII shows old wooden half-barrels which are in use at the present time for food, as it is being dished out EXHIBIT XII. Interior view of kitchen, House of Correction, showing wooden half barrels used as receptacle for food and tin ration cans. of cookers before distribution to ration pans. These barrels should be replaced by galvanized iron or tin tubs similar to some now in use. An additional set of ration pans should be provided so that the menu could be improved occasionally by addition of rice, oatmeal, and other cereals; food should be served in a warmer condition than at present. Bakery, The bakery supplies all bread and rolls consumed in the institution. These are cleanly made and wholesome. Three modern bake ovens form the equipment. De- tailed cost records are kept of the amount of materials used, which cost about V/z cents per loaf and a little over yi cent per roll. A better grade of bread called ''hos- pital bread" costs slightly over 2 cents per loaf. 56 ■ r- V*j , ... •Labor, supervision, heat and overhead charges should be considered in arriving at the cost of manufacture. Under terms of a recent agreement the bakery is to supply bread for the Municipal Lodging House. A charge of 3 cents per pound loaf, includ- ing delivery, is to be made. Crematory. The present crematory is built underground. Until very recently it was used only for cremation of part of the garbage and refuse of the institution. During the past few months pure garbage from the three adjoining wards has been delivered to this crematory and incinerated. The total daily delivery from these wards amounts to ap- proximately 25 tons, and it has required about 3 tons of coal per day to incinerate this amount, at an average cost of 24 cents per ton, which is exclusive of the value of labor and overhead charges. The institution has charged the Bureau of Streets of the Department of Public Works at a rate of 44 cents per ton. This figure is comparatively low when it is con- sidered the present crematory was not originally erected to take care of this amount of garbage. Possibilities for the use of convict labor for the incineration or reduction of gar- bage and refuse are great, and arrangements should be made whereby the House of Correction will furnish labor for operation and maintenance at the proposed garbage disposal plant which is to be erected near the House of Correction. Cement Shop. Inmates in the cement shop at present manufacture concrete articles, such as vases and posts, and supply same for the Special Park Commission. This work can be car- ried on advantageously at the institution, and every effort should be made to have as much as possible done for the Park Boards, the Board of Education, and the Bureau of Engineering, and other bureaus of city departments. Machine and Tin Shop. Until recently men in this shop were engaged solely on repair work and in the manufacture of ration pans and other articles of tin for the institution. Street dirt boxes and "Street Closed" signs are now being made in the shop for the Bureau of Streets. The institution proposes to charge the city $2.30 per box, as the material costs about $1.58 per box and labor is figured at 50 cents per man-day. Use of a metal folding machine will increase the capacity of the shop with a corresponding decrease in cost of manufacture. Carpenter and Paint Shop.' Until recently the carpenter and paint shop was engaged only in repair work and painting and in the manufacture of mattresses, scrubbing brushes, and miscellaneous articles for the institution. Of late painting of street dirt boxes and "street closed" signs, manufactured in the tin shop, has been undertaken. Present equipment is most primitive; the wood lathe is operated by hand power and the backs for scrubbing brushes are shaped and the holes bored by hand. These are shown in Exhibits XIII and XIV. Garden and Greenhouse. In summer a considerable quantity of vegetables is grown in the garden. There is a small pig-sty in connection with this garden in which a few pigs are fattened each year on garbage from the kitchen. The greenhouse is maintained solely for the institution. When there is an abun- dance of flowers an attempt is made to sell them to dealers. The price offered has in some cases been so low that the flowers have not been sold, and have been used in decorating the chapels and as gifts. Stable. Fourteen horses are kept in the stable, two of which are boarded, one for the leather shop and one for the broom shop, a charge of $20 per month being made for this service in each case. 57 EXHIBIT XIII. Interior view of carpenter shop. House of Correction, showing method of doing: lathe work by hand power machinery. P:.\HIBIT XIV. Interior view of carpenter shop, House of Correction, showing method of making brush backs by hand labor. SUMMARY OF FINDINGS AND CONCLUSIONS. The following is a summary of the findings and conclusions included in this report: (1) That under the dual authority conferred by the statutes on the board of inspectors and the superintendent of the House of Correction, the responsibility for operation and management of the various activities at the institution has not been and cannot be definite- ly fixed, that the present condition is inefifective and expensive, and has been the cause of the lack of defined and concerted plan of action toward a complete re-organization along logical and scientific lines. (2) That the contract system of employing prison labor is prejudicial to moral, mental and industrial development and welfare of prisoners and those dependent upon them, and is detrimental to the interests of the institution and of free labor. (3) That the municipal use system for the employment of convict labor is for the best interests of prisoners and the institution, and that there are a large number of industries in which the inmates could be made to work for the benefit of the city departments and various other civil divisions, including the park boards. Cook County, Board of Educa- tion, Public Library and the Sanitary District of Chicago. (4) That credit is due the present superintendent of the House of Correction for his earnestness and efficiency in the general control and direction of penal work at the insti- tution. (5) That the practice of making contracts with private contractors for the use of con- vict labor through verbal agreement between the board of inspectors and contractors is subject to criticism as, in the opinion of the corporation counsel, "neither the board of inspectors of the House of Correction nor the City Council of the city of Chicago has power or authority lo make such a contract as is contemplated for the output of prison labor." (6) That there has been general lack of business-like management in the operation and control of prison industries, and that opportunities for decreasing the cost of maintenance of inmates at the institution by increasing revenues from the sale of products and services to the city and other civil divisions and the boarding of prisoners, have been neglected, these conditions being due to the following : (a) Unscientific assignment of employes, insufficient supervision and lack of esprit de corps in the organization. (b) Questions of the most adaptable and desirable industries and necessary equipment do not seem to have been given the consideration which they de- serve, and industries have been either overcrowded or have not been suffi- ciently developed. (c) Each industry has been conducted as an independent unit and without ref- erence to the other industries. (d) Assignment of inmates to the various industries is done in a hurried, hap- hazard manner: apparently little thought is given to the best interests of inmates or institution. (c) No concerted effort seems to have been made in requiring daily check of the work and industry of regular employes or of inmates, (f) Lack of modernized and accurate systems of accounting and cost-keeping and a system for definitely ascertaining the efficiency of individuals or of service. (7) That no permanent records or minutes are kept of the meetings of the board of inspectors and of their actions; they have not required that such minutes be written up and presented for their approval and signature, and the superintendent of the House of Cor- rection has drawn up annual or other reports from personal notes kept by him. (8) That the work of the present assistant superintendent and principal clerk is not satisfactory and is ineffective. (9) That the cost of maintaining inmates is appro.ximately 46 cents per day, and the average earning value of inmate labor in the industries conducted during the year end- ing September 30, 1913, is shown by the House of Correction records to be as follows: 59 CONTRACT SHOPS. Total Total Average Value Industry Valve of Men Days of Labor Labor for Year Per Day Chicago Broom Co $7,024.50 18,342 $0,382 Chicago Leather & Mercantile Co 7,453.54 31,798 0.23 Inland Purse Co '. 1,333.53 10,900 0.122 MUNICIPALLY CONDUCTED INDUSTRIES. Printing shop 6,411.38 6,596 0.972 Shoe and tailor shop 14,236.85 33,027 0.431 Women's laundry 6,085.34 18,389 0.33 Brick industry 16,226.79 54,079 0.30 Men's laundrv 2,398.09 8,332 0.287 Crushed stone 2,887.90 67,729 0.0427 ■ Women's sewing room 132.59 9,158 0.014 (10) That the annual net cost of operation of the House of Correction for the years 1906 to 1913 inclusive, has varied from $92,750.53 to $163,760.91 ; that the net estimated difference between the value in the open market and the amounts charged against the city departments for more important supplies and services amounted to about $43,830 for the year ending September 30, 1913 ; that the House of Correction suffered a further loss dur- ing the same period by reason of letting out labor under contract without charging for space, light, heat and power, amounting to $12,468.94, and that private contractors made a profit on labor derived from the difference in the charge made by the House of Correction for labor and the value of such labor in the free competitive market, estimated at $32,604. (11) That bills contracted by Cook County for the boarding of its prisoners from 1906 to December, 1912, totaling $268,412, remain unpaid and that the rate charged Cook County and other civil divisions for the boarding of prisoners is less than the average cost of maintenance. (12) That the confining of boys in the John Worthy School behind bars has an exceed- ingly bad effect upon their attitude and seriously hampers the mental and moral develop- ment which is to be desired in a school of this kind. The fact that there is no segregation of boys who are merely obstreperous, and who need only a little training to make them good citizens, from the other boys who show criminal tendencies, frequently results in contamination of the younger boys. (13) That the percentage of efficiency, as indicated by the value of labor, varies great- ly in the different industries ; that prisoners do better and more work in those occupations and industries in which commodities are manufactured either for use of the institution or for the municipality than when their services are sold to private contractors, and that the average efficiency of prison labor is less than free labor and varies from SSyi per cent to 66% per c.ent of the efficiency of labor in the free market. (14) That farm work is good, healthy, invigorating and self-respecting labor, and offers opportunity for men if they will learn the details of an industry which may be called for and useful to them in after life, and that "the convict can do all these things with the minimum of competition with free labor and with no injury to the farm." (15) That sanitary arrangements in the institution are generally good, but there is insufficient room in the hospital and the lay-out is bad. SUMMARY OF RECOMMENDATIONS. The following is a summary of the recommendations included in this report: (1) That action be taken so that bills be presented to the next legislature pro- viding for an amendment to the statutes abolishing the offices of the board of inspect- ors and placing the responsibility for the management and the direction of the House of Correction definitely on one official. This official should be appointed by the Mayor with the advice and consent of the City Council, and should have complete power to direct and manage all the activities of the institution, and should appoint all neces- sary assistants according to their merits and qualifications. 60 (2) That the policy of the House of Correction be complete abolition of the sys- tem of contract labor, and that inmates who are not engaged in general maintenance work for the institution be assigned to industries for production of supplies and com- modities or be assigned on outside work, at agriculture, or other services for the use of the institution, the city and other civil divisions. (3) That the contract with the Chicago Leather and Mercantile Company be ter- minated on the date signified in the letter of January 29, with the other contract in- dustries, and that inmates now assigned to this work be put on work of manufactur- ing supplies and giving their services to the city departments and other civil divisions hereinafter cited. (4) That an order be issued to the various department heads of the city to use every means possible for utilization of prison labor and the products manufactured at the House of Correction in operation of their manifold activities, and that every eflfort be directed to influence the proper authorities of Cook County, the park boards, the Board of Education, the Public Library, the Sanitary District of Chicago and other civil divisions to utilize such convict labor and products as they may need which could be manufactured advantageously at the institution. (5) That the following industries be extended at the institution to supply prod- ucts or services to the municipal use market, as indicated: (a) Crushed stone to the Bureau of Streets and the Bureau of Engineering and to the several park boards. (b) Building and common brick to be used in construction and repair work of the Bureau of Sewers and the Bureau of Engineering, Fire Depart- ment, Department of Police, Special Park Commission, Board of Edu- cation, Health Department and the Department of Electricity. (c) Printing for the various city departments and county institutions. (d) Laundry work of the Board of Education, Public Library, park boards. Special Park Commission, Sanitary District of Chicago and Cook County institutions. (e) Wearing apparel for all inmates at the institution and for Cook County institutions. (f) Bakery products to the Municipal Lodging House, Board of Education for penny lunches, and to the Parental School. (g) Incineration of garbage and refuse delivered from adjoining wards. This will necessitate construction of the proposed incineration plant near the House of Correction. (h) Furnishing of concrete posts, fountain basins, and like concrete products for park boards, the Special Park Commission, Board of Education and Department of Public Works. (6) That new industries be established at the House of Correction as soon as feasible to supply the following commodities and services for city use: (a) The making of push brooms and all other kinds of brooms, street dirt bo.xes, paper burners, "Street Closed" signs, shovels and boulevard scrapers for the Bureau of Streets and the performing of maintenance work, such as painting and miscellaneous repairs on equipment for this bureau and other departments of the city. (b) Book binding work for the Public Library and other city and county departments. (c) Assignment of prisoners for work at the garbage reduction plant and at the proposed incinerating plant near the House of Correction grounds. (d) Assignment of prisoners for work at the proposed repair shop and yards of the Department of Public Works adjoining the House of Correction. (e) Assignment of convict labor under proper conditions and restrictions for repair and maintenance of public highways. (f) Assignment of old and infirm inmates, alcoholics and short term prison- ers to work on a farm to be operated for raising of products consumed at the House of Correction and at other city departments and county in- stitutions. 61 (7) That consideration be given to adoption of a plan whereby longer-term pris- oners be compensated for their labor, and that a portion of the money earned by the convict during his term of imprisonment either be held and paid to him upon his re- lease, or that it be given to his family as a means of support during his incarcera- tion. (8) That the city give consideration to, and that efforts be made to interest civic organizations in the question of providing a farm to which inmates at the House of Correction could be sent for work. This method of reformation of unfortunates has been found to lie successful, remunerative and to the welfare of inmates and society. (9) That extension of the practice of providing lectures and night-school instruc- tion work, especially in trades, after inmates have completed their day's work, be given careful consideration and that civic organizations and committees be interested to co-operate by providing books, lectures and aid in this betterment work. (10) That there should be directly under the superintendent, two chief assist- ants, one of them, the medical superintendent, directly charged with all activities having to do with health and physical well-being of prisoners; the other, a superin- tendent of industries or business manager, directly charged with all activities which have to do with the industrial development of prisoners and general management of the institution. General questions of mental and moral betterment of prisoners should be left in the hands of the superintendent. (11) That the positions of assistant superintendent and principal clerk be abol- ished, and that the position of superintendent of industries or business manager be created in place thereof at a salary of at least $3,000. (Amendment to the statutes will be necessary in case of abolition of the office of deputy superintendent.) (12) That the question of changing standards and prices so that they conform more nearly to those used in the open market should be given immediate considera- tion, and city departments or other civil divisions obtaining such services and com- modities be hereafter required to pay amounts more nearly approaching those pre- vailing in the free competitive market. (13) That before any further payments are made to the House of Correction by Cook County, the park boards, the federal government and the towns or villages, the matter of charge for boarding prisoners should be given careful consideration, and an eflfort should be made to secure for this service a sum no less than the cost to the in- stitution of maintaining inmates, and that further efifort be made to secure an early adjustment of claims of the city for amounts due from Cook County for boarding prisoners. (14) That complete minutes of actions of oflicials of the House of Correction be regularly kept and be inade a part of the permanent record for use as a basis for fixing responsibility and presenting all necessary facts in quarterly reports to the city comptroller, and annual reports to the city council and to the governor. flS) That a modernized and complete system of accounting be installed at the institution which should be made to show definitely the cost of operation of each industry during stated periods, cost and consumption of a given group of inmates, and revenues as distinguished from receipts of the entire organization, and that these accounts be maintained in such a manner as to furnish the superintendent of the ■ House of Correction with definite information as to amounts expended for (a) Maintenance of the institution and the various divisions thereof. (b) Operating of industries and of each separate industry. (c) Capital outlay. (16) That daily service reports be made by all regular employes; that they be checked by officials directly in charge and be made the basis for ascertaining and re- cording individual efficiency. 62 (17) That efficiency markings of all employes be kept on individual history cards, which should be open at all times for the inspection of employes. The average monthly efficiency markings should be kept in a permanent record in the superintendent's office and in the office of the Civil Service Commission. (18) That in determining efficiency of employes three factors be used, viz., qual- ity, quantity and conduct in work performed, with demerits for violations of rules and regulations and non-attendance, and for tardiness. (19) That a complete set of instructions, rules and regulations be prepared and distributed to employes as soon as possible, for the guidance in carrying on different activities. (20) That a modern telephone system be installed at the institution to take the place of the present antiquated system and that operation of the switch-board be added to the duties of the junior stenographer. Respectfully submitted, (Signed) J. L. JACOBS, Efficiency Engineer in Charge. APPROVED: (Signed) JAMES MILES, Examiner in Charge. Efficiency Division. EXHIBIT II. OPINION OF CORPORATION COUNSEL, CITY OF CHICAGO. March 18, 1914, IN RE CONTRACT FOR PRISON LABOR AT THE HOUSE OF CORRECTION. HON. A. A. BURGER, SECRETARY OF THE BOARD OF INSPECTORS OF THE HOUSE OF CORRECTION. Dear Sir : In your communication of recent date addressed to the corporation counsel, you asked for an opinion on two questions: First, whether the board of inspectors of the House of Correction has authority ,to let a five-year contract or agreement for letting out labor at your institution without the formality of presenting or passing same through the City Council. The second question was whether the board can recommend such a matter to the City Comptroller, and whether the latter has the power to instruct the board to let such contract or agreement. The two questions are so nearly allied to each other that we can answer both without dividing them. It seems that the board of inspectors has not the authority to enter into a contract of this character without action on the part of the City Council, and it is almost as certain that the City Council itself would have no such power if it undertook to do this. Under the act of 1873 relating to the State Reform School for Juvenile Offenders, the board of trustees of that institution was given power, among other things, to provide for the employment and education of its inmates. It undertook in pursuance of that power to make a contract with an individual for the use of the services of the inmates of that institution. The Supreme Court held that the board of trustees was a corporation with special and limited powers ; that the contract made by it was void, and that the statute did not confer upon them the power to make a contract of this character, (Clement v. Board of Trustees of State Reform School, 84 111., 311.) The law establishing the House of Correction was passed in 1871. It did not expressly give the power to the board of inspectors of same to employ the inmates of the institution, and in this respect the board of inspectors of the House of Correction are more limited in their powers than were the board of trustees of the State Reform School. Consequently, since it was held unlawful for the latter to make a contract of this character, a fortiori it follows that the board of inspectors of the House of Correction can not do so. The act creating the House of Correction unquestionably contemplated that the inmates should be employed. It required that the officer whose duty it was to receive the persons sentenced thereto should "safely keep and employ such person for the term mentioned in the warrant of commitment." (Sec. 10.) This is also made clear by the wording of sec- tion 13 of that act, which says that the expenses of maintaining any such house of correc- tion "over and above all receipts for the labor of persons confined therein," etc., shall be audited and paid by the legislative authority of the city. Consequently, there is no doubt that the inmates are to be employed, and the City Council has expressly required this by section 1497 of the Chicago Code of 1911, which makes it the duty of the superin- tendent to put each of the persons committed therein who is able to labor "to the work which they are respectively best able to do, not to exceed ten hours for each working day." 64 We are unable to find any statute which prescribes the class of work that the inmates of this institution shouLd do, but we assume that their employment in the same manner and in the same lines of work as the employment of the inmates of the penitentiaries and reformatories of the state would be proper. As stated above, the City Council has not been given any authority to make contracts for the labor of the inmates of same, and there is little doubt but that the amendment of the constitution adopted in 1886 relating to prison labor, applies to this institution as well as to the penal institutions of the state. This amendinent reads as follows: Hereafter it shall be unlawful for the commissioners of any peniten- tiary or other reformatory institution in the State of Illinois, to let out by contract to any person or persons, or corporations, the labor of any convict confined within said institution. The only reason why there is any question as to the applicability of the above constitutional provision is because the word "convict" is used and it may be regarded as doubtful whether so harsh a name can be applied to a "person confined in the House of Correction, since he does not, through his imprisonment in same, lose any of his civil rights. On the other hand, the provision of the criminal code which authorizes the commitment of persons sentenced to the County Jail or House of Correction, speaks of same as "convicts" (Criminal Code Div. 14, sec. 12), and the act establishing the House of Correction makes provision for the imprisonment of per- sons sent there by the federal courts, who are usually regarded as convicts. After giving due weight to the meaning of the word "convict," the conclusion is irresistible that the constitutional amendment was intended to cover such institutions as the House of Correction. The authorities agree that the institution comes within the definition of the words "penitentiary or other reformatory institution." "A house of refuge and a house of correction are alike in the essential element that each is a quasi-penal institution, whose desideratum is the reformation rather than the punishment of the inmate. "A house of refuge is usually for the young; for juvenile offenders exclusively. A house of correction, originally, was designed for petty evil- doers of all ages, and in the absence of any statutory provision to the con- trary the age of a person committed is of no special importance. "Every institution of a reformatory character embraced within the meaning of the terms 'houses of refuge and correction,' in a legal sense, charitable and eleemosynary, so far as such terms may properly apply to a public corporation. In some states all such reformatory institutions are included in or united with the state charities. Sometimes they are specif- ically declared to be charitable corporations by the statutes which create them. "All such institutions are identical in spirit and purpose. The object of each is the reformation of the culprit and his restoration to society as speedily as the general welfare will permit, prepared and equipped, by reason of the training received while in confinement, to lead a correct and useful life. But all such institutions are distinctly penal as well as reform- atory in character." (15 Am. & Eng. Enc. of Law, 2nd Ed., pp. m .) Webster defines the word "penitentiary" as follows: "A place for penitence, or where penance is inflicted or offenses pun- ished; especially, a house of correction in which offenders are confined for punishment and reformation, and compelled to labor; a work house." Additional authority for our view may be found in following cases: Hughes V. Daly. 49 Conn. 34. McAndrews v. Hamilton Co., 103 Tenn. 399. Aside from the exact definition of the words used, there appears no good reason for limiting the inhibition to the penal institutions ordinarly called penitentaries and reformatories. The fact that the words "or other" appear before the word "reform- atory" and the fact that the word "institution" appears after it, makes it quite clear that the intention was not to confine it to the prison for juvenile offenders ordinarily known as a state reformatory. It was undoubtedly intended that it should include any penal institution where the inmates are employed at work which might compete with outside labor. Therefore, we are of the opinion that neither the board of inspectors of the House of Correction nor the City Council of the city of Chicago has power or authority to make such a contract as is contemplated for the output of prison labor. Yours respectfully, M. W. CAGNEY, Assistant Corporation Counsel. LEON HORNSTEIN, Assistant Corporation Counsel. Approved: WM. H. SEXTON, Corporation Counsel. .Ipfi 3 0112 084209102